Planning Application Report

PLANNING APPLICATION REPORT

Case Officer: Jeremy Guise Ward: Tavistock South

Ward Member: Cllrs M Ewings; R Oxborough; E Sherrell

Application No: 00554/2013

Agent/Applicant: Applicant: Ian Jewson Planning Ltd Bovis Homes Ltd 1 Gas Ferry Road C/o Agent Bristol BS1 6UN

Site Address: Land adjacent to Callington Road, Tavistock, Devon,

Development: Outline application for a mixed use development comprising up to 750 dwellings (Use Class C3), a primary school site (Use Class D1), a local convenience store (Use Class A1), railway station related development (Sui Generis) and associated infrastructure; including detailed drawings for a new vehicular and pedestrian access from the A390.

Reason item is being put before Committee Major planning application.  Note that there have been regular Member/officer meetings, primarily involving Tavistock ward and county Members (not serving on Planning & Licensing Committee)

during the course of consideration of this application. These have not committed the Planning & Licensing Committee to any decision.  A Development Forum was held on Thursday 31st October 2013 where the developers presented their application to Borough Councillors and representatives from Tavistock Town and Gulworthy Parish Councils.  A Members site visit took place on Thursday 21st November 2013 with representatives from Tavistock Town and Gulworthy Parish Councils.

Recommendation: Conditional planning permission subject to Section 106 legal agreement being signed before 1st January 2015

Conditions (list not in full) 1. Time limit – outline 2. Approved plan nos. 3. Phasing 4. No reserved matters for less than 25 dwellings 5. Contiguous boundaries 6. Minimum of 600 dwellings on site 7. Phased landscaping scheme 8. Landscaping scheme Outline 9. Reserve right to remove PD 10. Lighting scheme 11. Contamination condition for area around the mine 12. Contamination condition other areas 13. Verification report 14. Unsuspected contamination 15. Construction management plan 16. Protection of future residential amenity from excess noise 17. Foul & surface water drainage kept separate 18. All dwellings built to full ‘Secured by Design’ status 19. Superfast broadband connection to all properties 20. Lifetime Homes 21. Reporting unexpected archaeological discoveries 22. Green infrastructure plan requirement 23. No building occupied until public sewer in place 24. Renewable energy 10% on site 25. Secondary emergency access 26. Refuse facilities 27. Cycle storage 28. Connection to sewage system

Restriction of height of buildings in sensitive areas Informatives 1. Section 106 Obligation 2. Nesting Birds 3. Secured by Design (SBD) 4. The historic milestone 5. Devon low carbon lighting policy 6. Design Review process

Key issues for consideration: The principle of mixed use development, mainly residential, of this site has been established by the Core Strategy SP23A allocation. The report sets the context of the allocation, the significant role that this site is expected to make to the future growth of the town and its importance to the delivery of the Borough's five year land supply. Providing the application stays within the broad parameters of the allocation and the principles set out in the South and South West Tavistock Masterplan Supplementary Planning Document (SPD) the expectation is that it will be recommended for approval. The application has been submitted in outline with all matters except access to be determined at the reserved matters stage (i.e. appearance, landscaping, layout and scale) The analysis section of this report considers the proposal in a series of sections:-  The principle of mixed use, mainly residential development on this site  Railway reinstatement and access arrangements  Ensuring delivery of a sustainable residential environment  Design and landscape considerations  Section 106 and measures to offset the impact of the development It shows the proposal provides sufficient information, at this outline stage, to demonstrate that it can provide the basis for delivery of an attractive, mixed use, mainly residential, environment upon the site over the next ten years or so. It provides assurance that the framework can deliver a high quality environment for future residents and meet key Core Strategy and SPD expectations. In particular it shows how a balance might be struck between critical objectives of providing a significant contribution towards railway reinstatement and delivering affordable housing, and provides a clear recommendation on this important consideration. The report concludes that subject to the applicants signing a Section 106 legal agreement it can be granted subject to conditions.

Financial Implications It is estimated that this development has the potential to attract New Homes Bonus of approximately £873,600 per annum under current arrangements, for the Council. Payments are payable for 6 years with an additional sum paid per affordable home. The Government is top slicing the New Homes Bonus to fund an Economic Growth Fund, which will result in a reduction in bonus paid from 2015/16.

Site Description: The application site is a 36 hectare piece of land located on the edge of Tavistock, to the south west of the town centre. It is currently open farmland comprising small fields divided by mature hedges and the occasional large tree or small woodland cluster.

Levels fall predominantly from west to east across the site reflecting its’ position on the western side of the Tavy river valley. But within this general pattern there are sizable undulations including a fairly pronounced fold towards the northwest, where levels shelve steeply to a boggy depression, and along the northern boundary, adjacent to the neighbouring Monksmead residential estate.

The site is conspicuous within the landscape when viewed from the south and east. There are immediate views from the northern end of the canal towpath (the south western part is lower and mostly obscured giving only glimpse of the site through trees); at a distance, from

15 openings within Brook Lane to the south east; and, at a further distance still, from the opposite side of the valley – Dartmoor National Park, and ‘the Pimple’ on Whitchurch Down, a notable local feature.

The site is divided into two parts by the track bed of the old London & South West Railway (LSWR) railway. The larger western part extends from the entrance to the site, off Callington Road (A390) in the northwest, across the higher part of the site into a finger projecting south towards the boundary of the Tamar Valley Area of Outstanding Natural Beauty (AONB). The slightly smaller eastern part extends, also in a tapering finger shape, towards Crowndale in the south. It is sandwiched between the railway cutting to the west and the Tavistock- Morwellham canal to the east. The route of the canal passes, at lower level, adjacent to the eastern boundary of the site, en-route from Tavistock town centre to the old river port at Morwellham Quay via the tunnel under Morwell Down. It forms part of the Cornwall and West Devon Mining Landscape World Heritage Site (WHS).

These two parts of the site are linked only by a small strip of ground located at a key point in the north where the railway bed emerges from the cutting and continues its route on an embankment northwards towards Kilworthy Park (the site of the old Tavistock North railway station – now WDBC offices). Except for the small piece of land that links the two parts, the railway bed does not form part of the ‘red lined’ application site and is protected as a narrow continuation of the Tavistock conservation area. Beyond the site, to the south, the track bed follows an unimpeded course, over the Shillamill viaduct and through a tunnel on its way to Bere Alston. Devon County Council has plans to reinstate the railway track to Bere Alston where it would join the existing Tamar Valley line (Plymouth - Gunnislake). These plans do not form part of this application, although they have a significant bearing on its consideration.

Regular vehicle access to the site only exists from the farm gate to the north. The A390 skirts the north west of the site on its way from Tavistock to Callington via the small hamlets of Parswell and Lumburn to the west. It is quite a ‘fast’ road at this point with vehicles accelerating out of Tavistock when travelling south west, or yet to brake and slow if travelling towards the town. Visibility is constrained by the curve in the road. A pavement, on the northern side of Callington Road, adjacent to Uplands residential estate, goes nearly as far as the entrance and provides the only official existing pedestrian link to the site. There is, however, an informal link, via a small wooded area to the north, which leads onto the track bed of the old railway. There is some evidence that it is well used by the public for dog walking and the like.

The areas neighbouring the site reflect its edge of town location. The Abbotsfield residential estate neighbours the site entrance to the north west. It is separated from the site by the Callington Road. On lower ground, to the north east, is the Monksmead residential estate. It is a fairly typical example of a modern estate built in the last decades of the twentieth century, and before inscription of the World Heritage Site. It is a warren of winding estate roads, cul-de-sacs and shared surfaces which lead down to a swale of open land adjacent to the canal. The swale provides an informal play area, mini football pitch, wildlife habitat and flood management area. It also leads, via a swing bridge in the north east, onto the canal towpath from where it is possible to access Tavistock College (Tavistock’s state secondary school), to walk north into Meadowlands Park and the town centre, or south, along the heritage trail towards Crowndale, a Duke of Bedford model farm (now private property).

Tavistock’s sewage treatment works is located to the south west of the site, screened by a small wood. A muddy farm track (reputedly the old Bere Alston Road) leads from the canal

16 towpath south of Crowndale, over the canal and under an old railway bridge to the west. This track is located outside the red line of the application site, along its’ southern boundary.

The Proposal: Outline planning application for mixed use development comprising ‘up to’ 750 dwellings, a new primary school site, local convenience store (250sqm), railway station and associated infrastructure. All matters are reserved except access.

