Penzance and Newlyn
Town Framework Plan
Urban Extension Assessment
December 2011
Planning Delivery Team (West)
Penzance Town Framework Plan Urban Extension Assessment Page
Introduction 3
12 Step Process Flow Chart 4
Step 1 – Mapping Review 5
Step 2 – Identify Site Areas (Cells) 5
Step 3 – Desk-Based Environmental Assessment 5
Step 4 – Accessibility Mapping 7
Step 5 – Review & Discount Inappropriate Sites 8
Step 6 – Landscape Character Assessment 9
Step 7 – Urban Design Analysis 10
Step 8 – Heat Mapping Exercise 12
Step 9 – Qualitative Review & Discount Inappropriate Sites 13
Step 10 – Stakeholder Consultations 18
Step 11 – Informal Sustainability Appraisal 20
Step 12 – Confirm Site options for Core Strategy Consultation 20
Appendices 22
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 2
Introduction
Work is currently underway on the preparation of the Core Strategy for the whole of Cornwall as part of the Local Development Framework. This document will set out the long-term spatial vision for the County and long term strategic policies and proposals that will deliver that vision. The Core Strategy will provide an indication of the broad locations for new development in Cornwall up to 2031.
It is anticipated that a large proportion of the growth that will be identified within the Core Strategy will be directed towards the existing main towns of the County. Therefore a Town Framework Plan is being produced for each of Cornwall’s main towns, which will help identify the most suitable areas to accommodate this projected growth.
This paper has been produced to document the work that has been undertaken to assess all of the (undeveloped) land which directly adjoins Penzance and Newlyn for its suitability to accommodate growth, through urban extensions, to support the strategic vision for the towns as set out within the Core Strategy.
The paper documents a ‘twelve step assessment process’ ensuring that a consistent approach is applied to the potential for urban extensions assessments across all of Cornwall’s main towns.
Steps 1-5 seek to identify land that is either potentially appropriate for further detailed assessment, or land which should be discounted at an early stage for reasons based on significant environmental and or accessibility grounds.
Steps 6 to 9 involve a landscape character assessment; an urban design assessment and an assessment of the potential for decentralised renewable or low carbon energy to supply any potential development. Inappropriate cells are discounted at step 9 following a review.
All remaining land is then assessed at steps 10-12, as potential options for urban extension locations. These options are informally discussed with key stakeholders, including the Environment Agency, Highways Agency and Natural England, on the suitability of land. This stage will also include an informal Sustainability Appraisal of the options. Following this the options will be consulted on through the Core Strategy strategic sites consultation as options for future growth.
The assessments that are set out in these twelve steps are discussed through out the process at workshop sessions with both officer and member steering groups, to provide local input, context and endorsement.
A Flow Chart overleaf illustrates the twelve step process:
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 3
Figure 1 – 12 Step Urban Extension Assessment Process
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 4
Methodology
PART A – Steps 1-9
Step 1 – Mapping Review This involved a desk based assessment to help understand the structure of Penzance and Newlyn and how the towns currently function including what services and facilities are available for the communities within the area. The results of this exercise help to inform and guide the subsequent assessments throughout the process, but primarily the initial desk based urban extension assessment exercises of steps 2, 3, 4 and 5.
This mapping exercise sought to identify the main movement corridors: A, B and local distributor roads, main railway line and station, and key services such as schools, health facilities, community buildings, and formal and informal open spaces - as well as identifying the main and neighbourhood centres.
A resultant ‘Structures and Neighbourhoods’ map also helps to identify initial Green Infrastructure (GI) information such as public open space, and existing green corridors and networks (e.g. waterways, cycle routes and footpaths) and water elements (e.g. lakes, significant pond systems, wetlands etc) which will inform Step 7 in particular.
