NOTICE OF MEETING The Executive Tuesday 5 July 2011, 5.00 pm Council Chamber, Fourth Floor, Easthampstead House, Bracknell
To: The Executive
Councillor Bettison (Chairman), Councillor Ward (Vice-Chairman), Councillors Mrs Ballin, Dr Barnard, Birch, Mrs Hayes, McCracken and Kendall
ALISON SANDERS Director of Corporate Services
EMERGENCY EVACUATION INSTRUCTIONS
1 If you hear the alarm, leave the building immediately. 2 Follow the green signs. 3 Use the stairs not the lifts. 4 Do not re-enter the building until told to do so.
If you require further information, please contact: Jemma Durkan Telephone: 01344 352209 Email: [email protected] Published: 4 July 2011
The Executive Tuesday 5 July 2011, 5.00 pm Council Chamber, Fourth Floor, Easthampstead House, Bracknell AGENDA
Page No
1. Apologies
2. Declarations of Interest Members are asked to declare any personal or prejudicial interests, and the nature of that interest, in respect of any matter to be considered at this meeting.
3. Minutes - 7 June 2011 To consider and approve the minutes of the meeting of the Executive 1 - 10 held on 7 June 2011.
4. Urgent Items of Business
5. Local Economic Development Strategy To endorse the draft Local Economic Development Strategy 2011-14 11 - 50 for consultation.
6. Revised Local Development Scheme To approve the revised Local Development Scheme and submission of 51 - 102 this to the Secretary of State.
7. Thames Basin Heaths Special Protection Area Avoidance and Mitigation Supplementary Planning Document To agree the Thames Basin Heaths Special Protection Area Avoidance 103 - 282 and Mitigation Supplementary Planning Document Consultation Draft for public consultation.
8. Older Person Accommodation and Support Services Strategy To agree the Older Persons Accommodation and Support Services 283 - 330 Strategy.
9. School Places Basic Need To note and endorse the School Places Basic Need. 331 - 342
10. Customer Contact Strategy 2011-2014 To agree the Customer Contact Strategy 2011-2014 and the 343 - 382 associated Action Plan.
11. Commitment Budget 2012/13 - 2014/15 To approve the Commitment Budget 2012/12- 2014/15 and the 383 - 392 proposed budget process for 2012/12.
12. Exclusion of Public and Press To consider the following motion:
That pursuant to Regulation 21 of the Local Authorities (Executive Arrangements) (Access to Information) Regulations 2000 and having regard to the public interest, members of the public and press be excluded from the meeting for the consideration of item 13 which involves the likely disclosure of exempt information under the following category of Schedule 12A of the Local Government Act 1972:
(3) Information relating to the financial or business affairs of any particular person.
Reports Containing Exempt Information
13. Office Accommodation Strategy To approve the Office Accommodation Strategy. 393 - 440
This page is intentionally left blank Agenda Item 3
EXECUTIVE 7 JUNE 2011 5.00 - 5.45 PM
Present: Councillors Ward (Vice-Chairman, in the Chair), Mrs Ballin, Birch, Mrs Hayes, Kendall and McCracken
Apologies for absence were received from: Councillors Bettison (Chairman) and Dr Barnard
1. Declarations of Interest There were no declarations of interest.
2. Minutes - 29 March 2011 RESOLVED that the minutes of the meeting of the Executive on 29 March 2011 together with the accompanying decision records be confirmed as a correct record and signed by the Vice-Chairman.
3. Executive Decisions The Executive considered the reports submitted on the items listed below and the decisions taken are recorded in the decision sheets attached to these minutes and summarised below:
Item 5: Autism Joint Commissioning Strategy RESOLVED that the Bracknell Forest Adult Autism Joint Commissioning Strategy be approved.
Item 6: Energy Procurement RESOLVED that
1 The appointment of Buying Solutions as the Council’s Expert Buying Partner for gas and electricity supplies be confirmed;
2 The use of the new Buying Solutions Gas and Electricity Framework Agreements be agreed;
3 The Director of Environment, Culture and Communities be authorised to sign the Buying Solutions Customer Access Agreement.
1 Item 7: Casual Car Mileage/Car Loan interest rate RESOLVED that
1 The Employment Committee be advised that with effect from 1 August 2011 the Council adopts the standard HMRC flat rate, currently 45p/mile for all business mileage up to 8,500 miles, and 25p/mile thereafter.
2 From 1 August 2011 the interest on new car loans is fixed at the HMRC rate (currently 4%) and that the rates are reviewed annually.
Item 8: Corporate Performance Overview Report Q4 RESOLVED that the performance of the Council over the period from January to March 2011, highlighted in the Overview Report in Annex A be noted.
Item 9: Capital Expenditure Outturn 2010/11 RESOLVED that
1 The outturn capital expenditure and in particular the key variances identified in section 5.6 be noted.
2 The carry forward of £24.389m from the 2010/11 capital programme to 2011/12 including £0.42m relating to projects approved in 2009/10 (see paragraph 5.7) be approved.
3 The financing of capital expenditure as shown in Table 2 be noted.
4 The sum of £350,000 to be added to the Capital Programme in 2011/12 for highway maintenance relating to the additional grant allocated to the Council by Department for Transport (see paragraph 5.11) be approved.
Item 10: Revenue Expenditure Outturn 2010/11 RESOLVED that
1 The outturn expenditure for 2010/11, subject to audit, of £72.905m, which represents an under spend of £1.682m compared with the approved budget, be noted.
2 The funding of the lease surrender for Enid Wood House from current year under spends (see paragraph 5.1 of the report) be approved.
3 The budget carry forwards of £0.410m (see paragraph 5.7 and Annexe C to the report) be noted.
4 The Council’s Treasury Management performance in 2010/11 set out in Annexe B to the report be noted.
5 The earmarked reserves as set out in Annexe D to the report be recommend to the Governance and Audit Committee.
Decision Records
LEADER
2
Bracknell Forest Council Record of Decision
Work Programme Reference I025328
1. TITLE: Autism Joint Commissioning Strategy
2. SERVICE AREA: Adult Social Care and Health
3. PURPOSE OF DECISION
In response to the National Autism Strategy, it is a duty for local areas to develop a Joint Autism Commissioning Strategy for adults with autism.
The decision is for the Executive to agree the proposed drafted Commissioning Strategy.
4 IS KEY DECISION Yes
5. DECISION MADE BY: Executive
6. DECISION:
That the Bracknell Forest Adult Autism Joint Commissioning Strategy be approved.
7. REASON FOR DECISION
The Government has published statutory guidance which sets out how health and social care should support the implementation of the national autism strategy Fulfilling and Rewarding Lives. The guidance states that “Local Authorities, NHS bodies and NHS Foundation Trusts should develop local commissioning plans for services for adults with autism, and review them annually”.
The Bracknell Forest Autism Strategy supports the recommendations in the national strategy and sets out in detail how it intends to implement the statutory guidance.
8. ALTERNATIVE OPTIONS CONSIDERED
None, as it is a statutory requirement for each local authority to have an autism strategy.
9. PRINCIPAL GROUPS CONSULTED: Providers, Carers, Mencap, Berkshire Autistic Society, individuals that use the service
10. DOCUMENT CONSIDERED: Report of the Director of Adult Social Care & Health
11. DECLARED CONFLICTS OF INTEREST: None.
Date Decision Made Final Day of Call-in Period
07 June 2011 15 June 2011 SIGNED:...... DATE:......
3
Bracknell Forest Council Record of Decision
Work Programme Reference I028717
1. TITLE: Energy Procurement
2. SERVICE AREA: Environment, Culture & Communities
3. PURPOSE OF DECISION
To seek endorsement to revised arrangements for the procurement of energy supplies with effect from 1 April 2012
4 IS KEY DECISION Yes
5. DECISION MADE BY: Executive
6. DECISION:
1 That the appointment of Buying Solutions as the Council’s Expert Buying Partner for gas and electricity supplies be confirmed;
2 That the use of the new Buying Solutions Gas and Electricity Framework Agreements be agreed;
3 That the Director of Environment, Culture and Communities be authorised to sign the Buying Solutions Customer Access Agreement.
7. REASON FOR DECISION
The current ex NHS Purchase and Supply Agency (PASA) Frameworks, which the Council has been using since 2007, expire on 31 March 2012. PASA has in the meantime been wound up and the frameworks novated to Buying Solutions who assumed responsibility for energy buying last year. Buying Solutions are in the process of setting up new frameworks to replace these and require all ex PASA customers to sign up a Customer Access Agreement in order to access them; to ensure energy buying can start now for supplies from 1 April 2012, this Access Agreement must be signed by the end of June.
8. ALTERNATIVE OPTIONS CONSIDERED
Other public sector energy buying agency available to the Council include Laser (Kent CC), Eastern Shires Purchasing Organisation, NE Purchasing Organisation, and Yorkshire Purchasing Organisation. All operate on a not for profit basis so there is not felt to be any significant difference in fees (not that any of these organisations will entertain a formal fee- based competition) and moreover the fees are insignificant in relation to the commodity cost – generally around 0.5%. Hence the most important selection factor is the perceived ability of the energy buyer to make the right decisions about when and how much energy to buy. However these have relatively small portfolios and hence buying teams and moreover have only been utilising hedging practices for energy procurement for the last couple of years.
Buying Solutions on the other hand now buy energy for the whole central government and health sectors, together with a large number of local authorities. As a result they have a
4
huge portfolio totalling some 12 TW of electricity and 650m therms of gas pa, equivalent to that of a medium-sized supplier. As such they are by far the largest and most experienced energy buyers in the public sector. Given their depth and length of best practice experience in buying energy in flexible tranches, none of the Berkshire Energy Strategy Group members have considered there to be any realistic alternative buying partner operating in the public sector.
Private sector buying organisations have not been considered as they expect to charge significantly higher fees and have no experience of public sector procurement. Furthermore they are not able to enter into Public Contract Regulations-compliant Framework Agreements. Hence the Council would first have to tender and award its own Framework Agreements with energy suppliers. This would not only be time consuming and resource- intensive, but is also unlikely to attract very competitive interest from suppliers, given that there are so many existing Frameworks available, established by Buying Solutions and the various consortia referred to above.
9. PRINCIPAL GROUPS CONSULTED: Rob Atkins, Steven Milne and Alan Nash
10. DOCUMENT CONSIDERED: Report of the Director of Environment, Culture & Communities
11. DECLARED CONFLICTS OF INTEREST: None.
Date Decision Made Final Day of Call-in Period
07 June 2011 15 June 2011
SIGNED:...... DATE:......
5
Bracknell Forest Council Record of Decision
Work Programme Reference I028685
1. TITLE: Casual Car Mileage/Car Loan interest rate
2. SERVICE AREA: Corporate Services
3. PURPOSE OF DECISION
To reduce the rate at which business casual car mileage is paid from a maximum of 65p/mile to Her Majesty's Revenue and Customs (HMRC) rate of 45p/mile. To alter the basis on which car loans for staff are offered to correlate with the HMRC rate and to review that rate annually.
4 IS KEY DECISION No
5. DECISION MADE BY: Executive
6. DECISION:
1 That the Employment Committee be advised that with effect from 1 August 2011 the Council adopts the standard HMRC flat rate, currently 45p/mile for all business mileage up to 8,500 miles, and 25p/mile thereafter.
2 That from 1 August 2011 the interest on new car loans is fixed at the HMRC rate (currently 4%) and that the rates are reviewed annually.
7. REASON FOR DECISION
To achieve cost savings for the Council.
8. ALTERNATIVE OPTIONS CONSIDERED
CMT have looked in detail at a series of high level questions about the shape of the organisation, the intrinsic nature of the people who work for the Council and, most particularly, the terms and conditions under which they were to be employed. The Director of Corporate Services thereafter developed proposals further in respect of a series of conditions of service including mileage rates and rate of interest for car loans; other contract conditions have also been examined and reports will be brought back on them as required in due course.
9. PRINCIPAL GROUPS CONSULTED: Staff and Unions.
10. DOCUMENT CONSIDERED: Report of the Director of Corporate Services
11. DECLARED CONFLICTS OF INTEREST: None.
Date Decision Made Final Day of Call-in Period
07 June 2011 15 June 2011
SIGNED:...... DATE:...... 6
Bracknell Forest Council Record of Decision
Work Programme Reference I025277
1. TITLE: Corporate Performance Overview Report Q4
2. SERVICE AREA: Chief Executive's Office
3. PURPOSE OF DECISION
To inform the Executive of the performance of the Council over the fourth quarter of 2010/11.
4 IS KEY DECISION No
5. DECISION MADE BY: Executive
6. DECISION:
That the performance of the Council over the period from January to March 2011, highlighted in the Overview Report in Annex A be noted.
7. REASON FOR DECISION
To brief the Executive on the Council’s performance, highlighting key areas, so that appropriate action can be taken if needed.
8. ALTERNATIVE OPTIONS CONSIDERED
None applicable.
9. PRINCIPAL GROUPS CONSULTED: None
10. DOCUMENT CONSIDERED: Report of the Assistant Chief Executive
11. DECLARED CONFLICTS OF INTEREST: None.
Date Decision Made Final Day of Call-in Period
07 June 2011 15 June 2011
SIGNED:...... DATE:......
7
Bracknell Forest Council Record of Decision
Work Programme Reference I027775
1. TITLE: Capital Expenditure Outturn 2010/11
2. SERVICE AREA: Corporate Services
3. PURPOSE OF DECISION
To note outturn expenditure and financing and to approve carry forwards.
4 IS KEY DECISION Yes
5. DECISION MADE BY: Executive
6. DECISION:
1 That the outturn capital expenditure and in particular the key variances identified in section 5.6 be noted.
2 That the carry forward of £24.389m from the 2010/11 capital programme to 2011/12 including £0.42m relating to projects approved in 2009/10 (see paragraph 5.7) be approved.
3 That the financing of capital expenditure as shown in Table 2 be noted.
4 That the sum of £350,000 to be added to the Capital Programme in 2011/12 for highway maintenance relating to the additional grant allocated to the Council by Department for Transport (see paragraph 5.11) be approved.
7. REASON FOR DECISION
The reasons for the recommendations are set out in section 5 of the report.
8. ALTERNATIVE OPTIONS CONSIDERED
Not applicable.
9. PRINCIPAL GROUPS CONSULTED: N/A
10. DOCUMENT CONSIDERED: Report of the Director of Corporate Services
11. DECLARED CONFLICTS OF INTEREST: None.
Date Decision Made Final Day of Call-in Period
07 June 2011 15 June 2011
SIGNED:...... DATE:...... 8
Bracknell Forest Council Record of Decision
Work Programme Reference I027773
1. TITLE: Revenue Expenditure Outturn 2010/11
2. SERVICE AREA: Corporate Services
3. PURPOSE OF DECISION
To note outturn expenditure and make recommendations to the Governance and Audit Committee on Reserves.
4 IS KEY DECISION Yes
5. DECISION MADE BY: Executive
6. DECISION:
1 That the outturn expenditure for 2010/11, subject to audit, of £72.905m, which represents an under spend of £1.682m compared with the approved budget, be noted.
2 That the funding of the lease surrender for Enid Wood House from current year under spends (see paragraph 5.1 of the report) be approved.
3 That the budget carry forwards of £0.410m (see paragraph 5.7 and Annexe C to the report) be noted.
4 That the Council’s Treasury Management performance in 2010/11 set out in Annexe B to the report be noted.
5 That the earmarked reserves as set out in Annexe D to the report be recommend to the Governance and Audit Committee.
7. REASON FOR DECISION
The recommendations are intended to inform the Executive of financial performance against budget in the 2010/11 financial year.
8. ALTERNATIVE OPTIONS CONSIDERED
The report sets out the Council’s actual financial performance in 2010/11 and the consideration of options is not therefore appropriate.
9. PRINCIPAL GROUPS CONSULTED: N/A
10. DOCUMENT CONSIDERED: Report of the Director of Corporate Services
11. DECLARED CONFLICTS OF INTEREST: None.
Date Decision Made Final Day of Call-in Period
07 June 2011 15 June 2011 IGNED: ...... 9 DATE:...... This page is intentionally left blank
10 Agenda Item 5
TO: EXECUTIVE 5 JULY 2011
LOCAL ECONOMIC DEVELOPMENT STRATEGY 2011-2014 Assistant Chief Executive
1 PURPOSE OF DECISION
1.1 The Bracknell Forest Economic and Skills Development Partnership (ESDP) has produced an economic strategy for the borough and engaged with local businesses and other organisations in its production. Following a period of consultation, the partnership has invited partner organisations to endorse the strategy.
1.2 This report summarises the comments received as a result of the consultation and recommends that the Local Economic Development Strategy be endorsed by the council (as set out at appendix 2).
2 RECOMMENDATION
2.1 That Executive endorses the Bracknell Forest Local Economic Development Strategy set out at appendix 2
3 REASONS FOR RECOMMENDATION
3.1 The production and implementation of a local economic development strategy is one of the council’s key objectives in support of sustaining the borough’s economic prosperity.
4 ALTERNATIVE OPTIONS CONSIDERED
4.1 Should the strategy not be approved and implemented, the Council is at risk of not delivering on parts of its corporate theme as set above.
5 SUPPORTING INFORMATION
Background to the strategy 5.1 In 2008 the ESDP took speedy action to help residents and businesses through the “credit crunch”, with a tightly-focused action plan of support. In March 2010, the ESDP agreed that the work around the adopted priority action plan would be refreshed for 2010/2011 through the development and implementation of a local economic development strategy. The strategy, underpinned by a range of evidence including the Reading Diamond Local Economic Assessment, has been developed with an overarching vision for the borough’s economy, creating a set of objectives which will be achieved via co-ordinated actions to help guide the activities of the council and its partners. The strategy links with other council and partners plans including, for example, the child poverty strategy.
11
Economic Development Strategy Steering Group
5.2 The ESDP set up a task and finish steering group to oversee the production of the strategy as well confirming who will lead on its key actions. The detailed action plan is now part of the final strategy.
Method of consultation
5.3 The ESDP produced a consultation draft strategy to form the basis for testing with partners to develop priority actions and identify resources. Wherever possible, the actions have built on the existing work programmes of partners. The consultation was conducted between 8 April and 13 May. The consultation involved a variety of groups including Bracknell’s top twenty businesses, internal council departments, neighbouring authorities and education providers. In parallel, individual discussions were conducted with partners and key stakeholders in order to develop a detailed action plan to implement the strategy. Each partner has agreed to the action required, the lead for the action and the timescales needed for its delivery.
Summary of consultation
5.4 Overall the wider consultation yielded a total of seven responses. Feedback was positive with only one negative view that the overall strategy vision was unrealistic. By contrast, the Bracknell Chamber of Commerce has indicated that it will ensure that its emerging strategy will dovetail with the Local Economic Development Strategy. All respondents agreed that the strategy’s vision was relevant to Bracknell Forest and that it reflected their own organisation’s vision for the future. All agreed that the aims were important to the future of Bracknell Forest and that individually, each aim was realistic and relevant. The individual comments received have been noted and incorporated where possible.
Overview and Scrutiny:
5.5 The Overview and Scrutiny Commission set up a working group to look at the draft strategy. A workshop was held on 16 June and the initial feedback has been positive, with points raised being incorporated into the strategy.
6 ADVICE RECEIVED FROM STATUTORY AND OTHER OFFICERS Borough Solicitor 6.1 None Borough Treasurer 6.2 The Council allocates its financial resources through the budget process in the context of its medium term financial plan. Currently the medium term financial plan forecasts that the Council will need to make significant savings over the next few years. Over this period the Council will have to develop increased efficiency in service delivery whilst still responding to demographic changes, new legislation and the need to modernise services. This will require the reallocation of some of the Councils limited resources to key priorities.
In order to deliver these service changes the Council publishes a range of strategies and policies relating to many of its key services. A strategy or policy does not
12 represent a financial commitment but, rather, sets the strategic direction of travel, subject to the level of resources that become available. These strategies also form the basis of the annual service plan which ensures that the development of the Councils services is consistent with its medium term objectives within the resource envelope that is agreed. The development of these strategies is, therefore, an important part of the Council's arrangements for helping it allocate its limited resources to maximum effect.
Equalities Impact Assessment
6.3 Completed and attached.
Contact for further information Victor Nicholls 01344 355604 [email protected] Doc. Ref L:\Regeneration and Enterprise\Enterprise\Economic Development Strategy\General\ExEconomic Development Strategy July 11
13 Appendix 1 - Equalities Screening Record Form
Date of Screening: Directorate: Section: Chief Executives Office Regeneration and Enterprise 1. Activity to be assessed Please give full details of the activity and summarise the budget reduction proposal
Creation of a Local Economic Development Strategy by the Economic and Skills Development Partnership
2. What is the activity? Policy/strategy Function/procedure Project Review Service Organisational change 3. Is it a new or existing activity? New Existing 4. Officer responsible for the screening Stephanie Pollitt 5. Who are the members of the EIA team? Stephanie Pollitt, Victor Nicholls 6. What is the purpose of the activity? This document has been produced by the EDSP following a programme of consultations with Bracknell Forest businesses, public service agencies and community and voluntary groups. Its aims are to reflect a more coordinated and focused approach to local economic development across sectors and also within Bracknell Forest Council. It contains a joint overarching vision and key objectives for helping to promote economic success. This strategy has
14 had little financial input other than the appointment of an external consultant. It is proposed that the objectives be embedded into individual work programmes and service plans thereby negating the need for any further budget requirements.
7. Who is the activity designed to benefit/target? The Bracknell community and businesses. 8. a Racial equality - Is there an impact? Y N Please explain considering the impact on White British and Irish, Gypsy/Roma/Travellers, What kind of equality impact may there be? No White Other, Black and Minority Ethnic groups; e.g Asian, Black, Chinese, Mixed Race. Is the impact positive or adverse or is there a potential for both? If
the impact is neutral please give a reason. The impact will be neutral as this strategy is not race specific. Its work will be aimed at all races within the community and in line with the Governments Equality act will encourage the voluntary and public sector to work together to innovate to drive effective measures to help build a more inclusive and cohesive society.
8. b What evidence do you have to support this? Please explain E.g equality monitoring data, consultation results, customer satisfaction information etc. N/A 9. a Gender equality - Is there an impact? Y N Whilst the strategy contains gender specific actions, it has highlighted that there are specific retraining What kind of equality impact may there be? No Is the impact positive or adverse or is there a potential for both? If needs for women re-entering the labour market. The actions which will progressed included setting up the impact is neutral please give a reason. a signposting service which will help people seek out ways to develop their skills to get back into work.
9. b What evidence do you have to support this? Please explain N/A 10. a Disability equality - Is there an impact? Y N There is no impact on any form of disability. What kind of equality impact may there be? No Is the impact positive or adverse or is there a potential for both? If the impact is neutral please give a reason. 10. b What evidence do you have to support this? Please explain N/A 11. a Age equality - Is there an impact? Y N This strategy will have a positive impact on all ages. Two of the key themes specifically address What kind of equality impact may there be? Yes improving support and opportunities for young and older unemployed and the older population. The Is the impact positive or adverse or is there a potential for both? If the impact is neutral please give a reason. actions that look at young and older unemployed people aim to bring businesses and education
15 together to encourage local large employers to offer apprenticeships to local young people. There is also an action which will Identify innovative approaches to helping people with limited financial resources start-up new businesses. For older people, we will be looking to see how support can be offered in community settings that are person centred and designed to promote independence, dignity, respect and choice for all. The actions will look at how we can help people to help themselves and will also look at intergenerational activities with young people being involved in internships in care homes and with older people mentoring young people can provide some of the mortar that makes for a thriving sense of community and interdependency.
11. b What evidence do you have to support this? Please explain The issue of NEETs is a challenging one for Bracknell Forest and this group was identified as needing targeted assistance. Evidence for this has been taken from statistics provided by Connexions in Bracknell Forest which maps the month on month trend for the NEET group with the current figure being 6.1% (Jan 2011) for the area. Anecdotal evidence gathered by the University of Reading in their Local Economic Assessment has pointed to young people feeling disaffected and isolated from the education system and subsequently finding it difficult to seek further education and work opportunities. Furthermore the University’s research pointed to a mismatch between
skills required by business start-ups and retention, and those offered by the local young labour force. The UK Commission for Employment and Skills has also noted that this recession has had a greater impact on younger people. Therefore, it was decided to target this group with specific actions in order to rebalance this issue. Targeted work around older people was also agreed as evidence taken from the Local Economic Assessment pointed to a rapidly ageing population. Bracknell Forest’s population of pension age is forecast to grow by about 56% by 2031 and so actions have been put into place in order to address the challenges that will arise around this.
12. a Religion and belief equality - Is there an impact? Y N This strategy is not religious belief specific and is aimed at all parts of the population. It does not What kind of equality impact may there be? No Is the impact positive or adverse or is there a potential for both? If discriminate against any one belief. the impact is neutral please give a reason. 12. b What evidence do you have to support this? Please explain
N/A 13. a Sexual orientation equality - Is there an impact? Y N This strategy will have no impact on sexual orientation as it is aimed at all parts of the population. What kind of equality impact may there be? No Is the impact positive or adverse or is there a potential for both? If the impact is neutral please give a reason. 16 13. b What evidence do you have to support this? Please explain . N/A 14. Please give details of any other potential impacts on any This strategy has evidenced inequalities in income between Bracknell Forest residents employed in the borough other group (e.g. those on lower incomes/carer’s/ex-offenders) and on promoting good community relations. and employees who commute into the borough. By looking at providing more focussed apprenticeships for local people, we will hopefully look to reduce the number of unemployed people and/or improve the opportunities for those on lower incomes by providing more place-based training. By creating intergenerational working with young people and the older population we can look at increasing the availability of staff in care homes via internships, creating a better network of care bodies and promoting mentoring opportunities for young, possibly disillusioned individuals. This will also promote greater community cohesion across all ages. This strategy will look at forms of social enterprise and the ‘Big Society’ in order to help people and businesses to help themselves. Given the strength of public service cuts, it will look at innovative ways to mitigate the effects of these challenges to ensure that the borough can continue to grow.
15. If an adverse/negative impact has been identified can it be Please explain justified on grounds of promoting equality of opportunity for one group or for any other reason? N/A 16. If there is any difference in the impact of the activity when Although two of the key themes look specifically at young and older unemployed and older people in general, this considered for each of the equality groups listed in 8 – 14 above; how significant is the difference in terms of its nature will not have any adverse impact on any other group. These chapters look at age rather than any other group and and the number of people likely to be affected? are inclusive of all equality groups.
17. Could the impact constitute unlawful discrimination in Y N Please explain for each equality group relation to any of the Equality Duties? No 18. What further information or data is required to better understand the impact? Where and how can that information N/A be obtained? 19. On the basis of sections 7 – 17 above is a full impact Y N A full EIA is not required as there are no impacts on all the equality groups other than the ones specified assessment required? No above. 20. If a full impact assessment is not required; what actions will you take to reduce or remove any potential differential/adverse impact, to further promote equality of opportunity through this activity or to obtain further information or data? Please complete the action plan in full, adding more rows as needed. 17 Action Timescale Person Responsible Milestone/Success Criteria
Engage employers more deeply, actively and purposefully in Bracknell Pending Pending Pending Forest’s skills, learning and employment initiatives
Set up a Signposting Service for all ages to obtain information on Pending Pending Pending developing skills or employability. Build on Bracknell Forest’s existing strategy for older people. Pending Pending Pending
21. Which service, business or work plan will these actions be All Council Service plans where appropriate. The actions will be monitored via the Economic and Skills included in? Development Partnership to ensure that partners involved are fully supported to carry out the work that is required to implement the actions from the strategy.
22. Have any current actions to address issues for any of the groups None or examples of good practice been identified as part of the screening? 23. Chief Officers signature. Signature: Date:
24. Which PMR will this screening be reported in?
When complete please send to [email protected] for publication on the Council’s website.
18 Working Together for Sustainable Economic Prosperity
A Local Economic Development Strategy for Bracknell Forest 2011-2014 Bracknell Forest Economic and Skills Development19 Partnership 20 Foreword
Bracknell Forest is a fantastic place for business. The area hosts one of the most successful knowledge economies in the country. The borough enjoys an unrivalled location in the prosperous Thames Valley and is a great place to live, work and visit. Nevertheless, in recent years the national economic picture has changed at an unprecedented rate and local authorities, businesses, agencies and the voluntary sector have become all too aware of their roles in helping to lead their communities out of economic difficulty. The Bracknell Forest Economic and Skills Development Partnership has grasped this challenge and through this strategy, hopes to ensure that the Borough remains resilient and proactive to the future challenges facing the area. In response to the changing economic picture, a new partnership was established with the principal aim of helping the Borough’s residents and businesses through the recession. This was the first time any such partnership had been formed and in September 2008, the Economic and Skills Development Partnership was launched to help sustain economic prosperity for the Borough’s residents and businesses. The partnership, consisting of key representatives from the Council, partner agencies including Jobcentre Plus and Connexions; business representatives including Business Link, Bracknell Regeneration Partnership and the voluntary sector, set in place a priority action plan designed to immediately help local businesses and the community ride the worst of the recession. In 2010, a review of the priority action plan was undertaken and whilst many of the actions had been successfully implemented, it was agreed that more was needed to pull together the work of not only the partnership but also of the other Council departments and partners. The decision was therefore taken to create and implement a Local Economic Development Strategy. This strategy is an important milestone in the partnership’s commitment not only to sustain economic prosperity for our residents and businesses, but also to support the wider partnership work with our partners and Councils in Berkshire and surrounding counties. Our strategy outlines the issues that face us all, sets out a vision for the future, and highlights some specific actions which we propose to take in the next three years and will help pave the way for Bracknell Forest to become an even better place in which to live, work and play. The Economic and Skills Development Partnership set up the Economic Development Strategy Steering Group which has been key in delivering this document and our thanks go to our partners who have committed their time and expertise throughout the process.
21 page 3 22 Contents
1 Introduction ...... page 6
2 The Bracknell Forest Economy - Issues ...... page 7
3 Strategic Framework for Local Economic Development ...... page 11
4 Action Plan ...... page 16
• Business Growth
• Skills and Learning
• The Green Economy
• Infrastructure
• Older People
5 Implementation of the Strategy ...... page 22
Annex...... page 23
• Detailed action plan
23 page 5 Executive Summary
Bracknell Forest is one of the most successful knowledge economies in the country. The Borough has long been seen as an economically prosperous area maintaining a good standard of living for its residents and attracting high profile international businesses providing a sound and enviable global business base. Like many areas of the country, Bracknell Forest has not been immune to the effects of one of the deepest recessions to hit the UK economy and action was quickly taken by the Council in order to mitigate the worst of the effects for the local community and businesses. Bracknell Forest, whilst relatively prosperous, still faces important issues which need action in response. The Economic and Skills Development Partnership was set up in order to tackle and monitor these challenges and much of its work has been done through a priority action plan. The issues highlighted by the partnership are set out in this strategy which, based on consultation and university-led research, identifies the challenges for the future. This research has shown that whilst Bracknell Forest remains one of Britain’s most successful knowledge economies, there is work to be done to sustain and enhance the Borough’s economic prosperity. This strategy therefore, looks to address these issues through partnership working; a way to make the best use of scarce financial resources. The strategy’s overarching vision reflects Bracknell Forest’s ambition to achieve ‘sustainable economic prosperity through innovative and dynamic partnerships between businesses and communities’ and creating ‘an excellent place to live and work’. The vision is heavily place-based and business-centric which is echoed in the across the Berkshire area through the Thames Valley Berkshire Local Enterprise Partnership and in the national Government’s policies. The action plan builds on pre-existing momentum and work programmes. The five broad areas for action are set below and reflect the strategy’s cross cutting themes: • Business Growth • Skills and Learning • The Green Economy • Infrastructure • Older People For each area of action, an overall aim has been established followed by a set of proposed actions. These actions have been the result of research and agreement through the Economic and Skills Development Partnership and its Economic Development Strategy Steering Group. The process of implementation of the actions has been agreed through the consultation process and the detailed action plan aims to deliver the objectives of the partnership . The Strategy identifies our key aspirations to the 2014 and beyond, in line with the aspirations of the partnership, and the aims and objectives of partners. We have brought together a wide range of agencies and individuals across the Borough to develop our approach which focuses on innovation and strategic direction in the light of scarce financial resources. This document reinforces the commitment of the Council and its partners to drive forward the Borough’s economy, making it dynamic and accessible to all.
24 page 6 1 Introduction
Why do we need a local economic strategy? 1.1 Like other areas of the UK, Bracknell Forest faces tough and highly uncertain economic conditions over the next three years. The UK economy is still weak and public spending reductions are expected to have an impact on jobs and work within the community and voluntary sector. There is clearly no room for complacency at the local level, everything that can be done locally to strengthen Bracknell Forest’s economy and the employability of its residents should be done. 1.2 In response, the Economic and Skills Development Partnership has prepared a strategy and action plan for Bracknell Forest, for the next three years. The partnership brings together representatives from the private, public and community and voluntary sectors, to sustain the Borough’s economic prosperity. As a partnership and through this strategy, the Economic and Skills Development Partnership is looking to shape and guide the future of its businesses and residents helping to ensure sustainable growth and dynamism in the local economy. 1.3 The economic development strategy is highly focused on Bracknell Forest as a unique place to live and work. The “Localism Bill” underlines the need for communities to take the initiative in improving well- being through direct local action. A healthy local economy is fundamental to community well-being, since it is the main source of income and job opportunities for many local residents. Therefore, this strategy reflects the wider trend towards localism, thinking locally and acting locally to ensure Bracknell Forest remains an attractive place to live and work. 1.4 At the same time, Bracknell Forest has to join forces with its Berkshire neighbours given that local economies and labour markets are highly interdependent. The new basis for this external collaboration will be the Local Enterprise Partnership for the Berkshire Thames Valley sub-region. Similar business- led partnerships have been set up across England under the ‘Local Growth: Realising Every Place’s Potential’ White Paper (October 2010), replacing the Regional Development Agencies. Covering Reading, Wokingham, Slough, Windsor and Maidenhead, West Berkshire and Bracknell Forest, the Thames Valley Berkshire area is the most powerful sub-regional economy in the UK, outside London. Bracknell Forest’s interests, particularly with respect to inward investment, sector-based support, innovation and strategic infrastructure will be pursued through the Berkshire Local Enterprise Partnership. Therefore, the ‘Borough-centric’ strategy set out in this document will be complementary to the wider growth and competitiveness strategy to be pursued by the Berkshire Thames Valley Local Enterprise Partnership, on behalf of Bracknell Forest and its neighbouring areas.
25 page 7 This Document
1.5 This document was produced by the Economic and Skills Development Partnership following consultation with Bracknell Forest businesses, public service agencies and community and voluntary groups. It reflects a strong coordinated and focused approach to local economic development across sectors and also within Bracknell Forest Council itself. In an austere climate for business and public services, the strategy is based on mobilising social capital within the Borough and working together across boundaries for a common purpose to achieve sustainable economic prosperity’. The document is organised as follows: • Section 2 summarises the challenges and issues facing Bracknell Forest’s future economic development • Section 3 sets out the values and thinking behind the Bracknell Forest strategy, including its vision of “Sustainable Economic Prosperity” • Section 4 presents an Action Plan for Bracknell Forest’s economic development over the next three years • Section 5 explains how the Economic and Skills Development Partnership will move forward in implementing the Strategy and Action Plan 1.6 We have tried to make this document concise to encourage wide readership. The Economic and Skills Development Partnership welcomes new ideas and initiatives for improving the strategy and the action plan. It favours an ‘open innovation’ approach which encourages everyone to participate in keeping Bracknell Forest an excellent place to live and work.
26 page 8 2 The Bracknell Forest economy - Issues 2.1 The Strategy is informed by a range of government data, evidence from research studies and local knowledge. The most up to date information available has been used. In the few instances where the most recent data is itself some years old, it has been “sense checked” against local knowledge and other more recent information. Of particular note are the “Reading Diamond” Local Economic Assessment carried out by the University of Reading, and the high-level vision and strategy report prepared for the Berkshire Economic Strategy Board by Professor Mark Hepworth, Geoeconomics/the University of London.
Decades of Growth and Change 2.2 From its origins focused on a post-war New Town, with a strong manufacturing base, Bracknell Forest has evolved into one of Britain’s leading ‘knowledge economies’ – economies characterised by concentrations of high value/skill/technology industries such as advanced engineering, ICT and pharmaceuticals and financial and business services. The Borough’s knowledge economy is anchored by the UK and European headquarters of major companies, including BMW, Boehringer Ingleheim, Cable & Wireless, Dell, Hewlett Packard, Panasonic, 3M and Waitrose as well as a myriad small and medium sized businesses. 2.3 Bracknell Forest lies at the heart of Britain’s knowledge economy as part of the Berkshire Thames Valley sub-region (Chart 2.1). The Thames Valley is the most competitive sub-regional economy outside London, and one of Europe’s most successful economic areas for attracting inward investment in knowledge-based industries. As a result of the strong presence of knowledge-based sectors, with growth and export potential, Bracknell Forest was identified last year by the Work Foundation as one of the most resilient local economies in the UK, capable of leading the South East out of the recession. 2.4 As a result of its strong knowledge economy, Bracknell Forest workers are, on average, more highly paid than employees in the rest of the country, the South East and the rest of Berkshire and despite the average earnings level residents being lower than workers commuting into Bracknell Forest on the whole, residents have benefited from the Borough’s27 economic success. page 9 Chart 2.1: Bracknell Forest lies at the heart of Britain’s knowledge economy, 2008 (The dark blue-coloured areas are where knowledge-intensive industries are most highly concentrated.)
Knowledge-intensive sectors are defined as industries where 25% of the workforce has a degree and 30% are employed in professional, managerial, scientific and technical occupations. Spanning high productivity manufacturing and services, they include: oil & gas extraction, tobacco products, printing, & publishing, coke, petrol, nuclear, chemicals/products, office machinery, computer, electrical machinery, radio, TV, & communications, medical, precision & optical instruments, motor vehicles and other transport (incl. aerospace); finance, real estate, computer services, R&D and other professional services; travel agencies, radio and TV and other entertainment, news agencies, motion picture and video and museums, libraries, archives; electricity, gas, water and waste; and transport and communications, including telecommunications.
28 page 10 2.5 Looking at the Borough as a whole, the average earnings for residents are significantly higher than the South East and the UK and remain among the highest in the UK average (ASHE 2009 figs). Job quality for people commuting into the Borough appears to have stayed high in the decade leading up to the recession. 2.6 Issues associated with the Bracknell Forest economy were raised by University of Reading researchers, in particular to the familiar ‘limits of growth’, rising levels of traffic congestion including dependency on car commuting, house affordability and choice, as well as labour shortages in service occupations (below graduate level). There are also emerging issues around economic exclusion, particularly amongst young people not in education, employment or training. The latter have been the hardest hit by the adverse economic climate and tightening labour market conditions, not only in Bracknell Forest but across the UK as a whole. At the other demographic extreme, Bracknell Forest’s population of older people risks being vulnerable to economic exclusion at a time when many pensions are being eroded by fuel and food inflation. 2.7 The Economic and Skills Development Partnership places importance on the economic well-being of Bracknell Forest residents, particularly the most vulnerable and those people who depend more on the local labour market for work. Despite the discontinuation of other regeneration projects around the UK, Bracknell’s major redevelopment plans are still proceeding. Steps have also been taken to keep Bracknell town centre attractive for businesses and residents through a new partnership. Recent years have seen developments across the whole Borough including the construction of the new, state of the art, Bracknell and Wokingham, and Garth Hill colleges as well as significant im-provements to the railway station. A new sixth form centre has been built at Edgebarrow School in Crowthorne, and new neighbouhoods have sprung up at Jennett’s Park and The Parks in Bracknell.
Chart 2.2: Trends in Business Growth, 2008
Proportion of businesses in private knowledge intensive sectors 2008
Source: Geoeconomics, BERR, ONS
29 page 11 2.8 The Government expects small firms and higher levels of entrepreneurship to compensate for the negative job and wealth effects of public spending reductions. The Hepworth Report for the Berkshire Economic Strategy Board (2010) highlighted the increasing importance of small business growth and new firm formation, in knowledge-based sectors particularly, to the future health of the sub-regional economy, including Bracknell Forest. Chart 2.2 suggests that whilst the Borough benefits from its strong base of large ‘blue chip’ companies, there are opportunities to help the small business sector become even more dynamic and reinforce entrepreneurial culture. Between 2002 and 2008 Bracknell Forest’s overall enterprise performance was overtaken by the rest of the sub-region, the region and the country. The greatest opportunities are presented in the knowledge-based industries. 2.9 At the opposite extreme, the Hepworth Report raised concern over the future role of multinational corporations in job creation. Interviews with the Thames Valley’s flagship companies underlined the high level of economic and financial uncertainty in the global economy. Business retention is therefore as important as attracting inward investment, together with developing a more balanced and diverse range of growth sectors. The Bracknell Forest Economic and Skills Development Partnership not only recognises the importance of retaining the Borough’s global business base to ensure that the area continues to remain attractive to firms as it has done in the past, but also acknowledges the vital role that its small and medium sized enterprises play in realising the opportunities that Bracknell Forest offers to all types of businesses. This document as a forward-looking economic development strategy for Berkshire and Bracknell Forest will seek to develop these areas through enterprise promotion and support. Summary 2.10 In 2010, the Work Foundation concluded that Bracknell Forest has one of Britain’s most successful knowledge economies, providing one of the best jobs market in the UK. Bracknell Forest’s proximity to London and accessibility to the European and international markets, including the new emerging super-economies, ensures that the Borough can continue to compete locally and nationally and remain attractive to inward investors. 2.11 However, there is a need to ensure that the Borough can achieve sustainable economic prosperity given the social and environmental costs of recent patterns of growth. The Economic and Skills Development Partnership understands that there is a clear need to address these emerging concerns all of which could undermine the Borough’s ambition for sustainable economic prosperity. The need for a more proactive local economic strategy is of course amplified by the state of the UK economy and the housing and labour markets. 2.12 This strategy is therefore a response to the challenges and issues facing Bracknell Forest’s economic development.
30 page 12 3 A Strategic Framework for Local Economic Development 3.1 This section explains the guiding vision and core themes behind Bracknell Forest’s strategic approach to economic development. It begins with an overview of economic development functions – what the Economic and Skills Development Partnership can do locally and sub-regionally. This is a time of ‘policy flux’ as the Government implements its agenda for localism in the provision of public services, and the new Local Enterprise Partnerships get underway as business-led economic development agencies. The Scope for Action 3.2 The scope for English local authorities to influence economic development in their areas is set out in the Government’s White Paper “Local Growth – Realising Every Place’s Potential” (October 2010). The Borough Council can work at two levels – at the Borough and Berkshire level. 3.3 As a unitary authority, Bracknell Forest can strengthen the Borough’s local economy through planning, housing, infrastructure, supply of business premises, and other areas of policy/action. Importantly, by taking the lead and working in partnership with businesses, other public sector organisations and the community and voluntary sector, the Council can have a big direct and indirect influence on Bracknell Forest’s economic development. The scope for the Council to act proactively in leading, enabling and bringing people together is shown in the left column of Chart 3.1. 3.4 The scope for action is becoming clearer following the publication of the Government’s Localism Bill and through the emerging ‘Big Society’ agenda, whereby more public services will be provided by businesses and charities, although the practical implications still need to be assessed. Planning reforms are expected. Local development plans will be complemented by community-driven ‘neighbourhood plans’. Last October the ‘Local Growth’ White Paper recommended financial reforms, such as “rewarding” local authorities for hosting housing and pursuing economic development. The New Homes Bonus, starting in 2011-12, will match-fund the additional council tax for each new home and property brought back into use for each of the six years after that home is built. Further, a new Business Increase Bonus scheme could allow local authorities whose growth in the business rates yield exceeds a threshold, to keep the increase for a period of six years.
31 page 13 Chart 3.1: Promoting economic development in Bracknell Forest
The Role of the Local Authority The Role of Thames Valley Berkshire Leadership and coordination to set out a Local Enterprise Partnership framework for local development Skills – tackle skills gaps, skills for growth Supporting growth and development through sectors, graduate retention and champion supply of land that supports business growth and apprenticeships a housing supply that meets the Borough’s needs Innovation – build ‘community of innovation’ for Using land assets to leverage private funding to business growth with University of Reading support growth Strategic planning – ensure a coordinated and Directly and indirectly influencing investment consistent approach across Berkshire authorities decisions via the use of statutory powers, Infrastructure – identify key requirements and particularly through the planning system formulate delivery plans Supporting local infrastructure which is a key Transport – develop a Berkshire-wide transport enabler for growth strategy based on understanding of critical Support for local people and businesses providing business needs high quality services that directly support Housing & community – coordinate housing and businesses investment confidence maintaining planning decisions within a sustainable economic trading standards to keep markets fair development framework Leading efforts to support and improve health Inward investment – promote TV Berkshire to and well being of the local population to potential inward investors ensure that all individuals have the maximum opportunity to benefit work and contribute to Business retention & aftercare – develop client- the local economy centred approach, networking and business in community initiatives Business support & enterprise – remove barriers to innovation and growth, business rate flexibility Advocacy, strategic leadership & efficiency – champion Berkshire economy and coordinated delivery to reduce duplication of functions
3.5 The right-hand column shows the additional influence the Council can exert through its membership of the new Thames Valley Berkshire Local Enterprise Partnership. The functions listed in Chart 3.1 are actually proposed actions as they appear in the submission to the Secretaries of State in September 2010. Governance and strategies and action plans for the Local Enterprise Partnership are being firmed up, with Bracknell Forest Council and Chamber of Commerce integrally involved. 3.6 As shown in Chart 3.1, the Local Enterprise Partnership will concentrate its efforts on delivering business growth across the whole of the sub-region by promoting innovation, enterprise, skills, infrastructure, lobbying and coordinating local policies and funding. Bracknell Forest has a significant stake in the future success of the Thames Valley Berkshire Local Enterprise Partnership. The Economic and Skills Development Partnership will, therefore, ensure that Bracknell Forest’s economic development strategy is congruent with that of the Local Enterprise Partnership as its takes more definite shape in the coming year. 3.7 Direct funding for economic development has always been relatively scarce and over the life of this strategy (2011-14) discretionary money will be even more limited. Therefore, the Economic and Skills Development Partnership (and the Local Enterprise Partnership) will depend on their ability to influence decision-making in all sectors, and persuade people to work together across boundaries. Aligning and targeting available funding and resources more intelligently and effectively will be vital. Scanning the horizon for UK and EU funding opportunities will have to go hand in hand with discovering innovative funding solutions for economic development projects.32 page 14 A Vision of Sustainable Economic Prosperity 3.8 A compelling vision for Bracknell Forest’s economic development is valuable as a ‘rallying cry’. It should convey the ‘long view’ local interested parties have agreed on for taking the Borough’s economy forward beyond 2014. 3.9 For the purpose of this strategy, the Economic and Skills Development Partnership’s vision is intended to reflect and ambition for Bracknell Forest sustainable economic prosperity.
Bracknell Forest Local Economic Development Strategy Vision Bracknell Forest will be an excellent place to live and work – where sustainable economic prosperity has been achieved through innovative and dynamic partnerships between the Borough’s businesses and communities.
3.10 This economic development vision for Bracknell Forest resonates strongly with the place-based vision for the Borough to be found in the Sustainable Community Strategy 2008-2014, and also the business-centric vision that has been adopted by the Thames Valley Berkshire Partnership. These complementary visions are set out in the grey box below.
Sustainable Community vision Bracknell Forest will have a reputation for its distinguished green landscape and contemporary, vibrant town centre. Contributing to this unique identity will be many neighbourhoods offering accessible facilities to meet individuals’ needs. Local communities will be strengthened with people feeling safe and getting on well together. Ensuring everyone has similar opportunities and is included in public life will enhance confidence in public services. The borough will have a prosperous and diverse economy, offering local jobs, personalised public services and a range of ways to spend leisure time. This is a bold vision for all of us which will be achieved through nurturing future and existing generations.
Thames Valley Berkshire vision Berkshire will be a diverse knowledge economy based on a spirit of entrepreneurship, enterprise, innovation and low carbon technology. We will be the ideopolis of the UK and Europe. Building on the economic success of previous decades we will work towards removing the barriers to business growth, innovation and job creation. Standing still is not an option for Thames Valley Berkshire.
3.11 The phrase sustainable economic prosperity is sufficient to keep in mind and in the forefront of economic development debates. ‘Sustainable’ conveys the Borough’s ambition for balanced economic development – a dynamic, fair and green pattern of growth and change. Cross-cutting Themes 3.12 Four themes cut across the economic development strategy. They reflect wider policy and market trends and priorities identified by the Economic and Skills Development Partnership. Business Growth 3.13 Bracknell Forest has performed strongly on business growth for the last two decades. However there is a need to guard against any possible loss of economic dynamism, and any vulnerability in the local labour market. Of particular importance is the need for stronger business growth to compensate for a medium-term decline in the public sector as a source of direct employment. 3.14 Business growth can be enhanced by diversifying Bracknell Forest’s local economic base and promoting the small business and enterprise start-up sectors. Keeping businesses in Bracknell Forest is vital as globalisation speeds up. Business retention measures are more place-based and hence more central to this economic development strategy; inward investment, particularly when linked to promoting key growth sectors, needs to be primarily driven by the Local Enterprise Partnership to carry sufficient weight and thrust. 33 page 15 The Future of Public Services 3.15 The public sector, as a direct employer and procurer of goods and services, is a major actor in the Bracknell Forest economy. High quality public services are also important to a high quality of life, since they are part of what economists call ‘the social wage’ – a source of economic well-being that is additional to the individual ‘pay packet’. 3.16 The big challenge facing Bracknell Forest (and everywhere else) is to ensure that the health of the local economy and the economic well-being of residents are safeguarded. Businesses, social enterprises and community and voluntary agencies will need to be properly equipped to compete successfully as future providers of public services. This will require management development, business mentoring, skills training and innovative financing schemes. The Green Economy 3.17 The green economy refers to a diverse range of economic activity associated with tackling climate change, improving resource efficiency and conserving biodiversity and ecosystems. Technology and regulatory drivers are creating markets in four broad areas: clean energy, green buildings, sustainable transport and resource management and conservation. The Government, which has declared its intention to become ‘the greenest government ever’, is backing the green economy as a source of growth and diversification. The Thames Valley Berkshire Local Enterprise Partnership has made the green economy one of its priority areas for innovation and business growth. 3.18 The Sustainable Community Strategy vision for Bracknell Forest seeks to make the Borough a greener place to live and work. The challenge is to exploit emerging opportunities to ‘green and grow’ that is, to create new jobs and new business opportunities in the context of improving the local environment. Bracknell Forest Chamber of Commerce is particularly alive to the economic and business potential of the green economy. 3.19 For any business to be competitive it must cut its carbon and become energy efficient. Those businesses that can demonstrate a 25 % cut in consumption whilst maintaining performance will out perform their competitors. So a green economy is an efficient and highly competitive economy. Those organisations that fail to take up the challenge are wasting their own resources. Bracknell has some of the companies that are leading the way in terms of developing the technology for green efficiency and Bracknell Forest Council should work closely with them. 3.20 The green economy is already a focus of partnership activity such that the Action Plan will build on existing effort and learning. For example, Scottish & Southern is championing a flagship low carbon smart grid project involving various partners from business, academia and the local community. The Council is already promoting home energy efficiency improvements with the involvement of local suppliers, and in March 2011, with the local Climate Change Partnership, will be promoting renewable technologies in the community (eg solar photovoltaics scheme). Green economy activities are embedded in the Local Development Framework/Core Strategy, as well as in the Council’s sustainable procurement practices. Thus, the Action Plan has good foundations on which to build ‘green and grow’ initiatives. Older People and Inter-generational Working 3.21 In this strategy, Bracknell Forest’s population of older people is treated as an important economic asset in its own right. There are several areas of opportunity: The high growth care sector - health-related jobs and management and service jobs; the construction of appropriate housing and modern care homes fit for purpose with particular attention paid to dementia needs. Wisdom and human capital - the older population provides a reservoir of skills that it is important not to lose, for example engineering-related knowledge. Their experience could well be channelled in mentoring and coaching of young entrants to the job market. Moreover with increased emphasis on flexible and part-time working older people can stay in the workforce well into their seventies and contribute vast experience to industries here. Inter-generational working - with young people being involved in internships in care homes and with older people mentoring young people can provide some of the mortar that makes for a thriving sense of community and interdependency. 34 page 16 3.22 Bracknell Forest has the opportunity, through this economic development strategy, to demonstrate that an ageing population can be a vital part of a healthy economy. Moreover it can become the best place in the country for ensuring that care for older people and inter-generational working is dynamic areas of the local economy. The Council already has an imaginative forward looking strategy for older people which are built upon in the Action Plan presented in Section 4. Summary 3.23 A more proactive locally-driven approach to Bracknell Forest’s economic development is consistent with the Government’s policies. This place-based strategy for strengthening the Borough’s economy will be reinforced by the sub-regional economic strategy of the Thames Valley Berkshire Local Enterprise Partnership. Leadership, influence, partnerships and intelligent use of scarce resources are key to delivering this strategy. 3.24 The vision for this strategy is Bracknell Forest becoming a place where the ideal of sustainable economic prosperity has been realised. Social capital and human capital, the ability of people to work together for a common purpose and their knowledge and ingenuity, are the intangible resources that will make the strategy a success. 3.25 Finally, four themes cut across the economic development strategy. Business growth offer dynamism and resilience. Radical reforms in public services offer opportunities for local enterprise. The green economy could be a recipe for ‘greening and growing’ businesses, workplaces and sustainable transport options. Bracknell Forest could become a model for making care of the older people and inter-generational working sources of economic dynamism.
35 page 17 4 Proposed Action Plan 2011-2014 4.1 This section sets out an action plan for implementing the economic development strategy. A detailed implementation plan, including priority actions and timescales has been prepared following collaboration with key players in the local economy. The actions are not for any single organisation alone; it is a partnership plan. Overview of Scope and Content 4.2 The proposed action plan is based on initial stakeholder consultations carried out by the Economic and Skills Development Partnership. Wherever possible, recommendations for action build on the momentum and knowledge generated by existing programmes. 4.3 There are five broad areas for action: • Business Growth • Skills and Learning • The Green Economy • Infrastructure • Older People 4.4 The boundaries between these areas are porous and there are strong linkages across the areas. 4.5 It should be further noted that the “Business Growth” section below includes generic measures to enhance business growth in Bracknell Forest, that is to say, measures that apply to all businesses rather than to targeted sectors. A sharper sector focus is to be found in the Green Economy (the environmental sector), older people (the health and care sector) and the Infrastructure (the digital economy sector) sections. 4.6 For each area of action, there is an overall aim and a summary of the issues being addressed, and a list of proposed actions. The detailed action plan which covers lead partners and time-frames can be found at appendix A. This action plan is designed to be refreshed on an annual basis and changes will be made accordingly in response to economic conditions, funding and completion of actions.
36 page 18 Business Growth
Aims To ensure Bracknell Forest continues to be an attractive location for major businesses not only to retain its existing businesses but to promote future enterprise development.
Issues Globalisation is underlining the need to retain existing companies and to compete for new sources of mobile investment. Diversifying the local economic base and improving enterprise performance are also key aspects of future business growth.
Actions 1 Actively promote Bracknell Forest as a premier International Business Location, particularly for high value knowledge-based sectors, through the new Thames Valley Berkshire Local Enterprise Partnership. 2 Bracknell Forest Council to work closely with partner agencies to promote links to the BRIC (Brazil, Russia, India and China) economies in order to support growth for Small and Medium sized Enterprises. Bracknell Forest to be a strategic partner in securing the links to China with the British Chamber of Commerce. 3 Establish a Bracknell Forest Business Network with a centrally-located one-stop shop and a branded web portal through which local businesses and businesses located outside the Borough can access/be signposted to local economic information, events schedules, directories and support services. 4 Create an Enterprise Hub in Bracknell Forest town centre by converting empty office and retail space into flexible low cost accommodation, alongside a business sustainability plan. The ‘Hub’ would provide flexible and well-designed space for people to work, meet, innovate, learn and relax and start and grow new business ideas. 5 Help people to start up their own businesses through: • A Signposting Service for start up funds and support services, e.g. advice on Jobcentre Plus funding, applications to Frederick Foundation, or to banks and resource links such as marketing experts, HR professionals and so on. • Specific training sessions for individuals and not for profit organisations to understand business start up, what is involved and how to take forward. 6 Develop a Capacity-building Service for local businesses and local voluntary and community organisations to become public service providers under the Big Society reforms – including the promotion of social enterprise as alternative business growth model.
37 page 19 Skills and Learning
Aims To ensure that everyone has access to appropriate work and skills development opportunities regardless of age allowing them to play a part in Bracknell Forest’s economic future.
Issues Skills and learning issues cut across all generations. Too many young people are not in employment, education or training. There are re-training needs among people in mid-career (45-60) and women re- entering the labour market. Older people will have to work longer due to the higher retirement age and pension pressures. These issues are exacerbated by the adverse economic and jobs outlook in Britain.
Actions 1 Engage employers more deeply, actively and purposefully in Bracknell Forest’s skills, learning and employment initiatives, focusing on: • Increasing the range of all-age apprenticeships by getting local employers more involved and more informed (eg. host National Apprenticeship Service information breakfast meetings). • Identify the skills needs of local employers and work with providers to invest in delivering relevant skills courses and improve links between schools and business. 2 Ensure all-age training and development placements are included in tenders for building work, wherever appropriate, and to include apprenticeships, adult apprenticeships and work trials. 3 Create a ‘Knowledge Bank’ that captures the accumulated practical and commercial knowledge of semi-retired, retired or even working residents who may be looking for opportunities act as mentors and skill builders. 4 Promotion of careers service from Grow Your Own and Next Step for all ages to obtain information as developing skills or employability and career developing skills or employability and career change transition.
38 page 20 The Green Economy
Aims To develop the green economy in Bracknell Forest as an important future driver of business growth and job creation.
Issues The green economy requires technological, organisational and social innovation for markets and industries to reach a critical threshold. Governments at all levels have an important role in encouraging innovation and breaking through market bottlenecks – finance, skills, research and development etc. Importantly, the green economy calls for ‘green and grow’ initiatives.
Actions 1 Establish a Green Economy Forum for the Borough which brings together large and small businesses from the Environment Goods & Services Sector as well as social enterprises and non-profit groups. The mission of the Forum would be to develop ‘green and grow’ initiatives for the Borough. 2 Pursue a Local Clean Energy Strategy for Bracknell Forest based on a shift to renewable sources and neighbourhood/micro energy generation schemes, creating opportunities for new skills and jobs and new businesses and social enterprises.
39 page 21 Infrastructure
Aims To develop a modern communications infrastructure and a requisite variety of housing options that meet the changing needs of Bracknell Forest businesses, employers and residents.
Issues Increasing traffic congestion is frequently reported by employers and commuters in terms of cost and time. Housing pressures can exacerbate these mobility/connectivity problems, making it difficult for businesses to attract/retain people with degree, supervisory/skilled craft and even basic qualifications. Sustainable mobility is also needed to realise the Borough’s environmental and green aspirations which will also improve its attractiveness to businesses and employees.
Actions 1 Promote a distinctive housing offer which explicitly addresses the demands of residents, from senior management executives to families, wishing to live and work in the Borough, by providing tenures that are not only affordable but are a type attractive to all who work in Bracknell Forest. This would include housing design such as live-work units, where demand exists and will complement the wider Town Centre regeneration. 2 Ensure that Bracknell Forest’s Broadband Infrastructure is world-class and equally accessible to all residents and businesses located within the Borough helping to develop the ‘Digital Economy’ as a diverse area of enterprise development around the green economy. 3 Pilot a Telecommuting Initiative for the Borough, with the major employers taking the lead; demonstrate the real, measurable economic, social and environmental benefits of the transport- telecommunications trade-off. Develop roll-out plans accordingly. 4 Lobby for a faster train service from Bracknell to London.
40 page 22 Older People
Aims To ensure that older people play an active and fully-recognised role in the Borough’s efforts to achieve sustainable economic prosperity. To develop care for the Older People as an important growth sector of the Bracknell Forest economy.
Issues Ageing population and pension issues mean people have to work longer. Older people’s households may be asset-rich but income-poor. There is a demand for suitable accommodation as well as retrofit requirements to reduce the operating costs of their homes. Older people are also highly active in community and voluntary work which should be recognised more. The Borough could become a leader in 21st century Care for older people, where business and job growth is assured owing to demographic forces.
Actions 1 Building on Bracknell Forest’s existing strategy for older people: • Ensure that support is available in Community Settings that are person-centred and designed to promote independence, dignity, respect and choice for all. • Ensure that families who face financial hardship are offered benefits and advisory services. • Collaborate with local landlords to improve outcomes for older people, through exploring housing options, adaptations and the introduction of Telecare where the person’s current housing is a barrier to independence. • Volunteering will be encouraged and people will be supported and encouraged to participate in initiatives such as Time and Wisdom banks. 2 Ensure that Bracknell Forest becomes a model place for the Care Sector, developing ICT and low carbon technologies that will enable older people to stay safe and able, and winning business from around the country. The Sector will be an arena for innovative partnerships with businesses (corporate social responsibility) and inter-generational working through apprenticeships and graduate placements.
41 page 23 5 Implementing the Strategy 5.1 The strategy is not the responsibility of any one partner; it will be implemented by a range of organisations and individuals and will be used to secure commitment to action from partners. Implementation will be achieved via a co-ordinated approach and close working across Berkshire with partner organisations and through specific working groups including the Berkshire Local Enterprise Partnership and the Berkshire Economic Development Officer’s Working group (BEDOG). This co- ordinated approach will ensure that actions remain fit for purpose and relevant to the needs of the Borough. 5.2 As part of the consultation process individual meetings took place with key delivery partners in order to identify and confirm the leads for the actions. The result is a detailed action plan that can be found overleaf which details the lead organisations for each action and the anticipated timescale. As this strategy is intended to be a living document, it will be updated on an annual basis in response to external and internal changes.
42 page 24 APPENDIX A Local Economic Development Strategy Detailed Action Plan
43 page 25 Action Lead What is being Year 1 done at present? Business Growth
Actively promote Bracknell Forest as a premier international Bracknell Forest Collaborative work 2011 business location, particularly for high value knowledge- Regeneration already underway based sectors, through the new Thames Valley Berkshire Local and Enterprise as part of Berkshire Enterprise Partnership. Functional Economic Area.
Bracknell Forest Council to work closely with partner agencies Chamber of Collaborative work 2011 to promote links to the BRIC (Brazil, Russia, India and China) Commerce/ already underway. economies in order to support growth for Small and Medium Bracknell Forest sized Enterprises. Bracknell Forest to be a strategic partner Regeneration in securing the links to China with the British Chambers of and Enterprise Commerce.
Establish a Bracknell Forest Business Network with a centrally- Chamber of 2011 located one-stop shop and a branded web portal through Commerce which local businesses and businesses located outside the Borough can access/be signposted to local economic information, events schedules, directories and support services.
Help people to start up their own businesses through: Shop Support/ 2011 • A signposting service for start up funds and support services, Bracknell Forest e.g. advice on Jobcentre Plus funding, applications to Frederick Regeneration Foundation, or to banks and resource links such as marketing and Enterprise experts, HR professionals and so on. • Specific training sessions for individuals and not for profit organisations to understand business start up, what is involved and how to take forward.
Skills and Learning
Engage employers more deeply, actively and purposefully in Jobcentre Plus/ Work being done as 2011 Bracknell Forest’s skills, learning and employment initiatives, Bracknell Forest part of ‘Get Britain focusing on: Council Lifelong Working’ campaign • Increasing the range of all-age apprenticeships by getting Learning/ and also with the local employers more involved and more informed (e.g. Education introduction of the host National Apprenticeship Service information breakfast Business Service Academies in meetings). Partnership August 2011. • Identify the skills needs of local employers and work with providers to invest in delivering relevant skills courses and improve links between schools and business.
Promotion of careers service from Grow our Own and Next Bracknell Forest Careers service already 2011 Step for all ages to obtain information on developing skills or Council Lifelong offered by Grow our employability and career change transition. Learning/ Own and signpost to Jobcentre Plus Next Steps. Greater promotion is now needed around this.
Green Economy
Pursue a Local Clean Energy Strategy for Bracknell Forest based Bracknell Forest Promotion of 2011 on a shift to renewable sources and neighbourhood/micro Council Climate Photovoltaics to energy generation schemes, creating opportunities for new Change, Spatial local residents and skills and jobs and new businesses and social enterprises. Policy employees. Partners with Scottish and Southern Electricity’s Thames Valley Vision smart grid project.
Establish a Green Economy Forum for the Borough which Chamber of 2011 brings together large and small businesses from the Commerce Environment Goods & Services Sector as well as social enterprises and non-profit groups. The mission of the Forum would be to develop ‘green and grow’ initiatives for the Borough.
44 page 26 Action Lead What is being Year 1 done at present? Infrastructure
Lobby for a faster train service from Bracknell to London. Bracknell 2011 Forest Council Regeneration and Enterprise
Older People
Building on Bracknell Forest’s existing strategy for older Bracknell Forest Work is being done 2011-2014 people: Council Adult as part of the existing • Ensure that support is available in Community Settings that Social Care and service plans and will are person centred and designed to promote independence, Health continue as such. dignity, respect and choice for all. • Ensure that families who face financial hardship are offered benefits and advisory services. • Collaborate with local landlords to improve outcomes for older people, through exploring housing options, adaptations and the introduction of Telecare where the person’s current housing is a barrier to independence • Volunteering will be encouraged and people will be supported and encouraged to participate in initiatives such as Time and Wisdom banks.
Action Lead What is being Year 2 done at present? Business Growth
Create an Enterprise Hub in Bracknell Forest town centre by Chamber of 2012 converting empty office and retail space into flexible low Commerce cost accommodation, alongside a business sustainability plan. The ‘Hub’ would provide flexible and well-designed space for people to work, meet, innovate, learn and relax and start and grow new business ideas.
Infrastructure
Ensure that Bracknell Forest’s Broadband Infrastructure Bracknell Forest Initial talks underway 2012 is world-class and equally accessible to all residents and Council ICT/ and looking at a co- businesses located within the Borough helping to develop the Bracknell Forest ordinated approach Digital Economy’ as a diverse area of enterprise development Regeneration across Berkshire around the green economy. and Enterprise through BDUK Broadband Delivery Project.
Pilot a Telecommuting Initiative for the Borough, with the Chamber of 2012 major employers taking the lead; demonstrate the real, Commerce measurable economic, social and environmental benefits of the transport-telecommunications trade-off. Develop roll-out plans accordingly.
Skills and Learning
Ensure all-age training and development placements are Bracknell Forest Discussions already 2012 included in all tenders for building works, wherever appropriate, Council Lifelong underway. and to include apprenticeships, adult apprenticeships and work Learning/ trials. Procurement
45 page 27 Action Lead What is being Year 3 done at present? Infrastructure
Promote a distinctive housing offer which explicitly addresses Bracknell Forest 2014 the demands of residents, from senior management executives Council Housing to families, wishing to live and work in the Borough, by providing tenures that are not only affordable but are a type attractive to all who work in Bracknell Forest. This would include housing design such as live-work units, where demand exists and will complement the wider Town Centre regeneration.
Older People
Ensure that Bracknell Forest becomes a model place for the Caring for 2014 Care Sector, developing ICT and low carbon technologies that Care Homes/ will enable older people to stay safe and able, and winning Bracknell Forest business from around the country. The Sector will be an Council Adult arena for innovative partnerships with businesses (corporate Social Care and social responsibility) and inter-generational working through Health/Bracknell apprenticeships and graduate placements. Forest Voluntary Action
Skills
Create a ‘Knowledge Bank’ that captures the accumulated Jobcentre Plus/ A national initiative 2014 practical and commercial knowledge of semi-retired, retired or Bracknell Forest is being investigated even working residents who may be looking for opportunities Council Lifelong by the Workers act as mentors and skill builders. Learning Educational Association which could provide the framework for a local project.
Business Growth
Develop a Capacity-building Service for local businesses and Bracknell Forest Already part of core 2014 local voluntary and community organisations to become public Voluntary Action work for Bracknell service providers under the Big Society reforms – including the Forest Voluntary Action promotion of social enterprise as alternative business growth to encourage members model. to work collaboratively.
46 page 28 Glossary
Berkshire Economic Strategy Board (BESB) The Berkshire Economic Strategy Board was established to act as the overarching economic strategic partnership for the sub-region and works to ensure sub-regional economic sustainability. Berkshire Functional Economic Area (FEA) Functional Economic Area’s are areas in which the local economy and key markets operate and extend beyond administrative areas i.e. Unitary Authority boundaries Big Society The aim of the Big Society is to create a climate that empowers local people and communities taking power away from politicians. It is primarily designed to allow communities to solve problems in their neighbourhoods, having the freedom to influence and discuss topics that matter to them, and a more local approach to social action and responsibility. Bracknell Forest Sustainable Community Strategy The strategy sets out the long term vision for the Borough. The vision, produced by the Bracknell Forest Partnership, covers all aspects of life for people on the Borough, examining where we have come from, where we are now and where we want to be in 2030. BRIC Economies BRIC refers to the countries of Brazil, Russia, India and China who have been identified for their economic potential to become the four most dominant economies by 2050. Get Britain Working campaign As part of its drive to Get Britain Working, Jobcentre Plus is replacing existing employment schemes, pilots and projects with one new Work Programme. The Work Programme will support a wide range of customers - from Jobseekers Allowance recipients who have been out of work for some time, to customers who may previously have been receiving incapacity benefit for many years. Grow Our Own The aim of Grow our Own is to help local employers recruit and retain the best in Windsor, Bracknell and Maidenhead by providing them with the local workforce they need. They provide support, advice, guidance and training to local residents who want to find employment in their home area and matches local people to local jobs, whatever their background or circumstances, at every skill level - from junior operative to senior executive. Grow Our Own is a joint venture between the Learning Partnerships of Bracknell Forest Borough Council and The Royal Borough of Windsor and Maidenhead. Knowledge Economy A knowledge-based economy refers to the use of knowledge technologies such as knowledge engineering and knowledge management to produce economic benefits as well as job creation. Localism Bill This Bill will shift power from central government back into the hands of individuals, communities and councils and contains a number of important packages including community empowerment, changes to the planning system and changes to social housing policies. Next Step Next Step provides information and advice to support adults in making appropriate decisions on a full range of learning and work opportunities. Photovoltaic’s Photovoltaic’s (PV) is a method of generating electrical power by converting solar radiation into direct current electricity using semiconductors that exhibit the photovoltaic effect. Photovoltaic power generation employs solar panels composed of a number of cells47 containing a photovoltaic material. page 29 Reading Diamond The term Diamond is used to define the most significant and largely urban functional economic areas that have the potential to act as a catalyst to stimulate prosperity across wider areas, and which offer scope for further sustainable growth based on targeted investment in their infrastructure. The ‘Reading Diamond’ is best described as ranging from the west of Theale, through Reading and along the A329(M) corridor to encompass Bracknell town, and extending approx 3 - 5 miles to the north and south of the urban boundary of Reading. Such ‘boundaries’ are intended to be indicative, permeable and fluid. Telecommuting Telecommuting is a work arrangement in which employees enjoy flexibility in working location and hours. Many work from home, while others, occasionally also referred to as nomad workers or web commuters utilise mobile telecommunications technology to work from coffee shops or other locations. Thames Valley Berkshire Local Enterprise Partnership Local Enterprise Partnerships replace the abolished Regional Development Agencies. They are locally-owned partnerships between local authorities and businesses and will play a central role in determining local economic priorities and undertaking activities to drive economic growth and the creation of local jobs. They are also a key vehicle in delivering Government objectives for economic growth and decentralisation, whilst also providing a means for local authorities to work together with business in order to quicken the economic recovery. Workers Educational Association The Workers’ Educational Association (WEA) is the UK’s largest voluntary provider of adult education. Ever since it was founded in 1903, in order to support the educational needs of working men and women, the WEA has maintained its commitment to provide access to education and learning for adults from all backgrounds, and in particular those who have previously missed out on education. Work Foundation The Work Foundation is a not-for-profit organisation whose independence, expertise and networks provide a strong platform for engagement. Their aim is to improve quality of working life and the effectiveness of organisations by equipping leaders, policymakers and opinion-formers with evidence, advice, new thinking and networks.
48 page 30 49 Copies of this document may be obtained in large print, easy read, Braille, on audio tape or in other languages. To obtain a copy in an alternative format, please telephone 01344 352000.
Contact Details:
Chief Executive’s Office, Easthampstead House, Town Square, Bracknell, Berkshire RG12 1AQ T: 01344 352173 www.bracknellforestpartnership.co.uk [email protected]
© Design and Print Services 2011 50 Agenda Item 6
TO: THEth EXECUTIVE 5 JULY 2011
LOCAL DEVELOPMENT SCHEME (Director of Environment, Culture and Communities)
1 PURPOSE OF DECISION
1.1 The Purpose of this decision is to: • Seek Members’ approval of proposed changes to the timetable for the production of Local Development Documents (LDDs) as set out in an updated Local Development Scheme at Appendix B; and, • seek approval to submit the updated Local Development Scheme to the Secretary of State.