Vehicular access to the site is shown from the A390 Callington Road, where detailed plans show a new roundabout. Creating the roundabout involves realigning the road slightly to the south east and giving equal priority to three arms with a central island and pedestrian crossing points across each arm. A section of highway verge is shown to the northwest. This is the only detailed part of the application to be considered at this stage.

The applicant has provided a plethora of documents to support the application. The background section in the Design and Access statement and the section on Design Principles set out what the applicant is seeking to achieve. It states:- ‘Bovis Homes and their consultants have built on this work (the allocation and South & South West Tavistock SPD), augmenting both the master plan and Design Brief with further in-depth assessment and analysis of the allocated site, producing both an Environmental Statement and specialist baseline and impact assessments, identifying constraints and opportunities presented by the site.

The planning application of which this report supports, brings together the extensive work and public consultation carried out by County and Borough Local Authorities and the applicant and their design team. Thus this evidence based application is designed to fulfil the shared aspirations of a high quality, locally distinctive development.’

The document goes on to set out the Design Principles as follows:- ‘The outline nature of the application means that the detail design work is underway but those details are not submitted at this stage; this presents us with some degree of difficulty in describing the envisioned final development. One successful way of doing this is to present the proposals in a series of design frameworks. Each framework encompasses a number of related components that together deliver the objectives set out in the vision for the site.

The design proposals aim to deliver a sustainable residential development reflecting and complementing the character of Tavistock by addressing the following key principles: - preserve, integrate and enhance natural assets - work with and not against the natural topography of the site to reflect the best of Tavistock street layout and public realm. - produce permeable and legible movement framework through the site and by creating safe, efficient and usable non-vehicular links to the town centre and local facilities - provide appropriately located and well served public transport links that are centred in the new railway. Provide a safe and legible vehicular network that connects key destinations in an efficient but safe hierarchy of streets -Locate appropriately a diverse range of public open spaces integrated with the green infrastructure and movement framework

-the architectural style and appearance should reflect but not mimic the best of Tavistock drawing inspiration from the WHS whilst remaining of its time -Fabric first design principles and incorporation of local energy production.

Three pre-application meetings were held prior to submission over the course of 2012 and the early part of 2013.

The application is accompanied with a comprehensive set of documents including: - -Design and Access Statement -Illustrative Master plan -Land use parameters Plan -Building Heights plan -Green infrastructure Proposals Strategy Plan -Planning Statement -Statement of Community Involvement -Preliminary Arboricultural Impact Appraisal Report -Environmental Statement. -Ecological Survey -Landscape Visual Impact Assessment (LIVA) -Transport Assessment -Residential Travel plan -Desk Study and ground investigation report -Flood Risk assessment, including surface water drainage strategy -Utilities appraisal report -Sustainability & Energy statement -Historic environment Desk Based assessment -Geophysical Survey report

An amended scheme (a Regulation 22 application) was submitted 24th October 2013 providing additional information in response to key stakeholders and changing the illustrative master plan as follows:-  The building frontage to the south of the proposed Callington Road access has been moved back as a result of comments from the Landscape Officer.  Dwellings have been removed from within 250m of the landfill site to the south of the site as a result of comments from the Environmental Health Officer.

Consultations:

Highways Agency - Have submitted an Article 25 TR110 directing no objections to the proposals. In their comments they acknowledged that the A38(T) at Plymouth and A30(T) to the north are a considerable distance from the site, but that they expect a considerable number of journeys to be into Plymouth. The Agency’s main concern is the operation of the Manadon junction, which suffers from constraints in peak periods.

County Highway Authority It has been confirmed that the provision of a single roundabout off Callington Road will be sufficient to access the site. In addition, off-site highway works are required. These reflect those included within the County Council evidence base reports for the Core strategy. The required off-site highway works will be improvements to the following junctions: - A390 (Callington Road) and B3362 (Ford Street) Roundabout - Drake Statue Roundabout; and - Pixon Lane roundabout 18

The improvements proposed within the Transport Assessment are considered appropriate.

Although a permanent secondary access from Callington Road is not considered practical in this case due to the constrained widths of the highway frontage, the Local Highway Authority will require provision for emergency vehicular access to the development. This should be provided through an appropriate planning condition.

The West Devon Core Strategy and the Tavistock Master Plan Supplementary Planning Document (the master plan) identifies the importance of safeguarding the alignment for a potential highway link between the development site off Callington Road which is subject to this application and the other allocated development site on Plymouth Road. Although this route is not likely to be delivered in the period up to 2026 it is unclear how the indicative development layout will allow for this link to be provided in the future. This should be clarified in future through discussions with the Local Highway Authority, the outcomes of which should be used to inform the preparation of detailed applications for the site in future.

The layout will be designed in accordance with Manual for Streets with alignments limiting speeds to 20mph and provision for local widening to allow bus service to be accommodated. These principles are considered to be acceptable.

The Local Highway Authority would draw attention to the issue of parking provision associated with the development. The application makes reference to the provision of 1.5 spaces per dwelling as part of the parking strategy. To ensure that on-street parking does not cause unnecessary constraints to the local highway network, further discussions should take place with the Local Highway Authority to ensure that an appropriate parking strategy is adopted. This will need to consider the potential role of garages within the development.

Bus Services The application and accompanying Transport Assessment make reference to potential bus service improvements and assume that the existing service 89 will serve the development. This provision is considered to be the most appropriate for the development. Continued discussions should be held with the Local Highway Authority to ensure that the most appropriate strategy is adopted. Discussions will also be required with the Local Highway Authority to consider the detail of highway layouts in the context of bus provision. The principles included within the master plan will need to be reflected in future detailed proposals. The Local Highway Authority supports the inclusion of at least three bus stops as shown on the indicative proposal plan.

The required bus service contributions will need to be sufficient to fund the provision of one additional vehicle for five years of operation. As such £100,000 per annum for five years is required. The payment of the initial instalment should be triggered on occupation of the 50th dwelling, or when the development layout allows.

Rail Provision Discussions between the developer and the transportation and highways development management teams have been on-going during the preparation of the planning application and supporting Transport Assessment. The County Council reports produced as part of the evidence base for the West Devon Core Strategy were made available as part of the process.

These discussions have identified the position of the County Council regarding the links between the Callington Road development and the reinstatement of the railway between

Tavistock and Bere Alston. The County Council position is that the rail scheme is a key intervention in enabling development in Tavistock to be undertaken in a way which has an acceptable impact.

This position reflects the policy support for the provision of the railway project as identified in the West Devon Core strategy and accompanying Infrastructure Delivery Plan which lists the railway as critical infrastructure .

All phases of development will be required to provide contributions towards the provision of the railway. Contributions should be phased to ensure that appropriate levels of contribution are secured throughout the construction period whilst also maintaining the delivery of the development.

Travel Planning The County Council welcomes the inclusion of the residential Travel Plan to accompany the application. There are a number of comments which will need to be considered to inform travel planning at this site in future.

Travel information packs should make reference to the money saving and health benefits of travelling sustainably, as well as benefits associated with the environment and congestion. Packs should be high quality and attractive, and provide site specific information for the development. Packs should include information on alternatives to travelling, location of local amenities, walking, cycling, public transport, rail services, car clubs if appropriate, Car Share Devon, co-driving, motorcycle safety , transport for people with disabilities and journey planning information . It should also include information on County Council initiatives that is available at the time of print. Travel pack content will need to be agreed by the County Council initiatives that are available at the time of print. Travel pack content will need to be agreeing by the County Council prior to occupation of the development. Alternatively the County Council can design, develop and print travel packs on the developers’ behalf although this will require a fee. Travel information packs should also include agreed financial incentives to encourage cycling, bus and rail use.

Personalised travel planning will be required on first occupation of the development .The content of this service should be discussed with the Local Planning Authority (County Council) which can offer a range of personalised travel planning services. As part of the personalised travel planning and travel information packs , Car Share Devon should be promoted as the most appropriate car sharing scheme . The Travel Devon website (www.traveldevon.info) should also be advertised as the most appropriate source of travel information for residents.

Other Devon County Council – - Education – Highlights that identified space in schools in the Tavistock primary schools is 83 providing for the first 332 dwellings with two or more bedrooms. The ‘trigger‘ for payment of education contributions is therefore set at 333 dwellings with more than two bedrooms . Also confirms that a 1.2ha site for a primary school would be adequate. - Extra care housing- If provided would be supported - Waste Planning – No objection, suggested conditions to deal with this. - Historic Environment – No objections and suggest conditions for archaeological recording.

