The Swale Borough Local Plan 2008 Annual Monitoring Report 2013/14 Annual Monitoring Report 2013-14 1
Executive Summary 1
1 Executive Summary
1.1 This is the Annual Monitoring Report (AMR) of the Swale Borough Council Local Plan 2008 for the period 1 April 2013 - 31 March 2014.
1.2 The main headlines this monitoring year are:
Housing completions are still below pre-recession levels but importantly are improved from last year (2012-13). Planning permissions granted this year and increasing house prices also indicate that market conditions are improving. The recent level of completions and commitments have had a significant effect on the Council's ability to demonstrate a five year supply of housing. The Council does not have a five year housing land supply. Affordable housing completions this year equate to 34% of the total dwelling completions. This exceeds the 30% target the Borough seeks to achieve. Section 106 agreements and contributions collected this year exceeds £1.2 million and has been collected for education, social services, community infrastructure and town centre improvements. There has been no change in local environmental indicators with Special Protection Areas, Sites of Special Scientific Interest, Local Wildlife Sites or Ancient Woodland remaining unchanged. This year 30% of housing completions were on previously developed land. All employment completions have been on brownfield land, this is a significant achievement given the constraints around delivery on previously developed land.
1.3 This is the first monitoring year since the withdrawal of the South East Plan and therefore this AMR is reporting on the development targets and time scales set by the adopted Local Plan (2008) and the progress of the emerging Local Plan: Bearing Fruits. This has also changed the base date used for the completions trajectory which, in turn, has affected the projected five year housing land supply. 2 Annual Monitoring Report 2013-14
1 Executive Summary Annual Monitoring Report 2013-14 3
Introduction 2
2 Introduction
2.1 This Annual Monitoring Report (AMR) covers the monitoring period 1 April 2013 to 31 March 2014. The AMR sets out what has happened in the Borough. It also compares trends against the policies and targets set. The AMR monitors the policies and proposals of the adopted development plan which for the monitoring period consists of the Swale Borough Local Plan 2008 and the emerging Draft Local Plan Bearing Fruits 2031. This is the first monitoring year in which performance against the South East Plan will not be monitored as it was withdrawn in March 2013.
2.2 The Council has a Local Development Scheme (second revision) which was approved November 2010. Following the publication of the National Planning Policy Framework; Planning Policy for Traveller Sites; and viability testing guidance the Local Development Scheme is currently under review and will be published prior to the submission stage of the emerging Local Plan: Bearing Fruits (expected early 2015).
2.3 This report is intended to meet the requirements of Part 8 (Regulation 34) of the Town and Country Planning (Local Planning) (England) Regulations 2012.
2.4 Local Planning Authorities are required to assess whether they can meet the housing requirement for their area. The National Planning Policy Framework (NPPF) requires that local planning authorities update their five year housing land supply assessment on a yearly basis. The NPPF replaces the former Planning Policy Statement 3: Housing, however, the Strategic Housing Land Availability Assessment (SHLAA) Practice Guidance (2007) remains current.
2.5 The Government has now abolished regional strategies and plans. Following the partial abolition of the South East Plan (25th March 2013) it became the responsibility of the local planning authority to determine local housing requirements based on objectively assessed needs.
Development Plan Documents
2.6 The Development Plan Documents (DPDs) are the starting point for decision making and will, on adoption, consist of the following:
The adopted Local Plan (2008).
The emerging Local Plan: Bearing Fruits (previously known as the ‘Core Strategy’) which will contain land use allocations, strategic and development management policies.
Emerging Neighbourhood Plans.
2.7 Supplementary Planning Documents (SPDs) are also material considerations in decision making and the Council has prepared and adopted a number of these on a variety of subjects. 4 Annual Monitoring Report 2013-14
2 Introduction
The Local Plan (Formerly the Core Strategy)
2.8 The Local Plan (LP) is the main planning policy document covering the Borough and together with the Kent Minerals and Waste Local Plan and any Neighbourhood Plans, will form the development plan for the Borough. It sets out the vision for the area over the next 10 to 20 years and the policies intended to enable this to be achieved. There are a number of formal stages in the process of producing the Local Plan each governed by legal regulations.
2.9 The Key Stages can be summarised as:
Evidence gathering, consideration of options and issues;
The chosen option;
A minimum of six weeks in which to receive representations on the development plan document;
The formal submission to the Secretary of State;
The Public Examination.
The 5 year land supply
2.10 Para. 47 of the National Planning Policy Framework (NPPF) states that local planning authorities should identify a five-year supply of deliverable housing sites against their housing requirements and should include an additional ‘buffer’ of 5% or 20% to ensure choice and competition in the market for land (moved forward from later in the Plan period).
2.11 The buffer is to be 5% in normal situations, or 20% if a local authority has persistently under-delivered on housing in the past. The Council intends to have a buffer of 5%. The buffer will consist of sites brought forward from later in the plan period, so the overall housing requirement remains the same over the duration of the plan. The Council considers it has not persistently under-delivered as annual completions have remained around or above the five and ten year averages which demonstrates a consistent and sufficient level of completions which cannot be considered persistent under-delivery. The impact of the buffer is that the five year supply must be able to demonstrate meeting a 105% requirement within the first 5 years.
2.12 The NPPF (paragraph 48) states that local planning authorities may include an allowance for windfall sites in the five year supply subject to:
Compelling evidence that such sites have consistently become available in the local area and will continue to provide a reliable source of supply;
The allowance being realistic having regard to the Strategic Housing Land Availability Assessment, historic windfall delivery rates and expected future trends;
The allowance should not include residential gardens.
2.13 The purpose of a windfall allowance is to account for housing development on sites where it is not possible to identify sites in advance. The Council does include a windfall allowance within the housing supply trajectory reported in Section 4 of this AMR. Annual Monitoring Report 2013-14 5
Introduction 2
2.14 For this monitoring year completions against the adopted Local Plan (2008) have been recorded within the housing land supply but it does not include sites documented within the Strategic Housing Land Availability Assessment (SHLAA). It is anticipated that in future years, housing land supply will include SHLAA sites and emerging allocations, given the advanced nature of the draft Local Plan: Bearing Fruits 2031.
2.15 Paragraph 47 of the NPPF also includes a reference to identifying a supply of specific developable sites or broad locations for years 6-10 and where possible for years 11-15. The Council is required to illustrate the expected rate of housing delivery through a housing trajectory for the plan period.
Document structure
2.16 The main body of the AMR is set out by themes on housing, employment and environmental indicator sets.
The sections are as follows:
Chapter 3 - sets out a portrait of the Borough including issues and challenges facing it, to be addressed in the development plan
Chapter 4 - Homes and Communities - analysis of performance towards targets, core and contextual indicators
Chapter 5 - Employment - analysis of performance towards targets, core and contextual indicators
Chapter 6 - Environment and Climate Change - analysis of performance towards targets, core and contextual indicators
Chapter 7 - a summary of progress on implementing the Local Development Scheme 2010; and
Chapter 8 - Duty to Co-operate - defining strategic issues, bodies co-operated with and links to the Duty to Co-operate Statement submitted April 2015 (which includes all of the Duty to Co-operate activities undertaken during the monitoring year 2013 - 2014).
2.17 The report concludes with a section on the actions arising from this year's outcomes and any recommendations for next year. 6 Annual Monitoring Report 2013-14
2 Introduction Annual Monitoring Report 2013-14 7
Portrait of Swale 3
3 Portrait of Swale
3.1 The following section sets out the broader character of Swale in terms of the demographic, social, economic and environmental characteristics of the borough. The section includes statistics and commentary used to analyse trends and patterns. The section will also focus on the key characteristics of the area and highlight local issues, setting the scene for future planning in the borough.
Landscape
3.2 Swale is the bridging point between north and east Kent, named after the narrow channel of tidal water between mainland Kent and the Isle of Sheppey. It is a Borough of some 139,200 people who primarily live in its three main towns, Sittingbourne, Faversham and Sheerness.(3.1)
3.3 Swale is close both to London and mainland Europe and well connected to the national motorway network. The M2 runs east-west across the Borough, providing access to destinations between the Channel Ports and London. London is accessible in a little under an hour by high speed rail services and just over an hour on regular services. As a coastal Borough, the Port of Sheerness gives access, via its deep water berths, to the largest ships in the world; its imports distributed to all corners of the UK. Swale is also within relatively easy reach of other major Kent centres - Canterbury, Ashford, Maidstone and the Medway Towns.
3.4 Sittingbourne (population 47,500) is the main town, acting as a population, employment and service centre for the Borough. These functions and the town’s present day distinctiveness derives from its location on the London-Dover Road pilgrims route and the industries such as brick and paper making that settled here.
3.5 The Isle of Sheppey is separated from the mainland by the Swale and its main town is Sheerness (population 12,000). It owes much of its distinctiveness to its role as a former naval dockyard and current Port facility. The town centre functions as the main shopping and service centre for the Island's residents and visitors.
3.6 Faversham (population 19,500) is an attractive and historic small market town. Faversham and Oare are located at the head of two creeks and surrounded by attractive countryside. The town is best known for its continued links with brewing and food. There is an outstanding range of historic buildings, streets and waterways and a town centre with strong independent retail and service sector.
3.7 Outside the towns are the Borough's extensive rural areas. There is a great diversity of settlements and landscapes, many of great charm and character. Larger villages along the main transport routes like Newington, Teynham and Boughton have a range of local facilities and services. Away from the main routes are smaller, more isolated settlements and hamlets. Over the last 20 years most of the villages and towns in Swale have experienced growth, with growth in the towns the most rapid. Over the last 60 years, population growth has been amongst the most rapid in Kent. Now, Swale has the third largest district populations in Kent and built development has similarly physically grown - in the last 10 years more employment floorspace has been built than anywhere else in the county and it has the sixth highest levels of completed new homes.(3.2) 8 Annual Monitoring Report 2013-14
3 Portrait of Swale
Population
3.8 The population statistics in this section represent the latest available at the point of monitoring. Swale's population in the 2011 Census was recorded as 137,700, increased from 122,801 in 2001. Between 2001 and 2011 the population has increased by 14,899 people. In 2011 the population was made up of 50.5% females and 49.5% males. Since the Census more recent population figures have been released from the Office of National Statistics. These figures show that the population of Swale in 2013 was 139,200 an increase of 1,500 since the Census.
3.9 Population growth in Swale has been largely fuelled by those who move here, however the population is ageing and the death rate is higher than the South East average.(3.3) The expanding urban populations are largely as a result of migration into the area by younger people and families. This younger population brings with it a rising birth rate which partly offsets the older age groups and the impacts of an ageing population, as well as helping to maintain the population of working age.(3.4) Some 58% of the population are urban based, leaving a significant proportion (42%) living in the rural areas of the Borough.(3.5)
3.10 Table 3.1 shows the total population in Swale (2013) as 139,200 people, making up 9.3% of the total population of Kent (the third largest borough in the county) . The table also shows the age group and gender break down of the population.
% % of Age range Total % of pop. Males Females of pop. pop.
All 139,200 100% 68,800 49.5% 70,300 50.5%
0-4 9,000 6.5% 4,600 3.3% 4,400 3.2%
5-9 8,600 6.2% 4,500 3.2% 4,100 3.0%
10-14 8,300 6.0% 4,200 3.0% 4,100 2.9%
15-19 8,900 6.4% 4,600 3.3% 4,300 3.1%
20-24 7,900 5.7% 4,200 3.0% 3,800 2.7%
25-29 8,100 5.8% 4,000 2.9% 4,100 3.0%
30-34 8,400 6.1% 4,100 2.9% 4,400 3.2%
35-39 7,800 5.6% 3,800 2.7% 4,000 2.9%
40-44 9,600 6.9% 4,700 3.4% 4,900 3.5%
45-49 10,700 7.7% 5,300 3.8% 5,400 3.9%
50-54 9,700 6.9% 4,900 3.5% 4,800 3.5%
55-59 8,500 6.1% 4,400 3.1% 4,100 3.0%
60-64 8,200 5.9% 4,000 2.9% 4,200 3.0% Annual Monitoring Report 2013-14 9
Portrait of Swale 3
% % of Age range Total % of pop. Males Females of pop. pop.
