LAND AT WHITTINGHAM LANE, GOOSNARGH, PRESTON, PR3 2AX.
Outline Application for the Erection of up to 80no. Dwellings (35% affordable) and Associated Works.
PLANNING STATEMENT (INCLUDING AFFORDABLE HOUSING STATEMENT, OPEN SPACE ASSESSMENT, AGRICULTURAL LAND CLASSIFICATION AND STATEMENT OF COMMUNITY INVOLVEMENT) March 2019
PDF processed with CutePDF evaluation edition www.CutePDF.com PLANNING STATEMENT ERECTION OF UP TO 80 DWELLINGS, WHITTINGHAM LANE,
REPORT CONTROL
Document Planning Statement
Project WHITTINGHAM LANE, GOOSNARGH
Client SETANTII DEVELOPMENTS LTD
Job Number 19-672
Z:\PWA Planning\Client files\19-639 to 19-900\19-672 Land at File storage Whittingham Lane, Goosnargh\3. Application
Document Checking
Primary Author: Rachael Leather Initialled: RL
Contributor: Daniel Hughes Initialled: DH
Reviewer: Louise Leyland Initialled: LL
Revision Status
Issue Date Status Checked for issue
1 01.03.2019 DRAFT
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CONTENTS
1 INTRODUCTION
2 SITE DESCRIPTION
3 PLANNING HISTORY
4 PROPOSED DEVELOPMENT
5 STATEMENT OF COMMUNITY INVOLVEMENT
6 TECHNICAL CONSIDERATIONS
7 PLANNING POLICY
8 MATERIAL CONSIDERATIONS
9 CONCLUSION
APPENDIX 1 HOUSING DELIVERY TEST NOTE
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/1 INTRODUCTION
1.1. PWA Planning is retained by Setantii Developments Ltd, to prepare a Planning Statement for up to 80no. dwellings and associated works (‘the proposed development’) at land at Whittingham Lane, Goosnargh, PR3 2AX (‘the site’). The purpose of this Planning Statement is to assess and conclude on the acceptability of the proposals in terms of relevant national and local planning policy, together with any material considerations.
1.2. The application is made to Preston City Council as an outline planning application with all maters reserved save for access and relates to the red edge application site boundary defined by the Location Plan.
1.3. This Planning Statement, alongside a review of the site history and relevant policies at both local and national level, provides a description of the proposed development together with an appraisal of the planning merits of the scheme.
1.4. This statement should be read in conjunction with the following documents:
• Completed Planning Application Form and Ownership Certificates • Ecological Assessment • Phase 1 Ground Contamination Assessment • Planning Drawings (S123-01_Indicative Masterplan, Location Plan) • Design and Access Statement • Transport Statement • Tree Survey • UU Sewer Records Plan
1.5. The remainder of this statement is structured as follows:
• Section 2 – Site Description; • Section 3 – Planning History;
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• Section 4 – Proposed Development; • Section 5 – Statement of Community Involvement; • Section 6 – Technical Considerations; • Section 7 – Planning Policy Assessment; • Section 8 – Material Considerations; • Section 9 – Conclusions.
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/2 SITE DESCRIPTION
2.1. The application site, which extends to approximately 3ha in size, is located to the south of Whittingham Lane, at the southern edge of Goosnargh. The site is currently agricultural land. A Location Plan showing the site within its immediate setting is submitted with this application, whilst an aerial image of the site within its wider setting is illustrated in Figure 1.
Figure 1: Site Location in wider surrounding area (Google earth, not to scale)
2.2. The site adjoins the existing settlement boundary of Goosnargh, with urban development to the north and granted consent for residential developments to the west and the east. In planning terms, the site is located in the Open Countryside (Policy EN1) and an Area of Separation (Policy EN4). The former Whittingham Hospital site is
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located to the east of the site and is currently being developed by housing developer Taylor Wimpey. The site adjoining the western boundary of the site has an extant permission for up to 65 no. dwellings (planning ref. 06/2018/0811).
2.3. There are no existing buildings on the site. Existing trees and hedges which form the boundary, in part, to the east and west vary in size and quality. There are no tree protection orders associated with the site. The southern boundary of the site is currently agricultural land with no distinguishing feature other than lying in parallel with the adjacent field boundary and the extent of approved development associated with planning ref. 06/2018/0811.
2.4. Whittingham Lane lies to the north of the site. There are a number of listed buildings in the vicinity which include Whittingham Hall, The Grapes Inn and Bushells Arms which are Grade II and Bushells Hospital (known as Bushells House) and St Mary’s Church which are both Grade II*. Whittingham Hall is located approximately 250m to the south east.
2.5. Houses served by Whittingham Lane back onto the northern boundary. There are local convenience stores which are located to the north east and include a pharmacy, village store, hair dressers, fish and chip takeaway, post office and Londis local store. The Stags Head pub is located a short distance away on the opposite side of Whittingham Lane. An existing pedestrian access connects the site with Whittingham Lane (FP 6-9- FP-18).
2.6. There is also a village hall, playground and playing field located within walking distance to the north. The nearby properties are of varying ages and architectural styles. The older dwellings have stone facades with slate roofs, others are of brick or render with slate or tile roofs.
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2.7. There are public views across the site from the PROW which bounds the east of the site. The PROW connects Whittingham Lane with Whittingham Hall and connects with the wider footpath network.
2.8. Public views outside the site are mainly confined to glimpses through gaps between buildings on Whittingham Lane. There are private views across the site from rear gardens and rear windows of properties which border the site.
2.9. The site is also located close to the existing bus services that operate along Whittingham Lane and the National Cycle Network Route 6 located on Mill Lane.
2.10. Goosnargh has excellent transport links with the wider region. Junction 1 of the M55 and Junction 32 of the M6 are located approximately 5.3km to the west. Royal Preston Hospital is located approximately 6.3km to the south west. Preston Bus Station is located approximately 10km away. Preston has a railway station which is approximately 10km away and has daily services to London and Edinburgh.