Step 2 – Identify Assessment Areas (Cells) This step was a desk-based exercise concerned with reviewing all of the land immediately adjoining the existing urban area of Penzance and Newlyn and identifying suitable and workable landscape areas (or ‘cells’) for further detailed analysis. This was done by assessing significant natural and manmade features, e.g. A30/main roads, railway, high ground, valleys, watercourses, flood plains etc, and using these features generally to define the boundaries of the study area and individual cells.
In order that the assessment was comprehensive and objective the most important issue was to ensure that there were no gaps in the coverage and that all land adjoining the urban area was identified and included within a specified cell.
Figure 2 overleaf illustrates the extent of the study area and the initial cells that were assessed. It should be noted that it was fully expected that these initial boundaries would be modified and refined as the study progressed and more detailed understanding of the areas became apparent.
Step 3 – Desk-Based Environmental Assessment This involved a desk based assessment to record the relationship of the different cells with significant and less significant environmental features. The main intention of this step was to identify any land where significant environmental features (predominantly national designations e.g. SSSI; flood zone 3b; ancient woodland etc) would mean that future development potential would be highly unlikely due to the obvious constraints. In the same way the step identifies the areas where any potential growth would not be constrained by such significant environmental constraints.
Each cell was assessed in this way based upon the assessment criteria and a ‘traffic light system’ which are detailed at Appendix A. An example of an environmental assessment for an individual cell is illustrated at Figure 3. This step identified those cells which contained significant environmental features or assets (predominantly national level designations) and therefore based this evidence should be discounted from any further study in the urban extension assessment process.
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 5
Figure 2 – Initial Cell Boundaries
Figure 3 – Example of a Desk Based Environmental Assessment Survey Sheet
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 6
Step 4 – Accessibility Mapping This desk based accessibility assessment was undertaken at the same time as Step 3 above, and assessed cells accessibility to essential local facilities e.g. schools, health facilities, town centres etc. Accessibility was assessed for both pedestrians (step 4a) and vehicular access (step 4b).
For pedestrians a series of distance criteria form the basis of assessing how each cell performs in terms of its proximity to the services and facilities. The distances used were 400 m, 800m and 1200 m, representing a 5, 10 and 15 minute walk respectively. These distances/times are used as they are referenced as standard in various national planning and urban design good practice guides.
Each cell was assessed utilising a traffic light rating system, (the detail of which is set out at Appendix B) with the aim of establishing between those cells that performed either well or poorly in terms of their accessibility to local services and facilities. Potential shortfalls in the availability of local services and facilities were also highlighted through this assessment.
With regards to vehicular accessibility (step 4b), consideration was given to the whether the existing highway infrastructure had potential to provide existing or new vehicular access points / routes to the cells.
Two key issues were considered:
• Whether there was deliverable vehicular access to serve the cell; and • Whether there was possible vehicular connection from the cell to the nearest Town or Neighbourhood Centre.
The results of this assessment were considered along with step 4a, to determine an overall performance rating for each cell in terms of accessibility.
Figure 4 – Example of a Desk Based Accessibility Assessment
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 7
Step 5 – Review & Discount Inappropriate Sites This step was a desk-based exercise concerned with reviewing all of the Environmental Assessments and Accessibility Mapping to determine which cells should go forward to the detailed analysis in Steps 6-9 and which, if any, should be discounted as unsuitable to accommodate any significant future housing growth. In addition to the preliminary officer assessment, workshop sessions were held with the other Town Framework managers and the Member Steering Group to discuss these initial findings and ensure consistency of approach.
The results of step 5 can be seen below at Figure 5. The Results of the Environmental Assessment meant that Cell1 (Marazion Marshes) and Cell 15 (Penlee Quarry) were excluded because of the national SSSI designations that covered both areas. The initial boundaries of Cells 5 and 6 encroached in part on the southern edge of the Penwith Coast & Moors AONB so these were modified to avoid this encroachment. The detailed results of the desk based Environmental Assessment are attached at Appendix A.