All 139,200 100% 68,800 49.5% 70,300 50.5%
65-69 8,700 6.3% 4,300 3.1% 4,500 3.2%
70-74 5,900 4.2% 2,900 2.1% 3,000 2.2%
75-79 4,500 3.2% 2,100 1.5% 2,400 1.7%
80-84 3,200 2.3% 1,300 1.0% 1,900 1.4%
85+ 2,900 2.1% 900 0.7% 1,900 1.4%(i)
Table 3.1 Population by age and gender 2013 i. http://www.kent.gov. uk/__data/assets/pdf_file/0004/8149/Whats-causing-Kents-population-growth.pdf
Population migration
3.11 The trend of migration into the borough and its effect on population change deserves further investigation and commentary. There are two components of population change. These are either ‘migration’ which is people moving in or out of the area or ‘natural change’ which is the number of births and deaths that have occurred amongst the resident population. Migration can further be broken down to 'internal migration' people moving in from elsewhere in the country and 'international migration' which is comprised of people moving in from outside the UK. Unfortunately there is no single data set that provides the complete picture of migration flows and the characteristics of all migrants. This has made the task of estimating the number of migrants very difficult. The Office for National Statistics (ONS) embarked upon a programme of work designed to improve the quality of existing sources of migration statistics. Despite improvements being made there is still no single data set that provides the complete picture of immigration, emigration and the resulting net migrant total. The information on international migrants is not as detailed and the international migration data from KCC Monitoring(i) only counts migrants who intend to stay within the UK for at least 12 months.
3.12 Nationally migration, both internal and international, makes up about 53% of the population increase each year and the rest is natural change. In the monitoring year 2012/13 over 73.3% of the population change in Kent was through migration into the county. In 2012-13 in Swale 64.8% of the change in the population was through migration and only 35.2% as a result of natural change.
3.13 Migration into Swale is primarily from internal migration from elsewhere in Kent and London. The table below shows the net migration of population into the borough each year since 2002. The net migration in 2012/13 equated to a small 0.7% change in the population.
i www.kent.gov.uk/__data/assets/pdf_file/0005/13829/Migration-indicators-bulletin.pdf 10 Annual Monitoring Report 2013-14
3 Portrait of Swale
2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 2010/11 2011/12 2012/13
Kent 9,600 11,300 12,700 12,100 15,000 12,200 8,900 12,600 10,300 9,300 9,800
Swale 900 300 400 600 1,800 1,600 900 1,300 700 800 1,000
Table 3.2 Net migration change
(Source: Kent County Council Business Intelligence, Research & Evaluation, Kent County Council 2012/13)
3.14 However net migration figures mask the flows in and out of an area. Table 3.3 shows the figures for migration are much higher than the net increase in population.
2008/09 2009/10 2010/11 2011/12 2012/13
In Out Net In Out Net In Out Net In Out Net In Out Net
6,000 4,900 1,000 6,300 5,200 1,100 6,100 5,300 800 6,500 5,700 800 6,300 5,400 900
Table 3.3 Migration flows in Swale for the last five years
(Source: Kent County Council Business Intelligence, Research & Evaluation, Kent County Council 2011/12)
3.15 The latest data (2013)(ii) showed that of the 900 people who moved into Swale 500 where from elsewhere in the UK and 400 were international migrants. The majority of people moving into the borough came from elsewhere in Kent and London. Table 3.4 shows the origin of people moving into the borough.
Origin People (rounded to nearest 100)
Ashford 100
Canterbury 600
Dartford 100
Dover 100
Gravesham 100
Maidstone 400
Sevenoaks 100
Shepway 100
Thanet 100
Tonbridge and Malling 200
Tunbridge Wells 0
London 1,300
ii http://www.kent.gov.uk/__data/assets/pdf_file/0005/13829/Migration-indicators-bulletin.pdf Annual Monitoring Report 2013-14 11
Portrait of Swale 3
Origin People (rounded to nearest 100)
South East 1,400(i)
Table 3.4 Location/Origin of internal migrants into Swale 2012 - 2013 i. It should be noted that this data excludes the unitary authority area Medway as KCC monitoring does not cover this
(Source: Kent County Council Business Intelligence, Research & Evaluation, Kent County Council 2012/13)
These statistics exclude the unitary authority area Medway and only cover the two tier authorities areas under Kent County Council. This is likely to distort the picture of internal migration as Medway is an adjoining district to Swale and it is anecdotally know that migration occurs between the authority boundaries.
3.16 International migration in 2012/13(iii) showed 700 people moving into Swale from outside the UK but 300 people left, leaving a net increase of 400 international migrants. This does not necessarily give the full picture of international migration in Swale. International migration data from the Office of National Statistics only counts migrants who intend to stay within the UK for at least 12 months. Kent County Council have undertaken research and estimates on the number of short-term migrants into each of the Kent districts, shown below in Tables 3.5 and 3.6. These show the rate compared to the total population and that it has remained comparable to Kent.
2007/08 2008/09 2009/10
Total Short-term Rate per Total Short-term Rate per Total Short-term Rate per population international 1,000 population international 1,000 population international 1,000 migrants population migrants population migrants population
England 51,815,900 128,198 2.5 52,196,400 102,000 2.0 52,642,500 112,973 2.1
Kent 1,423,300 2,617 1.8 1,435,300 1,886 1.3 1,451,900 1,957 1.3
Swale 131,700 296 2.2 133,000 183 1.4 135,000 181 1.3
Table 3.5 Estimates of short-term international migrants to England, Kent and Swale in Mid-2007/08 to Mid-2011/12
2010/11 2011/12
Total Short-term Rate per Total population Short-term Rate per population international 1,000 international 1,000 migrants population migrants population
England 53,107,200 93,438 1.8 53,493,700 107,247 2.0
Kent 1,466,500 2,498 1.7 1,480,200 2,250 1.5
Swale 136,300 169 1.2 137,700 205 1.5
Table 3.6 Estimates of short-term international migrants to England, Kent and Swale in Mid-2007/08 to Mid-2011/12
iii Link to migration data 12 Annual Monitoring Report 2013-14
3 Portrait of Swale
(Source:KCC Local Area Migration Indicators (Mid Year Population Estimates Unit, Office for National Statistics)
3.17 Given the rural nature of the borough seasonal workers in the agricultural industry are attracted and it is known anecdotally that they come predominately from outside the borough, and indeed, the UK. To get a clearer picture it is helpful to look at the number of registration requests for National Insurance Numbers (NiNo's) which allow short term visitors to work here. In Swale in 2011 there were 1,313 applications and in 2012 there were 978, these figures are higher than the majority of Kent districts indicating a higher proportion of short term migrants working in the borough. Canterbury and Maidstone districts had higher ratios, although this could also be due to their transient student populations.
Deprivation Indicators
3.18 The English Indices of Deprivation 2010 were released by Communities and Local Government (CLG) on 24 March 2011. The Indices provide an area based measure of deprivation. Each area is assigned a deprivation score and rank so that their level of deprivation can be measured relative to other areas. The Indices measure deprivation for local authority areas and also Lower Super Output Areas (LSOA). The LSOA component provides the most detailed measure of deprivation. Swale has some of the most deprived Lower Super Output Areas in the country with 9 being in the 20% most deprived wards in England. Only one Swale ward is at the other end of the scale in the 20% least deprived nationally. Swale is ranked the 6th most deprived borough in Kent.
3.19 The most deprived LSOA's in Swale are Sheerness West, Leysdown and Warden, Sheerness East, Murston, Davington Priory, Milton Regis, Sheppey Central, Queenborough and Halfway and Roman. Map 3.1 shows the various wards and their ranking of deprivation against the Indices. Annual Monitoring Report 2013-14 13
Portrait of Swale 3
Map 3.1 Map showing IMD Areas
3.20 When indicators of social, economic, and environmental deprivation are examined, there are wide disparities between communities in parts of the Isle of Sheppey, Davington in Faversham and Milton Regis, Murston and Kemsley when compared with the more prosperous wards in the southern part of the Borough. There is a need for Family Centres in Sheerness and Faversham, Community Enterprise Hubs, Neighbourhood Support Centres and Community Learning Centres. There is also a need for additional primary and secondary school places and Further Education provision at Sittingbourne. 14 Annual Monitoring Report 2013-14
3 Portrait of Swale
Crime and Prevention
3.21 Swale Borough Council is part of the Community Safety Partnership which aims to tackle community and crime issues in the borough. The Swale Safer and Stronger Communities Plan highlights how the Community Safety Partnership (CSP) plans to tackle community safety issues that matter to the local community. The priorities identified by the CSP for 2011/12 were to:
address the needs of vulnerable adults; prevent young people from offending or re-offending; reduce incidents of Acquisitive Crime, in particular Burglary and Theft; reduce incidents of ASB and perceptions of ASB; and create Stronger Communities.
3.22 Key activities delivered by the Council and the CSP in the past monitoring year have included the following.
Supporting the Community Budget project which provides an integrated way of working with those families with complex needs who have come to the attention of multiple partners. Early outcomes from this project are positive – showing increased engagement with local support services by those families involved. Swale Domestic Violence Forum (DVF) continues to run a series of support services for victims of domestic abuse, including the One Stop Shop in Sittingbourne, which has seen a large increase in visitors in the past year. A number of crime reduction campaigns have been run by the CSU to tackle issues, including burglary. There have also been multi-agency operations to ensure compliance of licensed premises to licensing legislation, along with tackling underage drinking. Funding was secured from CleanKent to run the My Place Matters project in Sheerness to tackle environmental ASB and fires. The Stronger Communities Group has led on a number of activities to ensure that residents can have their say on local issues and participate in the delivery of their solutions. This group have also supported the delivery of a volunteering programme led by Kent Fire and Rescue Service.
Unemployment
3.23 Swale is amongst the top five Kent districts with unemployment rates higher than the national average. Swale also has higher than average rates of youth unemployment as well with 5.2% of the population aged 18-24 claiming unemployment benefits (Source: KCC Economy and Employment update 2014).
Future issues to be addressed
3.24 At each of the Borough's main urban areas, there have been high levels of housing growth in the recent past that have not been accompanied by new employment development, although there have been some encouraging signs of new investment at Sittingbourne and Sheppey during the monitoring year. Commuting patterns continue at a relatively high level and have been exacerbated by recession in the recent past (although Swale is not as influenced by London commuting as North and West Kent districts). This is especially so for the Isle of Sheppey, whilst at Faversham, it has additionally brought problems of the loss of land for employment and a change in character of areas like the creekside. There is a prosperity gap Annual Monitoring Report 2013-14 15
Portrait of Swale 3
between Swale and the southeast region with wage levels remaining lower than regional and national averages. There is also a potential mismatch of skills available locally compared with economic aspirations.
3.25 Sittingbourne needs to achieve new investment and regenerate its attraction as a shopping and leisure destination to meet the needs of its growing population and consolidate its position relative to other centres. At the smaller town centres of Sheerness and Faversham, and in the rural settlements, local services are vulnerable to erosion or loss.
3.26 New housing development has not always been accompanied with the necessary community facilities to meet the needs of the population. New infrastructure has been slow in unlocking the economic potential of the area.
3.27 Much of the land around the principal towns is designated for landscape or biodiversity and and all is valued for the intrinsic nature of the countryside. There is also a significant concentration of best and most versatile agricultural land within the Borough. There are slender countryside gaps that separate Sittingbourne from nearby villages, whilst the risk of flooding impacts upon communities and development potential. Ensuring that the Borough fulfils its role by responding to and taking advantage of development pressures and opportunities, may present tensions concerning the environment that must be addressed if growth and regeneration is to be accompanied with an improved quality of life.
3.28 Global climate change will contribute to increased risk of flooding in the Borough, and more needs to be done to encourage energy conservation and other sustainable design and build techniques in new development. There is steady, but slow, progress in improving the sustainable design and build of new developments, and high quality design should not be limited to 'special' locations.