2 RECOMMENDATIONS
2.1 That the Executive resolve that the Local Development Scheme at Appendix B shall come into effect on 8 August 2011 subject to no objection being received from the Secretary of State.
2.2 That authority is delegated to the Director of Environment, Culture and Communities, in consultation with the Executive Member for Planning and Transportation, to make any necessary minor amendments to the Local Development Scheme prior to its submission to the Secretary of State.
3 REASON FOR RECOMMENDATIONS
3.1 It is a statutory requirement to prepare and maintain a Local Development Scheme (LDS) to guide the preparation of the Local Development Framework for the delivery of a spatial planning strategy for the Borough. This LDS needs to reflect the most up to date legislation and guidance. Development Plan Documents must be prepared in accordance with the LDS.
3.2 The LDS sets out a three year rolling programme and timetable for the preparation of the documents which make up the LDF. An up to date LDS is necessary to ensure that the work programme can be carried out within expected staffing and financial resources.
4 ALTERNATIVE OPTIONS CONSIDERED
4.1 The option of not updating the Local Development Scheme was considered but the current LDS which came into effect in September 2009 is now clearly out of date in a number of respects as a number of documents have been adopted since it was produced and the programmes the remaining documents have had to be changed partly due to the changes coming about in the planning system following the change of government.
4.2 The other main alternative considered is not to proceed with the Site Allocations Development Plan Document (SADPD). The alternative would be to abandon the
51 SADPD and commence immediately on a review of the Core Strategy. However, it is considered important to continue the SADPD process for the following reasons:
• the lack of a five year housing supply against the Core Strategy housing target and the Regional Spatial Strategy housing target;
• the likelihood of planning applications being submitted for major development sites and potential appeals and the need for the Council to have a defensible position to resist unacceptable development proposals;
• reversion to a Core Strategy Review would put back securing a five year land supply by several years; and,
• the government has made it clear in ‘The Plan for Growth’, published in March 2011, that the planning system should continue to facilitate sustainable development and that we should plan for growth.
5 SUPPORTING INFORMATION
5.1 The two Development Plan Documents proposed for preparation within the three year period are the Site Allocations DPD and the Core Strategy Review. The Site Allocations DPD has already reached the Preferred Option stage on which consultation was carried out in December 2010/January 2011. The programme for this document has been updated to allow for greater member engagement, including discussions with the most affected ward members and involvement of the Environment, Culture and Communities Overview and Scrutiny Panel. The next version is being prepared for consideration by Executive and Council in November and publication in January which will trigger a further formal consultation before it is submitted to the Secretary of State for independent examination, which is programmed for June 2012. This programme should enable the document to be finally adopted in Spring 2013.
5.2 It is also proposed to commence a review of the Core Strategy in March 2012. This will require us to carry out a full assessment of the Borough’s development needs for a period to at least 2031 and to allocate sites to meet those needs. This will need to be carried out without the context of the South East Plan and the development targets it contains, but will take account of the National Planning Policy Framework which is currently being produced by CLG. The Core Strategy Review will also be an opportunity to review and update the Council’s development management policies which are currently mostly saved local plan policies.
Community Infrastructure Levy
5.3 The Community Infrastructure Levy (CIL) was introduced by the previous government and will create a new means of securing funding for infrastructure from development in the Borough. It will also replace the ‘pooled’ element of Section 106 funding. In order to be able to continue to secure pooled contributions towards local infrastructure the Council needs to establish a charging regime by April 2014. A corporate project has been established to bring CIL into effect within this timescale. Government advice is that the CIL does not need to be included in the Local Development Scheme.
Localism Bill
52
5.4 The Localism Bill includes provisions for the preparation of Neighbourhood Plans. In Bracknell Forest these would be prepared either by Town or Parish Councils or by business groups. The measures in the Bill would place a duty on the Council to support the production of Neighbourhood Plans, including holding local referendums on them and arranging their examination. As the Council’s role in Neighbourhood Planning is to support other organisations in their production it is not considered appropriate to include programmes for their production in the revised LDS. The role and resource implications of Neighbourhood Planning will be kept under review as the Localism Bill makes its passage into legislation and further regulations and guidance are produced.
7 ADVICE RECEIVED FROM STATUTORY AND OTHER OFFICERS
Borough Solicitor 7.1 Section 15 of the Planning and Compulsory Purchase Act 2004 requires each Local Planning Authority to prepare and maintain a Local Development Scheme. The LDS must (inter alia) specify those Local Development Documents which are to be Development Plan Documents (i.e. those documents which are part of the statutory Development Plan) and the timetable for the preparation and revision of those documents
Borough Treasurer
7.2 The Local Development Framework (LDF) budget projection will need to be reviewed to reflect changes to the Local Development Scheme. Officers are working within the existing LDF budget for the current year, any future years impact will be considered for inclusion in the commitment budget as part of the budgeting process.
Equalities Impact Assessment
7.3 See Equalities Impact Assessment attached at Appendix A
Strategic Risk Management Issues
7.4 The Strategic Risk Register includes under Potential Risk Category 8 (Infrastructure and Maintenance of Assets) Risk 8.5 which is - Impact of additional dwellings in the borough before 2026 and the accompanying estimated 2000 additional jobs will require significant infrastructure improvements (transport, schools, hospitals). The identified action is - Complete Site Allocations Development Plan Document (SADPD). The bringing into effect of an up to date Local Development Scheme which includes a programme for completion of the SADPD supports the identified action in respect of this strategic risk.
8 CONSULTATION
8.1 There is no requirement to consult on the bringing into effect of a revised Local Development Scheme all the Local Development Documents programmed will be subject to consultation in accordance with the adopted Statement of Community Involvement and the relevant regulations.
Background Papers
53 Contact for further information Max Baker, Environment, Culture and Communities Tel: 01344 351902 E-mail: [email protected]
Doc. Ref G:\POLICY\Exec. Decision making\2011\LDS_05 July 2011.doc
54 APPENDIX A Equalities Screening Record Form
Date of Screening: May 2011 Directorate: Environment Culture & Communities Section: Spatial Policy
1. Activity to be assessed Bringing into effect of a revised Local Development Scheme .
2. What is the activity? Policy/strategy Function/procedure Project Review Service Organisational change
3. Is it a new or existing activity? New Existing
4. Officer responsible for the screening Head of Spatial Policy
5. Who are the members of the EIA team? Head of Spatial Policy and the Development Plan Team Manager
6. What is the purpose of the activity? To set out an updated programme for the production of Local Development Documents (LDDs). 55 7. Who is the activity designed to benefit/target? The production of the LDDs is intended to ensure that the Borough’s development needs are met in a sustainable way for the benefit of all who live and work in Bracknell Forest.
8. a Racial equality - Is there an impact? Y There is likely to be positive impact. The delivery of development will include affordable housing which What kind of equality impact may there be? is an important part of ensuring that no equalities groups are unfairly disadvantaged . The LDDs will also Is the impact positive or adverse or is there a potential for both? If include proposals for the provision of community facilities which will be available to organisations the impact is neutral please give a reason. supporting equalities groups.
8. b What evidence do you have to support this? Data on the completion of affordable and market houses by size and type. Draft Infrastructure Delivery Plan.
E.g equality monitoring data, consultation results, customer satisfaction information etc.
9. a Gender equality - Is there an impact? Y There is likely to be positive impact. The delivery of development will include affordable housing which What kind of equality impact may there be? is an important part of ensuring that no equalities groups are unfairly disadvantaged . The LDDs will also Is the impact positive or adverse or is there a potential for both? If include proposals for the provision of community facilities which will be available to organisations the impact is neutral please give a reason. supporting equalities groups.
9. b What evidence do you have to support this? Data on the completion of affordable and market houses by size and type. Draft Infrastructure Delivery Plan.
10. a Disability equality - Is there an impact? Y There is likely to be positive impact. The delivery of development will include affordable housing which What kind of equality impact may there be? is an important part of ensuring that no equalities groups are unfairly disadvantaged . The LDDs will also Is the impact positive or adverse or is there a potential for both? If include proposals for the provision of community facilities which will be available to organisations the impact is neutral please give a reason. supporting equalities groups.
10. b What evidence do you have to support this? Data on the completion of affordable and market houses by size and type. Draft Infrastructure Delivery Plan.
11. a Age equality - Is there an impact? Y There is likely to be positive impact. The delivery of development will include affordable housing which What kind of equality impact may there be? is an important part of ensuring that no equalities groups are unfairly disadvantaged . The LDDs will also Is the impact positive or adverse or is there a potential for both? If include proposals for the provision of community facilities which will be available to organisations the impact is neutral please give a reason. supporting equalities groups. 56
11. b What evidence do you have to support this? Data on the completion of affordable and market houses by size and type. Draft Infrastructure Delivery Plan.
12. a Religion and belief equality - Is there an impact? Y There is likely to be positive impact. The delivery of development will include affordable housing which What kind of equality impact may there be? is an important part of ensuring that no equalities groups are unfairly disadvantaged . The LDDs will also Is the impact positive or adverse or is there a potential for both? If include proposals for the provision of community facilities which will be available to organisations the impact is neutral please give a reason. supporting equalities groups.
12. b What evidence do you have to support this? Data on the completion of affordable and market houses by size and type. Draft Infrastructure Delivery Plan.
13. a Sexual orientation equality - Is there an impact? Y There is likely to be positive impact. The delivery of development will include affordable housing which What kind of equality impact may there be? is an important part of ensuring that no equalities groups are unfairly disadvantaged . The LDDs will also Is the impact positive or adverse or is there a potential for both? If include proposals for the provision of community facilities which will be available to organisations the impact is neutral please give a reason. supporting equalities groups.
13. b What evidence do you have to support this? Data on the completion of affordable and market houses by size and type. Draft Infrastructure Delivery Plan.
.
14. Please give details of any other potential impacts on any There is likely to be positive impact. The delivery of development will include affordable housing which is an other group (e.g. those on lower incomes/carer’s/ex-offenders) important part of ensuring that no equalities groups are unfairly disadvantaged . The LDDs will also include and on promoting good community relations. proposals for the provision of community facilities which will be available to organisations supporting equalities groups.
15. If an adverse/negative impact has been identified can it be No adverse impact justified on grounds of promoting equality of opportunity for 57 one group or for any other reason?
16. If there is any difference in the impact of the activity when None considered for each of the equality groups listed in 8 – 14 above; how significant is the difference in terms of its nature and the number of people likely to be affected? 17. Could the impact constitute unlawful discrimination in N relation to any of the Equality Duties?
18. What further information or data is required to better The on going monitoring of completions of market and affordable housing, including type and size understand the impact? Where and how can that information The on going collection and monitoring of equality data gathered when consultations are carried out on be obtained? Development Plan Documents
19. On the basis of sections 7 – 17 above is a full impact N The programme for the production of documents for the Local Development Framework will give a clear assessment required? indication of the Council’s intentions in this regard. Production of the LDF is a statutory requirement. The LDF is an essential means of planning and delivering the development needed in the Borough. This development will increase opportunities for residents to gain access to housing and other facilities and services, including those who are vulnerable or in need. This will help achieve sustainable, inclusive, mixed communities in all areas.
20. If a full impact assessment is not required; what actions will you take to reduce or remove any potential differential/adverse impact, to further promote equality of opportunity through this activity or to obtain further information or data? Please complete the action plan in full, adding more rows as needed.
Action Timescale Person Responsible Milestone/Success Criteria
Likely to have a positive impact but this will be checked through: Chief Officer Planning & The delivery of housing and other necessary development and
Continued monitoring of completions of market and affordable housing, On going Transport infrastructure. including type and size Chief Officer Planning & Continued monitoring of equalities data gathered during Development Plan On going Transport 21. Which service, business or work plan will these actions be Environment, Culture and Communities included in?
22. Have any current actions to address issues for any of the groups N/A or examples of good practice been identified as part of the screening? 58 23. Chief Officers signature.
Signature: Date: 17-03-11
24. Which PMR will this screening be reported in? Quarter 4 - 2010/11
When complete please send to [email protected] for publication on the Council’s website.
1
This document sets out the Borough Council’s work programme for preparing documents that will guide future development in the Borough.
A summary of this document can be made available in large print, in
Braille or on an audio cassette. Copies in other languages may also be obtained. Please contact 01344 351181 or email: [email protected] .
Contents
Section
Draft July 2011
59 2
Contents
Executive Summary
1 Introduction
2 Background
3 The Purpose of the Local Development Scheme
4 Local Development Framework Resources and Management
5 Rationale and Schedule of Local Development Documents
Figure 1 : Structure of the Bracknell Forest Borough Local Development Framework Figure 2 : Summary of DPD Timelines Figure 3 : Summary of SPD Timelines
6 Relationship with existing Planning Policy Documents
Table 1 : Saved Plans as at Commencement of the Planning and Compulsory Purchase Act that currently form part of the Borough Council’s Local Development Framework
7 Joint Plans
8 Background Evidence
Table 2 : Key Background Technical Studies and Strategies
9 Risk Analysis
10 Interim Update Process
11 Monitoring and Review
Appendices Appendix 1: Geographical location of LDDs
Appendix 2: Individual LDD Profiles for the preparation of each Local Development Document
Appendix 3: Saved Policies and Proposals in the Bracknell Forest Borough Local Plan
Appendix 4: Relationship between Saved Policies and Supplementary Planning Guidance/ Supplementary Planning Documents
Appendix 5: Glossary of Terms
Bracknell60 Forest Borough LDS – Draft July 2011 3
Executive Summary
Local Development Framework The documents which comprise the Bracknell Forest Borough Local Development Framework will contain policies and proposals to guide development in the Borough, and will replace those contained in the Bracknell Forest Borough Local Plan.
Local Development Scheme This document sets out the work programme for, and resources required, to continue to prepare the Local Development Documents. The document came into effect on 8 August 2011 and covers the period to 7 August 2014. The Local Development Scheme will be reviewed on an annual basis in a Local Development Framework Annual Monitoring Report and revised as and when considered necessary. The arrangements for review and monitoring will be subject to any changes in procedure arising from the passage into legislation of the Localism Bill and any accompanying Regulations.
Local Development Documents Nine documents have already been prepared and adopted. These are: • Designing for Accessibility in Bracknell Forest Supplementary Planning Document (adopted June 2006) • A Statement of Community Involvement (adopted July 2006) • Bracknell Forest Borough Parking Standards Supplementary Planning Document (adopted July 2007) nd • Limiting the Impact of Development Supplementary Planning Document (2 version adopted July 2007) • Core Strategy Development Plan Document (adopted February 2008) • Sustainable Resource Management Supplementary Planning Document (adopted October 2008) • Amen Corner (adopted March 2010) • Bracknell Forest Character Areas (adopted March 2010) • Streetscene (adopted March 2011)
Other Documents which have been identified to be prepared or reviewed are:
Development Plan Documents • Site Allocations Development Plan Document • Core Strategy Review
Supplementary Planning Documents • Warfield (formerly known as Land north of Whitegrove and Quelm Park) • Thames Basin Heaths Special Protection Area Avoidance and Mitigation Strategy
Although Supplementary Planning Documents need not be included in the Local Development Scheme, for consistency and ease of reference they are detailed in this document.
Other • Statement of Community Involvement • Community Infrastructure Levy
Bracknell61 Forest Borough LDS – Draft July 2011 4
Further Information
Further details are available within this document or from the Development Plan Team: [email protected] or 01344 351181. Also see the Borough Council’s website: www.bracknell-forest.gov.uk/ldf .
Bracknell62 Forest Borough LDS – Draft July 2011 5
Bracknell Forest Borough Local Development Scheme 2009 - 2012
1. Introduction
1.1 This Local Development Scheme is a three year programme for preparing Local Development Documents, some of which (those designated as ‘Development Plan Documents’) will replace the Bracknell Forest Borough Local Plan and form part of the Local Development Plan.
1.2 The Local Development Scheme most recently approved by the Government Office for the South East (GOSE) covered the period 16 September 2009 to 31 August 2012. The Local Development Scheme requires review as circumstances dictate, and this document sets out a revised Scheme that covers the period July 2011 to July 2014.
1.3 Together with the other Berkshire Unitary Authorities, the Borough Council is responsible for preparing a Local Development Framework for Minerals and Waste. More details on this are set out in Section 7.
2. Background
2.1 This document has been prepared under the provisions of the Planning and Compulsory Purchase Act 2004 enacted in May 2004, and commenced in September 2004.
2.2 This Local Development Scheme (LDS) sets out the documents that the Borough Council will produce as part of the planning policy framework introduced by the Act. These documents will be called Local Development Documents (LDDs) and collectively the LDDs will guide development at the local level. The Local Development Scheme sets out the subject matter of, and area covered by, each document and provides a timetable for their preparation and review. The Local Development Scheme will be reviewed on an annual basis in an Annual Monitoring Report and revised as and when considered necessary.
2.3 The Bracknell Forest Borough LDS is available from the Borough Council and can also be viewed electronically at www.bracknell-forest.gov.uk/ldf .
Bracknell63 Forest Borough LDS – Draft July 2011 6
2.4 Further information on the planning process and national and regional planning issues can be found on the following websites:
Department of Communities and Local Government (DCLG) – www.communities.gov.uk Government Office for the South East (GOSE) – www.go-se.gov.uk The Planning Inspectorate – www.planning-inspectorate.gov.uk The Planning Portal – www.planningportal.gov.uk
3. The Purpose of the Local Development Scheme
3.1 This LDS specifies:
The Local Development Documents (LDDs) being prepared during the next three year period; Which of these documents will be Development Plan Documents; Which of these documents will be Supplementary Planning Documents; The timetable and resources for the production of each of the LDDs; How the documents interrelate; and How monitoring and review of the LDS will take place.
3.2 The LDS will therefore:
Provide the Borough Council’s public statement of documents that will be prepared to guide development at the local level; Enable the Borough Council to prioritise and plan resources for the preparation of Local Development Documents; and Provide a timetable for the preparation and review of all Local Development Documents.
4. Resources and Management Arrangements
4.1 The broad resources and management arrangements for each Local Development Document are set out within each LDD profile attached at Appendix 2. A summary of the internal management arrangements for preparation of the LDDs are set out below. Resources will be primarily from
Bracknell64 Forest Borough LDS – Draft July 2011 7
the Spatial Policy Section of the Environment, Culture and Communities Department, but will involve other officers and external resources as necessary.
4.2 A Local Development Framework Steering Group has been established to oversee the LDD process. At officer level, reports will be presented at key stages to the Corporate Management Team to ensure the co-ordination of all the Council’s interests in the LDD preparation process.
Council
Executive
Local Development Framework Steering Group
Corporate Management Team
Departmental Management Team
Senior Managers Meeting
Development Plan Team
LDF Management Arrangements
4.3 Consultants may be engaged on specific projects where there is a lack of capacity in house or additional expertise is required. This is likely to be used for technical baseline surveys, viability testing and other specialist areas where it is not economic to retain a full time in-house resource.
5. Rationale and Schedule of Local Development Documents
5.1 The Borough Council has reviewed carefully the Local Development Documents that it should produce. This review has been influenced by a number of factors as follows: • The need to demonstrate a robust supply of land for housing. • The introduction of the Community Infrastructure Levy.
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• The Publication of the Localism Bill
5.2 To date, the Borough Council has adopted nine Local Development Documents:
Local Development Date Purpose Document Adopted Designing for Accessibility June 2006 Sets out guidance to make sure in Bracknell Forest that development within the Supplementary Planning Borough is accessible to all Document members of the community Statement of Community July 2006 Sets out how the Council intends Involvement to involve the community in the planning process Bracknell Forest Parking July 2007 Sets out the Council’s car and Standards Supplementary cycle parking requirements Planning Document Limiting the Impact of July 2007 Sets out the community facilities Development and infrastructure sought in Supplementary Planning association with new development Document Core Strategy February Sets out the long term planning Development Plan 2008 framework for the Borough up to Document 2026 Sustainable Resource October Sets out how new developments Management 2008 can be constructed in a Supplementary Planning sustainable way ; how energy Document efficiency and renewable energy sources can be incorporated into new development ; ensures new development helps to deliver regional energy targets ; contributes to national, regional and local climate change objectives . Amen Corner March Guidance for the development of 2010 the Amen Corner Site (Core Strategy Policy CS4) Bracknell Forest Character March Identifies areas within the Areas 2010 Borough with distinctive and positive character, and provides an assessment and recommendations relating to maintaining and enhancing character within these areas.
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Local Development Date Purpose Document Adopted Streetscene March This SPD replaces the Berkshire 2011 Highway Design Standards. It contains a flexible set of standards to be used as a material consideration in the determination of planning applications
5.3 Work will be undertaken on the following Development Plan Documents (DPDs) during the period covered by this LDS, in the following listed priority order: • Site Allocations Development Plan Document (including changes to the Adopted Proposals Map); • Core Strategy Review to include development management policies and any necessary additional strategic site allocations (including changes to the Adopted Proposals Map).
5.4 The preparation of these DPDs will meet a number of policy objectives, not least by enabling resources to be focused on enabling the identification of a robust supply of land for housing to meet Core Strategy requirements. Commencement of the Core Strategy Review will enable us to plan beyond the timeframe of the current Core Strategy.
5.5 While there remains some current uncertainty over the status of the Regional Spatial Strategy following legal challenges by Cala Homes, publication of the Localism Bill has reinforced the government’s intention that RSSs will be abolished. This means that work on the Site Allocations is being based on the adopted Core Strategy growth levels since the likelihood is that the RSS will not be in existence for most of its plan period. It also means that locally derived levels of growth, established in accordance with the requirements of PPS3 or whatever guidance replaces it in the National Planning Policy Framework, will need to be established to inform the review of the Core Strategy.
5.6 There will also be a need for the Core Strategy Review to address any policy voids created by the abolition of the RSS and the possible replacement of
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national Planning Policy Statements with a proposed single National Planning Policy Framework.
5.7 The intention is to expand the Core Strategy Review DPD to provide for the comprehensive development of policies in respect of, not only, the delivery of housing, employment, retailing and Bracknell town centre, but also, environmental, recreation and transport polices thereby ensuring a detailed policy framework is in place to support development management decisions in the Borough. Preparation of this DPD does not need to be commenced immediately as existing “saved” Local Plan policies still appear to be both relevant and defensible.
5.8 A summary timeline for the preparation of these DPDs is shown at Figure 2.
5.9 To provide support to extant spatial policies, the Borough Council is preparing Supplementary Planning Documents (SPDs) covering:
• Mixed use development at Warfield, and • The Thames Basin Heaths Special Protection Area Avoidance and Mitigation Strategy
5.10 These two SPDs are already in preparation and will be completed.
Community Infrastructure Levy
5.11 The Community Infrastructure Levy (CIL) regulations introduced a new means of funding infrastructure by way of a levy charged on additional new floorspace constructed in the Borough. The proposals for CIL mean that after April 2014 the scope for securing contributions to mitigate the impacts of development through legal agreements under Section 106 of the Planning Act will be significantly reduced. In order to secure the necessary infrastructure funding for the Council will need to prepare a charging schedule for the CIL. This will be subject to examination by an Inspector and will need to be formally adopted by the Council.
5.12 There are a number of stages in the process as the schedule must be based on an assessment of the costs of planned infrastructure related to planned
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development and the gap between that cost and the available funding from sources other than CIL. It must also take account of variations in the viability of different forms of development, and of any geographic variations in viability if different rates of charge are proposed in different parts of the Borough. The effect of the legislation and regulations mean that after March 2014 the Council will no longer be able to collect pooled contributions from more than five developments under Section 106. It is therefore very important that the CIL charging regime is established by this time. The Council has established a project team to prepare a CIL for Bracknell Forest ahead of the April 2014 deadline. Government has advised that the programme for CIL does not need to be included within the Local Development Scheme.
Neighbourhood Planning
5.13 The Localism Bill proposes the introduction of a new tier of planning policy documents known as Neighbourhood Development Plans. If the measures in the Bill pass into law in their current form, the Parish Councils and Town Council in the Borough would be able to instigate the preparation of a Neighbourhood Development Plan (NDP) for all or part of their area. The Local Planning Authority would have a duty to support the preparation of any NDP instigated in this way. This would include the provision of information, carrying out Sustainability Appraisal / Appropriate Assessment, appointing a suitable person to examine the document and holding a referendum within the area covered by the NDP.
5.14 Any NDP will need to conform with the strategic elements of the LDF and with national policy. NDPs would not be able to propose lower levels of development than those set out in up to date LDFs, but could propose higher levels. Before an NDP is adopted it must be subject to a referendum and if over 50% of the votes are in favour the local planning authority would have a duty to adopt the NDP unless it is in breach of EU law.
5.15 A summary timeline for the preparation of the SPDs is shown at Figure 3.
5.16 Appendix 1 illustrates the geographical extent of the LDDs.
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5.17 The individual project profiles in Appendix 2 summarise each LDD by providing: a document reference and title a brief synopsis of its content details of the area to which it relates the status of the document the chain of conformity resources management arrangements key milestones in preparation the approach to involving stakeholders and the community.
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Figure 1: Structure of the Bracknell Forest Borough Local Development Framework
Saved Bracknell Core Strategy Forest Borough (adopted 2008)
Local Plan To be reviewed after Policies adoption of the Site Allocations DPD and incorporate Development Management Documents Documents Plan Development 71 Community Site Allocations DPD Infrastructure Levy Proposals Map Charging Schedule
Documents Documents Planning Supplementary
Adopted SPDs Streetscene Warfield SPD Thames Basin CIL Charging and SPGs SPD Heaths Special Schedule / Protection Area Limiting the Avoidance and Impact of Mitigation Strategy Development SPD SPD ( 3)
STATEMENT OF COMMUNITY INVOLVEMENT
Bracknell Forest Borough LDS – September 2009 14
Figure 2: Summary of DPD Schedule Timelines
ID Task Nam e 2010 2011 2012 2013 2014 Jul Sep Nov Jan Mar May Jul Sep Nov Jan Mar May Jul Sep Nov Jan Mar May Jul Sep Nov Jan Mar May Jul Sep Nov Jan Mar May Jul 9 Proposals Map DPD 10 PM: Adoption & entry into LDF 01/12 1 Site Allocations DPD 2 SA: Comm encem ent 01/09 3 CS: Evidence Gathering 4 SA: Publication 5 SA: Submission 25/06 6 SA: Examination Hearing 7 SA Report to Council 8 SA: Adoption & entry into LDF 28/03 11 Core Strategy DPD Review 12 CS: Comm encement of Review 01/03 13 CS: Evidence Gathering 14 CS: Publication
72 15 CS: Submission 17/03 16 CS: Examination Hearing 17 CS: Adoption & entry into LDF
Site Allocations DPD (LDD103 ) Proposals Map DPD (LDD 104) Core Strategy Review (LDD101)
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Figure 3: Summary of SPD Timelines
ID Tas k Nam e 2010 2011 2012 May Jul Sep Nov Jan Mar May Jul Sep Nov Jan Mar May Jul Sep Nov Jan Mar May Jul Sep Nov 01/07 1 SPAM Com mencement of document preparation 2 SPAM Produce and consult on scoping report 3 SPAM Evidence gathering, background research and stakeholder engagement 7 W Evidence gathering, background research and stakeholder engagem ent 01/10 5 W Com mencement of document preparation 6 W Produce and consult on s coping report 11 W Prepare draft SPD and Sustainability Appraisal Report 12 W Consultation on draft SPD and Sustainability Appras al Report 4 SPAM Prepare draft SPD and Sustainability Appraisal Report 13 W Consider Responses and further develop the SPD/SA 8 SPAM Consultation on draft SPD and Sustainability Appraisal Report 14 W Report to Executive
73 9 SPAM Consider Responses /Finalise SPD/SA 15 W Further targeted consultation 16 W Consider Responses/Finalise SPD/SA 18/10 10 SPAM Report to Executive/Publish 13/12 17 W Report to Executive/Publish
SPAM – Thames Basin Heaths Special Protection Area Avoidance and Mitigation Strategy Supplementary Planning Document (LDD202 ) W – Warfield Supplementary Planning Guidance (LDD202)
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6. Relationship with existing Planning Policy documents
6.1 The existing strategic and local planning policy framework comprises:
Regional Spatial Strategy (South East Plan), May 2009 (the status of the government’s intention to abolish RSSs as a planning consideration is currently [April 2011] subject to legal challenge. In any event RSSs are proposed to be abolished by the Localism Bill) ; Core Strategy Development Plan Document, February 2008; Bracknell Forest Borough Local Plan, January 2002; Waste Local Plan for Berkshire, December 1998; Replacement Minerals Local Plan for Berkshire, December 1997 and May 2001; Amen Corner Local Plan Alteration, November 2005; and Various Supplementary Planning Documents.
6.2 The relevant policies in the adopted Bracknell Forest Borough Local Plan which have been saved under the direction of the Secretary of State can be viewed online at www.bracknell-forest.gov.uk/savedpolicies . Appendix 3 provides the dates for the review and replacement of these saved Local Plan Policies and the DPD in which they will be replaced. Table 1 below shows the plans that were saved upon commencement of the new legislation.
Table 1: Saved Plans as at Commencement of the Planning and Compulsory Purchase Act that currently form part of the Borough Council’s Local Development Framework Adopted Plan Status Update Bracknell Forest Borough Local Plan Adopted January 2002 Will be replaced over time by Local Development Documents where applicable Policies and Proposals saved until replaced by a Local Development Document or no longer required The Replacement Minerals Local Plan Incorporating Alterations adopted The process for carrying out future work on for Berkshire December 1997 and May 2001 Minerals & Waste Planning is currently under review. An up-to-date list of saved Policies and proposals saved until policies is available online at replaced by a Local Development www.bracknell-forest.gov.uk Document or no longer required The Waste Local Plan for Berkshire Adopted 1998 The process for carrying out future work on Minerals & Waste Planning is currently Policies and proposals saved until under review. An up-to-date list of saved replaced by a Local Development policies is available online at Document or no longer required www.bracknell-forest.gov.uk Bracknell Forest Borough Local Plan Adopted November 2005 Replaced by the Core Strategy and future Alteration – Land at Amen Corner Site Allocations Development Plan Local Plan Alteration to provide a firm Document and Amen Corner settlement boundary at Amen Corner Supplementary Planning Document left void in the adopted Bracknell Forest Borough Local Plan
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6.3 An appendix will be produced in each Local Development Document outlining the extent to which that LDD replaces part(s) of the old planning policy framework.
6.4 The Borough Council has several adopted Supplementary Planning Guidance Notes (SPG) which support policies and proposals in the adopted Local Plan. Appendix 4 identifies how existing SPGs are linked to ‘saved’ policies in the Bracknell Forest Borough Local Plan. Under the transitional arrangements, such SPG will be a material consideration while the relevant policies and proposals remain ‘saved’.
7. Joint Plans
7.1 The future of Minerals and Waste Planning is currently under review. The review will consider the potential for joint working following the decision to close the Joint Strategic Planning Unit (JSPU) which previously undertook Minerals and Waste planning work on behalf of all the Berkshire Unitary Authorities.
8. Background Evidence
8.1 LDDs will be prepared using information from a wide range of sources from both within the Borough Council and by external partners. It is recognised that the list below cannot be exhaustive and therefore each LDD will include an appendix outlining the main sources used in its preparation. As set out in Section 11 on Monitoring and Review, the annual review of the LDS will include an assessment of whether there is any new technical information which necessitates a review of individual LDDs. Background evidence produced to date (July 2011) can be viewed on the Council’s website at www.bracknell-forest.gov.uk/subbackground . As evidence is developed, it will be signposted from the LDF homepage.
8.2 The key background technical studies and strategies that will be used in preparing the LDDs will include:
Table 2: Key Background Technical Studies and Strategies
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Study/Survey Status Review General Bracknell Forest Sustainable The Strategy for 2008 – 2014 was Refreshed Annually Community Strategy Adopted June 2008 Review 2013 ‘Life is for Living Two’ – A Adopted 2008 Review 2011 Refreshed Cultural Strategy for Bracknell Forest 2008 – 2012 Community Cohesion Adopted 2008 Review 2011/12 Strategy – “All of Us” 2008 – 2011 Community Engagement May 2009 Review 2011/12 Strategy 2009-2012 Local Area Agreement Updated March 2010 Last update will be April 2008 - March 2011 March 2011 as LAAs have been abolished by Coalition Government. New framework to be determined Health and Well-being Published October 2007 Autumn 2009 Strategy Bracknell Forest Borough Adopted July 2006 Review to coincide Statement of Community with Community Involvement Cohesion Strategy Local Development Updated September 2006 Review in association nd Framework Fact Pack (2 with Annual Edition) Monitoring Report Bracknell and Its New Town Produced September 2006 None planned Heritage Bracknell Forest Borough Report to be produced each Annually Local Development December, based on preceding Framework Annual April – March monitoring year. Monitoring Report Education BFC School Places Plan September 2010 Annually 2010-2015
BFC Pupil Data and Forecasts 2006-2011
BFC School Organisation January 2006 Plan 2004-2009 & Supplement 2005-2010
Environment Bracknell Forest Borough Completed February 2002 None planned
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Study/Survey Status Review Landscape Strategy (Babtie) Landscape Analysis of site Study completed August 2006 None planned Allocations and an Assessment of Gaps/Green Wedges (Entec) Air Quality Progress Report Produced 2004 Document reviewed 2004, Bracknell Forest annually Borough Council Bracknell Forest Biodiversity Published 2006 Review planned at Action Plan 2006-11, end of 2011 for a Bracknell Forest Borough further 5 year period Council Strategic Flood Risk Entec study completed August None planned Assessment 2006
Halcrow review completed August 2010 Open Space Audit and Audit and accessibility analysis None planned Assessment completed September 2006 Thames Basin Heaths Published June 2007 SPD commenced Special Protection Area August 2009 Technical Background Paper Study of open space, sports, Published October 2006 Review of sites recreational and leisure against plus-one facilities (PPG17) principle 2010 Housing BFBC Housing Needs Survey Updated May 2004 Reviews in HMA and 2002 Housing Strategy “The Right Home” Housing Published July 2009 Review 2013 Strategy for Bracknell Forest 2009 – 2014 Urban Housing Potential Produced April 2005 To be replaced by Study SHLAA Urban Housing Potential Produced June 2006 To be replaced by Study 2006 Review SHLAA Berkshire Strategic Housing October 2007 None planned Market Assessment (DTZ) Draft Bracknell Forest July 2010 To be finalised Strategic Housing Market Assessment (DTZ) Gypsy and Traveller Produced September 2006 None planned Accommodation Needs Assessment
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Study/Survey Status Review Travelling Showpeople Produced August 2007 None planned Accommodation Needs Assessment Annual Housing Prepared for 01 April – 31 March Annually Commitments each year Strategic Housing Land Stages 1 – 5 published February Monitored annually Availability Assessment 2008
Final SHLAA (baseline March 2009). Published February 2010
Monitoring Report (base line March 2010) published November 2010 Housing Viability Study In preparation spring 2011 Employment and Retail Bracknell Town Centre Retail 2002 None planned Study Impact Analysis (Colliers CRE) Bracknell Forest Retail Study May 2008 None planned 2008 (GVA Grimley) Employment and the Prepared 2003 None planned Economy of Berkshire 2001 – 2016 – Business Strategies from Experian Centre Annual Health Annually Produced annually Checks, BFBC Annual Employment Prepared for 01 April – 31 March Annually Commitments each year Employment Potential Study Phase 1 complete Autumn 2005 Informed the ELR Phase 2 complete October 2006 Employment Land Review December 2009 None planned (Roger Tym/Vail Williams) Transport Local Transport Plan 2006 – March 2006 Review 2010-2011 2011 (version 2) Local Transport Plan 2011- Consultation ended Jan 2011 Adoption planned 2026 (version 3) Autumn 2011 Accessibility Strategy March 2006 None planned Strategic Transport Study Assessment work completed None planned August 2006 Bracknell Forest Transport Base year operative Continuous Model Report to support publication version of
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Study/Survey Status Review Site Allocations DPD Site Allocations DPD Specific Studies Archaeological Site March 2010 None planned Assessment (Berkshire Archaeology) Habitat Regulations November 2010 None planned Appropriate Assessment (BFC) Draft Infrastructure Delivery November 2010 Will be updated to Plan (BFC) support publication version of Site Allocations DPD Landscape Capacity Study April 2010 None planned (Kirkham Landscape Planning Ltd) Masterplanning Support October 2010 None planned (Urban Initiatives) Phase 1 Ecological Survey June 2010 None planned (John Wenman Ecological Consultancy) Draft Transport Accessibility November 2010 To be finalised by Statement (WSP & BFC) summer 2011
8.3 All Local Development Documents will be tested against a range of baseline indicators which will be identified in the relevant Sustainability Appraisal Scoping Report, prepared as one of the first stages in the LDD process. Many of these indicators will be common to a number of documents. A set of baseline indicators was established in the Scoping Report for the Core Strategy published in November 2004 and these are described in a revised LDF scoping report published in October 2005. Future stages may identify other areas within the baseline data that need to be collected and monitored.
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9. Risk Analysis
9.1 There are a number of risk factors affecting the local development framework programme. These risks are set out below along with some actions for alleviating the risk:
Challenging Timetables – High Risk 9.2 The Government has set challenging guidelines for the timetables for the preparation of Development Plan Documents. This is reinforced by the recent changes to the Regulations, which whilst removing a stage in the preparation process, have shortened the anticipated time from Commencement to Adoption. Moreover, it is expected that local authorities will tailor consultation to reflect the subject matter and complexity of the LDD. All LDDs will be carefully project-managed to maximise the opportunities of meeting the timescales set out in this document. However, uncertainties will remain throughout the process regarding, for instance, the number of representations likely to be received and, consequently, the amount of time needed to deal with them, the length of time of Examinations, and the availability of resources from external bodies. The government have also stressed the importance of having an up to date LDF in order to establish a regime for charging the Community Infrastructure Levy and to ensure that we are able to consider planning applications against an up to date plan rather than the recently announced presumption in favour of sustainable development.
Staffing and resources – Medium/High Risk 9.3 The government spending cuts will affect resources across the Council and Spatial Policy has already seen a reduction in the number of staff available to carry out LDF and other work within the Section. However, in order to ensure that progress is made, project teams will be established to progress each DPD.
9.4 There is an additional risk that may affect the Council in that the proposals in the Localism Bill will impose new duties on the Council when it passes into law. There will be a duty to support the preparation of Neighbourhood Development Orders and Plans if any of the Parish Councils or Bracknell Town Council request one to be made (including holding an examination and a referendum). There will also be a duty of co-operation with adjoining and
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other relevant local authorities and other bodies. This is likely to make it a duty to provide, at a minimum, substantive responses to consultations from adjoining planning authorities and could also mean a higher level of joint working generally throughout the planning process. While we are already working in liaison with relevant bodies the final statutory requirements may create additional burdens.
Legislative / Government delays – Medium/High Risk 9.5 Throughout the process the input of GOSE/CLG and the Planning Inspectorate (PINS) is required. The availability of resources within these agencies is likely to affect our ability to meet the timetables set out in this document. The Borough Council will ensure that it enters into ongoing dialogue with GOSE/CLG and PINS to limit this risk, however PINS is subject to major cuts in the spending review and GOSE is likely to be disbanded altogether.
9.6 In addition, recent changes to the Regulations mean that adjustments to the process for preparing DPDs may take a little time to bed in.
Resources of External Agencies – High Risk 9.7 Preparation of the DPDs will require considerable input from other organisations, many of which will also be involved in other local authority DPDs. If these organisations do not have sufficient resources to meet the likely work load, particularly in respect of infrastructure planning, this may result in delays to the timetable. Many of these bodies, such as the Environment Agency are themselves subject to significant spending cuts which may reduce their capacity to respond effectively and promptly to consultations.
9.8 In order to minimise this risk, the Borough Council will seek to talk to such organisations as early as possible, and to share the LDS with such groups where they can be identified.
Soundness/Legal Challenge – Medium risk 9.9 The Borough Council will seek to ensure that all DPDs are “sound” and founded on a robust evidence base and well-audited stakeholder and community engagement systems in order to minimise the risk of legal
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challenge. The Borough Council will work closely with GOSE and PINS at all stages to ensure that tests of “soundness” are met.
9.10 The Council is well aware of the advice available from the Planning Advisory Service in respect of the LDF process.
Thames Basin Heaths Special Protection Area - High Risk 9.11 As a result of the European Court of Justice ruling (C-6/04, 20 October 2005) the effects of development plans on Natura 2000 sites must be fully assessed in line with the EU Habitats Directive and the Habitats Regulations. Having identified a likely significant effect, Bracknell Forest Borough Council carried out a detailed Appropriate Assessment of the effects of the Core Strategy DPD on the integrity of the Thames Basin Heaths Special Protection Area. This was based on the housing allocation in the submission South East Plan (March 2006).
9.12 Bracknell Forest Borough Council completed a Technical Background Document to the Core Strategy DPD, which includes the Appropriate Assessment and an Avoidance and Mitigation Strategy. Natural England had agreed that if the plans are implemented as stated in the SPA Avoidance and Mitigation Strategy, with certain monitoring requirements, Natural England “will stop objecting to consultations on housing applications in those areas of the Borough which have mitigation in line with the avoidance strategy .” The Technical Background Document was considered as evidence in support of Policy CS14 Thames Basin Heaths at the Core Strategy DPD Examination in Public, and was found to be a robust and credible evidence base. Contributions in accordance with the SPA chapter of Limiting the Impact of Development SPD (July 2007) have been accepted to enable development which would otherwise have an adverse impact on the SPA since 1 August 2007.
9.13 Whilst the Core Strategy has been adopted and the Avoidance and Mitigation Strategy has the support of Natural England, there remain several risks to delivery of the Bracknell Forest Borough LDF.
9.14 In addition, a strategic solution, now known as the Strategic Framework, is being progressed by the affected Local Authorities in conjunction with
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stakeholders. The revised SPA Avoidance and Mitigation Strategy will be compatible with, and reflect provisions (eg. strategic access management) in, the Strategic Framework.
9.15 The mixed use developments at Amen Corner and at Warfield require bespoke mitigation solutions to ensure that there will be no adverse impact on the integrity of the Thames Basin Heaths SPA. Although a number of potential options have been suggested, preferred options for mitigation have yet to be identified. Failure to identify appropriate solutions will put the early delivery of these proposals at risk, as it will not be possible for the proposals to pass Appropriate Assessment.
Other Guidance – Medium/High Risk 9.18 The Localism Bill has now been published and proposes a number of changes to the planning system including the abolition of regional strategies. The government is also planning to publish a new National Planning Policy Framework to replace the current set of Planning Policy Statements and Planning Policy Guidance Notes. The new legislation, including new regulations, will have to be taken into account at the next appropriate stage in preparation or review of the LDDs.
10. Update Process
10.1 The main process of review and update for the LDS will continue to be through the Annual Monitoring Report (see Section 11 below). However, it is possible that there will be occasions when the need for urgent additional guidance arises prior to the Annual Review timetable.
10.2 The procedure for commencing and adopting new LDDs will be reviewed following the passage into law of the Localism Bill which includes proposals for changes to the procedure for preparation and approval of LDSs.
11. Monitoring and review
11.1 The LDS is subject to regular review and as far as possible, changes will be planned to coincide with the Annual Monitoring Report (AMR) required under
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the legislation as set out below. The AMR will be co-ordinated by the Spatial Policy Section in the Environment, Culture and Communities Department.
LDS Monitoring 11.2 In relation to the LDS the following factors will be assessed in each AMR: progress against specified milestones for each LDD; reasons for any mismatch and proposed actions; any new technical information that warrants changes or review; any other reviews e.g. the Community Strategy, that might be taking place; and any other unforeseen circumstances that may have occurred.
11.3 In addition, it will provide: an up to date list of relevant background studies and documents; and information as to the status of plans and policies prepared under the previous system of development plans.
Policy Monitoring 11.4 The AMR will also monitor: • ‘saved’ policies to identify whether or not they are being implemented and to identify actions to ensure implementation if appropriate.
• Whether the targets and indicators within the LDDs are being met, and identify actions to overcome any areas where these are not being achieved
• What impacts LDD policies are having on other national, regional, and local targets; for instance, as set out in the Borough’s Community Strategy;
• Action to be taken if policies need to be replaced – linking in with the LDS review and update above
• Specifically on housing, the AMR will include the number of dwellings built during the monitoring period and since the relevant policies were adopted,
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and a trajectory of forecast future housing supply against strategic housing requirements.
11.5 The AMR will also incorporate monitoring requirements to be set by the Sustainability Appraisal (SA) and Strategic Environmental Assessment (SEA) of each DPD. This will include the social, economic and environmental effects of the policies and a comparison of the predicted impacts set in the SA/SEA.
11.6 The AMR will draw on data published in the Council’s annual report on ‘Planning Commitments for Housing’ and ‘Planning Commitments for Employment Uses’. These are produced on an annual basis jointly with the Joint Strategic Planning Unit and cover the same annual monitoring timeframe (April to March). This process is likely to be carried out in-house after March 2011 as the Joint Unit is being wound down.
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Further Information
For further information on this document, or on the preparation of the Local Development Framework, please contact a member of the Development Plan Team at: Development Plan Team E-mail Bracknell Forest Council Environment, Culture and [email protected] Communities Department Time Square Or Phone on Market Street Bracknell 01344 351181 RG12 1JD
Alternatively, visit: www.bracknell-forest.gov.uk/ldf
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Appendix 2
Profiles for the Preparation of Local Development Documents
87 30
LDD PROFILE Ref: LDD101
Document Title Core Strategy Review Lead Section Spatial Policy Section; Planning and Transport Division; Environment, Culture and Communities Department Scope Site Specific Status DPD Priority Medium Synopsis A statement of vision, core policies and a spatial strategy for Bracknell Forest that: • provides a spatial framework for implementation of the Sustainable Community Strategy (Living Together, Working Together); • reflects the most current planning policy; • establishes, and enables delivery of the housing target for the plan period including the accommodation needs of gypsies and travellers; • provides policies for development management purposes; • allocates strategic sites to meet development needs; • guides effective determination of planning applications. Chain of • General conformity with national planning guidance/statements conformity (regional strategies likely to be abolished by the time this LDD is commenced). • Conformity with the Sustainable Community Strategy • Influenced by other Council, Partnership and Local Strategies Timetable Key Milestones Timescale ADOPTION (Current Document) FEBRUARY 2008 COMMENCEMENT of Review (Evidence Gathering MARCH 2012 and SA Scoping) Reg 25 participation/SA Options Testing (Executive) JANUARY-FEBRUARY (APRIL) 2013 PUBLICATION (6 weeks) MAY/JUN 2013 Consideration of Representations (6 weeks) JUL/AUG/SEP 2013 SUBMISSION MAR 2014 Pre-Examination Meeting/Examination JUN/SEPTEMBER/ Hearing/Inspectors Report NOVEMBER 2014 Report to Council/ ADOPTION JAN/ FEB 2015 Management Chief Officer: Planning & Transport → LDF Steering Group → Planning & arrangements Transport and Economic Development Portfolio Holder → Executive Committee → Council Resources Internal: • Spatial Policy Section • Internal administration and technical support • Other Borough Council Officers’ and Members’ time and input • LDF budget to cover consultation, printing and design costs, examination costs External: • Specific LDF budget allows for possible use of consultants for other aspects of preparation • Stakeholder Resources: LSP to provide link to the community • Representatives of stakeholder groups to attend meetings, contribute to preparation etc • Advice from statutory consultees • Development industry expertise
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Approach to Wide stakeholder and community involvement using a range of involving consultation methods detailed in the LSP’s Community Engagement stakeholders & Strategy and the SCI that exceed the minimum set out in Regulations. community
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Ref: LDD PROFILE LDD103
Document Title Site Allocations Lead Section Spatial Policy section; Planning and Transport Division: Environment, Culture and Communities Department Scope Borough wide Status DPD Priority High Synopsis To produce a document that: • identifies site specific proposals to deliver the policy framework set out in the Core Strategy; • identifies timing, phasing and delivery mechanisms for site specific proposal to meet the housing and jobs allocations in the South East Plan. Chain of • General conformity with national planning guidance/statements and conformity regional planning policy • Compliance with the Core Strategy • Conformity with the Sustainable Community Strategy • Influenced by other Council, Partnership and Local Strategies Timetable Key Milestones Timescale COMMENCEMENT (SA Scoping) SEPTEMBER 2009 Evidence Gathering/Reg 25 participation/SA Options JANUARY 2012 Testing leading to PUBLICATION Consideration of Representations leading to JUNE 2012 SUBMISSION Pre-Examination Meeting/Examination Hearing/Report Aug 2012/Oct2012/Jan 2013 Report to Council/ADOPTION Feb 2013/Mar 2013 Management Chief Officer: Planning & Transport → LDF Steering Group → Planning & arrangements Transport and Economic Development Portfolio Holder → Executive Committee → Council Resources Internal: • Spatial Policy Section • Internal administration and technical support • Other Borough Council Officers’ and Members’ time and input • LDF budgets to cover consultation, printing and design costs, examination costs External: • Consultants and major landowners for some aspects of preparation • Stakeholder Resources: LSP to provide link to the community • Representatives of stakeholder groups to attend meetings, contribute to preparation etc • Development industry expertise Approach to Wide stakeholder and community involvement using a range of involving consultation methods described in the LSP’s Community Engagement stakeholders & Strategy and the SCI that more than meet the minimum set out in community Regulations.
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LDD PROFILE Ref: LDD104
Document Title Proposals Map Lead Section Spatial Policy Section; Planning and Transport Division; Environment, Culture and Communities Department Scope Borough Wide Status DPD Priority High Synopsis The Adopted Proposals Map based on Core Strategy policies, ‘saved’ policies in the Bracknell Forest Borough Local Plan and other matters detailed in PPS12). It will be amended to incorporate changes resulting from the Adoption of subsequent Development Plan Documents. Chain of • Conformity with all DPDs conformity Timetable Key Milestones Timescale ADOPTED PROPOSALS MAP ADOPTION APRIL 2010
For further changes see timetables for production of individual Development Plan Documents Management Director of Environment, Culture and Communities → LDF Steering Group arrangements → Environment Portfolio Holder → Executive Committee → Council Resources Internal: • Spatial Policy Section • Internal administration and GIS technical support • Other Borough Council Officers’ and Members’ time and input • LDF budget to cover printing and design costs External: • Specific LDF budget allows for possible use of consultants for other aspects of preparation
Approach to Wide stakeholder and community involvement using a range of involving consultation methods described in the LSP’s Community Engagement stakeholders & Strategy and the SCI that more than meet the minimum set out in community Regulations.
As for relevant DPD
Bracknell91 Forest Borough LDS – September 2009 34
LDD PROFILE Ref: LDD202
Document Title Warfield Supplementary Planning Document Lead Section Design, Environment and Transport Team; Spatial Policy Section; Planning and Transport Division; Environment, Culture and Communities Department Scope Site Specific Status SPD Priority High Synopsis A document that provides guidance for the delivery of future development of land at Warfield (formerly known as land north of Whitegrove and Quelm Park reflecting Core Strategy Policy CS5 – Land north of Whitegrove and Quelm Park). Chain of • General conformity with national planning guidance/statements and conformity regional planning policy • Compliance with the Core Strategy • Conformity with the Sustainable Community Strategy • Influenced by other Council, Partnership and Local Strategies Timetable Key Milestones Timescale Commencement of document preparation OCTOBER 2009 Produce and consult on scoping report OCTOBER 2009 – NOVEMBER 2009 Evidence gathering, background research and SEPTEMBER 2009 – MAY 2010 stakeholder engagement Prepare draft SPD and Sustainability Appraisal Report JUNE 2010 – NOVEMBER 2010 Consultation on draft SPD and Sustainability Appraisal NOVEMBER 2010 – JANUARY Report 2011 Consider Responses and further develop the SPD/SA JANUARY 2011 – SEPT 2011 Report to Executive SEPTEMBER 2011 Further targeted consultation SEPTEMBER - OCTOBER 2011 Consider Responses/Finalise SPD/SA OCTOBER – NOVEMBER 2011 Report to Executive/Publish DECEMBER 2011 Management Chief Officer: Planning & Transport → LDF Steering Group → Planning & arrangements Transport and Economic Development Portfolio Holder → Executive Committee → Council Resources Internal: • The Design, Environment and Transport team, LDF Project Team plus other Spatial Policy Officers as appropriate • Internal administration and technical support • Other Borough Council Officers’ and Members’ time and input • LDF budget to cover consultation, printing and design costs, examination costs External: • Specific LDF budget allows for possible use of consultants for other aspects of preparation • Interested party Resources: LSP to provide link to the community • Consortium of Landowners/Developers to prepare masterplan under Management of Council • Development industry expertise
Bracknell92 Forest Borough LDS – September 2009 35
Approach to Wide interested party and community involvement using a range of involving consultation methods described in the LSP’s Community Engagement stakeholders & Strategy and the SCI that more than meet the minimum set out in community Regulations.
Bracknell93 Forest Borough LDS – September 2009 36
LDD PROFILE Ref: LDD205
Document Title Thames Basin Heaths Special Protection Area Avoidance and Mitigation Strategy SPD Lead Section Design, Environment & Transport Team; Spatial Policy Section; Planning and Transport Division; Environment, Culture and Communities Department Scope Any development likely to have a significant effect on the integrity of the SPA Priority High Status SPD Synopsis • SPD will inform application of LDF Policy CS14 in place of provisions in the LID SPD which is awaiting the Government’s CIL provisions before being reviewed. • SPD will detail a flexible set of standards to be used as a material consideration in the determination of planning applications • SPD will replace Thames Basin Heaths SPA Technical Background Document to the Core Strategy DPD (June 2007) and Chapter 11 and Appendix C of the Limiting the Impact of Development SPD (July 2007). Chain of • General conformity with national and regional guidance conformity • Conformity with the Core Strategy • Influenced by other local plans and strategies including the Sustainable Community Strategy and the Local Transport Plan Timetable Key Milestones Timescale Commencement of document preparation JULY 2009 Produce and consult on scoping report JULY 2009 – AUGUST 2009 Evidence gathering, background research and AUGUST 2009 – JANUARY 2011 stakeholder engagement Prepare draft SPD and Sustainability Appraisal Report JANUARY 2011 – MARCH 2011 Consultation on draft SPD and Sustainability Appraisal SEPTEMBER 2011 – OCTOBER Report 2011 Consider Responses/Finalise SPD/SA OCTOBER 2011 – NOVEMBER 2011 Report to Executive/Publish DECEMBER 2011 Management Focus Group → Chief Officer: Planning & Transport → LDF Steering arrangements Group → Planning & Transport and Economic Development Portfolio Holder → Executive Committee Resources Internal: • Spatial Policy Officers as appropriate; • Administration and GIS technical support; • Other Borough Council Officers’ and Members’ time and input • LDF budget to cover consultation, printing and design costs External: • LSP Transport Partnership to provide a key link to the community • Interested Parties/Development Industry expertise Approach to Focused interested party and community involvement using a range of involving consultation methods described in the LSP’s Community Engagement stakeholders & Strategy and the SCI that more than meet the minimum set out in community Regulations.
Bracknell94 Forest Borough LDS – September 2009 37
Appendix 3
Saved Policies in the Bracknell Forest Borough Local Plan
The table below indicates the Policies and Proposals in the Bracknell Forest Borough Local Plan (BFBLP) that have been “saved” and that therefore form part of the Bracknell Forest Borough Local Development Plan until replaced by new policies or it is agreed with the Government Office that they will no longer be saved as set out in paragraph 6.2. It also indicates broadly when each policy will be reviewed. In some instances it is considered that elements of an existing policy may be reviewed under two proposed DPDs as indicated in the table.
Assessment as to whether policies should be saved was made against the following criteria:
• where appropriate, there is a clear strategy; • the policies have regard to the Community Strategy for the area; • the policies are in general conformity with the Core Strategy Development Plan Document (where adopted); • there are effective policies for any parts of the authority’s area where significant change in the use or development of land or conservation of the area is envisaged; and • the policies are necessary and do not merely repeat national or regional policy.
This list will be subject to review and alteration as preparation of the Local Development Documents proceeds, and monitoring takes place.
Policy Title To be reviewed under DPD Dates (Commencement & Adoption) EN1 Protecting tree and Core Strategy Review January 2010 – Hedgerow cover September 2012 EN2 Supplementing tree and Core Strategy Review January 2010 – hedgerow cover September 2012 EN3 Nature Conservation Core Strategy Review January 2010 – September 2012 EN4 Local Nature Reserves, Core Strategy Review January 2010 – Wildlife Heritage Sites September 2012 and Regionally Important Geological Sites EN6 Ancient monuments and Core Strategy Review January 2010 – archaeological remains September 2012 of national importance EN7 Other important Core Strategy Review January 2010 – archaeological remains September 2012 EN8 Development on land Core Strategy Review January 2010 – outside settlements September 2012
Bracknell95 Forest Borough LDS – September 2009 38
Policy Title To be reviewed under DPD Dates (Commencement & Adoption) EN9 Changes of use and Core Strategy Review January 2010 – adaptation of existing September 2012 non-residential buildings outside settlements, outside the Green Belt EN10 Areas of landscape Core Strategy Review January 2010 – importance September 2012 EN11 Warfield Park Mobile Core Strategy Review January 2010 – Home Site September 2012 EN12 Historic parks and Core Strategy Review January 2010 – gardens September 2012 EN14 River corridors Core Strategy Review January 2010 – September 2012 EN15 Floodlighting Core Strategy Review January 2010 – September 2012 EN20 Design considerations Core Strategy Review January 2010 – in new development September 2012 EN22 Designing for Core Strategy Review January 2010 – accessibility September 2012 EN25 Noise and other Core Strategy Review January 2010 – pollution September 2012 EN26 Energy Core Strategy Review January 2010 – September 2012 E1 Development in Core Strategy Review April 2009 – Bracknell Town Centre September 2011
January 2010 – September 2012 E4 Small Businesses Core Strategy Review April 2009 – September 2011
January 2010 – September 2012 E5 Hierarchy of shopping Core Strategy Review April 2009 – centres September 2011
January 2010 – September 2012
Bracknell96 Forest Borough LDS – September 2009 39
Policy Title To be reviewed under DPD Dates (Commencement & Adoption) E7 Business development Core Strategy Review April 2009 – in shopping areas September 2011
January 2010 – September 2012 E8 Change of use of shop Core Strategy Review April 2009 – units (A1) to other uses September 2011 outside defined shopping centres January 2010 – September 2012 E9 Non-retail uses in Core Strategy Review April 2009 – Bracknell Town Centre September 2011 primary shopping area, the retail core area of January 2010 – Crowthorne September 2012 E10 Non-retail uses in Core Strategy Review April 2009 – Bracknell Town Centre September 2011 secondary shopping area, Crowthorne retail January 2010 – area outside the retail September 2012 core area and Sandhurst Centre (west of Swan Lane) E11 Village and Core Strategy Review April 2009 – neighbourhood centres September 2011 and local parades January 2010 – September 2012 E12 Identified major Core Strategy Review April 2009 – employment sites September 2011
January 2010 – September 2012 GB1 Building in the Green Core Strategy Review January 2010 – Belt September 2012 GB2 Changes of use of land Core Strategy Review January 2010 – within the Green Belt September 2012 GB3 Residential Core Strategy Review January 2010 – development within September 2012 Green Belt villages GB4 Re-use and change of Core Strategy Review January 2010 – use of buildings within September 2012 the Green Belt GB5 Syngenta – a major Core Strategy Review January 2010 – developed site within September 2012 the Green Belt H3 Residential Core Strategy Review January 2010 – subdivisions and September 2012 houses in multiple occupation H4 Areas of special Core Strategy Review January 2010 – housing character September 2012
Bracknell97 Forest Borough LDS – September 2009 40
Policy Title To be reviewed under DPD Dates (Commencement & Adoption) H5 New dwellings outside Core Strategy Review January 2010 – settlements September 2012 H6 Development involving Core Strategy Review January 2010 – existing dwellings in the September 2012 countryside outside the Green Belt H8 Affordable housing Core Strategy Review April 2009 – September 2011
January 2010 – September 2012 H11 Retention of the Core Strategy Review April 2009 – housing stock September 2011
January 2010 – September 2012 H12 Enclosure of open land Core Strategy Review January 2010 – in residential areas September 2012 H14 Accessible housing Core Strategy Review January 2010 – September 2012 M1 Traffic management and Core Strategy Review January 2010 – highway schemes September 2012 M2 Safeguarded road line: Core Strategy Review January 2010 – Extension of the September 2012 northern distributor road M3 Protected road lines. Core Strategy Review January 2010 – Sandhurst-Crowthorne September 2012 bypass road scheme M4 Highway measures Core Strategy Review January 2010 – expected in association September 2012 with new development M5 Service road schemes Core Strategy Review January 2010 – September 2012 M6 Cycling and walking Core Strategy Review January 2010 – September 2012 M7 Access for people with Core Strategy Review January 2010 – disabilities September 2012 M8 Public transport Core Strategy Review January 2010 – September 2012 M9 Vehicle and cycle Core Strategy Review January 2010 – parking September 2012 M10 Parking for countryside Core Strategy Review January 2010 – recreation September 2012 R3 Dual use of educational Core Strategy Review January 2010 – facilities September 2012 R4 Provision of open space Core Strategy Review January 2010 – of public value September 2012 R5 Publicly usable open Core Strategy Review January 2010 – space for small sites September 2012 R6 Visitor accommodation Core Strategy Review January 2010 – September 2012
Bracknell98 Forest Borough LDS – September 2009 41
Policy Title To be reviewed under DPD Dates (Commencement & Adoption) R7 Countryside recreation Core Strategy Review January 2010 – September 2012 R8 Public rights of way Core Strategy Review January 2010 – September 2012 R10 Blackwater Valley Core Strategy Review January 2010 – September 2012 SC3 No reduction in existing Core Strategy Review January 2010 – community facilities September 2012 SC4 Telecommunications Core Strategy Review January 2010 – provision September 2012 PE1i Land in the northern Core Strategy Review April 2009 – sector of Bracknell September 2011 Town Centre January 2010 – September 2012 PE1ii Land at the south of Core Strategy Review April 2009 – Bracknell Town Centre September 2011
January 2010 – September 2012 PH1.1 The Staff College, N/A N/A Bracknell PH1.2 New housing N/A N/A development proposal at Peacock Farm, west of Bracknell town PM1.1 Road junction and Core Strategy Review January 2010 – highway works September 2012 PM1.3 Land protected for N/A N/A dualling PM5 Service road schemes Core Strategy Review January 2010 – September 2012 PR10 Blackwater Valley Core Strategy Review January 2010 – September 2012
Bracknell99 Forest Borough LDS – September 2009 42
Appendix 4
Relationship between Saved Policies and Supplementary Planning Guidance/ Supplementary Planning Documents
Document Links to saved policies Public Art SPG Supports Policy CS7 of the Core Strategy DPD Light Pollution Guidance SPG Supports Policy EN2 of the BFBLP Extending your Home SPG Supports Policy EN20 of the BFBLP Opening Hours SPG Supports Policy E9 and E10 of the BFBLP Parking Standards SPD Supports Policy M9 of the BFBLP Guidance for the preparation of Supports Policy EN20 of the BFBLP Planning Briefs SPG Limiting the Impact of Supports Policy CS6 of the Core Strategy DPD Development SPD Tree Planting Guide SPG Supports Policy EN2 of the BFBLP Telecommunications SPG Supports Policies SC4 and SC5 of the BFBLP Peacock Farm Planning and Supports Proposal PH1.2 of the BFBLP Design Brief The Staff College Planning and Supports Proposal PH1.1 of the BFBLP Design Brief Zeneca Planning Brief Supports Policy GB5 of the BFBLP College Town Design Guidelines Supports Policy EN20 of the BFBLP Bracknell Town Centre Masterplan Supports Proposals PE1i and PE1ii of the BFBLP Bracknell Town Centre Urban Supports Proposals PE1i and PE1ii of the BFBLP Design Framework Eastern Gateway Planning Brief Supports Policies EN20 of the BFBLP Designing for Recycling Supports Policy CS6 of the Core Strategy DPD Designing for Accessibility in Supports Policies EN22, H14 and M7 of the BFBLP Bracknell Forest Sustainable Resource Supports Policies CS10 and CS12 of the Core Management SPD Strategy SPD
The Council is currently in the process of putting all SPGs and SPDs on the website. In the meantime copies can be viewed at the Council Offices at Time Square, Market Street, Bracknell.
Bracknell100 Forest Borough LDS – September 2009 43
Appendix 5 – Glossary of Terms
Annual Monitoring Report (AMR) – a document which forms part of the Local Development Framework and which assesses the extent to which policies are being implemented successfully and reviews the progress of the Local Development Scheme.
Development Plan Document (DPD) – spatial planning documents that are subject to independent examination which together with the Regional Spatial Strategy will form the development plan for the Borough.
Examination – the process by which it is anticipated that Local Development Documents will be subject to independent scrutiny by a Planning Inspector.
Government Office for the South East (GOSE) – represents Central Government in the South East including the Department for Communities and Local Government. Further information can be found at www.gose.gov.uk
Housing Land Availability Assessment (HLA) – an evaluation of land available for housing which will be used as part of the evidence base for Development Plan Documents.
Joint Strategic Planning Unit (JSPU) – set up following the abolition of Berkshire County Council to carry out strategic planning functions on behalf of the six Berkshire Unitary Authorities. Further information can be found at www.berks.jspu.gov.uk
Local Development Documents (LDD) – the documents which (taken as a whole) set out the Council’s policies relating to the development and use of land in the Borough.
Local Development Framework (LDF) – a non-statutory term used to collectively describe the Local Development Documents that together guide development at the local level.
Local Development Scheme (LDS) – a project plan for the Local Development Documents.
Local Plan – the type of planning policy document produced by District and Borough Councils that will gradually be replaced by Local Development Documents.
Local Strategic Partnership (LSP) – a group of significant stakeholders, including public, private and voluntary sectors, who produce the Community Strategy.
Planning & Compulsory Purchase Act - the name of the Planning & Compulsory Purchase Bill now it is enacted.
Planning Inspector – a person employed by the Planning Inspectorate to hear appeals against refusals of planning permission, call-in inquiries into major planning applications with implications for national planning policy, and into issues relating to emerging planning policy.
Bracknell101 Forest Borough LDS – September 2009 44
Planning Policy Guidance Note (PPG) – national planning policy guidance produced by the Government under the old planning regime. Planning policy guidance notes are advisory, although all planning policies at regional, county and district/borough level and the determination of all planning applications are supposed to comply with Planning Policy Guidance Notes.
Planning Policy Statement (PPS) – national planning policy produced by the Government under the new planning regime. All planning policies at a regional, county and district/borough level, and the determination of all planning applications must comply with Planning Policy Statements. Likely to be amalgamated in a single national planning policy framework under government plans.
Regional Spatial Strategy – sets out the region’s policies in relation to the development and use of land and forms part of the development plan. Due to be abolished under the provisions in the Localism Bill.
Strategic Housing Market Assessment (HMA) – a process for analysing the present and future supply and demand for housing at the sub-regional level.
Supplementary Planning Documents (SPD) – a type of Local Development Document that holds less weight in the determination of planning applications than a Development Plan Document. SPD supplements policies and proposals in Development Plan Documents.
Supplementary Planning Guidance (SPG) – planning policy proposed by District, Borough or County Councils under the old planning regime, to supplement and elaborate on one or more policies in the main planning document that they produced (Local Plan, Unitary Development Plan, Structure Plan)
Sustainability Appraisal – the Planning and Compulsory Purchase Act requires Local Development Documents to be subject to a Sustainability Appraisal, which examines the impact of the policies and proposals on economic, social and environmental factors.
The Community Plan – a Plan produced by public, private and community stakeholders and led by the Local Strategic Partnership.
Urban Potential Study – an assessment of the amount of residential development that could be accommodated within urban areas.
Bracknell102 Forest Borough LDS – September 2009 Agenda Item 7
TO: EXECUTIVE 05 JULY 2011
CONSULTATION ON THE THAMES BASIN HEATHS SPECIAL PROTECTION AREA AVOIDANCE AND MITIGATION SUPPLEMENTARY PLANNING DOCUMENT CONSULTATION DRAFT (SPAAM SPD) (Director of Environment, Culture & Communities)
1 PURPOSE OF DECISION
1.1 As Members of the Executive will be aware, a previous consultation on the draft Thames Basin Heaths Special Protection Area Avoidance and Mitigation Supplementary Planning Document (SPAAM SPD) was undertaken. However, before a final version of the SPD could be adopted, advice relating to strategic access management and monitoring arrangements resulted in the Council not being able to proceed to adopt the SPD during March 2010.
1.2 In the meantime, much work has been undertaken at the sub-regional level to initiate the SAMM Project. The SAMM Legal Agreement has been finalised and it has agreed by the Joint Strategic Partnership Board (JSPB) that all SPA affected local authorities and Natural England would aim to complete the signing of this agreement by 8 July 2011. The project would start thereafter.
1.3 Work on costs has also been undertaken and changes have been made to the draft SPD as a result of the previous consultation. Therefore, Members of the Executive are recommended to approve a draft Thames Basin Heaths Avoidance and Mitigation Supplementary Planning Document (SPAAM SPD) for a second public consultation. Also, authorise the Council to enter into the SAMM legal agreement and implement the Strategic Access Management and Monitoring (SAMM) Project.
1.4 It is the intention to formally adopt the final version of the SPD as a material
consideration in the determination of planning applications at the end of 2011.1 The final SPAAM SPD will replace the existing avoidance and mitigation strategy .
2 RECOMMENDATIONS
2.1 That the Executive agrees the Thames Basin Heaths Special Protection Area Avoidance and Mitigation Supplementary Planning Document Consultation Draft (Annexe 1) and supporting documents (Annexe 2 and 3) for public consultation.
2.2 That authority be delegated to the Executive Member for Planning, Transport and Economic Development to agree any necessary amendments to the Thames Basin Heaths Special Protection Area Avoidance and Mitigation Supplementary Planning Document Consultation Draft (Annexe 1) and supporting documents prior to publication for public consultation.
2.3 That the Executive authorise the Council to enter into the Strategic Access Management and Monitoring (SAMM) Legal Agreement, as shown in Annexe 4, subject to such variations thereto as may be approved by the Chief Officer:
1 The Appropriate Assessment of the Core Strategy DPD contained in the Thames Basin Heaths SPA Technical Background Paper to the Core Strategy DPD (June 2007) will remain current.
103 Planning and Transportation in consultation with the Executive Member for Planning Transport and Economic Development.
3 REASONS FOR RECOMMENDATION
3.1 The first recommendation (Paragraph 2.1) seeks to consult on guidance which recognises that the policy position has significantly altered since the existing strategy was first implemented. South East Plan (SEP) Policy NRM6 now forms part of our statutory Development Plan. Whilst our current strategy conforms to the new policy in many ways, there are a number of provisions which require amendment to our existing approach. The Policy specifically references the TBH Delivery Framework as the mechanism for implementation of the policy. The Delivery Framework is sub- regional guidance, developed and agreed by the Joint Strategic Partnership Board (JSPB), for the purpose of standardising the approach to the avoidance and mitigation of impacts on the Thames Basin Heaths SPA. Even with the eventual revocation of the SEP, the findings of the Technical Assessor in the SEP Public Examination and the Delivery Framework still form an agreed approach for all the SPA affected local authorities in the sub-region to comply with the Conservation of Habitats and Species Regulations (2010), through the JSPB.
3.2 The first recommendation (Paragraph 2.1) also seeks to consult on guidance which supports the new strategy. The detailed approach is considered most appropriate and robust for the purpose of avoiding a likely significant effect on the SPA as a result of delivery of Bracknell Forest Council’s Core Strategy Development Plan Document (DPD) housing provision. The key changes include:
• A new SANG standard of 8 hectares per 1000 persons from 12 hectares per 1000 persons in line with the South East Plan and Delivery Framework. • Changing the definition for “in-perpetuity” relating to financial contributions2 towards the maintenance of SANGs from a 20 year period to 125 years. • Making provision for the collection of a sub-regional s106 contribution for strategic access management and monitoring in line with the Strategic Access Management and Monitoring Project. • Setting SANGs and SAMM contributions on a ‘per bedroom’ basis, rather than a ‘per dwelling’ basis.
3.3 The third recommendation (Paragraph 2.3) will enable the SAMM Project to proceed so that access management and monitoring contributions collected in Bracknell Forest will be able to be passed onto Hampshire County Council on behalf of the JSPB. This will be spent by Natural England on SPA wide management and monitoring activities, as set out in a management plan as agreed by the JSPB.