Cornwall Council – No objection

English Heritage – No objections. They state:- As a large scale development, the impact of the scheme on the setting of a number of heritage assists as well as on the wider historic environment will vary. The Planning (listed Building and Conservation Area) Act 1990, Section 66(1) makes clear that particular weight should be given to the desirability of preserving the setting of heritage assets. Furthermore, the NPPF (para137) looks to new development within WHS, CA or setting of assets to enhance or better reveal significance. English Heritage would expect the outline application to consider how the scheme would fit within the wider historic townscape and landscape, as it is important that sizable developments contributes positively to the historic character of Tavistock. This is further accentuated by the elevated position of the site, which emphasises the need for greater rural/urban integration to conserve the integrity of the historic development. Therefore, although some mitigation has been proposed, it is felt that the outcome would benefit from the inclusion of a landscape scheme which would integrate the development more successfully into the wider historic landscape.

Natural England – No objections

Environmental Health Section- Recommend conditions relating to environmental health issues such as contaminated land and noise/ dust from construction activities contamination condition for area around the mine; contamination condition other areas; verification report; unsuspected contamination; construction management plan and protection of future residential amenity from excess noise.. The worst case scenario in terms of contaminated land has been factored into the viability assessment.

WDBC Senior Drainage Engineer /Environment Agency (Combined Response) Drainage Strategy The domestic surface water drainage (resulting from roofs and driveways /hard standings of dwellings) should be catered for by ponds, swales etc as indicated. Soakaways should not be used to serve dwellings. Subject to further satisfactory percolation test results, the school site, Community Hub and station could be served by soakaways. Soakaways form part of the highway surface water drainage system serving the development. In areas where soakaways are not acceptable due to ground conditions, ponds, swales etc can be considered but these must remain separate from the drainage system serving the dwellings For the future management arrangements of the surface water drainage systems , consideration should be given to:- the domestic system being taken on by a management company, the Highway system being adopted by DCC and managed and maintained by them. The management and maintenance of soakaways serving the school site, Community Hub and station should be taken on by those individuals.

Management of Exceedence Flows Further details sought. It is expected that all flows are routed through the proposed attenuation basin. An interception feature is required that ensures that flows are intercepted within the development site and routed to this basin. This feature should appear in the phasing plan required ahead of any reserved matters application. (Note the Reg. 22 application submitted after this comment shows two balancing ponds)

Canal Flood Risk

The report produced to support the proposal discharge flows to the canal is considered acceptable.

Railway line Clarification required with respect to surface water routing

South West Water – Advise that the public foul sewer network is unlikely to have sufficient capacity to serve the proposals without causing the network to surcharge with resultant flooding. The sewer network will require detailed investigation to establish the level and cost of improvements which may be necessary to accommodate the foul flows generated by the development.

These investigations are underway. Any improvements identified as necessary by the proposal will need to be funded by the developer. If the Council is minded to approve the application a condition and / or Section 106 clause is recommended to ensure sewage capacity is in place before connection and first occupation.

Tavistock Town Council – Comments made 13th June 2013:-  Considers there to be insufficient information accompanying the application to enable an informed decision to be made.  There are already significant difficulties periodically with the free flow of traffic between Callington Road and Plymouth Road – most especially at peak times such as school start/departure. The amount of available space for highway improvements in that locality is considered insufficient to meet the transport demands of a further 750 homes and therefore this Council has grave reservations regarding the access arrangements to/from the site.  With respect to the proposed Section 106 Agreement:- - This Council seeks assurance of the Local Planning Authority that all Tavistock Borough Council Ward Members will be fully involved in the development, content and agreement of the final terms of same; - This Council requests that it be consulted at key stages in the development of the Section 106 Agreement - The consent of the Section 106 Agreement should clearly identify the provision of monies to provide, at a future date, a connecting road between Callington Road and Plymouth Road. - Tavistock Town Council:- Comments made 12th November 2013 (in relation to the Regulation 22 application.):- There are still concerns regarding the traffic management on the A390 and the effects on the Monksmead and Uplands developments

Tamar Valley Area of Outstanding Natural Beauty (TVAONB) – The site, whilst not within the AONB, is close to the boundary and therefore has the potential to impact upon the designated landscape being within its setting.

Whilst not objecting in principle to the proposed development of the land, the TVAONB do have concerns that the areas to the south and west of the site will be close to the boundary of the AONB and that some of the visual impact of the development at higher ground has the potential for visual impacts which will be perceived by receptors within the AONB. The West Devon Borough Council and South West of Tavistock Masterplan (adopted 30th April 2013) being a supplementary planning document (SPD) highlights the AONB’s importance as below: 22

“The Tamar Valley AONB adjoins the site at its southern boundary, spanning an area of approximately 75 square miles that was designated in 1995. Development within SP23A must have regard to the important designation and reflect this accordingly within future proposals.”

The TVAONB offers the following advice and comments in this respect:

- The visual impact can only be partially mitigated through design, layout and landscaping. Development at higher ground within the site be avoided where possible and where required this should be low level so as to avoid prominent ridgelines dominating the most elevated sections of the site. The indicative drawings show that part of this elevated section could be occupied by a school of 3 storeys. The TVAONB would question such a requirement for the school to be positioned in this location and indeed the height.

- Suitable planting acting as a buffer to the southern and western edges of the site should be considered so as to ensure that development does not take place in close proximity to the boundaries of the site that area closest to the AONB boundary.

- The TVAONB would encourage early investigation of linking the indicative network of footpaths and cycle ways with the wider Tamar Trails network which would enable future occupiers and visitors to the area greater access to the AONB and provide a valuable connector.

- Large sections of open space within the site will fall to be managed be either the residents or via a management company. This will normally from part of the obligations contained within the associated s.106 agreement required as part of the application. The TVAONB would like to suggest that there is scope for such places to be utilised and managed by a more community-based organisation or Social Enterprise, for example the Tamar Community Trust (TCT) who have recently taken on the management of the Tamar Trails on behalf of WDBC, or Transition Tavistock, subject to suitable funds being available for delivery.

- As well as open amenity space and planting the AONB would also like to see the opportunity for allotments and the provision, for example, for community grown fruit and nut trees. TVAONB have had initial discussions with the applicant’s agent who has indicated that this is something that could be explored. TVAONB would therefore request dialogue on this item with both the LPA and the developer so that this option, if feasible, can be included in the s.106 agreement. It should be noted that in requesting this inclusion the TVAONB are not offering support to the proposed development, merely requesting that this matter be fully explored.

- The TVAONB are also concerned about the impact of the development in the backdrop of the Tavistock canal and the World Heritage Site. Apart from ensuring that the Canal and the associated mining heritage retains its integrity, we would also require that sufficient consideration is given to the maintenance of the quiet enjoyment and scenic quality currently provided by the Tavistock Canal Trail. The arrangement of housing and treatment of the boundary and landscaping along this boundary must reflect the historic importance of this historic asset and link to the AONB.

- The TVAONB has also encouraged consideration of the potential for a district heat system with heat provided by woodchip with the applicant’s agent. Supply of woodchip should be encouraged locally which will benefit the landscape and rural economy of the AONB, as well as providing an economical and low carbon means of heating. It is appreciated that this is in outline application, but consideration of these options need to take place at the earliest stage in order to maximise the opportunity for installing the correct infrastructure.

- This response is in relation to the outline application and does not constitute comments on the indicative plans showing layout, landscaping and possible heights of buildings. TVAONB will reserve comments on those matters until such time as they are provided by the LPA. The TVAONB would also request involvement in any pre-application process as may be undertaken prior to the submission of any reserved matters application.

Representations Consultations were undertaken with neighbouring properties and site notices posted, both in relation to the substantive application in June 2013 and in October 2013 in connection with the Regulation 22 revisions. This has resulted in receipt of 16 letters of representation raising concerns/objections including one from the Tavistock Tree Preservation Group (TTPG) and one from Royal Society for the Protection of Birds (RSPB).

TTPG – Request surface water runoff is not recycled for household use. Surface water to drain into reed bed prior to draining into water course. Preservation of existing trees and hedgerows. No construction within 20m of existing trees. Canal protected from development provides quality trees and wildlife habitat 50m protection zone. Planting with evergreen trees. New woodland to be gifted to a suitable charity organisation such as the Woodland Trust. Enhanced tree screening in the railway cutting.

RSPB – Welcome the steps to protect biodiversity during the construction period and emphasise the importance of wildlife corridors. The RSPB are pleased to see the provision of nesting and roosting boxes, but are concerned that there will not be enough or of the correct types to meet today’s criteria of good practice The society would like to see nesting/roosting places incorporated into the fabric of the building during construction at a ratio of one nest/roost per residential unit. Point out that there is scope for inclusion in non residential buildings, notably the proposed primary school.