3.29 There is traffic congestion in the A2 corridor, with particular issues at key junctions linking the local and strategic road networks; and at M2/J5. In Sittingbourne town centre, there has been some improvement as a result of the opening of the bridge section of the Sittingbourne Northern Relief Road and removal of commercial traffic from the town centre. Further improvements in the amenity of the town centre through highway improvements should be achieved through the town centre regeneration partnership. The A2500 on the Isle of Sheppey is also a particular pinch point at peak times. On rural roads, increasing traffic also produces costs to human health, the environment and the economy.
3.30 There is poor environmental quality in parts of the Borough needing to be tackled through regeneration, notably at Milton Creek, Queenborough/Rushenden, Sheerness, and Blue Town. Conversely, the character of the countryside is under threat from increasing development pressure and changes in the agricultural and forestry economies. 16 Annual Monitoring Report 2013-14
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End Notes
3.1 Office of National Statistics, mid-year estimate, 2012 3.2 Kent County Council Commercial and Housing Information Audits 3.3 Office for National Statistics, Birth and Death Rates 2012 3.4 SHMA Update and Development Needs Assessment. NLP for SBC 2013. Paras. 3.4-8 3.5 2011 Census Annual Monitoring Report 2013-14 17
Homes and Communities 4
4 Homes and Communities
Housing Summary
Until March 2013, the annualised target was set by the South East Regional Spatial Strategy dwellings per annum. This has now been rescinded. The adopted Local Plan (2008) target is 606 dwellings per annum and the emerging Local Plan is 540 dwellings per annum. The base date for the housing trajectory has been moved forward to 2011 -2012 to come in line with the adopted and emerging Local Plans. This effectively disregards the high levels of building in the mid 2000's and has a dramatic effect on the Council's housing land supply and trajectory. The completions for 2013-2014 have again been below pre-recession levels and for the last two monitoring years completions have been lower than the annualised target. The Council does not have a five year housing supply, although there are clear reasons for this. The current Local Plan was adopted in 2008 and as expected the majority of the housing allocations within it have been constructed. The emerging Local Plan is nearing submission and contains a collection of new allocations; however this has not yet been included in the housing supply shown in this AMR. It is common for authorities transitioning between Local Plans to have a diminished housing land supply. There have been changes in the way the Council calculates housing land supply and dwellings which fall under the Use Class C2 (care homes, assisted living) are now included in housing supply calculations. When looking at the level of net dwelling completions there is an increase this year and signs are that the market is returning to its former level. The affordable housing completions this year equate to 34% of the total dwelling completions. This exceeds the 30% target the Borough seeks to achieve. This is a great success for the Council, especially in difficult economic circumstances with limited housing building nationally.
Core Indicators
H1 - Plan period and housing targets
4.1 The plan period for the adopted Swale Borough Local Plan (2008) was 2006 - 2016, however in 2011 the Government published the National Planning Policy Framework (NPPF) which was adopted in 2012. The NPPF introduced significant changes to the significance and scrutiny of housing land supply in decision making and a requirement for housing needs to be objectively assessed by local authorities. In responding to this new guidance with new research, including demographic and economic analysis; and a review of the likely build out rates of some of the adopted allocations to support the new Local Plan, it was considered appropriate to reset the base date of completions and housing trajectory to the monitoring year 2010/11. Completions taking account of market performance prior to this date are therefore no longer included in the five year housing trajectory. Pending the adoption of the emerging Local Plan: Bearing Fruits, the calculations are based on a rolled forward plan period of 2010/11 to 2030/31. For this monitoring period the housing numbers are set by the adopted Local Plan 2008. The policy requirement for the 20 year period 2011/12 to 2030/31 is for 12,120 dwellings. This is an average of 606 dwellings per year, which in turn increases the land required for a five year housing land supply. 18 Annual Monitoring Report 2013-14
4 Homes and Communities
H2(a) - Net additional dwellings in previous years
4.2 The number of net completions in the plan period 2011/12 - 2013/14 (3 years) is 1,111 dwellings. (Source: Housing Information Audit 2013/14).
4.3 The average number of dwellings constructed in the last five years is 451 and over the last ten years 558 per annum.(Source: Housing Information Audit 2013/14)
H2(b) - Net additional dwellings - this year
4.4 Dwelling completions - The number of net completions for this monitoring year (April 2013 - March 2014) was 336 dwellings. There has been a total of 435 (gross) dwellings constructed and a loss of 99 dwellings. (SBC Monitoring 13/14).
H2(c) Net additional dwellings - deliverability within the next 5 years and supply for the next 20 years
Source 2014/15 2015/16 2016/17 2017/18 2018/19 Total
Allocated sites and units 0 0 51 190 195 436
Extant permitted sites and 450 291 457 507 346 1,669 units Windfall allowance n/a n/a n/a n/a n/a n/a
Other identified sites and n/a n/a n/a n/a n/a n/a units
SHLAA sites and units n/a n/a n/a n/a n/a n/a
Total 450 291 508 697 541 2,487
Table 4.1 Five year Estimated Housing Land Supply (Available, Suitable and Deliverable) based on adopted Local Plan 2008
4.5 Table 4.1 illustrates the housing land supply for the next five years, which is based on extant planning permissions and unused allocations in the adopted (2008) Local Plan which are deemed deliverable within this period.
4.6 There have been significant changes in the calculation of housing supply and the impetus upon them following the finalisation of the NPPF. The Government's research document "Land Supply Assessment Checks May 2009" highlights case studies of Liverpool and Sedgefield methods of calculation as being examples for calculating supply of housing in a clear and transparent way. Case law and Inspectors decisions have increasingly favoured the Sedgefield method of housing calculation and it is the Councils' intention to use this as the basis for their Annual Monitoring Report 2013-14 19
Homes and Communities 4
five year supply position. A key factor in the Sedgefield method is that it spreads any shortfall in housing supply over the first five years rather than over the whole plan period. Table 4.2 shows the Council does not have a five year supply on this basis.
Swale Borough Local Plan 2008: 5 Year Supply 2014-15 to 2018-19
20 year requirement 2011/12 to 2030/31 12,120
Completions (net) to date period 2011/12 to 13/14 (3 1,111 years)
Remaining requirement 11,009
20 year annual requirement (12,120 divided by 20 years) 606
3 year requirement (2011/12 to 13/14) 1,818
3 year completions (2011/12 to 13/14) 1,111
Shortfall accrued in 3 years to date (2011/12 to 13/14) 707
5 year Local Plan requirement (14/15 to 2018/19) 3,030
5 year requirement inc shortfall to date 3,737
Annual requirement inc shortfall 747
Annual requirement inc shortfall + 5% buffer 785
5 year requirement (inc 5% buffer) 3,924
Supply over next 5 years 2,487
% of requirement being met 63.38%
5 year supply 3.17 years
Table 4.2 Land Supply Calculation spreading shortfall over first five years (Sedgefield Method)
4.7 In order to meet a target based on the adopted Local Plan (2008) requirement of 12,120 dwellings by 2030/31 a further 11,009 (net) dwellings are required to be built during the next 17 years, which implies a significantly higher build rate than the market has achieved in the recent past indicated on Figure 4.1.
4.8 The total estimated residential land supply identified as deliverable over the next five years is 2,487 dwellings based on adopted local plan allocations and extant permissions. However a land supply sufficient for a total of 6,584 dwellings has been allocated through the adopted Local Plan (2008), but not all of it is expected to come forward within the short term.
4.9 The residual requirement for the 17 years 2013/14 -2031 is 11,009 units, compared to the estimated land supply of 6,584 units for the same period. This results in 4,425 units less than the requirement of 12,120 dwellings calculated on the basis of the current target of 606 dwellings per annum. 20 Annual Monitoring Report 2013-14
4 Homes and Communities
Figure 4.1 Housing trajectory
4.10 Figure 4.1 shows the housing trajectory based on the target derived from the adopted (2008) Local Plan and the total land supply from the adopted Local Plan. A five year supply of housing would be demonstrated by the annual dwelling requirement (orange line in chart above) being below the annualised target (green line) for a period of five years.
Time Period Total Dwelling Supply
2014/15 - 2018/19 2,487
2019/20 - 2023/2024 1,922
2024/2025 - 2028/2029 1,309
2029/2030 - 2030/2031 499
2031 + 0
Total 6,584
Table 4.3 Swale Borough Local Plan 2008: Total estimated land supply as at 1st April 2014
4.11 Table 4.3 shows the estimated dwelling completions beyond the plan period for the allocations made in the adopted Swale Borough Local Plan (2008) and predicts completions arising from land supply for the period up to 2030/31. Of the total land supply of dwellings (6,584), allocated sites make up 2,936 dwellings and 2,556 dwellings come from extant permissions. After the first five years the Council has factored in a windfall allowance of 91 dwellings per annum, this equates to 1,092 dwellings out of the total land supply. The housing trajectory at Fig 4.1 shows that from years 2013/14 less land is available than the requirement stipulates. Annual Monitoring Report 2013-14 21
Homes and Communities 4
4.12 In summary, a strong performance in pre-recession years had bolstered market performance and land supply calculations for previous AMRs, but this is no longer the case since the revision to the base date (now 2011-12). The emerging Local Plan will bring forward an additional supply and revised target.
H2(d) - Managed delivery target
4.13 The managed delivery target is made up of the completions since 2011/12 and the projected trajectory of completions. The completions total 1,111 dwellings and the projected total is for 6,584 dwellings, therefore the managed delivery target totals 7,695 dwellings to 2030/31. The Council is currently producing a Local Plan for the period 2011/12 to 2030/31. This has been through significant stages in the plan making process and is due to reach Submission stage in early 2015 and has yet to go through an ‘Examination in Public’. It is anticipated future AMR's will include sites in the emerging allocations policies given the advanced nature of the emerging Local Plan: Bearing Fruits 2031.
H3 - New and converted dwellings on Previously Developed Land
4.14 The number of dwellings constructed on Previously Developed Land is 30% of the total completed dwellings. (Source: SBC Housing Land Supply Monitoring 2013/14)
H4 - Net additional pitches for Gypsies and Travellers
4.15 There have been three planning applications for a total of 30 permanent Gypsy and Traveller pitches this monitoring year, two temporary permissions for 6 pitches and four refusals. (Source: Swale Borough Council monitoring of planning permissions) In February 2013 the Council published the Swale Gypsy and Traveller Accommodation Assessment.
H5 - Gross affordable housing completions
Tenure Number of dwellings
Social rented 20
Affordable rented 40
Shared ownership 16
New build Homebuy 16
First buy 24
Total 116
Table 4.4 Affordable housing completions 22 Annual Monitoring Report 2013-14
4 Homes and Communities
4.16 The affordable housing completions this year equate to 34% of the total net dwelling completions. This is a decrease from the last monitoring year but importantly exceeds the 30% target the Borough seeks to achieve. (Source: Swale Borough Council monitoring of planning permissions 2013/14)
H6 - Housing Quality - Building for Life Assessments
4.17 The Council does not have the means to monitor this indicator.
Contextual Indicators
4.18 These contextual indicators show whether the Council is achieving or heading towards meeting its objectives in housing policies. The policy target for the contextual indicators is: Strategic Policy IV Housing: Meeting annualised housing requirement and provide at least 30% of new housing completions as affordable.
Dwelling types
Dwelling Size Dwellings by completions Dwelling by permission
1 bed 24 63
2 bed 106 167
3 bed 152 64
4 bed 46 36
5 bed 17 8
Total 345 338
Table 4.5 Dwellings by type
Progress with housing allocations
4.19 Progress on strategic allocations within the Local Plan is shown below: (source: Swale Borough Council Monitoring 2013/14)
East Hall Farm, Sittingbourne - There is in excess of 400 completions with an additional 400 with planning permission. Thistle Hill, Minster - There have been over 1,000 completions to date with nearly 350 additional with planning permission. Of the remaining developable area covered by the outline permission there is some 4.3ha allocated for open space. Kingsborough Manor, Eastchurch - There have been 128 completions with permission for another 80 dwellings. Iwade - There have been over 900 completions with outline permission granted for 300 dwellings, 187 of these now have planning permission. Sittingbourne Town Centre & Milton Creek - Masterplan adopted, no progress on dwelling construction but outline planning permission has been granted for 150 dwellings. Annual Monitoring Report 2013-14 23
Homes and Communities 4
Queenborough & Rushenden - The Masterplan SPD was adopted November 2010, no progress on dwelling construction yet. It is anticipated that there will be an updated addendum for public consultation during 2014. Stones Farm, Sittingbourne - Development brief adopted May 2011, no progress on dwelling construction. The allocation is included within the emerging Local Plan: Bearing Fruits with the eastern part of the site forming part of an important countryside gap, another part forms a safeguarded search area for the Sittingbourne Northern Relief Road. This is so that all future options for completing the road to the A2 can be considered.
