Island Plan Review: Strategic Options Paper Green Paper (July 2008)
Executive Summary Message from the Minister for Planning and Environment ii
Introduction iv
How to use this document viii
Strategic and significant planning issues x
Background Papers
1 Background and context 2 1.1 Purpose of this document 2 1.2 Island Plan and the need for review 2 1.3 Island Plan Review process 4
2 Population and the ageing society 8 2.1 Ageing society 10 2.2 Planning assumption 13
3 Spatial strategy 16 3.1 Introduction 16 3.2 2002 Island Plan spatial strategy 16 3.3 Performance of the spatial strategy 19 3.4 Options for the location of new development 20 3.5 Longer perspective 23
Island Plan Review: Strategic Options Paper Green Paper (July 2008) Contents
4 Natural resources 26 4.1 Introduction 26 4.2 Protecting Jersey's landscapes 26 4.3 Jersey's coast 28 4.3.1 Recognising and protecting seascape character 29 4.3.2 Maintaining and promoting access to the coast 30 4.3.3 Shoreline management 30 4.3.4 The Marine Protection Area 31 4.3.5 Reclamation 31 4.3.6 Managing aquaculture 31 4.4 St. Ouen's Bay 32 4.5 Biodiversity and the natural environment 33 4.5.1 Sites of Special Interest 33 4.5.2 Key habitats 34 4.6 Jersey's water cycle 34 4.7 Energy 35
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5 Built environment 40 5.1 Introduction 40 5.2 Regeneration and enhancement of the built environment 40 5.3 Promoting better design 41 5.3.1 Design policy and guidance 42 5.3.2 Design skills 43 5.4 Managing Jersey's heritage assets 43 5.4.1 Identifying and protecting the historic built environment 43 5.5 Sustainable design 46 5.5.1 Density of development 47 5.5.2 Public open space 48 5.5.3 Re-use and repair of buildings 52 5.6 Role of St Helier 52 5.6.1 Regenerating St Helier 53 5.6.2 St Helier Waterfront 56 5.6.3 La Collette, the commercial port and inner harbours 58 5.6.4 The town centre and retail development in St Helier 59 5.6.5 Town Park and public open space 60 5.6.6 Land assembly 60 5.6.7 Higher density development and conversion 61 5.6.8 Tall buildings in St Helier 62 5.6.9 Parking and road access strategy for St Helier 64 5.7 Other urban communities 65
6 Economic growth and change 68 6.1 Introduction 68 6.2 Offices 69 6.3 Industrial floorspace 71 6.4 Retail 73
Island Plan Review: Strategic Options Paper Green Paper (July 2008) Contents
7 Agriculture and the rural economy 82 7.1 Introduction 82 7.2 Current position 83 7.3 Agricultural land 86 7.4 Linked or enabling development 88 7.5 Redundant and derelict glasshouses 89 7.6 Agricultural buildings 91 7.6.1 Agricultural building capacity 91 7.6.2 New and extended agricultural buildings 92 7.6.3 Conversion/redevlopment of redundant agricultural buildings 92 7.6.4 Farmhouses and agricultural staff accommodation 93 7.7 Farm shops 93 7.8 Rural recreation 93 7.9 Fisheries 94
8 Visitor economy 98 8.1 Introduction 98 8.2 Current policy context 99 8.3 Accommodation 99 8.4 Key sites 101 8.5 Golf courses 101 8.6 Marinas 102
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 9 Housing 104 9.1 Introduction 104 9.2 Current Island Plan performance 104 9.3 Housing demand 106 9.4 Housing supply 110 9.5 How much housing development might be needed 114 9.6 Affordable housing 115 9.7 Unqualified sector 120 9.8 Housing density 121 9.9 Dwelling mix 122
10 Travel and transport 126 10.1 Introduction 126 10.2 Planning more to travel less 127 10.3 Providing alternatives 129 10.3.1 Cycling and walking 129 10.3.2 Public transport 130 10.4 Influencing demand and travel choices 132 10.4.1 Parking 133 10.5 Road network 135 10.5.1 Network capacity 135 10.6 St Helier Harbour 136 10.7 Jersey Airport 136
11 Minerals 140 11.1 Introduction 140 11.2 Policy context 140 11.3 Resource availability 142 11.4 Current mineral extraction 144 11.5 Other alternative sources 147 11.6 Planning for the future 149 11.7 Options 150
Island Plan Review: Strategic Options Paper Green Paper (July 2008) Contents
12 Waste 160 12.1 Introduction 160 12.2 Current position 160 12.3 Planning for the future 166 12.4 Current planning context 167 12.5 Constraints on future waste management options 168 12.6 Planning for the next generation of inert waste sites 169 12.7 Options for disposal of inert waste in future 171 12.8 Liquid waste 177
13 Delivering the Plan 180
14 What next and how to comment 184
Island Plan Review: Strategic Options Paper Green Paper (July 2008) Message from the Minister for Planning and Environment
Island Plan Review: Strategic Options Paper Green Paper (July 2008) i Message from the Minister for Planning and Environment
Message from the Minister for Planning and Environment
A major consultation on planning for the future of the Island - the protection of its coast, countryside and heritage; the development of its town; providing for new homes, jobs and shops - is now under way. This Green Paper - the Island Plan Review: Strategic Options Paper - sets out the issues, evidence and options for the way forward and seeks to focus discussion on some of the most significant issues that the new Island Plan will need to address.
Planning is about safeguarding our Island’s future and meeting the needs of today. We need to make decisions about how we deal with many difficult and contentious issues that will shape Jersey's future. On a small island, there is a need to ensure that every inch of land is used wisely to protect Jersey’s special character. The new Island Plan will give us the framework to do that.
Where there are difficult decisions about meeting our needs for new housing, employment, and the disposal of waste, for example, it is imperative that we are aware of and have considered all of the options and their consequences. It is important that these issues are matters of debate and that is why as many people as possible should get involved, and should comment on this Green Paper.
I am committed to do this in an open and transparent way, listening to everyone’s views, so as far as possible, a clear consensus can be ultimately reached by the States. This process, and the content of deliberations, will be the subject of consideration by an independent inspector, so it is important that proposals and options are clearly and thoroughly scrutinised.
Discussions with key stakeholders have already begun, and have informed the preparation of this Green Paper. You are encouraged to get involved and to comment on this document. You can do that on-line, in writing or at one of the exhibitions or surgeries that is to be held with the Island Plan team.
I look forward to hearing your views and taking these to the next stage of the process of informing the draft Island Plan.
Senator Freddie Cohen Minister for Planning and Environment
July 2008
ii Island Plan Review: Strategic Options Paper Green Paper (July 2008) Introduction
Island Plan Review: Strategic Options Paper Green Paper (July 2008) iii Introduction
Introduction
This consultation Green Paper aims to help focus discussion on the strategic planning issues and future choices for Jersey: it will help prepare a new Island Plan.
The Island Plan is important because it will provide the framework for land-use planning in Jersey up to 2018: the new Plan will help shape the future of the Island.
It is imperative that there is a debate about the strategic and significant planning issues and choices facing Jersey in the preparation of the Plan. This consultation paper is an early, but important, step in providing Islanders with an opportunity to begin to consider these matters and to express their views about them.
The process
The development of the new Island Plan provides numerous opportunities to engage with the process and to shape the outcome.
The publication of this Green Paper is at the beginning of this process of engagement. There will be many other opportunities to comment on the development of the new Island Plan. This Green Paper itself has been developed following an intensive information review period, including discussions with key stakeholders. This, together with the outcome from consultation, will inform the content of a White Paper - Draft Island Plan, to be published in early 2009.
The Draft Island Plan will be subject to extensive and rigorous public consultation, including an independent review from an external inspector. The States will then debate the revised Plan towards the end of 2009.
iv Island Plan Review: Strategic Options Paper Green Paper (July 2008) Project Timetable
Island Plan Review: Strategic Options Paper Green Paper (July 2008) v Introduction
vi Island Plan Review: Strategic Options Paper Green Paper (July 2008) How to use this document
Island Plan Review: Strategic Options Paper Green Paper (July 2008) vii How to use this document
How to use this document
This Green Paper seeks to identify and set out, as succinctly as possible, the most significant strategic planning issues about which decisions will need to be made to inform the preparation of the new Island Plan. It poses a series of questions about these issues, to which you are invited to comment. The paper is in two parts:
Part Content
I. Executive summary a synopsis of the most significant strategic planning issues
II. Background papers a more comprehensive review and analysis of, and questions about, the strategic planning issues that will need to be considered in the preparation of the new Island Plan
It is not expected that everyone who wishes to take part in this consultation will want to read all of this material and answer all of the questions: you do not have to. You may respond to as many or as few of the questions as you wish, but we want you to take part.
The Green Paper is available online (http://consult.gov.je/portal), where responses to the questions can be completed and submitted. We would encourage as many people as possible to use this way of responding to the Green Paper.
The Green Paper is also available in hard copy, together with a separate summary document containing all of the questions to enable people to submit their responses in writing, should they prefer. These should be submitted to:
Island Plan Review Team Planning and Environment Department, South Hill, St. Helier, JE2 4US A series of workshops will also be held where discussion about the issues can be entered into and peoples' views captured. These will be advertised in the local press and publicised on the States of Jersey Island Plan Review web site. (1)
The consultation period extends from 10 July - 02 October 2008.
If you have any queries, or require further information, please contact the Island Plan Review Team e: [email protected] or t: 448443
1 http://www.gov.je/PlanningEnvironment/IslandPlanReview/default.htm viii Island Plan Review: Strategic Options Paper Green Paper (July 2008) Strategic and significant planning issues
Island Plan Review: Strategic Options Paper Green Paper (July 2008) ix Strategic and significant planning issues
Strategic and significant planning issues
BACKGROUND AND CONTEXT
There is a legal requirement to review the Island Plan every ten years. The current Island Plan was approved by the States in July 2002 but the rate of change in many spheres of Island life over the last six years has necessitated an early review of the Plan. This has been identified, and afforded a high priority, by the Council of Ministers in the States Strategic Plan 2006-2011.
The new Island Plan, which will become the Island Plan 2008, will set the framework for development in Jersey to 2018. It needs to be able to respond to anticipated changes over this time period. The significant and strategic issues that will need to be addressed are summarised, as follows.
POPULATION
In Jersey, as in most developed economies, people are living longer and the birth rate is declining. As a result of this, the make-up of the population is changing and there is an increasingly large proportion of older people relative to a decreasingly small proportion of younger people: this means that Jersey is becoming an ageing society.
Other changes are happening too, and the trend of a declining household size - which is the number of people living together to form a household - is continuing, as the proportion of single people in the local population, such as divorcees or widowers, increases.
These shifts in the composition of the Island's population are important because they have implications for development and the use of land. In setting a framework for development in Jersey over the next ten years, and seeking to plan and make provision for what the Island needs or aspires to over that period - particularly in terms of the need for homes and the specific requirements of economic growth - there is a need to make some assumptions about how the population is likely to continue to change over the Plan period to 2018.
Ageing society
Critically, the ageing society poses challenges, in particular, about the ability of the shrinking proportion of the population of working age to support a growing and increasingly dependent non-working proportion of the population that is not of working age (the dependency ratio). This has particular implications for the Island's tax-base and government revenue - and the quality and range of public services which Islanders presently have access to. The States of Jersey has started to examine how a long-term strategy might be developed to best manage the implications of this demographic shift. The options identified so far are;
Further growth in the economy. Raising the States pension age. Resident population pays more. Allowing more people to live in Jersey.
x Island Plan Review: Strategic Options Paper Green Paper (July 2008) It is unlikely that any of these options will be enough on their own to meet the challenges of the ageing society. Instead, there is a need to think about how the different options can be combined to offer a solution that will work in the long term.
The option of allowing more people to live in Jersey has the most relevance to the review of the Island Plan in terms of policies and strategic options for the future. Increasing the size of the working population by allowing increased immigration could help offset the decline in economic activity caused by the fall in the working age population. It would also help to address the change in the balance of the population and the adverse impact this would have on society. If the Island does permit inward migration, the impact will depend on the numbers involved.
The States has undertaken major public consultation exercises about the implications of the ageing society (1) (2) Inward migration was the most contentious issue raised in the consultation. However, as people discussed and weighted the different options at both the public and youth Imagine Jersey 2035 events, many arrived at a reluctant acceptance that controlled inward migration may be necessary in the future. The concerns raised in response to the inward migration option focused on the impact that migration would have on the character of Jersey’s society, culture and countryside, and how it would affect the environment.
Planning assumption
The States of Jersey needs to consider and determine a strategy to respond to and best manage the demographic shift in the Island's population, represented by the ageing society. In doing this, it will need to address the issue of in-migration and the Island Plan will have to respond to any such States decision: it is likely that this matter will not be addressed until early 2009, after the new States is formed following elections in the Autumn of 2008.
Because of this, it is necessary to make some planning assumptions in the preparation of the new Island Plan. It has to be made clear, however, that any planning assumption about in-migration is not a foregone conclusion or 'fait accompli': the Island Plan review process will not lead the determination of any in-migration strategy for the Island - that is a matter for the States to determine within the context of a debate about the ageing population. The Island Plan will have to follow whatever the States determine, and the strategies, policies and proposals within the draft Plan, to be published in early 2009, may need to be subsequently reviewed to reflect the States ultimate deliberations.
On the basis of the planning assumption made in the 2002 Island Plan (of in-migration of 200 heads of households per annum); of the actual recent trend in net in-migration (of just below 200 h/h per annum); and with regard to the acceptance of some potential in-migration at the Imagine Jersey 2035 participative events, it is considered appropriate to adopt - purely as a planning assumption in the preparation of the Plan - the +250 heads of households/annum (540 people) scenario. And it is this that has been used to assess significant issues, such
1 Imagine Jersey 2035: preparing for the future 2 Imagine Jersey 2035: Youth Event
Island Plan Review: Strategic Options Paper Green Paper (July 2008) xi Strategic and significant planning issues
as, for example, the level of provision that needs to be made to meet the potential housing demand over the Plan period, albeit that housing demand for all inward migration scenarios is presented.
SPATIAL STRATEGY
Of fundamental importance to the whole Island Plan is the spatial strategy: this is the strategy that will determine where in the Island development should be located. It will provide the basis for the evaluation of land proposed for development in the new Island Plan, as well as being used, by incorporation in the new policies of the Plan, to evaluate development proposals that come forward during the Plan period.
The 2002 Island Plan was based on a spatial strategy with the following components:
2002 Island Plan spatial strategy
development within main built up area of st. Helier
extension to the main built-up area; and
key urban and rural settlement development and expansion
The spatial strategy of the 2002 Island Plan has been brought into effect, most evidently, in response to the need for more land for housing, in two ways;
rezoning land for housing on the edge of the existing built-up area; reviewing and redefining the built-up area boundary.
It has performed well in meeting, in particular, the Island's demand for homes, as identified in 2002. The application of the 2002 Island Plan spatial strategy - represented by planning applications for housing on greenfield land on the edge of the built-up area - has, however, generally been met with much voluble public resistance. This has inevitably involved the concern of existing local residents about the impact of new development upon their local environment; but it has also involved a wider, genuine concern about the erosion of the Island's countryside.
Reflections on the performance of the 2002 Island Plan together with recent public and political deliberation (3) (4) (5) would suggest that a preferred spatial strategy is one that focused development, as much as possible, in the existing built-up area of the Island, with a particular emphasis on concentrating development in St Helier. This is based on the desire to regenerate the town whilst, at the same time, preventing the further encroachment of development in the countryside.
3 http://www.gov.je/ChiefMinister/Communications+Unit/TheAgeingPopulation.htm 4 Keeping Jersey Special: a vision for a greener Island speech by Chief Minister, 02 June 2008 5 Imagine Jersey 2035: Youth Event xii Island Plan Review: Strategic Options Paper Green Paper (July 2008) Of particular relevance is the current and future need for housing. The current view is that the demand for homes over the lifetime of the Plan can be met by the potential to provide homes from within the existing built-up area and on brownfield land. This is based on a number of assumptions about the level of demand for homes over the Plan period; and the availability of land coming forward to be developed for housing. It is also based on the premise that we can use land more efficiently and effectively - by building homes at a higher density than we are presently - in the built-up area: and by developing some brownfield land, even when this is in 'the countryside'.
If all of the Island's requirements for development to 2018 are to be met through a new spatial strategy that focuses development in the existing built-up area and on brownfield land, without any review of the built-up area boundary, this will have implications for the form of new urban development. In particular, there will be implications for the density of development in urban areas; and there will be implications for the provision of amenities, such as parking and the provision of private amenity space, as integral elements of new development.
The identity and character of the Island's rural parish communities is part of what makes Jersey unique and special. The new Island Plan may need to account for some development here to support and sustain this feature of Island life. The potential for some limited, small-scale new development - in the northern, rural parishes in particular - to protect and maintain the viability and vitality of parish life may also, therefore, be a potentially justifiable element of a new spatial strategy.
Longer perspective
Whilst the Island Plan will seek to provide land to meet the identified requirements of the Island over the 10 year Plan period, it is important that the Island Plan Review process gives some consideration to a longer, more strategic timescale as to where future development needs might be met. This requires a view beyond a 10 year time frame and an identification of potential strategic contingencies for land and development opportunities, should the need for additional options emerge, during the Plan period.
Development potential of St Helier Harbour
The future development of St Helier Harbour - including land at the commercial port, La Collette and the inner harbours - is currently the subject of a feasibility study and has identified the potential of significant new development opportunities related to the future of the port. This has the potential to involve;
the relocation of the commercial port and all of its associated activities to La Collette, where there is significantly deeper water; the relocation of the fuel farm at La Collette - offshore, or as an extension to the land reclamation site - to reduce the risk for relocated land uses from the hazardous installations; the redevelopment of Elizabeth Harbour and new development potential at the inner harbours.
Island Plan Review: Strategic Options Paper Green Paper (July 2008) xiii Strategic and significant planning issues
There are two principal drivers that might support the case for consideration of this as a strategic option for the potential future provision of land and development opportunities related to;
the need for a new commercial port and the wider community benefit that this would bring; the creation of a significant development opportunity at the Elizabeth Harbour (of up to 34 acres/ 77 vergees) with the potential to create a new waterfront quarter for St Helier; to connect the town to the sea; and to provide between 600-800 homes:
There may also be another factor which may provide additional justification to further explore this potential strategic option;
further land reclamation may represent an option for the disposal of Island's inert solid waste beyond 2018, and the further expansion of reclaimed land at La Collette would also optimise the use of the reclaimed land at La Collette for port and port-related operations.
The concept of relocating the port, and its associated implications of relocating the fuel farm, raises significant environmental challenges for Jersey's south-east coast, which is recognised and designated as a wetland of international significance under the Ramsar Convention.
NATURAL RESOURCES
Coast and countryside
Jersey's countryside and coast are prized assets. In the context of the Island Plan Review, there is an opportunity to consider whether the existing planning policy regime adequately covers all areas of the coast and countryside which warrant protection and also whether the existing policy regime is sufficiently robust. In particular, there are issues related to potential extensions of countryside protection; the protection of the undeveloped coast and key habitat types; and whether planning policy should consider the protection of the Island's 'seascape'.
The management of Jersey's coastline presents many challenges related to the sustainable development and wisest use of this sensitive and vulnerable resource, and this paper raises the issue of future land reclamation; sea defences and the regulation of marine shellfish farming.
National Park
An issue arising from the application and review of the current protection regime at St Ouen's Bay is whether a National Park should be declared, focusing on this area and also potentially including other important areas along Jersey's west coast where, through their exposure to westerly winds, they are defined by a wild and distinctive character, quite different to the Island's other coasts. Such an area could potentially include Corbiere headland; Ouaisne heathland, dunes and wetland; and the commons of Portelet and Noirmont to the south; and Les Landes and Plemont to the north.
xiv Island Plan Review: Strategic Options Paper Green Paper (July 2008) Energy
The Energy Green Paper has considered the overall energy strategy in detail and specific proposals for decarbonising the local economy through a long-term move to renewable energy by 2030 have been put forward for debate in the Energy White Paper. It is, however, appropriate here to consider the implications of any emergent energy policy for land use planning, particularly in respect of the potential for and impact of large utility-scale energy infrastructure. It is important to note that, notwithstanding any new planning policy specifically related to the provision of new energy infrastructure, the exact location of any proposed installation of whatever technology would require an Environmental Impact Statement which would address the detailed and specific impacts and necessary mitigation required for that site.
BUILT ENVIRONMENT
The built environment increasingly provides the physical context within which most Islanders live, work and meet. Accordingly, there is a need to focus greater attention on Jersey's urban areas - including the town and its suburbs; the coastal strip; and the Island's other urban and smaller rural settlements.
The Island Plan Review provides an opportunity to look at the quality of a good urban environment, and to highlight issues associated with the quality of design; protecting our built heritage assets; and protecting the historic character of Jersey's urban areas. The sustainability of design is also an important consideration and the provision, enhancement and protection of public open space will become increasingly significant. There are some key challenges emerging for the built environment in the review of the Island Plan.
Role of St Helier
There is potential for St Helier to become a place of choice to live and the focus for new development in the Island; not least because there is significant opposition in the Island to the principle of building homes on undeveloped land in the countryside.
It is inevitable that the development of the St Helier Waterfront will change the shape and the character of what we presently know as the town. This presents an opportunity to manage this process of change and to regenerate those parts of the town that are likely to undergo most change. Work done to explore the regeneration of St Helier concludes that residential development is likely to be the principal ‘driver’ of regeneration in the older, established parts of town. The role of the town centre needs to be maintained in the face of various challenges but it may require redefinition to reflect change.
The Minister is keen to kick-start regeneration of St Helier, and is especially keen to encourage property owners and developers to consider how they can produce high-quality, well designed development at higher densities, while at the same time benefiting the St Helier community.
In this respect, the potential role of tall buildings in the town requires consideration. There is a need to consider whether more and taller buildings should be encouraged and, in so doing, to account for the impact this might have for the character of the town and the views of local landmarks.
Island Plan Review: Strategic Options Paper Green Paper (July 2008) xv Strategic and significant planning issues
Density of development
A more sustainable approach to the development and redevelopment of land and the adoption of a spatial strategy that focuses new development into the existing built-up area, particularly St Helier, requires the application and delivery of higher development densities and greater housing yields, than those currently being achieved. If done well, imaginative design and layout of new development can produce a good quality, higher density of development - representing a more efficient use of land - without compromising the quality of the local environment.
The achievement of higher densities might involve introducing a greater level of flexibility on matters such as the provision of amenity space and on-site car parking standards to encourage the redevelopment or conversion of sites and buildings in the town: the introduction of minimum density standards would be one way of achieving this.
An important facet of urban living is access to good quality public open space. The Island Plan will need to provide and protect open space and there may be a need for developers to contribute towards its provision, maintenance and enhancement, through planning gain.
Historic built environment
Historic buildings form the backdrop to our daily lives. In St Helier, in particular, the feel and character of the place is often about the product of the collective contribution of a number of smaller buildings or features, as well as individually distinct architectural structures. There is a need to identify and recognise the role and value of the historic built environment and to consider how this might be protected. The role and value of the historic built environment in the regeneration of St Helier, in particular, is an issue of considerable significance for the Island.
The historic character of other areas outside of the town - the Island's village, harbours and rural hamlets - also needs to be recognised and protected.
Traffic management in St Helier
The principles for traffic management in the town are to ensure that vehicular traffic circulates freely on the ring-road and radial routes connecting with it, but that within the main shopping areas unnecessary traffic is excluded to improve the environment for pedestrians. This does not mean full pedestrianisation of streets - as it is necessary for certain vehicles to penetrate the town centre, such as disabled driver vehicles, buses and taxis, and service vehicles - but it would likely involve some restriction of cross-town access.
ECONOMIC GROWTH AND CHANGE
One of the key actions from the Council of Minister’s new Anti-inflation Strategy is that the Economic Development Minister is to advise the Planning and Environment Minister on how the new Island Plan can better facilitate productivity improvements. In particular, how the planning process can take account of market signals to ensure that land is put to its best economic use. xvi Island Plan Review: Strategic Options Paper Green Paper (July 2008) Retail
To inform land-use planning decisions and the review of the Island Plan, there has been a requirement to better understand the supply and demand of local food (convenience) and non-food (comparison) retailing in Jersey, and to identify the existing capacity and potential requirement of this sector to grow over the Plan period. In response to this, specific research has been commissioned as part of the Island Plan Review.
Food retailing
Retail capacity modelling by retail consultants DTZ, based on the results of a detailed Household Interview Survey of shopping patterns in Jersey, suggests that there is no forecast quantitative capacity for additional foodstore floorspace up to 2015. In quantitative terms, therefore, there is no forecast need for a new food superstore in the Island for the foreseeable future.
Although the DTZ report indicates that the current floorspace capacity of the food retail sector meets the forecast quantitative demand there may be a qualitative need to regenerate the Island's food retail offer. A recent study (6) by the Jersey Competition Regulatory Authority (JCRA) concluded that the entry of a large supermarket operator into the food retail sector would be economically beneficial.
In light of the evidence from recent findings, however, there is a need to determine the approach that is to be adopted for food retailing in the new Island Plan over the Plan period to 2018, recognising that whilst there is no need for additional capacity on pure quantitative grounds there may be a qualitative need to allow competition and Jersey's food retail offer to regenerate. Specifically, this might involve the development of policies and proposals which identify sites or areas where there would be a presumption in favour of food retailing, possibly to the exclusion of other uses, if it is considered justifiable to do so on the basis of addressing issues of promoting greater access to services and goods; and in tackling social exclusion, through the planning system.