The widespread nature of the existing town and neighbourhood centres meant that nearly every cell was rated relatively highly in the Assessment and the decision was made to not to discount any of the cells, at this stage, on the basis of accessibility mapping alone. The results of the Accessibility Assessment are attached at Appendix B.
The Penzance Member Steering Group The Member Steering Group is comprised of Cornwall Council Members and representatives of Penzance Town Council and Ludgvan Parish Council. The Group met on 15 October and 2 November 2010 to workshop and discuss the initial findings set out above. This exercise concluded that it was appropriate to discount Cells 01 and 15, modify the boundaries of Cells 5 and 6 and for the remaining thirteen cells to go forward for the detailed assessments at Steps 6-9.
Figure 5 – Results of Step 5 highlighting areas to be discounted in red
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 8
Step 6 – Landscape Character Assessment A landscape character assessment was undertaken by Landscape Architects from the Councils Environment Service. A methodology was drafted and agreed by relevant officers (this can be viewed at Appendix C) which recorded important landscape features and assessed the landscape according to its character and sensitivity to change and gave an overall colour using a traffic lights system according to its overall landscape quality. Each cell was assessed by a detailed site visit and by also utilising the environmental information recorded at previous step 3. Below are the overall results following the assessment:
Figure 6 - Landscape Overview Map
Cells 1 and 15 and parts of Cells 5 and 6 were not assessed by site visits as they were already discounted through the previous Step 5. As Figure 6 illustrates Landscape Assessment concluded that the land to the north and west of the existing built-up area of Penzance was the most sensitive in visual terms and this is reflected in the High Landscape Value ratings given to Cells 4, 5, 6, 7, 8, 9 and 10. The land surrounding Newlyn was generally given an intermediate rating (Cells 12, 13 and 14) and only Cell 2 was given a Low Landscape Value rating. Some cells, in particular cell 11, are subdivided and this reflects a very distinct change in character and/or quality within a cell. Cell 3 was given an low/intermediate rating but it was evident from the Member Steering Group meeting on 25 January 2011 that this area was considered by many to have historical significance as the area where certain crops such as cauliflowers and potatoes were first grown in the United Kingdom.
No cells were discounted at this stage but the landscape analysis was used together with output from the parallel urban design and heat mapping exercises to inform Step 9 below.
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 9
Step 7 – Urban Design Analysis
The purpose of this step was to carry out an analysis of each cell with the aim of clarifying which would potentially relate and function well (if developed) with the town and be sustainable locations to accommodate any (potential) future growth; equally, it was to demonstrate which cells would not function as well and to clarify the reasons why. The methodology used can be viewed in (Appendix D). The exercise involved a sketch exercise relating to each cell identifying existing or potential connections or routes to enable ease of movement and accessibility. A table was then used to record the results of each cell by assessing against a set of criteria. The full results and tables can be viewed in (Appendix D)
Each cell was assessed in this way and cells where the assessment showed logic or benefits in being merged for ease of connectivity or landform. A final comment is given noting the conclusions from the assessment and indicating the suitability of the cell or merged cells as either:
• a potential expansion of an existing neighbourhood; • an opportunity to create of a new neighbourhood; or • the constraints noted to the creation of either of the above.
The intention was not to discount cells at this stage as the information from this assessment was used at the following Step 9 ‘Qualitative review and discount sites’ to inform decisions, along with the landscape character assessment and wider growth option implications as broadly indicated in the Core Strategy (i.e. scale of long term growth required/achievable) as to which cells should be discounted from further assessment and those that should remain as potential site options to accommodate the potential future growth of the town.
With regard to expanding an existing neighbourhood the best scoring cells in urban design terms were cell 2; the western ends of Cells 3 and 4 and the eastern end of Cell 6 where they adjoin Gulval; the south western ends of Cells 6, 7 and 8 and eastern side of Cell 9 where they adjoin Heamoor; the north eastern corner of cell 12 where it adjoins Mount Misery; the eastern edge of Cell 13 in three parts where it adjoins Newlyn; and the northern half of cell 14 where it adjoins Newlyn, see Figure 7.