Gypsies & Travellers: public and private sites
4.20 The caravan count for January 2014 showed a total of 213 caravans in the Borough, of which 23 where on two public sites and 168 privately owned caravans. There were 6 tolerated caravans and 16 non-tolerated caravans on land owned by Gypsies and Travellers. There were no caravans on non-tolerated roadside encampments on the day of the count.
Section 106 contributions
This monitoring year the Council received £1,225,999 in Section 106 contributions.
Contributions received and held for Swale Borough Council are for open spaces and parks, equipment and maintenance within the borough; Contributions received and held for Kent County Council are for community learning, adult social services, libraries, youth and community, education and public transport/highways within the borough; All the monies held are committed to projects; No repayments have been made to developers during this year. 24 Annual Monitoring Report 2013-14
4 Homes and Communities Annual Monitoring Report 2013-14 25
Employment 5
5 Employment
Employment Core Indicators
5.1 Employment summary
The Council has achieved a 100% completion rate on previously developed land for employment uses, this is excellent given the constraints associated with bringing development forward on previously developed land. There is a net gain of 12,958 sqm of employment floor space available. There have been zero demolitions this monitoring year in B Use Classes. There has been a loss for A1 retail uses for the second year running in town centre locations. There has been an overall reduction of completions in town centres.
BD1 – Additional employment floorspace (completions) by type
Total Additional Floorspace sqm New Build cou gain Conversions Use Class Demolitions (net) (net) gain (net) Gain Loss Net Gain
B1(a) 810 176 64 NA 1,050 2,292 -1,242
B1 (b) 0 0 0 0 0 0 0
B1 (c) 63 1,308 0 0 1,371 995 376
B1 (mixed) 0 0 0 0 0 0 0
B2 7,094 928 0 0 8,022 897 7,125
B8 3,194 335 0 0 3,529 3,153 376
B1-B8 mixed 1,248 0 5,075 0 6,323 0 6,323
All 12,409 2,747 5,139 0 20,295 7,337 12,958
Table 5.1 Core Indicator BD1 (gross sq m)
(Source: SBC monitoring 2013-14)
BD2 – Employment floorspace on previously developed land
5.2 The completed floorspace figures on previously developed land are shown in Table 5.2.
Use Class Floorspace (sqm) % of total
B1(a) -1,242 -
B1(b) 0 100
B1(c) 376 100 26 Annual Monitoring Report 2013-14
5 Employment
Use Class Floorspace (sqm) % of total
B2 7,125 100
B8 376 100
B1-B8 (mixed) 6,323 100
Total 12,958 100
Table 5.2 Core Indicator BD2
5.3 This is a massive achievement for the borough with a 100% of development on previously developed land and none on greenfield.
BD3 – Employment land available (hectares)
B1-B8 Hectares B1(a) B1(b) B1(c) B1 mix B2 B8 Total mix
Allocations 4.9 0 0 21.4 18.5 4.1 23.1 72.0
Permissions 2.1 0.03 0.12 2.1 13.7 17.7 23.4 59.2
Total land available 7.0 0.03 0.12 23.5 32.2 21.8 46.5 131.15
Table 5.3 Core Indicator BD3
5.4 These areas are indicative and based on a factor of 3500sq m/ha. (Source: SBC Monitoring 2012-13)
BD4 - Total amount of floorspace for ‘town centre uses’ (sqm)
A1 A2 A3 A4 A5 B1(A) D2 Total
Gain 9,467 334 319 0 0 1,050 3,376 14,546
Loss 565 65 234 0 129 2,292 167 3,452
Net 8,902 269 85 0 -129 -1,242 3,209 11,094
Table 5.4 Core Indicator BD4 - Swale area
A1 A2 A3 A4 A5 B1(A) D2 Total
Gain 27 129 65 0 0 0 0 221
Loss 169 0 0 0 0 69 0 238 Annual Monitoring Report 2013-14 27
Employment 5
A1 A2 A3 A4 A5 B1(A) D2 Total
Net -142 129 65 0 0 -69 0 -17
Table 5.5 Core Indicator BD4 - town centres
(Source: SBC Monitoring 2013-14)
5.5 It should be noted that only A1, A2, B1a and D2 uses are considered town centre uses, but all uses are shown in the tables above, for completeness. Gain is significantly higher in A1 retail use class than last year (where a minus 1,000sqm figure was reported) this is primarily due to large supermarket completions within Swale. There has also been a reduction in A5 use classes this year in the borough.
5.6 This has been the second year running with a minus completions for A1 retail uses in the town centre, this is thought to be the remaining effects of the economic downturn. Again this has been a very poor year for retail completions within the town centres. There was a net loss of nearly 400sqm last year and gains nearly matched by losses this year with only a -17sqm difference (SBC Monitoring 2013-14). During this monitoring period the Council was working with Spirit of Sittingbourne Partnership on the masterplanning and planning application for the regeneration proposals for Sittingbourne Town Centre. These include major retail proposals to improve A1 and other uses within the town.
Contextual Indicators
5.7 The policy targets for employment indicators are
Strategic Policy I Sustainable Development: To reduce the growth and length of journeys to work
Strategic Policy III Economy: Meeting annualised Structure Plan employment floorspace
Strategic Policy VI Infrastructure: Delivery of key projects within the plan period
Policy B3 Maintaining and Enhancing Vitality and Viability of Town Centres: Maintain or increase range of use provision within the three town centres with emphasis upon retail floorspace
5.8 These contextual indicators provide a general baseline which test whether plans, policies or programmes are achieving the objectives set for employment and the economy. 28 Annual Monitoring Report 2013-14
5 Employment
Total number of employee jobs
5.9 The latest Census showed that of the residents aged between 17 - 64 nearly 75% are in employment with only 4% unemployed seeking job seekers allowance. (Census 2011: Office for National Statistics)
Progress with Infrastructure proposals
5.10 There have been no significant infrastructure proposals or completions for this monitoring year.
Travelling to work and Occupations
5.11 Swale remains a net exporter of its workforce with 63.3% of the working population travelling outside the borough to their place of work. In the 2001 Census Swale had 65% of its workforce commute out of the borough so there has been a minor reduction in out-commuting. Swale, Medway, Gravesham and Dartford all have high levels of commuting to London. To From Ton. & Tun. Rest of Ash. Cant. Dart. Dov. Grave. Maid. Med. Seven. Shep. Swale Than. Lond. Mall. Wells England
Ash. 39,975 1,843 200 570 159 2,882 681 217 2,639 706 153 953 1,138 3,857 405
Cant. 1,897 47,690 310 2,231 164 1,090 1099 111 1,097 2,367 2,232 487 108 3,191 487
Dart. 68 62 22,583 14 1,929 370 811 1,853 34 160 16 577 131 19,145 334
Dov. 1,379 4,869 74 33,617 61 551 272 41 4,572 465 1,899 181 53 1,144 349
Grave. 97 97 6,710 47 22,053 901 2389 1,148 77 436 24 1,138 292 10,323 386
Maid. 1,636 517 1,035 116 569 47,272 4165 1,124 268 1,533 84 7479 2671 7,325 523
Med. 655 719 3,977 144 3,185 7,578 76,378 1,039 175 4,201 156 6,354 671 17,300 1,262
Seven. 114 68 3,010 18 666 726 434 25,944 23 100 13 2,119 1,278 18,409 361
Shep. 4,759 1,954 102 2,632 88 795 212 80 33,580 254 349 366 144 1,798 370
Swale 983 3,390 593 323 423 3,190 4,751 294 226 40,113 303 1,459 209 4,982 653
Than. 521 4,564 107 2,874 55 432 364 66 655 568 42,024 238 43 1,746 425
Ton. & Mall. 369 140 918 46 520 5471 2,523 3378 84 489 32 29,702 4,261 9,745 395 Annual Tun. Wells 509 72 209 41 91 1838 269 1924 86 101 18 4,062 35,281 8,462 313
Lond. 461 535 11,746 208 1,448 1,491 2,243 5,768 213 551 253 2,111 1,161 Monitoring
Table 5.6 Travel-to-work (Source: Office for National Statistics Census 2011 http:// Employment Report 2013-14 29 5 30 Annual Monitoring Report 2013-14
5 Employment
5.12 The figures in Table 5.6 show that Swale has more residents commuting to London (4,982) than the other East Kent districts. However over 40,000 residents work as well as live in Swale. Swale has relatively few residents commuting to Dover, Shepway, Thanet or out of Kent. Over all Swale has a large proportion of out-commuting compared to other Districts in Kent.
Employment by sector
Great Swale South Group Swale (%) Britain (Numbers) East (%) (%)
Soc 2010 major group 1-3 25,200 39.7 48.2 44.2
1 Managers, directors and senior officials 5,500 8.7 11.6 10.2
2 Professional occupations 12,400 19.3 21.1 19.6
3 Associate professional & technical 7,300 11.4 15.3 14.1
Soc 2010 major group 4-5 14,100 22.1 20.7 21.5
4 Administrative & secretarial 5,100 7.9 10.7 10.9
5 Skilled trades occupations 9,000 14 9.9 10.4
Soc 2010 major group 6-7 14,200 22.3 16.9 17.1
6 Caring, leisure and Other Service occupations 7,500 11.8 9.3 8.9
7 Sales and customer service occupations 6,600 10.4 7.6 8
Soc 2010 major group 8-9 10,100 15.9 14.2 17.3
8 Process plant & machine operatives # # 4.5 6.3
9 Elementary occupations 7,000 11 9.6 10.9
Table 5.7 Employment by occupation (July 2012-June 2013)
(Source: ONS Population Survey)
5.13 Swale is still behind nationally with higher sectors of employment and the most common employment sectors are administrative, skilled trades or the service industries. Swale is above the national average for sales and customer service jobs. There has been a move towards these employment sectors away from more manual employment in recent years, although Swale is still marginally above the national and regional averages for elementary occupations.
Qualifications
5.14 Swale continues to have low levels of literacy, numeracy and education, falling below county, regional and national averages. Annual Monitoring Report 2013-14 31
Employment 5
Swale Qualification South East % Great Britain % Number %
NVQ4 and above 20,700 25.2 36.8 34.4
NVQ3 and above 38,600 46.9 58.2 55.1
NVQ2 and above 57,300 69.5 75.4 71.8
NVQ1 and above 67,200 81.7 87.7 84
Other qualifications 5,800 7.0 5.4 6.3
No qualifications 9,300 11.3 6.9 9.7
NVQ 4 - HND or degree; NVQ 3 - 2 A-levels or HNC; NVQ 2 - 5 GCSE A-C;
NVQ 1 - less than 5 GCSE; Other - foreign and some professional qualifications
Table 5.8 Qualifications (January 2012-December 2012)
Source: ONS annual population survey (number and percentage are those aged16-64) 32 Annual Monitoring Report 2013-14
5 Employment Annual Monitoring Report 2013-14 33
Environment and Climate Change 6
6 Environment and Climate Change
Environment and climate change summary
In March 2010 the Council published its Sustainable Design and Construction Developer Guidance which seeks to encourage the use of renewable energies on new developments. The Council still has limited capabilities when it comes to monitoring renewable energy schemes that are part of a wider proposal and not stand alone installations.
Core Indicators
E1: Number of planning permissions granted contrary to Environment Agency advice on flooding and water quality grounds
6.1 For this monitoring year there has been no planning permissions granted contrary to Environment Agency advice on either flooding or water quality grounds.