Comparison shopping
The retail analysis of shopping patterns and retail capacity would suggest that there may be a longer-term justification for the provision of additional retail capacity in the comparison goods sector towards the end of the Plan period.
The location of any such development will be critical, so as to ensure that it directly links to and reinforces the existing prime retail area, rather than being developed as a separate and competing retail destination. One of the areas already identified, in the St Helier Development and Regeneration Strategy, as having potential to extend the town centre's comparison goods retail offer for retail development is the area around Broad Street, with the potential for the development of links between King Street and the Esplanade.
6 http://www.jcra.je/pdf/080331%20Retail%20Report%20Final%20Public.pdf
Island Plan Review: Strategic Options Paper Green Paper (July 2008) xvii Strategic and significant planning issues
Land assembly and development in the town centre poses significant challenges and will likely have longer lead-in times than development elsewhere. It is important that the Island Plan seeks to ensure that the longer-term potential of further retail development, that would support and enhance the town centre, whilst also serving to connect it with the St Helier Waterfront, is safeguarded during the Plan period.
Light industry/warehousing
There are significant demands for quality floorspace in all of the categories but currently insufficient supply. A key issue is whether additional land is zoned to meet this demand against other competing uses such as housing or other higher value land uses.
Offices
A significant new office development area at Esplanade Square is being planned which will meet current demand and enable secondary office space to be utilised for other uses such as housing, although analysis has shown that these numbers will not be high in the short to medium term.
AGRICULTURE AND THE RURAL ECONOMY
Agriculture may no longer be a major contributor to the Island's economy, but it is still of considerable importance in terms of its cultural, social and environmental value.
The industry has undergone considerable restructuring with a reduced number of farms and increased sizes of farmsteads, with the corresponding requirement for new, larger sheds, which in turn creates pressure to re-use or redevelop redundant agricultural buildings. The Island’s horticultural industry is also experiencing considerable economic pressures and faces the prospect of extremely difficult times ahead, as energy costs continue to rise.
Land quality and protection
There are new development pressures in the countryside. The protection of agricultural land and the ability to understand the land quality is necessary to best manage change; to ensure the continued viability of agriculture and; to avoid the irreversible loss of land to non-agricultural development.
Rural Economy Strategy
The difficulties and challenges facing arable, dairy farming and the horticultural industries were raised in the Rural Economy Strategy in 2005. The strategy promotes enabling or linked development as a means of facilitating continued investment by farmers in the future of these industries. Interim policy has already been introduced and this will need to be integrated into the new Plan.
The provision of accommodation and new, fit for purpose, agricultural buildings will continue as farmsteads expand and this in turn will lead to the prospect of conversion or redevelopment of redundant agricultural buildings. Today there is a demand for very large agricultural sheds
xviii Island Plan Review: Strategic Options Paper Green Paper (July 2008) in order to facilitate efficient modern day farming methods. An important element in the decision making process will be the requirement to test the business case for new agricultural accommodation.
The development of farm shops also raises challenges. Their role of encouraging farm diversification and the growth of local markets for local produce needs to be reviewed against their growth in size and number; the considerable expansion of the range of goods sold; and their impact on shopping patterns and the health and viability of existing local shops and village centres.
Opportunities to improve passive recreation need to be explored; however the 'restricted' nature of access to the countryside has meant that there are relatively few footpaths except on the coast and in some valleys. It is an objective of the Countryside Renewal Scheme to widen countryside access for passive recreation.
Finally, the increase in oyster and mussel farming has seen a requirement for land side facilities on the east coast and there remains intense competition for limited space at the harbour in support of the commercial fishing fleet. New fish farming initiatives are emerging and consideration may need to be given to their requirements, as well as the needs of ancillary services, such as marine engineering, which support commercial fishing activity.
VISITOR ECONOMY
Tourism has been in decline but has undergone significant structural change and has had considerable new investment in recent years: in 2007 visitor numbers increased by 5%. It is acknowledged that a healthy tourism industry is not only beneficial to the diversity of the Island's economic base, but also provides and contributes to infrastructure and services of benefit to other industries in the Island, and to the quality of life of local residents.
There is a need, therefore, to consider how the new Island Plan could support tourism, and this Green Paper raises issues associated with the development pressures on existing hotels sites; the need for new visitor accommodation and the potential for this outside St Helier and; the potential for new visitor facilities such as golf courses and marinas.
HOUSING
The performance of the 2002 Island Plan has been exceptional: the delivery of homes in the qualified sector exceeded the 2002 Island Plan target of 90% provision of 2,860 homes by delivering a total of 3,149 homes between 2002-2006.
Future requirements
The evidence suggests that, in overall terms, the current housing land availability situation remains reasonably healthy and it is suggested that this can be maintained into the future. It should be possible to balance identified requirements for new homes over the next 10 years with a sufficient supply of land and development opportunities for new homes from existing sources of housing supply (e.g. existing planning permissions, opportunities for development at the Waterfront and windfall developments in the built-up area) and from sites already zoned specifically for Category A or sheltered/retirement housing purposes.
Island Plan Review: Strategic Options Paper Green Paper (July 2008) xix Strategic and significant planning issues
Housing demand figures are based upon current population figures and include the 2007 housing needs data. Housing supply figures generally assume the development of homes at a higher density, such as that found in typical town areas, rather than lower density family home developments associated with recent category A zoned sites.
These figures do not include moving the port which could add a potential 600-800 units to the total level of the supply of housing land. They also do not account for any release of greenfield land for housing in the Island's rural parish communities, although some limited development here may be required, which will have the potential to further supplement the supply of homes over the Plan period.
Population Scenarios
+150 +250 +325 Supply/Demand 2008- 2014- 2008- 2014- 2008- 2014- 2013 2018 2013 2018 2013 2018
Total Estimated 3,000 1,300 3,600 1,900 4,000 2,300 Demand
Total Estimated 3,200 2,500 3,200 2,500 3,200 2,500 Supply
Net +200 +1,200 (-400) +600 (-800) +200 Requirement
Totals +1400 +200 (-600)
Comment Potential supply would Potential supply would Potential supply
significantly exceed marginally exceed would not meet
potential demand potential demand potential demand
Net housing requirements 2008-2013
In general terms, therefore,it is considered that there are no grounds for any large-scale release of additional land to meet the demand for homes likely to be generated by a level of in-migration of up to +250 heads of household per year to 2018 (the +250 population scenario).
It must be noted that the supply figure includes the development of brownfield land, some of which is not contained within the built up area and may, in some cases, require rezoning or changes to the existing built up area boundaries in order to realise their delivery.
xx Island Plan Review: Strategic Options Paper Green Paper (July 2008) Affordability
The Jersey Homebuy initiative is to be considered by the States. It is a proposal which allows the purchaser to buy the whole property, but initially pays only such part of the first time buyer full market price as may be determined by the Minister for Housing. The legal arrangements regulating the unpaid balance of the full market price must be approved by the Minister and the property must remain in the first time buyer market in perpetuity. If approved by the States, this mechanism could help more people to afford their own home.
Currently affordable ‘Category A’ housing is only secured on zoned sites: the provision of these sites, made in the 2002 Island Plan, is soon to be exhausted. Reflections on the rezoning of land for housing in the 2002 Island Plan - which met with much public resistance from existing residents next to rezoned housing sites - and the outcome from the Imagine Jersey 2035 Event and the Imagine Jersey 2035 Youth Event strongly suggest that there is little public appetite for more new housing on greenfield land, even if it is for 'affordable' homes. In such circumstances, there will be a need to secure affordable housing as a proportion of development on all 'windfall' sites (that is sites which are not specifically zoned for housing and which come forward and are developed through the normal planning process) which would reduce the need for greenfield land for such housing.
Housing mix
The 2007 Housing Needs Survey has revealed surpluses and deficits in the availability and access to different types and sizes of housing. Currently no dwelling mix policy is in place and developers may construct housing types and sizes in response to their own perception of market demand. If a dwelling mix policy - which set out the type of homes (houses or flats) and the size of homes that developers were encouraged to build - were to be introduced it would need to be flexible, taking into account year on year completions of dwellings of different types and sizes.
This could be done through the annual Planning for Homes report, taking into account the current market information. The mixed use principle could be applied Island-wide and, could contain a mix of first time buyer, Jersey Homebuy, social rent family housing, life long housing and open market housing requirements.
TRAVEL AND TRANSPORT
Our ability to travel to, from and around Jersey is critical to the economic success of the Island. The way that we travel also has an effect on our environment, our health and our overall quality of life. The Island Plan is but one part of a comprehensive policy regime affecting travel and transport - other States departments are responsible for management and operational policies for the use of the highway network, parking, public transport, harbours and Jersey Airport - but the new Plan needs to respond to the travel and transport objectives and proposals established by other policy regimes, and to assess them against other planning considerations. The key strategic travel and transport issues, related to land-use planning, are highlighted below:
Island Plan Review: Strategic Options Paper Green Paper (July 2008) xxi Strategic and significant planning issues
Planning more to travel less
There is a clear link between the location of new development and the need to travel. By ensuring that new development is well located to existing services - workplaces, schools, shops and other services, as well as good bus routes - people can be encouraged to travel less and choose to travel in a more sustainable way - by walking and cycling more. To achieve this, the Island Plan would need to focus new development in the Island in or close to existing urban centres.
Parking
The ability to park is fundamental to the use of the private car: the availability of parking at the start and end of each journey is a critical factor in car use. What is known is that if there is a parking space available it tends to be used. Regulating the level of parking provision for new development through the planning process, can influence the demand to travel by car.
Capacity of the road network
It is readily acknowledged that there are a number of areas in the Island where there is a concentration of traffic exceeding the road capacity causing congestion and delay, particularly during the morning, afternoon and evening peaks: Beaumont is particularly prone to traffic congestion. Even if an improved capacity at that junction were to be provided, it is considered that La Route de la Haule between the Beaumont junction and Bel Royal would be unable to carry any additional traffic at peak times as its capacity is constrained by the density of housing, numbers of entrances and junctions, and pedestrian crossings along its length. The two options for easing congestion at Beaumont could, therefore, be summarised as:
reducing the demand for travel through Beaumont, increasing local capacity by changes to the road network Although congestion at Beaumont is costly to the Island’s community it can also be argued that it has a positive effect in that it acts as a disincentive for private car use from the south west. Increasing the capacity of the roads in the Beaumont area could encourage car use, and could result in fewer people being persuaded to use other, more sustainable modes of transport - such as the bus or bike.
The draft Integrated Travel and Transport Plan (7) proposes that a study of traffic circulation in the Beaumont to Bel Royal area will be carried out but that any change to the road network in the area to address congestion would only be justifiable where it secured improvements to public transport through the area and where it did not increase the number of single occupancy cars.
7 Transport and Technical Services Department (2007) Draft Integrated Travel and Transport Plan for Jersey: Action Plan 2007-2011 xxii Island Plan Review: Strategic Options Paper Green Paper (July 2008) MINERALS
Granite and sand are vital natural resources which make a major contribution to the economy of the Island and the quality of life of its citizens. They are used in essential building work on homes, schools and other community facilities and a ready supply must always be available. However, the extraction of minerals has the potential for considerable adverse impacts on the local environment and the health of nearby residents.
There is a need to consider the existing provision in the Island and to examine the options for how best to secure a sufficient supply of minerals to meet the Island’s future requirements, whilst seeking to minimise the impact on the natural environment. Four alternative options are put forward for consideration, including:
Maximising Local Supply (involving expansion of existing quarries); Importation through St. Helier (involving the winding down of existing quarries and the introduction of bulk importation through a new berth and handling area); Concentrating at Ronez (involving the winding down of the two other main existing aggregate quarries and importing sand through St. Helier); Current Mineral Strategy, as amended by recent planning approvals (involving a reduction in local extraction and a gradual move towards more importation to meet half the Island’s future stone aggregate requirements and all of its future sand requirements).
WASTE
There is a need to focus on the challenges faced by the Island in dealing with solid waste, including ‘non-inert’ waste from households, and commercial and industrial premises; and ‘inert’ waste produced by the construction and demolition industry. The chapter examines the ways in which waste is currently managed and how it might be managed more effectively in future, within the framework of the internationally accepted ‘Waste Hierarchy’.
How the Island is to deal with inert waste disposal (and centralised recycling of aggregates) when La Collette II reclamation site comes to the end of its life, is identified as one of the most important land use planning issues to be tackled by the new Island Plan. Two alternative options are put forward for consideration, as follows:
Further land reclamation at La Collette; Terrestrial landfill at existing quarries.
NEXT STEPS
It is proposed that as much as possible of the consultation on this Green Paper is done using the the web based consultation system (http://consult.gov.je/portal), although this will still be used along side the more traditional methods such as the receipt of written representations, public exhibitions and drop in sessions.
If you have any queries or require further information, please contact the Island Plan Review Team e: [email protected] t: 448443.
Island Plan Review: Strategic Options Paper Green Paper (July 2008) xxiii Strategic and significant planning issues
xxiv Island Plan Review: Strategic Options Paper Green Paper (July 2008) 1 Background and context
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 1 1 Background and context
1 Background and context intend to achieve this outcome by undertaking this consultation and appraisal 1.1 Purpose of this document of the main potential options.
1.1.1 This Green Paper aims to help focus 1.1.6 Please do not read this Green Paper discussion on the strategic planning issues as a draft plan. The Minister has not yet and future choices for Jersey. It will help to decided on which of the strategic options he prepare a new Island Plan. will take forward to the States. This is an initial important step in preparing the plan. 1.1.2 This consultation is part of a dialogue We will listen to all views and take account with all those who have an interest in the of all of the evidence before doing so. We island. It sets out a range of difficult planning want to hear from you. issues and then appraises – that is tests and probes - a range of choices or options, for 1.2 Island Plan and the need for planning policy. This highlighting of issues review is in no way a decision about what options for policy might eventually be taken forward. Why the Island Plan is important That depends upon the outcome of this consultation and how it informs the States' 1.2.1 Through the Planning and Building decision making (Jersey) Law 2002, which came into effect in 2006, Jersey has adopted a plan-led 1.1.3 This Green Paper is an early, but approach to promoting and controlling the key opportunity, to think about the Island, it's development and use of land and buildings places and how they should be shaped in in the Island. This means that the Island Plan the future; about where you live or work; and - and the polices and proposals within it - is about areas and features you care about. It the first and most important consideration in is important that the Island community has any planning decision: it provides the an opportunity to assess potential policy framework for physical change in Jersey. (1) responses and development proposals at an The law states that: early stage, and before any final decisions are taken. to ensure that when land is developed the development is in accordance with 1.1.4 As you go through this paper please a development plan that provides for don’t think you are obliged to answer all of the orderly, comprehensive and the questions. Please answer as many or as sustainable development of land in a few as you wish. manner that best serves the interests of the community. 1.1.5 This Green Paper attempts to identify and set out, in concise detail, the key Why do we need to review the Island planning issues facing the Island: it is Plan? relatively long because the new Island Plan, that will be the outcome of this whole 1.2.2 Under the law the Island Plan must process, needs to be backed up by sufficient be reviewed at least every 10 years. The and robust evidence and consultation to current Island Plan was approved by the ensure that it meets the tests against which States in July 2002. In the event the rate of an independent inspector will consider it. We change in many spheres of island life has
1 Article 2(2)(a)Planning and Building (Jersey) Law 2002
2 Island Plan Review: Strategic Options Paper Green Paper (July 2008) necessitated an early review of the Plan. Developing an Energy Strategy This has been identified, and afforded a high Maintain and improve infrastructure, priority, by the Council of Ministers in the including looking at the potential of St States Strategic Plan 2006-2011. Helier and Gorey ports.
States Strategic Plan Other requirements for review
1.2.3 The States Strategic Plan 2006-2011 1.2.6 Since the adoption of the Island Plan is the corporate policy statement for the in 2002 and the States Strategic Plan Island. It sets out the vision for the Island as 2006-2011, there have also arisen a number follows: of other significant issues and changes which have further strengthened the need for Jersey has a unique and recognised review. Three areas stand out: identity People living here enjoy a good stan- although a 10 year plan, the 2002 Island dard of living based on a strong, envi- Plan only made definite provision for a ronmentally sustainable and prosperous five year supply of housing land; economy We are an inclusive society the 2002 Island Plan was prepared where everyone has equality of during a time of slow economic growth, opportunity and access to the services now we have a period of rapid growth, they need together with structural change in some Our environment sustains a sense of economic sectors of the Island's well-being economy; Government promotes self-sufficiency there is now an island wide debate on and enables enterprise future population and inward migration levels, the outcome of which needs to 1.2.4 A priority of the Strategic Plan is to be planned for. update the Island Plan with a new emphasis on forward planning, including: 1.2.7 Many aspects of the 2002 plan have proven successful, and an independent Regeneration of St Helier and its Wa- review of planning in the Island conducted terfront by the well respected planner Chris Shepley Planning for the next generation of inert (2), found it to be of generally high quality. waste sites Events have, however, moved on and there Delivering the new Town Park is a need to provide more certainty about housing and other development; to manage 1.2.5 The Strategic Plan also has a the changing dynamics of the town and the number of commitments which will have St Helier Waterfront; and to be able to implications for the Island Plan review. These respond to the rapidly changing nature of include: the Island's key economic sectors.
Planning for population change and an Sustainability ageing society 1.2.8 Sustainability will need to be a theme that impacts on every aspect of the new Plan. For that reason it is not treated as a
2 Chris Shepley Planning (November 2005) States of Jersey: Review of Planning and Building Functions
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 3 1 Background and context
separate ‘topic’ in this report and is unlikely 1.3 Island Plan Review process to be treated in this way in the new Island Plan. Rather, it will be a cross-cutting theme 1.3.1 As the Island Plan will set the across all policy areas. Sustainable framework for the future physical change in development is one of the central themes of Jersey, it is important that it is the subject of the States Strategic Plan. a rigorous, open and transparent process of preparation, debate and approval. This has 1.2.9 Polices and proposals in the new already started: stakeholder groups have Island Plan will need to be evidence-based already been formed around a number of and soundly justified, which will have to key topics to identify and discuss some of include evidence on the main sustainability the key issues facing Jersey and which the implications, both social, economic and Island Plan Review might address. environmental, of the different options Membership of the stakeholder groups considered. The main sustainability comprises States Members, representatives implications of the plan will be assessed, from States departments, key businesess benchmarking against best international and organisations. practice. This will include careful consideration of any impacts on the Ramsar 1.3.2 The contents of this paper have been site off Jersey’s South East Coast, which is informed by the discussions of these designated as an internationally important stakeholder groups and the research which wetland. was commissioned to inform them. This material is available to view on the States of 1.2.10 A key document detailing the stock Jersey Planning & Environment website. (4) of natural resources and Jersey’s natural environment is The State of Jersey: a report Examination in Public on the condition of Jersey's environment. (3) This document performs the function of 1.3.3 A key change to procedures is that providing a baseline of environmental before the new Island Plan can be debated information for the appraisal of the new plan. and approved by the States it will be the subject of an Examination in Public (EIP) - 1.2.11 One key cross cutting area will be which is a formal process where key issues the implications of climate change and po- are discussed in an open public session tential sea level rise. This has impacted on before an independent Inspector. a range of the options in this paper including the management of sea defences and the 1.3.4 A requirement of the law is that all resilience of water supplies. A number of proposals in the new Island Plan must be potential proposals are designed to reduce subject to public consultation - meaning that the carbon footprint of the Island, in particular to avoid a second round of consultation and in relation to transport and energy use, a second examination, all proposals must where there are land use implications which be publicised prior to the EIP. The options will be influenced and shaped by the new chosen to go forward in the new Plan must, Island Plan. therefore, be realistic and have been the subject of prior public scrutiny and debate. Even potentially unpopular options must be consulted on if the Plan is to avoid the risk
3 The State of Jersey: a report on the condition of Jersey's environment (January 2005) 4 http://www.gov.je/PlanningEnvironment/IslandPlanReview/
4 Island Plan Review: Strategic Options Paper Green Paper (July 2008) of having to go back a stage, or stages. This broad as possible consensus is reached on Green Paper - the Island Plan Review how the planning challenges facing the Strategic Options Paper - is important in Island should be tackled - before the new starting the debate on the key issues and Island Plan is debated by the States. options which currently face and are available to Islanders to meet the challenges Stages of plan preparation and that lie ahead. engagement
1.3.5 Ideally the examination process 1.3.6 The review of the Island Plan will go should be the end of the process of through a series of steps, as set out below, engagement with stakeholders – where as before potential approval and adoption.
Project Timetable
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5 1 Background and context
Plan period
1.3.7 The new Island Plan will a have a 10 year Plan period: it will, however, examine a longer term perspective for key issues where a more strategic, long-term view is appropriate to inform proposals within the Plan period, such as planning for the provision of minerals and the disposal of waste.
1.3.8 There will also be a need to review some matters on a frequent basis within the Plan period: housing demand and supply will be regularly reviewed within the Plan period to ensure that demand and supply can be managed as circumstances change.
6 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 2 Population and the ageing society
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 7 2 Population and the ageing society
2 Population and the ageing society
Introduction 1. dsfdfdsfsdfsdfsdfsdf 2.0.1 The Jersey Census provides a measure of the Island’s total resident 2.0.3 qwqwqw population; the most recent Census, conducted in March 2001, recorded 87,186 2.0.4 To produce an updated estimate of residents. the resident population it is only the change since the last census which needs to be 2.0.2 3.1 ‘Introduction’ measured. This change is calculated from data on births and deaths and from annual subject-specific census information on education, health and employment. Numbers (1) sdfsdfsdfsdf presented in the table below refer to the end of each calendar year and are shown to the nearest 100 to reflect the level of uncertainty.
Year end Resident population Annual change
2000 87,100 -
2001 87,400 +300
2002 87,600 +200
2003 87,600 0
2004 87,700 +100
2005 88,400 +700
2006 (r) 89,400 +1000
2007 (p) 90,800 +1,400
Estimates of Jersey’s resident population: 2000 - 2007.
(r) - revised, (p) - provisional
2.0.5 Changes in Jersey’s resident Natural growth (the excess of births over population are due to two main processes: deaths); Net migration (which may be inward or outward in a given year).
8 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 2.0.6 The increase of 1,400 in the resident 2.0.12 2001 and 2002 were characterised population for 2007 is the result of increases by small net inward migration of around 100 from natural growth and net migration into persons per year, reflecting the general the Island during that year. stability of the labour market during this period. In contrast, 2003 and 2004 saw net Natural growth outward migration, reflecting the falls in private sector employment seen in those 2.0.7 Births and deaths in Jersey are years. recorded by the Superintendent Registrar. 2.0.13 Driven by increased employment 2.0.8 2007 saw the highest number of in the private sector, reflecting an births recorded in Jersey for almost a improvement in the Island’s economy, both decade, whilst the number of deaths was the 2005 and 2006 saw relatively larger levels lowest for more than 50 years. As a result, of net inward migration of about 300 and 800 the natural growth of some 320 more births people per year, respectively. In 2007, the than deaths in 2007 was the highest since level of net inward migration increased still 1998. further, to some 1,100 people, the highest level of net migration seen for at least seven 2.0.9 The crude birth rate (CBR) and crude years. death rate (CDR) are defined, respectively, as the number of live births and the number Residential qualification status of deaths per 1,000 residents per annum. 2.0.14 At the time of the 2001 Jersey 2.0.10 Both the CBR and the CDR can be Census, the number of adults who were not subject to volatility in any given year. residentially qualified (in their own right) Nevertheless, the CBR for Jersey in 2007 under the Housing regulations was 15,300, was slightly above the average for the representing 21% of the total resident adult preceding five-year period, whilst the CDR population. At the end of 2007, it is estimated was below that of the same period and that the number of such non-qualified adults continued the downward trend apparent had decreased to about 8,500, representing since the 1990’s. fewer than one in eight of the total resident adult population. Net migration 2.0.15 The main cause of the decrease in 2.0.11 Net migration into or out of the the number, and hence proportion, of Island is the result of the “ebb and flow” of non-residentially qualified people has been people in both directions. The 2001 Census the series of reductions in the period of indicated that this movement was around residency required to attain qualified status, 2,500 persons per year in each direction as stipulated by the Housing regulations. At (excluding the annual movement of the time of the 2001 Census the residency short-term seasonal workers present in the period was 19 years; by April 2007 this had Island for less than one year). The net been reduced to 12 years. migration in a given calendar year is thus the difference between two much greater Resident households and household size numbers, those people arriving less those leaving. 2.0.16 The trend for the number of people living together to form a household - expressed as the household size - is one of
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 9 2 Population and the ageing society
decline. This is an important change in the and sensitive determinant of the demand for composition of the population - and it is homes in the Island, work is ongoing, using caused by societal shifts resulting in more all of the latest data and trends, to more people living on their own - as it has accurately model and predict changes to particularly significant implications for the household size in the Island over the Plan demand for homes. period, with consideration also given to the differences between, for example, the 2.0.17 Average household size in Jersey household size and composition of in-migrant has fallen from 2.59 persons per household households and existing households. in 1981, to 2.38 persons per household in 2001, for a total of 35,562 private 2.0.19 If it is assumed that the proportion households. The 2007 round of the Housing of individuals living in communal Needs Survey enabled estimation of an establishments has been approximately updated figure for average household size constant between 2001 and 2007, then the of 2.33. This demonstrates that average number of private households resident in household size in Jersey is still falling, but Jersey at the end of 2007 is estimated as that the rate of change is slowing slightly. 37,900.