With regard to creating a new stand alone neighbourhood of a scale that would provide supporting community facilities, the best scoring cells were Cells 13 and 14 at Newlyn together with 4 new cells created from merging parts of other cells as follows: New cell A created by merging parts of cells 3 & 4, Cell B by merging parts cells 6 & 7, Cell C by merging parts of cells 8 & 9; and Cell D by merging parts of Cells 9, 10 and 11, see Figure 8.
Cell 5 did not relate well to the existing settlement or was capable of forming part of a new merged cell and therefore scored lower in the urban design assessment.
Cells 1 and 15 were not assessed having been discounted at Step 5.
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 10
Figure 7 – Potential extensions to existing neighbourhoods
Figure 8 – Potential new Neighbourhoods
Each cell was given an overall colour using the traffic light system. The full results with information on each cell / merged cell can be seen in Appendix D.
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 11
Step 8 – Heat Mapping This involved an assessment of renewable or low carbon energy opportunities in relation to each of the cells, in particular the potential or otherwise for each cell to link into or support a potential decentralised energy or district heating network providing renewable or low carbon energy.
The assessment sets out an initial assumption in relation to the location of each of the potential urban extension cell areas i.e. its proximity in relation to areas of existing high heat demand areas and so called ‘anchor load’ buildings within the built area of the town to determine whether a cell area has the following:
• Good opportunity to link into a potential district heat network
• Limited opportunity to link into a potential district heat network - unlikely but requires further assessment
• Poor or no potential to link into a potential district heat network - highly unlikely to be a viable area to support district heating due to low heat demand and or large distances between the new development and existing heat loads
The assessment was not seeking to discount any cells based on its potential or lack of, but will enable the information to be considered as a strength or a weakness of a cell which can be highlighted along with other considerations when consultation takes place regarding potential options for future growth of the town.
The Heat Map at Figure 9 confirms that Cells 8, 9 and 10 have the greatest potential for possible decentralised energy or a district heating network providing renewable or low carbon energy. This is primarily because they adjoin existing high heat demand buildings such as Poltair Hospital and Mounts Bay Secondary School. The full results can be seen in (Appendix E)
Figure 9 – Heat Mapping Overview
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 12
Step 9 – Qualitative Review & Discount Inappropriate Cells This was the key step with the aim of reviewing all steps to date, undertaking a evidence based and qualitative review focussing on:
• Step 1: how the town functions, • Step 6: the results of the landscape character assessment • Step 7: the urban design assessment.
This step involved a meeting with all parties involved in undertaking the urban extension from landscape, urban design and spatial planning to discuss, explore and agree on the merged cells, original cells or parts thereof to remain as options and those that should be discounted from further assessment.
In addition to the preliminary officer assessment, workshop sessions were held with the Penzance Town Council and the Member Steering Group (MSG) to discuss these initial findings.
It was clear from the Step 6 Landscape Assessment that a significant proportion of the countryside surrounding Penzance and Newlyn was both of a high quality and visually prominent from a wide range of public vantage points. In particular, the area to the north, which was either within or contiguous with the Area of Outstanding Natural Beauty and also provided the rural background setting for the town, was highly visible from the eastern approaches to the town, including the A30 and the main railway line. It was also apparent from the previous workshops and MSG meetings that this landscape was highly valued by the local community and that, for the purposes of accommodating significant new development, there was no ‘Best Cell’ in landscape terms, only a ‘Least Worst Cell’.
The Step 7 Urban Design Analysis had examined the original cells from Step 5 with regard to pedestrian and vehicular connectivity and accessibility to existing services/ facilities. It sought to determine development areas of a sufficient scale to function either as a new neighbourhood with its own centre and local facilities, or as a smaller extension to an existing neighbourhood which would maintain its character/identity and could help support the available local facilities. In both cases, the identified potential development areas were expected to have good linkages to existing facilities, including other neighbourhoods, the town centre and employment areas.
