Central Council Local Plan Planning Report on behalf of Mr Keith Fine

Development of site for around 30 dwellings Land of Goswell End Road, Harlington, Beds, LU5 6NY (Site 1)

DLA Ref: 2016/100 November 2016

CONTENTS

1.0 EXECUTIVE SUMMARY ...... 1 2.0 INTRODUCTION ...... 2 3.0 STRATEGIC CONTEXT ...... 3 4.0 OUTLINE OF SITE ...... 6 5.0 OUTLINE OF PROPOSAL ...... 10 6.0 INFRASTRUCTURE DELIVERY ...... 11 7.0 SITE CONSTRAINTS ...... 12 8.0 DETAILS OF PROPOSAL ...... 14 9.0 CONCLUSIONS ...... 16

1.0 EXECUTIVE SUMMARY

1.1 This report relates to land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1). The report proposes that the land is removed from the Green Belt and allocated for housing purposes. The mix of dwellings would reflect housing need within the area and it is expected that the site would provide a mix of different sizes and types of houses. An indicative scheme is presented which proposes around 30 houses at the site. Fig 1.1 Indicative Site Layout

1.2 There are no constraints that would prevent development. The site is well-located in the village, close to existing facilities and would form a sensible extension to the village.

1 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

2.0 INTRODUCTION

2.1 This report has been produced by DLA Town Planning on behalf of the landowner, Mr Fine. It is produced following the “Call for sites” undertaken by Council in February 2016. The Council is working on a new Local Plan covering the period to 2035 and as part of this process sought potential development sites.

2.2 This report has been produced to aid consideration of the site through the Local Plan process. The format of this report reflects the structure of the pro forma published by the Council and expands on the information given in the completed pro forma.

2.3 The level of detail given in this report is sufficient for the allocation of the site in the Local Plan. However, this report does not provide a planning application level of detail and further work will be required prior to any planning application being made.

2 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

3.0 STRATEGIC CONTEXT take the majority of it. North Hertfordshire District Council is currently proposing 2,100 homes to the east of Luton to help An estimate of housing need meet Luton’s housing need but this still leaves a shortfall of 3.1.1 The Council’s call for sites is made in the context of a substantial around 9,000 homes up to 2031. increase in the overall housing requirement. The now withdrawn Development Strategy planned for a total of 31,000 new homes, 3.1.4 The new Local Plan for Central Bedfordshire will cover the period of which 25,600 were at that stage required to meet housing to 2035 and while additional demographic modelling will be need in Central Bedfordshire. Things have now moved on needed to cover this period, a provisional housing need figure is significantly and to help set the context for this call for sites provided to help set the context. submission, an estimate follows of the likely housing requirement over the new plan period to 2035. 3.1.5 A further four years’ worth of housing need in Central Bedfordshire (1,475pa) would equate to around 5,900 additional 3.1.2 The Council’s Strategic Housing Market Assessment (SHMA) homes. Calculating Luton’s unmet housing need to 2035 is published in summer 2015 set out an Objectively Assessed Need difficult at this stage but an additional four years at 450 homes for housing (OAN) of 29,500 dwellings between 2011- and 2031, per year (the current level of unmet need) would equate to equivalent to 1,475 dwellings per year. 1,800 additional homes.

3.1.3 Central Bedfordshire shares a Housing Market Area with Luton 3.1.6 Adding together the known need to 2031 for both Central where there is substantial unmet need which needs to be Bedfordshire and Luton and an initial estimate of the need from considered as part of the new local plan process. Luton’s pre- 2031-35 would give a total of 46,200 homes potentially needed submission plan published in October 2015 proposed a total of in Central Bedfordshire. 6,700 homes, against a need of 17,800 (2011-31). Central Bedfordshire is not necessarily responsible for meeting the 3.1.7 The Council’s current Housing Trajectory suggests a total supply entirety of this shortfall but, as the Inspector examining the up to 2035 of 31,855 homes. This leaves a total of up to 14,345 Development Strategy commented, in all likelihood will need to

3 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

homes still needing to be planned for, above and beyond the 3.2.2 The largest area of need is within the Luton Housing Market Area. sites proposed in the Development Strategy. Although there are major development proposals in this area already, there is still a substantial unmet need. Additional Table 3.1 - Estimated housing requirements in Central Bedfordshire (2011- proposals in this HMA or that relate closely to this HMA should 35) therefore be carefully considered. Housing Requirement Total Per Annum

Central Bedfordshire’s housing need (from 29,500 1,475 Council’s SHMA) Luton’s total housing need 17,800 890 Report site Luton’s current unmet need 9,000 450 Central Bedfordshire’s housing need 2031-35 5,900 1,475

Luton’s housing need 2031-35 1,800 450 Potential total housing requirement in Central 46,200 1,925 Bedfordshire 2011-35 Current estimate of supply to 2035 (from 31,855 Council’s Housing Trajectory)

Current potential shortfall in Central 14,345 Bedfordshire

Geography of housing need 3.2.1 The Council’s SHMA gave an indication of the geography of housing need across the Central Bedfordshire area. Figure 63 from the SHMA is included opposite. Although the Council’s consultants acknowledge that this work is not a precise science, it nevertheless provides a useful reference point for considering housing need and supply.

