Presence in New Housing Areas a Case Study from East Devon
Presence Papers 4
Presence in New Housing Areas A case study from East Devon
In 2004 the publication “Presence” described a vision for the future of the rural church
This is the 4 th of a number of occasional papers reflecting how the rural church is developing today Presence in New Housing Areas – East Devon Case Study
In 2008, we expect work to begin on the new community of Cranbrook in East Devon. The following case study traces the involvement of the churches in planning for Christian presence in the new development. History of proposals In order to be able to follow the planning history for Cranbrook, it is necessary to understand something of the planning systems under which it is being delivered. Prior to 2004, the planning system had up to three sub-national planning layers: regional (‘regional planning guidance’), county or unitary authorities (‘structure plan’) and district authorities (‘local plan’ – only for non-unitary areas). From 2004, new legislation was approved to remove the bulk of the middle tier, leaving regional (‘regional spatial strategy’) and district or unitary authorities (‘local development framework’). Local authorities who had reached a certain point in the plan making process could choose to press ahead under the old system and complete the existing process or stop and start again under the new process. East Devon District Council (EDDC) decided to proceed with its Local Plan and as a result, the first phase of the Cranbrook development (to 2011) has been prepared under the old planning system. Any subsequent phases will have to be delivered under the new planning system. Although this allowed planning for the new community to begin quickly, it has meant that those of us involved in the process have needed to become familiar with two sets of planning legislation. Those involved in any new housing development should be aware of the time that will have to be given to learning about the planning process.
The history of the planning process for Cranbrook is a long and relatively complicated one. Proposals for a greenfield mixed-use new community in East Devon that is well related to Exeter have been discussed in one form or another since the early 1990s. From about 1995 planning documentation started to reflect a clearer determination on the part of the planning authorities to proceed with the development. This was first expressed at county level in the Structure Plan (responding in turn to the broad framework set in the Regional Planning Guidance) and subsequently at district level through the Local Plan, albeit with some misgivings on the part of some Councillors.
The Structure Plan set the size of the East Devon New Community (as it was then officially referred to) at 3000 dwellings by 2016. It was not the function of the Structure Plan to identify a particular site for the development but to give a broad indication of where such a site should be located. Local Plans were required to take their lead from the Structure Plan. District Councils could go so far in opposing a strategic development allocation but, in the end, opposition could become highly counter-productive (with the control over the detail of the development process being removed from the District and placed in the hands of the Government). Initially EDDC opposed the new community in principle (backed by thousands of objections from East Devon residents) but ultimately it came to the pragmatic conclusion that it had to be included in the Local Plan. As the Local Plan proceeded through its various stages and public consultations and it became apparent not only that the development was more than likely to be approved but also that it would take place on a specific site, local opposition coalesced and intensified. Up until perhaps 2005 there was still talk in the existing local community of the development being halted altogether, even though the weight of the planning system was now clearly behind the process. The Local Plan was formally subject to a Local Public Inquiry in 2005 and adopted in 2006. It included provision of a 2,900 unit new community on greenfield land by 2011 and specified the site on which it would take place. The delivery of the community thereby formally became a matter of ‘when’ rather than ‘if’.
Response of the Churches The Methodist Superintendent of the Exeter Circuit initially called a gathering of local church leaders to consider the proposal for a major new housing development to the east of Exeter in 1999. Amongst those present, there was a clear will to work ecumenically.
As plans for the new community became more apparent, it was agreed that Churches Together in Devon would facilitate a Planning Group to prepare and plan for providing Christian ministry and worship in Cranbrook. This Group began to meet in 2002. The Group is serviced by the County Ecumenical Officer and was initially chaired by the Senior Regional Minister of the South West Baptist Association. It is now chaired by the District Chair of the Methodist Church. There is no doubt that it is advantageous to have a clear link with senior church leadership in the county. Each denomination was asked to appoint representatives to the Group, who were able to contribute to the process and who had a clear route to report to their denomination. In order to ensure there was a link with the independent churches we invited a representative from the local evangelical network. We recognise that new communities can have a profound effect on their local communities and so once it became clear where the settlement was to be located, local churches were also invited to be represented.