From this Urban Design Analysis, four new merged cells (A, B, C & D) and two original cells (13 & 14) were considered to be the most appropriate potential areas to accommodate a new neighbourhood with its own centre and facilities. In addition, a total of thirteen smaller areas (2, 3w, 4w, 6se, 6sw, 7s, 8s, 9nw, 12n, 13n, 13e, 13s & 14n) were identified that were considered to be the most appropriate potential areas to accommodate an extension to an existing neighbourhood.
In reviewing the six potential new neighbourhood cells, it was noted that two of them (A & B) were in areas that were considered to be the most sensitive and valuable in landscape terms. Whilst it was possible that Cell A could be reduced in size to avoid encroachment into both Grade 1 agricultural land and the foreground setting for the Area of Outstanding Natural Beauty, officers agreed that Cell B could be discounted at Step 9 due to the very high quality of the landscape north of Heamoor generally and the Bone Valley specifically, as well as the difficulties of successfully mitigating any adverse impact from possible development.
Regarding Cells C and D, these both included a significant area of agricultural land that had been considered by the Landscape Assessment to have a comparatively low value
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 13 and, as there were only three such identified areas, it was concluded that this land could be appropriate for potential development. In addition, as they were both located to the west of the existing built-up area of Penzance and Newlyn, they would not be visible from the main eastern approach to the town and, in the case of C, the visual impact would be confined to a relatively small area between Heamoor and Madron. It was therefore concluded that both Cells C and D should go forward to Step 10 Stakeholder Consultation.
Cells 13 and 14 both adjoined Newlyn to the west and south respectively and given the existing highway issues that exist, in particular on Chywoone Hill (B3315), it is considered that an entirely new main distributor road would need to be constructed from the main A30 to provide an appropriate access and avoid adversely impacting on the local road network.
The consequence of this is that Cell 14 would not be capable of being developed without development occurring in Cell 13. This led to considerable concern that the development of the whole of Cell 14 on top of Cell 13 would be both excessive and disproportionate as it covered an area almost as large as that already occupied by Newlyn and would severely encroach into the ‘strategic’ gap between Newlyn and Paul, thereby harming seriously harming the setting and ‘self-containment’ of both settlements.
For these reasons, it was concluded that Cell 14 should be discounted as a new Neighbourhood Option at Step 9 but that Cell 13 should go forward to Step 10.
These three remaining New Neighbourhood cells to go forward to Step 10 were redesignated A, B and C and are shown at Figure 10.
Figure 10 – Potential Sustainable New Neighbourhoods from Step 9
Regarding the thirteen potential existing neighbourhood expansion cells, when these were critically reviewed by officers it was generally agreed that Cell 2 would be a logical eastern extension of Long Rock on land that had a low landscape value, included ‘brownfield’ land and sporadic development and had good connectivity to the primary road network. As the existing neighbourhood centre was located at the eastern edge of the settlement, it would be within convenient walking distance of the whole of Cell 2 as
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 14 would the main employment area of the Long rock industrial estate. It was therefore concluded that Cell 2 was appropriate for potential development and should go forward to Step 10.
It was also considered that, if New Neighbourhood Cell A was discounted at Step 9, there was still potential for an expansion of the existing neighbourhood of Gulval to the south east on the lower grade agricultural land adjoining Cell 3w. This was primarily because the extended area adjoined an existing urban road (Jelbert Way), which provided good potential connectivity to the main A30, the town centre and existing employment areas, and could provide an opportunity to significantly improve this main eastern approach to the town. An appropriately-shaped parcel of land was identified and added to the thirteen potential existing neighbourhood expansion cells previously identified at Step 7.