2.11. The site is not subject to any statutory ecological designations, heritage assets or protected species. The site is not within an area at risk of flooding as defined by the Environment Agency.
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/3 PLANNING HISTORY
3.1. A search of Preston City Council’s planning register has been carried out in order to understand the site’s planning history. The search of the planning register has found no previous planning application associated with this site, however there are numerous applications in the surrounding area which are relevant. The following applications are noted:
• Ref. 06/2011/0416. Erection of 650 dwellings, B1 office/light industrial buildings (9000sqm) and community/sports building; formation of sports pitches for football, cricket and tennis, and bowling green, recreational and play facilities, multi-use games area (MUGA); and associated infrastructure and landscaping works, including the temporary treatment of land for future primary school, following the demolition of existing site buildings, excluding five villas and cricket pavilion (Reserved Matters application). This application lies to the east of the site and comprises of a redevelopment of land on the former Whittingham Hospital. Approved. 16th August 2011.
• Ref. 06/2013/0779. Redevelopment of site to provide up to 650 (Class C3) residential dwellings, up to 9000 sqm (Class B1) office/light industrial use, primary school, senior playing pitch, tennis court, relocation of bowling green, recreational and play facilities, new access to Whittingham Lane and alterations to existing access to Cumeragh Lane, open space, landscaping and associated infrastructure (including retention of existing cricket pitch and pavilion) (outline application) (application for extension of time limit to previously approved planning application 06/2007/0946). This application lies to the east of the site and comprises of a redevelopment of land on the former Whittingham Hospital. Approved. 25th June 2014.
• Ref. 06/2018/0568. Screening opinion under Regulation 5 of the Town and Country Planning (Environmental Impact Assessment) Regulations 2017 in respect of redevelopment of the former Whittingham Hospital site for mixed
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use development consisting of 750no. dwellings, sports club, primary school and associated highway and drainage infrastructure. This application lies to the east site and comprises of a redevelopment of land on the former Whittingham Hospital. EIA not required. 11th July 2018.
• Application ref. 06/2018/0811 - Outline planning application for up to 65no. dwellings (access applied for only) – at Goosnargh Cottage and land to the rear of Chingle Hall Cottage, 780-818 Whittingham Lane and Goosnargh Cottage, 826 Whittingham Lane. Approved subject to S106 agreement at planning committee 6th December 2018.
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/4 PROPOSED DEVELOPMENT
4.1. The application proposes to develop land to the south of Whittingham Lane, Goosnargh for up to 80no. residential dwellings, including the provision of 35% affordable units and utilises the access point as approved under application ref. 06/2018/0811, which offers a safe, convenient access route with good visibility splays. An Indicative Masterplan is provided on Drawing Ref. S123-01.
4.2. The application is submitted in outline with access applied for in full, saving all other matters for subsequent approval. Details of the access arrangements applied for in full are included in the Transport Statement. It is proposed that the existing access on the eastern boundary of the site (accessed via single track road to the Whittingham Club), will be utilised for emergency vehicle access only, but will allow pedestrian access to and from the site, off public footpath (FP 6-9-FP-18).
4.3. On site car and cycle parking will be provided in accordance with the relevant parking standards and guidance. The exact number and location of parking spaces will be dealt with at the appropriate reserved matters application stage.
4.4. The proposed dwellings will be built in materials and in an architectural style which is in keeping with the local vernacular. The indicative layout shows the properties laid out in individual plots accessed from a new internal circular route, with a cul-de-sac arrangement to the east of the site. Individual plots will have private or communal front and rear gardens with appropriate landscaping. Existing vegetation will be substantially retained and enhanced with additional green infrastructure.
4.5. The Indicative Masterplan also includes areas of open space within the proposed development, located within the central part of the application site. As part of the development, it is proposed that a section of the site, to the north west, will be gifted as a car park to the Trinity Methodist Church, located off Whittingham Lane. This car park will be accessed via the existing access to the church off Whittingham Lane.
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4.6. Though landscaping is a reserved matter, it is anticipated that a robust landscape scheme would be proposed which aims to ensure the development has themes which accord with the local setting. A new ecological strip would be introduced on the southern perimeter of the site. New planting would consist of trees, hedges, shrub planting, climbers, bulbs and wild-flower.
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/5 STATEMENT OF COMMUNITY INVOLVEMENT (SCI)
5.1. Preston City Council adopted its ‘Statement of Community Involvement’ on 12th April 2006. Section 6.4 sets out when developers need to undertake community consultation and the appropriate forms of consultation, it states:
‘Although it is not mandatory the Council believes that engagement by the applicant with the community prior to submission of a formal application can be advantageous to all parties involved. In the case of all significant planning applications the City Council encourages applicants to:
• Discuss their proposals with planning officers prior to formal submission.
• Carry out community consultation prior to formal submission.
Methods of community consultation will vary depending on the type and scale of development, but will include informing occupiers of nearby properties, Parish Councils where applicable, and amenity and community groups.
On smaller scale developments, applicants are advised to discuss proposals with their immediate neighbours prior to submission.
Pre-application discussions improve the quality of applications, allow decisions to be made more quickly and provide more certainty for applicants. Pre-application publicity helps applicants to gauge community opinion at an early stage enabling them to make changes prior to submission.’
5.2. Whilst no public consultation has been undertaken with the local community, informal pre-application discussions have taken place with relevant stakeholders where necessary to shape the supporting assessments for the planning submission.
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/6 TECHNICAL CONSIDERATIONS
6.1. The planning application submitted is supported by a number of technical reports which demonstrate that the proposed development may be implemented without significant adverse impacts arising from site constraints. These are summarised below:
Agricultural Land Classification
6.2. The land comprises a field of open pasture land, devoid of any existing built development and covers an area of 3ha. As set out within NPPF Paragraph 170, “Planning policies and decisions should contribute to and enhance the natural and local environment by:
‘recognising the intrinsic character and beauty of the countryside, and the wider benefits from natural capital and ecosystem services – including the economic and other benefits of the best and most versatile agricultural land, and of trees and woodland’
6.3. The NPPF defines the best and most versatile agricultural land to be “land in grades 1, 2 and 3a of the Agricultural Land Classification.” Policy 31 within the Central Lancashire Core Strategy aims to “protect the best and most versatile agricultural land (Grades 1, 2 and 3a) that occurs in the west of Central Lancashire when considering both agricultural and other forms of development to avoid irreversible damage to, and instead achieve the full potential, of the soil.”
