APPENDIX 3
Swindon Principal Urban Area Study (September 2003)
Page 0 Contents
Description Page No
1. Introduction 3 2. Regional Planning Guidance 4 3. Planning for the Future 7 4. Principal Urban Area Study 15 5. Urban Capacity/Urban Potential 17 Definition 17 Urban Capacity to 2016 17 Urban Potential 21 6. Urban Extension Study 26 Definition of Study Area 26 Phase 1 Assessment Methodology 26 Phase 2 Assessment Methodology 29 Identification of Assessment Areas 29 Sustainable Development Principles 29 Mapping Constraints and Facilities 32 Accessibility Assessments 32 Access to Community Facilities 32 Access to Employment 33 Assessment of Employment Accessibility 35 Environmental Assessment of Development Areas 36 Environmental Appraisal 37 Rural Buffer Assessment 44 Transport Assessment 46 Infrastructure and Community Facilities 50 7. Public Consultation 53 8. Overall Assessment Methodology 58 9. Employment Accessibility Results 60 10. Transport Assessment Results 67 11. Landscape Assessment Results 75 12. Environmental Features Assessment Results 79 13. Rural Buffers Assessment 91 14. Utility & Community Services Assessment Results 95 15. Access to Community Facilities Assessment Results 104 16. Aerial Photograph Biodiversity Survey Results 116 17. Overall Assessment Results 119 18. Conclusion 126 Appendices (1-16) 133 Glossary 159 Maps (1-18) 160
Page 1 Appendices
1 27 Quality of Life Principles 2 Areas & Dwellings in the Principal Urban Area (Excluding Southern Development Area) 3 Urban Potential Study: Summary for Neighbourhood Areas 4 Phase 1 Potential Development Cells 5 10 Sustainability / Quality of Life Principles 6 Phase 1 Overall Ranking 7 Results of Phase 1 Assessment 8 Phase 1 Results (Addition of “Wroughton Area) Taken Forward to Phase 2 9 18 Sustainability Principles 10 Adopted Wiltshire Structure Plan 2011 – Objectives 11 28 Quality of Life Principles 12 Sustainable Development Indicators 13 Matrix Assessment 14 Bandings of Environmental Features 15 Wiltshire & Swindon Structure Plan 2016 – Pre-Deposit Consultation Document 16 Pre-Deposit Consultation Responses Summary (Selected)
Maps
1. Education Facilities 2. Health Facilities 3. Leisure Facilities 4. Community Facilities 5. Access to Employment 6. Indicative Rural Buffers 7. Transport Network 8. Environmental Features – Kingsdown & Blunsdon 9. Environmental Features – South Marston 10. Environmental Features – Eastern 11. Environmental Features – Coate 12. Environmental Features – Wroughton 13. Environmental Features – Wootton Bassett 14. Environmental Features – Purton & The Lydiards 15. Environmental Features – River Ray 16. Utilities 17. Bus Gateways 18. Principal Urban Area Boundary & Strategic Development Proposals
Page 2 1. Introduction
1.1 The Wiltshire Structure Plan 2011, covering the period 1991 to 2011, was adopted in January 2001. This element of the Development Plan focuses on strategic policies covering the whole of Wiltshire County and Swindon Borough. Examples of its strategic nature include policies concerning the distribution of housing requirements throughout each District and Swindon Borough (DP4), as well as a specific policy identifying the direction of future growth at Swindon, the Southern Development Area (DP10).
1.2 However, since adoption of the Wiltshire Structure Plan 2011 in January 2001, Regional Planning Guidance for the South West has been published (September 2001) covering the period up to 2016. Key aspects of this guidance are the identification of housing requirements for Wiltshire County and the Borough, as well as a spatial approach to the location of future development, the larger settlements accommodating higher levels of development. Consequently, the Joint Strategic Planning Authorities (Wiltshire County Council and Swindon Borough Council) consider it prudent to undertake an alteration of the adopted Structure Plan; thereby ensuring an up-to-date plan led system is in place that reflects these issues. This will provide the strategic context for plans to be prepared in Wiltshire and Swindon at the local level to guide development to 2016.
1.3 A key part of Regional Planning Guidance is the identification of 11 Principal Urban Areas across the region, these settlements considered to be the most sustainable locations to accommodate the greatest concentration of future development, thereby maximising the efficient use of existing facilities, services and infrastructure provision. Swindon is the only Principal Urban Area in Wiltshire. Regional Planning Guidance also refers to Principal Urban Area studies being undertaken (RPG10, policy SS5) to ascertain the most sustainable direction(s) for future development.
1.4 The Swindon Principal Urban Area study is the result of extensive consultation, based around the principles of sustainability stemming from Government guidance and best practice. It takes into consideration a multitude of factors that could influence the location(s) of future development, for example, environmental and transport, concluding which location(s) can bring the greatest number of benefits to future development. The study takes a holistic view of Swindon encompassing its broader functional area, not just areas within the Borough’s administrative boundary. This is an essential consideration as those settlements adjoining Swindon do, and will, influence the way in Swindon functions both now, and in the future.
1.5 This report will explain why such a study is important, how the areas being assessed have been defined, the methodology used to assess each area, finally concluding with the preferred choice(s), as well as justification for such choice(s). Such a course of action will provide certainty for all parties interested in the future development of Wiltshire and Swindon.
Page 3 2. Regional Planning Guidance
2.1 Regional Planning Guidance for the South West 2016 (RPG10), published in September 2001, seeks to:
“Promote a sustainable development pattern and set out a sequential approach to the location of development” (RPG10, policy VIS1).
To achieve this shift in policy towards a sequential, spatial planning approach, a hierarchical settlement pattern to accommodate development is proposed for Wiltshire. This will concentrate growth at Principal Urban Areas (PUAs) whilst also recognising that other towns and key villages can have a role in contributing to the overall hierarchy of development distribution, albeit at a much more local level.
2.2 Regional Planning Guidance (RPG10, policies SS5 & SS11) identifies Swindon as a Principal Urban Area (PUA) the only Principal Urban Area in Wiltshire, where it is envisaged that the majority of additional growth for Wiltshire will occur:
“Swindon is a major growth centre for inward investment and locally generated expansion. It has successfully developed its role as a major economic and service centre well served by main transport routes and envisages that this role will continue to significantly expand.” (RPG10, paragraph 3.29)
2.3 Principal Urban Areas are considered to offer the greatest potential to accommodate growth in the most sustainable form, primarily due to their inherent critical mass. Being the largest settlements the infrastructure provision and range of services and facilities offered are considered to be the most extensive. They have the greatest concentration of public transport infrastructure, retail opportunities, as well as leisure, education and social services provision. Principal Urban Areas offer the greatest opportunity to reduce the need to travel, yet still provide an appropriate range of housing and employment provision necessary to maintain a buoyant economy.
2.4 To ensure that a sequential development strategy focused on a Principal Urban Area is sustainable, there are two important components that should be addressed:
a) Firstly, an “inward looking” assessment to identify the contribution that can be made by accommodating additional development on previously developed land (brownfield sites), in preference to developing greenfield sites, is essential. The promotion of urban renaissance through the reuse of underused land, brownfield sites, vacant land and increasing residential densities is a key component of national planning guidance. It is considered critical in environmental, economic and social terms to regenerate urban areas whilst also minimising the quantity of greenfield land required for development. Urban capacity/potential studies are critical to identify this contribution. For the Swindon Principal Urban Area study the base document is the Urban Capacity undertaken for the Swindon Borough Local Plan 2011 Second Deposit Draft (April 2002). Page 4 The New Swindon Company, an urban regeneration company for Swindon, has been established to secure urban renaissance for Swindon. Ensuring that its aims and objectives are not adversely affected is a key part of the Swindon Principal Urban Area study. It is also essential that the amenities of existing and future residents, along with the requirements of businesses are not compromised. For example, access to open space; education and transport infrastructure should not suffer in order to protect greenfield sites from development. It is a question of striking a balance to protect finite resources, retain everybody’s quality of lifestyle, and yet accommodate growth. This accords with policies VIS1 “Expressing the Vision” and VIS2 “Principles for Future Development”, RPG10.
b) Secondly, for those growth areas where additional development cannot be accommodated within the urban area, there is a requirement to identify additional greenfield land necessary to accommodate development for long-term growth through an urban extension. This position is reflected in Regional Planning Guidance (policy SS5) which acknowledges that there will be instances where additional greenfield sites are required at Principal Urban Areas to meet development needs, these being in the form of “planned urban extensions”. Urban extensions should be in sustainable locations with good access to the urban area by public transport, cycle and foot.
2.5 Policies SS5 “Principal Urban Areas” and SS11 “Swindon” of Regional Planning Guidance, supported by Planning Policy Guidance Note PPG11 “Regional Planning” (Paragraphs 3.09 “Sub Regional solutions” and 5.08 “Sustainable Development and Urban Extensions”) identify the necessity to undertake an Urban Extension Study for the Swindon Principal Urban Area. This study should assess the potential of the urban area and its hinterland to accommodate future requirements for housing, employment and other uses. Primarily, the study is required to inform the review of the Wiltshire and Swindon Structure Plan to 2016. However, it should also have regard to a longer-term vision for the Principal Urban Area, looking beyond the Plan period, and, as stated in Regional Planning Guidance it should “set out a broad development strategy for the period to 2016 and beyond” (RPG10 paragraph 1.2) and “Structure planning authorities should plan for the long term growth of the PUAs….” (RPG10 policy SS5). The results of the Principal Urban Area study will inform the extent, distribution and direction(s) of any strategic growth options that may be required in the Wiltshire and Swindon Structure Plan Review to 2016, and beyond.
2.6 The level of housing provision that Regional Planning Guidance expects the Wiltshire And Swindon Structure Plan 2016 to accommodate is an average of 3,000 net additional dwellings per annum (RPG10, policy HO1). Regional Planning Guidance is clear that this figure should not be challenged through the Structure Plan process, but that changes to the levels of provision should only occur through a review of Regional Planning Guidance itself (RPG10, policy HO1 refers). This annual rate of provision is therefore expected to apply up to 2006 and continue for the plan period until any different rate is adopted through a review of Regional Planning Guidance. Page 5 This annual completion rate equates to a total of 60,000 net additional dwellings over the total plan period (1996 to 2016). In actual terms this is a reduction across the county as a whole when compared to the total of 67,000 dwellings (65,000 net equivalent) in the adopted Wiltshire Structure Plan (1991 to 2011).
2.7 As stated in paragraph 2.4a) of this report, maximising development on previously developed land is a key element of sustainability. Urban regeneration, reusing underused land and buildings and focusing development within urban areas to minimise greenfield requirements are cornerstones in moving towards a more sustainable environment. Therefore, when determining the number of net additional houses that have to be found on greenfield sites, the contribution that urban capacity and urban potential can make will have to discounted from the overall total. Furthermore, estimates for windfall sites will also be taken into consideration. In summary, technical work (Chapter 5 of this report refers) has indicated that Swindon, being a Principal Urban Area, should accommodate approximately 3,400 net additional dwellings on greenfield sites.
2.8 Regional Planning Guidance also identifies Principal Urban Areas as the most sustainable locations best able to accommodate “Major Strategic Sites” to meet the needs of key sectors, including industry, tourism and higher education. Such major strategic sites are identified as ranging from 12 hectares to 50 hectares, although ideally they should be at least 50 hectares and above at Principal Urban Areas (policy EC4 refers). Policy EC4 states that these sites should be identified and justified through the Structure Plan (RPG10, paragraph 5.18).
2.9 Whilst the Swindon Principal Urban Area clearly has such potential, there is currently an imbalance between the number of employed residents and the number of jobs in the town, which gives rise to a substantial level of net inward commuting. This implies that the Swindon Principal Urban Area should be given a greater proportion of the Structure Plan dwelling provision in an attempt to redress this imbalance. It should also be noted that the South West Regional Development Agency have not indicated that Swindon should accommodate an additional major strategic site above and beyond any sites currently identified through the statutory planning system.
Page 6 3. Planning for the Future
Context 3.1 The last 30 years has seen many technological advancements including, computing, the Internet, telecommunications and entertainment. Furthermore, major social changes have also occurred, such as an increase in the female participation in the workforce, greater home ownership and educational opportunities. Future changes could be as great, if not greater. Therefore, the Swindon Principal Urban Area study should be able to embrace change as and when it happens. The study should encapsulate the collective aspirations and expectations of the Principal Urban Area’s community in its widest sense.
3.2 An integral part of the Swindon Principal Urban Area is the central area. Due to its location, retail dominance and key office employment sector, it is the “hub” of the Principal Urban Area, impacting immensely on the future prospects of Swindon and its surrounding settlements. It is the “heart” of the town, and as such, if the heart fails, so will the rest of the body. It will be essential to satisfy future aspirations and expectations, for example high quality buildings and establishing a positive image/profile, through the mechanisms created by the New Swindon Company, an urban regeneration company.
3.3 Historically, the core driver behind the Swindon’s success has been the economy combined with a positive attitude and willingness to anticipate and embrace economic change. Economic growth has transformed Swindon from a town serving a local market into a substantial sized town of regional importance, growing in stature in the global marketplace. It is anticipated that this position will remain unchanged.
3.4 The ability to anticipate and embrace economic change, combined with Swindon’s unique locational advantages, has enabled the town to prosper. The Principal Urban Area study should continue this positive, proactive trend, incorporating a sustainable, balanced pattern of development that will place Swindon in a position to realise social, economic and environmental benefits, whatever the future may bring.
3.5 If Swindon is to maintain its market competitiveness and regional prominence, the Joint Strategic Planning Authorities cannot rely on past achievements to ensure continued future success. Swindon Borough Council’s foresight has enabled a dynamic economy to develop to the extent that past success is now driving future demand for jobs and housing. To maintain such success in a dynamic, global marketplace, it will be necessary for Swindon to realise the area’s economic potential, assessing the implications for residents, employees and employers of such a strategy.
3.6 Swindon has a history of forward thinking and embracing change. Ever since Isambard Kingdom Brunel selected the town as a key location in the development of the Great Western Railway, Swindon has profited from a positive approach towards economic growth. Throughout the last century
Page 7 local dignitaries and politicians identified the economy as the driving force behind Swindon’s growth. The ability to anticipate and incorporate economic change, gradually shifting away from railway engineering towards the automotive industry, and more recently information technology and the knowledge economy, combined with Swindon’s unique locational advantages, has enabled the town to prosper.
3.7 During the 1970’s and 1980’s this ability to prosper was further enhanced through the production of the “Silver”, “Gold” and “New Vision for Thamesdown” reports. Although these documents focused specifically on physical expansion issues, they sought to realise the town’s potential, based around its economic base. They built upon the town’s inherent locational advantages and planned the future growth of the Borough, as well as the implications that growth would have for associated development such as housing and education.
Economic Perspective 3.8 The result of this foresight is reflected in local economic indicators confirming that Swindon Borough has experienced high levels of economic growth (reflected through gross domestic product per head), increased productivity levels, investment and new business formation, a very high economic activity rate (74.4% compared to 66.9% nationally – 2001 Census) and a labour force increasing at a faster rate than the national level. In essence, it is an economy that is the envy of many less fortunate areas.
3.9 This economic success has had a positive effect in reducing unemployment within the Borough to levels well below the national rate, (2.2% at July 2003). This has been consistently low within Swindon’s economy. However, there remain a number of wards within the Borough that retain higher levels of unemployment rates than the national level, for example Central, Gorse Hill, Parks, Penhill, Pinehurst, Walcot and Whitworth. Unemployment Rate 2.5
2
1.5
1 Percentage 0.5
0
1 1 1 2 2 2 2 3 3 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 2 2 2 2 2 2 2 2 2 e t c e t c e n p e ch n p e ch n e r e r u D u D u J S a J S a J M M
3.10 Gross Domestic Product (GDP) per capita is a measure of the total wealth generated within a specified area (in this case Swindon Borough) divided by the number of people residing within the area. Higher values reflect increased profit levels and a buoyant economy. Businesses with high Page 8 financial turnovers are considered important for the local economy, raising its regional, national and global profile, whilst also maintaining economic momentum. The greater the level of wealth generation, the higher the probability that this wealth filters down into the local economy. Predicted Gross Domestic Product per head forecasts between 2005-2010 demonstrate the increased profitability and success of Swindon compared to the national average (see below).
GDP per Head 2005-2010 4
3
2 % Growth % 1
0 Swindon National Av (Source: Local Economic Forecasting Model, LEFM)
3.11 Economic growth has transformed Swindon from a town serving a local market into a substantial sized town of regional importance, growing in stature in the global market. This is reflected in a thriving economy for employers, and hence the provision of jobs. A plentiful supply of jobs provides the opportunity to gain employment and a salary, thereby raising people’s standard of living. Employees then have increased spending power through higher disposable income levels, increasing their ability to purchase, i.e. housing, as well as luxury items. Wealth generation helps individuals to achieve their quality of life aspirations. For this reason a successful economy will underpin the long-term future of the Swindon Principal Urban Area.
3.12 If Swindon is to maintain its successful economic position in a dynamic global marketplace it will have to retain a competitive advantage over competing towns. Swindon will have to offer a viable economic location for the business community. This dynamism will create new demands, expectations and pressures that will have to be satisfied in order to retain existing, and attract new employers. Such pressures include overcoming recruitment problems, skills training to match demand, and Swindon’s perceived poor image in terms of the quality of the town centre.
3.13 On the 7 th July 2000 the Borough Council held a “Business Breakfast” for major local employers to identify and discuss issues they anticipate encountering through their business activities in the Borough over the long- term future. These major employers confirmed that Swindon must continue to look forward and not become complacent. Although they considered that many of Swindon’s locational advantages still remained applicable, it was emphasised that for Swindon to remain competitive, it was essential to encourage both the expansion of existing businesses and the attraction of Page 9 new ones. Swindon should not rest on its laurels. Their comments are summarised below under the following headings:
(i) Recruitment : Many businesses cannot, or do not, recruit in the Swindon area. For some, linguistic skills are becoming of greater importance with the proportion of non-British nationals employed rising from 5% to 25% of one employers workforce. This in itself raises issues over the limited range of cultural, leisure and recreation facilities in Swindon that are not currently geared to accommodate the needs of such employees, for example, the style of restaurants, cafes, bars etc.
(ii) Skills Training : Attracting the University of Bath to Swindon and improving further education facilities (New College relocating to a refurbished campus at North Star), were considered equally essential in ensuring the future success of Swindon. The ability to retain students, offer courses in problematic recruitment areas, i.e. engineering, business studies, sciences, Information Technology and languages, would provide the emerging labour force with a broad skill base which could be molded by business. In co-operation with the University of Bath in Swindon, these new facilities and a business input should help to redress any skills imbalance.
(iii) Swindon’s Image : Swindon’s image needs to be raised, internally, nationally and internationally. However, image is not just about public relations, but has to be backed by substance. Raising the town’s image should cover all aspects of the town, not just the town centre, seeking to achieve a high quality environment. This will reverse the current image of Swindon, which is perceived by some as “shabby”.
(iv) Swindon Central Area : The town centre does not meet the aspirations and demands of existing or future users. Concern was expressed over issues of car parking, park and ride implementation and traffic congestion. It was considered that schemes currently planned to alleviate problems should be implemented now, not later. Generally, an environment needs to be created which attracts people into Swindon, minimising the problems of access into and out of the town. Issues should be viewed on a holistic basis. The implementation of an integrated transport policy, enabling greater accessibility, would encourage people to stay longer in the town centre, not leaving immediately after work, although this would rely upon fast, efficient and reliable transport services. Focusing new development in the town centre, including a University presence, should be a high priority to generate a focal point.
(v) Quality of Life : Overall, it was considered that people tended to commute to, rather than live in Swindon, mainly because of a perceived lower quality of lifestyle not because of the quality of housing. This is especially true for
Page 10 the under 30’s. In particular the 30-50 age group preferred the village style environment rather than that of a large urban settlement. The social fabric of an area and structure of family life were also considered extremely important. If Swindon cannot offer an attractive environment, people will not relocate. New employees ask themselves: “Why should I, and what would I gain, from moving to Swindon?” Issues such as high quality schools and a suitable range and quality of local facilities on offer to the whole family will be crucial.
(vi) Alternative Working Practices : It was considered that there would be a gradual shift away from traditional working practices towards greater job sharing and telecommuting, hence reducing the floor space requirements of businesses. Although there would still be a need to meet at the office for team building and exchanging information, this may only be one day a week. Such a shift in working practices could reduce demand for the traditional style of office buildings moving towards smaller satellite office premises, possibly around the town’s periphery, or even virtual offices for those people permanently on the road. Such a shift in working hours would impact on traffic patterns and volumes, moving away from the current a.m./p.m. peak hours.
3.14 Technological advances have, and will, continue to enable employers to be less constrained by physical location. The agglomeration of businesses into multinationals has placed their locational search for premises and workforce on a global, rather than regional or national scale. Swindon is not just competing with other locations in the South West, or even the U.K. Instead, France, Eastern Europe and the Far East are now becoming alternative locations. To remain competitive Swindon should acknowledge, and meet, the full range of aspirations that employers and employees now demand, including, image, facilities and services. If Swindon’s past success is to continue it will have to ensure it remains a viable economic location, able to compete regionally, nationally and globally.
3.15 However, there are some key external factors that can, and will influence Swindon’s economy, which are beyond the control of either the Borough Council or the Joint Strategic Planning Authorities. The Principal Urban Area needs to be able to anticipate and respond to them in order to remain successful. These factors include:
Ø Swindon’s track record for attracting businesses has proved so successful it has created a critical mass of employers within the town, generating its own degree of self-momentum. With large multi-national operations locating their headquarters and research and development activities in the town, this “confidence” in the local market attracts further new employers. Such a concentration of market sectors in one location places specific demands upon the local economy, i.e. specialised skills. Historically, Swindon has met these demands. The supply of labour, skills, land, good infrastructure and a forward looking Council have created this critical mass.
Page 11 Ø Economies throughout the world are subject to fluctuation, both positive and negative. Confidence levels of businesses or political actions are just two examples of the complex network of factors that influence economies. Financial institutions’ reactions to lower than predicted economic growth levels could be to reduce interest rates to stimulate economic activity and growth. Similarly, political instability may also induce higher levels of market uncertainty, again requiring intervention. Generally, local economic fluctuations are often a reaction to national and global factors .
“A worse outcome for the United States (U.S.) would of course only exacerbate these difficulties - making it very clear that however wise fiscal and monetary policies are, they cannot protect economies fully from global cycles.” (Economic Bulletin, CBI, February 2001)
Two examples of external cyclical fluctuations are:
(i) Increases in U.S. interest rates & low economic growth could reduce market confidence, resulting in a downward trend on the Dow Jones Index (U.S. Stock Exchange). Such a decrease in confidence and financial stability could reduce the ability of U.S. companies to invest, either in plant/workforce expansion. With Swindon’s foreign investment in manufacturing increasing its market importance, any reduction in investment would adversely impact on the growth potential.
(ii) Technological advances within specific market sectors will influence future growth levels. As Swindon embraces the high-technology sector it will become more susceptible to market fluctuations due to saturation levels and consumer preferences. Mobile phones are an example of the market becoming saturated with “dips” in market growth prior to the launch of later generation technology (WAP phones), an example being the job losses announced at Motorola.
3.16 Based on the potential of existing companies to grow and continued inward investment, a further 10,000 jobs could be created over the period up to 2011 with an additional 25,000 jobs over and above this for the period to 2030, totalling 35,000 new jobs. However, these figures should be treated with considerable caution as they are based on a continuation of past trends and assume constant growth in employment of 1% per annum. If the economy takes a downward turn, or a major employer is lost to the town, this growth potential could be reduced.
3.17 Growth potential is based on past investment levels in Swindon and the likelihood of key sectors in the local economy expanding in line with national trends. This is not guaranteed over such a long time period as today’s growth sectors may be overtaken by new industries. However, based on past trends it is reasonable to assume that economic growth in Swindon has the potential to continue at high levels in the foreseeable future.
3.18 Economic growth is largely driven through investment decisions made by companies. These decisions are determined by a mix of factors including, business costs, the availability of sites, access to markets, communications links, labour supply, availability of housing, transport infrastructure, local Page 12 amenities and the overall quality of the local environment. For those companies in the "knowledge based economy", which is becoming increasingly important within Swindon as a market sector, the availability of a high level of skills within the local labour force is of increasing importance. Swindon is well placed to benefit from future investment decisions by companies, but the town's future economic success will be contingent on continuing to offer the right mix of factors to attract new inward investment and retain investment by existing companies.
3.19 Past policies implemented by Swindon Borough Council have been so successful that the local economy has moved beyond that needed to provide jobs for local people, and now has a regional dominance. Even so, to retain local businesses employers are already recruiting from beyond Swindon and its immediate surroundings. In response to a restrictive labour market some firms could move elsewhere and others may not expand locally. Currently (2003), it is estimated that net in commuting to Swindon is about 16,000 people per day. If labour shortages are an issue now they are likely to be significantly greater in thirty years time. It is doubtful whether increased double jobbing or increasing economic activity will be able to significantly close this increasing gap.
3.20 Currently (2003), 12.6% of all jobs in the Borough are in medium and high technology industries, compared to just 5.6% nationally. Swindon’s labour force is, and will, have to continue to be highly skilled in new technologies if these businesses are to be retained in the town. The important point to note is a gradual shift towards employment more heavily reliant upon skills and qualifications. In essence, the labour supply will have to become more highly skilled to meet new demands of a growing industrial sector. 3.21 However although the qualifications of Swindon’s workforce have increased, they still remain below both the regional and national levels. With an emphasis to meet the demands of increased growth in knowledge based industries, if local skills cannot meet these demands there will be increased in-commuting levels to meet this demand.
3.22 Throughout history technological advances have, and will, continue to affect everybody’s lifestyle. Solutions are constantly being sought to achieve scientific breakthroughs, resolve technical problems, maximise the financial potential of economies and raise living standards. Such changes will have major implications for individuals, society and the principal Urban Area over future years. 3.23 The rise in the popularity of, and accessibility to the World Wide Web, combined with the continued price reduction of computers, has brought people globally closer together. No longer are people separated by distance. People can communicate with anybody, anywhere, in “real time”. This instant access means that people, nations and economies are no longer isolated; instead we are inevitably moving towards a global community and a global economy. Swindon cannot divorce itself from such change. 3.24 The ability to communicate globally has initiated a rapid expansion in
Page 13 business activity through the Internet and E-commerce. Businesses have grasped the opportunity to source materials at reduced prices, whilst also broadening their product market. Sales of consumer goods over the Internet are slowly increasing as concerns over security are gradually overcome, with lower prices than high street retail outlets through reduced overheads. Direct selling to consumers could have adverse ramifications for retail outlets if they cannot compete. 3.25 Working practices are also influenced by technological advances. Internet and e-mail access mean that employees may not have to frequent the office as often. On line access is enabling working from home to become a reality. A dedicated telephone line, e-mail address and Internet access all mean that office-based employees can undertake their daily functions without leaving home. Rather than visit the office on a daily basis, this may become weekly, or even monthly. Obviously this situation will not be applicable for manual workers, but with a move towards a greater knowledge based economy the implications of such a shift could be dramatic. In Swindon’s context, for employers such as Intel, such a shift may impact dramatically on working practices.
3.26 Throughout the 1990’s Swindon has had a strong, thriving local economy, reflected by the diversity of the various industries that have relocated to Swindon. The predominant sectors for relocating companies have been electronics, information technology, business services, and distribution. Swindon has proved to be attractive environment for companies to relocate, the town having excellent communication links, close proximity to London, and a good selection of high quality business parks. For similar reasons Swindon has also attracted a substantial number of start up companies.
Summary 3.27 Regional Planning Guidance identified Swindon as a Principal Urban Area, a focus for future growth, both economically and physically. Swindon’s role is moving away from a local service centre towards that having a regional status. It should also be remembered that with technological advances, free movement of labour and worldwide investment strategies, the economy has now become a global economy. Swindon, and its surroundings, now has to compete on this global scale. In essence, the Swindon Principal Urban Area has to market itself, promote the benefits to attract employers into the area, taking a positive and proactive stance for future development.
3.28 Consequently, the Joint Strategic Planning Authorities consider it prudent to embrace the notion of change, anticipate and adapt to ensure that the Swindon is in a position to benefit from the future. That is why it is critical that the Principal Urban Area study looks both up to and beyond 2016. Only by looking to the long term can all the benefits that development can deliver be realised, as well as making a positive statement “Open for Business”, in accordance with Regional Planning Guidance.
Page 14 4. Principal Urban Area Study
Strategy 4.1 Regional Planning Guidance seeks to achieve a more sustainable pattern of development than in the past by adopting a sequential approach to the location of future development (RPG10, policy VIS2). In the northern sub- region this should involve strengthening the roles of the Principal Urban Areas, including making adequate provision to meet future development requirements, fostering urban renaissance, curbing unsustainable outward expansion and aiming for greater self-containment in towns within commuting distances of Principal Urban Areas (RPG10, policy SS3).
4.2 Regional Planning Guidance is also very specific in its definition of what a Principal Urban Area study should comprise. Importantly, it states that it should:
Ø Define the current and currently planned extent of the Principal Urban Area (Policy SS5); Ø Be as inclusive as possible, involving planning authorities of all the Districts for the area of each Principal Urban Area and other key agencies, such as the Regional Assembly and Regional Development Agency and (Policy SS5); Ø Include urban housing capacity studies for the whole of the Principal Urban Area, using existing and additional research (Policy SS5); Ø Sequentially assess alterative locations for accommodating additional development related to the Principal Urban Area (RPG10, paragraph 3.10); Ø Include constraints mapping for Principal Urban Area extensions, using existing and additional research, including an indication of the weighting attached to those constraints (Policy SS5); Ø Undertake urban extension studies that include transportation and infrastructure (cost) studies (Policy SS5); Ø Address the need for all forms of development related to the Principal Urban Area, including housing and strategic employment provision (Policies SS5, EC4 and TRAN4); Ø Structure Planning authorities should plan for the long term growth of the PUAs (Policy SS5); and, Ø Should set out conclusions regarding the most sustainable development pattern to meet the needs of the Principal Urban Area (Policy SS5).
4.3 As the Swindon Principal Urban Area has potential implications for adjoining Districts, for example North Wiltshire, Regional Planning Guidance advises that co-ordination should be achieved through the Structure Planning process (RPG10, paragraph 3.12). Accordingly, a Sub-Regional Officers Group was established at the beginning of the Principal Urban Area study to ensure adjoining Local Authorities were informed of the process and able to influence its outcome. The Local Authorities and regional bodies represented at this group included:
Page 15 Ø Berkshire Joint Strategic Planning Unit Ø Cotswold District Council Ø Gloucestershire County Council Ø Government Office for the South West Ø Kennet District Council Ø North Wiltshire District Council Ø Oxfordshire County Council Ø South West Regional Assembly Ø South West Regional Development Agency Ø Swindon Borough Council Ø Vale of the White Horse District Council Ø West Berkshire District Council Ø Wiltshire County Council
4.4 In addition, good practice also needs to be considered and incorporated into the study. Whilst there is no single source of guidance yet available, other similar studies have provided a valuable source of information. In particular, the Swindon Development Appraisal Study (DAS, 1999) undertaken to inform the preparation of the adopted Wiltshire Structure Plan 2011, is still considered relevant and will form an important source of reference for this study.