The Urban Design Analysis indicated that there were also two small undeveloped areas adjacent to the existing neighbourhoods of Eastern Green (Cell 3w) and Gulval (Cell 4w) that were within convenient walking distance of appropriate services and facilities. It was considered by officers that any need for additional housing within either of these neighbourhoods could best be accommodated in these two cells whilst still ensuring that the setting of the adjoining Gulval Churchtown Conservation Area would be satisfactorily preserved or enhanced. It was also considered that retaining both of these cells to go forward to Step 10 was essential if either the new expansion cell (referred to above) or Cell 6e were discounted at any step.
Officers also critically reviewed Cell 6e, having regard to the decision letter from the Planning Inspectorate dated 18 March 2011 dismissing an appeal against the refusal of Cornwall Council to grant permission for the construction of six new houses on land adjoining the cell’s south eastern corner. Whilst the Inspector made a number of comments that could help inform the Urban Extension Assessment generally, it was considered that these related to the existing development plan policy background which the Core Strategy, Town Frameworks and other LDF documents are intended to replace in 2012/13. It was therefore concluded that it would be premature to discount Cell 6e at Step 9 and that it should go forward for Step 10.
Turning to Cell 6sw, whilst this was in high quality landscape area it was also within convenient walking distance of the main retail/commercial centre of Heamoor and could have accommodated a sustainable northern expansion of this existing neighbourhood without significant encroachment into either the generally unspoilt Bone Valley or the strategic ‘gap’ between Heamoor and Madron. It was therefore concluded that it would be inappropriate to discount Cell 6sw at Step 9 and that it should go forward for Step 10.
In respect of Cells 7s and 8s, it was noted that both were relatively small in area and poorly related to the existing pattern and form of the neighbourhood of Heamoor, which they adjoined. It seemed very likely that potential development of either of these cells on their own would appear as an incongruous and poorly connected extension to this existing neighbourhood. It was also considered that any such development would encroach into the current strategic ‘gap’ between Heamoor and Madron, potentially resulting in either coalescence or increased pressure for similar development on adjacent land, or both. In these circumstances, it was concluded that neither cell would be appropriate for potential development and that both could be discounted at Step 9.
Regarding Cell 9nw, nearly all of this agricultural land had been considered by the Landscape Assessment to have a comparatively low value and, as one of only three such identified areas, it was concluded that this land could be appropriate for potential development. It was generally free of constraints, had good accessibility to local facilities and services, many of which would be within walking distance, and adjoined both Mounts Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 15
Bay School and Heamoor Primary School. Not only would it appear as a logical extension of Heamoor, but it would also not be seen from any of the main approaches into Penzance or Newlyn and the visual impact would be confined to a relatively small area between Heamoor and Madron.
Similarly, development of Cell 12n would seem to be a logical small extension of the Alverton Neighbourhood and have a limited visual impact, whilst providing the opportunity to improve this western approach to the built-up area of Penzance. It was therefore concluded that both Cells 9nw and 12n should go forward for Step 10.
As previously stated the existing road network in and around Newlyn has severe capacity and congestion issues and hence is unlikely to be suitable to accommodate the traffic generated by a potential new neighbourhood. However, as the Landscape Assessment had not given the area surrounding Newlyn the highest landscape value and many parts could only be viewed from a limited range of public vantage points. Accordingly, Cells 13n, 13e and 13s were seen as potential development areas that could be accessed of the existing highway network and function as logical expansions of the areas they adjoin whilst retaining the unspoilt setting of the nearby hamlet of Tredavoe. It was therefore concluded that these three cells should go forward to Step 10.
When Cell 14n to the south of Newlyn was critically examined, it was found to have many of the same problems that may result in New Neighbourhood Cell 14 being discounted, i.e. it would have access onto the B3315 only and would encroach into the ‘strategic’ gap between Newlyn and Paul, potentially resulting in either coalescence or increased pressure for similar development on adjacent land, or both. There was also some concern that any development could result in a visually prominent and conspicuous vertical silhouette along the existing ridge that effectively separates Newlyn from the open countryside beyond to the west. It was therefore concluded that Cell 14 may not be appropriate for potential development and could be discounted at Step 9.
