MANOR PARK, BLOFIELD PLANNING STATEMENT
January 2011
CONTENTS
1.0 INTRO
2.0 BACKGROUND
3.0 EXECUTIVE SUMMARY
4.0 PLANNING HISTORY FOR SITE AND IMMEDIATE AREA SITE HISTORY
5.0 SITE DESCRIPTION AND CONTEXT
6.0 DESCRIPTION OF PROPOSALS
7.0 PLANNING POLICY
8.0 EVALUATION
9.0 CONCLUSIONS
APPENDICES
1. BROADLAND DISTRICT COUNCIL SITE ALLOCATION SPD (EXTRACT)
2. ES SCREENING LETTER DATED 23 DECEMBER 2010 FROM BROADLAND DISTRICT COUNCIL
Manor Park, Blofield – Planning Statement
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1.0 INTRODUCTION
1.1 This planning statement relates to an outline application for a mix of residential, employment and open space use on land to the north of Yarmouth Road Blofield.
1.2 This site of about 9.9 hectares has been identified by Broadland Council as a potential site for new housing, employment and open space. Although the Council’s planned public consultation event in July 2010 was postponed, the supporting report has been published. The report (Site Allocations Development Plan Document (Shortlisted Sites) assessed this site against all others in both the immediate vicinity and the wider area and concluded that it was ‘potentially suitable for future development’.
1.3 At the time of the application the proposed development will be a ‘departure’ from the Development Plan, but it is considered that there are other material considerations that outweigh this situation. Further the Greater Norwich Development Partnership Joint Core Strategy could be adopted and the Development Plan policy therefore be very different with a number of Local Plan policies replaced. Both scenarios are therefore relevant and are considered below.
1.2 In addition to this statement the following documents are submitted:
Plans ‐ For the application and for determination
. Location Plan . Parameter Plan
Statements /Reports
. Design and Access Statement (includes Sustainability Statement) . Landscape and Visual Impact Assessment . Transport Assessment (including travel plans) . Archaeological Desk Top Assessment . Contamination Assessment Report . Noise Survey and Assessment . Ecological Site Assessment . Flood Risk Assessment . Utility Services Report . Statement of Community Involvement
1.3 The application is based upon on a thorough analysis of the site conditions, its surroundings and the implications of development. The Planning Statement identifies the planning context and the need for the proposed development and includes an assessment of how the proposed development accords with the relevant national, regional and local planning policies.
Manor Park, Blofield – Planning Statement
2.0 BACKGROUND
2.1 The applicant has been actively promoting this site through the Local Development Framework process since February 2008. Representations have been made to the Greater Norwich Development Partnership Joint Core Strategy and the Broadland Site Allocations DPD.
2.2 The site was included in Broadland DC Site Allocations DPD (shortlisted sites) which was endorsed by the Council in May 2010. The subsequent consultation programme was put on hold as a result of government reforms to the planning system and proposed cuts to public sector funding. See Appendix 2.
2.3 Extensive pre‐application discussions have been undertaken with planning officers and various statutory undertakers. The applicants have also carried out a public consultation exercise over the last eight months. This is detailed in the Design and Access Statement or Statement of Community Consultation.
2.4 A Formal Screening Opinion was sought on 24 November 2010 in a letter to the Local Authority on the need for an Environmental Statement. Broadland DC have confirmed in a Screening Opinion letter dated 23 December 2010 that an ES is not required. A copy of the letter is attached at Appendix 2. This therefore meets the requirements of policy CS12 of the Local Plan. In accordance with GS3 and ENV1 all aspects of potential impact on the environment have been discussed with the relevant parties and addressed as set out below and in accompanying reports.
Manor Park, Blofield – Planning Statement
3.0 EXECUTIVE SUMMARY
3.1 The site at Yarmouth Road is an appropriate location for a mixed use development of housing and employment of this size because:
. There is an acknowledged shortage of homes in this area;
. National policy (set out in PPS3) requires Broadland to have a 5 year supply of housing. The district supply is well below this;
. Blofield is identified as an area for housing growth;
. This site is adjacent to the settlement boundary and well located in terms of access to village services and facilities;
. There is a recognised shortage of small business units in rural centres. This site accommodates this type of employment floorspace;
. The proposals will assist in supporting local shops and other facilities;
. There are no infrastructure constraints which cannot be addressed;
. Development is not dependant up on major infrastructure improvements such as NDR, or Postwick Hub or sewage treatment work improvements; and
. This site can be brought forward without delay.
Manor Park, Blofield – Planning Statement
4.0 PLANNING HISTORY FOR SITE AND IMMEDIATE AREA
4.1 Two applications have been submitted in the past for development on the site. Both were refused on the grounds that these were a departure from the development plan.
890414 Residential Development (Outline)
Refused in June 1989 on the grounds that it would be outside the village envelope, was an unwarranted addition to the village and there was not capacity in the sewerage network or at the treatment works.
901140 Residential development, starter work units and recreational facilities (Outline)
Refused in August 1990 on the same grounds.
4.2 It is considered that circumstances have changed considerably since 1990 when the applications were refused in terms of planning policy and other material considerations. As explained below it is now the case that an addition of the scale and nature proposed would be appropriate. Further as set out in detail in the Flood Risk Assessment and the Utilities and Drainage Reports, Anglian Water have confirmed that there is now capacity in the sewerage network and at the sewage treatment works.
Two other applications in close proximity to the site are worthy of mention
2006/1108 Erection of 4 bungalows and 8 houses for affordable housing at the end of Globe Lane
Approved in September 2006. This scheme was built on land originally owned by the applicant. It sits adjacent to the north east boundary of the site.
2005/1694 Change of use of agricultural land to Par 3 18 hole golf course; floodlit driving range; clubhouse, car park and means of access at Manor Farm, Yarmouth Road
Approved in February 2006. This golf course and driving range are on the south side of Yarmouth Road immediately opposite the site. The course extends to 33 hectares towards Brundall. The driving range includes floodlighting.
Manor Park, Blofield – Planning Statement
5.0 SITE DESCRIPTION AND CONTEXT
5.1 In brief the site is 9.9 ha and is in wholly agricultural use. The site immediately adjacent to the west side of Blofield on the north side of Yarmouth Road and extends to the A47. The eastern boundary adjoins residential properties at the edge of Blofield. To the west are 4 houses and a small employment area.
5.2 This is described in detail in the Design and Access Statement and as such is not repeated here.
SITE LOCATION PLAN
Manor Park, Blofield – Planning Statement
6.0 PROPOSALS
6.1 This is an outline application for a 9.9ha site for a mixed use development of 5.9ha of residential use to a maximum of 195 dwellings, 1.6ha of employment use to a maximum of 4,000sqm of floorspace and open space.
6.2 A full description of the proposals is set out in the Design and Access Statement.
INDICATIVE SITE MASTERPLAN
Manor Park, Blofield – Planning Statement
7.0 PLANNING POLICY CONTEXT
Introduction
7.1 The Planning and Compulsory Purchase Act 2004 came into force in September 2004. The Act is a key element of the Government’s agenda for speeding up the planning system. It carries forward the provisions of the Town and Country Planning Act 1990, giving statutory force to a plan‐ led system of development control. Under Section 38 of 2004 Act, the determination of planning applications must be in accordance with the approved development plan unless material considerations indicate otherwise.
7.2 Where there are other material considerations, the Development Plan should be the starting point, and other material considerations should be taken into account in reaching a decision.
7.3 The changes to planning legislation and national and regional guidance imposed by the new Government and the likely further significant changes in the future have led to considerable uncertainty and confusion in terms of planning policy.
Development Plan
7.4 Our understanding is that at the time of submission the Development Plan for Broadland comprises the following:
Broadland District Local Plan Replacement (May 2006) Saved Policies (May 2009); Norfolk Structure Plan 1999 Saved Policies (May 2008); and East of England Plan (2008).