4.5 The Swindon Principal Urban Area Study is comprised of two components:
a) An Urban Capacity/Potential Study focusing on maximising redevelopment opportunities within Swindon’s urban area, i.e. regeneration of the town centre, re-use of brownfield sites and increasing residential densities. Key elements will include: Ø Utilise urban capacity studies Ø Project contribution from previously developed land 2011-2016 Ø Identify urban potential contribution and implications
b) An Urban Extension Study examining the options for further development on Swindon’s urban periphery to determine the most sustainable direction(s) for future growth. The definition of the study area relates specifically to the Urban Extensions study. Key elements will include: Ø Based around sustainability principles Ø Constraints mapping Ø Transport assessment Ø Environmental appraisal Ø Landscape assessment Ø Comparative assessment Ø Sub-regional officer group
Page 16 5. Urban Capacity / Urban Potential
Definitions 5.1 Urban Capacity is a site-based assessment that builds on the detailed work undertaken as part of the Swindon Borough Local Plan Second Deposit Draft 2011. This assessment follows best practice guidance, as stated in Planning Policy Guidance Note3 / “Tapping the Potential”. It has subsequently been used to inform the Wiltshire and Swindon Structure Plan to 2016.
5.2 Urban Potential is a theoretical desk-top exercise that seeks to quantify the additional number of residential units that could be accommodated through increasing residential densities, focused around those locations which are both highly accessible by transport other than the private car and have existing services/facilities. This theoretical exercise gives an indication of the overall long-term potential of the urban area, albeit with differing implications for the urban environment and quality of life for existing residents in Swindon. These are therefore two separate but related projects that have different methodologies and time-scales.
URBAN CAPACITY TO 2016 5.3 Regional Planning Guidance requires that housing capacity studies are undertaken for the whole of the Principal Urban Area, using existing and additional research. Structure plans should support forward planning and investment in infrastructure as well as a more sustainable distribution of development by, inter alia, providing an indicative target for the number of dwellings and the amount of other developments in Principal Urban Areas, and producing compact urban developments likely to be well served by public transport. Policy SS11 of Regional Planning Guidance relates specifically to Swindon, and seeks to achieve more efficient use of land within the urban area through the development of brownfield land, development at higher densities, and the selective redevelopment of parts of the urban area. Amongst other objectives are improvements in the urban environment and investment in public transport.
5.4 Regional Planning Guidance (paragraphs 3.7-3.9) views new development, as a positive force for change, and development within the urban area should:
Ø Facilitate regeneration and restructuring, particularly of pockets of disadvantage or areas of imbalance of housing and jobs, creating a high quality environment;
Ø Take advantage of existing infrastructure, including public transport where there is spare capacity or where capacity can be created;
Ø Provide for mixed use, higher density development;
Ø Offer increased self-containment, reducing the need to travel;
Ø Take advantage of the reappraisal of existing land use allocations by providing alternative uses that would help create mixed and balanced communities. Centres with a buoyant economy and high demand for
Page 17 housing should reconsider longstanding, but undeveloped, employment site allocations as opportunities to provide additional housing; and,
Ø Provide opportunities to achieve urban renaissance, to maintain or develop a critical mass of residents to support services such as new or enhanced public transport provision.
5.5 The way forward for progressing the urban capacity exercise for the Wiltshire and Swindon Structure Plan 2016 was broadly similar to the approach followed for the adopted Wiltshire Structure Plan 2011, but with fine-tuning. The approach used was tested at the 2nd Examination in Public and was considered to be rigorous. Work undertaken on the Urban Capacity Study (Swindon Borough Local Plan 2011) in combination with the evidence of subsequent planning proposals and completions further support this approach.
5.6 The methodology for the adopted Wiltshire Structure Plan 2011 involved a desktop exercise to identify potential large (10+ dwellings) brownfield sites, estimating their potential capacities, and grading them according to their likelihood of development. A further estimate was then made of smaller brownfield sites, based on trends since 1991. The total capacity of brownfield sites within the urban area during the plan period was then used to define the amount of greenfield land which was required, taking the greenfield requirement as being the residual of the overall Structure Plan requirement, once urban capacity total was defined.
5.7 The same principles apply for the Wiltshire and Swindon Structure Plan 2016. However the methodology was further refined by identifying areas of the town that are more sustainable in terms of existing facilities and accessibility, or where the potential exists to increase the provision of facilities or public transport. In practice this involved looking at all urban areas, including Highworth and Wroughton. However, rural sites, being more dispersed, have limited potential capacity due to reduced services and facilities, and being less accessible by public transport. Rural sites are therefore assumed to be generally less sustainable than those in the urban area. However, this does not mean that all urban sites are sustainable, but it is sensible to concentrate attention on the urban areas in order to identify those sites that are. The process of identifying sites was simplified by building on the work done for the Urban Capacity Study carried out for the Swindon Borough Local Plan 2011. The Urban Capacity Study was a very thorough survey-based project that was subjected to an independent audit, on which the House Builder’s Federation have commented.
5.8 There are three phases to the Urban Capacity study:
Ø The first, from 1996 to 2002, has already taken place, with the number of completions on recycled sites already known. Ø The second phase, from 2002 to 2011 (covered by the Swindon Borough Local Plan 2001) identifies the brownfield capacity of the urban areas modified in the light of additional knowledge, such as the submission of planning applications on urban capacity sites. Ø Lastly, the third period extends the adopted Wiltshire Structure Plan Page 18 2011 period forward from 2011 to 2016, assessing sites identified in the Urban Capacity Study beyond 2011. An assessment has also been made of the potential housing capacity of the central area as a result of regeneration, and the views of those involved in work on the New Swindon Company were sought, and given, on this.
5.9 The first stage of the Structure Plan methodology on urban capacity was therefore to revisit the Urban Capacity Study. All of the sites discounted because their inclusion in the Swindon Borough Local Plan was premature were re-examined to assess their possible availability before 2016. These sites formed the bulk of the Structure Plan assessment.
5.10 As with the Swindon Borough Local Plan Urban Capacity Study, the ‘search area’ was considered to be the main urban areas, Swindon urban area (the Principal Urban Area), Highworth, and Wroughton. The capacity of the remainder of the Borough is considered too small, and locations unsustainable, to merit inclusion. However, there have already been completions in this area, therefore for completeness a reducing trend figure (for sustainability) should be added. In addition, a trend figure for completions on small (<10 dwellings) sites has been added (see table below).
5.11 At April 2002 the situation, based on the housing land availability information, the draft Revised Swindon Local Plan and Local Plan Urban Capacity Study, and the Principal Urban Area Urban Capacity Study, was:
Recycled Greenfield Brownfield 833 Swindon Conversions 228 Recycled 1061 Highworth & Brownfield 91 Conversions 13 Wroughton Recycled 104 1996-2002 Brownfield 56 Rural Conversions 22 Recycled 78 Total Recycled 1996 -2002 1243 Total G reenfield 1996 -2002 3772 TOTAL 1996 -2002 5015 1st Deposit Draft Local Plan 2049 Brownfield Allocations Adopted Local Plan allocations 400 59 LOTS + Office to residential 132 Small Brownfield Trend 386 Small Greenfield Trend 396 Northern Development Area 5717 2002-2011 Southern Development Area 1950 Other PPs Recycled 1196 Draft Local Plan Greenfield 49 Other PPs Greenfield 281 ATG Recycled 165 ATG Greenfield 60 Total Recycled 2002 -2011 4328 Total Greenfield 2002 -2011 8512
Page 19 TOTAL 2002 -2011 12840 2011-2016 Large Recycled 1767 Small Recycled Trend 300 Total Recycled 2011 -2016 2067 Southern Development Area 2250 Small Greenfield Trend 220 Total Greenfield 2011 -2016 2470 TOTAL 2011 -2016 4537 1996 -2016 TOTAL 7638 14754 22392
5.12 As illustrated above, over 22,000 dwellings are accounted for, leaving the residue to be accommodated on additional greenfield site(s), the direction(s) of any such future growth being determined by the Swindon Urban Extensions Study. The amount of the growth required is determined by the distribution of housing amongst Swindon and the four Wiltshire Districts. The Pre-Deposit Consultation Issues Paper suggested that 24,500 dwellings would be required in Swindon between 1996 and 2016. The Deposit Draft Structure Plan increases this figure to 26,000, indicating a need to identify 3,400 additional dwellings on one or more greenfield sites, suggesting a need for a strategic site.
5.13 The Principal Urban Area Urban Capacity Study gives the following levels of anticipated completions:
1996-2002 1243 207 p.a. 2002-2011 4328 481 p.a. 2011-2016 2067 413 p.a. 1996-2016 7638 382 p.a.
5.14 Corresponding figures for greenfield completions are based on the Northern Development Area, the Southern Development Area, other permissions, Authority to Grants, Local Plan sites, and trend completions on small sites. In total, this gives the following figures for identified provision, and the amounts required to meet the Pre-Deposit and Deposit housing provisions.
1996-2002 3772 2002-2011 8512 2011-2016 2470 2011-2016 5288 6788 1996-2016 14695 (24500) (26000)
5.15 The identified total provision and further greenfield developments arising from allocations needed to meet the Structure Plan provision (Pre-Deposit and Deposit) give the following figures:
1996-2002 5015 836 p.a. 2002-2011 12840 1427 p.a. 2011-2016 4537 907 p.a. } Plus any further 1996-2016 22392 1120p.a. }greenfield sites
2011-2016 6645 1329 p.a. 1996-2016 24500 1225 p.a.
2011-2016 8145 1629 p.a. 1996-2016 26000 1300 p.a. Page 20 URBAN POTENTIAL 5.16 The methodology for identifying the long-term housing capacity of the urban area, urban potential, was different to that used in the urban capacity. The identification of specific sites and increased housing capacity is a much more theoretical exercise. The approach followed assessed the effects of increasing current residential densities in the urban area in order to quantify the number of additional residential units that could be accommodated in Swindon. Furthermore, it is also likely that at some time in the future at least one of the large post-war housing estates may need regenerating or redeveloping. However, the methodology adopted did not assume any large- scale redevelopments as this was regarded as too speculative.
5.17 The methodology was employed consistently across Swindon, with the basic building blocks for the study being distinct geographically defined ‘planning neighbourhoods’, which reflect, as far as possible, physically homogenous areas within the town. Existing residential densities were calculated for each neighbourhood. 5.18 Within each planning neighbourhood areas of opportunity for increasing densities were identified, i.e. locations which already have a trip generating use, such as local shops, as well as being accessible by alternatives modes to the private car. This philosophy is reinforced by Government Guidance which, through Planning Policy Guidance Notes, seeks to ensure that higher density developments, or facilities that may be defined as ‘trip generating’, should be sited in accessible locations, thereby minimising private car movements. 5.19 Research indicates that people are prepared to walk between 200m and 600m to use public transport and local facilities (Regional Planning Guidance, Annex A). With this in mind, residential areas within 400m of a public transport route, or local facilities were identified (a target distance). It is within these areas that opportunities for redevelopment at higher densities were considered to offer the most sustainable option. Redevelopment should, however, not be solely restricted to residential uses. Significant opportunities for high density mixed uses may also be considered, where they are practicable and accord with the quality of life principles (Appendix 1). 5.20 By applying density standards to the preferred development options for each neighbourhood, the urban potential of each planning neighbourhood was derived. 5.21 Having completed this research the results are published now as part of this Principal Urban Area Study report. The study will be used to inform the emerging Sub Regional Study, which constitutes the first stage in the strategic planning process, culminating in the emergence of a Regional Spatial Strategy. It will also provide a context for Supplementary Planning Guidance and Development Briefs (or their replacements as Local Development Documents as part of the Local Development Framework), and as an aid to defining both regeneration objectives and the Community Plan.
Page 21 Defining Planning Neighbourhoods
5.22 The purpose of the urban potential study is to maximise the opportunities within the main urban area to concentrate additional housing development, whilst simultaneously ensuring that the quality of life within the urban environment meets the aspirations and needs of future residents. In short, accommodating housing growth to raise urban densities will have to be balanced with all the myriad of other competing land uses. It should be a holistic approach. Although this exercise could be undertaken for all the urban areas within Swindon Borough (or any District/County), as the main emphasis is to maximise the quantity of additional housing stock within urban areas the focus has been on the largest settlement first, i.e. Swindon Principal Urban Area.
5.23 Swindon’s existing urban form comprises a complex variety and spatial distribution of land uses. Each distinct land use has the potential to contribute, in varying degrees, towards increased densities. For example, under-used office floorspace in the town centre could be converted to flats, or conversely, existing residential areas experiencing maintenance problems could be redeveloped at increased densities. Each would offer differing net gains in housing stock.
5.24 Therefore, in recognition of this disparity of land uses and their spatial location, rather than attempt to assess Swindon as a whole, it was considered beneficial to break the urban area down into more manageable units. For this particular exercise they are defined as “Planning Neighbourhoods”.
5.25 The purpose of “Planning Neighbourhoods” is not to replace, or re-invent community areas, but too:
a) Form the basis for data collection underpinning an assessment of urban potential in Swindon. b) Become the basic geographical units for a planning audit of the town.
5.26 As such, their formulation was based around planning principles and physical boundaries, rather than specific community perceptions. These planning and physical principles are:
Ø Neighbourhoods should ideally be within present Ward boundaries, thereby facilitating data collection (population, housing numbers etc.); Ø They should be relatively homogenous in terms of housing types, thus allowing density comparisons between existing and potential future levels. Additionally, a similar methodology would identify employment areas as being distinct in their own right; Ø They should avoid cutting across major topographical boundaries, i.e. dual carriageways, railways and rivers, where possible. These strong barriers are used as boundaries; Ø It is recognised that some boundaries split residential areas i.e. at the rear of properties and the opposite sides of streets. Although these can appear somewhat arbitrary, there is often no definitive boundary that can be drawn; in fact many different solutions may be possible. Page 22 However, for the purposes of this exercise the overall result is not affected, albeit sites are located in an adjoining planning neighbourhood; Ø Generally, they should exclude major centres of employment where they are not an integral part of the area, but include the complete range of land uses, i.e. local centres, schools etc. (Employment blocks are treated as separate areas.); Ø Adjoining community areas should roughly split any open space on an equal basis, unless there are obvious boundaries, i.e. rivers, fences etc. Open space should be included within neighbourhoods, except for areas of strategic open space not easily related to residential areas, e.g. River Ray Parkway; Ø Areas that appear isolated/unrelated, but have a common access from the highway network, should be included in the same neighbourhood area; Ø Areas should also be sufficiently large to enable data to be collected for them without endangering confidentiality, but not too large as to lose, or obscure detail. The population of neighbourhood areas varies between about 1000 and 9,500 people; and, Ø The principal different types of land uses within each neighbourhood were identified and measured (Appendix 3), providing a base set of information for each neighbourhood.
5.27 In summary, the objective of dividing up Swindon’s urban area was to create manageable areas based on physical characteristics and boundaries, enabling an urban potential assessment to be undertaken. This division is purely a mechanical process to deliver an estimate of the potential housing increase. It is not intended that these areas represent social/community characteristics.
5.28 The net residential area of each Planning Neighbourhood Area was derived by deducting the main non-residential uses from the gross area. The net density at 2002 was then calculated by dividing the net areas by the number of dwellings in each Planning Neighbourhood. A range of potential future capacities was then calculated by assuming future densities of 30, 40, and 50 dwellings per hectare. (This proved impractical in some Planning Neighbourhoods where existing densities already exceeded 30dw/ha). A final assessment of future densities was then made by assuming the highest density considered acceptable, in accord with the quality of life principles, focusing the highest density increases in those Planning Neighbourhood Areas that have good access to a range of essential facilities i.e. schools, shops and employment. Planning Neighbourhood Areas with good access to all three facilities were estimated to have a density increase of over 20%; those with two facilities were estimated to increase by 10-20%; and those with only one, less than 10%. Only one Planning Neighbourhood Area, Croft, was recorded with no facilities, and no increase was estimated there.
5.29 Estimates for Swindon town centre were calculated differently as housing provision would generally be a result of regeneration. An increase of about 3000 dwellings was therefore estimated here, at a net density of 80 dw/ha. Where other major developments were known, such as the redevelopment of the Princess Margaret Hospital site, this is also allowed for (to exclude Page 23 such sites could lead to underestimating the potential). Thus, Okus planning neighbourhood area, in which Princess Margaret Hospital was situated, has a density increase of 66%; to have estimated 25-30% would have resulted in an increase in dwellings less than would be generated by the known development. Planning Neighbourhood Areas such as Eastcott & Central, which lack a full range of facilities but which have close access to them, are treated as if they had them. Cross-boundary movements were considered inevitable.
Results 5.30 The total urban potential increase within the Swindon Principal Urban Area, following the methodology contained in paragraphs 5.28 and 5.29 above, is estimated to be approximately 21,100 dwellings. Of this total, about 5,700 dwellings are already committed on the strategic greenfield site at the Northern Development Area, leaving a potential of 15,400 dwellings within the current built up area (Appendix 2). This represents an increase in the net residential density in the Planning Neighbourhood Areas (those primarily residential) from 24 (23.8) dwellings per hectare in 2002 to 31 dwellings per hectare (30.9) at a future date. The detailed results for each Planning Neighbourhood Area ranged from an increase of 0 dwellings in Croft to 833 in Gorse Hill. This wide variation reflects the respective sustainability characteristics of each area and intrinsic opportunities present. (A summary of each Planning Neighbourhood’s potential is attached as Appendix 3).
5.31 The exercise also assessed the effect of increasing the net residential density of each Planning Neighbourhood Area across the whole of the Swindon’s Principal Urban Area to at least 30dw/ha, as well as 40dw/ha and 50 dw/ha. Obviously, all those Planning Neighbourhood Areas that are currently at or above each of above densities were excluded. However, the results below demonstrate the potential dwelling increase that could be achieved by increasing the density in those Planning Neighbourhood Areas where the current density is below each specific threshold. Urban Potential is about quantifying the increase in overall dwellings that can be achieved through an increase in density at 30, 40 and 50 dw/ha. The results were:
30 dw/ha. 20,900 dwellings
40 dw/ha. 46,500 dwellings
50 dw/ha. 74,100 dwellings
5.32 It should be noted that the figure for 30 dw/ha (20,900 dwellings) is close to the sustainable urban potential figure of 31 dw/ha ( 21,100 dwellings stated in paragraph 5.30 above), which demonstrates the theoretical limit to the number of dwellings the Principal Urban Area could realistically accommodate without having significantly adverse effects on the urban environment and reducing the quality of life of residents, i.e. conflicting with the Quality of Life Principles.
5.33 However, to realise even this scale of additional growth within the Principal Urban Area (21,100 dwellings), let alone either of the other two theoretical Page 24 calculations, there are a multitude of issues which will affect the deliverability of these figures: -
Ø Acquiring properties to redevelop that are predominantly within private ownership. Ø The cost of purchasing properties, by whom? If the private sector is a leading player in redevelopment then schemes have to be financially viable. Ø Accommodating existing residents while redevelopment occurs, where? How will such an activity impact on those residents quality of life? Ø Ensuring that existing services and facilities, such as education provision, health care and community services are not overstretched beyond capacity. How can additional services be incorporated into redevelopment to redress any current imbalance and ensure that an imbalance is not created? Ø The design and layout of redevelopment will be critical, and difficult, to ensure that issues such as “Town cramming” are not created. Spaces between buildings, amenity space, open space, access and light could become more difficult to reconcile. Ø To provide additional dwellings in such volumes, is it feasible for large-scale redevelopment of existing housing estates?
5.34 In conclusion, the additional dwellings that could be accommodated in the Principal Urban Area, as suggested in paragraph 5.31 above, could also create further issues that have to be resolved (listed above). These additional dwellings are based around a theoretical desktop exercise illustrating what could be achieved, not precisely identifying what will be achieved. It is not simply a case of assuming that these additional dwellings will come forward, thereby negating the need for a greenfield requirement. Instead, they will be encouraged and incorporated as and when they occur, there being no guarantee that they will.
5.35 In essence, a balance has to be found to enable increased densities within the Principal Urban Area to come forward in the future, whilst not generating even greater problems for existing residents. Everybody’s quality of life style is of equal importance, both existing and future residents.
Page 25 6. Urban Extension Study
Definition of the Study Area
6.1 The Urban Extension Study was split into two distinct phases. Phase 1 of aimed to provide a rationale for selecting broad areas on which to focus further detailed study work in Phase 2. Phase 1 comprised a comparative assessment of 17 large ‘zones’ covering all land broadly within 15 kilometres of Swindon town centre (Appendix 4). These zones were loosely based on those used in the previous Swindon Development Appraisal study, incorporating a variety of development concepts:
i) Area A – Expanded settlement at Minety ii) Area B – Expanded settlement at Cricklade iii) Area F – Expanded settlement at Highworth iv) Area H – Expanded settlement at Shrivenham/Watchfield v) Area K – Expanded settlement at Chiseldon vi) Area N – Expanded settlement at Brinkworth vii) Area P – New settlement at South Cerney Airfield viii) Area Q – Dispersed development in the countryside ix) Areas C, D, E, G, I, J, L, M and O – Urban extensions or Expanded settlements
6.2 These potential development cells represented broad, and in places overlapping areas, most of which were focused around a development catalyst, such as the urban area periphery, or existing settlements. It should be noted that these potential development cells did not equate to acceptable development envelopes and should not be viewed as definitive development options. Instead, they merely sought to provide a manageable means of assessing constraints and opportunities, with an indicative outer boundary.
Phase 1 - Assessment Methodology
6.3 A wide range of data was collected for all the potential development cells, enabling both a judgemental and factual assessment for each area to be undertaken, with the aim of identifying which area(s) could be eliminated from further analysis, and whether any particular area(s) emerged as a preferred choice to be taken forward to Phase 2.
6.4 The judgemental assessment was undertaken by 27 individuals including planning officers from: Swindon Borough; Wiltshire County Council; surrounding local authorities; officers from other Directorates from both the Borough and County Councils; utility providers and the emergency services. Each assessor was then requested to make a professional judgement on the suitability of each potential development cell to meet criteria-based objectives based on their own specialist knowledge and any future objectives of their service area that could impact on spatial planning. It required each assessor to comparatively rank each potential development cell’s performance against 10 identified sustainability/quality of life criteria, (Appendix 5) derived from a combination of best practice advice,
Page 26 government guidance and the Borough Council’s 30 Year Vision quality of life principles (Appendix 1).
6.5 The factual assessment involved an analysis of constraints and opportunities to determine the sustainability of the development concepts. Constraints information was gathered from existing data sets and expert bodies. Opportunities to access existing facilities were assessed from data held by the Borough Council, and likely development concepts were considered against the development concept hierarchy produced by the Borough Council in the course of work on a 30 Year Vision for Swindon. This work concluded that urban concentration was the most sustainable concept, followed by urban extensions, key settlement expansion, new settlement development, then finally, dispersal to rural areas.
6.6 The potential development cells taken forward to Phase 2 for more detailed evaluation took account of both judgemental and factual assessments in equal measure, the final ranked scoring weighted equally between the two.
6.7 For the judgemental analysis, each potential development cell was assessed against each of the 10 sustainability/quality of life criteria. By placing the areas along a continuum, both a score and a rank could be attributed. These scores and rankings were then summed. The criteria themselves were then ranked, to enable those perceived to be more important to be afforded the greatest weighting. These weightings were then applied to the results to give overall weighted total scores and rankings for each area. These were then summed and ranked, giving a final subjective ranking based on both score and rank.
6.8 The factual, “constraint based” analysis comprises three basic assessments, Constraints, Opportunities and Development Concepts, all analysed on an equal weighting.
a) The Constraints Analysis assessment required utility providers and expert bodies to rank the sites in order of preference based on known constraints within their service area, or the extent of likely problems arising from development in each specific area. Where responses were not returned, existing constraints information held by Swindon Borough Council was used, with area rankings determined by officers.
b) The Opportunities Analysis assessment was undertaken in a similar way. Service providers were asked to rank the areas in a preferred order, matching their future service requirements. Proximity to existing facilities in the urban area was also assessed to provide a crude analysis of potential linkages to the town.
c) The Development Concept assessment compared each site against the Borough Council’s Development Concept hierarchy, undertaken solely by officers from the Borough Council.
6.9 Having ranked the potential development cells against the above three key assessment criteria, a final definitive rank was calculated for the factual
Page 27 analysis. This was then added to the final ‘judgemental’ rank to give an overall total ranking for the assessment cells (Appendix 6).
6.10 The lowest scoring potential development cells, i.e. the best performing, were found to be located in a broad swathe of land adjacent to Swindon’s urban periphery, stretching northwards around Swindon from Junction 16, M4 in the west to Junction 15 in the east. Conversely, those cells which scored highly, i.e. the poorest performance, comprised areas some distance from Swindon’s urban periphery, including a new settlement and dispersed rural development. These cells scored less well due primarily to their greater distance from the Principal Urban Area, their impact on existing settlements, or environmental constraints. While non-strategic development potential may well exist in these cells, it would be more likely to be realised at a future date through allocations in a Local Plan for the appropriate area. Therefore, the remaining cells were not assessed in Phase 2.
6.11 It was initially proposed that Phase 2 assessments would be undertaken on those areas ranked up to, and including, number 8 in the overall assessment (Appendix 7). However, after work on Phase 1 of the Principal Urban Area study was completed in Summer 2001, Regional Planning Guidance for the South West 2016 was published (September 2001), followed by the results of the South West Area Multi Modal Study (SWARMMS) and the determination of the High Court challenges to the Structure Plan, confirming the Southern Development Area as the next area of strategic growth. The publication of such documents, changes in policy and constant updating of data sources were thought likely to impact on the performance of potential development cells previously assessed through the Swindon Development Appraisal.
6.12 Therefore, due to the close proximity of the scoring and the identification of the Southern Development Area as the next direction for strategic growth, it was considered, for reasons of consistency, appropriate to include an area adjacent to Wroughton in the Phase 2 assessment (Appendix 8). This ensured a consistent approach to the Phase 2 exercise, assessing the entirety of Swindon’s urban periphery, albeit excluding a small area of land within the North Wessex Area of Outstanding Natural Beauty.
6.13 Many of the areas taken forward to Phase 2 have previously been assessed through the Swindon Development Appraisal study. However, it was considered important for this exercise that all areas were reappraised without prejudice to previous work. Although the 2 nd Examination In Public Panel Report of the Wiltshire Structure Plan 2011 considered that the area to the east of the A419 was a close runner-up to the Southern Development Area (Report of the Panel, Examination in Public, March 2000, paragraph 4.4.2 refers), it is important for the purposes of transparency and consistency that all eight potential development cells are assessed on a “level playing field”. The results of the previous Swindon Development Appraisal Study could not be ignored, but they should not, and did not, pre- determine the outcome of the Principal Urban Area study.
Page 28 6.14 The next stage of work involved collating detailed information for the areas to be taken forward to Phase 2 of the assessment. This took the form of detailed site-specific constraints and opportunities, probable infrastructure requirements and an assessment of existing policy.
Phase 2 - Assessment Methodology
6.15 Phase 2 of the Urban Extensions Study sought to assess the development potential around Swindon, following a similar methodology to the Swindon Borough Council’s Development Appraisal Study (1999). However, there are a number of distinct differences, not least that the Principal Urban Area study area covers a much larger geographical area than the previous exercise (Appendix 8) and is driven by the objective of identifying the most sustainable direction(s) for new development, rather than a specific housing quantum. It was therefore considered that the assessment should be more strategic in nature than previously.
(a) Identification of ‘Assessment Areas’
6.16 Phase 2 of the Urban Extension study resulted in the identification of a more tightly defined study area (Appendix 8). However, in order to undertake a comparative assessment of the different locations around the town, the study area needed to be refined further. Therefore, the study area was broken down into specific assessment areas that were defined using a combination of factors:
Ø The development pattern/concept, whether an urban extension, the expansion of an existing settlement, etc.; Ø Proximity to transportation corridors; Ø Proximity to ‘high use’ facilities; Ø The existence of geographical/physical barriers, such as landscape features; and, Ø The existence of any absolute physical or policy constraints; e.g. AONB;
(b) Underlying Sustainability Principles and Indicators
(i) Sustainable Development Principles
6.17 The Department of Environment, Transport and the Regions (DETR) best practice guide entitled ‘Planning for Sustainable Development: Towards Better Practice’ (DETR, 1998) states that new urban areas, such as urban extensions, “can contribute to creating more sustainable patterns of development if they are located in the right place, have a well planned transport infrastructure, are developed at appropriate densities and provide a range of local facilities”. These guiding principles are reflected in current planning policy guidance, including Regional Planning Guidance, and examples of best practice.
6.18 Policies and proposals for new urban development should:
Ø Help to restructure or ‘retrofit’ towns and cities, building back features
Page 29 which promote, for instance, a higher level of local services and support less car-dependant lifestyles;
Ø Improve the quality of the physical environment, and thereby the quality of urban life, so people will want to live there;
Ø Maximise accessibility, so as to reduce the number and length of journeys, provide for improved public transport, pedestrian and cyclist movement. In promoting higher density and mixed use, a central aim is to facilitate shorter, multi-purpose journeys;
Ø Help urban areas to be successful by being competitive, with a viable level of retail, commercial and industrial activity;
Ø Result in the more efficient use of land, by maximising the re-use of already developed land and existing buildings, raising residential densities and reducing the amount of land used for roads and parking; and,
Ø Ensure that towns and cities allow people to achieve their potential, particularly by providing access to workplaces, education and information, opportunities for participation, and healthy environment.
6.19 The Department of Environment, Transport and the Regions’ best practice guide further states that urban extensions should provide:
Ø A positive relationship to an existing city, town or larger village by either helping to complete a neighbourhood area (thus providing or supporting a neighbourhood centre, school etc.), or by providing an entire neighbourhood or group of neighbourhoods;
Ø A variety of housing types, tenures and densities, as well as neighbourhood centres with mixed uses and a range of facilities;
Ø A landscape structure incorporating and building on existing assets; and creating a distinct edge to the urban areas;
Ø Pedestrian, cycle and public transport networks, fully integrated with existing or potential provision in adjacent urban areas, and enabling appropriate access to the adjacent rural area;
Ø The ability to exploit existing infrastructure and to maximise the use of that infrastructure; and,
Ø A strong local identity reflecting local characteristics and based on coherent and distinctive urban design, and expressed in the design of individual buildings.
6.20 Against this background of current guidance the Urban Extensions Study implicitly recognises the wider sustainability concerns associated with identifying Swindon’s future direction(s) of growth. It acknowledges that the Page 30 location of development raises issues not only in terms of the need for travel and the inherent use of energy, but is also important in terms of access for local people to jobs, homes, services and amenities.
6.21 It is acknowledged that the revised objectives emerging through the current revision of the Structure Plan will remain largely unchanged from those in the adopted Plan and will continue to be relevant. The principles were kept under review throughout the appraisal process and account was taken of changes that emerged.
(ii) Sustainable Development Indicators
6.22 To determine the comparative development potential of the identified assessment areas within the study area (Appendix 8), the areas needed to be assessed against clearly defined sustainable development criteria.
6.23 As part of the Swindon Development Appraisal Study (1999) 18 sustainability principles were identified that were considered to represent the key locational considerations that needed to be explicitly recognised within the overall appraisal process (Appendix 9). These broadly reflected the objectives of the adopted Wiltshire Structure Plan 2011 (Appendix 10). It should be noted that whilst this list is not exhaustive it provides an indication of the underlying principles.
6.24 In addition, work on a 30 Year Vision for Swindon generated 27 Key Quality of Life Principles, reflecting the aspirations, expectations and concerns of Swindon Borough’s community over the longer-term (Appendix 1). These Quality of Life Principles were then subjected to public consultation through the pre-deposit consultation exercise (28 th April to 9 th June 2003) to validate their authenticity and gain a consensus opinion from the broader Principal Urban Area study areas community. As a result of this consultation minor amendments were made to two of the principles, with a further new principle added, bringing the total to 28 (Appendix 11).
6.25 From these 28 Quality of Life Principles, a series of locational specific sustainability indicators (59 in total) have been identified to comparatively measure each potential development cells sustainability performance (Appendix 12). In formulating these indicators account was taken of the indicators used in the Swindon Development Appraisal Study (1999), adopted Regional Planning Guidance and advice contained within the urban extensions study guidance note produced by the Regional Assembly Planning Officers Group (2002). The indicators are based upon both quantitative and qualitative information.