3.4 The SPD will be a material consideration in the determination of planning applications.
4 ALTERNATIVE OPTIONS CONSIDERED 4.1 The alternative option for the first recommendation currently open to the Council is to delay, or not review the strategy. This would result in the Council being potentially unable to:
2 The previous draft SPD contained an ‘in perpetuity’ period of 80 years which was based on the Perpetuities and Accumulations Act 1964. This Act was updated in 2009 and the second draft SPD is based on the more recent ‘in perpetuity’ period of 125 years as stated in the Perpetuities and Accumulations Act 2009.
104
• support its 20 year vision; or • show that planning decisions were made in accordance with the Development Plan.
4.2 Failure to implement an updated SPD could result in :
• inability to demonstrate no adverse impact on the integrity of the SPA; • inability to meet the overall housing provision as set out in the Core Strategy policy CS15; • inability for the Council to market its own sites to be disposed of at optimum value without appropriate mitigation, potentially compromising other delivery ambitions; • possible significant reduction in the planning application fees; • possible reduction in building control inspection fees; • impacts on partner organisations, who may not achieve financial tests to deliver new facilities through disposal of land for residential development; • further medium to long-term impacts if this were to continue, such as failure to meet school capacity targets at some schools and future Council tax revenue projections.
4.3 The alternative option for the third recommendation currently open to the Council is not to sign the legal agreement and continue collecting access management contributions in line with the current SPA strategy, to be applied on the SPA within Bracknell Forest. If BFC refused to be a signatory to the SAMM legal agreement, this would conflict with decisions taken by the JSPB. It would result in the SAMM Project not being able to continue throughout the sub-region and Natural England possibly objecting to developments affecting the SPA in line with the Conservation of Habitats and Species Regulations 2010.
5 SUPPORTING INFORMATION
Context
5.1 The Council has adopted its Core Strategy which provides the spatial planning vision from 2006 to 2026. At the heart of this vision is the promotion of sustainable development in the Borough with a central theme of providing a high quality of life for existing and future residents. The Council has published an existing SPA Strategy which has proved to be an effective tool in ensuring that appropriate development is permitted whilst ensuring that the integrity of the SPA is not harmed. It consists of a two pronged approach; the provision of Suitable Alternative Natural Greenspace (SANG) and access management. It comprises:
1. the Thames Basin Heaths SPA Technical Background Document to the Core Strategy DPD (June 2007) containing both an Appropriate Assessment of the Core Strategy and the Avoidance and Mitigation Strategy; and, 2. the implementation phase of the above Technical Background Document as set out in Chapter 11 of the Limiting the Impact of Development Supplementary Planning Document (LID2) (July 2007).
The need to review the existing Strategy
5.2 Since the publication of the existing Strategy, significant sub-regional progress has resulted in the inclusion of a Thames Basin Heaths SPA policy within the South East Plan (NRM6), the agreement of a Delivery Framework by the Joint Strategic Partnership Board (on which BFC is represented by Cllr Ballin) and formation of the Strategic Access Management and Monitoring (SAMM) Project.
105
5.3 Therefore, the review of the existing Strategy to take into account strategic issues and recent progress was agreed by Executive in July 2008 and subsequently programmed in the Local Development Scheme in the form of an SPD. Preparation then began on a review called the Thames Basin Heaths Special Protection Area Avoidance and Mitigation Supplementary Planning Document (SPAAM SPD).
Previous consultation on the Draft SPD
5.4 Following Executive endorsement, consultation was carried out between 02 November and 14 December 2009. Details of the consultation were sent to key stakeholders including: Parish Councils, other local authorities, developers, housing associations, local environmental groups and government agencies. The draft document was also made available on the Council’s website, in local libraries, Parish and Town Council offices and Council reception areas and advertised in the local press which is delivered to all households in the Borough.
5.5 Consultation on the draft Sustainability Appraisal (SA) was carried out alongside the draft SPD. The full document was emailed to statutory consultees and a non- technical summary was sent to all key stakeholders.
Supporting Documents
5.6 Twenty consultation responses were received in connection with the draft SPD. These were subsequently collated and, where appropriate, changes were made to the SPD. Annexe 3 provides details of how the consultation was carried out; summarises the main issues raised during the consultation; and, how these issues were addressed in the second draft SPAAM SPD. Two consultation responses were received from the statutory consultees in connection with the draft Sustainability Appraisal (SA) Report. These are summarised in the second draft SA Report in Annexe 2. This is available online or in the Executive and Opposition rooms in the Democratic Services Section.
The second draft Thames Basin Heaths Avoidance and Mitigation SPD (SPAAM SPD)
5.7 Annexe 1 contains the second SPAAM SPD Consultation Draft. The main changes from the current Strategy are that the SPAAM SPD alters the standard for Suitable Alternative Natural Greenspace (SANG) provision from 12 to 8ha per 1000 new residents, enables maintenance of SANGs in perpetuity and provides for strategic visitor access management across the SPA.
5.8 A further change from the first draft SPD sets SANGs and SAMM contributions on a ‘per bedroom’ rather than a ‘per dwelling’ basis. This change has been made as a
result of the legal opinion jointly sought by the SPA affected local authorities to 3 establish whether the proposed SAMM tariff was compliant with Circular 05/2005 . It concluded that the tariff did meet the requirements of the Circular except in regards to being a flat rate tariff rather than on a per bedroom basis. The opinion considered that a flat rate tariff would not be proportionate and would fetter the local authorities’ discretion. Following this, Natural England and the local authorities agreed a proportionate tariff based on the number of bedrooms. For the second draft SPD, the SANGs contributions have also been calculated on a per bedroom basis in the interest of consistency.
3 ODPM Circular 05/2005 Planning Obligations.
106 5.9 Please note that there are seven appendices associated with the second SPAAM SPD Consultation Draft and these are found in Annexe 1.
5.10 The strategic visitor access management element is via a ‘per bedroom’ contribution of between £399 for a one bedroom dwelling rising to £1,052 for a five bedroom dwelling. This will be administered under the Strategic Access Management and Monitoring (SAMM) Project which has been set up under the authorisation of the Joint Strategic Partnership Board. To implement this project it is necessary to pool the contributions from each authority affected by the SPA and administer and apply the contributions throughout the SPA.
5.11 The SANGs element is also via a ‘per bedroom’ contribution of between £1,570 for a one bedroom dwelling rising to £4,150 for a five bedroom dwelling. Since the first draft SPD, the figures have been updated and recalculated and a 125 year ‘in perpetuity’ period (previously 80 years) has been applied due to a change in legislation (Perpetuities and Accumulations Act 2009).
5.12 Due to the changes in SPA mitigation, the contribution per bedroom for each net additional dwelling is as follows:
Size of SAMM SANG Contribution Total Tariff Dwelling Contributions (bedrooms) 1 £399 £1,570 £1,969 2 £526 £2,070 £2,596 3 £711 £2,800 £3,511 4 £807 £3,190 £3,997 5+ £1,052 £4,150 £5,202
5.13 The contribution per dwelling figure set out in the draft SPD (November 2009) was £2,636.
5.14 The SPD includes information relevant to the implementation of the avoidance and mitigation measures, which will replace Chapter 11 and Appendix C of LID2.
5.15 The first draft SPAAM SPD included an Appropriate Assessment of the higher housing allocation (as set out in the South East Plan) and set out measures to ensure that the allocation, delivered in accordance with the Core Strategy DPD and the SPAAM SPD, would not have an adverse impact on the SPA. With the forthcoming revocation of the South East Plan, the Council are now working to the housing provision as set out in the Core Strategy DPD Policy CS15. An Appropriate
Assessment4 of the Core Strategy and these housing numbers was carried out in June 2007 and does not need to be carried out again at this stage (this has been confirmed with Natural England).
5.16 Supporting the amended standards and contributions, and agreeing a strategically managed and applied portion of a contribution will ensure that the SPA is not impacted by new residential development. The proposal will avoid the Council:
• taking on unsupported long term revenue costs; • underestimating the potential of open spaces for providing mitigation and delivering a higher quality of life for Borough residents;
4 Thames Basin Heaths SPA Technical Background Document to the Core Strategy DPD (June 2007).
107 • being taken through appeals or the courts for a failure to protect the SPA through planning and policy decisions.
Strategic Access Management and Monitoring (SAMM) Project 5.17 Strategic visitor access management across the SPA is being managed by the Strategic Access Management and Monitoring (SAMM) Project. Developers are expected to pay a ‘per bedroom’ contribution to this project which is based on a £630 per dwelling. A strategic approach to this is being taken in order that access management in one area of the SPA does not displace visitors to another part of the SPA. The SAMM Project Coordinator is being hosted by Natural England, whilst it is intended that Hampshire County Council will manage the finances. The SAMM project aims to
• Promote SANGS as new recreational opportunities for local people and particularly encourage their use during the breeding bird season. • Provide on-the-ground wardening service to supplement existing wardening efforts. • Provide an SPA-wide education programme. • Create new volunteering opportunities. • Demonstrate best practice for strategic access management of visitors and visitor infrastructure where the supply of greenspace is heavily dependent on protected areas. • Monitor visitor usage of SANGs and SPA. • Monitor Annex 1 birds on SPA sites.
5.18 The SAMM Legal Agreement can be found in Annexe 4. The schedules to the Agreement are available online or in the Executive and Opposition rooms in the Democratic Services Section.
6 ADVICE RECEIVED FROM STATUTORY AND OTHER OFFICERS
Borough Solicitor
6.1 The process for formulating and adopting a Supplementary Planning Document is set out in the Town and Country Planning (Local Development)(England) Regulations 2004. They provide that the local planning authority cannot adopt an SPD until they have considered any representations, and have prepared a statement setting out the main issues raised in the representations and how those main issues have been addressed in the SPD as intended to be adopted.
Borough Treasurer
6.2 The commitment budget includes a projection which represents the work in preparing the LDF as part of a continuous rolling programme. The costs of preparing the SPAAM SPD are included in the Local Development Framework budget projection.
Income arising from the SPA mitigation contribution will be used to finance the work set out in the Supplementary Planning Document.
Equalities Impact Assessment
6.3 The impact on equalities is an ongoing element of the production of the SPD and will inform an Equalities Impact Assessment Record which will be prepared to assess if an Equalities Impact Assessment is necessary. If so a full assessment will be carried
108 out. The results of either will be presented with the final version of the SPD in due course.
Strategic Risk Management Issues
6.4 The risks most relevant to the Council are detailed at section 4 above.
Other Officers
6.5 Parks and Countryside Services have been closely involved in providing advice and support to enable delivery of access and land management activities. This has enabled an effective coordinated approach to producing the SPAAM SPD. The second Draft SPAAM SPD has also been circulated to officers within the Council during its preparation and all comments received have been taken account of. The Regulations concerning preparation of LDF documents cover statutory stages of participation which include reference to Service Providing Departments.
7 CONSULTATION
Principal Groups Consulted
7.1 No groups have been consulted in the preparation of this report. However, the Regulations concerning preparation of LDF documents detail statutory stages of participation including specific and general bodies.
Method of Consultation
7.2 N/A
Representations Received
7.3 N/A
Background Papers
BFC TBH SPA Technical Background Document to the Core Strategy DPD (June 2007) TBH SPA Delivery Framework (12 February 2009). Joint Strategic Planning Board. BFC Limiting the Impact of Development SPD (July 2007) BFC Core Strategy DPD (February 2008)
Contact for further information
Simon Cridland, Team Manager, Design, Environment & Transport Team [email protected] 01344 351186
Doc. Ref G:\POLICY\Design, Env & Trans team\Environmental Policy\TBH SPA\Core Strategy AA & Implementation\TBH SPD\final consultation documents June 2011\Executive Papers 5Jul11
109 Appendix1
Equality Impact Assessment Record
Date of EIA 07 September 2009 (to accompany Executive Report on 07 June 11) Directorate Environment Culture & Communities Part One - Initial Screening Record 1. Activity to be Preparation of Bracknell Forest Borough Local Development Framework assessed “Thames Basin Heaths Special Protection Area Avoidance and Mitigation Supplementary Planning Document”. 2. What is the ⌧ Policy/strategy Function/procedure Project activity? Review Service Organisational change 3. Is it a new or ⌧ New Existing existing activity? 4. Who are the Head of Spatial Policy, the Design, Environment and Transport Team Manager, members of the EIA Senior Environmental Policy Officer. team? 5. Initial screening assessment. 1. Does the activity have the potential to cause adverse impact or discriminate against different groups in the Councils workforce or the community?
The implementation of the SPD impacts upon all residents in the Borough equally. The purpose of the SPD is to enable the Council to deliver its housing allocation and to ensure the protection of the Thames Basin Heaths Special Protection Area in accordance with UK and European law. The SPD sets out specific measures to avoid and mitigate against adverse impacts on the integrity of the Thames Basin Heaths Special Protection Area (SPA).
The SPD’s key measures are:
To not allow new net additional dwellings within 400 metres of the SPA boundaries.
To ensure that small residential developments between 400 m and 5 km of the SPA make financial contributions towards alternative open spaces and strategic measures for the protection of the condition of the SPA.
To ensure that large residential developments provide a bespoke set of measures including the provision of new alternative open space areas.
Any impacts will affect all residents and not target different groups. Furthermore, without an effective avoidance and mitigation strategy the Council will not be legally able to permit new residential development in accordance with UK and European law. This would mean the Council would either not permit, or risk legal challenge to, applications of new additional homes in the Borough. As a consequence new dwellings would not be provided, adversely impacting on all Borough residents.
The Thames Basin Heaths Special Protection Area Avoidance and Mitigation Draft Supplementary Planning Document will not cause adverse impact or discriminate against different groups in the Council’s workforce or the community, although there may be some impacts which affect all residents, regardless of age, background, ethnicity, belief, gender or sexuality.
110 2. Does the activity make a positive contribution to equalities?
The SPD is produced to enable the Council to deliver its housing allocation and by doing so will help the Council to fulfil a number of environmental, social and economic objectives, to the benefit of all residents.
Specifically, the strategy makes provision for enhanced and new alternative open spaces which residents will be encouraged to use. This clearly provides a benefit to all residents in their quality of life.
6. Did Part 1: Initial If the answer to question one above is 'yes' then it is necessary to go ahead with a full Screening indicate Equality Impact Assessment. that a full EIA was Yes – full EIA completed and recorded below. necessary? ⌧ No – full EIA not completed record ends here, please ensure this record is signed by the Chief Officer in box 17 overleaf and then email to abby.thomas@bracknell- forest.gov.uk 17. Chief Officers Bev Hindle signature. Signature
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112 Thames Basin Heaths Special Protection Area Avoidance and Mitigation Supplementary Planning Document (Consultation Draft)
Bracknell Forest Borough Local Development Framework www.bracknell-forest.gov.uk July 2011 113 Summary 1 1 Introduction 3 1.1 The Thames Basin Heaths SPA 3 1.2 Purpose and Scope of the SPD 4 1.3 Spatial Policy Framework 4 1.4 Stages in the Production of the SPD 6 1.5 Sustainability Appraisal 7 1.6 Sub-Regional Working 7 2 Background 8 2.1 Habitats Regulations 8 2.2 Bracknell Forest Housing Figures 9 2.3 Findings of the Core Strategy DPD Appropriate Assessment 10 3 SPA Avoidance and Mitigation Strategy 11 3.1 Types of Development Covered 13 3.2 Development within 400m of SPA 13 3.3 Suitable Alternative Natural Greenspace (SANG) 14 3.4 Strategic Access Management and Monitoring (SAMM) 17 3.5 Bespoke Solutions 18 4 Implementation and Monitoring 20 4.1 SANGs Contributions 20 4.2 SAMM Contributions 22 4.3 Summary of Avoidance and Mitigation Contributions 23 4.4 Timing of Contribution 24 4.5 Monitoring 25 Glossary 26 Abbreviations 28 References 29
Figure 1 Thames Basin Heaths SPA and Buffer Zones in Bracknell Forest 12 Figure 2 Strategic SANGs in Bracknell Forest 16
114 www.bracknell-forest.gov.uk/spa Table 1 Summary of SPA Avoidance and Mitigation Strategy 1 Table 2 Spatial Policy Framework 4 Table 3 Stages in the Production of the SPD 6 Table 4 Applications for Development within 400m of the SPA 14 Table 5 Suitable Areas of Strategic SANGs 15 Table 6 SANGs Contribution Calculation 21 Table 7 Strategic Access Management and Monitoring (SAMM) Contributions 23 Table 8 Summary of SPA Avoidance and Mitigation Strategy 23
www.bracknell-forest.gov.uk/spa 115 116 www.bracknell-forest.gov.uk/spa Summary
It has been established that a net increase in housing and other types of development potentially has an adverse impact on the Thames Basin Heaths Special Protection Area (SPA). This Supplementary Planning Document (SPD) sets out measures which will help to ensure that these adverse impacts can be avoided and mitigated, where possible. A summary of the avoidance and mitigation strategy is outlined in the table below. More detail is contained in the following sections.
Table 1 Summary of SPA Avoidance and Mitigation Strategy
Size of SANG SAMM Total Tariff (1)(2) Dwelling Contribution Contribution (per dwelling) (bedrooms) (per dwelling) (per dwelling)
RESIDENTIAL DEVELOPMENT (3)
Net increase in Presumption against net increase in residential n/a residential development. dwellings within 400m of SPA
Net increase in 1 £1,570 £399 £1,969 residential dwellings located 2 £2,070 £526 £2,596 between 400m and 5km of the 3 £2,800 £711 £3,511 SPA 4 £3,190 £807 £3,997 (developments of usually less than 5+ £4,150 £1,052 £5,202 110 dwellings)
Large residential 1 Provision of a £399 Costs of developments (4) bespoke SANG bespoke SANG 2 £526 (usually 110+ in accordance + 'per bedroom' the Avoidance SAMM dwellings) located 3 £711 between 400m and Mitigation contributions and 5km of the 4 SPD, with an £807 (dependent on SPA Appropriate housing mix) 5+ Assessment and £1,052 in consultation with NE and BFC.
Net increase of Subject to Habitats Regulations Assessment, in order to establish likely more than 50 significant effect on the SPA. May be required to provide appropriate residential mitigation - considered on a case by case basis in consultation with NE. dwellings located between 5 - 7km of the SPA
www.bracknell-forest.gov.uk/spa 117 1 Size of SANG SAMM Total Tariff (1)(2) Dwelling Contribution Contribution (per dwelling) (bedrooms) (per dwelling) (per dwelling)
NON RESIDENTIAL DEVELOPMENT
Non-residential Subject to Habitats Regulations Assessment in order to establish likely development significant effect on the SPA. May be required to provide appropriate within 400m of avoidance and mitigation measures. Considered on a case by case SPA basis in consultation with NE. (5)
Non-residential Unlikely to require a Habitats Regulations Assessment. Considered on development a case by case basis, in consultation with NE, where appropriate. located between 400m and 5km of the SPA
1. Unless screening under Habitat Regulations 2010 Reg. 61(1), concludes no significant effect on the integrity of the SPA 2. Reduced to reflect any in-kind mitigation measures, which will be assessed through Appropriate Assessment on a case-by-case basis. 3. Including new build, redevelopment, mixed use schemes, changes of use, conversions, affordable housing, planning applications for approval of reserved matters (where no avoidance or mitigation measures have been secured at outline stage) (including flats, apartments and houses) 4. Comprehensive development (or part thereof) including, but not limited to: sites identified by Policies CS3, CS4 and CS5 in the Council’s Core Strategy DPD, urban extensions agreed through the adoption of the Site Allocations DPD and other major sites 5. See section 2.3 in this SPD and Table 10 in the Bracknell Forest Council Thames Basin Heaths SPA Technical Background Document to the Core Strategy DPD (2007) for information on potential impacts on the SPA.
2 118 www.bracknell-forest.gov.uk/spa 1 Introduction 1.1 The Thames Basin Heaths SPA
1.1.1 The Thames Basin Heaths Special Protection Area (SPA) was designated in March 2005. It is protected from adverse impact under european and national law. (1) The SPA is a network of heathland sites which are designated for their ability to provide a habitat for the internationally important bird species of woodlark, nightjar and Dartford warbler.
1.1.2 The SPA spans 11 local authorities across Hampshire, Berkshire and Surrey and is fragmented by urban development and other land uses. It consists of 13 Sites of Special Scientific Interest (SSSIs) scattered across these counties as shown in Appendix 1.
1.1.3 The two areas of the SPA that lie within Bracknell Forest are the Broadmoor to Bagshot Heaths SSSI and the Sandhurst to Owlsmoor Bogs and Heaths (also know as Wildmoor Heath) SSSI. A large proportion of Bracknell Forest lies within 5km of the SPA to which this SPD principally applies.
1.1.4 In 2005 Natural England conducted research which indicated that the existing level of recreational pressure was having a detrimental effect on the three species of Annex I birds for which the SPA was designated.These ground-nesting birds which breed on the SPA are subject to disturbance from people and their pets using the SPA for recreational purposes and this affects their breeding success.
1.1.5 Due to this information and the level of house-building expected in the Thames Basin Heaths area, Natural England objected to all planning applications for a net increase in residential development within 5km of the SPA. This affected 11 Local Authorities in Berkshire, Hampshire and Surrey, which are within 5km of the SPA.
1.1.6 In order to comply with the Habitats Regulations and demonstrate that house-building is deliverable without giving rise to an adverse impact on the integrity of the SPA, in 2007 Bracknell Forest Council carried out an Appropriate Assessment of the Core Strategy DPD. (2) This identified potential impacts on the SPA and, in an accompanying Avoidance and Mitigation Strategy, proposed measures which would ensure that those impacts could be avoided and mitigated. (3)
1.1.7 Significant sub-regional progress has been made since the implementation of the Avoidance and Mitigation Strategy in 2007. This includes adoption of the South East Plan Policy NRM5 (Conservation and Improvement of Biodiversity) and NRM6 (Thames Basin Heaths Special Protection Area), agreement on the Thames Basin Heaths SPA Delivery Framework and development of the Strategic Access Management and Monitoring (SAMM) Project.
1 EU Directive on the Conservation of Natural Habitats and of Wild Flora and Fauna (the 'Habitats Directive') 92/43/EEC, the 'Birds Directive' 79/409/EEC and the Conservation of Habitats and Species Regulations 2010. 2 See Bracknell Forest Council Thames Basin Heaths SPA Technical Background Document to the Core Strategy DPD (July 2007). 3 See Bracknell Forest Council Limiting the Impact of Development Supplementary Planning Document (SPD) (July 2007)
www.bracknell-forest.gov.uk/spa 119 3 1.2 Purpose and Scope of the SPD
1.2.1 The main purpose of this Supplementary Planning Document (SPD) is to provide guidance to ensure that new development delivers Bracknell Forest Council (BFC) Core Strategy Policy CS14 (Thames Basin Heaths SPA) in addition to other relevant national, regional and local policies and targets. It provides an updated Avoidance and Mitigation strategy to show how the impacts of new (principally) residential developments on the Thames Basin Heaths SPA should be avoided and mitigated. It replaces Chapter 11 and Appendix C of the Limiting the Impact of Development SPD and the Avoidance and Mitigation Strategy set out in the Thames Basin Heaths SPA Technical Background Document to the Core Strategy (June 2007). (4) 1.3 Spatial Policy Framework
1.3.1 The following table outlines the elements of the Development Plan that are relevant to this SPD.
Table 2 Spatial Policy Framework
Adopted Policy Policy References Notes
South East Plan (2009) (5) NRM5 Conservation and Improvement of Biodiversity
NRM6 Thames Basin Heaths Special Protection Area
Bracknell Forest Council CS6 Limiting the Impact of Sets out the principle of Core Strategy DPD Development SPA protection in (February 2008) Bracknell Forest. CS14 ThamesBasin Heaths Special Protection Area
Bracknell Forest Borough EN3 Nature Conservation Sets out the principle of Local Plan 1991-2006 SPA protection in Bracknell Forest.
1.3.2 The BFC Core Strategy Development Plan Document (DPD) sets the long-term vision, objectives and strategy for the spatial development of Bracknell Forest and provides a framework for promoting and controlling development to 2026.
1.3.3 The principle of SPA protection is set out in BFC Core Strategy Policy CS14: Thames Basin Heaths Special Protection Area. See below. The Appropriate Assessment of the Core Strategy (6) identified that such a policy was necessary to mitigate the environmental impacts of development.
4 Part of the Thames Basin Heaths SPA Technical Background Document to the Core Strategy (June 2007) is an Appropriate Assessment of the Core Strategy DPD. This part of the document is still current. 5 In May 2010, the Secretary of State for Communities and Local Government announced his intention to abolish Regional Spatial Strategies (such as the South East Plan) which has been upheld as a material consideration. 6 See Thames Basin Heaths SPA Technical Background Document to the Core Strategy DPD (June 2007)
4 120 www.bracknell-forest.gov.uk/spa Core Strategy DPD Policy CS14 and Supporting Text
(Supporting text...) The Thames Basin Heaths is designated as a Special Protection Area under the EC Directive on the Conservation of Natural Habitats and of Wild Flora and Fauna (the “Habitats Directive”).This designation aims to protect a network of sites across Europe which has rare or important habitats or species, in order to safeguard biodiversity. The Thames Basin Heaths SPA covers 8400 hectares within the boundaries of nine Local Authorities in Berkshire, Hampshire and Surrey; 1300 hectares lie to the south of the Borough of Bracknell Forest. The SPA is designated for its ability to provide a habitat supporting breeding populations of Dartford warbler, nightjar and woodlark, which are protected species under the EC Wild Birds Directive.
The sites are protected by the Habitats Directive, which is transposed into UK law by the Habitats Regulations. The requirements of both the Habitats Directive and the Habitats Regulations are prescriptive and provide an absolute measure of whether permission can be given. If an adverse impact is likely, and no mitigation is proposed to remove this impact, the plan or project must be refused subject to the exceptions tests set out in Regulation 49 of the Habitats Regulations.
A significant impact is likely to occur from a net increase in residential development, leading to an increased population, in an area where the inhabitants of the development are within such proximity to the SPA they are likely to visit for recreational purposes. This zone of significant effect is within a 5 kilometre straight-line distance from the SPA boundary.
The Core Strategy DPD must remove any adverse effects resulting from its policies. The SPA technical background document to the Core Strategy DPD, has identified any potential effects arising from the plan, and put forward the type and amount of avoidance and mitigation measures required to remove these effects.
SP A Technical Bac kg round Document
The document identifies a strategic level of avoidance and mitigation measures, for example the provision of alternative recreational open space and visitor management.
This document has also concluded that any development within a 400 metre straight-line distance of the boundary of the SPA will be assessed on its own merits with regard to the Habitats Directive. If a significant impact cannot be precluded a detailed project-level Appropriate Assessment must ensure no adverse effect. Within this zone a significant adverse effect can only be avoided or mitigated in exceptional circumstances, therefore there will be a general presumption against new residential development within 400 metres of the SPA boundary.
Outside this 400 metre zone, if development identified as having a significant effect can comply with, and contribute an appropriate level towards, the measures detailed in the SPA Technical Background Document, the significant effect will be avoided and mitigated. Measures within the SPA Technical Background Document are not able to remove the significant effect of proposals within the 400 metre zone.
In order to assist the Council in making an Appropriate Assessment, where this is necessary, the developer will be required to provide such information as the Council may reasonably require for the purpose of the assessment.
www.bracknell-forest.gov.uk/spa 121 5 Policy CS14: Thames Basin Heaths Special Protection Area
The Council will carry out an assessment of the effects of a development proposal on the conservation objectives of the Thames Basin Heaths Special Protection Area (SPA) where there is a risk of the proposal having a signifi cant impact on the integrity of the site, either alone or in combination with other proposals. Proposals leading to a net increase in residential dwellings, within a straight-line distance of 5 kilometres from the SPA boundary, are likely to have a significant effect. The Council will not permit development which, either alone or in combination with other development, has an adverse effect upon the integrity of the SPA.
Development outside the 400-metre zone will be permitted where it can demonstrate that it can remove any adverse effect by contributing towards avoidance and mitigation measures in line with the SPA Technical Background Document.
The effective avoidance and/or mitigation of any identified adverse effects must be demonstrated and secured prior to approval of the development.
Implementation
This policy will be implemented through:
The determination of planning applications and appeals; Subsequent policies and guidance in further Local Development Documents.
1.3.4 Therefore, in line with Planning Policy Statement (PPS)9 (7) , the requirements for avoiding a likely significant effect on the SPA are set out in the Core Strategy, with this SPD providing guidance on implementation of avoidance and mitigation measures. 1.4 Stages in the Production of the SPD
1.4.1 Due to policy changes and work at the regional level, BFC is undertaking a second consultation on its draft SPD. Details are set out in the table below.
Table 3 Stages in the Production of the SPD
Stage Date
Thames Basin Heaths SPA Avoidance and Mitigation SPD 29th July - 2nd September Sustainability Appraisal Scoping Report (July 2009) 2009 Consultation
Draft Thames Basin Heaths SPA Avoidance and Mitigation 2nd November - 14 December SPD and Draft Sustainability Appraisal Report (November 2009 2009) Consultation
Draft Thames Basin Heaths SPA Avoidance and Mitigation Planned for September 2011 SPD and Draft Sustainability Appraisal Report (2011) Consultation
7 Planning Policy Statement 9: Biodiversity and Geological Conservation
6 122 www.bracknell-forest.gov.uk/spa Stage Date
Adoption of Thames Basin Heaths SPA Avoidance and Planned for December 2011 Mitigation SPD and publication of Sustainability Statement
1.5 Sustainability Appraisal
1.5.1 Plans and programmes that have been determined to require Appropriate Assessment pursuant to the Habitats Directive are also subject to an assessment procedure under the Strategic Environmental Assessment (SEA) Directive (Article 3(2) (b)).
1.5.2 Although it is no longer mandatory to carry out Sustainability Appraisal (SA) of SPDs, BFC has decided to continue to do so. Therefore this SPD is accompanied by an SA incorporating the requirements of SEA. Consultation on the SA Scoping Report has been undertaken as shown in the table above. An updated draft SA Report is being consulted on alongside this Draft SPD. 1.6 Sub-Regional Working
1.6.1 The Thames Basin Heaths SPA affects 11 local authorities. (8) In order to be sure of a consistent approach across the whole area, and on the advice of the Technical Advisor at the South East Plan Examination in Public (November/December 2007), a Joint Strategic Partnership (JSP) was set up in 2007 to provide a vehicle for joint working, liaison and exchange of information between local authorities and other organisations affected by the Thames Basin Heaths SPA. A Councillor from Bracknell Forest is a member of the Joint Strategic Partnership Board (JSPB).
1.6.2 In February 2009 the JSPB adopted guidelines in the form of a Delivery Framework. (9) This is available on the Council's website at http://www .br ac knell-f orest.go v.uk/spa and enables the delivery of residential development in the vicinity of the SPA without that development having a significant effect on the SPA as a whole. These guidelines form the basis of the approach adopted in this SPD.
1.6.3 Bracknell Forest Council has been working jointly at a sub-regional level for a number of years to implement mitigation measures and will endeavour to continue to do so in the future.
8 Waverley BC, Guildford BC, Surrey Heath BC, Woking BC, Bracknell Forest BC, Hart DC, Wokingham BC, Elmbridge BC, Runnymede BC, The Royal Borough of Windsor and Maidenhead, Rushmoor BC. 9 Thames Basin Heaths Special Protection Area Delivery Framework (JSPB) 12 February 2009.
www.bracknell-forest.gov.uk/spa 123 7 2 Background 2.1 Habitats Regulations
2.1.1 The Conservation of Habitats and Species Regulations 2010, referred to as the “Habitats Regulations”, implement in Great Britain the requirements of the EU Directive on the Conservation of Natural Habitats and of Wild Flora and Fauna, referred to as the “Habitats Directive” (Council Directive 92/43/EEC) and protect areas classified under EC Council Directive 79/409/EEC on the conservation of wild birds, referred to as the “Birds Directive”. The Regulations aim to protect a network of sites that have rare or important habitats and species in order to safeguard biodiversity.
2.1.2 Under the EC Birds Directive, Member States are required to take special measures to conserve the habitats of certain rare species of birds (listed in Annex I of the Birds Directive) and regularly occurring migratory birds. In particular each Member State was required to classify the most suitable areas of such habitats as Special Protection Areas (SPAs).This is designed to protect wild birds, and to provide sufficient diversity of habitats for all species so as to maintain populations at an ecologically sound level. All Bird Directive SPAs are part of the Natura 2000 network under Article 3(1) of the Habitats Directive.
2.1.3 Under Article 6(3) of the Habitats Directive, Competent Authorities have a duty to ensure that all the activities they regulate have no adverse effect on the integrity of any of the Natura 2000 sites. Therefore, the Competent Authority must assess the possible effects of the various proposals on any Natura 2000 sites.This includes screening for potential impacts on European sites. If there is a probability or a risk that there will be significant effects on site integrity alone or in-combination with all other relevant plans or projects (having regard to the site’s conservation objectives) then the plan or project must be subject to an Appropriate Assessment (AA) of its implications on the site. In the light of the conclusions of the assessment the Competent Authority shall agree to the plan or project only after having ascertained that it will not adversely affect the integrity of the site concerned and where the plan cannot pass further stringent tests described in Article 6(4). This process is clarified in Figure 1 of Circular 06/2005 ‘Biodiversity and Geological Conservation’ which is shown in Appendix 2.
2.1.4 The decision-maker must consider the likely and reasonably foreseeable effects in order to ascertain that the proposal will not have an adverse effect on the integrity of the site before it may grant permission (subject to the exception tests set out in Regulation 61 of the Habitats Regulations).
2.1.5 As described above, screening and, if necessary, AA should be undertaken by the Competent Authority (Bracknell Forest Council - BFC). However, the process also requires ecological expertise in order to make judgements about the implications for site integrity. It requires close working with Natural England in order to obtain the necessary information, agree the process, outcomes and mitigation proposals, and to meet the requirements of the Habitats Regulations.
8 124 www.bracknell-forest.gov.uk/spa 2.2 Bracknell Forest Housing Figures
2.2.1 The Council’s Core Strategy DPD was subject to, and passed Appropriate Assessment, allowing its adoption in February 2008. Policy CS15 of the Core Strategy sets out that over the plan period 2006 - 2026 the Council will make provision for 11,139 new dwellings (net). This figure includes a carry over of 359 units from a shortfall during the previous plan period (pre-2006). Subsequent advice from the Government Office for the South East (GOSE) was that no allowance needs to be made for the shortfall. Removing this allowance reduces the housing requirement from 11,139 to 10,780 . Further references in this document to the Core Strategy housing requirement therefore means a target for the plan period of 10,780 dwellings.
2.2.2 Following adoption of the Core Strategy, the South East Plan (10) was published in May 2009. This set a requirement of 12,780 new dwellings (net) for Bracknell Forest, an increase of 2,000 homes over the plan period up to 2026 over the Core Strategy figure.
2.2.3 In November 2009, BFC consulted on a draft Thames Basin Heaths SPA Avoidance and Mitigation SPD. This included an updated Appropriate Assessment of the higher South East Plan housing allocation.
2.2.4 In May 2010, the Secretary of State for Communities and Local Government (CLG) announced his intention to abolish Regional Spatial Strategies (RSSs). (11) In July 2010, a Parliamentary Statement (CLG letter dated 6 July 2010) was issued confirming the revocation of Regional Strategies with immediate effect. Although the South East Plan housing requirement formed the basis of the consultation carried out in 2009, it is no longer appropriate to use it as a basis for planning future development.
2.2.5 The letter announcing the revocation of Regional Strategies, was accompanied by advice setting out immediate issues arising from this change. The guidance also set out that LPAs will be responsible for establishing local housing provision in their area, and some authorities may decide to retain their existing housing targets that were set out in the revoked RSSs.
2.2.6 The advice also confirmed that adopted DPDs and saved policies will continue to provide the statutory planning framework. For Bracknell Forest this means that the Core Strategy remains part of the Development Plan including Policy CS15 as described above.
2.2.7 Based on this government advice, the figure in the adopted Core Strategy adjusted for the carry over from the previous plan period (giving 10,780) is the housing target for Bracknell Forest.
2.2.8 Some of these developments will fall outside of this Avoidance and Mitigation SPD and will not be required to make SPA contributions. This is set out in Appendix 3.
10 The Regional Spatial Strategy for the South East. 11 This has been confirmed as a material consideration.
www.bracknell-forest.gov.uk/spa 125 9 2.3 Findings of the Core Strategy DPD Appropriate Assessment
2.3.1 Table 10 in the Technical Background Document to the Core Strategy DPD (2007), sets out the likely impacts on the conservation objectives of the SPA arising as a result of the policies in the Core Strategy DPD. In summary, potential adverse effects on the SPA could arise as a result of
an increased in population close to the SPA increased recreational activity an increase in urban area.
2.3.2 Adverse effects could be any (or all) of the following;
Vandalism (incl. fire) – potentially causing damage to birds and nests Enrichment (from waste tipping and dog faeces) – potentially causing other plants to out-compete heathland plants Predation – of eggs and/or chicks Disturbance by people and dogs – potentially causing adult birds not returning to nest, chicks/eggs to die of exposure and a reduction in bird breeding success. Trampling – of eggs Fragmentation between heathland – potentially affecting bird territories and availability of ‘lay-back’ land required for grazing animals when their presence on the SPA is likely to cause damage Supporting habitats – potential loss of foraging habitats for birds Hydrology – changes to water supply into SPA could potentially affect birds. Pollution – potential effect of fly tipping and air pollution on heathland plants Roads – noise could affect breeding and feeding.
2.3.3 This SPD sets out an Avoidance and Mitigation strategy which would allow the Council to conclude no adverse impact on the integrity of the SPA as a result of a net increase in residential development between 400m and 5km of the SPA. Non-residential developments (particularly in close proximity to the SPA) are subject to a Habitats Regulations Assessment and are considered on a case by case basis.The potential adverse effects, summarised above, will enable such assessments.
10 126 www.bracknell-forest.gov.uk/spa 3 SPA Avoidance and Mitigation Strategy
3.0.1 This section provides guidance on the measures which will be implemented in Bracknell Forest to avoid likely significant effects on the SPA from development that is set out in the BFC Core Strategy DPD.They reflect the measures agreed by the JSPB in the Thames Basin Heaths Delivery Framework (2009) which can be found on the Council's website at http://www .br ac knell-f orest.go v.uk/spa
3.0.2 Any net increase in residential dwellings within 5km of the SPA is likely to have a significant impact either alone or in combination with others falling within the 5km zone. Consequently, every proposal for net additional dwellings must make provision to avoid and/or mitigate the impact. If developments contribute towards the measures set out in this SPD, they can avoid the effects of the development proposal and a project-level Appropriate Assessment is not required. (12)
3.0.3 The option remains for developers to undertake a Habitats Regulations screening assessment and where necessary a full appropriate assessment to demonstrate that a proposal will not adversely affect the integrity of the SPA.
3.0.4 A two prong approach to avoiding likely significant effect on the SPA is appropriate:
Provision of Suitable Alternative Natural Greenspace (SANG) to attract people away from the SPA and hence reduce pressure on it; and access management and monitoring measures on, and monitoring of, the SPA to reduce the impact of people who visit the SPA.
3.0.5 The avoidance measures should be provided in order that they can function in perpetuity.
3.0.6 The avoidance measures should be applied within a ‘Zone of Influence’ - defined as the area from 400m from the perimeter of the SPA to 5km from the perimeter of the SPA. (13) Figure 1 shows the area of SPA in Bracknell Forest and the extent of the 400m and 5km buffer zones. The majority of overall housing provision in Bracknell Forest (14) between 2006-2026 will be located within this zone of influence. There is a presumption against residential development within 400m of the SPA boundary as explained below.
12 This principle has been established through the High Court Judgement of J Sullivan in Hart DC v SoS for Communities and Local Government [2008]. 13 Measured as the crow flies from the primary point of access to the curtilage of the dwelling. 14 As set out in the Core Strategy DPD and the Draft Site Allocations DPD.
www.bracknell-forest.gov.uk/spa 127 11 Figure 1 Thames Basin Heaths SPA and Buffer Zones in Bracknell Forest
SPA Buffer Zones
Legend
400m SPA Buffer 5km SPA Buffer Special Protection Area Bracknell Forest Boundary This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown copyright and may 0 1 2 3 4 5 lead to prosecution or civil proceedings. Km Bracknell Forest Borough Council LA100019488.
12 128 www.bracknell-forest.gov.uk/spa 3.0.7 Residential developments of over 50 houses located between 5 and 7km from the edge of the SPA should be assessed on an individual basis. Where appropriate, a full appropriate assessment may be required to ascertain whether the proposal could have an adverse effect on the SPA. 3.1 Types of Development Covered
3.1.1 The duty to consider the possibility of likely significant effect on the SPA applies to all types of development, not just residential. This strategy largely concerns itself with the effects arising from the following development:
Proposals for 1 or more net new dwelling units falling within Use Class C3 (residential development); and Proposals for 1 or more net new units of staff residential accommodation falling within with Use Classes C1 and C2.
3.1.2 Other C1 and C2 uses will be assessed on a case by case basis. In the instance of Houses of Multiple Occupation (HMOs), they are normally single dwelling units. However the Council will deal with each on a case by case basis in consultation with the Development Management Section and the Compliance Team.
3.1.3 This strategy applies to applications for full or outline planning permission. Reserved matters, (15) discharge of conditions, or amendments to existing planning consents will be considered on an individual basis by the Council.
3.1.4 Large residential development proposals, which due to their scale and potential impact and ability to offer their own alternative avoidance measures, will be considered on a case by case basis. See section 3.5 (Bespoke Solutions).
3.1.5 Replacement dwellings will not generally lead to increased recreational pressure, therefore, will have no likely significant effect on the SPA and will not be required to make a contribution to the provision of avoidance measures.
3.1.6 All other applications for planning permission for developments in the vicinity of the SPA will be screened to assess whether they will have a likely significant effect (individually or in combination with other plans or projects) and where necessary a full Habitats Regulations Assessment will be undertaken. 3.2 Development within 400m of SPA
3.2.1 Within 400m of the SPA (16) the impact of new net increase in residential development on the SPA is likely to be such that it is not possible to conclude no adverse effect on the SPA. There should therefore be a presumption against residential development within this zone (the exclusion zone). (17)
15 In March 2007 legal advice was received which led the Council and Natural England to the view that Regulations 48 and 49 of the 1994 Habitats Regulations, should be applied to applications for approval of reserved matters or variations or renewals, where potential effects on the SPA were not fully considered when an existing permission was granted or where information more recently provided would make for a different assessment of effects. 16 Measured as the crow flies from the SPA perimeter to the point of access on the curtilage of the dwellings. 17 This is set out in Core Strategy DPD Policy CS14.
www.bracknell-forest.gov.uk/spa 129 13 Table 4 Applications for Development within 400m of the SPA
Within a straight-line distance of 400m Unless screening under Regulation 61(1) of the from SPA boundary Habitats Regulations 2010 concludes no significant effect on the integrity of the SPA. Including applications for approval of reserved matters pursuant to an outline planning permission, all applications for: Development is unlikely to be permitted as no Net increase of 1 or more dwellings effective avoidance and mitigation measures are Material changes of use or considered to be available which would avoid intensification impact on the SPA. Where bespoke avoidance Employment and commercial and mitigation measures are proposed, these must development including business, be identified through an Appropriate Assessment industrial, distribution and storage and satisfy the Council, in consultation with Natural (BIDS) uses England, that adverse effects can be removed, Mixed use schemes otherwise planning applications will be refused. Payment contributions towards measures in this Avoidance and Mitigation Strategy will not remove adverse effects arising from development within 400m of the SPA and therefore will not be accepted.
3.3 Suitable Alternative Natural Greenspace (SANG)
3.3.1 The provision of alternative recreational land to attract new residents away from the SPA is a key part of avoiding the impacts of new development on the Thames Basin Heaths SPA.
3.3.2 Within Bracknell Forest there are two ways for developers to provide new SANGs:
Make a payment contribution towards strategic SANGs (18) (subject to available SANGs capacity); or Make an in-kind, bespoke provision based upon the principles within this SPD. See section 3.5.
3.3.3 SANGs provision must be in addition to normal open space requirements (19) on the basis of at least 8ha per 1,000 population and meet the quality standards agreed at the sub-regional level. (20)
18 Strategic SANGs are open spaces in Bracknell Forest which, in agreement with NE, have been identified as being suitable for bringing up to SANGs standard through the application of developer contributions. 19 Open land to avoid and mitigate adverse impacts on habitat protected by the SPA designation is not the same as open space provision to meet recreational needs. Each serves a different purpose and is defined as such. Therefore the capacity of the SANG is based on 8ha/1000 persons after discounting any relevant Open Space of Public Value (OSPV) as set out in Appendix 4. Management of the SANGs is required to bring the sites up to a higher quality which will encourage more visitors and divert visits away from the SPA. If contributions towards the management of open space provision are reduced, the baseline quality of OSPV will be reduced. This baseline is a consideration in providing the necessary measures to bring SANGs up to the required standard. 20 See Natural England SANGs Quality Guidance on the Council's website at http://www .br ac knell-f orest.go v.uk/spa
14 130 www.bracknell-forest.gov.uk/spa 3.3.4 Sufficient SANG should be provided in advance of dwelling completion (21) to ensure that there is no likely significant effect on the SPA.
3.3.5 Appendices 4 and 5 explain the process undertaken to identify strategic SANGs in Bracknell Forest and their full assessment. The following table lists the open spaces in the borough which were identified as suitable SANGs and their agreed catchment zones. (22) Developments of less than 10 dwellings do not need to be within a specified distance of SANG. (23) However, all net new dwellings (including on sites of less than 10 dwellings) will be required to contribute to the provision of avoidance measures. (24)
Table 5 Suitable Areas of Strategic SANGs
Open Space Site (1) Catchment Zone Estimated Area (ha)
The Cut Countryside Corridor (Jocks Copse / 5km 22.3 Tinker's Copse / The Cut (south) / Garth Meadows / Larks Hill / Piggy Wood)
Shepherd Meadows 5km 34.92
Englemere Pond 5km 27.39
Horseshoe Lake 5km 10.01
Long Hill Park Group (Longhill Park / Milman Close 5km 15.79 / Beswick Gardens Copse / Lily Hill Park (25) / Clintons Hill)
Lily Hill Park 5km 22.74
Ambarrow Court / Ambarrow Hill 4km 13.56
Part of Great Hollands Recreation Ground 2km 4.78
1. In 2007, South Hill Park was identified as an area of open space which had the potential to be a SANG. Due to its limited catchment (400m) however it would in practise only provide mitigation for residential developments of less than 10 dwellings. For such developments, the Council has SANGs capacity in the south of the Borough. The site has therefore been removed from the Council's suite of strategic SANGs.
3.3.6 These are shown on the following map.
21 Completion should be defined as when an individual dwelling is completed, rather than when a whole development is completed. 22 The visitor catchment zone for larger areas of open space has been set at 5 kilometres, as this was the distance within which the majority of visitors were found to arrive. Where smaller SANGs are proposed, smaller catchments have been prescribed in line with the Delivery Framework. 23 The South East Plan Technical Assessor recommended that only new residential development of 10 dwellings or more would have an impact on the SPA.The Board considers that this approach fails to recognise the longer term cumulative effect of small-scale developments, however accepts his conclusion that individually developments of less than 10 dwellings will not have a significant impact on the SPA.Thus this Delivery Framework recommends a more flexible approach to the provision of SANG in relation to smaller developments. The threshold of 10 is identified on the basis of the definition of major development in the GDPO 1995. 24 Whilst the JSPB considers that SANG is not required to cater for the individual impact of small developments, in order to provide certainty that the overall (cumulative) impact of all small developments on the SPA is avoided, an appropriate level of SANG should be provided within the vicinity of the SPA as a whole. 25 Lily Hill Park is shown separately below.
www.bracknell-forest.gov.uk/spa 131 15 Figure 2 Strategic SANGs in Bracknell Forest
SANGs identified in the SPA Avoidance and Mitigation SPD
Larks Hill
Piggy Wood Tinker's Copse Garth Meadows Jock's Copse
Clintons Hill Longhill Park
Milman Close Lily Hill Park
Englem
Great Hollands Recreation Ground
Ambarrow Hill
Ambarrow Court
Horseshoe Lake
0 1 2 3 Km Shepherd Meadows Legend
Special Protection Areas
This Map is reproduced from Ordnance Survey Material with SANGs the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown copyright and may BFBC Borough Boundary lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
16 132 www.bracknell-forest.gov.uk/spa 3.3.7 Appendix 7 shows that the SANGs has the capacity to mitigate against a total of 13,643 (26) additional people if enhancements are implemented.
3.3.8 The broad enhancements to various areas of open space are provided in Appendix 6. This will be implemented as a rolling programme of works as development occurs funded by developer’s contributions. An Open Space Management Plan will give full details of the exact works to be carried out at each site over a 5 year period. These plans will be reviewed every 5 years in consultation with Natural England and other partners where relevant. Future monitoring and surveys may indicate additional works or improvements that could improve suitability as SANGs. 3.4 Strategic Access Management and Monitoring (SAMM)
3.4.1 The second avoidance and mitigation measure is access management and monitoring. A contribution towards the Strategic Access Management and Monitoring (SAMM) project (27) will be required from all new net residential development, regardless of whether the SANGs provision is bespoke or via the Avoidance and Mitigation Strategy. This is necessary for two reasons:
as SANGs provision alone cannot be relied upon to entirely avoid harm to the SPA, it must be supplemented with education and wardening on the SPA itself, and; to ensure that visitor management on the SPA is co-ordinated across the area, so that displacement of visitors from one area of the SPA to another is avoided.
3.4.2 The Thames Basin Heaths SPA comprises multiple SSSI sites, owned and managed by many different organisations and some private individuals. In order to ensure that access management implemented in one area does not simply displace visitors onto another part of the SPA, it is necessary to take a strategic approach to visitor access management.
3.4.3 The Access Management and Monitoring Partnership (made up of landowners and managers of the SPA) with support from Natural England and Hampshire County Council, has put forward a programme of strategic visitor access management measures for the purpose of mitigating the impacts of new development on the SPA, to be funded by developer contributions. These measures, in combination with a complimentary monitoring programme, have been taken forward into the Strategic Access Management and Monitoring (SAMM) project. Natural England currently hosts the project co-ordinator, whilst Hampshire County Council manages the finances.
3.4.4 The SAMM project aims to:
Promote SANGS as new recreational opportunities for local people and particularly encourage their use during the breeding bird season Provide on-the-ground wardening service to supplement existing wardening efforts Provide an SPA-wide education programme Create new volunteering opportunities Demonstrate best practice for strategic access management of visitors and visitor infrastructure where the supply of greenspace is heavily dependent on protected areas Monitor visitor usage of SANGs and SPA Monitor Annex 1 birds on SPA sites
26 After discounting existing visitor use. 27 Detailed information can be found on the Council's website at http://www .br ac knell-f orest.go v.uk/spa
www.bracknell-forest.gov.uk/spa 133 17 3.4.5 The increase in co-ordination capabilities will help existing wardens to promote standard messages, whilst the on-the-ground wardening service will be implemented, in relation to delivery of new residential development. In combination, this will allow confidence that, even if the provision of SANGs alone does not divert all new residents from using the SPA for recreation, there will be no increase in harm caused as a result of recreational pressure.
3.4.6 The SAMM Project Manager (currently hosted by Natural England) is tasked with drawing up the detailed list of actions. The resulting work programme is overseen by the SAMM Project Board.
3.4.7 The SAMM Project will be implemented, by collection of the relevant S106 contributions. As the measures are strategic, not all money collected from development within the borough will necessarily be spent within the borough. However, all contributions will be spent in accordance with a monitored work programme. A monitoring programme will measure the success of the project. 3.5 Bespoke Solutions
3.5.1 Bespoke SANGs may be provided for certain developments. Bespoke options may be the developer’s choice, required by policy or necessity due to lack of SANGs capacity or required where compliance with a general standard may not be sufficient to comply with Habitats Regulations. These applications will be dealt with on a case-by-case basis following guidelines on Appropriate Assessment and in consultation with Natural England. Due to the practicalities of providing bespoke SANGs which are large enough to be attractive to new residents, it is likely that only larger developments (110+ dwellings) (28) will be in a position to deliver acceptable bespoke solutions.
3.5.2 Developments identified within the Core Strategy DPD (2007) are required to provide bespoke SANGs. These are:
Policy CS3 - Bracknell Town Centre. This already has planning permission, including bespoke avoidance and mitigation measures (identified in a project-level Appropriate Assessment), which remove all adverse effects on the SPA arising from this development. Policy CS4 - Amen Corner, Binfield – this includes the construction of approximately 725 net additional new dwellings and a requirement for bespoke avoidance and mitigation measures as set out in the Amen Corner SPD. Policy CS5 - Land North of Whitegrove and Quelm Park, Warfield – this includes the construction of approximately 2,200 net additional new dwellings and a requirement for bespoke avoidance and mitigation measures, as set out in the Draft Warfield SPD.
3.5.3 Due to the large-scale nature of these developments, and the subsequent concentration of new residents arising in these locations, where possible these proposals will provide their own areas of SANGs on-site, and where not possible off-site provision may be acceptable, where the Competent Authority, having regard to advice from Natural England, can conclude that the off-site SANGs will function as an effective alternative to the SPA.
28 110 dwellings is the minimum number necessary (at an average of 2.31 people per dwelling and 8ha per 1000 population SANG requirement) to generate a requirement for a 2ha SANG (which is the smallest SANG by area which would be acceptable). In Bracknell Forest, the average household size is 2.31 persons per dwelling - this is set out in the Thames Basin Heaths SPA Technical Background Document to the Core Strategy DPD (2007).
18 134 www.bracknell-forest.gov.uk/spa 3.5.4 The Council expects that some large windfall sites may come forward with the opportunity to incorporate a bespoke mitigation solution. In addition to this, Bracknell Forest Council’s Site Allocations DPD (29) identifies further sites (in addition to the developments identified in the Core Strategy) where a bespoke solution will be expected. The Council will consider the acceptability of bespoke solutions on a case-by case basis, in consultation with Natural England, and will conduct a Habitats Regulations Assessment.
3.5.5 Other large developments may also wish to consider putting forward a bespoke mitigation package, rather than contribute towards the measures in the Council’s strategy.
3.5.6 Whilst the SANGs quantity and quality standards set out in this document are a useful starting point for the assessment of bespoke solutions, compliance with these standards may not be sufficient to demonstrate that the requirements of the Habitats Regulations are met. (30) A Habitats Regulations Assessment will be required to ensure that there is no likely significant effect or no adverse impact on the integrity of the SPA. Early consultation with the Council and Natural England is encouraged.
3.5.7 Open land to avoid and mitigate adverse impacts on habitat protected by the SPA designation is not the same as open space provision to meet recreational needs. Each serves a different purpose, as illustrated by research which has shown that SPA visitors seek sites with different characteristics than general open space users; (31) provision for each is sought and calculated on a different basis. (32) This SPD requires the provision and management of open land in addition to the recreational open space to serve and make a new development sustainable, and which is needed to make a scheme acceptable regardless of its location in relation the SPA.
3.5.8 To mitigate the impact that occupiers of a development will have on the integrity of the SPA, any in-kind protection measures must be in place before those occupiers move in and so, where appropriate, the Council will seek to restrict occupations until related SPA avoidance and mitigation measures and/or works have been completed. Rather than retain responsibility for maintaining in-kind semi-natural open space, a developer may want to offer the land to BFC, another public body or set up a management company or community trust (all subject to appropriate ongoing funding). In this case the Council will need assurance that such an organisation has the necessary skills and resources to maintain the open space and that it will remain in existence to achieve this in perpetuity.
3.5.9 Where a development includes specific measures to avoid and mitigate its impact upon the SPA, the Council will, in consultation with Natural England, undertake a Habitats Regulations Assessment. This will consider the effect of the proposal on the SPA and the avoidance and mitigation measures, including size, quality and location of any proposed SANG and strategic access management and monitoring measures.
3.5.10 Contributions towards the SAMM project will be required even where bespoke SANGs provision is proposed.
29 At the time of writing, this DPD had been subject to a Preferred Options consultation and has not yet been adopted. 30 This was confirmed as the most appropriate way to assess bespoke solutions by the Secretary of State in his decision letter on the TRL Site, Crowthorne (APP/R0335/A/08/2076543) 31 See Liley, Mallord and Lobley, 2005. 32 The capacity of the SANG is based on 8ha/1000 persons after discounting any relevant open space of public value (OSPV) (4.3 ha of OSPV per 1,000 people) as set out in Chapter 4 of Limiting the Impact of Development SPD (2007). Contributions towards the management of open space provision ensure a baseline quality of OSPV. This baseline is a consideration in providing the necessary measures to bring SANGs up to the required standard.
www.bracknell-forest.gov.uk/spa 135 19 4 Implementation and Monitoring
4.0.1 The model section 106 Agreement will be amended to reflect the following changes. 4.1 SANGs Contributions
4.1.1 All SANGs set out in table 5 are either owned, or leased to/by the Council, or are sites where the Council has an agreement with the freeholder or leaseholder. The Council is willing to pool together developer contributions from different developments to facilitate and implement enhancements and make these sites available for SPA mitigation purposes.
4.1.2 Where, instead of a bespoke solution, provision is made for contributions to be paid and pooled towards implementing the Avoidance and Mitigation SPD (upon which Natural England has been consulted); the Council will not require an Appropriate Assessment of the planning application, as a likely significant effect is avoided.
4.1.3 The contributing development must be within a maximum of 5km of an area of a SANG although developments of less than 10 dwellings do not need to be within a specified distance of SANG (see section 3.3).
4.1.4 Regardless of the extent of any works and measures already undertaken at the nearest SANG, a developer will still be required to contribute as the need arises from the cumulative impact of many developments.
4.1.5 The identified SANGs require enhancement works to realise their potential to deflect visits away from the SPA. To determine the extent of the works required, the following were used:
survey information on: visitors; accessibility; parking; user perception and habitat/nature conservation qualities; the expertise of those with responsibility for open space management; and information from Natural England based upon its research.
4.1.6 The key enhancements are to improve accessibility, to provide well-designed circular walks of more than 2.3 – 2.5km and to make semi-natural habitat more attractive as set out in this Avoidance and Mitigation SPD and in line with research carried out by Natural England. Contributions accepted for enhancements to mitigating open spaces, which are also designated as SSSIs (for example Englemere Pond), will only be used to enhance the experience for visitors. The funds will not be used for habitat management measures which are a statutory requirement of the SSSI landowner.
4.1.7 Contributions need to be in proportion to the proposed development and sufficient to avoid and mitigate adverse impacts. The payment contribution in Table 6 below is derived from the cost of open land enhancement works and sustainable management in perpetuity, as well as appropriate administration and education costs. This is in line with the approach and costings set out in Appendices 3 and 7.
20 136 www.bracknell-forest.gov.uk/spa 4.1.8 The Council pooling together developer contributions from different developments to facilitate and implement enhancements and make the sites available for SPA mitigation purposes is clearly a constraint and commitment to maintain and manage land in a particular way. To ensure the availability of enhanced mitigation sites effectively in perpetuity requires a long-term commitment to on-going maintenance and sustainable management.
4.1.9 Reflecting this and that almost all of the identified mitigation open sites are owned or leased to/by the Council, an additional sum set at 35% of the cost of SANGS maintenance is required and is included in calculating the payment contribution. The additional (+35%) sum for the off-site provision of SPA avoidance and mitigation measures on land either owned, or leased to/by the Council will:
fund the cost of administering, co-ordinating and monitoring many contributions towards this SPD including ensuring clear linkages between contributing developments and specific measures (for example regular monitoring reports to Natural England and the SAMM Project); provide resources to review and update regularly the SPD as circumstances change; ensure contributions are received and SPA avoidance and mitigation measures are implemented.
4.1.10 Where contributions are due as development progresses, index-linking to relevant inflationary indices will be used to ensure the value of the contribution continues to reflect the costs of mitigation. It is intended to review the contribution calculation from time to time to take account of changes in circumstances and costs.
Table 6 SANGs Contribution Calculation
Calculation Elements Figures
Summary of Appendix 3
A Bracknell Forest Borough overall housing provision 2006-26 (1) 10,787 dwellings plus surplus of 7 dwellings (2)
B Developments not likely to have significant effect (3 large sites -2,765 dwellings with planning permission, plus others) (3)
C Sites identified to include bespoke SANGs (4) ,(5) (3 large sites -3,925 dwellings allocated for comprehensive development in Core Strategy DPD) (6)
D Dwellings expected to contribute to strategic SANGs (2006 to 4,097 dwellings 2026) (A-B-C) (7)
Summary of Appendix 7 (2010/11 costings)
F Period over which SPA avoidance and mitigation works and In perpetuity measures to be met by contributions from housing developments
G Estimated Area of SANGs Capacity Available 109.14 ha
www.bracknell-forest.gov.uk/spa 137 21 Calculation Elements Figures
H SANGs Enhancement Works - estimated £1,128,000
I Additional Annual Maintenance in perpetuity £8,717,000
J Administration and Education £550,000
K Facilitation (35% contingency to facilitate proposals) £3,638,000
L Overall cost (H+I+J+K) £14,033,000
M Estimated Strategic SANGs cost per person £1,029
N Cost per bedroom of strategic SANGs 1 bed = £1,570 2 beds = £2,070 3 beds = £2,800 4 beds = £3,190 5+ beds = £4,150
1. 10,780 dwellings is the Overall Housing Provision for 2006 – 2026 as set out in Policy CS15 of the Core Strategy DPD (February 2008) minus an additional 359 homes carried forward from the previous plan period which are no longer relevant. 2. As shown in the Site Allocations DPD Preferred Option (November 2010). 3. See Appendix 3 for a full explanation of development not likely to have significant effect. 4. These developments will not be expected to contribute to strategic SANGs but will provide bespoke SANGs as well as contributing to the SAMM Project. 5. Due to their size, the urban extensions identified in the Site Allocations DPD will be expected to deliver bespoke SANGs. On adoption of the DPD, the number of dwellings on these sites will be removed from the calculation of total dwellings contributing to strategic SANGs. 6. Land north of Whitegrove and Quelm Park (2,200 dwellings), land at Amen Corner (725 dwellings) and Bracknell Town Centre (estimated 1000 net dwellings). 7. This includes 614 dwellings providing mitigation in accordance with the original Avoidance and Mitigation Strategy. 4.2 SAMM Contributions
4.2.1 Provision of SANGs will be considerably more effective as an SPA avoidance and mitigation measure if undertaken alongside measures to manage visits to, and use of, the SPA. The Strategic Access Management and Monitoring (SAMM) Project has been set up to provide a comprehensive visitor access management and monitoring service for the purpose of mitigating the impacts of new residential development on the Thames Basin Heaths SPA.
4.2.2 The JSPB has agreed that the SAMM contribution should be applied on a 'per bedroom' basis. As there are no reliable figures for occupancy rates in Bracknell Forest, no local occupancy rates have been applied and sub regional averaged figures have been used to calculate the SAMM contributions. This is based on a programme of access management and monitoring measures set out in Thames Basin Heaths Strategic Access Management and Monitoring Project: Tariff Guidance, March 2011 and can be found at http://www .br ac knell-f orest.go v.uk/spa . The 'example' SAMM tariff is set out in the guidance as follows. These are the tariffs which Bracknell Forest intend to apply. See Appendix 7.
22 138 www.bracknell-forest.gov.uk/spa Table 7 Strategic Access Management and Monitoring (SAMM) Contributions
Dwelling Size Tariff
1 bedroom £399
2 bedrooms £526
3 bedrooms £711
4 bedrooms £807
5+ bedrooms £1,052
4.2.3 A review of the SAMM Tariff at the sub-regional level is intended to be undertaken within 2 years of commencement of the project. BFC intend to review the SAMM tariffs applied in Bracknell Forest at that time. 4.3 Summary of Avoidance and Mitigation Contributions
Table 8 Summary of SPA Avoidance and Mitigation Strategy
Size of SANG SAMM Total Tariff (1)(2) Dwelling Contribution Contribution (per dwelling) (bedrooms) (per dwelling) (per dwelling)
RESIDENTIAL DEVELOPMENT (3)
Net increase in Presumption against net increase in residential n/a residential development. dwellings within 400m of SPA
Net increase in 1 £1,570 £399 £1,969 residential dwellings located 2 £2,070 £526 £2,596 between 400m and 5km of the 3 £2,800 £711 £3,511 SPA 4 £3,190 £807 £3,997 (developments of usually less than 5+ £4,150 £1,052 £5,202 110 dwellings)
Large residential 1 Provision of a £399 Costs of developments (4) bespoke SANG bespoke SANG 2 £526 (usually 110+ in accordance + 'per bedroom' the Avoidance SAMM dwellings) located 3 £711 between 400m and Mitigation contributions and 5km of the 4 SPD, with an £807 (dependent on SPA Appropriate housing mix) 5+ Assessment and £1,052
www.bracknell-forest.gov.uk/spa 139 23 Size of SANG SAMM Total Tariff (1)(2) Dwelling Contribution Contribution (per dwelling) (bedrooms) (per dwelling) (per dwelling)
in consultation with NE and BFC.
Net increase of Subject to Habitats Regulations Assessment, in order to establish likely more than 50 significant effect on the SPA. May be required to provide appropriate residential mitigation - considered on a case by case basis in consultation with NE. dwellings located between 5 - 7km of the SPA
NON RESIDENTIAL DEVELOPMENT
Non-residential Subject to Habitats Regulations Assessment in order to establish likely development significant effect on the SPA. May be required to provide appropriate within 400m of avoidance and mitigation measures. Considered on a case by case SPA basis in consultation with NE. (5)
Non-residential Unlikely to require a Habitats Regulations Assessment. Considered on development a case by case basis, in consultation with NE, where appropriate. located between 400m and 5km of the SPA
1. Unless screening under Habitat Regulations 2010 Reg. 61(1), concludes no significant effect on the integrity of the SPA 2. Reduced to reflect any in-kind mitigation measures, which will be assessed through Appropriate Assessment on a case-by-case basis. 3. Including new build, redevelopment, mixed use schemes, changes of use, conversions, affordable housing, planning applications for approval of reserved matters (where no avoidance or mitigation measures have been secured at outline stage) (including flats, apartments and houses) 4. Comprehensive development (or part thereof) including, but not limited to: sites identified by Policies CS3, CS4 and CS5 in the Council’s Core Strategy DPD, urban extensions agreed through the adoption of the Site Allocations DPD and other major sites 5. See section 2.3 in this SPD and Table 10 in the Bracknell Forest Council Thames Basin Heaths SPA Technical Background Document to the Core Strategy DPD (2007) for information on potential impacts on the SPA. 4.4 Timing of Contribution
4.4.1 If appropriate, planning permission will be granted subject to conditions. Where planning obligations are required, these are to be agreed and entered into, prior to the determination of a planning application. Any payments to be made to the Council are to be secured by planning obligations and paid no later than the commencement of the development. If the development is likely to be built in major phases, payment by instalment will be considered.
4.4.2 Where specific measures and/or works (by the developer or, by others who are better placed to provide) are needed to avoid and mitigate the impact that occupiers of a development will have on the SPA, these should be undertaken and in place before those occupiers move in. Consequently in some cases, the Council will by planning condition or obligations restrict the occupation of a development until related avoidance and mitigation measures and/or works are complete.The Council will need a reasonable period of time in which to spend these monies.
24 140 www.bracknell-forest.gov.uk/spa 4.5 Monitoring
4.5.1 Monitoring the implementation of the SPD will be included within the Annual Monitoring Report (AMR). An appropriate set of indicators will be incorporated into the AMR to accurately determine the effectiveness of the strategy and avoidance and mitigation measures. This will also assist in reviewing the strategy if necessary.
4.5.2 Monitoring will also take place as part of the SAMM project. (33) The indicators will cover:
Visitor usage of the SPA Visitor usage of SANGs following on from the baseline data collected in 2006 and 2008. Incidence of fire setting on SPA to monitor educational strategies. Incidence of fly tipping on SPA to monitor educational strategies. Bird populations.
4.5.3 This monitoring is crucial in providing a method of fine-tuning of the avoidance and mitigation measures to increase their effectiveness and maximise benefits. In addition to the Open Space Management Plans being produced, the whole strategy will be reviewed for its effectiveness at least every 5 years or sooner if new evidence emerges or monitoring results indicate a more urgent review is required. The Council is confident that the measures are effective and will deliver the level of mitigation needed to offset the predicted impacts of the Core Strategy housing figures; however if for some reason specific measures are not found to be working, these will be readdressed.
4.5.4 Where contributions are secured and paid under an Agreement with the Council, the receipt and use of contributions can be tracked and information on spending will, on request from a contributing developer, be made available subject to the Council’s reasonable costs being met.
4.5.5 In some cases it may be appropriate for conditions to be imposed when planning applications are determined to ensure a development makes provision for the implementation of related SPA avoidance and mitigation measures. However in most cases where a development proposes some in-kind SPA avoidance and mitigation measures, or a financial contribution is involved, the Council will seek to secure provision by planning obligations and will monitor compliance to ensure that what is promised is delivered. If necessary the Council will use legal remedies to enforce obligations.
33 See http://www .br ac knell-f orest.go v.uk/spa for SAMM Monitoring Strategy.
www.bracknell-forest.gov.uk/spa 141 25 Glossary
Term Explanation
Annual Monitoring Report Annual report submitted to government on the progress of preparing the Local Development Framework and the effectiveness of policies and proposals.
Appropriate Assessment An assessment, required under the Habitats Directive, if a plan or project is judged as likely to have a significant effect on a Natura 2000 site.
Competent Authority The decision maker under the Conservation (Natural Habitats, &c.) Regulations 1994 (see Regulation 6): often the local authority, but could be a planning inspector or other body responsible for assessing a plan or project.
Delivery Framework Sub-regional guidance on Thames Basin Heaths SPA avoidance and mitigation methods, produced and endorsed by the Thames Basin Heaths Joint Strategic Partnership Board.
Development Plan A Local Development Document which forms part of the statutory Document development plan, examples include the Core Strategy, Proposals Map and Area Action Plans.
Local Development Comprising two types, Development Plan Documents and Document Supplementary Planning Documents, which together form the Local Development Framework.
Local Development The portfolio of Local Development Documents which sets out Framework the planning policy framework for the Borough.
Natura 2000 sites An ecological network of sites (SPAs and SACs) established under the Habitats Directive to provide a strong protection for Europe’s wildlife areas.
Planning Policy Guidance documents which set out national planning policy. Statement PPGs (Planning Policy Guidance Notes) are being reviewed and updated and are gradually being replaced by PPSs.
Special Area of Nature conservation site designated under the Habitats Directive Conservation for its habitat or species interest.
Special Protection Area A nature conservation site designated for its bird interest under the Birds Directive, but subject to the assessment procedure set out in the Habitats Directive.
Strategic Access Overseen by Natural England and Hampshire County Council, Management and implements standard messages and additional wardening and Monitoring Project education across the Thames Basin Heaths SPA.
142 www.bracknell-forest.gov.uk/spa Term Explanation
Strategic SANGs Strategic SANGs are open spaces in Bracknell Forest which, in agreement with NE, have been identified as being suitable for bringing up to SANGs standard through the application of developer contributions.
Suitable Alternative Open space, meeting guidelines on quantity and quality, for the Natural Greenspace purpose of providing recreational alternatives to the SPA.
Supplementary Planning An LDD which does not form part of the statutory development Document plan, but is part of the LDF. SPDs elaborate upon policies and proposals in a DPD.
Technical Background Accompanied the Core Strategy to examination and includes Document the Appropriate Assessment of the Core Strategy and the original Avoidance and Mitigation Strategy.
Thames Basin Heaths Partnership of Thames Basin Heaths-affected Local Authorities, Joint Strategic South East England Partnership Board and key stakeholders, Partnership which form and oversee the implementation of sub-regional guidance, for example the Delivery Framework.
www.bracknell-forest.gov.uk/spa 143 Abbreviations
Abbreviation Explanation
AA Appropriate Assessment
AMR Annual Monitoring Report
BBOWT Berkshire, Buckinghamshire and Oxfordshire Wildlife Trust
BFC Bracknell Forest Council
DPD Development Plan Document
JSP Joint Strategic Partnership
LID Limiting the Impact of Development Supplementary Planning Document (Bracknell Forest Council)
NE Natural England
NRM6 Natural Resource Management Policy 6: Thames Basin Heaths Special Protection Area. Set out in the South East Plan
OSPV Open Space of Public Value
PPS Planning Policy Statement
RSPB Royal Society for the Protection of Birds
SA Sustainability Appraisal
SAC Special Area of Conservation
SAMM Strategic Access Management and Monitoring Project
SANGs Suitable Alternative Natural Greenspaces
SEA Strategic Environmental Assessment
SEP South East Plan: The Regional Spatial Strategy for the South East
SPA Special Protection Area
SPD Supplementary Planning Document.