The eleven remaining Existing Neighbourhood Expansion cells to go forward to Step 10 were renumbered 1 – 11 and are shown at Figure 11.
Figure 11 – Potential Sustainable Expansions of Existing Neighbourhoods
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 16
The Step 9 review has reduced the number of New Neighbourhood options from six to three and reduced the number of neighbourhood extension options from 14 to 11.
Workshops Once the initial desk-based assessments at Steps 6, 7 and 8 had been completed, the findings were discussed as part of the Step 9 review with Town Framework Plan Managers and the Member Steering Group. The final selection of cells to go forward to Steps 10 and 11 was based on the officer assessments and further informed by these workshops and discussions presentations. At the suggestion of the member steering group Part of Cell 14 on the south eastern side of Newlyn has been reintroduced as a neighbourhood extension option.
However it is noted that the Member Steering Group, because of concerns over the level of development being proposed by the Core Strategy, were not able to conclude on an agreed approach and therefore did not not feel able to endorse the options that would be taken forward to stage 10.
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 17
Part B - Steps 10-12
Step 10 – Stakeholder Consultations A series of meetings were arranged in order to discuss the options identified through step 9 with key statutory stakeholders including: the Environment Agency, the Highways Agency, Natural England and the Cornwall Councils Strategic Transport officers and Cornwall Council Heritage and archaeological officers.
One of the key reasons for the workshop at this stage was to provide the opportunity for any of the stakeholders to highlight an issue that had not been identified through the assessments that would either mean that the site was not a realistic option or was a further strength or weakness of the cell as an option which could be portrayed at in the options public consultation document.
Transportation stakeholders The Highways Agency were not opposed to the development of any cell in principle but wanted to ensure that traffic generated by the additional housing could be adequately catered for by the existing highway network;
Generally felt that Framework presented opportunity for infrastructure improvements such as footpaths, cycleways and public transport links and that these were potentially more important;
Generally considered that the further west vehicles travelled, the greater the traffic problem, i.e. from the main A30 there are very good links to the east of Penzance but these are inadequate in respect of Newlyn;
Generally considered that there was a need for an improved link between Newlyn (particularly the Fish Market) and the main A30 to allow better access to existing and proposed commercial development and to prevent such traffic travelling through Penzance
Proposed New Neighbourhood Cells A-C Cell A – No comments beyond what the assessment had highlighted Cell B- No comments beyond what the assessment had highlighted Cell C - Considered preferable because the necessary new direct road link from the main A30 would also allow better access to and from Newlyn generally
Environment/ Heritage/ Archaeology Stakeholders Generally considered that all proposed cells were areas of potential archaeological interest and were likely to require an early Geophysical Survey undertaken;
Generally considered that surface water run-off rates and mitigation measures in respect of all of the proposed cells were the main concerns of the Environment Agency and that they would anticipate detailed Flood Risk Assessments having to be produced for any proposed development;
Proposed New Neighbourhood Cells Cell A - Advised that development of cell would impinge on long distance views of St Michael’s Mount from Trengwainton House;
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 18
Cell B - highlighted need to satisfactorily safeguard setting of Lesingey Round (Scheduled Ancient Monument), Castle Horneck and listed Trereife House and Gardens to ensure any new development does not encroach into their settings.