2.0.18 This latest average household size Population density estimation - at 2.33 people per household - has been used to estimate the demand for 2.0.20 The population density of Jersey is homes in the Island over the Plan period. approximately double that of England but Because household size is such a significant about a quarter less than Guernsey (see table below). Jurisdiction Population Area (km2) Density (per km2)
Jersey 90,800 116 780
Guernsey 61,029 63 970
Isle of Man 80.058 572 140
UK 60,587,000 242,910 250
England 50,763,000 130,422 390
Population density of Jersey and other jurisdictions.
2.0.21 The population density of the Channel Islands is between the level of Mauritius and Barbados (between 600 and 2.1 Ageing society 700 per km2) and that of the Maldives (1,000 per km2), Bermuda (1,200 per km2) and 2.1.1 In Jersey, as in most developed Malta (1,300 per km2). The population nations, people are living longer and the birth densities of Hong Kong and Singapore rate is declining. As a result of this the ratio (about 6,400 per km2) are more than eight between old and young people is changing. times that of Jersey. Jersey is an aging society.
10 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 2.1.2 In 2004, the Island-Wide Strategy 2007 to June 2008 and consisted of a for the Ageing Society (ISAS) identified that survey, a traditional written consultation and the number of elderly people in Jersey would two deliberative public conferences, one begin to steadily increase over the next few aimed specifically at the Island's youth. The decades and made it clear that this was not process was delivered by Involve in a temporary bulge, but rather a long-term collaboration with the States of Jersey. shift in the composition of the Island’s population. 2.1.7 A range of options for addressing these changes was put forward by the States 2.1.3 The baby boom generation is now of Jersey. The aim of the consultation was ageing, people attracted to the Island in the to gauge the public’s views about these booming economy of the 1970s and 80s options so that the government can put in have attained residential qualifications and place a long-term strategy that meets the are here to stay. people’s needs as well as addressing the issue. The options identified so far are: 2.1.4 The dependency ratio (0-15 year olds plus those above retirement age as a Further growth in the economy. proportion of the working age population) Raising the States pension age. rises, in a scenario of no net inward Resident population pays more. migration, from the current level of about Allowing more people to live in Jersey. 0.50 to 0.56 by 2025 and 0.77 by 2035. By 2035 there would be 1.3 workers for every 2.1.8 It is unlikely that any of these options non worker (there are currently about2.0 will be enough on their own to meet the workers for every non-worker). challenges of the ageing society. Instead, we need to think about how the different 2.1.5 This change is predicted to have a options can be combined to offer a solution significant impact on the Island's finances, that will work in the long term. leading to a loss of annual government revenue and increased public expenditure 2.1.9 The option of allowing more people amounting in total to £140 million by to live in Jersey has the most relevance to 2035.The 2001 census found that 17% of the review of the Island Plan in terms of the population (14,507 persons) were above current policies and strategic options for the working age (women/men aged 60/65 and future. over) and the Island-Wide Strategy for the Ageing Society predictions expect this 2.1.10 Five scenarios were analysed as number to rise to 19% by 2011 and to around described in the Imagine Jersey documents. 30% by 2031. Increasing the size of the working population by allowing increased immigration could help Imagine Jersey 2035 offset the decline in economic activity caused by the fall in the working age population. It 2.1.6 The aims of the Imagine Jersey would also help to address the change in the consultation were to enable the public to balance of the population and the adverse understand the social and economic impact this would have on society. If the challenges associated with Jersey’s ageing Island does permit inward migration, the population and to inform the States of impact will depend on the numbers involved. Jersey’s decisions about how these challenges should be met in the future. Imagine Jersey 2035 ran from November
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 11 2 Population and the ageing society
2.1.11 The Island has to decide whether and the public conference it was by far the it is willing to allow more working age people most unpopular of the four options presented and their families to come to live in Jersey by the States of Jersey. For the participants each year and if so, how many. A range of at the Youth Event, increasing population options exist, and five scenarios have been levels met with less resistance, albeit that it developed across a range of in-migration was only marginally preferable to paying flows. more tax. It was also the issue that most divided the participants in all three parts of 1. No further inward migration (net nil the public consultation. Whilst some people migration) accepted a need for more people to boost 2. Net inward migration of 150 heads of the workforce, others were fiercely against economically active heads of inward migration under any circumstances. households/annum (325 people) Participants at the Youth Event attached 3. Net inward migration of 250 heads of much less of a priority to controlling economically active heads of population levels. households/annum (540 people) 4. Net inward migration of 325 heads of 2.1.15 At both the public and the youth economically active heads of IJ2035 events, as people discussed and households/annum (700 people) weighted the different options, many arrived 5. Net inward migration of 650 heads of at a reluctant acceptance that controlled economically active heads of inward migration may be necessary in the households/annum (1,400 people) future. At the end of the public conference, 19 of 20 citizen groups agreed that some 2.1.12 At one end of the scale, the Island level of inward migration would be a could take active steps to cap the population necessary part of the solution to the at existing levels. Making the economy more economic and social challenges ahead. No productive and increasing taxes would help young people chose the option of no inward compensate for having fewer working migration and one table of young people people. However, the shrinking workforce chose the +700 scenario (which gained no and rising tax burden would make it more support at the public event). The concerns difficult for Jersey businesses to compete, raised in response to the inward migration leading to a significant decline in economic option focused on the impact that migration activity, reducing our standard of living and would have on the character of Jersey’s changing the way of life we enjoy today. society, culture and countryside, and how it would affect the environment. 2.1.13 At the other end of the scale, revenue needed to maintain government 2.1.16 The results of the vote on inward services by increasing the population by up migration show that it is a topic that divides to 1,400 people (650 heads of households) the Island. Whilst nearly half (49%) of per year would be generated. However, this participants stated that they were in favour would require extra funds to be spent on of continued inward migration at controlled schools and infrastructure and the new levels as a solution to the predicted deficit housing needed would affect our in the future, two fifths (40%) were against environment. and a large proportion of these (25% of total) were strongly against the inward migration 2.1.14 Inward migration was the most option (figure 15, page 33). The results of contentious issue raised in the Imagine the Youth Event were less resistant, with Jersey 2035 consultation. In both the survey
12 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 52% in favour and only 24% against, of 2.2.3 On the basis of the planning which only 9% were strongly against (figure assumption made in the 2002 Island Plan of 10, p.27). a net in-migration level of 200 heads of households per annum (the actual average 2.1.17 At the public IJ2035 event, people since 2002 has been just below 200 h/h per born in Jersey were more likely to oppose annum); and with regard to the acceptance further inward migration. More than half of some potential in-migration at the Imagine (54%) of participants who were born in Jersey 2035 public and youth participative Jersey were against the inward migration events, it is considered appropriate to adopt proposal, with just over a third (37%) of this - purely as a planning assumption in the group were in favour. Among those born preparation of the Plan - the +250 heads of elsewhere less than a third (28%) was households/annum (540 people) scenario. against inward migration, with nearly three And it is this that has been used to assess fifths (59%) in favour (figure 16, page 33). significant issues, such as, for example, the level of provision that needs to be made to 2.2 Planning assumption meet the potential housing demand, albeit that housing demand for all in-ward migration 2.2.1 The States of Jersey needs to scenarios is presented. consider and determine a strategy to respond to and best manage the demographic shift in the Island's population, represented by the ageing society. In doing this, it will need to address the issue of in-migration and the Island Plan will have to respond to any such States decision: it is likely that this matter will not be addressed until early 2009, after the new States is formed following elections in the Autumn of 2008.
2.2.2 Because of this, it is necessary to make some planning assumptions in the preparation of the new Island Plan. It has to be made clear, however, that any planning assumption about in-migration is not a foregone conclusion or 'fait accompli': the Island Plan review process will not lead the determination of any in-migration strategy for the Island - that is a matter for the States to determine within the context of a debate about the ageing population. The Island Plan will have to follow whatever the States determine, and the strategies, policies and proposals within the draft Plan, to be published in early 2009, may need to be subsequently reviewed to reflect the States ultimate deliberations.
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 13 2 Population and the ageing society
14 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 3 Spatial strategy
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 15 3 Spatial strategy
3 Spatial strategy 3.1.3 Historically, development patterns in the Island reflect the growth of the town, 3.1 Introduction with a concentration of development in and around St Helier, coupled with a dispersed 3.1.1 The new Island Plan will provide a pattern of settlement across the Island's framework for land-use planning in Jersey countryside. It is only more recently that a to 2018. Whilst the Plan will contain a range pattern of development, reflecting growth in of policies and proposals, it will also be rural centres, together with the spread of based on and be informed by a number a coastal development - extending the built-up cross-cutting strategies. area of St Helier - east towards Gorey, and the development of other urban centres in 3.1.2 Of fundamental importance to the St Brelade and St Saviour in particular, whole Island Plan is the spatial strategy: this emerges. is the strategy that will determine where in the Island development should be located. 3.2 2002 Island Plan spatial strategy It will provide the basis for the evaluation of land proposed for development in the new 3.2.1 The 2002 Island Plan contains a Island Plan, as well as being used, by spatial strategy upon which all of the policies incorporation in the new policies of the Plan, and proposals in the Plan are based. In to evaluate development proposals that considering the options for the location of come forward during the Plan period. new development at the time that the Plan was produced, six options for the location of new development were considered, as follows:
Options for the location of new development
1. development within the main built-area of St Helier;
2. extension of the main built-up area of St Helier;
3. key urban and rural settlement development and expansion;
4. new village/ settlement;
5. infill development in rural clusters; and
6. isolated development in the countryside.
3.2.2 In the preparation of the 2002 Island for achieving sustainable development. The Plan, the options were examined to see how main advantages and disadvantages of each they would meet the objectives of the new option were set out and assessed, as Island Plan as well as the wider objectives presented in the following table.
16 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Option Advantages Disadvantages
Concentration of Protects natural resources Density needs careful development within St and countryside; handling to ensure a high Helier Allows for the quality of life. Town reuse/redevelopment of cramming must be brown field sites where avoided; appropriate; Some sites will not lend Greatly minimises the themselves to the full need for car travel and range of housing types reduces journey distances; required. Supports urban vitality and viability of facilities and services.
Extension of the main Allows for the reuse/ Likely to result in the loss built-up area redevelopment of brown of countryside; field sites where Potentially could lead to appropriate; urban sprawl and Provides an opportunity to suburbanisation of some provide for a range of existing countryside; housing types; Could exert pressure Supports the vitality and upon centrally located community life of the main services. built-up area; Infrastructure and services efficient to provide.
Good transport links; May result in the loss of Key village/ settlement Support for local services countryside; development and and facilities; May result in some expansion Provides a good encroachment and the opportunity to provide for suburbanisation of the a range of housing types countryside; and meet local need; Reliant on longer journey Allows for the provision of times to St Helier; mixed uses areas Risk of shifting the focus away from main urban area.
Easy to service from a Likely loss of natural New village/ settlement transport perspective; resources; Could offer an opportunity Encroachment into for accommodating a countryside in a reasonable proportion of previously undeveloped development needs; area;
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 17 3 Spatial strategy
Option Advantages Disadvantages
Could offer an opportunity Likely to be out of to create new tourism and character due to scale; leisure facilities; High risk of shifting the Efficient way of focus from the main urban developing. area (dependent on scale); Could put pressure on existing central services.
Infill development in rural Enables low density and Likely loss of natural clusters high quality development resources; that meets people’s Likelihood of aspirations. encroachment into the countryside; Likely to increase the need to travel; Difficult to serve by public transport; Unlikely to provide for a range of housing types, particularly affordable housing.
Isolated development in Enables high quality of Likely loss of natural the countryside. development, which may resources; meet people’s aspirations Likely to lead cumulatively for rural living. to a suburbanisation of the countryside; Could lead to a loss of community identity; Likely to increase the need to travel; Unlikely to provide for a range of housing types, particularly affordability
3.2.3 In developing the 2002 Island Plan, was, therefore, considered to be the most it became clear that no single option would appropriate way forward and a spatial meet the objectives of the new Plan and of strategy, combining a mix of the following, producing a more sustainable pattern of was adopted for the 2002 Island Plan: development in the Island. A mixed strategy
18 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 2002 Island Plan spatial strategy
development within the main built-up area of St Helier;
extension of the main built-up area; and
key urban and rural settlement development and expansion.
3.2.4 This approach - of concentrating 3.3.3 Over 45 acres (100 vergees) of land development in the Island's main built-up on the edge of the built - up area was zoned areas but with some growth and expansion on eleven sites specifically to meet the need of the built-up area boundary - has for homes under Policy H2 of 2002 Island determined the location of development in Plan. The zoning of these greenfield sites, the Island over the Plan period of the 2002 whilst on the edge of the built-up area, has Island Plan. essentially resulted in the loss of countryside. The release of this countryside land was, 3.3 Performance of the spatial however, consistent with the adopted spatial strategy strategy of the Plan.
3.3.1 The spatial strategy of the 2002 3.3.4 Ten of the eleven rezoned sites have Island Plan has been brought into effect, now been, or are in the process of being, most evidently, in response to the need for developed providing over 600 homes for more land for housing, in two ways; first-time buyers and for social rent.
rezoning land for housing on the edge Reviewing the built-up area boundary of the existing built-up area; reviewing and redefining the built-up 3.3.5 The spatial strategy of the 2002 area boundary. Island Plan - of seeking to focus new development in and around the Island's Rezoning land built-up areas - reflected a similar principle that had been established in the 1987 Island 3.3.2 The rezoning of land for housing in Plan. The strict application of the built-up the 2002 Island Plan was considered area boundary - and the resistance to new necessary to respond to Jersey's need for development in the countryside - between homes, particularly for first-time buyers and 1987 and 2002 had ensured that for social rent accommodation. Whilst the development opportunities within the built-up 2002 Island Plan spatial strategy encouraged area, for infill and conversion, had been and enabled development within the built-up taken up over the 14 year lifetime of the 1987 area, particularly St Helier, it also permitted Island Plan. the release of greenfield land on the edge of the built-up area, to provide land for new 3.3.6 The 2002 Island Plan presented an first-time buyer and social rent homes. Policy opportunity to review the built-up area H2 of the Island Plan provided for this. boundary established in the 1987 Island Plan, to address anomalies in the definition of the built-up area boundary that had arisen over the Plan period and also to create new
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 19 3 Spatial strategy
opportunities for 'windfall' development - and but it has also involved a wider, genuine to ensure the supply of new private housing concern about the erosion of the Island's over the lifetime of the 2002 Island Plan. countryside.
3.3.7 The 2002 Island Plan, therefore, 3.3.10 In response, some minor reviewed and classified the built-up areas of amendment was made to the built-up area the Island, so up-dating the built-up area boundary of the 2002 Island Plan (1) as a boundaries from the 1987 Island Plan and result of propositions brought by States establishing a settlement hierarchy for Members (2). Jersey's urban areas. In so doing, infill and other sites have been 'released', from more 3.3.11 Recent public consultation - restrictive 'countryside' planning policies, and specifically in relation to the options available opportunities for new development have to deal with the implications of Jersey's (3) (4) been created. ageing society - has also indicated a strong desire on behalf of many Islanders, 3.3.8 The review of the built-up area including the Island's youth, to avoid a spatial boundaries has contributed towards the strategy in any new Island Plan that would strong performance of the 2002 Island Plan involve more development in the countryside in providing new land and development and specifically, further loss of greenfield opportunities - much of which has been on land. the edge of the built-up area - that has enabled the provision of new homes, through 3.4 Options for the location of new 'windfall' development, to meet the demand development for housing in Jersey. 3.4.1 The Island Plan Review presents an Reaction to new development in the opportunity to reflect on the performance of countryside the spatial strategy contained with 2002 Island Plan and to consider options for the 3.3.9 The application of the 2002 Island new Plan, to determine where development Plan spatial strategy - represented by the should be located in Jersey to 2018. consideration of development briefs and planning applications for the rezoned 3.4.2 The options for the location of new housing sites in the 2002 Island Plan, and development remain unchanged from those the determination of planning applications considered in 2002 and set out above (see on land released as a result of the review of section 3.2 3.2 ‘2002 Island Plan spatial the built-up area boundaries - has generally strategy’). What has changed, however, are been met with much voluble public the social and economic circumstances of resistance and controversy. This has the Island - and particularly the need to plan inevitably involved the concern of existing for the implications of an ageing society; and local residents about the impact of new the objective of growing the economy - which development upon their local environment; need to be taken into account.
1 P.77/2005: 05 July 2005 2 P.33/2005 Deputy JA Hilton and P.40/2005 Deputy GCL Baudains 3 Imagine Jersey 2035: preparing for the future 4 Imagine Jersey 2035 Youth Event: report of findings (June 2008)
20 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 3.4.3 Of particular relevance is the need preferred spatial strategy would be one that for housing. Planning for homes is always a focused development as much as possible major issue for development plans. The in the existing built-up area of the Island, with housing situation in Jersey is assessed in a particular emphasis on concentrating chapter 9 9 ‘Housing’, and the current view development in St Helier. This is based on is that the demand for homes over the the desire to regenerate the town whilst, at lifetime of the Plan can be met by the the same time, preventing the further potential to provide homes from within the encroachment of development in the existing built-up area and through the countryside. development of some existing brownfield sites (some of which are outside the built-up 3.4.7 If all of the Island's requirements for area but, by virtue of already being development to 2018 are to be largely met developed, are not 'green fields'). through a new spatial strategy that focuses development in the existing built-up area, 3.4.4 This is based on a number of without any review of the built-up area assumptions about the level of demand for boundary, this will have implications for the homes over the Plan period; and the form of new urban development. In availability of land coming forward to be particular, there will be implications for the developed for housing. It is also based on density of development in urban areas; and the premise that we can use land more there will be implications for the provision of efficiently and effectively - by building homes amenities, such as parking and the provision at a higher density than we are presently - of private amenity space as integral elements in the built-up area and on brownfield sites: of new development, which is considered this is considered further in the built further in the built environment section (5.6.7 environment chapter (5.6.7 ‘Higher density ‘Higher density development and development and conversion’). conversion’).
3.4.5 The Plan also needs to consider the 3.4.8 Consideration will also need to be demand for land for other forms of built given to the forms of development that can development, and particularly commercial be provided within the Island's urban areas, development - such as offices, shops and relative to the expressed desire or demand, land for industry. The spatial strategy particularly in relation to different types of adopted in the Plan will inform all land-use housing: this is considered further in the planning decisions, but some forms of housing chapter (9.9 ‘Dwelling mix’). development have particular locational requirements, which will need to be considered on a sectoral basis, and are explored further throughout this paper.
Urban containment
3.4.6 Reflections on the performance of the 2002 Island Plan together with recent deliberation (5) (6) (7)would suggest that a
5 Imagine Jersey 2035: preparing for the future 6 Keeping Jersey Special: a vision for a greener Island speech by Chief Minister, 02 June 2008 7 Imagine Jersey 2035 Youth Event: report of findings (June 2008)
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 21 3 Spatial strategy
Question 1 Question 2
Urban containment Brownfield development
Do you agree that the new spatial Do you agree that the new spatial strategy for the Island Plan should be strategy for the Island Plan should also based mainly on the concentration of enable the development of brownfield new development within the existing land, even where that land is outside the built-up area, with a particular focus on built-up area? St Helier?
3.4.11 There would also appear to be Development of brownfield land some recognition that there is a need to protect the viability and vitality of Jersey's 3.4.9 Unlike the UK, Jersey does not have smaller rural settlements, predominantly in a legacy of large, outworn sites and buildings the northern parishes (i.e. those defined as from heavy industrial processes and, Key rural settlements and small rural consequently, there is not the same potential settlements in the 2002 Island Plan). Here, to secure a great proportion of the demand it is acknowledged that limited, small-scale for new development on unused or derelict new development - on greenfield land land. Consideration can and should, involving the loss of countryside - could be however, be given to a more sustainable and important in maintaining parish life. This may more efficient use of land that is already be considered justifiable in supporting and developed but which is no longer enhancing the critical mass of, and diversity economically viable or in use through the in, the local parish population, to sustain development of brownfield land. It is schools, shops, pubs, public transport and considered preferable and desirable to other facets of parish life that are unique and ensure the redevelopment and regeneration important to Jersey. of brownfield land before considering further development of greenfield land and the 3.4.12 The extent of development required further erosion of 'the countryside'. to support parish communities remains to be determined and would need to be the subject 3.4.10 In considering the development of of study and site specific consideration, if the brownfield land as a potential element in any principle is supported, with specific proposals new spatial strategy, it is important to being brought forward in the draft Plan. Any recognise that some brownfield land - such specific proposals in the draft Plan would as derelict glass houses - may be in 'the remain to be the subject of further countryside', albeit not undeveloped green consultation. fields. The potential extent of developable brownfield land in the countryside that might 3.4.13 It is not envisaged that the scale of be required to contribute towards the Island's development or provision of homes would need for housing over the Plan period to be large and no account of this as a potential 2018 is considered to be in the region of supply of homes is made in the assessment 50-60 acres (110 - 135 vergees) of the overall housing supply over the Plan period presently.
22 Island Plan Review: Strategic Options Paper Green Paper (July 2008) New commercial port Question 3 3.5.3 Jersey's commercial port operation Support for parish communities is critical to the economic and social fabric of the Island. It has evolved over time and it Do you agree that the new spatial is considered that a more efficient and strategy for the Island Plan should effective port - with improved access, enable some development on greenfield berthing and protection for shipping; land, where it would help to maintain allowance for future growth of landside and and enhance rural parish communities? marine operations; provision of prime port supply services adjacent to the port; reduction in vehicle movements around 3.5 Longer perspective Commercial Buildings; separation from new waterfront residential areas; and potential to 3.5.1 Whilst the Island Plan will seek to segregate commercial and leisure port users provide land to meet the identified - could offer significant community benefit. requirements of the Island over the 10 year Feasibility work has shown that a new port Plan period, it is important that the Island could be sited, in various configurations, at Plan Review process gives some La Collette, where there is significantly consideration to a longer, more strategic deeper water. timescale as to where future development needs might be met. This requires a view 3.5.4 Realising this option would - beyond a 10 year time frame and to identify following the Buncefield incident in the UK potential strategic contingencies for land and and the adoption of increasingly stricter development opportunities, should the need controls about the type of development for additional options emerge during the Plan considered appropriate in proximity to (8) period. hazardous installations - require the relocation of the fuel farm, operated by Shell Development potential of St Helier and Esso, together with the LPG facility Harbour operated by Jersey Gas.
3.5.2 The future development of St Helier 3.5.5 The options for the location of the Harbour - including land at the commercial fuel farm, island-wide, are constrained by port, La Collette and the inner harbours - is the limited availability of berthing options for currently the subject of a feasibility study and large vessels and the hazardous nature of has identified the potential of significant new this type of development for neighbouring development opportunities related to the land uses. Thus far, preliminary future of the port. There are at least two consideration has been given - at a principal drivers that might support the case conceptual level only - to the potential for consideration of this as a strategic option relocation of the fuel farm to the south of La for the potential future provision of land and Collette, either offshore or on an extension development opportunities. These are of reclaimed land. considered further in the built environment chapter (5.6.3 ‘La Collette, the commercial 3.5.6 This concept would, however, have port and inner harbours’) but are outlined serious environmental implications, not least here: of which is its impact upon the marine
8 Supplementary Planning Guidance: safety zones for hazardous installations (March 2008)
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 23 3 Spatial strategy
environment of the south east coast which 3.5.10 The outcome of any deliberation is recognised and designated as a wetland on solid waste disposal options - should of international significance under the further marine land reclamation emerge as Ramsar convention. This would require a favoured option - may, therefore, represent considerable feasibility work, to include an another 'driver' to relocate the port. Integral examination of the impact of any proposals to this is the fact that any land reclamation upon the loss of marine habitat; sediment that extends the La Collette II reclamation flows; hydrology/ saline flows; and pollution site offers the potential to increase the extent management. Any such proposal affecting of land at La Collette that is unconstrained the Ramsar site would remain to be the by the safety zones for hazardous subject of consideration with the UK installations which would exist around the government and the Ramsar Council of relocated fuel farm, by virtue of the greater Parties. physical separation between it and the most 'vulnerable' parts of the relocated port. Development of Elizabeth Harbour
3.5.7 The potential relocation of the Question 4 commercial port and associated activities would present a major development Strategic option of relocating the port opportunity of up to 34 acres (77 vergees) of developable land. This has the potential Do you agree with the potential to provide a new urban waterfront quarter relocation of the commercial port to La for St Helier, connecting the town to the sea, Collette as a strategic option for the providing up to 600-800 units of release of future land for development accommodation, including family homes. in St Helier?
Disposal of solid waste
3.5.8 There may also exist a third factor that requires consideration in the context of potential port relocation, relating to the disposal of the Island's solid waste.
3.5.9 Disposing of inert solid waste represents a big challenge for Jersey and we need to plan for this into the future. The current disposal route for most of the Island's inert waste, that cannot be reused or recycled, is the La Collette II Reclamation Site, which will remain available until 2018 (9). Options for the future disposal of the Island's solid waste are set out and considered in detail in the Waste Chapter (12 ‘Waste’) and essentially involve a choice of disposal routes between terrestrial landfill and marine land reclamation.