144 www.bracknell-forest.gov.uk/spa References
Source Title of Document / Study
Bracknell Forest Council Core Strategy Development Plan Document (2008)
Bracknell Forest Council Draft Strategic Housing Market Assessment (July 2010)
Bracknell Forest Council Limiting the Impact of Development Supplementary Planning Document (SPD) (2007)
Bracknell Forest Council Site Allocations Development Plan Document (DPD) Preferred Option (November 2010)
Bracknell Forest Council Thames Basin Heaths SPA Technical Background Document to the Core Strategy DPD (June 2007)
European Commission Council Directive of 2 April 1979 on the Conservation of Wild Birds (79/409/EEC)
European Commission Habitats Directive (92/43/EEC)
Government Office South East The South East Plan – Regional Spatial Strategy for the South East (2009)
HMSO Conservation of Habitats and Species Regulations (2010)
Integrated Transport Planning Special Protection Area Accessibility Analysis Bracknell Forest Council (2006)
Leisure-net Solutions Ltd Open Spaces Study - Park and Open Spaces Users Survey (June 2006)
Leisure-net Solutions Ltd Open Spaces Study - Park and Open Spaces Users Survey (September 2008)
Liley, D., Jackson, D., & Visitor access patterns on the Thames Basin Heaths. Underhill-Day, J.C. English Nature Research Report (2005)
Liley, D., Mallord, J., Lobley, M. The ‘Quality’ of green space, features that attract people to open spaces in the Thames Basin Heaths area. English Nature Research Report. (2005)
Office of the Deputy Prime ODPM Circular 06/2005 Biodiversity and Geological Minister Conservation – Statutory Obligations and their Impact within the Planning System
Office of the Deputy Prime Planning Policy Statement 9: Biodiversity and Geological Minister (2005) Conservation
Natural England Thames Basin Heaths Strategic Access Management and Monitoring (SAMM) Project Tariff Guidance (March 2011)
www.bracknell-forest.gov.uk/spa 145 Source Title of Document / Study
Natural England SAMM Monitoring Strategy (October 2008)
Natural England SANGs Quality Guidance
Thames Basin Heaths Joint Thames Basin Heaths Special Protection Area Delivery Strategic Partnership Board Framework (2009)
146 www.bracknell-forest.gov.uk/spa 147 Copies of this booklet may be obtained in large print, Braille, on audio cassette or in other languages. To obtain a copy in an alternative format please telephone 01344 352000
Development Plan Team Planning and Transport Policy Environment, Culture and Communities Bracknell Forest Council Time Square Market Street Bracknell RG12 1JD
© Design and Print Services 148 Thames Basin Heaths Special Protection Area Avoidance and Mitigation Supplementary Planning Document Appendices (Consultation Draft)
Bracknell Forest Borough Local Development Framework www.bracknell-forest.gov.uk July 2011 149 Appendix 1: Thames Basin Heaths SPA 1 Appendix 2: Consideration of Development Proposals Affecting Internationally Designated Sites 2 Appendix 3: Residential Development likely to have a Significant Effect on the SPA 3 Appendix 4: The Identification of Strategic SANGs 5 Appendix 5: Full Assessment of SANGs 14 Appendix 6: SANGs Enhancement Works 55 Appendix 7: SPA Avoidance and Mitigation Costs 61
150 www.bracknell-forest.gov.uk/spa Appendix 1: Thames Basin Heaths SPA
www.bracknell-forest.gov.uk/spa 151 1 Appendix 2: Consideration of Development Proposals Affecting Internationally Designated Sites
Figure 1: Consideration of development proposals affecting Internationally Designated Nature Conservation Sites
Is the proposal directly connected with or necessary to Yes site management for nature conservation?
No
Is the proposal likely to have a significant effect on the No internationally important interest features of the site, alone or in combination with other plans and projects?
Yes
Assess the implications of the effects of the proposal for the site's conservation objectives, consult English Nature and, if appropriate, the public
Can it be ascertained that the proposal will not Yes adversely affect the integrity of the site? Permission may be granted No, because there would be an adverse effect or it is uncertain
Would compliance with conditions or other restrictions, such as a planning obligation, enable it to be Yes Permission may be granted subject to ascertained that the proposal would not adversely affect the conditions or obligation the integrity of the site?
No, because there would be an adverse effect or it is uncertain
Are there alternative solutions that would have a lesser effect, or avoid an adverse effect, on the integrity of the site? Yes No
Might a priority habitat or species on the site be adversely affected by the proposal?
No Yes
Are there imperative reasons of overriding public Are there imperative reasons of overriding public interest, which could be of a social or economic interest relating to human health, public safety or nature, sufficient to override the harm to the site? benefits of primary importance to the environment?
No Yes Yes No
If minded to grant permission, planning authority must notify the First Secretary of State and must wait 21 days
Permission must not Permission may be granted subject to the Permission may only be granted for other be granted First Secretary of State securing that any imperative reasons of overriding public necessary compensatory measures are interest, following consultation between taken to ensure the overall coherence of the Government and theEuropean Natura 2000 is protected Commission and subject to the First Secretary of State securing that any necessary compensatory measures are taken to ensure the overall coherence of Natura 2000 is protected
Source: Circular 06/2005 Biodiversity and Geological Conservation
2 152 www.bracknell-forest.gov.uk/spa Appendix 3: Residential Development likely to have a Significant Effect on the SPA
1. A total of 343 dwellings were approved prior to SPA designation.
2. There are also a number of sites with permission which have already, or have capacity to, provide a bespoke avoidance and mitigation solution. This includes the following large sites (2,373 in total) with full permission, plus others:
The Parks at RAF Staff College (605 net dwellings) - outline and reserved matters applications approved, permission falls to be reviewed under Regulation 63 and, should mitigation be required, the Council will work with the developers to provide a bespoke solution; Jennetts Park, also known as Peacock Farm (1,500 net dwellings) - outline approved and a bespoke solution is now approved; Celsius, London Road, Bracknell (268 net dwellings).
3. A total of 2,696 dwellings in the housing trajectory are sites with permission which have provided a bespoke solution, or sites which will be reassessed on their own merits at a later date as part of a Regulation 63 review, therefore should not be considered further in this strategy.
4. Since the beginning of the plan period, some development, not likely to have a significant effect on the SPA (mainly by virtue of its location more than 5km away from the SPA), has been permitted. These permissions total 69 dwellings .
5. The Core Strategy housing provision can therefore be broken down into two parts: one which is not likely to have a significant effect on the SPA (large sites with bespoke solutions and permissions granted which are not likely to have a significant effect [2,696 + 69= 2,765 ]) and one part which is likely to have a significant effect.
Table 1 Breakdown of Proposed Housing
Number
A Total housing provision in Core Strategy DPD Policy 10,787 dwellings CS15 plus a surplus of 7 dwellings (1)
B Housing provision not likely to have a significant 2,765 dwellings effect
C Housing provision likely to have a significant effect 8,022 dwellings (all expected to provide SPA avoidance and mitigation measures) in line with the SPD (2006-2026) (A-B)
D Developments Providing Bespoke SANGs (2) = 3,925 dwellings dwellings on three large sites (3) allocated for comprehensive development in Core Strategy DPD
www.bracknell-forest.gov.uk/spa 153 3 Number
E Total no. of dwellings contributing to strategic 4,097 dwellings SANGs (2006-2026) (C-D) (4)
1. As shown in the Site Allocations DPD Preferred Option (November 2010). 2. Due to their size, the urban extensions identified in the Site Allocations DPD will also be expected to deliver bespoke SANGs. On adoption of the DPD, the number of dwellings on these sites will be removed from the calculation of total dwellings contributing to strategic SANGs. 3. Land north of Whitegrove and Quelm Park (2,200 dwellings), land at Amen Corner (725 dwellings) and Bracknell Town Centre (estimated 1000 net dwellings). 4. This includes 601 dwellings providing mitigation in accordance with the original Avoidance and Mitigation Strategy.
6. This shows the total number of dwellings (2006-2026) in the Core Strategy DPD provision likely to have a significant effect is 8,022. All these dwellings will be expected to contribute to the SAMM Project and provide SANGs unless a Habitats Regulations Assessment concludes no significant effect on the integrity of the SPA as agreed by BFC, in consultation with Natural England .
7. Some developments, because of their size, will be expected to provide bespoke SANGs. These are dwellings on two large sites allocated for comprehensive development in Core Strategy DPD (totalling 3,295). These are therefore removed from the calculation of the contributions to strategic SANGs. (1) As stated previously, these developments will be expected to contribute to the SAMM Project.
8. A total number of 4,097 dwellings will be expected to contribute to strategic SANGs between 2006 – 2026.
1 Due to their size, the urban extensions identified in the Site Allocations DPD will also be expected to deliver bespoke SANGs. On adoption of the DPD, the number of dwellings on these sites will be removed from the calculation of total dwellings contributing to strategic SANGs.
4 154 www.bracknell-forest.gov.uk/spa Appendix 4: The Identification of Strategic SANGs
This is taken from Section 20 of the Technical Background Document to the Core Strategy DPD (2007) and updated, where relevant.
1. Focus groups of local residents, carried out for the BFC Parks and Open Spaces Strategy (2002), supported the concept of strengthening facilities at particular parks to serve the purpose of district parks, and reduce the number of visitors to the Look Out (adjacent to the Special Protection Area).
2. In addition to the above work, an independent study evaluated several areas of open space within the borough using a criteria-based approach. There were some generic issues identified by the study as potential reasons that visitor expectations were not being met:
Weaknesses in respect of welcoming, in particular in respect of the entrances. Poor on-site information. Poor nature of ponds and riverside areas. Poor levels of furniture provision. Failure to provide surfaced paths to accommodate circulation and through-route needs.
3. This implies that enhancing these specific areas, amongst others, would increase the attractiveness of the site to existing and new visitors and could encourage use of these sites over the SPA.
4. The first stage in the assessment of potential alternative open space provision was the identification of sites. This was carried out in the following way.
5. A review of existing open space of a strategic size was carried out in order to identify areas where enhancement may be possible to increase visitor capacity. The starting point for this was the PPG17 audit, which identified all areas of publicly accessible open space by typology (for example, woodland, amenity park etc.). Sites over 5 hectares with typologies Parks & Gardens (A), Natural and Semi-Natural Greenspace (D), Urban Woodlands (E) and Green Corridors (F) were considered suitable for potential enhancement, obviously excluding the SPA itself. In addition, smaller sites of these typologies were also considered if they were close to and had good links to other smaller sites, to form a larger total area. Sites of Amenity Greenspace (B) over 10 hectares were also considered.
6. Natural England proposes access agreements or compulsory purchase could be explored if an area of privately owned greenspace was considered of strategic importance to the network of open space. However, as part of this review no privately-owned land was put forward to the Council as having potential as mitigating open space. As a result, at this stage no privately owned land was considered suitable for inclusion within the suite of SANGs.
www.bracknell-forest.gov.uk/spa 155 5 7. From this initial list certain areas of open space were removed, which would almost certainly be undeliverable as an avoidance measure, for example because of established uses which would conflict with the purpose of SANGs.
8. This exercise concluded there were 17 individual areas of open space of a suitable size with the potential to avoid use of the SPA.Their suitability is subject to there being spare visitor capacity and the potential for enhancements to be carried out. The following sites met the criteria for further assessment of suitability:
Jock's Copse / Tinker's Copse / The Cut (south) Clintons Hill Englemere Pond Great Hollands Recreation Ground Horseshoe Lake Lily Hill Park Sandhurst Memorial Park Shepherd Meadows Swinley Park Silver Jubilee Field / Wicks Green, Binfield South Hill Park Edgbarrow Hill Ambarrow Court / Ambarrow Hill Garth Meadows Larks Hill Piggy Wood Longhill Park / Milman Close / Beswick Gardens Copse
9. A land identification exercise on a regional level for SEERA, carried out by Land Use Consultants (2) concluded some similar results and many of the sites in this study have been analysed in more detail. The sites included in the SEERA study, which were not assessed further, are listed below with reasons for their exclusion.
Table 2 Sites Excluded from the Regional Open Space Review
Site Reason for Exclusion
Mill Park This was not considered in the review as it is amenity open space (typology B). This area does contain an element of suitable dog-walking open space, but much of the site consists of sports pitches and a skate-ramp.
Bill Hill Available capacity was already reserved via avoidance and mitigation package agreed for Bracknell Town Centre. (1)
Allsmoor Wood The ownership of this site is unknown.
Land to the north of This is within private ownership and deliverability is unknown. Shepherds Meadows
2 Thames Basin Heaths SPA: Audit and assessment of land to mitigate effects of housing development. Available at: http://www .eipsoutheast.co .uk/do wnloads/documents/20070126123933.pdf
6 156 www.bracknell-forest.gov.uk/spa Site Reason for Exclusion
Further land around Church Much of the land is within private ownership and deliverability Farm / Grove Farm lakes is unknown.
Land south of Hayley Green Much of the land is within private ownership and deliverability / west of Chavey Down is unknown. The further investigation referred to in Policy R7 of the Local Plan has not been carried out and this area of open space is not being carried forward into the Core Strategy DPD.
1. A new Appropriate Assessment undertaken in June 2010 in respect of the application 10/00434/EXT (an application of new planning permission for the Bracknell Town Centre redevelopment with periods for implementation extended from that under the existing planning permission) did not include Bill Hill as part of the bespoke SANGs solution due to a change in the mitigation standards from 12ha/ 1000 population to 8ha / 1000 population as set out in the Thames Basin Heaths SPA Delivery Framework JSPB (2009). Bill Hill may be included as part of a bespoke solution for larger development sites within its catchment. This will be in agreement with NE.
10. Next, additional information was collated on the suitable sites (or groups of sites) in order to identify the habitat and potential for enhancement.
11. The first stage in assessing the suitability of land for impact avoidance purposes is to address its quality and suitability to provide an area equally as attractive as the SPA to encourage new residents to visit this different area as opposed to the protected site.
12. During a project level appropriate assessment, the advice from Natural England (3) was, “…an area of greenspace is suitable as mitigation where it is self evident that the greenspace is suitable in terms of size, quality, capacity and location. As a general rule, where greenspace is of questionable value as mitigation, we would expect the local authority to seek evidence to satisfy itself that the land is, or could be made, suitable.” They go on to suggest the following examples of what could be sought as evidence:
The site is located in a place which would make it attractive to the particular people most likely to visit the SPA. The site is, or could be, of a type which is attractive in terms of its appearance and facilities. The site is not heavily used and has the capacity to attract more people of the type who would visit the SPA.
13. Research by Natural England (4) has been carried out to understand why people choose to visit particular sites. This provides an idea of the type of alternative sites which would be attractive to visitors of the SPA and what may deter visitors from certain areas. The following emerged as major features which would attract SPA users to a site:
Ability to let the dog off the lead. Safety on site. A quick journey time and convenient access from home. Provision of parking. Presence of way-marked paths. Presence of water on-site. Presence of view points. 3 A letter dated 24 February 2006 from English Nature regarding ‘Mitigation for the impacts of residential developments on the Thames Basin Heaths SPA: developments close to Lily Hill Park’. 4 Liley, Mallord & Lobley, 2005.
www.bracknell-forest.gov.uk/spa 157 7 Gravelled, relatively thin paths through deciduous woodland. Variety of semi-natural habitats and varied topography.
14. Research undertaken on the distance covered by SPA visitors (5) found dog walkers walked an average of 2.5km, penetrating a mean of 760 metres onto the heath. This underpins Natural England’s guidelines for the creation of SANG. (6) and provides a transparent and clear way of ensuring that the enhanced semi-natural open space meets the requirements of a SANG. Please note that there are separate requirements for those SANGs provided as part of a suite and an individual SANG provided as part of a bespoke solution.
15. The agreed Thames Basin Heaths SPA Delivery Framework (7) also contains some guidelines for the provision of SANGs. These include delivery of SANGs in advance of occupation, maintenance of the SANGs in perpetuity, protection of the nature conservation interest of SANGs, catchment areas, the need to have regard to NE’s SANGs Quality Guidance and the potential to uncouple small developments (less than 10 dwellings) from SANGs catchment areas.
16. As a result of the above findings, a considerable amount of research was carried out to establish the ability of each potential area of mitigating open space to meet Natural England's criteria, subject to enhancements to the open space. This included:
Visitor counts and surveys at each of the sites. Visitor counts were carried out for a total of 24 hours at each site, covering 6 different time periods during mornings, afternoons and evenings in the week and on the weekend. 683 surveys were carried out in 2006 and in 2008 (Leisure-net, 2006 & 2008). A review of the access on each site, including location of car parks, number of parking spaces, formal and informal entrances, length of footpaths (Strategic Leisure, 2006). A review of the accessibility to each site, including travel times by car and on foot, using the computer model Accession (Integrated Transport Planning Ltd, 2006). A review of legislation covering each site and nature conservation interests (several sources, including Bracknell Forest Council Parks and Countryside Service). A review of other research carried out on each site from other available information sources.
17. Appendix 5 provides a summary of how analysis of the information collected has been used to establish whether the site meets the criteria to provide SANG. This analysis gives details of the:
Main site features Nature conservation interests Legislation covering the site (SSSI, LWS, CROW etc.) Visitor usage levels and type Accessibility from the surrounding area Length of footpaths Entrances and car parks Linkages to other sites Potential as avoidance measure
5 Liley, Jackson & Underhill-Day, 2005 6 Natural England's SANGs Quality Checklist can be found on the Council's website at http://www .br ac knell-f orest.go v.uk/spa 7 See the Council's website at http://www .br ac knell-f orest.go v.uk/spa
8 158 www.bracknell-forest.gov.uk/spa 18. This exercise identified the following areas of open space, which could be secured and enhanced to provide suitable alternatives to use of the SPA over the lifetime of the development. A full description of why these sites were chosen and why others were rejected is detailed in Appendix 5.
Table 3 Suitable Areas of SANGs
Open Space Site (1) Estimated Area
Jocks Copse / Tinker's Copse / The Cut (south) / Garth Meadows / Larks Hill 22.3 / Piggy Wood
Shepherd Meadows 34.92
Englemere Pond 27.39
Horseshoe Lake 10.01 (2)
Longhill Park / Milman Close / Beswick Gardens / Clintons Hill 15.79
Lily Hill Park 22.74
Ambarrow Court / Ambarrow Hill 13.56
Part of Great Hollands Recreation Ground 4.78
Total 151.49 ha
1. In 2007, South Hill Park was identified as an area of open space which had the potential to be a SANG. Due to its limited catchment (400m) it would however in practise only provide mitigation for residential developments of less than 10 dwellings. For such developments, the Council has SANGs in the south of the Borough. The site has therefore been removed from the Council's suite of SANGs through this SPD. 2. (excluding the water body)
19. The areas of open space are mapped in Appendix 5. The visitor catchment zone for larger areas of open space has been set at 5 kilometres, as this was the distance within which the majority of visitors were found to arrive. 86% of respondents travelled less than 5 kilometres (38% from within 1km and 48% from within 5km, Leisure-net, 2006). Where smaller SANGs are proposed, smaller catchments have been prescribed in line with the Delivery Framework. This includes:
Ambarrow Court / Ambarrow Hill (13.56 hectares) which has a catchment of 4km; and Part of Great Hollands Recreation Ground (4.78 hectares) which has a catchment of 2km.
20. These catchment areas of open space cover the entire borough with the exception of a very small north-east section; however this area is predominantly designated as a Special Area of Conservation and owned by the Crown Estate so development proposals are highly unlikely to come forward in this area. A map showing the catchment areas in more detail is provided for each area of open space in Appendix 5. This will aid implementation and link development proposals to a particular area of open space.
www.bracknell-forest.gov.uk/spa 159 9 21. The Delivery Framework (JSPB 2009) states that SANGS on existing, publicly accessible sites is appropriate where there will be no harm to nature conservation interest and there is capacity and potential for improvement. This is subject to meeting the Natural England’s Quality Standards.
22. Any deficits in provision or quality of each potential SANG were established by the collection of data in earlier stages of the assessment (shown in Appendix 5). This information, in addition to the professional expertise of employees with responsibility for managing open space within the borough, was then used to collate a schedule of specific improvements to individual sites, which would ensure that the sites can comply with the relevant SANGS quality standards.The key elements of these enhancements were to increase accessibility of the sites and to provide a well-designed circular walk (preferably way-marked) of 2.3 – 2.5km.
23. Once areas were identified as potentially suitable to provide a function as alternative open space, the capacity of this existing open space must be established in order to ensure they have potential to absorb new visitors. An area will only be suitable as a SANG if either existing capacity can be identified, or if capacity can be increased.
24. The concept of carrying capacity can relate to various aspects of an area of open space, for example:
Ecological – this considers the level of use and impacts an area can support before, for example, the following factors are put at risk: soil erosion, pollution of water resource, loss of species or loss of habitats. Physical – this considers the threshold limit for space, beyond which facilities are saturated. This usually relates to safety thresholds and is commonly used by Environmental Health when licensing venues and identifying and assessing maximum capacity. Social – this is commonly viewed as the level at which visitor enjoyment diminishes and dissatisfaction sets in. Economic carrying capacity is the level at which visitor interference with non-visitor activities becomes economically unacceptable.
25. The key component we are concerned with when identifying recreational land as suitable for avoiding the impacts on the SPA is social carrying capacity. However, it is also essential to identify any ecological sensitivity to ensure that any increase in mitigation carrying capacity does not detrimentally impact on the ecology of the site.
26. The concept of social carrying capacity, does not relate specifically to the ability to draw people away from the SPA.This is a specific category of social carrying capacity, which we can call mitigation carrying capacity. Mitigation carrying capacity is exceeded if facilities are saturated so they no longer provide a draw away from the SPA, if visitors become dissatisfied or environmental degradation occurs.
27. Whilst acknowledging the difficulties highlighted in previously quoted research on the impractical nature of establishing a fixed value, for the purposes of this strategy it is important to quantify a level at which mitigation open space will be sought.
10 160 www.bracknell-forest.gov.uk/spa 28. The Delivery Framework indicates that a minimum of 8ha of SANG land per 1000 new residents between 400 metres and 5 kilometres of the SPA should be provided. Natural England believes that this level of SANGs provision will draw new residents away from the SPA.
29. Having reviewed Natural England’s research, the Delivery Framework, and undertaken local research, the conclusion has been drawn that an average open space standard of 8 hectares per 1000 new population across the borough is appropriate for the provision of strategic SANGs. This standard is not directly transferable to bespoke solutions, where compliance with a general standard may not be sufficient to demonstrate that the requirements of the Habitats Regulations are met.
30. Studies by Leisure-net (2006 & 2008) established the total number of annual visits to the proposed SANGs and adjusted this to account for seasonality. The surveys were conducted over 450 hours of visitor usage data at 18 parks, over the time period 7am to 7pm on weekdays and weekends. In addition, 861 people were interviewed in more depth. Data was also collected on the frequency of people’s visits to estimate the number of people using each site. This data on local frequency of visit relates well to national benchmarks.
Table 4 Calculation of Open Space Use
% of People Frequency (visits per Visits per person per Visits per person Visiting week) week per year
34% 6.50 (either 6 or 7) 2.21 115
6% 4.50 (either 4 or 5) 0.27 14
21% 2.50 (either 2 or 3) 0.53 28
14% 1.00 (once a week) 0.14 7.5
25% 0.30 (less than once a 0.08 4 week)
100% 3.22 (# of visits per 168 (# of visits per week by average year by average visitor) visitor)
Source: Leisure-net (June 2006) Parks and Open Spaces Users Survey
31. This shows that 1 person who regularly visits the open space, on average, visits approximately three times a week and makes 168 visits per year. This figure can then be used to establish the number of people in the locality who use each area of open space; this is calculated in the table below.
32. The overall carrying capacity of each site can be calculated with reference to the 8ha/1000 standard set out in the Thames Basin Heaths Delivery Framework. For example, a new 8ha site would mitigate for 1000 new residents. However, as demonstrated by the visitor surveys, all of the potential SANGs have a level of existing visitor use. The actual mitigation
www.bracknell-forest.gov.uk/spa 161 11 capacity of each site is the difference between the overall carrying capacity (based upon the 8ha/1000 standard) and the current visitor use, as demonstrated in the final column of the table below.
Table 5 Mitigation Carrying Capacity of SANGs
Open Total Equivalent Estimated Capacity Mitigation Residual Space visits no. of Area (ha) to Mitigate Capacity (2) area of per visitors (persons) (rounded) SANG year to (rounded) (1) (8ha/1000) capacity open available space (ha) (estimated)
Jocks 116,000 691 22.3 2,788 2,097 16.78ha Copse/ Tinker's Copse/ The Cut (south)/ Garth Meadows/ Larks Hill/ Piggy Wood
Longhill 37,000 221 15.79 1,974 1,753 14.1ha Park/ Milman Close/ Beswick Gardens Copse/ Clintons Hill
Lily Hill Park 86,000 512 22.74 2,843 2,331 18.65ha
Englemere 10,000 60 27.39 3,424 3,364 26.92ha Pond
Horseshoe 30,000 179 10.01 1,252 1,073 8.6ha Lake
Shepherd 90,000 536 34.92 4,365 3,829 30.64ha Meadows
Ambarrow 32,000 191 13.56 1,695 1,504 12.1ha Court/ Hill
Part of 19,000 114 4.78 598 484 3.9ha Great Hollands Recreation Ground
12 162 www.bracknell-forest.gov.uk/spa Open Total Equivalent Estimated Capacity Mitigation Residual Space visits no. of Area (ha) to Mitigate Capacity (2) area of per visitors (persons) (rounded) SANG year to (rounded) (1) (8ha/1000) capacity open available space (ha) (estimated)
TOTAL 16,435 131.69 ha
1. The number of visitors using the open space was calculated by dividing the number of visits to the site, by the average number of visits made by users per year [see Table 3]. This methodology has been approved by Natural England. 2. Estimated Capacity to mitigate minus no. of visitors per annum.
33. Therefore it is estimated that the open space listed above has the capacity to mitigate against a total of 16,435 additional people if enhancements are implemented.
34. The total costs of enhancements presented in Section 4 and Appendix 7 will be included in the total mitigation package, which will be funded by proportional developers’ contributions.
35. The mitigation capacity is reliant on the implementation of the proposed enhancement works to provide sites of appropriate SANGs quality and will therefore relate to a specific number of people, in turn relating to a specific amount of new development.
36. Therefore, assuming implementation of the enhancements to the SANGS, the areas of open space listed above can provide mitigation for an estimated total of 16,435 new residents.
37. The broad enhancements to various areas of open space are provided in Appendix 6. This will be implemented as a rolling programme of works as development occurs funded by developer’s contributions.
38. Due to the strategic nature of additional housing development required to be delivered up to 2026 (the plan period), it is difficult to anticipate all the additional works which may be required to maintain SANGs in suitable condition. Future monitoring and surveys may indicate additional works or improvements that could improve suitability as SANGs.
39. As a result, the approach taken to SANGs will be a ‘mini-plan’ methodology, supported by Natural England. This SPD sets out the avoidance and mitigation principles and identifies SANGs, whilst a mini-plan or Open Space Management Plan will give full details of the exact works to be carried out at each site over a 5 year period. The Open Space Management Plans will be reviewed every 5 years in consultation with Natural England and other partners where relevant.
www.bracknell-forest.gov.uk/spa 163 13 Appendix 5: Full Assessment of SANGs
Figure 1 Sites Considered Suitable for Alternative Open Space
SANGs identified in the SPA Avoidance and Mitigation SPD
Larks Hill
Piggy Wood Tinker's Copse Garth Meadows Jock's Copse
Clintons Hill Longhill Park
Milman Close Lily Hill Park
Englem
Great Hollands Recreation Ground
Ambarrow Hill
Ambarrow Court
Horseshoe Lake
0 1 2 3 Km Shepherd Meadows Legend
Special Protection Areas
This Map is reproduced from Ordnance Survey Material with SANGs the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown copyright and may BFBC Borough Boundary lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
14 164 www.bracknell-forest.gov.uk/spa The Cut Cluster Countr yside Corridor ( Joc k's Copse , Tinker's Copse , The Cut (south), Gar th Meado ws, Larks Hill and Pig gy Wood)
Figure 2 The Cut Countryside Corridor SANG
This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the The Cut Countryside Corridor Controller of Her Majesty's Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
Scale 1:8,000 when printed at A4
0 100 200 300 400 Meters
Figure 3 The Cut Countryside Corridor 5km Catchment Zone
This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the The Cut Countryside Corridor Controller of Her Majesty's Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
Scale 1:60,000 when printed at A4
0 1 2 3 Km
www.bracknell-forest.gov.uk/spa 165 15 Joc k's Copse / Tinker's Copse / The Cut (south)
OS Coordinates: SU 857 704 Area: 3.63 hectares Typology: E / F (urban woodland / green corridor) Ward: Binfield With Warfield PPG17 Ref No’s: 70, 141, 135 PPG17 Audit: Jock's Copse – 40% Average, Tinkers Copse – 45% Average, The Cut (South) – 39% Average
Features
A generally naturalistic site (Bracknell Forest Borough Council, 2002) comprising a small copse (100% wooded cover) in a residential area combined with linear open space alongside the Cut river corridor (40% wooded). Both Tinkers Copse and Jock’s Copse consist of areas of ancient woodland which used to be set in an open rural farmland landscape. House building in the 1990s enclosed the copses, which had been derelict and unmanaged for quite some time prior to this.
Nature Conservation Interests
The area now provides a valuable wildlife oasis within the urban area, with primroses and carpets of bluebells in the spring. There are nesting species of woodpecker and tits present along with hazel coppice and woodmice also frequent the copse.
Legislation Covering the Site
Both Jock's Copse and Tinker's Copse are Local Nature Reserves and Local Wildlife Sites (formerly Wildlife Heritage Sites).
Visitor Usage
69% of visitors usually use this open space, with the remainder visiting other spaces including: Jock’s Lane, Englemere Pond, Lily Hill Park, Sandhurst Memorial Park and Ambarrow Court. The users visit on a relatively frequent basis, with a quarter of people questioned visiting more than 5 times a week.
The main reason given for visiting the site (53%) was for the children’s play area, which is adjacent to the copses. Other reasons were given for dog walking (14%) and for a cut-through (14%).
94% of respondents always or usually felt safe when visiting.
81% of respondents thought this was a busy site although 50% of people would continue to use the site if the visitor numbers doubled. Only 14% would go to other areas of open space or stop using sites altogether.
Visitor Numbers
Annual visitor projection – 52,000.
16 166 www.bracknell-forest.gov.uk/spa Accessibility
50% of people arrive by car, and 44% by foot. All visitors have travelled within 5 kilometres, with the majority travelling less than 10 minutes to get to the site.
Length of Footpaths
There are 3 main footpaths covering a total length of 734 metres.
Entrances and Car Parks
There is no car park specifically for the woodland sites, but there is a formalised, tarmac car park for Jock's Lane open space, which is next to the wooded areas. There are 14 formal and informal entrances on foot. The visitor survey found that the car park availability of spaces, quality and convenience were good, and nobody questioned thought car parking provision was quite poor or very poor.
Linkages to Other Sites
This area could provide part of a larger route using the Cut Riverside Path and Garth Meadows.
Joc k's Copse / Tinker's Copse / The Cut (south) - Potential as Impact A voidance Measure
In general this site was used by people using the park’s facilities such as the play area, coffee shop and toilets, which lead to the site being busy in actual and perceived numbers. However, the semi-natural element of the site is quieter and has the potential to be increased in quality according to the PPG17 audit. In isolation Jock's Lane,Tinker's Copse and The Cut (south) may not provide suitable impact avoidance for the SPA, but the location of these sites in relation to other sites and the good parking facilities mean this area could potentially provide a good link as part of a circular walk including other sites.
Garth Meadows
OS Coordinates: SU 861 704 Area: 7.1 hectares Typology: D (natural & semi-natural green space) Ward: Warfield Harvest Ride PPG17 Ref No’s: 58 PPG17 Audit: 49% Average
Features
This is identified in the Parks and Open Spaces Strategy (2002) as a site with some natural features and 5% of the site is covered with woody planting. The remainder is open grassland grazed by cattle.
www.bracknell-forest.gov.uk/spa 167 17 Nature Conservation Interests
Managed as pasture to encourage wildflowers and typical farmland species, hedgerows around the site provide habitat for a variety of wildlife. The Cut river adjoins the south boundary of the site where riverside trees and banks support riparian habitats.
Legislation Covering the Site
None identified.
Visitor Usage
89% of all visitors surveyed stated this was the open space they regularly visited, which indicates a high proportion of local users. Other sites visited are Jocks Lane, Ambarrow Court and Larks Hill.
A large proportion of visitors (68%) visit more then 5 times per week, which is a higher percentage than for any other area of open space, and a further 9% visit 4 or 5 times a week.
Garth Meadows has a high proportion of dog walkers (89%) with other uses being walking (7%), jogging (%) and using it as a cut-through (2%).
The length of visit tends to be shorter for this site than for others, with 32% of people staying less than 30 minutes and a further 61% staying between 30 minutes and 1 hour; none of the visitors questioned stayed for longer than 2 hours on site. This highlights the function of this site as a local area of open space for short visits.
98% of respondents felt safe when visiting the site.
55% of people rated the site as busy, although only 7% stated it was always busy, and 32% rated it as not busy. Nearly all visitors surveyed (98%) stated they would continue to use the site, either at the same time or a different time, if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 21,000.
Accessibility
The majority of visitors (89%) walk or run to the site, with only 11% of people arriving by car. Correspondingly over three quarters of visitors have travelled less than 1 kilometre and all visitors came from within 5 kilometres of the open space. 84% travelled less than 10 minutes to reach the site.
Length of Footpaths
No all-weather footpaths were identified.
Entrances and Car Parks
There is no parking provision to these meadows and 3 formal entrances on to the site.
18 168 www.bracknell-forest.gov.uk/spa Linkages to Other Sites
This area could provide part of a larger route using the Cut Riverside Path and Jock's Copse/Tinker's Copse/The Cut.
Gar th Meado ws - Potential as Impact A voidance Measure
This is a semi-natural site which already provides predominantly for dog walkers, who tend to walk to the site and visit frequently.There is some perceived ‘busy-ness’ but visitor numbers are relatively low, so providing some screening could increase the capacity.There is potential for enhancements to include this as part of a larger area of alternative open space, including adjacent sites.
Larks Hill
OS Coordinates: SU 870 709 Area: 7.44 hectares Typology: D (natural & semi-natural green space) Ward: Binfield with Warfield PPG17 Ref No’s: 82 PPG17 Audit: 72% Average
Features
Larks Hill is a 6.7 hectare public open space situated off Harvest Ride in Warfield, north of Bracknell. The site was adopted by Bracknell Forest Borough Council in 1995, having been provided as part of the open space provision for the QuelmPark housing area.
Larks Hill was named due to the presence of skylarks and other farmland birds on the site. It now forms an important countryside link between the town and rural parishes, with fine views over the surrounding countryside. The site is a naturally regenerated grassland surrounded by a recently established ditch and hedge system, and contains young field trees and an orchard of apple, pear and plum trees.
Popular with local residents, dog-walkers and horse-riders, the Larks Hill car park is the beginning of one of a series of four Accessible Rural Routes around Bracknell, which is 2 kilometres long.
This is identified in the Parks and Open Spaces Strategy (2002) as a very naturalistic site with a fifth of the site being covered with woody planting.
Nature Conservation Interests
The following species from the Bracknell Biodiversity Action Plan have been found at the site, illustrating its importance as a green space on the edge of Bracknell's built-up area:
Bullfinch Barn owl Hobby
www.bracknell-forest.gov.uk/spa 169 19 Cowslip Wild service tree
Larks Hill contains two grazing paddocks which contain cows between July and October. This avoids the majority of the nesting season and the cows are moved elsewhere before the site is overgrazed, leaving suitable ground cover for the birds. The spring barley compartment provides an agricultural habitat of value to the key farmland songbirds, including skylarks and wintering flocks of buntings and finches. A colourful show of the traditional annual flora of arable farmland is also produced, including corn marigold, corncockle, corn chamomile and cornflower.
Legislation Covering the Site
No designations were identified.
Visitor Usage
84% of all visitors surveyed stated this was the open space they regularly visited. Other sites visited are Jocks Lane, Englemere Pond, LilyHillPark, Garth Meadows and WestmorlandPark.
A relatively high proportion of visitors (58%) visit very regularly, more then 5 times per week.
Larks Hill has a high proportion of dog walkers (63%) with another main use being walking (18%).
84% of people stay less than an hour and none of the visitors questioned stayed for longer than 2 hours on site.
97% of respondents felt safe when visiting the site.
55% of people rated the site as busy and 29% rated it as not busy. 89% of visitors questioned stated they would continue to use the site, either at the same time or a different time, if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 33,000.
Accessibility
The majority of visitors arrive by car or van (87%) and only 13% arrive on foot. Most visitors (92%) have travelled less than 5 kilometres and 90% of visitors travelled less than 10 minutes to reach the site.
Length of Footpaths
6 all-weather footpaths provide a distance of 1242 metres of pathways.
20 170 www.bracknell-forest.gov.uk/spa Entrances and Car Parks
Larks Hill is open to the public and a tarmac car park with 8 bays is available at the site. Six further formal pedestrian access points lead onto Larks Hill's hoggin paths which are predominantly suitable for wheelchairs and pushchairs (although some may become soft in wet weather). The number and availability of parking spaces does not score so well, with 20% of visitors rating this as poor. Quality and convenience score slightly better although 9% rate the safety of the car park as poor.
Linkages to Other Sites
This site is in close proximity to Piggy Wood and there is the potential for links for Jock's Copse/Tinker's Copse/The Cut and Garth Meadows.
Larks Hill - P otential as Impact A voidance Measure
As a very generic overview Larks Hill is used by local dog walkers, who drive to the site on a regular basis for shorter visits. The site is already well used and more visitors perceived the site to be busy at the existing level of use. In isolation Larks Hill does not appear to have potential for enhancements, with the site already being semi-natural in nature and an existing car park, although there does appear to be scope to increase the capacity of the car park. However, this site could potentially provide a good link as part of a circular walk including other sites.
Piggy Wood
OS Coordinates: SU 872 707 Area: 2.77 hectares Typology: D (natural & semi-natural green space) Ward: Warfield Harvest Ride PPG17 Ref No’s: 103, 104, 105 PPG17 Audit: 60%
Features
This is a ‘natural’ site (Bracknell Forest Borough Council, 2002) with 100% wooded cover. Once surrounded by open agricultural land, the wood and wildlife corridor are now enclosed in residential housing developed in the mid 1990's. The site was adopted by the Borough Council in 1998.
Nature Conservation Interests
Spring flowers including bluebells, wood anenome and wood avens, and cowslip and devils bit scabious have also been seen. Damsel and dragonflies are present due to the tributary of the Cut.
Legislation Covering the Site
Piggy Wood is a designated Local Wildlife Site (formerly Wildlife Heritage Site) and a Local Nature Reserve (LNR).
www.bracknell-forest.gov.uk/spa 171 21 Visitor Usage
83% of all visitors surveyed stated this was the open space they regularly visited, with SwinleyPark and Larks Hill being the other sites frequented.
There is a range of visitor frequency, with a quarter visiting more than 5 times a week and a quarter visiting less than once a week.
Piggy Wood is mainly used for exercising the dog (50%) and a quarter of all users were cutting through this site on the way to somewhere else and 17% using the open space for jogging. A smaller proportion (8%) used the site for walking. Visits tended to be short, with 67 staying less than 30 minutes and no visitors staying more than 2 hours.
100% of respondents said they felt safe when visiting the site.
It was deemed to be a quiet area, with all respondents rating it as ‘not busy’ and 42% said it was always quiet. As a result of this, all visitors said they would continue to use the park as the currently do if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 10,000.
Accessibility
The majority of visitors arrive on foot (75%) with a low percentage of visitors arriving by car (8%) and a higher than average percentage arriving by bus (8%). There appears to a high proportion of local visitors (75%) who travel less than 1 kilometre to reach the site. This corresponds with a shorter travel time than average, with two thirds of visitors travelling less than 5 minutes.
Length of Footpaths
Four all-weather paths cover a distance of 483 metres.
Entrances and Car Parks
There is no car park but 2 formal entrances to the wood by bicycle or on foot.
Linkages to Other Sites
The site is linked to Quelm Lane and in close proximity to Larks Hill. There is potential for links to Jock's Copse/Tinker's Copse/The Cut (south) and Garth Meadows.
Pig gy Wood - P otential as Impact A voidance Measure
As a very generic overview Piggy Wood is used by dog walkers, who walk short distances to reach the site. The site is poorly used and the perceived use is also very low. Therefore, in isolation Piggy Wood has capacity and a suitable habitat to be used as impact avoidance.This site could potentially provide a good link as part of a circular walk including other sites.
22 172 www.bracknell-forest.gov.uk/spa Shepherds Meadows
Figure 4 Shepherds Meadows SANG
Shepherds Meadow
Scale 1:6,000 when printed at A4 This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown Copyright. 0 100 200 300 Unauthorised reproduction infringes Crown copyright and may Meters lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
A 5km catchment area has been identified for the site as shown below:
Figure 5 Shepherds Meadows SANG 5km catchment
Shepherds Meadow
Scale 1:60,000 when printed at A4 This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown Copyright. 0 1 2 3 Unauthorised reproduction infringes Crown copyright and may Km lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
www.bracknell-forest.gov.uk/spa 173 23 OS Coordinates: SU 845 607 Area: 33.72 hectares Typology: D (natural & semi-natural green space) Ward: College Town PPG17 Ref No’s: 122 PPG17 Audit: 78% Very Good
Features
Shepherd Meadows, a nature conservation site named after wildlife artist David Shepherd, is a Site of Special Scientific Interest (SSSI) in the south of the Borough. The site covers about 100 acres of wet wildflower meadow and woodland straddling the River Blackwater at the point where the counties of Berkshire, Hampshire and Surrey meet. Acquired by Bracknell Forest Borough Council in 1990, the site is managed for its nature conservation importance and its recreational and landscape value.
Shepherd Meadows and Sandhurst Memorial Park have received a Green Flag Award every year since entering in 2004. The Civic Trust's Green Flag Award Scheme is a national standard for the quality of public parks and green spaces in England and Wales. Sites are judged on eight criteria:
1. A welcoming place 2. Healthy, safe and secure 3. Well maintained and clean 4. Sustainability 5. Conservation and heritage 6. Community involvement 7. Marketing 8. Management.
In 2004, Bracknell Forest Borough Council teamed up with Sandhurst Town Council to enter Sandhurst Memorial Park and Shepherd Meadows into the scheme - resulting in the first ever joint application Green Flag Award. A management plan for the sites was developed in conjunction with BBOWT (Berks, Bucks & Oxon Wildlife Trust) and the Blackwater Valley Countryside Partnership. Shepherd Meadows and Sandhurst Memorial Park received a Green Flag Award again in 2005/06.
This is identified in the Parks and Open Spaces Strategy (2002) as a natural site and 20% of the site is covered with woody planting.
Nature Conservation Interests
Flower-rich meadows are now rare and about one quarter of the species associated with herb-rich grassland in Berkshire can be found at Shepherd Meadows.
The woodland at Shepherd Meadows, dominated by oak, ash, and alder coppice, includes Spring displays of wood anemone and dog violets. The meadows are also rich in animal life with over 600 species of insects. During the spring the orange tip butterfly darts low over the vegetation in search of the cuckoo flower on which it lays its tiny orange eggs. Damsel and dragonflies breed in the ditches and along the riverbanks, and in late summer the meadows echo to the sound of grasshoppers and bush crickets.The meadows become a carpet of wildflowers and plants during the spring and summer months, with golden
24 174 www.bracknell-forest.gov.uk/spa meadow buttercups, blue devil’s-bit scabious, purple meadow thistle and the yellow birds-foot trefoil. In July and August the sweet scent of meadowsweet blossoms produces a heady aroma.
Birdlife at Shepherd Meadows includes flocks of siskins, meadow pipits and thrushes in winter, while in summer the site is home to breeding kestrels, warblers, the spotted flycatcher and woodpeckers. The River Blackwater and the feeder channels attract many waterfowl and wading birds.
Legislation Covering the Site
The majority of Shepherd Meadows is designated as part of the Blackwater SSSI with an area in the south designated a Local Wildlife Site (formerly Wildlife Heritage Site).
Visitor Usage
78% of all visitors surveyed stated this was the open space they regularly visited, with Wildmoor Heath the other site most visited.
There is a high proportion of very frequent users, with 41% visiting more than 5 times a week and only 6% visiting less than once a week.
Shepherds Meadows is mainly used for exercising the dog (60%) with the remainder of people using the site for used for walking (12%), cycling (6%) and relaxing / atmosphere (6%). Visits are predominantly more than 30 minutes and over a quarter of visits are between 1 and 2 hours.
93% of respondents felt safe when visiting the site. 65% of people rated the site as busy; however, 92% of visitors surveyed would continue to use the site if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 90,000.
Accessibility
The majority of visitors arrive on foot (51%) and the remainder by car (38%) or bike (7%). As a result of this a high proportion of visitors travel from within 1 kilometre (57%) and few travel longer distances (7% travel over 5 km). The journey time for most visitors (81%) is less than 10 minutes.
Length of Footpaths
5 all-weather footpaths cross the meadows providing a total of 1,621 metres of pathways.
Entrances and Car Parks
Two car parks provide parking for 25 vehicles and cycle parking for 7 bicycles. There are 10 formal entrances into the open space.
74% of visitors rated the number and availability of spaces as very good or quite good, although some (7%) did score this as quite poor. In addition 19% rated the safety as quite poor.
www.bracknell-forest.gov.uk/spa 175 25 Linkages to Other Sites
The site is part of the Blackwater Valley Path, a 23 mile long distance path following the BlackwaterRiver. Shepherds Meadows and SandhurstMemorial park are adjacent and have excellent pedestrian linkages between them.
Shepherds Meadows - Potential as Impact Avoidance Measure
Visitors to this semi-natural site tend to visit frequently and walk to the site for dog walking or other recreational purposes. It is a suitable site as an alternative to the SPA, as visitors to Shepherd Meadows also visit Wildmoor Heath. Improvements would be necessary to achieve potential capacity as the site is well-used. Car parking could be improved to encourage visitors from further afield. Improvements to, and links with the Blackwater Valley path could extend the effectiveness of the site.
26 176 www.bracknell-forest.gov.uk/spa Englemere Pond
Figure 6 Englemere Pond SANG
Englemere Pond
Scale 1:4,000 when printed at A4 This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the 0 50 100 150 200 Controller of Her Majesty's Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown copyright and may Meters lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
A 5km catchment area has been identified for this site as shown below:
Figure 7 Englemere Pond SANG
This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the Englemere Pond Controller of Her Majesty's Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
Scale 1:60,000 when printed at A4
0 1 2 3 4 Km
www.bracknell-forest.gov.uk/spa 177 27 OS Coordinates: SU 905 686 Area: 27.59 hectares Typology: D (natural & semi-natural green space) Ward: Ascot PPG17 Ref No’s: 46 PPG17 Audit: 41% Good
Features
The land was once part of the royal hunting forest which surrounded Windsor Castle, and it is still owned by The Crown Estate and managed by Bracknell Forest Council. The site’s main feature is the shallow acidic lake which offers a wide range of habitats from open water to marsh, all of which is surrounded by commercial forest and heathland areas. Each of these areas provides its own variety of plant species and a home for many birds, insects and animals.
Nature Conservation Interests
A large pond surrounded by a wide fringe of reed swamp dominated by common reed Phragmites australis . Away from the open water the reed swamp grades into an interesting plant community typical of base-poor conditions. The transition from open water through base-poor wetland to dry ground is an exceptionally good example of this type of habitat which is relatively scarce in the lowlands.
The species present in the reed swamp include bog mosses Sphagnum spp., sundew (a plant species of boggy areas which is listed on the Borough Council’s Biodiversity Action Plan), spike-rush, bog pond weed and bog St John's wort. Cotton grass and lesser reed mace are locally dominant. The western margin of the pond exhibits a transition into swampy woodland carr dominated by alder. The open water plant community is relatively species-poor with much bulbous rush, but the invertebrate community is of considerable interest with a rich dragonfly fauna. The reed swamp supports an interesting community of breeding birds, including reed warblers sedge warblers and reed bunting.
The site includes a catchment area of secondary woodland, large pine, birch and oak on acid soils, together with a small fragment of heathland.
The woodland is predominantly Scots Pine with patches of heather; including ling, bell heather and cross-leaved heath, in the forest clearings. Oak, mountain ash, willow and silver birch are also to be found here, and the alder trees are a favourite haunt of wintering migrant birds such as siskins and Redpolls which feed on the seeds.
Legislation Covering the Site
Englemere Pond is a site of special scientific interest (SSSI) and a Local Nature Reserve (LNR).
Visitor Usage
75% of visitors usually use this open space, with the remainder visiting other spaces including: Swinley Park, Longhill Park, LilyHill Park and Jocks Lane.
64% of users visit the site more than 4 times a week.
28 178 www.bracknell-forest.gov.uk/spa The main reason given for visiting the site (82%) was to walk their dogs, with 7% for children’s play and 7% for a walk.
Visits were slightly longer than average, with 61% of people staying between 30 minutes and 1 hour.
78% of visitors always or usually felt safe when visiting.
Only 18% of respondents thought this was a busy site and 72% thought it was usually or always quiet. All of the people questioned would continue to use the site, either at the same or a different time if the visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 10,000.
Accessibility
79% of visitors arriving by car with the remainder walking to the site. 93% of visitors travelled less than 5 kilometres and nobody travelled more than 10 minutes to get to the site.
Length of Footpaths
There is one main all-weather footpath which extends to 69 metres, however the informal footpath network and way-marked signs provides for a circular walk of approximately 1,600 metres.
Entrances and Car Parks
There is a small, tarmaced car park for approximately 14 cars, which provides 1 of the 5 formal entrances around the site. There may be some scope to improve the car park as 19% of respondents rate the availability of parking as satisfactory (as opposed to quite good or very good) and 14% rate the quality and convenience as satisfactory. 14% of visitors found the safety of the car park to be poor.
Linkages to Other Sites
This site is adjacent to Swinley Park.
Englemere Pond - Potential as Impact Avoidance Measure
Englemere Pond generally attracts dog walkers who visit quite frequently and arrive by car. The site is suitable SANGs due to the varied nature of the habitats, meeting many of the points raised in Natural England’s quality guidelines. It is also deemed a quiet site by current users and capable of taking more visitors, as all would continue to use the site if the user numbers doubled. The necessary enhancement works include the path network and parking safety.The amount of visitors the site could take may be restricted due to the nature conservation value.
www.bracknell-forest.gov.uk/spa 179 29 Horseshoe Lake
Figure 8 Horseshoe Lake SANG
Horseshoe Lake
Scale 1:4,000 when printed at A4 This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown Copyright. 0 50 100 150 200 Unauthorised reproduction infringes Crown copyright and may Meters lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
A 5km catchment has been identified as shown in the map below:
Figure 9 Horseshoe Lake SANG
Horseshoe Lake
Scale 1:60,000 when printed at A4 This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown Copyright. 0 1 2 3 Unauthorised reproduction infringes Crown copyright and may Km lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
30 180 www.bracknell-forest.gov.uk/spa OS Coordinates: SU 818 622 Area: 19.38 hectares (including 8.9 ha body of water) Typology: D (natural & semi-natural green space) Ward: Little Sandhurst And Wellington PPG17 Ref No’s: 69 PPG17 Audit: 65% Very Good
Features
Horseshoe Lake lies about half a mile to the west of Sandhurst. Originally part of an extensive network of working gravel pits that have now been flooded, this site now occupies an attractive setting in the Blackwater Valley and is a popular venue for those who enjoy dinghy sailing, windsurfing, canoeing, birdwatching and walking. A bridleway runs along the northern boundary and a clear path circumnavigates the lake, providing very pleasant views of the site and the surrounding countryside. Horseshoe Lake also has a well resourced watersports centre, provided by Bracknell Forest Council and managed by Freetime Leisure.
Nature Conservation Interests
Site surveys carried out at Horseshoe lake in recent years have confirmed that the site is home to a wide variety of birds, including winter visitors and breeding birds. mallard, gadwall, pochard, tufted duck, goosander, wigeon, teal, shoveler, Canada goose, mute swan, great crested grebe, little grebe, coot, lapwing, common tern, redshank, ringed plover and little ringed plover.
House martins, swallows and swifts can be seen swooping for insects, and the barn owl is also known to inhabit the site.
Other wildlife includes several species of grasshoppers and crickets, twelve species of dragonflies and eighteen species of butterflies. These invertebrates depend on the range of habitats present, including open water, marginal shallows, shingle, bare ground, rough grassland and patches of developing scrub. Cattle graze on the banks of the lake at certain times of year, and, as part of the restoration programme, some tree planting has also taken place.
Legislation Covering the Site
None identified.
Visitor Usage
82% of all visitors surveyed stated this was the open space they regularly visited, with Sandhurst Memorial Park, SouthHill Park and the Look Out being other sites frequented.
Visitors tend to visit on a less frequent basis with 44% visiting less than once a week and only 8% visiting more than 5 times a week.
www.bracknell-forest.gov.uk/spa 181 31 Horseshoe Lake is used for a wide range of purposes, including exercising the dog (31%), walking (28%), organised sport (13%), relaxing (8%) and enjoying the wildlife (8%). Visits tended to be long, with 41% between 1 and 2 hours and 10% over 2 hours.
It was not deemed to be a crowded area, with 72% of respondents rating it as ‘not busy’ and nobody stating it was always busy. 92% of visitors would continue to use the park if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 30,000.
Accessibility
The majority travel by car (69%) and the remainder by walking (26%) or cycling (5%). There appears to be fewer very local visitors than average, with only 8% from within 1 kilometre and the majority (72%) travelling between 1 and 5 kilometres. This corresponds with slightly longer than average journey times with 31% travelling between 11 and 20 minutes and 6% travelling over 20 minutes.
Length of Footpaths
There are 4 all-weather footpaths running around and close to the lake, providing a total length of 1,490 metres of path.
Entrances and Car Parks
A 40 space car park is provided for recreational purposes and the watersports centre and the site can be accessed by 7 formal entrances including the car park. 62% of visitors surveyed used the car park. 29% of these thought the number of spaces was only satisfactory (as opposed to quite good or very good) and 21% thought the quality was satisfactory. In general the location was thought to be convenient, with 82% of users rating the convenience as very good or quite good. Safety of the car park could be improved as 8% of visitors rate this as poor and 46% rate the safety as satisfactory.
Linkages to Other Sites
The path around the lake is part of the Blackwater Valley path which is a 23 mile long distance path following the Blackwater River.
Hor seshoe Lake - P otential as Impact A voidance Measure
This site is an excellent SANGs, as it has a large catchment of visitors, travelling by car for recreational purposes and dog walking. It has been identified by the current users as not a busy area and this belief is borne out by the low visitor numbers collected. It is a semi-natural site with good links and a range of habitats, which could be enhanced to encourage additional visitors away from the SPA as existing users go to these areas too.
32 182 www.bracknell-forest.gov.uk/spa Long Hill Park Group (Lily Hill Park, Longhill Park, Milman Close, Beswick Gardens, Clintons Hill)
Figure 10 Long Hill Park Group SANG
This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the Long Hill Park Group Controller of Her Majesty's Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
Scale 1:4,000 when printed at A4
0 50 100 150 200 Meters
Figure 11 Long Hill Park Group SANG
This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the Long Hill Park Group Controller of Her Majesty's Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. Bracknell Forest Borough Council LA100019488.
Scale 1:60,000 when printed at A4
0 1 2 3 Km
www.bracknell-forest.gov.uk/spa 183 33 Lily Hill Park
OS Coordinates: SU 885 692 Area: 22.74 hectares Typology: A (parks and gardens) Ward: Bullbrook PPG17 Ref No’s: 83 PPG17 Audit: 81% Very Good
Features
Lily Hill Park is one of the parks within the Borough with the coveted Green Flag Status. The park forms part of the estate originally belonging to Lily Hill House and consists of parkland, woodland, and formal gardens. It is the focus of a £1.2 million restoration project supported by the Heritage Lottery Fund. The House and Park were originally formed as a 19th century 'gentleman's residence'.William Vincent built Lily Hill House between 1849 and the early 1850's with the park developed in phases over the next 30 years. Many mature specimens of exotic pines and ornamental rhododendrons remain, however, the original design and 'feel' of the park had gradually been lost because of extensive natural birch regeneration. Removing much of this has reinstated vistas and views and to allow restoration the wildflower meadows that are important for butterflies.
An application was submitted to the Heritage Lottery Fund in August 2000 for a capital grant to help fund a basic restoration programme. In July 2001 the Heritage Lottery Fund awarded Bracknell Forest Borough Council a grant for £113,000 towards developing a detailed design and restoration plan. Specialist consultants and the full-time Project Officer developed a detailed design and financial plan. This resulted in an award in March 2003 of a further £964,000 for restoring the site, forming Stage Two of Phase One of the restoration works.
Phase One of the restoration project is complete, returning the eastern half of Lily Hill Park to its former glory. Restoration work included tree work and shrub management, reinstating the historic path system, central ditch and drainage. While some tree felling is necessary to ensure a healthy mixed-age woodland, new tree planting will provide for the eventual demise of the present trees, and other areas have been planted up with non-invasive shrubs. Site furniture, including benches and tables, have also been installed, as well as interpretation boards to provide information about the site.
This is identified in the Parks and Open Spaces Strategy (2002) as a site which is predominantly naturalistic, as opposed to amenity open space, and 60% of the site is covered with woody planting.
Nature Conservation Interests
Approximately 17 hectares of the site is designated a Local Wildlife Site (formerly Wildlife Herbage Site) because it provides a large area of open space comprising a mosaic of habitats in an otherwise urban area. In 1997 the following Bracknell Forest BAP species were recorded: Cowslips, Ragged Robin, Stag Beetle, Bullfinch, Hobby and Noctule Bat. The site was then surveyed by BBOWT on 1 September 1998 and 142 different species were identified.
An ecological survey undertaken by Scott Wilson Consultancy Group (2002) has identified 5 elements in the park:
Semi natural plantation broadleaf woodland (this is the predominant habitat).
34 184 www.bracknell-forest.gov.uk/spa Scattered ruderals/bracken. Semi-improved rural grassland. Cultivated grassland. Marshy grassland.
The mix of tree cover and grass meadows creates a haven for a wide variety of other wildlife, including birds such as the bullfinch, jay, woodpecker, nuthatch, wren, dunnock and the spotted flycatcher. The meadows are rich in wild flowers, which provide colour throughout the summer months. Cowslips, ladies' smock, ragged robin and even the common spotted orchid help make part of Lily Hill Park one of the more diverse Local Wildlife Site (formerly Wildlife Heritage Site)s in the Borough.
The large number of over mature trees provides opportunities for specialist invertebrates such as dead-wood beetles, as well as offering holes and cracks for roosting bats and nesting birds such as woodpeckers. A full list of species can be found in the Heritage Lottery Funding Application (July 2002).
Legislation Covering the Site
Lily Hill Park is a locally designated Local Wildlife Site (formerly Wildlife Heritage Site).
Visitor Usage
A visitor survey carried out in 1998 (details given in the Management Plan, 2002) gave an indication that the park was used by local people who made frequent visits. There was a reasonable mix of male and female visitors, adults and children and group / lone visitors. The most significant use of the park was for walking, including dog walking, and peace and quiet, seclusion, fresh air, the countryside nature and to experience wildlife. The level of use of the park is considered to be reasonably steady throughout the day and throughout the week. 85% of visitors had heard about the area through local knowledge of word-of-mouth and 86% thought the park was peaceful. 98% of visitors stayed for more than 30 minutes.
A public consultation in March 2002 demonstrated the need for the park to be restored and upgraded, with 91% of people questioned (sample size 3400 residents) strongly supporting the scheme.
Due to the overgrown nature of much of the park, visitor pressure tended to focus on just a few areas. As a result some areas, in particular Forester’s Hill, were relatively heavily used in comparison with the rest of the park, therefore subject to disturbance and erosion.
Quotes from press cuttings illustrate the nature of the park prior to works commencing. “Helen Tranter, head of culture and visual environment, said the park was overgrown with rhododendrons and “quite creepy” for visitors before work was started to clear up its eastern section in 2003. She said this phase, due to be completed in March, has now made the park much more open and attractive” page 10, Bracknell News, Thursday, January 13, 2005.
In the Leisure-net Solutions study (2006), 79% of all visitors surveyed stated this was the open space they regularly visited, with Jocks Lane, Swinley Park, South Hill Park, Crowthorne Woods and Popes Meadow being other sites frequented.
www.bracknell-forest.gov.uk/spa 185 35 There is a mix of frequent and infrequent users, with 39% visiting more than 5 times a week and 23% visiting less than once a week.
Lily Hill Park is used for a wide range of purposes, mainly exercising the dog (60%), but also relaxing (19%), walking (14%), jogging (4%), and enjoying the wildlife (2%). Visits tended to be of average length, with 63% between 1 and 2 hours and no visits over 2 hours.
68% of respondents felt safe when visiting the site.
Slightly more respondents rated the park as not busy than busy, within only 4% stating it was ‘always busy’, 37% stating it was usually busy and 39% stating it was usually quiet. However, 97% of visitors surveyed would continue to use the site if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 86,000.
Accessibility
The majority of visitors travel by car (65%) and the remainder by walking (33%) or cycling (2%). 30% of visitors travel from within 1 kilometre and the majority (54%) travel between 1 and 5 kilometres. The journey time for nearly all visitors (90%) is less than 10 minutes.
Length of Footpaths
12 footpaths were identified as of Spring 2006, covering a total distance of 2,781 metres. This is set to increase as a result of ongoing works on site.
Entrances and Car Parks
The car park has recently increased to include 56 spaces. There are a total of 16 entrances to the park, predominantly formal entrances. 67% of visitors surveyed used the car park and this was rated very well regarding number and availability of spaces, quality and convenience with no respondents scoring these as poor. Safety could be improved slightly however as 5% of car park users rated this as poor.
Linkages to Other Sites
This is very close to Longhill Park; therefore semi-natural pedestrian linkages between these areas could be enhanced to create a more coherent area of open space.
Lil y Hill P ark - Potential as Impact A voidance Measure
The potential for this site to provide an alternative area of open space to the SPA has been accepted via a project level Appropriate Assessment for Bracknell town centre redevelopment (Bracknell Forest Borough Council, 2006a). It is a semi-natural park, which attracts visitors which also regularly visit the SPA.The site is generally deemed as not busy by visitors, therefore there is potential to increase capacity. Although this is acceptable on its own merits, when viewed alongside adjacent areas of Longhill Park and Clintons Hill this becomes a considerably sized area of alternative open space.
36 186 www.bracknell-forest.gov.uk/spa Clinton's Hill
OS Coordinates: SU 888 693 Area: 3.94 hectares Typology: E (urban woodland) Ward: Bullbrook PPG17 Ref No’s: 32 PPG17 Audit: 59% Good
Features
This is identified in the Parks and Open Spaces Strategy (2002) as a naturalistic site and 90% of the site is covered with woody planting. It is an area of urban woodland.
Legislation Covering the Site
Clintons Hill is a locally designated Local Wildlife Site (formerly Wildlife Heritage Site).
Visitor Usage
78% of visitors usually use this open space, with the remainder visiting other spaces including: Lily Hill Park and Garth Meadows.
The main reason given for visiting the site (44%) was as a cut-through or to use the children’s play area (22%), with other users exercising the dog (11%), walking (11%) or meeting people (11%).
Only 22% of visitors always felt safe when visiting, which is considerably lower than any other sites.
Visits were usually short, with two thirds being less than 30 minutes.
Only 11% of respondents thought this was a busy site and 89% of people would continue to use the site if the visitor numbers doubled. Only 11% would go to other areas of open space or stop using sites altogether.
Visitor Numbers
Annual visitor projection – 11,000.
Accessibility
It appears to be a locally used site with 78% of visitors arriving by foot; this may be as a result of there being no formal parking. In addition, 89% of visitors travelled less than 1 kilometre and it took them less than 10 minutes to get to the site.
Entrances and Car Parks
There are 4 entrances to the open space, providing a mix of formal and informal access points.
Linkages to other sites
This is adjacent to Lily Hill Park and Longhill Park.
www.bracknell-forest.gov.uk/spa 187 37 Clinton's Hill - Potential as Impact A voidance Measure
In general this site currently attracts visitors on foot using the site as a cut-through. It is deemed to be a quiet site where people may not always feel safe. The site is of the semi-natural nature required by Natural England’s quality guidelines and there is considerable scope for increasing the accessibility and attractiveness of this site to encourage additional visitors. This could be part of a larger area of impact avoidance open space proposed, along with adjacent sites.
Longhill Park / Milman Close / Beswick Gardens Copse
OS Coordinates: SU 892 694 Area: 10.46 hectares Typology: B / E (amenity greenspace, natural & semi-natural greenspace) Ward: Ascot PPG17 Ref No’s: 86, 90, 292 PPG17 Audit: Longhill Park– 73% Very Good, Milman Close – 41% Good, Beswick Garden Copse – 21% Poor
Features
Longhill Park is a 9.3 hectare site in the Parish of Winkfield, east of Bracknell town. It is, between Long Hill Road and Harvest Ride. The site has both open and wooded areas and is popular with dog walkers, families and children with a play area and benches provided. This area is a former refuse site which has been reclaimed for wildlife and public recreation.
The main car park for the site is accessed from Long Hill Road. There are four pedestrian access paths to Longhill Park, as follows:
At the junction of Long Hill Road / Harvest Ride The northern point of Harvest Ride The rear of Timline Green The rear of Milman Close.
Milman Close (0.53 hectares) is identified in the Parks and Open Spaces Strategy (2002) as a naturalistic site with 100% wooded cover and Longhill Park is predominantly naturalistic with 70% wooded cover. Beswick Garden Copse is a 0.54 hectare site adjacent to LonghillPark.
Nature Conservation Interests
The main open area of Longhill Park is managed as a hay meadow with a wide range of flora and fauna, whilst other areas include scrub, valuable old hedgerows and oak woodland at the western edge. At the last wildlife survey in 2003, 111 species were recorded at the site, including the bullfinch, one of Bracknell Forest's Biodiversity Action Plan species.
Legislation Covering the Site
Beswick Garden Copse and Longhill Park are locally designated Local Wildlife Site (formerly Wildlife Heritage Sites).
38 188 www.bracknell-forest.gov.uk/spa Visitor Usage
71% of all visitors surveyed stated this was the open space they regularly visited, which is lower than average for the parks surveyed. Lily Hill Park is the other site mainly visited by respondents, with many also visiting the Look Out and Crowthorne Woods, amongst other sites. Visitors tend to visit relatively frequently basis with 40% visiting more than 5 times a week. In addition, 23% travel less than once a week.
These sites are predominantly used for exercising the dog (69%) and 17% of visitors came to relax and enjoy the atmosphere. A third of all visitors questioned stayed less than 30 minutes, but half stay between 30 minutes and an hour. 10% of visitors stay for longer periods of over 2 hours. 94% of visitors feel safe when using the sites.
It was not deemed to be an especially busy area, with 38% of respondents rating it as busy and 40% rating it as ‘not busy’. 88% of visitors would continue to use the parks if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 26,000.
Accessibility
The majority of visitors travel by car (83%), 10% walk and 2% cycle. 33% of visitors travel less than 1 kilometre and 52% travel between 1 and 5 kilometres. 77% of people travelling less than 10 minutes to get to the site and 94% of people came from within 20 minutes travelling time. The site is generally flat and reasonably accessible for the mobility-impaired. Cycling is permitted along the track to the SW of the site.
Length of Footpaths
There is 1 all-weather footpath which is 119 metres in length. There are a total of 13 access points onto the sites, with 7 informal and non-defined.
Entrances and Car Parks
A car park with 18 spaces provides for all 3 areas of open space. Safety of the car park scores poorly with 19% of users rating this as poor; considerably lower than other sites.
Linkages to Other Sites
This is adjacent to Lily Hill Park and in close proximity to Clintons Hill; therefore semi-natural links could make a larger contiguous area of alternative open space.
Longhill P ark / Milman Close / Bes wic k Gar dens Copse - Potential as Impact Avoidance Measure
This has good potential as SANGs, indicated strongly by the existing visitors who use both this site and the SPA for recreation, indicating a similar experience. The predominant user group is dog walkers who have travelled a relatively short distance by car to reach the site. It is not rated as a busy site and most visitors would continue to use these sites if numbers
www.bracknell-forest.gov.uk/spa 189 39 doubled. There is a poor path network and parking facilities therefore scope for improvement.This could be part of a larger area of impact avoidance open space proposed, along with adjacent sites.
40 190 www.bracknell-forest.gov.uk/spa Part of Great Hollands Recreation Ground
Figure 12 Part of Great Hollands Recreation Ground SANG
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Due to its smaller size, this site has a 2km catchment area, as shown below:
Figure 13 Part of Great Hollands Recreation Ground SANG 2km Catchment
Great Hollands Recreation Ground
This Map is reproduced from Ordnance Survey Material with Scale 1:25,000 when printed at A4 the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown copyright and may 0 0.5 1 lead to prosecution or civil proceedings. Km Bracknell Forest Borough Council LA100019488.
www.bracknell-forest.gov.uk/spa 191 41 OS Coordinates: SU 851 665
Area: 4.78 hectares
Typology B: (amenity green space)
Ward: Great Hollands South
PPG17 Ref No’s: 62
PPG17 Audit: 71% Good
Features
The woodland plantation area to the south of the recreation ground has a number of unmade paths including a cleared ride from east to west. In some areas the rhododendron is kept low which in combination with the tall conifers provides a sense of space. Although the site is listed as amenity green space, the area to be used as SANGs, is composed of woodland.
Nature Conservation Interests
None identified.
Legislation Covering the Site
None identified.
Visitor Usage
59% of visitors usually use this open space, with the remainder visiting other spaces including: the more formal part of Great Hollands Recreation Ground, SandhurstMemorial Park and Jocks Lane.
People tend to visit this site less frequently than average, with 43% of respondents visiting less than once a week, however 30% of respondents visiting more than 5 times a week.
The main reason given for visiting the site (33%) was for dog walking, with 25% visiting for children’s play.
Visits were slightly longer than average, with 23% of people staying more than 2 hours and 8% staying between 1 and 2 hours.
99 % of visitors always or usually felt safe when visiting.
38% of respondents didn’t think this was a busy site and 89% of respondents would continue to use the site if the visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 19,000.
42 192 www.bracknell-forest.gov.uk/spa Accessibility
51% of visitors arriving by car and 47% walked to the site. 47% of visitors travelling less than a kilometre, whilst 17% travelled further than 5km. .This is reflected in the travel time with 62% of people travelling between 1 and 5 minutes to reach the site.
Length of Footpaths
There are several interconnecting unmade paths estimated length 500 metres of which the cleared ride forms 190m. A circular route of 0.8km could be created by connecting and creating paths.
Entrances and Car Parks
There is a macadam car park providing for 60 cars whilst footpaths provide access to the site from surrounding residential areas via the recreation ground. 49% of all visitors surveyed used the car park and there is some scope for improvement as 10% of users rated it as satisfactory only.
Linkages to Other Sites
The woodland area is connected to the more formal part of Great Hollands recreation ground extending to the north.
Par t of Great Hollands Recreation Gr ound - Potential as Impact A voidance Measure
This site provides a small but attractive semi-natural environment, with dog walking being the main reason for visiting. The visitors in general appear to visit other amenity open space in addition. They tend to stay longer than at other sites. The site is not rated as busy and, with enhancements, could attract a higher number of visitors.
www.bracknell-forest.gov.uk/spa 193 43 Ambarrow Court / Ambarrow Hill
Figure 14 Ambarrow Court / Ambarrow Hill
Ambarrow Court 60 /Ambarrow Hill
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This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the 13 Maybrick House Controller of Her Majesty's Stationery Office © Crown Copyright. 22 017 50 100 Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. 6 Meters Bracknell Forest Borough Council LA100019488. Perry's Figure 15 Ambarrow Court / Ambarrow Hill SANG 4km Catchment
Ambarrow Court/Ambarrow Hill
This Map is reproduced from Ordnance Survey Material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown Copyright. 0 1 2 3 Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. Km Bracknell Forest Borough Council LA100019488.
44 194 www.bracknell-forest.gov.uk/spa OS Coordinates: SU 824 628
Area: 13.67 hectares
Typology: D (natural & semi-natural green space)
Ward - Little Sandhurst And Wellington
PPG17 Ref No’s - 6, 7
PPG17 Audit - Ambarrow Court - 82% Good, Ambarrow Hill - 59.2% Good
Features
Ambarrow Court is an 8.7ha site located in Little Sandhurst between the A321 and the Reading-Guildford railway line. It forms the lower slopes of Ambarrow Hill (5ha), which joins to the north of the site and is owned and managed by the National Trust. A Local Nature Reserve and Local Wildlife Site (formerly Wildlife Heritage Site); Ambarrow Court contains a range of habitats including ancient woodland, birch and hazel coppice, marshes, ponds and pools, and a meadow.
Much of the site was once managed as a Victorian country estate, although the original house of 1855, has since been demolished. Remnants of this era exist through the exotic species such as bamboo, large specimen trees and yew hedges. A nature tail runs through the site and an interpretation board is located at the site car park.