6.4. According to the Agricultural Land Classification Map (ALC002), the application site is classed as Grade 3. Grade 3 is separated by two subgrades, from good (3a) to moderate (3b) quality agricultural land. This map provides a generalised pattern of land classification grades and does not show a subdivision of Grade 3, which are mapped by detailed survey work.
6.5. Although it is considered that the site lies on Grade 3 agricultural land, the majority of land within the site’s surrounding area falls within this category and therefore the loss
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of approximately 3ha piece of this land will not be significant. As highlighted by Core Strategy Policy 31, within Central Lancashire the highest quality agricultural land lies to the west of the region, which is predominantly in the north-west Preston area and not associated with the application site. The proposed development would not see the loss of any Grade 1 or Grade 2 agricultural land, which would be land of the best and most versatile quality.
Affordable Housing Statement
6.6. Policy 7 of the Central Lancashire Core Strategy, Affordable and Special Needs: outlines the requirement for development to deliver affordable homes within residential developments. The policy states that within rural areas there is a contribution requirement of 35%.
6.7. Whilst the exact details of the location, type and tenure of the affordable provision have yet to be determined, the need to meet the requirement is accepted. As a result, the residential element of the proposals will include for the delivery of affordable units (35% of the total number of units), though this is requested to be controlled by a suitably worded planning condition or provision within a S106.
Ecological Assessment
6.8. The assessment confirms that the site does not form part of any statutory or non- statutory designated site for nature conservation; furthermore, no statutory or non- statutory designated sites were identified within at least 1km of the Site. A Phase 1 Ecological Survey was undertaken, and where necessary protected species surveys.
6.9. Mitigation is recommended within the assessment where appropriate, however, in short, the habitats on site provide some suitable nesting habitat and may support breeding birds typical of semi-rural areas in the region, including some of local conservation concern. A habitat corridor is proposed as part of the development and will serve to
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provide a benefit for local biodiversity. Enhancement measures include the creation of a more diverse grassland and the planting of native hedgerow and trees.
Phase 1 Land Contamination Assessment
6.10. Based on the findings of the assessment a number of potential risks associated with contamination have been identified with respect to the proposed change of use to residential. Potential risks have been identified to human health, flora and property (including services) and site investigation is required to determine shallow ground conditions and quantify the potential risks identified. It is assumed that these requirements will form a planning condition on any approval.
Open Space Assessment
6.11. The Proposed Development will deliver on-site public open space. The development area at present contains a PROW and other links to the surrounding locations. As part of the proposals, these routes are to be maintained.
6.12. It is considered the above should meet the Council’s open space requirements, however, the matter can be discussed during the planning process and secured, like affordable housing, through a suitably worded planning condition or S106 agreement.
Transport Statement
6.13. The statement assesses the traffic and transport aspects of the proposed residential development. The following conclusions can be drawn with regard to the proposed development:
• The application site is accessible by non-car travel modes, such as walking and cycling.
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• The existing pedestrian infrastructure located in the vicinity of the site will enable safe pedestrian movement between the development site and a range of local services located within Goosnargh. • The site is also accessible by public transport with bus stops within easy walking distance of the site, offering direct services to a range of destinations including Preston and Fulwood. • Opportunities also exist for residents to travel by rail with Preston station being accessible via a 44-minute bus and 11-minute pedestrian journey providing services to destinations such as London, Birmingham, Scotland, Manchester, Liverpool, Blackpool, Leeds and across the northwest region. • The site can be accessed in a safe and efficient manner off Whittingham Lane and the access point has been designed in accordance with current design guidelines. It has been deemed acceptable in principle for planning purposes by the highways officer at LCC. • The impact of the proposals has been assessed using the TRICS database and the assessment undertaken has included consideration of the development taking account of the cumulative impact in relation to other developments in the area. • The assessment has shown that the proposals will have a minimal impact in terms of increasing traffic at the key junctions in the area and so it can be concluded that the proposed development would be able to be accommodated onto the local highway network, without giving rise to any highway capacity issues. • There is no evidence to suggest that the proposals would have an adverse effect on road safety or the number of accidents in the vicinity.
6.14. In conclusion, the proposals will provide a sustainable development in transport terms and planning permission should be granted in accordance with the National Planning Policy Framework.
Tree Survey Report
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6.15. The tree survey confirms that the majority of trees on Site are broadleaved except for one yew Taxus baccata tree. Thirty-one of the trees are ‘Category C’ (trees of low quality) and six of the trees are ‘Category B’ (trees of moderate quality). All the groups and hedges are recorded as ‘Category C’. There are no Category ‘A’ trees present.
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/7 PLANNING POLICY ASSESSMENT
7.1. Section 38(6) of the Planning and Compulsory Purchase Act 2004 requires planning applications to be determined in accordance with the Development Plan, unless material considerations indicate otherwise.
7.2. The Development Plan for the application comprises of the Central Lancashire Core Strategy (2012) and the Preston Local Plan 2012-2026 (2015). Key policy documents that comprise ‘material considerations’ include the National Planning Policy Framework (NPPF) and any local supplementary planning guidance documents considered relevant to the proposal.
Development Plan
Central Lancashire Core Strategy
7.3. The Central Lancashire Core Strategy was jointly prepared by Preston City Council, South Ribble Borough Council and Chorley Borough Council, to set out the development strategy for the three districts for the period of 2006 and 2026. The Central Lancashire Core Strategy was adopted in July 2012 and can broadly be regarded as containing relevant and up to date policies in the consideration of this application. The relevant policies of the Core Strategy are considered below.