7.5 By the time the application is determined it is anticipated the Development Plan will comprise:
Greater Norwich Development Partnership Joint Core Strategy Submission (November 2009); Broadland Local Plan Replacement (May 2006) Saved policies (May 2008) The JCS will replace some policies in the Local Plan; Norfolk Structure Plan 1999 Saved Policies (May 2008); and East of England Plan (2008)
Regional Policy
7.6 On 6 July 2010 Regional Strategies were revoked with immediate effect. However, this decision was challenged by Cala Homes and on 10 November 2010 the decision to revoke was quashed. As a result of this Regional Strategies continue as part of the Development Plan. However, the intention by the government to abolish the regional strategies remains. A letter to Chief Officers dated 10 November 2010 from DCLG advises that this should be taken it into account as a material consideration. Cala Homes have challenged this. A decision is expected by the end of January 2011. Nevertheless for the purposes of this application the East of England Plan (2008) is part of the Development Plan.
Manor Park, Blofield – Planning Statement
Local Development Framework
7.7 The site falls within the area covered by the Greater Norwich Development Partnership (GNDP) which comprises Norwich City Council, South Norfolk District Council and Broadland District Council. The Partnership is preparing a Joint Core Strategy (JCS) for the area. This has recently been the subject of the Examination in Public. As a result of the hearing sessions the Inspector has asked for a small number of the proposed changes which are open to public consultation until 2 February 2011. The Inspectors report is currently expected at the beginning of March 2011.
7.8 The JCS Proposed Submission Document (November 2009) is a material consideration in the assessment of this application which has significant weight given the advanced stage. It is understood that the Inspectors report is binding. Given that it is very likely that this will be published during the life of the application and that it would be to all intents and purposes will be the Development Plan when the application is determined.
7.9 Set out below are the relevant planning policies that have been taken into account when preparing this application. They are in an abbreviated and edited form and the full documents should be read for clarity, context and understanding of the planning policies.
National Guidance and policy
7.10 At a national level the comprehensive general guidance on all aspects of development, through its Planning Policy Guidance notes (PPGs), and Planning Policy Statements (PPSs), Circulars and other advice.
7.11 The Localism Bill was published on 13 December 2010. The main provisions of the Bill relevant to the proposals are:
Abolition of Regional Strategies (although they remain for the moment); Community Infrastructure Levy giving more funds to local neighbourhoods; Neighbourhood Plans to increase local decision making. To be in line with Local Plans and national policy; Community Right to Build with community support; Pre‐application community consultation for planning applications; Duty to co‐operate between local authorities and public bodies; Greater control to local authorities over the allocation and tenure of social housing; New homes bonus to local authorities to match the number of new homes built; and Incentives to economic development
7.12 At the time of this application the timetable for the enactment of the Bill is mid 2011.
The Statutory Development Plan
BROADLAND LOCAL PLAN REPLACEMENT (MAY 2006) Saved Policies (May 2009)
7.13 The policies most relevant to the proposed development are summarised below.
GS1 New development will be accommodated within settlement limits. Outside these limits development proposals will not be permitted unless they comply with a specific allocation, policy or parish plan.
Manor Park, Blofield – Planning Statement
GS3 Development will not be permitted where there are unacceptable effects in terms of accessibility for all, sustainable travel, impact on impact on natural and historic environment, the highway network, amenity, agricultural land, air quality, drainage or contamination.
GS4 Development only permitted where there is capacity in existing infrastructure or it can be upgraded ENV 1* Environmental Assets will be protected and enhanced ENV 2 Requires all development to have a high standard of layout and design ENV 3 Requires adequate arrangements for landscape maintenance ENV 5 Protection and enhancement of natural environment ENV 8 The qualities and character of areas of landscape value will be protected ENV 20 Evaluation of archaeological significance ENV23 Protection of water resources and the water environment HOU 3* Sets out a sequential preference for major housing sites: a) Strategic sites in the Local Plan; b) Sites well served by public transport or that are within walking or cycling distance of local centres of town centre for the fringe parishes and Aylsham; c) Sites on the edge of the settlement boundary for the fringe parishes and Aylsham where they are capable of being well served by public transport, cycling and pedestrian links as well as being well located in relation to employment areas, shopping and community facilities; d) Sites within the settlement limits of other settlements Proposals for major housing sites will be expected to demonstrate why sites in the higher categories are unsuitable. HOU 4* Requires the provision of affordable housing on major sites HOU7 Permission will not be given for new residential development outside settlement limits HOU10* Requires a variety of dwelling types and housing to meet identified needs EMP6 Employment areas outside of settlement limits are permitted where overriding need for countryside location exists TRA2 and TRA3 Transport Assessments and Travel Plans will be required for all applications for major proposals TRA4 and TRA5 Suitable provision will need to be made for pedestrians and cyclists TRA7 Where justified, contributions to public transport will be required TRA8 Development will be expected to be in accordance with Parking Guidelines TRA14 Development will not be acceptable if it endangers highway safety RL7 Residential development will be expected to include or contribute to open space provision to meet Council standards CS2* Surface water drainage should be by way of sustainable drainage systems where appropriate CS3 Development will not be permitted where it would adversely affect ground water sources CS8 Major development should include appropriate waste storage and recycling facilities CS9 * Flood Risk in all development proposals will be considered and addressed CS12 Development will not be permitted where it would have a significant environmental impact CS14 Development will not be permitted unless noise issues have been addressed
Those marked with * will be superceded by the JCS.
Manor Park, Blofield – Planning Statement
NORFOLK STRUCTURE PLAN 1999 Saved Policies (May 2008)
7.14 Policy T2 Transport impact of new development ‐ requires that development will be acceptable in terms of traffic generation, site access, access to public transport and for cyclists, pedestrians and disabled people. Developer contributions will be sought to secure the provision of necessary infrastructure.
GREATER NORWICH DEVELOPMENT PARTNERSHIP JOINT CORE STRATEGY (Submission November 2009)
7.15 By 2026 the extended communities of Broadland, Norwich and South Norfolk will be strong, cohesive, creative and forward looking. Between 2008 and 2026, at least 36,740 new homes will be built (of which over 33,000 will be in the Norwich Policy Area) and about 27,000 new jobs will be created. All communities will be safer, healthier, more prosperous, sustainable and inclusive. High quality homes will meet people’s needs and aspirations in attractive and sustainable places. People will have access to good quality jobs and essential services and community facilities, with less need to use the car.
7.16 The Main Towns, Key Service Centres and Service Villages will be focal points for communities to have better access to quality jobs, healthcare, education and community facilities and shops
7.17 The ten Key Service Centres of Acle, Blofield, Brundall, Hethersett, Hingham, Loddon/Chedgrave, Long Stratton, Poringland/Framingham Earl, Reepham and Wroxham will:
• remain attractive places with a range of enhanced shops, services, community facilities and job opportunities to meet local and surrounding area needs • generally accommodate small to moderate new housing allocations (between 50 and 200 dwellings) in accordance with the capacities of local services, community facilities and utilities provision. • form limited, but strong employment and tourism‐related links with the Norfolk Broads (i.e. at Acle, Brundall, Loddon/Chedgrave and Wroxham) • have enhanced transport links to Norwich and the Main Towns
7.18 The JCS identifies 10 Spatial Objectives for achieving the spatial vision and which act as framework for the policies.
Policy 1: Addressing Climate Change and Protecting Environmental Assets Policy 2: Promoting Good Design Policy 3: Energy and Water ‐ Maximise low or zero carbon development and renewable energy use. Ensure there is sufficient water infrastructure to meet the additional requirements and protect areas of environmental importance. Policy 4: Housing Delivery ‐ Allocations will be made to ensure at least 36,740 new homes can be delivered between 2008 and 2026, of which 33,000 will be within the Norwich Policy Area.
A mix of housing will be required to provide balanced communities and meet the needs of the area, as set out in the most up to date study of housing need and/or Housing Market Assessment.
Manor Park, Blofield – Planning Statement
Affordable housing, including an appropriate tenure‐mix, will be required at a target of 40% on site in accordance with the most up‐to‐date needs assessment for the plan area, for sites of five or more dwellings (or 0.2 ha or more).
Mixed tenure housing with care will be required as part of overall provision in highly accessible locations.
Policy 5: The Economy ‐ The local economy will be developed in a sustainable way to support jobs and economic growth both in urban and rural locations.