The other representations can be summarised as follows:-  Have concerns about the density of residential development. The site should only be developed for 250 houses as per previous plans.

 The proposal would affect of the design on the appearance of the area, particularly the impact on the skyline from three storey development. Ecological values need to be taken into account.

 The planning documents that accompany the application reiterate the SPD with little extra elaboration. Would urge WDBC to establish an independent expert Design Review Panel for South and South West of Tavistock housing development before it moves from outline planning to detailed design as recommended by the NPPF Section 7 ‘Requiring good design’.

 The proposal would have an adverse impact on World Heritage Site associated with the canal and grade II listed building Crowndale Farm. The fields to be built on were part of the farm. Damage to area of historic importance could be detrimental to the economy through loss of the town’s attractiveness to tourists

 Loss of amenity access to A390 The location and finished appearance of the roundabout is unclear. The provision of the roundabout close to our home will cause additional vehicle noise and lights disturbing our amenities. We are gravely concerned about difficulties arsing from extra traffic. The assumption that many occupants of these dwellings will not possess vehicles but travel in the proposed railway reinstatement is purely conjecture and should not be relied upon in considering this matter.

Relevant Planning History There is no relevant history

ANALYSIS

The key issues in this case are: 1. The principle of mixed use, mainly residential, development on this site 2. Railway reinstatement and access arrangements 3. Ensuring delivery of a sustainable residential environment 4. Design and landscape considerations 5. Section 106 measures to offset the impact of the development

The principle of mixed use, mainly residential, development on the site This section will consider: 1.1 The principle; 1.2 Presumption in favour of sustainable development; 1.3 The quantum and density of development; 1.4 Affordable housing; 1.5 phasing; 1.6 Housing mix; and 1.7 'Lifetime Homes'

1.1 Principle The site forms part of Core Strategy allocation SP23 which means that the principle for allowing development on this site has been established.

Strategic Policy 23, Tavistock 1. Land to the south and south west of Tavistock is allocated for a mixed use development and will include: i. Land to the south and south west of Tavistock is allocated for a mixed use development and will include: Approximately 750 dwellings, predominantly within SP23A ii. Approximately 13 hectares of employment land, predominantly within SP23B iii Appropriate levels of open space iv Appropriate education facilities v The enhancement of health and social services vi The reinstatement of the railway line to Bere Alston and associated infrastructure including a station and car parking vii Provision of (or contributions to on-site or off-site infrastructure requirements associated with the development including highway junction improvements).

2. The Proposals Map shows the boundaries of the strategic allocation.

3. The development of land to the south and south west of Tavistock should be developed in accordance with a comprehensive master plan, along with the following site- specific development principles: a. Create a distinctive, safe, sustainable, high quality development. b. Integrate new development within the landscape, minimising and mitigating landscape impacts c. Have regard to the Tamar Valley Area of Outstanding Natural Beauty, the West Devon and Cornwall Mining landscape World Heritage Site and the Dartmoor National Park and mitigate for any impacts on these special designations. d. Be well integrated with new and existing services and facilities in the town. e. Increase travel choices for people to reduce their reliance on the private car. f. Provide new connections for vehicles, cycles and pedestrians between the proposed development and the existing town to support and help ease traffic flows in the town. g. Provide an appropriate level of affordable housing in accordance with SP9, subject to the overall viability of the development. h. The provision of local and strategic green infrastructure, for public sport, recreation and play, and to include open space networks for wildlife and water management. I. Provide a sustainable water strategy that includes minimising use of water, recycling grey water, has integrated sustainable drainage systems and provides flood water retentions where appropriate. j. incorporate the latest sustainable development principles available during the period of development and should maximise energy efficiency and the use of energy from renewable sources. K. Include the provision of neighbourhood retailing and other facilities to meet the additional needs of the expanded community, subject to the nature and scale of development being justified by needs and there being no adverse impact on the town centre. l. The development should support and not prejudice the re-opening of the railway line or the provision of a new railway station. m. The development should support and not prejudice the delivery of a road or highway linking Callington Road and Plymouth Road.

4. Additional reserve housing sites will be identified in the Tavistock and Southern Area DPD.

This application relates to the area of land designated as SP23A which is allocated for predominantly residential development, alongside education, railway related development and public open spaces. The allocation is linked to the reinstatement of the railway line between Tavistock and Bere Alston with this route providing a sustainable option for mitigating the impacts the development would have on the wider road network. Whilst the project to reinstate the railway line has a bearing on the consideration of the proposal, the reinstatement itself does not form part of this application.

Along with site SP23B, this site forms a key part in the delivery of West Devon’s Borough Council’s five year housing land supply and will contribute significantly to meeting identified market and affordable housing needs in the area.

Following the adoption of the Core Strategy in 2011, the Council subsequently prepared the South and South West of Tavistock Masterplan Supplementary Planning Document (SPD). This SPD builds on work undertaken as part of the South and South West of Tavistock Design Brief and has been the subject of both formal and informal consultation. The SPD was adopted in April 2013.

The site is clearly allocated and benefits from a very detailed and up to date Supplementary Planning Document (SPD). Many of the specific details (appearance, landscaping, layout and scale) are reserved matters, subject to more detailed consideration at a future date. The purpose of assessing this outline planning application must therefore lie between the strategic policy consideration set out in the SPD and the specific details, yet to be submitted in the reserved matters applications. In order to approve, the LPA needs to be confident that it provides a sound framework for those reserved matters considerations.

1.2 Presumption in favour of sustainable development The National Planning Policy Framework (NPPF) 2012 sets out the framework to guide new development in England. At the heart of the NPPF is the presumption in favour of sustainable development and for decision-taking purposes this means approving development proposals that accord with the development plan without delay.

The proposal itself seeks to achieve sustainable growth for the town, by combining residential development with a range of travel opportunities, high levels of open space and recreational areas and supporting facilities, including a primary school and local convenience store. The proposal in its entirety promotes sustainable travel patterns and through the co-location of key services at the hub area, supports a reduction in use of the private car.

1.3 Quantum and density of development In terms of residential development, the application is for up to 750 dwellings, a figure that accords with the Core Strategy allocation. There are known constraints on the site which reduce the amount of developable land and which may eventually result in fewer dwellings being provided on the site. The applicants have declined an invitation to formally reduce the number of dwellings applied for in the outline application, on the grounds that they wish to maintain maximum developer flexibility to respond to changing market circumstances during the course of the development. Some degree of developer flexibility is considered sensible, as it would help to ensure a quality of development which is compatible with its constraints and sensitive surroundings, but this needs to be balanced by sufficient parameters and safeguards to ensure that the development built accords with key policies.

The allocation for 750 units covers both the SP23A and SP23B sites and as such there is an element of flexibility regarding the quantum of residential development to be accommodated on this site alone.

As an outline planning permission is considered to be the substantive permission, and the consideration of subsequent reserved matters applications does not provide scope for the Local Planning Authority to revisit the overall amount of development approved, it is important that a viability assessment of this application takes place on the assumption that the full 750 dwellings applied for could be developed. This will ensure that the maximum amount of planning gain can be sought from the development. The S106 will include relevant ‘cascade’ clauses to ensure that proportionate contributions are sought on all items of scalable planning obligations (e.g. education and railway contributions and public open space) in the event that fewer than 750 dwellings are eventually provided on the site. Other infrastructure contributions, such as off site highway works, the primary school site and bus

27 service contributions, are fixed costs regardless of whether 750 or fewer dwellings are eventually built.

Density is a commonly used measure to assess whether the amount of development proposed is appropriate for the site. The standard term for expressing density is the number of dwellings per hectare. The Council’s Core Strategy includes policy SP6 which seeks to resist development of less than 30 dwellings per hectare in order to achieve the most efficient use of land. It states:-

‘Residential development will be at the highest density compatible with the creation of an attractive living environment, in scale with its surroundings and safeguarding the amenities enjoyed by nearby residents. Developments of less than 30 dwellings per hectare will generally be resisted. Exceptionally, in locations where there is a strongly defined low density character, development densities below 30 dwellings per hectare may be acceptable.’

The application site is 36 hectares in size, but it is generally accepted that 9-10 hectares of the site are undevelopable due to the constraints of topography, water courses, trees, hedgerows and the need to buffer against sensitive landscape and historic environments (i.e. the AONB, WHS and Crowndale Farm). A further 1.2ha is required for the development of the primary school, and 0.7ha railway related development. The total area available for residential development is between 25.7 -26.7 hectares. If the full 750 dwellings applied for are constructed, the resultant residential density is between 28- 29 houses per hectare.