9 Interim Report: inert waste arisings and landfill capacity (May 2008) Hydraconsult Ltd
24 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 4 Natural resources
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 25 4 Natural resources
4 Natural resources Enclosed Valleys Interior Agricultural Land. 4.1 Introduction 4.2.2 For each of these types the key 4.1.1 The paramount importance of features deserving of protection were protecting Jersey's natural environment and identified, for example the areas of dune, in particular its "green fields" came through marsh and wet meadows in the St Ouen's strongly in the Imagine Jersey 2035 Bay Coastal Plain. consultation and in stakeholder group 4.2.3 This work informed the development meetings. Other chapters look at how this of a new landscape planning policy regime can be achieved , for instance by in the 2002 Island Plan with the introduction concentrating new development on the of three designations; existing built footprint. Zone of Outstanding Character: for 4.1.2 The farmed countryside will undergo the most important sensitive and change as farming practices respond to vulnerable landscape areas; emerging market conditions - as they have done over centuries - and the trend for Green Zone: comprising in large part agglomeration of farm businesses is likely enclosed wooded valleys, and the; to continue with an associated Countryside Zone: the remainder of re-organisation of farm buildings. the countryside, outside of the built-up area, predominantly comprising 4.1.3 Climate change will exert a agricultural land. progressively stronger influence over habitat types, choice of crops and irrigation patterns. 4.2.4 There are two issues relating to landscape character which need to be 4.2 Protecting Jersey's landscapes considered within the context of the Island Plan Review, including the extent of 4.2.1 As part of the earlier review of the landscape protection and; the effectiveness 2002 Island Plan, a study was published in of the planning policy regime that is designed 1999 on the character of Jersey's to protect landscape character. countryside (1). The study aimed to provide an assessment of the character areas which Extent of landscape protection comprise Jersey’s countryside. The areas 4.2.5 There are considered to be areas of defined were based on landscape and the Island identified in the Countryside habitat qualities and historic/cultural heritage. Character Appraisal that may be worthy of Outside the urban area five main higher levels of protection because of the ‘Countryside Character Types’ were quality of their landscape character, identified with a number of sub-areas within including: some of these types. The five main areas being:
Cliffs and Heathlands Coastal Plain Escarpment
1 Land Use Consultants (1999) Countryside Character Appraisal
26 Island Plan Review: Strategic Options Paper Green Paper (July 2008) potential enhancement to Zone of prohibition of residential development in the Outstanding Character countryside (except for the conversion of older farm buildings). north coast valleys, including Greve de Lecq, Mourier Valley, Rozel Woods and 4.2.8 Another related issue is that it not St Catherine's Woods; always clear as to what are the primary Ouaisne wetland, heathland and sand objectives that policies are seeking to dunes achieve as a result of development. This is perhaps best illustrated with the example of potential enhancement to Green Zone Green Belt. In the UK there are Green Belt objectives. All major development must meet Longueville/ Bagot escarpment; these objectives and where development is St Helier escarpment inappropriate to the Green Belt the objectives are used to assess whether there are very special circumstances to justify an exception. Question 5 This approach is helpful because rather than setting down special case exceptions to Extent of landscape protection policy protecting the countryside, which could act as precedents undermining the policy, it Do you agree that the extent of provides a positive framework for protection landscape protection should be which allows cases to be judged on their enhanced in some parts of the Island, individual merits. to ensure that the most vulnerable and sensitive parts of the Island's landscape character is adequately protected? Question 6
Protection of landscape character Protection of landscape character Do you agree that the planning policy 4.2.6 The planning policies designed to framework to protect the landscape protect the character of the landscape and character of Jersey's countryside should the countryside incorporate a number of well be enhanced? established and well understood principles developed over a number of years. They set down the established and familiar concepts Gardens in the countryside such as the Green Zone and have a general presumption against development, with a 4.2.9 An issue of increasing concern in number of defined exceptions. the countryside is the extension of domestic curtilages into agricultural land. Such 4.2.7 In theory the policies are as strict as proposals - involving the creation or Green Belt in the UK but in practice a extension of private gardens into agricultural number of issues have emerged in their fields - introduces domestic landscaping and application. For example, an unintended associated paraphernalia which can harm consequence of the current policy regime is rural character and can, on a cumulative the redevelopment of farm buildings for basis, lead to the suburbanisation of the residential use: in the UK there is a strict countryside.
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 27 4 Natural resources
objectives and supporting actions within the Question 7 ICZM Strategy within the Island Plan Review will help move towards this aim. Domestication of the countryside 4.3.4 The Coastal Zone is defined in the Do you agree that greater control should Island Plan 2002 to include “the terrestrial be used to control the extension of parts of the Island having a direct influence private gardens into agricultural land to on the shores, the inter-tidal areas and the protect the character of the countryside? waters out to the limits of the Marine Protection Zone.”
4.3.5 The Island Plan 2002 was forward thinking at its time and comprehensively 4.3 Jersey's coast covered many aspects of the marine and coastal environment. At present much of the 4.3.1 The coast and seas around Jersey undeveloped coast, including terrestrial parts are an integral part of Island life. It is, of the offshore reefs, is classified as Zone of therefore, essential that they are protected Outstanding Character. The remainder of and managed so that they can continue to the less developed area and its hinterland be enjoyed by generations to come. Most is classified as Green Zone, with the of the coast remains largely free of remaining undeveloped parts of the built up development apart from the urban area along area being classified as 'Shoreline Zone'. St Aubin's Bay, around St Helier and along the south eastern corner of the Island where 4.3.6 In all of these areas there is a there is a narrow coastal strip of general presumption against new development. development largely based on the objective of protecting the visual character and 4.3.2 Jersey's planning law extends to the amenity of the environment. If the coastline limits of its territorial waters. Unlike the UK is to be managed in a sustainable way, it is planning system which stops at Mean Low important that future development proposals Water Mark (MLWM) this means that there are considered against a planning policy is no invisible barrier between land and sea regime that is based on a set of broader in relation to development control in and principles, which need to be considered around Jersey. within the context of the Island Plan review.
4.3.3 The Integrated Coastal Zone 4.3.7 The Island Plan 2002 also made Management (ICZM) Strategy has been provision for protecting the marine lodged for debate in the States before the environment with the designation of the area end of the summer recess. ICZM is about extending from Mean High Water to the securing better management and informed territorial limits as Marine Protection Zone. decision-making on coastal issues so that Within this zone there is a presumption coastal and marine resources are managed against all developments except those which sustainably. The Strategy puts in place a are essential for navigation, access to water, series of widely supported aims, objectives fishing and fish farming and coastal defence. and actions, which will promote a co-ordinated and sustainable approach to the future management of Jersey’s coastal zone. Embedding the development related
28 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Protecting the undeveloped coast 4.3.1 Recognising and protecting seascape character 4.3.8 Currently there is no specific policy for protecting undeveloped sections of the 4.3.1.1 As a small island, Jersey's coast (except for a small number of sites in character is significantly influenced by the the built-up area which are subject to the visual relationship of the sea and the land. 'Shoreline Zone' policy). Development on The view and perception of it from the sea the undeveloped coast should be restricted and from low-lying coastal areas, including to that which requires a coastal location and bays, beaches and the coastal plains of St should not accommodate development which Ouen, St Clement and Grouville are can be located inland or within built up areas. significant. The Countryside Character Where new development requires a coastal Appraisal (2) was a key document in refining location policy should require that the the zones upon which the Island Plan 2002 developed coast will usually provide the best is based and included an assessment of the option, provided that due regard is paid to character of the Island's coastal areas. the risks of erosion or flooding. The policy should also adopt a precautionary approach 4.3.1.2 Seascape character is made up of to land affected, or likely to be affected, by physical characteristics of hinterland, coast coastal erosion or land instability. and sea plus a range of perceptual Development should not be allowed to take responses to the seascape, as well as visual place in areas where erosion is likely to aspects. Seascapes are highly sensitive and occur during the lifetime of the building. are at risk of having their key characteristics fundamentally altered by inappropriate or 4.3.9 Developments requiring a coastal insensitive development. It is, therefore, location could within a revised plan be limited important that any policy framework in the to: new Island Plan that seeks to identify and protect the character of the Island's coast, water based recreation and associated should require explicit consideration of the facilities; impact of development upon 'seascape'. developments such as ports and marinas 4.3.1.3 The Island Plan Review should industries importing bulky raw materials, take the opportunity to review the existing that depend on access to the sea; planning policy framework for the protection energy generation ; and of the Island's character to ensure that waste water and sewage treatment and appropriate and explicit consideration is disposal. required relative to any assessment of development proposals upon the seascape and the character of the coast. In so doing, Question 8 consideration should be given to the sensitivity of each of the Island's existing Protecting the undeveloped coast character areas in terms of how vulnerable or robust seascape character is to change. Do you agree that the revised Island Plan should introduce stricter policies for protecting the undeveloped coast?
2 Land Use Consultants (1999) Countryside Character Appraisal
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 29 4 Natural resources
4.3.3 Shoreline management Question 9 4.3.3.1 Following major storms in the Protecting seascape character 1990s, a series of reports were commissioned on the condition and Do you agree that the revised Island remaining life expectancy of the Island’s sea Plan should require consideration of the defences. A comprehensive tidal model impact of development upon 'seascape'? covering the waters around the entire Island was also produced. Based on the report and the tidal model, four major areas of concern 4.3.2 Maintaining and promoting were identified and successful capital works access to the coast have since been undertaken at Fauvic Bay (using rock armour), Anne Port Bay (using 4.3.2.1 There is no overarching provision cliff stabilisation) and St Brelade’s Bay in within Jersey law for public rights of way. recent years with major works currently being Public access over private land is individually undertaken at St Ouen’s Bay (wall repair). negotiated and over time a network of footpaths, bridle paths and cycle ways has 4.3.3.2 Another study was commissioned evolved. There are still many areas, not just from HR Wallingford (April 2007) to examine on the coast, where public access is very the potential impact of climate change on restricted. Links between different parts of Jersey's coastal defence structures. The the network would be extremely beneficial report concluded that adaptation measures to the development of an integrated network, would be required in the longer term and with spin off benefits of encouraging an stressed the importance of the early increase in walking and cycling through the development of a framework for decision provision of safer routes. The planning making based on criteria which would be policy regime should seek to protect and used to decide how best to invest public maintain existing public access to the coast funding to reduce the threats to the and, where it is relevant and appropriate to community of flooding and erosion. It found do so, provision for new public access should that existing seawalls, whilst offering a high be encouraged as an integral part of standard of defence, could suffer from more development proposals. intense and frequent wave over topping in the future. It found that the impacts of sea level rise would be small over the next 10-20 Question 10 years, however planning should start now on improving existing defences over the Coastal access coming decades.
Do you agree that the revised Island 4.3.3.3 The report also stated that there Plan should encourage the provision of needed to be a discussion and agreement new public access to the coast as an on the relative weighting to be given to inter integral part of development proposals, alia protecting 'public' and 'privately owned' where appropriate? assets. The study noted there is no planning policy in the 2002 Island Plan to prevent development close to the coastline of Jersey in areas that are presently, or in the future, at risk from coastal hazards such as erosion
30 Island Plan Review: Strategic Options Paper Green Paper (July 2008) or flooding. Future planning policies will 4.3.5.2 The principal issue to be therefore need to take into account the considered relates to the potential for further consequences of future predictions of climate land reclamation at La Collette in St Helier. change on coastal defences and discourage This is mentioned in Section 3.5.3 et seq in development in areas at risk from erosion or relation to La Collette, the commercial port flooding both now and in the future. and inner harbours. It should be noted that incursion into the South East Coast Ramsar 4.3.4 The Marine Protection Area site could only take place following reference back to the UK Government and the Ramsar 4.3.4.1 Currently the Island Plan declares Council of Parties. a Marine Protection Area - extending from the Mean High Water Mark (MHWM) to 4.3.5.3 In cases where there is felt to be territorial limits - where a precautionary an over-riding national interest, reclamation principle applies severely restricting should only be considered after a full development. Consideration has been given investigation of all possible options and to applying spatial planning principles to the against specific criteria. These options and sea, with greater or lesser restrictions on criteria are considered further in the 12 certain types of development depending on ‘Waste’ chapter. the quality and sensitivity of the sea and seabed. Whilst this may be desirable it could 4.3.6 Managing aquaculture not be introduced without a significantly greater evidence base than now exists. The 4.3.6.1 A specific issue concerning the need for this evidence base is clearly marine environment relates to marine identified within the Integrated Coastal Zone shellfish farming (aquaculture). Management Strategy along with specific policy proposals for resolving this situation. 4.3.6.2 Current intertidal aquaculture extends to some 63 hectares on the south 4.3.4.2 Depending on the outcome of the eastern and eastern coasts. This has Green Paper consultation, there may be a developed in the best areas, with shelter and need to enhance this policy to ensure that accessibility being the most important the impact of development which does factors. If profitability improves it is likely that require a coastal location and which may be there will be applications for concessions in considered favourably within the MPA, is other areas on the east coast (Grouville Bay sufficiently mitigated so as not to cause and St. Catherine’s Bay). There has also undue harm to this sensitive environment. been some interest in areas around St Aubins Fort. It is likely that the lack of shore 4.3.5 Reclamation based facilities is limiting growth of this industry at present. In some cases these are 4.3.5.1 One of the major issues the revised currently located well away from the South Island Plan will have to deal with is that of East Coast where the industry is land reclamation. On the basis of the concentrated. precautionary principle, further land reclamation should be discouraged. The 4.3.6.3 A large proportion of the 2002 Island Plan proposal to reclaim land at concessions lie within the South-East Coast St Aubin should be reviewed against this Ramsar site. These concessions also have context, especially as the proposal was the majority of activity and land-based recently rejected following a local forum. facilities associated with them. Further development would bring more pressure on
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areas for wading birds, cause more of a reinvigorate and strengthen this guidance visual impact and displace other beach users by updating and incorporating it within the i.e. amateur fisherman, walkers etc Island Plan Review.
4.3.6.4 Concerns have been raised about A West Coast National Park? the rapid expansion of these concessions, both in terms of physical presence within the 4.4.2 An issue arising from the protection intertidal zone and the increase in associated regime at St Ouen's Bay is whether a activity and the resulting impact on the National Park should be declared focusing features for which the Ramsar site was on this area and also potentially including designated. the other important west coast areas where, through their exposure to westerly winds, 4.3.6.5 The capacity of this sensitive give them a wild and distinctive character intertidal environment to accommodate quite different to the other coasts. Such an further economic activity without undue harm area could potentially include Corbiere to the character of this part of the coast and headland; Ouaisne heathland, dunes and its role as an important area for wading birds wetland;Portelet and Noirmont Commons to presents issues for land-use planning and the south and Les Landes and Plemont to the management for fish-farming activity. the north. It is important that the boundary Work is required to better understand the reflects international practice such as: ability of this area to accept further change, the outcome of which should be considered The Park area should be of outstanding in the context of the planning policy and national importance for natural heritage, fishing licensing regimes. or the combination of natural and cultural heritage; The area should have a distinctive Question 11 character and coherent identity; Designating the area as a National Park Managing aquaculture would be the best way of meeting the protection and enhancement of these Do you agree that the revised Plan features and management of should allow for the further growth of recreational pressure. aquaculture - subject to consideration of its environmental and other impacts? 4.4.3 Any national park would also need to meet international standards of management and protection. It may not 4.4 St. Ouen's Bay require primary legislation, as the principles can be established within the revised Island 4.4.1 The St Ouen's Bay area is the Plan and secondary legislation. Designation closest Jersey has to a National Park. It was as a National Park would likely lead to the designated as a ‘special place’ in 1978 and introduction of stricter planning controls and positive land management initiatives have an enhanced planning policy regime. been implemented to enhance and maintain its character. Supplementary Planning Guidance entitled the St Ouen's Bay Planning Framework was developed in 1999 which set out a number of aims and objectives for the area. It is proposed to
32 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 4.5.4 The Biodiversity Strategy published Question 12 in 2000 (3) was Jersey’s response to signing the International Convention on Biological West Coast National Park Diversity 1992 at the Rio Earth Summit. One of the commitments from the biodiversity Do you agree with the idea of a St strategy and Article 8 of the Convention was Ouen's Bay and West Coast National to produce local biodiversity action plans to Park? achieve recovery of our most threatened species and habitats. Jersey’s first set of Please state the reasons for your action plans were published in July 2006. answer and your views on the suggested coverage in the free text box. 4.5.5 The first set of plans tackle 51 species that are protected, rare, declining or significant in Jersey. Over time, the project 4.5 Biodiversity and the natural will address all threatened or protected environment species and habitats. Each individual plan sets out the problems faced by the animal 4.5.1 Biodiversity is the variety of life forms or plant and lists the practical actions and that we see around us. It includes the whole targets necessary to ensure its survival. range of mammals, birds, reptiles, amphibians, fish, insects and other 4.5.6 The States is carefully examining the invertebrates, plants, fungi and implications of these for the Island Plan microorganisms. Biodiversity also review. Key issues include enhancing encompasses ecosystem variation and biodiversity in urban areas and restoration genetic variation. of important habitat in degraded areas. To this end the States has commissioned 4.5.2 Despite its relatively small size, research on areas that might need to be Jersey is highly prized for its rich and diverse further protected to establish ecological habitats. The variety of the Island’s corridors and bridge missing links. landscape supports a myriad of wildlife and the particular mix of wildlife is unique. 4.5.1 Sites of Special Interest Jersey’s geographical position and favourable climate allows many species 4.5.1.1 Additional protection for important normally restricted to either Britain or the natural sites is provided for the Planning and European continent to extend their range, Building (Jersey) Law 2002, which allows for resulting in an overlapping mixture of animals designation of sites as ecological or and plants found only in the Channel Islands. geological Sites of Special Interest (SSI). 275 hectares of ecologically important 4.5.3 Jersey has a responsibility and habitats are protected with SSI status and international obligations to protect and 10 additional habitats, totalling 210 hectares, promote its unique biological heritage for all are proposed SSIs of which half are already the environmental reasons already indicated. managed for nature conservation by the Our landscapes, seascapes and wildlife not Planning and Environment Department or only enrich our lives but they constitute a the National Trust for Jersey. valuable component of the Island’s tourist resource base.
3 States of Jersey Biodiversity Strategy
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4.5.1.2 In the context of this section, an restrictions on development options as these SSI may be designated due to its special habitat types only cover a minority of the zoological, ecological, botanical or geological Island. interest. An SSI can also be designated for special architectural, archaeological, artistic, historical, scientific, or traditional interest that Question 13 attaches to a building or place. Key habitats 4.5.2 Key habitats Do you agree that the revised Island 4.5.2.1 The process of designation of SSIs Plan should protect key habitats? has sped up considerably since the introduction in 2006 of the Planning and Building (Jersey) Law 2002 and its simpler 4.6 Jersey's water cycle process of designation. However, many priority species in Jersey inhabit areas which 4.6.1 It is suggested that the revised Island are small in size and outside these areas Plan take an integrated approach towards and so are vulnerable, it may be necessary planning for the water cycle. to give additional planning protection to certain key habitat yypes. Water supply
4.5.2.2 These areas were identified as part 4.6.2 In recent years it has become of the Biodiversity Strategy work as the main increasingly apparent that climate change areas where priority species are and specifically global warming is concentrated. They are areas of coastal undoubtedly occurring. The potential heathland, dunes, woodland, wet meadows, impacts of climate change as a whole are marsh and fresh water – as well as walls and likely to be dramatic, not least for water banque/ boundary features. resources upon which all living organisms depend. It is therefore essential that the 4.5.2.3 Some of these features are already potential effects of climate change on the protected in the Island Plan, but mainly for availability and sustainability of water their landscape value – through other resources is adequately understood and the designations such as Green Zone – rather impacts properly managed. than for their intrinsic biodiversity value. 4.6.3 The impact for the supply of water 4.5.2.4 This has caused problems with of current predictions under climate change policies on the Green zone for example scenarios are that winter rainfall will unable to resist proposals which have led to increase, summer rainfall will decrease and drainage of wet meadows on valley bottoms, higher temperatures will increase surface as agriculture would still be the main use, or evaporation. This has particular implications infilling of steep valley areas or loss of for the Island as all of Jersey's fresh water woodland to agricultural use. resource originates from rainfall landing on the island and Jersey’s water supply is 4.5.2.5 One option would be to protect almost exclusively supplied from surface identified key habitat types from development water sources to around 90% of the public resulting in loss of biodiversity. An population. Winter storage is limited by the examination of these areas has shown that current size of our reservoirs which means this would not place unreasonable
34 Island Plan Review: Strategic Options Paper Green Paper (July 2008) that there is the potential for an increase in 4.6.7 The Island Plan currently restricts droughts in the summer months in coming development where it is not served by mains years. sewerage. This policy needs to be reviewed in the light of new technologies such as 4.6.4 Unfortunately such a decline in micro treatment plants. available water is generally matched by an increase in water demand as the population Surface water flow increases, new housing and commercial premises are constructed and, with 4.6.8 Jersey's geology, being land mostly increasing affluence, to supply appliances well above sea level on granite with short, and facilities such as washing machines, fast streams, mean that it does not suffer dish washers, power showers and swimming from watercourse-based flooding of the form pools. The total quantity of groundwater experienced on mainland areas. Instead abstracted is uncertain but the enactment of there is localised flooding of areas with poor the Water Resources (Jersey) Law 2007 will surface water run-off or flooding of existing permit the collection of information that will marshy areas. One area where surface water allow a proper assessment of volume to be run-off has been a problem has been in St made in the future. Helier, now being solved through an underground storage area and separation 4.6.5 Resolving the increase in demand of surface water and sewerage drains. and decline in supply can be tackled in a However, the Island Plan Review may need number of ways, for example, by the to allow for flood prevention measures or "no potential extension of Val de la Mare build zones" in those areas where flooding reservoir; a reduction of leakage in the is potentially a problem. Jersey Water distribution network and from private connections; a potential increase in 4.7 Energy desalination and; an increase in householder metering in an attempt to reduce use. Jersey 4.7.1 The States of Jersey published ‘Fuel Water is currently carrying out a 25 year for Thought’ a green paper consultation on (4) Water Resource Assessment, which will be an energy strategy for the Island in October completed later this year. This assessment 2007. Proposed policy options centre on will tackle these issues and the land use stabilising energy use at 2005 levels by implications will need to be taken into encouraging energy efficiency via a suite of account within the Island Plan review. legislative and fiscal measures.
Surface water 4.7.2 Jersey is vulnerable to global trends in energy due to its reliance on imports of 4.6.6 Sewage is pumped from all over the electricity and liquid hydrocarbons. Jersey’s Island to a central treatment plant at energy related carbon emissions are very Bellozanne with a small quantity pumped to small on a global scale and have fallen by a package treatment works at Bonne Nuit. around 31% in the period between 1991 and Increased water demand will lead to a rise 2005 as a result of the switch from on-Island in disposal which means that the sewage oil fired electricity generation to importing treatment capacity will have to increase. low carbon electricity from France. Infrastructural upgrades and renewals will also be required.
4 Energy Green Paper
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4.7.3 The goal of the draft energy policy 4.7.6 The Energy Green Paper has is to achieve ‘secure, affordable, sustainable considered the overall energy strategy in energy’. To achieve this goal it proposes an detail and specific proposals for ‘energy hierarchy’ for action decarbonising the local economy through a long-term move to renewable energy by Use less – Reduce the environmental 2030 have been put forward for debate in and economic consequence of energy the Energy White Paper. However, it is use by simply reducing our energy appropriate here to consider the implications demand. for land use planning policy in respect of the Use less carbon-intensive fuels –These large scale infrastructure. It is important to are finite in the long term and the note that the exact location of any proposed environmental (and thus economic) installation of whatever technology would costs of their use are great. The options require an Environmental Impact Statement for switching to renewably generated which would address the detailed impacts fuels will continue to increase as and necessary mitigation required for that technologies become viable. site. The following sections address ‘in Use less imported energy – the principle’ support for various options that exploitation of the Island’s indigenous might be feasible for Jersey in the coming generating capacity will give greater years. security and resilience in the longer term. Wind energy Reduce other impacts – All energy sources have environmental impacts. - 4.7.7 Jersey has relatively good on and Where possible these impacts should off shore wind resources. An analysis of local be reduced by choosing the most conditions by a consultancy that specialises benign options capable of servicing the in renewable energy has shown the areas energy needs of the island. with potential for on-shore generation to be good (5). The north coast is especially good Off-set residual unavoidable carbon with the west coast and parts of the western emissions using bona-fide carbon escarpment also showing potential. Current offsets. utility scale on-shore technologies deliver 4.7.4 The Island Plan Review will need to one to two megawatts with a hub height of consider the land use planning implications 60-80m with rotor diameters of 80m. of any emergent energy strategy. 4.7.8 Despite a relatively good theoretical Utility-scale renewable energy options energy resource, the practical and planning difficulties of accommodating wind turbines 4.7.5 Fossil fuels are polluting, finite in of this size on land must be considered: nature and likely to display trends of increasing prices. There are strong economic Aviation Impacts: the presence and reasons and improvements to the security operation of wind turbines is a cause for of supply that can be achieved by reducing concern for the airport and associated dependence on them, instead exploring the technical facilities such as air traffic utility scale renewable energy options open control and radar sites. Clearly the to Jersey. location of turbines would be limited by their potential impact on air traffic safety;
5 States of Jersey Energy Policy
36 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Visual Impact: whilst views vary, the 4.7.11 Some might argue that these costs most suitable areas technically are also could be reduced if wind turbines were sited the most landscape sensitive parts of on or near the islets, although these are a the island and the visual impact of wind considerable bird habitat resource and are turbines is considerable given their large protected by an international nature size; conservation designation. Noise: UK studies suggest a 500m minimum distance from residential 4.7.12 There are other barriers to the properties, of which there are very few, development of offshore wind farms and if any, places in Jersey. Alternatively many that are described above apply equally there could be an approach based on to offshore marine renewable installations maximum noise standards; but it is possible that these could be more Ornithological Impacts: birds are at easily overcome than onshore siting. risk of striking turbines and avoid settlement in their vicinity thus the installation of turbines can represent a Question 14 significant loss of habitat. This is critical when considering the high conservation Utility-scale renewable wind energy status of the areas that have the highest (onshore) theoretical energy yield; Do you agree that the new Island Plan Radio Communications: turbines can should be more permissive of the block signal paths including from development of onshore wind energy microwave links, cellphones and facilities, which might be in sensitive terrestrial TV systems, and so must be coastal locations? located away from such facilities which are also clustered on the north of the island; Site practicality: including grid access, Question 15 terrain and site steepness. Utility-scale renewable wind energy 4.7.9 Alternatively, the practical issues (offshore) associated with offshore winds are fewer and arguably make them a more realistic Do you agree that the new Island Plan proposition. Offshore winds are 70-100% should be more restrictive of the higher than onshore winds and despite the development of onshore wind energy sheltering effect of the continent and the facilities and should enable the other Channel Islands the level of wind development of wind energy resource is at least as good as many other infrastructure offshore? areas in the UK where this is being seriously considered. Tidal technologies 4.7.10 Offshore wind farms are, however, currently very expensive – a 90MW offshore 4.7.13 Jersey’s large tidal range makes it wind farm consisting of thirty 60 metre high attractive as a test-ground for proving tidal turbines would cost in the region of £135-160 technologies which are currently embryonic million. In addition, the costs of operating at sea are almost double that of onshore.