Policy 6: Access and Transportation ‐ The transportation system will be enhanced to develop the role of Norwich as a Regional Transport Node, particularly through the implementation of the Norwich Area Transportation Strategy, and will improve access to rural areas. This includes:
• concentration of development close to essential services and facilities to encourage walking and cycling as the primary means of travel with public transport for wider access • continuing to improve public transport accessibility to and between Main Towns and Key Service Centres • promoting local service delivery • continuing to recognise that in the most rural areas the private car will remain an important means of travel
Policy 7: Supporting Communities ‐ All development will be expected to maintain or enhance the quality of life and the well being of communities and will promote equality and diversity, and protect and strengthen community cohesion. Policy 8: Culture, Leisure and Environment ‐ The cultural offer is an important and valued part of the area. Existing cultural assets and leisure facilities will be maintained and enhanced including access to green space, including formal recreation, country parks and the wider countryside.
Policy 9: Strategy for Growth in the Norwich Policy Area ‐ The Norwich Policy Area (NPA) is the focus for major growth and development. Housing need will be addressed by the identification of new allocations to deliver a minimum of 21,000 dwellings including 2,000 in Broadland on smaller sites in the NPA. This is the minimum number of dwellings to be delivered in that location. Allocations to deliver the smaller sites in Broadland and South Norfolk will be made in accordance with the settlement hierarchy and local environmental and servicing considerations. Opportunities will be sought to enhance green infrastructure throughout the area,
Policy 14: Key Service Centres ‐ Land will be allocated for residential development broadly of the scale indicated below (and subject to detailed assessment including impact on form and character and the resolution of any specific servicing constraints). Established retail and service areas will be protected and enhanced where appropriate, and local employment opportunities will be promoted. Future development plan documents will consider the adequacy of employment land provision.
Acle: 100 to 200 dwellings, Blofield*: approximately 50 dwellings, Brundall*: approximately 50 dwellings, Hethersett*: at least 1,000 dwellings, Hingham:
Manor Park, Blofield – Planning Statement
approximately 100 dwellings, Loddon/Chedgrave: 100 to 200 dwellings, Long Stratton*: at least 1,800 dwellings, Poringland/Framingham Earl*: 100 to 200 dwellings, Reepham: 100 to 200 dwellings, Wroxham: 100 to 200 dwellings.
Settlements within the Norwich Policy Area (marked *)may be considered for additional development if necessary, to help deliver the ‘smaller sites in the NPA’ allowance (see Policy 9).
Policy 20: Implementation ‐ A co‐ordinated approach will be taken to the timely provision and ongoing maintenance of infrastructure, services and facilities to support development.
7.19 As a result of the Hearing Sessions the following changes were published on 30 December 2010 for further public consultation. These are: flexibility/resilience of the JCS in relation to the NDR; Policy 3 Energy and Water; Policy 4 Housing Delivery (affordable housing) and Green Infrastructure diagrams. The closing date for comments is 2 February 2011.
7.20 The proposed change to the JCS in relation to the NDR is relevant. It recognises that the full implementation of the growth proposals in the JCS and in particular significant development in the growth triangle is dependent upon completion of the NDR. It acknowledges that there is uncertainty about the delivery of the NDR and that a complete review of the JCS would be triggered if funding was not forthcoming.
Regional Planning Policy
EAST OF ENGLAND PLAN: Revision to the Regional Spatial Strategy for the East of England (2008)
7.21 Sustainable development is at the heart of the RSS's vision for the East of England, the objectives and its spatial strategy. The objectives seek to:
. deliver more integrated patterns of land use, movement, activity and development, including employment and housing; . sustain and enhance the vitality and viability of town centres; . make more efficient use of land and utilise previously developed land and existing buildings to meet future development needs; . protect and enhance the built and historic environment and encourage good quality design and the use of sustainable construction methods for all new development; . minimise the environmental impact of travel by reducing the need to travel, encouraging the use of more environmentally friendly modes of transport, and widening the choice of modes; and . ensure new residential development is prioritised within locations that offer the most sustainability potential, beginning with the built up areas.
7.22 One of the key aims of the RSS is to allow the region to accommodate higher levels of growth in a sustainable manner; indeed, achieving sustainable development is the key guiding principle (Policy SS1). Other relevant policies are:
Policy SS3 Key Centres for Development and Change: Norwich is designated as a key centre.
Manor Park, Blofield – Planning Statement
Policy E1 Job Growth: Sets an indicative target of 35,000 new jobs for Greater Norwich area between 2001 and 2021.
Policy E2 Provision of Land for Employment: Requires that local authorities provide a range of sites to cater for all relevant employment sectors in sustainable locations ‐ urban areas, market towns and key rural centres.
Policy H1 Regional Housing Provision: Sets a minimum dwelling provision between 2001 and 2021 at 12,200 in Broadland.
Policy H2 Affordable Housing: Sets a target of 35% of new housing to be affordable.
Policy ENV1 Green Infrastructure: Policy ENV2 Landscape Conservation: Policy ENV3 Biodiversity and Earth Heritage: These policies require local authorities to protect and enhance the diversity and local distinctiveness of the countryside character areas and the region’s wider biodiversity, earth heritage and natural resources. Policy ENV7 Quality in the Built Environment: States that Local Development Documents should require new development to be of high quality which complements the distinctive character and best qualities of the local area.
Policy T2 Changing Travel Behaviour: Policy T3 Managing Traffic Demand: Policy T7 Transport in Rural Areas: Policy T9 Walking, cycling and other non‐motorised transport: Policy T13 Public Transport Accessibility: Policy T14 Parking: These policies seek more sustainable modes of travel, improve accessibility to services including public transport.
Policy ENG1 Carbon Dioxide Emissions and Energy Performance: States that new development of more than 10 dwellings or 1000m2 of non‐residential floorspace should secure at least 10% of their energy from decentralised and renewable or low‐carbon sources.
Policy WAT 2 Water Infrastructure: Policy WM6 Waste Management: These policies seek to maximise the use of existing infrastructure, minimise the creation of waste and maximise recycling and re‐use of waste.
Policy NR1 Norwich Key Centre to Development and Change: Designates Norwich as a regional focus for housing, employment, retail, leisure, cultural and educational development.
7.23 Particular aims include providing for 33,000 net additional dwellings in the Norwich Policy Area (NPA) in the period 2001‐2021 and achieving a major shift in emphasis across the Norwich Policy Area towards travel by public transport, cycling and walking.
National Planning policy
PLANNING POLICY STATEMENT 1: DELIVERING SUSTAINABLE DEVELOPMENT (2005)
7.24 PPS1 sets out the Government’s overarching planning policies on the delivery of sustainable development through the planning system (paragraph 4).
Manor Park, Blofield – Planning Statement
7.25 The planning system should seek to deliver sustainable development through the observation of the following key matters:
. Social Cohesion and Inclusion (paragraphs 14‐16) ‐ The government is seeking strong, vibrant and sustainable communities in both urban and rural areas. Development plans should contain policies which promote communities with: - Suitable mixes of housing; - Where the impact of development on social fabric is considered; - Mixed development with access to jobs, housing, education, shops, leisure and community facilities; - Safe, healthy and attractive environments; and - Provision for physical activity.
. Protection of the Environment (paragraphs 17‐20) ‐ Planning policy should seek to protect and enhance the quality and character of the countryside and urban areas as a whole. Development proposals should be considered in the context of whether the environment is able to accept further development without irreversible damage. Development plans should ensure policies take account of the full range of environmental issues including climate change.
. Prudent Use of Natural Resources (paragraphs 21‐23) – This seeks the sustainable use of natural resources and the avoidance of pollution. One example of good practice is the use of brownfield land for development.
. Integrating Sustainable Development in Development Plans (paragraph 24‐26) – Planning authorities should ensure that sustainable development is dealt with in an integrated way. i.e. the relationship between social inclusion, protecting and enhancing the environment, the prudent use of natural resources and economic development ‘…for example, by recognising that economic development if properly planned for, can have positive social and environment benefits, rather than negative impacts…'
7.26 Good design ensures attractive usable, durable and adaptable places and is a key element in achieving sustainable development.
PPS1 PLANNING AND CLIMATE CHANGE: SUPPLEMENT TO PPS1 (2007)
7.27 This PPS sets out how planning should contribute to reducing carbon emissions and stabilising climate change. Paragraph 11 states in considering planning applications before RSS and DPDs can be updated to reflect this PPS planning authorities should have regard to this PPS as a material consideration which may supersede the development plan policies. Any refusal of planning permission on the grounds of prematurity because a DPD is being prepared or is under review but has not yet been adopted should be consistent with Government policy.