6.26 To undertake a comparative assessment of the potential development areas surrounding Swindon, the study area was broken down into eight areas, Areas A to H (Appendix 8). At the end of the Urban Extension Study the potential development cells were ranked according to how each performed relative to the others in each evaluation. Thus, if the option was considered to have the highest potential to meet the indicator compared to the other options it scored ‘A’. The other cells were then ranked in descending order Page 31 according to their ability to meet the indicator. Where areas performed equally against an indicator they were scored with the same letter.
6.27 This simple scoring mechanism was used successfully in the Swindon Development Appraisal Study (1999) being considered to be robust and transparent. It is designed to reflect the fact that the assessment is looking at comparisons between the cells for each indicator, not a precise answer. Assigning numerical values to the cells was not considered appropriate as it implies that the indicators are directly comparable and the scores could simply be added up to give a total that identifies the best option, which is not the case.
(c) Mapping Constraints and Facilities
6.28 To enable detailed assessments for each potential development area and progress the study, a wide range of data was required covering issues such as physical constraints, policy constraints, infrastructure requirements/costs, public transport implications, as well as service/facility capacities and locations. Essentially, the range of data to be collated was determined by the 59 sustainable development indicators (Appendix 12). Although this exercise was previously carried out as part of the Swindon Development Appraisal Study (1999) differences in the geographical coverage of the two studies, as well as the passage of time, rendered some data incomplete or inaccurate. Work was therefore undertaken to produce a definitive data set that was up to date and consistent across the study area.
6.29 Whilst many of the constraints are capable of being managed through mitigation measures, there may be some that are absolute, i.e. their impact would be of such a magnitude that mitigation could not compensate for the loss of the resource. The identification of absolute constraints, such as Areas of Outstanding Natural Beauty (AONB), was used to refine the potential development cells by eliminating parts of those areas from the study.
(d) Accessibility Assessments
6.30 A key locational principle is to locate development within close proximity to existing services, facilities and jobs, accessible by alternative modes of transport to the private car. Accessibility assessments are therefore required to comparatively compare the merits of potential development cells and identify those cells that represent the most sustainable direction(s) of growth.
(i) Access to Community Facilities
6.31 Whilst it is recognised that where a strategic scale of development is proposed a high level of service provision will be expected within the area, it is also prudent to maximise local choice and opportunities through access to existing facilities and services. Identifying existing uses with spare capacity, or those within close proximity to urban extensions, will have a positive impact on this maximisation process. Consequently, several key facilities
Page 32 and services have been identified as being representative of the main activities that residents will need access to when striving to achieve a mixed use, sustainable development pattern. Such facilities/services include: schools/colleges, health centres, leisure centres, other formal facilities (e.g. children’s play area/playing fields), informal leisure opportunities (e.g. open or amenity space), community centres, local and district centres and Swindon Town Centre itself. This information has been recorded on a Geographic Information System along with the application of appropriate accessibility thresholds.
6.32 The accessibility thresholds proposed for each facility/service are based upon guidelines contained in Regional Planning Guidance (RPG10, Annex A). These thresholds have been prepared by the Regional Assembly, building upon advice contained in Planning Policy Guidance Note 11 (October 2000) that advises that Regional Transport Strategies, being an integral and clearly identifiable part of Regional Planning Guidance should provide:
“public transport and accessibility criteria for regionally or sub-regionally significant level or types of development, . . . to guide the location of new development and the provision of new transport services or infrastructure”. (PPG11, paragraph 6.03)
6.33 The accessibility thresholds define the maximum distances within which there is the highest propensity for trips to occur by alternative modes of transport to the private car, i.e. walking, cycling or public transport. Whilst it is anticipated that the thresholds could require further refinement in the future, they represent the best advice currently available.
6.34 Based upon the results of the accessibility assessment the potential development cells can then be ranked, in terms of performance, taking into account the range of services and facilities in close proximity.
6.35 Public transport has not been assessed by using a distance threshold. The individual areas have been ranked according to how each performs relative to each other in terms of public transport accessibility. The analysis involved the number of services, frequency, destinations, access to bus lanes, as well as the number evening and weekend services. Map 17 shows the main bus gateways into the Principal Urban Area.
(ii) Access to Employment
6.36 Access to employment is a key criterion of sustainable development.
‘By shaping the pattern of development and influencing the location, scale, density, design and mix of land-uses, planning can help to reduce the need to travel, reduce the length of journeys and make it safer and easier for people to access jobs, shopping, leisure facilities and services by public transport, walking and cycling. Consistent application of these planning policies will help to reduce some of the need for car journeys (by reducing the physical separation of key land uses) and enable people to make
Page 33 sustainable transport choices.” (Planning Policy Guidance 13 – Transport)
6.37 Regional Guidance for the South West (RPG10) published in September 2001 includes as one of its key objectives, specifically objective h):
“‘improving accessibility to jobs and services and ensuring that patterns of future development reduce the need to travel and encourage access by walking, cycling and public transport.”
6.38 Furthermore, the Regional Transport Strategy has, as one of its key objectives:
“To reduce the impact of transport on the environment, (which is increasing as a result of growth in road traffic, noise and pollution) by reducing the need to travel, encouraging travel by more sustainable means (especially by walking and cycling) and locating development at accessible locations, particularly by public transport.”
6.39 Daily commuting to work is one of the major reasons for people’s travel movements. Across all ages 16% of all trips are commuting, whilst for those aged 17-60 about a quarter of all trips are commuting. On average a person will spend 66 hours a year commuting. However, those aged 21-29 on average spend 128 hours a year commuting! The average commuting trip time is 26 minutes. ( National Travel Survey, 1998-2000 ).
6.40 The average distance that a person commutes has increased significantly over the last 25 years. In 1975/6 the average commuting journey was 5.2 miles but by 1998/2000 this had increased to 8.4 miles, as shown in Chart 1 below.
Chart 1 - Average journey length: Great Britain
6.41
Fur the rm ore the tim e of day when most people commute is squeezed into a relatively short period, between 7 and 9 in the morning and 4 and 6 in the evening, adding to congestion and increased pollution in many urban areas.
6.42 According to the 2001 Census two-thirds of Swindon Borough’s residents travelled to work by car, with an average occupancy rate of 1.1 persons per Page 34 car. The Census also showed that 10% of persons walked to work and 5% cycled.
6.43 To minimise the environmental and social impact of commuting by car, any urban extension should be situated near to a large number and range of employment opportunities. Proximity to employment does not in itself reduce the propensity to travel to work by car, but it is important to maximise the opportunity to travel by other means such as on foot, cycle, or public transport.
Assessment of Employment Accessibility 6.44 To assess the employment accessibility of the potential development cells identified in Phase 2 of the Principal Urban Area Study the following methodology was used.
6.45 An extract of the Inter Departmental Business Register (IDBR) was obtained from the Office for National Statistics in December 2001. This database lists all firms and businesses (including the public sector) within the Principal Urban Area and the number of employees at each establishment. This data is confidential and is not available to third parties, nor can it be used for any purpose other than labour market analysis under the terms of the Town and Country Planning Act.
6.46 Each business establishment was geo-referenced through a Geographical Information System (Map 5). Initially this was achieved by matching postcodes, but inevitably a considerable amount of manual intervention was needed to achieve the desired level of accuracy. At the same time the database was amended to take account of known changes and inaccuracies. For example, the employees at the Princess Margaret Hospital were transferred to the location of the new Great Western Hospital.
6.47 In order to assess the accessibility to employment opportunities all establishments were counted if they were located in recognised areas of employment, i.e. industrial estates, business parks and major shopping and leisure areas. In residential areas only those establishments with 25 or more employees were included which are mainly schools, large freestanding stores and pubs. Each establishment was assigned a use class according to the 1987 Use Class Order so that the type of employment in the area could also be analysed. In total, this analysis includes about 94,000 employees within the Principal Urban Area Study area in nearly 2,100 establishments.
6.48 The town centre has the largest concentration of jobs with about 20,000 jobs within 1km of Swindon Railway station. Other areas containing a large number of jobs are located at South Marston Airfield, Greenbridge through to Kembrey Park, Pipers Way and the eastern part of West Swindon.
6.49 Finally, buffers were drawn around each assessment area at 1km, 2km, 3km and 4km distances. It is considered that 1km represents the distance at which most people would be prepared to walk to work and 4km the distance they would cycle. However, as the buffers are straight line distances and journey to work routes are seldom so, by analysing the distance in bands Page 35 allows some degree of flexibility of interpretation of the results.
(e) Environmental Assessment of Development Areas
6.50 Environmental features, in particular their location quality and size, are key considerations in the process of determining the relative ability of each of the eight Principal Urban Area assessment areas to accommodate sustainable development.
6.51 One of the key objectives of Regional Planning Guidance, objective b), is:
“safeguarding and enhancing the quality and diversity of the natural, cultural and built environment across the region, while giving the highest level of protection to designated areas and features of national and international importance”
6.52 The protection of existing environmental features, particularly those with irreplaceable benefits, is not an over-riding matter in determining the direction of future growth, but it is an important one carrying considerable weight. Areas where the impact of development on environmental features is minimised are preferable to those where there is greater adverse impact unless other issues, such as sustainability, are judged to carry more weight.
6.53 A major part of the Phase 2 assessment is the Environmental Features Appraisal. This seeks to identify the most sustainable direction(s) of growth in respect of environmental issues, in other words the direction(s) in which a strategic level of urban expansion would have the least negative impact. It is considered that the best means of achieving this objective is by adopting a methodology base on the Quality of Life Capital Approach.
6.54 The origins of the environmental assessment methodology are based on the Countryside Commission’s What Matters and Why, Environmental Capital: A New Approach (August 1997), subsequently used in the Swindon Development Appraisal (1999). This approach has since been developed further, taking greater account of the quality of environmental features, through the Quality of Life Capital approach. This process was developed in 2001 by the Countryside Agency, English Heritage, English Nature, and Environment Agency, forming the basis of the Environmental Appraisal. In addition, “ Ashford’s Future” , a study carried out by consultants for Ashford Borough Council & Strategic Partners, is referenced as it is considered to be of a similar scale to the Swindon Principal Urban Area study whilst also incorporating the Quality of Life Capital approach. Although the aim of the Ashford study differs from the Principal Urban Area study, its methodology has informed the Environmental Appraisal assessment, generally. The assessment seeks to integrate several distinct but inter-related elements, such as biodiversity, landscape, archaeology, the water environment, agricultural land quality, and coalescence issues. The Quality of Life Capital approach is seen as the most appropriate method to achieve this aim in a consistent manner, in a way that takes account of quality as well as quantity. Environmental Appraisal
Page 36 6.55 The Environmental Capital approach was originally introduced as a systematic mechanism to define what is important in all aspects of the environment, the qualitative and subjective as well as the ‘scientific’, including undesignated as well as designated features. The Quality of Life Capital approach allows this to be extended to social, economic and other fields, so that it can be used in wider assessments.
6.56 The Environmental Appraisal consists of three components. A Biodiversity Assessment, a Landscape Assessment and an Environmental Features assessment.
a) The Biodiversity Assessment is based upon identifying the broad habitats within each area, recording their frequency, quality and diversity. This draws upon the South West Region Biodiversity Audit Classifications. An aerial photograph study, based on known data and selective field walking, was carried out by consultants and used to identify those areas that would be most at risk in the event of development, and those that areas would be least damaged.
b) The primary objective of the Landscape Assessment was to provide a summary of the key landscape features present and identify non- developable areas based solely on landscape considerations. Not only have Landscape Character Areas have been identified, but also key features, strategic views in and out of the areas, and river stream corridors were also relevant. Other issues addressed included topography, function, appearance and coalescence. The latter represents whether the area could potentially reduce the visual or physical gap between settlements. This includes acknowledging the public perception of such threats. The Landscape Assessment has been carried out separately from the Environmental Features Assessment, but its results feed into the overall assessment for the Principal Urban Area Study.
c) The Environmental Features Assessment looked at a large range of environmental features within the study area including:
i) Water-related matters, such as the indicative floodplain as defined by the Environment Agency; aquifers; areas of groundwater vulnerability, rivers, and lakes and ponds;
ii) Features of historic interest, such as listed buildings, conservation areas, historic parks and archaeological features plotted on the sites and monuments record;
iii) Environmental designations, such as Sites of Special Scientific Interest, Areas of Outstanding Natural Beauty and other international, national, regional and local designations protecting habitats and biodiversity;
iv) Mineral and aggregates sites landfill and waste sites, contaminated land and sewage facilities. These are all features that have an
Page 37 overall non-beneficial effect on the environment, e.g. minerals sites provide a natural resource and a value to the economy, but damage the landscape and biodiversity of the countryside;
v) Country Parks, public rights of way, canal routes and other features with recreational benefits; and,
vi) High grade agricultural land (Grades 1, 2 & 3a). Information is available from The Department for the Environment, Food, and Rural Affairs (D.E.F.R.A.).
6.57 The benefits of pursuing the Quality of Life Capital approach are:
a) Integration The Quality of Life Capital approach recognises that a given feature may provide several different environmental benefits. This enables the same assessment process to embrace all the different kinds of environmental features, including those related to habitat, biodiversity, landscape, heritage, and recreation. For example, Lydiard Country Park could be considered of great importance for historical and landscape reasons, relatively important for nature conservation and informal recreation, and minimal importance in terms of its value to the local economy. The same appraisal process can therefore be applied to all kinds of environmental assets or features. This approach offers consistency across the eight potential development cells and integration between different environmental interests.
b) Subtle Response The Quality of Life Capital approach enables the analysis to cover a greater, but subtler range, than the simple gradation of critical, constant and tradable of the earlier Environmental Capital method. For example, the fabric of a building could be of major historical significance and should therefore be given the highest possible degree of protection. The exterior appearance could be architecturally extremely valuable, whilst the fabric, or interior behind the façade, could be remodelled without detracting from this value. In addition, the approach takes into account the fact that the effects of development on the environment can be mitigated, or the benefits provided by environmental features can be substituted. For example, if development damaged the nesting sites of certain birds it may be possible to provide similar sites nearby to maintain their population.
Area Profiles 6.58 A profile of implications arising from development in each potential development cell can be constructed, where each attribute of the feature is discussed separately, demonstrating the positive and negative effects that may arise. This will enable a more informed decision to be made. However, this does not dilute arguments for very high levels of protection for the most important features, in fact, this approach would strengthen the case for their protection because the benefits are more clearly defined.
6.59 The process of identifying and defining the particular characteristics that make each area distinctive is rapidly emerging as the basis for a unified
Page 38 approach to describing and understanding the environment. The Countryside Commission & English Nature joint Character Map is an important example. The environmental capital approach is thus consistent with, and reinforces, this unified approach
6.60 The Quality of Life Capital approach as applied to the Principal Urban Area Study exercise takes into account the need to satisfy the sustainability indicators that underpin the Study and also the approach taken in the Swindon Development Appraisal Study (1999). There are six steps in the Environmental Appraisal process (A – E), derived from the Quality of Life Capital Approach. These are summarised in the following paragraphs.
Step A: Purpose 6.61 The aim of the Environmental Appraisal is:
To determine and comparatively assess the environmental character of the eight potential development cells identified in the Swindon Principal Urban Area Study (Appendix 8) in order to conclude the most sustainable direction(s) of growth that would have the least environmental impact.
6.62 The steps necessary to achieve this aim are summarised below and explained in more detail in the succeeding paragraphs:
a) To refer to the Principal Urban Area Study Sustainability Checklist (Appendix 12) identifying the environmental scoping areas for the appraisal;
b) To undertake a scoping exercise of the relevant national, regional, and locally strategic planning legislation and policy guidance applicable to environmental features;
c) To identify the importance of the study areas environmental features and assess them in relation to a hierarchy of bandings, applying these to a comparative assessment of the eight potential development cells to determine the impact of large-scale future development, and the scope for substitution, or mitigation;
d) To undertake a comparative environmental appraisal of the eight development cells, based upon the Quality of Life Capital approach in order to identify the environmental character, function and overall relative benefits of each cell. This should have regard to the quantity, quality, and regenerative capacity of the environmental resources in the areas; and,
e) To advise on the impact that future development may have on the environmental character and function of each potential development cell, and to identify the opportunities for substitution, or mitigation.
Step B: Identifying What is There Page 39 6.63 This is the information-gathering process, focusing solely on the environmental features of the study area. However, it forms part of the overall comparative assessment, including transport, employment accessibility, education, and community and utility facilities.
6.64 A scoping exercise of legislation and policy guidance was required to ensure that all relevant features were taken into account. It also identified the environmental features the appraisal should address to meet the objectives of the study, and determine the importance attached to them in the guidance. The appropriate level of detail necessary to include in the study lies between the local and strategic levels, but with elements of both. It should be emphasised, however, that the Environmental Assessment forms part of a strategic exercise. Whilst a strategic study might focus only on features recognised at national and regional levels, this would identify few features within the study area. It was therefore necessary to add some detail level, but not too specific.
6.65 A large proportion of the necessary data was already held on a Geographical Information System, but it was necessary to obtain further and updated information from various sources, such as the Wiltshire Biological Records Centre, the Borough Council’s Landscape Section, and Wiltshire County Council’s Archaeologist. It was then necessary to collect and collate the remaining data, again on a Geographic Information System.
6.66 Rural buffers, being an anti-coalescence policy, were excluded from the Environmental Assessment, being assessed separately. This was considered appropriate upon advice of the Environmental Focus Group, to ensure that this single issue would not dominate the actual environmental features present. The issue of rural buffers has been taken account of separately in the overall Urban Extensions assessment.
Step C: Benefits 6.67 Having identified the information requirements, bearing in mind the strategic nature of the exercise, including their sources and digitally mapping the data, the next step was to identify the ‘benefits’ that could potentially be influenced by an urban extension of a strategic scale. It should be noted that different locations or environmental features could provide different benefits.
6.68 The initial step was to produce a definitive checklist of all the benefits derived from all the features identified in the scoping exercise. For the purpose and scale of the assessment it was considered that the key ‘benefits’ which should be included were:
Ø Biodiversity / Habitat Value Ø Culture / Heritage Value Ø Landscape Value / Sense of Place Ø Water Cycle Ø Value to Local Economy Ø Recreation Ø Education Ø Health & Survival
Page 40 Ø Protection of Settlement Identity
6.69 The Quality of Life Capital approach seeks to integrate the above distinctly different, but inter-related elements, identifying features which best represent the potential impacts of the identified benefits. (An intrinsic feature of this approach is that environmental features may provide several distinct benefits from an individual feature, for example, an area may contain a feature of historic interest that also provides an area for informal recreation, such as Barbury Castle). To quantify these potential features it was necessary to cross-refer through legislation, planning guidance and the Principal Urban Area sustainability indicators with the benefits stated above (Appendix 13). Local variations, and the implications of climate change, should also be taken into account as these factors could impact on habitats, biodiversity, water supply, etc.
6.70 The result of completing this stage of the assessment is that the environmental capital of each of the areas will be identified in terms of the environmental benefits accruing to each. Further analysis of the benefits takes place in the next stage (Step D). It is essential that this stage of the work focuses on the purpose of the study and the issues that are relevant. Otherwise it can become an information collecting exercise, with too much detail, resulting in confusion.
Step D: Evaluation 6.71 The benefits and services are systematically examined through a series of questions, which are expressed in a matrix format (Appendix 13). This is the key stage in the assessment. The objective is to draw out the differences in environmental character between each assessment area based upon judgments relating to the features and benefits occurring within each area. The views expressed by stakeholders throughout the autumn 2002 stakeholder meetings and members of the Environmental Appraisal Focus Group in May 2003, were reflected in the bandings in which the features are located (Appendix 14).
6.72 Several issues need to be resolved to ensure that the aim and objectives of the study, as set out in Step A, are satisfied. A set of criteria is required to assess the level of detail that is relevant, i.e. national, regional, local, etc. The evaluation process needs to be rigorous so that it is transparent and informed from a variety of different sources to ensure a balanced approach. This was achieved through using:
Ø The benefits and services identified for each asset in Step C; Ø The results of the Landscape and Habitat Studies (These were taken account of separately in the overall appraisal); Ø The importance attached to features in other studies; Ø National and local designations; and, Ø Importance to the local community identified from the Principal Urban Area Study stakeholder consultations and the Focus Group meeting.
6.73 The first question to be addressed is to whom the service matters, why, and Page 41 at what scale. An example is habitat quality for biodiversity, which may matter to the local community, but is of national importance. The answers to this question were largely informed by the scoping exercises and the results of consultation with specialists and the community. It will also draw on the benefits/services identified for each of the assets in Step C.
6.74 The second question involves determining the degree of importance of the service, which does not necessarily mean that matters of national importance are given more weight than matters of local importance. Documentation scoped in order to objectively quantify what could be described as a subjective assessment included:
Ø Feedback from the stakeholder consultations (2002); Ø The Environmental Focus Group (2003); and, Ø The Department of Transport’s “ Guidance on the New Approach to Appraisal” 1998 (NATA).
6.75 Assessing features/assets according to their importance requires careful consideration. A mechanism that can attach importance to each feature/asset is required to draw out the differences between each assessment area. This is a crucial issue, requiring judgements that are transparent, justifiable and incorporate an element of objectivity, not being entirely subjective. Policy guidance is the starting point, but incorporating enough flexibility to accommodate local circumstances.
6.76 Measuring the output of such an exercise should not follow a scientific, mechanistic approach that either has a “right” or “wrong” answer. Because judgements are being made, although based as firmly in the realms of objectivity as possible, the outcome cannot be described as absolute. There may be many instances where discussion and debate could arise. In this respect a quantitative approach would be inappropriate, since giving numerical scores could inevitably be misconstrued/misrepresented. Any scoring system should enable each area to be assessed on an equal basis, avoiding any discernable bias towards or against particular areas, or creating a league table. The Quality of Life Capital approach is not intended to give an aggregate figure for each area, but starts from the idea that different kinds of benefit/service are not interchangeable. e.g. “traffic lights”; scoring range e.g. 1-5, “High, Medium, Low”.
6.77 The Quality of Life Capital approach suggests three levels are generally appropriate (‘High’, ‘Middle’, and ‘Low’ importance’), as greater precision could be misleading, encouraging and inferring that the totals can be added to give an overall score. Following the May 2003 Environmental Focus Group meeting it was decided to add a fourth category of features which have a negative effect on the environment (i.e. they are disbenefits). This level was renamed ‘Negative Environmental Features’ and includes such issues as waste, minerals, and sewage sites. The other three categories were re-worded into ‘Very High’, ‘High’, and ‘Medium’.
6.78 The third question to be addressed is whether the service is available in an appropriate quantity. It would be more important to maintain or protect Page 42 services/benefits that are in limited supply than those which are more plentiful. It is therefore important to identify the availability or scarcity of the resource in the Principal Urban Area potential development cells. If development would increase the availability of the resource this needs to be recognised. Similarly, if development decreased the availability or quality of the resource, this also needs to be recognised.
6.79 The fourth question is to determine what mitigating factors, if any, could be initiated to minimise the impact of potential development. Can the benefit be substituted within the potential development cell or beyond (substitutable critical capital), it may be that other areas could be managed to support displaced species. This issue should relate to the importance and local abundance of the resource. The benefits arising from many environmental and historic features may not be substitutable, for example, ancient woodlands, rural buffers, and historic parks, which cannot be replaced elsewhere. However, mitigation may be possible in other cases such as, canals, ponds, and Listed Buildings enabling them to be incorporated into development, potentially increasing the benefit in terms of recreation or education. Furthermore, development in or near an indicative floodplain could incorporate mitigation measures by adopting a Sustainable Drainage System, reducing the flood risk by providing lakes, also used for recreation and wildlife (Willen Lakes, Milton Keynes is such an example). The degree to which substitution is acceptable is related to the level of importance. The principle of mitigation/substitutability in terms of Quality of Life Capital is that features with a locally important benefit should be substituted locally, whereas national or local benefits may be substituted at the national or global scale.
6.80 The degree to which the loss of a benefit can be mitigated against is one of the key elements of the methodology because mitigation reduces the adverse impact of development. The methodology assesses the level of potential mitigation at four levels:
Ø Severe adverse impact : Mitigation measures are either unavailable or would be unlikely to remove or modify the adverse effects of development.
Ø Major adverse effect : Although mitigation measures are available they are unlikely to be wholly successful by virtue of the magnitude of the predicted effects.
Ø Moderate adverse effect : Mitigation measures and/or detailed design work may ameliorate some of the consequences of the adverse effects.
Ø Minor adverse effect Adverse effects that are relevant in the local context may be reduced, removed, or reversed by appropriate mitigation measures.
6.81 All the questions stated above are included in a “What Matters and Why” Page 43 matrix (Appendix 13). This “What Matters and Why” matrix was then completed for each of the eight assessment areas. The design of the matrix is based on guidance from the Quality of Life website, but adapted to accommodate the strategic nature of the Principal Urban Area study.
Step E: Area Assessments 6.82 Following completion and evaluation of the matrix it was necessary to assess the degree to which the quality of the environment for each potential development cell would be affected by development. This stage comprises a summary of the assessment, in particular highlighting:
Ø The key implications that development could have on the environmental benefits of each potential development cell. This includes the degree to which benefits would be lost, and the importance attached to those benefits;
Ø The feasibility of substituting benefits or adopting mitigation measures to offset the negative impact of development in the cell; and,
Ø The overall suitability of each cell for development. This was an informed judgment, based on the degree to which benefits in each area are lost, the relative importance of those benefits, and how far they can be substituted or mitigated at the appropriate spatial level.
6.83 In summary, the process highlights the sensitivity of each of the potential development cells, identifying which area(s) would incur the least adverse impact.
Step F: Summary and Assessment Area Profiles 6.84 Area profiles were produced for each of the potential development areas, (Chapter 12 refers) detailing the key features and assets that contribute to the environmental character, function and human perspective and their benefits and services. They were then ranked based each areas comparative performance.
(f) Rural Buffer Assessment
6.85 Rural buffers are a major factor to be considered when identifying the direction of Swindon’s long-term strategic growth. The principle of the Swindon Rural Buffer is set out in the adopted Wiltshire Structure Plan 2011, Policy DP13. It accords with one of the Sustainability Indicators (Appendix 12) relating to the amenity of settlements, and more particularly the
“ability to protect and enhance the identity and distinctive character of existing settlements and their setting by preventing coalescence.”
6.86 The concept of the Swindon Rural Buffer was first included in the North East Wiltshire Structure Plan (Alteration Number 1), adopted in 1990. It was then intended to protect the rural areas to the north, west and south of Swindon from further urban expansion and to prevent the coalescence of Swindon with a series of named settlements. Its original extent and role was reviewed
Page 44 as part of the first Swindon Development Appraisal, which was required following the first Examination in Public of the Structure Plan Review to 2011 held in 1997. The Panel Report in 2000 of the second Examination in Public concluded that its sole purpose was the prevention of coalescence, to protect the separate identity of the towns and villages surrounding Swindon.
6.87 Regional Planning Guidance (RPG10) does not specifically refer to Rural Buffers, instead, reference is made to the necessity to review Green Belts (policy SS4), thereby ensuring that potentially sustainable directions of growth are not discounted. Even though there are no Green Belts within the Swindon Principal Urban Area, Green Belts and Rural Buffers perform a similar policy function, that of preventing coalescence between identified settlements, albeit without the same legislatory powers. Therefore, the Rural Buffer designations have been reviewed, as identified in paragraph 6.89 below.
6.88 All of the consultation processes carried out during the Swindon Principal Urban Area Study have identified coalescence issues and protecting the identity of smaller adjoining settlements as a principal matter of concern. This was raised as a major issue at the Stakeholder Seminar (July 2002), the Stakeholder Topic Groups (November 2002), the Wiltshire and Swindon Structure Plan 2016 Pre-Deposit consultation, Appendix 16 (April-June 2003) and the Environmental Focus Group meeting (May 2003). The combination of Structure Plan policy and strong public support means that coalescence issues, represented by the rural buffers, are regarded as being of the highest importance for the Urban Extensions Study.
6.89 The Rural Buffer in the North East Wiltshire Structure Plan, incorporating Alterations No.’s 1 & 2, was an extensive area similar to a Green Belt (albeit without the same statutory status). Following the 1999 Examination in Public Panel Report, the concept of several rural buffers between Swindon and individual settlements rather than a single expansive rural buffer was introduced. Consequently, the list of settlements was also extended in the adopted Structure Plan 2011 to include those to the east of Swindon. The actual extent appropriate to each settlement was to be defined in the North Wiltshire District and Swindon Local Plans to 2011, limited to only identifying land that would be essential to protect the named settlements character and identify from the continued outward growth of Swindon. They were therefore to be smaller areas specific to each settlement rather than a single broad swathe around Swindon.
“RURAL BUFFERS SHOULD BE MAINTAINED TO PROTECT THE SEPARATE IDENTITIES OF THE FOLLOWING TOWNS AND VILLAGES AND PREVENT THEIR COALESCENCE WITH SWINDON:
BROAD BLUNSDON PURTON CHISELDON SOUTH MARSTON CRICKLADE STANTON FITZWARREN HIGHWORTH WANBOROUGH LIDDINGTON WOOTTON BASSETT LYDIARD MILLICENT WROUGHTON” Page 45
(adopted Wiltshire Structure Plan 2011, Policy DP13)
The Second Deposit Draft of the Swindon Local Plan was published in October 2003, and that for North Wiltshire in 2003. They are both at a relatively early stage of preparation and therefore subject to change. Consequently, to ensure a consistent approach, for the purposes of the Swindon Urban Extensions Study the rural buffers have been assessed in accordance with the Structure Plan principle that only land essential for protecting settlements from coalescence with Swindon should be included. These are shown as ‘indicative’ rural buffers on Map 6.
Assessment of Rural Buffers 6.90 The eight assessment areas were defined in Phase 1 of the Principal Urban Area Urban Extensions Study. For Phase 2 the following methodology was used in assessing the impact of the rural buffers.
6.91 The objective was to assess the impact that the Structure Plan rural buffer policy had on constraining the outward growth of Swindon in each of the eight assessment areas. As stated in paragraph 6.89 above, for the purposes of this assessment the rural buffers were defined in accordance with the Structure Plan principle that only land essential for protecting settlements from coalescence with Swindon should be included. As these were not the actual boundaries proposed in the draft Local Plans, they are described as indicative rural buffers.
6.92 The area directly between Swindon and each of the settlements named in Structure Plan policy DP13 was considered to comprise a rural buffer. Where this results in most of the land in an assessment area, which lies adjacent to Swindon forming a rural buffer, the assessment area is regarded as having Poor scope for accommodating an urban extension. If the definition of rural buffers in an assessment area results in a significant area adjacent to the Swindon urban area lying outside a rural buffer, then that assessment area is regarded as having Good scope (although the scope is Poor in that part of the assessment area in the rural buffer). Where the rural buffer restricts the extent, location or accessibility of land adjacent to the urban boundary the assessment area is considered to have Fair scope for development (but again, Poor in the rural buffer area). Assessment areas where there is no rural buffer have Good scope for urban extensions based solely on the coalescence criterion.
(g) Transport Assessment
6.93 Urban form is a major determinant of travel patterns and hence energy consumption. Planning Policy Guidance Note 13 “Transport” and Regional Planning Guidance stresses the importance of integrating and co-ordinating land use planning and transport policies to limit the environmental impact of transport. Development should therefore promote more environmentally friendly modes of transport and hence reduce the need to travel by car. Planning Policy Guidance Note 13 also states that the likely availability and use of public transport is a key determining locational factor.