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in their development. Alderney’s exceptional tidal range has already attracted research and development interest in its waters.
4.7.14 Tidal stream technologies make use of underwater tidal currents in a similar manner to that of wind technologies. They require fixing to the sea bed and infrastructure such as sub-marine interconnectors to transmit the harvested energy to the nearest grid.
4.7.15 Alternatively tidal barrages and lagoons make us of the rise and fall of the tide rather than its horizontal movement. By capturing water in lagoons or behind barrages and then releasing it, energy can be harvested. Whilst tidal barrages are a proven technology (for example, La Rance) tidal lagoons are currently an emerging technology. Jersey could prove attractive for testing lagoons and they have the advantage that the environmental impact is less than for tidal barrages which normally requires the damming of a river mouth or bay with the associated submerging of coastal and inter-tidal habitat.
Question 16
Utility scale renewable tidal energy
Would you agree with the location of emerging or existing technologies in Jersey waters to generate renewable energy, such as, underwater tidal stream technologies, tidal lagoons or a tidal barrage, for example, across St Aubin’s Bay?
If you agree please indicate in the free text box which options you prefer.
38 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5 Built environment
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 39 5 Built environment
5 Built environment to encourage the environmentally sustainable use of existing buildings and 5.1 Introduction land resources; to maintain the role of the town of St 5.1.1 The 2002 Island Plan recognised the Helier as a major centre providing significance of the built environment for employment, shopping, community and Jersey. It perhaps acknowledged that there other facilities; and was a requirement to focus greater attention to protect and enhance the local on the comprehensive and more detailed character of urban and rural planning of the Island's built-up areas, whilst communities and the identity of the town continuing to protect and maintain Jersey's and local centres. precious coast and countryside. This may reflect a recognition that the built 5.1.4 These objectives provide a useful environment increasingly provides the basis against which to examine the physical context within which most Islanders performance of the Island Plan 2002 to date live, work and meet . and to analyse the strategic issues of relevance to its review. 5.1.2 The 2002 Island Plan defined the Island's built-up area to include three main 5.2 Regeneration and enhancement entities; of the built environment
the town of St Helier (including the 5.2.1 The 2002 Island Plan continued to contiguous urban areas of First Tower, broadly apply the same spatial strategy to St Saviour and St Clement); that adopted in the 1987 Island Plan, which the coastal strip; and essentially sought to restrict development to rural and urban settlements within or adjacent to the existing built-up area. This approach not only sought to 5.1.3 It delineated the extent of these ensure the continued protection of the areas, by defining them as Built-up Area on countryside but also encouraged the the Island Proposals Map, and set out a redevelopment and re-use of land within the series of objectives of particular relevance built-up area. to the built environment. 5.2.2 The 2002 Island Plan redefined the to promote the regeneration and Built-up Area boundary, resulting in new enhancement of the built environment development on the edge of the previously and the re-use of land, required for defined urban area where land was development, within the existing built-up previously subject to a planning policy areas; regime applicable to the 'countryside' (which to promote the high quality design of generally presumed against new development in terms of materials, development). The extent of review or layout and landscape, density, safety 'relaxation' of these boundaries, however, and security, environmental context and was not such that it diluted the focus of accessibility; development activity on the redevelopment to protect and promote the built, cultural and regeneration of the Island's built-up area, and archaeological heritage; in that the release of urban edge sites generally served to consolidate existing urban areas.
40 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5.2.3 The relatively high level of visitors and investment, and planning plays development activity in the years a critical role in securing quality in the design immediately following the adoption of the of places and spaces. 2002 Island Plan - largely reflecting the buoyancy of the economy - and the public 5.3.3 Planning policy and robust sensitivity of the development of some urban development processes can be used to edge sites, together with some public demand good quality schemes. Embedding concern at the redevelopment of existing design quality within local policy, urban sites at higher densities, resulted in pre-application, application and development the States reviewing parts of the Built-up management processes can help establish Area boundary and also protecting a large high standards for development and control number of public open spaces within the the quality after permission has been Built-up Area. Notwithstanding these interim granted. Island Plan amendments, it is evident that the Plan was successful in delivering 5.3.4 To ensure aspirations for quality are regeneration and enhancement of the transformed into quality on the ground, the Island's built environment through the new planning process can help by: policy regime, evidenced by the level of new providing a clear and robust policy development - particulalrly new homes - framework, with locally distinctive policy delivered by the Plan. that provides clarity to developers about 5.2.4 With regard to the current review of what is acceptable. the Island Plan, the issue of redefining the ensuring there is sufficient guidance at Built-up Area boundary is considered as part a range of levels - site briefs, of the 3.3 ‘Performance of the spatial masterplans, design codes, and area strategy’ within this paper , and the issues action plans. All will play an important of the 5.5.1 ‘Density of development’ and the role in setting out expectations for 5.5.2.1 ‘Protection of public open space’ are development raised later in this section. demanding good quality schemes - use pre-application discussions, design and 5.3 Promoting better design access statements and ensure the planning application contains sufficient 5.3.1 At its best, planning can deliver detail well-designed development in the right place ensuring that planning conditions and and at the right time. But poor planning can legal agreements are used to secure leave a terrible legacy of failed buildings and quality spaces. The Minister for Planning and accessing design skills - either in-house; Environment has prioritised the Island Plan through consultants; or through expert objective of promoting better design and is design review processes determined to significantly raise the standard monitoring design quality of building design in the Island as an essential part of creating sustainable 5.3.5 The Minister for Planning and development through the planning process. Environment has carried out a significant amount of work in relation to these objectives 5.3.2 The value of well-designed places to raise the design agenda and to raise the and spaces is well understood: functional, quality of design in Jersey. visually attractive, safe, accessible and inclusive places and spaces attract residents,
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 41 5 Built environment
5.3.1 Design policy and guidance This will become the Jersey Design Guide (2) which will describe and illustrate the key 5.3.1.1 The policy framework which deals elements that make up the Minister’s design with design is provided by 2002 Island Plan principles. Policy G3 – Quality of Design and G4 – Design Statements. The Minister has sought 5.3.1.3 Area based design guidance is to supplement and expand upon these also to be issued as supplementary planning policies by issuing new supplementary guidance: the St Helier Urban Character (3) planning guidance (1) setting out his particular Area design guidance identifies areas of objectives for design which presently include: distinct character of the town and provides a set of design principles. This guidance is We should aim for the highest standards derived from the St Helier Urban Character in the design of new buildings in Jersey; Appraisal, (4) undertaken under the auspices High standard traditionally designed of Policy BE1 of the 2002 Island Plan, to schemes, modern interpretations of greater understand the value, significance traditional schemes and modern and form of the townscape of St Helier. For architectural schemes should all be distinct character areas the guidance sets encouraged. The emphasis must be on out how development proposals might be quality. assessed and best handled relative to each New buildings should generally be design principle, to ensure that new designed having regard to their context. proposals contribute to and, where possible, They should be appropriate to their enhance the particular characteristics of that surroundings, from which they should part of the town. draw reference, in terms of building form, mass, height, materials and so on; 5.3.1.4 The Minister will also publish a New buildings should reflect their series of supplementary planning guidance relevance to Jersey. This may be documents – in the form of masterplans or achieved in a number of ways, development briefs - aimed at specific sites including: and areas to, amongst other things, ensure high quality design. Most notably, the the modern interpretation of familiar or Masterplan for the St Helier Waterfront will traditional architectural details; be supplemented by a set of design codes form; for this new quarter of the town. Other sites the proportion of windows and the within the existing town – where they are relationship between solid and void on particularly prominent or the subject of major elevations; redevelopment proposals sponsored by the colours; and States as part of the regeneration of the town the materials used – will be the subject of design and development briefs. 5.3.1.2 These objectives are to be reviewed and refined and further supplementary planning guidance is to be issued to assist designers and their clients in achieving and championing good design.
1 Planning Advice Note 4: Design Statements (December 2006) 2 Planning Advice Note: Jersey Design Guide (pending) 3 Planning Advice Note: Urban Character Area Design Guidance(pending) 4 Willie Miller Urban Design (2005) St Helier Urban Character Appraisa l
42 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5.3.2 Design skills Island’s quality of life. That heritage includes specific sites and monuments of 5.3.2.1 The Minister has sought to engage archaeological, historic and cultural the architectural profession in Jersey to help importance, as well as the distinctive forms him raise the standard of design. and patterns of building, architecture, Architecture Week has been used to enclosure and landscape that are unique to showcase inspirational design – drawing on the Island. contributions from renowned UK practitioners – to demonstrate what can be achieved. The 5.4.1 Identifying and protecting the Minister has also; encouraged the use of historic built environment renowned architects in Jersey; has developed a constructive and open dialogue 5.4.1.1 The Minister for Planning and with Jersey architects through the Environment has obligations under law and Association of Jersey Architects; and has international convention to identify and sought to ensure that the Planning and protect the Island’s important heritage Environment Department has its own and assets. The legal and policy framework to access to professional design skills in the do this has evolved over time and has review of development proposals. resulted in a designation and regulatory system that now warrants review. In essence, the current system affords two Question 17 different levels of control based on the classification of the heritage asset: this data Quality of design is held in the Register of Buildings and Sites of Architectural, Archaeological and Historic Do you agree that the quality of Importance in Jersey (5). In the case of design in Jersey is improving? buildings and structures, the following applies;
Sites of Special Interest : where Question 18 control can extend to both the exterior and interior of a building and where Planning for design operations, that would not otherwise amount to development, can be Do you agree that there is a clear and controlled; robust framework of planning policy Buildings of Local Interest : where and guidance to help deliver better, control relates to the exterior of the locally distinctive, design in Jersey? building or structure and can only be exercised where a proposal amounts to development. 5.4 Managing Jersey's heritage assets 5.4.1.2 With regard to archaeology, the Minister for Planning and Environment 5.4.1 Jersey has a rich and diverse introduced, in 2007, new supplementary heritage, which makes an important planning guidance (6) which has enabled work contribution to its identity, character and the to be undertaken on the identification and
5 http://www.gov.je/PlanningEnvironment/Planning/Historic+Buildings 6 Planning Policy Note 1: Archaeology and Planning (Jan 2007, updated Jan 2008)
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designation of sites of archaeological interest throughout the Island – as Sites of Special Interest, Archaeological Sites, or Areas of Archaeological Potential. This has ensured that archaeological considerations are an integral element in the control of development where it affects designated sites.
5.4.1.3 The framework to identify and define the Island’s heritage assets is under review with a view to simplifying the system of classification for individual sites, structures and buildings whilst also giving consideration to the introduction of an area-based form of protection – loosely akin to the UK designation of Conservation Areas – to be known as Historic Character Areas.
5.4.1.4 It has been suggested that too many of the Island’s heritage assets are protected in some way, whilst an alternative view is that too much of the Island’s historic built environment is without sufficient protection and is being lost as a result of increasing development pressure. Whilst not necessarily conferring any additional statutory protection, it has been mooted that the Island might consider the preparation of a bid for World Heritage Status potentially related to the fortifications of the Channel Islands. The extent of the existing protection – reflected in the number of formal designations - of the Island built heritage assets is set out below:
Indicator 2005 2006 2007 Trend Comment
Number of Listed - a) 4,235 (a) 4,290 +1% This small increase in the or registered number of protected buildings is buildings (a) in the (b) 35.2 (b) 35.75 largely related to a review of Island (b) per existing entries on the Register hectare (ie where single entries relating to multiple properties (eg a terrace, are being re-entered as individual properties)
44 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5.4.1.5 Designation as a heritage asset is Question 20 only part of the story: the effect of protection is only felt when proposals to bring about Rigour of historic built environment change are tested against the framework of protection planning policy and guidance for the protection of the historic built environment. Do you agree that the level of protection This is presently provided by the Island Plan for the historic built environment given polices G10-G13 and associated by the current planning policy regime is supplementary planning guidance. There is too restrictive? no definitive monitoring of the application of historic built environment planning polices and/ or the impact of the implementation of 5.4.1.1 Historic Character Areas development proposals upon protected sites or buildings. 5.4.1.1.1 The designation of parts of the Island’s historic built environment as 5.4.1.6 The control of development is but Conservation Areas is a longstanding one tool in the management and proposal, featuring in both the 1987 and conservation of the historic built environment. 2002 Island Plans. The requisite legislative Raising the awareness of owners, occupiers, framework is now in place to enable this to architects and agents of the value and happen and the introduction of an significance of historic buildings and fabric area-based designation would afford an is also an important factor relative to ongoing opportunity to consider and, where maintenance and proposals for change. The appropriate, protect the contribution that Minister has recently issued new many humble and unsophisticated historic supplementary planning guidance about buildings and structures, as a group or a aspects of change in historic buildings collective entity, make to the Island’s built-up including best practice on the treatment of areas and particularly to the character of (7) historic buildings for all types of work , along different parts of St Helier. with specific guidance and policy for the treatment of changes to windows and doors 5.4.1.1.2 Proposed to be known as Historic in historic buildings (8). Character Areas, their designation would provide a way for the greater townscape and Question 19 character of the historic built environment to be considered and taken into account in the Extent of protection of the historic development process. built environment 5.4.1.1.3 The designation of Historic Do you agree that there are too many Character Areas would be based on areas buildings and sites identified and with distinctive and coherent quality and designated as being of architectural, character, and with particular concentrations archaeological and historic interest in of historic buildings. Work has already been Jersey? undertaken to identify potential Historic Character Areas in St Helier and includes the following areas, each of which have their own distinct character:
7 Planning Advice Note 6: Managing Change in Historic Buildings (pending) 8 Planning Policy Note 2: Windows and doors in historic buildings (pending)
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Havre des Pas: seaside exuberance The Terraces: formal set pieces Question 22 Royal Crescent, Don and Grosvenor Terraces Designation of Historic Character St Saviour's and Waverley Areas Terraces Almorah and Victoria Crescents Do you agree with the proposed designation of those parts of St Helier Gloucester Terrace and the Island identified as potential West Park: seaside exuberance Historic Character Areas? Old town: the historic core The Parade: northern town expansion Great Union Road: town expansion 5.5 Sustainable design New town: town expansion Old harbours: old seaport and trade 5.5.1 The development and use of land buildings has environmental implications. The desirability of using land efficiently and 5.4.1.1.4 Elsewhere in the Island, the reducing, and adapting to, the impacts of contribution of the historic built environment climate change have to be a key to the determination of a place’s character consideration given the environmental is important in settlements around parish challenges that we currently face and the churches; at the Island’s harbours and in 2002 Island Plan sought to encourage the some scattered agricultural hamlets, where sustainable use of existing buildings and land there is potential for the further designation resources as an explicit objective. of Historic Character Areas. Further smaller HCAs may also be proposed for designation 5.5.2 Done well, urban development can in St Helier. help us live within the limits of environmental resources and slow demand for energy and materials through efficiency measures and Question 21 recycling. Done badly, development can increase pollution, widen social and Historic Character Areas economic inequalities and deprive future generations of environmental assets. If Do you agree with the introduction of an Jersey is to demonstrate a commitment to area-based designation for the environmental responsibility, it needs to protection of the historic built continue to develop a coordinated response environment in the form of Historic to current environmental challenges that Character Areas? manages the Island’s limited resources – and particularly land and buildings - in the most efficient and effective way.
5.5.3 In developing a response to arrest the decline of the UK’s city centres the Urban Task Force, chaired by Richard Rogers, set out the following vision: Our vision is of a planning system that takes every opportunity to use brownfield before greenfield sites; of a regeneration, recycling
46 Island Plan Review: Strategic Options Paper Green Paper (July 2008) and reinvestment approach to existing more efficient use of land - without homes and communities; of new high-density compromising the quality of the local developments that meet the highest energy environment. efficiency standards; of buildings and neighbourhoods designed in such a way as 5.5.1.2 The 2002 Island Plan sought – to reduce resource consumption and through the rezoning of land for new housing pollution; of communities served by high to meet the Island’s housing need, under the quality environmental infrastructure; and of auspices of Policies H2, H6 and H7 - to a development process that engages promote an approach to the use of new communities and encourages a sustainable greenfield land for housing that would approach from the public and private sector encourage the most efficient and wise use bodies that play a part. (9) of this valuable resource by maximising the development yield of these sites whilst 5.5.4 The implementation of this vision for paying heed to, amongst other things, local the UK’s Urban Renaissance has been character; the capacity of local infrastructure reflected in a changing culture in favour of – such as schools, roads, sewerage systems towns and cities in the UK, for the first time – and amenity considerations for existing in 50 years. This has served to demonstrate and new residents. This was based on the that successful urban renewal can help premise that a more efficient, dense address some of the most important development of one new greenfield site environmental challenges of our time – by would likely reduce the need to build on yet reusing land and buildings which have another greenfield site, to meet the Island’s already been developed, and using them in demand for homes. a more sustainable and efficient way. Whilst not exactly the model of a declining industrial 5.5.1.3 This ‘design-led’ approach to the British city, Jersey – as a small island with development of new housing has been limited resources – can learn much about publicly unpopular – mainly on the basis of the wise and efficient use of resources – objection from existing local residents that particularly land, energy and buildings - from the proposed new development is ‘too dense’ the UK urban renaissance. or an ‘overdevelopment‘ of the site. As a result, new urban edge housing sites have 5.5.5 The application of this approach to not generally used land efficiently and have matters such as the density of development; not delivered any greater yield of homes to green space and the re-use and meet the Island’s housing need and best refurbishment of existing buildings is of utilise a valuable resource. Typically particular relevance to the review of the densities of 30-35 dwellings per hectare Island Plan. (around 12-14 dwellings per acre) have been achieved, which equates to a level of density 5.5.1 Density of development associated with ‘typical’ three-bedroom suburban housing estates – representing an 5.5.1.1 Density is a measure of the inefficient and arguably wasteful use of land. number of dwellings which can be accommodated on a site or in an area. If 5.5.1.4 A more sustainable approach to done well, imaginative design and layout of the development and redevelopment of land new development can produce a higher would require the application and delivery of density of development - representing a higher densities and greater housing yields
9 Urban Task Force (November 2005) Towards a Strong Urban Renaissance
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– Lord Roger’s Urban Task Force recommended the introduction of a minimum Question 23 density standard for new residential development of 40 dwellings per hectare. Density of development The UK Government’s Planning Policy Statement 3 (PPS3): Housing (10), sets out a Do you agree that the density of new national indicative minimum net density (11) of residential development should be 30 dwellings per hectare as a strategic guide optimised so that land is developed as against which local density policies are to be efficiently as possible? developed, and below which, proposed development requires exceptional justification. Question 24 5.5.1.5 The density of existing development should not dictate that of new Density standards housing by stifling change or requiring replication of existing style or form. In Do you agree with the introduction of a locations with good access to amenities and minimum net density standard for new services - including shops, schools, places residential development? of work, and good bus routes - it should be possible to increase the density of development to ensure a more efficient use 5.5.2 Public open space of land, without compromising local character or design quality. 5.5.2.1 It is increasingly recognised that the quality of public space and the built 5.5.1.6 New residential development at environment has a direct impact on people’s around 40 dwellings per hectare and higher lives and on the way they feel and that well requires a tighter form of development with designed, well-managed public spaces semi-detached and terraced housing, whilst contribute significantly to the character and still being able to accommodate family identity of places and communities. homes. Such densities are now being achieved, in good quality residential 'Public space is all around us, a vital development schemes in the UK (12). part of everyday urban life: the streets we pass through on the way to school or work, the places where children play, or where we encounter nature and wildlife; the local parks in which we enjoy sports, walk the dog and sit at lunchtime; or simply somewhere quiet
10 Department for Communities and Local Government (November 2006): Planning Policy Statement 3 (PPS3): Housing 11 Net dwelling density is calculated by including only those site areas which will be developed for housing and directly associated uses, including access roads within the site, private garden space, car parking areas, incidental open space and landscaping and children’s play areas, where these are provided. 12 see case studies at www.cabe.org.uk. Examples include, Butts Green, Kingswood, Warrington; Newhall, Harlow, Essex; The Piggeries, Frome, Somerset; The Village, St Austell, Cornwall
48 Island Plan Review: Strategic Options Paper Green Paper (July 2008) to get away for a moment from the 5.5.2.5 Linear public space can also bustle of a busy daily life. In other provide access routes, along which to walk words, public space is our open-air and cycle, and green space can also provide living room, our outdoor leisure centre' value for biodiversity and nature, particularly (13). in urban environments.
5.5.2.2 A high quality public environment 5.5.2.1 Protection of public open can have a significant impact on the space economic life of urban centres. Access to good quality, well-maintained public spaces 5.5.2.1.1 The 2002 Island Plan recognised helps to improve physical and mental health the value of public open space and conferred by encouraging us to walk more, to play a general policy presumption against its loss sport or simply to enjoy a green and natural – through policies TR4: Protection of environment. Recreational and Cultural Resources, and BE8: Important Open Space. The Plan did 5.5.2.3 Good quality public spaces – not, however, comprehensively identify those including well designed school grounds – sites to be protected and, to address this, can provide children with opportunities for proposed the carrying out of an open space play – which is crucial for many aspects of strategy. This work will be carried out as part child development. of the Island Plan Review, and it is proposed that all of the important public open space 5.5.2.4 Public spaces are open to all and in Jersey is identified and defined in order they can bring communities together, provide that it might be protected from inappropriate meeting places and foster social ties: they development. It is proposed that open space are important in shaping the cultural identity in Jersey is classified and protected on the of an area, are parts of what makes the basis of the following typology: character of a place and can provide a sense of place.
Typology Description
Parks This includes formal parks with public access. They take on many forms, and may embrace a wide range of functions, including: Informal recreation and outdoor sport. Play space of many kinds (including for sport and children’s play). Providing attractive walks to work. Offering landscape and amenity features. Areas of formal planting. Providing areas for ‘events’. Providing habitats for wildlife
Outdoor These include seasonal and fixed sports spaces that are both publicly and sports privately owned. Facilities include sports pitches for cricket, football and facilities/ rugby. Also includes fixed sports spaces such as tennis courts, artificial turf
13 Sir Stuart Lipton, Chairman, Commission for Architecture in the Built Environment in The Value of Public Space (CABE)
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Typology Description
playing pitches and bowling greens. These facilities can be located within Parks pitches and as such, many of the facilities, especially sports pitches are multi-functional. That is they can be used for sport one day, and for the rest of the week function as a space to walk and play
Informal The category is considered to include those spaces open to free and open space spontaneous use by the public, but neither laid out nor managed for a specific function such as a park, public playing field or recreation ground; nor managed as a natural or semi-natural habitat. These areas of open space will be of varied size, but are likely to share the following characteristics: Unlikely to be physically demarcated by walls or fences. Predominantly lain down to (mown) grass. Unlikely to have identifiable entrance points (unlike parks). Unlikely to have planted flower beds or other formal planted layouts, although they may have shrub and tree planting. Generally no other recreational facilities and fixtures (such as play equipment or ball courts), although there may be items such as litter bins and benches.
Children and The study has recorded the following: teenagers play space Equipped children’s space (for pre-teens) Provision for teenagers.
The former comprises equipped areas of play that cater for the needs of children up to and around 12 years. The latter comprises informal recreation opportunities for, broadly, the 13 to 16/17 age group, and which might include facilities like skateboard parks, basketball courts and ‘free access’ Multi Use Games Areas (MUGAs). In practice, there will always be some blurring around the edges in terms of younger children using equipment aimed for older persons and vice versa
Natural Jersey has large areas of natural greenspace, many of which are private greenspace or inaccessible. For the purpose of this study, all natural greenspace that has some form of public access has been included and mapped, typically this covers those areas where there are footpaths that are available for use by the public or open access. Inaccessible sites have been excluded from the audit and maps
Allotments Allotments provide areas for people to grow their own fruit, vegetables and other plants
50 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Typology Description
Churchyards The majority of the Parishes on the Island are focused around the Parish and Church, often providing a focal point within the settlement area. A number cemeteries of churches have open space (in the form of churchyards) associated with them, and a number of additional cemeteries either adjacent or nearby. Whilst not suitable for ‘recreation’, these areas provide opportunity for walking and relaxation, with many providing valuable habitats for wildlife.