7.28 Paragraph 25 highlights that when considering the need to secure sustainable rural development, including employment and affordable housing opportunities to meet the needs of local people, planning authorities should recognise that a site may be acceptable even though it may not be readily accessible other than by the private car.
Manor Park, Blofield – Planning Statement
PLANNING POLICY STATEMENT 3 – HOUSING (2010)
7.29 PPS3 sets out the national policy framework for delivering the Government’s housing objectives. This was reissued in 2010 to remove the minimum housing density requirements and to designate domestic gardens as ‘greenfield’.
7.30 Paragraphs 20‐24 examine the issues around achieving a mix of housing. The PPS highlights that key characteristics of a mixed community are a variety of housing and a mix of different households. Local authorities are directed to set out in LDDs the likely overall proportions of households that require market or affordable housing based upon the findings of the SCHMA and other local evidence. Developers should bring forward proposals for market housing which reflect demand and the profile of households requiring market housing in order to sustain mixed communities and affordable housing should reflect the size and type of affordable housing required.
7.31 Paragraphs 40‐51 emphasises the importance of making effective and efficient use of land.
7.32 Paragraph 50 states that the density of an existing development should not dictate that of new housing by stifling change or requiring replication of existing style or form and that a more efficient use of land can be reached without compromising the quality of the local environment.
7.33 The Government requires at paragraph 53 that local authorities should identify broad locations and specific sites to enable continuous delivery of housing for 15 years ahead. Paragraph 54 requires the through the SHLAA and other local evidence that local authorities should identify sufficient deliverable sites to deliver housing in the first five years. To be deliverable a sites should be available, suitable and achievable.
7.34 Paragraph 71 clearly states that where Local Planning Authorities cannot demonstrate an up‐to‐date five year supply of deliverable sites, or there is less than five years supply of deliverable sites, they should consider favourably planning applications for housing, having regard to the policies in this PPS including the considerations in paragraph 69.
7.35 Paragraph 69 states that in general, in deciding planning applications, Local Planning Authorities should have regard to:
– Achieving high quality housing. – Ensuring developments achieve a good mix of housing reflecting the accommodation requirements of specific groups, in particular, families and older people. – The suitability of a site for housing, including its environmental sustainability. – Using land effectively and efficiently. – Ensuring the proposed development is in line with planning for housing objectives, reflecting the need and demand for housing in, and the spatial vision for, the area and does not undermine wider policy objectives eg addressing housing market renewal issues.
7.36 Paragraph 72 directs that Local Planning Authorities should not refuse applications solely on the grounds of prematurity.
PLANNING POLICY STATEMENT 4: PLANNING FOR SUSTAINABLE ECONOMIC GROWTH (2009)
7.37 This PPS sets out the government’s overarching objective of sustainable economic growth. It seeks to raise the quality of life and the environment in rural areas. Policy EC6 focuses on planning for economic development in rural areas. It states that local planning authorities should:
Manor Park, Blofield – Planning Statement
. strictly control economic development in open countryside away from existing settlements, or outside areas allocated for development in development plans
. identify local service centres (which might be a country town, a single large village or a group of villages) and locate most new development in or on the edge of existing settlements where employment, housing, services and other facilities can be provided close together . seek to remedy any identified deficiencies in local shopping and other facilities e. to serve people’s day‐to‐day needs and help address social exclusion.
PLANNING POLICY STATEMENT 5: PLANNING FOR THE HISTORIC ENVIRONMENT (2010)
7.38 This PPS sets out guidance in relation to local authority responsibilities in ensuring that the heritage environment and assets are protected.
PLANNING POLICY STATEMENT 7: SUSTAINABLE DEVELOPMENT IN RURAL AREAS (2004)
7.39 Key principles of the PPS as set out in paragraph 1 include social inclusion, effective protection and enhancement of the environment, prudent use of natural resources and maintaining high and stable levels of economic growth and employment. As in PPS1 development must be well‐ designed and appropriate for its context.
PLANNING POLICY GUIDANCE NOTE 13: TRANSPORT (2011)
7.40 PPG13 provides key guidance on the achievement of sustainable development. Its aims are to reduce the need to travel, especially by car, by influencing the location of different types of development relative to transport provision and fostering forms of development which encourage walking, cycling and use of public transport. In particular, PPG13 places an emphasis on ensuring that jobs, shopping, leisure and services are highly accessible by public transport, walking and cycling.
7.41 PPG 13 was reissued on 6 January 2011 deleting any reference to maximum parking standards in new residential development. The intention being to reduce on street parking.
PLANNING POLICY GUIDANCE 17: PLANNING FOR OPEN SPACE, SPORT AND RECREATION (2002)
7.42 Local authorities should ensure that provision is made for local sports and recreational facilities (either through new facilities or through improvements to Existing facilities) where planning permission is granted for new developments (especially housing) on site or through planning obligations as appropriate.
PLANNING POLICY GUIDANCE 24: PLANNING AND NOISE (1994)
7.43 This PPG provides guidance to local authorities when determining planning applications in terms of noise. Local planning authorities should consider carefully in each case whether proposals for new noise‐sensitive development such as housing would be incompatible with existing activities. When determining planning applications for development which will be exposed to an existing noise source, local planning authorities should consider both the likely level of noise exposure at the time of the application and any increase that may reasonably be expected in the foreseeable future. Paragraph 13 emphasises that measures can be introduced to control the source of, or limit exposure to noise.
Manor Park, Blofield – Planning Statement
PLANNING POLICY STATEMENT 25: DEVELOPMENT AND FLOOD RISK (2006)
7.44 States that flood risk should be taken into account at all stages in the planning process to avoid inappropriate development in areas at risk of flooding.
Local Supplementary Guidance
7.45 Broadland Council have adopted planning guidance on a number of relevant topics, namely:
. Parking Standards Supplementary Planning Guidance (June 2007) . Affordable Housing Supplementary Planning Guidance (December 2008) . Recreational Open Space Supplementary Planning Guidance (July 2007) . In addition the Norfolk County Council Residential Design Guide (1998) also carries some weight.
National Non Statutory Guidance
7.46 The following guidance is specifically referred to in PPS1:
. By Design – Urban design in the planning system: towards better practice'; . Safer Places – the Planning System and Crime Prevention ; . Planning and Access for Disabled People: A Good Practice Guide; and . By Design – better places to live.
7.47 There are also a number of ‘good practice guides offering guidance on the creation of attractive and well‐designed streets and spaces, including:
. Building for Life; . Manual for streets; . Manual for Streets 2; . Car Parking – what works where (English Partnerships)and . Urban Design Compendium.
Material Considerations
7.48 There are a substantial number of documents which have been produced as background evidence in the preparation of the Joint Core Strategy which are in our view relevant in considering this application. These are listed below highlighting the points of interest in relation to this application.
Housing
Strategic Housing Land Availability Assessment (2009) for GNDP Greater Norwich Housing Market Assessment 2007 (Greater Norwich Housing Partnership GNHP) Greater Norwich Housing Market Assessment Update 2009 (GNHP) Greater Norwich Sub‐Region Evidence Base for a Housing Market Assessment: A Study of Need and Stock Condition GNHP (2006) GNDP Topic Papers for JCS TP7 Settlement Hierarchy (November 2009)
Manor Park, Blofield – Planning Statement
The above documents provided the background evidence to inform the JCS housing policy. The latest submission documents to the JCS EiP provide the most up to date information and have therefore been referred to in this statement.
Letter dated 15 November 2010 from GNDP to Grant Shapps DCLG re Housing Growth to meet Local Needs: Five year housing supply submitted to GNDP JCS Examination in Public (Ref: RF 38) Sets out the latest figures from GNDP in terms of land supply in Broadland district.
Employment
Greater Norwich Employment Growth and Employment Sites and Premises Study (ARUP, 2008) Greater Norwich Economic Strategy 2009 – 2014 An Economic Assessment of Greater Norwich: A companion document to the Greater Norwich Economic Strategy 2009 – 2014 (GNDP, 2009)
Broadland documents
Broadland Monitoring Report 2008‐2009 (Dec 2009) Updated housing figures Broadland Site Allocations Consultations Shortlisted Sites (May 2010) Broadland Initial Sustainability Appraisal Report for Site Allocations Development Plan document (April 2010) Broadland Site Assessment Summary Table (May 2010)
Infrastructure implementation
GNDP Response to Inspectors question RF75 regarding flexibility and contingency RF97 2 December 2010
GNDP made it clear that strategic growth to meet the minimum housing targets cannot go ahead in the form proposed without the implementation of the NNDR. The funding is dependent upon central government resources. The DfT has placed the project within a ‘Development Pool’ of 22 projects. A decision on funding is expected in December 2011 at the earliest.
