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JRF Osbaldwick Report Masterplanning a new community Designs for a town extension in York Joseph Rowntree Foundation with masterplans by Aire Design, EDAW, John Thompson & Partners and PRP Architects 2001 Creating a new community 3 Lord Best, Director, Joseph Rowntree Foundation Masterplanning and why it is needed 7 Kelvin MacDonald, Director, Room Guide • The need for new communities 9 • Barriers to development 13 • The case for masterplanning 18 The community involvement story so far 20 Peter Marcus, Policy and Practice Development Manager, Joseph Rowntree Foundation • A commitment to consultation 21 • Consulting on the masterplans 27 • Taking consultation forward 33 Assessing the masterplanning process 34 Les Sparks, Planning Consultant to the Joseph Rowntree Foundation • Providing the brief 35 • The winning submission 37 • The other submissions 39 • Some lessons from New Osbaldwick 41 The masterplans 44 • ‘Osbaldwick Fields’ a new community for York Aire Design 45 • Osbaldwick masterplanning competition EDAW 104 • New Osbaldwick: a vision of continuity and change John Thompson & Partners 129 • New Osbaldwick: a natural community. Masterplan report PRP Architects 169 Copyright and publication information 211 Creating a new community 1901 impact adversely on neighbouring communities; second, In 1901 the chocolate maker and philanthropist Joseph the creation of a strong mixed tenure community with a Rowntree decided to create a new community just to the high quality of life for residents; and third, a model which north of York. He commissioned Barry Parker and others contemplating edge-of-town extensions may find Raymond Unwin as masterplanners and architects to useful. An over-arching priority will remain the creation of produce a ‘garden village’ at New Earswick. The a vibrant community with a high level of involvement by its enterprise proved to be a model not just for garden cities citizens in decisions that affect them all. – Parker and Unwin went on to design Letchworth and Welwyn Garden City – but for numerous private and The land for the new development at New Osbaldwick is public suburban housing developments over the next mostly in the ownership of the City of York Council, an half century. authority with a reputation for leading the way with its strategic thinking. Rather than simply selling the New 2001 Osbaldwick site to a speculative developer, the council is One hundred years later, the Joseph Rowntree keen on a partnership approach. The aim is to achieve a Foundation hopes to have responsibility for creating high proportion of affordable housing, top quality design another new community on the edge of York. The with well-used green space, good traffic management priorities will be different this time: first, an and a safe and sustainable environment. The council’s environmentally sustainable development which will not desire to achieve these important objectives may diminish 3 Creating a new community the price it obtains for the land, compared with a simple open market sale. But the outcome, we hope, will provide the best value for both the new and existing communities in York. A model Research on demographic trends by the Joseph Rowntree Foundation has highlighted the continuing requirements for additional housing to meet the needs of tomorrow’s households. It has also shown that not all of this can take place on brownfield recycled land. We have come to the conclusion that one of the most acceptable ways of achieving large numbers of new homes is in attaching them to sites on the periphery of towns and cities. This approach avoids more ‘town cramming’ within pleasant villages and smaller towns and achieves lower land prices than result from a multiplicity of small developments. Developing these sites should produce planning gains The garden village of New Earswick that can help to fund affordable housing, community facilities, good landscaping or local employment of public transport and services, shops, work and schools. opportunities. Unlike free-standing settlements which If town extensions are to be the way forward, New generate constant car journeys, edge-of-town extensions Osbaldwick may be a chance to demonstrate the merits of allow new residents to link into the existing infrastructure this approach. 4 Creating a new community Osbaldwick. The development will be truly mixed, with the rented homes and low cost home ownership properties scattered among the owner occupied houses. This mixing will avoid any part of the development becoming stigmatised as social housing available only for ‘the poor’. By offering flexible tenure, house purchasers who run into financial difficulties will have a chance to sell to us and stay on as tenants. Tenants who prosper will be encouraged to buy, becoming shared or full home owners. If the project goes ahead with the Joseph Rowntree Housing Trust as the developing body, the properties in New Osbaldwick will meet the foundation's Lifetime Homes criteria for accessibility and adaptability. And we will also seek to ensure that there are mechanisms in place for meaningful civic