7.4. Policy MP states that:
“When considering development proposals, the Council will take a positive approach that reflects the presumption in favour of sustainable development contained in the Framework. The Council will always work proactively with applicants jointly to find solutions which mean that proposals can be approved wherever possible, and to secure development that improves the economic, social and environmental conditions in the area.
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Planning applications that accord with the polices in this Local Plan (and where relevant, policies in the neighbourhood plans) will be approved without delay, unless material considerations indicate otherwise”.
7.5. The application proposals are considered to be sustainable in the context of the above policy in that the proposal comprises sustainable development, in the context of Paragraph 11 of the NPPF. The submission documents demonstrate that there are no technical nor policy impacts which could be considered significant.
7.5. Policy 1 Locating Growth sets a hierarchy to development sites across the plan’s area. Point (f) of this policy states that outside of these areas, development within smaller villages will be accepted where it is small scale and limited to infilling, conversions, or to meet local needs, unless there are exceptional reasons for larger scale redevelopment schemes.
7.6. The application site is considered to represent an appropriate location for development, focused adjacent to the existing settlement boundary of Goosnargh. It is well located to the existing settlement on the western, eastern and northern boundaries, and occupies a plot of land which will assist in rounding off development within the village. It is located within the Area of Separation (Policy EN4), which has a fundamental purpose of retaining distinct settlements, it is considered that the proposed development would not compromise the function of the gap between the villages of Goosnargh, Whittingham and Grimsargh. The development is also well related to the settlement of Whittingham and the Taylor Wimpey development involving the redevelopment of the Former Whittingham Hospital. It is therefore considered that the proposal is compliant with Policy EN4 and would not unacceptably erode the area of separation.
7.7. Although the site lies within the open countryside where Policy 1f is relevant, as demonstrated, the nature of the site with existing and consented residential development within its vicinity, has a clear relationship with Goosnargh and can be considered appropriate. Furthermore, should the Council be minded to consider a
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conflict with this policy, there are clear material considerations given Preston City Council’s lack of 5 year housing supply which renders the policy out of date through the engagement of Paragraph 11 of the NPPF, which weighs heavily in the scheme’s favour.
7.8. Policy 3 looks to outline the best approach in order to facilitate a general improvement in travel options and quality of services. In terms of how applicable it is to the proposal, it is worth noting the development would not be of detriment to any form of transport or cause any negative impact on the highway network. Furthermore, the application is accompanied by a Transport Statement which covers these considerations in more detail. Additionally, the scheme provides the added benefit of community parking for the local church.
7.9. Policy 4 Housing Delivery focuses on providing for and managing the delivery of new housing to ensure that where necessary new sites for housing are put forward. Within Preston, there is a minimum requirement for 507 dwellings to be delivered per year. This is a minimum required, not a ceiling to development.
7.10. Although the NPPF sets out a standardised methodology for calculating housing land supply which has the potential to reduce the Council’s annualised housing requirement which could have ramifications for the Council’s housing land supply issues, further guidance published in the ‘Housing Delivery Test Measurement Rule Book’ states that any new housing requirements will be used for the calculation of the Housing Delivery Test from the date that it becomes part of the development plan. As such, any reduced requirement would not come into effect until it forms part of an adopted development plan. Further analysis of the Housing Delivery Test and its implications on Preston’s housing land supply at this time is set out in the accompanying note provided as Appendix 1. In summary, it is concluded that Preston’s housing land supply position remains well below the 5 year requirement.
7.11. As detailed in Policy 5 Housing Density, it is important that housing sites are in keeping with the local area in terms of densities, and do not detract from the amenity, character,
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appearance, distinctiveness and environmental quality of an area. Consideration will also be given to making efficient use of land.
7.12. The proposed development aims to ensure that there is sufficient amenity space created for future residents of the site and that the amenity of existing residents within the site's vicinity are not compromised. There is sufficient space to accommodate the proposed dwellings on the land. It should also be noted that open space is to be provided by the development. This will include amenity space and areas of ecological green corridor located on the southern boundary of the site.
7.13. Policy 6 seeks to improve the quality of housing in the area, in part by facilitating the greater provision of accessible housing and neighbourhoods and the use of higher standards of construction. The proposed development would result in the creation of high quality housing, which may include an element of life-time homes facilities in line with this policy.
7.14. Policy 7 deals with affordable housing and seeks to ensure 35% on-site affordable housing provision in rural areas on sites in or adjoining villages. The proposal provides for 35% affordable homes.
7.15. Core Strategy Policy 14 (Education) and Policy 23 (Health) detail the desire to work with existing education and health authorities to ensure adequate facilities in locations accessible to the local population. In situations where new development would create a shortfall in provision, it is expected that developer contributions, either through Community Infrastructure Levy (where identified) or through planning obligations will be the appropriate mechanism to provide support. It is acknowledged that such contributions may be necessary in relation to this development and that such contributions will be negotiated during the determination period of the application so as to ensure compliance with these policies.
7.16. Policy 17 (Design of New Buildings) is similar to that of Policy EN9 of the Local Plan. It outlines that consideration will be given to a detailed list of criteria that includes siting,
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amenity impact, existing features and build quality. As noted when addressing Policy EN9, the proposals as submitted are thought to represent a development of appropriate scale and of a character fitting for the area which contributes towards local distinctiveness. In doing so the application represents development that integrates well into the existing settlement and surrounding development, ensuring the proposal is also in line with Policy 21 (Landscape Character Areas).
7.17. Core Strategy Policy 18 ‘Green Infrastructure’ seeks to manage and improve environmental resources through a Green Infrastructure approach to:
• Protect and enhance the natural environment; • Invest in and improve the natural environment, particularly the river valley networks, canal networks and where it contributes to the creation of green wedges and the utilisation of other green open spaces that can provide natural extensions into the countryside. • Secure mitigation and/or compensatory measures where development would lead to the loss of, or damage to, part of the Green Infrastructure network.