Nature Conservation Interests
An extensive species list has been recorded at the site, with notable plants including bluebells and other spring woodland flowers, cuckoo flower, yellow rattle and mature specimen trees such as cedar and Douglas fir. Important animals recorded include the stag beetle, noctule bat and glow worm, which appear in the Bracknell Forest Biodiversity Action Plan.
Legislation Covering the Site
Ambarrow Court is a Local Nature Reserve.
Visitor Usage
72% of all visitors surveyed stated this was the open space they regularly visited, with Horseshoe Lake and Wildmoor Heath the other sites predominantly visited.
There is a spread of both frequent and infrequent users, with 26% visiting more then 5 times a week and 28% visiting less than once a week.
Ambarrow Court is predominantly used for exercising the dog (52%) with other uses being walking (17%), jogging (7%) and relaxing and enjoying the atmosphere (7%). The length of visit tends to be shorter for this site than for others, with 39% of people staying less than 30 minutes and a further 50% staying between 30 minutes and 1 hour. This highlights the function of this site as a local area of open space for short visits.
www.bracknell-forest.gov.uk/spa 195 45 100% of respondents felt safe when visiting the site.
20% of people rated the site as busy and 61% rated it as not busy. 83% of visitors surveyed would continue to use the site if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 32,000.
Accessibility
The majority arrive by car (76%) and the remainder on foot (22%) or bike (2%). A higher than average proportion of visitors (7%) had travelled more than 20 kilometres to reach the site, which corresponds with 7% having a journey time of 30 minutes or more. However 81% of visitors still travelled less than 5 kilometres and took less than 10 minutes to reach the site.
Length of Footpaths
Two all-weather footpaths cover a distance of 1,064 metres. Footpaths run near to three sides of the site, with the northern boundary linked to the Ramblers Route in this way. A disabled access path runs through Ambarrow Court, including handrails and passing places to allow wheelchair and mobility impaired users to access the range of habitats found throughout the site.
Entrances and Car Parks
The car park is accessed off the A321 which forms part of Ambarrow Court. Pedestrians can enter Ambarrow Hill from the north via Ambarrow Corner, from the Right of Way centred between the two sites, from the car park and from the south which connects to Ambarrow Crescent. There are 7 formal entrances and the small car park provides parking for approximately 17 cars. The availability, quality and convenience of parking spaces scores well, with 86% of visitors rating them as very good. However, some rate safety as poor (6%) or satisfactory (19%).
Linkages to Other Sites
These sites are adjacent to Edgbarrow Hill.
Ambarr ow Cour t / Ambarr ow Hill - Potential as Impact A voidance Measure
These sites are semi-natural and provide a good alternative to the SPA, indicated by visitors who visit both sites. The majority of visitors travel by car from within a small catchment for recreation and dog-walking. It is not perceived as a busy site and this is corroborated by low visitor numbers. The National Trust, who own part of the site, have been approached and have agreed that the site can be used as a SANGs.
46 196 www.bracknell-forest.gov.uk/spa Sites Not suitab le f or Alternative Open Space
Edgbarrow Hill
OS Coordinates: SU 833 637
Area: 61.5 hectares
Typology: D (natural & semi-natural green space)
Ward: Little Sandhurst And Wellington
PPG17 Ref No’s: 278
PPG17 Audit: 45% Average
Features
Edgbarrow Hill & Heath consist of woodland (Scots pine & sweet chestnut plantation) with areas of open heathland. Heathland vegetation mainly thrives in the land cut underneath the high power electricity lines. The site contains Wellington College Bog SSSI.
Nature Conservation Interests
Wellington College Bog SSSI supports just over 6ha of lowland heathland. Small numbers of silver-studded blue butterfly recorded on Edgbarrow Hill and Heath. This site appears to have suffered a decline in silver studded blue numbers over the last 10-15 years thought to be caused by a decline in the availability of early succession heather.
Legislation Covering the Site
Wellington College Bog, within the site, is a SSSI and Edgbarrow Hill and Heath are locally designated Local Wildlife Site (formerly Wildlife Heritage Sites).
Visitor Usage
77% of all visitors surveyed stated this was the open space they regularly visited, therefore nearly a quarter of visitors regularly visit other areas of open space. These include Shepherds Meadows, Wildmoor Heath, Sandhurst Memorial Park, Ambarrow Court and Westmorland Park.
The predominant user group (40%) is regular users visiting more than 5 times a week; however in addition to this 34% visit less frequently, either once a week or less than once a week.
Edgbarrow Hill is mainly used for exercising the dog (57%) with other major uses being as a cut-through to reach another destination (17%) and for walking (11%). The length of visit tends to be shorter for this site than for others, with 40% of people staying less than 30 minutes and a further 49% staying between 30 minutes and 1 hour. This highlights the function of this site as a local area of open space for short visits.
www.bracknell-forest.gov.uk/spa 197 47 100% of respondents felt safe when visiting the site.
49% rated the site as busy, although only 3% rated it as ‘always busy’. 34% rated it as not busy and 9% said it was always quiet. 89% of visitors surveyed would continue to use the site if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 16,000.
Accessibility
Just over half of visitors (51%) walk to the site and 40% travel by car. 37% of all visitors surveyed had travelled less than 1 kilometre to reach Edgbarrow Hill and a further 54% had travelled between 1 and 5 kilometres. The journey time for the majority of visitors (77%) is less than 10 minutes.
Length of Footpaths
No all-weather paths were identified.
Entrances and Car Parks
There is no car park linked to the site but there are 11 entrances for pedestrians into the site.
Linkages to Other Sites
The site is adjacent to Ambarrow Court and Ambarrow Hill.
Edgbarr ow Hill - Potential as Impact A voidance Measure
In general visitors to this site tend to be regular, local users visiting for shorter periods of time to walk their dogs or as a cut through. It was rated as a quiet site, and had correspondingly low levels of visitors. The semi-natural and quiet nature of the site indicate this would make a suitable alternative to the SPA, however the site is not within the Borough Council’s ownership, and there have been indications that the public access to this site is to be restricted because of security measures rather than extended.There is a public right of way across the site, but the additional access required to attract people from the SPA is unlikely to be secured.
Sandhurst Memorial Park
OS Coordinates: SU 842 612
Area: 27.26 hectares
Typology: H (outdoor sports facilities)
Ward: Central Sandhurst
48 198 www.bracknell-forest.gov.uk/spa PPG17 Ref No’s: 118
PPG17 Audit: 81% Very Good
Features
This park, which is accessed off the A321 Yorktown / Marshall Road, is open to the public and provides a range of facilities and attractions for a variety of formal and informal activities. Covering approximately 28 hectares, this site, managed by Sandhurst Town Council, has become one of the premier recreational sites in Bracknell Forest.
The Civic Trust's Green Flag Award Scheme is a national standard for the quality of public parks and green spaces in England and Wales. Sites are judged on eight criteria:
1. A welcoming place 2. Healthy, safe and secure 3. Well maintained and clean 4. Sustainability 5. Conservation and heritage 6. Community involvement 7. Marketing and 8. Management.
In 2004, Bracknell Forest Borough Council and Sandhurst Town Council entered Sandhurst Memorial Park and Shepherd Meadows into the scheme - resulting in the first ever joint application Green Flag Award. A management plan for the sites was developed in conjunction with BBOWT (Berks, Bucks & Oxon Wildlife Trust) and the Blackwater Valley Countryside Partnership. Shepherd Meadows and Sandhurst Memorial Park received a Green Flag Award again in 2005/06.
Since its modest beginning in 1949 when 2.4 hectares of land known as Brookside Field were purchased by Sandhurst Parish Council "for the purpose of a public recreation ground for the benefit of the inhabitants of the Parish of Sandhurst", successive Parish/Town Councils have gained the rights over adjacent farm and woodlands to make the Memorial Park what it is today. This is identified in the Parks and Open Spaces Strategy (2002) as a site with slightly more amenity value than natural features, and 10% of the site is covered with woody planting.
Nature Conservation Interests
None identified.
Legislation Covering the Site
None identified.
Visitor Usage
78% of all visitors surveyed stated this was the open space they regularly visited, with the Look Out the other site most visited.
There are fewer than average very frequent users, with only 9% visiting 4 or more times a week and 65% visiting once a week or less.
www.bracknell-forest.gov.uk/spa 199 49 Sandhurst Memorial Park is used for a wide range of purposes, with the main use being children’s play (44%). Other main reasons for visiting are to meet people / socialise (15%), exercise the dog (12%) and walk (10%). Visits are predominantly more than 30 minutes but less than 2 hours (83%).
78% of respondents felt safe when visiting the site.
44% of people rated the site as busy and 44% rated it as not busy. However, 93% of visitors surveyed would continue to use the site if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 150,000.
Accessibility
The majority travel by car (61%) and the remainder by walking (34%), cycling (2%) or bus (2%). 29% of visitors travel from within 1 kilometre and the majority (49%) travel between 1 and 5 kilometres. The journey time for nearly all visitors (98%) is less than 20 minutes.
Entrances and Car Parks
63% of visitors surveyed use the car park and a high percentage of respondents rated the car park size, quality, convenience and safety as very good or quite good.
Linkages to Other Sites
This is adjacent to Shepherds Meadows.
Sandhur st Memorial P ark - Potential as Impact A voidance Measure
Many of the visitors to the Memorial Park also visit the Look Out, but they did not specify whether this was for the children’s play area as opposed to the natural areas. Visitor numbers on this site are already high, although the same number of people rated the site as ‘busy’ and ‘not busy’. People visited less frequently and stayed longer, which may be a result of the type of user, visiting for the play area rather than daily dog walking. As the site already scores highly in the PPG17 audit, there is little scope for improvement, and the site because of its amenity nature does not currently attract large number of dog walkers. As a result there is little or no potential for this to be converted into alternative open space to attract users of the SPA.
Swinley Park
OS Coordinates: SU 833 637
Area: 267.55 hectares
Typology: D (natural & semi-natural green space)
Ward: Ascot
50 200 www.bracknell-forest.gov.uk/spa PPG17 Ref No’s: 132
PPG17 Audit: 47% Good
Features
Swinley Park is an area of the Windsor Estate between Bracknell and Bagshot to the west of the A322. Owned and managed by The Crown Estate, it comprises over 260 hectares of mainly Scots Pine woodland.
Nature Conservation Interests
This park includes the most important concentration of ancient broadleaved trees remaining in the southern sector of Windsor Forest. Most of the area consists of conifer plantation with patches of broadleaves, but scattered throughout are a number of ancient oaks, beech Fagus sylvatica and sweet chestnut Castanea sativa , notably along the rides and edges of forest compartments. Some of the oaks are pollards of great age and, although partially shaded by conifers, the decaying hulks of these ultra-mature trees provide habitats now rare in woodland. Many rare species of insect requiring dead and decaying large timber are known to be present. The area is also of interest for its birds, both hole-nesting species and birds of prey. An avenue of lime trees Tilia europaea supports a good local population of mistletoe Viscum album .
The site also includes Swinley Brick Pits, an area of old clay pits now much overgrown by birch, pine and rhododendron and including a number of small pools providing ideal habitat for several species of dragonflies, Odonata, and secluded cover for waterfowl, as well as breeding sites for all three species of newts.
Locally, where the ground is too wet for the proper establishment of coniferous trees, a wet heath flora has developed. A small colony of marsh clubmoss Lycopdiella inundata , rare in Berkshire, occurs in the brick pits area.
Legislation Covering the Site
This large area of private land is both a Site of Special Scientific Interest (SSSI).
Visitor Usage
78% of all visitors surveyed stated this was the open space they regularly visited, with Englemere Pond and the Look Out the other sites most visited.
There is a wide spread of frequency of user with a third of respondents visiting more than 5 times a week, but also nearly a quarter visiting less than once a week.
Swinley Park is used for a wide range of purposes, with the main use being exercising the dog (54%). Other main reasons for visiting are cycling (19%), walking (11%) and jogging (8%). No visits are less than 30 minutes and the vast majority (47%) are between 30 minutes and 2 hours. In comparison to other sites a high proportion (14%) of visits are between 2 and 4 hours.
84% of respondents felt safe when visiting the site.
Only 19% of people rated the site as busy and 68% rated it as not busy. However, 95% of visitors surveyed would continue to use the site if visitor numbers doubled.
www.bracknell-forest.gov.uk/spa 201 51 Visitor Numbers
Annual visitor projection – 30,000.
Accessibility
The majority travel by car (81%) and the remainder by walking (44%) and cycling (5%).This site has a higher proportion of visitors from long distance; 14% of respondents had travelled more than 20 kilometres and half of all users travelled between 1 and 5 kilometres. As a result 16% of visitors have travelled more than 30 minutes to reach the site, which is the highest for all the sites surveyed. In addition 41% of people travelled less than 5 minutes.
Length of Footpaths
There are 8 all-weather footpaths providing a total distance of 8,348 metres of access around the site.
Entrances and Car Parks
There is a car park for 30 cars. There are 10 entrances around the site’s perimeter. Visitors to the site do not rate the car park particularly well with 39% of respondents rating the quality as quite or very poor and only 16% rating the quality as very good or quite good.
Linkages to Other Sites
Part of this site is adjacent to Englemere Pond.
Swinle y P ark - Potential as Impact A voidance Measure
This site has all the characteristics of a suitable impact avoidance measure against the SPA, being of a suitable size, having the potential to upgrade access and being of a low visitor usage already, therefore having capacity to absorb more visitors as a result. However, the deliverability of this site as impact avoidance cannot be guaranteed or secured as the Borough Council does not own or lease the land, and discussions with the landowner have indicated that securing this land over the lifetime of the developments proposed in the DPD will not be possible. It is for this reason this site has not been included in the Appropriate Assessment.
Silver Jubilee Field / Wicks Green
OS Coordinates: SU 839 709
Area: 3.6 hectares
Typology: B (amenity green space)
Ward: Binfield With Warfield
PPG17 Ref No’s: 149 / 182
PPG17 Audit: 64% Very Good
52 202 www.bracknell-forest.gov.uk/spa Features
Open grassed site with children play area. This is identified in the Parks and Open Spaces Strategy (2002) as a site with some natural features and one fifth of the site is covered with woody planting.
Nature Conservation Interests
None relevant to this Appropriate Assessment.
Legislation Covering the Site
There is no relevant legislation covering this site.
Visitor Usage
88% of all visitors surveyed stated this was the open space they regularly visited.
There is a spread of both frequent and infrequent users, with 34% visiting more then 5 times a week and 31% visiting less than once a week.
This site is mainly used by people walking their dogs (47%), with the other key uses being the children’s play area (22%) and walking (13%). Over half of visits are between 30 minutes and 1 hour, with 19% between 1 and 2 hours.
97% of respondents felt safe when visiting the site.
Only 22% of people rated the site as busy and 56% rated it as not busy and 85% of visitors surveyed would continue to use the site if visitor numbers doubled.
Visitor Numbers
Annual visitor projection – 14,000.
Accessibility
The majority of visitors walk to the site (84%) with 13% arriving by car and 3% cycling. Two thirds of visitors travel from within 1 kilometre and only a small proportion (6%) come from over 5 kilometres. As a result 85% of the journeys took less than 10 minutes.
Length of Footpaths
2 all-weather footpaths provide a walking distance of 493 metres.
Entrances and Car Parks
An informal parking area provides parking for approximately 12 cars. There are 6 formal entrances. Three quarters of respondents stated the car park was satisfactory as opposed to good or very good, therefore there is room for improvement. In addition, a quarter rated it as being poor quality with poor safety.
Linkages to Other Sites
This site stands alone.
www.bracknell-forest.gov.uk/spa 203 53 Silver J ubilee Field / Wic ks Green - P otential as Impact A voidance Measure
This site caters predominantly for local users with the majority of visitors arriving on foot despite the provision of parking.The site is not deemed to be busy therefore has capacity for further visitors. Although the site is only partially semi-natural, this has the potential to provide for an element of the SPA users; people wanting to take their dog for short local walks up to half a kilometre in length. Improvements to the car park and path network could encourage this use. The Council has been unable to reach agreement with Binfield Parish Council and is therefore unable to consider the site for SANGs provision.
54 204 www.bracknell-forest.gov.uk/spa www.bracknell-forest.gov.uk/spa Appendix 6: SANGs Enhancement Works
Using the criteria identified in Natural England's SANGs Quality Guidance, an appraisal was made of how each area of open space already meets the quality guidelines of suitable mitigating open space. This was based upon the summaries provided in Appendix 5, site visits and discussions with the Parks and Countryside Service. As a result, potential enhancements which could improve the quality of the open space as mitigation land are identified.
Criteria which are not included in the table below, but are addressed within a separate section are:
The site is located in a place which would make it attractive to the particular people most likely to visit the SPA – this is being addressed by the accessibility mapping to ensure proposed development is within a suitable distance of the mitigation. Has not been heavily used up to now and has the capacity to attract more people of the type who would visit the SPA – this issue is addressed in the capacity study of each site.
205 Key = Potential for Improvement = PFI
Table 6 SANGs Enhancement Works
Dog off the Perception Provision of Circular walk Way-marked Thin, natural Water View points Attractive in lead of safety on parking of 2.5km paths paths on-site appearance site i.e. semi-natural
Jocks Copse / Tinker's Copse / The Cut (south) / Garth Meadows / Larks Hill / Piggy Wood
Yes Yes Some Not currently Currently Yes Yes Yes Yes although PFI none so lots as a group of of PFI. sites
Enhancements :
Production of an open space management plan. Main potential for enhancement is the creation of a circular route including all the sites. 55 56
Dog off the Perception Provision of Circular walk Way-marked Thin, natural Water View points Attractive in lead of safety on parking of 2.5km paths paths on-site appearance site i.e. semi-natural
Improving semi-natural linkages between the individual sites. Way-marked signs to direct round a circular route. Improved paths on some parts of the site. Additional parking spaces at different points of the route and additional non-car access (e.g. improved pedestrian entrances and cycle parking). Publicise as circular walk (leaflets, internet) New and/or upgraded furniture, e.g. bins and benches where appropriate. Increased ranger presence on-site to improve safety and perception of safety. Improve interpretation and promotion of the site.
206 Englemere Pond
Yes Potential for Yes – PFI Provides for Yes No Yes No Yes improvement quality 1.6km
Enhancements:
Production of an open space management plan. Improved way-marked signs to direct round a circular route. www.bracknell-forest.gov.uk/spa Improved paths on some parts of the site and creation of additional paths to increase length of walk. Publicise as circular walk (leaflets, internet) and improve interpretation and promotion of the site. Increased ranger presence on-site to improve safety and perception of safety. New and/or upgraded furniture, e.g. bins and benches where appropriate.
Shepherd Meadows
Yes PFI Yes PFI PFI Yes Yes No Yes www.bracknell-forest.gov.uk/spa
Dog off the Perception Provision of Circular walk Way-marked Thin, natural Water View points Attractive in lead of safety on parking of 2.5km paths paths on-site appearance site i.e. semi-natural
Enhancements:
Way-marked signs to direct round a circular route. Improved paths on some parts of the site. Publicise as circular walk (leaflets, internet) and improve interpretation and promotion of the site. Increased ranger presence on-site to improve safety and perception of safety. New and/or upgraded furniture, e.g. bins and benches where appropriate.
Horseshoe Lake 207 Yes Yes Yes – PFI No Yes Yes Yes Yes Yes size, safety
Enhancements:
Production of an open space management plan. Improved way-marked signs to direct round a circular route and encourage people to extend their walk along the Blackwater Valley. Improved paths on some parts of the site. Publicise as circular walk (leaflets, internet) and improve interpretation and promotion of the site. Increased ranger presence on-site to improve safety and perception of safety. New and/or upgraded furniture, e.g. bins and benches where appropriate. Better linkages between Horseshoe Lake, Shepherds Meadows and the Blackwater Valley path will provide a longer circular walk and could also provide a link to larger scale gravel pit restoration within Wokingham DC.
Longhill Park / Milman Close / Beswick Gardens Copse / Lily Hill Park / Clintons Hill 57 58
Dog off the Perception Provision of Circular walk Way-marked Thin, natural Water View points Attractive in lead of safety on parking of 2.5km paths paths on-site appearance site i.e. semi-natural
Yes PFI Yes PFI No PFI Yes Yes Mainly semi-natural but PFI
Enhancements:
Production of an open space management plan. Main potential for enhancement is the creation of a circular route including all the sites. LilyHillPark has already been enhanced in a suitable manner; therefore enhancements should concentrate on the other sites. Improve attractiveness and semi-natural nature of Milman Close and Beswick Garden Copse Production of an open space management plan. New and/or upgraded furniture, e.g. bins and benches where appropriate. 208 Improving semi-natural linkages between the individual sites. Way-marked signs to direct round a circular route. Improved path network on some parts of the sites. Additional parking spaces at different points of the route, improve safety of LonghillPark car park and additional non-car access (e.g. improved pedestrian entrances and cycle parking). Publicise as circular walk (leaflets, internet) and improve interpretation and promotion of the site. Increased ranger presence on-site to improve safety and perception of safety. www.bracknell-forest.gov.uk/spa
Part of Great Hollands Recreation Ground
Yes Yes Yes PFI No Yes No No Yes
Enhancements:
Production of an open space management plan Creation of circular route www.bracknell-forest.gov.uk/spa
Dog off the Perception Provision of Circular walk Way-marked Thin, natural Water View points Attractive in lead of safety on parking of 2.5km paths paths on-site appearance site i.e. semi-natural
Rhododendron removal to improve attractiveness, perception of safety and biodiversity Way-marked signs for circular route Publicise site through new interpretation and leaflets Woodland sculpture trail for interest
Ambarrow Court / Ambarrow Hill
Yes Yes Yes – PFI PFI PFI PFI No Yes Good safety 209 Enhancements:
Production of an open space management plan. Improvements to existing car parks to improve safety and additional non-car access (e.g. improved pedestrian entrances and cycle parking). Creation of new paths in a circular, way-marked route. Production of an open space management plan Increased ranger presence on-site to improve safety and perception of safety. New and/or upgraded furniture, e.g. bins and benches where appropriate. Improve interpretation and promotion of the site. 59 Notes: The reference to dogs being off the lead within this document does not exclude the requirements of other legislation, which requires dogs to be under close control at all times. Where potential for safety improvement is identified, this has been based on perceptions of safety from the current visitors surveyed during the site specific questionnaires.
The enhancements identified in the table above are required in order to bring each SANGs up to a suitable standard to provide an alternative to the SPA. Detailed works and costings, will be provided along with the implementation of this plan, in an open space management plan. It is difficult to identity the specific improvement works which may need to be carried out at each site over the next 20 years, therefore the open space management plan will be updated every 5 years.
60 210 www.bracknell-forest.gov.uk/spa Appendix 7: SPA Avoidance and Mitigation Costs
1. The following information summarises potential expenditure relating to delivery of the Bracknell Forest Council Thames Basin Heaths SPA Avoidance and Mitigation SPD.
2. The measures identified are those which will require a lead role to be implemented by the Parks and Countryside Service (part of Environment, Culture and Communities) and the Strategic Access Management and Monitoring (SAMM) Project. The focus is on land management initiatives outside of the designated SPA as well as access management and monitoring on the SPA.
3. It should be noted that mitigation proposals require the provision and management of public open space at a level above and beyond that which is normally sought by developer contributions. The target Open Space of Public Value provision for Bracknell Forest is 4.3 hectares per 1000 of population (including 2.3 hectares passive space, see Chapter 4 of Limiting the Impact of Development SPD). (8)
4. Englemere Pond and Shepherds Meadows include SSSI sites and it is a statutory requirement that the SSSIs are maintained in a favourable condition by the landowners. Therefore, the financial contribution towards enhancing these sites to provide an alternative to the SPA is in addition to the finances required for management of the interest features for which the SSSI is designated.
5. Relevant action can be broken down into three main activities:-
Enhancement of SANGS, as identified within the SPA Avoidance and Mitigation Strategy; Sustainable management of SANGS in perpetuity; Access management and monitoring within and/or directly relating to the Special Protection Area.
8 This can be found at http://www .br ac knell-f orest.go v.uk/lid .
www.bracknell-forest.gov.uk/spa 211 61 1. SANGs Contributions
a) SANGs Enhancement Works
Table 7 Works and Costs Identified by Open Space (as estimated at 2010/11)
(2) Sites (1) Actions Cost (£)
1. The Cut Habitat Management: 25,000 Countr yside Corridor including Access Management: 190,000 Jock's Copse, Tinkers Copse, The Interpretation: 33,000 Cut, Garth Meadows, Furniture: 38,000 Larks Hill and Piggy Wood Total 286,000 (Link with Bracknell Town Council)
2. Shepher d Habitat Management: 18,000 Meado ws Access Management: 43,000 (Link with Sandhurst Town Council) Interpretation: 23,000 Furniture: 18,000
Total 102,000
3. Englemere P ond Habitat Management: 106,000
(Link with The Crown Access Management: 87,000 Estate) Interpretation: 25,000
Furniture: 6,000
Total 224,000
4. Hor seshoe Lake Habitat Management: 23,000
(Link with Blackwater Access Management: 106,000 Valley Countryside Partnership) Interpretation: 18,000 Furniture: 4,000
Total 151,000
62 212 www.bracknell-forest.gov.uk/spa (2) Sites (1) Actions Cost (£)
5. 'Long Hill P ark' Habitat Management: 22,000 Gr oup (3)(4) including Longhill Park, Milman Access Management: 80,000 Close, Beswick Gardens Copse and Interpretation: 39,000 Clintons Hill Furniture: 9,000
Total 150,000
6. Ambarr ow Cour t/ Habitat Management: 45,000 Ambarr ow Hil l Access Management: 67,000 (Link with the National Trust) Interpretation: 18,000 Furniture: 28,000
Total 158,000
Total £1,071,000
Total including £1,128,000 indexation
1. Part of Great Hollands Recreation Ground has also been identified as a SANG (see appendices 4 and 5). This site has however not been brought into the cost calculations, since it is not required for mitigation purposes at this stage. 2. Baseline calculations are identified within relevant mini-plans. 3. The Long Hill Park Group includes Lily Hill Park.This site is however not shown here as it provides mitigation for the Bracknell Town Centre development and is not part of the suite of Bracknell Forest's strategic SANGs. 4. Due to particular development pressures in or around the Town Centre, it is possible that the Long Hill Park Group will be used as SPA mitigation for these developments. b) Additional Annual Maintenance in Perpetuity
6. There are costs associated with the management of green space (managed by the Council, or partner body such as Bracknell Town Council) which vary significantly across the Borough.
7. In general terms, expenditure will be highest where there is the greatest provision of formal facilities such as surfaced paths and parking. However, a pre-requisite of potential mitigation land is that it is semi-natural and encompasses some of the special qualities of the SPA.
8. It should be noted that there is an existing ‘base level’ of management of the proposed mitigation sites, which is not being funded through these contributions. However, successful delivery (particularly effective re-distribution of visitors) will require an increase to the existing management levels for the specific sites.
9. Accordingly, the costs identified below relate specifically to the sustainable management of the proposed enhancement to be implemented as a result of SPA mitigation measures.
www.bracknell-forest.gov.uk/spa 213 63 Additional maintenance Based on 2 new rangers plus £123,000 per annum in requirements incl. staffing maintenance. perpetuity
c) Administration and Education
10. Of particular significance are the production of the Open Space Management Plans (OSMP's) which detail the necessary enhancement works to the SANGS, project management of enhancement works and promotion of the SANGS.
Cost relating to Based on 0.5 increase to £25,000 per annum for 20 years (plan Biodiversity Officer existing post including period) support costs Total £500,000
An allocation for SANG promotional material £50,000
d) Summary of SANGs Costs (based on 2010/2011 costs)
11. These figures are likely to increase over time when inflation is factored in.
Table 8 Summary of Total SANGs Costs
SPA Avoidance and Mitigation Cost Totals (rounded) Works and Measures
A) SANGs Enhancement Works See table 1. above £1,128,000 incl. indexation
B) Additional Annual See above - additional £123,000 per annum, Maintenance in Perpetuity (over maintenance and increase in requires commuted and above existing revenue staffing requirements for 125 sum of budgets for 125 years) years £8,717,000 for 125 years
C) Administration and Education £25,000 annual staffing cost for £550,000 20 year plan period
£50,000 for educational resources/material
D) Facilitation Sum (35% contingency to forward plan and deliver £3,638,000 the total Avoidance and Mitigation Strategy)
Total SANGs measures: £14,033,000
64 214 www.bracknell-forest.gov.uk/spa e) Calculation of SANG Tariff ‘Per Bedroom’
12. The following estimates and assumptions were made to calculate the SANG tariff as shown in table 10.
Table 9 Estimates and Assumptions
Estimates and Assumptions Totals
Estimated total area of SANGs capacity available for 6 sites: 109.14 ha
The Cut Countryside Corridor = 16.78ha Long Hill Park Group (not incl. Lily Hill Park) = 14.1ha Englemere Pond = 26.92ha Horseshoe Lake = 8.6ha Shepherds Meadows = 30.64ha Ambarrow Court / Ambarrow Hill = 12.1ha
(as set out in Appendix 4)
Estimated total mitigation capacity of SANGs available (persons) 13,643 persons (1)
109.14 ha / 8 x1000
Estimated mitigation capacity of SANGs available (dwellings) 5,906 dwellings
13,643 people @ 2.31 people (2) per dwelling
Total cost of SANGs avoidance and mitigation measures (excluding £14,033,000 SAMM)
Estimated Cost per person of SANGs avoidance and mitigation £1,029 measures (excluding SAMM)
£14,033,000 ÷ 13,643 people
1. It should be noted that the potential to mitigate for 13,643 new population could almost certainly never be completely realised. This is because development does not always occur in areas where there is SANGs capacity and SANGs have particular catchment areas. In Bracknell Forest, for example, there are particular pressures on SANGs in the north of the borough. 2. Based on average occupancy per dwelling of 2.31 persons (for Bracknell Forest 2001 – 2026). Agreed figure used in the Bracknell Forest Council Thames Basin Heaths SPA Technical Background Document to the Core Strategy DPD (June 2007).
www.bracknell-forest.gov.uk/spa 215 65 Table 10 Calculation of SANG Tariff per Bedroom
No. % Dwellings (1) No. Dwellings Estimated Charge per Bedrooms Occupancy (2) bedroom (3)
1 23% 1,358 1.40 £1,570
2 29% 1,713 1.85 £2,070
3 35% 2,067 2.50 £2,800
4 11% 650 2.85 £3,190
5+ 2% 118 3.70 £4,150
Total 100% 5,906
1. Indicative Estimate of Size of Dwellings Required to Accommodate Growth in Bracknell Forest. See Draft Strategic Housing Market Assessment (July 2010) Figure 3.14 2. Occupancy figures ‘per bedroom’ are not available for Bracknell Forest. These have been obtained from a number of data sources from local authorities in the region of the Thames Basin Heaths SPA and used to calculate estimated average occupancy figures, selected on a precautionary basis. The same occupancy figures have been applied to the calculation of the SAMM contributions. See SAMM Tariff Guidance on the Council's website at http://www.bracknell-forest.gov.uk/spa. 3. Estimated occupancy x estimated cost per person + approx. 9% adjustment applied to ensure that total costs are recovered. 2. Strategic Access Management and Monitoring (SAMM) Contributions
13. The SAMM tariff has been calculated based on guidance issued by Natural England (9) 14. In 2009, the tariff was set at £630 per dwelling. It was agreed that the tariff would be collected by an Administrative Body (Hampshire County Council) and the delivery managed by Natural England. The sum provides for £190 towards annual expenditure and £440 to the long term investment fund. 15. The tariff was established with reference to the anticipated increase in population and a detailed analysis of the resources which would be needed to address the increased number of visitors to each part of the SPA. An estimate of the number of houses (2,824 per year over 17 years) was taken from the South East Plan (2009) and the cost of access measures and monitoring calculated in consultation with a wide range of organisations delivering similar services. Table 11 provides a summary:
Table 11 Calculation of £630 per dwelling
Annual Cost
Staff and wardening service £390,000 See Appendix 3 of SAMM Guidance Monitoring inc capital costs £55,500
Contingency £43,900
Administrative body fees £20,000
Natural England management fee £10,000
VAT contingency* £17,160
9 Thames Basin Heaths Strategic Access Management and Monitoring (SAMM) Project Tariff Guidance (March 2011) can be found on the Councils website at http://www .br ac knell-f orest.go v.uk/spa
66 216 www.bracknell-forest.gov.uk/spa Annual Cost
Total cost £536,560
Revenue funding per house £190 Est. 2,824 houses/yr yielding £536,560
Capital investment per house £440 See Appendix 2 of SAMM Guidance
Total average tariff per house £630
Notes
The approach to rounding reflects the original calculations conducted by a number of individuals. This has been replicated to maintain consistency with previously published and agreed documents. The level of variation in the figures is not significant.
* VAT on all monitoring and capital costs; plus part of wardening costs.
16. Following discussions with the local authorities a legal opinion was jointly sought to establish whether the proposed tariff was compliant with ODPM Circular 05/2005 Planning Obligations. An opinion was received which concluded that the tariff did meet the requirements of the Circular except in regards to being a flat rate tariff. The opinion considered that a flat rate tariff would not be proportional and would fetter the local authorities’ discretion. 17. The opinion also stated that a tariff which included the number of bedrooms and/or distance would be proportionate and acceptable. The current Thames Basin Heaths SANG and SAMM tariffs take account of distance through the current distance zoning scheme. 18. In response, Natural England and the local authorities agreed a proportional tariff based on the number of bedrooms. A tariff developed using these guidelines is considered to meet all the requirements of current policy guidance and, in conjunction with SANGs, will be able to provide effective mitigation to address the impact of additional housing on the SPA. 19. The legal opinion states that the tariff can be established by reference to the overall sum needed to deliver the required mitigation. The overall sum required was established by the SAMM Outline Business Plan and has been agreed by the local authorities and Natural England. The best available figures are used throughout for calculating the tariff and local authorities are expected to use local data wherever appropriate. 20. The proportional tariff is calculated using a simple equation based on occupancy and a per capita Standard Cost. The standard cost is derived from the overall sum required and the number of new residents. In order ensure that the scheme is fit for purpose, the TBH SAMM tariff includes an enabling adjustment, which provides confidence that the overall income will be sufficient to ensure that the SPA is not adversely affected.
Tariff = (Occupancy x Standard Cost) + Enabling Adjustment
21. Table 12 provides an estimate of the per capita contribution required to provide the overall sum. The enabling adjustment is obtained by including data on the predicted mix of house size.
www.bracknell-forest.gov.uk/spa 217 67 Table 12 Overall Costs
Notes
Number of dwellings 2,824 Forecast delivery within 5km of SPA
Original revenue £536,560 Annual sum required for mitigation
Original investment £1,242,560 Invested into long term fund
Original total £1,779,120 Investment + revenue, total required annually
Original tariff £630 £1,779,120 ÷ 2,824 = £630 per dwelling
Occupancy 2.4 Agreed figure used in the Delivery Framework
Total no. Residents 6,778 2,824 x 2.4 (No. dwellings x Occupancy)
Standard Cost £263 1,779,120 ÷ 6778 (Total sum ÷ No. residents)
22. Table 13 shows an example of a proportional tariff scale for the TBH SAMM project. The scale uses average figures for occupancy and housing sizes obtained from a number of the relevant local authorities. Appendix 2 in the SAMM guidance details the calculations and provides background data. As there are no reliable figures for occupancy rates in Bracknell Forest, no local occupancy rates have been applied and sub regional averaged figures have been used to calculate the SAMM contributions. The 'example' SAMM tariff is set out in the guidance as follows. These are the tariffs which Bracknell Forest will apply.
Table 13 SAMM Tariff
No. of Bedrooms Tariff
1 £399
2 £526
3 £711
4 £807
5+ £1,052
68 218 www.bracknell-forest.gov.uk/spa C. Total SPA Avoidance and Mitigation Costs Per Bedroom
Table 14 Total SPA Avoidance and Mitigation Costs per Bedroom
SPA Avoidance No. SANGs tariff per SAMM Tariff Total SPA Tariff and Mitigation Bedrooms bedroom per bedroom per bedrrom Measures
Enhancement and 1 £1,570 £399 £1,969 sustainable management of 2 £2,070 £526 £2,596 SANGs in perpetuity + 3 £2,800 £711 £3,511 strategic access 4 £3,190 £807 £3,997 management and monitoring (SAMM) 5+ £4,150 £1,052 £5,202 contributions per bedroom
23. SPA Avoidance and Mitigation costs may need to be reviewed and updated periodically.
www.bracknell-forest.gov.uk/spa 219 69 Copies of this booklet may be obtained in large print, Braille, on audio cassette or in other languages. To obtain a copy in an alternative format please telephone 01344 352000
Development Plan Team Planning and Transport Policy Environment, Culture and Communities Bracknell Forest Council Time Square Market Street Bracknell RG12 1JD
© Design and Print Services 220 Annexe 3 Bracknell Forest Borough Local Development Framework Thames Basin Heaths Special Protection Area (SPA) Avoidance and Mitigation Supplementary Planning Document (SPD)
Statement of Representations July 2011
1. Background
Under the Town and Country Planning (Local Development Framework) (England) Regulations 2004 (as amended) a local planning authority shall not adopt a Supplementary Planning Document (SPD) until:
• Representations made in respect of the draft SPD have been considered (Regulation 18(4)(a)); and, • A statement is prepared setting out a summary of the main issues raised in these representations and how these issues are addressed in the SPD to be adopted (Regulation 18(4)(b).
2. Consultation
Consultation on the draft Thames Basin Heaths Special Protection Area (SPA) Avoidance and Mitigation SPD took place between 02 November 2009 and 14 December 2009 . Details of the consultation were sent to key stakeholders including: Parish Councils, other local authorities, developers, housing associations, local environmental groups and government agencies. The draft document was also made available on the Council’s website, in local libraries and Council reception areas and the consultation was published on 05 November 2009 in the Bracknell Standard paper which is delivered to all households in the Borough.
Consultation on the draft Sustainability Appraisal (SA) was carried out alongside the draft SPD. The full document was emailed to statutory consultees and a non-technical summary was sent to all key stakeholders.
Twenty consultation responses were received in connection with the SPD. These were subsequently collated and, where appropriate, changes were made to the SPD. Table 1 summarises the main issues raised during the consultation (in the second column) and how these issues were addressed in the SPD (in the third column).
Due to changes in planning policy at the national and regional levels, the SPD is being further revised taking account of all the consultation comments and the new policy framework. It is intended that there will be a further period of consultation on the Draft SPD later in 2011.
3. Partnership Working
In the preparation of the SPD, the Council has worked in partnership with a range of key and statutory organisations on SPA related issues, as follows:
• Bracknell Forest Council officers. • Officers from other authorities affected by the Thames Basin Heaths Special Protection Area.
221 • The South East England Partnership Board. • Natural England, the Royal Society for the Protection of Birds SPB and the Berks, Buck, Oxon Wildlife Trust (BBOWT). • Land owners such as the Ministry of Defence and the Crown Estate.
The formal arrangement for this partnership working has been facilitated under the Joint Strategic Partnership Board.
The formation of the SPD has taken account of a number of factors such as the adoption of the South East Plan and a strategic dialogue facilitated through the Joint Strategic Planning Board with the organisations listed above. Many of the above organisations have responded to consultation on the SPD.
222 Table 1: Summary of Representations and Council Responses
Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
1. Charles Croudace is supportive of the proactive approach This comment is supportive. No changes necessary. Planning that the Council has adopted in relation to Associates (on development within the zones of influence of the behalf of TBH SPA. Croudace Strategic Ltd) Croudace raises specific concerns over the Under current policy the contribution is £1,536 / net apparent difference between the draft SPD and the additional dwelling. The draft SPD 2009 set out the 2009/10 Council’s current adopted approach, which in costings at a contribution of £2,636 / net additional dwelling. financial terms, equates to an increase of £1,100 The majority of the increase can be attributed firstly to the per dwelling (approx 41% increase) average £630 per dwelling contribution towards the Strategic Access Management and Monitoring (SAMM)
223 Project (for which the Council has been unable to take contributions up to now due to no mechanism available at sub-regional level to enable this); and secondly to the requirement to maintain open spaces for an ‘in perpetuity’ period of 80 years. Current policy applies a 20 year plan period.
In the Draft SPD 2011, the costs change again and are applied differently due to the following; • a longer ‘in perpetuity’ period of 125 years has been applied due to a change in the legislation which defines the ‘in perpetuity’ period (Perpetuities and Accumulations Act 2009). • The contributions have been applied on a ‘per bedroom’ basis. This reduces the contributions for a 1 bedroom house but increases them for a 5+ bedroom house. These changes have been made in response to a legal opinion. Why is the contribution towards maintenance of the The period for the maintenance of SANGs is currently set at SANGs for a period of 80 years whereas previously 20 years because this was the plan period. The SPD is this was 20 years? required to comply with South East Plan Policy NRM6 which states that mitigation measures must be provided ‘in Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
perpetuity’ . In the Draft SPD 2009, this period was set at 80 years based on the Perpetuities and Accumulations Act 1964. A longer ‘in perpetuity’ period of 125 years has been applied in the Draft SPD 2011 due to a change in the legislation which defines the ‘in perpetuity’ period (Perpetuities and Accumulations Act 2009). Regarding the additional contribution now required There is no double counting. The contribution to the SAMM for the Strategic Access Management and Project is in addition to the costs identified for the SANGs. Monitoring Report (SAMMs), it is considered that As stated in South East Plan Policy NRM6, access there could be an element of double counting. The management measures and monitoring must be provided costs identified for each SANG could also strategically to ensure that adverse impacts on the SPA are potentially be covered by the SAMMs contribution. avoided. The average £630 contribution / dwelling is solely for the purpose of running the SAMM project at a sub- regional level. No changes necessary. Open space requirements (section 6.6): please Disagree. Wokingham Core Strategy Inspector’s report is note the Wokingham Core Strategy Inspector’s not directly applicable to Bracknell Forest as Wokingham’s 224 report (27 October 2009) on this matter. The open space standards are different to those in Bracknell Inspector highlights that “ where SANG also meets Forest. Open land to avoid and mitigate adverse impacts the definition of open space, it can also count on habitat protected by the SPA designation is not the same towards this provision i.e. at least 1 ha/1,000 of the as open space provision to meet recreational needs. Each SANG could also contribute towards the Natural serves a different purpose and is defined as such. Greenspace requirement and vice versa ”. This Therefore the capacity of the SANG is based on 8ha/1000 conclusion is equally applicable to Bracknell Forest persons after discounting any relevant OSPV as set out in and thus the SPD should be amended to reflect this Appendix 4. Management of the SANGs is required to bring advice. the sites up to a higher quality which will encourage more visitors and divert visits away from the SPA. If contributions This is likely to require the balancing of the open towards the management of open space provision are space requirement and the SPA financial reduced, the baseline quality of OSPV will be reduced. This contribution to be assessed on a site by site basis baseline is a consideration in providing the necessary rather than applying the standard measures to bring SANGs up to the required standard. More requirements/financial contributions. explanation has been added to section 3.5. 2. Coal No specific comments at this stage. No changes necessary. Authority 3. Crowthorne CPC are satisfied with the methodology and This comment is supportive. No changes necessary. Parish Council conclusions, that the subject has been well researched and covers all aspects of the issue. Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
4. English No comment. No changes necessary. Heritage 5. Environment The allocation of SANGS in a Flood Zone is not We note that the allocation of SANGS in a Flood Zone is not Agency however contrary to PPS25 and in fact it can serve contrary to PPS25 and in fact it can serve as a benefit. as a benefit. The ability of some of these SANGS to SANGs guidance produced by Natural England does not support intensive recreation may be compromised include flood risk assessments and flood risk has therefore by PPS25 and this should be considered. We note not been included as part of the suitability assessments. there has been no assessment of Flood Risk or the Flooding on the SANGs is likely to be temporary so would water environment in your SANGS suitability be available for people to use for most of the year. There assessments. could be potential issues with increased visitor pressures on river banks etc, but the SANGs contributions could be used to pay for the management of this. No changes necessary. We would welcome future consultation with BFC Noted. Unfortunately, each of these sites already has a when plans are being proposed for SANGS sites management plan in place. These are scheduled for review
225 which have a wetland interest, e.g. Englemere after a 5 year period. BFC already works with the EA on Pond, The Cut, Horseshoe Lake, Sandhurst and day to day management of the majority of these sites. No Shepherd’s Meadows. changes necessary. As many of your proposed SANGS are adjacent to Disagree. This should not be a blanket buffer zone, watercourses, we will require, where possible, that preventing access to open space. Open space is an 8 metre buffer zone is placed alongside all compatible with an 8m buffer zone. No changes necessary. watercourses and built form/development (including footpaths and fences). That space should then not be made available to the public and as such, should not be included in calculations. 6. EPR (on Both EPR and our client welcome the emerging This comment is supportive. No changes necessary. behalf of SPD which bring BFC into line with the South East Haslams Plan and the Thames Basin Heaths SPA Delivery Chartered Framework. Surveyors) The 8 ha / 1000 Dwellings Standard: (paragraphs Noted. As stated in the Draft SPD 2011 section 3.5, SANGs 2.5.4, the box at 5.2.11, and 5.8.1). BFC considers quantity and quality standards as set out in the SPD are a that 8ha of Suitable Alternative Natural Greenspace useful starting point for the assessment of bespoke (SANG) per 1000 new residents is a suitable solutions. However, these standards may not be sufficient standard for its own suite of strategic SANGs, but to demonstrate that the requirements of the Habitat states that this figure ‘ is not directly applicable Regulations are met. (This was agreed by the Secretary of where bespoke solutions are proffered ’. No State – see TRL site appeal, application reference Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
explanation for any difference between the hectare 07/01196/OUT). A Habitats Regulations Assessment will be requirements for BFBC SANG and bespoke SANG required to ensure that there is no likely significant effect or is offered in the SPD. no adverse impact on the integrity of the SPA.
We would welcome further information from the The Core Strategy Appropriate Assessment (See Technical Borough on the factors which the Council will take Background Document to the Core Strategy DPD (June into account in determining the adequacy of a 2007) lists (in Table 10) the potential adverse effects on site bespoke SANG, where these are different from, or integrity (fragmentation between heathland, fragmentation additional to, the criteria set out in the SPD. within heathland, supporting habitats, predation, hydrology, pollution, enrichment, disturbance, trampling, vandalism, public hostility and management costs), and characteristics which could lead to adverse effects (increase in population surrounding the site which in turn could lead to an increase in recreational and urbanisation impacts) arising from plans.
Likely significant effects and adverse impacts on the 226 integrity of the SPA may vary for different sites. As stated in the Draft SPD 2011 section 3.5, any sites coming forward with their own bespoke measures for the provision of SANGs will be dealt with on a case-by-case basis following guidelines on Appropriate Assessment and in consultation with Natural England. No changes necessary. SANG Provision v Recreational Open Space: Disagree. BFC has adopted the strategy of using passive Paragraph 6.6.1 explains that SANG cannot be open space as SANG on the basis that the capacity of counted towards passive open space provided in existing passive OSPV has been discounted before accordance with the requirements of Planning assessing the capacity of the SANG. Open land to avoid PPG17. BFC fail to acknowledge that general and mitigate adverse impacts on habitat protected by the open space users would also freely use the SPA designation is not the same as open space provision to enhanced facilities provided within a SANG meet recreational needs i.e. they serve different functions designed to attract SPA users, if they were and needs and are provided to differing standards and available. definitions. SANGs calculations take into account the existing capacity of the OSPV. Management of the SANGs BFC’s position appears inconsistent with its own is required to bring the sites up to a higher quality which will strategic impact avoidance and mitigation strategy, encourage more visitors and divert visits away from the outlined in Section 5 of the SPD. This relies on the SPA. If contributions towards the management of open enhancement of existing passive open spaces to space provision are reduced, the baseline quality of OSPV Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
create SANG. Some of these passive open spaces will be reduced. This baseline is a consideration in were provided as Public Open Space (POS) for providing the necessary measures to bring SANGs up to the earlier developments. required standard. More explanation has been added to the Draft SPD 2011 section 3.5. Section 2 of the Annex to PPG17 sets out the types of open space that may be of public value as passive open space. It is our opinion that SANGs will frequently provide features of these types, and that SANG and open space of public value are therefore not mutually exclusive.
BFC’s position in the SPD also differs from Natural England’s position (see their email to EPR of 2 Oct 2007 on this subject, as it pertained to the
227 redevelopment of the RAF Staff College in Bracknell, attached to this representation). This clearly states that Natural England does not object to SANG also being counted as passive open space. Timing of SANG Provision and Contributions: We Disagree. The Thames Basin Heaths SPA Delivery welcome the sensible requirement set out in Framework (2009) states that “sufficient SANG must be paragraph 6.6.2 that bespoke SANGs must be in provided in advance of a dwelling completion”. In the case place before property is occupied. However, of bespoke SANGS, these are under the control of the paragraphs 6.7.6 and 6.9.1 state that the developer and it is possible therefore for the developer to contribution to the Strategic Access Management ensure that the SANG is in place before the property is and Monitoring Project (SAMM) and BFC’s occupied. The Strategic Access Management and strategic avoidance and mitigation fund will not Monitoring Project (SAMM) is a strategic pool of funds. The normally be later than the commencement of the contributions to this need to be at an earlier stage to allow project, although phased instalments will be time for the funds to be allocated to elements of the SAMM considered. No justification is given for this project so that this is in place on occupation of the inconsistency. Given that the impact to be avoided development. The Strategic Access Management and and / or mitigated can only occur after occupation, Monitoring Project requires the installation of new the requirement for contributions on infrastructure such as pressure pads at appropriate access commencement of the project is illogical. points, the appointment of consultants to carry out the visitor behaviour surveys, the appointment of wardens to be in place when the new residents take up occupation etc – all Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
these things require pre organisation and funding. No changes necessary. In the instance of a bespoke SANG, the developers Disagree. As set out in the Draft SPD 2011 section 3.4, a will already have made a financial commitment to contribution towards the SAMM project will be required from maintain their SANG site. No further SAMM all new net residential development, including developments contributions can be justified by the Council in with a bespoke SANG. This is necessary for two reasons: respect of bespoke SANGs where they do not rely as SANGs provision alone cannot be relied upon to entirely on any component of the strategic SANG network. avoid harm to the SPA, it must be supplemented with education and wardening on the SPA itself, and; to ensure that visitor management on the SPA is co-ordinated across the area, so that displacement of visitors from one area of the SPA to another is avoided. The SAMM project differs to the requirement for SANGs in that its purpose is to improve the quality of the SPA directly. No changes necessary. Calculation of adequate ongoing funds for the Disagree. The Draft SPD 2011 Appendix 7 explains that the management of bespoke SANG (paragraphs 6.10.1 additional 35% contingency is applied to forward plan and 228 – 6.10.3). BFC states here that 80 years is not deliver the total Avoidance and Mitigation Strategy. No considered to be a sufficient period in the changes necessary. calculation of contributions to cover ‘in perpetuity’. However, no guidance is given on what period would be acceptable for calculating ongoing funding for a bespoke SANG. We consider that clear justification for this guidance is essential in order for the impact avoidance and SPD to be transparent and robust. SANG Area Calculations Based on Average Disagree. The Thames Basin Heaths SPA Delivery Persons per Dwelling: (table 6 at 5.9.1 and Framework (February 2009) states that ‘ the average Appendix 2 paragraph 14.2). We note that the occupancy rate should be assumed to be 2.4 persons per figure used for the calculation of the necessary dwelling unless robust local evidence demonstrates area of SANG provision in terms of average otherwise’ . This is based on the occupancy rate across the persons per new dwelling is given as 2.31 in the 11 affected local authorities in 2006. The Core Strategy table at 5.9.1. The basis for this figure is stated in Appropriate Assessment (See Technical Background Appendix 2 as ODPM research ‘ on projected future Document to the Core Strategy DPD (June 2007), section household sizes in the South East and for Bracknell 14 shows evidence specific to Bracknell Forest, produced by Forest, based on past demographic trends and the (former) ODPM, which demonstrates that a decline in 2003 data ’. We are concerned that the evidential household size is predicted over the plan period (2010 – Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
basis for reliance on this figure is not sufficiently 2026) and that the average for this period is 2.31. Natural clear in the SPD, and as such may not be robust. England has made no representations against this figure. No changes necessary. 7. EPR (on Overall, the Consortium welcomes the emerging This comment is supportive. No changes necessary. behalf of the SPD and the changes within it which bring BFC into North line with the South East Plan and the Thames Bracknell Basin Heaths SPA Delivery Framework. Consortium The 8 ha / 1000 Dwellings Standard: (paragraphs Noted. As stated in the Draft SPD 2011 section 3.5, SANGs 2.5.4, the box at 5.2.11, and 5.8.1). BFC considers quantity and quality standards as set out in the SPD are a an average of 8ha per 1000 new residents across useful starting point for the assessment of bespoke the Borough is a suitable standard for its own suite solutions. However, these standards may not be sufficient of Suitable Alternative Natural Greenspaces to demonstrate that the requirements of the Habitat (SANG), but states that this figure 'is not directly Regulations are met. (This was agreed by the Secretary of
229 applicable where bespoke solutions are proffered'. State – see TRL site appeal, application reference No explanation for any difference between strategic 07/01196/OUT). A Habitats Regulations Assessment will be and bespoke SANG is offered. The North Bracknell required to ensure that there is no likely significant effect or Consortium would welcome guidance on the no adverse impact on the integrity of the SPA. factors which will be taken into account in determining the adequacy of a bespoke SANG, The Core Strategy Appropriate Assessment (See Technical where these are different from, or additional to the Background Document to the Core Strategy DPD (June criteria set out in the SPD. 2007) lists (in Table 10) the potential adverse effects on site integrity (fragmentation between heathland, fragmentation within heathland, supporting habitats, predation, hydrology, pollution, enrichment, disturbance, trampling, vandalism, public hostility and management costs), and characteristics which could lead to adverse effects (increase in population surrounding the site which in turn could lead to an increase in recreational and urbanisation impacts) arising from plans.
Likely significant effects and adverse impacts on the integrity of the SPA may vary for different sites. As stated in the Draft SPD 2011 section 3.5, any sites coming forward with their own bespoke measures for the provision of SANGs will be dealt with on a case-by-case basis following guidelines on Appropriate Assessment and in consultation Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
with Natural England. Core Strategy Policy CS5: Land North of Disagree. The clear intention of the Councils strategy for Whitegrove and Quelm Park (paragraphs 5.1.2 - avoiding and mitigating on larger developments is they bring 5.1.7). The final bullet point under 5.1.2 claims that their own bespoke solutions as reflected in the Core Core Strategy policy CS5 requires bespoke Strategy and South East Plan. No changes necessary. avoidance and mitigation measures. This is confusing as nothing in the policy, which is quoted accurately at paragraph 4.3, suggests that a bespoke solution is required. It merely states that measures to avoid and mitigate impacts on the SPA will be provided. The policy does not prohibit contributions to BFC's strategic avoidance and mitigation fund. Paragraph 5.1.4 of the SPD appears to confirm this. The Consortium therefore suggests that the word 'bespoke' is removed from the final bullet point under 5.1.2. 230 Capacity of The Cut Cluster, tables 4 and 5: The In the Draft SPD 2011, the figures have been recalculated, Cut Cluster is identified as having capacity for an amended and rounded up as follows: additional 2080 people if enhancements are Total visits to the open space per year are 116,000. implemented. By our calculations this figure should 116,000 / 168 (no. of visits per year by average visitor) = be 2101. 691. Divide the area by the capacity to mitigate (22.3 / 8 x 1000) = 2788. 2788 (capacity to mitigate) – 691 (no. of current visitors) = 2,097. Appendix 6 shows and lists the component parts of Noted. Although Garth Pond is an important link site, it does the Cut Cluster. There is no explanation for the not form part of the capacity of the SANG. There is a omission of Garth Pond, which is clearly shown on mapping error in the Technical Background Document. No the map in Appendix 8 to the June 2007 Thames changes necessary. Basin Heaths Technical Background Document. At paragraph 5.2.7 and in Appendix 6, the Cut Appendix 4 states that ‘the visitor catchment zone for larger Cluster is assessed as having a 'catchment area' of areas of open space has been set at 5km, as this was the 5km. The Consortium feels that this group of open distance within which the majority of visitors were found to spaces is unlikely to be a destination to which arrive’. This is confirmed in Appendix 5, ‘ 50% of people many people would choose to travel this distance. arrive by car, and 44% by foot. All visitors have travelled within 5km, with the majority travelling less than 10 minutes to get to the site’. Natural England has not objected to this catchment area. No changes necessary. Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
SANG v Passive Recreation : Paragraph 6.6.1 Disagree. BFC has adopted the strategy of using passive explains BFC's position that SANG can not be open space as SANG on the basis that the capacity of counted towards open space provided in existing passive OSPV has been discounted before accordance with the requirements of PPS 17. The assessing the capacity of the SANG. Open land to avoid document seems to have missed the real point, and mitigate adverse impacts on habitat protected by the which is that general open space users would SPA designation is not the same as open space provision to gladly use the enhanced facilities provided within in meet recreational needs i.e. they serve different functions a SANG to attract SPA users, if they were and needs and are provided to differing standards and available. Indeed, this paragraph seems definitions. SANGs calculations take into account the inconsistent with BFC's strategic impact avoidance existing capacity of the OSPV. Management of the SANGs and mitigation strategy, outlined in Section 5 of the is required to bring the sites up to a higher quality which will SPD. This relies on the enhancement of existing encourage more visitors and divert visits away from the passive open spaces to create SANG. SPA. If contributions towards the management of open space provision are reduced, the baseline quality of OSPV
231 The North Bracknell Consortium considers that this will be reduced. This baseline is a consideration in approach is appropriate and is in line with the providing the necessary measures to bring SANGs up to the following advice given by Natural England and the required standard. More explanation has been added to the government. Natural England clearly states that it Draft SPD 2011 section 3.5. does not object to SANG also being counted as passive open space. Whilst, in his report on the RAF Staff College inquiry (Appendix 3), the Inspector, at paragraph 15.3.19 he made it clear that he believed that the SANG shortfall was just 2.36ha. This means that he accepted that the proposed SANG could also be counted as passive open space. His position on this was endorsed by the Secretary of State.
The Council is therefore right to propose to use POS for SANG, as part of its own avoidance and mitigation strategy. However it is inconsistent then to claim in paragraph 6.6.1 of the SPD that these land uses are so incompatible that separate provision is required in bespoke SANG. The North Bracknell Consortium therefore suggests that paragraph 6.6.1 should be amended to read as Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
follows: 'Open space provided to meet the requirements of PPS 17 may also be counted as SANG, providing it meets Natural England's criteria set out in Appendix 5.' Calculation of annual costs for the management of Under current policy the contribution is £1,536 / net strategic SANG: This is set out in Table 9 of the additional dwelling. The draft SPD 2009 set out the 2009/10 SPD. It is clear that, even without taking the costings at a contribution of £2,636 / net additional dwelling. additional amount needed from SAMM into The majority of the increase can be attributed firstly to the account, the annual contributions to SANG average £630 per dwelling contribution towards the management costs have increased enormously, Strategic Access Management and Monitoring (SAMM) despite the fact that only two thirds as much SANG Project (for which the Council has been unable to take is required. The North Bracknell Consortium would contributions up to now due to no mechanism available at like this to be reconsidered and/or justified. sub-regional level to enable this); and secondly to the requirement to maintain open spaces for an ‘in perpetuity’ period of 80 years. Current policy applies a 20 year plan period. 232 In the Draft SPD 2011, the costs change again and are applied differently due to the following; • a longer ‘in perpetuity’ period of 125 years has been applied due to a change in the legislation which defines the ‘in perpetuity’ period (Perpetuities and Accumulations Act 2009). • The contributions have been applied on a ‘per bedroom’ basis. This reduces the contributions for a 1 bedroom house but increases them for a 5+ bedroom house. These changes have been made in response to a legal opinion. Calculation of adequate ongoing funds for the The Draft SPD 2011 section 3.5 states that any sites management of bespoke SANG (Paragraph 6.10.1 providing their own bespoke measures for the provision of - 6.10.3) The document states here that 80 years SANGs will be dealt with on a case by case basis. is not considered to be a sufficient period in the calculation of contributions to cover 'in perpetuity'. However, no guidance is given on what period would be acceptable for calculating ongoing funding for a bespoke SANG. The North Bracknell Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
Consortium considers that this guidance is essential in order for the impact avoidance and SPD to be transparent and robust. 8. EPR (on Both EPR and our client welcome the emerging This comment is supportive. No changes necessary. behalf of the SPD which bring BFC into line with the South East West London Plan and the Thames Basin Heaths SPA Delivery Mental Health Framework. Trust - WLMHT) The 8 ha / 1000 Dwellings Standard: (paragraphs Noted. As stated in the Draft SPD 2011 section 3.5, SANGs 2.5.4, the box at 5.2.11, and 5.8.1). BFC considers quantity and quality standards as set out in the SPD are a that 8ha of Suitable Alternative Natural Greenspace useful starting point for the assessment of bespoke (SANG) per 1000 new residents is a suitable solutions. However, these standards may not be sufficient standard for its own suite of strategic SANGs, but to demonstrate that the requirements of the Habitat
233 states that this figure ‘ is not directly applicable Regulations are met. (This was agreed by the Secretary of where bespoke solutions are proffered ’. No State – see TRL site appeal, application reference explanation for any difference between the hectare 07/01196/OUT). A Habitats Regulations Assessment will be requirements for BFC SANG and bespoke SANG is required to ensure that there is no likely significant effect or offered in the SPD. no adverse impact on the integrity of the SPA.
We would welcome further information from the The Core Strategy Appropriate Assessment (See Technical Borough on the factors which the Council will take Background Document to the Core Strategy DPD (June into account in determining the adequacy of a 2007) lists (in Table 10) the potential adverse effects on site bespoke SANG, where these are different from, or integrity (fragmentation between heathland, fragmentation additional to, the criteria set out in the SPD. within heathland, supporting habitats, predation, hydrology, pollution, enrichment, disturbance, trampling, vandalism, public hostility and management costs), and characteristics which could lead to adverse effects (increase in population surrounding the site which in turn could lead to an increase in recreational and urbanisation impacts) arising from plans.
Likely significant effects and adverse impacts on the integrity of the SPA may vary for different sites. As stated in the Draft SPD 2011 section 3.5, any sites coming forward with their own bespoke measures for the provision of SANGs will be dealt with on a case-by-case basis following Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
guidelines on Appropriate Assessment and in consultation with Natural England. Impact of Commercial Development: (5.4.1): The Agree. The final paragraph in section 5.4.1 has been final paragraph sets out the possible impacts deleted. The table in the Draft SPD 2011 section 3.4 states arising from commercial development within 400m that such proposals are subject to Habitats Regulations of the SPA. However, no reference is made to Assessment in order to establish likely significant effect on impacts arising from other types of development, the SPA. They may be required to provide appropriate nor is any further reference made in Section 5.4 to avoidance and mitigation measures and are considered on a impacts arising from non-residential developments. case by case basis in consultation with NE. We therefore do not understand why this paragraph has been included here. The WLMHT suggests that this paragraph is deleted. SANG v. Passive Recreation: Para. 6.6.1 explains Disagree. BFC has adopted the strategy of using passive BFBC’s position that SANG can not be counted open space as SANG on the basis that the capacity of towards open space provision in accordance with existing passive OSPV has been discounted before the requirements of PPS17. This position relies on assessing the capacity of the SANG. Open land to avoid 234 research which has shown that ‘ SPA visitors seek and mitigate adverse impacts on habitat protected by the sites with different characteristics than general SPA designation is not the same as open space provision to open space users ’. Whilst this is almost certainly meet recreational needs i.e. they serve different functions true, the document seems to have missed the real and needs and are provided to differing standards and point, which is that general open space users definitions. SANGs calculations take into account the would gladly use the enhanced facilities provided existing capacity of the OSPV. Management of the SANGs within a SANG to attract SPA users, if they were is required to bring the sites up to a higher quality which will available. encourage more visitors and divert visits away from the SPA. If contributions towards the management of open Indeed, this paragraph seems inconsistent with space provision are reduced, the baseline quality of OSPV BFC's strategic impact avoidance and mitigation will be reduced. This baseline is a consideration in strategy, outlined in Section 5 of the SPD. This providing the necessary measures to bring SANGs up to the relies on the enhancement of existing passive open required standard. More explanation has been added to spaces to create SANG. Some of these passive section 3.5. open spaces were provided as Public Open Space (POS) for earlier developments.
Section 2 of the Annex to PPG17 sets out the types of open space that may be of public value. This includes: 'ii. natural and semi-natural urban Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
greenspaces - including woodlands, urban forestry. scrub, grasslands (eg downlands, commons and meadows) wetlands, open and running water, wastelands and derelict open land and rock areas (eg cliffs, quarries and pits);' Many areas of SANG will fit this type of OSPV exactly.
The PPG17 Annex goes on, in section 3, to advise that: ' 'Local authorities should also recognise that most areas of open space can perform multiple functions. They should take account of the various functions of open space when applying the policies in this document.'
235 The Council is therefore right to propose to use POS for SANG, as part of its own avoidance and mitigation strategy. However it is inconsistent then to claim in paragraph 6.6.1 of the SPD that these land uses are so incompatible that separate provision is required in bespoke SANG.
The WLMHT therefore suggests that paragraph 6.6.1 should be amended to read as follows: 'Open space provided to meet the requirements of PPS 17 may also be counted as SANG, providing it meets Natural England's criteria set out in Appendix 5. ' Calculation of adequate ongoing funds for the The Draft SPD 2011 Appendix 7 explains that the additional management of bespoke SANG (Paragraph 6.10.1 35% contingency is applied to forward plan and deliver the - 6.10.3): The document states here that 80 years total Avoidance and Mitigation Strategy. is not considered to be a sufficient period in the calculation of contributions to cover 'in perpetuity'. However, no guidance is given on what period would be acceptable for calculating ongoing funding for a bespoke SANG. The WLMHT considers that this guidance is essential in order for Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
the impact avoidance and SPD to be transparent and robust. 9. Forestry Please note the best practise work that has been BFC has noted this best practise work. No changes Commission developing to deal with the potential development necessary. within the PUSH area of Southern Hampshire. The SPD should consider the South East Plan Agree, although the South East Plan policies NRM5 and policies CC8 Green Infrastructure, TSR2 Rural NRM6 outlined in the SPD are considered to be the most Tourism, TSR4 Rural Attractions, TSR5 Tourist important regional spatial policies for this SPD. No changes Accommodation, TSR6 Visitor Management, C4 necessary. Landscape and Countryside Management, C5 Managing the Rural-Urban Fringe, C6 Countryside Access and Rights of Way Management, W11 Biomass and CC2 Climate Change. Does the SPD meet the health needs identified in Disagree. The SPD does not seek to reduce public access the Core Objectives (p15) and in particular section to the natural environment and will therefore not have a “x”, “Health provision and access will be improved ”. detrimental impact on health. The Draft Sustainability 236 If the SPD seeks to reduce public access to the Appraisal Report assesses the SPD against SA Objective 3 natural environment, how will this be resolved with “To protect and enhance human health and wellbeing ”. No the need for access to the countryside for health changes necessary. and exercise? Sufficient access to the natural environment close to where people live needs to be considered within Appendices 5 and 8. Section 1.2. It should be noted that none of the Noted, although this is not the purpose of the SPD. These SPA is natural but was driven by the commercial issues are more relevant to the Strategic Access need for the products and services it provided. Management and Monitoring (SAMM) project. No changes There should be references to meeting social and necessary. economic requirements. The future management of the SPA could be financed by the market pull of products such as fibre for building and biomass for fuel. SE Plan Policy NRM5 Conservation and the This SPD is only concerned with the Thames Basin Heaths improvement of biodiversity should be seen in SPA Avoidance and Mitigation Strategy. Wider biodiversity balance with the other SE Plan policies and not and social issues are addressed in other parts of the Local stand alone. This SPD does not address the Development Framework. No changes necessary. balance required and this will affect the rural economy of the area. Neither does it appear to Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
address the social requirements necessary for residential development (district heating, woodfuel, health and wellbeing etc). SPA avoidance and mitigation strategy: This has Disagree. The Thames Basin Heaths Special Protection not been agreed and therefore, it is suggested Area Delivery Framework was agreed in February 2009 and should not be exposed to consultation in an the South Plan was adopted in July 2009. In the light of unfinished format. these new policy documents and significant sub-regional work to progress these issues, Bracknell Forest Council is reviewing its TBH SPA Avoidance and Mitigation Strategy. No changes necessary. Education: This is focussed on heathland Noted, although this is not the purpose of the SPD. These education, despite 40% of the SPA being issues are more relevant to the Strategic Access woodland. There is also a focus on conservation, Management and Monitoring (SAMM) project. No changes neglecting the messages which the next generation necessary.
237 must understand, about what productive and sustainable land management is? NE must help deliver the objectives of the Government's strategic statement, England's Trees Woods and Forests. Monitoring SPA Avoidance and Mitigation Noted, although this is not the purpose of the SPD. These Measures: Landowners and managers must be issues are more relevant to the Strategic Access consulted about how this monitoring takes place Management and Monitoring (SAMM) project. No changes and who does it. necessary. Appendix 1, TBH SPA Delivery Framework: Noted, although this is not the purpose of the SPD. These There need to be greater thought given to how issues are more relevant to the Strategic Access Local Planning Authorities will limit car parking / Management and Monitoring (SAMM) project. No changes pathways on land they do not manage. Such action necessary. may be against the objectives and policies of landowners. Appendix 2, Appropriate Assessment: There needs Appendix 2 (Appropriate Assessment of the SE Plan to be clarification on how AA will resolve conflict Housing Allocation) in the Draft SPD 2009 has been between Natura 2000 sites and SE Plan policies. removed. In May 2010, the Secretary of State for Communities and Local Government (CLG) announced his intention to abolish Regional Spatial Strategies (RSSs). This has been confirmed as a material consideration.