Page 46 6.94 The purpose of the transport assessment is therefore to evaluate the traffic implications and opportunities associated with the eight potential development cells, in accordance with Planning Policy Guidance Note 13, Regional Planning Guidance, the Swindon Local Transport Plan and Wiltshire Local Transport Plan.
6.95 The assessment was designed to identify the impacts of the various development scenarios on the future transport systems of Swindon and the surrounding transport network, identifying the key constraints related to each of the eight potential development cells and the likely scale and cost of any improvements required. The assessment was framed within the overall policy objectives of Swindon Borough Council, Wiltshire County Council and Oxfordshire County Council, various regional planning and transport guidance and the findings of the SWARMMS (South West Area Multi-Modal Study). Throughout the study the key issue to address were to determine how each of the proposals contributes to the Principal Urban Areas main objectives:
Ø Well-served by public transport; Ø Limits the length and number of motorised trips; Ø Reducing commuting by car; Ø Minimise impact on the local highway network; Ø Does not add significant local traffic to motorways and trunk roads; and, Ø Complements policies (Swindon Local Transport Plan, Wiltshire Local Transport Plan and Regional Transport Plan.
6.96 Transport consultants were commissioned by Swindon Borough Council and its transport partners (Wiltshire County Council and Oxfordshire County Council) to undertake a strategic transport assessment of the various locational options for major new housing and employment development around the urban fringe of Swindon. The study was prompted by Swindon’s designation as a Principal Urban Area within the South West Region. Eight potential development cells have been assessed and compared. In addition, three development scenarios have been tested:
Ø 4,000 Dwellings - A self contained mixed development comprising approximately 15 hectares of Class B employment land, a secondary school, three primary schools and retail provision to meet local needs, not diverting trips from existing services and facilities (retail focus similar in size/scale to Co-operative retail store, Old Town, 2003). Local centres should be located around primary schools. Where possible, spare capacity in existing services/facilities should be exploited, or maximised.
Ø 9,000 Dwellings - A medium scale, self-contained mixed development similar in composition to West Swindon. A large secondary school supported by 7/8 primary schools, approximately 40 hectares of Class B employment land (potentially split over 2/3 locations). Retail provision should be at District Centre scale, with local centres focused around primary schools.
Ø 18,000 Dwellings - Larger, longer term mixed development option Page 47 having substantial implications/impacts for Swindon. Development will be on a major scale comprising approximately 80 hectares of Class B employment land, 2/3 secondary schools, 15 primary schools and retail provision on a substantial scale, potentially at a Regional level. Development of this scale could have implications for the Town Centre.
6.97 The study included a comprehensive review of all relevant policy aspirations and transport proposals in the area. From this, key policy drivers and headline targets applicable to the Principal Urban Area were identified. The framework below identifies these policies and the areas of commonality across the range of policy documents considered. Appropriate targets were also included. These targets are based on Swindon Borough Council’s Local Transport Plan that was, amongst all the documents reviewed, the most onerous. The framework also formed the basis for testing the policy compliance and contributions of various locational development options. Of particular importance were the headline targets selected for the Principal Urban Area Study. These include:
Ø Increasing bus patronage by 20% to Swindon town centre by 2006; Ø Increase bus patronage in the remainder of the Borough by 10% by 2006; Ø Increasing rail patronage at Swindon Station by 10% by 2006 and by 30% by 2011; Ø Reducing morning peak traffic growth by 16% between 1999 and 2006 and 39% between 1999 and 2011; Ø Increase the number of walking trips in urban areas by 12% by 2011; Ø Increase the number of cycle trips in the urban area by 50% by 2006.
6.98 The targets, when applied to existing mode shares for the area, formed the basis of public transport assessment and Infrastructure requirements for each potential development option. They assisted in determining the feasibility of a range of growth scenarios and identifying impacts on existing communities and transport users.
6.99 Consultation with key stakeholders involved in transport decision-making, provision and campaigning was also undertaken, forming an important aspect of the assessment process. In delivering developments of the size being considered it was considered important that all stakeholders and service providers should “buy into” the process. It was also important to have considered the wishes and requirements of other stakeholders who represent key user groups. Consultees included:
Ø Highways Agency Ø Freight Transport Association Ø Strategic Rail Authority Page 48 Ø Network Rail Ø Great Western Trains Ø Thamesdown Transport Ø Stagecoach Ø Cyclist Touring Club (CTC)
6.100 This consultation exercise provided further insights into the priorities and business aspirations of the organisations with primary interests in road, rail, bus services, freight and cycling. The precise development make-up and resultant trip generation was estimated and agreed. Full use was made of Swindon Borough Council’s traffic model to test the impact of each development scenario at the agreed future years of 2016, 2021 and 2026. As part of this, the size, location and transport linkages of each potential development option were considered.
6.101 Swindon Borough Council’s traffic model was used for the analytical aspects of the assessment. The model is based on forecasts up to the end of the current Local Transport Plan, i.e. 2011. This is based on a general strategy of demand management through parking control, the introduction of Park & Ride sites and the implementation of bus priority measures. To ensure that the assessments were realistic, the developments were tested in the model for 2016, 2021 and 2026, using government produced forecasts of traffic growth over the period. The developments were assessed on the basis of the information presented in the Brief and were assessed for the following years:
Ø 4,000 dwelling scenario – 2016 Ø 9,000 dwelling scenario – 2021 Ø 18,000 dwelling scenario – 2026
6.102 In assessing the impacts of the developments, the amount of traffic likely to be generated is of vital importance. A range of data sources were used and agreed with Swindon Borough Council to ensure that realistic and agreed assumptions were made. In line with the basic predication of the Principal Urban Area approach, there are benefits of a massing of development as, the higher the level of service provision and other opportunities, the greater the proportion of trips that are likely to made within the development. Assumptions were therefore made about the increasing “internalisation” of trips, thus reducing the impact on the external transport network. At this stage no assumptions were made about additional shifts to non-car modes, over and above the standard service levels for such developments. Each of the eight cells was assessed to determine how they would be most effectively linked to the existing highway and public transport systems. Cognisance was taken of the likely size of the developments and the location of these developments.
Page 49 6.103 The potential development areas were also assessed to determine how the topography and layout might affect the delivery of a sustainable development solution. The location of the areas in relation to other facilities and services, as well as transport links was also vital in the overall review of the appropriateness of the site. In this regard, key issues were:
Ø How easy would movement by non-motorised modes be? Ø Would the site allow people to access existing and improved non-car modes? Ø Does the site allow access to existing services within Swindon, such as leisure services? Ø What is the likely impact of the development on existing urban areas (for example in providing adequate access)?
6.104 The ability of each of the eight areas to accommodate each of the three scenarios was tested against a range of policy and performance indicators in an appraisal framework. The combination of modelling, consultation and policy testing was supplemented by a ‘buildability and sustainability’ test to identify preferred options.
(h) Infrastructure and Community Facilities
6.105 In accordance with Planning Policy Guidance Note 12 and Regional Planning Guidance 10, the capacity of existing infrastructure and the need for additional facilities, including the cost of provision, should be taken into account during the preparation of development plans. Key guidance includes:
Ø “In defining suitable locations for development, plan policies should take into account the availability of adequate infrastructure”. Planning policy Guidance Note1: “General Policies and Principles”)
Ø “The provision of infrastructure is important in all major new developments. The capacity of existing infrastructure and the need for additional facilities should be taken into account in the preparation of all development plans. 'Infrastructure' here includes services like education and health and other community facilities as well as transport facilities, water supply and sewers. Local authorities must develop a strategic approach to infrastructure provision when preparing development plans”.( Planning Policy Guidance Note12: “Development Plans”)
Ø “Infrastructure and resources raise significant sustainable development issues for planning these include demand for areas of floodplain, demand for domestic water and energy supplies, emergency services and demand on social services, education and recreation”.( Regional Planning Guidance, RPG10)
Page 50 Ø “To achieve the long term sustainable use of water, water resources need to be used more efficiently. At the same time water resources and water treatment infrastructure must be available in the right location and at the right time to support development”.( Policy RE1, RPG10)
6.106 To enable the optimum capacity of the existing infrastructure to be determined the utility companies have been consulted. This consultation took the form of specific information requests to identify the location of existing pipelines and power lines, the capacity of systems to accommodate further demand, infrastructure requirements for the levels of development proposed and an estimate of the cost of provision for new development. In addition, consultations have also been initiated with community facility providers to ascertain the capacity of existing services and facilities, including education, health, community centres, libraries and leisure. Consultees included:
Infrastructure/Utilities Ø Water – Thames Water and Wessex Water Ø Flooding and Groundwater Resources – Environment Agency Ø Electricity – Southern Electric Ø Gas – Transco Ø Overhead Power lines – Southern Electric Ø Gas Pipelines – Transco Ø Ministry Of Defence (MOD) Pipelines
Note: The information on major pipelines and overhead power lines is displayed on Map 16.
Community Services
Ø Police – Wiltshire Constabulary Ø Ambulance – Wiltshire Ambulance service Ø Fire – Wiltshire Fire Brigade Ø Primary Healthcare – Primary Care Trusts and National Health Service Trust Ø Education – Swindon Borough Council and Wiltshire County Council Ø Leisure and Recreation – Swindon Borough Council and North Wiltshire District Council Ø Social Services – Swindon Borough Council and Wiltshire County Council Ø Libraries – Swindon Borough Council and Wiltshire County Council
6.107 For the purposes of the information gathering the consultees were provided with a number of assumptions and scenarios against which to base their decisions. The assumptions and scenarios were as follows: It was assumed that greenfield housing growth would be of a strategic nature. This growth would continue to increase over the medium to long term and would be accommodated in one of the eight assessment areas (A – H) in the study area, as detailed in the scenarios set out below.
Page 51 Timescale No. of dwellings Assessment Area ref. 2011-2016 1,000 D 2011-2016 4,500 A or B or C or E or F or G or H 2011-2021 9,000 A or B or C or E or F or G or H 2011-2030 18,000 A or B or C or E or F or G or H
6.108 To assess the impact of additional growth on the utility and community services, information was requested on each of the above scenarios in relation to the following matters:
Ø Spare capacity in existing facilities that might accommodate future demand (including plans to expand existing facilities) Ø Additional facilities that would be required to meet future demand Ø A broad indication of the anticipated cost of provision, i.e. high, medium, low. An indication of which areas represent the best location(s) for future housing development and which are least desirable for utility and community service provision.
6.109 Based upon the information received the potential development areas were assessed according to the capacity of existing infrastructure and services to accommodate additional development, including whether there is the potential for development to meet the costs of provision, or if the contributions required could present a constraint to development. Equally, the potential of development to support existing under used community facilities, or improve the threshold for provision to be provided locally was considered.
6.110 To undertake a comparative assessment of the different areas around the town, the results received were ranked according to how each performed relative to the others for every utility or community service; i.e. if the option was considered to have the best potential for integration and service provision compared to the other options it scored ‘A’. The other areas were then be ranked in ascending order according to their ability to meet the criteria. In some instances areas performed equally against a criterion and scoring them with the same letter reflects this (Appendix 17).
6.111 This simple scoring mechanism was used successfully in the Development Appraisal of Swindon (1999) and is considered robust and transparent. It is designed to reflect the fact that the assessment is looking at comparisons between the areas for each utility and community service. Assigning numbers to the areas was not considered appropriate as it implies that the utilities are directly comparable and the scores can simply be added up to give a total and identify the best option.
Page 52 7. Public Consultation
7.1 Regional Assembly advice (Guidance Note produced by the Regional assembly Planning Officers Group, 2002) on undertaking a Principal Urban Area study states that study findings should be subject to a public consultation process, either as a separate exercise or as part of the normal Structure Plan consultation process, preferably prior to the Structure Plan being placed on deposit.
7.2 The stages in the process and methods that should be employed in consulting on the options for development have been considered in the light of the previous consultation that was undertaken on the Swindon Development Appraisal Study (1999). Overall, this exercise was considered to be of limited value in informing the process, as it served only to highlight that the public supported development in the locations that least affected them. As such, it was considered that special effort was required to ensure that better dialogue was achieved with stakeholders and a positive contribution encouraged throughout the process. Indeed, experience from the preparation of the Waste Local Plan and the Swindon Borough Local Plan Review has shown the importance and value of regular and ongoing public and stakeholder involvement.
7.3 The first formal stage of consultation on the Principal Urban Area study took place in July 2002 prior to the commencement of Phase 2 of the study. The consultation comprised a Stakeholder Seminar held in Swindon (Pilgrim Centre) to inform invited stakeholders from a cross-section of interests of progress on the Principal Urban Area Study and to elicit a response on the methodology of Phase 1 and the proposed methodology for Phase 2. The intention was to enable a consensus opinion to be reached on the way that the projects are carried out, the methodology, so that the final results could be debated in an agreed context.
7.4 Whilst there was general support for the proposed scope and approach of the Principal Urban Area Study, there was some criticism that stakeholders were being invited to comment on the study methodology at too late a stage. Concern was expressed that the proposed consultation period for the Principal Urban Area Study was too short, particularly in respect of the communities most likely to be affected. It was also felt that officers and members of the surrounding District Councils should be more involved in the process.
7.5 To ensure that the concerns of stakeholders were fully addressed, a Public Consultation and Publicity Programme was prepared to inform both the Principal Urban Area Study and the preparation of the Wiltshire and Swindon Structure Plan 2016. This programme is summarised below:
Ø Principal Urban Area Consultation (July 2002): An event comprising a meeting and workshops was held with stakeholders from the Principal Urban Area study area to elicit their views on the methodology used in Phase 1 of the study, the methodology then proposed for Phase 2, and the key issues that should be included. Page 53 Ø Principal Urban Area Study Consultation (Autumn 2002): Further consultation was held with specific community groups within and adjacent to the Study Area, including Parish and Town Councils. This was intended to confirm the themes and principles of the Study to improve local understanding, and also to gain a better appreciation of specific concerns. Widespread consultation on all the review issues took the form of a ‘Structure Plan Review Newsletter’, publicity via posters, the Council websites and press coverage. More targeted consultation on these issues also took place through existing local community forums. Finally, three stakeholder seminars and associated exhibitions were also held; one Wiltshire based event examining the general issues, and one each in Swindon and in North Wiltshire, to examine the issues surrounding the Principal Urban Area Study.
Ø Structure Plan Pre-Deposit Consultation (April-June 2003): A Pre-Deposit Issues Consultation document was published to gauge opinion on a wide range of issues. The consultation addressed all the key issues of the review, including the Principal Urban Area, and specific issues of interest to individual communities. Widespread consultation with the public took place on the issues, including exhibitions in Swindon, Chippenham, and Salisbury. All interested parties held on the Structure Plan Consultee database 1 were notified of these events, in advance. The results of the pre-deposit consultation informed the preparation of the final Deposit Plan
Ø General consultation : It was considered necessary to maintain a more general level of contact with key stakeholders throughout the review process to ensure they continue to feel engaged between the formal stages of consultation detailed above. To achieve this officers from both Councils offered an open invitation to any interested party to engage in dialogue and this option was taken up by various Parish and Town Councils. Swindon Borough Council has also maintained regular dialogue through its Parish Clerks Forum, as well as the Swindon sub-region of the Wiltshire Association of Local Councils.
Ø The two Council websites have also be used to full effect throughout the process to make information accessible to the public. Each stage of the review has been publicised, with newsletters and other relevant information made widely available.
Ø At each stage of the process press releases have been issued and followed up to encourage press coverage of the key issues and stages of the review more generally.
7.6 The Pre-Deposit Consultation Document attracted comments from a total of 622 respondents including individuals, developers, agents, businesses and interest groups, making over 5,400 representations on the issues. Those
1 The Structure Plan Consultee database comprises a wide range of organisations, community groups and individuals who have expressed an interest in being involved in the previous and current Structure Plan Review. It includes all the key stakeholder groups, including Town and Parish Councils, all the local authorities within and adjoining the Structure Plan area and the established local forums/community groups. Page 54 issues relating to the Swindon Principal Urban Area were included in Issue 3. The majority of respondents to Question 3.1:
“Do you agree with the Quality of Life Principles set out in Figure 3?”
stated that they did agree with the principles identified. They considered the principles to be highly laudable, although concern was expressed as to how they could be delivered in reality. Many respondents didn’t consider that they could object as the principles generally reflected Government Guidance, best practice and common sense. The key was turning aspirations into reality.
7.7 Appendix 16 summaries the most commonly stated concerns raised by objectors to Question 3.2:
“Taking into account the issues in Figure 4 (Key Issues), what are your three priority issues that should be taken into consideration in influencing where development should go at the Swindon Principal Urban Area? These may include different issues to those listed.” (It should be noted that this summary only includes the top twelve most frequently stated responses, not the full range.)
7.8 The Joint Strategic Planning Authorities consider that Question 3.2 identifies those issues that matter to the local community, without becoming embroiled in a battle of locations for any potential future development. This question enabled those issues of greatest concern, i.e. non-coalescence of Swindon with its surrounding smaller rural settlements, to be incorporated into the Principal Urban Area study from the outset. The comments that local communities make have had a direct influence on the outcome of the study.
7.9 Question 3.3 asked:
“Do you think that future development at the Swindon Principal Urban Area should take the form of an urban extension that adjoins the existing built up area of Swindon (e.g. land east of the A419) or settlement expansion at the settlements of Purton and Lydiards, Wootton Bassett or Wroughton?”
Responses to this question appeared to be heavily influenced by the place of residence of the respondent. Generally, those respondents from rural settlements on the west of Swindon considered that future development at the Swindon Principal Urban study should firstly focus within the existing urban area before going eastwards, east of the A419. Conversely, a smaller proportion of respondents along Swindon’s eastern periphery did not consider that development east of the A419 was necessarily the answer. Consequently, the location of future development was heavily influenced by residency, not necessarily providing a truly objective response. The responses to Question 3.2, the principles influencing development, appear to offer greater consistency.
7.10 Developers and agents acting either on their own interest, or on behalf of clients, promoted their site as the most sustainable location, sometimes commenting on the weaknesses of alternative locations. The standard Page 55 response reinforcing the sustainability foundations of the Principal Urban Area study was:
“The Swindon Principal Urban Area Study will determine the most sustainable direction(s) of growth for Swindon, which may be expansion of the named settlements or an urban extension to Swindon, north, east, south or west.”
7.11 Question 3.4 explored the issue of the Principal Urban Area study meeting either current needs, or those beyond 2016:
“Do you think that development at the Swindon Principal Urban Area should merely meet needs to 2016 or be the first phase of a larger development with longer term growth potential?”
The Joint Strategic Planning Authorities consider that Regional Planning Guidance (paragraph 1.2) makes a clear statement that the purpose of the guidance:
“sets out a broad development strategy for the period to 2016 and beyond;”
7.12 Therefore, the Joint Strategic Planning Authorities consider that the Swindon Principal Urban Area Study is not primarily concerned with accommodating a specific size of development, rather examining the most sustainable direction to accommodate growth. This growth is both that identified up to 2016, as well as the growth beyond 2016. (This was confirmed by nearly two thirds of respondents.) This issue, particularly with regard to the economic consequences of both embracing and maintaining growth, were explored in greater detail in Chapter 3.
7.13 Question 3.5 addressed the issues of a University for Swindon, potentially the University of Bath in Swindon. The question posed was:
“Do you think that a University should be provided at Swindon? Where should a University at Swindon be located?”
Those respondents who specifically answered this question generally thought a University would be advantageous to Swindon and its surroundings (nearly 60%), particularly to retain those young people who currently leave the area, as well as stimulating the economy through a higher educated workforce. However, very few comments were made regarding a specific location, with the exception of references to the urban regeneration potential that such a use would have, if located close to, or within, Swindon’s central area. A generic response stating the Joint Strategic Planning Authorities views on this matter was made to respondents:
“The identification of a University at Swindon is considered a key part of delivering a high quality lifestyle for all of Swindon and Wiltshire’s residents through increased education opportunities and benefits to the local economy. A comparative assessment will determine the most sustainable location, addressing issues such as transport and potential impacts on the town centre. Due to its strategic importance, the strategic planning Page 56 authorities consider it appropriate to identify a location through the Structure Plan process, with a specific policy identifying relevant requirements.”
7.14 The last Question in section 3, 3.6, asked:
“Do you think that Swindon needs a new strategic employment site? If so, what should influence its location?”
The majority of respondents did not consider that a new strategic employment sites was required (only one third considered it appropriate). Attention was drawn to existing vacant premises and land within the urban area, along with the potential regeneration advantages that could be gained from reusing existing land and buildings.
7.15 The Regional Development Agency, in response to the consultation document, did not provide any justification for such a site, either in terms of the actual number, or indeed locational requirements. Instead, they focused on employment sites already benefiting from planning permission, essentially re-naming them for marketing purposes. Consequently, the Joint Strategic Planning Authorities do not consider it prudent to allocate a further site, based on no justification or evidence being forthcoming. In response, the following standard phrase was used:
“There is no evidence that above and beyond the existing 50 hectares of Class B employment areas that have been identified, Swindon requires a further strategic employment site. Therefore, an additional strategic employment site is not proposed, only 50 hectares of general Class B employment land.”
7.16 Lastly, Question 7.1 addressed the definition of a boundary for the Principal Urban Area. This question did not refer to the boundary of the study area, rather the boundary of the future Principal Urban Area itself. The Swindon Principal Urban Area boundary will encompass the whole of the existing urban area based on the urban area boundary identified through the Swindon Borough Local Plan 2011, including existing built development at Honda, Keypoint, South Marston Park and the Great Western Hospital, including allocations and commitments (Northern Development Area, Southern Development Area, the “Triangle Site” employment area), as well as any future direction(s) of growth indicated through the Principal Urban Area study, as defined in Map 18.
Page 57 8. Overall Assessment Methodology
8.1 In formulating an overall assessment methodology for a Principal Urban Area Urban Extensions study, regard has been given to a variety of guidance, including Regional Planning Guidance and best practice.
8.2 In addition, good practice elsewhere needed to be considered. Whilst there is no one source of guidance yet available other similar studies have provided a valuable source of information. In particular, the Swindon Development Appraisal Study (DAS) (1999), undertaken to inform the adopted Wiltshire Structure Plan 2011, is still considered relevant and formed an important source of reference for this study.
8.3 The Urban Extensions Study seeks to assess the development potential of the Swindon Principal Urban Area, adopting a similar methodology to the Swindon Development Appraisal Study (1999). However, there are a number of distinct differences, not least, the Swindon Principal Urban Area study covers a much larger geographical area than the Swindon Development Appraisal study, being driven by the objective of identifying the most sustainable direction(s) for new development rather than a specific housing quantum. The following summarises the main stages of the overall assessment.
Step A: Purpose 8.4 Using the information and results produced in the specific topic assessments and appraisals, the aim of the overall assessment is to comparatively assess all the eight potential development areas identified in the Phase 2 of the Swindon Principal Urban Study Area. This assessment will determine the most sustainable direction(s) of future strategic development, i.e. having the least negative impact. The objective of this assessment was to draw together the results from the following individual technical assessments:
Ø The Environmental Appraisal Ø The Transport Assessment Ø Access to Community Facilities Assessment Ø Access to Employment Assessment Ø Assessment of Utilities and Community Service Provision Ø Landscape Assessment Ø Aerial Photograph/Biodiversity Assessment Ø Public Transport Accessibility
Step B: Sustainability Indicators 8.5 To measure the development potential of each development cell they all will have to be assessed against clearly defined sustainable development criteria. As such, a series of indicators have been formulated, generated from the Quality of Life Indicators, Structure Plan objectives and Government Guidance (Appendix 12). In addition whilst formulating these indicators account has been taken of previous indicators used in the Swindon Development Appraisal Study (1999), adopted Regional Planning Guidance and advice contained within the urban extensions study guidance Page 58 note produced by the Regional Assembly Planning Officers Group (2002). The indicators were based upon both quantitative and qualitative information.
Step C: Area Ranking 8.6 The overall assessment takes the qualitative and quantitative results produced in the individual assessments (identified in the bullet points in paragraph 8.4), so that the individual areas could be ranked according to how each performs relative to each other for every feature; i.e. if the option was considered to have the least negative impact on the natural and built environment compared to the other options it scored ‘A’. The other areas were then ranked in ascending order according to their ability to meet a criterion. In some instances areas performed equally against a criterion and scoring them with the same letter reflects this.
8.7 This simple scoring mechanism was used successfully in the Swindon Development Appraisal Study (1999) and is considered both robust and transparent. It is designed to reflect the fact that the assessment is looking at comparisons between the areas for each feature. Assigning numerical values to each assessment was not considered appropriate, as it would imply that the indicators are directly comparable and the scores can simply be added up to give a total and identify the best option, which is not the case.
8.8 Importantly, the scoring mechanism did not assign any weighting to individual indicators at this stage. However, in reality some sustainability criteria are more important than others in the overall assessment. This is the subject of stage D.
Step D: Evaluation and impact on development potential 8.9 At this stage overall weightings are be applied to differentiate the relative importance of the sustainability indicators. For example, in response to the overwhelming results from the Pre-Deposit public consultation exercise, combined with the policy status remaining a key component of the replacement Structure Plan, rural buffers were considered to be of high importance.
Step E: Area Profiles 8.10 The ranking exercise forms only part of the assessment and the results do not in themselves determine the preferred direction(s) of growth. This was further refined by the qualitative analysis in the area profiles that identifies more precisely the opportunities and constraints for each potential development option, culminating in an overall sustainability ranking.
8.11 Together, with the information arising out of the above studies, area profiles are considered to be an appropriate method to present the findings of the analysis, with each profile containing a brief description of the area, and a summary of the existing characteristics. The final section of the profiles includes a description of the specific issues raised for each area.
Page 59 9. Employment Accessibility Results
9.1 Table 1 and Chart 2 below show the number of employees in each potential development cell within four distance buffers (<1 Km, 1-2Km, 2-3 Km, 3-4 Km.). Map 5 illustrates the largest job generating locations in the Principal Urban Area.
Table 1 Assessment Area Jobs A B C D E F G H Within Area 400 100 100l 3,500 700 2,400 500 100 Within 1km* 10,800 7,500 10,400 9,600 12,600 9,000 8,100 2,600
Within 2km 19,600 11,200 22,200 19,500 19,500 9,600 17,200 9,600 Within 3km 27,300 26,500 32,500 46,400 49,900 15,500 24,000 18,700 Within 4km 46,900 34,000 58,800 64,000 66,600 20,500 43,200 46,700
*including employee jobs within the assessment zone
9.2 Only Assessment Areas D and F have any significant level of employment opportunities within the areas of potential development. In the case of Area D it includes the newly opened Great Western Hospital, whilst Area F includes Wootton Bassett.
9.3 Within 1km of the assessment area boundaries only Area H has significantly fewer employees than the other areas. At 2km the variation between areas is more pronounced with a difference of 12,600 employees between the top and bottom areas. This difference increases with distance from the assessment areas, such that at 4km the spread between top and bottom is 46,100 employees.
Chart 2: Access to Employment
70,000
60,000 3-4km
50,000
40,000 2-3km
Employees 30,000 1-2km 20,000
10,000 0-1km 0 ABCDEFGH Assessment Area
Page 60 9.4 However, it is important that not only are there a large number of employment opportunities within a short distance to encourage a modal shift away from the private car in any future urban extension, but also a range of job types. Tables 2 and 3 show the number of employees segregated into Class B of the Use Class Order within 1km and 4km of each assessment area. In order to simplify the analysis several use classes have been combined which have similar types of occupations.
Table 2 Number of Jobs within 1km of Assessment Area Use Class A B C D E F G H A/D2/SG 300 700 600 200 500 800 1,000 100 B1 1,800 900 2,900 5,000 9,000 4,800 4,800 800 B2 5,800 4,000 1,100 0 1,700 2,000 800 900 B8 2,200 2,000 1,700 0 300 800 500 200 C/D1 800 100 4,100 4,400 1,200 600 1,000 700 All Uses 10,800 7,500 10,400 9,600 12,600 9,000 8,100 2,600 Totals may not sum due to rounding
Table 3 Number of Jobs within 4km of Assessment Area Use Class A B C D E F G H A/D2/SG 5,500 3,400 8,100 14 ,200 13,900 4,400 9,700 9,800 B1 19,500 9,70025,800 28,200 30,900 8,700 20,800 23,500 B2 12,50011,000 9,900 7,500 6,900 2,900 6,300 6,100 B8 4,900 5,800 5,600 4,900 5,600 2,200 3,000 3,500 C/D1 4,300 4,000 9,400 9,200 9,300 2,300 3,400 3,800 All Use s 46,900 34,000 58,800 64,000 66,600 20,500 43,200 46,700 Totals may not sum due to rounding
9.5 Within 1km of the assessment area boundaries, Areas E, F and G offer the widest range of employment opportunities. Area D has no Class B2 or B8 employment within 1km. However at the 4km level of analysis the main differences occur within the B1 use-class. Areas B and F have significantly fewer B1 employees within this band.
9.6 The Second Deposit Draft Swindon Local Plan 2011 allocates 38ha of new employment at an area between the A419, the A361 and the B4141, known locally as the “Triangle Site”, for predominantly Class B use. If developed it is estimated that this site would add about 2,300 jobs to the area (if Class B1). This area is within Assessment Area A, but is also within 2km of Area B.
9.7 The Southern Development Area is an integral part of the Borough‘s physical development strategy for the period up to 2011. It is anticipated that about 15ha of this strategic growth area will be developed for Class B use, providing about an estimated 750 jobs. Local schools and shopping centres are expected to add a further 500 jobs in this area. This will be within 1km of Area E and 2km of Areas D and F. Page 61
Individual Area Assessments 9.8 Each potential development cell is analysed in terms of its accessibility to employment, summarised below. No account has been taken of environmental or other factors (these are dealt with elsewhere in this report). Existing physical barriers such as major roads or railway lines are taken into consideration when determining how accessible each area is.
Area A 9.9 Area A lies to the northeast of the existing urban area and includes the existing settlement of Broad Blunsdon. It includes the Second Deposit Draft Swindon Local Plan 2011 employment area “Triangle Site”. It is also adjacent to South Marston Industrial Estate, Honda, Motorola and the remainder of the Haydon Sector employment allocation.
9.10 Currently about 10,800 jobs are within walking distance of Area A; although the A419 is a physical barrier to all except those at South Marston and Honda with at present, very few crossing points. The majority of this employment is Class B2 and presently there is a lack of Class B1 office employment in this area. However, the “Triangle Site” could provide Class B1 office jobs in the future.
9.11 Within 4km of Area A there are currently about 46,900 jobs located at the industrial estates at Britannia, Europa, Kembrey, Techno and Elgin. The town centre is just on the 4km limit so it is unlikely that many would choose to cycle to the town centre from this area. Again there is currently a lack of Class B1 office jobs and also relatively few Class A jobs. The current cycle- path network is currently less developed here than in other parts of the urban area, and the A419 would present a considerable barrier to cycle trips from this area.
9.12 Although there are a considerable number of jobs within walking and cycling distance of Area A, the A419 presents a barrier which, combined with the limited range of jobs means that the overall employment accessibility assessment for Area A is Fair , although development of the Triangle site could bring it up to Good (if Class B1).
Area B 9.13 Area B lies to the northeast of the existing urban area, but south of Area A. It includes the existing settlement of South Marston and is adjacent to South Marston Industrial Estate, Honda and the Keypoint Rail-freight terminal. It is also close to St Margaret’s Retail Park.
9.14 Currently about 7,500 jobs are within 1km of the boundary of Area B, the second lowest of all the Assessment Areas. However the “Triangle Site” development could improve the level of jobs available and would also improve the balance/variety of jobs available. Most of the jobs within walking distance are on the same side of the A419 as the development area (eastern). As with Area A, the majority of jobs are in Class B2.