GNDP Plan B partial alternative to the NDR – produced as a result of Inspector’s request during the Examination in Public: This paper demonstrates how the JCS and its supporting evidence provide the contingency to enable programmed development to commence in the period before completion of the NDR is assured.
Manor Park, Blofield – Planning Statement
8.0 EVALUATION
8.1 The proposed development of this site for a mix of housing and employment use in a sustainable location is considered to be appropriate in light of the current and emerging planning policy context. Whilst it is acknowledged that national and local policy is still in a state of flux this site is deliverable in the short term and there seems to be no compelling reasons why it should not be approved for development.
POLICY
Principal of development
8.2 At the time of submission the Development Plan as set out above comprised the Saved policies of the Local Plan, the Saved policies of the Structure Plan and the East of England Plan. It is likely that the Inspectors report for the JCS will be published before the application is determined and this is binding. This will therefore form part of the Development Plan.
8.3 This being the case this statement recognises the policy context will change particularly in terms of the strategic location of development and seeks to cover both scenarios.
Departure from current Local Plan policy
8.4 The proposal is a departure from Local Plan policy GS1 in that it is located outside the settlement limits of Blofield. Policy HOU3 of the Local Plan sets out a sequential preference for major housing sites. This site is not on the list of preferred locations. Policy HOU7 states permission will not be given for new residential development outside settlements. Previous applications in 1989 and 1990 were refused as being contrary to an earlier Structure Plan policy, in place at the time of the applications, and because there was no justification to warrant an addition to the village.
8.5 Since that time the East of England Plan has been adopted and there are significant material considerations to be taken into account notably changes in national policy and guidance, emerging development plan policy and housing delivery. Together these are considered to outweigh the Local Plan policy.
East of England Plan
8.6 Regional Strategies are as a result of the ‘Cala decision’ still to be regarded as part of the development plan and therefore their policies remain relevant.
8.7 The East of England Plan identifies Norwich as a key centre for growth in policies SS3 and NR1. The Plan sets a minimum target of 33,000 net additional dwellings for the Norwich Policy Area by 2021 and 12,200 in Broadland alone in policy H1. The EEP recognises the role of the market towns and larger villages in providing employment and services to their rural hinterlands and meeting housing needs. The JCS has been drafted to comply with regional policy and sets out at a strategic level the locations for development.
8.8 It is important to note that in August 2010 when the RSS were considered to be abolished prior to the Cala decision the GNDP confirmed that they were intending to retain the housing targets that had been proposed in the EEP and the draft JCS. GNDP in their Topic Paper: Homes and Housing (August 2010) drew attention to the background evidence prepared by GNDP, individual Councils and national housing projections to justify their position.
Manor Park, Blofield – Planning Statement
Greater Norwich Development Partnership Joint Core Strategy
8.9 The JCS moves on from the highly restrictive Local Plan policy. It sets out a development strategy required to address housing and employment requirements in the Greater Norwich Area for the next 15 years. This includes expansion of the Key Service Centres such as Blofield. Policy 4 of the JCS follows on from the regional policy and requires that allocations will be made for the provision of 33,000 new dwellings in the Norwich Policy Area by 2026.
8.10 The strategy for growth in the NPA is set out in Policy 9 and the JCS designates Blofield as a Key Service Centre (KSC) where development is appropriate dependent upon impact on form and character of the settlement and services capacity. Therefore the principle of residential and employment development at Blofield is acceptable and meets with JCS policy.
8.10 The Spatial Vision for the JCS sets out the intentions for KSCs. It is worth repeating these here to demonstrate that these will be adhered to in this proposal. KSC should:
. remain attractive places with a range of enhanced shops, services, community facilities and job opportunities to meet local and surrounding area needs . generally accommodate small to moderate new housing allocations (between 50 and 200 dwellings) in accordance with the capacities of local services, community facilities and utilities provision. . form limited, but strong employment and tourism‐related links with the Norfolk Broads . have enhanced transport links to Norwich and the Main Towns
8.11 The number of dwellings proposed is within the range specified above and the proposed scheme would support existing shops and services within Blofield for the long term. There is also the potential to enhance and increase facilities as a result of development. Where additional community infrastructure is needed, this would be funded through contributions agreed with the relevant authorities, for example, any necessary funding for additional education provision at Blofield Primary School and Thorpe St Andrew High School.
8.12 Blofield is identified in policy 9 of the JCS for a minimum of 50 new dwellings. The GNDP draft LIPP (September 2010) confirmed this. As the settlement is within the NPA policy 14 of the JCS applies. This states that Blofield will be considered for additional allocations if necessary, to help deliver the ‘smaller sites in the NPA’ allowance of 2,000.
8.13 The scheme includes for 4,000 sq m of employment floorspace. As set out below this is to be of a scale and type in demand in the area and appropriate for a rural centre. This gives job opportunities to existing and future residents of Blofield. Compared with other KSCs Blofield is relatively distant from the Norfolk Broads. Opportunities to improve employment and tourism related to the Broads will be in those locations.
8.14 Blofield benefits from being on the A47 and in close proximity to Norwich. It is well located to maximise travel alternatives to the private car. Further the proposals have been discussed in detail with the County Council Transport Officers and the Highway Authority to ensure it meets their requirements in terms of encouraging sustainable travel. Details are set out in the Transport Assessment.
Manor Park, Blofield – Planning Statement
8.15 It is evident from GNDP own research that there are significant infrastructure constraints in the Greater Norwich Area that will delay the major strategic growth proposals. In addition there are constraints to development for smaller scale schemes at key service centres. The GNDP Settlement Hierarchy Topic Paper TP7 November 2009 identifies that at Key Service Centres:
8.16 While the development of the strategy has taken into account servicing constraints, the latest advice on education provisions has suggested that new housing development at Acle and Loddon/ Chedgrave should be low down the ranges proposed. Evidence from the Water Cycle Study has suggested the need for development phasing limitations at Acle, Wroxham, Loddon/Chedgave and Reepham pending improvements to waste water treatment works. Other evidence has shown the need for drainage issues to be resolved in Poringland/Framingham Earl.
8.17 Development at these key service centres may not be reliant upon major strategic infrastructure such as the provision of the NNDR but there are clearly acknowledged serious constraints which have both funding and timing implications at five of the eight KSCs within this category.
8.18 As a result of the Examination in Public hearings of the JCS a further consultation is taking place on proposed minor changes to the document. Of particular relevance to this application is the proposed change to the JCS in relation to the NDR. The amendment to text is to recognise that the full implementation of the growth proposals in the JCS and in particular significant development in the growth triangle is dependent upon completion of the NDR.
8.19 The JCS now clearly acknowledges that there is uncertainty about the timing of the delivery of the NDR, that whilst a substantive amount of development can take place prior to the provision of the NDR there is the possibility that no funding will come forward for the NDR. Funding from the DfT Development Pool will not be confirmed until end of 2011. If there is no possibility of the NDR coming forward then a complete review of the JCS would be necessary.
8.20 In addition the JCS proposes that further development could take place in advance of the NDR if the Postwick hub is built. GNDP are confident that this can be funded as a range of sources can be tapped, but again this is yet to be secured.
8.21 This leaves a significant degree of uncertainty about future transport infrastructure in Broadland which has a direct impact on the scale of development that can take place and the timing of delivery. Sites such as the one at Yarmouth Road which are not dependent upon either the NDR or Postwick Hub are ideally placed to bring forward development whilst that uncertainty remains.
MATERIAL CONSIDERATIONS
Housing Demand and Supply
8.22 PPS 3 requires that local authorities have a demonstrable five year supply of housing land. Paragraph 71 clearly states that where Local Planning Authorities cannot demonstrate an up‐to‐date five year supply of deliverable sites, or there is less than five years supply of deliverable sites, they should consider favourably planning applications for housing.