Should fewer than 750 homes be built, the densities will fall further below the requirement set out in SP6. However, it is considered that these densities can be justified on the basis that a lower density development is likely to result in a higher quality development which is less visually intrusive across the wider landscape. Nevertheless, a condition to ensure that the final number of dwellings built, when the development is complete, does not fall below 600, or a density of 23 dwellings per hectare, is considered appropriate to ensure that efficient use is made of the available land and prevent profligacy.

1.4 Affordable Housing There is considerable housing need across the Borough with many people unable to afford mortgages or private rentals. Housing need manifests itself in many ways such as homelessness, people living in less than satisfactory situations such as sharing with friends and relativities or sub-standard, overcrowded conditions.

In order to alleviate the situation Strategic Policy 9 ‘Meeting Housing Needs’ of the Core Strategy states:-

‘Throughout the area of West Devon covered by the Core Strategy all housing development will be expected to contribute to meeting the targets for affordable housing set out below, subject to viability. On sites of 10 or more dwellings 40% of the dwellings on site should be affordable.’

The application site seeks permission for ‘up to 750’ dwellings and therefore the policy framework provides for 40% affordable dwellings, subject to viability. The applicants have submitted a viability assessment that, after other necessary infrastructure contributions are taken into consideration, shows a balance between the two ’big list’ items: making a significant contribution towards the re-instatement of the railway and the level of affordable housing provided.

The viability assessment has been tested by Levvel’s, the Council’s viability consultants, and a sensitivity analysis undertaken. For a development of 750 dwellings this shows, as a very approximate ‘rule of thumb’, that a 2.5% affordable housing quantum changes the railway contribution by about £1.1m (see table below):-

Percentage of affordable £ Railway contribution £ Railway contribution per Housing unit (based on 750 units) 40% 5,400,000 7,200 25% 11,212,500 14,950 22.5% 12,150,000 16,200 20% 13,275,000 17,700 17.5% 14,025,000 18,700 15% 14,962,500 19,950 11. 75% 16,400,000 21,866

In assessing this application the Council is seeking a ‘Goldilocks’ zone, balancing the need to provide a significant contribution towards the cost of the railway reinstatement and ensuring that a meaningful contribution is made towards alleviating affordable housing need. If contributions are skewed too much towards affordable housing the level of contribution available for re-instating the railway might fall below a point where it jeopardises its’ delivery. Despite the level of affordable housing falling some way below the policy requirement of 40% there are additional sites coming to fruition throughout the Borough, some of which were identified in the Core Strategy. Additional sites are also being brought forward using the rural planning toolkit, (Plan-it and Plan-it Lite) and neighbourhood development planning projects which will also address the high needs of the borough not solely in the main settlements but also in the rural areas.

The decision as to where the balance should lie between the level of railway contribution and percentage of affordable housing rests entirely with Planning and Licensing Committee, as part of their wider consideration of this outline application. Nevertheless, preliminary soundings from the Development Forum and Member contact group indicate disquiet if the level of affordable housing were to fall below 20%.

Your officers concur that this is a reasonable balance between competing objectives and propose a Section 106 clause requiring the provision of 20% affordable housing, dispersed across the site. If the actual number of dwellings built on the site reduces the level of railway contribution, rather than the overall percentage of affordable house should cascade downwards, in proportionate reduction.

It is envisaged that the tenure split would be 60/40 between affordable rented housing and intermediate housing (low cost home ownership) and that this should be predominantly, but not exclusively, comprised of smaller units, as this is where there is currently the most housing need. Strict ‘pepper potting’ is not required’. Registered Providers (RP’s) often find it easier to manage small ‘clusters’ of affordable housing units. It is envisaged that affordable housing should be distributed evenly across the whole site in clusters of no more than 12 dwellings. The affordable housing should not be visually distinguishable from the market housing on the site in terms of build quality, materials, details, levels of amenity space and privacy.

In the event that the railway re-instatement project is abandoned, or there is no reasonable prospect of delivery it is considered prudent to provide a contingency clause to apportion the railway contribution towards the provision of highway network improvements, particularly the A386, and affordable housing, either on site or elsewhere in the Borough. This reflects the compromise made in relation to the overall percentage of affordable housing in order to provide a significant railway re-instatement contribution. The other half would go towards strategic highway improvements (primarily the A386) which would, in this scenario, not be mitigated by the reinstatement of the railway providing alternate access to Plymouth and other destinations.

1.5 Phasing The Council’s adopted Core Strategy seeks to manage the supply of new housing throughout the plan period at a rate of approximately 220 dwellings per year. As a large strategic site, this development will need to come forward in a timely and phased manner to ensure that new homes are provided on site in a way that contributes to the steady delivery of the Council’s housing requirements.

In order to achieve this, a broad phasing plan has been agreed with the applicants which sets out four key phases of development (in accordance with the SPD) and the main land uses and levels of development to be included at each stage:

1. The north west area bounded to the east by the railway and including the hub and primary school site; (Blue in phasing plan) 2. The area to the north east of the railway adjacent to the world heritage site; (Orange in the phasing plan) 3. The area to the west of the railway and the south of the hub and school site.(Pink in the phasing plan)

4. The area to the south east (Green in the phasing plan)

A detailed phasing plan will form a condition to the application and will be required to indicate geographical phases and relationship to the delivery of infrastructure and facilities. This will enable the Council to ensure the development is comprehensively planned, designed and phased to ensure maximum practical integration between different land uses. Detailed conditions will ensure that the reserved matters are contiguous with each other and/or the site boundaries to ensure the whole site is covered without overlap and to ensure that the development is built in phases and not in an incremental, piecemeal way with the most attractive elements ‘cherry picked’ and built first.

The commencement of each stage will provide opportunity for a review of the viability assessment.

1.6 Housing Mix Strategic Policy 8 of the Core Strategy requires development to provide a mix of housing sizes and types to meet the needs of the Borough’s communities. ‘Development should provide a mix of housing sizes and types to meet the needs of the Borough’s communities. Provision should particularly be made for smaller homes to meet the needs of existing and new households. It is aimed to create a socially inclusive, balanced community with an adaptable environment suitable for a range of occupiers which meets the long term housing needs of all. When making spatial planning decisions and when determining planning applications the needs of the following groups must be addressed:

(i) an aging population,, providing appropriate housing and health care accessible to all people and which is capable of adaptation to reflect changing lifestyles; (ii) young people, providing jobs, housing and lifestyle to enable them to stay in the area; (iii) people whose circumstances make them vulnerable; (iv) Minority groups within the Borough. All new residential developments will maximise the potential to incorporate the principles of Lifetime Homes Standards where viable.’

The latest evidence of housing need collected in the 2013 Strategic Housing Market Needs Assessment identifies a need for mainly one, two and three bedroom properties across both market and affordable tenures.

The dwelling mix proposed by the applicant responds in a large part to the latest evidence of need with the proportionate split of dwellings. The applicants have sought maximum future flexibility over dwelling mix in order to be able to respond to the market demands for housing across the lifetime of the development. However, it is important that some parameters are set at this stage to ensure that the development, if approved, satisfies the objectives of Strategic Policy 8. As such, the following split has been agreed with a fairly large range of 5% either way to ensure sufficient flexibility to respond to changing housing demands over the lifetime of the development:

Some contributions, such as those collected for the provision of primary education, are not collected for certain types of dwelling, such as one bed dwellings and flats. This may result in viability being marginally affected at subsequent reserved matters stages.

The actual numbers, although not percentages, of each size dwelling would reduce proportionately - if the total number of dwellings built is less than 750.

1.7 Lifetime Homes The Lifetime Homes Standard seeks to enable ‘general needs’ housing to provide, either from the outset or through simple and cost-effective adaptation, design solutions that meet the existing and changing needs of diverse households. This offers the occupants more choice over where they live and which visitors they can accommodate for any given time scale. It sets out 16 design criteria to be followed by developers.

Building dwellings to ‘Lifetime Homes’ standard is easier and usually cheaper at the initial design and construction stage than trying to retrospectively change them and make them suitable for people with disabilities once built. It reduces the amount of work necessary to adapt them to the specific needs of future residents and promotes inclusive communities. The 2013 SHMNA indicates a forecast increase in the number of individuals aged 65+ in West Devon of 56% in the period 2011-2013. It also forecasts a rise of between 2-5% in individuals with learning, physical and personal care disabilities between now and 2020. It is important that provision is made as part of this development if the overall need is to be met and the choice of suitable properties, for elderly people and individuals with disabilities, is not to be narrowly restricted.