7.18. The proposed development will deliver internal green infrastructure. The development area at present contains a PROW on the eastern boundary of the site. As part of the proposals, the route will be maintained, the provision of additional informal footpaths will also be investigated.
7.19. Policy 22 Biodiversity and Geodiversity seeks to reduce disturbance and facilitate the survival of protected species, ecological networks and enhance the biodiversity value of the region. The application site currently offers limited protected species habitat, as stated within the accompanying Ecological Assessment. Consequently, it has been concluded the proposal would not represent development of an ecologically sensitive site and is thus acceptable in the context of this policy and against policies EN10 and EN11 of the Preston City Council Local Plan.
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7.20. Core Strategy Policy 25 (Community Facilities) aims to ensure access to an appropriate range of community facilities, both for existing residents / occupiers as well as those from new developments. The proposed gifted car park located to the rear of the Trinity Methodist Church will provide benefits to the local community. The increase of green infrastructure available to the public will be a community benefit.
7.21. Policy 27: Sustainable Resources and New Development, seeks that all new dwellings meet Level 4 of the former Code for Sustainable Homes. However, the Government has now published a statement of intention in this respect, and in accordance with this, it is our understanding the Council no longer requires new development to comply with the codes. In this respect there is no conflict with the policy. However, it is still the intention to deliver a highly sustainable development, both in location and construction.
7.22. Policy 29: Water Management seeks to improve water quality and water management and reduce the risk of flooding. The application is supported by Utilities Records. The site has capacity to accommodate the proposal, but also that there are suitable technical solutions for the site to drain. It is as such considered that the development can be found compliant with Policy 29.
Preston Local Plan 2012-2026
7.23. The Local Plan Policies Map identifies the site as within the open countryside, where the provisions of Local Plan Policy EN1 apply. An extract from the Preston Local Plan Policies map can be seen below in Figure 2.
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Figure 2: Preston Local Plan
7.24. Policy V1 Model Policy: echoes the NPPF and its promotion of sustainable development. The policy reads similar to that of Paragraph 11 of the NPPF, outlining that should applications accord with a Development Plan or indeed if said plan is out of date that applications should be approved without delay unless material concerns dictate otherwise. Therefore, significant consideration has been given to ensuring the application adheres to the policies set out in the Development Plan and furthermore outline the key benefits of the proposal when considered against this policy.
7.25. Policy AD1 (b) refers to development within existing villages. The proposed development is located within an area designated as Open Countryside. Despite this designation, it is considered that Policy AD1 (b) is relevant due to the site’s relationship with the settlement of Goosnargh as the site abuts the settlement boundary on one side, with granted consent on a further two sides, to the west and east. The site lies within
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close proximity to the village centre and is considered to have a clear and functional relationship with the settlement. This is further emphasised given to the site’s relationship to the redevelopment of the former Whittingham Hospital site.
7.26. AD1 (b) outlines that development in such locations will be permitted providing it meets the criteria detailed within the previous Policy AD1 (a), which are as follows:
a) “the design and scale of development is sensitive to, and in keeping with, the character and appearance of the area;
b) there would be no adverse impact on residential amenity, particularly by reason of noise, general disturbance and loss of privacy due to the activity under consideration or the vehicular/pedestrian movement it generates;
c) the proposal would not lead to an over concentration of non-residential uses, detrimental to residential character and amenity, and;
d) the proposal would not lead to an over intensification of use of the site.”
7.27. If the Council are to accept that this policy is relevant, it is considered that there would not be any conflict. As shown on the indicative plan, the layout of the dwellings has been carefully considered to not cause an adverse impact on residential amenity, due to the proposed orientation of the houses and landscaping. The submission as discussed is also supported by a suite of supporting information and surveys. These documents clearly illustrate that the proposed development can achieve compliance with the above policy and will particularly complement and enhance the wider area, whilst minimising any adverse impacts on residential amenity. It remains the intention of the applicant to ensure that future reserved matters submissions also achieve these aspirations. Indeed, this policy and other associated policies, will work alongside other planning regulations to ensure that the final schemes do in fact deliver the benefits. It is considered that the proposed development would be consistent with Policy AD1(a).
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7.28. Policy HS1 Allocation of Housing Sites: outlines sites allocated for housing development that are thought to be deliverable during the plan period. Policy HS1 identifies sites in an effort to meet the housing land requirements set out in the Core Strategy. As has been previously indicated, the Core Strategy confirms that the housing requirement (annualised) should be treated as a minimum. In this context, the grant of planning permission for a scheme of up to 80 dwellings, will help to positively bolster the housing supply position within Preston and ensure that the Authority is better able to meet its housing needs. As such no conflict arises with this policy as a result of the proposed development. Furthermore, as previously stated, and discussed further below, the Council cannot currently demonstrate a 5-year housing land supply and therefore the presumption in favour of sustainable development set out in Paragraph 11 of the NPPF is engaged.
7.29. Policy HS3 Green Infrastructure in New Housing Developments: indicates that new housing developments should contribute to green infrastructure provision. The policy sets out a ‘provision standard’. As noted, the development makes provision of green infrastructure through the public open space and ecological buffer along the southern boundary, ensuring compliance with the policy.
7.30. Policy ST1 Parking Standards: outlines that development proposals will be subject to the parking standards outlined within the plan’s appendices. The proposal at hand is submitted in outline form and as such matters relating to the above are not detailed as part of this application. However, as noted throughout this statement the indicative plan represents a considered and well-developed layout. Any reserved matters applications will of course allow for adequate parking provision in line with the above standards.
7.31. Policy ST2 requires that all development proposals show that road safety and the efficient and convenient movement of all highways users is not prejudiced, that appropriate provision is made for public transport services, access on cycle or foot and that, where practicable, existing pedestrian, cycle and equestrian routes are protected and extended. These are similar themes to those set out in Core Strategy Policy 3.
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7.32. The proposed development would be accessed directly off Mill Lane, which would provide a safe and convenient point of ingress and egress from the site. This has been supported by a Transport Statement which has been submitted with this application.