A Lead Denomination Recognising that an ecumenical working group cannot always respond quickly to the planning agenda, it was agreed to appoint a lead denomination who when necessary would act on behalf of all the partner denominations. It was agreed that this would be the Anglican Diocese of Exeter. The Diocese has liaised with the local authority and developer and has led on the appointment process of the resident minister. It is also leading on the establishment of a church school in Cranbrook. It is expected that as lead denomination, the Diocese of Exeter will take responsibility for arranging the appointment process and initial legal matters.
Shared Working It quickly became apparent that the level of work required to plan our involvement in Devon’s new communities required a dedicated officer. As well as Cranbrook, we had a similar development planned for the South Hams District and a number of other smaller new housing areas. The partner churches were asked if they could contribute to a short term project officer. Many of the partner denominations were willing to do so and Dr Ed Moffatt has been acting as New Communities Officer for Churches Together in Devon on a part-time basis for the last four years (although it should be noted that initially it was anticipated that a 2 year appointment would be sufficient). Again, those involved in preparing for Christian presence in new housing areas should be aware of the time and energy that will be absorbed by the planning process. Papers have to read, deadlines for consultation have to be met, meetings (sometimes called at short notice) have to be attended, briefs on what the churches require have to be researched and prepared. It is a big task and our experience has not been unique in quickly realising that for a time we needed a dedicated officer to work on this.
With the assistance of Ed Moffatt and Simon Taylor, Devon County Ecumenical Officer ,the churches have been represented on planning consultations and have discussed how we should plan to be present in Cranbrook. Our proposals are the result of shared decision-making and there is a real willingness to work together to establish vibrant Christian presence in the new development from the earliest opportunity.
Our Response In 2003 we received an invitation from EDDC to community organisations with an interest in the potential new community to join in a process of partnership working in order to help formulate both a vision and also concrete proposals for making the new community sustainable in environmental, economic and social terms. The Project Officer attended regular council-led Community Facilities Working Group meetings over the next 2-3 years, articulating what the churches could contribute to the sustainability of the new community and what facilities it would need to be provided with in order to carry out its work.
The ecumenical planning group arrived at the view that the following should be sought through the Section 106 Agreement for provision by the developer: o A dwelling to house a resident church worker o Access to and use of multi-use community buildings and related office space o A serviced site on which a place of worship could be built by the local church community at a future date
Additionally, through discussions between the Anglican Diocesan Board of Education and the Local Education Authority, it was agreed that one of the two primary schools to be provided in the new community should be a voluntary-aided church primary school. There is a clear aspiration for this school to have an ecumenical identity and for it to work in partnership with the church in Cranbrook. The requested facilities were finally agreed for inclusion in the Section 106 Agreement by a combination of the sustained partnership working with EDDC and repeated formal representation to local planning documentation as it was published for consultation. Since that agreement, contacts have been maintained with EDDC to try to ensure the appropriate delivery of the facilities. How will we establish a Christian presence in Cranbrook? The denominations partnering in the new community are expressing their commitment to sharing in this work in a Declaration of Intent. This states our general aims of establishing a worshipping, witnessing Christian presence and of working with others to develop community in the new development. The Declaration also states that we will look to establish a more formal ecumenical partnership within five years of the work beginning, although at present we do not know exactly what form it will take. This will depend on the nature of the new community and how our initial work develops.
One of the key ways in which we will establish this new work is through the appointment of a resident church minister. This post is being funded by the Church of England, the Methodist Church, the United Reformed Church and the Baptists for the first five years, after which funding will be reviewed. The Roman Catholics and Salvation Army are supportive of this approach, but unable to share in it, although it is hoped that they will be able to contribute in other ways.
It has been agreed that we will not appoint from each denomination in turn, but will seek the most appropriate person for the post from the member churches of Churches Together in Britain and Ireland.