9.15 Within 4km of Area B are the industrial estates at Britannia, Europa, Page 62 Kembrey, Elgin, Techno, Greenbridge and Dorcan. Also the Greenbridge Retail Park is about 3km from this Area. In total about 34,000 jobs are within cycling distance; the second lowest of all the assessment areas. The A419 presents a barrier to cycling to the urban area, with the roundabout at the junction of the A420 providing the only existing crossing point into/out of this Area (footbridge link). The cycle path network to this Area is less developed than in other parts of the town.
9.16 The current relatively low number of jobs within walking and cycling distance and the barrier of the A419 means that the overall employment accessibility assessment for Area B is Poor , although development of the “Triangle site” could bring it up to Fair (if Class B1)
Area C 9.17 Area C lies to the east of the existing urban area and includes the existing settlement of Wanborough. It is adjacent to Dorcan Industrial Estate and St. Margaret’s Retail Park. However the A419 presents a barrier with relatively few existing crossing points.
9.18 Currently about 10,400 jobs are within 1km of the Area boundary, but over 3,000 of these are at the Great Western hospital at the southern tip of this area. To access all of these jobs would require crossing the A419.
9.19 About 58,800 jobs are within 4km of the boundary of Area C, including all the industrial estates in the eastern part of the urban area. The Town Centre is also just within 4km of Area C. The range of jobs is also good although most of the office type jobs (Class B1) are at the limit of the 4km buffer. The A419 and to a lesser extent the railway line are physical barriers to cycling.
9.20 Although there are considerable numbers of jobs within walking and cycling distance of Area C, the A419 barrier means that the overall employment accessibility assessment for Area C is Fair .
Area D 9.21 Area D lies to the southeast of the existing urban area and includes the new Great Western Hospital. The Pipers Way Business Park is adjacent to this area.
9.22 Currently about 9,600 jobs are within 1km of Area D. However there are no Class B2 or B8 jobs and few Class A jobs within walking distance. There are relatively few physical barriers apart from Coate Water Lake.
9.23 There are about 64,000 jobs within 4km of Area D, however most of these are in the Town Centre. The industrial estates of Dorcan and Greenbridge are also within 4km. The range of jobs is good, with perhaps a slight deficiency in Class B2 jobs. The cycle network is quite well developed in this area although the hills involved in crossing Old Town could present a disincentive to cycle to and from the Town Centre.
9.24 Whilst there is some reliance on just two major employers for jobs within walking distance, the large number of jobs within cycling distance and the Page 63 lack of physical barriers means that the overall employment accessibility assessment for Area D is Good .
Area E 9.25 Area E lies to the south of the existing urban area south of the M4 motorway and includes the large village of Wroughton.
9.26 About 12,700 jobs are currently within 1km of this area, mainly at Blagrove, Euroway and Lydiard Fields Industrial Estates, and Windmill Hill and Pipers Way Business Parks. However, these locations are at the extremes of the assessment area. In addition development of the adjacent Southern Development Area will provide further job opportunities. The majority of jobs are Class B1, primarily being office jobs. However the M4 motorway is a major barrier restricting access to these employment areas, although there are a number of existing crossing points. The railway is also a major barrier to those jobs in West Swindon.
9.27 Currently about 66,600 jobs are within 4km of Area E; the highest figure for all of the Assessment Areas. These are located at the Town Centre and also at Westmead, Rivermead, and Greenbridge Industrial Estates. Class A jobs are also found at the Great Western Outlet Centre and Bridgemead area. However, the M4 motorway again presents a major obstacle in accessing these areas by cycle. In addition the Old Town ridge is another potential disincentive to cycle into the Town Centre and the existing cycle-path network in this area is poor, although it will improve with development of the Southern Development Area. The range of jobs is also good within the 4km threshold for this Area.
9.28 Although there are considerable numbers of jobs within walking and cycling distance of Area E, the M4 Motorway and railway line are considerable barriers to access, particularly for those jobs in West Swindon. The overall employment accessibility assessment for Area C is Fair .
Area F 9.29 Area F lies to the southwest of the existing urban area and south of the M4 motorway and includes the town of Wootton Bassett.
9.30 About 9,000 jobs are currently within 1km of this area of which about 2,500 are located at Wootton Bassett. The industrial estates of Blagrove, Euroway and Lydiard Fields and the Windmill Hill Business Park are adjacent to the eastern end of this area. There are also three large hotels near to this Area. However the M4 Motorway (Junction 16) is a major barrier of access to these jobs in West Swindon from this Area.
9.31 Only some 22,000 jobs are currently within 4km of Area F, the lowest figure of all the Assessment Areas. The Town Centre is beyond 4km and the Great Western Outlet Village is on the limit of this threshold. There is a deficiency across all Use Classes particularly A and B2. The M4 motorway presents a major obstacle in accessing employment areas in Swindon from this Area.
9.32 With a very low number of jobs within walking and cycling distance and the Page 64 barrier posed by the M4 motorway the overall employment accessibility assessment for Area F is Poor.
Area G 9.33 Area G lies to the west of the existing urban area and includes the settlements of Purton and Lydiard Millicent.
9.34 About 8,000 jobs are currently within 1km of this area, mainly at the adjacent Windmill Hill Business Park and Lydiard Fields. The West Swindon District Centre is also fairly close to the western boundary of this area. The range of jobs is good with the highest number of Class A jobs of all the assessment areas. There are no major physical barriers to this area. The footpath network is well developed in West Swindon and could be extended into the development area.
9.35 About 43,000 jobs are currently within 4km of Area G including the industrial estates at Rivermead, Westmead, Hillmead Blagrove, Euroway, Lydiard Fields and Cheney Manor. However the Town Centre is on the limits of this threshold. In general there is a good range of jobs. The cycle-network through West Swindon is well developed and could be easily extended into this Area.
9.36 Although not having the largest number of jobs within walking and cycling distance, the range of jobs within the thresholds gives increased potential. Together with the lack of physical barriers and existing footpath and cycle path network this results in the overall employment accessibility assessment for Area G being Good .
Area H 9.37 Area H lies to the northwest of the existing urban area and is adjacent to the current Northern Development Area.
9.38 Only about 2,700 jobs are currently within 1km of Area H; the lowest of all the Assessment Areas. However future development at the Haydon Area could provide further job opportunities. There are few physical barriers to access from this Area other than the River Ray. The footpath network will be enhanced with the Northern Development and could be extended into assessment area.
9.39 There are currently about 48,000 jobs within 4km of Area H including Cheney Manor Industrial Estate, Motorola, Hillmead, Rivermead and Westmead. The range of jobs is fairly good. However the Town Centre, South Marston Industrial Park, Blagrove, Euroway and Lydiard Fields are at the limits of this threshold. The cycle-network in the Northern Development Area has yet to be fully developed but once completed could easily be extended into Area H.
9.40 Even with completion of the Northern Development Area, there is a significant lack of jobs particularly within walking distance of this area. Most of the jobs within cycling distance area at the limits of the threshold. The overall employment accessibility assessment for Area H is therefore Poor. Page 65
Summary 9.41 Table 4 below summarises the Employment Accessibility for each Area. The overall assessment is based on the current situation but it is recognised that future development of both employment sites and sustainable transport networks could alter the assessment.
Table 4 – Summary of Assessments
Assessment Area Overall Assessment Comments Area A Fair Potentially ‘Good‘ if ‘Triangle Site’ developed Area B Poor Distant from urban area. A419 major barrier. Potentially ‘Fair’ if ‘Triangle Site’ developed. Area C Fair A 419 major barrier to walking/cycling. Area D Good Lack of manufacturing jobs within walking distance. No major barriers other than Old Town ridge. Area E Fair M4 major barrier to walking/cycling. Needs to be integrated with SDA. Area F Poor Most distant from major employment areas. M4 major barrier to walking/cycling. Area G Good Needs integration with West Swindon. Relatively distant from the Town Centre. No major barriers. Area H Poor Lowest number of jobs within walking distance. Relatively distant from the Town Centre. Needs integration with North Swindon.
.
Page 66 10. Transport Assessment Results
Areas A, B & C 10.1 Areas A, B and C lie to the east of the A419, which has limited and congested junctions crossing it, even at present. Allowing for the construction of the new Blunsdon bypass, and the “Triangle Site” development, it is estimated that the existing capacity is no more than 1,000 vehicles per hour. Without significant investment, or a step-change in the modal share, this limits development to only the smallest of the scenario by 2026 (4,000 dwellings). From a traffic engineering perspective there are limited opportunities for increasing the capacity unless further and significant realignment of the A419 takes place. The construction of additional junctions is possible, although limited due to the proximity of other junctions. The construction of the Blunsdon bypass will generally be in a cutting, so additional junctions in that section are extremely limited. All of the areas do, however, have the benefits of proximity to the major employment zones around Honda/Triangle and Northern Development Area. Areas B and C could also benefit from a new rail station located close to Shrivenham, which would significantly reduce the level of traffic generated by the area.
10.2 Access to the local road network for Areas A, B and C would all in some way require a connection onto the A419, or have access across the A419. All east west movements are constrained by limited additional capacity at each of the existing junctions. New major road infrastructure would be required for each of the areas. Discussions with the Highway Agency have indicated that adding additional capacity at existing junctions, or adding new junctions, would be unlikely to be viewed favourably. In addition, there are engineering constraints to providing additional capacity at these junctions or the addition of new junctions, associated with junction spacing and land availability. A solution common to all Areas A, B and C would be the relocation of the A419 further east, effectively running along the eastern boundaries of the potential development cells.
10.3 For Area A an alternative to the larger re-routing of the A419 would be to provide a new road link through the site which would loop around Blunsdon, cross the A419 and connect into the local road network in the region of Roughmoor. There would be implications for the Northern Orbital Road, which would need upgrading and would have the disadvantage of increasing severance to the residential areas in the Northern Development Area.
10.4 Area B could have access provided by bypassing the A419 north of Commonhead, pass through the area and rejoin in the region of Turnpike roundabout. This would have the disadvantage of cutting the site in two, thus severing the area unless the route was designed to follow the outer boundary of the site. If the re-routing option were to be considered then it would be prudent to review the options to improve performance at Junction 15 of the M4 Motorway. Improvements could be made in line with the SWARMMS recommendations to the west–facing slip roads. However, if major re-routing of the A419 were to be considered then consideration could be given to providing a new junction east of the existing location, possibly
Page 67 close to Liddington or King Edward’s Place. The existing Junction 15 could then be converted to an over-bridge, having the additional advantage of opening up access to Area D. This option would have major environmental issues, and a very large cost implication. (in the region £30 to £70 million depending on the scale of the improvement). This route, as with any new route to the east of Swindon would have significant environmental impacts.
Area D 10.5 Area D is constrained for space and by highway capacity. The only access point to the area is via the junction of the A4259 and B4006. This junction allows access on to the A419 via Commonhead Junction and into town along the A4259. In both cases capacity is severely constrained and without significant investment the site would be limited to the smallest of the development scenarios (4,000 dwellings). The corridor into the town is however not constrained by land issues and additional capacity could be delivered. The area would also benefit from its location in close proximity to the Southern Development Area and the commercial activities immediately to the west of the A419.
10.6 Area D would require major improvements to the existing roundabout junction on the A4259/B4006, and along the A4259 into town. The proximity of the area to the town centre is an advantage in terms of encouraging use of public transport, and the bus operators have expressed a liking for the site. Some additional widening would be required along the A4259 into town to cater for the increased traffic demand, combined with a significant increase in bus capacity (up to say 12 buses per hour) to ensure that car- based demand is minimised. No new link could be provided into Commonhead or directly onto the A419 as these options are not practical given the current network configuration and reservations expressed by the Highway Authority.
10.7 Given the levels of demand likely to be generated by the area it would be necessary to link into the major road network in some way. Given the restrictions on accessing the A419, direct consideration should be given to gaining indirect access either via a new link road crossing the M4 Motorway south and connecting with the B4005 near Chiseldon, or a new road crossing the A419 and joining it via an approach to Commonhead from the east. In the first instance major upgrading of the B4005 would be required and there would be capacity issues at Junction 15, which would need to be addressed through significant works to the junction and, most likely, the structures that support it. In the second instance upgrading of the selected eastern approach would also be required.
Area E 10.8 Area E has poor access to the M4/A419 with low capacity roads the constrained Junctions 15 and 16 of the M4 Motorway. The area will benefit significantly from the infrastructure and services delivered through the Southern Development Area, and the proximity of the Wroughton Road Park & Ride site. To provide for sufficient highway capacity, however, would require a significant amount of newly constructed highway. The area would benefit from and use of the facilities in both the Southern Development Area Page 68 and in and around Wroughton.
10.9 Area E has no opportunities for new roads to link into the existing network. All access would be via existing roads and, because of the constrained nature of the local road network in the south of Swindon, the area would need to be linked to the high capacity road network to the south of the M4 Motorway. In this regard the site is constrained by the capacity of Junctions 15 & 16 of the M4 Motorway and the A4361. Site E would require the upgrading of the A4361 route into Swindon and also the B4005/A346 to access the M4/A419. The area however would have the benefit of the Wroughton Park & Ride site and the new public transport services provided as part of the Southern Development Area.
Site F 10.10 Site F is the only other site that could be served by a mainline rail link, by the provision of a station close to Wootton Bassett. This would be an essential element in the transport provision as the only link to a high capacity highway network would be through Junction 16 of the M4 Motorway, which will operate well over capacity by 2026. The development would also be distant from the main urban centre, although there are a number of local services, admittedly north of the M4 Motorway.
10.11 The development of Area F is heavily constrained by Junction 16 of the M4 Motorway since this is the only main route from Wootton Bassett into Swindon. Junction 16 is over capacity during peak times and already suffers from considerable delays. Major improvements would be required at this junction to facilitate development at this location. There are a number of proposals currently being considered to improve Junction 16 one of which would be to split the junction, i.e. keep the east facing slip-roads where they are now, but move the west facing slips westwards along the M4 Motorway to a location north of Wootton Bassett, as per the SWARMMS recommendations, or bypassing the junction to take traffic through the Southern Development Area. In consideration of the constraints on the network to the north of the Southern Development Area it is considered that the new link road from a new partial movements Junction 16 is the preferred option. A major benefit of developing this area around Wootton Bassett is the potential for a new railway station on the main line into Swindon. However, as with Areas B and C, it is considered by all parties responsible for the provision of the rail system that this is unlikely to occur without a significant shift in rail policy.
Areas G & H 10.12 Areas G and H are limited by the low capacity highway network linking to the strategic and distributor road network. Both areas place significant traffic pressure on Thamesdown Drive, Lady Lane and the “old” A419. The problems are therefore concentrated on key junctions on the A419. Even with the introduction of the Purton-Iffley link, capacity is limited. There are opportunities, however, to improve existing links such as Tewkesbury Way (B4553), which could provide additional capacity. Of the two areas H is better located in terms of proximity to other services and opportunities.
Page 69 10.13 Area G has good opportunities to connect into the existing local distributor road network. Access to the site is not dependent on linking directly to the trunk road network and there are good potential connections into Swindon via the upgrading of existing routes. Area G would connect via an upgraded Tewkesbury Way and the B4553 all of which appear to have space to increase the road capacity and provide bus priority measures. Area G could also be tied into the Purton-Iffley link via a bridge over the railway line. Detailed consideration will need to be given to the impacts of passing more traffic through the Blagrove roundabout, specifically identified as a problem in the SWARMMS study, although not identified as such in the modelling work undertaken. In the longer term Area G might benefit from the construction of the SWARMMS Junction 16 link road improvements that would enhance its accessibility, although this would need to be considered in terms of the internal layout of the site. Area G has the added benefit of a potential new railway station on the branch line to Swindon.
10.14 Area H also has good opportunities to connect into the local road network. Area H could easily tie into the Northern Orbital Road and the Purton-Iffley Link and would have the benefit of access to all the existing public transport, educational and shopping facilities available in the Northern Development Area. However, the Northern Orbital Road is forecast to have considerable capacity problems by 2026 and any further capacity enhancements would have a severe and detrimental impact on the permeable and cycle/pedestrian friendly nature of the Northern Orbital Road.
Summary 10.15 The table below provides a qualitative assessment of the cost, buildability and sustainability issues related to access for the areas. The costs for the schemes are shown below, based on the consultant’s knowledge of physical and engineering constraints and on the type of scheme delivery barriers encountered during the implementation of other major projects. The advice and inputs from our stakeholder consultations have also helped to form a view on each area. (Map 7 summarises the main elements of the transport network.)
10.16 The analysis in the table below gives each element of each site a grade from A to C, with A being good, B being intermediate and C being poor. In general each of the schemes has one C-grade for one of the elements of the assessment. Only site G is indicated as having intermediate of better for all aspects of the general access arrangements.
Site Cost Buildability Sustainability A, B and C C The options for B The majority of the route B The access arrangements do improvement are limited is in undulating little in terms of sustainability. to major highway countryside, with little in By continuing to provide high construction. The the way of difficult quality and high capacity construction would be topography, aside from highway access sites A, B at a minimum 13km, the Blunsdon Hill. The route and C are likely to be more maximum more likely to would need to be aligned car-reliant. be 22km. Structures with great care, avoiding would be required at small villages and However, opportunities are the tie in points with the hamlets. The extent of available if both HA and SBC existing A419, and at the construction is the worked closely together. the junctions with major major constraint. Access to the new A419 could cross-routes such as be limited to reduce the ability the A420 and A361. of those living in the new Page 70 The option of a new developments to use the new junction onto the M4 road, effectively internalising would add substantially most of the journeys onto to the cost. local roads (including the old A419). With the reduced Cost traffic demands on the old Scheme A = £34M A419 opportunities for public Scheme B = £69M transport priority at junctions Scheme C = £73M and along the route would increase integration of the new development area. D A Major upgrading of the C If a link it taken across B The access is very reliant on roundabout or the the A419 then there are the trunk road and motorway construction of a major unlikely to be particular network and would encourage new junction on the problems to be longer rather than shorter A4259 and the possible addressed, other than the distance trips. The links to construction of a new problem of crossing the the bus network and corridors link road south across A419 without constructing with significant bus priority do, the M4 (5.6km) or A419 excessively large and however, offset this. (1km). Structures would unsightly structures. be required to cross Linking into the A346 is either road. The B4005 more problematic, with a and A346 would require crossing of the motorway some upgrading and being difficult and then some improvements the need to find an may be required at acceptable route around Junction 15 Chiseldon and traversing the steep slope to the Cost north of Chiseldon. Scheme D = £13M
E B Upgrading the B4005 to B The B4005 route is rural C The ability to link to the park junctions 15 and 16 and and has space to be and ride site on Croft Road is the upgrading of the upgraded with ease, as very positive but the route into Swindon via does the A346. Key construction of a considerable the A4361 will be constraints to overall length of new carriageway to required to provide delivery are the capacity serve a single development. adequate access. The constraints on the two length of new build (or motorway junctions, the significant delivery of an acceptable improvement) would be “bypass” solution for in the order of 8km. Wroughton and dealing with the steep gradients Cost immediately north of Scheme E = £21M Chiseldon.
F A Developing a workable B In situ improvements to C The site access, combined solution will require Junction 16 is probably with limited opportunities for either considerable not feasible because of public transport modes, improvements to constraints to the north of means that the site is likely to Junction 16 in situ , or the junction, but some be car-dominated. the construction the improvements of a limited new limited movement nature could be The best access option, the junction north of delivered. limited movements junction, Wootton Bassett as set requires considerable new out in SWARRMS. The construction of the build in a Greenfield location, Both are expensive new, limited movements but which serves nothing solutions for a site that junction and link road to other than the Site F has limited alternatives the north is also feasible. development. to the car.
Cost Scheme F = £20M
G B No new link roads are B Both the B4553 and A The development would link required. The B4553 Tewkesbury Way have directly into the existing and Tewkesbury Way space to increase distributor road network, will all need to be capacity with ease, albeit encouraging drivers to use significantly upgraded no information on land local facilities rather than use to provide access onto ownership or service the strategic road network. the local road network. locations has been Links to the Purton- identified. Iffley link would also be required across the railway line.
Page 71 The constrained nature of the residential distributor roads could result in significantly increased costs through the need for traffic management and the movement of services.
Cost Scheme G= £21M
H B The site is more would A There are no particular C The link to the Purton-Iffley be linked to the Purton- constraints to the link is an acceptable link to Iffley link and the old construction, aside from the main distributor road A419. Linking on to the detailed issues of space network. However, the link old A419, probably via and levels in crossing the via Lady Lane would result in Lady Lane. The Blunsdon bypass and a significant loading of the junction with the old linking to the old A419. route through Blunsdon A419 and the crossing village, reversing the of the bypass would be improvements generated by costly. the bypass. The modelling indicates that this is the Any link to the NOR preferred route and would would require costly also result in increased upgrading of the congestion at the Turnpike existing route. junction.
Cost Scheme H = £22M
Results
10.17 Firstly the sites were compared by size, i.e. rankings of each of the 4,000, 9,000 and 18,000 dwelling developments were compared to each other. This allows an initial indication of which sites are best at each level of development, and identifies those that are only really viable for a subset of the development sizes postulated. Secondly, the sites were ranked on the basis of the average rank across all three possible development scales to determine the best overall site. It is against this second ranking that the overall recommendations have been made.
10.18 The initial results of the comparison at each development size are summarised below.
Sites
Rank 4000 units 9000 units 18000 Combined units
A D D E E B C, A, H E A, H H C H C D C G G E B, G G C A, D F B B G F A F B H E F D* F * - Site D was ranked last for the 18000 unit option, as it is unable to accommodate the development
Page 72 10.19 The results show a mixed performance for the areas, with different levels depending on the size of the development. This is a function of a number of issues, the most significant of which are:
Ø Some areas have greater difficulty providing consistently good cycle and pedestrian friendly facilities because of topography; and, Ø Areas have differential impacts on the road network, depending on the size of the area and where the traffic would enter the current road system.
10.20 However, there is generally a consistently good performance from some of the areas, particularly areas E, G, H and C. In considering which areas should be recommended to be taken forward as the preferred site from a transport perspective it was necessary to review the results of this detailed framework assessment against the access issues, which are a key driver for the delivery of the scheme. Taking each of the areas in order of combined ranking the access issues are discussed below.
Area E 10.21 Area E generally performs well in the framework assessment because it can be integrated with the services and initiatives of the Southern Development Area, immediately to the north of the site and benefits considerably from access to the Wroughton Park & Ride site. However, there will still be a need to provide highway access and the constraints of the highway network to the north of the Southern Development Area preclude this as the main access. Therefore links to the two M4 Motorway junctions (15 & 16) are required to spread the load between the two, resulting in a significant amount of new build, with limited benefits to the wider population. This weakness in the access arrangements is of sufficient magnitude that it is not recommended that the site be taken forward.
Area H 10.22 Area H is well located, allowing the site to be closely integrated to the Northern Development Area and other north Swindon residential areas. It can make use of existing Park & Ride sites and has good access to existing service provision. However, with significant capacity constraints on the Northern Orbital Road the only options for access are via the Purton-Iffley link and the old A419. The need to access the old A419 will undo many of the benefits generated by the bypass. The likely impact on Blunsdon is such that the site should not be taken forward as the preferred scheme.
Area C 10.23 Area C, whilst having poor accessibility to existing services, has a limited impact on the local road network and offers good opportunities for linking to existing public transport routes and bus priority initiatives. However, to allow for the development it is likely that the construction of a new A419 would be required, to allow the trunk road to operate as required and to overcome the capacity constraints of the existing junctions. The cost and extent of the
Page 73 build precludes this site from being taken forward.
Area G 10.24 Area G has similar benefits of linking directly in to the local distributor network and local bus services. It also has excellent accessibility to local services. In terms of providing access there are a number of roads that could be used, all of which have the capacity to be improved. As site G is the only one where no element of the access has been graded as “C” this is the site that is recommended to be taken forward as the main site for the Principal Urban Area Study.
Page 74 11. Landscape Appraisal Results
11.1 The aim of the Landscape assessment is to undertake a comparative assessment of the eight potential development cells adjoining Swindon’s urban periphery, identifying the impacts that development would have from a landscape perspective. This assessment was based on a Quality of Life Capital methodology, examining the effects that development would have on the intrinsic landscape features present. Reference was also made as to if, and how, the landscape could incorporate development, what mitigation measures could be employed, if any, and which parts of the eight cells could accommodate a form of development.
11.2 Qualified Landscape Architects, from Swindon Borough Council’s Environmental Services Directorate provided expert advice, based on fieldwork as well as a desktop study, reflecting on appropriate guidance.
11.3 The methodology followed was based around the “Quality of Life Capital Toolkit”, a scoping exercise to ascertain the appropriate best practice and Government Guidance, combined with the Landscape Character Map of England and previous work undertaken to define character areas within Swindon Borough. This was subsequently expanded to cover the whole of the Principal Urban Area study area.
11.4 The assessment itself relied solely on data collected from either fieldwork, or existing data records. In broad terms this generally constituted archaeological, ecological and natural environment data. Economic and social data was not considered.
11.5 The conclusion of the Landscape Assessment was an objective, comparative assessment covering the whole of the Swindon Principal Urban Area study area to determine, in landscape terms, a hierarchical order of locations where future development opportunities may be more, or less, acceptable. The assessment provided clear reasoning and justification given for any weighting, principles or features upon which any conclusions are arrived at, whilst also being robust. This culminated in a series of A3 maps, as well as written documentation to support the conclusions of the assessment (including a brief written description for each of the eight potential development cells).
11.6 The eight potential development cells are summarised in Table 1 overleaf, with commentary relating to Landscape Impacts, Development with Mitigation, and Development Potential. Gradings of Development Potential range from Zero, Low, and Medium to High and have been used to quantify impacts.
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Location Landscape Landscape Development Character Area Impact with Mitigation Development Potential Area A Kingsdown / B = Mid Vale Blunsdon Ridge Scarp Severe High Zero C = Blunsdon - Stanton Hills Severe High Zero A = Thames Vale High Medium Zero E = Kingsdown Plateau Medium Low High D = Kingsdown Dip Slope Low Low High Area B South Marston F = Bourton Hill Severe High Zero B = Cole Valley Severe High Low A = Sevenhampton Dip Slope High Medium Low E = Vale of White Horse High Medium Medium D = South Marston Vale Medium Low High C = South Marston Dip Slope Low Low High Area C Bourton - A = Gable Cross Wanborough Dip Slope Severe High Zero B = Vale of White Horse Severe High Zero C = Bourton Hill Severe High Zero D = Downs Scarp Severe High Zero Area D Coate B = Coate Water Severe High Zero A = E ast of Coate Water High Medium Medium Area E A = Vale East of Wroughton Wroughton Severe High Zero C = Downs Scarp Severe High Zero B = Vale North and West of Wroughton Severe Medium Medium Area F C = Wootton Wootton Bassett Bassett Escarpment Severe High Zero D = Wootton Bassett Plateau Severe High Zero E = Bryard's Hill Severe High Zero Page 76
B = Vastern High Medium Zero I = Hay Lane Severe Medium Low A = Thunder Brook Vale High Medium Low H = Studley High Medium Low F = Brinkworth Brook Vale Medium Low High G = Spittleborough Low Low High Area G Purton and the Lydiards B = Lydiard Park Severe High Zero E = The Hyde Severe High Zero F = Scarp West of Purton Severe High Zero G = Scarp North o f Purton Severe High Zero D = South of Purton Severe High Low H = Thames Vale Severe Medium Low A = M4 to Hook St. Medium Low Med / Low C = Dipslope Hook St. to Common Platt Low Low High Area H A = St. Andrew's River Ray Ridge Severe High Zero C = Thames Vale High Medium Zero D = Mouldon Hill / The Pry Medium Low Medium B = Tadpole Farm Low Low High
Summary of Potential Development Gradings
Summary of Area Location Potential Ranking - Band Development A Kingsdown/Blunsdon 3* Zero Low 2* High B South Marston 1* Zero Very Low 2* Low 1* Medium 2* High C Bourton/Wanborough 4* Zero Very High D Coate 1* Zero High 1* Medium Page 77
E Wroughton 2* Zero High 1* Medium F Wootton Bassett 4* Zero Medium 3* Low 2* High G Purton/Lydiards 4* Zero Medium 2* Low 1* Medium/Low 1* High H River Ray 2* Zero Low 1* Medium 1* High
Key Development would have a Very High adverse impact on the landscape. Development would have a High adverse impact on the landscape. Development would have a Medium adverse impact on the landscape. Development would have a Low adverse impact on the landscape. Development would have a Very Low adverse impact on the landscape.
In landscape terms, the preferred result is Very Low.
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12. Environmental Features Assessment Results
12.1 A major urban extension in any direction would impact on existing environmental features. The appraisal has identified those areas where least harm would result. Those features, which are most at risk, are those covering relatively large areas in key locations, and which are least capable of substitution or mitigation. These include historic parks, areas of high agricultural quality, woodland (particularly ancient woodland) and conservation areas. The indicative floodplain is a major issue in several areas; its impact is dependent on the degree of mitigation achievable. Consultation has taken place with the Environment Agency.
12.2 The benefits of many smaller features, whilst of great importance and incapable of substitution, could be protected within a major development, and the impact of their inclusion within an expansion area would therefore be less severe. Examples include nature conservation sites, listed buildings, rivers, lakes, ponds, and cycle routes. Some of these features would have a beneficial effect on development, but their integrity may need to be protected by screening, inclusion within large open spaces, or other means, which would be identified at the framework planning stage.
12.3 Table 1 below shows the number of features identified in each cell, in each band of importance, and the number that might be affected by development to a major, medium, or minor extent. The degree of impact is a matter of judgement, as is the level of importance. The final results in Table 2 (page 90) were based on additional factors: size, location, and scope for substitution or mitigation. Table 1 is therefore simply a broad summary of what is present; in itself it cannot be used for making the assessment, as it does not reflect these additional factors or the size of the assessment areas.
Table 1 : Quantification of Environment Features by Assessment Area
Importance Impact A B C D E F G H Major 1 0 1 3 0 0 5 1 Very High Medium 8 1 3 3 2 7 2 1 Minor 1 5 1 0 0 1 2 0 Major 5 1 1 8 0 2 3 3 High Medium 1 0 2 2 1 3 1 6 Minor 10 11 5 4 0 3 0 3 Major 1 1 0 0 0 0 0 0 Medium Medium 3 7 3 7 6 5 2 7 Minor 6 7 4 6 0 4 4 4 Total Number of 36 33 20 33 9 25 19 25 Features
Individual Area Assessments
12.4 Each potential development cell has been assessed in terms of the quality of its identified environmental features, and the degree to which their benefits can be substituted or the effects of development mitigated. Size and location
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were also important. Consequently, the benefits of features adjacent or close to the Principal Urban Area (or to other settlements where potential extensions were identified in the study) were given greater weight than those in more peripheral locations in the Study Area. The main features of each assessment area are shown on Maps 8-15.
Area A 12.5 Area A lies to the northeast of the existing urban area and includes the existing settlements of Broad Blunsdon and Stanton Fitzwarren. There are few features in the Very High importance category near to the urban area. Most are small in size, such as Conservation Areas at Broad Blunsdon and Stanton Fitzwarren, and Ancient Monuments northeast of Broad Blunsdon and southwest of Stanton Fitzwarren. These would have a limited impact on development but would need careful consideration at the framework planning stage of a strategic development. A larger (12.2 hectare) area of ancient woodland in Stanton Country Park is more significant and would be a major constraint to development in the southeast of the development cell.
12.6 Features in the “High” importance category are more significant in constraining an urban extension because they cover extensive areas adjacent to the urban boundary. Much of the southern part of the development cell consists of high quality agricultural land (Grades 1-3a inclusive). A large gap in this feature to the west of Kingsdown Industrial Estate is filled by new Great Western Forest planting. Whilst this could be considered substitutable, or able to be mitigated, it is, given its location, a constraint. Other wooded areas are smaller and could be incorporated within a major development. Stanton Country Park would form a significant constraint south of Stanton Fitzwarren village, and the benefits of this feature (and the features within it) are not substitutable in the local area. There are several large archaeological sites in the area, but their peripheral locations limit their ability to constrain development.