Civic spaces These tend to be focused in the larger settlement areas such as St. Helier, where larger civic spaces provide space for sitting, relaxing and events and activities. In more rural areas, there many be small civic spaces associated with memorials, statues etc
Linear open Typically these are linked paths providing opportunity for recreation including spaces walking, cycling and horse riding. The network of footpaths across the Island is mapped in appendix 1. A number of these paths are known as ‘Sanctuary Paths’ (or ‘perquages’) dating back hundreds of years as safe routes from parish churches to the sea. There are also a number of strategic routes such as the Corbiere Cycle Route
Question 25 5.5.2.2.2 From this, it will be possible to undertake an assessment of need and audit Protection of public open space of existing facilities and to develop proposals to redress quantitative and qualitative Do you agree with the protection of deficiencies that exist in the Island through public open space on the basis of the planning process. This will include site proposed typologies? specific proposals for the provision of new public open space – such as the Town Park; together with standards for the provision of 5.5.2.2 Provision and enhancement public open space as an integral element of of public open space major development proposals.
5.5.2.2.1 The open space strategy will also 5.5.2.2.3 It may also involve the seek to develop standards for the provision introduction of a requirement for developers of; access to and quality of different types of to contribute towards the provision or open space throughout the Island, including: enhancement of local public open space through the use of planning obligation Parks agreements, where there are deficiencies in Outdoor Sports Facilities the extent and/or quality of local provision. Amenity Greenspace 5.5.2.2.4 It will be important to ensure, Play Space particularly in the regeneration of St Helier, Natural Greenspace. that the drive for higher density housing is not at the expense of good quality outdoor spaces.
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5.5.3.3 The vast majority of buildings are Question 26 structurally sound and potentially re-usable. Developers and architects, however, Provision and enhancement of public frequently seek to justify the demolition of open space existing buildings on the basis that any new building will be much more energy efficient Do you agree that deficiencies in the than the one it is replacing; and that the effort extent or quality of local public open and expense involved in refurbishing the space should be addressed by existing building is excessive. developer contributions associated with new development? Question 27
5.5.3 Re-use and repair of buildings Re-use and repair of existing buildings 5.5.3.1 The prudent use of resources means ensuring that we use them wisely and Do you agree with the presumption in efficiently, in a way that respects the needs favour of retaining and re-using existing of future generations. This means enabling buildings? more sustainable consumption and production and using non-renewable resources in ways that do not endanger the 5.6 Role of St Helier resource or cause serious damage or pollution. The broad aim should be to ensure 5.6.1 St. Helier is the administrative and that outputs are maximised whilst resources commercial capital of Jersey, and by far the used are minimised. Planning policies can Island’s most significant urban settlement. help minimise the need to consume new The 2002 Island Plan sought to explicitly resources over the lifetime of the maintain and develop this role and there has development by making more efficient use been a specific planning focus on the town or reuse of existing resources, rather than - which, for planning purposes, includes parts making new demands on the environment of St Saviour and St Clement - over the Plan and specifically they can seek to bring vacant period. and underused previously developed land and buildings back into beneficial use. 5.6.2 The Strategic Plan 2006-11 prioritises the need to regenerate St Helier, 5.5.3.2 The 2002 Island Plan sought to do to develop its Waterfront and to deliver the this, through the use of Policies G15: new Town Park. The Economic Strategy, Replacement Buildings and G16: Demolition agreed by the States in 2005, also of Buildings which, together, conferred a recognises the role that St Helier needs to general presumption against the demolition play in enabling and supporting economic of an existing building. This sought to ensure growth. The St Helier Development and (14) that the embodied energy contained within Regeneration Strategy produced by a those buildings would not be unnecessarily consultant team, led by master-planners wasted through demolition and also sought EDAW, which was published in 2007, to reduce the extent of waste being describes how St Helier can be improved by generated through demolition activity. attracting new residents and improving
14 St Helier Development and Regeneration Strategy (April 2007) EDAW
52 Island Plan Review: Strategic Options Paper Green Paper (July 2008) amenities for residents and visitors. Work Waterfront, and the vacating of existing is also being undertaken to consider more commercial properties in the established part strategic issues such as port development of town. Concerns have also been expressed and future inert waste disposal, as they that new investment in the Waterfront may impact on St Helier. lead to a lack of funding for the rest of town and potentially a drawing-away of retail and 5.6.1 Regenerating St Helier leisure trade. As a result there is a need to focus attention on the areas most likely to 5.6.1.1 Despite being the Island's capital be affected adversely by the predicted and the town having seen unprecedented changes. levels of new development in recent years, there remain major concerns about the future 5.6.1.4 In March 2006, the Minister for of large parts of the town. There appears to Planning and Environment appointed a team be a consensus that St Helier is a of consultants, led by urban master-planners disappointing and under-performing place EDAW, to produce a development and which has failed to keep up with changing regeneration strategy for central St Helier – expectations of residents, visitors and defined broadly as the area within the town businesses (15). There is, however, also a escarpment. That report was published in recognition that the town has an important April 2007 (16) for consultation purposes. role to play and presents significant opportunities to provide solutions in relation 5.6.1.5 The report concluded that to the perceived tensions between economic residential development was likely to be the growth and quality of life. principal ‘driver’ of regeneration in the older, established parts of town. Not only would 5.6.1.2 The Minister for Planning and this provide additional homes in the Island, Environment is fundamentally committed to reducing the extent of development in open reversing these somewhat negative countryside, but it would also ensure that a perceptions of the town and of realising its significantly increased residential population full potential of contributing to Jersey's quality in the central area would continue to provide of life. He is determined that St Helier customers for the retail trade and other becomes a place of choice and the focus for businesses, and reduce the need to travel- new development in the Island; not least to-work by private car. because there is significant opposition in the Island to the principle of building homes on 5.6.1.6 It was recognised also that there undeveloped land. are a significant number of potential development opportunities in the central 5.6.1.3 Until recently there had been little area, for the most part privately owned, and planning policy focus on St Helier. It has that these opportunities should be optimised been recognised that development of the in accordance with an overall strategy. Waterfront could shift the town’s economic centre of gravity to the south and west, 5.6.1.7 The Minister is keen to kick-start possibly to the detriment of the north and the regeneration of St Helier, and is east of the town centre. This might manifest especially keen to encourage property itself principally in a shift of town centre owners and developers to consider how they employees in large numbers towards the
15 Willie Miller Urban Design (2005) St Helier Urban Character Appraisal 16 St Helier Development and Regeneration Strategy (April 2007) EDAW
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can produce high-quality development at “To create a vibrant, compact and higher densities, while at the same time characterful town that is worthy of its benefiting the St Helier community. role as Jersey’s capital and principal settlement, with an economically 5.6.1.8 For this reason he has introduced sustainable future and which offers the Supplementary Planning Guidance to highest quality of life for its encourage new development in town as an communities.” interim measure (17), in accord with the objectives of the St Helier Development and 5.6.1.10 The Development and Regeneration Strategy, until the revised Regeneration Strategy for St Helier Island Plan is completed. establishes a clear set of strategic principles, which establish the fundamental initiatives Vision and objectives for St Helier that will need to be realised in order that the desired vision for change in the town is 5.6.1.9 This strategy for the development achieved. These principles are: and regeneration of St Helier sets out a clear vision for change which aims:
Strategic principles for the development and regeneration of St Helier
1. To consolidate the town centre to create a legible and vibrant shopping heart
2. Integrate the new Waterfront business quarter as part of the town centre
3. Define a new western gateway for the Town
4. Ensure provision of suitable floorspace to cater for the demands of economic growth and diversification
5. Establish a design-led high quality built environment, which showcases its heritage features
6. Rationalise vehicle movement and edge-of-centre car park provision to minimise vehicle movement while supporting economic viability
7. Create a ‘walkable' town – with a network of safe routes for pedestrians and cyclists to help promote modal change in transport choices
8. Create attractive residential areas to support healthy and sustainable communities
9. Establish the Town Park as part of a network of high quality open space; and
10. Renew Fort Regent, ensuring that it is physically and publicly accessible
5.6.1.11 These principles set out a clear into a town that provides a high quality living framework for delivering significant and and working environment with a singular positive change to the town over the coming character that reflects it’s unique history. decades, ensuring that St Helier will mature
17 Planning Policy Note: New Development Guidelines for the Town (pending)
54 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5.6.1.12 Over future years it is hoped that To improve public spaces within the St Helier will enhance its role as Jersey’s town centre main town and focus for Island life. It will To increase shoppers’ car parking at become one of Europe’s most desirable and Snow Hill vibrant harbour towns, with a world class Eastern Area proposals financial district, improved architecture, shopping, public spaces, leisure and arts To retain Hill Street and Grenville Street facilities, and will become a place and as an important secondary office destination of choice to visit. location To protect shops at the western end of Question 28 Colomberie from pressure for changes of use Vision for St Helier To allow the introduction of a range of new uses at the eastern end of Do you agree with the proposed Colomberie vision for St Helier? To allow conversion of poorer quality office or hotel stock to alternative uses, especially residential, but also including Question 29 potential workshop and studio space To support the development of the block Strategic principles for town east of Francis Street, between Don Road and Colomberie, to create an Do you agree with the ten strategic improved area of residential and mixed principles for the development and uses, potentially including local regeneration of St Helier? employment uses To give pedestrians priority at the western end of Colomberie and to The Strategy also makes specific proposals improve the environment on other for a number of "key areas of change", on streets providing linkages to the town’s which consultation has already taken place, parks and open spaces as follows: To simplify traffic routes through this Town centre proposals area and reduce the negative impacts of through traffic To focus new commercial and retail Mont de la Ville (Fort Regent) proposals development in the defined primary shopping area To improve access to the Fort by To support additional retail at Broad delivering three new or improved Street, with a new pedestrian link pedestrian routes which link to Snow between the Esplanade and King Street Hill, Colomberie and the harbour area To reorganise through traffic and To enhance the landmark and heritage parking facilities to improve accessibility value of the Fort by introducing new to (and within) the town centre visitor facilities, including an To promote further pedestrian priority interpretation centre telling the story of the Fort, exhibition space and a café/restaurant with views over the town To develop new ‘fit-for-purpose’ sports facilities within the Fort, as well as
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 55 5 Built environment
conference provision and sports Support for residential development on education and training facilities sites adjacent to Bath Street and on the To improve the open spaces on Mont Jersey Brewery site de la Ville, Mount Bingham, La Collette Redevelopment of Minden Street car Gardens and Snow Hill, and provide park for ground floor retail and high quality pedestrian connections residential uses, together with a new between them public square To support redevelopment of the Long-term redevelopment of offices redundant swimming pool site and to fronting Robin Place for a mixed use, promote the long-term redevelopment residential-led scheme of some existing office and residential Possible long term use of the Jersey uses on the western slopes of Mont de Gas facility for both indoor and outdoor la Ville leisure facilities (subject to future To invite developers to package viable demand) proposals for renewal of the Fort Redevelopment of Ann Court and complex, on a competitive basis, to adjacent sites to the south of Charles achieve these regeneration goals. Street to replace car parking from Western Area proposals Minden Place and Gas Place and for new residential development To provide a new western ‘gateway’ for Promotion of higher density, high quality St Helier residential redevelopment of the areas To redesign the Parade Gardens to around the new Town Park create an integrated and improved public space Question 30 To promote tourist accommodation and Key areas of change associated uses within the Kensington Place area Do you agree with the proposals for the To support new residential and parking key areas of change? provision within Westmount Quarry and to promote redevelopment of the area to the northeast of Peoples Park in the 5.6.2 St Helier Waterfront long term To expand parking provision at Patriotic 5.6.2.1 The Minister is acutely aware that Street multi-storey car park as part of many islanders feel very disappointed with the commuter parking strategy the early phases of development of the St To support high quality redevelopment Helier Waterfront and has sought to of buildings fronting the Esplanade for completely revise design proposals for the housing or office use remaining areas of development. To promote the use of other redundant sites for mixed use, higher density 5.6.2.2 The old abattoir is being housing development sensitively restored and converted to provide Northern Area proposals serviced apartments, offices, and a range of speciality shops and restaurants all linked Development of the new Town Park at by a network of indoor and outdoor streets Gas Place and squares, which will bring this beautiful old building back to life.
56 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5.6.2.3 The Waterfront Enterprise Board A space for a special building which is a wholly owned subsidiary of the States celebrates 21st Century Jersey; of Jersey charged with developing the A sustainable manageable and robust harbour and reclaimed land in States development. ownership. It shares the Minister's vision that the St Helier Waterfront will become the 5.6.2.6 The Minister published new maritime quarter of St Helier, supplementary planning guidance in 2006 reconnecting the town with its seashore, (20), following an independent review by Chris establishing a vibrant new waterfront Shepley Associates, for the remaining sites community and creating an enhanced west of Albert Pier - Esplanade Square, experience for those visiting Jersey and local Jardins de la Mer and Castle Quays. This residents. set out a number of important principles for the Waterfront which it is proposed to 5.6.2.4 A vision for the waterfront was incorporate in modified form into the revised developed in 'Waterfront 2000' (18), a weekend Island Plan. Planning permission has already long public design workshop facilitated by been granted for Phase 1 of Castle Quays, UK architects Haworth Tompkins, and and the Esplanade Square and Jardins de remains largely valid. It has been la Mer sites have been amalgamated to form incorporated into subsequent Supplementary the Esplanade Quarter. Planning Guidance for the Waterfront issued in 2006 (19). Esplanade Quarter
5.6.2.5 The aims at Waterfront 2000 were 5.6.2.7 The Esplanade Quarter is the key to provide: location on Jersey’s waterfront, because it straddles the area between the old town and A lively, modern maritime quarter which the new area of waterfront. Until now extends the best qualities of St Helier proposals have failed to provide the quality, into the 21st Century; ease of access and seamless connection A new sea frontage which integrates between town and waterfront that people with and complements the heart of the have been expecting. The States on 3 June old town; 2008 agreed the masterplan for this area (21), A place for everyone, all year round in which comprises around 630,000 square feet all weather; of office space, around 350 apartments, a A mixture of uses to bring interest, 30 bedroom hotel, 65 self catering tourist variety and quality to the Waterfront; apartments and a range of shops, A mixture of landscaped open spaces restaurants and bars. with different character and scale for meeting, strolling, sitting and playing. 5.6.2.8 Most significantly, the masterplan proposes the sinking of Route de la Priority access for all non-car users - a Liberation to provide new links between the safe, relaxed environment old town and the waterfront. The current A variety of urban spaces with durable surface level car park will be replaced high quality contemporary buildings and underground. The sinking of the road will a mix of large and small developments;
18 Haworth Tompkins Architects (November 2000) Waterfront Design Framework 19 Chris Shepley (April 2006) Supplementary Planning Guidance: The Jersey Waterfront 20 Chris Shepley (April 2006) Supplementary Planning Guidance: The Jersey Waterfront 21 Masterplan for the Esplanade Quarter, St Helier (April 2008)
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create considerable space for development lifetime. It will also need to be able to and allows for a large volume of accommodate berthing for larger ships and development without the need for tall tankers up to 200m. buildings. A grid of streets and boulevards would integrate with the old town and create 5.6.3.3 The scale of investment means a number of public squares and public open that it is unlikely that this infrastructure could spaces. be funded by the States of Jersey out of its normal capital programme. A new port is 5.6.2.9 The proposals will provide an therefore only achievable if it can be funded extended financial quarter designed to meet by the realised value of development in the the needs of existing businesses in St Helier Elizabeth Harbour area, as part of the next wishing to upgrade and improve operating phase of the waterfront redevelopment. efficiency through large footplate, raised floor Relocating the Elizabeth Harbour at La buildings, easily accessible to transport and Collette, and reclaiming some of the area the town centre, and to accommodate new between the breakwater arms, immediately businesses. adjoining the terminal, could potentially create an area of around 13.8ha (34 acres) 5.6.3 La Collette, the commercial which through residential and other port and inner harbours development could pay for the costs of a new port. It is estimated that this area could 5.6.3.1 The future development of La provide between 600-800 new homes. Collette, the Commercial Port and the Inner Harbours is currently the subject of an 5.6.3.4 Studies have also been undertaken inter-departmental feasibility study. Mindful into the impact of development constraints of the expressed wish to meet as many of on surrounding land imposed by stricter the Island's housing needs as possible within controls, following the petroleum vapour St Helier and the Island's built-up areas, the explosion at Buncefield in December 2005, potential to accommodate housing in the and the feasibility and financial viability of aforementioned areas is being evaluated. moving the fuel farm to a more remote location is being considered. 5.6.3.2 The present port facilities are ageing and inefficient - both for freight and 5.6.3.5 The potential for further land passenger traffic. The port cannot support reclamation in St Helier will be considered, either 24hr operations or berthing for larger not only as a means of disposing of inert vessels, and it is likely that there will be a waste, but also to create land for future need for a new port in due course. Crucially, development. This is explored further in the revenues from the current port operation Minerals and Waste Chapter. cannot support a major capital improvement. Feasibility work has shown that a new port 5.6.3.6 Consideration is also being given could be sited, in various configurations, at to the old harbours, and how they might be La Collette where there is significantly better used in the future. They could be deeper water. A new port will need to have developed as a marina, with associated sufficient land and buildings available to facilities to service the marine leisure accommodate commercial port operations industry. This would mean the loss of many and potential expansion over the port’s low cost traditional moorings but it is arguable whether this is an economic use of scare harbour space.
58 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5.6.3.7 Similarly, there is potential for 5.6.4.3 The proposed strategy is to waterfront development at La Folie, and, if redefine the retail centre. Within its boundary the commercial port is relocated, on the New primary retail frontages will be identified, North Quay. where uses would be restricted to retail and a limited number of catering outlets, and 5.6.3.8 The outcome of these feasibility secondary retail frontages identified, where studies will be known later this year, and any greater flexibility of use would be allowed proposals arising from them will be included with retail, catering, banking, professional in the draft Island Plan. services etc. permitted providing they provide an active frontage and a service to members 5.6.4 The town centre and retail of the public. development in St Helier 5.6.4.4 Such a strategy depends for its 5.6.4.1 The section on Economic Growth successful outcome on providing for the and Change has highlighted the issues growth needs of the retail sector, arising from concerning retail policy. St Helier is the population and economic growth, which have dominant retail centre in the Island. The been assessed as part of the Island Plan historic fabric and grain of the centre, Review process (22). particularly on the south side of King Street, does not provide for the larger units now 5.6.4.5 Sites within the proposed primary required by retailers seeking to up-size or retail area are limited so this may require an enter the market. expansion of this area over time. Although there are sites available around Hue St and 5.6.4.2 Over many years, and for different Dumaresq St, conservation concerns and reasons, the physical extent of the town the desire to see a return of the lost historic centre has contracted. The character of grain in this area may mean these are not areas such as The Parade, Bath St (beyond suitable for the kind of larger footplate stores Minden Place), La Motte St and Colomberie that many high street retailers prefer. They has changed and they have, for the most may instead be preferable for specialist part, become secondary shopping areas. In retailing and mixed uses. To the south west some cases, such as Cheapside, David of Charing Cross and King Street there is a Place, New Street (north of Burrard Street) large block of potentially developable land and the eastern end of Colomberie, they between Broad Street and Commercial St. have become primarily local shopping areas, The expansion of the primary retail area into serving mainly the residential areas this area, with a focus on increased surrounding them. There has been a long comparison goods retailing, provides the term shift in retail activity away from the opportunity to better link King Street to the northern and outlying parts of the Town Esplanade with the creation of new retail Centre . This shift in gravity has been further streets, integrating with the street pattern of emphasised by the waterfront developments the Esplanade Quarter. with a new specialist retail focus being developed at Liberty Wharf as well as the 5.6.4.6 If there is a need for additional limited retail component proposed at convenience floorspace (i.e. food and Esplanade Quarter and Castle Quays. household goods) then a location in or near Currently however they are poorly linked to the primary retail area provides some the town centre. advantages. This would enable ‘linked trips’
22 Jersey Retail Study (June 2008) DTZ
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 59 5 Built environment
to be made - with shopping for comparison well used park. There are a number of sites goods or shopping before or after work. In around the park which offer the short or addition the heavy vehicles servicing such longer term potential for development facing uses would suggest a location closely and containing the park. There is also the accessed off the ring road but not at one of potential to create new north-south and east its most congested points. This may preclude -west links to the park itself. such uses at the northern end of Bath Street, or at Dumaresq Street where vehicle access 5.6.5.4 In addition to the town park there is constrained by narrow streets. A number are a number of other public spaces of potential locations are discussed in the proposed in the Esplanade Quarter Economic Growth and Change section and Masterplan. There will also be public spaces the choice of site or sites will depend on formed as part of the long-standing ambition carefully balancing these considerations. for a linear park connecting Snow Hill to Mont Bingham. The provision and management of these spaces, and the Question 31 existing public realm, needs to be co-ordinated through the development and Redefining the town centre adoption of a public realm strategy for the town. Do you agree with the proposed redefinition of the St Helier town centre? 5.6.6 Land assembly
5.6.6.1 There are a number of important 5.6.5 Town Park and public open sites in St Helier that would benefit from the space incorporation of adjoining land, making them more regular in shape and more efficient to 5.6.5.1 First proposed in the mid-1990s, develop. In recent years the private sector and supported by around 17,000 islanders has been very successful in assembling who signed the second largest petition in the sites. What remains now are increasingly island’s history, the site for this new park is difficult to develop sites and some may on the site of the former gas works, an area benefit from pro-active land assembly and currently used for rented and public car assisted relocation of business. It may not parking. The park will transform a neglected always be possible to define such areas area of the town into an attractive green precisely in advance, as complex schemes space. evolve over time.
5.6.5.2 There is a commitment in the 2006 5.6.6.2 In some cases potential sites may States Strategic Plan to have the park ready include buildings recognised as being of by 2010. The site will require extensive architectural or historical interest including decontamination. A design brief has been areas within potential Historic Character published and work is underway to bring it Areas. There is a presumption in favour or to fruition. The Park is scheduled to be retention of such buildings, although in some complete in 2011. cases there may be greater benefit to the community in allowing their demolition to 5.6.5.3 The park site is surrounded on ensure that land is used effectively. most sides by development which faces away from it. Natural surveillance by uses such as residential is essential to a safe and
60 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5.6.6.3 The suggested policy approach is 5.6.7.2 There is a strong likelihood that a that where compulsory purchase and/or significant number of commercial occupants limited demolition of buildings of architectural of the new financial and business centre to or historical interest is proposed then it would be created in the Esplanade Quarter will have to be demonstrated that the proposal have relocated from other premises in central would achieve a significant planning St Helier. Potentially this creates the spectre objective for St Helier, and that the proposal of long-term property voids, as secondary is the most suitable means of achieving that office accommodation becomes difficult to objective. These objectives might relate to re-let or sell. This could have a damaging the enhancement of St Helier’s retail role; effect on the appearance and vitality of the increasing urban living; and facilitating the town, as was seen recently in Hill St. development of difficult sites. Inevitably property owners will hold out for a certain time in an attempt to secure new office tenants, and eventually the market will Question 32 adjust. However, this may take a considerable time given the number of Compulsory purchase powers premises likely to be vacated if the Esplanade Square scheme is developed. Do you agree that the States should use its compulsory purchase powers, to 5.6.7.3 Many of the properties vacated acquire land for development where a may never find new commercial tenants. voluntary purchase agreement cannot Accordingly, it is necessary to consider be reached, to assist with the appropriate alternative uses, and in many redevelopment of land in St Helier? cases they might be suitable for conversion or redevelopment for residential purposes. As such there is a case that standards should be applied flexibly, on matters such Question 33 as amenity space and on-site car parking, if they are unable to be met fully on site. For Loss of historic buildings buildings which are less important in the contribution they make, the Minister may Do you agree that in exceptional actively encourage their redevelopment for circumstances limited loss of historic residential purposes. buildings should be permitted where the development would be of significant 5.6.7.4 The Housing and Built Environment benefit to the community? sections have also looked at the case for changing policy and standards on amenity space and density towards a more 5.6.7 Higher density development ‘design-led’ approach. Densities of and conversion development and land prices in central St Helier largely preclude the provision of 5.6.7.1 The Minister for Planning and private gardens in many housing Environment has made it clear that he developments. Application of one-size-fits-all wishes to raise significantly the design amenity space standards in such quality of new buildings, and is prepared to circumstances is not really appropriate. It is ‘reward’ excellent design with higher therefore proposed that in central St Helier, densities of development. and perhaps other highly accessible urban
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locations, rather than requiring individual or designed apartments and in developments communal gardens of a specific size the of townhouse form which can house various developer should be required instead to mixes of dwelling types internally. The town demonstrate that every effort has been made contains a number of smaller infill sites to incorporate design features to ensure a where the existing historic context will require high standard of amenity, for example, by developments in town house/terrace form, the use of balconies and roofs as amenity and sites like these are more appropriately areas. developed for family town houses and family-sized flats rather than small 5.6.7.5 A particular concern with apartments. The Minister will encourage this increasing densities has been lack of type of accommodation on appropriate sites. opportunities for children to play and for ‘kick-about’ areas. The Open Space study is examining standards for such facilities and Question 34 on smaller sites there could be a case for using planning obligations to ensure Urban parking and amenity standards contributions towards the provision and/or enhancement of communal facilities. Do you agree that the normal requirements for off-street car parking 5.6.7.6 Any increase in density does not and private amenity space should be imply a reduction in space standards within reduced to enable higher densities in St dwellings. The Minister is particularly Helier? concerned to ensure that new development is more spacious than in the past and to that end is considering raising internal space 5.6.8 Tall buildings in St Helier standards by around 10% above current minimum levels. 5.6.8.1 One way of delivering higher density development is to build higher. Policy 5.6.7.7 It is acknowledged that in recent BE5 of the 2002 Island Plan defines tall years there has not been enough family buildings as those above 5 storeys in height, sized accommodation (2, 3 or more or rising more than two storeys above their bedrooms) provided in town. In line with the neighbours. The policy does not amount to approach recommended in the Housing a prohibition of tall building but it does set a Chapter, the Minister will encourage a series of criteria which need to be satisfied greater mix of dwelling sizes in town. A before approval is given. varied mix can be provided in suitably
62 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Island Plan 2002: Policy BE 5 - Tall buildings
Tall buildings, defined as those either above five storeys in height, or rising more than two storeys above their neighbours, will only be permitted where the accompanying design statement fully justifies their exceptional height in urban design terms.