The housing figure in the adopted Core Strategy adjusted Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
for the carry over from the previous plan period (giving 10,780) is the housing target for Bracknell Forest. The Core Strategy Appropriate Assessment (See Technical Background Document to the Core Strategy DPD (2007) which was carried out in 2007 is therefore still current. Appendix 8: SAMM Monitoring Strategy: The Noted, although comments on the Strategic Access SAMM Monitoring Strategy is still in draft form and Management and Monitoring (SAMM) Strategy will need to has not been finalised. A SPA wide wardening be directed towards Natural England. No changes service is not appropriate given the different necessary. objectives and roles of the many landowners and managers within the SPA. There also needs to be recognition that woodlands are more robust than open habitats and can absorb more people and activities per unit area. Disturbance to birds in woodlands is at a low level (much lower than open habitats) and is easier to manage. Forestry 238 Commission woodlands within the SPA have some of the highest visitor numbers but also the highest bird densities. 5.4.1 Bracknell Forest should consult with the Noted, although this is not the purpose of the SPD. These South East England Wildfire Group upon this issues are more relevant to the Strategic Access section before forming this as policy. This would Management and Monitoring (SAMM) project. No changes ensure a strategic approach with Fire and Rescue necessary. Services across the SPA as well as Landowners. 10. Mr Hope that the restrictions on pet ownership can be Noted. This measure is not likely to be enforceable in all Gristwood agreed. housing stock. The Council could use restrictions on pet ownership, in addition to other measures, in cases where it is deemed to be an enforceable avoidance measure. This could include flatted developments with a management company or sheltered housing developments. 11. No comment as the SPD is providing guidance on No changes necessary. Government the interpretation of policy contained within the Office for the Bracknell Forest Core Strategy (2008) and the South East South East Plan (2009). (GOSE) 12. Highways The HA welcomes the measures to protect the SPA This comment is supportive. No changes necessary. Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
Agency and has no specific comments. 13. HLL We consider the document to be generally sound This comment is supportive. No changes necessary. Humberts and acceptable. Leisure (on behalf of The Trustees of IRK Maclaren and Warfield Park Homes Ltd) We would like to see account made of the existing Disagree. Open land to avoid and mitigate adverse impacts provision of open space at existing defined on habitat protected by the SPA designation is not the same communities. Warfield Park, like other large as open space provision to meet recreational needs. Each established sites, already provides significant open serves a different purpose. SANGs calculations take into
239 space provision and community facilities and these account the existing capacity of the open spaces. should be taken in to account when determining Management of the SANGs is required to bring the sites up whether further provision is required. to a higher quality which will encourage more visitors and divert visits away from the SPA. Natural England has not objected to this approach. No changes necessary. Client supports the measure of entering into This comment is supportive. No changes necessary. Access Management agreements with local landowners. Client supports the provision of education This comment is supportive. No changes necessary. contributions with regard to biodiversity issues. Client supports restrictions on pet ownership but Disagree. Harm to the SPA caused by pets could potentially feels that it should just be restricted to flatted arise from all types of developments. Restrictions on pet developments. Also, the charge should be linked ownership is however not likely to be enforceable in all to the prosperity of any type and size of housing to housing stock. The Council intend to use restrictions on pet have dogs. ownership, in addition to other measures, in cases where it is deemed to be an enforceable avoidance measure. This could include flatted developments with a management company or sheltered housing. No changes necessary. Bespoke solutions: Consider inserting a short Disagree. The quality and quantity of some open space paragraph after 5.8.1 to say “ The Council will take may not be sufficient and a bespoke solution may be account of any existing open space on established required to comply with Habitats Regulations. No changes residential sites (such as Park Home sites) or necessary. Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
clearly defined residential estates. Where these are considered to have public value, they will be considered in any calculation as to public open space requirements” . Concerned that contributions per dwelling are Park homes are considered to be dwellings. In order to calculated regardless of dwelling type or size. Do reduce complexity, calculations are based on average dwellings include park (mobile) homes? Concern dwelling type and size. No changes necessary. that no exception is made for affordable housing, low cost market housing or specialised home for the elderly. 14. Natural Para. 5.2.1. Natural England are happy with the This comment is supportive. No changes necessary. England content of this paragraph but wanted to draw your
attention to a letter sent to thBracknell Forest Borough Council on the 17 July 2009 in regard Natural England’s policy on the double counting of open space provision. Natural England does not 240 have a written policy on this matter. We will continue to discuss cases on an individual basis, and we will obviously concentrate on requesting the relevant levels of SANG provision as outlined in the Thames Basin Heaths Delivery Framework and Policy NRM6 of the South East Plan. As the other open space requirements are requested by Local Planning Authorities, it will be up to you as the competent authority as to whether the green space provision in each application is relevant and does not undermine the SPA mitigation. Para. 5.2.8. It is reported in this document that a Agree. Appendix 4 has been amended to refer to the 2.3 – well designed walk of 2,500 metres is required for a 2.5km range. functional Suitable Alternative Natural Greenspace (SANG) site. The actual Natural England SANGs guidelines state 2.3 – 2.5 km walk. We recommend therefore you refer to this range rather than just the higher value. Para. 6.7.4. Again walks ‘of over 2.5km’ are Agree. Appendix 4 has been amended to refer to the 2.3 – referred to within this paragraph of the document. 2.5km range. Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
We recommend you refer to the range of distances discussed in the SANGs guidelines. 15. RSPB We welcome the considerable work that the This comment is supportive. No changes necessary. Council has put into the development of this SPD and the Council’s continued commitment to employing a ‘best practice’ approach to the implementation of the recent guidance relating to the Thames Basin Heaths SPA. Bespoke schemes: The SPD refers in a number of Agree. Section 3.5 of the Draft SPD 2011 clarifies the places to the need for some large schemes to reasons for developers providing bespoke mitigation. deliver bespoke mitigation and to undergo an individual appropriate assessment. We welcome this clarification. However, there is some inconsistency in the reasons given for developers
241 providing bespoke mitigation. Variously the SPD suggests that large schemes should deliver bespoke mitigation simply due to their scale presenting “the opportunity to maintain some of the proposed site as mitigation open space ” (para 5.1.1), and elsewhere stating that, in the case of larger schemes, “ compliance with a general standard may not be sufficient to demonstrate that the requirements of the Habitats Regulations are met ” (box text, para 5.2.11). It is clear from cases such as the TRL Site, Crowthorne, that some large schemes in close proximity to the SPA may require a higher standard of mitigation than is required in the case of more dispersed development within the 5km zone. In such instances, the need to provide a bespoke approach is not simply due to the fact that the developers may have the ability to deliver SANGs within the development. To avoid any confusion, we therefore recommend that this point be clarified in the SPD, particularly under section 5.1. Section 5.8 states that “ Contributions towards the Disagree. The Draft SPD 2011 section 3.4 provides Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
SAMM project will be required even where bespoke clarification and the justification for requiring a contribution SANGs provision is proposed ”. However, in some towards the Strategic Access Management and Monitoring cases it may be appropriate for a developer to fund project from all new net residential development, including additional on-site SPA mitigation measures, such development where SANGs provision is bespoke. No as car park alterations, in order to prevent an changes necessary. adverse effect on the SPA. We would therefore recommend that the SPD provides further clarification of this potential additional requirement. 400m exclusion zone: We acknowledge that, in This section has been amended. Development within 400m addition to reducing the number of visitors to the of the SPA is now set out in section 3.2. SPA, the general presumption against further residential development within the 400m zone will also reduce the potential increase in cat predation, fires and other urban effects associated with housing in close proximity to heathland. However, this distance was not established on the basis that 242 it would entirely remove these effects, which will still arise, to a lesser degree, from new development beyond 400m. We therefore advise that section 5.4 be revised to ensure that the effect of this measure in removing these further impacts is not overstated. Biodiversity interest of SANGs: We welcome the Disagree. At Englemere Pond the SSSI interest is in the Council’s commitment to protecting the existing pond (wetland habitat) and Natural England has agreed that nature conservation interest of proposed SANGs in further visitor access will not negatively affect the the Borough (in line with the Delivery Framework), conservation interest provided that certain management with paragraph 5.2.9 specifically identifying SANGs measures are put in place, as detailed in the Open Space ecology as a possible limitation on visitor capacity. Management Plan. The sentence, “ The amount of visitors Nevertheless, despite the fact that two SANGs the site could take may be restricted due to the nature within the Borough (Englemere Pond and conservation interest” has been removed as it is misleading. Shepherds Meadows) include SSSI sites, no assessment appears to have been made of any Natural England was also consulted on using Shepherds necessary discount to the capacity of these sites in Meadows for SANG and have approved the open space order to protect their nature conservation interest. management plan. No changes necessary. The full assessment of Englemere Pond SANG (Appendix 6) acknowledges that “ The amount of Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
visitors to the site could be restricted due to the nature conservation value ”, however, no further reference appears to be made to the possible need to discount the available area of SANGs at this or any other site. SANGs costings: We are concerned that there may In the Draft SPD 2011, the mitigation capacity of the total be an error in the calculation of the SANGs costs SANGs area available in Bracknell Forest has been as part of the overall per dwelling tariff. Table 5 estimated (after discounting current use) (see Table 4 indicates that the identified SANGs will, in total, Appendix 4). A ‘per person’ and ‘per dwelling’ cost has then mitigate for 16,090 additional visitors, at a total cost been calculated in Appendix 5. It is recognised that there is of £1,181,000. This cost then appears to be broken likely to be a surplus capacity of SANGs in this plan period down (Table 9) based on the 6,284 new dwellings which will be carried forward into the next plan period. that, it is calculated, will require strategic mitigation There cannot therefore be an overestimate of SANGS costs in the Borough over the next 16 years. However, as the ‘per person’ costs will be applied whenever the
243 the total SANGs area (approx 167ha) does not development comes forward (in this period or the next). appear to directly relate to the area required (based on the 8ha/1000 people standard, and an average occupancy of 2.4 people/dwelling) as a result of the 6,284 new dwellings predicted to come forward, and consequently there would appear to be a degree of surplus in the identified SANGs capacity over the plan period. Unless additional capacity has been built into this calculation to ensure that a sufficient area of SANGs will be delivered at a level appropriate to the Borough, we are concerned that the current calculation may over-estimate the per dwelling costs. We note that Great Hollands recreation ground Noted. There is no intention to increase the size of the car SANG lies in very close proximity to the SPA. park or to create a footpath linkage between this site and the Although there may be some benefits in the SPA. Although Great Hollands recreation ground has been location of this site, such as the possibility of identified as a SANG in Appendix 4, it has not been brought attracting some existing users of the SPA, great in to the cost calculations since is it not required for SPA care must be taken to ensure that the mitigation purposes at this stage. enhancement of this site does not inadvertently encourage more people onto the SPA by, for example, providing improved nearby parking Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
facilities and/or by creating potential footpath linkage between the sites. 16. South East The document could usefully make reference to the This is set out in the Draft SPD 2011 section 1.6. England potential for cross boundary working to deliver Partnership SANG in Bracknell Forest and surrounding districts Board in the longer term, reflecting paragraph (vii) of policy NRM6 in the South East Plan, and the approach set out in the delivery framework. 17. Surrey We support the Borough’s approach to policy and This comment is supportive. No changes necessary. County mitigation. Council 18. Tetlow Paragraph 1.1.2: We support the South East Plan This comment is supportive. No changes necessary. King Planning approach which encourages ‘a sustainable balance (on behalf of between planning for economic, environmental and the Thames social benefits will be sought, to help improve Valley Housing quality of life for everyone in the South East’. 244 Association) Paragraph 1.1.3: We support the Core Strategy Noted. However, the Council has a duty to comply with the objective to aid in the delivery of affordable housing Habitats Regulations 2010. No changes necessary. and acknowledge the councils approach to mitigate the effects of new development upon the natural and historic environment. However, it should be considered that the benefits of providing affordable housing in itself may carry more weight than the potential impact on the environment. The Council will need to ensure there is a proper consideration to ensure the right balance between these objectives. Paragraph 1.1.4: While we acknowledge that Agree that there are social and economic benefits to measures should be taken to avoid and mitigate providing housing. The Council are however required to impacts of new residential developments on the ensure that Habitats Regulations are met. The purpose of Thames Basin Heaths SPA, we feel the council this SPD is to provide guidance on how the impacts of new should consider the benefits of providing housing residential development on the Thames Basin Heaths SPA and balance against the potential impacts. should be avoided and mitigated – in line with Habitats Regulations. No changes necessary. Paragraph 1.4.4: We feel further emphasis should Disagree. There is a presumption against residential Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
be placed on policy NRM6 and how it identifies that development within 400m of the SPA and non residential development within the 400m zone may be developments within this zone are considered on a case by acceptable where there is evidence that case basis in consultation with NE and are subject to ‘demonstrates the extent of the area within which it Habitats Regulations Assessment in order to establish likely is considered that mitigation measures will be significant effect on the SPA. Then they may be required to capable of protecting the integrity of the SPA’ . Also provide appropriate avoidance and mitigation measures. it should be included here that policy NRM6 also This is set out in Draft SPD 2011 section 3.4. states, ‘developments of fewer than 10 dwellings should not be required to be within a specified distance of SANG land provided it is ensured that a sufficient quantity of SANG land in place to cater for the consequent increase in residents prior to occupation of the dwellings’ Paragraph 2.1.3 – 2.1.4: We acknowledge the This is set out in the Draft SPD 2011 section 2.1. No
245 regulations in the Habitats Directive, that where a changes necessary. potential risk is identified the project must go under an Appropriate Assessment, however it is noted that this does not prevent development if potential risk is identified and the project and mitigation should be considered for the Authority to approve a development. Paragraph 2.3.4: As discussed, there is a large Agree. The purpose of the SPD is to ensure that the housing target for the borough, and to meet this, Council can deliver its housing provision without giving rise the Council will have to consider developments to an adverse impact on the integrity of the SPA. No which have potential impacts on the SPA. The changes necessary. Council will have to ensure there is a balance over the required need for housing and avoiding impacts on the SPA. Paragraph 2.5.4: We support the revised minimum This comment is supportive. No changes necessary. standard of 8ha per 1000 residents, and how this standard is flexible where bespoke solutions are proposed. 3.1.2. The screening opinion concluded the South The Habitats Regulations Assessment has concluded that East Plan housing allocation for Bracknell Forest some new residential developments in Bracknell Forest are Borough was likely to have a significant effect on likely to have a significant effect on the integrity of the the Thames Basin Heaths Special Protection Area. Thames Basin Heaths SPA. The purpose of the Avoidance Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
No significant effect was identified on the integrity and Mitigation SPD is to provide guidance on how the of any other Natura 2000 sites. This aspect will impacts of new developments on the Thames Basin Heaths have to be taken into consideration with proposed SPA should be avoided and mitigated. No changes residential developments, that some impacts are necessary. expected to occur on the SPA to meet housing requirements. Section 4: Findings of the Appropriate Assessment: Disagree. The findings of the Core Strategy Appropriate There is no presumption against new residential Assessment are set out in the Draft SPD 2011 section 2.3. development within 400 metres of the SPA Reference to South East Plan Policy NRM6 is made in boundary contained in CS14: this was a deliberate section 1.3. NRM6 (which was adopted after the Bracknell omission by the Inspector. Further reference should Forest Core Strategy DPD) sets out an 400m exclusion be made to South East Plan Policy NRM6 which zone. No changes necessary. identifies that development within the 400m zone can be considered acceptable where evidence demonstrates that mitigation measures will protect the SPA. 246 Paragraph 5.1.1: We support the application of Agree. This is not limited to strategic sites. In the Draft SPD sites providing their own bespoke solutions to avoid 2011 section 3.5 it states that “the Council expects that and mitigate their effects on the SPA, but feel this some large windfall sites will come forward with the should not be limited to strategic sites. opportunity to incorporate a bespoke mitigation solution ”. No changes necessary. Paragraph 5.1.9: We support the Councils Agree. This is not limited to strategic sites. In the Draft SPD approach to consider the acceptability of bespoke 2011 section 3.5 it states that “the Council expects that solutions on a case-by-case basis. Again, we feel some large windfall sites will come forward with the this should be applied for all proposed opportunity to incorporate a bespoke mitigation solution ”. No developments and not just sites identified in the changes necessary. Site Allocations DPD. Paragraph 5.2.1: We support the approach where Disagree. BFC has adopted the strategy of using passive developers can provide new SANGs as part of a open space as SANG on the basis that the capacity of bespoke solution, specifically where it meets the existing passive OSPV has been discounted before SANG criteria. Where SANGs are provided on site assessing the capacity of the SANG. Open land to avoid with new residential developments, there should be and mitigate adverse impacts on habitat protected by the some flexibility in meeting normal open space SPA designation is not the same as open space provision to requirements, as the SANG is provided for new meet recreational needs i.e. they serve different functions residents in the development further open space and needs and are provided to differing standards and may not be required where the SANG is in place. definitions. SANGs calculations take into account the Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
existing capacity of the OSPV. Management of the SANGs is required to bring the sites up to a higher quality which will encourage more visitors and divert visits away from the SPA. If contributions towards the management of open space provision are reduced, the baseline quality of OSPV will be reduced. This baseline is a consideration in providing the necessary measures to bring SANGs up to the required standard. No changes necessary. Paragraph 5.2.3 – 5.2.5: The agreed Delivery Disagree. The Council has used the Thames Basin Heaths Framework (Appendix 1) also contains some SPA Delivery Framework to formulate the SPD. No guidelines for the provision of SANGs. We feel the changes necessary. guidelines set out in the agreed Delivery Framework should be incorporated further into this document to ensure that all aspects of providing
247 SANGs including in advance of occupation and catchment areas are adequate when applied to Bracknell Forest Borough. Paragraph 5.2.8: The Delivery Framework (JSPB This comment is supportive. No changes necessary. 2009) states that SANGS on existing, publicly accessible sites is appropriate where there will be no harm to nature conservation interest and there is capacity and potential for improvement. This is subject to meeting the quality standards derived from Natural England’s SPA visitor preference research. We support the approach of SANGs on existing, publicly accessible sites. Paragraph 5.2.11: We support the average open This comment is supportive. No changes necessary. space standard of 8 hectares per 1000 new population across the Borough is appropriate for the provision of strategic SANGs. Paragraph 5.2.12 – 5.2.13: We support the Noted. No changes necessary. approach for continuous review of the SANG where future development is not further restricted. TVHA would also be happy to work in partnership Noted. No changes necessary. with the Borough to ensure that affordable housing needs are met while also mitigating the impacts of Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
new development on the SPA. Paragraph 5.3.2: The Council should take into Noted. consideration that RSLs can strictly control the ownership of pets through tenant contracts in its managed dwellings. Therefore, any potential harmful impact from dogs and cats can be removed from new affordable housing developments through enforceable agreements. The SPD should make reference to this. 5.4.3. We disagree that no exceptional Disagree. Although it is recognised that there are social and circumstances exist with in Bracknell Forest economic benefits of providing affordable housing, this is a Borough. Each case should be considered on its separate issue. Any net increase in dwellings (incl. own merits, case by case. As South East Plan affordable housing) would need to demonstrate that there NRM6 explains, exceptional circumstances should was no adverse effect on the integrity of the SPA according be considered where there is supporting evidence; to Habitats Regulations. No changes necessary. therefore it cannot be discounted before any 248 evidence is presented to the council. Bullet 3 in Exceptional circumstances could exist where, for example, 5.4.2 actually supports the view that inevitably the access to the SPA was blocked by an ‘impassable exceptional circumstances will exist. The Council is feature’ such as a railway, dual carriage way or canal. aware of our client’s proposal to develop sites in South East Plan Policy NRM6 states that, “In exceptional South Meadow and Lower Broadmoor Road. These circumstances, this (the 400m exclusion zone) may vary are longstanding brownfield sites owned by TVHA with the provision of evidence that demonstrates the extent where the redevelopment to use the land more of the area within which it is considered that mitigation efficiently to provide 100% affordable housing is measures will be capable of protecting the integrity of the proposed. Because of the acknowledged high need SPA. These small locally determined zones will be set out in for affordable housing and lack of sufficient sites to local development frameworks (LDFs) and SPA avoidance provide housing to meet this need, provision here strategies and agreed with Natural England”. BFC have would amount to an exceptional circumstance found no evidence of exceptional circumstances in the justifying a modification to the boundary. Coupled borough to vary the 400m exclusion zone. No changes with this is the ability of TVHA to prevent cat or dog necessary. ownership in any of the new dwellings through the leases which can be enforced. This too is an The prevention of cat or dog ownership is not considered to exceptional circumstance. We would welcome be an exceptional circumstance. This is a type of mitigation. further discussions with the borough to set a local No changes necessary. boundary as advocated in policy NRM6. 5.4.4. We disagree with the ‘presumption against Disagree. The SPD does not exclude development within Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
residential development within 400metres of the 400m of the SPA. It does however presume against SPA boundary.’ As identified in the Inspectors residential development in this area because, as stated in Report for the Core Strategy DPD Examination in the Thames Basin Heaths SPA Delivery Framework, the 2007 that ‘ to completely exclude development impact of net new residential development on the SPA is within 400m would be contrary to the tests set out likely to be such that it is not possible to conclude no within the Habitats Regulations’ . Core Strategy adverse effect on the integrity of the SPA. Non residential Policy CS14 does not identify that there will be a development in this zone is subject to Habitats Regulations presumption against development within 400 Assessment in order to establish likely significant effect on metres. Although it identifies where adverse the SPA and may be required to provide appropriate impacts upon the SPA are found development will avoidance and mitigation measures. Considered on a case not be allowed, it leaves it open for a consideration by case basis in consultation with NE. of mitigation measures to ensure impacts are reduced to an acceptable level, to allow needed development to proceed. We believe the SPD, as
249 worded, is attempting to extend the adopted policy inserted by the Inspector after public examination in a way clearly outside the way intended.
As mentioned above the South East Plan, policy NRM6 (which post-dates the Core Strategy) also recognises that where ‘ evidence demonstrates that mitigation will be capable to protect the integrity of the SPA, the residential development will be considered’. 5.4.4 We disagree with excluding sites which fall Agree. This issue should be dealt with through the Site solely within the 400m zone from the Site Allocations DPD. The following paragraph has been Allocations Plan. removed from section 5.4.4, “ In addition, sites which have been proposed, which fall solely within the 400 metre zone, will be excluded from the Site Allocations DPD”. 5.4.4 The council have provided no justification as Noted. Exceptional circumstances could exist where, for to how they have determined that no exceptional example, the access to the SPA was blocked by an circumstances exist in the borough to justify no new ‘impassable feature’ such as a railway, dual carriage way or residential development, particularly affordable canal. South East Plan Policy NRM6 states that, “In housing, within the 400m of the SPA. We would like exceptional circumstances, this (the 400m exclusion zone) to further reiterate the importance of treating each may vary with the provision of evidence that demonstrates proposed development on a case by case basis, the extent of the area within which it is considered that Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
judged on its own merits. mitigation measures will be capable of protecting the integrity of the SPA. These small locally determined zones will be set out in local development frameworks (LDFs) and SPA avoidance strategies and agreed with Natural England”. BFC have found no evidence of exceptional circumstances in the borough to vary the 400m exclusion zone. No changes necessary. Paragraph 5.4.5: We do not accept the way the Disagree. This study is the most relevant work available and results of the Liley, Jackson and Underhill-Day there has been no criticism of its use from Natural England. work has been used to justify how many more No changes necessary. people are likely to visit the SPA having regard to the housing requirements of the SEP. It is too simplistic and moreover is statistically flawed. Paragraph 5.4.5: while the council has looked at Disagree. Although, local housing needs are important, this potential benefits by excluding the 400m zone, no is a separate issue. Any net increase in dwellings (incl. consideration has been given to local housing affordable housing) would need to demonstrate that there 250 needs. was no adverse effect on the integrity of the SPA according to Habitats Regulations. No changes necessary. Paragraph 5.6.2: It should be made clearer that the Disagree. All development proposals within 400m, whether consideration of the loss of feeding habitat or on greenfield sites or previously developed land, will layback land will only apply to developments undergo an assessment of their likely significant effect on proposed on greenfield sites and not previously the integrity of the Thames Basin Heaths SPA. No changes developed sites. necessary. Paragraph 5.8.1: We support the approach to This comment is supportive. No changes necessary. bespoke solutions and how these will be dealt with on a case-by-case basis. 6.4 Consideration should be given where a SANG The Draft SPD 2011 section 3.2 already includes bespoke is provided within 400m. This measure will remove avoidance and mitigation measures. No changes adverse effects on the SPA, where the SANG necessary. meets the requirements and criteria set out. 6.6 We support the approach to bespoke SPA This comment is supportive. No changes necessary. protection measures. 6.7 We support the approach to payment Noted. The payment contributions are however set up to contributions towards Avoidance and Mitigation. provide for an Avoidance and Mitigation Strategy in order to However, considering the benefits of provision of comply with Habitat Regulations. If a strategy were not in affordable housing, we would ask the Council to place, it is unlikely that any residential development would Organisation Comment Summary on Draft TBH SPA Response or amendments incorporated in the Draft SPD or Name Avoidance and Mitigation SPD (2009) 2011
take into account that additional contributions be allowed. No changes necessary. should not make the scheme unviable. 6.9. We acknowledge this approach. No changes necessary.
6.10 Off-site mitigation on sites owned or leased This comment is supportive. No changes necessary. to/by the Council. We support this approach. 6.11 Monitoring SPA Avoidance and Mitigation This comment is supportive. No changes necessary. measures. We acknowledge and support this approach. 6.12 Managed Housing – Additional SPA Disagree. This paragraph does not concern itself with the Avoidance and Mitigation Measures. We support zones of the SPA. Legal obligations to apply additional this approach but it should be made clear that it will avoidance and mitigation measures will be applied once apply to sites within the 400m zone as well as planning permission is granted. Restrictions on, for those outside it. In addition it should be example, pet-keeping, are in addition to other requirements 251 acknowledged that if the evidence is available, for SPA mitigation. such measures may well be sufficient to amount to the SPA mitigation required. 19. Theatres No comment. No changes necessary. Trust 20. Woking No comments. The SPD appears This comment is supportive. No changes necessary. Borough to be in line with guidance produced by Natural Council England.
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252 Annexe 4
DATED 2011
NATURAL ENGLAND -and- HAMPSHIRE COUNTY COUNCIL -and- BRACKNELL FOREST BOROUGH COUNCIL -and- ELMBRIDGE BOROUGH COUNCIL -and- GUILDFORD BOROUGH COUNCIL -and- HART DISTRICT COUNCIL -and- ROYAL BOROUGH OF WINDSOR AND MAIDENHEAD -and- RUNNYMEDE BOROUGH COUNCIL -and- RUSHMOOR BOROUGH COUNCIL -and- SURREY HEATH BOROUGH COUNCIL -and- WAVERLEY BOROUGH COUNCIL -and- WOKING BOROUGH COUNCIL -and- WOKINGHAM BOROUGH COUNCIL
AGREEMENT
Sharpe Pritchard Elizabeth House Fulwood Place London WC1V 6HG Tel: 020 7405 4600 Fax: 020 7405 4646 Ref: JS/100840/5 Email: [email protected]
253 THIS AGREEMENT is made the day of 2011 BETWEEN:
(1) NATURAL ENGLAND of 1 East Parade, Sheffield S1 2EZ; and
(2) HAMPSHIRE COUNTY COUNCIL of The Castle, Winchester, Hampshire, SO23 8UB (“the Administrative Body”); and
(3) BRACKNELL FOREST BOROUGH COUNCIL of Town Square, Bracknell, Berkshire RG12 1AQ; and
(4) ELMBRIDGE BOROUGH COUNCIL of Civic Centre, High Street, Esher, Surrey, KT10 9SD ; and
(5) GUILDFORD BOROUGH COUNCIL of Millmead House, Millmead, Guildford, Surrey GU2 4BB ; and
(6) HART DISTRICT COUNCIL of Civic Offices, Harlington Way, Fleet, Hampshire GU51 4AE; and
(7) ROYAL BOROUGH OF WINDSOR AND MAIDENHEAD of Town Hall, St Ives Road, Maidenhead, Berkshire SL6 1RF; and
(8) RUNNYMEDE BOROUGH COUNCIL of Runnymede Civic Centre, Station Road, Addlestone, Surrey KT15 2AH; and
(9) RUSHMOOR BOROUGH COUNCIL of Council Offices, Farnborough Road, Farnborough, Hampshire GU14 7JU; and
(10) SURREY HEATH BOROUGH COUNCIL of Surrey Heath House, Knoll Road, Camberley GU15 3HD; and
(11) WAVERLEY BOROUGH COUNCIL of The Burys, Godalming, Surrey GU7 1HR; and
(12) WOKING BOROUGH COUNCIL of Civic Offices, Gloucester Square, Woking, Surrey GU21 6YL;and
(13) WOKINGHAM BOROUGH COUNCIL of Shute End, Wokingham RG40 1BN
254 RECITALS:
(A) Under EU Directive 2009/147/EC dated 30 November 2009 on the conservation of wild birds (“the Birds Directive”) member states are under a duty to protect and manage wild bird species.
(B) The Thames Basin Special Protection Area (“the SPA”) was classified on the 9 March 2005. The area designated as the SPA contains important populations of three of the species considered to be vulnerable or rare and listed in Annex 1 to the Birds Directive.
(C) Natural England and the LPAs have agreed to work together to put in place a strategic access management and monitoring programme for the SPA for the purposes of ensuring effective avoidance of any significant effects of new development on the SPA and compliance with the requirements of the Birds Directive and to finance this by means of a tariff levied in respect of developments that could have an impact on the SPA.
(D) It is intended that at the end of the Project Duration sufficient amounts of tariff will have been collected for implementation of the strategic access management and monitoring programme delivered by the Project to allow for the establishment of a permanent endowment to enable the strategic access management and monitoring programme to continue to be implemented for an indefinite period.
(E) The purpose of this Agreement is to enable the parties referred to in Recital (C) to give effect to these arrangements.
(F) The LPAs have power to enter into these arrangements under S2 of Local Government Act 2000, S111 of the Local Government Act 1972 and the Conservation of Habitats and Species Regulations 2010, and contract solely in their capacity as Local Planning Authorities and not in any other capacity.
255 1 Definitions
“Administrative Body” Hampshire County Council or such other organisation as may assume responsibility for receipt of the tariff collected by the LPAs and payments under the direction of the JSPB in accordance with the terms of this Agreement;
“Commencement Date” means the date of this Agreement;
“Current Expenditure Account” means the Administrative Body’s L790B internal cost centre against which the Administrative Body is required to pay a proportion of the Guideline Tariffs in accordance with clause 3.2 and out of which it is required to pay both itself in accordance with clause 6.2 and Natural England in accordance with clause 4 and clause 7.2;
“Delivery Bodies” Natural England, and any other body which may be employed by Natural England to carry out services connected with the delivery of the Project;
“EIR” the Environmental Information Regulations 2004 or any re-enactment or replacement of these regulations;
“Endowment Account” means the Administrative Body’s L790A internal cost centre against which a proportion of the Guideline
Tariffs are to be paid by the Administrative Body in
accordance with Clause 5 and any other account into
which those monies are paid or any investment
purchased with those monies;
“Financial Plan and Budget” the financial plan and budget for each year of the Project approved by the JSPB
256 “Financial Reporting the requirements set out at Schedule 2; Requirements”
“Financial Year” the period from 1 April in any year until 31 March in the following year;
“FOIA” the Freedom of Information Act 2000 and any re- enactment or replacement of the Act;
“Guideline Tariff” an amount payable by way of an obligation pursuant to s106 of the Town and Country Planning Act 1990 in respect of each unit of residential accommodation within a Relevant Development to ensure that there is no significant effect to the SPA, in accordance with the Natural England Guideline Methodology set out in Schedule 1 provided always that such amount may be adjusted in the light of all relevant circumstances relating to the proposed development and shall be a matter for each individual LPA to determine;
“Index” means the Consumer Prices Index published by the Office for National Statistics;
“Indexed” means adjusted by the change to the Index over the preceding twelve month period using the last version of the Index to be published preceding the date on which the adjustment is to be undertaken;
“Independent Financial Adviser” means an individual or firm licensed by the Financial Services Authority to carry out the business of advising on and selling financial products;
“JSPB” the Thames Basin Heaths Joint Strategic Partnership Board, comprising elected member representatives from the affected planning authorities with voting
257 rights, and representatives of key stakeholder interests without voting rights;
“Local Planning Authorities” means Bracknell Forest Borough Council, Elmbridge (LPAs) Borough Council, Guildford Borough Council, Hart District Council, Royal Borough of Windsor and
Maidenhead, Runnymede Borough Council, Rushmoor Borough Council, Surrey Heath Borough Council, Waverley Borough Council, Woking Borough Council and Wokingham Borough Council;
“Natural England Guideline the methodology for calculating the Guideline Tariff Methodology (“NEGM”) as set out at Schedule 1, or such revised methodology as may take its place following a review in accordance with clause 2.4 of this Agreement;
“Project” the delivery of a strategic access management and monitoring programme for the SPA further details of which are set out at Schedule 3;
“Project Current Expenditure” expenditure on payment of salaries, revenue and capital costs together with any VAT properly chargeable thereon in relation to the delivery of the Project as approved from year to year in each Financial Plan and Budget;
“Project Duration” means the period for which the JSPB agrees that the tariff will be required to be collected before sufficient funds exist in the Endowment Account to ensure the forward funding of the Project for an indefinite period. The period is initially set at 15 years from the Commencement Date but may be revised by the JSPB if required;
“Quarter” means a period of 3 months ending on 31 March, 30 June, 30 September and 31 December and
258 “Quarterly” shall be defined accordingly
“Relevant Development” any proposed residential development taking place more than 400 metres and less than 5 kilometres
from the boundary of the SPA authorised by a
planning permission in respect of which the application was received by the Local Planning Authority on or after the Commencement Date which will involve the construction of one or more units of
residential accommodation, or in the case of
replacement dwellings, which will result in a net gain of one or more units of residential accommodation. Residential developments between 5 kilometres and 7 kilometres from the boundary of the SPA involving the construction of 50 or more units of residential accommodation are assessed on an individual basis and constitute Relevant Development if in the opinion of the applicable LPA they are considered likely to have a significant effect on the SPA;
“Project Board” the strategic access management and monitoring project board appointed by the JSPB to make decisions and recommendations regarding the implementation of the Thames Basin Heaths Strategic Access Management and Monitoring Project.
2 Guideline tariff
2.1 Each LPA when granting a planning permission in respect of a Relevant Development shall apply the Natural England Guideline Methodology (NEGM). Any amounts payable to an LPA in accordance with the NEGM shall be payable by way of an obligation pursuant to s106 of the Town and Country Planning Act 1990.
259 2.2 In the event of an appeal against a refusal of a Relevant Development the LPAs shall use all reasonable endeavours to ensure that if planning permission is granted on appeal, such grant shall be subject to the application of the NEGM.
2.3 The NEGM shall be applied by the LPAs in a way that is consistent with each LPA’s Local Development Framework and any relevant Supplementary Planning Documents. The NEGM is subject to the statutory obligations of the LPAs and the application of the NEGM will take account of the individual circumstances of each application in respect of a Relevant Development.
2.4 The NEGM shall be reviewed every two years as a minimum from the Commencement Date of this Agreement unless further review is required by the JSPB or Natural England, for as long as Natural England is a party to the Agreement. When undertaking such review Natural England shall consult with the LPAs and take account of all comments made by the LPAs relating to the operation of the NEGM. Subject to the JSPB approving such review, Natural England shall then issue a revised NEGM to the LPAs.
3 Payment arrangements
3.1 On 31 March, 30 June, 30 September and 31 December each year throughout the Project Duration of this Agreement the LPAs shall pay to the Administrative Body all the amounts they have received by way of Guideline Tariff during the previous Quarter, together with any amounts they have received specifically for strategic access management and monitoring in connection with applications for planning permission received before the Commencement Date, exclusive of any interest accrued.
3.1.1 Additionally, on the first occasion that one of the payment dates listed in clause 3.1 occurs after the Commencement Date, the LPAs shall pay to the Administrative Body any and all amounts of Guideline Tariff they have received prior to the Commencement Date, in accordance with their Thames Basin Heath SPA avoidance and mitigation strategies amended to include collection of the Guideline Tariff for strategic access management and monitoring measures, exclusive of any interest accrued.
260 3.1.2 For the avoidance of doubt each of the LPAs shall pay to the Administrative Body the following amounts on the first occasion that one of the payment dates in clause 3.1 occurs after the Commencement Date, in accordance with clause 3.1.1 above:
a Bracknell Forest Borough Council shall pay £0.00 b Elmbridge Borough Council shall pay £[ ] c Guildford Borough Council shall pay £[ ] d Hart District Council shall pay £[ ] e Royal Borough of Windsor and Maidenhead shall pay £[ ] f Runnymede Borough Council shall pay £[ ] g Rushmoor Borough Council shall pay £[ ] h Surrey Heath Borough Council shall pay £[ ] i Waverley Borough Council shall pay £[ ] j Woking Borough Council shall pay £[ ] k Wokingham Borough Council shall pay £[ ]
3.2 During the first Financial Year after the Commencement Date, the Administrative Body shall pay up to 60% of the amounts it receives pursuant to clause 3.1 above into the Current Expenditure Account and the remainder into the Endowment Account immediately upon receipt. During the second Financial Year after the Commencement Date, the Administrative Body shall pay up to 50% of the amounts it receives pursuant to clause 3.1 above into the Current Expenditure Account and the remainder into the Endowment Account immediately upon receipt. In the third Financial Year after the Commencement Date, and for each Financial Year thereafter, the Administrative Body shall pay up to 30% of the amounts it receives pursuant to clause 3.1 above into the Current Expenditure Account and the remainder into the Endowment Account immediately upon receipt provided that, if Natural England considers that at the end of the third Financial Year after the Commencement Date the payments into the Current Expenditure Account are insufficient to meet the Project Current Expenditure up until that point, the JSPB shall direct the Administrative Body to make additional payments into the Current Expenditure Account from the Endowment Account, subject to the payment of additional sums into the Endowment Account over the following two Financial Years, using best endeavours to ensure that by the end of the fifth Financial Year after the Commencement Date payments into the Endowment Account are not less than 70% of the total amounts received in the fourth and fifth Financial Years. Natural England shall in any event use best endeavours to comply with the Financial Plan and
261 Budget and act in accordance with such plan. For the avoidance of doubt, the end of the third Financial Year after the Commencement Date will be 31 March 2014.
3.3 Within 14 days of the dates referred to in clause 3.1 above the LPAs shall in addition provide to the Administrative Body and Natural England the following details:
3.3.1 the number of Relevant Developments granted planning permission by the LPA during the preceding Quarter;
3.3.2 a description of each Relevant Development paying the Guideline Tariff including the number and type of units (i.e. house/flat/maisonette), numbers of bedrooms in each unit and location of the proposed development;
3.3.3 the amounts by way of Guideline Tariff which have been paid or will be payable in respect of all such Relevant Developments.
4 Current Expenditure
4.1 As soon as practicable after each of the dates referred to in clause 3.1 above, Natural England shall forward to the Administrative Body an invoice for the amounts it requires to meet its Project Current Expenditure during the preceding Quarter. Provided that at the time the invoice is received the total value of invoices relating to any one Financial Year does not exceed the amounts allowed for such payments in the Financial Plan and Budget for that year and that there are sufficient funds in the Current Expenditure Account the Administrative Body shall pay the said invoice within 28 days.
4.2 Natural England funded the post of Project coordinator for a period of one year from 1 July 2009. The costs of funding the Project coordinator for this year were £41,439.29. Natural England shall be reimbursed this amount as soon as possible after the Commencement Date on submission of an invoice to the Administrative Body and no later than 31 July 2013 provided sufficient funds are available within the Current Expenditure Account.
4.3 Natural England also funded a part-time Project coordinator post from 1 August 2010 to 31 March 2011, the cost of which was £10,741.76. The JSPB has agreed that Natural England will be reimbursed for this amount on submission of an invoice to the
262 Administrative Body as soon after the Commencement Date as there are sufficient funds in the Current Expenditure Account.
4.4 Following approval from the JSPB on 28 March 2011 Natural England may also recover its costs for funding the posts of Project coordinator and one warden incurred from 1 April 2011 up until the Commencement Date.
4.5 If Natural England enters into third party contracts in good faith, and the third party defaults on their contractual obligations for whatsoever reason, then, subject to the agreement of the JSPB, Natural England shall be reimbursed out of the Project Current Expenditure for any monies that it is required to expend either meeting the third parties contractual obligations or in taking reasonable steps to enforce the contract against the third party .
5 Endowment
5.1 The balance of the amounts received by the Administrative Body in accordance with clause 3.2 above shall be paid into the Endowment Account.
5.2 The amounts in the Endowment Account shall be used for the future funding of the Project and the long term protection and maintenance of the SPA. The Administrative Body will only make changes to the way in which the Endowment Account is managed under the direction of the JSPB.
5.3 It is envisaged that the Endowment Account will be managed by Independent Financial Advisers, rather than the Administrative Body, in order to maximise the return achieved within the investment guidelines set by the JSPB. In the short term the Administrative Body will collect the funds to form the Endowment Account as per 5.1. The JSPB will review the value and performance of the Endowment Account on a regular basis and will provide direction as to when, how and from whom the services of an Independent Financial Adviser are to be procured.
5.4 In the event that the Agreement is terminated in accordance with clause 10, then any sums of money held by the Administrative Body or invested on the advice of an Independent Financial Adviser will be liquidated and used to cover any outstanding financial commitments in accordance with clause 10.4 below,
263 6 The Administrative Body
6.1 The Administrative Body shall undertake the following functions in relation to the financial administration of the Project:
6.1.1 Acceptance of the Guideline Tariffs in accordance with clause 3.1 above and notification to Natural England of any non-payment of the Guideline Tariffs or failure to submit a nil return.
6.1.2 Administering the accounts into which the payments are made.
6.1.3 Making payments to Natural England in accordance with clauses 4 and 7.2.
6.1.4 Providing reports every 3 months to the Strategic Access Management and Monitoring Project Board and the JSPB in accordance with the Financial Reporting Requirements.
6.1.5 Providing such financial information as may reasonably be requested by the Strategic Access Management and Monitoring Project Board, the JSPB or Natural England, and in such format as may reasonably be required.
6.2 In consideration of the provision of the services set out in clause 6.1 above and after all current expenditure due for payment under clause 4 has been paid but before the Natural England management fee is paid in accordance with clause 7.2, the Administrative Body shall be entitled to receive the sum of £20,000.00 [indexed] from the Current Expenditure Account payable on each anniversary of the Commencement Date (subject to Clause 6.5) while it carries out the role of Administrative Body in accordance with the terms of this agreement.
6.3 In the event that there are insufficient sums available in the Current Expenditure Account to reimburse invoices submitted in accordance with clauses 4, 6.2 and 7.2 within 28 days of receipt, payment shall be made as soon as sufficient funds are available and in accordance with the priority established in clause 6.2.
6.4 At the end of each Financial Year all unpaid invoices shall be carried forward for payment in the following year. Such invoices shall rank for payment in accordance with clause 6.2 and ahead of all subsequent expenditure.
264 6.5 On the third anniversary of the Commencement Date and every third anniversary thereafter the Administrative Body shall be entitled to cease undertaking the functions of the Administrative Body under this Agreement provided that it has given at least six months prior written notice to Natural England and the LPAs. At least seven months prior to the third anniversary of the Commencement Date the annual sum payable to the Administrative Body for each subsequent three year period will be reviewed and revised by the JSPB to reflect future financial management requirements and in order to inform the Administrative Body’s decision about whether to continue undertaking its functions under this Agreement.
6.6 It is agreed and understood that the role of the Administrative Body is limited to the functions set out in Clause 6.1 above and that the Administrative Body is not assuming any role in providing either financial advice or strategic avoidance and mitigation advice.
6.7 The Administrative Body shall keep full records relating to the functions in this clause and allow Natural England and the LPAs, and their statutory auditors access at all reasonable times to such records and the right to take copies of them.
6.8 In the event that the Administrative Body for the time being states in accordance with clause 6.5 above that it no longer wishes to carry out its functions under the Agreement, then the LPAs shall use their best endeavours to ensure that the Project continues to be delivered and appoint an organisation with relevant experience and expertise to take over the role of Administrative Body. The LPAs shall carry out such advertising and competition in relation to the appointment of a successor to the Administrative Body as may be necessary to ensure that an open and transparent procedure is followed in relation to such appointment and all applicable laws and rules governing public sector procurement are complied with.
6.9 If the Administrative Body for the time being ceases to be responsible for delivery of the Project it shall cease to be a party to this Agreement and any organisation that takes over the functions of the Administrative Body shall be joined as a party to this Agreement.
7 Project delivery
265 7.1 Natural England shall be responsible for the delivery of the Project with a view to achieving the objectives set out at Schedule 3, Part 1 by undertaking the operations set out at Schedule 3, Part 2.
7.2 In consideration of the services set out in clause 7.1 above Natural England shall be entitled to receive a management fee of the sum of £10,000 [indexed], payable on each anniversary of the Commencement Date to cover additional costs incurred in delivering the service relating to procurement, finance, human resources & computer support services.
7.3 Natural England’s responsibilities under clause 7.1 above shall continue for three years with effect from the Commencement Date. No less than 6 months prior to the third anniversary of the Commencement Date, Natural England shall notify the Administrative Body and the LPAs whether it is able to continue to carry out the functions referred to at clause 7.1. In the event that it is able to then it shall carry out the functions for a further three year period and the provisions of clause 7.1 shall continue to apply for such period. The provisions of this clause 7.3 shall apply in relation to the expiry of such further three year period. The same provisions shall apply in relation to any subsequent three year period.
7.4 In the event that Natural England states in accordance with clause 7.3 above that it will no longer be able to continue to deliver the Project, then the LPAs shall use their best endeavours to ensure that the Project continues to be delivered and appoint an organisation with relevant experience and expertise to take over the role of Natural England. The LPAs shall carry out such advertising and competition in relation to the appointment of a successor to Natural England as may be necessary to ensure that an open and transparent procedure is followed in relation to such appointment and all applicable laws and rules governing public sector procurement are complied with.
7.5 Natural England shall ensure that any contracts entered into with third parties for the purposes of delivering the Project in accordance with clause 7.1 above are assignable, and if Natural England ceases to be responsible for delivery of the Project shall use best endeavours to ensure that all such contracts are assigned or novated to any organisation that takes over the functions of Natural England as a party to the Agreement.
266 7.6 If Natural England ceases to be responsible for delivery of the Project it shall cease to be a party to this Agreement and any organisation that takes over the functions of Natural England shall be joined as a party to this Agreement via a deed of variation or novation agreement agreed by all parties in accordance with clause 9.1 below.
7.7 Ownership of capital assets purchased with money paid to Natural England under this Agreement shall lie with Natural England. If Natural England ceases to be responsible for delivery of the Project ownership of such assets will be transferred at zero cost to any organisation that takes over the functions of Natural England as a party to the Agreement. Natural England will endeavour to maintain the capital assets in reasonable repair and condition (fair wear and tear accepted) throughout the time of its ownership but provides no warranty as to the condition of the assets at the date of any such transfer.
7.8 Natural England shall report on the progress of the implementation and delivery of the Project to each meeting of the JSPB in accordance with the template for such reports set out at Schedule 4. Natural England shall in addition provide such information about the Project to the Administrative Body and/or the LPAs as may be reasonably required.
8 Governance arrangements
8.1 The delivery of the Project shall be overseen by the Project Board. The terms of reference of the Project Board and its membership are set out at Schedule 5, Parts 1 and 2 respectively. The Project Board shall meet every three months during the first year of the Project and every six months thereafter, unless an extraordinary meeting is requested by any Project Board member or so directed by the JSPB. This provision shall remain in place unless the JSPB agree to change the frequency, structure or terms of reference of the Project Board.
8.2 The Project Board shall report to the JSPB which shall give final approval to the reviews and recommendations of the Project Board. The terms of reference of the JSPB and its membership are set out at Schedule 5, Parts 3 and 4 respectively.
8.3 The governance arrangements referred to in this clause are summarised in the diagram set out at Schedule 5, Part 5.
9 Variation
267 9.1 No variation to this Agreement shall take place without the consent in writing of all parties. Any such variation shall state that it is a variation for the purposes of this clause and shall be signed for and on behalf of the parties to this Agreement.
10 Contract term/termination
10.1 This Agreement shall come into force on the Commencement Date and shall continue in force unless terminated in accordance with this clause or ended by mutual agreement.
10.2 In the event that any party is in material and substantial breach of this Agreement then any other party may by notice in writing to all the other parties require such breach to be remedied by the party in breach within such reasonable period as may be set out in the notice. The notice shall set out what steps are required to remedy the breach. In the event that the party in breach fails to remedy the breach in accordance with the notice then the issue shall be subject to the dispute resolution procedure set out in clause 11.
10.3 This Agreement shall be subject to review every third anniversary of the Commencement Date. In the event that any party considers that the Agreement should be terminated then, subject to satisfying the provisions of Clause 11, it shall notify the other parties to this effect no later than six months prior to such anniversary, setting out its reasons. The parties shall consider the issue of termination and the Agreement shall terminate if and when a majority of two-thirds of the parties to this Agreement agree to such termination.
10.4 Following termination of the Agreement in accordance with this clause and in lieu of any substantially similar agreement taking this Agreement’s place then under the direction of the JSPB any sums of money held by the Administrative Body shall be used to discharge any liabilities incurred by Natural England or any Delivery Body in relation to the Project including the payment of redundancy payments to any employees undertaking work in connection with the Project and in the event that any balance is left this shall be paid to the LPAs in the proportion of their payments of the Guideline Tariffs during the period from the Commencement Date until the date of termination, for the LPAs to spend on implementing alternative avoidance measures under the direction of the JSPB.
11 Dispute Resolution
268 11.1 The following provisions shall apply in the event of any disputes arising between the parties relating to this Agreement;
11.1.1 The parties will endeavour to notify each other of any anticipated dispute arising under or in relation to the terms of this Agreement to the intent that it can be avoided by negotiation between them.
11.1.2 The parties will endeavour to resolve any dispute which does arise by direct negotiations in good faith between senior executives. The dispute may on the request of any party, be referred to mediation if it cannot be resolved by direct negotiation. The mediator shall be appointed, on the application of any party, by the Centre for Dispute Resolution. In the event of a referral to mediation each party shall pay its own costs in respect of the mediation.
11.2 Any dispute not resolved in accordance with clause 11.1 above shall be referred to and finally be resolved by arbitration in accordance with the Arbitration Act 1996. The identity of the arbitrator shall be agreed between the parties or in default of agreement appointed by the President of the Law Society.
12 Third Party Rights
12.1 The parties do not intend any term of this Agreement to be enforceable by any third party.
13 Entire Agreement
13.1 This Agreement constitutes the entire understanding and agreement between the parties relating to the subject matter of this Agreement and, save as may be expressly referred to stated or referenced herein, supersedes all prior representations, documents, negotiations or understandings with respect hereto and neither party has entered into this Agreement in reliance upon any representation whether written or oral by the other party or anyone acting or purporting to act on such other parties behalf.
14 Waiver
14.1 The failure of any party to insist upon strict performance of any provision of this Agreement, or the failure of any party to exercise any right or remedy to which it is
269 entitled hereunder, shall not constitute a waiver thereof and shall not cause a diminution of the obligation established by this Agreement.
14.2 A waiver of any default shall not constitute a waiver of any subsequent default.
14.3 No waiver of any of the provisions of this Agreement shall be effective unless it is expressly stated to be a waiver and communicated by the waiving party to the other party in writing.
15 Law and jurisdiction
This Agreement shall be considered as a contract made in England and according to English Law, and shall be subject to the exclusive jurisdiction of the English Courts to which all parties hereby submit.
16 Assignment
This Agreement is personal to the parties hereto and may not be assigned without the prior consent of all parties.
17 Freedom of Information and Transparency
17.1 The parties shall comply with their obligations under FOIA and the EIR.
17.2 In the event that a party receives a request for information under FOIA or the EIR that includes a request for information relating to any other party to the agreement, the party receiving the request shall forward it to that other party as soon as practicable and shall take account of any representations made by that other party received in time to respond to such request.
17.3 The parties shall provide each other with reasonable assistance in responding to
requests for information under FOIA or the EIR when requested to do so by a party to
this agreement.
17.4 Notwithstanding any other term of this Agreement the parties acknowledge and agree that except for any information which is exempt from disclosure in accordance with the provisions of FOIA or the EIR the content and/or text of this Agreement and any
270 Schedules thereto (including details of any payments made by or to the Administrative Body) does not constitute confidential information.
17.5 Notwithstanding any other term of this Agreement, each party acknowledges that any other party may publish this Agreement in its entirety, including from time to time any agreed changes to the Agreement, in order to comply with their transparency duties. Each party further gives its consent to the other parties to publish any payments made or received under the terms of this Agreement.
18 Data Protection
The parties shall comply with their obligations under the Data Protection Act 1998 insofar
as performance of this Agreement gives rise to obligations under this legislation.
IN WITNESS whereof the parties hereto have executed this deed the day and year first before written
271 SCHEDULE 1
National England Guideline Methodology
272 SCHEDULE 2 Financial Reporting Requirements
273 SCHEDULE 3 Project
Part 1 Objectives
Part 2 Operations
274 SCHEDULE 4 Report Template
275 SCHEDULE 5 Governance Arrangements
Part 1 Project Board Terms of Reference
Part 2 Joint Strategic Partnership Board Terms of Reference
Part 3 Diagram of Governance Arrangements
276 THE COMMON SEAL of NATURAL ) ENGLAND was hereunto affixed in the ) presence of: )
Executive Director Capability
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Authorised Signatory
Authorised Signatory
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Mayor
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279
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282 Agenda Item 8
TO: THEth EXECUTIVE 5 July 2011
OLDER PERSON ACCOMMODATION AND SUPPORT SERVICES STRATEGY Director of Environment, Culture and Communities
1 PURPOSE OF DECISION
1.1 The purpose of this report is to seek Executive consideration of the Older Persons Accommodation and Support Services Strategy.
2 RECOMMENDATIONS
2.1 That the Older Persons Accommodation and Support Services Strategy at Appendix A is agreed.
2.2 That the 2011/12 Capital Programme (£0.5m) and the indicative 2012/13 Capital Programme (£1.0m) be re-profiled to show expenditure of £1.5m to be allocated towards Older Persons Accommodation and Support Services Strategy in 2014/15.
3 REASONS FOR RECOMMENDATIONS
th 3.1. At its meeting on the 19 January 2010 the Executive agreed to establish a Programme Board to develop an Older Persons Accommodation and Support Services Strategy. The strategy was to be developed based on consultation on the full range of accommodation and support services that could be offered to older people in Bracknell Forest.
3.2. The Programme Board was chaired by the Executive Member for Adult Social Care, Health and Housing and consisted of the Pensioners’ Champion Cllr Cliff Thompson, Director of Adult Social Care, the Chief Officer: Housing, and representatives from Bracknell Forest Homes, Mc Carthy and Stone Developments Ltd, Richmond Care Villages Ltd, Bracknell Voluntary Action, and Churchill Retirement Homes.
4 ALTERNATIVE OPTIONS CONSIDERED
4.1. Given that the Executive has already decided that an Older Persons Accommodation and Support Services Strategy should be developed there is no alternative.
5 SUPPORTING INFORMATION
Older Persons Accommodation and Support Services Strategy
5.1 The Older Persons Accommodation and Support Services Strategy is at Appendix A of this report. The strategy is based on consultation with older people and the key points are as follows:
283 • The majority of older people own their home and wish to remain in it as long as possible;
• If new accommodation is to be provided for older people a range of different tenures should be developed including affordable rent and leasehold and shared ownership;
• The preferred location for new accommodation was found to be Bracknell Town Centre and Binfield;
• Provision of extra care housing will reduce admissions to residential care;
• It is estimated that up to 350 units of extra care housing will be needed in Bracknell Forest up to 2026 to meet demand;
• It is estimated that there will not be a need to increase the amount of affordable rented accommodation for older people and that demand is likely to decrease for that type of housing over the next 10 years;
5.2. The strategy complements the Bracknell Forest Homes strategy for their older person’s accommodation and also the accommodation and support priorities for the Adult Social Care Service.
Funding for the strategy
5.3. The Council had already earmarked £1.5 million from the stock transfer receipt to fund the Older Persons Accommodation Strategy. The funding had been split over the financial years 2011/12 and 2012/13. The intention was to part fund a new extra care scheme to be developed by a registered provider.
5.4. Bracknell Forest Homes have made a bid under the Homes and Communities Agency’s (HCA) 2011-2015 Affordable Homes Programme to fund development of an extra care scheme. They have bid for £ 2 million to fund a 57 units extra care scheme. Subject to the bid being successful it is recommended that the Council’s £1.5 million is used to match the HCA funding to develop the scheme.
5.5. Payment of grant funding to registered providers is now made when schemes are completed. Therefore, it is recommended that the Council’s funding earmarked in the housing capital programme is moved to the year 2013/14 from 2011/12 and 2012/13.
6 ADVICE RECEIVED FROM STATUTORY AND OTHER OFFICERS
Borough Solicitor
6.1 No legal issues arise directly from the matters discussed in this report.
Borough Treasurer
6.2 The Council allocates its financial resources through the budget process in the context of its medium term financial plan. Currently the medium term financial plan forecasts that the Council will need to make significant savings over the next few years. Over this period the Council will have to develop increased efficiency in service delivery whilst still responding to demographic changes, new legislation and
284 the need to modernise services. This will require the reallocation of some of the Council’s limited resources to key priorities.
In order to deliver these service changes the Council publishes a range of strategies and policies relating to many of its key services. A strategy or policy does not represent a financial commitment but, rather, sets the strategic direction of travel, subject to the level of resources that become available. These strategies also form the basis of the annual service plan which ensures that the development of the Council’s services is consistent with its medium term objectives within the resource envelope that is agreed. The development of these strategies is, therefore, an important part of the Council’s arrangements for helping it allocate its limited resources to maximum effect.
Equalities Impact Assessment
6.3 An Equalities impact assessment screening form is included with the report.
Strategic Risk Management Issues
6.4 The purpose of the Older Persons Accommodation and Support Services Strategy is to work with older people to deliver the accommodation and support services that they want and need. The failure to achieve the objectives of the strategy will impact on the Council both financially and in terms of service delivery for that part of the community.
7 CONSULTATION
Principal Groups Consulted
7.1 Older people were consulted on the strategy. The programme board included representatives from specialist developers of accommodation for older people. The Older Person’s Partnership Board were consulted.
Method of Consultation
7.2 Consultation was undertaken via questionnaire surveys with older people and face to face.
Representations Received
7.3 Reponses have been included in the strategy.
Background Papers
Contact for further information:
Simon Hendey Chief Officer: Housing Direct Dial Tel. No. 01344 351688 e-mail: [email protected]
Doc. Ref
285 Equalities Screening Record Form
Date of Screening: Directorate: ECC Section: Housing 1. Activity to be assessed Older person accommodation and support services strategy 2. What is the activity? x Policy/strategy Function/procedure Project Review Service Organisational change 3. Is it a new or existing activity? x New Existing 4. Officer responsible for the screening Simon Hendey 5. Who are the members of the EIA team? Clare Dorning / Janet Weekes 6. What is the purpose of the activity? To enable a range of accommodation and support services to be developed for older people
7. Who is the activity designed to benefit/target? All older people 8. a Racial equality - Is there an impact? Y There will be a positive impact for older people of all ethnic groups due to the extension of What kind of equality impact may there be? accommodation and support service options Is the impact positive or adverse or is there a potential for both? If the impact is neutral please give a reason. 8. b What evidence do you have to support this? Consultation will take place with hard to reach groups to ensure options are understood and taken up and E.g. equality monitoring data, consultation results, customer monitoring of take up will take place where possible. satisfaction information etc. 286 9. a Gender equality - Is there an impact? Y There will be a positive impact for older people of both genders due to the extension of What kind of equality impact may there be? accommodation and support service options Is the impact positive or adverse or is there a potential for both? If the impact is neutral please give a reason. 9. b What evidence do you have to support this? Part of the strategy is to establish effective ways in which to engage with older people and this will include ensuring the views of both genders are actively sought and acted upon. 10. a Disability equality - Is there an impact? Y There will be a positive impact as the strategy aims to enable older people who may have a What kind of equality impact may there be? disability of long terms illness to remain in their home as long as possible or move to a more Is the impact positive or adverse or is there a potential for appropriate home to meet their needs. both? If the impact is neutral please give a reason. 10. b What evidence do you have to support this? Existing consultation shows that older people wish to remain in their own homes if possible through provision of support services but also to have the choice of a move to new home to meet their needs. Monitoring of the action plan of this strategy will measure the impact in relation to this equality group. 11. a Age equality - Is there an impact? Y The strategy is aimed are meeting the accommodation and support needs of older What kind of equality impact may there be? people and therefore there will be a positive impact for that group. Is the impact positive or adverse or is there a potential for both? If the impact is neutral please give a reason. 11. b What evidence do you have to support this? Consultation responses from older people on the proposals in the strategy
12. a Religion and belief equality - Is there an impact? Y The strategy proposes the development of support services to enable older people to What kind of equality impact may there be? stay in their homes or move to an appropriate home. This will include working with faith Is the impact positive or adverse or is there a potential for both? If the impact is neutral please give a reason. groups to ensure services are sensitive to faith needs.
12. b What evidence do you have to support this? Consultation with faith groups will take place to ensure services are sensitive to the needs of older people of all faiths and none. 13. a Sexual orientation equality - Is there an impact? Y The strategy proposes the extension of the range of accommodation for older people What kind of equality impact may there be? and services to help keep them in their new homes. There will be a positive impact for Is the impact positive or adverse or is there a potential for all older people. both? If the impact is neutral please give a reason.
13. b What evidence do you have to support this? Consultation with older people to develop strategy objectives will include those groups . representing sexual orientation. 14. Please give details of any other potential impacts on None any other group (e.g. those on lower incomes/carer’s/ex- offenders) and on promoting good community relations. 15. If an adverse/negative impact has been identified can None identified it be justified on grounds of promoting equality of opportunity for one group or for any other reason?
287 16. If there is any difference in the impact of the activity None when considered for each of the equality groups listed in 8 – 14 above; how significant is the difference in terms of its nature and the number of people likely to be affected? 17. Could the impact constitute unlawful discrimination in N relation to any of the Equality Duties? 18. What further information or data is required to better The strategy proposes consultation and engagement with older people to develop proposals. understand the impact? Where and how can that information be obtained? 19. On the basis of sections 7 – 17 above is a full impact N Overall the older person and accommodation and support services strategy aims at extending assessment required? the range of options for older people. The options are to be developed through consultation and engagement with older people and that process will ensure the needs and views of equality groups are taken into account. 20. If a full impact assessment is not required; what actions will you take to reduce or remove any potential differential/adverse impact, to further promote equality of opportunity through this activity or to obtain further information or data? Please complete the action plan in full, adding more rows as needed. Action Timescale Person Responsible Milestone/Success Criteria
Delivering the strategy through consultation with older people 2011 - 2015
21. Which service, business or work plan will these actions be Housing included in? 22. Have any current actions to address issues for any of the groups or examples of good practice been identified as part of the screening? 23. Chief Officers signature. Signature: Date:
24. Which PMR will this screening be reported in?
When complete please send to [email protected] for publication on the Council’s website.
288 Appendix A
Older Persons Accommodation and Support Strategy 2011 - 2026
289
Contents
Forward Page 3
Executive Summary Page 4
Introduction Page 8
- Our Vision - Aims of the Strategy - Principles
Strategic Context Page 10
- National Policy Context - Local Strategic Context
What services and accommodation are Page 13 currently available
- Help to home owners - Sheltered housing provision - Home Improvement Agency
What Are the Priorities? Page 17
- Accommodation Requirements - Support Requirements
Meeting the Priorities Page 22
Action Plan Page 29
Annex 1 - What Do Older People Say They Page 31 Want?
- National Consultation Information - Local Consultation - The Changing Aspirations and Demands of Older People - Annex 2 - Bracknell Forest Context Page 37
2 290 Foreword
Welcome to the Bracknell Forest Older 1 People Accommodation & Support Strategy.
This is one of the most important strategies developed by Bracknell Forest Council in conjunction with residents, housing support users, developers, and registered providers 2.
It is well known that with an increase in life expectancy there is greater pressure on scares resources such as housing. Across the borough there is a range of different ways older people choose to live, from those who own their own home, those who rent, those who have sheltered accommodation and those who live in a care home or nursing home. The needs of our older residents have changed and will go on changing. We must plan for this change if we are to ensure that as residents get older they are aware of their housing options, there is the right type of property or accommodation available and if they need support it is readily available.
The standard and range of accommodation and support for our older residents must be raised both for those who remain in their own homes and those who do not.
This strategy therefore has been developed to identify, plan and deliver, in consultation with home owners, housing service users and providers, the right accommodation, in the right place, at the right time. It will not be delivered by any single party but by local residents, developers, estate agents and registered providers all working together to achieve a common purpose. Without it, the pressure on health and social care services as well as housing numbers will continue to increase.
Our challenge is to encourage the development of the best mix of accommodation options for older people in Bracknell Forest and to deliver those improvements as sensitively as possible.
We hope it will make a significant contribution to reducing anxiety, improving health, and promoting well-being and independence for the borough’s older people and to helping our residents and their families make the right choices for themselves and their loved ones.
Dale Birch Councillor Executive Member Adult Services, Health and Housing
1 2 Older People are for the purpose of this strategy defined as People over the age of 50 years Registered providers are housing providers registered with the Homes and communities agency
291
.
Executive summary
Context
This strategy is formed in a time of unprecedented social and demographic change for all residents in Bracknell Forest. If we are to ensure that our older residents have the right places to live then we must understand and plan for the anticipated changes.
The age structure of the population is undergoing more rapid and fundamental changes than at any time in recent history. In 2001 the proportion of older people (60/65 plus) had reached around 25 per cent of the population and is projected to keep rising – up to 36 per cent by 2031. The proportion of the oldest within this age range is rising at an even greater rate.
The national policy debate has shifted from a focus on frail or vulnerable older people, and treating ill health towards an agenda that is about:
• Preventing dependency • Promoting independence; • Promoting well-being; • Enhancing quality of life; • Combating ageism; • Recognising older people as full citizens within society.
The new approach promotes independence, where support and care is enabled. Residential and some community based services have been mapped onto this framework.
There is also greater emphasis on whole systems strategies, which place housing and support services for older people within a broader based health and social care context. These strategies emphasise new and more focused interventions, jointly with partners. The emphasis, from a housing and social care perspective, will mean a shift away from a buildings focus to a people- centred service.
Of the 115,000 residents in the Borough some 33,700 (29%) are over 50. 3 The population of Bracknell is comparatively younger than that of Berkshire, the South East or England as a whole, although the numbers of over 50s are forecast to rise significantly over the next 20 years.
The demands and aspirations of older people are increasing and changing rapidly. Some of the key issues are:
3 Source: JSNA Bracknell Forest 4 292
• Older people are more economically active, and if they are paying for services, they want high quality, flexible services and greater choice; • Older people who are owner occupiers are often reluctant to move into rented sheltered accommodation or residential care, because they do not want to erode their capital in paying for somewhere to live; • The need for older people to maintain independence and control, at home, despite frailty, are important; • Residential care is often the last option considered; • Most older people do not want to move and many older people will only consider a move within a very small geographical area and there is often a strong preference to remain in the locality close to family and friends, familiar transport, support and care networks; • Older people are moving into sheltered housing later in life, often in their late seventies, (not their mid-sixties as occurred twenty years ago), dependency levels may be higher at the point of moving; • A physical environment which incorporates high standards for personal space and privacy and security is increasingly important;
For sheltered housing schemes the challenge will be to develop a flexible approach by providing a local housing and support model which aims at: • Offering more than one tenure in the same scheme; • Raising standards, improving the quality and accessibility of schemes; • Providing flexible support and care within or close to the hub scheme; • Considering location first, quality of housing second (particularly access issues both into and around the scheme), and services third. Affordability, value for money and impact on lifestyles will also be important overall considerations.
What older people in Bracknell Forest said they want
The findings from the consultation exercise undertaken to inform this strategy demonstrates that whilst 50% of the older people wish to remain in their own homes, a significant percentage also wish to move in the short to medium term.
The main reasons for wanting to move were due to the ability to maintain their current home, and for economic/affordability reasons. Another significant factor was that people wanted the opportunity to secure support, something that people clearly view as accommodation based.
Consultation identified that people wanted to move to accessible accommodation such as a bungalow and flats and accommodation with some support and retirement villages were popular choices.
The majority of respondents want to remain in Bracknell Forest, with Bracknell and Binfield being the most popular locations. Results illustrate that distance 5 293 from amenities, friends and family and transport options were the main factors in considering an area. Affordability of an area was not a significant issue, nor was distance from care and support services.
The main barriers for people in considering a move were around finding a suitable home and dealing with the move itself. The service that residents considered they were most likely to need when they moved was help with minor works around their new home.
Those who stated that they would prefer to remain in their own home felt that assistance with property maintenance, improved access to transport and lifeline services would be the main factors in enabling this to happen. Respondents stated that they would be prepared to pay for these services. Current services such as lifeline, Disabled Facilities Grant’s and sheltered housing were considered helpful.
Detailed analysis of what older people say they want is set out in Annexe 1.
Priorities
The strategy sets the following priorities:
• Ensure older people have access to the best available opportunities and options for securing and remaining safely in the home of their choice. • Engaging with the older population in order to provide clear information about current services and to inform the development of future services meeting the priorities. • Achieve a balance between demand and supply for sheltered housing in the social sector. • Develop strategies to enable people to live in the right sized and economically sustainable home • Engage with the private sector to enable and promote provision of accommodation for older people. • Enable older people to remain in home ownership where possible
This strategy reflects the changing aspirations of older people across all tenures and income groups and plans ahead to meet the needs of future generations as well as older people today. Provision of timely information and a range of options will enable older people and their families to make early decisions to maximise health and quality of life benefits that come from moving to good retirement housing schemes.
Improving options available for older people
In the context of an aging society it is vital that high quality and effective housing practical options are available that meet people’s needs and aspirations, while supporting them to live independently and well, thereby minimising the need for residential and nursing care. A range of support is already available, from technology and adaptations in people’s homes to 6 294 offering well equipped homes with a community ethos that can cater for individual care and support needs as they develop e.g. home support services backed up by telecare.
Rebalancing the accommodation and support system
In terms of supply and capacity for supported accommodation for older people as set out in this Strategy, the following facts have emerged:
• The current social housing stock does not meet the housing needs or aspirations of older people; • There is a shortage of extra care housing 4 across all tenures; • There is potential to develop the sheltered housing market to divert more people away from residential care through a number of mechanisms; • There is potential to improve the opportunity for older people to remain in their own home.
Key objectives
This strategy sets out to meet four key objectives:
• Objective 1 - Improve access for all to information and services on housing choices and options; • Objective 2 - Improve how we consult and engage older people and those approaching old age, by making best use of existing mechanisms, skills and expertise; • Objective 3 - Strategically plan sustainable housing that meets the needs and aspirations of older people now and in the future; • Objective 4 - Support older people to live independently, in all tenures and extend the availability of preventative services.
In achieving these objectives we will: i Help more people to live for longer in their own homes; ii Deliver more flexible support and care to enable independence; iii Create more opportunities for older people to live in accommodation of their choice; iv Enable older people to feel safe and secure in their homes and neighborhoods.
Progress towards these outcomes will be measured through use of systematic intelligence gathering, targeted surveys and through reports to the older people’s strategic commissioning bodies. To achieve the above outcomes we will need to move to a position where older people’s housing aspirations and the accommodation available are more in line with each other on a localised basis.
4 Extra care is a form of accommodation is designed to meet the needs of frailer older people and provide varying levels of care and support on site. 7 295
Introduction
Our vision
All older people in Bracknell Forest will have the choice to remain in their home for as long as possible or to choose another home that will meet their location, living and support needs to maintain their health and quality of life.
Aims
The aims of the strategy are:
• To enable and support people to stay in their own home for longer; • To identify the quality and type of accommodation older people will seek in Bracknell Forest in the future, to enable us to work with delivery partners to deliver services that meet their needs; • To ensure that there is a range of good quality and affordable public and private housing which meets the changing needs of older people; • To develop a range of flexible services which meet the needs of older people, now and in the future; • To promote integrated working between housing, support and care services.
Principles
The principles that support this vision are that:
• Services will be flexible and based on the needs of the individual; • Support services will be made available based on need not the type of home that an older person lives in; • Services that will be delivered to a high quality standard and cost effectively; • Strengthening partnership working with other agencies and the private sector to ensure that older people are able to access more specialist services and accommodation; • Services will be provided by a range of providers.
8 296
Pyramid of older people’s housing and service options
The following diagram illustrates housing and support options that are identified in this strategy.
High Level Support Residential & Nursing care
Specialist Support
• Care villages • Floating Support Schemes • Extra Care Schemes • Virtual Extra Care • Assistive Technology
Preventative Services:
• Disabled Facility Grants • Re-ablement • Flexible Home Loan • Equity Mortgage • Home Care • Handyman Services • Low Level Assistance Technology
297 Strategic context
National policy context
The age structure of the population is undergoing more rapid and fundamental changes than at any time in recent history. In 2001 the proportion of older people (60/65 plus) had reached around 25 per cent of the population and is projected to keep rising – up to 36 per cent by 2031. The proportion of the oldest within this age range is rising at an even greater rate.
An ageing population presents public services, including housing, with a number of challenges to ensure the availability of adequate and appropriate services to support those who need them. These demographic changes require a policy response from local housing, health, and social care agencies.
Published in November 2010, the Coalition Government’s Vision for Adult Social Care outlines the vision for a modern system of social care is built on seven principles. The following principles have a relevance to this strategy;
Prevention : empowered people and strong communities will work together to maintain independence.
Personalisation: i ndividuals not institutions take control of their care. Information about care and support is available for all local people, regardless of whether or not they fund their own care.
Partnership : care and support delivered in a partnership between individuals, communities, the voluntary and private sectors, the NHS and councils - including wider support services, such as housing.
Plurality : the variety of people’s needs is matched by diverse service provision, with a broad market of high quality service providers.
The development of extra care housing (ECH)
For a long time, choice in accommodation for older people meant one of three options; remaining in their long term family home (which may have become increasingly difficult to maintain or increasingly inaccessible); moving to sheltered housing (predominately perceived as both an interim and a public sector option) or moving into some form of care home (often entailing a surrender of housing equity).
The need to develop ECH type of provision has been emphasised in the recent Wanless Review, ‘Securing our Future Health: Taking a Long Term View’. In 2003 Stephen Ladyman commented that:
298 ‘…most older people want services that allow them to retain control over their daily lives with support delivered as and when they need it. What they don’t want are rigid and traditional models that take for granted an inevitable and progressive path from living independently to being cared for. Our increasing recognition of housing related services, and extra care housing in particular, - backed up by extra investment and new approaches to housing with care - is part of our policy to deliver this choice and control.’
Current figures show that extra care housing (ECH) had by 2006 reached 25,000 housing units (although still small in comparison to the 500,000 care beds available). The development of extra care has been aided by support from the Government, such as the Department of Health and the Housing Corporation, now the Homes and Communities Agency as well as a growing number of local authority commissioners, registered providers /housing associations, private and voluntary sector providers who have all helped to fund and/or implement such provision.
ECH is based on three key principles:
• To promote independence – the provision of self contained accommodation with access to on-site care and support enables individuals to live independently in the community, promotes their well- being and helps to alleviate social isolation.
• To be empowering – primary health, care and support services should come to the individual, as and when needed, rather than the individual being required to change their accommodation in order to receive services that can and should be available in the community.
• To be accessible – where individuals live should be designed, or be capable of being adapted, to facilitate the delivery of personal social and health care services.