8.23 Broadland Annual Monitoring Report December 2009 stated that Broadland had only a 1.41 year supply of land available for housing within the NPA.
Manor Park, Blofield – Planning Statement
8.24 In a letter dated 15 November 2010 from GNDP to Grant Shapps DCLG re Housing Growth to meet Local Needs: Five year housing supply submitted to the JCS Examination in Public (Ref: RF 38) the GNDP sets out the latest figures in terms of land supply. The GNDP considers there is variation between supply based on developer’s stated intentions which comes out as 1.62 year supply and a figure based on what they consider the reasonable delivery potential of sites which is 3.88 years. Notwithstanding this variation it is clear that there is a substantial serious and enduring shortfall in housing land supply in Broadland.
8.25 This being the case development plan and national policy targets in terms of land supply are not being met. As such the policy advice in PPS 3 that there should be a presumption in favour of such proposals applies. This is evidenced by a steady track record of appeals allowed where there was a lack of a demonstrable five year land supply for housing in the district.
8.26 Moreover as set out above the GNDP in August 2010 reiterated that the proposed housing requirements as set out in the JCS are accurate and necessary whether the RSS is in place or not.
8.27 The latest national household projections give the East of England going by at least 30% in the next 25 years. The greatest number being single person households especially for the elderly. This represents a significant demand for new housing when annual house‐building rates are falling steadily behind targets.
8.28 It is also worth noting the impact of the changes to PPS3 in June this year. The revision was made to prevent ‘garden grabbing’. This meant that private gardens previously considered brownfield to be re‐designated as greenfield. PPS 3 requires that previously developed land be developed in preference to greenfield. However this re‐designation has significantly reduced the amount of brownfield land in sustainable locations in favour of retaining green space within residential areas. Nevertheless the requirement for housing land remains. Sites on the edge of sustainable settlements would seem to be a sensible solution to contributing to housing delivery.
8.29 Policy H1 of the East of England Plan sets a target of 33,000 for the NPA, with 12,000 in Broadland by 2021. This is followed through to Policy 4 of the JCS which requires allocations to be made for the 33,000 houses. This to include small sites at Key Service Centres as set out in policies 9 and 14.
8.30 This is a substantive and challenging target. Given the serious infrastructure delivery problems sites such as this at Yarmouth Road provide an opportunity to deliver housing and employment early in the Plan period in a sustainable manner.
Employment Provision
8.31 The intention is to provide B1 units as small units or potentially flexible space within in an attractive landscaped environment. This is consistent with policy E2 of the East of England Plan and will make an important contribution to the range of sites needed in the district.
8.32 Local Plan objectives for employment are to increase and enhance the range and distribution of employment opportunities. Employment policies aim to retain and expand existing sites and find new opportunities across the district. However given the restrictive development policies employment activities outside settlement limits is restricted to those uses needing a countryside location (policy EMP6). Nevertheless subsequent central government regional and emerging development plan policy calls for a more flexible approach to addressing the continuing shortfall in jobs.
Manor Park, Blofield – Planning Statement
8.33 Policy 5 of the JCS seeks to support jobs and employment in a sustainable way in rural and urban locations. It identifies the need for new smaller scale employment sites. One way of doing this will be through the provision of small‐scale business opportunities in all significant residential and commercial developments. The GNDP Site and Premises Study 2008 identified a gap in supply for smaller and start up businesses. It recommended that their needs could be addressed by a combination of the rural sites and market towns.
8.34 Policy E6 of PPS4 seeks to support and expand job opportunities in rural areas. Development in open countryside is restricted. The policy directs local authorities to locate most new development in or on the edge of existing settlements where employment, housing, services and other facilities can be provided close together.
8.35 The site at Blofield is therefore ideally placed to provide employment opportunities in line with the development plan and national policy requirements and contribute to meeting the identified demand for these type of premises at rural centres in the district.
Infrastructure delivery
8.36 The uncertainty around the delivery of essential infrastructure to support major strategic growth is well known. This has been the subject of considerable discussion at the EiP for the JCS. It will not be known until the end of 2011 whether there will be central government funding for the NNDR and Postwick Hub. This being the case the Inspector invited GNDP to consider a Plan B to enable development in the absence of the NNDR. The GNDP stated that growth proposals cannot be implemented without the Postwick Hub or the NNDR. However, the latest proposed changes to the JCS as referred to above now clearly acknowledge that there is uncertainty about the delivery of the NDR, that whilst a substantive amount of development can take place prior to the provision of the NDR there is the possibility that no funding will come forward for the NDR. Funding from the DfT Development Pool will not be confirmed until end of 2011. A complete review of the JCS would be necessary if the NDR could not be implemented in time.
8.37 In addition the JCS proposes that a proportion of the proposed housing and employment growth could take place in advance of the NDR if the Postwick hub is built. Whilst GNDP state this would be funded through a range of sources, this is still to be confirmed.
8.38 Water abstraction and drainage infrastructure are also identified as significant constraints to the major growth strategy given the capacity limitations and adverse environmental implications. It is understood that an initial strategy has been agreed between the relevant parties Environment Agency, Anglian Water and Natural England, to address this as a phased programme. It is however clear this will involve considerable cost in terms of infrastructure and the design of developments. Further growth is limited to a certain threshold until a solution is found to address requirements beyond existing capacities.
8.39 The infrastructure reports accompanying this application demonstrate that as agreed with the relevant authorities the scheme at Blofield does not rely on any major infrastructure. It can be delivered in advance of infrastructure such as the NDR, the Postwick Hub, upgrade of the Whitlingham Sewage works or the necessary installation of mechanisms for minimising water abstraction.
8.40 As set out above development at the majority of KCSs is also constrained by infrastructure and environmental limitations. The site at Blofield has no such restrictions. The details of
Manor Park, Blofield – Planning Statement
requirements and how these have been addressed is set out in the accompanying reports. This also deals with one of the reasons for refusal of the earlier applications on this site in 1989 and 1990 – ie the capacity of the sewerage system.
8.41 The applicants have gone to considerable lengths to ensure that there is sufficient capacity within existing local infrastructure to accommodate for increased demands created by the new development. Where additional infrastructure has been necessary this has been discussed and the mechanism to address this agreed with the necessary authorities. This will generally be by means of on‐site works, funding of off‐site works or contributions towards community infrastructure. This is in line with Local Plan policies GS4 and GS10, which states development will only be permitted where infrastructure is or can be made adequate. This is explained in more detail below and in the accompanying reports.
Broadland Site Specifics shortlist
8.42 The JCS (Policy 4) states allocations will be made to ensure at least 33,000 new homes can be delivered within the NPA. The GNDP in response to a question from Planning Inspector at the JCS EiP regarding whether the mechanism for finding additional smaller sites is soundly based responded that Policy 9 makes it clear that allocations to deliver the smaller sites allowance will be made “in accordance with the settlement hierarchy and local and environmental and servicing considerations”. It goes on to explain that it considers the only mechanism for the allocation of land is a DPD, and therefore the only plan making mechanism which can be used to resolve the issue is through the site specific policies DPD.
8.43 Broadland DC are well underway with the preparation of their Site Specifics DPD. The process was put on hold earlier this year to await reforms to the planning system. The documents produced so far have been through a substantive and robust consultation in accordance with legal requirements and endorsed by Council. The last document to be produced was the Site Specifics Allocations Shortlist. This was approved for public consultation by Full Council in May 2010.
8.44 It was made clear in the letter from the chief at the DCLG Planner (6 July 2010) that local authorities should continue with their plan preparation for their areas. In terms of housing numbers he also made it clear that any review of housing targets should be undertaken quickly so land owners know where they stand.
8.45 It is considered that the work undertaken to date by Broadland DC in the preparation of their Site Specifics DPD is therefore relevant. All the sites put forward or identified by the Council have been subject to an initial sustainability appraisal in April 2010 and it is reasonable to give these documents weight as a material consideration in determining this application.
8.46 All the Shortlisted sites have been chosen because:
. They have the potential for good vehicle access; . They are near to local services; . They have the potential to deliver community facilities; and . They would have less of an impact on the environment and landscape than other options
8.47 The Yarmouth Road site is identified in the Site Specifics shortlist as for mixed use residential, employment and open space. The concept plan suggests a figure of 200‐250 residential units, an area for offices/light industry and recreation/open space. It is recognised that this concept plan is proposed in the absence of a detailed assessment of constraints. However at that stage
Manor Park, Blofield – Planning Statement
Broadland DC considered this a sustainable site. A copy of the concept plan is attached at Appendix 1.