engagement by residents in the management of the whole community, and possibly at some stage in the collective ownership of communal facilities. A vision of a strong mixed community at New Osbaldwick Since we will be risking millions of pounds up front – on The future infrastructure, extensive community participation, burying The foundation's hope – our vision – is that, four or five existing power lines, paying fees for masterplanners and years from now, about 500 extra homes with valuable lawyers – the project will not be without its hazards. But additional amenities will be built on the site at New we are fortunate indeed in York in having a local authority 5 Creating a new community which shares the vision of housing development that can Even if – heaven forbid – the project does not proceed as enhance an area, that can be fully integrated within the we hope, the exercise will have been worthwhile for the fabric of the existing city and that can demonstrate how ideas generated by this process. We are deeply grateful much good planning and good architecture can achieve. to the members of City of York Council who have participated and to the local authority officers for their full This report involvement throughout. We are also extremely This report begins with a look at master planning and appreciative of the work of the four teams who submitted what it can contribute to building successful new their ideas for New Osbaldwick and hope all these will communities. It then tells the story of how our consultation provide inspiration to others engaged in similar process involved those living and working close to New developments elsewhere. Osbaldwick. The next chapter, by our planning adviser Les Sparks, explains why the submission by PRP Richard Best Architects was the preferred choice of the judges. The Director, Joseph Rowntree Foundation final four chapters reproduce the competition entries that we commissioned, with an award of £10,000 each, from Aire Design, EDAW, John Thompson & Partners and PRP Architects. 6 Masterplanning and why it is needed Kelvin MacDonald, Director, Room The need for new communities • Public involvement • Mixed development – and the appeal of ‘community’ • Building town extensions Barriers to development • Conservation v. development in the green belt • The risk of delays • The need to link planning and investment • Political barriers • Lack of openness in planning agreements The case for masterplanning 7 Masterplanning and why it is needed The building of New Earswick in 1904 marked a Now, nearly a century later, there is the need for similarly significant milestone in the development of new comprehensive and radical thinking about the ways in settlements. It proved that healthy living in well designed which we develop communities in Great Britain. Just as and spacious surroundings was not the exclusive New Earswick incorporated progressive ways of working preserve of the better off and showed that it was possible and innovative solutions to address contemporary to plan for, and create, physical and social communities problems, so the development of new communities in the rather than simply rows of speculative housing. 21st century must produce schemes that address a new national agenda. This includes: • the need to accommodate the growth in the number of households • the necessity of providing housing for those in need now and in the future • the desire for greater quality in the places which we create • pressures to protect the countryside • the need to address the exodus from many urban areas • the desire to create truly mixed communities • the push to create developments which are sustainable not only in environmental terms but also economically and socially • the recognition that communities must be involved in designing and achieving the future for their areas New Earswick – quality housing not just for the growing social and economic divisions existing the better off • within increasing affluence. 8 Masterplanning and why it is needed The need for new communities planning it is important to prevent the complete separation of different classes of people which is such a feature of Barry Parker said: ‘When [New Earswick] was established the modern English town.’ housing was almost the undisputed realm of the speculative builder.’ Joseph and Seebohm Rowntree, The five criteria established for New Osbaldwick – however, saw housing as being a key weapon in the fight sustainability, affordability, safety, community values and against poverty. Seebohm had conducted a social survey high quality design (see page 35) – directly reflect many of York, published in 1901, which revealed the poor of the values embodied in New Earswick nearly a century housing conditions and economic deprivation experienced ago. by a quarter of the population of that city. In the same year, Joseph Rowntree brought the 150 acre site that was Public involvement eventually to accommodate the new community. When the Parker and Unwin believed that town planning was a Joseph Rowntree Trust was formed in 1904, one of its ‘democratic art’.
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