In order to begin our work in Cranbrook as early as possible and to ensure that the resident minister is not working in isolation, we are creating a Local Ministry Team which will do preparatory work in the new community and then work alongside the resident minister. This will be drawn from the partner churches with an established presence in the area. This Ministry Team will share the burden of the work, help to create a positive relationship with existing local churches and ensure that the Christian presence in Cranbrook is true to the practices of the partner churches.
What will the congregation in Cranbrook look like? This subject has been the cause of much thought and discussion. We have engaged with the national scene regarding church planting in new housing areas and recognise that there in no one blueprint for beginning a church in a new community.
A key part of our strategy has been to allow the church in Cranbrook to emerge out of the context of the new community. We want to aspire to a worshipping congregation relevant and appropriate to where it is, whilst being vibrant and Jesus-centred. We are not proposing to impose a model of church on the new community in the hope that if it has worked elsewhere, it will work there. A major problem is that at present (and for some time) there is no community to listen to and engage with. We can only guess what their needs will be. For this reason, we are not asking for a church building now or in the near future. We are asking that a plot of land be reserved for a church building in a strategic location, so that should the community feel that a church building is needed there is a place for it to be built.
The emerging body of Christians should have a life which draws on the riches of the partner denominations and should express key aspects of the identity of the partner denominations. However, great trust will need to be placed in the resident worker, Local Ministry Team and local leaders as they establish the Christian presence in Cranbrook. To help them, Churches Together in Devon will draw up guiding principles for the Cranbrook church with the agreement of the partner denominations.
It is likely that there will need to be a diversity of approach in the work in the new community. Some will expect a more traditional form of church, whilst to reach people unfamiliar with church we may need to explore fresh expressions of church. The pattern of church life could well be a mixed economy of inherited church and fresh expressions. We note the present uncertainty within the Church about formal ecumenical partnerships and are open to exploring new ways of expressing our partnership.
The final size of Cranbrook is such that we hope that ultimately there will a number of congregations there. Initially, we will start with one, but it is to be hoped that as the community grows this congregation will have a role in starting others. Alternatively, congregations may be planted by other churches, but whatever the situation we would urge these churches to work in partnership with each other. It cannot be ignored that experience from some other new housing areas has shown that it cannot be assumed that a church plant will grow quickly; much prayer and hard work will be necessary.
Summary of Process Below we have summarised the process of engagement as we have and indeed still are experiencing it:
• Identify location and scale of new housing • Form planning group with appropriate representation • Engage with planning process (ongoing) • Define vision and strategy for Christian presence • Identify required facilities and resources • Negotiate developer contribution (Section 106) • Identify own funding for provision • Draw up declaration of intent/covenant, job description, mission plan, budget, appointment process, etc. • Implement • Oversee and encourage
It should be noted that some of these stages may be protracted and some will overlap. It is neither a neat nor straightforward process! However, it is a vital process as we are planning how people will see and hear of the love that God has shown for them in Christ Jesus.
What have we learnt We have had to learn much along the way and summarised below are some of the lessons we have learnt that we hope will be of help to others: n Learn the language of the process. n Assume no privileged position – not everyone involved will approve of churches being party to the discussions. n Be as professional as possible. n Be prepared for the long haul – be patient as there may be long delays in the process. n Be persistent and reliable - never miss a meeting or a submission deadline – you have no statutory position in the process and you can miss out through inaction. n Be clear and consistent about what you want and make sure you can justify it. n Be supportive to the council officers – the process is hard work and stressful for them and they need a friendly word from time to time. n Be creative and flexible in your thinking – expect the terms of the debate to change and be prepared to be light on your feet. n Prioritise good communication and a commitment to trust between partners. n Make sure that you have the right people in place on any planning group with clear lines to key decision makers. n Support the whole process in prayer.
Of course we are not yet there, wherever there may be! At the time of writing we still wait for the first diggers to move onto the site. However, we hope that the prayers we have offered, the plans we have drawn up and the relationships we have built will ensure a vibrant Christian community giving glory to God in this new town in East Devon.
John Carne, Chair Plymouth & Exeter Methodist District who is deeply indebted to Ed Moffatt New Communities Officer for Churches Together in Devon Simon Taylor: Devon County Ecumenical Officer for compiling this paper