E2: Change in areas of biodiversity importance
6.2 There have been no change in the areas covered by Sites of Special Scientific Interest, Local Wildlife Sites (formerly Sites of Importance for Nature Conservation) or Ancient Woodland.
E3: Renewable energy generation
6.3 There is evidence across the borough that there has been an increase in renewable energy provision. A number of schemes have been permitted at a range of locations such as leisure centres, a prison, (two wind turbines now complete), a school, agricultural barns, industrial units and residential properties. However, the provision of energy schemes does not always need planning permission, so it is difficult to fully quantify.
6.4 No stand alone renewable energy generation schemes have been granted planning permission.
6.5 The below shows the tonnes of carbon dioxide emissions per capita for Swale by different uses between 2005 - 2011 (Source www.gov.uk/publications)
Industry and Year Domestic Road Transport Total Commercial
2005 8.4 2.3 2.7 13.4
2006 9.1 2.3 2.7 14.1
2007 9.4 2.2 2.7 14.3
2008 8.2 2.2 2.5 12.9 34 Annual Monitoring Report 2013-14
6 Environment and Climate Change
Industry and Year Domestic Road Transport Total Commercial
2009 6.8 2.0 2.5 11.3
2010 10.0 2.1 2.4 14.5
2011 8.9 1.8 2.4 13.1
Table 6.1
This shows a decrease in the amount of emissions per capita from last year across all uses.
Specific renewable energy schemes
6.6 There are no large scale schemes this monitoring year. The Council does not currently monitor small scale or domestic renewable proposals. (Source: Climate Change Officer, SBC)
Contextual Indicators
6.7 The objectives and policy targets for environment and climate change are:
Policy E6 The Countryside: No loss of greenfield land, not allocated by the Local Plan (or acceptable against the Local Plan) permitted to development.
Policy E9 Protecting the Quality and Character of the Borough's Landscape: No loss of greenfield land, not allocated by the Local Plan (or acceptable against the policy)
Policy E12 Sites of Biodiversity and Geological Conservation Value: No net loss of designated wildlife sites to development.
Policy E14 Development involving Listed Buildings: No net loss of listed buildings and reduction in buildings on the 'at risk register'.
Policy E15 Development Affecting a Conservation Area: Increase in number of conservation areas with appraisals.
Policy IN26 Renewable Energy: Increasing yearly proportion of new housing completions incorporating renewable energy schemes and conservation measures.
Policy H2 Providing for New Housing: 30% of new dwellings provided on previously developed land and the majority of housing completions to be between 30-50 dwellings per hectare.
6.8 These indicators provide the background and context of the borough's environmental state and the progress being made to address climate change.
Change in areas designated for their intrinsic local landscape value
6.9 There has been no change in Special Landscape Areas or Areas of High Landscape Value. Current provision remains at 16,292 hectares (39% of the Borough). Annual Monitoring Report 2013-14 35
Environment and Climate Change 6
Amount of greenfield development not allocated within the Local Plan
6.10 Thirty percent of the total (not net) housing completions were on previously developed land. There was no loss of employment land on green field land not previously allocated.
Change in the number of listed buildings, buildings at risk, scheduled ancient monuments and historic assets.
6.11 The number of listed buildings has increased by four this year, bringing the total in the borough to 1860 properties. In the 2012 Heritage at Risk Register complied by English Heritage added three properties to the list making a total of 16 grade I and II* listed buildings at risk.
6.12 There have been no changes to the Swale Borough Council’s Buildings at Risk Register (for all other listed buildings). There has been an increase of one scheduled ancient monument within the borough.
Change in the number and percentage of the Borough designated as a Conservation Area or Registered Historic Parks and Gardens
6.13 There has been no change in the number of Conservation Areas or Registered Historic Parks and Gardens. 36 Annual Monitoring Report 2013-14
6 Environment and Climate Change Annual Monitoring Report 2013-14 37
Progress on the Local Development Scheme 7
7 Progress on the Local Development Scheme
Progress on the Development Scheme
7.1 The Local Development Scheme (LDS) is a requirement of the Planning and Compulsory Purchase Act 2004. It is the timetable for preparing planning documents and indicates the key milestones for preparation, consultation and examination in public where relevant.
7.2 The last formal update of the LDS by the Secretary of State was 12 November 2010. The LDS is no longer subject to approval by the Secretary of State. Since that time there has been considerable change to the national policy context and local circumstances which have led to constantly changing influences and delay to the local development framework programme. Progress has nevertheless been reported through the AMRs and the LDS will be the subject of major revision prior to submission of the draft Local Plan: Bearing Fruits.
Progress on Policy Documents
7.3 The progress on Development Plan Documents, Supplementary Planning Documents and other projects is as follows:
Draft Local Plan: Bearing Fruits
7.4 Bearing Fruits 2031: The Swale Borough Local Plan Part 1 had its inception as a Core Strategy and work formally commenced on that in 2008. The Core Strategy had progressed to preferred option stage which was released for consultation, just days ahead of the adoption of the National Planning Policy Framework in March 2012. Subsequent work on compatibility with the NPPF; pending withdrawal of the South East RSS; and the timescales envisaged to adoption of development plan documents for detailed site allocation development management policies, led to the plan being recast as a local plan (LDF Panel decision of February 2013) with a full set of allocations and development management policies.
7.5 The Local Plan reached consultation draft stage 19 August – 4 October 2013 and generated some 1,595 representations , plus petitions. This was an increase of 11% since the Core Strategy consultation. The Council (LDF Panel of 5 December 2013) made a general resolution to take representations into account as far as possible in finalising the local plan for publication. Reporting of additional research and outstanding matters arising from the representations (including viability, transport and infrastructure work) continues into the 2014-15 monitoring year. The Council (20 February 2014 LDF Panel) nevertheless resolved to retain the development target of 540 dwellings per annum as a realistic and deliverable target, given the ongoing poor local market performance. Publication of the local plan (Regulation 19 of the Town and Country Planning (Local Planning) (England) Regulations 2012) was agreed for December 2014.
7.6 The Swale Gypsy and Traveller Accommodation Assessment was completed in 2013 and subsequently the Swale Borough Local Plan Part 2: Gypsy and Traveller Accommodation Issues and Options was also published for consultation 24 February – 25 April 2014.
7.7 A Local Green Spaces technical paper was produced (2013).
7.8 The Council agreed to adopt the review of jointly produced Kent Downs Area of Outstanding Natural Beauty Management Plan (adoption took place April 2014). 38 Annual Monitoring Report 2013-14
7 Progress on the Local Development Scheme
Project Adoption Notes
Faversham Creek Development Plan July 2012 The production of Neighbourhood Plans is enabled Document through the Localism Act 2011. The Government encouraged the development of a number of neighbourhood plans ahead of the enactment of legislation through the Neighbourhood Planning Vanguard Scheme and we were awarded £20k to assist with the development of the Faversham Creek Neighbourhood Plan. There has been a public exhibition on the possible development options and vision. Faversham Town Council requested that Faversham Creek be designated as a Neighbourhood Plan area on the 20 February 2014. The Neighbourhood Plan has not yet been sufficiently advanced for the Adoption stage to be reached.
Community Infrastructure Levy After May The CIL Schedule cannot progress until the schedule 2012 Implementation and Delivery Plan (IDP) is finalised as part of the Local Plan.
Queenborough and Rushenden October 2010 This document was adopted in November 2010. Supplementary Planning Document
Stones Farm Supplementary Planning December This document was adopted in May 2011. Document 2010
(Former) Sittingbourne Mill site March 2011 No longer required. The Council resolved to grant a Supplementary Planning Document mixed use residential/retail use at this site in December 2011.
Sheerness Port Regeneration April 2014 Not commenced. This is now considered an 'Area of Masterplan Supplementary Planning Future Change' within the Draft Local Plan and as Document such is not considered part of the current development strategy. There are no current plans for the SPD and it is likely to be removed from the LDS when reviewed.
Kent Science Park Masterplan April 2014 Not commenced. This is now considered an 'Area of Supplementary Planning Document Future Change' within the Draft Local Plan and as such is not considered part of the current development strategy. There are no current plans for the SPD and it is likely to be removed from the LDS when reviewed.
Landscape Character and Biodiversity April 2011 Adopted September 2011. Appraisal Supplementary Planning Document
Sustainable Building and Renewable August 2013 No longer needed. Energy Supplementary Planning Document
Sittingbourne Conservation Area March 2011 Adopted 31 January 2012 Appraisal Supplementary Planning Document
Queenborough Conservation Area March 2011 Adopted 31 January 2012 Appraisal Supplementary Planning Document Annual Monitoring Report 2013-14 39
Progress on the Local Development Scheme 7
Project Adoption Notes
Sheerness Docks and Blue Town March 2011 Adopted 31 January 2012 Conservation Area Appraisal Supplementary Planning Document
Table 7.1 Progress on other LDS projects 40 Annual Monitoring Report 2013-14
7 Progress on the Local Development Scheme Annual Monitoring Report 2013-14 41
Duty to Co-operate 8
8 Duty to Co-operate
8.1 The Duty to Co-operate (DTC) became a legal requirement under Section 110 of the Localism Act, which came into effect in November 2011. The act saw the insertion of Section 33A (Duty to Co-operate in relation to planning of sustainable development) into Part 2 of the Planning and Compulsory Purchase Act 2004 (Local Development) (as amended). Essentially this requires local planning authorities such as Swale Borough Council and other ‘prescribed bodies’ to co-operate on strategic matters so as to maximise the effectiveness of preparing development plan documents and other local development documents. The prescribed bodies are set out in the Town and Country Planning (Local Planning) (England) Regulations 2012 Statutory Instrument No. 767
8.2 The Duty specifically relates to ‘sustainable development or use of land that has or would have a significant impact on at least two planning areas,’ including (in particular, sustainable development or land use which is for or in connection with strategic infrastructure.) The Duty requires all participants to ‘engage constructively, actively and on an ongoing basis,’ in the preparation of development plan documents, other local development documents and any associated preparatory or supporting activities in so far as they relate to a strategic matter.
8.3 Regulation 34(6) of the Town and Country Planning (Local Planning) (England) Regulations 2012 Statutory Instrument No. 767 require local planning authorities to report any activities they may have undertaken with prescribed bodies in their Annual Monitoring Report for the relevant period.
8.4 The prescribed bodies relevant for Swale are:
8.5 County Council
Kent County Council (KCC)
8.6 Neighbouring Authorities
Medway City Council (MCC)
Maidstone Borough Council (MBC)
Canterbury City Council (CCC)
Ashford Borough Council (ABC)
8.7 Other prescribed bodies
Environment Agency (EA)
Heritage England (HE)
Natural England (NE)
Highways England (H)
Civil Aviation Authority 42 Annual Monitoring Report 2013-14
8 Duty to Co-operate
Network Rail
Marine Management Organisation (MMO)
NHS Swale Clinical Commissioning Group
NHS England
Homes and Communities Agency
Local Enterprise Partnerships
Local Nature Partnerships
8.8 There is a long history of joint working on cross boundary and strategic issues in Kent. These include a number of formal and informal arrangements of joint working initiatives and bodies which are set out in Appendix 1 in addition to the prescribed bodies (this is not necessarily comprehensive but covers the key strategic or cross boundary issues for Swale). These bodies meet on a regular basis and whilst their main purpose is not necessarily local planning, they influence and in turn are influenced by local plans, only those issues which are considered directly relevant are reported here. Additionally, Swale meets with local planning teams in other district authorities and Kent County Council specifically to cover DTC matters. There are also the regular meeting groups affiliated to Kent Planning Officers Group, which act as a forum for sharing information, good practice and DTC working arrangements.
8.9 At the present time there are no specific aviation issues affecting the Borough, although Swale has joined with Kent CC and neighbouring Boroughs to respond to consultations on the possibility of a third London airport in the Medway Estuary. This seems to have been discounted at the time of writing. The Civil Aviation Authority has nevertheless been consulted at every consultation phase on the local plan.