At this outline stage it is not known exactly how many of the dwellings proposed in this development will be built to Lifetime Homes standards. The adopted policy in SP8 seeks to maximise ‘Lifetime Homes’ in new development, subject to viability. It is supplemented by Policy H42, The Disabled and those with mobility difficulties of the Local Plan Review.

The site has significant topographical constraints and is located on the town periphery. As such it is not ideal for many people with mobility difficulties. However, not all the site is topographically challenged and the prospect of railway re-instatement, linked bus services and a hub offers the future potential of good transport connections.

It is considered prudent, at this outline stage, to apply a condition to create a ‘floor’ to the amount of ‘Lifetime Homes’ that are provided, by requiring, as a minimum, that at least 20% of the overall development is built to Lifetime Homes Standard.

2. Railway reinstatement and access arrangements This section will consider: 2.1 General transport considerations 2.2 Railway re-instatement; 2.3 Railway station; 2.4 Localised highway improvements; 2.5 Walking and cycling routes and 2.6 Bus services

2.1 General transport considerations The Council has overarching principles relating to transport and access hierarchy. These are set out in Strategic Policy 14 Accessibility Planning which states:- ‘Major development should be located where it can maximise accessibility to services and the public transport network in order to meet the needs of all groups and individuals in society. Development should be located so as to reduce the need to travel and to overtimes the potential for the most sustainable forms of travel having regard to the following hierarchy: 1. Walking 2. Cycling 3. Public transport 4. Private vehicles The presence of the Tavistock to Morwellham canal and Crowndale listed model farm structures to the east of the application site means that it is not possible to provide a road link between Callington Road and Plymouth Road without disturbing the setting of the listed buildings and World Heritage Site. This is considered undesirable and vehicular access to the site is proposed to be only from the Callington Road for the foreseeable future. The proposed Section 106 agreement does not seek a financial contribution towards construction of a link between these two roads.

2.2 Railway reinstatement The development proposals for Tavistock are based on the principle of achieving sustainable development for the town. The railway reinstatement scheme between Tavistock and Plymouth forms a significant part of this, aimed at alleviating traffic congestion on the A386 and at providing a wider range of sustainable travel options for the local community. In recognising the key economic link between Tavistock and the city of Plymouth, the reinstatement of the railway has been identified as having significant local and regional benefits.

The A386 between Tavistock and Plymouth experiences high levels of traffic which are forecast to increase as a result of further development in the town. There are limited opportunities for significant improvements to be made to the A386 due to a number of constraints. As such there is a recognised need by the Highway Authority to provide an alternative route into Plymouth from Tavistock.

This development will be expected to make significant financial contributions towards the reinstatement of the railway and this has been considered within the overall viability testing and assessment of the application. Clearly, the costs of reinstating the railway line are substantial and other policies of the Council are being compromised in order to maximise the amount of contributions sought, namely affordable housing.

It is acknowledged that contributions from this site will not, and should not, form the only source of funding for the re-instatement of the railway. Railway re-instatement will benefit the whole town and wider community and there will be other opportunities to secure funding through government grants as well as through contributions from other development sites which might come forward in the area. Nevertheless a significant contribution of at least 50% is likely to increase the chances of delivery of the railway being secured and is also important in the event that grants rely on match funding. The baseline costs for the railway stands at approximately £17m with a further £9m factored in for contingency costs. A contribution of £13.27m, cascading down proportionately if fewer dwellings are built is considered reasonable. This equates to 78% of the lower cost estimate of £17m and 51% of the £26m, higher contingency figure.

2.3 Site for railway platform and railway platform related development (sui generis) Alongside the reinstatement of the railway line, there will need to be provision for railway platform related development. This comprises on-site provision of a site for railway platform, a car park, bike storage and bus facilities (bus stops, turning points, shelters, seating and bus boarders) and other public transport interchange facilities. The related services are required to support the functioning of the railway.

2.4 Localised highway improvements on the A390/A386 corridor A range of off-site highway works are required to mitigate the impacts of increased traffic on the A390/A386 corridor and to achieve suitable access to the site from Callington Road. The off-site works relate to two access points into the site from Callington Road (one main access and one emergency access) and to improvements at three key junctions as follows:

- Main access via Callington Road The main and only vehicular access to the site is from Callington Road (A390) to the north west of the site. Plans show that a roundabout, with three way exit can be accommodated, by realigning the A390 Callington Road, slightly to the south. Pedestrian refuges in the centre of each of the ‘arms’, will link with the pavement on the north western side of the road and ensure that pedestrian access to the site is achieved. A condition to ensure delivery of this roundabout prior to development is considered appropriate.

- Emergency access via Callington Road Given the size of the proposed development, ‘up to 750’ dwellings, an emergency vehicular access to the site needs to be provided in case the main access becomes blocked. The site has a number of significant constraints with most of the areas to the east located close to the World Heritage Site, making even emergency access from this direction difficult. The applicant’s highway consultants therefore showed two potential emergency access routes, both off the Callington (A390) Road. The first option, to the west of the proposed main roundabout access would run along the north western boundary of the site linking to the likely location of the main spine road close to the proposed primary school site. The second option is to the east of the roundabout and would essentially only bypass the roundabout and main entrance road to the development. The Highway Authority is satisfied that the first option, the

applicant’s preference, is acceptable and this has been incorporated into the proposal.

- Ford Street junction improvements Improvement of capacity at this junction without loss of existing parking spaces.

- Drake’s Statue junction improvements Lengthening of the two lane approach to the A386 to the north. Removal of 4-5 parking spaces. The build out on the A386, and also a slight movement of the pedestrian crossing This would have a similar effect to providing an extra lane.

- Pixon Lane junction improvements There is an existing capacity problem which would be exacerbated by the proposed development, hence the requirement for mitigation. Slight amendments to the juncyion are required.

2.5 Walking and cycling routes A comprehensive network of pedestrian and cycle routes both within and beyond the development is essential to ensuring sustainable connections and to enabling a development which is well integrated with the rest of the town. Clear footpath and cycle links between the new development and the rest of the town is a key component of creating a development capable of integrating fully and effectively into the existing community.

There are three key route requirements which have been set out in the Council’s adopted master plan SPD:

- A pedestrian and cycle route linking all parts of the development to Drake’s Walk (NCN Route 27), providing access into the town centre, the canal, Tavistock Primary School, Tavistock College, playing fields and Plymouth Road. A safe, easily accessible and desirable pedestrian and cycle route linking to the existing Drake’s Walk (NCN 27) is necessary in the second phase of development to ensure sustainable access and key links between the new development and Tavistock Primary School, Tavistock College and the town centre. Without this route, the only alternative pedestrian/cycle route is via Callington Road which is less desirable in terms of safety, distance and direct connections.

- A pedestrian and cycle route connecting development on each side of the railway at the southern end of the site to provide safe, sustainable and desirable access between each part of the development and the rest of the town. This provision is shown utilising an old farm track under the railway bed immediately to the south, but just outside the application site, and on land outside the applicant’s control. The re-use of this existing route is strongly supported, but the importance of securing a pedestrian and cycle route between the southern parts of the site is considered critical to these proposed communities, particularly to its reinstatement 3/4, on the western side of the railway which would be quite isolated without it. In order to ensure delivery of this key connection, in the event that the off site route cannot be secured; alternative arrangements are being explored by DCC to require the applicant to provide a pedestrian and cycle bridge over the railway at their own expense.

- Internal pedestrian and cycle routes leading to the school, railway platform and key open spaces to provide safe, sustainable and desirable access throughout the development.

2.6 Bus services The development is required to be served by public transport to enable access to the town centre, key facilities and the wider area. Bus services provide sustainable travel options and are an important alternative form of transport to the private car. It is important that the bus route links to the hub and provides stops throughout the development to reduce use of the private car and to promote accessibility for all users.

The development will be expected to make financial contributions towards the provision of local bus services linking the development site to the rest of the town, particularly the town centre. On-site provision of bus stops (including bus shelters, seating and bus boarders), turning points and routes also form part of the development.

3. Ensuring delivery of a sustainable residential environment This section will consider: 3.1 Drainage; 3.2 contamination; 3.3 Sustainable energy; 3.4 Primary education 3.5 Local convenience store; and 3.6 Public realm 3.7 Public Open Space

3.1 Drainage South West Water (SWW) have stated that the foul sewer system needs to be improved prior to occupation of any buildings. A condition to ensure that this occurs is considered appropriate and recommended.