‘Virtual’ extra care services can also be created by extending the range of common and integrated home support services available backed up by telecare. This will depend on the suitability of each property, as stairs and lack of level access to facilities for people with increasing mobility problems is a key pressure in delivering this type of service. A ‘virtual care village’ pilot can be considered in order to investigate an approach to the mainstream implementation of telecare technology for people living in their own home. This model would involve an approach that enables Housing Support to be integrated with locality based homecare services. This would require the development of locality teams in order to deliver responsive care services to people living in their own home, or in a Very Sheltered Housing scheme. It is important to develop a clear understanding of the practicalities, costs and benefits of implementing mainstream telecare.
11 299
Local strategic context
The following list of existing Council and partnership strategies complement or support this strategy;
• Sustainable Community strategy • Older people’s strategy • Housing strategy • Adult social care commissioning strategy for older people’s services • NHS Berkshire East: The health of East Berkshire ( joint BFC and PCT strategic needs assessment) • Bracknell Forest Council core strategy • Bracknell Forest Council Local transport plan • Climate change action plan.
More detail about the local Bracknell Forest context is set out in Annex 2.
12 300
What services and accommodation are currently available for older people?
Customer access and information
Provision of and access to good quality information will enable people to better understand how they can improve their housing situation. Currently there is minimal co-ordination of what information is published and how services are promoted. Generally individual providers do their own thing. There is a fairly extensive range of both direct providers and voluntary sector organisations, as well as the Council, who provide some information.
Help to home owners
The Council enables a range of services for older people in the borough. A Home Improvement Agency and a Handy-man Service are funded through the Supporting People Programme and offer assistance to older home owners who need adaptations to their homes, or help with small works and repairs around the house.
Adult Care and Health also provide access to a wide range of care related services which are targeted at prevention and early intervention for improved health, independence and well being.
Sheltered housing provision – public and private
The Supporting People Programme commissions housing related support for people who need help to maintain their tenancy and live independently in the community.
The Supporting People grant programme funds six RP’s to provide support to sheltered housing schemes in the borough. A Home Improvement Agency is also funded to assist people in the private sector (mainly older home owners) with accessing services such as disabled facilities grants, home energy grants the Council’s Flexible Loan Scheme and other relevant services.
By far the largest provider is Bracknell Forest Homes which owns and manages eight sheltered housing schemes and three extra support schemes in the Bracknell Forest area.
Current support service provision for older people is heavily skewed towards the public rented sector; particularly the traditional sheltered housing model. . Conversely, the majority of older people in Bracknell Forest do not live in sheltered housing.
As of June 2011, there were 289 housing applicants on the Housing
13 301 Register requesting sheltered housing. Of these, 179 were first time applicants and 110 were transfer applicants.211 applicants are living within the borough, 78 applicants are living outside the borough.
The following chart shows a breakdown of Housing Register applicants in terms of age:
50-59yrs 60-69yrs 70-79yrs 80-89yrs 90+yrs
In terms of area preference, applicants are asked to rank their area preferences 1 – 6.
The top 3 applicant preferences are summarised below.
Binfield North Ascot Sandhurst Bracknell Crowthorne Warfield st 1nd preference 15 8 19 116 20 9 2rd preference 43 9 13 20 26 19 3 preference 15 17 7 17 24 33
From this table it can be seen that the Bracknell area has the highest demand with 116 applicants ranking the area as their first choice, and 20 ranking it as their second choice. The area with the next highest total preference is Binfield.
The supply of lettings within the social housing sector averages about 400 properties a year of which approximately 35% are for older people including sheltered housing.
The number of older households on the Housing Register is relatively small and there is a reasonable supply of social rented housing in the Borough to meet this need. However there is a significant mis-match between the type of housing that is available and the type of accommodation wanted by older applicants. This is summarised in the table below:
14 302 Bedsit 1 bed 2 bed Total Demand 19 354 125 498 Supply of sheltered accommodation for 184 370 54 608 older people Supply of designated homes for older 548 418 966 people such as bungalows and flats
While these numbers would suggest that the overall housing need of older people can be met within the Borough, many of these applicants have very specific housing requirements, particularly for two bedroom bungalows with gardens. In addition, the 184 bedsit properties are all bedsit flats in sheltered housing. The demand for these properties is particularly low, and vacancies can be hard to let.
In order to gauge the current demand for sheltered accommodation in the private sector, a survey of local estate agents was undertaken in December 2010 and 6 agents provided responses.
Those agents reported that 24% of their registered home seekers were over 50. However, only 50% of those over 50 actually complete a home purchase. By far the most commonly reported issue with older home seekers securing a purchase was lack of suitable accommodation on the market. Agents reported that older home seekers are predominantly seeking single story accommodation, particularly on the ground floor, with good access to local amenities and security and parking being important factors also.
Average purchase prices for older people registered with these agents range from £170,000 - £231,000.
The agents we spoke to reported that there was a significant gap in the market for:
• Sheltered Housing/Extra care sheltered housing; • Retirement Village; • Small scale retirement housing.
We spoke to two providers of private sheltered housing in Bracknell Forest. They reported that demand for sheltered housing was very high in their experience. Turnover within the limited amount of accommodation available does not meet demand and properties are sold very quickly. The type of property sought is single story accommodation with gardens for passive recreation and amenity value. Balconies are rarely sought unless there is a particular view available. Security is the top factor for this client group, along with the internal specs and layout. In terms of tenure, it is reported that there is a large demand for properties which people can own on a leasehold basis.
Providers were asked what they felt were the key future requirements for this client group. General sheltered provision featured but the main expectation was around being able to deliver extra care facilities.
15 303
Land supply and proximity to existing amenities and services were given as clear barriers to provision, however the biggest barrier was reported as being time and success in gaining planning permission. The cost of Affordable housing provision acting as a barrier to delivery was also noted as providers reported that this can create issues with the financial viability of the scheme. Negotiations with private providers of sheltered housing at planning stage could provide opportunities to have some input in to target marketing of the scheme to local older people to meet local needs.
The Council has a statutory duty to provide Disabled Facility Grants to support adults and children, with disabilities, living in their own home and maintaining their independence. The grant may cover costs from small adaptations, such as a handrail, to building an extension to a property for a major adaptation. The grant is subject to a financial means test in order to assess whether the resident is entitled to any assistance.
Total number of DFG Applications No. older people
2008/09 38 21(55%) 2009/10 54 37(68%) 2010/11 75 50(67%)
The number of DFG applications has increased each year for the last 3 years, and an increasing proportion of applications from older people.
The types of works required by older people tend to be stair lifts, level access showers and works to improve access to property and garden such as ramps. Adaptations to kitchens and property extensions are rarely requested by older people.
In addition to this investment, Bracknell Forest Homes also have an annual adaptation fund of £400,000 for its residents up until 2013 with a further £ 5 million over the remaining 25 years.
Home Improvement Agency
The Supporting People programme funds a Home Improvement Agency which helps older people access disabled facilities grants and provides sign posting to other key services such as the Council’s flexible Loan Scheme, energy grants, Forestcare and the Handyman Service provided by Age Concern and separately by the Council. Forestcare also operate the community lifeline service, although at present SP grant does not contribute to the provision of lifelines for people in the private sector.
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What are the priorities?
It is estimated that there are 33,700 residents (29%) of total residents in the Borough who are over 50. An estimated 14,000 (just under 42%) of this group are below the current retirement age of 65, and have limited contact with the Council, as the majority are housed in the private sector, be it in the private rented sector, or as an owner occupier.
Estimated population projections indicate by 2026 there will be 19,100 households aged 65 and over which is 29% increase on current estimated population. Of that 9,600 will be 75 years old or more, a 50% increase on the current estimated population. The majority of older people live in their own home.
Priority: Engaging with the older population in order to provide clear information about current services and to inform the development of future services
The 2008 based ONS Population Projections indicate an ageing population within Bracknell Forest to 2026. As Figure 1 indicates, over 80% of the population increase is driven by people aged over 55 – influenced by the continued ageing of the baby boom generation.
Analysing the levels of owner occupation, social renting and private renting among older people indicates how local authority housing and planning policies can shape older persons accommodation provision. 2001 census
17 305 information indicates that until the age of 85 the majority of older people remain in owner occupied accommodation.
While the level of private renters remains fairly constant with age, the proportion of owner occupiers slowly decreases – with a corresponding increase in social renting to the 75-84 age band (where a third of older people need social rented accommodation) and in communal establishments from age 85 onwards.
Although this 2001 snapshot suggests an increasing proportion of older people in social rented accommodation with age, there is no compelling evidence of a widespread move from owner occupancy to social renting in older age. This is likely to be an historic pattern, with the trend of greater owner occupation over the last 30 years increasingly not seen in the tenure patterns of older age groups.
Application of these general trends to the projected increase in the older population to 2026 this indicates that an additional 9,200 older people are likely to be occupying their own homes in 2026, with an additional 3,200 people requiring social rented accommodation and 520 living in communal establishments.
When you then consider the broad patterns of accommodation type by age this reveals little change in accommodation type between the 55-74 age bands, with the vast majority of people living in houses or bungalows. From the age of 74, two marked changes are seen. The first is a general move from houses / bungalows to flats, maisonettes or apartments between the 65-74 and 75-84 bands – likely to be predominantly explained by downsizing or people requiring more easily accessible / single level properties. The second change is between the 75-84 and 85+ bands, which sees a substantial switch in the proportion of people living in houses /bungalows to those living in either communal establishments or specific medical establishments – both likely to be due to the need for additional care.
Applying these patterns to the population projections indicates that by 2026, approximately 10,400 additional older people will be living in houses or bungalows, 1,800 people in flats, maisonettes or apartments and 900 people in communal or care establishments.
Priority: Ensure older people have access to the best available opportunities and options for securing and remaining safely in the home of their choice
The living arrangement patterns of older people show that the main trends are a decreasing proportion of people aged over 65 living as a married couple, and a corresponding increase in the proportion of older people living alone or in communal establishments.
18 306 The result of applying these proportions to the population projections shows a predicted additional 500 people requiring communal accommodation and 4,000 people aged over 55 living alone in 2026. A general reluctance of older people to move home, coupled with the decreasing proportion of older people living as a married couple and the increasing proportion of older people living alone, is likely to point to a substantial proportion of the people living alone under-occupying their homes.
An analysis of occupancy ratings provides a picture of whether older people tend to under- or over-occupy their accommodation. Research indicates that the vast majority (84%) of people aged over 55 under-occupy their homes and live in accommodation larger than their needs suggest – much more so than the overall population (at 57%). There is also a marked reduction in under- occupancy with increasing age – with the largest change being between the 65-74 and over 75 age groups. While this is likely to be partly explained by a combination of down-sizing and moves into accommodation that provides increased care, this trend may also be due to greater proportions of social renting seen among older age groups in 2001 (which is less likely to be under- occupied).
Using the accommodation patterns of older people from the 2001 census and applying these to population projections, the above analysis has sought to provide a picture of the additional housing needs of older people to 2026. The trend of more people living alone with increasing age coupled with higher levels of under-occupancy among older people, indicate the need for policy provisions to pro-actively influence the provision of older person’s accommodation over the next 20 years in both the owner occupied and social rented sectors.
Priority: Develop strategies to enable people to live in the right sized and economically sustainable home
Overall, there are two key issues arising from the data relating to strategy development for older persons housing:
• How to enable and provide suitably attractive accommodation in the right locations and to the right standards to enable downsizing – both in the owner occupied and social rented sectors.
• Forecasting the number of additional care units that will be needed to 2026 .
This analysis concludes that by 2026 9,200 additional older people are likely to be occupying their own homes, with an additional 3,200 people requiring social rented accommodation and 520 living in communal establishments.
The consultation exercises undertaken to inform this strategy show that whilst 50% of older people wish to remain in the current home, a significant percentage also wish to move in the short to medium term. Older people aspire to occupation of accessible accommodation such as a bungalow. Flats
19 307 and apartments were not popular options. However, accommodation with some support and retirement villages were a popular choice. These choices were reflected in the feedback from consultation with estate agents and sheltered accommodation providers.
One of the main barriers for people in considering a move were around finding a suitable home and our estate agents and providers gave a resounding view that there is a very high demand for accommodation with some sort of support. There is a significant lack of this sort of accommodation currently available in Bracknell Forest.
Priority: Achieve a balance between demand and supply for sheltered housing in the social sector
A significant proportion of current affordable housing provision is bedsit accommodation, which housing register figures and consultation feedback show there is little demand for. The current provision of social rented sheltered accommodation in the borough totals 608 units with an additional 966 designated properties for older people giving an overall total of 1574. Average annual turnover equals about 35 units of sheltered accommodation. The housing register is a good indication of actual demand from those people who do wish to engage with the Council in terms of securing sheltered accommodation. Currently, only 6 households on the register for sheltered housing have expressed an interest in bedsits, whilst 30% of the supply is in this form. The Council will therefore not encourage the provision of bedsit accommodation for older people in the future.
Using the existing demand information and projecting this forward to 2026 using demographic projections, a realistic demand figure would be 668 units of social rented sheltered accommodation. Therefore, the conclusion is that some existing sheltered housing does not meet current and future demand, and that the designated properties for older people may need to be reviewed in the light of demand 5.
Priority: Engage with the private sector to enable and promote provision of accommodation for older people
Care villages and extra care schemes are attractive to those older people who currently own their own home and wish to retain home ownership in the future. Investigation into this type of development shows they provide a range of accommodation and support. Older people who move to such developments are normally local to the development and also self-funding having released substantial equity from the sale of their existing home. There is a significant lack of this sort of accommodation currently available in Bracknell Forest.
5 DTZ Accommodation requirements of older people working paper January 2001. 20 308 Priority: Enable older people to remain in home ownership where possible
Those who stated that they would prefer to remain in their own home felt that assistance with property maintenance, improved access to transport and lifeline services would be the main factors in enabling this to happen. Respondents stated that they would be prepared to pay for these services. Current services such as lifeline, DFG’s and sheltered housing were considered to be attractive to older people wishing to remain in their home.
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Meeting the priorities
The Older People’s Strategy identifies the need for an extra care sheltered housing scheme which can meet the needs of residents with a range of support needs, as part of a longer term strategy for reducing the Need for residential care. A scheme of this nature will require capital investment and revenue resources to fund the housing related support the latter will need to be found from existing resources.
A comprehensive review of all of the Supporting People funded services which contribute to the Council’s Older People Strategy will take place to consider more specifically the role that each service plays in delivering the borough’s strategic priorities and options for the delivery of these services. The overriding objective will be to enable Supporting People grant funding to be more effectively targeted at those in greatest need. Any changes to the way services are delivered will be implemented on a phased basis.
It is clear that the range of provision in the public sector and through Registered Providers (RP) should be mirrored by a similar range of provision in the private sector both for rent and for purchase. This is essential to facilitate the full range of needs and choices that we know older people wish to make to secure their own futures.
At present it is estimated that 60 households are placed in residential care each year. Of these, around a third could be offered the opportunity of moving into an extra care scheme, if such a provision was available. Creating alternative options for frail elderly people is part of the Council’s Home First Policy. With this level of demand, an extra care scheme could be fully occupied over a 24 month period. This, however, would not be the only population that would benefit from extra care provision. Less frail older people would also be re-housed into any new scheme to ensure a balanced community is sustained.
It is more difficult to gauge demand for extra care placements within the private sector. However, the strong presence of owner occupation amongst older people in the borough (73%) would suggest that home ownership options do need to be provided. As an initial target which requires further development, the council is aiming to secure 251 units of private extra care housing and 93 social rented extra care (around 350 in total) units by 2026 based on current population projections.
The Transforming Adult Social Care Programme is likely to enable older person households the choice to receive home care in their current homes. This decision may impact on an increased demand for disabled facility grants.
The Supporting People Programme is reducing by 12% over the next three years, and the intention is to re-configure the way services are delivered to provide a more targeted, people based service. This will enable floating support services to people in their own home if necessary rather than require 22 310 them to move to specialist provision to receive the service. Clearly, an accommodation offer to enable older people to become self-funding by releasing equity in their current homes is preferable in terms of the call on public sector resources.
Rebalancing the Accommodation and Support System
In terms of supply and capacity for supported accommodation for older people as set out in this Strategy, the following facts are:
• The current social housing stock does not meet the housing needs or aspirations of older people; • There is a shortage of extra care housing across all tenures; • There is potential to develop the sheltered housing market to divert more people away from residential care through a number of mechanisms. • There is potential to improve the opportunity for older people to remain in their own home
Outcomes
There are a number of outcomes which will illustrate progress made to meet the aims of the strategy:
1. More people will be aware of their housing options in later life 2. More people will be helped to live for longer in their own homes 3. More flexible support and care will be provided to enable independence 4. More opportunities will exist for older people to live in accommodation of their choice 5. More older people will feel safe and secure in their homes and neighborhoods.
Progress towards these outcomes will be measured through use of systematic intelligence gathering, targeted surveys and through reports to the older people’s strategic commissioning bodies. To achieve the above outcomes we will need to move to a position where older people’s housing aspirations and the accommodation available are more in line with each other on a localised basis. This will mean delivering on the following objectives:
Objective 1 - Improve access for all to information and services on housing choices and options
Over 73% of the older population in Bracknell Forest are owner-occupiers and for the most of them they are less likely to come into contact with the council’s services until they face an emergency. However, consultation has identified the importance older people attach to advice and information.
Older people wish to live independently in their own home as long as possible. The Council, together with its partners, can enable people to stay in their own 23 311 home for as long as possible through a range of services including housing solutions, support solutions and repair solutions. This can be facilitated by a dedicated website that provides a comprehensive set of information about the services and opportunities available to help older people, their family or carer to help them stay in their own home. The website should also provide options to help people assess their needs including:
• Self assessment for social care and health linking through to statutory assessment for people who meet FACS criteria; • Housing options self assessment tool (such as the Elderly Accommodation Counsel HOOP) that links in with the housing options service; • The ability to apply for services such as Assistive Technology, disabled facility grant, home improvements (equity mortgage) Flexible home loan. • Customer orientated database and directory of services including trade registers.
Actions: The Council and its partners will identify collective approaches to steer and guide agencies in improving information and access to their services. Identify the potential of the “one-stop shop” approach to enable holistic access to services across Adult Services and the housing sector Develop and maintain an information system to assist those services providing information and advice on availability and access to health, care and support services.
Objective 2 - Improve how we consult and engage older people and those approaching old age, by making best use of existing mechanisms, skills and expertise
Consultation and engagement must address future, as well as current, aspirations and needs. To enable us to do this, we will work with partners to develop engagement with older people and consider potential joint consultation with other agencies, giving feedback to those consulted and sharing information with partners. The involvement of the voluntary and community sector in consultation and planning, to ensure agencies develop action plan approach acting upon the results of consultation, will be central to our approach.
Actions: Produce a consultation plan with key stakeholders including service providers and customers of existing services. Undertake consultation on customer views of housing support needs and services in existing sheltered services.
24 312 Objective 3 - Strategically plan sustainable housing that meets the needs and aspirations of older people now and in the future
Sheltered housing
To bring social rented accommodation in Bracknell Forest up to an agreed standard, we will develop investment priorities and timescales working with housing providers and customers to make sure current and future needs are met.
We will work with Bracknell Forest Homes and other RP’s to review the continued viability and, where appropriate, possible alternative uses for all current Supported Housing Schemes located in Bracknell Forest. Those unsuitable or no longer attractive to older people may offer solutions for other sections of the community and decommissioning may open up opportunities for development of alternatives such as extra care. In such cases we will work with partners and residents to plan for any proposed change of use.
The model should adopt a person centred approach rather than a universal service to all residents of sheltered housing. The model should involve the development of multi skilled support staff.
New ways of working for scheme managers are proposed to enable a more flexible support service for a wider community. Using sheltered schemes as a central point, support can be delivered to residents in the wider neighbourhood, regardless of their tenure.
Extra care
As has been shown there is clear demand for Extra Care Housing provision. This will need to include social rent and leasehold provision. The increase in Extra Care Housing will be achieved in three ways:
• Refurbishment or remodeling of some existing sheltered housing schemes or residential care homes. • New build developments. • Partnerships with the private sector.
New provision will be developed in appropriate locations that have good access to services, good transport, and are close to existing community facilities. An expansion in this form of housing will inevitably have an impact on demand for residential care; in that some of those who would otherwise have chosen care home admission will have another option. This impact on needs mapping will have to be taken on board as the work on delivering this strategy progresses.
We will identify how the current and future housing stock, in all tenures can be best utilised to meet needs and aspirations of older people. Priorities and solutions to tackling these issues will be sought, including influencing new
25 313 mainstream housing build and development plans and working effectively with partners.
It will be necessary to work closely with private sector developers to ensure that such options become a reality in Bracknell Forest. Alternative options need to be explored including Leasehold Schemes for older people or a shared equity product to help those residents with limited capital but who still would like to move to a development that offers security and peace of mind.
Housing allocations policy
We know that the Supporting People budget is facing significant reductions year-on-year for the next three years. Sheltered Housing therefore needs to be used as efficiently as possible. Successful applicants should be in need of support, assessed and subsequently subject to a support plan. At present the Council assess all applicants at point of registration as to their suitability for sheltered accommodation and determines whether they are eligible for such properties.
The demographic projections provided within this strategy illustrate a significant level of under occupation across tenures. Further analysis of the extent of the issue of under occupation in social rented housing stock is recommended in order to inform an under occupation strategy which will enable older people to be assisted to the right size and economically sustainable home whilst also securing additional family accommodation.
Actions: Review sheltered housing schemes where there is continued demand. Commission new extra care housing schemes and undertake site viability and appraisals to develop the business case for delivering projects at existing sites. Identify other public sector land assets that may potentially be suitable for older person’s housing development Review the Housing Allocations Policy in order to improve the assessment and suitability of older people for sheltered housing.
Profile the extent of under occupation in social housing stock and consider options to provide incentives for older people to move to more suitable accommodation as alternative provision is developed.
Objective 4 - Support older people to live independently, in all tenures and extend the availability of preventative services
Assistive technology
Assistive technology can enable more people to self care for longer, manage their own health better including chronic conditions, help them reduce the risk of falling and being injured or ill, enable people to take more risks so they can get to the bathroom or use the kitchen if they wish, and support carers and relatives who are struggling . In addition assistive technology can monitor 26 314 wandering, give an alert if someone is out of bed or the room/house, and give reminders to people to take medication or do something they should, support two way video and speech communication at front doors and to relatives/care givers and, electronic door entry systems.
Menu of services – moving to a 3 level service
The community alarm service linked to housing support services can be developed to offer a three level service which could link into the adult social service Fair Access to Care (FACS) criteria. The first level would offer a basic service with a low access threshold offering “peace of mind” for the older person or their family.
Level 1 community alarm services to enable people to communicate with a control centre that has their health, care and other details to hand and can advise and pass on messages or help co-ordinate matters when needed.
Level 2 community alarm services to do all the above and remind people to do certain activities, for example, go to lunch, start getting ready, take medication or check on daily routines.
Level 3 community alarm services that do all of the above and provide or monitor assistive technology, co-ordinate equipment and services for individuals and carers and help people to lead the lives they want. In most cases these services could only be funded by Social Care or Health funds.
Virtual extra care
Extra Care provision is usually developed in association with a housing service with mixed ability residents providing a continuum of care through a specific housing and residential care service, frequently including other commercial or social facilities in the complex. A Virtual Extra Care scheme provides a high level of service to very vulnerable people living without the immediate benefits of Extra Care housing in a residential facility, but with the objective of enabling them to fulfill their lives in their own homes. This of necessity involves a 24/7 service.
Disabled facilities grants
With more people being supported to remain independently in their own home there will be continuing pressure on budgets for DFGs. It will become increasingly important to get more out of the DFG budget and in doing so become more integrated into a wider suite of options for maintaining independence. As this is a statutory service joint procurement and administration should be investigated so as to secure economies and cost reductions.
27 315 Equity mortgage / release
There is a significant amount of equity value locked up in the homes of owned by older people. There are options to consider in terms of delivery of models which provide the opportunity to release equity. One such option would be to examine the special equity release pilot schemes, ‘the Home Cash Plan’, that has been developed by Just Retirement. The Joseph Rowntree Foundation is undertaking an independent assessment of the pilots and expects to report in the autumn of 2011.
Actions: To mainstream telecare as an elementary part of rehabilitation services. To develop a wider package of options for offering telecare services. Commission a new dispersed model for housing related support for older people linked to other key agencies (health & social care). This should include the concept of ‘virtual extra care’. Develop a funding plan for the future delivery of DFGs. Investigate feasibility of joint procurement/ administration of DFG expenditure. Investigate a funding model and plan for the provision of Equity Release Mortgages
Funding
The Housing Strategy includes a provision of £1.5 million across 2011/12 to 2012/13 to fund the Older Person’s Accommodation Strategy. As this is funded from the stock transfer receipt it will need to provide affordable housing for older people. This funding could be used to support the reprovision of the extra care units identified in this strategy. The Council will support registered partner bids to the Homes and Communities Agency for funding for extra care schemes and if necessary invest further to attract additional Government funding.
On appropriate sites, the housing needs assessment will be used to negotiate with the private sector on the mix and type of dwellings required to meet the needs of our ageing population. This may include attracting specialist private investors into the borough to broaden the housing offer for older people, alongside using the planning gain supplement via s106 agreements (Town and Country Planning Act 1990).
As well as domiciliary care services, the main element of financial support in relation to older people’s accommodation is the Supporting People Programme. Alongside this strategy the Supporting People Programme has been reviewed to ensure housing related support remains sustainable for those in most need.
Older people will be provided with advice so that they can choose to use their own resources to meet their housing need. This may take a variety of forms
28 316 including products offered by the Council such as the flexible home loan scheme as well as commercial products.
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Action plan
Objective 1 - Improve access for all to information and services on housing choices and options
Actions: To be completed by The Council and its partners will identify collective Fourth quarter approaches to steer and guide agencies in improving 2012 information and access to their services. Identify the potential of the “one-stop shop” approach to Second quarter enable holistic access to services across Adult Services 2012 and the housing sector Develop an information system to assist those services Fourth quarter providing information and advice on availability and access 2012 to health, care and support services.
Objective 2 - Improve how we consult and engage older people and those approaching old age, by making best use of existing mechanisms, skills and expertise
Actions: To be completed by The Council and its partners will identify collective First quarter approaches to steer and guide agencies in improving 2012 information and access to their services. Identify the potential of the “one-stop shop” approach to First quarter enable holistic access to services across Adult Services 2012 and the housing sector
Objective 3 - Strategically plan sustainable housing that meets the needs and aspirations of older people now and in the future
Actions: To be completed by Review sheltered housing schemes where there is Fourth quarter continued demand. 2012 Commission new extra care housing schemes and Fourth quarter undertake site viability and appraisals to develop the 2012 business case for delivering projects at existing sites. Identify other public sector land assets that may potentially Fourth quarter be suitable for older person’s housing development 2012 Review the Housing Allocations Policy in order to improve Second quarter the assessment and suitability of older people for sheltered 2012 housing.
30 318 Profile the extent of under occupation in social housing stock and consider options to provide incentives for older people to move to more suitable accommodation as alternative provision is developed.
Objective 4 - Support older people to live independently, in all tenures and extend the availability of preventative services
To be Actions: completed by To mainstream telecare as part of rehabilitation services. First quarter 2013 To develop a wider package of options for offering telecare Fourth quarter services. 2012 Commission a new dispersed model for housing related First quarter support for older people linked to other key agencies 2012 (health & social care). This should include the concept of ‘virtual extra care’. Develop a funding plan for the future delivery of DFGs. Second quarter 2012 Investigate feasibility of joint procurement/ administration of First quarter DFG expenditure. 2012 Investigate a funding model and plan for the provision of Second quarter Equity Release Mortgages 2012
This is a medium term action plan which will be reviewed and developed in line with the progress against the actions and consultation with stakeholders.
31 319 Annexe 1
What do older people say they want?
National consultation
The British Household Panel Survey asked older people living at home if they preferred to stay in their present accommodation, or to move. Generally, older people are satisfied with their housing and neighbourhood and prefer to stay put, either living alone or with their partner.
Listening to Older People events highlighted that older people want;
• New homes to be designed around the needs of older people including those from minority ethnic communities; • More practical help services around the home and garden and better transport facilities particularly in rural areas; • More independent living opportunities and better quality provision of sheltered housing; • Less waiting times for adaptations and equipment and moving home; • More flexibility and choice in housing, care and support options and clearer information and advice on what is available; • Housing solutions that facilitate living independently in the community and meet the needs of minority ethnic groups; • More involvement and a bigger say in the shaping of housing and related services. • Increased insulation, help with heating and energy saving measures, home security improvements and local home safety advice services;
There is growing evidence that people seeking retirement housing, across all tenures, are becoming more discerning and demanding in terms of what they are offered. At the same time, changing demographics and health circumstances mean there is a much broader range of age groups to consider within the definition of older people. In effect we are looking at several age bandings, let alone economic activity and health dynamics. A single retirement housing scheme is increasingly unlikely to attract new residents from across all age groups. Housing strategies will also need to ensure there is a range of options available across those age groups as well as likely dependency levels.
For sheltered schemes the challenge will be to develop a flexible approach by providing a housing and support hub for the local area through:
• Offering more than one tenure in the same scheme; • Raising standards, improving the quality and accessibility of schemes; • Providing flexible support and care within or close to the hub scheme;
320 • When choosing sheltered housing older people will consider; location, quality of housing (particularly access issues both into and around the scheme), services, affordability, value for money and impact on lifestyles.
Older people make decisions about housing choices at different stages in their lives. Some choose to move early in retirement, largely for housing and lifestyle reasons. More choose to move later in retirement usually because of a trigger (e.g. around health reasons, death of a partner or feeling safer). Sheltered housing is a more popular choice for these people.
With more people owning their home and pension/income limitations likely to have a bearing on many, then flexibility and choice of tenure is of increasing importance. The option which is least available but may be more important is leasehold schemes for older people.
Local consultation
Consultation with residents was undertaken between October and December 2010. 120 responses were received. 64% of respondents were female, with 26% male and 15% choosing not to state their gender.
Figure 1 shows the age breakdown of the respondents;
50-55 56-60 61-65 66-70 71-75 76-80 80+
Fig 1: Age Range of All Respondents
Respondents current accommodation circumstances
56% of respondents were owner-occupiers, with 38% occupying RP’s accommodation and the remainder in privately rented. Of the owner- occupiers, 35% still had a mortgage on the property with the remaining 65% having full ownership.74% of respondents had lived in their current accommodation for more than 6 years, with 54% having been in situ for more than 10 years. 66% had access to their own transport with 75% stating that
33 321 they had access to public transport, 67% of whom stated that they used this form of transport at least fortnightly.
Respondents were asked to rate their likes and dislikes about their current housing circumstances;
Rate your accommodation: Top 3 Likes Top 3 Dislikes Location Running costs Garden Size Close to amenities Other (property specific characteristics)
Rate your local area: Top 3 Likes Top 3 Dislikes Local amenities Parking Greenery Distance from amenities Feeling safe Traffic
Respondents future housing needs and aspirations
Figure 2 illustrates the likelihood of moving as expressed by respondents. 50% of respondents reported that they did not anticipate ever moving from their current accommodation, with 6% stating that they were ready to move now, 13% within the next 2-5 years, 14% within 6-10 years, and 6% within the next 11-15 years.11% were unable to give an answer.
60
50
40
30
20
10
0 Now 2 - 5 yrs 6 - 10 yrs 11 - 15 yrs Never
Fig 2 Respondents expressed likelihood of moving
Figure 3 shows the respondents stated reasons for wanting to move to alternative accommodation, the most common being concern about maintaining their existing home and/or garden, wanting to move to a smaller
34 322 property, for economic and affordability reasons, and to access support services.
Lifelines Transport Gardening Property maintenance Delivery services Pay for adaptations Visiting services Financial advice Housing advice Live in care Relief care
Fig 3: Respondents stated reasons for wanting to move
The vast majority of respondents stated that they would prefer to move into a bungalow, with houses and sheltered/extra care and retirement villages as popular options (see Figure 4). In line with national indicators, 45% stated they would require two bedroom accommodations, with just 10% stating a preference for 1 bedroom and 45% stating they required 2 or more bedrooms. In terms of tenure, the majority would opt for owner occupation (36%) and just 21% for rented, with only 2% opting for shared ownership products, although this may be a result of lack of knowledge of this form of tenure. 41% chose not to respond to this question.
House Bungalow Flat Sheltered/extra care Retirement village Other
Fig 4: Respondents accommodation type preference
33% of respondents stated that they would like to remain within the Borough, with a significant 10% interested in outside of Bracknell Forest and 18% stating they would consider either option. The remaining 39% were unable to give a response. Figure 5 shows respondents preference of areas they would want accommodation to be provided in. This is roughly in line with current housing register demand information.
35 323 40 35 30 25 20 15 10 5 0
d e t d e l f i r n f i e l c k n e l l i n t h o d h u r s r a B t h A s c o t B a n r r o w S C N o f i e l d / W i n k a r W
Fig 5: Respondents stated area of preference
When considering location, respondents were asked to state what factors would influence their choices. Figure 6 illustrates their responses.
Distance from amenities (eg GP) Distance from public transport Distance from social activities Distance from care & support activities Distance from friends/family More affordable
Fig 6: Factors those respondents would consider when choosing an area
Respondents were asked what they felt were the top 3 barriers to finding an alternative home. The top 3 barriers were finding a suitable home, packing and unpacking and dealing with unwanted furniture/possessions. When asked what help respondents felt would aide their move, the main factors were help with minor works, packing and unpacking, finding a suitable home, and also financial advice.
36 324
Respondents service needs and aspirations
Respondents were asked what services they felt should be available to help residents to remain in their own homes. Figure 7 illustrates the results, with assistance with property maintenance, transport, lifeline and delivery services being the most popular. Interestingly 46% stated they would pay for adaptations to their home.
Fig 7: Services respondents feel should be available to support residents remaining in their own home
Respondents were asked which of the current Bracknell Forest services they would use. The most popular choices were lifeline, sheltered housing and DFG’s.
70
60
50
40
30
20
10
0 Lifeline DFG HIA Sheltered Personal Care Housing Services
Fig 8: Current Bracknell Forest services respondents would use
Respondents were asked what services they would be prepared to pay for should they choose to remain in their own home. As illustrated in Figure 9, live
325 in care, transport, lifeline, gardening and visiting services were the most popular.
Lifelines Transport Gardening Property maintenance Delivery services Pay for adaptations Visiting services Financial advice Housing advice Live in care Relief care
This consultation exercise demonstrates that whilst 50% of the older people wish to remain in their own homes, a significant percentage also wish to move in the short to medium term. The main reasons for wanting to move were due to the ability to maintain their current home, and for economic/affordability reasons. Another significant factor was that people wanted the opportunity to secure support, something that people clearly view as accommodation based. Those who wanted to move preferred accessible accommodation with bungalows being the first choice. Flats and apartments were popular as were retirement villages.
The majority of respondents want to remain in Bracknell Forest, with Bracknell and Binfield being the most popular locations. Results illustrate that distance from amenities, friends and family and transport options were the main factors in considering an area. Affordability of an area was not a significant issue, nor was distance from care and support services.
The main barriers for people in considering a move were around finding a suitable home and dealing with the move itself. It is clear that older people would find a handy-man service helpful at the time of moving.
Those who stated that they would prefer to remain in their own home felt that assistance with property maintenance, improved access to transport and lifeline services would be the main factors in enabling this to happen. Respondents stated that they would be prepared to pay for these services.
38 326 Annex 2
Bracknell Forest context
Bracknell Forest was established as a Unitary Authority on 1 April 1998, in the East of Berkshire, 28 miles to the west of London. It is centred on the main town of Bracknell, established as a new town in 1949, and includes five other parishes of Binfield, Crowthorne, Sandhurst, Warfield and Winkfield. The Borough covers an area of 110sq km (10,981 hectares) and it is estimated in 2009 that the Borough had a population of 115,000 6and over the period 1981 to 2000 the population has grown by nearly 33%.
The Borough has a population density of 10 persons per hectare this would suggest that the Borough is fairly compact in terms of service delivery. 7
Figure 2: Over 50s age profile of residents in the borough.
9,000 Data Source:NOMIS website 8,000 7,700
7,000 6,300 5,900 6,000
5,000
4,000 4,000 3,400
3,000 2,700
1,900 2,000 1,800
1,000
0 Aged 50 - 54 Aged 55 - 59 Aged 60 - 64 Aged 65 - 69 Aged 70 - 74 Aged 75 - 79 Aged 80 - 84 Aged 85 and years years years years years years years over
Of the 115,000 residents in the Borough some 33,700 (29%) are over 50. 8 The population of Bracknell is comparatively younger than that of Berkshire, the South East or England as a whole, although the numbers of over 50s are forecast to rise significantly over the next 20 years.
In analysing the requirements for older persons housing, it is worth noting the key population and household characteristics that are relevant to older people as set out in the Bracknell Forest Strategic Housing Market Assessment (SHMA):
6 7 Source: JSNA Bracknell Forest 8 Source: JSNA Bracknell Forest Source: JSNA Bracknell Forest 39 327 • The current population in Bracknell has a high proportion of 25-44 year olds 9, consistent with the wider sub-regional market and reflecting a large working age population; • Bracknell has experienced faster population growth than the sub-regional market as a whole and more than double the rate of growth in the South East from 1981 to 2008 10 ; • Over the last 10 years, most of the population growth has been driven by the 45-64 age group, consistent with other comparator areas and reflecting the ageing of the baby boom generation; • Migration is a key determinant of population change within Bracknell’s housing market and is likely to be important over the next 20 years as new housing is delivered. But unlike the long standing and gradual trend toward an ageing population, changes in migration patterns can be more rapid and are much more difficult to predict; • Despite estimates of future household growth showing the majority coming from single person households, only 32% 11 of the homes these households are likely to occupy will be 1 bedroom properties. A significant factor in this is the ageing population. Many of the single households which form in Bracknell will be older people living alone, and frequently occupying properties larger than their basic needs require. This is an issue for strategic planning which needs to plan for this aging population .
There are just over 47,000 dwellings in the Borough as at 1 April 2009, the majority of these being in private ownership either as an owner occupier (73%) or Private Rented (10%). 12 A large proportion of the homes that are in the Private Sector are those which former Council tenants have acquired under Right to Buy (RTB) legislation. 10,500 properties have been sold through the Right to Buy from an original stock of 16,081 13 .
The Decent Homes Standard is a measure of decency of a residential unit based on the following criteria: a) It meets the current statutory minimum standard for housing b) It is in a reasonable state of repair c) It has reasonably modern facilities and services d) It provides a reasonable degree of thermal comfort
Prior to the Stock Transfer in 2008 the Council carried out a stock condition survey and found that 49% of the stock was non decent. 14 The BRE Private Sector Stock Survey completed in 2009 identified that 25% (well below the national average of 36%) of the private stock was non decent, and that it
9 10 Source:JSNA Bracknell Forest 11 Source:JSNA Bracknell Forest 12 Source:JSNA Bracknell Forest Source CLG Live Table 100: Housing Strategy Statistical Appendix (HSSA)
13http://www.communities.gov.uk/documents/housing/xls/table100.xls 14 Source: Bracknell Forest Homes Source CLG – Decent Homes Standard: http://www.communities.gov.uk/documents/housing/pdf/138355.pdf 40 328 would cost in the region of £75.9m to bring these homes up to standard. This is primarily due to the Borough’s new town status, with the majority of the stock being completed post 1964 15 . One of the significant findings in the BRE report was that it was estimated that 14% of the Private Sector stock had a Category 1 hazard as defined under the Housing Health & Safety Rating System (HHSRS). 16
Figure 3 shows that the private housing stock is in relatively good condition with the average of 25% non decent for the Borough, However, there are pockets in the Borough were the levels of non decency are relatively high e.g. Ascot (33%), Crowthorne (34%), Harmans Water (31%), Priestwood & Garth (32%) and Winkfield & Cranbourne (41%). In general terms these are the areas that also have the oldest housing stock.
A significant proportion of the private sector housing stock is owned by former Council tenants who exercised their Right to Buy, many of whom over the life of this strategy may start to enter retirement. A significant issue for this strategy is the number of older people who will be living without an appropriate level of thermal comfort.
The largest social housing provider (Housing Association/Registered Provider) in the Borough is Bracknell Forest Homes to whom the Council transferred its Council Housing Stock to in February 2008. They are currently the largest provider of sheltered housing in the Borough, and have helped in engaging with the over 50s to help inform the priority areas for the future.
In keeping with Berkshire, and the South East as whole, house prices in the Borough have risen dramatically over the last 13 years. Lower Quartile House Prices having risen from an average of £60,000 to £170,000 in 2009. The house price ratio has risen from 4.79 to 7.50 times salary. 17
The majority of the over 50s in the Borough are housed in the Private Sector, with a large proportion being homeowners either with a mortgage or owning the property outright. A large proportion of the 50 to 65 age group are in employment, and with the equity in their existing properties are able to buy properties on the open market.
15 16 BRE Report 2009 The Housing Health and Safety Rating System (HHSRS) is a risk based evaluation tool to help local authorities identify and protect against potential risks and hazards to health and safety from any deficiencies identified in dwellings. It was introduced under the Housing Act 2004 and came into effect on 6 April 2006. The HHSRS assesses 29 categories of housing hazard, each hazard has a weighting which will help determine whether the property is rated
17as having Category 1 (serious) or Category 2 (other). Source CLG Live Table 587: Local level house prices - Housing - Communities and Local Government 41 329 This page is intentionally left blank
330 Agenda Item 9
TO: EXECUTIVEth DATE: 5 July 2011
SCHOOL PLACES BASIC NEED (Director of Children, Young People and Learning)
1. PURPOSE OF REPORT
1.1. The purpose of the report is to update and inform the Executive of current and predicted demand for school places, the financial and other implications of the need to provide sufficient school places, and the likely impact of current Coalition Government Policy.
2. RECOMMENDATION(S)
2.1. That the Executive notes:
2.1.1 Current pupil number projections indicate the need for additional school places in the short, medium and long term.
2.1.2 That the Primary Capital Strategy for Change has successfully provided the short term strategy to address the immediate need for primary school places to 2012.
2.2. That the Executive Endorses:
2.2.1 The need for a new secondary school in North Bracknell
2.2.2 The need for the new primary places to be included as part of planning for new housing developments.
3. REASONS FOR RECOMMENDATION(S)
3.1. The Council has a statutory duty to provide sufficient school places, and the impact of rising rolls and new housing makes this an important issue for Bracknell Forest, carrying significant financial implications.
4. ALTERNATIVE OPTIONS CONSIDERED
4.1. Alternative ways of providing school places are set out in the body of the report.
5. SUPPORTING INFORMATION
5.1. Demand for pupil places has risen significantly over the last five years and is forecast to continue to increase in the foreseeable future. This report provides an early warning of this issue and sets out some of the high level implications for the Council.
Statutory Duties
5.2. The Council has a statutory duty to provide sufficient school places for statutory aged children and young people aged between 5 and 16.
5.3. The Council also has a statutory duty to pay for new school places, with the exception of Free Schools which are described in paragraphs 5.7 below.
331 Commissioners not Providers
5.4. How LAs can provide school places has been prescribed and limited by successive governments. The Coalition Government’s control of school places through the new Academies and Free Schools Programmes will lead to greater diversity of parental choice, but make the prediction of school places even more complex. If significant numbers of Bracknell Forest schools opt for Academy status and/or a significant number of new Free Schools arise, this may limit the LA’s ability to provide sufficient school places to meet demand.
Academies
5.5. Academies are state funded independent schools which are exempt from local authority and central government control. The Academies Act 2010 gave maintained schools that meet particular criteria, the opportunity to apply for Academy status, and the Coalition Government is actively encouraging schools to do so.
5.6. The Academy route is increasingly open to all primary, secondary and special schools as entry requirements to Academy Status expands. There is now a presumption that when LAs set up new schools they will be Academies. The Education Bill 2011 currently before Parliament amends the competition requirements for new schools in the Education and Inspections Act 2006, meaning that, with certain exceptions, the consent of the Secretary of State will be required before the LA can publish its own competition proposals for a new school.
5.7. Schools which already have a selective admission’s policy will continue to select pupils if they become Academies, but schools becoming Academies cannot decide to become newly selective schools. Schools converting to academies will therefore continue to be included in the LA’s school place planning process, but the LA cannot determine or change the number of school places or pupil age range of Academies. Academy places are set by the government in their funding agreement. If an Academy made a request to the Secretary of State to change its pupil numbers and/or age range the decision taken would be “informed” by the views of the LA as the commissioner of pupil places.
Free Schools
5.8. The Free Schools Programme, launched in June 2010, was described by the Secretary of State as “independent state schools run by teachers not bureaucrats or politicians and accountable to parents.” The DFE is giving teachers, parents, charities, universities, businesses, faith/community groups etc. the opportunity to set up new state-funded schools. 5.9. It appears Free Schools will have the same legal structure and be subject to the same legal framework as Academies. They will also be afforded the same Academy freedoms, but the main distinction is that a Free School is a new school, which has not converted from a predecessor school, and an existing maintained school cannot become a free school. Importantly, the LA does not meet the cost of providing Free Schools.
5.10. Applications for Free Schools can be made online on the DFE website and proposers must prove their own capacity and capability to run the school. It must also demonstrate that parental demand already exists for the type of education the new school will provide. Applications are decided by the DFE without direct involvement of the LA. Criteria have recently been tightened with a requirement to have a recognised provider partner and robust business case.
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5.11. Admissions criteria for Free Schools can be selective, but the 2010 Act provides that the Secretary of State must take into account what the impact of establishing a free school is likely to be on maintained schools, Academies and FE institutions in the area where the free school is proposed.
5.12. Bracknell Forest is engaged, as far as the legislation permits, in any future proposals to create Academies or Free Schools in or around the Borough, and would seek to understand the impact of such plans on school places in Bracknell Forest, and influence where this could have significant impact on provision of pupil places.
Demand for School Places
5.13. Demand for pupil places has risen significantly over the last five years and is forecast to continue to increase in the foreseeable future. This demand is driven by two key factors, demographics and new housing as illustrated in Tables One and Two below:
Table One: Estimated Demand for Primary Pupil Places in the Intake Year Status Academic Places Places Required in Forms of Entry* Surplus/Deficit Available Year in Forms From Existing From New Total Forms of Total of Entry* Poplulation# Housing$ Required Entry* Places
Actual Sep-07 45 - - 41 4 840 Actual Sep-08 45 - - 43 2 420 Actual Sep-09 46 - - 45 1 210 Actual Sep-10 47 - - 44 3 630 Actual Sep-11 48 - - 47 1 210 Sep-12 48 48 1 49 -1@ -210 Short Sep-13 48 49 1 50 -2 -420 Term Sep-14 48 48 2 50 -2 -420 Forecast Sep-15 48 49 3 52 -4 -840 Sep-16 48 48 5 53 -5 -1,050 Sep-17 49 47 6 53 -4 -840 Medium Sep-18 49 49 7 56 -7 -1,470 Term Sep-19 49 50 8 58 -9 -1,890 Forecast Sep-20 48 50 9 59 -11 -2,310 Sep-21 48 51 10 61 -13 -2,730 Sep-22 48 51 11 62 -14 -2,940 Long Sep-23 48 51 12 63 -15 -3,150 Term Sep-24 48 51 12 63 -15 -3,150 Forecast Sep-25 49 52 13 65 -16 -3,360 Sep-26 49 52 13 65 -16 -3,360 * One form of entry equates to 30 pupil places in each year group # Derived from Office of National Statistics population forecasts $ Current best estimates derived from SADPD and SHLAA housing projections @ This need will be met by the expansion of the new Jennetts Park CE Primary school from 1FE to 2FE
5.14. Forecasts have been made for the short term (5 years), Medium Term (10 years) and Long Term (15 years). However Members will note that it is difficult to predict pupil
333 numbers in the medium to long term because these are children who have not yet, been born. These forecasts have been based on trends from the Office of National Statistics about the forecast general rise in the UK population.
5.15. Assuming the population demographics remain at the current forecast level, and that all the proposed new housing is built by 2026, there would be a need for up to an additional 16 primary forms of entry, for a total of 3,360 places, equivalent to 8 new 2FE schools across the Borough. The major housing developments currently being planned include provision of sites for the new primary schools required to meet demand for pupil places.
Table Two: Estimated Demand for Secondary Pupil Places in the Intake Year Status Academic Places Places Required in Forms of Entry* Surplus/Deficit Available Year in Forms From Existing From New Total Forms of Total of Entry* Poplulation# Housing $ Required Entry* Places
Actual Sep-07 40 - - 37 3 455 Actual Sep-08 40 - - 36 4 607 ActualSep-09 40 - - 40 0 0 Actual Sep-10 42 - - 37 5 759 Actual Sep-11 42 - - 37 5 759 Sep-12 42 37 1 38 4 607 Short Sep-13 42 38 1 39 3 455 Term Sep-14 42 38 1 39 3 455 Forecast Sep-15 42 39 2 41 1 152 Sep-16 42 40 3 43 -1 -152 Sep-17 42 46 3 49 -7 -1,062 Medium Sep-18 42 47 4 51 -9 -1,365 Term Sep-19 42 47 5 52 -10 -1,517 Forecast Sep-20 42 47 5 52 -10 -1,517 Sep-21 42 48 6 54 -12 -1,820 Sep-22 42 48 6 54 -12 -1,820 Long Sep-23 42 49 7 56 -14 -2,124 Term Sep-24 42 49 7 56 -14 -2,124 Forecast Sep-25 42 50 7 57 -15 -2,276 Sep-26 42 50 7 57 -15 -2,276 * One form of entry equates to 30 pupil places in each year group # Derived from Office of National Statistics population forecasts $ Current best estimates derived from SADPD and SHLAA housing projections
5.16. Pupil numbers in the medium to long term are derived from the current (estimated) primary pupil numbers qualified by the current staying on rates into Bracknell Forest secondary schools. There would be a need for up to an additional 9 secondary forms of entry, for a total of 1,350 places by 2018, equivalent to 1 new 9FE secondary school (similar to The Garth Hill College). Overall demand for secondary places could rise by a further 6 forms of entry by 2026, which would also require expansion of the other existing schools in the Borough. The need for an additional secondary school is being addressed as part of the site allocations proposal for the Binfield area.
5.17. The pupil yields from projected housing development have been derived from research undertaken by consultants to establish the number of pupils arising from
334 households of different types e.g. one bed, two bed, three bed houses etc. This research was specific for Bracknell Forest, however the mix of dwelling types in each proposed housing development has been estimated based on previous housing developments in the Borough.
The Location of Demand
5.18. It should be noted that whilst the above are indicative of the overall levels of need across the Borough, the available places need to be located in the right locations to minimise home to school transport costs, to cope with in year admissions and to provide parents with places in their local schools, providing a school place preference. Planning for school places therefore aims to provide an overall 5% surplus of places evenly spread across the Borough to meet this demand.
5.19. The most significant pressure for new school places is in North Bracknell where all schools are now full in the intake year. There are three main issues driving this:
1. There is already a future pressure, including from new housing, on secondary school places for the North Bracknell area, as the pupil numbers currently in primary school work their way up through the system. Meadow Vale Primary and Holly Spring Infant & Junior schools are currently in the process of being expanded by one form of entry in phases between 2010 and 2015. Garth Hill College was expanded by one form of entry in 2010 and is already full in the intake year.
2. All neighbouring Boroughs are also experiencing pressure on places, with significant new housing in East Wokingham, and any new school built near to a border is likely to attract applicants from another Borough. There is therefore tension when locating a school to ensure that additional capacity is best placed to meet Bracknell Forest’s needs.
3. The new housing proposed for North Bracknell will provide a further impetus and critical mass for a new secondary school, and potentially up to four new primary schools. These developments will also provide capital funding in the form of S106/Community Infrastructure Levy contributions to support the construction of these schools. North Bracknell has also been identified as the potential location for a new SEN facility.
5.20. Pressure on South Bracknell is less acute, with the new Jennett’s Park Primary School due to open in September 2011. There is scope for expansion of existing schools in South Bracknell plus the potential for construction of at least one new primary school to meet demand for places from new housing if the TRL development goes ahead.
5.21. Crowthorne & Sandhurst also has less pressure for school places than North Bracknell but there will be a need to create additional forms of entry to meet the forecast demand for places. There is also scope for expansion of existing schools.
Cross Border Movement
5.22. Bracknell Forest is a net exporter of pupils, and the current extent of cross border movement for the September 2011 intake years is set out in Table Three below:
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Table Three: Pupil Migration for the September 2011 Intake Year Outward Migration Inward Migration Pupils Net Impact on Bracknell Forest Local Authority Pupils Going From Coming To Bracknel Bracknell Forest: Forest: Primary Secondary Primary Secondary Primary Secondary Cumbria 0 1 0 0 0 -1 Doncaster 1 0 0 0 -1 0 Hampshire 3 21 2 5 -1 -16 Herts 0 1 0 0 0 -1 Hillingdon 0 0 0 1 0 1 Kingston 0 1 0 0 0 -1 North Yorks 1 0 0 0 -1 0 RBWM 15 75 28 10 13 -65 Reading 0 15 0 0 0 -15 Slough 0 1 0 0 0 -1 Surrey 4 11 3 4 -1 -7 Wiltshire 1 0 0 0 -1 0 Wokingham 35 56 8 120 -27 64 60 182 41 140 -19 -42 TOTALS: 242 181 -61
5.23. Cross border movement is significant for Bracknell Forest where school Designated Area boundaries cross over the Borough boundary. This occurs in the following instances:
a) The Wokingham Oaklands and Hatch Ride Primary schools, which feed into the Bracknell Forest Edgbarrow secondary school.
b) The Bracknell Forest Cranbourne Primary and Ascot Heath Junior schools which feed into the Charters Secondary school in RBWM.
5.24. Bracknell Forest must be fully engaged in any future statutory consultations on changes to admission numbers or DA boundaries of Oaklands and Hatch Ride Primaries in Wokingham and Charters Secondary in RBWM to ensure that there are sufficient pupil places where cross border movement occurs.
5.25. The balance of cross border movement is derived from parental preference where parents choose to take places in neighbouring LA schools. The most significant example of this is the 56 Bracknell Forest secondary age pupils who have obtained places in Wokingham schools (mostly at St Crispins School). The availability of places in neighbouring LA schools is also of interest to Bracknell Forest because if demand for DA places in these schools increases, Bracknell Forest residents may be unable to secure future places because the DA admissions policy will favour local residents. This could result in displacement of pupil numbers back into the Borough for which the Council would have to provide additional pupil places e.g. Bracknell Forest would need to create an additional two secondary forms of entry to accommodate the Bracknell Forest pupils currently going to St Crispins. Planning for school places in Bracknell Forest must include a detailed understanding of the impact of new housing and planning for school places in neighbouring LAs to understand and plan for cross border movement. There must be close liaison with counterparts in neighbouring LAs.
336 New School Places
5.26. New school places can be provided in a number of different ways in ascending order of cost and complexity:
a) Bulge classrooms (internal) involve converting existing spaces in schools into new classrooms to take an additional form of entry for one year only. The bulge class moves up through the school year by year until the pupil’s leave after which the room becomes available again for re-use as a new bulge classroom in the intake year.
b) Bulge classrooms (external) involve creation of a new build bulge classroom if surplus accommodation is not available. This could be either a modular building or new build construction.
c) Expansion in all year groups, where forecast demand is significant. This involves creation of sufficient new teaching space as extensions of existing buildings to provide a whole new form of entry. The following schools have been/are subject to expansion in all year groups: The Garth Hill College, Edgbarrow, Holly Spring Infant and Junior Schools and Meadow Vale. There is also need to provide additional forms of entry in North Bracknell however the existing school sites will present difficulties for further expansion due to site area restrictions.
d) Building new schools where demand is sufficient such as the new Jennett’s Park CE Primary School proposed to open in September 2011.
5.27. The accommodation required to provide new school places in existing schools includes the general teaching space (classrooms & group rooms), and also the associated learning support and ancillary spaces such as specialist teaching areas (science and technology laboratories), library space, SEN spaces, staff rooms, toilets and circulation.
Short Term Needs
5.28. For September 2011 the following schools are subject of capacity projects through the Council’s capital programme, with an aim to provide the essential teaching spaces required for the pupil numbers: a) Meadow Vale Commencement of the expansion from 2FE to 3FE b) Holly Spring Continuation of the expansion from 2FE to 3FE begun in 2010 c) Crown Wood Provision of 4 x additional classrooms d) Jennett’s Park New primary school opening to 1FE e) Brakenhale Provision of 1 x science lab, Post 16 space and LRC space f) Edgbarrow Provision of 2 x science labs
5.29. Crown Wood Primary also has space for a bulge classroom from September 2011 if required.
5.30. For the September 2012 primary intake there will be a further additional form of entry at Jennett’s Park as this school expands from 1FE to 2FE plus provision of bulge classrooms at other schools if required.
5.31. Preliminary work is underway to identify the site for the proposed new primary school at Amen Corner.
337 Medium to Long Term Needs – To Meet Housing and Existing Demand
5.32. The Site Allocations project has identified potential new housing sites across the Borough, which if fully developed would require the construction of up to 7 new schools to meet demand for pupil places, equivalent to 13 forms of entry for primary and 7 for secondary as set out in Tables One and Two above.
5.33. In addition the same tables illustrate there is a pre-existing demand for 3 additional primary forms of entry plus 8 additional secondary forms of entry.
5.34. The provision of the new school places must be joined up so that planning for new housing and for existing demand is co-ordinated and managed.
5.35. Section 106 contributions and the forthcoming Community Infrastructure Levy can be expected to meet the impact of the development on the Council’s infrastructure, but will not meet the pre-existing demand. The Council’s planning for school places, including site allocations for new schools must be sufficient to address both requirements. Where additional forms of entry are required the new school site areas must be large enough to accommodate the additional forms of entry required to meet the existing demand as well as the demand arising from housing.
Costs and Funding
5.36. At present Government policy is to fund basic need according to the requirements of the DFE design guide (Building Bulletins). The Council has received £3m of new DFE Basic Need grant for 2011/12.
5.37. In the Short Term the total cost of completing the capacity projects currently in hand at all schools is £20m, of which £14m has already been secured, leaving a shortfall of £6m required over 4 years between now and 2016/17. If the government continues to fund at this level then there will be sufficient to address the funding shortfall, and this is the current assumption. This will need to be reviewed should government policy change.
5.38. In the Medium to Long term, the impact of future housing development under the SADPD and existing demand for places could require the equivalent of up to 8 new schools in the Borough, plus potential expansion of up to four more existing schools. The total estimated construction cost for this is could be in the order of £110m at current prices, assuming land for the new school sites is provided free of charge via the S106/CIL process.
5.39. The strategic capital programmes for Building Schools for the Future and the Primary Capital Programme have been cancelled by the Government. The report from the James Review into Education Capital published in April 2011 makes it clear that funding will be in respect of capacity & condition works in schools only.
5.40. Further additional funding will be required to address the Council’s Medium and Long term requirements. A combination of funding streams including DFE Basic Need Grant, Section 106 contributions, the new Community Infrastructure Levy and ultimately the Council’s Capital Programme will need to be put in place.
5.41. The Government will expect Local Authorities to pay for construction of any new Academies, but there is currently no information available on whether the Secretary of State intends to make use of S106 contributions available when entering into Academy Arrangements with proposers.
338
5.42. The Government has not yet indicated how the presumption in favour of Academies will affect authorities dealing with planning applications for developments that will generate a need for the provision of further school places.
5.43. Creation of Free Schools is expected to be by the Government, although there may be expectations on LAs to help facilitate parts of this process e.g. by identifying suitable sites.
5.44. The Executive will be aware of the significant lead in period for providing new school places through building new schools or expanding existing schools. The process of consultation, planning, design, procurement and construction are measured in years and there is a need to make expenditure decisions well in advance of the date by which the new school places are required.
6. ADVICE RECEIVED FROM STATUTORY AND OTHER OFFICERS
Borough Solicitor
6.1. Legal issues are discussed elsewhere in this report
Borough Treasurer
6.2. This report updates the Executive on a latest predicted need for additional school places and does not commit any additional resources. The supporting information sets out that the short term need to increase capacity in primary schools is expected to be met from government grant.
Financial resources required for medium term pressures will be kept under review, including opportunities for government grant and developer contributions, and included as appropriate in the Council’s 3 year capital programme.
Equalities Impact Assessment
6.3. Equalities Impact Assessments are undertaken on a programme/project basis.
6.4. All new build construction works will be accessible to disabled people.
Strategic Risk Management Issues
6.5. Each of the projects mentioned in this report has its own risk register and is subject to governance under a Project Board. The following is a summary of the identified risks:
6.6. Capability Risk is assessed as LOW because the implementation of these projects is within the capability of the Council’s Managing Partner to deliver.
6.7. Financial Risk is assessed as HIGH because the government’s capital funding allocations are uncertain beyond 2011/12, and the arrangements for the Community Infrastructure Levy are also unknown. The Council will need to closely monitor and pursue opportunities to maximise external funding whilst seeking to put in place innovative solutions that meet the demand for pupil places but also address value for money and affordability.
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6.8. Planning Risk is assessed as MEDIUM because the site allocations project has not yet been completed, and applications for the proposed housing developments have not yet been received. It should also be noted that the decision whether or not to build in Bracknell Forest is also not ultimately in the Council’s control, and where developments do go ahead they may also be subject to slippage due to unforeseen circumstances. There must continue to be a close and effective liaison between the Council’s planning policy and education teams to ensure that projected housing programmes are monitored, and the Council’s response in terms of when and where to provide new school places is sufficient and suitable to meet this demand.
6.9. Statistical Risk over the forecast demand for places is assessed as MEDIUM because population forecasts are based on high level national statistics and pupil yields from new housing are estimated in the absence of actual planning applications. The accuracy of such projections also becomes less precise the further into the future they go because we are dealing with places for pupils that have not even been born yet. However this report is sufficient to provide a reasonably accurate short term view and high level overview of the trends and potential outcomes for the medium and long term based on the information currently available. There must continue to be accurate monitoring, forecasting and planning for pupil places.
7. CONSULTATION
Principal Groups Consulted
7.1. Creation of additional school places in existing schools is the subject of consultation with schools including Headteachers, Governing Bodies and the wider school community.
7.2. The Council’s Planning Policy Team have been consulted over the impact of the proposed development on school places and the locations, sizes and timescales of the proposed new schools.
7.3. Any changes to planned admission numbers are also subject to statutory consultation prior to approval of the Council’s annual admission arrangements.
7.4. New construction is also the subject of statutory consultation through the planning process
7.5. The proposed new Community Infrastructure Levy (CIL) will be the subject of consultation before it is adopted.
7.6. Future changes to DA boundaries will also be subject to statutory consultation.
Method of Consultation
7.7. Meetings and correspondence.
Representations Received
7.8. Where schools are being expanded, the design of the building has been agreed with each school over a period of time, culminating in final sign off prior to tendering.
340 7.9. The estimated pupil yield from new housing development has been drawn from the provisional housing build programmes supplied by Planning Policy. These will continue to be updated on a regular basis to inform Pupil Place Planning.
Background Papers
Pupil Places Plan
Site Area Development Plan Document
Contacts for further information
David Watkins Chief Officer: Strategy, Resources & Early Intervention 01344 354061 [email protected]
Chris Taylor Head of Property & Admissions 01344 354062 [email protected]
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342 Agenda Item 10
TO: EXECUTIVE 5 JULY 2011
CUSTOMER CONTACT STRATEGY 2011 - 14 Director of Corporate Services
1 PURPOSE OF REPORT 1.1 The Council’s current Customer Contact Strategy covers the period 2007 to 2010. Over that period, customer service delivery has moved from a fragmented and inconsistent approach to a co-ordinated and clear-focussed approach, which is well- valued by residents and service users. To continue to develop customer service delivery in line with developments in technology and changes within the Council, a further strategy is required for the next four years.
1.2 The aim of the Strategy is to maintain the quality of customer service provided by the Council to the borough’s residents and service users, whilst achieving value for money in a period of constrained resources. Costs will be reduced by reducing “avoidable contact”, channel shift to low-cost communication channels such as the web-site and the use of technology. To deliver this aim, the Strategy is supported by an Action Plan.
2 RECOMMENDATION
2.1 That the Executive agrees the Strategy and Action Plan at Annex A for the period 2011 - 14.
3 REASONS FOR RECOMMENDATION(S)
3.1 The Customer Contact Strategy outlines how the Council will provide contact channels for customers to do their business with the Council across the whole range of departments and services.
3.2 The strategy includes an Action Plan through which customer service will be delivered and cross-departmental support is required for its’ delivery.
3.3 The Strategy outlines the development of an approach to more effective use of resources in the delivery of effective customer contact.
4 ALTERNATIVE OPTIONS CONSIDERED
4.1 None, the Council has improving customer access as one of its’ key medium term objectives.
5 SUPPORTING INFORMATION 5.1 The Council’s current strategy has consolidated all existing access channels into a coherent framework with the customer at its heart. The wide consultation undertaken shows broad levels of satisfaction with contact with the Council. However, the period of the next Strategy requires a focus on maintaining these levels of customer satisfaction within a period of financial constraint. Therefore the Strategy sets out carefully how this can be achieved.
343 5.2 The Strategy has four key aims, which focus on effective use of resources and moving service delivery to more cost effective channels where possible : • To review inbound customer contact and to develop and implement a channel strategy so that customers are encouraged, where appropriate, to make maximum use of online services.
• To realise the potential of outbound proactive communication to promote services, maximise income and reduce inbound contact.
• To take advantage of existing and emerging technologies to support customer service delivery.
• To provide quality customer services which are cost efficient and value for money
5.3 The key objectives to support these aims are :
5.3.1 To provide a range of contact channels which recognises customer preference and customer profile. 5.3.2 To promote digital inclusion by the development and implementation of a channel strategy so that customers are encouraged, where appropriate, to make maximum use of online services. 5.3.3 To provide services electronically so that customers may carry out their business with the Council at a time and in a manner convenient to them. 5.3.4 To consider where investment would support channel shift to online and electronic services. 5.3.5 To engage in proactive outbound communication to provide information, promote services, maximise income and reduce the number of inbound enquiries. 5.3.6 To review and consider the use of all existing and emerging technologies in customer service delivery. 5.3.7 To make optimum use of council sites and buildings from which to deliver services to customers. 5.3.8 To review performance standards to determine the impact on customer contact. 5.3.9 To seek opportunities to work with partners to join up service delivery. 5.3.10 To make efficiency savings and reduce the cost of the delivery of customer- facing services across the Council by :
• reacting to the changing shape of the organisation • improving efficiency by handling more contacts at the first point • configuring resources around the customer • reducing “avoidable contacts” and removing waste and duplication in customer-related processes • moving enquiries to lower cost contact channels • generating income • considering the model for delivering services across the Council
5.3.11 To develop and implement an action plan which delivers this strategy. Work is to be prioritised to deliver the action plan within existing resources. A business case is to be made where there are opportunities for future savings through investment.
344 5.4 The Strategy has been developed from feedback from customers through surveys and consultation and a series of workshops with a group of members, Overview and Scrutiny Commission, Corporate Management Team and the Customer Contact Strategy Group.
5.5 This Strategy has been prepared in a period of uncertainty due to financial constraints. Key decisions about the level of services the Council will deliver over the next four years will have a direct impact on customer service delivery.
5.6 Progress on the delivery of the Strategy is reported annually to the Council’s Executive and was last reported to the Executive on 19 January 2010.
5.7 The Strategy document with Action Plan is attached at Annex A.
6 ADVICE RECEIVED FROM STATUTORY AND OTHER OFFICERS
Borough Solicitor
6.1 Nothing to add to the report.
Borough Treasurer 6.2 The Council allocates its financial resources through the budget process in the context of its medium term financial plan. Currently the medium term financial plan forecasts that the Council will need to make significant savings over the next few years. Over this period the Council will have to develop increased efficiency in service delivery whilst still responding to demographic changes, new legislation and the need to modernise services. This will require the reallocation of some of the Councils limited resources to key priorities.
In order to deliver these service changes the Council publishes a range of strategies and policies relating to many of its key services. A strategy or policy does not represent a financial commitment but, rather, sets the strategic direction of travel, subject to the level of resources that become available. These strategies also form the basis of the annual service plan which ensures that the development of the Councils services is consistent with its medium term objectives within the resource envelope that is agreed. The development of these strategies is, therefore, an important part of the Council's arrangements for helping it allocate its limited resources to maximum effect.
Equalities Impact Assessment
6.3 Completed for the existing Strategy in November 2008. The channel shift strategy will require a further EIA when this is developed.
Strategic Risk Management Issues
6.4 The strategy contains a range of risks detailed at Appendix F.
7 CONSULTATION
Principal Groups Consulted
345 7.1 The Bracknell Forest 1500 (BF 1500) were surveyed about their methods of communicating with the council and their experience of customer service. The Older People’s Communications Audit sought feedback about their contact channel preference. Users of the Council’s web-site are encouraged to give their feedback via an online visitor survey. Leisure and libraries take positive action to meet customer expectation. The Benefit Service has a benefit user group to provide feedback. The Council’s Access Advisory Panel has fed-back comments. Workshops have been held with a group of members, Overview and Scrutiny Commission, Corporate Management Team and the corporate Customer Contact Strategy Group. At the workshop with the Overview and Scrutiny Commission there was expression of their overall satisfaction of customer service delivery and discussion about the use of emerging technologies, the requirement for a sound business case before their introduction and how customer services may be delivered across various council sites around the borough.
Method of Consultation
7.2 Workshops, meetings, surveys, and focus groups.
Representations Received
7.3 Responses to the different consultations are contained within the strategy document at Appendix A of the Annex.
Background Papers
None.
Contact for further information Name of Officer, Alison Sanders Director of Corporate Services - 01344 355603 [email protected]
Name of Officer, Keith Woodman Chief Officer: Customer Services - 01344 352096 [email protected]
Name of Officer, Pat Keane Chief Officer: Information Services - 01344 351790 [email protected]
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ANNEX A
Bracknell Forest Council Customer Contact Strategy 2011-2014
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Contents
1. Introduction Page 1
2. Key aims of the strategy Page 2
3. Delivery of the Strategy Page 2
4. Objectives for the customer Page 3
5. Action Plan Page 4
6. Training Page 7
7. Governance arrangements Page 7
8. Conclusion Page 8
Action Plan 2011 – 14
Appendices A – Customer feedback B – How customers contact us and how we respond C – How we promote services and provide information to customers D – Enquiries handled by Customer Services in support of service areas E – Current contact volumes and key performance indicators F – Risks associated with the strategy
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1. Introduction
1.3 The overarching strategic aim of introducing a Corporate Customer Contact Programme, as agreed by the Council’s Executive back in September 2003, is to improve the quality of customer service provided by the organisation to the borough’s residents and service users. This programme has already delivered the implementation in three distinct phases and is covered in detail in the Customer Contact Strategy 2007 - 2010. Improving the quality of service to customers is now a key operational task across the Council.
1.4 The Council’s vision for customer contact is expressed within the thirteen Medium Term Objectives for 2007 - 2011. Objective seven is to “seek to ensure that every resident feels included and able to access the services they need”. Included within this objective is “creating a new customer contact centre in Bracknell that allows people to access all services” and “increasing access to services by electronic means”.
1.5 This Strategy aims to build on the progress achieved as a result of the previous strategy which ran from 2007 to 2010. It outlines the process for taking customer service delivery further forward by building on achievements to date, in order to develop and implement a contact channel strategy, react to inbound customer contact, use proactive outbound communication and take full advantage of existing and emerging technologies to provide good service in a cost efficient manner.
Context 1.6 Bracknell Forest lies 28 miles west of London, at the heart of the Thames Valley and within the county of Berkshire. The area covers 42 square miles (11,000 hectares) and includes the towns of Bracknell and Sandhurst and the parishes of Binfield, Crowthorne, Warfield and Winkfield. The Borough is in the Western Corridor and Blackwater Valley Sub-region. Our economy is of above average size and productivity compared to the county and nationally. Good access links, a well educated labour force and the quality of the environment are key attractors to the companies that have and continue to locate here, including a number of multinational organisations. The Borough has experienced some of the highest population growth rates in the country leading to pressures on infrastructure, services and the Borough’s environmental assets including sites designated as being important for nature conservation at an international, national and local level.
1.7 The Bracknell Forest Story of Place – March 2010, records that the Council has 114,700 residents (2008 estimate). The population is relatively young with an average age of 35.4 years. Only 14% of the population is of pensionable age. As at May 2010, 8.9% of working age residents were claiming benefits. The 2001 census showed that 90.6% of the population was white / British and 72% was Christian. The percentage of minority ethnic pupils attending schools in the borough is 15.2% (School census January 2010). There are approximately 27,000 children and young people aged 0 – 17, which represents 24% of the total population.
1.8 Over 46,500 properties are assessed for council tax. 73% of homes are owner-occupied and as at December 2009 house prices were 25% above the national average. Of the remaining homes, 10% are privately rented and 17% rented from a housing association.