8.10 Although Swale does not abut Greater London, in common with much of the rest of South East England, it has commuting links with it. Swale has not been formally asked to co-operate with the London Plan on any matter to date. However, it has nevertheless maintained a watching brief and made comments both independently and jointly with other Kent districts and Kent County Council on the progress of the London Plan to date and will continue to do so (co-ordinated via Kent Planning Officers Group and agreed by the Swale Cabinet Member for Planning).
8.11 Kent has historically been split into different sub areas for the purpose of strategic planning. Swale, due to its location, housing market characteristics, commuting and other functional linkages does not fit easily into either the North Kent or East Kent grouping of districts and has been associated with both where there has been a shared common issue for research or policy.
8.12 The key strategic issues identified at para 156 of the NPPF are as follows, although not all of these are applicable to Swale:
Housing need and development targets
Gypsy and Traveller need and development targets Annual Monitoring Report 2013-14 43
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Retail, leisure and other commercial development
Natural and Historic Environment - Biodiversity,
Natural and Historic Environment - Landscape
Transport Infrastructure
Community Services and Infrastructure
Utilities- Water and Wastewater
Utilities – Telecommunications
Utilities - Energy suppliers
Climate Change Mitigation and Adaptation – Flood Risk
Climate Change Mitigation and Adaptation – Coastal Change Management
Minerals and waste
Issues considered not to be strategic for Swale Borough Council
8.13 In respect of retail and leisure, Sittingbourne is the main town for the Borough and the town centre is just about to embark on a regeneration scheme in partnership with a private sector consortium, although this will be about consolidating its position relative to other centres rather than changing its position in the Kent retail and centre hierarchy. Previously adopted policy (Swale Borough Local Plan 2008 and a supporting Town Centre Masterplan SPD 2010) aimed to strengthen its position and claw back retail expenditure leakage. This proved extremely difficult to deliver, with a major developer having withdrawn at a very advanced stage in the planning application process (Autumn 2013). Draft Local Plan policy will be adjusted accordingly. Swale BC did comment on proposals for major out of town retail provision within Maidstone Borough (at M20/J7) for which no suitable retail impact assessment including Swale centres had been undertaken. There were no other major new proposals in the sub region which are likely to influence or be influenced by Swale’s retail provision, so this is not considered to be a strategic cross boundary issue for this monitoring period.
8.14 Swale does not have any strategic scale installations in respect of the utilities for energy generation or suppliers; or telecommunications and none are currently planned either within the Borough or nearby. These utilities are nevertheless consultees at all stages of the plan and policies have been included which reflect those issues. However, an enabling policy for renewable and low carbon energy is included within the plan and two planning guidance notes have been produced on large and small scale solar energy arrays with input from the Environment Agency and the Solar Trade Association. Consequently, this topic is not considered to have cross boundary significance for Swale or its neighbours at this time.
Strategic Issues Relevant for Swale Borough Council
8.15 The following issues are considered to be strategic for Swale. 44 Annual Monitoring Report 2013-14
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Housing: Meeting objectively assessed housing need, due to significant viability and deliverability issues over much of the Borough. Poor market performance. Short term infrastructure delivery issues. Borough does not readily fit functionally or in HMA terms with adjoining HMAs to facilitate meeting need in those areas. Gypsy and Traveller Provision: Joint assessment of needs including transit sites across Kent. Transport: Capacity of M2/J5 and M2/J7; Provision of remaining section of Sittingbourne Northern Relief Road and town centre improvements; A249 corridor and key junctions; Lower Thames Crossing. Employment Land and Economic Development: Regeneration and diversification appropriate to the different sub areas of the Borough; Sittingbourne and western Sheppey are within the Kent Thames Gateway Partnership area; Swale is actively involved in the Kent and Medway Economic Partnership which identifies and prioritises projects for consideration for funding through the South East Local Enterprise Partnership. Natural and Historic Environment – Biodiversity: Swale is part of the North Kent coastal area affected by the internationally designated Medway and Swale estuaries, plus land based designated biodiversity sites. Identified as being at major risk from recreational pressure arising from new development within 6 km of the designated areas. Comprehensive approach needed to monitor, manage and mitigate pressures and comply with Habitat Regulations Assessment process. Biodiversity issues also within the North Downs AONB, which benefit from a strategic approach to conservation and management. Natural and Historic Environment – Landscape: Conservation and management of the Kent Downs AONB as an integral landscape also Areas of High Landscape Value which are deemed to be of county wide or Swale wide importance, which in many cases form the setting for the AONB and share characteristics with it; also tracts of countryside which may form strategic gaps between settlements: Community Services and Infrastructure: Community services and infrastructure do not raise any significant cross boundary issues, although as a two tier local authority area, it has been imperative to work with Kent County Council as the key provider of community services and facilities, especially education, social services and similar (as well as highways). The Borough Council has also worked on an ongoing basis with NHS England and the Clinical Commissioning Groups to identify what effect the development targets and proposed location of development would have on health care facilities and where new provision would need to be made. There has been joint working throughout plan preparation with Sport England in respect of developing an Open Space Assessment for Swale and a playing pitch strategy to inform draft local plan policy and allocations. Utilities- Water and Wastewater: Swale lies within an area of water stress and this is likely to increase in severity through climate change and increased demand through new development. The Borough Council has therefore participated closely with the two water suppliers (Southern Water and South East Water) on their regional plans for the next 40 years and the recommendation of the companies have been reflected in the draft local plan in policy, as far as possible for sustainable construction standards aimed at reducing demand. No major new water resource catchment or storage facilities are planned for the Borough (although Broad Oak Reservoir and desalination facilities at Reculver in Canterbury CC area are planned by the water companies). Climate Change Mitigation and Adaptation – Flood Risk: Swale has significant areas of flood risk (particularly tidal), which is likely to increase in severity through climate change and could potentially impact on more people through new development in the Borough. Annual Monitoring Report 2013-14 45
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8.16 The coastal and river catchment areas prone to flood risk extend beyond the Swale BC area and the responsibilities are spread between a number of bodies including Environment Agency (main rivers); Lower Medway Internal Drainage Board (watercourses within their area of jurisdiction) Kent County Council led Kent Flood Risk Management Committee (other watercourses); Marine Management Organisation.
Climate Change Mitigation and Adaptation – Coastal Change Management: Swale has 111km of coastline, all of which is low lying, estuarine in nature and subject to both erosion and tidal flooding, with increasing risk from climate change. The issues extend along the North Kent coast. Environment Agency; Marine Management Organisation; South East Coastal Group. Minerals and Waste: Blanket safeguarding of brick earth resources in Swale without regard to viability of resource extraction or impact on deliverability of other development proposals. Cooperation with Kent County Council on Minerals and Waste Local Plan.
8.17 A full account of DTC activities under taken during the monitoring period 2013-2014 can be seen in the Duty to Co-operate Statement which has been produced to accompany the formal submission of the Swale Borough Local Plan in April 2015.
8.18 This gives an account of the situation up to April 2015, (including activities undertaken for the monitoring year 2013-2014), but brings the situation up to date with the relevant policy outcomes. The cross reference to another document here is exceptional in view of the fact that a comprehensive Duty to Cooperate statement has been produced which covers the monitoring year being reported here. In future years, for AMR purposes, it is anticipated that the list of strategic issues can be amended and updated as appropriate, with the list of activities undertaken under DTC included.
Group / Body Members Format Subject Matter
Kent Planning All Kent District plus Bi-monthly meetings To discuss planning issues of concern Officers Group Medway City Council of officers. at a high level officer meeting and (KPOG) Chairmanship recommend appropriate additional rotates around research and or course of action to Heads of planning member authorities. Services
Kent Planning As above - this is a policy Bi-monthly meetings To discuss planning issues of concern; Policy Officers officers sub group of of officers. Generally new national policy implications; joint Forum (PPF) KPOG. For discussions hosted and chaired approach to research and policy around major policy and by Kent County formulation; regular item on duty to practice changes, the Council officers. cooperate matters, which can cover groups occasionally meet Anyone may raise any topic area besides those for which jointly. Corresponding issues an agenda KCC are directly responsible. Task groups of conservation and items. Reports to and finish working parties are development management and occasionally occasionally formed to tackle specific officers also feed into the meets jointly with issues on a common basis e.g. the main KPOG group. KPOG on major approach to strategic housing land issues. availability assessments; and demographic projections.
Kent and Set up in 2013 to act as the Meets bi-monthly The group looks at key issues for Medway Kent based group of planning, growth and infrastructure in Economic authorities to generate and Kent and Medway. It is the focal point Partnership prioritise projects feed into for generating bids to the Local Growth (KMEP) SELEP for funding bids. Fund via the South East Local 46 Annual Monitoring Report 2013-14
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Group / Body Members Format Subject Matter
Kent Districts plus Kent Enterprise Partnership. Kent CC and County Council and district councils generate projects Medway City Council, plus which could be assisted by funding, representatives form usually in the short to medium term business and education. and which enable the delivery of jobs and housing. To date there has been The Leader of Swale BC is an emphasis on projects which have a Board Member supported or are close to achieving planning by Swale’s Chief Executive. permission, but there is a move The work of KMEP is towards a more concerted approach supported by the Kent to joining up local planning proposals Growth, Environment and with infrastructure delivery (especially Transport team at Kent CC. those which fall outside national programmes). E.g the emerging Kent Growth and Infrastructure Plan.
South East Covers Kent and Medway, Full Board meets The South East Local Enterprise Local Essex, East Sussex. quarterly, plus Partnership (SELEP) brings together Enterprise Member and senior officer Annual Assembly, key leaders from business, local Partnership representation is via Kent plus special events government, further and higher CC. (Swale Leader is also as necessary. education in order to create the most a Kent CC Cabinet Member enterprising economy in England and participates in the through exploring opportunities for SELEP Board) enterprise while addressing barriers to growth.
Thames Leading Members from Meets bi-monthly The role of the Partnership is to: Gateway Kent Swale, Dartford, Medway Partnership and Gravesham Councils; • Create the best conditions possible plus representatives of to attract investment and deliver major local employers; sustainable economic growth; Environment Agency and Homes and Communities • Promote and enable collaboration Agency; and a Junior between private and public sectors to Minster. A small officer help achieve growth; support team and senior officer representation from • Lobby Government and other district and Kent County organisations for funding and other councils. support;
• Promote North Kent and its opportunities;
• Work with partners in London and South Essex on pan-Thames Gateway activities
Published Thames Gateway Plan for Growth 2014-20 – updated every 2-3 years and reflects opportunities, challenges and actions for delivery of economic development and housing in the area. Annual Monitoring Report 2013-14 47
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Group / Body Members Format Subject Matter
Swale Joint Members of Kent County Meets tri-monthly Board to review transport and highway Transportation Council and Swale Borough issues within the Borough, in Board Council, and Kent partnership with Kent County Council Association of Parish and other organisations. Feeds into Council representatives with and reflects local Planning and broader officer support from Kent work of Kent CC as highway authority Highways Service and and liaison with transport providers to Swale Borough Council. improve services and facilities across all modes of transport.
Swale Health Members and officers of Meets bi-monthly Raises awareness of key local health and Wellbeing Swale Borough Council, issues and needs with a community Board Kent County Council, Local focus and joint approach across all Clinical Commissioning services to address them. Local Plan Group and community team attend as necessary to update based focus groups for the group on local plan proposals and health policy, so two way flow of information to ensure health care issues embedded in policy.
Kent Nature The Partnership is led by a The work of Board is The Kent Nature Partnership was Partnership Project Board and supported by the awarded Local Nature Partnership comprises representatives Management (LNP) status by the government in July of Working Group and 2012 to drive positive change in the three delivery local natural environment. The Area of Outstanding Natural groups; Habitat Partnership takes a strategic view of Beauty Unit Improvement, Health the challenges and opportunities & Wellbeing and involved in managing the natural Country Land & Business Rural & Green environment as a system benefiting Association and National Economy. Meets 4 biodiversity, people and the local Farmers Union times per annum with economy. 2-3 meetings of each Defra family sub group. Their mission is to enable a diverse range of organisations to work in District Councils partnership and to make the best use of their available resources in order to Kent & Medway Economic achieve significant gains for our natural Partnership environment.