8.48 The detailed work undertaken in the preparation of this application confirms this. Any infrastructure capacity issues have been minimal and can be addressed either on site or by contributions. There are no environmental constraints.
Deliverability
8.49 PPS3 at paragraph 54 states that local authorities should identify sufficient specific deliverable sites to deliver housing in the first five years for allocation in their DPDs. This is relevant when considering the suitability of this site for development. To be considered deliverable the PPS states sites should be available now, in a suitable location for development now and would contribute to the creation of sustainable mixed communities and there should be a reasonable prospect that housing will be delivered within the next five years.
8.50 This proposal clearly meets with those requirements. The applicant and owner intention is to develop this out once permission is given. The pre‐application work and reports submitted with the application demonstrate a lack of on‐site constraints and minimal community infrastructure requirements. As such there would be no undue delays associated with the development.
8.51 The site is adjacent to a rural centre which has been identified in the JCS as a sustainable location for growth. As such the proposal falls within the growth strategy set out in the JCS and early indications in Site Specifics DPD. It does not prejudice the wider implementation of the JCS rather it is entirely in accord with the strategy. It makes an important contribution to housing targets within the NPA part of Broadland early in the Local Development Framework timetable.
Benefits for Blofield
8.52 The JCS (Policy 7) states that development will be expected to maintain or enhance the quality of life and well being for communities. A key consideration in the proposal is the wider benefits to Blofield and its residents. The public consultations explained in the Design and Access Statement identified both objections and support for the scheme but also where the scheme may provide improvements to Blofield. The key benefits are:
. Provision of new housing: This adds to the number and range of housing available in Blofield and in the district as a whole. This is in accordance with development plan policies HOU4 and HOU10 of the Local Plan and policies H1 and NR1 of the EEP. It is also in accord with policy 4, 9 and 14 of the JCS.
. Provision of affordable housing: In accordance with development plan policy a proportion of the housing provided would be affordable. Assuming this would be at 40% (subject to change as a result of policy change and viability assessment) this could amount to around 70 units and would make an important contribution to addressing housing need. Those in housing need in Blofield could benefit directly from the development. This meets with the policy objectives of HOU4 of the Local Plan and the in fact exceeds the requirements of H2 of the EEP. It is also in line with policy 4 of the JCS.
. Affordable housing will be provided in line with development plan and central government guidance and will form an integral part of the total housing provision. The precise amount,
Manor Park, Blofield – Planning Statement
type and mix will be agreed with Broadland District Council Planning and Housing Officers at the time of reserved matters.
. Support for existing shops and services: New residents would increase the customer base for existing shops, services and community facilities and help maintain them. This would be a considerable benefit for local businesses.
. Community Infrastructure: The development brings additional children to the schools. Capacity issues have been addressed in agreement with the County Council.
. New employment opportunities: The proposed 4,000 sq m of employment floorspace will provide new job opportunities for existing and future residents of Blofield. The intention is that this would consist of small B1 units which are identified as appropriate and in demand in rural centres. This type of accommodation particularly lends itself to start up and expansion of small businesses.
. Recreation and open space provision: It is anticipated that the precise details of this would be discussed and agreed with the Parish Council who are best placed to confirm the requirements for Blofield. In any event the scheme would include ...ha of open space. Previously the Parish Council had identified a need for allotments. This has been included in the indicative masterplan and it is intended would be part of the scheme. This is in line with policy RL7 of the Local Plan. Provision would be made for maintenance of open space through the S106 in accordance with ENV3.
. Access: The existing public footpaths have been retained to enable pedestrian and cycle links between existing and proposed housing. They also provide connections to the village for new residents and for existing residents to the new provided open space and employment development.
Impact on heritage assets
8.53 There are no listed buildings, ancient monuments or conservation areas in or in close proximity to the site. A Desk Based Assessment to review evidence of archaeological interest has been prepared. No evidence has been found as a result of this report. However, as requested by the Historic Environment Service Norfolk County Council a geophsyical survey is underway and will be submitted shortly.
8.54 Further details are provided in the Design and Access Statement. In terms of development plan policy this meets the requirements of GS3and ENV20 of the Local Plan and PPS5.
Layout and design
8.55 A detailed visual and landscape assessment has been carried out and is included with this application. This has identified the characteristics of the area and has underpinned the development of the development proposals.
8.56 This is an outline application and matters of detailed layout and design will be resolved at reserved matters stage. The indicative masterplan and parameter plans demonstrate that as a first stage, a scheme can be developed to meet national design quality guidelines. This is covered in the Design and Access Statement.
Manor Park, Blofield – Planning Statement
Housing Mix
8.57 As required by HOU10 of the Local Plan, policy 4 of the JCS, PPS1 and PPS3 the scheme will need to incorporate a variety of houses for a range of households particularly families and elderly people. The scheme proposes a maximum of 195 dwellings. This would comprise a wide range of house types and sizes in line with the market demand and housing need as identified by Broadland District Council.
8.58 A proportion of the housing would be affordable in line with adopted development plan policy and the tenure split would be finalised in agreement with Broadland DC.
8.59 The precise mix will be agreed at reserved matters stage when the details of the layout and design are prepared.
Amenity
8.60 The Design and Access Statement demonstrates how a scheme can be developed that would ensure the protection and enhancement of the environment for existing residents of Blofield and future occupiers of Manor Park. The detailed design will ensure the protection of the amenity of adjoining residential properties and the area in general. This can be secured at the reserved matters stage.
Noise
8.61 Detailed noise surveys and modelling work has been undertaken. This identifies the A47 as the principle source of potential noise nuisance. This information is provided in a separate report. The indicative masterplan shows a layout which responds to the results of this work, setting development away from the A47. The report demonstrates that a noise barrier comprising a 2m bund/acoustic fence would meet the requirements of reducing noise nuisance to acceptable levels. The details of the noise barrier will be part of the reserved matters submission together with the layout, orientation and design of the housing which would also address noise issues.
8.62 As such the proposal is in accordance with CS14 of the Local Plan and the guidance in PPS24.
Impact on highways
8.63 A Transport Assessment has been submitted to accompany this application. The methodology, assessments and conclusions have been discussed and agreed with Norfolk County Council and the Highway Authority. The report concludes that the traffic generated by the proposed scheme would not have an adverse impact on the highway network.
8.64 Paragraph 25 of PPS1 Planning and Climate Change Supplement highlights that when considering the need to secure sustainable rural development, including employment and affordable housing opportunities to meet the needs of local people, planning authorities should recognise that a site may be acceptable even though it may not be readily accessible other than by the private car. This is also recognised in policy 6 of the JCS.
8.65 Blofield may be a rural centre but it benefits from being located on the A47 offering fast and direct routes to Norwich and Great Yarmouth. The close proximity to Norwich, the Broadland Business Park and the park and ride at Postwick gives convenient access to a range of employment opportunities, in addition to those which will be created on site.
Manor Park, Blofield – Planning Statement
8.66 Moreover as set out in the Transport Assessment there are alternatives to journeys by private car. Bus services already run past the site and the train stations at Brundall are a mile away. A journey to Norwich on public transport is short with few stops and makes an attractive alternative to the car simply by reason of the proximity to the City.
8.67 The application includes Travel Plans for both the residential and employment uses which set out a strategy in both the short and long term to reduce travel by private car.
8.68 The existing footpaths will be retained within the new scheme and the connections to the existing village maintained and enhanced as part of the wider footpath network. This will provide attractive direct routes between the village shops and facilities and the site. A pedestrian/cycle link will be provided across the open space to the employment area.
8.69 As such the proposals are compliant with policies GS3, TRA2, TRA3, TRA4, TRA5, TRA7 and TRA14 of the Local Plan and T2 of the Structure Plan. The EEP contains a number of transport policies which together seek more sustainable modes of travel. The proposals respond to these requirements and seek to incorporate measures which will improve the choice of non‐car modes of travel thereby encouraging their use. This is in line with PPG 13. Policy 6 of the JCS maintains this approach.