In addition to needing to be in accordance with all other policies and principles of the Plan, tall buildings will be critically assessed for their;
(i) appropriateness to the location and context;
(ii) visual impact;
(iii) design quality; and
(iv) contribution to the character of St Helier
Development proposals which fail to justify their exceptional height will not normally be permitted.
5.6.8.2 The predominant building heights the heights of buildings relative to the in St. Helier are 2 to 5 storeys, but there are character of different parts of the town and also tall buildings ranging in height up to 16 will be used to inform the application of policy storeys. St. Helier’s historic buildings are against development proposals for tall generally small in scale with a predominance buildings in the town. of 2.5-3.5 storeys. Question 35 5.6.8.3 More recent developments on the Waterfront and Esplanade have raised the Tall buildings in St Helier average height to 5 to 7 storeys. The tallest buildings generally lack quality and do little Do you agree that planning policy should to contribute to the overall character and be relaxed to encourage and enable the distinctiveness of the place. provision of taller buildings in St Helier?
5.6.8.4 Of critical importance in St Helier is the silhouette against the sky with the Question 36 existing powerful and distinctive skyline profile set by the landmarks of Elizabeth Protection of views Castle, Fort Regent, Victoria College, St Thomas Church, Almorah Terrace and Do you agree that new planning policy Victoria Crescent. should be introduced to protect the views of important St Helier landmarks 5.6.8.5 The Minister for Planning and from the potential impact of new Environment's forthcoming supplementary development and tall buildings? planning guidance (23) will provide advice on
23 Planning Advice Note: Urban Character Area Design Guidance(pending)
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 63 5 Built environment
5.6.9 Parking and road access 5.6.9.4 It is not proposed to include strategy for St Helier specific traffic management proposals within the revised Island Plan, except where it is 5.6.9.1 The St Helier Development and necessary to protect future options for road Regeneration Strategy (24) makes certain widening and similar improvements. proposals for traffic management and car parking which are currently being evaluated by the Transport and Technical Services Question 37 Department. The principles for traffic management are to ensure that vehicular Traffic management in St Helier traffic circulates freely on the ring-road and Do you agree with a strategy of reducing radial routes connecting with it, but that cross-town traffic movements inside the within the main shopping areas unnecessary main shopping areas? traffic is excluded to improve the environment for pedestrians. This does not mean full pedestrianisation of streets, as it is necessary for certain vehicles to penetrate the town centre, such as disabled driver Question 38 vehicles, buses and taxis, and service Pedestrian priority areas vehicles. Do you agree with a strategy of 5.6.9.2 The ring road guides most traffic gradually increasing pedestrian priority away from central St Helier, but is awkward areas in the town centre? in parts with narrow and complex one way sections. Because of congestion on the ring road, especially at peak hours, there is the 5.6.9.5 Any approach towards traffic temptation to use streets within the ring road, management needs to be consistent with such as Stopford Road and David Place, as the approach taken towards public and rat runs. Also traffic has to venture some way private parking. off the ring road to access some car parks such as Minden Place. This gives parts of 5.6.9.6 There are approximately 3,200 the town centre a traffic-dominated feel. public long stay (commuter) parking spaces in the town area and 850 public short stay 5.6.9.3 The suggested strategy is that with shoppers’ spaces. There are also 1,200 on improvements to remove key bottlenecks on street spaces of varying time limits and the ring road, such as creating the link from restriction. However, the majority of parking St Saviours Rd to Green St roundabout, it spaces are private, with 3,500 residential will be possible to encourage a greater and 7,000 private non-residential spaces. proportion of traffic to use it and remove Disregarding residential parking, there are unnecessary traffic from the central area. In therefore 12,250 parking spaces in the town the example referred to, it would significantly area of which 5,250 are public and 7,000 reduce the flow of traffic in Don Road, private. Colomberie, and Grenville Street.
24 St Helier Development and Regeneration Strategy (April 2007) EDAW
64 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5.6.9.7 The St Helier Development and storey car park on the site of Ann Court, Regeneration Strategy (25) suggested that car providing replacement housing on other parking should be provided in parking hubs public sites. Minden Place would be located on key routes into the town centre, developed partly as a new public space and and wherever possible close to the ring road. partly with mixed use development. This approach would discourage vehicle trips into the town centre, and if carefully located, 5.6.9.10 The second area requiring early would avoid the need for long walks between consideration is the Waterfront and parking, work-places and shops. Esplanade. Proposals for the Esplanade Quarter include underground car parking for 5.6.9.8 A balance needs to be struck up to 1,400 cars, to replace the existing 525 between shoppers’ and commuters’ parking. public parking spaces and adding 600 private It is important to provide adequate shoppers’ commuter spaces. Although road access to parking to support the vitality of the town, the site is good, this scale of parking although retail park and ride might reduce provision will significantly increase demand the need for this to some extent in the future. on the road network and could be countered It may become necessary to reduce by a reduction in private non-residential commuter parking in order to provide parking provision elsewhere in the town area improved shoppers’ parking and to through the planning control process. accommodate displaced on street parking which could be reduced to further improve pedestrian space in the town centre. Question 39 Substantial reductions in commuters’ parking space however can only be considered if Parking in St Helier realistic public transport alternatives are available. Do you agree with a strategy of providing public car parks close to the 5.6.9.9 Two specific areas require Ring Road? resolution because of current developments. Firstly the town park: the park is to be provided on land currently providing 380 5.7 Other urban communities public parking and 250 rented parking spaces. Close by, Minden Place car park 5.7.1 The 2002 Island Plan set an (243 spaces) is the most popular of the town objective of protecting and enhancing the car parks, but has an inefficient layout, identity and character of other urban centres problems with its structure, attracts within the town; the suburbs of town; and unwelcome levels of traffic onto congested other key urban and rural settlements around town centre roads and occupies highly the Island. A planning policy regime was valuable central town land. In replacing provided for these areas through the shoppers parking in conjunction with the application of a number of key Island Plan development of the town park the public may policies, including the definition of the be better served by redeveloping the Minden Built-up Area boundary - which also defined Place car park site for other uses and the policy regime for development activity providing shoppers’ parking nearby with such as new retail development; the better standards and accessibility. To this end it is intended to construct a new multi
25 op cit
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 65 5 Built environment
identification of new housing sites, where potential for new housing; the protection and applicable; and the protection of important provision of public open space; the extent of open space. the Built-up Area boundary and retail policy for settlements outside St Helier. On this Urban Quarters in St Helier basis, it is not considered necessary to undertake separate settlement plans for all 5.7.2 Apart from the commercial core, the other urban areas as either an integral part main urban area of St Helier (which includes of the Island Plan Review or thereafter. parts of the parishes of St Clement and St Saviour) has a number of distinct centres 5.7.6 Where areas are to be the subject which have, or are developing, their own of large new housing provision, more local community facilities and character. detailed area-based masterplans may need Those areas where there are a concentration to be considered. of facilities include:
Cheapside Question 40 Miladi Farm Georgetown Settlement plans Grand Vaux Havre De Pas Do you agree that separate settlement Eastern end of Colomberie plans are not required for all of the David Place/Stopford Road Island's urban areas outside of St Helier? Great Union Road area Mont l’ Abbé First Tower
5.7.3 It is proposed that the revised Island Plan has a policy recognising the importance of these areas as local centres and to concentrate future service provision in them.
Other settlements
5.7.4 The 2002 Island Plan proposed the development of specific settlement plans for a number of the Island's key settlements outside of St Helier, and a review of those previously undertaken at St Mary's and St Martin's Village: none of these have been undertaken.
5.7.5 The Island Plan Review will comprehensively address many of the planning issues that would be dealt with through settlement plans - most notably the protection and enhancement of the character of these areas through the potential designation of Historic Character Areas; the
66 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 6 Economic growth and change
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 67 6 Economic growth and change
6 Economic growth and change many years ago, but are still important for their contributions to the environmental and 6.1 Introduction social fabric of the Island.
6.1.1 Jersey has seen significant changes 6.1.4 Economic performance has been to its economy in the post war period. Its strong recently with real economic growth of success is based to a large extent on the 7% in 2006 and 3% in 2005. In the late financial services sector (banking, trust and 1990s the economy was also growing company administration, fund management, strongly at 4 to 5% per annum in real terms accountancy and legal activities). Over the to 2000, followed by a small decline in past 20 to 30 years it has grown such that it 2001-2004. Most economic indicators now accounts for just over half (52%) of the suggest that the economy maintained its total economic activity in Jersey and employs strong momentum into the first half of 2007 about a quarter (23%) of the workforce. but following the onset of the credit crunch Other business activities (8%), public and related financial market turmoil the administration (7%) and wholesale and retail outlook in the second half of 2007 and into (6%) are the next biggest contributors to 2008 is more uncertain. As yet there is no economic activity. After the financial indication that economic growth has been services sector, other business activities and knocked off course. wholesale and retail trades are the next 6.1.5 The strength of the Jersey economy largest sectors in terms of employment, means that there is very low unemployment accounting for about 15% of total by international standards (1.4% in 2007). employment each. The public sector Participation rates of the working age comprises 12% of total employment. population – particularly amongst women – 6.1.2 Agriculture, though still of great im- are also relatively high in Jersey (men 89%, portance, is no longer the main sector, women 79%). Jersey has also performed accounting for only 1% of gross value added well recently with inflation within 0.5% of its in 2006. Financial services accounted for inflation target in 11 of the last 13 quarters. 52% of gross value added. The Island's Jersey inflation has been similar to or below economy is now growing following a that of the UK in recent years and currently downturn between 2001 and 2004. Jersey’s at 2.9% is below that in the UK and Gross National Income per capita is one of Guernsey. the highest in the world. The target in the 6.1.6 Living standards in Jersey (as States Strategic Plan is 2% growth /annum indicated by a GNI per capita of Purchasing over an economic cycle, which now looks Power Parity US$63,000 in 2006) are like it will be exceeded. amongst the highest in the world. 6.1.3 Jersey’s more traditional industries, States Policy such as agriculture and tourism, make up about 1% and 3% of total economic activity 6.1.7 The key economic objectives of the and employ 4% and 11% of the workforce, States of Jersey are economic growth with with a relatively large proportion of these low inflation and employment opportunities being seasonal workers. They are no longer for local people. The ability to achieve these the dominant industries they used to be targets is constrained because Jersey, like many island economies, only has a limited amount of land and labour at is disposal. It
68 Island Plan Review: Strategic Options Paper Green Paper (July 2008) is therefore vital that we make better use of development (see St Helier and Waterfront the resources we have. This means Chapter) is anticipated to deliver around improving productivity (producing more with 625,000 sqft of modern office development the same resources) across the economy if of which best estimates are that 450,000 sqft the Island’s economic objectives are to be would initially come from relocations and the met. The Island Plan can play an important rest from growth/new entrants into the Jersey part in facilitating productivity improvements financial sector. as well as meeting other environmental and social objectives. 6.2.2 Barnes Daniels and Partners (BDP) were commissioned to carry out a review of 6.1.8 One of the key actions from the office accommodation. Council of Minister’s new Anti-inflation Strategy is that the Economic Development Summary of findings Minister is to advise the Planning and Environment Minister on how the new Island 6.2.3 The St Helier office market is Plan can better facilitate productivity estimated to contain around 2,576,000 sq.ft improvements. In particular, how the of office stock measured on a net internal planning process can take account of market basis. Of this, some 100,000 sq.ft is currently signals to ensure that land and buildings are vacant and available for immediate put to its best economic use. occupation. The market is fragmented and spread in pockets throughout St Helier albeit 6.1.9 The next sections look at demand the core is now regarded as being around for space from the various sectors within the the Esplanade and its immediate environs. economy. It is important to remember that in an island economy there may well be 6.2.4 In addition to the above there are many activities that demand more space, currently three significant sites in the given that land is at a premium. However, Esplanade area with planning consent that the fact that an activity could take place in could yield some 185,000 sq.ft of prime office Jersey does not necessarily mean that it accommodation. The proposed development should. The focus should be for Policies to of the Esplanade Quarter could yield a allow those activities that make the best use further 620,000 sq.ft of prime, purpose built of land and labour. It will therefore be critical accommodation. to combine the information outlined below 6.2.5 If no accommodation is lost to with advice from the Economic Development alternative uses and the schemes with Department as to what market signals are planning consent and the Esplanade Quarter telling us about the demand for land from come to fruition the total office stock will be different uses and how productivity growth approximately 3,382,106 sq.ft. can be better facilitated across the economy. 6.2.6 Over the past three years, take-up 6.2 Offices of new office accommodation in St Helier has run at circa 200,000 to 225,000 sq.ft per 6.2.1 Ensuring there will be sufficient annum. It is clear that the current “credit space to meet the needs of a world class squeeze” and global economic situation has offshore financial services industry will need caused many of the larger institutions to to be one of the key outcomes of the revised review their operational property plan. The waterfront development will requirements. However the local outlook release modern premises for financial remains positive and uptake of new offices services. The Esplanade Quarter
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 69 6 Economic growth and change
in St Helier is currently strong. Even if there that demand remains strong. It should also is a “slow-down” in the short term, this be stressed that this demand disregards the phenomenon will not last indefinitely and larger requirements for Esplanade Square demand should remain from occupiers to which have not yet been crystallised. amalgamate their operations in to single purpose built properties. 6.2.11 A large proportion of the current active requirements (some 75%) are for 6.2.7 Much of the secondary stock within accommodation in the 2,500 sq.ft to 10,000 St Helier, particularly accommodation located sq.ft range. Some 19% (some 7 parties) of in converted buildings, no longer provides the requirements are for accommodation in the quality and functionality that the Island’s excess of 10,000 sq.ft principal finance and legal firms require. A number of companies are seeking to 6.2.12 At present BDP believe that the amalgamate their operations, which have level of demand far out-strips supply, traditionally been based in a series of particularly for good quality accommodation buildings around the centre of St Helier, in and this is leading to rental inflation order to increase the size of floorplate and particularly in the prime areas. create more efficient working practices through open plan office design. Quality of accommodation
6.2.8 It is likely that a proportion of the 6.2.13 The quality of accommodation in secondary and tertiary office accommodation St Helier ranges significantly but the majority will become functionally obsolete and of new build offices and refurbished offices alternative uses, such as residential, may be are now completed to a BCO (British Council appropriate. of Offices) Category A specification or in the case of refurbished offices as close to BCO 6.2.9 A market will remain for the better Category A as it is possible to achieve within quality accommodation as there will the existing envelope. undoubtedly be a raft of businesses who do not wish to pay the prime headline rentals 6.2.14 The developer fit-out (“Category for new accommodation in the prime areas. A”) achieves a level of readiness for A two tier market is likely to evolve with operation which will support the generic secondary areas playing a supporting role requirements of a majority of office users. to the new premises in or close to the The user fit-out (“Category B”) overlays on Esplanade Quarter. The focus of the the basic Category A provision the bespoke secondary market is likely to be in areas elements particular to the requirements of away from the Esplanade where there is the specific user. already a concentration of good quality office 6.2.15 Approximately 998,000 sq.ft, or stock such as New Street, Bath Street, Bond 38.73%, of the existing office stock is Street, Hill Street and Grenville Street. completed to this standard or a standard 3 Current supply/demand situation closely approximating to this and is situated in a prime location. 6.2.10 A snapshot of current demand reveals some 36 interested parties which represents some 240,000 sq.ft of office accommodation. Clearly not all of the parties currently looking need to move but it is clear
70 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Impact of Esplanade Square development supply and demand are in balance on an ongoing basis and what policy options exist 6.2.16 It is inevitable that the level of office for dealing with imbalances if they were to development in the Esplanade area and the arise. planned Esplanade Quarter, which will represent some 24% of the current total office stock will have an impact on the local Question 41 office market. As described above it is clear that most now regard the core of the local Office location office market as being on the Esplanade and its immediate environs and the majority of Do you agree with continuing a policy requirements both from larger institutions of restricting office development to St and smaller intermediaries are to be situated Helier? in this area.
6.2.17 Over the life span of the Island Plan 6.3 Industrial floorspace there will be office accommodation that becomes obsolete in location and 6.3.1 At present it is estimated that the functionality. It is estimated that, of the current stock of industrial accommodation is current office stock, over the first 5 years of in the region of 1.5 million sq.ft (139,354 the Island Plan, some 100,000 sq.ft of office sq.m). This is situated on a diverse array of accommodation, representing approximately sites throughout the Island with the main 4% of the current total stock will become locations being La Collette, Albert Pier, Rue obsolete. It is estimated that in the second des Pres, St Peter’s Technical Park, Landes half of the life span of the new Island Plan du Marche, Pallots, Springside and (years 5 to 10), some 250,000 sq.ft of office Commercial Buildings and Five Oaks. In accommodation, representing approximately addition to the aforementioned there are a 10% of the total stock will become obsolete. number or smaller secondary locations such as Thistlegrove, Plat Douet and the Barrettes 6.2.18 In the Stakeholder groups the site in St John. suggestion has been made of developing more offices outside central St Helier to 6.3.2 At the time the Island Plan was reduce congestion and provide more local adopted in July 2002 it was noted that there sustainable employment. There is no were requirements for some 25,000 sq.m or evidence however of demand for offices in (270,000 sq.ft) of “industrial floor space”. such locations and as St Helier is the focal point of the Island’s roads system it could 6.3.3 It was highlighted in the 2002 Island simply create through traffic at peak hours Plan that to assist with the relocation of in areas with worse public transport than businesses from the town centre to release central St Helier. land for housing and other more appropriate uses, there may be a requirement for a 6.2.19 Given Jersey’s small and highly further 17.4 acres or 7.04 hectares of indus- specialised economy it is unlikely that trial land. Based on an approximate ratio of predictions made more than 6-12 years out floor space to site area of 1:2 this would will necessarily remain valid. Therefore, BDP equate to a further 379,000 sq.ft (35,210 are examining what market indicators could sq.m) of industrial accommodation. As part be monitored which would supply the States of the work associated with the Island Plan of Jersey with information on how close review, Barnes, Daniels and Partners have
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 71 6 Economic growth and change
been commissioned to produce a further Size Range (Sq.ft) % study relating to the supply and demand for industrial floorspace in Jersey. 20,000+ 55%
Summary of findings 10,000 to 19,999 12%
6.3.4 The quality of the existing stock 5,000 to 9,999 28% ranges considerably from new purpose built 1,000 to 4,999 5% accommodation with high eaves and good access at La Collette to converted quality Total 100% farm buildings. Much of the existing stock has evolved over the years and is now constrained by planning or geographical restrictions. Many of the sites therefore suffer 6.3.9 It is clear from the above that the from very poor circulation and parking bulk of the interest is for accommodation in provision. excess of 20,000 sq.ft and for accommodation in the 5,000 to 9,999 sq.ft 6.3.5 Access to the sites is also poor and range. indeed undesirable particularly for larger vehicles where premises are situated in rural 6.3.10 There is anecdotal evidence that areas. demand is particularly strong for premises suitable for “start-up” businesses in the 6.3.6 Rentals for good quality 1,000 sq.ft to 5,000 sq.ft size category and warehouse/light industrial accommodation there is strong demand for accommodation are currently in the region of £8.50 to £9.00 for archiving and disaster recovery as a per sq.ft. Rentals for top quality spin-off from the continuing growth in the accommodation in prime locations such as local finance industry. La Collette and around the Albert Pier are in the region of £10.00 to £12.00 per sq.ft. 6.3.11 The local fulfilment sector is also Rental inflation over the past 5 years has continuing to generate demand for suitable been high and commensurate with the cur- accommodation rent strong demand and lack of supply, particularly for the best quality 6.3.12 In early 2007 requirements for accommodation. approximately 200,000 sq.ft (18,600 sq.m) of light industrial accommodation existed. 6.3.7 During the first half of 2007 This demand ranges for accommodation requirement from 27 named parties for light from 3,000 sq.ft (278 sq.m) upwards. See industrial/warehousing accommodation section above. totalled some 250,000 sq.ft. It should be noted that not all of the applicants have 6.3.13 The current level of demand repre- actually specified a size requirement and this sents approximately 13% of the total light figure is therefore a conservative estimate. industrial/warehousing stock .Based on an approximate ratio of floor space to site area 6.3.8 The approximate size ranges of the of 1:2 the current level of demand equates above requirements can be summarized as to approximately 3.8 acres or 1.5 hectares follows of land. Any future developments should be planned with flexibility to provide units from 1,000 sq.ft up to 25,000 sq.ft
72 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 6.3.14 The majority of the current demand 6.4 Retail is being driven by businesses wishing to expand or obtain improved operational Introduction capabilities through the use of more efficient premises. 6.4.1 The retail sector of the economy is important for local residents and visitors Warehousing demand alike. It interacts closely with the wider economy and competition can bring benefits Warehousing is important to an island for consumers in terms of price, choice and economy where so many goods have to be quality. In addition, efficiency improvements imported or exported. The Island has created in the sector can bring wider benefits for land through land reclamation next to the Islanders in terms of economic growth and port to help accommodate this. The low inflation. Both the 1987 and 2002 Island emerging plans for the port area covered in Plans have sought to uphold and support the Built Environment Chapter could see the role of St Helier as the primary focus for some facilities which are not essential for shopping in Jersey, whilst recognising the location next to the port moved, which if role of other local centres. accepted would see a requirement for additional warehousing land elsewhere on 6.4.2 The 2002 Island Plan set out the the Island. following objectives for retail development:, which need to be set against a context of the need for change in retail provision, to allow Question 42 the offer to evolve and make the most efficient use of the resources employed by New locations for light the sector. Whilst undoubtedly bringing industry/warehousing benefits to the consumer - related to price, Given the demand for additional light choice, quality and convenience - these industrial/warehousing land, do you changes must be balanced with the need to agree that the Island Plan should identify maintain the vitality, viability and character new sites to enable the provision of new of town and local shopping centres. light industrial/warehousing premises? 6.4.3 The objectives are summarised in the table below:
2002 Island Plan: retail objectives
1. protect and enhance the vitality and viability of the centre of St Helier and the centres of the urban and rural settlements;
2. prevent a dispersal of new retailing outside the main centres;
3. retain and enhance the provision of local shopping areas and convenience stores to serve local needs;
4. concentrate new developments of retail and evening uses in locations that are accessible by pedestrians, cyclists or public transport;
5. promote mixed use areas; and
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 73 6 Economic growth and change
2002 Island Plan: retail objectives
6. maintain an adequate provision of shopping facilities throughout the Island
Existing provision Adequacy of retail provision 6.4.7 The 2002 Island Plan categorised 6.4.4 There has been some modest growth the existing supply of retail provision, in food retail provision in Jersey since the recognising the primary role played by St approval of the 2002 Island Plan. There Helier as the Island's main retail centre. remains, however, considerable debate Outside St. Helier the 2002 Island Plan about whether or not there is a requirement designates eight local retail centres at Les for further provision of food retail floorspace Quennevais/Red Houses, Gorey Village, St in the Island. Aubin, St Ouen's Village, St John's Village, St Peter's Village, Five Oaks and the 6.4.5 Notwithstanding, there is a Bagatelle Parade; and Miladi Farm Parade. requirement for the adequacy of the retail provision in the Island to be investigated and, 6.4.8 The retail study, undertaken by UK as part of the Island Plan Review, new consultants DTZ, has sought to assess the research has been commissioned Jersey adequacy of the existing retail provision, Retail Study (June 2008) DTZ to inform land based on locally relevant data, including a use policy aimed at answering the following detailed Household Interview Surveys of questions: shopping patterns in Jersey.