Kent Wildlife Trust Production of local plans self - assessment pro forma. Kent Public Health
Minerals Producers Association
Kent Nature Partnership Management Working Group Chair
The Board has officer support from Kent County Council. 48 Annual Monitoring Report 2013-14
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Group / Body Members Format Subject Matter
North Kent Officers of Swale BC; Meets 3-4 times per Convened in early 2010 to deal with Environmental Gravesham BC; Dartford annum plus working issues of impact of recreational Planning Group BC; Medway CC; parties on specific pressure on Special Protected Areas Canterbury CC; Kent issues. in the Medway and Swale Estuaries. County Council; Natural Carries out relevant research and is England; Kent Wildlife currently developing a Strategic Trust; RSPB; Environment Access Management and Monitoring Agency; and previously Strategy and tariff approach to mitigate Kent and Medway Greening the impacts of development on the the Gateway SPAs across the five local planning authorities affected. Reflected in Local Plan Habitat Regulations Assessment.
Kent Downs Meets 3-4 times per The JAC was convened in July 1997 Area of annum, plus the and has evolved to address Outstanding Annual Forum. responsibilities under the CRoW Act Natural Beauty 2000 and the planning and other Joint Advisory AONB Unit officers challenges impacting the landscape Committee are hosted by Kent Core business is producing and (JAC) CC – all local implementing the AONB Management authority members Plan as per CRoW Act (2000). Also contribute to running produces guidance on general costs. planning matters affecting the AONB; support to local planning authorities in Swale BC is currently respect of specific planning also providing a applications; and formulating local plan Principal Planning policy and development strategies. Officer on a seconded basis for two days per month to assist with planning policy matters.
Neighbouring Cabinet Member sign off of Officer meetings 3-4 Sharing local plan progress; joint local planning official comment on another times per annum or commissioning of evidence and authorities district’s planning as necessary to discussion on scope for co-operation documents or proposals for cover key stages in on cross boundary matters. cooperation. a local plan and evidence base Where possible, preparation of Informal officer level preparation. statements of common ground or meetings, with neighbouring understanding where plans at different authorities including stages and / or cooperation on policy Maidstone, Medway, or delivery cannot be reached (eg on Canterbury and Ashford. housing delivery). None finalised at time of writing. North Kent authorities (Dartford Gravesham, Medway and Swale) currently scoping cross boundary issues with a view to establishing a possible North Kent Memorandum of Understanding Annual Monitoring Report 2013-14 49
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Group / Body Members Format Subject Matter
Kent County Officers from all KCC Meeting bi-monthly Focuses on key sites and infrastructure Council - Services and Swale BC needs; development of Implementation Services and planning (with occasional and Delivery Schedule supporting the infrastructure member attendance). Local Plan; Coordination of supporting Kent CC community services and infrastructure. Identification and coordination of issues to be channelled for possible LEP or other funding bids; and that to be delivered through development funding.
Currently feeding into production of Growth Infrastructure Framework to support anticipated local plan growth and all Kent districts are assisting with preparation. Will be used for infrastructure funding bids to government and via SELEP (see above).
Kent Flood Risk Members from Kent CC and Meeting 3 times per Focuses on flood risk matters, Management Districts plus annum reviewing flood events; flood defences Committee representatives of bodies and introduction of SUDs drainage responsible for responsibilities. watercourses. Supported by Kent CC officers (Swale represented at member level)
Highways Officers of all three Regular meetings to Joint commissioning and development England and organisations oversee transport of transport evidence for Local Plan Kent County evidence throughout policy development and KCC Local Highways , (reporting to Swale Local local plan Transportation Strategy for Swale, Swale BC Development Framework preparation. (Monthly which complements the Local Plan. Working Group Panel and Swale Joint during modelling). Transportation Board). Continuing for project Continuing meetings as key implementation. stakeholders in implementation Highways Agency M2/J5 improvement, Local authority which is a key piece of infrastructure. attendance at Highways England Route Based Strategies Project workshops. Autumn 2013
Kent Quality Kent CC and Swale BC Quarterly meetings Implementation of Swale Local Bus Partnership officers; representatives of Transportation Strategy; informing local bus operators Local Plan policy and delivery of infrastructure to support proposed new development as well as improvement of existing services. 50 Annual Monitoring Report 2013-14
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Group / Body Members Format Subject Matter
Homes and HCA and Swale BC officers, Joint working during HCA, Swale and Kent CCC have Communities with Parish and Borough preparation of worked together on the remediation, Agency (HCA) Member input at key SHLAA and Local re-allocation and marketing of a major stages. Plus KCC Plan; contribution to regeneration site at Queenborough and assistance with viability assessment Rushenden, Sheppey. Included recent infrastructure delivery. workshop and also revision of masterplan SPD for the site. on Queenborough Ongoing liaison. and Rushenden Masterplan SPD and Review thereof.
Swale Clinical Swale BC and CCG / NHS Dialogue throughout Establishing specific health Commissioning officers. See also more Local Plan infrastructure needs to support the Group and NHS general ongoing contact preparation. Local Plan development strategy, with England through the Swale Health specific needs identified as and Wellbeing Board development targets and allocations (above). firmed up.
Marine Swale BC and MMO officers Dialogue and formal Establishing appropriate coastal and Management consultation from marine management policies in the Organisation establishment of Local Plan. MMO in 2010
Catchment Environment Agency, Quarterly meetings Positive outcomes for water, estuarine Partnership Medway Council, Kent since initial meeting and coastal environment with (hosted by County Council, Swale in November 2012. collaboration and transparent decision Medway Swale Borough Council, Elmley making. Estuary Conservation Trust, Kent Partnership) Wildlife Trust, RSPB, Peel Ports, Faversham Creek Trust, Southern Water, National Farmers Union, Friends of the Westbrook and Stonebridge Pond, Kent Wildfowling & Conservation Association, Farm for Wildlife, Kent & Essex Inshore Fisheries and Conservation Authority, Rochester Floating Oyster Fisheries and the Medway and Swale Boating Association.
Civil Aviation Swale BC and CAA officer Consultation phases Swale has no aviation facilities existing Authority contact, with Member input of the plan. CAA ‘no or currently proposed within the on key issues comment’. Borough, so contact limited to consultation on plans and comment on CAA proposals (e.g. the third London Airport and changing flight paths within the South East) Annual Monitoring Report 2013-14 51
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Group / Body Members Format Subject Matter
Network Rail Swale BC, Kent CC Dialogue on specific Main focus of dialogue is improvement (and Network (transport) and Rail officers proposals and of station facilities and integration with South East) consultation on local bus services as part of Sittingbourne plan and Town Centre Regeneration. Sittingbourne Town Centre master plan.
Heritage Swale BC and HE officers Dialogue on specific Main focus of dialogue has been England (HE) aspects of the plan seeking HE support for development and consultation strategy of Local Plan and avoidance phases. of impact on setting of historic market town; and evidence base for heritage assets.
Environment Ongoing involvement of Continuous dialogue Joint commissioning of Swale Strategic Agency officers and members in and involvement in Flood Risk Assessment. numerous environmental specific topic groups, Comprehensive coverage of groups and initiatives plus evidence environmental conservation, mitigation covering the Borough gathering and and enhancement topics. consultation throughout plan making.
Natural England Ongoing involvement of Continuous dialogue Comprehensive coverage of officers and members in and involvement in environmental conservation, mitigation numerous environmental specific topic groups, and enhancement topics. groups and initiatives plus consultation covering the Borough throughout evidence gathering and plan making.
Maidstone Maidstone and Swale Local Meetings two – three Cover key local plan issues; research Borough Plan officers times per annum or findings, scope for joint evidence base Council as necessary to commissioning; consideration of address specific evidence and implications for both issues. authorities and policy; key local plan milestones.
Medway City Medway and Swale Local Meetings two – three Cover key local plan issues; research Council Plan Officers; occasional times per annum or findings, scope for joint evidence base (Unitary) Member input as necessary to commissioning; consideration of address specific evidence and implications for both issues. authorities and policy; key local plan milestones. Possibility of a Memorandum of Understanding under consideration.
Canterbury City Canterbury and Swale Local Meetings two – three Cover key local plan issues; research Council Plan Officers times per annum or findings, scope for joint evidence base as necessary to commissioning; consideration of address specific evidence and implications for both issues. authorities and policy; key local plan milestones. 52 Annual Monitoring Report 2013-14
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Group / Body Members Format Subject Matter
Ashford Ashford and Swale Local Meetings two – three Cover key local plan issues; research Borough Plan Officers times per annum or findings, scope for joint evidence base Council as necessary to commissioning; consideration of address specific evidence and implications for both issues. authorities and policy; key local plan milestones.
Table 8.1 Summary of Duty to Co-operate Groups or Bodies involved in Swale Local Plan
Summary of duty to co-operate activities in relation to issues by topic
8.19 Housing Need and Development Targets Issues
8.20 Swale does not fit neatly with groupings of local authorities in north, east or mid Kent to facilitate cross boundary co-operation on housing delivery. The evidence on this grew out of the earlier work which was carried out in support of the South East Regional Strategy, but the most recent work suggests that the pattern of housing market areas and links such as travel to work areas have remained remarkably constant. There is limited overlap with the neighbouring Housing Market Areas (HMAs). This is evidenced by the East Kent SHMA (2009); the North Kent SHMA (2010); The Geography of Housing Market areas in England (CURDS 2010) and the Mid Kent SHMA (August 2014).
Duty to Issues, Activities and Outcomes Co-operate
Swale BC Issue Deliverability of housing development target in short term
Nature of Meeting objectively assessed housing need, due to significant viability and Strategic Issue deliverability issues over much of the Borough. Poor market performance.
Short term infrastructure delivery issues. Borough does not readily fit functionally or in HMA terms with adjoining HMAs to facilitate meeting need in those areas.
Who did Swale East Kent Districts in East Kent SHMA (2009) BC co-operate with? Medway City Council (plus Dartford BC and Gravesham BC in emerging housing market assessment)
Canterbury City Council
Maidstone Borough Council
Ashford Borough Council
Homes and Communities Agency (HCA)
How/when/what Evidence Base: Strategic Housing Land Availability Assessment (SHLAA) Kent Planning Annual Monitoring Report 2013-14 53
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Duty to Issues, Activities and Outcomes Co-operate co-operation Policy Officers SHLAA protocol (2009) was undertaken? Swale BC has been working for several years with HCA and Kent CC to bring forward regeneration plans for Queenborough and Rushenden including over 1300 dwellings. The original Masterplan SPD was produced jointly with HCA and adopted in 2010. Significant progress has been made in ground preparation; acquisition of additional land and installation of a key piece of access road. Swale participated East Kent SHMA (2009) (Canterbury CC, Thanet DC, Dover DC, Shepway DC). Swale BC update of East Kent SHMA February 2013 (undertaken by consultants).
Swale had a watching brief and commented on North Kent SHMA (2010) (Medway CC).
Viability Assessment jointly commissioned with Maidstone BC (Swale Local Plan Viability Testing (August 2012 - 2014). Joint commissioning of consultants to undertake viability assessment for both authorities’ local plans using common methodology. As neighbouring authorities, a joint stakeholder workshop was held August 2012. A further updating workshop was held in Swale on 15 November 2013. Early results from the joint viability assessment work with Maidstone illustrated that Swale housing market and viability is different between the two authorities.
Swale has commented on neighbouring local authorities plans at consultation stage and sought assistance from neighbouring districts on meeting unmet need. On publication of draft Swale Local Plan Bearing Fruits (2013), Swale sought information as to neighbouring authorities likely development targets and, in view of concerns about deliverability of objectively assessed needs in Swale, sought advice as to whether provision could be made in neighbouring authorities.
Swale is currently co-operating with Medway CC on evaluating planning applications and SHLAA / Local Plan proposals in the area either side of the district boundary for their cumulative impacts on infrastructure; landscape; separation of settlements; agricultural land quality; air quality management; correspondence with development strategies.