1.9 The Society of Information Technology Management (SOCITM) Take Up Survey shows that that 41.7% of residents use the Council’s web-site, which is the highest level of take-up of a local authority web-site in the country. The monthly average use of the web-site is 104,000 visitors and 604,000 page views. 63% of users use the web-site to find information and the most viewed topic by far is the Council’s Leisure facilities. Household internet access in the South-East is almost 70%. This means that the Council is in a strong position to use technology to better serve its customers.
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1.10 It should be noted that this strategy has been prepared in a period of uncertainty due to financial constraints. Key decisions about the level of services the Council will deliver over the next four years will have a direct impact on customer service delivery. What is certain is that a carefully considered business case will need to be made before embracing change, either operational or technical. However, the over-riding imperative is that the Council’s approach to customer contact should be both efficient and provide value for money.
2. Key Aims of the Strategy
2.1 The four key aims of the strategy are : • To review inbound customer contact and to develop and implement a channel strategy so that customers are encouraged, where appropriate, to make maximum use of online services.
• To realise the potential of outbound proactive communication to promote services, maximise income and reduce inbound contact.
• To take advantage of existing and emerging technologies to support customer service delivery.
• To provide quality customer services which are cost efficient and value for money.
2.2 The strategy has links with the Corporate ICT Strategy, Communications and Marketing Strategy, which includes the associated Communication Channel Strategy, Office Accommodation Strategy and the IDeA Diversity Peer Challenge action plan.
3. Delivery of the Strategy The key objectives required to support these aims are:
3.1 To provide a range of contact channels which recognises customer preference and customer profile.
3.2 To promote digital inclusion by the development and implementation of a channel strategy so that customers are encouraged, where appropriate, to make maximum use of online services.
3.3 To provide services electronically so that customers may carry out their business with the Council at a time and in a manner convenient to them.
3.4 To consider where investment would support channel shift to online and electronic services.
3.5 To engage in proactive outbound communication to provide information, promote services, maximise income and reduce the number of inbound enquiries.
3.6 To review and consider the use of all existing and emerging technologies in customer service delivery.
3.7 To make optimum use of council sites and buildings from which to deliver services to customers.
3.8 To review performance standards to determine the impact on customer contact.
3.9 To seek opportunities to work with partners to join up service delivery.
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3.10 To make efficiency savings and reduce the cost of the delivery of customer-facing services across the Council by :
• reacting to the changing shape of the organisation • improving efficiency by handling more contacts at the first point • configuring resources around the customer • reducing “avoidable contacts” and removing waste and duplication in customer- related processes • moving enquiries to lower cost contact channels • generating income • considering the model for delivering services across the Council
3.11 To develop and implement an action plan which delivers this strategy.
4. Objectives for the Customer
4.1 Customers choose which method they prefer for contacting the Council. This preferred method will vary depending on the type of enquiry and the profile of the customer. In addition, the customer will not always use the same contact channel for a similar enquiry. A range of contact channels is therefore required which balances the customer preference and expectation, the demographic profile of the area, the services provided, the outcome for the customer and the need to provide a cost-efficient service which is value for money. The Council will aim, however, to encourage customers to use the website, the most cost- efficient channel, wherever possible.
4.2 The range of contact channels available to customers wanting to contact the Council includes telephone, face to face, web-site, e-mail, digital TV and smart-phone applications (known as “apps”). Whilst web-site contact is the most cost-efficient, contact online is not always the most appropriate because of either the nature of the enquiry or the customer preference.
4.3 The use and popularity of the Internet continues to grow. This is particularly true in Bracknell Forest as use of our website to access services and information has remained high despite the age of our site. To meet expectation and demand it is important that the website, the range of online services available and the opportunities for self-service are continually reviewed and extended. Online services are quick and easy to use, available at a time that suits the customer and are the most cost-effective contact channel. On average web-based transactions are 10% of the cost of the same transaction being carried out over the phone.
4.4 The range and use of electronic contact is growing with emerging technology, the most recent being social media such as Twitter and Facebook, and also mobile phone applications. Recent pilots carried out have proved the worth of such channels and work continues to identify opportunities for their use. The growth in the use of mobile phones to access applications, commonly known as “apps”, is growing rapidly. Essentially, people are preferring to use their mobile phone, rather than a PC, to gain access to the internet and 12.8m people (26.5% of the population) have a smart phone.
4.5 Access to service entitlement should be joined up, wherever appropriate, by arranging services in clusters to place the focus on the customer and avoid duplication of contact. The range of enquiries and service requests now handled by Customer Services enables these clusters to be created across service areas driven by “life events”. “Life events” would include, for example, a new resident to the borough, bereavement, becoming a pensioner and becoming without work.
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4.6 There should be a consistent approach to handling enquiries and customer care. The existing complaints process, customer response standards, service standards and the charter for customers will be reviewed annually to reflect the balance between customer expectation, quality service delivery and available resources. Training on enquiry handling shall be provided to all staff who are in direct contact with customers, with timely refresher training, as appropriate. This links with other service-led improvement plans and strategies for customer service delivery.
4.7 Opportunities will be taken to work with partner organisations on customer services. Through the Bracknell Forest Partnership, the Communications and Customer Services Working Group has been established. Common areas of interest to consider and develop include the use of the Council’s main town centre reception at Time Square for promotions, displays and surgeries, and the linking of key web-site information.
Customer Feedback 4.8 Extensive work has been undertaken to test opinions of customers, including a range of specific surveys, consultations and mystery shopping, all of which provide valuable insight into customer expectation and their preferred contact and access channels. Further information is contained in the Appendix A.
Summary 4.9 The key message from customers is that their day to day experience of contacting the Council is good both in terms of response times and the style of the response. They are generally satisfied with the range of contact channels currently available and there is interest in the emerging contact channels of social media and proactive e-mail alerts and text messaging. Focus on the emerging contact channels and customer preference for how they communicate will maintain or extend that level of satisfaction.
4.10 Feedback from the elected members indicates that members agree with the views of the customers and they are keen that the standard provided by the existing service is maintained.
4.11 Members also share the customers’ interest in developing the emerging online, electronic and proactive communication channels, where it is supported by a business case. This supports the key aim to develop and implement a channel strategy which moves customers to more cost-effective contact channels and reduces the cost of the delivery of customer- facing services across the Council.
5. Action Plan
5.1 Channel Strategy
5.1.1 The channels through which services are delivered and by which customers have contact with the Council are a critical part of service provision. A channel strategy is the Council’s plan to allow access to services through appropriate and cost effective contact channels having regard to the needs and preferences of its’ customers. For the Council, the most cost-effective contact channel is on line through the web-site. The channel strategy is therefore a key component of the objective to reduce costs by seeking to move customers from more expensive channels, such as face to face to telephone or online.
5.1.2 It is important to consider the customer’s access to technology, the type and complexity of their enquiry, their personal preferences as well as their respective capabilities when they select the contact channel of their choice. A channel strategy is not just about deliberately moving customer contact to online services, even though web contact is the lowest cost to the Council and customers have said through their feedback that they want the Council to be cost-efficient.
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5.1.3 Some circumstances require a greater degree of human contact, particularly where a two- way flow of information resolves the enquiry in one contact, or where a customer requires some level of reassurance. This may also be necessary where customers have a greater degree of vulnerability, for example young people with housing or social care needs.
5.1.4 Knowing who our customers are for any given service will help inform the channel(s) most appropriate for the delivery of that service, having regard to the level of human interaction required and the targeted customers.
5.1.5 Contact channels and their availability should be kept under review to establish customer trends due to changing technologies and changing customer preferences. Existing contact channels include: • telephone • face to face • e-mail • letter or fax • web-site or on line • various electronic channels
5.1.6 As well as the website the Council offers a range of alternative electronic channels. These include a digital TV service, mobile website as well as information delivered via five information kiosks situated in Bracknell. The Council also has a growing presence on social media, with Facebook and Twitter sites for the Council as a whole and for a number of individual services. The use of applications on mobile phones are being developed at pace and are popular with mobile phone users. There is a prediction which suggests that within a couple of years, access to the internet will be greater from mobile phones than computers.
5.1.7 The Cabinet Office, local authorities and IT suppliers are supporting an initiative entitled “Race Online 2012”, which aims to raise the level of internet access and use by the time that the London Olympics are under way. The Council’s own channel strategy will support this initiative by highlighting the work the Council is already doing to get more residents online and using technology.
5.1.8 The optimum channel for the Council should be the easiest for customers to use, in order to encourage them to use it. However, there should be no barriers for customers who might prefer to use other channels. Customers who do not have access to electronic means of communication should not be disadvantaged when conducting their business with the Council.
5.1.9 Opportunities to link channels with our partners should also be explored, initially through the existing Partnership arrangements.
5.2 Outbound proactive communication
5.2.1 Consideration will be given to the use of outbound proactive communication to help to increase and encourage channel shift and take-up of web based services. Email and SMS text alerts can be used to push information to residents and prompt them to revisit the website and transact online.
5.2.2 Social media is being used in a similar way by helping to promote the range of services available to harder to reach sections of the community such as young people. A range of social media pilots are underway and provide a popular means of two-way communication between users.
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5.3 Existing and emerging technologies to support customer service delivery.
5.3.1 Existing and emerging technologies need to be reviewed on an ongoing basis to assess their potential to support customer service delivery. The Council already possesses a wealth of web based services, such as online payments, planning and leisure bookings, which provide for self-service during and outside of office hours. Ongoing review and improvements made to their usability will encourage increased take-up and user satisfaction.
5.3.2 It is already clear that mobile will increasingly become a key channel moving forward. The new website will be developed to be delivered via mobile. Mobile “apps” are also likely to develop in importance and need to be fully integrated into any future channel mix.
5.4 To provide quality customer services which are cost efficient and value for money
5.4.1 Over the period of this strategy, the shape of the Council will inevitably change due to financial constraints. The impact change will have on customer service delivery will need to be carefully considered so that customer expectation is managed whilst taking opportunities to reduce costs.
5.4.2 Efficiency may be improved by answering more enquiries at the first point of contact. This enables services to be grouped in clusters to provide a more complete service to customers, whilst at the same time freeing up the time of staff whose time is better spent on delivering services. A review of end to end processes, from the frontline service to the service delivery and the administration that supports the process will contribute to the efficiency and also reduce costs.
5.4.3 To enable cost efficient customer services to be provided, available resources need to be focussed on, and configured around the customer. Rarely used contact channels will be reviewed to determine where and how customers may be shifted to more cost-efficient contact channels. Existing online services will also be reviewed to make them easy to use.
5.4.4 The continued focus on reducing “avoidable contact” will reduce the total number of customer contacts across the council by removing waste and duplication in business processes, and therefore reduce costs. Examples of where customer contact may be reduced include : a) improved clarity of information provided b) reduced poor signposting to services c) reduced repeat contact from the customer, who is providing the same information d) reduced unnecessary progress chasing by the customer e) reduced repeat contact due to premature closure of an enquiry
5.4.5 The channel strategy, outlined in point 5.1 above, will focus on moving customer contact to lower cost channels. Whilst self-service through the council’s web-site is the channel with the lowest cost, the reasons why customers use a particular channel need to be borne in mind when delivering a channel strategy. The channel strategy will seek to reduce the number of telephone calls and face to face contacts.
5.4.6 As well as seeking to reduce costs, opportunities will be taken to generate income whilst delivering customer-facing services across the council. Consideration will be given to moving telephone calls to a premium rate telephone number and how income may be generated through the web-site. Proactive outbound communication to residents by SMS text or e-mail alerts will promote council facilities and specific events.
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5.4.7 The model for delivering customer-facing services across the Council will be kept under review so that opportunities are taken for reducing costs by working with partners and other service providers.
5.4.8 The broad aim for moving customers to more cost-efficient channels is to reduce the number of inbound phone calls by 10% over the life of this strategy, reduce face to face enquiries at reception by 5%, whilst in the same period increasing use of the web-site by 10%.
5.4.9 An action plan which delivers this strategy will be developed and implemented. Work is to be prioritised to deliver the action plan within existing resources. A business case is to be made where there are opportunities for future savings through investment
6. Training
The Action Plan needs to be supported by the capabilities of our employees.
6.1 In order that a high level of customer service may be provided across all contact channels, all staff handling customer enquiries across the Council are trained appropriately in awareness issues, “soft skills” and the systems used for enquiry logging and information provision. Refresher training shall take place at regular intervals to ensure that knowledge is maintained and kept up to date. The existing programme for delivering this training shall be maintained.
6.2 Staff in Customer Services in particular are cross-trained so that they are able to respond to enquiries made by telephone, face to face, by e-mail or by any of the range of emerging technologies.
6.3 Those staff in ICT Services are trained in the range of systems used, in order that support may be provided to all service areas.
6.4 ICT Services shall keep up to date on existing and emerging technologies in order that their advice may provide all service areas with an awareness of the opportunities available for customer service delivery.
7. Monitoring
7.1 Overall governance and monitoring of the Strategy and it’s action plan will be provided by the Customer Contact Strategy Group, chaired by the Director of Corporate Services. A representative from each directorate will be required to sit on the Group. Corporate Services will be represented by the Chief Officer: Customer Services, the Customer Services Manager and the Chief Officer: Information Services.
7.2 Critical to the strategy is the monitoring of customer feedback. Customer satisfaction surveys will continue to be used in order to assess the impact of changes to customer service delivery. Appendix A demonstrates how customer feedback has already been obtained.
7.3 Progress of the strategy will be reported to the Council’s Executive on an annual basis, and also reviewed by the Overview and Scrutiny Commission.
7.4 The Strategy Action Plan shall be updated at six monthly intervals throughout the year.
7.5 The Customer Contact Strategy Group will be supported and complemented by the following groups :
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• CRM Operations Group • ICT Steering Group • Website Content Group • Office Accommodation Strategy Working Group • Bracknell Forest Partnership Communications and Customer Services Group • Groups which monitor individual service area’s improvement plans and strategies, for example in the Benefit Service.
8. Conclusion
This Strategy will build on the progress made in delivering customer-facing services across the council over the past four years of the previous strategy, whilst reacting to the financial constraints. The high use of the Council’s web-site by residents provides a platform for channel shift to move more customer services to the web-site and in the process reduce costs. The channel strategy which will be developed through the remainder of the year, and the reduction of “avoidable contact”, are key to the successful delivery of this strategy for the period 2011 -14.
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9. Customer Contact Strategy - Action Plan 2011-2014
Key Aim 1 : To review inbound customer contact and to develop and implement a channel strategy so that customers are encouraged, where appropriate, to make maximum use of online services
Objectives
1.1 To provide a range of contact channels which recognises customer preference and customer profile.
1.2 To promote digital inclusion by the development and implementation of a channel strategy so that customers are encouraged, where appropriate, to make maximum use of online services.
1.3 To provide services electronically so that customers may carry out their business with the Council at a time and in a manner convenient to them.
1.4 To consider where investment would support channel shift to online and electronic services.
357 Task By when By whom `Monitoring Update 1.1.1 Provide a range of contact Ongoing CO:CS Relates directly to the Channel channels to suit customer and CO: IS Strategy. expectation and profile. underway Service Use and cost of providing area contact channels are kept under Moving enquiries to lower cost managers review. contact channels, usually, but not always, web-related services.
Review which services are most appropriate for particular contact channels.
1.1.2 Develop and implement a Mar 2012 CO:IS Business case approved. customer portal to allow secure CO:CS Options appraised. access to customer’s personal May require support from a details and general information. system supplier to implement. Online access available. 1.2.1 Develop and implement a Jan 2012 CO: CS Strategy is developed and . Channel Strategy. CO: IS implemented as per its Action
Service Plan priorities area managers.
1.2.2 To re-develop the public Jan 2012 CO: IS Increase in online and electronic website to enhance accessibility and CO: CS services available. usability and encourage further take- Service Growth in their use by up of online and electronic services. area customers. managers. Improved user satisfaction and To recognise that access to web usage of the website. services via a mobile phone is Web-site is developed so that increasingly more popular than via a access may be made via mobile PC. phone or PC.
1.2.3 Review and improve current Ongoing CO: IS Integration developed where on line service provision and develop CO: CS business case is met. back office integration where Service feasible. area 358 managers.
1.2.4 Promote digital inclusion and Ongoing CO: IS Digital inclusion is promoted. support the “Race Online 2012” CO: CS initiative. Service area managers.
1.3.1 Promote opportunities for Ongoing CO: CS More self-service provided. customer self-service either remotely CO: IS or on site. HCM Service area managers. 1.4.1 To consider investment in Mar 2012 CO: CS Business case is developed. channel shift. CO: IS Service area managers.
Key Aim 2 : To deliver the full potential of outbound proactive communication to promote services, maximise income and reduce inbound contact.
Objective
2.1 To engage in proactive outbound communication to provide information, promote services, maximise income and reduce the number of inbound enquiries.
Task By By whom Monitoring Update when 2.1.1 Develop opportunities for Mar CO:IS Business case developed. automating customer self-service with 2012 CO:CS Automation and online customer the CRM system, so that customers tracking are completed. may log and track their own service
requests.359
2.1.2 Develop a strategy for the use Mar CO: IS Strategy developed and social of social media. 2012 CO: CS media as a contact channel is implemented. Social media implemented as a contact channel.
Consider the use of web-chat.
2.1.3 Develop the use of e-mail Mar CO: IS Business case developed. alerts and SMS texting alerts for 2012 CO: CS Support from a system supplier customers who subscribe to an to implement. information and news service. Volume of customers subscribing to the service.
Key Aim 3: To take advantage of existing and emerging technologies to support customer service delivery.
Objective
3.1 To review and consider the use of all existing and emerging technologies in customer service delivery.
Task By when By whom Monitoring Update 3.1.1 Consider use of emerging Ongoing CO: IS Business case made. technologies to extend the range of and CO: CS New contact channels contact channels available to underway introduced or existing channels customers. improved.
Demonstrate the potential of the Service teams across CRM system across departments departments become regular and service areas. users of the CRM system.
The CRM system is considered a potential solution in any
360 system procurement process. This is monitored through the ICT Steering Group.
3.1.2 Review the use of the Dec 2011 CO: IS Business case made. functionality of the VIP telephony CO: CS Optimum use of telephony system. system.
Roll-out of VIP system to further Ongoing CO:IS Functionality available across service areas. CO:CS more service areas.
Review the deployment of the Dec 2011 CO: IS Optimum use of telephony telephony network and standardise network sites on one telephone system.
Key Aim 4 : To provide quality customer services that are cost efficient and value for money.
Objectives
4.1 To make optimum use of council sites and buildings from which to deliver services to customers.
4.2 To review performance standards to determine the impact on customer contact.
4.3 To seek opportunities to work with partners to join up service delivery .
4.4 To make efficiency savings and reduce the cost of the delivery of customer-facing services across the Council.
Task By when By whom Monitoring Update 4.1.1 To make optimum use of Ongoing CO:CS and Customer enquiries handled at Council sites and buildings from service area various sites across the which to deliver services to manager. borough.
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Transfer of all customer contact March Customer enquiries transferred from Easthampstead House to 2012 from Easthampstead House to Time Square so that customers Time Square. need visit just one town centre Links with the Accommodation building. Strategy.
4.2.1 Review and maintain the Sept CO:CS and An annual report is presented to corporate complaints process. 2011 service area the Executive. managers. Complaints are logged in the quarterly Performance Monitoring Reports, or equivalent. Any lessons learnt or service improvements are acted upon.
4.2.2 Review and maintain the Sept CO:CS, HCM Standards are monitored, service standards and the Charter 2011 and service reviewed, followed and for Customers. area promoted. managers.
4.3.1 To seek opportunities to Ongoing CO:CS, HCM Opportunity exists through the work with partners to join up and and service Bracknell Forest Partnership service delivery to customers. underway area (BFP) Communications and managers Customer Services Group.
4.4.1 Transfer further customer- Ongoing CO:CS and Flow of services transferred to facing services to Customer and service area Customer Services. Services, as appropriate. underway managers
Consider how the changing shape Regular meetings with service of the organisation will affect area managers to identify customer service across the process improvements to council. enhance the customer experience. Improve efficiency by handling more contacts at the first point. More customer enquiries grouped in clusters around “life Configure resources around the events”. customer362
Take opportunities to review Links to business processes to ensure that roll-out of processes are stream-lined, the eliminate waste and duplication corporate and are delivered through the most CRM appropriate contact channel(s). system. Include processes in the corporate CRM system, where appropriate.
4.4.2 Reducing “avoidable Ongoing CO:CS and “Avoidable contacts” reduced. contacts” and removing waste and and service area duplication in customer-related underway managers processes : a) improve the clarity of information provided b) reduce poor signposting to services
c) reduce repeat contact from the customer, who is providing the same information d) reduce unnecessary progress chasing by the customer e) reduce repeat contact due to premature closure of an enquiry.
4.4.3 Actively move enquiries to Ongoing Directors, Links directly with the Channel lower cost contact channels. CO: CS Strategy - Action Plan point 1.1. CO: IS and Data is gathered and assessed Gather data about contact service area in order to support channel shift channels for individual service managers. and reduce costs. areas across the council to determine the preferred contact channel.
363 4.4.4 Generating income such as Mar 2012 CO: CS Income is generated. using a premium rate telephone CO: IS number.
Consider opportunities for generating income through the web-site, such as advertising
4.4.5 Considering the model for Ongoing Directors, Opportunities considered. delivering customer-facing services CO: CS across the Council and assessing CO: IS and the opportunities for change. service area managers.
Appendix A
Customer Feedback
To test the opinions of customers, a range of specific surveys and consultations took place over the period between autumn 2009 and summer 2010, and provided valuable insight into customer expectation and their preferred methods of communication. These surveys are supplemented by a range of customer feedback, mystery shopping and bench-marking.
Bracknell Forest 1500 1.1 The November 2009 survey of the “Bracknell Forest 1500” (BF1500) focussed on communication and customer service. The survey asked what was important to customers and which of the previous strategy’s key themes were most relevant to them. In order of importance, customers responded as follows : • I want to get the right answer to my enquiry • I want a consistent response, which is pleasant and quick • I want to ring one number and not be passed around • I want the Council to be cost efficient
Of much lesser importance to those who completed the survey was feeling important to the Council and being able to contact the council 24 hours a day. However, analysis showed that respondents with a disability were more likely than those without a disability to rate “I want to be able to contact the council 24 hours a day” as the most important of the six key themes.
1.2 In the same survey, the BF1500 were asked to comment on anything the Council could do better when communicating with residents. Responses were grouped to enable some analysis. Positively, the most common response related to being happy with the service provided (30%). Areas which prompted comment include improving listening skills, returning calls and messages and keeping people more regularly informed.
1.3 In terms of the method used to find out information, the Council’s web-site and the Council newspaper Town & Country were the most likely sources of information. Leaflets delivered to the door and the local press were the next preferred sources. Generally, the older the respondent the less likely they were to use the web-site for information. For example 77% of the 35-44 age group use the web-site compared to 21% of the over 65’s.
1.4 The BF1500 were also asked about their method of communication. The method varies dependent upon the nature of the business that the resident has with the council. Communicating by phone remains the most popular and is three times greater than the next preferences of by e-mail and via the council’s web-site. Respondents aged over 65 were three times less likely to use e-mail and the web-site as those aged under 65.
Older People 1.5 The Older People’s Communications Audit gave specific feedback about their contact channel preference, the top four of which were : • 49% telephone • 23% face to face • 11% e-mail • 6% web-site
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When asked why they chose their preference, the key factors were • 24% convenience • 20% ease of use • 15% preferred human contact • 14% speed of use • 11% lack of access by other methods.
In terms of getting information about the council, just under two thirds of respondents (61%) prefer to receive their council and partner information through the council newspaper Town & Country.
Website Users 1.6 Feedback on the Council’s website is encouraged via a visitor survey, conducted independently on the council’s behalf by ROL. The survey is offered to every tenth visitor as they land on the website. This survey reveals a high level of take up by local residents (41.7%) and a high level of satisfaction with the website. It is also rated as being the best unitary website in terms of finding information (with a 10.53% failure in locating content).
1.7 There is ongoing consultation with customers using the Opinionmeter at leisure sites and the libraries, whilst the Parks & Countryside section gathers feedback via the GreenStat interactive website. Leisure and Libraries undertake annual exercises for “mystery shopping” and bench-marking.
Leisure and Library Customers 1.8 Satisfaction with services provided by the Leisure & Culture Division is high. In the final Comprehensive Area Assessment the satisfaction levels for Bracknell Forest residents were:
• Sports & Leisure facilities 76% (Upper threshold 60%) • Parks & Open Spaces 84% (Upper threshold 77%) • Libraries 70% (Upper threshold 72%)
As part of the customer service standards operated by Leisure and Libraries there are procedures in place to meet customer expectations with regard to communication by telephone, e mail, letter and in person, as well as complaints procedures. The main Leisure facilities have a strong commitment to the health and safety of customers, operating under the British Standards Institute’s stringent OHSAS 18001 requirements. Commitment to customer service is demonstrated by Coral Reef, The Look Out and Bracknell Leisure Centre all achieving the Customer Service Excellence Standard. In addition the Parks & Countryside section has been awarded Green Flags at Popes Meadow, Lily Hill Park and Sandhurst Memorial Park / Shepherds Meadow.
Children and Young People
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1.9 Views of children and young people have not been sought specifically for the purpose of this strategy, however, it is important to note the range of engagement that is undertaken on a regular basis. Many young people will have access to information through a variety of local resources through school, web and internet access, including the borough’s own Xpresionz website for young people. In addition, there are nationally led consultations, for example, Tell Us, where young people are asked a range of questions about things that impact on them as they are growing up, the Family Information Service (formerly the Children’s Information Service) and Connexions.
1.10 Whilst there are a range of widespread resources available to young people to access information, it is unlikely they will approach the Council directly unless they are seeking specific help such as housing advice, housing support or benefits information, or if they are seeking support from Children’s social care. These young people are most likely to have been signposted here by other agencies, or will present themselves in person, initially at the reception at Time Square.
Benefits Service customers 1.11 The Benefit Service has established a benefit user group of benefit customers. This group has worked with the Benefit Service to establish customer service standards as well as review the benefit pages of the Council's website. They have reviewed customer correspondence and have also been consulted on the Benefit Service improvement plans. The group has also provided feedback on the receptions improvements at Time Square. An applicant panel helped the Housing service develop BFC my choice based letting scheme. That group will shortly be resurrected to help review that service area.
Adult Social Care and Health clients 1.12 Opportunities will also be taken to deliver our services to address the needs of our service users. For example, in Adult Social Care and Health, the Hard-of-Hearing group are undertaking a project that aimed to understand the experience of deaf and hard-of-hearing (HoH) users of GP services in the Bracknell Forest area when making appointments and engaging in consultation with surgery staff and clinicians. It also sought to understand the perspective of Practice Managers in relation to how deaf and hard-of-hearing patients access GP services. The Deaf and Hard of Hearing group have a final survey report and are currently using this to inform Practice Managers of the issues facing people who are deaf and hard of hearing by having a face-to-face meeting, as well as trying to organise deaf awareness training for the GP surgery staff.
Recommendations from the final survey report include :
o GP practices should offer a greater variety of ways of making appointments such as Type Talk, text phone, email, online booking, texting and fax. o GP practices should give more information to deaf or hard of hearing patients about the ways in which they can make an appointment with the practice; this might be through communications sent directly to patients’ homes and / or publicity in the surgery. In particular, where loop systems are available, that should be clearly advertised in the surgery. o More GP practices should train their reception staff and medical staff in dealing with patients who are deaf or hard of hearing so that these patients can have an equal level of access to GP services and an equal level of care once they are at their practice surgery.
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1.13 Periodic surveys of service users with specific needs are undertaken, for example residents with long-term conditions or dementia and also residents who are users of specific sites and locations.
Disabled customers 1.14 In addition, the Council’s Access Advisory Panel feedback their comments and any concerns on issues of disabled access.
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Appendix B
How Customers Contact Us and How We Respond
The Customer Contact Strategy 2007 – 10 was mainly based around reactive inbound customer contact. The action plan to deliver that strategy contained numerous tasks focussed on this contact and as result much work has already been completed.
Role of Customer Services 2.1 A wide range of service area enquiries are now handled by Customer Services. Enquiries handled by Customer Services in support of service areas are included in Appendix D of this strategy. Any service enquiries not yet handled by Customer Services will be reviewed during the life of this strategy and transferred to Customer Services, if appropriate.
2.2 Across service areas, the various enquiries handled by Customer Services fall into one of, or a combination of, the following enquiry types : • Provide information to the customer • Take a request for service • Deal with a customer application • Take a payment • Obtain information from the customer • Take a photograph of the customer
2.3 Enquiries may be segmented in many different ways and one way is to segment between general or specialist enquiries. Customer Services aim to handle and resolve first-time and repeat general enquiries. For first-time specialist enquiries, Customer Services are the conduit through which the customer makes contact with the most appropriate person to respond to the enquiry. Repeat specialist enquiries are made direct to the relevant service area.
2.4 Customer Services use the Council’s web-site for information to enable them to respond to customer enquiries. It is therefore vital that the information is continually kept up to date by the various service areas in order that a consistent response is provided to customers. Customer self-service by obtaining information directly from the web-site is the most cost-effective of all the contact channels.
2.5 Customer Services use a “drop account” to receive and respond to customer e-mails. Other service areas across the council use drop accounts so that contact from the customer is not made using the e-mail address of a named individual member of staff. This allows contact with the customer to continue during periods of staff unavailability. Where appropriate, e-mail contact should be preferred to letters through the post, because of speed and cost of response.
“Family” of Telephone Numbers 2.6 Customer Services respond to all enquiries made through the Council’s main telephone number of 01344 352000. The telephony system provides performance and management information about call handling. Any service area which has a high volume of specialist enquiries also uses the telephony system. Their publicised numbers fall within the “family of numbers” in the range 352000 to 352020. To date, the service areas within the family are Registrars, Housing Options, Benefits, Children’s social care, Adult social care and Revenue Services.
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2.7 Customer Services and all service areas within the family of numbers will use the VIP / Telephonetics telephony system. This system provides performance management information about call volumes, abandonment rates, response times and call duration. In addition, telephone calls may be recorded for training or monitoring purposes. However because of the stringent requirements of the Payment Card Industry standards (PCI), no recording may be made where a customer’s debit or credit card details are being taken for the purpose of making a payment.
Telephone Contact Hours 2.8 The current available times for contacting the Council by telephone on it’s main number of 352000, are 8.30am to 5pm Monday to Friday, excluding public holidays and these should be kept under review. Outside of these times, the Council’s main number has a recorded message with the option to contact either the Emergency Duty Team for social care or Forestcare, if the customer wishes to speak with somebody as an emergency out of hours.
2.9 In addition, Forestcare also provide a 24/7 contact service and monitor a customer base of almost 6,500 people. In this regard they respond to telephone calls, telecare alarms and other telecare sensors, such as door entry systems, fire and smoke alarms, and individual customer lifelines.
Town Centre Receptions 2.10 The customer reception area at Time Square north was refurbished in June 2010 and is now the primary location for face to face customer contact. Some customers still visit Easthampstead House, primarily for the Registrar’s Service, and many enquiries may be handled from either location. As plans for the use of the town centre buildings are developed, the opportunity should be taken to consolidate all town centre customer contact at Time Square.
2.11 The town centre reception areas provide customer self-service facilities and offer access to a translation and interpretation service. Opening hours are currently 8.30am to 5pm Monday to Friday and should be kept under review.
Leisure and Libraries 2.12 Other council-owned sites, principally leisure sites and libraries provide opportunities to display and promote information about the services of the council and its’ partners. The opening hours of these sites vary considerably and in many cases extend late into the evenings and at weekends and public holidays.
2.13 Many of the direct customer visits to leisure sites are made outside normal business hours. Facilities such as the leisure centres and Coral Reef operate extensive opening hours. For example, Edgebarrow Sports Centre is open to the public from 7.00 am until approx 11.30 pm in the week, and from 9.00 am until around 11.00 pm at the weekend. Bracknell Leisure Centre is open from 5.30 am until around 11.30 pm in the week and from 7.30 am until around 10.00 pm at the weekend. These weekend closing hours will be further extended for special events and functions. Some libraries offer a service up to 7.00pm weekdays and also open on Saturdays. Parks, and the facilities within them, are open access.
2.14 In addition to direct visits, the front line staff handle telephone and e mail enquiries or transactions on a routine basis. There are also “self service” web enabled access channels that operate 24/7. Indeed, in 2009/10 remote online transactions via the Library Management Service reached over 200,000 and online bookings via the Leisure Management System reached nearly 9,000. This is in addition to the
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significant number of visits to the Leisure & Culture pages on the Bracknell Forest website.
Customer Service Based Around “Life Events” 2.15 Over five years, a range of service enquiries have been transferred to Customer Services. Customer Services are now in a position to start to link services which span departments and service areas to deliver a joined-up service to customers based around “life events”. “Life events” would include a new resident to the borough, bereavement, becoming a pensioner and becoming without work. For example, a new resident moving into the borough for the first time may telephone the Council to provide details of their move for council tax purposes. The opportunity may be taken to ensure that the resident is also aware of the waste and recycling arrangements and to deal with requests for any other information or service.
2.16 The “Tell-Us-Once” bereavement service will also promote joined-up service. Discussions with the Government’s Department of Works and Pensions (DWP) have begun in order that the service is available from summer 2011. The service will allow a range of council services and other external organisations to be passed details of a death, provided the bereaved wishes to inform them by this method. The service is entirely optional for the bereaved and has proven to be helpful in the areas where the service was piloted.
2.17 Linked to the life events is customer verification. There are services which require some form of customer identification and / or evidence of their household members and income. To provide a more complete service, wherever practical, customers should only be required to be verified once. The process of verification should include raising awareness of associated services for which the customer may not have applied.
Customer Feedback 2.18 Feedback will help understand customer expectations or provide information which will contribute to the delivery of a service being changed for the better. Periodic satisfaction surveys will contribute to the feedback process.
2.19 A process for customer comments, compliments and complaints shall continue to be published. The process shall be made available online and also in a booklet. The existing process has been reviewed and found to be working well, so is therefore to be retained. Numbers, types of complaints and any lessons learnt are recorded in the quarterly performance monitoring reports for each department. An annual report about complaints includes this information and also details of any complaints made to the Local Government Ombudsman.
2.20 The corporate charter for customers, customer response standards, service standards and complaints process will be reviewed in conjunction with this strategy.
Use of the Customer Relationship Management (CRM) system 2.21 The corporate Customer Relationship Management (CRM) system, supplied by Lagan, went live in November 2006. The CRM system is used extensively, but not exclusively, by Customer Services and contains numerous scripts to provide consistency of responses and processes. Scripting is in place for processes relating to contact by telephone, face to face at town centre receptions and by e-mail. As service areas processes are scripted, the opportunity must be taken to review and re- engineer the process to eliminate any waste or duplication within the process.
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2.22 The CRM system is fully integrated with the Confirm system used for highways, street cleansing, land-scaping and trees enquiries. Experience of integration has proven to be costly, both for implementation and ongoing maintenance. As a result, before embarking on future integrations, the business case should be carefully considered. The CRM system may be used to provide an end to end system solution, which removes the need for any integration. An example of this is for waste and recycling processes. For these processes the system is also used by the contractor, who has specific security rights of access to just that part of the system which they require for their business.
2.23 There is “lighter” integration from the CRM system to the GIS system used for property address purposes and the Smartconnect system used for applications for the e+ card. In addition, there are numerous links to the council’s web-site, which provides a valuable source of information to enable enquiries to be answered in a consistent manner.
2.24 Customer Services and various service areas within the “family of numbers” use a telephony system which provides a range of performance and management information. The current upgrade to the telephony system provides some automated speech recognition functionality, known as virtual assistant, which removes the need for human intervention in connecting callers to the appropriate person. Integration between the telephony and CRM systems provides a more joined-up service to customers and will identify the caller from their telephone number if they have called us before. This integration will also pause call recording when a debit or credit card payment is being taken.
Digital TV 2.25 Digital TV has a user base and opportunities to deliver services and information through this contact channel should be taken.
Mobile 2.26 Information published to Digital TV is also available via mobile at http://bracknellforest.mobi . In addition, an iPhone application has been developed by Looking Local, the providers of the Digital TV and mobile services. The iPhone application enables residents to report issues, such as faulty street lights, potholes and abandoned vehicles. It is possible to include a photo, location information and comments to help describe and locate the issue.
Web-chat 2.27 Web chat is an emerging communication channel. Web chat is essentially an electronic conversation, so from a customer expectation point of view it requires a relatively instant response compared to an e-mail. A customer would send in their enquiry and engage in an online two-way communication until the enquiry was closed. Opportunities to offer this contact channel are to be considered.
Council’s Web-site 2.28 The website is being redeveloped to place greater emphasis on enabling service delivery and customer service. Site content will be reduced and refined to use less resources to maintain and keep up to date, but more importantly make it quicker and easier for the public to find information and services. The search facility will also be upgraded to further improve the ability to find information. Accessibility will also be improved to ensure that everyone has equal access and that the site meets government guidelines.
2.29 The benefits delivered by the web-site re-development will be
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• To re-align the focus of the website to place more emphasis on enabling self- service and customer service • To improve the usability of the website in such a way that people can find what they want quickly and efficiently • To enable the delivery of a fully compliant website in terms of accessibility (WAI ‘AA’ – which will is a mandatory requirement from March 11) • To provide a single source of content that can be presented automatically for online, mobile, print and other media delivery platforms • Explore the possibility of generating income for the Council.
2.30 A developed web-site allows the customer to self-serve and perform a range of activities at a time which suits the customer, as access is available all day, every day. Apart from the benefit to the customer, the Council also benefits by requiring less staff to handle customer enquiries through other contact channels. Self-service is to be encouraged wherever appropriate.
2.31 An example of how the web-site supports the customer and encourages self-service is the Bracknell Forest Council Information Hub, also known as i-Hub. This has been created by Adult Social Care and Health as an online directory of services, support, advice sources and activities for residents of the borough who may need some support to remain independent. The i-Hub features information about local groups, activities in the community, education and volunteering opportunities, agencies that provide support at home, businesses that can deliver meals and registered care homes for people who no longer feel able to live in their own home with support. The Council’s web-site has links to Disabled Go and the youth web-site Xpressionz.
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Appendix C
How We Promote Services and Provide Information to Customers
The Customer Contact Strategy action plan for 2007 - 10 focussed mainly on reactive inbound contact. However a combination of emerging technologies and customer expectation and preference now requires a greater focus on outbound communication and therefore has links with the Council’s communication strategy.
All forms of communication should be consistently branded within the corporate style.
3.1 Outbound communication has been used to provide information, promote services and maximise income. However, a more proactive and targeted approach could reduce the number of inbound enquiries and therefore the cost of handling those enquiries.
Paper-based 3.2 Leaflets about the various leisure opportunities and events are popular with customers and play an important part in the promotion of leisure. A range of other leaflets are displayed at the reception areas and based on the number taken by customers are not particularly popular. Leaflets take considerable resource to write, print, display, and store. Some of the information in the leaflets is subject to change and therefore may be misleading to the customer. Too many are just discarded over time for re-cycling. The web-site should be encouraged as the source of reference and this may be achieved by printing the relevant web pages for a customer, when requested, rather than pre-printed.
Local press and advertising 3.3 The local press is used to advertise and promote council services and individual news items raise awareness of specific events and achievements. The circulation of blanket, borough-wide communication is referred to in the Communications and Marketing Strategy. For example, the council distributes a newspaper, “Town & Country”, to every household in the borough at periodic intervals through the year.
Promotion of Services at Council Sites 3.4 Opportunities are taken to maximise the use of council buildings and leisure sites to advertise and promote services, events, achievements and issues. Notice boards at the town centre offices and various other sites across the borough are available to promote events and raise awareness of particular issues. Notice boards may be supplemented by temporary display stands. Events could be combined with those of partner organisations. Advertising in the locality and on adjacent roads, such as the brown road signs for leisure activities, also raise awareness. Supporting information or further information is available through the web-site. Plasma screen presentations at the town centre reception areas should show consistent and relevant information of services and related issues. Leisure sites provide the opportunity to use plasma presentations for council-wide information to customers.
Electronic 3.5 Targeted outbound communication may be achieved by seeking residents to subscribe to electronic bulletins about services and events of interest to them, or by the provision of services electronically. Use of this subscription-style service through e-mail alerts and / or SMS text messages should be considered as a promotional opportunity.
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3.6 Social media is another emerging communication channel. The Council currently uses Facebook and Twitter to communicate with residents and also to promote news and jobs information. Social media can also be used effectively during emergencies, enabling service outages and issues to be promoted in an immediate way, with regular updates to help keep residents informed. The use of social media by service teams is being reviewed and a series of pilots undertaken to review business benefits. Promoting Online Services 3.7 The Library Service The library membership card is part of the e-plus card membership which promotes online application. In addition there are public computers in libraries which enable customers to undertake partial completion of the process.
Since 1999 the library management system has enabled remote access to renew and request items and to search Bracknell Forest Library Services catalogue and the catalogues of other library services in the UK.
Customers can use Library Elf, a service which enables them to manage their library account so that they can be reminded when their library items are due back.
The Library Service offers a wide range of online reference and information sources which give authorised information available remotely. There are also e audio books to download and there will soon be an e book service available from summer 2011.
3.8 Bracknell and Sandhurst Open Learning Centres, UK Online Centres The Centres provide access to ICT for all residents of Bracknell Forest and the wider community.
Courses provided by the adult learning team range from beginner, for those that have never accessed a PC before up to intermediate, for those wanting to develop their knowledge of software and internet packages.
Each term a minimum of 5 courses are delivered that are specific to people new to computers. These are open to all. The course runs for 10 hours and covers the basics from turning on a PC and using a mouse to accessing software and using it for leisure purposes. All ‘First Time on a Computer’ courses are free*. Learners can then progress onto ‘Next steps on a Computer’ a follow on session to develop skills.
As well as basic and intermediate courses we also host regular workshops and learning sessions on software packages and other digital equipment such as buying and using a digital camera, web design, buying and selling on Ebay, social networking and ‘photoshop’.
Specific Silver Surfers sessions and courses are held throughout the year.
UKOnline provides MyGuide a web based learning packages that people can sign up to and work towards in their own time with guidance from tutors. An open session is held every Friday where people can book a PC and practice skills they have learnt in classes. A tutor is on hand every week.
Bracknell Adult Learning is also part of the BBC First Click campaign, Get Online and Race 2012 all schemes and projects aiming to get more people on line and digitally participating. The centre is also a base for purchasing a PC through the governments new campaign aimed at those householders or beginners without a PC to purchase a reconditioned PC for less than £100.
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Every Thursday a ‘Job Club’ is held at the centre. 16 PC’s and IT support is available for job seekers to work on CV’s, applications and presentations as well as use the internet to search for jobs or improve their IT skills.
U3A use the IT facilities once a month for their Computer group.
Bracknell Open Learning Centre has 2 IT suites with 13 and 16 PC’s respectively. Sandhurst Open Learning Centre has 16 PC’s. Both rooms have smart boards, projectors and printing facilities.
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Appendix D
Enquiries handled by Customer Services in support of service areas
4.1 Animal Welfare – poor treatment of animals, movements of livestock
4.2 Benefits – applications and appointments at reception, overpayments, fraud reporting, change in circumstances, trial calculations
4.3 Building Control – book inspections, general advice, receipting and taking payments for applications, dealing with local searches
4.4 Car pool bookings for staff – issuing car keys, checking documentation and drivers registration
4.5 Community Arts & Heritage – enquiries about specific events, booking events and emailing confirmation and leaflets
4.6 Concessionary fares – bus passes, new railcards, disabled passes
4.7 Electoral Services – register, canvass form and postal vote enquiries
4.8 Environmental Health and Environmental Protection – abandoned vehicles, food hygiene, bonfires, abandoned shopping trolleys, fly-tipping, pest control, noise, nuisance, drainage, contaminated land, Immigration entry clearance, air quality documentation, registering a food business, complaints about food
4.9 E+ card enrolment, amendments or replacements
4.10 Housing – applications including help with the online BFC My Choice system, private sector housing, homelessness or re-settlement, deposits for private rent, shared ownership
4.11 Landscaping – grass cutting, hedges, weed clearance, dog fouling, vandalism, litter
4.12 Leisure – half-marathon registration and payment
4.13 Licence and street trading – hackney carriage licences, payments and driver photos, street trading, door to door collections, lotteries, book first aid courses and take payment, check and accept CRB applications, dog control, fund raising, entertainment and alcohol licensing applications
4.14 Life event – new resident to the borough. Joins up enquiries and information about council tax, waste and recycling, bulky waste, electoral registration and school admissions
4.15 Planning – view applications, planning duty officer support, issuing ordnance survey maps and taking payment, check and receipt planning applications, register respondent and applicant information regarding public speaking at committee meetings
4.16 Roads, highways and pavements – traffic lights, street lights, potholes, gritting and bad weather enquiries, traffic calming, parking offences, overhanging vegetation,
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disabled parking bays, parking restrictions, dropped kerbs, drainage, spillage and obstruction conditions, traffic signs, street name plates
4.17 School admissions
4.18 School appeals
4.19 Social Care transport – payment for travel vouchers
4.20 Street cleansing – sweeping, rubbish, dead animals, bus shelters, graffiti, drug- related material, fly tipping, bus shelters
4.21 Sundry invoice payments
4.22 Time Square and Easthampstead House reception duties – signposting, appointments, deliveries, room bookings, pool car/bike, visitors passes, radar key issuing and checking authorisation, authorising chip coins for exit from car parks, acceptance of tenders
4.23 Trading Standards – Consumer Direct, Buy with Confidence, food complaints, “home authority” enquiries
4.24 Trees – hazardous, protected, nuisance, check and send copies of Tree Preservation Orders and take payments
4.25 Waste & recycling – collection days, recycling arrangements, bad weather enquiries, blue and brown bins including payment, bulky waste bookings including payment, ordering and taking payments for extra bin collections, real nappy scheme, RE3 enquiries
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Appendix E
Current contact volumes and key performance indicators
5.1 Incoming telephone calls to the Council’s main number of 352000 average 13,500 per month. The nature of enquiries varies depending upon the time of year. Around 30% of these calls are direct transfer requests, where the Customer Services Advisor performs a “switchboard-style” service.
5.2 The target for answering incoming telephone calls to 352000 is 80% answered within 5 rings. At 30 November 10, 86% of calls were answered within the target for the period 1 April to 30 November 10, and the call abandonment rate was 2.1%. The average call waiting time was around 13 seconds.
5.3 Customer Services currently provide the reception service at Easthampstead House, the main front of house reception at Time Square and the Council’s primary town centre reception at Time Square north. Visitor numbers to these receptions vary from month to month, and average 4,300. The reception at Time Square north receives an average of 2,300 visitors a month, half of which relate to Benefits enquiries. Waiting times for initial service average less than five minutes.
5.4 The views of customers calling Customer Services to seek information or make a service request are sought, by sending a sample of randomly selected customers a reply-paid satisfaction survey form. The target is to achieve a satisfaction level of 80% of customers finding the service either good or better. As at 30 November 10, the satisfaction level of customers was 93% for the period 1 April to 30 November 10. All comments relating to the actual service response are forwarded to the relevant service team manager for their attention and action.
5.5 Customer Services aim to resolve enquiries at the first point of contact. Preventing repeat contact about the same issue reduces failure demand and therefore waste. Service teams across the Council have arrangements in place for dealing with those enquiries not handled by Customer Services and any hand-over points are agreed.
5.6 Web-site take-up is high with 41.7% of residents using the web-site, which is the highest level of take-up in the country. The usage is also high with a monthly average of 104,000 visitors and 604,000 page views. 63% of visitors use the web- site to find out information. The most viewed topic, by far, is information about the various council leisure facilities.
5.7 Digital TV has around 60,000 hits annually and over 6,000 screen sessions. This service, like the web-site, is available 24 hours a day and offers a range of interactive services and information, such as reporting a missed bin, abandoned vehicle, graffiti or a broken street light and requesting services or leaflets, participating in consultations, finding out about local amenities, opening times and a lot more.
5.8 The popularity of social media is increasing. There are 750 “fans” on Facebook, Twitter has around 1,560 “followers”, YouTube has 184,000 channel views and Flickr has 830 photos.
5.9 Online payments is a popular channel for customers paying for services and also their bills and invoices. In the year 2010/11, a total of 31,560 payments were made using Online payments, with a total value of £4.46m.
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5.10 Use of the automated speech recognition telephone payment service for council tax payments continues to grow. This service is available all day every day and is helpful to those customers who do not have access to the internet. In the year 2009/10, 4,820 payments were made using this service, for a total value of £720k.
5.11 Telephone calls to children’s social care average 3,000 per month.
5.12 Benefit service calls average at 1,941 a month based on call volumes for the twelve months from Oct 2009 to Oct 2010. Housing service calls average at 1,218 a month based on current data.
5.13 Forestcare provides a 24/7 contact service for eight corporate customers, one of which is the council. They respond to telephone calls, various alarms and sensors or customer lifelines for a customer base of 6,490 customers. They also monitor 2,000 lone workers. The average calls taken per month based on first seven months of 2010 is 36,577 a month. All calls are answered within the target of 97.5% answered within 60 seconds. Calls are taken for eight corporate customers, one of which is the council. In October 10, of the 38,000 calls taken, 655 were actual emergencies where either the emergency services or Forestcare themselves were required to attend.
5.14 The Leisure and Culture Division within Environment Culture and Communities attracts over 4 million customer visits per year. The Leisure Section deals with over 2.1 million customer visits per year, many of whom have direct contact with front line staff. At the two main leisure sites Bracknell Leisure Centre regularly attracts almost 800,000 annual customer visits and Coral Reef around 400,000 annual visits.
5.15 The Parks and Countryside Section has estimated annual visitor numbers at 1.89 million, with 80% of residents using the parks and countryside areas and just under half using the parks at least once a week.
5.16 The average monthly telephone calls to some of our leisure sites are 3,000 for Coral Reef, 2,000 for the Look Out and 2,100 for Downshire Golf Course.
5.17 The library service attracts almost half a million annual customer visits. There were 440,000 personal visits in 2010/11. Remote access to the library management system was over 252,000 visits.
5.18 A very high percentage usage of the BFC website is by those seeking information on the range of services within Leisure and Culture – libraries, leisure facilities, events and parks. In August 10, during the school summer holidays, the web-site attracted over 49,000 individual visitors to the leisure information (this was 40% of all web-site visits that month). In other months there is an average of around 40,000 leisure visitors to the web-site out of an average of 110,000 web-site visitors.
5.19 In 2010/11, there were over 20,200 online bookings made through the Leisure management system.
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Appendix F
Risks Associated with the Strategy
Risk Actions to mitigate Responsible Officer to action 1. Loss of town centre Business continuity plan, which is CO: CS, CO: IS, building. appropriately tested. CSM. Chief Officers and service area managers. 2. Failure of systems and Accurate manual process for CO: CS, CO: IS, CSM data within systems. recording customer service Chief Officers and requests. service area Procedures for the escalation of managers. urgent issues. Range of alternative contact channels. 3. Key people leave, a Robust recruitment and retention CO: CS, CO: HR, number of key persons leave mechanisms. CSM Chief Officers or are unavailable for a Planned handover of and service area significant amount of time. responsibilities. managers. Risk mitigated by sound training of appropriate staff. 4. Insufficient staffing Careful prioritisation. CO: CS, CO: HR. resources. Use of agency staff or consultants Directors and where financially viable to address departmental DMT’s, any shortfalls. Chief Officers and Manage customer expectations. service area Impact reviewed at DMT’s managers. meetings. 5. General health, safety Various examples of good practice, CO: CS, CO: HR, and well-being of staff. such as : CO: P, Chief Officers Offering flu injections to frontline and service area staff. managers. VDU assessments, including eye- tests where required. Monthly health and safety review of the staff work space. Corporate health and safety group. Trained corporate health and safety advisors. Sickness and absence monitoring. 6. Capability to deal with an All frontline staff to receive CO: CS, CO: HR, aggressive or confrontational appropriate training. Management CO: P, and supported customer support for affected staff. by Chief Officers and Means of logging and recording service area incidents. managers. Assessment of risk, including home visits. Panic alarm procedure in place for receptions, which is appropriately tested. 7. Having the staff with the Monthly monitoring of vacancies at CO: CS, CO: HR.
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right skills available to deliver DMT’s considered in terms of Directors and tasks at the right time. resources required to deliver agreed departmental DMT’s, outcomes. Chief Officers and Training matrix and robust individual service area training plans. managers. Annual appraisal with six-monthly review, supported by periodic 1 : 1’s with staff.
8. Potential failure of a key Regular meetings with key suppliers CO: CS, CO: IS, supplier or contractor. or contractors. Chief Officers and Monitoring of performance. service area Agreed targets and outcomes. managers. 9. Lack of funding for future Business case produced and CO: CS, CO: IS, investment, particularly in the budget set for each project and Directors, Chief CRM system and emerging monitored by individual project Officers and service technologies. boards or ICT Steering Group. area managers. Updates on significant projects provided to DMT’s or the Customer Contact Strategy Group. Effective project management based on PRINCE2. 10. Opportunities for Service improvement plans to refer CO: CS, CO: IS, transformation, service to reducing avoidable contact to Directors, Chief improvement and business eliminate waste. Officers and service process re-engineering are CRM protocol to be followed when area managers not taken. considering new computer systems. Use of Sprint - trained staff to support service and transformation reviews. CRM-enable services and processes. 11. Investment in emerging Business case produced and CO: CS, CO: IS, technologies does not keep considered. Directors, Chief pace with customer Range of contact channels Officers and service expectation. available. area managers Awareness of alternative service delivery options. 12. Low take-up of online Publicise and promote online CO: CS, CO: IS, services by customers. services. Directors, Chief Review other contact channels to Officers and service assess viability. area managers 13. National or local Robust emergency contingency CMT emergency plan.
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382 Agenda Item 11
TO: THE EXECUTIVE DATE: 05 JULY 2011
COMMITMENT BUDGET 2012/13 – 2014/15 (Borough Treasurer)
1 PURPOSE OF DECISION
1.1 This report updates the Executive on the significant issues that are likely to impact upon the Council’s budget in future years and represents the first step towards setting a budget for the 2012/13 financial year and beyond.
2 RECOMMENDATIONS
2.1 That the Commitment Budget for the period 2012/13 to 2014/15, summarised in Table 1 of the report be approved.
2.2 That the proposed budget process for 2012/13 as set out in paragraphs 5.19 to 5.22 of the report be approved.
3 REASONS FOR RECOMMENDATIONS
3.1 The recommendations are designed to allow the Executive to develop its Medium Term Financial Strategy and to start to consider an appropriate budget strategy for 2012/13 and beyond.
4 ALTERNATIVE OPTIONS CONSIDERED
4.1 Background information relating to the options considered is included in the report.
5 SUPPORTING INFORMATION
Commitment Budget 2012/13-2014/15
5.1 The preparation of the Commitment Budget for the coming three year period brings together the Council’s existing expenditure plans and is the first formal stage in planning for the revenue budget for 2012/13. The Council’s Commitment Budget is shown in detail in Annexe A and summarised in Table 1.
Table 1: Commitment Budget 2012/13-2014/15
Department Plans Base Planned Expenditure Budget 2011/12 2012/13 2013/14 2014/15 £m £m £m £m Base Budget 76,255 76,255 76,442 76,458 Movements in Year - 187 16 -14 Adjusted Base 76,255 76,442 76,458 76,444
This table illustrates the Council’s current planned spending. The Commitment Budget is based upon the 2011/12 budget approved by Council in March adjusted to exclude the effects of drawings from balances, and takes account of approved existing commitments, including the full-year effect of pressures and economies approved for the 2011/12 budget. Although the individual implications of these items is significant, after an increase of £0.187m in 2012/13 the Commitment Budget is almost static.
383 5.2 Savings identified for future years within the revenue proposals for 2011/12 have been included in the commitment budget. Significant changes to the Commitment Budget submitted in March include:
• Dementia Advisory Service – End of one year funding for service • Refuse Collection – Additional savings from tender exercise • Terms and Conditions – Cost savings across range of benefits • Car Park Season Ticket – Additional pressure from loss of major customer
5.3 As part of the process for building the 2012/13 budget, all commitments will be reviewed over the coming months to ensure that they remain valid and have been accurately costed.
Resources
5.4 There are a number of inherent difficulties in medium-term financial planning, in terms of accurately estimating both available resources and spending needs. As such multi-year grant settlements are welcomed and as part of the 2011/12 Local Government Finance Settlement the Council was notified of the level of government support it can expect to receive in 2012/13. Total external support in the form of general revenue grant will be £23.12m, a reduction of £2.97m compared with 2011/12 (which itself reflected a net reduction of £3.2m on 2010/11).
5.5 Such a significant reduction in external support is consistent with the Government’s policy of front loading spending reductions on local government spending as part of its overall strategy of deficit reduction and is a major contributory factor to the overall funding gap identified for 2012/13. External funding in future years (2013/14 and 2014/15) is less clear. Control totals at governmental departmental levels indicate further reductions of 2% in 2013/14 and 4% in 2014/15. However the Government have begun consulting on what may amount to a fundamental change in the way that local government is centrally funded.
5.6 The Government has indicated that any future funding system needs to include a substantial incentive effect and it considers this might be best achieved through the re- localisation of Business Rates. There are many different ways that Business Rates could be localised and the financial impact at an individual authority will vary depending on the nature of the option chosen. The indications are that the Government will begin the consultation process in July 2011.
5.7 Given this uncertainty the projected reduction in future levels of grant are consistent with the overall forecasts included in last October’s Comprehensive Spending Review (CSR). The risks attached to these projections, once we get past 2012/13, taking account of the uncertainty of the outcome of the Local Government Resource Review, should however be noted.
5.8 The Council also receives substantial external funding through a number of specific grants for which the following assumptions have been included within the latest budget projections.
Council Tax Freeze Grant Whilst there will be no Council Tax Freeze Grant in future years the grant of £1.212m received in 2011/12 will continue to be received in each year of the planning period. This is consistent with the Government policy announcements and with the financial provisions made in the CSR.
NHS Funding for Adult Social Care The Council has been notified of its funding for 2012/13 (£0.932m) but no firm commitments beyond that date have been given. A similar provision has, however 384 been made in 2013/14 and 2014/15 and this represents a potential risk in our forward planning.
New Homes Bonus This new funding stream was introduced in 2011/12 with the intention of encouraging the development of new homes. Based on the local increase in properties in the year to October 2011 the Council received a grant allocation of £647,000. The bonus is payable for six years and will increase in line with property numbers on an annual basis. Increases of £500,000 are forecast for each year of the planning period on the assumption that over 300 houses will be built each year. These figures reflect a level of caution in future growth and include the loss of over 160 properties for 2012/13 in relation to removal of Enid Wood properties in the October 2010 calculation. This increase in properties is also reflected in future projections on Council Tax yield, and as such represents a heightened funding risk should this level of property growth not materialise.
Specific Grants In 2011/12 the Council will receive a number of specific grants totalling £13.294m. Although specific, none of these grants are ringfenced. The amount payable in 2012/13 for six of these grants has already been announced and is £0.410m more than in 2011/12. Funding beyond 2012/13 has not been announced and is likely to remain uncertain given the Local Government Resource Review. Details of the specific grants are set out in table below:
Table 2: Specific Grants 2012/13-2014/15
2011/12 2012/13 Change £000 £000 £000 Early Intervention Grant 4,301 4,547 +246 Learning Disability & Health Reform 7,765 7,949 +184 Community Safety 138 70 -68 Homelessness 50 50 0 Lead Local Flood Authority 120 153 +33 Extended Rights 60 75 +15 Housing and Council Tax Benefit Admin 695 n/a n/a Music Service Grant 165 n/a n/a
Total 13,294 n/a +410
Expenditure associated with these grants (at the 2011/12 level) has already been incorporated in the base budget and it has been assumed that the additional income will be added to the contingency rather than fund service developments. Any future changes to the Housing and Council Tax Benefit Admin grant will also be dealt with via the contingency. Alternatively this additional income could be used to reduce the overall funding gap.
Inflation and Interest Rates
5.9 Forecasting future levels of inflation and interest rates is fraught with considerable risk as the outlook for global economic growth is still dominated by exceptional uncertainty in many different dimensions including;
• The economy is gradually recovering from a particularly deep recession with the result that past profiles of recovery may not be an appropriate guide. • The outlook is dominated by an unprecedented squeeze on households’ real disposable incomes 385 • Inflation is being driven on a global basis by energy, oil and commodity prices in part due to demand shocks (growth in China, India and South America) and supply shocks (political unrest in North Africa and Middle-East) • Continuing Eurozone concerns about sovereign credit ratings – particularly Greece, Ireland and Portugal.
5.10 The OECD in its recent annual report suggests the Bank Rate should rise to 1% by the end of 2011 and to 2.25% by the end of 2012. Based on advice from the Council’s Treasury Management advisers the Budget projections reflect a rising Bank Rate moving from 2% in 2012/13 to 4% by 2014/15.
5.11 Higher inflation has become a global concern and is particularly acute in the UK where the Consumer Price Increase (CPI) has breached 4%, whilst the Retail Price Index (RPI) has recently been recorded as high as 5.3%. The latest Inflation Report from the Bank of England shows CPI accelerating further in the coming months and peeking at around 4.5% – 5.0%. Thereafter the Bank projects a sharp decline to below target of 2% towards the end of 2012 after which it is forecast to stabilize at this level.
5.12 In terms of pay inflation, it has been assumed that the current government policy of a public sector pay freeze in 2012/13 will be followed through to deliver a three year freeze (four years for the most senior officers), after that increases of 2% should be factored into the following years reflecting the likelihood that public sector salaries will then track the lower level of prices over the medium term.
5.13 Based on the uncertain outlook for inflation noted above the assumption used in the current model is that general inflation will average 2.5% over the three year planning period. It is worth noting that in 2011/12 the Council took a robust approach to contract inflation, bearing down particularly on inflationary increases for adult social care packages and home-to-school transport. At this stage it has been assumed that such an approach will not be achievable to such a large extent for a second successive year. However the impact of inflation will be reviewed and forecasts updated as the 2012/13 budget process progresses. A 1% inflation rate translates into higher costs of approximately £500,000.
5.14 The Council should continue to remain debt-free in 2012/13 and as such have cash balances that can be invested, in line with the Council’s Treasury Management Strategy, in financial markets. Based on the forecasts above the assumption has been made that the Council can achieve a return of 2% on its cash balances during 2012/13. As a guide a variation in the average interest rate of 1% would result in a change to investment income of approximately £150,000.
Fees and Charges
5.15 Increases in fees and charges are determined by the overall economic conditions, the willingness of customers to pay the higher charges and continued demand for Council services. For planning purposes it has been assumed that income from fees and charges will increase in line with the Council’s general inflation forecasts i.e. averaging 2.5% over the three year planning period. The Council’s long term average rate of increase in fees and charges is between 3.25% and 3.75%. If the market will bear increases of this magnitude in 2012/13 this will have a positive impact on the budget forecasts. As a guide, a further 1% increase in fees and charges could be expected to yield an additional £0.18m in 2012/13.
Capital Programme
5.16 The indicative Council funded three year General Fund capital programme included with the budget report to Council in March 2011 is £10.97m for 2012/13 and £7.098m for 2013/14. In addition it is anticipated that the Council will continue to generate capital receipts of around £3.0m per annum primarily386 from the sharing arrangements with Bracknell Forest Homes that were agreed as part of the housing stock transfer. With the scope for generating income from capital receipts limited by both the underlying economic conditions and the availability of surplus land/assets the capital programme has a significant impact on the revenue account with accounting regulations requiring resources to be set aside to cover underlying borrowing costs. Therefore the Council will need in due course to consider whether the indicative capital programme is affordable as part of its overall budget strategy.
Budget Overview
5.17 Drawing together the above projections for future commitments and resources provides a starting point for considering the budget strategy for 2012/13 and beyond.
Table 3: Preliminary Budget Overview 2012/13 to 2014/15
2012/13 2013/14 2014/15 £m £m £m Base Budget 76.26 77.83 80.63 Known Commitments 0.19 0.02 -0.01 Capital Programme/Interest Rates -0.12 0.48 0.50 Inflation 1.50 2.30 2.40 Budget Requirement 77.83 80.63 83.52
Grant Income -23.64 -23.68 -23.28 Council Tax (at current rate with assumed growth in number of properties) -48.97 -49.58 -50.23 -72.61 -73.26 -73.51
Funding Gap 5.22 7.37 10.01
5.18 The table above indicates, based on currently available information, that the Council faces an underlying funding gap of around £10.01m by 2014/15. However, it should be noted that this is before considering service pressures and developments. At this stage it is not possible to quantify the precise impact but experience has shown that the Council typically needs to add around £2m per annum to the budget for essential service pressures. This would arise, for example, as a result of demographic change and an increase in some demand led services. This therefore suggests that the total budget gap over the next four years may be £16m (i.e. almost 20% of the budget requirement in 2014/15).
Budget Strategy
5.19 When reporting on the financial outturn for 2010/11 revenue balances were £9.97m at 31 March 2011. The 2011/12 budget includes plans to spend £1.59m of this reserve on the assumption that the Council is able to spend within budget for the fourteenth consecutive year. Historically £4m has been considered to be the minimum prudent level for revenue balances. There is therefore £4.38m available to support future expenditure. The Council has set aside £2.4m of general balances to meet the worst- case scenario on the loss of its deposits in Icelandic Banks. The judgement in April by the Icelandic District Court recognising Local Authority deposits as priority creditors was a significant step forward towards the Council recovering 100% of its deposit in Glitnir Bank (£3m). However the decision has been appealed by the Glitnir Winding-Up Board and the conclusion of the Supreme Court will be known later this year. Should the District Court’s decision be upheld the majority of this additional reserve will become available to be used to support the budget gap if required.
387 5.20 The forecast for 2012/13 can be viewed as being reasonably robust as the Government has announced the level of external support the Council will receive during the 2011/12 Local Government Finance Settlement. The forecast for 2013/14 and beyond is however extremely uncertain given the pending Local Government Resource Review and the possible re-localisation of Business Rates, and should therefore be considered as indicative only, at this stage.
5.21 As a consequence the focus over the coming months will be on the challenge posed by the funding gap in 2012/13. The Council has a track record of delivering efficiency savings and reducing back office costs in order to protect front line services although it is becoming increasingly difficult to achieve similar types of savings year-on-year. Nevertheless, there is an expectation that efficiency and back office savings of around £1.5m can be achieved as part of the 2012/13 budget process. Clearly this will not be sufficient to bridge the anticipated funding gap so the Council will also need to consider:
a) taking a firm line to limit future year’s pressures b) utilising available balances c) increasing the Council Tax, with each 1% generating £490,000 additional income d) identifying savings to front line services which may result in service reductions or closures.
5.22 In practice it is likely that a combination of all four approaches will be required.
Budget Timetable
5.23 Preparatory work at officer level has already been instigated by the Corporate Management Team to allow greater time to explore options. Within this context the key milestones for budget preparation are set out below:
Service Planning Process identifying key work Jul 11 – Feb 12 streams
Development of savings proposals Jul 11 – Nov 11
Provisional settlement Late Nov/ Early Dec 11
Executive agree proposals for consultation 13 Dec 11
Overview and Scrutiny Commission reviews budget 26 Jan 12 proposals
Executive considers responses to consultation and 21 Feb 12 agrees final budget proposals
Council agrees budget and Council Tax 29 Feb 12
6 ADVICE RECEIVED FROM STATUTORY AND OTHER OFFICERS
Borough Solicitor
6.1 The Local Government Finance Act 1992 requires the Council to set the level of the Council Tax by 11 March each year. It is impossible to achieve this without having agreed an affordable revenue budget for the year in question. 388
Borough Treasurer
6.2 The financial implications of this report are included in the supporting information.
Equalities Impact Assessment
6.3 None.
Strategic Risk Management Issues
6.4 The Borough Treasurer, as the Council’s Chief Finance Officer (section 151 officer) must formally certify that the budget is sound when it is recommended for approval in February. This will involve identifying and assessing the key risk areas in the budget to ensure the robustness of estimates and ensuring that appropriate arrangements are in place to manage those risks, including maintaining an appropriate level of reserves and contingency. This formalises work that is normally undertaken each year during the budget preparation stages and in monthly monitoring after the budget is agreed.
The Council’s Strategic Risk Register identifies a number of key risk areas including:
• demographic and socio-economic changes • impact of demand led services • impact of the South East plan • non achievement of income projections • financial settlement and funding pressures • loss of systems and data • business continuity incidents • IT and information security/identity breach • programme management capacity • impact of litigation • potential failure of key contractors • safeguarding • impact of inspections • impact of job evaluation • maintenance of assets • climate change • recruitment and retention of staff • failure to work effectively with Partners • meeting residents choices under changing service delivery regimes
The budget includes resources sufficient to enable the Council to monitor these key risks and where possible to minimise their effects on services in accordance with the strategic risk actions plans. Specific risk reduction measures that are in place include the following:
• Budget Setting Process - Production and regular monitoring of a robust medium-term financial strategy - Regular analysis of budgets to identify legislative, demographic, essential and desirable service pressures / enhancements - Detailed consideration of budgets by officers and Members to identify potential budget proposals - Robust scrutiny of budget proposals prior to final agreement - Ensuring adequacy and appropriateness of earmarked reserves
• Budget Monitoring - Robust system of budgetary control with regular reporting to CMT and through the Performance Monitoring389 Reports (PMR’s) to Members - Exception reports to the Executive - Annual review of the Councils’ budget monitoring arrangement by external audit to ensure they remain fit for purpose - Taking corrective action during the year to ensure the budget is delivered every year (as in 2009/10, 2006/07, 2005/06 and 2000/01) - Specific regular review by Group Accountants of particularly volatile budget areas
7 CONSULTATION
Principal Groups Consulted
7.1 No groups have been consulted at this stage.
Background Papers None.
Contacts for further information Timothy Wheadon– 01344 355609 [email protected] Chris Herbert – 01344 355694 [email protected] Alan Nash – 01344 352180 [email protected] Calvin Orr – 01344 352125 [email protected] Arthur Parker – 01344 352158 [email protected] Doc. Ref G:\Accounting Services\Budget 2012-13\Commitment budget\Executive Commitment Budget July 11 Final.doc
390 Annexe A
Commitment Budget 2012/13 to 2014/15
2011/12 2012/13 2013/14 2014/15 £'000 £'000 £'000 £'000
Chief Executive / Corporate Services Approved Budget 15,615 15,615 15,524 15,524 WAN Invest to Save Scheme -4 IPT Invest to Save Scheme -17 Borough Elections -70
Net Inter Departmental Virements Chief Executive / Corporate Services Adjusted Budget 15,615 15,524 15,524 15,524
Children, Young People and Learning Approved Budget 13,026 13,026 13,030 13,010 Suitability Surveys 20 -20 Schools Music Festival -10 WAN Invest to Save Scheme -6
Net Inter Departmental Virements Children, Young People and Learning Adjusted Budget 13,026 13,030 13,010 13,010
Adult Social Care and Health Approved Budget 21,763 21,763 21,728 21,728 Dementia Advisory Service -35 Net Inter Departmental Virements Adult Social Care and Health Adjusted Budget 21,763 21,728 21,728 21,728
Environment, Culture and Communities Approved Budget 27,428 27,428 27,427 27,523 Landfill Tax / Waste Disposal PFI -212 -19 -11 Landfill Tax Increase 106 104 99 Local Development Framework 105 3 -110 Capital Invest to Save 06/07 - Easthampstead Park -1 -1 -1 Royal Military Academy Freedom March 5 Coroners Service - transfer from TVPA 9 9 9 Refuse Collection Contract -100 Car Park Season Ticket Income 98 WAN Invest to Save Scheme -11
Net Inter Departmental Virements Environment, Culture and Communities Adjusted Budget 27,428 27,427 27,523 27,509
Total Service Departments 77,832 77,709 77,785 77,771 Non Departmental / Council Wide Approved Budget -1,577 -1,577 -1,267 -1,327 2011/12 Capital Programme (Full Year Effect) - Interest 82 Minimum Revenue Provision 262 2011/12 Use of Balances (Full Year Effect) - Interest 16 Terms and Conditions -50 Additional Bank Holiday -60 Net Inter Departmental Virements Non Departmental / Council Wide -1,577 -1,267 -1,327 -1,327
TOTAL BUDGET 76,255 76,442 76,458 76,444
Change in commitment budget 187 16 -14
391 Annexe A
For management purposes budgets are controlled on a cash basis. The following figures which are used for public reports represent the cost of services including recharges and capital charges:
2010/11 2011/12 2012/13 2013/14 £'000 £'000 £'000 £'000 Corporate Services 7,909 7,818 7,818 7,818 Children, Young People and Learning 21,111 21,115 21,095 21,095 Adult Social Care and Health 25,162 25,127 25,127 25,127 Environment, Culture & Communities 37,642 37,641 37,737 37,723 Non Departmental/Council Wide -15,569 -15,259 -15,319 -15,319 76,255 76,442 76,458 76,444 - - - -
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