4 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

Potential sources of housing supply Shaping Central Bedfordshire consultation – October 2016 3.3.1 Accommodating a further 14,300 homes represents a significant 3.4.1 As part of its early work towards a Local Plan, the Council challenge for Central Bedfordshire Council, particularly since a consulted on initial growth options in October 2016. This number of the “obvious” development sites have already been consultation effectively divides the district into four areas. developed or identified. Harlington falls into area A – “South and West/M1 Corridor”. See plan below. 3.3.2 The scale of the challenge means that a variety of types and sizes of sites will be needed. Previous plan-making has tended to 3.4.2 Area A was considered by focus, for sensible planning reasons, on larger sites around the the Council to have larger settlements. However, as the supply of well-related and potential for growth at all well-connected sites begins to dwindle, additional sources of levels, particularly focused supply need to be examined. along the M1, A5 and Midland Mainline railway 3.3.3 The scale of allocations in the rural areas has previously been line. We support this limited but this now needs to be re-examined in the light of the conclusion. Harlington is scale of housing need facing the area. As the NPPF very well located in terms acknowledges, housing need can be provided for in a range of of access to the M1 and locations and there is a clear role for rural housing allocations. has its own station on the This is particularly the case in villages that have not seen Midland Mainline. A such significant development in the past and where new allocation of this site development can help provide, support or sustain existing would fit comfortably facilities such as a village hall or a local school. within the emerging strategy proposed by the Council. Report site

5 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

4.0 OUTLINE OF SITE

4.1.0 Location

4.1.1 The Report Site is located off Goswell End Road, in the northern part of the village of Harlington. To the west of the report site is residential development and to the east of the site is . Harlington village centre is located to the south of the site.

4.1.2 In general terms the surrounding area is characterised by residential development, as well as agricultural land. Adjacent to the Report Site there is residential development on Goswell End Road. This comprises a mix of two-storey semi-detached, detached and terrace dwellings. To the rear of the report site is car parking and playing fields for Harlington Upper School, and the school lies to the immediate east of the site. To the north is open countryside. Fig4.1.0: Location Plan

4.2.0 Development Site 4.2.1 This comprises an irregular shaped parcel of land, which is currently undeveloped overgrown agricultural land.

6 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

4.3.0 Context 4.2.2 Built Development/Topography / Landscape Features 4.3.1 On the eastern side of Goswell End Road to the site is Harlington The site is a field bounded by trees and hedgerows, with a Upper School. Harlington Lower School is a short distance to the substantial hedge along the Goswell End Road frontage. There is west. To the south of the site are more residential dwellings along no existing built development on the site. Lincoln Way. To the north-east and North-west is open

countryside. The surrounding elements are displayed below: Access

4.2.3 It is proposed that vehicular access would be gained via a new

junction onto Goswell End Road. The proposed junction arrangement shown on the indicative sketch plan has been 1 designed to allow visibility splays appropriate to the 30mph 2 4 speed limit to the achieved.

3 4.2.4 Due to the location of Harlington Upper School, which is to the

east of the site, some traffic calming measures have been installed on the road. Whilst the traffic calming was undertaken for the benefit of the school it has a wider benefit for all road

users. 6

4.2.5 Planning History No planning applications have previously been submitted on this site. 7 5

7 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

Element Description Extract from

1 Proposed Site Central

Harlington Upper School 2 Bedfordshire

Council’s 3 Harlington Lower School Core Strategy

Existing Development along Goswell End Road 4 Proposals

Map with site 5 Harlington Train Station outlined in 6 Harlington Surgery red The Old Sun Public House 7

4.4.0 Development Plan Notation

4.4.1 The Central Bedfordshire Core Strategy Proposals Map shows the site being within the Green Belt, abutting the defined northern settlement boundary of Harlington, which is identified as a Large Extract from Village. The Environment Agency maps show that the site is not Environment located within Flood Zone 2 or 3. Agency Flood Risk Map 4.4.2 To the south of the Report Site, the dwellings on Goswell End with site Road are included within the settlement boundary and identified outlined in as a residential area. red

8 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

4.5.0 Local Services There are existing footways along Goswell End road which run The Site is located within close proximity to a variety of everyday parallel to the western boundary of the site and would provide a facilities and services, as set out in the Table below. direct pedestrian link to the facilities within Harlington.