Cell C - confirmed that Tredavoe was a historic settlement whose setting must be preserved as it was visible from a wide range of views to north and north-west;
Proposed Existing Neighbourhood Expansion Cells Confirmed Cell 2 is the area where cauliflowers and potatoes first grown commercially in UK and advised of need to preserve setting of Gulval Churchtown Conservation Area, which would require a detailed site survey;
For Cells 2 and 3 Advised that a ‘corridor’ free of development may need to be maintained between Gulval and St Michael’s Mount to ensure these long established views are retained;
Advised that development of Cell 6 may impinge on the setting of Newmill and adjacent listed buildings such as Rosemorran and Trevaylor Farms;
Advised that development of Cell 7 would impinge on long distance views of St Michael’s Mount from Trengwainton House;
Confirmed that development of Cells 8, 9 or 10 may impinge on the setting of Tredavoe when viewed from the north and north-west;
Development Management Generally it may be easier to integrate the smaller site expansion options rather than fewer/larger cells.
New Neighbourhood Cells Generally less favoured but, if anywhere Cell A Heamoor area seems the best option.
Existing Neighbourhood Expansion Cells Cell 1 – Some scope (possibly logical area) (DMT may have had some pre-app on this site). Cell 2 – More impact on surrounding countryside than 3 & 4 and impact on setting of Gulval Churchtown Conservation Area; may be high grade agricultural land. Cell 3 – Reasonably well integrated. Cell 4 – Reasonably well integrated and some interest pre-app previously, but accessibility questionable. Cell 5 – Has accessibility issues and incursion into the open area that is important to the setting of the town. Cell 6 – Well related to schools and reasonable services within walking distance. Cell 7 – Well related to schools and reasonable services within walking distance. Cell 8 – Incursion into Open Area (Green lung) between Penzance and Newlyn and possibly previous intention for use as a graveyard. Cell 9 – Reasonably well related to services but general problem however with accessibility. Cell 10 – Reasonably well related to services but general problem however with accessibility. Cell 11 – Reasonably well related to services but general problem however with accessibility.
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 19
Step 11 – Informal Sustainability Appraisal A brief informal Sustainability Appraisal review of the housing options identified in step 9 above has been undertaken as part of a wider informal appraisal of the Framework Plan for Penzance and Newlyn as a whole and is available as a separate document.
The Framework Plan will be incorporated into the West Penwith Community Network Paper which itself is part of the Cornwall Core Strategy process.
A Sustainability Appraisal (SEA/SA) assesses the environmental, social and economic impacts of proposed plans and policies and is required by legislation. There are 19 Cornwall SA Objectives against which plans are appraised. The SA process provides a quality check on the Framework Plan and aims to ensure that the options and proposals within the document are moving towards achieving sustainable development. The SA will inform the decision making process in developing the subsequent stages of the Framework Plan.
Step 12 – Confirm Site options for Core Strategy Consultation No site options were discounted following the stakeholder consultations at step 10 or the informal sustainability assessment at Step 11. However, to assist the public consultation process on the core strategy and the different town frameworks the decision has been taken to give each site option a unique reference. The table below translates between the site reference at Step 9 and the reference that will be used for public consultation. Figure 12 shows the site option as they will appear in the consultation documents.
Site reference at Step 9 Site reference for public Site Name consultation 1 PNE1 Long Rock 3 PNE2a Gulval East 2 PNE2b Gulval East 4 PNE3 Gulval Central 5 PNE4 Gulval West 6 PNE5 Heamoor North 7 PNE6 Heamoor 8 PNE7 Mount Misery 9 PNE8 Newlyn West 10 PNE9 Newlyn West 11 PNE10 Newlyn West (part of cell 14 at Step 2) PNE11 Gwavas Lane A PNN1 Heamoor B PNN2 Trereife C PNN3 Newlyn West
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 20
Figure 12 - Site options for Core Strategy Consultation
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 21
Prepared by:
Planning Delivery Team (West)
December 2011
If you would like this information in another format please contact:
Cornwall Council County Hall Treyew Road Truro TR1 3AY
Telephone: 0300 1234 100
Email: [email protected] www.cornwall.gov.uk
Penzance and Newlyn Town Framework Plan Urban Extension Assessment December 2011 22