Parking provision
8.70 This will be dealt with as part of the detailed design at reserved matters stage. It is intended that the proposed parking would be provided to meet the standards set out in Broadland Parking Standards Supplementary Planning Guidance (June 2007), TRA8 of the Local Plan and in line with the guidance in PPG13 and Manual for Streets. The illustrative masterplan and the Design and Access Statement show how car and cycle parking can be effectively integrated into the proposed development.
Flood Risk Assessment
8.71 The site is located within Flood Zone 1 but is over than one hectare and therefore a Flood Risk Assessment has been submitted. The FRA concludes that the proposal would not generate a risk of flooding. As such the proposals are in accord with policy CS9 of the Local Plan, WAT 2 of the EEP and the requirements of PPS25 as well as polices 1 and 3 of the JCS.
Surface Water Drainage
8.72 Infiltration tests have been carried out on site which confirm that the ground is not suitable for onsite soakaways alone. The surface water would be managed by on site attenuation and restricted discharge to the nearby watercourse (Witton Run). Surface water runoff rates from the site would be limited to greenfield rates. Sufficient on‐site surface water attenuation would be provided to manage the 1 in 100 annual probability storm inclusive of a 30 % allowance for climate change. It is envisaged that conveyance of surface water from the site boundary to the watercourse would be via a new adoptable surface water sewer in Yarmouth Road.
8.73 Currently it is intended that surface water attenuation will be provided with a combination of strategic basins/ponds. These would serve to accept surface water flows from the whole development and thus form the final stage of a Sustainable Drainage System (SuDS) for the site.
Manor Park, Blofield – Planning Statement
Other SuDS elements will be subject to detailed design but are likely to include permeable paving, localised (below ground) storage, with swales being utilised as conveyance where possible.
8.74 The proposals are therefore in accordance with the requirements of policy CS2 and CS3 of the Local Plan and WAT2 of the EEP as well as policy 3 of the JCS
Foul Water Drainage
8.75 The Environment Agency and Anglian Water have been consulted. The formal Pre‐ Development Enquiry to Anglian Water is included with the application. Anglian Water have confirmed that at present there is capacity in the network and at the Whitlingham Sewage Treatment Works. AW have stated that they will determine the extent of necessary expenditure for upgrading and extension works to the network. This will be undertaken as part of the detailed design reserved matters stage.
8.76 As such the scheme now addresses one of the reasons for refusal of the previous applications. It therefore meets with GS3 of the Local Plan. It is also in accord with WAT2 and WM6 of the EEP.
Water Abstraction
8.77 This has been identified as a key issue for major growth in the Greater Norwich area owing to the likely impact on the River Wensum Special Area of Conservation and water supply constraints at Costessey abstraction point. The parties concerned Environment Agency, Anglian Water and Natural England submitted a statement of common ground to the EiP for the JCS setting out a way forward. This means water abstraction would be maintained at historic levels and Anglian Water has stated it is confident that JCS growth proposals up to 2015 can be accommodated (EiP document RF62 Further Statement from Anglian Water). This is referenced in the Environmental Screening Opinion letter dated 23 December 2010 which confirms that water supply for the site is not an issue in principle. Further a Pre‐Development Inquiry to Anglian Water, included with the application, confirmed there is sufficient water resource capacity and the site could be supplied from the existing main in Globe Lane.
8.78 The scheme would include measures to minimise water demand and maximise efficiency. These would be part of the reserved matters details, meeting the Code for Sustainable Homes and building regulations approval.
8.79 This approach to water supply is in keeping with policy CS3 and ENV23 of the Local Plan, policies 1 and 3 of the JCS and WAT2 of the East of England Plan.
Contamination
8.80 In accordance with Council requirements a land contamination assessment has been submitted. This concludes that the risk of contamination is very low. This accords with GS3 of the Local Plan.
Sustainability and Renewable Energy
8.81 A Sustainability Statement accompanies this application. This demonstrates that this is a sustainable site for development and that the scheme can be built to meet sustainable objectives and policies in the development plan. The details of the layout and the design of the built form will
Manor Park, Blofield – Planning Statement
ensure that policies in relation to addressing climate change, reducing carbon emissions, renewable energy and protecting environmental assets can be met. These are contained within policies GS2 and ENV1 of the Local Plan, but more particularly ENG 1, WAT2 and WM6 of the EEP and policies 1 and 3 of the JCS.
Impact upon Trees and landscape
8.82 A detailed landscape and visual impact assessment was undertaken and is included with the application. The site is not within but is adjacent to an Area of Landscape Value, see Landscape and Visual Impact Assessment. The development will ensure that the natural environment including the special qualities of the Area of Landscape Value are protected and enhanced in accordance with policies ENV5 and ENV8 of the Local Plan. ENV1 and ENV2 emphasise the importance of protection of landscape and green infrastructure. A detailed landscape strategy would form part of the reserved matters application.
8.83 There are no trees within the site. The proposed development gives the opportunity to introduce an extensive landscape setting for the scheme and contribute to the quality of the public realm. The detail would be part of the reserved matters submission. The extent of the open space on site gives ample opportunity for a substantive area of natural landscape both formal and informal. The masterplan gives an indication of the opportunities for landscaping within the built areas.
Impact upon Biodiversity and protected species
8.84 The site is in agricultural use as a single field with some limited boundary hedges and trees. The Ecological Assessment concluded that the site has limited ecological value. This proposal gives an opportunity for enhancement of the biodiversity of the site and immediate area in accordance with ENV 5 of the Local Plan and ENV3 of the EEP.
Planning Obligations
8.85 It is acknowledged that the development proposals will require contributions to meet the requirements of the Council’s Planning Obligations Strategy in accordance with development plan policies of the Local Plan, the East of England Plan and emerging JCS. The Heads of Terms for the S106 are likely to include measures to address the following through on or off site works or contributions to:
. Affordable housing provision
. Transport Infrastructure
. Recreation provision and Public Open Space – dedication and management
. Education provision
. Fire hydrants
. Libraries
. Community development
Manor Park, Blofield – Planning Statement
. Waste / recycling
. Monitoring charges
Manor Park, Blofield – Planning Statement
9.0 CONCLUSIONS
9.1 This assessment of planning policy has clearly shown that the Council as part of its LDF ‘Site Allocations’ investigations consider the site suitable for development as a consequence of its overall sustainability.
9.2 Although the application, at the time it is lodged, may be a departure from the adopted Local Plan, by the time it is determined will be in accordance with the JCS as this identified Blofield as a Key Service centre where growth is appropriate. In any event the application has demonstrated that this site has few constraints on development and could be brought forward quickly.
9.3 The development proposed on this site is considered to be appropriate for a mixed use development of housing and employment of this size because:
. There is an acknowledged shortage of homes in this area;
. National policy (set out in PPS3) requires Broadland to have a 5 year supply of housing. The district supply is well below this;
. Blofield is identified as an area for housing growth;
. This site is adjacent to the settlement boundary and well located in terms of access to village services and facilities;
. The scheme would not have an adverse impact on the highway network;
. There is a recognised shortage of small business units in rural centres. This site accommodates this type of employment floorspace;
. The proposals will assist in supporting local shops and other facilities;
. The water supply and drainage requirements can be managed and addressed;
. There are no natural environment constraints and the proposals are an opportunity to enhance biodiversity;
. There are no infrastructure constraints which cannot be addressed;
. Development is not dependant up on major infrastructure improvements such as NDR, or Postwick Hub or sewage treatment work improvements; and
. This site can be brought forward without delay.
9.4 The scheme has been developed over 18 months and the final proposals are the result of extensive discussions with Council officers and statutory authorities. The views of local residents and key stakeholders have been sought through a variety of public consultation exercises and have informed the preparation of the scheme.
9.5 There will inevitably be a noticeable expansion of Blofield and it will mean a significant change to the approach to the village from the west. Nevertheless the impact on existing infrastructure such as roads, drainage and schools will be kept to a minimum with improvements
Manor Park, Blofield – Planning Statement
and upgrades. The scheme will bring a wide range of new homes and employment to the village as well as new open spaces. It will provide increased support for the shops and services in Blofield. Moreover, a high quality design will ensure that the new housing and business area make a positive contribution to the village.
Manor Park, Blofield – Planning Statement
APPENDIX ONE
APPENDIX TWO