Outcome for Co-operation with HCA and Kent CC is likely to led to reconfiguration of the Swale Local Queenborough and Rushenden regeneration area, to assist with viability. Plan Policy Successive SHMA evidence indicates small overlap with Canterbury housing market area; and some with Medway. Travel to work data indicates that Swale is not particularly tied to any one neighbouring area. 54 Annual Monitoring Report 2013-14
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Duty to Issues, Activities and Outcomes Co-operate
Viability evidence indicates that Swale housing market has some of lowest prices in Kent and is different to neighbours in this respect. Infrastructure requirements are high and the challenging viability over much of the Borough, even when policy adjustments have been made, means that deliverability of objectively assessed needs is not likely in the short term.
None of the neighbouring districts have been able to offer assistance in accommodating Swale unmet need, either because they are clearly in a separate market area; or are not yet in a position to define their own needs and ability to meet them.
Swale is currently not able to meet its objectively assessed housing need and has therefore sought during plan preparation, whether there was scope to do, though the duty to cooperate with adjoining districts. To date, there has been no agreement that it is practicable for any of Swale’s need to be met in adjoining areas.
Ongoing Evidence: Progress will be monitored through the Annual Monitoring Report Monitoring and Co-operation Meetings: Swale continues to meet with neighbouring authorities 3-4 times per annum, to monitor plan progress and potential areas for co-operation; and as events or significant proposals indicate.
Table 8.2 Summary of Co-operation on Meeting Housing Need
8.21 Discussions have taken place and are on-going with neighbouring local authorities on levels and locations of housing provision for the emerging Local Plan. A Planning Policy Forum sub-group has recently been established to consider joint working on objectively assessed need for housing across Kent.
8.22 We have been working with Kent County Council in order to understand the housing needs of special groups. We are involved in the development of KCC’s Accommodation Strategy, which will inform Local Plan policies on housing for particular groups/needs.
8.23 Joint work has taken place regarding needs for Gypsies and Travellers, with all bar one Kent local authority jointly commissioning their Gypsy and Traveller Accommodation Assessments. This has ensured a consistent methodology and covered cross boundary issues.
8.24 Transport Infrastructure
8.25 Swale transport infrastructure issues for the most part impact directly on Swale itself. The main focus of co-operation has therefore been with the highway authorities and transport providers. Annual Monitoring Report 2013-14 55
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NPPF Transport
Nature of Strategic Issue In transport terms, the M2 corridor is the key link between all the North and East Kent districts. M2/J5 on the A249 serves Sittingbourne and Sheppey and also links the Borough to Maidstone and the M20 corridor. M2/J5 is substandard, over capacity and has a poor safety record. It is a brake on economic development for the Borough and under significant pressure, given the out commuting patterns. The junction’s poor performance primarily impacts on Swale’s development prospects, rather than being a cross boundary issue. M2 Junctions 6 and 7 serve the Faversham end of the Borough and are also nearing capacity. The pressure of development at Faversham (both Local Plan allocations and additional sites proposed by developers) is now a matter for increasing concern and will be covered by a joint statement from the Borough Council and the two highway authorities.
The remaining section of the Sittingbourne Northern Relief Road (east of the town) would enable commercial traffic to completely bypass the town centre and would enhance regeneration plans there. At the present time, modelling indicates that this is not needed in traffic terms, although it remains in bidding for LGF funding.
Improvements to Sittingbourne town centre transport have been sought from LGF with the bidding process led by Kent CC.
Who did Swale BC There has been constant and ongoing joint working team with co-operate with? Kent Highways and Highways Agency.
Regular liaison with KCC as Growth, Environment and Transport Directorate acts as the conduit for bidding to SELEP Local Growth Fund for infrastructure projects.
There was extensive cooperation with HA and Kent CC Highways on the possibility of a Sittingbourne Southern Relief Road and new junction to the M2 south East of Sittingbourne. This was not found to be viable or deliverable within the Plan period.
How/when/what Joint commissioning and development of transport evidence for co-operation was Local Plan policy development; Swale BC, Kent Highways and undertaken? Highways Agency met monthly during research and transport modelling work (2010-2014) and KCC Local Transportation Strategy for Swale which complements the Local Plan.Swale BC participated in the Highways Agency Route Based Strategies evidence gathering work (2013- 2014). 56 Annual Monitoring Report 2013-14
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NPPF Transport
Swale BC and Kent Highways have collaborated on the Swale Local Transportation Strategy, which complements the Local Plan and hosted consultation on that.
Kent CC bidding to SELEP at December 2013
Quarterly meetings with Quality Bus Partnership.
Swale BC have expressed concern at the traffic impact of Maidstone development proposals (through Duty to Cooperate meetings and comment on Maidstone draft local plan) on A249 congestion, but through liaison with the highway authorities, suitable mediation schemes have been identified through the Maidstone local plan process.
Outcome for Swale Local Development strategy focused on sustainable development Plan Policy patterns; enabling the use of alternatives to the private car and reducing the need to travel.
Local Transportation Strategy which supports the Local Plan.
Improvement of direct rail services from Sheerness to London at peak times.
Ongoing Monitoring and Continuing stakeholder liaison meetings (approx. bi monthly) with Co-operation highways authorities.
Continuing liaison with Kent CC.
Updating of Local Transportation Strategy as necessary
Table 8.3 Summary of Co-operation on Transport Issues
8.26 Environment
8.27 Swale has extensive tracts of land forming part of the Swale and Medway estuaries which are designated for biodiversity at both national and international level. There are also sites of importance at Queendown Warren and the Blean.
8.28 Through the North Kent Environmental Planning Group (NKEPG) we have worked with Natural England, Environment Agency and Kent Wildlife Trust, Canterbury, Medway, Dartford and Gravesham local authorities and Kent County Council Ecology officers in order to understand the potential impact of future development in the area upon the European Designated Sites, as a result of recreational pressure. A joint study has been commissioned to draw together the existing evidence and make recommendations on future joint working and potential options for mitigation. The group are currently working on a mitigation strategy for the area. Annual Monitoring Report 2013-14 57
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8.29 We have worked with Natural England, Kent Wildlife Trust and Environment Agency in developing the evidence base and relevant policies for the natural environment policies within the Local Plan. We have been working with Kent County Council, Environment Agency, Southern Water, South East Water and Lower Medway Internal Drainage Board on issues relating to water management. The evidence is being used to inform local planning policies.
NPPF Strategic Natural and Historic Environment Priority
Nature of Swale is part of the North Kent coastal area affected by the internationally Strategic Issue designated Medway and Swale estuaries, plus land based designated biodiversity sites. Identified as being at major risk from recreational pressure arising from new development. Comprehensive approach needed to monitor, manage and mitigate pressures and comply with Habitat Regulations Assessment process.
Biodiversity issues also within the North Downs AONB.
Who did Swale Natural England; Environment Agency; Medway CC; Gravesham BC; BC co-operate Dartford BC; Canterbury CC; Kent Wildlife Trust; RSPB; Medway Greening with? the Gateway; Kent Nature Partnership; North Kent Environmental Group; Kent North Downs AONB JAC
How/when/what North Kent Marshes: North Kent Environmental Planning Group co-operation was comprising districts and conservation bodies active on North Kent Coast. undertaken? Working group set up in early 2010 to examine the effects of new development on the internationally designated areas and how to manage and mitigate it. Study of bird populations within SPA areas and how they are impacted by new residential development was undertaken.
Group meets 3-4 times per annum plus working parties on specific issues and makes recommendations for policy and implementation. Currently chaired by a Swale BC officer. The group is currently working on a Strategic Access Management and Monitoring Strategy and tariff approach to mitigate the impacts of development on the SPAs across the five local planning authority areas.
North Kent Downs AONB: Although the AONB Management Plan contains a number of designated biodiversity sites and biodiversity conservation Table 1 above indicates function and meetings of group.
AONB Unit comments on draft policy.
Seasalter Levels: In 2007 the Seasalter Levels partnership was formed involving Canterbury City Council, Swale Borough Council, RSPB and Natural England. Meetings of the partnership are held twice yearly, with sub group meetings held as required Continuity of policy approach across Borough boundary by ensuring the area is protected by planning policy appropriate to its designation as SPA, SSSI and Area of High Landscape 58 Annual Monitoring Report 2013-14
8 Duty to Co-operate
NPPF Strategic Natural and Historic Environment Priority
Value (Kent Level) to maximise the benefits of the partnership in restoring and conserving this habitat. Canterbury City Council is currently compulsorily purchasing land at Seasalter Levels in order to create a new nature reserve. On acquisition of the plotlands, management will pass to RSPB to manage as a new wetland nature reserve, benefiting overwintering birds.
Outcome for North Kent Marshes: Critical to enabling residential development to Swale Local Plan proceed within the identified 6km buffer zone of SPAs. Policy North Kent Downs AONB & Seasalter Levels: Feeds in to policy development.
North Kent Marshes: Comprehensive policy approach to special protected areas. Joint approach to mitigating effects of development along, or close to North Kent Coast SPAs through pooled development funding is the next phase of the work, which is in hand.
Outcome for North Kent Downs AONB: Common approach to planning policy and co-operating management of biodiversity issues within the AONB. Bodies Seasalter Levels: Approximately half of the area is now owned by Canterbury City Council and is being managed by the RSPB Compulsory purchase is being used to acquire the remaining plots on the Whitstable Bay Estate. There is scope to further expand the extent of the area in public ownership, as funding allows.
Ongoing Joint use of developer contributions. Mutually compatible policy and Monitoring and positive management of biodiversity assets. co-operation
Table 8.4 Summary of Co-operation on Biodiversity Issues
8.30 Infrastructure
8.31 Engagement has taken place with service providers, including Kent County Council, in order to establish the types and level of infrastructure such as schools, libraries, adult social services and youth services that will be required to accommodate the needs for development in the emerging Local Plan.
8.32 Summary of duty to co-operate activity in relation to other Local Plans
8.33 We have been involved in liaison with other Local Authorities on the development of their plans. Key activities have included:
Discussions with Maidstone Borough Council on their emerging evidence base and Local Plan. Consultation responses were subsequently made to both the Regulation 18 and Annual Monitoring Report 2013-14 59
Duty to Co-operate 8
Regulation 20 consultations on the Land Allocations Plan. Discussions with Canterbury City Council on their emerging Local Plan (December 2012). A consultation response was subsequently made to the Regulation 18 consultation on the Preferred Option Local Plan. Discussions regarding Ashford BCs Core Strategy Review (November 2012) Discussions regarding Kent County Council’s Waste and Minerals Local Plan (January 2013). A consultation response was subsequently made to the Regulation 19 consultation on the Pre-Submission Local Plan. 60 Annual Monitoring Report 2013-14
8 Duty to Co-operate Annual Monitoring Report 2013-14 61
Conclusions and Recommendations 9
9 Conclusions and Recommendations
Outcomes this year
9.1 As the AMR has shown, the Council does not have a five year housing land supply when measured against the provisions of the adopted (2008) Local Plan. Market performance in terms of housing delivery has improved somewhat in the year 2013/14, but remains below target.
9.2 The major changes to national planning policy have led to a substantial amount of additional work on the Swale development plan and changes to its format and programme. However, it is now progressing as a district local plan with a clear programme to submission and examination in public.
Future actions
9.3 Housing - It is hoped that improved market conditions after 2013 will result in more housing and employment completions. The Council will aim to continue with the good progress on affordable housing completions secured via Section 106 Agreements.
9.4 Employment - The Council will continue promoting completions on previously developed land and strive to improve retail completions, potentially using mechanisms outside the planning system by working corporately with the various regeneration agencies and co-operatives involved.
9.5 Environment - It is anticipated that the good progress against the environmental indicators will continue with the the Council retaining a key role in the NKEPG.
9.6 The Publication version of the draft Local Plan: Bearing Fruits (with proposed housing allocations) is expected to be put out to public consultation in early 2014, with the Preferred Option version having been achieved in 2013/14 monitoring year. Examination is currently scheduled for late summer 2015.
9.7 Duty to co-operate activities with prescribed bodies and others across the range of issues deemed to be strategic for Swale will continue. 62 Annual Monitoring Report 2013-14
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