The Council’s policy framework on drainage is set out in Policy PS2 of the Local Plan Review and Strategic Policy 21 Flooding which state:-

‘The Council will seek the use of sustainable urban drainage systems in all developments. All developments will be required to ensure that surface water run-off is not allowed to enter the foul sewage system.’

The Council’s Engineer is satisfied that it is possible to provide adequate surface water drainage for this site to a 1:100year +30% event, as well as the lesser standard of 1:30 adoptable by SWW. The preference is for two attenuation ponds – one in the slump, boggy patch to the NW of the site and the other in the far south east in the area, restricted by the landfill gas migration constraint. However, the use of oversized pipes, which incorporate storage capacity, would be an acceptable alternative.

Currently the applicants proposed solution involves some use of group soakaways and storage crates. Providing they are not located in private gardens some soakaway use is acceptable, but crates are an inferior solution on sloping land as they have maintenance issues and can be problematic if the land is unstable.

A condition to ensure that an acceptable, comprehensive, surface water drainage scheme is submitted and agreed prior to approval of the submission of the first reserved matters application is considered necessary, and is recommended. 3.2 Contamination As an undeveloped greenfield site the scope for contamination is low. It is limited to naturally occurring arsenic and other heavy metals, which occur in the soils around Tavistock; nineteenth century mine and quarry workings and potential gas migration from an old off site land fill site.

The applicants have committed to providing a ‘clean 600mm thick cover with a geotextile marker layer for residential gardens, managed open space and school playing fields. They

35 have further committed to provide a thicker layer in those areas where allotments and fruit/nut trees are to be planted. Environmental Health are satisfied that this is sufficient to ensure that the site will provide a suitable residential habitat, subject to the strict conditional regime that they recommended.

Historic records in relation to mines are sketchy, but there is some recorded evidence to suggest that a mapped outcrop of a mineral vein running along the far south west corner of the site was mined. Further investigation may confirm its presence and the need for remedial measures such as capping; strengthened foundations etc to be provided in this area. A condition relating specifically to contamination in this area is proposed.

Since submission the applicants have amended their plans to exclude proposed new dwellings from the 250m exclusion area around the historic landfill in the far south eastern part of the site. This means that there should be no need for special construction techniques to mitigate the impact of migrating gasses, although gas monitoring prior to construction will be undertaken as a safeguard, and the usual Radon protection measures necessary in this area will be undertaken. One of two balancing ponds to regulate surface water discharge into the canal is now proposed in this location. The other is in the natural boggy sump, to the north of the railway embankment. 3.3 Sustainable energy The Council has a policy commitment to the delivery of decentralised and renewable energy for new developments. This is set out in Strategic Policy 2 Decentralised Renewable and low Carbon Energy Supply New Developments, which states:- ‘At least 10% of all energy to be used in new development of more than 10 dwellings or 1000sqm of non residential development should come from decentralised and renewable or low carbon sources unless it can be demonstrated that it would affect the viability of the scheme or it is not practical on site. A significant element of this energy provision will be generated on site from renewable sources.’

The applicant’s commitment to a ‘fabric first’ approach is supported. Often many of the easiest gains in energy efficiency come from a good design at the construction stage that incorporates thermal insulation, orientates the main windows of habitable rooms on the south facing elevation, where possible, etc. However, it is not clear whether this is a commitment to go beyond Building Regulations requirements. These are set to rise steeply during the likely construction period as part of the UK’s commitments to managing climate change. There may be a cost deterrent, with associated viability considerations, to going beyond meeting Building Regulation requirements, although the commitment given by the applicant to meet rising standards at the time of construction (likely to be higher than at present) is welcomed.

Also, a ‘fabric first approach’ can have an overall beneficial impact in terms of reducing the total amount of energy required by the new development it will not impact upon the percentage requirement of Strategic Policy 2.

Stating exactly how this development will satisfy this policy commitment at this outline stage is not easy, as construction is likely to take place over a long period of time, possibly 10 years. There are currently a variety of different technologies which could deliver decentralised and renewable energy and this area is quite innovative - being subject to change both from the introduction of new technologies and changes in energy policy – particularly tariff offset regimes.

The relatively low density of the proposed development of this site and long build out period mean is may be less than ideal for solutions, such as combined heat and power (CHP), which require a critical mass to make delivery viable and work best in high density schemes. Although the provision of appropriate connection points at construction stage may make this deliverable in the future.

A condition which re-iterates the SP2 policy commitment and obliges the applicant to specify, at the reserved matters stage how each part of the development satisfies this is considered appropriate and recommended,

3.4 Education SP23 requires this development to make provision for appropriate education facilities. The Education Authority has confirmed that there is capacity within Tavistock College to accommodate the secondary education needs arising from the development but that additional primary school facilities will be required. Evidence provided by the Education Authority identifies a surplus capacity in the existing Tavistock primary schools of only 83 places and as such, additional capacity is required to meet the demands of development beyond the 332nd dwelling.

In order to meet this need, the development will be providing a 1.2ha serviced site for the provision of a primary school facility and financial contributions, both of which will be secured through the accompanying S106 agreement to this planning application should it be approved.

3.5 Local convenience store (A1) (up to 250m2) Policy SP23 makes provision for some small-scale neighbourhood retailing to be provided as part of the development. The purpose of this type of facility is to meet the basic day to day shopping needs for residents in the area. The provision of this unit will reduce use of the private car for shopping trips which might otherwise be made to locations elsewhere in the town. It is important that any store of this nature does not compete with the town centre and the store will therefore be limited to up to 250m2 net floor space for convenience retailing.

3.6 Public Realm The on-site provision of a serviced area to provide a central meeting space within the development is encouraged within the adopted master plan SPD. The co-location of key facilities and public transport links as part of a central meeting space is required to provide a focal point for community interaction. It will be well located to other uses within the hub area, including the primary school, local convenience store and railway platform. There may be scope at the reserved matters stage for providing dual use of some of the primary school facilities, car parking etc and satisfying the need for public open space in this way.

3.7 Public Open Space The Council’s policies require public open spaces (POS) to be provided, managed and maintained as part of any new development that takes place. An appropriate provision of open space, sport and recreation facilities is required in order to support healthy and active lifestyles. Consideration has been given to how this will be delivered as part of the development, taking into account existing provision within Tavistock.

Using standard formula based on policy requirements, the development of 750 homes will generate a need for the following: - 0.645ha play facilities (including LEAP and upgrade to NEAP and off-site contributions)

- 1.035ha – 5.1ha landscaping, amenity space and informal areas (linked to access work, drainage works and community facilities) - Biodiversity enhancement works (3.5ha neutral grassland, 1,500m hedge, 1.2ha woods) - Financial contributions towards sports pitches, courts and changing facilities equivalent to 2.76ha

As with other elements of scalable infrastructure, lower provisions and contributions of POS will be sought if fewer than 750 homes are provided.

4. Design and landscape considerations This section will consider: 4.1Ensuring a high quality landscape and Design Review process; 4.2 Impact on landscapes and mitigation and 4.3 neighbours' amenity

4.1 Ensuring a high quality landscape and Design Review process The application has been submitted in outline with all matters except access reserved. This includes design and landscape considerations. The applicant has aspirations to achieve a high standard of design at this site albeit that most of the proposed new dwellings will be variants of the applicants ‘standard house types’ adapted to local contexts. These change periodically in accordance with market and developer preferences. It is likely that there will be several changes in ‘product type’ during the course of the build out.

The council has a robust set of ‘up to date’ policies (Strategic Policy 16, Safer Communities; Strategic Policy 17, Landscape Character; Strategic Policy 18, The Heritage & Historical of West Devon; Strategic Policy 20, Promoting high quality design) against which to consider the reserved matters applications when they are submitted. These are backed up by references in the NPPF which emphasise the importance of securing high quality design, refusing poor design and the usefulness of Design Review in helping to achieve this on major sites.

However tempting it may seem it is important to avoid imposing too many prescriptive constraints on the design at this outline stage. This could inadvertently limit the scope for architect and designer creativity. There will be opportunity at each reserved matters stage to consider important issues such as internal road locations; building layout; appearance; materials etc. In addition the applicant has confirmed in writing a willingness to fund and participate in an independent Design Review process. It is anticipated that this will take place prior to the submission of each phase of the development.