7.33. The site is accessible by local road links, being close to the M6 and M55 motorways, and is also within 100m of bus stops along Whittingham Lane to the south which offer regular bus services between Preston and Longridge. The proposed development is located to allow future residents choice over which modes of transport they use and allows for a range of pedestrian links to such modes of transports and other facilities within the village.
7.34. Policy EN1 aims to protect the designated open countryside and limits development to that needed for the purposes of agriculture or forestry or other appropriate rural uses, the re-use or re-habitation of existing buildings and to infilling within groups of buildings in smaller rural settlements.
7.35. The application site directly adjoins the settlement boundary with Goosnargh. Given its location, it is not considered that it would not cause harm to the effectiveness of the gap between the settlements and it would not lead to a risk of the settlements of Whittingham and Goosnargh merging. Furthermore, it has a strong relationship to the former Whittingham Hospital, and will assist in rounding off the settlement of Goosnargh in a comprehensive manner. The Indicative Masterplan demonstrates the functional link with the village, and also demonstrates the integration of the site to the village. It is not considered that the identity and distinctiveness of the settlement would be unacceptably compromised. Therefore, there is no conflict in this instance with this policy, or Core Strategy Policy 19. Should it be considered that a conflict exists, given the absence of a 5 year housing land supply, the presumption in favour of sustainable development is engaged, and Policy EN1 can be considered out of date.
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7.36. Policy EN4 Area of Separation states that weight should be given to any potential impacts on the effectiveness of the gap between settlements, to ensure settlements retain their identity and are distinct from each other.
7.37. This policy has a fundamental purpose of retaining distinct settlements. It is considered that the proposed development would not compromise the function of the gap between the villages of Goosnargh, Whittingham and Grimsargh.
7.38. Policy EN9 points towards the Central Lancashire Design Guide SPD as the leading document regarding appropriate design principles. The application is submitted in outline and therefore the details of the design are yet to be established on the site. It is however the intention that the proposals would result in a high quality residential development as set out in the Design and Access Statement and the final design will be aided by the SPD.
7.39. Policies EN10 and EN11 look to conserve and enhance designated sites of ecological interest, protected species and the habitats of protected species. An ecological assessment of the site has been undertaken which found that with appropriate mitigation measures the development can be implemented without negative ecological impact of any significance. It is anticipated that mitigation and appropriate precaution measures will form conditional requirements of any planning permission granted.
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/8 MATERIAL CONSIDERATIONS
National Planning Policy Framework
8.1. The NPPF is a material consideration in planning decisions as per Paragraph 2 of the Framework and Section 38(6) of the Planning and Compulsory Purchase Act 2004.
8.2. The NPPF sets out Government planning policies for England and how these are expected to be applied. The golden thread running throughout the NPPF is the Government’s presumption in favour of sustainable development (Paragraph 11) whereby developments which correctly balance the requirements of economic, social and environmental issues should be granted planning permission unless there are strong reasons that permission should not be granted. The NPPF also strongly supports economic and housing development.
8.3. Sustainable development is broadly defined in Paragraph 8 of the Framework as having three overarching objectives:
a) an economic objective – to help build a strong, responsive and competitive economy, by ensuring that sufficient land of the right types is available in the right places and at the right time to support growth, innovation and improved productivity; and by identifying and coordinating the provision of infrastructure;
b) a social objective – to support strong, vibrant and healthy communities, by ensuring that a sufficient number and range of homes can be provided to meet the needs of present and future generations; and by fostering a well-designed and safe built environment, with accessible services and open spaces that reflect current and future needs and support communities’ health, social and cultural well-being; and
c) an environmental objective – to contribute to protecting and enhancing our natural, built and historic environment; including making effective use of land, helping to improve biodiversity, using natural resources prudently, minimising waste and
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pollution, and mitigating and adapting to climate change, including moving to a low carbon economy.
8.4. In terms of the economic benefits of the proposal, the development would make a positive contribution to housing land supply in the Preston City Council region and the settlement of Goosnargh. There would be a significant economic boost locally through the development of up to 80 new homes and the scheme would also support existing businesses and suppliers in the area during construction, contributing to the local economy.
8.5. In terms of the social objective, the development would provide new homes and would contribute to general market availability, providing high quality new dwellings and add to the range of homes within the area. There would be a resulting boost to the housing supply within the area and this would be provided within a location which is suitable to support residential development. The site will deliver approximately 35% affordable dwellings, which is considered to be a significant benefit of the proposal and make a key contribution to Preston’s affordable housing supply over the next few years. Furthermore, the application site on the edge of Goosnargh is considered to be a sustainable location for this type of development, with local services within walking distance from the site and with strong links to public transport. This is enhanced further through the provision of additional pedestrian links from the site to these services, but also the links from the community to the site that will provide open space opportunities, but also parking facilities for existing residents of the village associated with the Methodist Church.
8.6. The site itself is not considered to be of ecological significance, with no statutory ecological designations or protected species on the site. The vacant land would be redeveloped for an appropriate use which is complementary to the surrounding environment. Therefore, the environmental aspect of sustainability is met through this proposed development.
8.7. The NPPF has a strong focus on increasing the supply of new housing and Section 5 promotes the Government’s objective to significantly boost the supply of new homes.
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The proposed development for up to 80 (35% affordable) new residential units will make a positive contribution to Preston's housing supply, which is of particular importance given that the Council cannot currently demonstrate a 5-year supply of housing, with a figure of only 3.24 years within the 2018 Housing Land Position Statement. As NPPF Paragraph 73 identifies, local planning authorities should identify a minimum of five years' worth of housing against their adopted housing requirement. Paragraph 11 states that relevant policies for the supply of housing should not be considered up-to-date if the LPA cannot demonstrate a five-year supply of deliverable housing sites. Therefore, applications for housing development should be looked upon favourably and in the context of sustainable development.