Table 4.5.0: Summary of Local Services 4.6.3 Local Buses Facility Local Provision Proximity to Within 500m of the site there are a variety of bus stops, these site (km) services run up to 1 service every 2 hours. Providing services to Education Harlington Upper School 275 m nearby towns and villages of , Luton, Toddington and Harlington Lower School 450 m Retail Post Office 500 m . Convenience Store 500 m 4.6.4 Rail Services Health Harlington Surgery 750 m The nearest railway station is found is Harlington, some 0.8km Tuda Pharmacy, Toddington 4.5km from the site. Frequent services from the station run to London Leisure The Old Sun Public House 1.1 km St Pancras, Bedford, Gatwick and . Harlington Cricket Club 1.3 km

4.6.0 Accessibility 4.6.1 The application site is accessible by a variety of modes of transport other than the private motor car as set out below.

4.6.2 Pedestrians / Cyclists Harlington has footpaths across the village; these are already directly accessible from the site. The Goswell End Road development has street lighting to beyond the site.

9 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

5.0 OUTLINE OF PROPOSAL

Description of Development 5.1 This report promotes the site for residential purposes. An indicative layout involving a scheme of around 30 dwellings is shown in Figure 5.1.1 below. The homes would be a mix of sizes, types and tenures. The actual mix of housing would be subject to scrutiny and consultations at a planning application stage and would reflect local housing needs. Extensive new perimeter planting would be provided to establish a new defensible Green Belt boundary on the northern site boundary. A new access junction would be provided from Goswell End Road.

5.2 A site to the west of the report site has also been submitted through the call for sites process. While not included within this report, the two sites would nevertheless work well together and could be taken out of the Green Belt together.

Fig 5.1.1 Indicative Site Layout

10 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

6.0 INFRASTRUCTURE DELIVERY

6.1.0 Critical Infrastructure Requirements The development of the site for around 30 dwellings would not

generate large scale infrastructure requirements. The site would require basic utility provision, such as water, sewage and electricity. Given the close proximity to existing residential

development and Harlington upper school it is not considered that the provision of utilities would be problematic or cause significant technical issues.

6.2.0 Transport Corridors The site would be accessed directly off Goswell End Road, which leads to Westoning Road, and then in turns leads to the A5120 some 0.9km of the site. Then, this leads to Junction 12 of the M1, some 3km of the site.

6.3.0 Additional Infrastructure Delivery The proposal includes a fully integrated SuDS scheme would be incorporated utilising, and providing, ecological habitats.

11 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

7.0 SITE CONSTRAINTS

The impacts of potential site constraints are considered in the Table below.

Issue Analysis Access to Highway The site can be directly accessed from a public highway via a new junction on Goswell End Road. A new junction onto Goswell End Road would need to be formed with the appropriate visibility splays and junction design. In addition, the junction could form part of a wider package of traffic calming measures improving highway safety, particularly in the vicinity of Harlington Upper school. The level of traffic associated with the proposed development is not considered likely to have any significant adverse effect on the operation of the local highway network. Utilities The site is not currently served by utilities; however, there existing residential developments and Harlington upper school to the east of the site indicates that there are no reason why appropriate utility connections could not be easily secured. Protected Trees/ There are mature hedgerows along the road frontage boundary of the site. There are no protected trees Mature Hedgerows within the site. Environmental / There are no environmental/ wildlife designations on the site or within close proximity to the site. Wildlife Designations Heritage Designations There are no heritage designations on the site. There is a conservation area approximately 700m south of the site in Harlington, but this would not impact the achievability of development on the site. Physical Constraints The site has no physical constraints; the site is located within Flood Zone 1 that is suitable for development as there is less than a 0.1% change of flooding per year. This would not hinder development. Green Belt The site is within the Green Belt however it is adjacent to the Harlington village boundary which is excluded from the Green Belt. Openness is the absence of development and therefore the proposal to build houses on the site would have an adverse impact on openness. However, with regard to the purposes of the Green Belt it is not considered that removing this site from the Green Belt would adversely impact on the effectiveness of the remaining Green Belt land in checking the unrestricted sprawl of large built-up areas or preventing neighbouring towns merging into one another. Allowing development on this small site would not bring Harlington any closer to the nearest villages of Toddington and Westoning. Removing the site would conflict with the purpose of assisting in safeguarding the countryside from encroachment however the impact

12 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

would be very limited in exchange for a sustainable housing site and an average density that reflects the surrounding developments. The proposal would not have any adverse impact on the ability to preserve the setting and special character of historic towns. The final purpose of Green Belt land is to assist in urban regeneration by encouraging the recycling of derelict and other urban land, is not applicable as this site is greenfield land. Overall, the site forms a sensible and contained natural extension to Harlington, it would be possible to create a new defensible Green Belt boundary utilising the existing boundary hedgerows and other readily identifiable features. Forest of Marston The site is outside of the Forest of Marston Vale. Vale Deliverability The site is deliverable in the following circumstances:

- the ownership of the site is not complex and there is developer interest; - there are no ‘ransom strips’ present; - the development is not dependent upon overcoming any constraints. - infrastructure provision will not significantly affect the timing of delivery.