4.2 Impact on landscapes and mitigation Concerned opposition, in principle, to the Core Strategy allocation and or deep reservations about its overall desirability are respected, but can not at this stage, be fundamental matters of consideration in relation to this application. The development of the site will invariably involve removal of large sections of field boundary hedges and some mature trees. It will disturb wildlife habitats and displace others. However, the site will provide significantly more open space than is required (nearly 10 ha, or circa 25%) and be developed at a low density (sub 30 units per hectare). It will still have a landscape and habitat value, whilst providing much needed new homes.

There will be scope for the retention of woodland areas. Woodland areas, particularly those close to the canal play an important role in screening the World Heritage Site from the development. The area at the western end, where tree screening is currently limited, will need to be supplemented with additional planting. Individual tree specimens will be retained

38 where there is not insurmountable conflict with the need to provide roads, pipes, ducts etc, or the need to avoid excessive shading of small private gardens. A TPO is being prepared to protect all the trees on the site. It is considered that this should be used as a ‘tool’ to ensure that removals are authorised on a considered basis, only when and where it is absolutely necessary, and can be accompanied with replacement and additional planting where appropriate.

The area around the proposed vehicular entrance has been they subject of some specific consideration. This ‘gateway’ location becomes the new ‘edge of the town’, an area of transition between the urban and the rural. Current plans reflect these considerations. They show the area to the east of the roundabout, closest to the town, with houses built fairly close to the road, whilst the area to the west will mark the new transition to the countryside with a more generous ‘set back’ containing a green tree planted swathe. The applicants have shown how this ‘might’ look in an illustrative plan of the scheme.

4.3 Neighbours' amenity Neighbouring residential properties in Abbotsfield and Monksmead estates currently abut open countryside. The outlook and character of these properties will be changed considerably by the proposed urban extension which will push the boundaries of the town further towards the south west. In addition the presence of an entrance roundabout serving up to 750 dwellings a new primary school and rail halt will attract more traffic and manoeuvring at this point. Residential properties in Abbotsfield will have their aspect changed, but are considered to be sufficiently distant from this junction not to be directly adversely affected by the proposed development. There is some safeguard in relation to frontages onto Callington Road in the framework set out in para 6.53 p.39 of the SPD.

5. Section 106 measures to offset the impact of the development This proposal seeks to create a sustainable development for Tavistock which involves the delivery of a railway link into Plymouth alongside new homes and supporting community facilities.

Additional residential development of this scale in the town will have an impact on elements of the existing infrastructure of Tavistock. The Council’s adopted masterplan SPD has sought to identify what the critical infrastructure requirements are to support the new development and through the application process these measures will be included within the S106 agreement which accompanies the application. This links in to the wider Strategic Policy 4 on Infrastructure Provision which states:- ‘The council will work with its partners to ensure that new development is supported by appropriate infrastructure. The provision of new or improved infrastructure should be delivered either in phase with, or in advance of development. All new developments will be required to make contributions to meet on-site and/or off-site infrastructure requirements, subject to viability, that are:  Made necessary by the development  Needed to support the sustainable growth of communities in West Devon; and/or  Needed to achieve the strategic aims and vision of the Borough in accordance with the Council’s Infrastructure Delivery Plan, An appropriate range and level of contributions will be assessed in a comprehensive manner taking into account strategic infrastructure requirements and using standard charges where appropriate.’

The following table outlines these measures. The provision of, and/or contribution towards these items of infrastructure are based on a 750 unit scheme and could reduce proportionately if the total number of dwellings built is less than 750.

Infrastructure Item Contribution Reference in Committee Report Affordable 20% affordable housing Section 1.4 housing Tenure split: - 60% affordable rent - 40% intermediate Railway Financial contribution Section 2.2 reinstatement £13,275,000 Site for railway platform On-site provision of site for Section 2.3 and railway station related railway platform. development Car park, bike storage and bus facilities (bus stops, turning points, shelters, seating and bus boarders) and other public transport interchange facilities. Localised highway To include, but not Section 2.4 improvements on exhaustively:- The A390/A386 - Main access via corridor Callington Road - Emergency access - Ford Street junction improvements - Drake’s statute junction improvements - Pixon Lane junction improvements Walking and A pedestrian and cycle route Section 2.5 Cycling routes linking all parts of the development to Drake’s walk (NCN Route 27), providing access into the town centre, the canal, Tavistock Primary School, Tavistock College, playing fields and Plymouth Road. A temporary pedestrian and cycle route connecting development on each side of the railway towards the southern end of the site. Internal pedestrian and cycle routes leading to the hub and key open spaces. Bus services Financial contributions Section 2.6

towards the provision of local bus services linking the development site to the rest of the town, particularly the town centre.

On-site provision of bus stops (including bus shelters, seating and bus boarders), turning points and routes. Primary education Financial contributions Section 3.4 towards a new primary education facility to be provided within the development area.

1.2ha services site for the provision of a primary school facility

Local convenience store Up to 250sqm net floor space Section 3. 5 for convenience retailing provided alongside other hub facilities.

Public Realm Public realm enhancements Section 3.6 throughout the development reflected in design, on-site public art, street furniture, signs etc. These should incorporate recognition of local heritage assets, particularly the World Heritage site

Public open space Provision to include; Section 3.7 0.645ha play facilities - Biodiversity enhancement works (3.5ha neutral grassland, 1,500m hedge , 1.2ha woods) Financial contributions towards sports pitches, courts and changing facilities equivalent to 2.76ha.

On-site provision of serviced area to provide central meeting space within the development

Conclusion The details submitted in connection with this outline planning application provide a link, a middle cog, between the strategic policies set out in the allocation and South and South West of Tavistock SPD, and the specific details required for the reserved matters applications.

As the substantive planning permission it is important that the level of detail provided is sufficient to give the Local Planning Authority confidence that the reserved matters will come forward in a way that fulfils its core policy commitments, but is not so prescriptive, at this stage that it ‘snapshot’ fixes design and inhibits future flexibility and innovation

This application deals with the issues around the amount of development, levels of Section 106 contributions etc. It is considered that it provides a robust framework for assessment of the subsequent reserved matters applications, and is recommended accordingly.

Planning Policy This application has been considered in accordance with Section 38 of the Planning & Compulsory Purchase Act 2004 and, where relevant, with Sections 66 and 72 of the Town and Country Planning Act 1990 (Listed Buildings and Conservation Areas).

Planning Policy NPPF

West Devon Borough Council Core Strategy 2011 SP1 – Sustainable Development SP2 – Decentralised and Renewable Low Carbon energy to Supply New Developments SP3 – Renewable Energy SP4 – Infrastructure Provision SP5 – Spatial Strategy SP6 –Density of Housing Development SP7 – Strategic Distribution of Housing SP8 – Inclusive Communities SP9 – Meeting Housing Needs SP 12 – Retailing SP13 – Community Services and Facilities SP14 – Accessibility Planning SP15 – Traffic Management SP16 – Safer Communities SP17 – Landscape Character SP18 – The Heritage and Historical Character of West Devon SP19 – Biodiversity SP20 – Promoting High Quality Design SP21 – Flooding SP23 – Tavistock

West Devon Borough Council Local Plan Review 2005(as amended 2011) NE10 – Protection of the Countryside and Other Open Spaces BE1 – Conservation Areas BE2 – Conservation Areas BE4 – Features and Artefacts of Local Importance BE5 – Important Open Space within Settlements BE7 – Archaeology and Sites of Local Importance

BE8 – Archaeology and Sites of Local Importance BE9 – Archaeology and Sites of Local Importance BE10 – Archaeology and Sites of Local Importance BE13 – Landscaping and Boundary Treatment BE14 – Public Art BE19 – Development on Contaminated Land H25 – Mixed Use Development in Town Centres H26 – Open Space Provision in New Residential Developments H28 – Settlements with Defined Limits H42 – Disabled and Those with Mobility Issues R5 – Neighbourhood and Village Shopping R6 – Village Shops, Post Offices and Public Houses RB1 – Conversion and re-use of rural buildings for business RB2 - Conversion and re-use of rural buildings for business TLS6 – Allotments TLS7 – Existing Sports Facilities TLS8 – Recreational Uses at Crowndale, Tavistock T1 – Walking and Cycling T2 – Pedestrian and Cyclist Safety T3 – Protection of Existing Footways, Cycleways and Bridleways T5 – Public Transport T7 – Railways T8 – Car Parking T9 – The Highway Network PS2 – Sustainable Urban Drainage Systems PS3 – Sewage Disposal

Considerations under Human Rights Act 1998 and Equalities Act 2010 The provisions of the Human Rights Act 1998 and Equalities Act 2010 have been taken into account in reaching the recommendation contained in this report. ______