12.7 Features of “Medium” importance have little impact on development. A major open space occupying the Great Western Forest planting is the only area of significant scale at this location, but the benefits it provides could be substituted elsewhere in the cell. Several archaeological consultation areas would require further investigation in the event of development, but may not in themselves form a constraint.
12.8 In summary, there are a number of significant environmental constraints adjacent or near to the Principal Urban Area boundary, particularly high quality agricultural land, ancient and newly planted woodland, and Stanton Fitzwarren Country Park. There are also other features, which, whilst not sufficient in themselves to constrain development, as they are small and capable of mitigation or substitution, contribute to the overall environmental constraints. That part of the area north of Broad Blunsdon has fewer constraints but is further from the Principal Urban Area boundary and would therefore, in the absence of major development south-east of the village, not in itself form an extension to the Principal Urban Area but would be detached from it. The main features of Area A are shown on Map 8.
12.9 Based on the environmental features assessment the scope for an urban
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extension within Area A is therefore Poor .
Area B 12.10 Area B lies to the north-east of the existing urban area, but south of Area A. South Marston is at the south-west boundary, the hamlet of Sevenhampton is on the northern boundary, and the eastern boundary extends to the outer edge of Shrivenham.
12.11 The only significant feature in the Very High importance category is the Environment Agency’s indicative floodplain, which extends south from Sevenhampton to the Paddington-Bristol railway line, with a narrow band extending from it towards South Marston. Its central location leaves an extensive area available for potential development, and it could form the boundary for such development. The adverse effects of the floodplain are capable of reduction by mitigation so the overall effect is reduced to medium. Other features of high importance, the conservation area and ancient monuments at Sevenhampton, are in a peripheral location where they would not significantly be affected by an urban extension to Swindon. A buffer zone could offer protection from any outward expansion of Swindon.
12.12 The main feature in the High importance category is high quality agricultural land, which occurs in several extensive areas in key locations south and east of South Marston, and in a belt on the northern periphery west of Sevenhampton. Government policy (Planning Policy Guidance Note7 refers) considers that such areas should not be developed if they can be avoided. This would form a major constraint to development in area B as it would only leave the area between South Marston Park and Sevenhampton, south of the lane running west from Sevenhampton, available for development. There are also extensive areas of Great Western Forest new planting, totalling about 93 hectares, in the central part of the area, north of the railway line. This would form a constraint because the scale of this feature would make mitigation or substitution difficult. An archaeological site adjacent to the railway line south of South Marston occupies a key location and would need protection in the event of development.
12.13 In the Medium importance category, the main issues are the archaeological consultation area in the centre of the area and south of South Marston, which would need further investigation if major development were proposed, as they are in key locations. Extensive Great Western Forest areas in the centre of the area have, to a large extent, already been planted.
12.14 In summary, although the number of major constraints in Area B is not high, they cover large areas in key locations within the area. In particular, the areas of high quality agricultural land are of great significance as it is national policy that such areas should not be developed if lower grade land is available in the local area ( Planning Policy Guidance 7: Countryside , paragraph 2.17). The main features of Area B are shown on Map 9.
12.15 Based on the environmental features assessment the scope for an urban extension within Area B is therefore Poor.
Area C 12.16 Area C lies to the east of the existing urban area and includes the existing Page 81
settlement of Wanborough on the southeast boundary and Bourton on the northeast boundary.
12.17 The largest feature in the Very High importance category is the indicative floodplain, which covers a large area in the northern half of the area. Consultation with the Environment Agency suggests that this need not be a major constraint to the development of the area as mitigation could be possible, for example by the development of a Sustainable Urban Drainage System. However, more detailed technical work would be required if this area was proposed for major development, in order to assess the degree of mitigation possible. A number of Scheduled Ancient Monuments based on the known Roman settlement east of the A419 at Covingham are adjacent to the urban area, occupying a key location. Their benefits are not capable of being substituted elsewhere, and if Area C were selected for development, building would have to avoid this area to protect the known archaeology and the adjacent area where unknown features may occur. Development would also need to avoid the area on the north side of Wanborough, where there is a Conservation Area and a Scheduled Ancient Monument, the site of Hall Place.
12.18 Features in the High importance category are mainly located around Wanborough. There are areas of high quality agricultural land northwest and southeast of the village, two sites of importance for nature conservation on the northwest edge of the village, and an archaeological site east of the Scheduled Ancient Monument on the periphery of the area. The benefits of these features are not substitutable or easily mitigated and, in combination, would effectively constrain development around Wanborough.
12.19 In the Medium importance category there is little to constrain development. The safeguarded canal route is a linear feature that should be incorporated, as it could provide a beneficial feature within a development. There are several archaeological consultation zones, the largest of which is adjacent to the urban area at Covingham. Further investigation of these would be needed to identify if there are areas where development should be avoided. There are also extensive areas proposed for Great Western Forest, particularly in the central part of the area. The numerous benefits provided are easily substitutable and could be provided elsewhere in the local area, beyond the limits of likely development.
12.20 In summary, the key feature of area C is the indicative floodplain. If its effects are, as seems likely, capable of mitigation, there are no signification environmental features constraining development in the northern and central parts of the area, although careful consideration would need to be given to known and possible archaeological features, which cannot be replaced. The main features of Area C are shown on Map 10.
12.21 Based on the environmental features assessment the scope for an urban extension within Area C is therefore Good.
Area D 12.22 Area D lies to the southeast of the existing urban area adjoining Pipers Way to the west, the M4 motorway to the south, and the A419 to the east, including the Coate Water area. Effectively it con sists of three distinct areas: a recreational area to the west, consisting mainly of established golf courses; Page 82
Coate Water itself in the centre, a Site of Special Scientific Interest; and the Day House Lane area to the east. The new Great Western Hospital is in the north-east corner of the area.
12.23 The features of Very High importance are located in the central zone of the area, and their benefits cannot be mitigated or substituted. The largest, with an area of about 50 hectares, is Coate Water and its immediate environs that constitute a Site of Special Scientific Interest. It provides benefits of biodiversity, landscape, recreation, and education, which cannot be substituted elsewhere, with its size and importance indicating mitigation measures would be unlikely to ameliorate the effects that development would have on these benefits. South of this area and adjacent to the motorway, two areas of ancient woodland covering approximately 5.5 hectares reinforce the constraints in the central zone. Such woodland cannot be substituted elsewhere, and in the event of development would need to be protected. There are also two small Scheduled Ancient Monuments at the northern end of Day House Lane. They provide benefits of history/culture, recreation, and education, which could be preserved by protecting the sites from development, for example by means of a buffer, or including them in undeveloped parts of the development. However, because of their small size development would not be prevented.
12.24 Features in the High importance category occupy broadly the same areas as those described in the previous paragraph. The area comprises the Site of Special Scientific Interest and its environs, Coate Water Country Park. Much of this area has several designations as well as a Country Park, such as sites of importance for nature conservation, woodland, and high quality agricultural land, which provide broadly the same benefits as the Site of Special Scientific Interest, as well as benefiting the local economy. These benefits cannot be substituted or satisfactorily mitigated. Another area of high quality agricultural land lies south of the settlement of Coate. Three archaeological sites of between one and four hectares along Day House Lane could have a major impact on development and, as they cannot be built upon, would need to remain undeveloped.
12.25 The features of medium importance are also mainly concentrated in the centre and west. There are areas of major open space south and west of Broome Manor golf course, which could be substituted locally if development took place. East of the golf course and south of Coate Water is a large area of proposed Great Western Forest planting that could be substituted elsewhere, if necessary. The safeguarded canal route north of the M4 Motorway is a linear feature that could be incorporated into a development area. Bridleways in the area would need to be protected and possibly extended and enhanced at the framework planning stage. There are five archaeological consultation zones, mainly in the eastern part of the area, where further investigation would be needed to assess the impact of development.
12.26 The size and importance of features in the central part of the area around Coate Water, both individually and, more importantly in combination, make this part of the area unsuitable for development. The area to the west comprises open space and semi-urban recreational functions where major development would also be inappropriate. The area where there would be the
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least loss of environmental benefits is the area between the Great Western Hospital and the M4 Motorway, where archaeological investigation would be needed if the area were to be developed. However, the area remaining after taking environmental features into account is too small to accommodate strategic-scale housing development, although a more modest development would be possible. The main features of Area D are shown on Map 11.
12.27 Based on the environmental features assessment the scope for an urban extension within Area D is therefore Poor.
Area E 12.28 Area E lies to the south of the existing urban area and M4 Motorway and includes the village of Wroughton.
12.29 There are few features in this area from the Very High importance category, with the majority of these are within, or near to Wroughton. These features comprise the Wroughton Conservation Area, Listed Buildings (mostly in Wroughton), and a small Scheduled Ancient Monument at Wroughton House. Whilst these features provide important benefits, their location and small size would not materially constrain major development south of the M4 Motorway.
12.30 There is a similar paucity of features in the High Importance category. Small areas of woodland in the western half of the area could be incorporated within development, safeguarding their benefits of biodiversity, landscape, recreation and health, and making them available to a larger population. An archaeological site within that area would be a greater constraint, but its small size (3 hectares) means that it could be easily incorporated with development with no loss of the benefits it provides.
12.31 Similarly, there are few environmental features in the Medium importance category, and most of these are potential rather than actual features. Most of the area is proposed as part of the Great Western Forest, but the benefits provided by the Great Western Forest could be provided elsewhere locally and are therefore substitutable. Several archaeological consultation zones would need further investigation to determine whether they had any impact on development. Their small size (apart from one area on the north-western edge of Wroughton) suggests that they would not constitute a major constraint. The Ridgeway Explorer cycle route runs north-south through the area to Wroughton, and could be incorporated in any development.
12.32 In summary, there are no environmental features within Area E whose benefits would be significantly threatened by development, and which would thereby provide a major constraint. The main features of Area E are shown on Map 12.
12.33 Based on the environmental features assessment the scope for an urban extension within Area E is therefore Good.
Area F 12.34 Area F lies to the southwest of the existing urban area and south of the M4 Motorway, including the town of Wootton Bassett.
12.35 No large features of Very High importance occur within the area. Two small Page 84
Scheduled Ancient Monuments are located east of Wootton Bassett, but because of their small scale, their benefits could be protected. Wootton Bassett Conservation area is on the western periphery of the town, and could constrain extension of the town in that area. A Site of Special Scientific Interest south of the town (Mud Springs) would need protection if Swindon or Wootton Bassett extended into that area, but its small size, 0.75 hectares, means that it could be incorporated into larger-scale development. Areas of indicative floodplain south and east of Wootton Bassett are largely peripheral and limited in extent, their effects potentially mitigated by appropriate action.
12.36 The most significant features in the High importance category are two landscape setting areas to the west and southeast of Wootton Bassett. These effectively preclude the extension of the town in those directions, but have no impact on an extension of Swindon. Areas of new Great Western Forest planting in the east would need to be protected. Areas totaling approximately 4 hectares of new Great Western Forest planting in the Great Chaddington Farm area are large enough to form a constraint. There are several sites of importance for nature conservation, some of them peripherally located in the northwest, others in potentially more developable locations south and southeast of Wootton Bassett (the Mud Springs and an area near the canal at Chaddington). Mitigation measures to incorporate them in development could allow their benefits to be protected.
12.37 In the Medium importance category there is little to constrain development. The safeguarded canal route south of the railway is a linear feature, which could be incorporated in development with its benefits protected. There are several archaeological consultation areas in the eastern half of the area, most notably north of Wootton Bassett and west of Spittleborough. They would need further investigation to assess their precise effects, but their mainly peripheral locations suggest development could take place in this area without impinging on areas of potential development. Extensive areas of proposed Great Western Forest planting are substitutable by relocation within in the area, e.g. south and east of Wootton Bassett.
12.38 In summary, whilst there are a relatively large number of environmental features occurring within Area F, their size, location, and ability to be mitigated/substituted doesn’t seriously impact on the potential for an urban extension to Swindon. The landscape setting areas for Wootton Bassett are a more significant constraint to the expansion of the town, except to the area between the railway line and the Brinkworth Brook, or to the east (although a major extension eastwards would be indistinguishable from a westward extension to Swindon). The main features of Area F are shown on Map 13.
12.39 Based on the environmental features assessment the scope for an urban extension within Area F is therefore Good . The scope for an extension to Wootton Basset is Fair.
Area G 12.40 Area G lies to the west of the existing urban area and includes the settlements of Purton, Lydiard Millicent, and Hook.
12.41 In the Very High importance category, Lydiard Park is an historic park occupying a key location on the western edge of Swindon. It provides a range Page 85
of benefits and unique characteristics including, biodiversity, historical, cultural, landscape, and value to the local economy that should be protected. Development of the area cannot be mitigated as development would destroy its character and lead to the loss of its benefits, which are of major significance. Any western urban extension would therefore need to be located away from Lydiard Park and its environs. Two Scheduled Ancient Monuments near Purton are peripheral in terms of a Swindon urban extension but would severely constrain a westward extension towards Purton. Both Purton and Lydiard Millicent have extensive linear Conservation Areas, occupying key locations in the centre of the area. Their benefits, historical, cultural, landscape, sense of place, education, and value to the local economy, depend on each settlement’s unique characteristics, and therefore cannot be substituted. Similarly, given their size and location, mitigation measures would be unlikely to alleviate the effects of development. This severely impacts on the ability of Purton to extend to the south and south-east, and would also be a major constraint to the expansion of Swindon in the area of these settlements. An area of ancient woodland south of Lydiard Millicent provides a further constraint to development to the west of Lydiard Park.
12.42 Features in the High importance category cover in part the same areas as described above. In particular, Lydiard Park is a Country Park, and much of it is also a site of importance for nature conservation. The Country Park and large areas to the west and north of it are also identified as an archaeological site. The benefits provided by these features cannot be substituted locally and it would be difficult to successfully mitigate the effects of development. This confirms the severe constraints against a westward urban extension in the southern part of the area. There are small areas of woodland, including new Great Western Forest planting, especially between Swindon and Purton. Individually, each feature could be incorporated into a westward extension of Swindon (or a south-eastward extension of Purton). However, in combination, and given their location in the area between Swindon, Purton, and Lydiard Millicent, the features are considered a constraint where a significant degree of mitigation would be needed, limiting the capacity of the area.
12.43 There are few features of Medium importance that are likely to constrain development. There are archaeological consultation areas north of Lydiard Park between Swindon and Purton that would need further investigation to assess the degree of possible constraint. These sites occupy key locations so the future discovery of a major site(s) could have a major constraint on an extension into these areas. A proposed Great Western Forest planting area between Swindon and Purton also occupies a key location, but if Swindon extended into this area its benefits could easily be substituted elsewhere locally.
12.44 In summary, there are major constraints to the extension of Swindon (or Purton) in this area. Lydiard Park and its environs comprise several important features each of which has benefits, which cannot be substituted or mitigated. The location of conservation areas and ancient woodland also restricts the capacity either for a strategic urban extension or a more limited extension to Purton. There is also an extensive network of footpaths throughout the area with benefits such as recreation and health that would require mitigation measures to limit the effects of development. As many routes as possible Page 86
would need to be retained with continuing links to the surrounding rural area. The main features of Area G are shown on Map 14.
12.45 Based on the environmental features assessment the scope for an urban extension within Area G is therefore Poor. The scope for a settlement expansion at Purton is also Poor.
Area H 12.46 Area H lies to the northwest of the existing urban area adjacent to the current Northern Development Area and extends to the small settlement of Purton Stoke.
12.47 There are only two features of Very High importance in this area, the Indicative Floodplain and a small area of ancient woodland. There are two areas of floodplain, one of which occupies a key location adjacent to Swindon along the River Ray. It forms a narrow band adjacent to the Northern Development Area and broadens out in the northern part of the area. Whilst it is likely that mitigation measures could be carried out to enable an urban extension to occur in the south, western expansion would need to cross the floodplain before development would start, whilst in the north the floodplain would effectively form the outer boundary of an expansion northwards from the Northern Development Area and Blunsdon St. Andrew. The other floodplain north and south of Purton Stoke is too peripheral to constrain development, but would effectively form the outer boundary of a westward urban extension. A small area of ancient woodland north of Blunsdon St. Andrew has unique benefits, which are not substitutable, but is small enough to be incorporated within an urban extension, providing building up to the wooded area was avoided.
12.48 There are numerous features of High importance in the area, many of them in key locations near to Swindon. A large (75 hectare) area of high quality agricultural land north of Blunsdon St. Andrew is not substitutable, with benefits that cannot be mitigated and, in view of Government guidance (Planning Policy Guidance Note7 refers), should not be included in an urban extension. There are sites of importance for nature conservation from Mouldon Hill northwards along the River Ray in a key location that would need to be excluded from development. Smaller sites north of Blunsdon St. Andrew, and small areas of woodland in the same area, could, with careful planning, be incorporated into development. Mouldon Hill is also a Country Park and contains land of high agricultural quality, therefore forming a barrier to westward extension in the south of the area. There are also large areas of woodland, including Great Western Forest planting north of Mouldon Hill.
12.49 Features of Medium importance that have less impact in constraining development include the safeguarded canal route and the Cotswold Water Park Cycle Route that run together north-south through the area. Both of these could be incorporated within an urban extension. There are also areas of proposed Great Western Forest, but those nearest to Swindon tend to be small and easily substituted elsewhere in the locality. There are several archaeological consultation areas in the area north of the Northern Development Area that would require further investigation but, unless
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significant discoveries were made in all of them, would not preclude expansion in this direction.
12.50 In summary, there are environmental constraints near to Swindon both to the north and west. However, there are few constraints west of the safeguarded canal route. Therefore, providing the floodplain issues could be mitigated and the floodplain was not regarded a barrier, there would be scope for a strategic urban extension either to the north or to the west. The main features of Area H are shown on Map 15.
12.51 Based on the environmental features assessment the scope for an urban extension within Area H is therefore Fair.
Summary
12.52 Table 2 overleaf summarises the Environmental Features Assessment for each individual Area. The overall assessment is based on currently identified information but it is recognised that the assessment could change if additional information became known. However, it is considered that as a result of the scooping exercise, most features have been identified. Areas that perform badly may have scope for some form of development in part of their area but in terms of Environmental Features Assessment are considered less appropriate for major strategic growth.
Overall Ranking from Table 2
Good Area C - Eastern Area E - Wroughton Area F - Wootton Bassett (Swindon extension)
Fair Area B - South Marston Area F - Wootton Bassett (Wootton Bassett extension) Area H - River Ray
Poor Area A - Kingsdown & Blunsdon Area D - Coate Area G - Purton & The Lydiards (Swindon extension) Area G - Purton & The Lydiards (Purton extension)
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Table 2 : Summary of Environmental Assessment by Assessment Area
Scope for an Assessment Urban Comments Area Extension High quality agricultural land adjacent to built up area, Area A Poor ancient and other woodland, and Stanton Fitzwarren Country Park. Few constraints north of Broad Blunsdon. High quality agricultural land, Great Western Forest new planting, and archaeology in key locations in south of Area B Fair area. Indicative floodplain to east. Few features in north of area. Indicative floodplain in north. Archaeology and high Area C Good quality agricultural land around Wanborough. Country Park. Site of Special Scientific Interest, archaeology, Ancient Monuments, high quality agricultural land, ancient and other woodland, sites of Area D Poor importance for nature conservation, major open space. Constraints mainly in centre and west, leaving an area in the east with few features. No significant environmental features to constrain Area E Good development. Few significant features between Swindon and Wootton Bassett Great Western Forest planting and sites of Good importance for nature conservation are of a scale that
would not preclude development, but archaeology would Area F need further investigation.
The landscape settings to Wootton Bassett would limit Fair the directions in which the town could develop, and scale would be local not strategic. Lydiard Park has benefits of country park, nature
conservation and archaeology. Conservation Areas that Poor constrain expansion to the south. Conservation Areas
Area G restrict extension of Swindon and Purton between Purton
and Lydiard Millicent.
Ancient Monuments and ancient woodland also limit the Poor expansion of Purton. Main issues are floodplain, agricultural land quality, and features at and near Mouldon Hill (country park, nature conservation, agricultural land, woodland), restricting Area H Fair expansion into south of area. Providing floodplain could be mitigated and not regarded a barrier, there is potential to the north and north-west
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13. Rural Buffers Assessment Results
13.1 Regional Planning Guidance (RPG10) does not specifically refer to the need to review rural buffers, only Green Belts. However, the purpose of rural buffers, to retain the separate identity and character of Swindon’s surrounding settlements through non-coalescence is, albeit apart from the legislatory status, very similar. Consequently, the Joint Strategic Planning Authorities consider it appropriate to review the principle of rural buffers, not the precise definitions. Such precision will be for the appropriate Local Plan to determine. For the purposes of this study indicative rural buffers, drawn from the relevant local plans (Swindon Borough Local Plan 2011 Second Deposit Draft and North Wiltshire District Local Plan 2011 First Deposit Draft) have been used to assess each area (Map 6 refers).
13.2 In terms of the Principal Urban Area study the existence or non-existence of a rural buffer in an area will be decisive, either there is a buffer or there is not. Because of the size of some of the assessment areas an increased level of sensitivity is possible, so that parts of an area have scope for development and others do not.
13.3 The principle of this assessment is that areas not covered by a rural buffer have potential as an urban extension, assuming of course that those areas are adjacent to the Principal Urban Area boundary. On this basis, Area D has scope for an urban extension to Swindon because it has no rural buffer, and Area C also has scope because it has a large area adjacent to the urban area not covered by a rural buffer.
13.4 Because the rural buffers are, by definition, between Swindon and other settlements, there is scope for the extension of Wootton Bassett and Purton on the sides away from Swindon. There are parts of areas A, B, E, and H where there is scope for expansion but the amount is constrained by rural buffers in other parts of the areas.
13.5 Key parts of all areas except C and D have rural buffers, which preclude development.
Individual Area Assessments
Area A 13.6 Most of the south and east of this area is defined as rural buffer. This designation is designed to prevent the coalescence of Swindon with Broad Blunsdon, Stanton Fitzwarren, and Highworth. This would inhibit development in the northern half of the area as the rural buffer separates it from the Swindon urban area. An area of about 170 hectares (including land known as the “Triangle site”) adjacent to the urban boundary at Kingsdown is excluded from the rural buffer as development would not lead to coalescence with Broad Blunsdon or Stanton Fitzwarren. This area could potentially accommodate development, although the land is in the countryside where there is still a general presumption against development. It should also be noted that the rural buffer beyond would constrain further growth. This therefore eliminates this assessment area from consideration for a major long- term direction of growth. Page 90
13.7 Based on the Rural Buffers Assessment the scope for an urban extension within Area A is therefore Poor in the northern half of the area and Fair in the south.
Area B 13.8 The area between the railway line, Keypoint and South Marston is defined as rural buffer to prevent the coalescence of Swindon and South Marston. The Highworth rural buffer extends into the northern edge of the area. Land north and east of South Marston is outside the rural buffer but isolated from existing settlements due to the South Marston rural buffer to the south, the Highworth rural buffer to the north, and the Honda/Keypoint complex and South Marston Park to the west.
13.9 Based on the Rural Buffers Assessment the scope for an urban extension within Area B is therefore Poor in the south of the area and Fair in the centre .
Area C 13.10 The southern part of the area comprises a rural buffer to the west and north of Wanborough, which is designed to prevent the coalescence of the village with Swindon. In policy terms this therefore precludes an urban extension of Swindon eastwards from Dorcan. Further north, however, (i.e. east of Covingham), there are no rural buffer policy restrictions.
13.11 Based on the Rural Buffers Assessment the scope for an urban extension within Area C is therefore Good, with the exception of the southern part of the area where it is Poor .
Area D 13.12 There are no rural buffer designations in this area. Based on the Rural Buffers Assessment the scope for an urban extension within Area A is therefore Good .
Area E 13.13 The indicative rural buffer that protects Wroughton covers an extensive area in the eastern half of this area, including land to the west, north, and east of the settlement. Land south of the M4 Motorway further west is excluded from the policy restriction and could therefore be developed as a southward extension from the western part of the Southern Development Area. The obvious difficulty is that there is currently no access across the motorway, but in rural policy terms there is no constraint here.
13.14 Based on the Rural Buffers Assessment the scope for an urban extension within Area E is therefore Poor in the eastern half of the area and Fair in the west.
Area F 13.15 The area between Swindon and Wootton Bassett, including all of the land between the M4 Motorway and the Paddington-Bristol railway line, as well as the urban edge of Wootton Bassett, is all defined as rural buffer. This is to prevent the coalescence of Swindon and Wootton Bassett. In terms of the rural buffer assessment, an urban extension of Swindon in this assessment area is therefore precluded. As rural buffers are intended to prevent the Page 91
coalescence of Swindon with other settlements, there is no buffer west of Wootton Bassett. Consequently there is no objection on rural buffer grounds to a western expansion of Wootton Bassett.
13.16 Based on the Rural Buffers Assessment the scope for an urban extension within Area F is therefore Poor, but the scope for a western extension to Wootton Bassett is Good .
Area G 13.17 The rural buffer occupies the whole of the eastern boundary of this assessment area, in order to prevent the coalescence of Swindon with Purton and Lydiard Millicent. Consequently in terms of rural buffer policy development is precluded in this area. The rural buffer extends to the eastern boundary of Purton, therefore there would be no coalescence objection to the extension of Purton in any direction except to the east.
13.18 Based on the Rural Buffers Assessment the scope for an urban extension to Swindon within Area G is therefore Poor, but the scope for an extension to Purton is Good .
Area H 13.19 The rural buffer protecting Purton from coalescence with Swindon occupies the southern part of the area to the west of Haydon Wick and the Northern Development Area. An urban extension to Swindon into this area is therefore precluded by the policy. It would not, however, inhibit the northward extension of Purton. North of the Northern Development Area the Blunsdon rural buffer precludes development between the Northern Development Area and Broad Blunsdon. However, development northwards away from Blunsdon would not be inhibited by rural buffer policy. An extension in this direction would, however, be limited in the north by the rural buffer that protects Cricklade from coalescence with Swindon.
13.20 Based on the Rural Buffers Assessment the scope for an urban extension within Area F is therefore Poor in the southern part of the area and Fair in the east. Scope for an extension to Purton to the north or west is Good.
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Table 1 : Summary of Rural Buffers Assessment by Assessment Area
Assessment Scope For An Comments Area Urban Extension Most of the south and east of the area is rural Poor buffer. Area A An enclave east of Kingsdown could accommodate Fair limited development A key area to the south is in the rural buffer. Poor Area B The north is less constrained but further from the Fair main part of the urban area. An extensive part of the north of the area has no Good rural buffer constraints. Area C The southern part of the area around Wanborough Poor is constrained by a rural buffer. Area D Good There is no rural buffer in the area. The most accessible area near Wroughton is Poor constrained by a rural buffer. Area E Further west there is no constraint but the area is Fair less accessible. Rural buffer fills the gap between Swindon and Poor Wootton Bassett. Area F No rural buffer constraint to development west of Good Wootton Bassett. Rural buffer along urban boundary precludes Poor development. Area G No rural buffer constraint to extension to south and Good west of Purton. Poor Purton rural buffer constrains extension to the west. Limited scope between Northern Development Area Area H Fair and Cricklade rural buffer. No rural buffer constraint to development north of Good Purton.
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14. Utility & Community Services Assessment Results
14.1 The area profiles below summarise each area’s main advantages and disadvantages for utility and community service provision. Following the written summary of results is a summary table comparing each area, and a results table, explicitly illustrating the differences between each of the areas (page102). (A summary of educational facilities is contained on Map 1, Health facilities on Map 2, Leisure facilities on Map 3 and Community facilities on Map 4.)
Area A 14.2 Area A lies to the North East of the existing urban area and includes the existing settlements of Broad Blunsdon and Stanton Fitzwarren. Emergency service provision for the area would require a new police/ambulance point. The location and resources currently available at Stratton and Cricklade fire stations are likely to be sufficient to provide for the increase in risk generated by new development. It may be necessary for some additional personnel/appliances as the number of dwellings increases over 9,000 and this would represent a medium to high cost to the fire authority.
14.3 Education facilities have no spare capacity within current and proposed Primary education facilities. It may be possible to accommodate small-scale growth in secondary education, but larger scale growth would require a new school.
14.4 Primary Healthcare and Social Services provision is delivered in a dispersed format throughout the community. These services will locate where there is a need and can be accommodated into any new development. The provision of leisure and recreation for the area as part of any development could potentially help the current undersupply of swimming facilities between Gorse Hill and Stratton.
14.5 Foul drainage and sewage treatment from this area would not be suitable for development without a new sewage treatment works. There is no spare capacity at Blunsdon sewage treatment works. Development in this area would necessitate a long-term strategic solution. Pumping would be required for flow should Swindon sewage treatment works be the only option, and infrastructure costs for this would be high. From a network standpoint a new sewage treatment works would be the optimum solution and cost less. With regard to flooding the area has no identified floodplain. The area has an easy to develop water supply infrastructure for development but contains some high ground that would require pumping to maintain pressures. A new reservoir would be required at Blunsdon to increase storage capacity. The area is close to a suitable gas main for connection of supply, however there is a potential requirement for reinforcement of the main to allow for capacity.
14.6 Electricity supply for the area is straightforward. The area has several main gas pipelines and is slightly constrained by overhead power lines near the southern edge and Ministry of Defence pipelines in the far North West corner.
14.7 The overall utility and community service provision for Area A is therefore Good . Page 94
Area B 14.8 Area B lies to the north east of the existing urban area, but south of Area A. It includes the existing settlement of South Marston. Emergency service provision for development in area B would fit closely with the planned police/ambulance facilities for Swindon and, depending on the scale of development, additional facilities may not be required. Any increase in the number of dwellings is likely to require additional Fire Brigade resources (station/personnel). Any additional development under current arrangements will increase the risk to the extent that cannot be met within existing resources. The additional resources may be met by the creation of a retained station, which could lessen the financial impact on the Fire Authority. The anticipated cost of these additional resources could be described as medium to high.
14.9 Education facilities currently have no spare capacity within current and proposed primary education facilities, but there may be the potential to accommodate small-scale growth in secondary education, but with larger scale growth requiring a new secondary school. Primary Healthcare and Social Services provision is delivered in a dispersed format throughout the community. These services will locate where there is a need and can be accommodated within any new development. The provision of leisure and recreation for the area could potentially help the current undersupply of swimming facilities between Gorse Hill and Stratton.
14.10 Foul drainage and sewage treatment flows from this area are currently pumped to Swindon. Directing additional flows to Shrivenham would require upgrades of the sewage treatment works, constraining growth. Flow transfer to Shrivenham would also require pumping. Flooding issues include a large area of flood plain along the River Cole running through the middle of the area, in addition to various non-main rivers/watercourses being present within the area. This area does not currently have much water supply infrastructure. An option in this area could be to feed off the Honda main water supply, which, whilst estimating costs to be low to medium, some pumping would be required. The area has suitable gas Infrastructure nearby.
14.11 Electricity supply will be relatively difficult. The area has very few gas main pipelines running through it, but is not constrained by overhead power lines or Ministry of Defence pipelines .
14.12 The overall utility and community service provision for Area B is therefore Poor.
Area C 14.13 Area C lies to the east of the existing urban area and includes the existing settlement of Wanborough. Emergency service provision for development in area C would fit closely with the planned police/ambulance facilities for Swindon (identified on the A420/Keypoint exit) and, depending on the scale of development, additional facilities may not be required. Any increase in the number of dwellings is likely to require additional Fire Brigade resources (station/personnel) which, under current arrangements, the increase in risk will grow to the extent that cannot be met within existing resources. The additional Page 95
resources may be met by the creation of a retained station, which could lessen the financial impact on the Fire Authority. The anticipated cost of these additional resources is described as medium to high.