13 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

8.0 DETAILS OF PROPOSAL

8.1.0 Schedule of Residential Accommodation 8.2.0 Density The mix of dwellings on the site has not yet been determined and The site is some 0.82 hectares with around 30 units proposed, would be subject to consultations in order to reflect local needs. this would result in an average density of 25 dwellings per It is anticipated that a range of house types and sizes would be hectare. It is considered that this density is appropriate in this provided. The site could provide 30% affordable housing location, respecting the surrounding residential development provision, subject to technical viability work. It would be possible and Green belt land and represents an efficient use of land whilst to provide some specialist bungalow/ apartment accommodation for the elderly within the site. still providing dwellings of an appropriate size with adequate outdoor amenity space. Whilst there is no minimum size for a Gypsy and Traveller pitch, the Council’s Design Guide supplement 6 states that a family 8.3.0 Starter Homes pitch should be large enough to accommodate an amenity The site does not constitute “underused” or “unviable” land that building, a large trailer (mobile home/ static caravan), touring could be used for starter homes. caravan, parking for two vehicles, drying space for clothes, shed for bicycles, tools etc and garden area. This amount of development would therefore suggest a pitch size of between 8.4.0 Self Build / Custom Build 200m2 and 500m2. Due to the limited size of the site it is not considered that the site would be suitable for self-build. Travelling Showpeople traditionally live and keep and maintain

their rides/equipment on the same site leading to requirements 8.5.0 Mixed Use Development for large plots in excess of the 200-500m2 for Gypsy and Traveller The proposal includes around 30 dwellings, car parking and pitches. associated landscaping. Due to the limited size of the site it is not It is therefore considered that due to the limited size of the site considered that the site would be able to provide any additional that the proposal would be unviable if any land were to be given uses as this would hinder development viability. over for Gypsy and Traveller or Travelling Showpeople

accommodation.

14 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

8.6.0 Phasing of Development Following the grant of an appropriate planning permission and approval of details reserved by condition, which would take circa 24 months, it is considered that the development could commence with 5 years. The residential dwellings would be delivered in two phases between 2018/19 to 2019/20, dependant on funding arrangements. The 30 dwellings could therefore be delivered within 5 years of allocation.

15 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016

9.0 CONCLUSIONS cumulatively could make a significant contribution towards addressing the housing shortfall.

9.1.0 Background 9.3.1 Based on an analysis of the Site and its context, the potential constraints and opportunities and the nature of the proposed This report has been produced by DLA Town Planning on behalf of development; the residential development of the Report Site is the landowner, Mr Fine. It is produced following the “Call for sites” considered to be a viable option. The site is well related to existing undertaken by Central Bedfordshire Council in February 2016. The development within the village and future occupiers would be able Council is working on a new Local Plan covering the period to 2035 to access shops, educational facilities and public transport links by and as part of this process sought potential development sites. walking or cycling. The site is currently within the Green Belt, however it is not considered that removing the land from the The site is promoted for residential development comprising Green Belt would conflict with the purposes and it is clear that a around 30 dwellings, car parking and associated landscaping. new defensible boundary would be created. There are no other 9.2.0 Strategic Context significant environmental, infrastructure, highways or ownership constraints to development. Taking account of both the known need to 2031 for both Central Bedfordshire and Luton and an initial estimate of the need from 9.3.2 Overall it is concluded that Harlington is a sustainable location for 2031-35 would give a total of 46,200 homes potentially needed in residential development, and that the proposed scheme is Central Bedfordshire. The Council’s current Housing Trajectory deliverable within the next 5 years and the development would suggests a total supply up to 2035 of 31,855 homes. This leaves a contribute to achieving the aims of the local needs. total of up to 14,345 homes still needing to be planning for, above

and beyond the sites proposed in the Development Strategy.

9.3.0 Analysis of Report Site

Given the shortfall identified above, it is considered that a range of sites will be required to meet the housing needs within the District. This could include smaller sites, such as the Report Site, which

16 Land off Goswell End Road, Harlington, Beds, LU5 6NY (Site 1) DLA Ref 2016/100 November 2016