8.8. Although the 2018 Framework sets out a standardised methodology for calculating housing land supply which has the potential to reduce the Council’s annualised housing requirement and therefore could have ramifications for the Council’s housing land supply issues, the standardised methodology is only applicable by default whereby a Local Authority does not have an up to date Development Plan (over 5 years old). Whilst the Core Strategy was adopted over 5 years ago, it is understood that in September 2017 Preston City Council entered into a formal memorandum of understanding with Chorley Borough Council and South Ribble Borough Council to agree to retain the distribution of the housing requirement as set out within the existing Central Lancashire Core Strategy. Meaning the annual housing requirement of 507 homes within Preston remained the relevant figure. By entering into the memorandum, the Council in effect have extended the life of the Core Strategy by a further 5 years. As such, any reduced requirement would now likely not come into effect until the Development Plan is formally updated, likely as part of a new Local Plan.
8.9. Paragraph 11 of the NPPF is clear that where policies which are most important for determining the application are out of date, which includes where a local planning authority cannot demonstrate a 5 year housing land supply, the tilted balance is engaged whereby planning permission should be granted unless any adverse impacts in doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in the Framework taken as a whole.
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8.10. Consequently, if a scheme is considered to deliver sustainable development and not have any adverse impacts that would significantly and demonstrably outweigh the benefits, guidance is clear that planning permission should be granted. It is considered that the proposal does comprise sustainable development in the context of Paragraph 11 and would not result in any adverse impacts in that respect. In particular:
The Site is: -
a) A large under-utilised area of land which functions as part of the settlement of Goosnargh; b) Within walking distance of a range of services and facilities; c) Well served by a regular and frequent bus services; d) Well located in relation to the strategic highway network with good vehicular accesses which can be further improved;
The Proposed Development will: -
e) Create accessible green infrastructure with mechanisms for future maintenance; f) Provide market and affordable housing to help meet need at a time where a 5 year housing land supply cannot be demonstrated by the Council; g) Provide community parking for existing facilities and residents within the village; h) Help to create significant local investment and employment opportunities; i) Be delivered without harm to neighbouring land uses, without adverse visual impact; and j) Provide sustainable development, consistent with the requirements of NPPF.
8.11. Paragraph 78 and 79 considers proposed new dwellings in the countryside and states that:
‘To promote sustainable development in rural areas, housing should be located where it will enhance or maintain the vitality of rural communities. Planning policies should
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identify opportunities for villages to grow and thrive, especially where this will support local services. Where there are groups of smaller settlements, development in one village may support services in a village nearby.
Planning policies and decisions should avoid the development of isolated homes in the countryside unless one or more of the following circumstances apply:
a) there is an essential need for a rural worker, including those taking majority control of a farm business, to live permanently at or near their place of work in the countryside; b) the development would represent the optimal viable use of a heritage asset or would be appropriate enabling development to secure the future of heritage assets; c) the development would re-use redundant or disused buildings and enhance its immediate setting; d) the development would involve the subdivision of an existing residential dwelling; or e) the design is of exceptional quality, in that it:
- is truly outstanding or innovative, reflecting the highest standards in architecture, and would help to raise standards of design more generally in rural areas; and - would significantly enhance its immediate setting and be sensitive to the defining characteristics of the local area.’
8.12. Matters relating to the rural economy remain pertinent given the site’s location in the open countryside adjacent to the Goosnargh settlement boundary. The revised Framework further qualifies such proposals in Paragraph 84 by outlining that:
‘Planning Polices and decisions should recognise that sites to meet local business and community needs in rural areas may have to be found adjacent to or beyond existing settlements and in locations not served well by public transport.’
8.13. This is particularly relevant to the application at hand given that the site has obvious and fundamental links to the settlement of Goosnargh but lies just outside the formal
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settlement boundary. Yet given it still represents a logical and low impact development plot it can be considered acceptable in the context of this provision and the community benefits associated with the proposal (parking, green infrastructure and significant increase in affordable dwellings).
8.14. The sentiment of National Policy in respect of development of the type proposed is for the main part reflected in Preston Local Plan Policy EN1, as well as Policy 1 of the Core Strategy. The development is as such considered consistent with Paragraph 79 of the NPPF.
8.15. Section 9 of the Framework, Promoting Sustainable Transport, at Paragraph 109 states that development should only be prevented or refused on transport grounds where the residual cumulative impacts of development are severe. It is clear that this is not the case with the proposal before the Council.
Conclusions
8.16. The proposed development would result in a valuable increase to the housing supply within the area through the development of up to 80 (35% affordable) new homes. The proposed scheme would be based on the southern settlement boundary of Goosnargh and borders the settlement boundary on one side and granted planning consent on a further two sides. The scheme would not result in isolated new homes within the countryside and furthermore, allows for the natural progression to the village on a site that has clear functional links to the village given the proximity of the main settlement, Whittingham and the redevelopment of the former Whittingham Hospital. Furthermore, these links can be maximised through the provision of additional pedestrian links which will fully integrate the site to the village and allow the existing community to take advantage of the provisions of the proposal.
8.17. In summary, the site’s location links well with Goosnargh and should be perceived as having a clear functional relationship with the settlement, where residential development
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is supported under Policy 1 and Policy AD1(a). This statement has also demonstrated that the proposals would not cause any detrimental impact on ecology, transport or other technical matters which would warrant the refusal of the application. It is therefore considered that the merits of the proposal are considered to significantly outweigh any perceived harm caused by the development.
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/9 CONCLUSIONS
9.1. PWA Planning is retained by Setantii Developments Ltd to progress an outline planning application on land off Whittingham Lane, Goosnargh for the development of up to 80no. dwellings (35% affordable) and associated works. The proposed development would contribute to Preston’s housing land supply at a time when the Council cannot demonstrate a five-year housing land supply as required by national planning policy.