14.14 Education facilities have no spare capacity within current and proposed secondary and primary schools. Primary Healthcare and Social Services provision is delivered in a dispersed format throughout the community. These services will locate where there is a need and can be accommodated within any new development. The provision of leisure and recreation for the area could potentially help the current undersupply of swimming facilities between Gorse Hill and Stratton.
14.15 Foul drainage and sewage treatment flows would have to be directed to either Wanborough or Shrivenham sewage treatment works and the receiving works will need to be upgraded, but with the potential for some of the western area to be transferred to Swindon sewage treatment works. Existing foul infrastructure has no spare capacity. Development in this area could potentially enable some rationalisation and improvement of the system. Some of the foul water flows would have to be pumped out of this area increasing costs. Indicative flood plains are identified in the northern part of area with the River Cole & Earlscourt Brook run through area. Development in this area could trigger extensions to the Honda Water supply main, with medium/high costs but potential benefits to the system. The area has suitable gas infrastructure nearby.
14.16 Electricity supply will be relatively difficult. The area has very few gas main pipelines running through it and is not constrained by overhead power lines and Ministry of Defence pipelines.
14.17 The overall utility and community service provision for Area C is therefore Fair .
Area D 14.18 Area D lies to the south east of the existing area. For emergency service provision an 1000 additional dwellings is unlikely to require further facilities, based on the assumption that the ‘Police/ambulance Point’ in the Southern Development Area would have already have been provided. For fire provision this area will represent a risk that may not be covered by the existing station (Swindon) in its current location. A large factor in making this determination will focus on the road layout in the area, and any provision designed to control the flow of traffic to reduce speed. However the provision of domestic sprinklers could reduce this risk to allow for slower attendance times. The relocation of Swindon fire station could represent a high cost to the Fire Authority.
14.19 Education facilities have no spare capacity within current and proposed secondary education facilities however it may be possible to accommodate small-scale growth at Liden primary school, but larger scale growth would require a new school. Strategic scale growth will require additional services. Primary Healthcare and Social Services provision is delivered in a dispersed format throughout the community. These services will locate where there is a need and can be accommodated within any new development. The provision Page 96
of leisure and recreation for the area could potentially help the current undersupply of swimming facilities between Lawns and Chiseldon.
14.20 Foul drainage and sewage treatment flows would have to be directed to either Wanborough or Swindon sewage treatment works, with foul drainage infrastructure requiring upgrading. The area is not within a flood plain, but does contain the River Cole & tributaries of the river running through the western part of site. With regard to water supply the area contains high ground increasing costs, therefore high costs. The area has suitable gas Infrastructure nearby.
14.21 Electricity supply will be difficult. The area is not constrained by any gas or Ministry Of Defence pipelines or overhead power lines.
14.22 The overall utility and community service provision for Area D is therefore Good .
Area E 14.23 Area E lies to the south of the existing urban area and includes the town of Wroughton. With regard to emergency service provision, if development were concentrated in the eastern end it would be likely to be served by the ‘Police/ambulance Point’ in the Southern Development Area. If development extended to the whole of the area a new ‘Police/ambulance Point’ may be needed. Any substantial increase in the number of dwellings in this area is likely to require additional Fire Brigade resources (station/personnel). Under current arrangements the risk will increase to an extent that cannot be met within existing resources. However, additional resources may be met by the creation of a retained station, which could lessen the financial impact on the Fire Authority. The provision of domestic sprinklers would still be recommended, to enable the use of retained crews and reduce the need for a fully manned station.
14.24 The anticipated cost of these additional resources could be described as medium to high. Education facilities have no spare capacity within current and proposed Secondary and Primary education facilities. Primary Healthcare and Social Services provision is delivered in a dispersed way throughout the community. These services will locate where there is a need and can be accommodated within any new development. 14.25 Wroughton foul drainage and sewage treatment Works has closed and although there is a large site there, reinstatement of Wroughton sewage treatment works would prove difficult. Consequently, foul drainage flows would have to go to Swindon via the Southern Development Area. Currently there are no existing surface water sewers. The area has no identified Flood plain. The River Swinbourne is located in north/north west of the area also with other non-main rivers/watercourses also identified. This area is very mixed in terms of water supply with issues and costs dependent on the location of development within the area. Options could include a feed from the Southern Development Area, but there are also costly areas of high ground.
14.26 The area is at the extremity of the gas network, however electricity supply is relatively straightforward. The area is not constrained by overhead power lines, but does have several gas main pipelines and a Ministry Of Defence Page 97
pipeline running through it.
14.27 The overall utility and community service provision for Area E is therefore Poor .
Area F 14.28 Area F lies to the south west of the existing urban area and includes the town of Wootton Bassett. With regard to emergency service provision development around Wootton Bassett could either be accommodated by the extension of the existing facility in the centre, or by the provision of a ‘Police/Ambulance Point’. The location and resources currently available at Wootton Bassett fire station is likely to be sufficient to provide for this increase in risk. It may be necessary for some additional personnel/appliances as the number of dwellings increases over 9,000 and this would represent a medium to high cost to the fire authority.
14.29 Education facilities have no spare capacity within current and proposed secondary schools. It may be possible to accommodate small-scale growth within existing primary schools, but larger scale growth would require new schools. Primary Healthcare and Social Services provision is delivered in a dispersed format throughout the community. These services will locate where there is a need and can be accommodated within any new development.
14.30 Wootton Bassett sewage treatment works is located south of the town. There is a need to safeguard land for extensions to sewage works identified in the review of the North Wiltshire Local Plan. Extension to the sewage treatment works would be expected with further development to provide additional capacity and treatment to higher hygiene standards. Costs for the extension of the sewage treatment works and network expansion would be common to any development. The area has small rivers and flood plains. There are also water supply issues surrounding the licences that currently feed this area. Although there may be some capacity for small-scale development, large-scale development would incur high costs.
14.31 The area has suitable gas infrastructure nearby and electricity supply would be straightforward. The area is not constrained by overhead power lines, but does have several gas main pipelines and two Ministry of Defence pipelines running through it.
14.32 The overall utility and community service provision for Area F is therefore Fair
Area G 14.33 Area G lies to the West of the existing urban area and includes the settlements of Purton and Lydiard Millicent. Emergency service provision for the area would require a new police/ambulance point, however the location and resources currently available at Westlea and Wootton Bassett fire stations are likely to be sufficient to provide for this increase in risk, subject to road layout and traffic control measures. However the provision of domestic sprinklers would still be recommended to cope with the future increase in risk up to 18,000 dwellings. It may be necessary for some additional personnel/appliances as the number of dwellings increases over 9,000 and this would represent a medium to high cost to the fire authority. Page 98
14.34 Primary Healthcare and Social Services provision is delivered in a dispersed way throughout the community. These services will locate where there is a need and can be accommodated within any new development. Education facilities have no spare capacity within current and proposed secondary education facilities. It may be possible to accommodate small-scale growth within existing primary schools, but larger scale growth would require new schools.
14.35 Current plans for foul drainage and sewage treatment are, at some point in the future, for Purton sewage treatment works to be closed with flows transferred to Swindon. There are also some trade waste issues at Purton and consents could be tightened, but there is land available. A dedicated foul main would be required. There are also some hydraulic issues with flows to Purton sewage treatment works and some pumping would be required. The Environment Agency identified the flood plain of the River Ray and the area contains various non-main rivers/watercourses. There are very limited water supply mains in this area and the remoteness of the area in terms of water supply infrastructure would mean development would incur medium level costs.
14.36 Gas supply for the Lydiards is present, however Purton has potential difficulties with proximity to high-pressure gas pipelines. Electricity supply would be relatively straightforward. The area has two overhead power lines; several gas main pipelines and three Ministry of Defence pipelines run through the area. The potential “no development” buffers required by these major infrastructure features could impact significantly on any potential development.
14.37 The overall utility and community service provision for Area G is therefore Poor .
Area H 14.38 Area H lies to the north west of the existing urban area and is adjacent to Purton and the Northern Development Area. With regard to emergency service provision the area would require a new police/ambulance point. However, the location of, and increase in, the number of dwellings in this area at a strategic scale of development is likely to require additional Fire Brigade resources. Under current arrangements the fire risk will increase to the extent that cannot be met within existing resources. These additional resources may be met by the creation of a retained fire station that could lessen the financial impact on the Fire Authority. The provision of domestic sprinklers would still be recommended, to enable the use of retained crews and reduce the need for a fully manned station. The anticipated cost of these additional resources could be described as medium to high.
14.39 Primary Healthcare and Social Services provision is delivered in a dispersed format throughout the community. These services will locate where there is a need and can be accommodated within any new development. Education facilities have no spare capacity within current and proposed secondary education facilities. It may be possible to accommodate small-scale growth Page 99
within existing primary schools, but larger scale growth would require new schools.
14.40 With regard to foul drainage and sewage treatment the suitability of this area for development would be greatly improved by a new treatment works to the north of Swindon. It may be possible to direct the flows to either Purton (if it remained open) or Cricklade. Pumping would be required for flows should Swindon sewage treatment works be the only available option and infrastructure costs would be high. From a network standpoint a local sewage treatment facility would be the optimum solution. There are Major flood plains in this area along the River Ray, River Key, Shore Ditch and various non-main rivers/watercourses. Water supply for the area would be relatively easy to accommodate at a relatively low cost.
14.41 Gas supply could have potential difficulties with proximity to high-pressure gas pipelines, however electricity supply would be relatively straightforward. The area is not constrained by overhead power lines, but does have several gas main pipelines and three Ministry of Defence pipelines running through it.
14.42 The overall utility and community service provision for Area H is therefore Fair .
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Table 1: Results Matrix By Feature Group
(Ranking for each area)
A B C D E F G H Wiltshire Constabulary F B B A D E F F Wiltshire Ambulance F B B A D E F F Wiltshire Fire Brigade A D D D D A A D Primary Health Care ------Secondary Education A A B B B A A A Primary Education B B B A B B B B Social Services ------Leisure and recreation A A A A B B B B Libraries ------Foul Drainage/Sewage A D D D C H C A Sewage Network A G C C C H C B Surface Water Drainage ------Flooding and Drainage C G E C A A F H Water Supply B C F C G H C A Gas Supply F A A A H A E F Electricity Supply A F F G A A D D Gas Pipelines H B B A E E D E Overhead Power Lines F A A A A A H G MOD Pipelines D A A A E F G G Rating Good Poor Fair Good Poor Fair Poor Fair
Summary 14.43 Table 2 below summarises the community facility accessibility for each area. The overall assessment is based on the current situation and known future provision, but it is recognised that future development of community facilities and sustainable transport networks could alter the assessment results in the future.
Table 2 – Summary of assessment areas
Area Overall Assessment Advantages Disadvantages A Sufficient fire cover for 4500 New Police/Ambulance dwellings. Small secondary point required. New Good capacity. No Floodplain. sewage treatment works Straight forward gas & needed electric, Low cost water supply B Good Police/ambulance High impact on fire provision. Straight forward provision. New primary Poor gas and electricity supply schools. Difficult. Sewage treatment works constraints. Limited water infrastructure. Flood plain issues. C Good police/ambulance High impact on fire provision. Suitable Gas provision. No education Fair supply. Potential benefits of capacity. Limited foul Page 101
water supply extensions sewage capacity. Flood plain. Difficult electric supply D No additional Police High costs for fire /ambulance facilities needed. provision. Difficult electric Good Liden primary spare supply. High ground capacity. No flood plain. increases water costs. Suitable Gas, No pipeline of overhead power line constraints E No flood plain. New Police/Ambulance Straightforward water supply point required. High impact Poor and electricity. on fire provision. No education capacity. Difficult to reinstate STW. Extremity of the gas network F Potential for extension of Could need new police/ambulance services. Police/ambulance point. Fair Sufficient fire provision for New schools needed. High 4500 dwellings. Small-scale water supply costs. primary school capacity. Straight forward gas and electric supply G Sufficient fire provision for New police/ambulance 4500 dwellings. Small-scale point needed, New schools Poor primary school capacity. needed. Medium water Suitable gas (Lydiard) and supply costs. Difficult gas electricity supply supply (Purton). Difficulties with sewage treatment/foul main. Many pipelines and overhead power lines H Small-scale primary school New police/ambulance capacity. Straightforward point needed, high impact Fair water and electricity supply. on fire provision, New schools needed. Large flood plain. Difficulties with gas supply.
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15. Access to Community Facilities Assessment Results
15.1 Each Assessment Area was analysed in terms of its accessibility to community facilities (as identified in Table 1, Annex A, RPG10 – walking being 300/600m with cycling 1.2km/2.4km). Account of physical barriers to movement is taken into consideration at this stage. “Good”, “Fair” or “Poor” ratings were attributed, based on both thresholds, with qualitative issues also taken into consideration.
Area A 15.2 Area A lies to the northeast of the existing urban area and includes the existing settlements of Broad Blunsdon and Stanton Fitzwarren. The A419 forms a physical boundary to walking and cycling. The following facilities are accessible from the area:
15.3 Education (Walking and Cycling) The area has one primary school located at Blunsdon and one secondary school which is within walking distance for a small part of the southern end of the cell. There are five other primary schools and three secondary schools that are within cycling distance of the area. The influence of these facilities is along the southern edge of the assessment area.
Retail (Walking and Cycling) 15.4 The area has one supermarket within walking distance of the southern edge of the cell. The area has no sub-regional shopping, other town centres, district centres, retail parks, superstores or local centres within walking distance of the assessment area. However the southern edge of the cell is within cycling distance of seven local centres and the northern area district centre.
Health (Walking and Cycling) 15.5 One General Practice Surgery is located in Blunsdon. Another influences the very southern edge of the assessment area. Six other surgeries are accessible by cycling from the southern end of the assessment area. There are no hospital facilities within walking or cycling distance of the cell.
Community (Walking and Cycling) 15.6 The area has no libraries or community centres within walking distance. The area has four libraries and six community centres within cycling distance of the southern end of the assessment area.
Leisure (Walking and Cycling)
15.7 There are no public leisure centres within walking distance of Area A, however the area has access to two adult football pitches, two junior football pitches and two cricket pitches, all located in Blunsdon. Three additional adult football pitches, one adult and one junior rugby pitch are within walking distance of parts of the southern end of the area. The area has no hockey pitches, but does have access to 4 open spaces (>2ha) located within the area and 11 open spaces (>2ha) located within walking distance of parts of the area.
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There are three public leisure centres within cycling distance of the area. In addition the area has cycling access to five adult football pitches, three junior football pitches and five cricket pitches. The southern end of the cell is best served.
Public Transport 15.8 There are 16 routes that stop near Area A and of these 56% of them have access to bus lanes and 69% of the services have weekend or evening services, but the frequency of the services within the area is not as good as other areas e.g. 50% of the routes run at frequencies of less than 1 bus every 2 hours.
15.9 The overall accessibility to community facilities by walking, cycling and public transport for Area A is therefore Good
Area B 15.10 Area B lies to the northeast of the existing urban area but south of Area A. It includes the existing settlement of South Marston. The Honda car plant and the A419 form a physical boundary to movement into the existing urban area. The following facilities are accessible from Area B:
Education (Walking and Cycling) 15.11 The area has one primary school located at South Marston. There are no secondary schools or colleges within walking distance of the area. There are also four secondary schools that are accessible by cycling from the area. Three of them influence the southwest corner of the cell and the fourth influences the very northern edge of the cell.
Retail (Walking and Cycling) 15.12 The area has one superstore that influences the southwest corner of the cell. The area has no sub-regional shopping, other town centres, district centres, retail parks, supermarkets or local centres within walking distance of the assessment area. The only additional retail facility within cycling distance of the assessment area is Highworth town centre
Health (Walking and Cycling) 15.13 The area has no General Practice surgeries or hospitals within walking distance. The area has cycling access to five General Practice surgeries. Three of them influence the southwest corner of the cell; the other two influence the extreme northern and eastern edge of the cell.
Community (Walking and Cycling) 15.14 The area has no libraries or community centres within walking distance of the assessment area. The area has two libraries and five community centres that are within cycling distance of the area. All the facilities influence the southwest corner of the cell with the exception of one of the libraries that influences the northern edge of the assessment area.
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Leisure (Walking and Cycling )
15.15 There are no public leisure centres within walking distance of Area B. The area has access to one adult football pitch, one junior football pitch and one cricket pitch located in South Marston in conjunction with one additional adult football pitch, one adult and one junior rugby pitch within walking distance of parts of the northern end of the area. The area has no hockey pitches, but does have access to 1 open space (>2ha) located in the area and 3 other open spaces (>2ha) located within walking distance of parts of the area. The area is within cycling distance of four public leisure centres that influences the southwest corner and the northern edge of the cell. In addition the area has access to two adult football pitches, three junior football pitches, two cricket pitches, one adult rugby pitch and one junior rugby pitch. The south west corner of the cell is best served.
Public Transport
15.16 Area B has 66% of the routes having a frequency of less than 1 bus per hour. Only 50% of the routes have weekend or evening services. The most sustainable bus route is the No7, having good frequency, linking to the bus station and the town centre.
15.17 The overall accessibility to community facilities by walking, cycling and public transport for Area B is therefore Poor .
Area C 15.18 Area C lies to the east of the existing urban area and includes the existing settlement of Wanborough. The A419 forms a physical boundary to movement with the existing urban area. The area has access to the following facilities:
15.19 Education (Walking and Cycling) The area has one primary school located at Wanborough. There are no secondary schools within walking distance of the area. Area C is within cycling distance of one college, two secondary schools and seven primary schools. The effect of these facilities is concentrated along the western edge of the assessment area.
Retail (Walking and Cycling) 15.20 The area has no sub-regional shopping, other town centres, district centres or local centres within walking distance of the assessment area. The area is within cycling distance of five local centres and one district centre. The western edge is the most accessible area.
Health (Walking and Cycling) 15.21 The area has one General Practice surgery, which influences the southern end of the cell. No other health facilities are within walking distance of the assessment area. The area is within cycling distance of the Great Western Hospital and eight General Practice surgeries. There are no health facilities Page 105
within the assessment area and it is the western edge of the cell that is the most accessible.
Community (Walking and Cycling) 15.22 The area has no libraries or community centres within walking distance of the assessment area. The area has three libraries and seven community centres accessible by cycling from the western side of the cell.
Leisure (Walking and Cycling )
15.23 There are no public leisure centres within walking distance of Area C. The area has access to one adult football pitch, 1 cricket pitch and one hockey pitch, all located in Wanborough. The area has access to 2 open spaces (>2ha) located in the area and 9 other open spaces (>2ha) located within walking distance of the eastern part of the area. The area is within cycling distance of three public leisure centres that are accessible the western side of the cell. The area has cycling access to all the facilities located in Wanborough. In addition the area has access by cycling to four adult football pitches, four junior football pitches, two cricket pitches and one adult rugby pitch. The western side of the cell is best served.
Public Transport
15.24 Area C has a total of 15 bus routes, however of these routes only 40% of the services have weekend or evening services. Within the area 80% of the routes have bus lanes in place providing the necessary infrastructure for good bus accessibility.
15.25 The overall accessibility to community facilities by walking, cycling and public transport for Area C is therefore Fair.
Area D 15.26 Area D Lies to the southeast of the existing area. The area has access to the following facilities:
Education (Walking and Cycling) 15.27 The area has no primary or secondary schools within walking distance of the assessment area. The area is within cycling distance of four Colleges, five secondary schools and eight primary schools. The northern edge of the assessment area is the most accessible.
Retail (Walking and Cycling ) 15.28 The area has no sub-regional shopping, other town centres, district centres or local centres within walking distance. The area has one sub-regional shopping centre, one district centre, Wroughton village centre and three local centres within cycling distance of the assessment area. The northern edge of the area is the most accessible.
Health (Walking and Cycling) 15.29 The area has access to one hospital that is located in the area and one Page 106
General Practice surgery that affects the assessment area. The area has an additional eleven General Practice surgeries with cycling distance and the Great Western Hospital within the assessment area.
Community (Walking and Cycling) 15.30 Small parts of the northern end of the area are within walking distance of two community centres and one library. The area has seven libraries and six community centres within cycling distance. The influence of these facilities is most dominant at the northern edge of the assessment area.
Leisure (Walking and Cycling)
15.31 The area is within walking distance of one public leisure centre. Also the area has access to one adult football pitch, one junior football pitch, one cricket pitch and one adult rugby pitch, all located at the western end of the cell. The area has access to 5 open spaces (>2ha) located in the area and numerous other open spaces (>2ha) located within walking distance of the assessment area. The area is within cycling distance of four public leisure centres that are accessible to the cell. The area has access to all the facilities located within the assessment area. In addition the area has access to eight adult football pitches, three junior football pitches, four cricket pitches, one adult rugby pitch and one hockey pitch. The area has access to numerous open spaces (>2ha) located within cycling distance of parts of the area. The northern side of the cell is best served.
Public Transport
15.32 Area D has the highest public transport accessibility of all eight potential development cells, having the highest number of bus routes (29). Of these services 65% have weekend or evening services, with 51% of the routes having a frequency of less than 30 minutes (the highest within Swindon). There is also good bus infrastructure with 55% of the routes having one or more bus lanes. The most frequent bus route is the No. 901 (park and ride) that runs every 10 minutes.
15.33 The overall accessibility to community facilities by walking, cycling and public transport for Area D is therefore Good.
Area E 15.34 Area E lies to the south of the existing urban area and includes the village of Wroughton. The M4 Motorway forms a physical barrier to movement with the existing built up area. The following facilities are accessible from the area:
15.35 Education (Walking and Cycling) The area has two primary schools and one secondary school within the area, located in Wroughton. In addition one other primary school influences a very small section along the northern boundary of the assessment area. The area is accessible by cycling from two colleges, three secondary schools and four primary schools, of which one secondary school and two primary schools are within the assessment area.
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Retail (Walking and Cycling) 15.36 The area has one local centre and one other village centre within the assessment area, both located in Wroughton. The area has cycling access to one sub-regional shopping centre (Old Town), one district centre, Wroughton village centre and two local centres,
Health (Walking and Cycling ) 15.37 The area has one General Practice surgery within the assessment area, which is located in Wroughton. Ten additional General Practice surgeries are within cycling distance of the assessment area. The effect is most prominent along the northern edge of the cell. There are no hospital facilities within walking or cycling distance.
Community (Walking and Cycling) 15.38 The area has one community centre and one library within the assessment area, both located in Wroughton. The area has four libraries and six community centres within cycling distance of the assessment area. These figures include the facilities located in Wroughton.
Leisure (Walking and Cycling)
15.39 The area is within walking distance of one public leisure centre. Also the area has access to two adult football pitches, two junior football pitches and one cricket pitch within the assessment area. In addition there is one adult rugby pitch, two adult football pitches and two cricket pitches accessible by walking from the eastern end of the cell. The area has access to 4 open spaces (>2ha) located in the area and numerous other open spaces (>2ha) located within walking distance of the assessment area. The area is within cycling distance of four additional public leisure centres. The area has cycling access to all the facilities within the assessment area. In addition the area has access to four other adult football pitches, two cricket pitches and one adult rugby pitch. The northern edge of the cell is best served.
Public Transport
15.40 Public transport links within this area are rated as poor because there are no bus lanes servings this area, as well as having a poor frequency rating with 63% of routes having frequencies of less than 1 bus per hour. However, it does have one very accessible route, the No. 901 Park and Ride bus (10 min frequency).
15.41 The overall accessibility to community facilities by walking, cycling and public transport for Area E is therefore Good.
Area F
15.42 Area F lies to the southwest of the existing urban area and includes the town Page 108
of Wootton Bassett. The M4 Motorway forms a physical barrier to movement with the existing built up area. The following facilities are accessible from the area:
Education (Walking and Cycling) 15.43 The area has four primary schools and one secondary school; all are located in Wootton Bassett. In addition to the facilities located within Wootton Bassett, the area has cycling access to one other secondary and two other primary schools on the Swindon urban edge.
Retail (Walking and Cycling) 15.44 The area has one local centre and one other town centre within the assessment area, both located in Wootton Bassett. In addition parts of the cell adjacent to Junction 16 of the M4 Motorway have cycling access to one other local centre and West Swindon district centre.
Health (Walking and Cycling) 15.45 The area has two General Practice surgeries within the assessment area, located in Wootton Bassett. However, there is no hospital within walking distance of the area. In addition five other General Practice surgeries are within cycling distance for parts of the northeast corner of the cell.
Community (Walking and Cycling) 15.46 The area has one community centre and one library, both located in Wootton Bassett. The area has two libraries and four community centres within cycling distance. Those facilities not located in Wootton Bassett influence the northeast corner of the cell adjacent to Swindon.
Leisure (Walking and Cycling)
15.47 The area is within walking distance of one public leisure centre. Also the area has access to one adult football pitch and one hockey pitch located in Wootton Bassett. In addition there is one adult rugby pitch, one adult football pitch, one junior football pitch and one cricket pitches all located at the northern edge of the cell. The area has access to 7 open spaces (>2ha) located within walking distance of the eastern end of the assessment area. The area is within cycling distance of one other public leisure centre. In addition the area has cycle access to one other adult football pitch, one cricket pitch and one junior football pitch. The area has access to numerous open spaces (>2ha) located within cycling distance of parts of the area. The northeast edge and Wootton Bassett are best served.
Public Transport
15.48 Assessment Area F was the second worst area in the study for public transport accessibility, scoring poorly. There are no bus lanes within the area, and there are only 2 bus routes with frequencies less than 30 minutes.
15.49 The overall accessibility to community facilities by walking, cycling and public transport for Area F is therefore Poor. Page 109
Area G
15.50 Area G lies to the west of the existing built up area and includes the settlements of Purton and Lydiard Millicent. The following facilities are accessible from the area:
15.51 Education (Walking and Cycling) The area has two primary schools and one secondary school at Purton and Lydiard Millicent. In addition the area is influenced by three other primary schools and one other secondary school located along the eastern edge of the assessment area. The area has cycling access to three other secondary schools and four primary schools. Apart from the facilities located in the assessment area (two primary and one secondary), the other facilities are only accessible from the eastern edge of the cell.
Retail (Walking and Cycling) 15.52 The area has two local centres within the assessment area, located in Purton. The area has no other types of retail facility within walking distance. In addition there are three other local centres and West Swindon district centre which are all accessible by cycling from the eastern edge of the cell. Also Wootton Bassett town centre is accessible from the southwest corner of the assessment area.
Health (Walking and Cycling) 15.53 The area has one General Practice surgery located in Purton and another General Practice surgery that influences the eastern edge of the cell. The area has no hospital within walking distance of the assessment area. The area has access to twelve General Practice surgeries within cycling distance of the assessment area. This figure includes the surgery located in Purton.
Community (Walking and Cycling ) 15.54 The area has one library and one community centre within the assessment area, located in Purton. In addition there are two other community centres, which influence the eastern edge of the cell. The area has three other libraries and three community centres, including the facilities located within the assessment area. The eastern edge of the assessment area is the most accessible.
Leisure (Walking and Cycling)
15.55 There are no public leisure centres within walking distance of Area G. The area has access to three adult football, two cricket pitches and two junior football pitches, all located in Purton, Lydiard Millicent, and Lydiard Park. The area does have access to 5 open spaces (>2ha) located in the area and 11 other open spaces (>2ha) located within walking distance of the eastern part of the area. The area is within cycling distance of two public leisure centre. In addition the area has cycling access to four other adult football pitch, two cricket pitches, one hockey pitch and one junior football pitch. The area has Page 110
access to numerous open spaces (2ha+) located within cycling distance of parts of the area. The eastern edge of the cell is best served.
Public Transport
15.56 Area G has poor public transportation access, with only 37% of the routes offering a weekend or evening service. One route (No.18) runs at a frequency of 30 minutes to the town centre. There is only 1 route with use of a bus lane.
15.57 The overall accessibility to community facilities by walking, cycling and public transport for Area G is therefore Good. Area H
15.58 Area H lies to the northwest of the existing urban area and is adjacent to Purton and the Northern Development Area. The following facilities are accessible from the area:
Education (Walking and Cycling ) 15.59 The area has no education facilities within the assessment area. One secondary school does influence the southern edge of the cell. The southern part of the area has cycling access to ten primary schools and two other secondary schools. There are no college facilities within walking or cycling distance of the assessment area.
Retail (Walking and Cycling) 15.60 The area has no sub-regional shopping, other town centres, district centres or local centres within walking distance of the assessment area. Southern parts of the area are accessible by cycling to five local centres and the northern district centre. No retail facilities are located in the assessment area.
Health (Walking and Cycling) 15.61 The area has one General Practice Surgery that is within walking distance of the assessment area. There are no hospitals within walking distance of the area. The area has cycling access to ten other General Practice surgeries; access is prominent along the southern edge of the assessment area.
Community (Walking and Cycling) 15.62 The area has one community centre that is within walking distance of the southern tip of the assessment area. There are no other community facilities within walking distance of the area. The area has access to four libraries and four community centres. Once again the southern edge of the cell is the most accessible.
Leisure (Walking and Cycling)
15.63 There are no public leisure centres or sports pitches within walking distance of Area H. The area does have access to two open spaces (>2ha) located in the area and nine other open spaces (>2ha) located within walking distance of the eastern part of the area. The area is within cycling distance of two public leisure centres that are accessible to the cell. In addition the area has access Page 111
to seven adult football pitches, seven cricket pitches and three junior football pitch. The area has access to numerous open spaces (>2ha) located within cycling distance of parts of the area. The southern edge of the cell is best served.
Public Transport
15.64 The area has very few routes overall, with half the routes having a frequency of less than 1 bus every 30 minutes, giving it poor public transport accessibility. Only 38% of the routes have one or more bus lanes. The area does have a high proportion of weekend and evening services (63%) but these are infrequent.
15.65 The overall accessibility to community facilities by walking, cycling and public transport for Area H is therefore Fair.
Summary
15.66 Table 1 below summarises the community facility accessibility for each area. The overall assessment is based on the current situation and any known future provision but it is recognised that future development of community facilities and sustainable transport networks could alter the assessment results in the future.
Table 1 – Summary of assessment areas
Area Overall Advantages Disadvantages A Good Good public transport The A419 is a potential barrier accessibility. The southern to movement with limited end of the cell is accessible to crossing points. a large range of facilities, including health retail, education, leisure and community facilities. B Poor Better then average public Only the southwest corner of transport access. the cell is accessible from existing facilities in Swindon. The A419 is a potential barrier to movement C Fair Better then average public The A419 is a potential barrier transport access. to movement. No really A good number of facilities frequent bus routes, e.g. within walking and cycling greater than every 30 mins. distance. e.g. education D Good Best public transport access Few facilities within the area. of all the areas. Access to major facilities e.g. Sub- regional centre, FE colleges, Hospital and leisure centres. Access to the most facilities Page 112
of any area.
E Good Good access to major The M4 motorway is a potential facilities located in Swindon, barrier to movement with few e.g. sub-regional centres, crossing points. Few frequent colleges and leisure centres. bus services Good range of facilities located in Wroughton.
F Poor A wide range of facilities Very reliant on the facilities located in Wootton Bassett. already located in Wootton Bassett, facilities located in Swindon are not particularly accessible. The M4 motorway is a potential barrier to movement. Public transport accessibility is poor.
G Good Good access by walking to Few bus routes with poor education facilities in west frequency and Swindon. Local facilities in evening/weekend services Purton.
H Fair A large range of facilities are No facilities located within the accessible by walking and assessment area. Relatively cycling from the area. few bus routes at this time.
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16. Aerial Photograph Biodiversity Survey Results
16.1 The Biodiversity Assessment was undertaken primarily using aerial photographs of the Swindon Principal Urban Area study area, followed up with selective field walking to confirm and validate the results. The purpose of the assessment was to identify the variety of habitats present within the study area, essentially a classification, in particular identifying those habitats that have a recognised intrinsic value. In addition, protected species records were also assessed to quantify and identify those areas where existing records indicate there is potentially a high probability of further concentrations.
16.2 A key issue when undertaking this survey was to ensure that enough detail was collated to inform the Principal Urban Area study yet reflect the studies strategic nature. This strategic approach seeks to identify broad categories of flora and fauna, not the minute detail. In essence, the minute detail will not determine the strategic direction(s) of growth instead it will affect the site specific issues. Consequently, the time to pursue such issues will be later down the planning process to inform the detail design/layout of future growth areas.
16.3 To achieve this strategic assessment, the biodiversity assessment incorporated a three-tier classification mechanism, essentially banding habitats depending on their relative values. It should be noted that such a banding mechanism does not mean that certain habitats have limited or no value, it has been used to differentiate the survey results. Whilst acknowledging that all habitats perform a unique function, this banding mechanism identifies a hierarchy of habitats based on levels of importance.
16.4 The most important category “Highest Importance” is based upon identified High Quality habitats from the Wiltshire Biodiversity Action Plan and County wildlife sites. The second category “Moderate Importance” is drawn from other Wiltshire Biodiversity Action Plan habitats, with the “Lowest Importance” sites other habitats. These are summarised below:
Ø Highest Importance: County Wildlife Sites Sites recognised and designated for their high quality habitat and biodiversity importance across the County.
High Quality Biodiversity Action Plan Habitats Broad leaved woodland, Calcareous grassland, Neutral grassland and Mixed woodland.
Ø Moderate Importance: Other Biodiversity Action Plan Habitats Parkland/scattered trees - broad leaved, Parkland/scattered trees – mixed, Semi- improved calcareous grassland, Semi- improved neutral grassland, Semi-improved grassland, Semi improved grassland/tall ruderals, Unidentified grassland, Marshy grassland, Arable and Standing water. Page 114
Ø Lowest Importance: Other Habitats Broad leaved plantation, Coniferous plantation, Mixed plantation, Dense scrub, Scattered scrub, Tall ruderals, Improved grassland, Amenity Grassland and Refuse tip.
16.5 Protected species records throughout the Principal Urban Area study area have been identified and recorded for each potential development cell due to their biodiversity importance. Protected species within the study area include:
Ø Badger Ø Otter Ø Great Crested Newt Ø Grass Snake Ø Common Lizard Ø Brown Hare Ø Bat Ø Water Vole Ø White-clawed crayfish Ø Adder Ø Reed Bunting Ø Bull Finch Ø Song Thrush Ø Barn Owl Ø Skylark Ø Slow Worm Ø Curlew Ø Tree Sparrow
16.6 Table 1 overleaf summarises the results of the Aerial Photograph Biodiversity Survey. Specifically, Table 1 identifies the percentage of each potential development cell covered by the four habitat classifications (County Wildlife Sites, High Quality Biodiversity Action Plan Habitats, Other Biodiversity Action Plan Habitats and Other Habitats). In the case of County Wildlife sites it also lists the number. The number of protected species records for each assessment area and total number of records was also recorded.
16.7 In determining the overall ranking, a weighting has been applied to the results in Table 1 to reflect the habitats different levels of importance. County Wildlife Sites and High Quality Biodiversity Action Plan Habitats had the highest weighting (Relative value 3) followed by Other Biodiversity Action Plan Habitats (Relative value 2) and finally Other Habitats (Relative value 1). Protected species were considered to have a relative value of 1. The overall ranking reflects the recorded numbers and quantities for each habitat, combined with the relative weighting value.
16.8 The overall results confirm that Area H, due to its extensive quantity (in area terms) of County Wildlife sites scores the worst “Poor”, with conversely Areas B and C scoring “Good” due to their relative low quantities and number of “High Importance” biodiversity habitats. The remainder of the potential development areas all score “Fair”. Page 115
Table 1
Biodiversity Summary Matrix
A B C D E F G H
High Quality BAP Habitats 3% <1% <1% 7% 1% 1% 3% 14% Ranking E A A G C C E H
County Wildlife Sites* 5/35.3 2/2/R 2/1.4/R 5/58.4/R 1/3.8 9/14.9/V 12/162.2 11/273.9 Ranking E B A F C D G H
Other BAP habitats 73% 77% 76% 37% 68% 55% 39% 43% Ranking F H G A E D B C
Other Habit ats 25% 22% 22% 55% 31% 45% 55% 44% Ranking F G G B E C A D
Species Total Species 6 6 4 10 7 7 8 9 Total No of records 10 9 14 9 33 23 28 12 Ranking B A E C H F G D
Overall Ranking Fair Good Good Fair Fair Fair Fair Poor
* The information is expressed as No of sites/area in hectares and linear sites e.g. River or Verge
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17. Overall Assessment Results
17.1 The Overall Assessment Summary Table below sets out in summary the results of each of the following assessments, as well as an overall assessment to determine the most sustainable location(s) to accommodate future development requirements:
Ø Transport Assessment Ø Rural Buffers Assessment Ø Environmental Features Assessment Ø Biodiversity / Habitats Assessment Ø Landscape Assessment Ø Access to Employment Assessment Ø Access to Community Facilities Assessment Ø Assessment of Utilities and Community Service Provision
Overall Assessment Summary Table
Area A B C D E F G H Kingsdown South Wootton Purton & the Eastern Coate Wroughton River Ray Assessment & Blunsdon Marston Bassett Lydiards Transport B C A B A C A A Rural Buffers C C A A C C C B Environmental Features C B A B A A C B Biodiversity B A A B B B B C Landscape A A C C C B B A Employment Accessibility B/A C/B B A B C A C Community accessibility A C B A A C A B Utilities A C B A C B C B OVERALL B C A A B C B B ASSESSMENT A = Good B = Fair C = Poor
17.2 As stated in paragraph 8.9 it was necessary to formulate a hierarchical preference, a priority order for the assessment indicators, because certain issues will have a greater influence on the location of future development than others. For example, rural buffers already benefit from an established policy in the adopted Wiltshire Structure Plan 2011 (policy DP13). This specific policy issue, that of the potential coalescence between Swindon and the surrounding settlements emerged as one of the pre-eminent issues in all of the public consultation exercises, including the Pre-Deposit Issues Consultation, April- June 2003 (Appendix 16). Consequently, rural buffers were given a higher level of priority in the overall assessment to determine the most sustainable direction(s) of future growth (paragraph 18.4 refers).
17.3 Furthermore, it was also important to consider whether the advantages and disadvantages identified for each potential development cell related to those parts of the cells adjacent to the built up area, an urban extension, or whether they applied to the outer fringe of the cell, where they would be less sustainable due to their relative isolation. In addition, as a result of the sustainability assessments, were there any parts of the potential development cells of sufficient size to accommodate a strategic level of growth? An area that’s capable of accommodating a strategic urban extension should be referred to in the Structure Plan; non-strategic areas are more appropriate to identify through the Local Plan.
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17.4 In undertaking each of the individual assessments, the results for each assessment area were generally categorised into “Good”, “Fair”, or “Poor”, when considering their potential to accommodate an urban extension of a strategic scale. The table overleaf (Overall Assessment Summary Table) converts the categories “Good”, “Fair” and “Poor” into A (“Good”), B (“Fair”), and C (“Poor”). A brief summary of the main issues from each assessment is given in the area profiles in the following paragraphs. (It should be noted that in all areas there is little or no spare capacity within current and proposed education facilities.)
Area A 17.5 Road access to the area would require a connection to, or access across, the A419. Options for access improvements are limited to high-cost major highway construction. By continuing to provide high quality and high capacity highway access the area is likely to be car-reliant.
17.6 Most of the area south of Broad Blunsdon village, apart from an area generally between Kingsdown Lane and the A419, is in a contained within a rural buffer, thereby preventing the villages of Blunsdon and Stanton Fitzwarren coalescing with Swindon (Map 6).
17.7 Area A has several significant environmental constraints near or adjacent to Swindon’s urban boundary, in particular, areas of high quality agricultural land (Grades 1-3a), ancient and newly planted Great Western Community Forest woodland, as well as the Stanton Fitzwarren Country Park (Map 8). The remaining area does not have the same concentration of features, but is more remote from the built-up area. The Landscape Appraisal identified development potential only on the Kingsdown Plateau and Kingsdown Dip Slope. The biodiversity habitat survey is Fair.
17.8 There are a considerable number of jobs within walking or cycling distance (46,900), but there is a limited range of job opportunities, with the A419 forming a barrier. Development of the “Triangle site” could improve the area’s attraction by providing Class B1 office jobs.
17.9 Development would necessitate additional emergency service provision and also require a new sewage treatment works, although water supply infrastructure would be relatively easy to develop. There are no problems regarding electricity supply and the area has several main gas pipelines, being only slightly constrained to the south by overhead power lines.
17.10 The advantages of accessibility and utility provision are largely offset by the limited potential development area after rural buffer, landscape and other environmental issues have been taken into account. Consequently, the overall assessment of Area A is Fair .
Area B 17.11 Road access to the area would require a connection to, or access across, the A419. Options for road improvements are limited to high-cost major highway construction. By continuing to provide high quality and high capacity highway access the area is likely to be car-reliant.
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17.12 The area between the London/Bristol railway line, Keypoint, and South Marston is contained within a rural buffer to prevent the coalescence of South Marston with Swindon. The area between South Marston village and the railway line is also constrained by high quality agricultural land and a relatively large unscheduled archaeological site. There are further areas of high quality agricultural land to the east of the village (Map 9). Further north there are fewer constraints albeit the land is more distant from and less accessible to Swindon. The Landscape Appraisal identified that development potential was limited mainly to the South Marston Vale and South Marston Dip Slope. The biodiversity habitat survey is good.
17.13 There are relatively few jobs within walking and cycling distance (34,000) with the A419 forming a barrier to movement. The cycle path network is not well developed. The improvement in the level and variety of jobs could be achieved by the development of the “Triangle Site”.
17.14 Emergency service provision is likely to be adequate. A new sewage treatment works might be required, and there is currently little water supply infrastructure. A suitable gas infrastructure is available nearby, but electricity supply would be difficult. The area is unconstrained by overhead power lines or Ministry of Defence pipelines.
17.15 The part of Area B nearest to the Swindon Principal Urban Area has the disadvantages of environmental constraints, rural buffer, inaccessibility, lack of utilities infrastructure and high cost for highway requirements. Consequently the overall assessment is Poor .
Area C 17.16 Road access to the area would require a connection to, or access across, the A419. Options for improvement are limited to high-cost major highway construction. By continuing to provide high quality and high capacity highway access the area is likely to become car-reliant.
17.17 The southern part of the area between Swindon and Wanborough comprises a rural buffer to prevent the coalescence of these two settlements (Map 6). Between Lotmead and south of the London/Bristol railway there is no rural buffer. The area is constrained to the south by Wanborough village with several environmental features including the Area of Outstanding Natural Beauty (Map 10). To the north the main constraints are the extensive indicative floodplain (although this is indicative) and archaeological features associated with a Roman settlement adjacent to the A419. The Landscape Appraisal identified that there are landscape constraints within the area. The biodiversity habitat survey is good.
17.18 There are considerable jobs within walking and cycling distance (58,800), although the barrier of the A419 restricts accessibility. Emergency service provision would be met by planned new facilities in the north of the area. Sewage treatment works would need upgrading, and existing foul water infrastructure has no spare capacity. Electricity supply would be difficult, but the area is unconstrained by overhead power lines or Ministry of Defence pipelines.
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17.19 Although Area C has the disadvantages of extensive environmental and rural buffer restrictions in the south of the area, these do not apply further north. However, there would be a need for high cost highway infrastructure, but the area is well related to employment opportunities and a large area remains where the only major constraint is the floodplain, which it is technically feasible to ameliorate (paragraph 12.20 of this report refers). Consequently the overall assessment for area C is Good .
Area D 17.20 The area is constrained for space and highway capacity and would require major road improvements to nearby roads and junctions. A link to the major road network would be needed by links crossing the A419 or M4 Motorway.
17.21 The absence of any settlement between the urban area and the motorway means that there is no rural buffer in the area (Map 6). Much of the area is subject to severe environmental constraints, particularly in and around Coate Water, which constitutes a Site of Special Scientific Interest, a designated Country Park, whilst also having areas of high quality agricultural land immediately to the west and east (Map 11). The remaining area west of the A419 has few environmental features, although this remaining area is too small in scale to accommodate a strategic level of housing growth, being constrained by the A419 and M4 Motorway. The Landscape Appraisal identified the area east of Coate Water as having medium development potential, but with high landscape impact. The biodiversity habitat survey is fair.
17.22 There are a large number of jobs within walking and cycling distance (64,000), with a well-developed cycle network and a lack of physical barriers. Emergency services may not be adequately covered by existing facilities. Sewage flows would need to be directed to Wanborough or Swindon, with storm water and foul water infrastructure requiring upgrading. Improving the water supply could be a high cost exercise, although the area has suitable gas infrastructure nearby. Electricity supply would be difficult, but the area is unconstrained by overhead power lines or Ministry of Defence pipelines.
17.23 Area D has the advantages of accessibility, good infrastructure (except for electricity and water supply) and is not affected by rural buffers. However, much of the area has severe environmental constraints, but these do not apply in the east of the area. For this area, therefore, the overall assessment is Good .
Area E 17.24 The area has poor access to the M4/A419 but will benefit from infrastructure improvements associated with the Southern Development Area. There are capacity constraints on the motorway junctions and there would be issues with bypassing Wroughton involving a considerable length of new carriageway. The ability to link to the Croft Park and Ride site is, however, a positive issue.
17.25 The eastern half of the area comprises a rural buffer to prevent the coalescence of Swindon and Wroughton (Map 6). There is no rural buffer constraint in the western half of the area. In terms of the Environmental Features Assessment, the area is almost devoid of environmental features, Page 120
which would constrain development (Map 12). The Landscape Appraisal identified severe landscape constraints across the area, but with some development potential north and west of Wroughton. The biodiversity habitat survey is fair.
17.26 There are a considerable number of jobs within walking distance and cycling distance (66,600), providing many Class B1 (mainly office) jobs. However, the M4 Motorway and the London/Bristol railway line form considerable barriers to access to employment sites, particularly those in West Swindon.
17.27 Whilst area A has few environmental features, rural buffer covers much of the area and the remainder has poor accessibility. For the area within the rural buffer the assessment is Poor , for the remaining area it is only Fair .
Area F 17.28 The only link to a high capacity highway network is through Junction 16 of the M4 Motorway, where there is limited capacity. An essential element of transport provision would be the provision of a mainline rail link through a new station at/close to Wootton Bassett. The site is likely to be car-dominated and would require expensive roadworks to improve Junction 16, which may not be feasible, or a new limited movement junction as set out in SWARRMS.
17.29 The area between Swindon and Wootton Bassett, and north of the London/Bristol railway line comprises a rural buffer to prevent the coalescence of the two settlements (Map 6). Between Swindon and Wootton Bassett there are few environmental features apart from some areas of Great Western Community Forest planting which are insufficient to inhibit development, and a nature conservation site south of the railway line. (Map 13). The Landscape Appraisal identified significant constraints over much of the area, but with potential for development in the Spittleborough area near Junction 16 and the Brinkworth Brook Vale west of Wootton Bassett. The biodiversity habitat survey is fair.
17.30 There are few jobs (22,000) within walking or cycling distance of Swindon, with the M4 Motorway forming a barrier. Emergency service provision should not present a problem, but might involve medium to high cost to the Fire Authority. Infrastructure for sewage would not involve exceptional cost but there are water supply issues. Gas and electricity supply are not a problem and the area is not constrained by overhead power lines. There are several gas and Ministry of Defence pipelines running through the area.
17.31 The part of Area F adjacent to the Swindon Principal Urban Area boundary comprises rural buffer and has limited highway capacity or accessibility to employment and community services, although utility services are available. The overall assessment is Poor .
Area G 17.32 The area is limited by the low capacity network, which places significant traffic pressure on existing roads. However there are good potential connections into Swindon by upgrading existing routes, with access not being dependent on linking directly to the trunk road network.
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17.33 The whole of the eastern part of the area (except Lydiard Country Park) comprises a rural buffer to prevent the coalescence of Swindon with Lydiard Millicent and Purton. In the southern part of the area development is constrained by Lydiard Country Park (listed on the Register of Parks and Gardens of Special Historic Interest) and its environs, and their associated environmental features (Map 14). Further north the villages of Lydiard Millicent and Purton and their conservation areas constrain development. The Landscape Appraisal identified significant landscape constraints over much of the area, except on the dip slope from Hook Street to Common Platt, where there was high potential for development. The biodiversity habitat survey is fair.
17.34 Whilst having fewer jobs within walking and cycling distance than some areas (43,000), there is a good range of jobs, mostly within West Swindon. The lack of physical barriers and a good existing cycle path and footpath network makes for good accessibility. Emergency service provision would not be a major problem. A dedicated foul water main would be required; otherwise sewage treatment would not be a major constraint. There are very limited water mains in the area and provision would involve medium level costs due to the remoteness of the area. Gas and electricity supply are not major constraints, but overhead power lines and gas/Ministry of Defence pipelines could impact significantly on development because of the buffers required.
17.35 The part of Area G that lies adjacent to the Swindon Principal Urban Area boundary comprises the rural buffer, Lydiard Country Park and limited water and sewerage infrastructure. Therefore, although it is accessible to jobs and community services, its overall assessment is Poor .
Area H 17.36 The area is limited by the low capacity highway network that places significant traffic pressure on existing roads. The area could tie into the Northern Orbital Road and the Purton-Iffley Link, although the former would require costly upgrading of the existing route and the latter could result in significant loading of the road through Blunsdon village.
17.37 West of the Northern Development area there is a rural buffer to prevent the coalescence of Swindon with Purton (Map 6). Along the A419 another rural buffer prevents Swindon coalescing with Blunsdon. Development northward would be constrained by a rural buffer that prevents the coalescence of Swindon and Cricklade. West of the Northern Development Area there are environmental constraints in the form of Mouldon Hill Country Park, the indicative floodplain, and nature conservation sites. (Map 15). An area of high quality agricultural land near the A419 also constrains development, but between there and the floodplain there is no significant environmental constraints. The Landscape Appraisal identified the areas with least landscape impact and most development potential as being the Tadpole Farm area north of the western part of the Northern Development Area and, to a lesser extent, in the vicinity of Mouldon Hill. The biodiversity habitat survey is poor.
17.38 There is a significant lack of jobs within walking distance (2,700). Completion Page 122
of the cycleways network and employment sites in the Northern Development Area will not significantly improve the area’s overall employment accessibility rating. Development in the area would necessitate additional Fire Brigade resources. A new sewage treatment works would be required north of Swindon but water supply is adequate. Gas supply could be a problem but electricity supply would be straightforward. The area is not constrained by overhead power lines but there are several gas and Ministry of Defence pipelines running through the area.
17.39 Area H has a limited road network with poor accessibility to jobs. Potential development areas are also severely restricted by rural buffers and environmental features. However, a remaining area of land with development potential remains in the north, although rural buffer constraints may limit its size to less than that of a strategic level. There are high quality agricultural land considerations. Consequently the overall assessment for Area H is Fair.
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18. Conclusion
18.1 The aim of the Swindon Principal Urban Area Study is twofold. Firstly, consider the capacity and potential to accommodate further growth within the existing urban area and secondly, to determine the most sustainable direction(s) of growth for Swindon and its wider functional area through an urban extension. This study is different from the Swindon Development Appraisal (1999) in that Regional Planning Guidance (paragraph 1.2 and Policy SS5 refer) considers that Development Plans should not only seek to meet the needs up to 2016, but also beyond. Consequently, a central ethos of the Swindon Principal Urban Area study is to accommodate growth to meet both currently identified needs, and additional future requirements, by identifying a long-term development strategy. The key reasons for following such a strategy are:
Ø Swindon has been identified as a Principal Urban Area through Regional Planning Guidance due to its potential to accommodate development in the most sustainable way. As a key centre for growth, the Joint Strategic Planning Authorities consider it prudent to have a clear planning strategy and vision in place, enabling the Swindon Principal Urban Area to embrace growth as and when required.
Ø Due to technological advances Swindon is not just competing in the local marketplace, but rather in the global arena. To ensure that the economic momentum that Swindon and its surroundings have accumulated are retained, a positive, proactive stance anticipating and embracing change will be required. Clearly stating a long-term direction of growth to accommodate future development needs, will enable the Swindon Principal Urban Area to retain and enhance its market status.
Ø Local businesses have indicated difficulties in the local labour market when filling vacancies. The ability to provide a labour force with sufficient skills to match future demands will be critical for Swindon to retain existing, and attract new businesses into the Principal Urban Area. The benefits that a University would bring to Swindon include, attracting new businesses, increasing the desire to reside in Swindon, the creation and retention of a more qualified labour force, thereby generating the potential to reduce skills shortages.
Ø A long-term, planned expansion of the Swindon Principal Urban Area will enable a more sustainable form of development to be created, through the provision of infrastructure, services and facilities, whilst also providing a better balance between housing and employment. Smaller scale “piecemeal” developments would not be able to generate the critical mass necessary to finance the expectations, aspirations and requirements of local communities.
18.2 Firstly, looking inwards, the Urban Capacity and Urban Potential studies reveal limited and insufficient capacity to provide inward investment and locally generated expansion. Further greenfield development is therefore needed to meet the requirements of Regional Planning Guidance. The Swindon Principal Urban Area study therefore enables local people to have a Page 124
direct influence on development in their area.
18.3 Looking around the periphery of the urban area, at each of the eight potential development cells, each has its own advantages and disadvantages, affecting its ability to accommodate development. For example, some have a larger concentration of archaeological remains, some have better public transport accessibility, whilst in other areas, landscape issues may limit the extent of development. All of these issues are discussed in detail through previous sections of this study. The overall assessment results (Section 17) summarises these findings into a single table, identifying the most sustainable location(s) for future development.
18.4 In concluding which direction(s) of growth is the most sustainable, the results of undertaking the extensive public consultation/participation for the Swindon Principal Urban Area Study, including the Pre-Deposit Consultation stage must be considered. Clearly, public consultation is a key part of the planning process, being underpinned by legislation. Public consultation indicated an overwhelming concern from stakeholders, particularly local residents, who regarded the issue of anti-coalescence and the separate character and identity of the surrounding settlements from Swindon of paramount importance. Consequently, after reviewing the Rural Buffer principle in the adopted Wiltshire Structure Plan 2011, combined with the strong public opinion on this issue, a priority has been attached to Rural Buffers, elevating their status above other issues.
18.5 Through the assessment process, Area D (Coate) was found to be highly sustainable, although it is only capable of accommodating a limited amount of growth. It could (potentially) contribute to some of the housing requirement up to 2016, but would certainly not offer any longer term potential. This discrete site, with limited future potential, was therefore considered sustainable, but not in the context of accommodating Swindon’s longer-term growth. As a result, it was concluded that Area D should therefore not be identified as the area for strategic long-term growth to accommodate the Principal Urban Area’s needs up to, and beyond, 2016. Conversely, Area C, land east of the A419 and south of the A420 is, on balance, considered to offer the greatest potential to achieve a sustainable form of development on a greenfield site, both now and in the future. The results of the overall sustainability assessment, as identified in the Principal Urban Area study, demonstrate this conclusion, summarised in Appendix 13.
18.6 Key positive aspects of the Area D (Coate) are summarised as:
Ø High accessibility through good public transport links between the site and the central area. The relatively short distance between the site and the central area combined with the frequent bus service linking the Great Western Hospital will help ensure a quick, reliable and frequent public transport service offering the greatest potential for a modal shift away from the private car.
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Ø The Pre-Deposit consultation period identified rural buffers as being of greatest concern to local communities. Area D (Coate) is not within an area considered to necessary to satisfy the principles of the rural buffer policy. Therefore, development within this area would not conflict with either public concerns, or the adopted Rural Buffer policy (DP13), as this policy is not part of the alteration.
Ø There are no flooding issues within this area.
Ø There are a limited number of small-scale archaeological features of identified importance that can be incorporated into development, whilst not adversely affecting their intrinsic qualities or setting, thereby not precluding development.
Ø Although Coate Water is a Site of Special Scientific Interest (SSSI), Government Guidance does not preclude development adjacent to these sites if there are no detrimental impacts on them. Therefore, a buffer zone adjoining Coate Water Country Park of a sufficient size to protect the integrity of the site through mitigation, provide an appropriate level of protection to nature conservation interests and maintain the setting, would be required.
Ø The site offers an opportunity to create a ‘gateway’ site, making a positive statement for Swindon and Wiltshire County as a whole. A high quality landmark building could make a bold, innovative statement, raising Swindon’s image through the sites high degree of visibility and prominence from the M4 Motorway.
Ø There is an excellent opportunity to create strong links between the University and the Great Western Hospital, creating a centre of academic excellence.
Ø High degree of integration with the existing cycle and footpaths.
Ø Maximise the opportunity to create a modal shift away from the private car through use of the programmed Park & Ride facility.
Ø Large quantity of jobs within walking and cycling distance.
18.7 Whilst undertaking the Swindon Principal Urban Area Study the Joint Strategic Planning Authorities have been made aware of the requirements of the University of Bath in Swindon to expand their activities at Swindon to incorporate a campus. Taking into account the ethos of sustainability, a sequential approach to development should be undertaken when considering the location of such development, focusing on the town centre first, edge of centre and then within the remainder of the urban area (particularly to reinforce the existing facility at Oakfield) before seeking to identify a greenfield location. Such a process would assist the aims and objectives of the New Swindon Company, ensuring that urban renaissance is not prejudiced, whilst also according with Government guidance.
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18.8 Wiltshire and Swindon presently have few higher education establishments, the most notable of which was only recently established at Oakfield campus in Swindon. Universities are not only seats of academic research, but their students are among some of the most creative and innovative members of society. The spin off benefits for Swindon’s leisure, retail, cultural and employment activities, particularly in the central area, are significant, along with the increased ability to retain some of its brightest young people rather than losing them to higher education establishments in other parts of the country.
18.9 As part of the Principal Urban Area consultation process, the business community have stated that increasing skill levels in the workforce will be critical to ensure that Swindon and its surroundings can provide an attractive pool of appropriately skilled labour to encourage continued economic investment, to at least retain the existing market momentum (paragraph 3.13ii refers). A University at Swindon has the potential to develop productive synergies with the business community that will raise skill levels in the local labour force, thereby increasing the resources on offer locally to the business community.
18.10 The University of Bath in Swindon have indicated that they wish to create an establishment capable of admitting undergraduates from all over the country, suggesting that an intake of up to 10,000 full and part time students would be expected. Current estimates suggest that a campus site of not less than 60 hectares would be required to meet these aspirations. In addition to the campus, it is expected that the University would benefit from linkages to industrial, commercial and health facilities, and that it would require housing for both staff and students. It is envisaged that the University would offer courses that have direct relevance to business, commerce and health. In order to facilitate business linkages and provide research facilities, it may be appropriate for a high tech science park, consisting of predominantly Class B1 uses, to be located adjacent to, and operate in tandem with, the University.
18.11 However, due to the scale of development (approximately 60 hectares), the opportunity to acquire such a large site, either within the central area or the remainder of the urban area, is extremely limited. In practice there are currently no single sites of this scale available or anticipated to become available. Taking into account the sequential approach when determining the most sustainable location for future development (paragraph 18.7 refers), if there are no sites available within the central/urban area, the next most sustainable location is an urban extension.
18.12 Consequently, due to Area D’s (Coate) intrinsic sustainability advantages, i.e. good public transport links to the central area and the fact that it performed the best in the overall sustainability assessment, albeit at a small scale (Appendix 13 refers) the Joint Strategic Planning Authorities consider it appropriate to identify Area D to accommodate a University campus. Although the land required may not be of such a magnitude to be considered “strategic”, the implications and impacts that a University would have for Swindon and Wiltshire are considered to be of a scale that they should be Page 127
considered at the strategic planning level. The prestige, academic opportunities, links to the Great Western Hospital, positive image and improvement in labour force skill levels will have major benefits to the local economy, akin to a major strategic employment site. Therefore, it is considered appropriate to identify a site for a University through the Structure Plan process.
18.13 Although an urban extension is the next most sustainable solution to meet the needs for a new campus, regeneration of the central area and the University’s existing presence at Oakfield should not be neglected. Therefore, in combination with developing a greenfield campus site, the University should also develop a presence within the central area, as well as consolidate its existing facility of Oakfield.
18.14 Having identified Area D (Coate) as a sustainable location that could accommodate a University, this area cannot accommodate the long-term direction of growth due to its fixed, limited size. The next most sustainable area, Area C, land east of the A419 and south of the A420 is, on balance, considered to offer the greatest potential to achieve a sustainable form of development on a greenfield site, both now and in the future. The results of the overall sustainability assessment, as identified in the Principal Urban Area study, demonstrate this conclusion, of which the key positive aspects are summarised as:
Ø There is limited High Quality Biodiversity within Area C. The area has the lowest quantity (in terms of area) of County Wildlife Sites of all the assessment areas (1.4%). Furthermore, the highest quality habitats, identified as High Quality Biodiversity Action Plan Habitats, cover less than 3% of the assessment area, (<18 hectares) the third lowest of all the areas. Although having the highest concentration of otters, there are minimal records of other protected species present.
Ø There are a considerable number of jobs within walking and cycling distance (58,000), offering a high degree of employment opportunities. The industrial estates of Dorcan, Greenbridge, Brittannia Park, with the Honda and Rover car manufacturing plants offering further opportunities. However, additional crossing points along the A419 will be required to maximise these opportunities.
Ø The entire area is comprised of Kimmeridge Clay and alluvium deposits, resulting in grade 3b agricultural land over the entire area. Therefore, there would be no loss of High grade agricultural land to development.
Ø The area is relatively unconstrained by the principle of rural buffers, albeit except for the extreme southern periphery of the area adjoining Wanborough and Liddington. Development within this area would not conflict with the principle of rural buffers, retaining the separate identity and character of surrounding settlements through non-coalescence with Swindon.
Ø Whilst the transport assessment acknowledges the limitations of the A419 in the long term, the need for significant investment or a step- Page 128
change in the modal share, there is capacity at present to accommodate the requirements of the Structure Plan period (paragraph 10.1 refers) in this area. In addition, good access to the Trunk road network increases the potential for the employment component of a mixed development scheme to be delivered.
Ø Area C will not only provide the development requirement of the Structure Plan up to 2016, but also for long-term development. Such long term development capacity will enable the creation of a critical mass to that will ensure the delivery of services, facilities and infrastructure necessary to move towards a sustainable, mixed development.
Ø A Park and Ride facility located along the A420 is identified in the Swindon Borough Local Transport Plan 2001-2006. This facility will increase the potential for a modal shift away from the private car towards a more sustainable form of development.
Ø The existing retail facilities south of St. Margaret’s Park combined with the leisure opportunities present at Greenbridge, are within walking or cycling distance, also accessible by public transport.
18.15 Although it is recognised that each of the assessment areas surrounding Swindon have constraints to development, it is considered that Area C has fewer constraints compared to the other areas, and these are technically possible to ameliorate (for example the indicative floodplain/overland water flow). Having concluded that Area C is the most sustainable long-term option, the constraints that have been identified through the Principal Urban Area study will have to be addressed at the next, more detailed stage of the planning process.
18.16 For these reasons summarised in this report, Area C is considered to enable the Swindon Principal Urban Area to meet any outstanding needs to 2016, yet also have the potential to fulfil future aspirations. The strategic development proposals, together with the boundary of the Swindon Principal Urban Area are shown on Map 18.
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