9.2. The works would result in a number of key benefits which are deemed relevant to the determination of the application, namely: -
o The site provides a high-quality residential development, which abuts the settlement of Goosnargh on three sides;
o The site has clear functional links with the existing settlement;
o It would provide benefits to existing and proposed residents through improved pedestrian linkages from the site to the village that will allow access to facilities existing within the village, but also within the development in the form of community parking associated with the Trinity Methodist Church and green infrastructure;
o It will provide support for existing businesses and suppliers in the area during construction, contributing to the local economy; and
o The Council’s lack of five-year housing land supply adds further weight in favour of the scheme and tilts the balance towards sustainable development. The scheme would provide a valuable contribution to the supply of new homes within a sustainable location for such development.
9.3. This statement has demonstrated that the proposal is acceptable when considered alongside the Development Plan polices. The application represents acceptable
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development in the Open Countryside by virtue of its compliance with Policy 1 of the Core Strategy and Policies AD1(b) and EN1 of the Local Plan. The strategic development site which is positioned near to the application site further confirms the acceptability of the development in this location. This alongside the considered nature of the proposals infers it is permissible under Development Plan policy.
9.4. This Planning Statement has reviewed the scheme against relevant Development Plan policy as well as other relevant planning guidance, including the National Planning Policy Framework and identifies broad compliance with relevant policies. Additionally, in respect of Paragraph 11 of the NPPF the relevant policies for the supply of housing cannot be considered up-to-date. As such, should the Council be minded to consider that there is a conflict with Policy 1, AD1b and EN1, given the Council cannot demonstrate a 5-year housing land supply, planning permission should be granted unless any adverse impacts of doing so would significantly and demonstrably outweigh the benefits when assessed against the policies in the NPPF taken as a whole.
9.5. The scheme is supported by relevant supporting drawn and technical information which demonstrate that there would be no harmful impacts resulting from the proposed development and hence no reason that planning permission ought not to be granted. In addition, there are other material considerations which support the granting of planning permission and which should be afforded significant weight in the determination of the application.
9.6. For the reasons identified within this statement, it is considered that outline planning permission for the Proposed Development should be granted and the application is commended to the authority.
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APPENDIX 1: HOUSING DELIVERY TEST NOTE
Page / 39 Appendix 1
Additional Note: Housing Delivery Test and Housing Land Supply in Preston
Introduction The Housing Delivery Test (HDT) is an annual measurement of housing delivery in the area of relevant plan-making authorities. It is intended that guidance on the HTD results will be published annually in November by the Ministry for Housing, Communities and Local Government.
The first HDT results were due to be published in November 2018, although due to delays, were made available in February 2019. The planning policy consequences of not meeting the Housing Delivery Test are set out in the revised National Planning Policy Framework.
The purpose of this note is to analyse the first round of HDT results and consider the implications of these on the Housing Land Supply (HLS) position in Preston.
Housing Delivery Test Background The HDT compares the delivery of housing within each local planning authority over the past three years against the required amount – delivery of the full amount would result in a Test score of 100%.
Pass= 5% buffer used to calculate 5YHLS
Action Plan = Local Authority to set out plan to address reasons for shortfall
Figure 1: Application of results of HDT Appendix 1
The figures used in the HDT are different from the five-year supply calculation. The HDT uses the past 3 years’ delivery figures to derive a percentage which dictates the appropriate action to be taken, as per Figure 1.
Housing Delivery in Preston According to the HDT results from Preston, the following is applicable:
Number of Total Number of Total Housing Homes Homes Homes Homes Delivery Required Required Delivered Delivered Test Consequence 15- 16- 17- 15- 16- 17- 16 17 18 16 17 18 294 296 214 805 484 804 738 2,026 252% None
Figure 2: Housing Delivery in Preston
The above implies that Preston have met their required housing delivery target by 252%, meaning they fall within the ‘Pass’ category where a 5% buffer to calculate their HLS requirements is used.
To explain further:
Number of Homes Required This figure is based on a combination of household projections and local plan requirement figures (if plan is “up to date”).
For all authorities, the 2012 based household projections have been used for 15/16 and 16/17, whilst the 2014 based household projections were used for 17/18. These have been adjusted based on unmet need.
For each year, the lower figure of either the local plan requirement or household projections are used.
Preston’s housing delivery requirement in the Core Strategy is 507pa. However, the plan from which this figure is derived (the Central Lancashire Core Strategy 2012) is considered “out of date”, as it was published more than five years ago. Notwithstanding this, local plan requirements should still be used if they have been reviewed and do not need updating, which is the case in Preston since the Central Lancashire Memorandum of Understanding 2017 was adopted by the Council.
As Preston’s housing projections were lower than the requirement in the Core Strategy, the ‘Number of Homes Required’ figure is based on household projections.
Number of Homes Delivered The delivery numbers in Figure 2 above for Preston are based on National Statistics with adjustments for net student and net other communal accommodation. Whist these adjustments are acknowledged, it is noted that these figures show a much higher number of completions than those identified in Preston’s Housing Land Position Statements, although the reason for this is unclear.
Test Outcome Appendix 1
As Preston has ‘passed’ the housing Delivery test, they are able to use the lower 5% buffer when calculating their 5 year HLS.
Standard Methodology As per Paragraph 73 and footnote 37 in the 2019 NPPF, if strategic polices are less than five years old (or have been reviewed), the requirement within adopted policies is used to calculate the 5 year HLS. If strategic polices are “out of date”, local housing need is used for the basis of assessing the 5 year HLS, and LPAs should use the standard methodology set out in national planning guidance.
Given the Central Lancashire Memorandum of Understanding 2017, the 5 year HLS in Preston will continue to be calculated using the Core Strategy requirement of 507pa and not the standard methodology for assessing local housing need
5 Year Housing Land Supply in Preston Based on Preston’s most recent Housing Position Statement (Summer 2018), and using the Core Strategy housing requirement of 507 dwellings per year, the result of the HDT would not affect the position to such as extent that the Council is able to demonstrate a 5 year HLS:
20% 5% buffer buffer
5 year supply position 3.24 3.70
Figure 3: Preston 5 Year HLS Page / 40