How much new retail development of 6.4.9 It has found that St Helier Town each principal type will be supportable Centre, is attractive and full of character, and on the Island by growth in population that there is a good positive balance of likes and retail expenditure in future years; over dislikes on the part of shoppers and Where on the Island should it be other users of the town centre. Principal located and in what commercially concerns about St Helier's retail offer include realistic formats. traffic congestion and the difficulty and cost 6.4.6 It is important to note that this of car parking, perceived poor range of research is a land use planning study that shops, and perceived poor value for money specifically addresses capacity issues and or high prices. However, there is only a investigates the likely levels of supply and limited desire for large new stores operated demand for retail floorspace over the period by UK multiple retailers. The cafes, pubs and of the Plan. It does not address wider issues restaurants are significant attractions and about the need for competition, the structure are widely used. Street cleansing and safety of the retail market and how the retail sector and security are also regarded as generally contributes to the Island’s economic good. objectives of economic growth and low inflation. 6.4.10 Elsewhere in Jersey, the study has concluded that there is a well distributed provision of local shopping facilities, with one or more small foodstore in every village centre, together with a few other shops and
74 Island Plan Review: Strategic Options Paper Green Paper (July 2008) services in most. The large non-central Encouraging competition foodstores are also reasonably well distributed, with three on the north and east 6.4.14 The DTZ Report does not address sides of St Helier, one at Red Houses and the issues around the benefits competition one at St Peter. They therefore reflect the can bring for consumers in terms of price, distribution of population. This distributed choice and quality and for the wider economy provision of food shopping facilities generally in terms of increased productivity, growth accords with sustainability and social and lower inflation. . inclusion objectives. 6.4.15 A recent study (1) by the Jersey Capacity of convenience retailing Competition Regulatory Authority (JCRA) concluded that the entry of a large 6.4.11 The retail capacity modelling carried supermarket operator into the food retail out by DTZ , based on the results of a sector would be economically beneficial in detailed Household Interview Survey of terms of increasing: shopping patterns in Jersey, shows that the existing foodstores and other convenience consumer welfare; goods shops in St Helier Town Centre are the productive efficiency of existing currently trading at somewhat above realistic retailers; and ‘benchmark’ levels, based on UK food the Jersey economy overall. retailers’ company averages plus 5% to allow for exceptional costs (shipping, etc). This 6.4.16 Consistent with the JCRA’s role means that if forecast growth of population and expertise, it has to be acknowledged and per capita expenditure occurs, there will that this report is limited to determining the be sufficient expenditure to support a modest economic impact of new entry into the food amount of additional foodstore floorspace in retail sector or on the edge of the town centre. 6.4.17 "Other considerations, such as 6.4.12 Conversely, the modelling shows planning, population growth, and that the non-central main foodstores environmental impact, also are undoubtedly elsewhere on the island, as a group, are important, but were beyond the scope of our trading somewhat below the same inquiry. Thus, this report does not purport to ‘benchmark’ levels. This means that as a be the final word in this debate, but aims to group they are modestly undertrading; and contribute positively to it, and help the therefore there will be no capacity for Minister make as fully informed decision as (2) additional noncentral foodstore floorspace possible." throughout the forecasting period to 2025, despite growth in population and per capita 6.4.18 Whilst issues of economics and expenditure, if forecast trends occur. competition are important, the land use planning implications of retail development 6.4.13 Taking Jersey as a whole, also require consideration within the context therefore, there is no forecast quantitative of the Island Plan Review. capacity for additional foodstore floorspace up to 2015. Thereafter, capacity will grow modestly to 2025, if forecast trends occur.
1 http://www.jcra.je/pdf/080331%20Retail%20Report%20Final%20Public.pdf 2 http://www.jcra.je/pdf/080331%20Retail%20Report%20Final%20Public.pdf, pp 27
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 75 6 Economic growth and change
6.4.19 It is, however, worth noting that the Question 43 planning system is not particularly well-suited to regulate the qualitative provision of food Justification for new retailing retail floorspace. However, it is also floorspace important that it does not create unnecessary barriers to competition. Do you agree that the Island Plan should actively encourage the development of Justification for additional food retail new retailing provision? provision
6.4.20 The 2002 Island Plan policy regime Potential implications of new food retail does not preclude the development of new development retail provision in Jersey and there has been growth in the number of new food retail 6.4.22 Finding sites capable of provision over the Plan period to date. On accommodating the requirements of a the basis of the lack of evidence of need at modern food superstore of 5,000 sqm the time, the 2002 Island Plan policy regime represents a particular challenge, especially did not specifically seek to assist or when competition for other uses of land, encourage new retail development by such as housing, is fierce. Such sites, explicitly identifying areas or sites to promote particularly within the built-up area are rare, new retail development. and would likely require land assembly. The development of a greenfield site in support 6.4.21 In light of the evidence from recent of this use would not be in line with current findings, however, there is a need to policy. determine the approach that is to be adopted for food retailing in the new Island Plan over 6.4.23 The development of a superstore the Plan period to 2018, recognising that that is unrelated to and beyond the centre whilst there is no need for additional capacity of St Helier or on the edge of the town on pure quantitative grounds there is a centre, would likely lead to significant trip qualitative need to allow competition and generation, by private car, particularly if it is Jersey's food retail offer to regenerate. not served by good public transport. Any Specifically, this might involve the such remote location may serve to development of policies and proposals which undermine the justification for its provision identify sites or areas where there would be as it would preclude those without access to a presumption in favour of food retailing, their own private transport and do little to possibly to the exclusion of other uses, if it address social exclusion by providing benefit is considered justifiable to do so on the basis to those members of the community on lower of addressing issues of promoting greater incomes: the highest levels of social access to services and goods; and in tackling deprivation in Jersey are concentrated in the social exclusion, through the planning urban parishes of St Helier, St Saviour and system. St Clement.
6.4.24 The development of a superstore in or on the edge of the town centre may have a reduced impact as it would still enable multi-purpose trips, where one journey might entail a visit to the supermarket as well as to the town centre,
76 Island Plan Review: Strategic Options Paper Green Paper (July 2008) and it would also enable access by public 6.4.27 For the next few years, the transport, whilst being better located relative permitted Liberty Wharf development in St to a greater proportion of the local Helier Town Centre (now partly complete), population, and specifically those on lower together with the existing town centre shops incomes. and stores, will be able to accommodate the forecast growth in expenditure in the town Comparison goods centre on comparison goods. From about 2011, capacity for additional comparison 6.4.25 Comparison goods shopping - to goods floorspace will start to arise and grow. shop for goods by comparing the prices of By about 2020, there will be capacity for up competing brands or stores - is largely to almost 10,000 sq m net retail sales area concentrated in the principal town centre of of additional comparison goods retail St Helier, with new proposals coming forward floorspace in or on the edge of the town in the Liberty Wharf development and centre, if forecast trends occur. By 2025, Waterfront (Esplanade Quarter), and capacity will have grown further to about potentially to the north of the town centre. 16,000 sq m net. As with food retailing, it is important, for the purposes of the Island Plan Review, to 6.4.28 This means that in the medium to determine how much capacity really exists long term, it should become possible to for further comparison retail floorspace, and achieve a substantial new town centre where should any requirement be located. development of modern shops and stores, Accepting that there are still wider issues without significant adverse impact on the about competition and change within the existing town centre. comparison goods sector. 6.4.29 The existing out-of-centre Capacity of comparison retailing comparison goods stores, as a group, are
(3) somewhat undertrading compared with UK 6.4.26 Recent research suggests that average ‘benchmark’ sales densities. This St Helier Town Centre is only trading means that after allowing them to increase moderately, and its average comparison their sales to these ‘benchmark’ levels there goods sales density is somewhat below what will be no quantitative need for any more would be expected for a town centre of its out-of-centre retail warehouse floorspace in size. It has large secondary shopping areas, Jersey throughout the forecasting period to some of which appear to be declining for 2025. retailing. It also has a large number of small shops, but few large modern stores in the 6.4.30 However, in view of the practical prime retail area or elsewhere, the latter difficulties of land assembly to create new being a constraint on its retail growth prime retail floorspace in the town centre, it potential. The relative lack of large modern might become appropriate in the longer term stores and absence of many of the large UK to allow some ‘bulky comparison goods’ retail multiples means that St Helier retains a stores (eg selling furniture, carpets, unique and special character – it is not a household appliances) on non-central sites, ‘clone town’ – which contributes to Jersey’s so as to release sites and premises in the special attraction as a destination for visitors. town centre for conversion or redevelopment
3 Jersey Retail Study (June 2008) DTZ
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 77 6 Economic growth and change
for non-bulky comparison goods retailing, 6.4.35 Land assembly and development such as clothing and footwear and other in the town centre poses significant fashion and lifestyle goods. challenges and will likely have longer lead-in times than development elsewhere. It is 6.4.31 The retail sector analysis shows important that the Island Plan seeks to that all categories of comparison goods are ensure that the longer-term potential of achieving similar market shares, when St further retail development, that would support Helier Town Centre and the out-of-centre and enhance the town centre, whilst also stores are considered together. These serving to connect it with the St Helier market shares are very high at between 90% Waterfront, is safeguarded during the Plan and 98% of total island expenditure in retail period. shops (i.e. excluding expenditure via Special Form of Trading, of which the internet is the 6.4.36 Recent research suggests that if largest component). The remainder is substantial new retail warehouse accounted for by local village shops, farm development occurred, or the development shops and isolated shops; and by off-island of a large food/non-food superstore shopping. out-of-town was permitted it would risk closure of some of the existing shops and 6.4.32 here is therefore on the basis of the stores in St Helier Town Centre. These capacity study alone no significant impacts would depend on the occupancy of requirement to increase market shares by the new non-central stores; but would be means of new development. most likely to fall on shops selling goods such as furniture, carpets and other Justification for additional comparison homewares, domestic appliances, sports retail provision goods, audio-visual equipment, pet supplies. 6.4.33 The retail analysis of shopping patterns and retail capacity would suggest Question 44 that there may be a longer-term justification Safeguarding potential retail for the provision of additional retail capacity development areas in the comparison goods sector towards the end of the Plan period. Do you agree that the Island Plan should seek to safeguard those parts of the 6.4.34 The location of any such town that may have the potential to development will be critical, so as to ensure provide new retail floorspace that would that it directly links to and reinforces the complement and support the town existing prime retail area, rather than being centre? developed as a separate and competing retail destination. One of the areas already identified, in the St Helier Development and Regeneration Strategy, as having potential to extend the town centre's comparison goods retail offer for retail development is Broad Street, with the potential for the development of links between King Street and the Esplanade: this is considered further in the built environment chapter.
78 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Question 45
Resisting out-of-town retail development
Do you agree that the policy of resisting out-of-town shopping development should continue, in order to safeguard the viability and vitality of the town centre?
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 79 6 Economic growth and change
80 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 7 Agriculture and the rural economy
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 81 7 Agriculture and the rural economy
7 Agriculture and the rural 7.1.5 Commitment two, seeks to ‘maintain and enhance the natural and built economy environment’, by ensuring that ‘inter alia’ a diverse working countryside, which will be 7.1 Introduction indicated by:
7.1.1 Although agriculture is no longer a 2% increase, in real terms, of GVA of major contributor to the Island's economy, it the rural sector is still of considerable importance, in terms Increase in land area supported by of its unique products; the Jersey cow; environmental initiatives Jersey Royal potatoes and stewardship of Increase in number of new entrants into the Island’s countryside are all examples of the agricultural industry its unique cultural, social and environmental Greater public access to the countryside value. 7.1.6 These indicators will be achieved by 7.1.2 In recent years, the agricultural fully implementing the measures contained industry has undergone considerable within the Rural Economy Strategy. restructuring with a reduced number of farms and increased sizes of farmsteads, with the Rural Economy Strategy corresponding requirement for new, larger sheds, which in turn creates pressure to 7.1.7 The Rural Economy Strategy – re-use or redevelop redundant agricultural P.112/2005 (1) was approved by the States buildings. The Island’s horticultural industry in July 2005 and introduced the concept of is also experiencing considerable economic enabling development in support of the pressures and faces the prospect of Island’s agricultural industry, specifically extremely difficult times ahead, as energy aimed at aiding the recovery of the rural costs continue to rise. economy.
States strategic policies 7.1.8 Enabling development is development that would normally be contrary 7.1.3 The States Strategic Plan 2006 – to established planning policy in the Island 2011, contains policies which relate Plan, but may be considered because it specifically to the rural economy. brings benefits for the public good, that clearly outweigh any harm that would be 7.1.4 Commitment one, seeks to ‘maintain caused by the development. The benefits and enhance a strong, successful and are paid for by the value added to land as a environmentally sustainable economy’, by result of the granting of planning permission ensuring that ‘inter alia, the economy is for its development; enabling development diversified and developed, which will be can thus be considered a type of public achieved, by among other things, through subsidy. the implementation of the Rural Economy Strategy. 7.1.9 The defining characteristics of enabling development is that whilst it may be contrary to established planning policy, the gain from contravening policy subsidises a public benefit that could not otherwise be
1 http://www.statesassembly.gov.je/documents/propositions/12415-46042-1972005.htm
82 Island Plan Review: Strategic Options Paper Green Paper (July 2008) achieved. Thus, unlike most planning safeguard, enhance and interpret Island applications, financial issues are central to resources of archaeological and cultural determining proposals for enabling significance; development and the Minister will have create a rewarding setting for outdoor regard to this when considering such recreation and tourism through applications. improved management of access, facilities, information and rural 2002 Island Plan attractions; and accommodate the pressures for 7.1.10 The approach taken in the 2002 development and other activities Island Plan, is to view the countryside in an through the wise and sustainable use holistic way, recognising the relationships of rural land and buildings. between the range of issues and evolving integrated policies. The over-arching theme 7.2 Current position is the wise stewardship of countryside resources. 7.2.1 The use of land for agriculture accounts for over 50% of the total area of 7.1.11 The principles established as the Jersey. By virtue of its size alone, agriculture approach to policy making for the is the most important element in the Island's countryside are to: landscape. However, it is not just a question maintain and enhance the quality, of size, for farmers are in a great many ways character, diversity and distinctiveness the custodians of the countryside and of the Island landscape and its perform a vital role in looking after that part contributory features, natural and of the Island's fabric which is so highly prized cultural; by residents and tourists alike. Therefore, in seeking to maintain the quality of the safeguard, sustain and enrich the countryside, it is important to appreciate the diverse biology of Island flora and fauna farmer's point of view and to see what effect through sound environmental likely changes in agriculture will have on the management; appearance and character of the rural area. protect agricultural land and encourage It is also necessary to understand the a sustainable, diverse and non-polluting pressures new development has on existing agricultural industry which, in turn, helps farming operations either through the loss manage the environment, creates of land or other difficulties. Accordingly, both employment and supplies high quality approaches ultimately come down to an produce; understanding of the size and structure of ensure the long-term, sustainable use farming in Jersey, and to farm economics. of natural resources; avoid potential pollution through controls 7.2.2 The importance of agriculture in the and safeguards; local economy has traditionally been support and provide communities with measured in terms of its export performance. improved access to jobs, services and The value of agricultural exports from Jersey housing; over the last five years is shown in the table develop a strong foundation of 1. It is clear that agriculture in Jersey has opportunity and enterprise through declined in economic importance. The total economic diversification; exports from the Island in 2006 were valued at £31.1 million and today agriculture
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accounts for less than 2% of GVA. However, e.g. essential oils, ornamentals, animal it should not be overlooked that agriculture bedding, etc, for the local market which also contributes to the economy by would otherwise have to be imported. producing foodstuffs and other commodities,
that the request for purpose built, modern 7.2.3 In addition to its importance in accommodation to replace existing, outdated maintaining the landscape, agriculture units (including portacabins) will continue in produces other benefits which cannot be the foreseeable future. easily quantified in economic terms. For example, as well as directly employing 4.1% Potato Sector of the Island's work force, agriculture also 7.2.5 The arable sector is heavily reliant provides employment in ancillary industries on the Jersey Royal potato crop. The area such as food processing and sales outlets, planted to the Jersey Royal potato declined as well as in engineering and building firms. from 19,176 vergées in 1999 to 13,589 vergées in 2006, with a decline in the Industry changes number of farmers and the concentration of the marketing function into a small number Accommodation of organisations. Second crops following the 7.2.4 The 2007 agricultural statistics show harvest of Jersey Royals also declined 1,848 staff employed at peak time during the meaning many growers are dependent on potato season with buildings use survey the Jersey Royal alone. showing 106 units of accommodation housing 1,124 staff, in which owners accommodation is not included. It is likely
84 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 7.2.6 In the last year the establishment of Dairying a new UK based potato business within the 7.2.10 Jersey cows in green fields are a Island has been successful in uniting a defining feature of the landscape and if this number of independent farmers, resulting feature of Island life is to be maintained, in a turn around in demand for land for requires a viable industry that can contribute potatoes and consequently rising land to the Island’s economic growth. values. The arable sector is still reorganising with buildings originally leased to other 7.2.11 In 2002 the Island dairy herd companies now being taken back by owners reduced by over 1000 dairy cows releasing who are intending to or have started farming approximately 2500 vergees of agricultural again within their own right rather than land nearly all of which was taken up by contract growing or leasing facilities to others active farmers to enhance their businesses. to do so. This will create a shortfall in both The 2003 McQueen report 'The Dairy buildings for seed and equipment storage Industry in Jersey' made particular reference and it is expected that there will be more to the economic inefficiencies inherent in the applications for new buildings. fragmented nature of Jersey farms. The conclusions to the McQueen report prompted 7.2.7 The situation is complicated by the the Jersey Milk Marketing Board into fact that though there is theoretically under formulating a 'dairy industry recovery plan' used capacity, the owners of such buildings which was in turn endorsed by the 2006 are under no obligation to sell or lease them PROMAR report 'A sustainable dairy industry to bona -fide growers and are prepared to in Jersey' as being 'straightforward and sit it out and try for planning permission for making a good deal of sense'. housing/light industry/dry storage etc. 7.2.12 The dairy industry recovery plan Livery makes particular reference to the importance 7.2.8 Commercial livery is a relative high of maintaining the current bank of agricultural value sector but with a small footprint, 3% of land for the agricultural industry in order to buildings (1% of area) with 1,111vergees of safeguard countryside and to avoid the land being eligible for the Single Area inefficiencies associated with the Payment comprising approx 3% of fragmentation of land and to avoid the agricultural land. It is felt that the number of inevitability high rents which would result liveries has reached or is close to reaching from any reduction in availability of land for saturation point. agricultural purposes. The Control of Sales and Leases (Jersey) Law 1974 is therefore Retail still important in maintaining a land bank for 7.2.9 This now accounts for 3% of agricultural purposes, preventing the splitting buildings and seems to have moved away of fields and to prevent the domestication of from being a farm shop selling their own or agricultural land. local produce to catering for consumer demand for a range of goods. It is 7.2.13 The construction of a new dairy at recognised that customers require a diversity Howard Davis Farm specifically designed and continuity of supply which cannot always and built to meet the industry's future needs be met from local production but a balance needs to be achieved.
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will significantly reduce the dairy’s running Protected Cropping costs and contribute to the viability of the 7.2.16 There is likely to be a continued industry. (2) down turn in the use of old dilapidated structures for protected cropping. These are 7.2.14 The number of dairy farms in Jersey likely to be put forward for planning is likely to decrease over the next few years permission for other uses including housing. as the older farmers retire from the industry. The traditional sectors with high energy There is unlikely to be any new entrants into usage, especially in older structures, are also the industry as the capital cost of setting up likely to decline, freeing up glass for other a new dairy farm is prohibitive. The use. However there is confidence within remaining dairy farms are therefore likely to certain sectors of the industry such that new increase their milk output capacity mostly glass is being put up for consolidation of farm through higher yields per cow but also by businesses and for new export increasing herd size. To accommodate these animals a few large commercial units will 7.3 Agricultural land require new livestock housing, feed storage bunkers and other types of farm buildings. 7.3.1 The 2005 agricultural statistics indicated that 50% of the total land use in 7.2.15 A key objective of the Countryside Jersey was agricultural. A land-use review Renewal Scheme is that all dairy farms will in that year indicated that a further 10% have 4 months slurry storage by 2010 and could be classified as agricultural and a there are a further 15 planning applications subsequent land-owner survey established for the provision of slurry facilities all land use for field sizes over 1 vergée anticipated. The dairy industry has been (0.18 hectares). Agricultural land (including through a period of low investment due to woodland on agricultural holdings), therefore, poor profitability, however, the full occupies 54.3% of the Island area, a implementation of the Dairy Industry reduction compared with 2006. However, Recovery Plan could lead to a new era of the number of active farmsteads has also new confidence and re investment in the declined and currently stands at around 130. larger commercial units.
2 http://www.gov.je/Economic Development/RuralEconomy/DAIRY+ INDUSTRY+REVIEW+REPORT.htm
86 Island Plan Review: Strategic Options Paper Green Paper (July 2008) agricultural land but does not include criteria 7.3.2 It has long been recognised that for assessing the quality to help determine Jersey’s countryside is a precious resource, priorities for loss of such land. which must not be dissipated by uncontrolled piecemeal development. At the same time, 7.3.5 The quality of the land, particularly the States approval of the Rural Economy for Jersey Royals, is often linked to the Strategy clearly indicates an acceptance that location of the fields, the best ones being the Island’s agricultural industry must south-facing cotils. However, apart from local continue to adapt, or face slow extinction. knowledge, there is no comprehensive information on the relative quality of different 7.3.3 The wide variety of habitats and the parcels of agricultural land in Jersey. In the attractiveness of the Jersey countryside UK an Agricultural Land Classification (ALC) historically owe much to the activities of system is used which grades the quality of generations of farmers who created the land on the basis of climate, site and soil patchwork of fields, hedges, walls and characteristics. copses which characterise Jersey today. The most cost effective way of managing the rural 7.3.6 In the early eighties, a Jersey land landscape in future is by ensuring the active classification system was investigated and use of agricultural land by viable and it was estimated that up to 80% of land would sustainable businesses. be classified as being top quality. The project was never progressed and the Island has Protection of agricultural land continued to rely on the local expertise to advise on the value of agricultural land to 7.3.4 The current Island Plan policy on the industry. safeguarding farm land, Policy C13 , is deficient in a number of regards. It operates as a blanket presumption against loss of
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7.3.7 Whilst the current method of 7.3.11 As stated earlier, Jersey’s soils are assessing land to inform planning decisions mostly good quality, however in some has worked well, it could be made more marginal areas a return to natural habitat robust by the introduction of an objective such as heathland or marshland may be land classification system. A more formal environmentally advantageous, as might approach to assessing the quality of restoration of some woodland. agricultural land would provide for more robust decision making. Question 47
Question 46 Protection of agricultural land
Quality of agricultural land Do you agree that the present Island Plan policies provide sufficient protection Do you agree that an Agricultural Land to ensure that the agricultural and dairy Classification system would help ensure industry is not compromised? the protection of the best agricultural land? 7.4 Linked or enabling development
Protection of agricultural land 7.4.1 The Rural Economy Strategy – P.112/2005, approved by the States in July 7.3.8 The current Island Plan policies are 2005, introduced the concept of linked or perhaps not clear enough in making the enabling development in support of the distinction between protection of the Island’s agricultural industry, specifically countryside and protection of agricultural aimed at aiding the recovery of the rural land. The revised Island plan can help clarify economy. this matter. 7.4.2 Rural businesses, just like any 7.3.9 At the stakeholder groups there were others, need to invest in new facilities to strongly expressed views by the food improve efficiency and develop value-added production sector that current Island Plan products and it is inevitable that these aims policy was too lax, and that too much land will involve some form of new development. was being lost to ‘non-agricultural’ activities Linked or enabling development is the term such as domestic garden extensions and given to the development of a site for 'horsiculture'. purposes outside the landowner’s principal business, with the profit accrued used to fund 7.3.10 The local horse industry is large the construction of facilities which will with around 1,200-1,500 horses on the island enhance core business and/or have a and an estimated consumer spend of £8.5 positive environmental benefit. million not including stabling and grazing costs. This industry has been growing as the 7.4.3 The agricultural industry has a major economy has grown as an important leisure strategic asset, in its considerable land bank. activity. Diversification into this sector is It is self-evident that almost any business supported in the Rural Economy Strategy modernisation scheme could, in theory, be and is now regarded as legitimate funded through the mechanism of obtaining agricultural activity. development permission for non-agricultural development on part of that land. It should be equally self-evident that it would not be
88 Island Plan Review: Strategic Options Paper Green Paper (July 2008) in the best long-term interests of the 7.5.2 Important parts of this industry, community to allow all and any such especially the tomato industry, have declined development to take place. It is nevertheless under increasing competition from low cost possible for some business modernisation, producers abroad and rising energy costs. with new facilities, to have a positive impact on the countryside, particularly when it is 7.5.3 Some older wooden glasshouses conditioned on the removal of unsightly, have suffered the worst dereliction and disused buildings, or on general amenity because they precede the planning law, it is improvements. more difficult to enforce their removal. Permissions granted for glasshouse 7.4.4 Such an arrangement might be used complexes constructed since the mid 70’s to achieve the clearance of derelict and will normally include a disuse and disrepair eyesore sites, and the return of the site to a condition, but older glasshouses will not have natural condition, as part of a larger package. these conditions. However newer structures, There could be an element of ‘cross subsidy’, often on a concrete base, are even more in planning terms, with construction on one expensive to restore to a green field site. site being offset against amenity Some old glass structures, which are improvements on the same or a different structurally safe, can still used for cropping site. potatoes.
7.4.5 The defining characteristics of 7.5.4 The scale of the problem is possibly enabling development is that whilst it may less than is commonly assumed, however be contrary to established planning policy, economic factors could start to change this. the gain from contravening policy provides There are currently around 39.2 ha of land for a public benefit that could not otherwise under glass on the Island (4) of which 6.5 ha be achieved. Thus, unlike most planning were not cropped in the last 12 months. Only applications, financial issues are central to a small proportion of this will be derelict (the determining proposals for enabling precise area still needs to be quantified), and development. The Minister for Planning and few sites are adjacent to the built up area. Environment issued supplementary guidance at the beginning of 2008, outlining the 7.5.5 The 2002 Island Plan Policy C20 approach to be taken when considering ‘Redundant Glasshouses’ highlights the proposals for enabling development. (3) visual harm that derelict structures can cause to the landscape of Jersey. Its basic 7.5 Redundant and derelict approach is to treat glasshouses as glasshouses temporary occupiers of open agricultural land rather than buildings which can be 7.5.1 The presence of glasshouses and redeveloped for other uses. The policy is not polythene tunnels are an important element a rigid one however and acknowledges that of the horticultural industry, but do nothing in ‘exceptional circumstances’ some sites for the amenity value of the countryside and might be suitable for sensitive and limited provide no positive contribution to the ‘non-agricultural’ development. character of the Island’s rural landscape.
3 Enabling Development Supplementary Planning Guidance 4 2006 Agricultural Land Statistics
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7.5.6 Accordingly a key issue is to redevelopment, this is likely to embrace determine what constitutes ‘exceptional modern glasshouse complexes which are circumstances’ and the form of potentially of value to the industry. non-agricultural development that might be acceptable, if any. 7.5.9 In some cases, however, these glasshouse locations might be judged as 7.5.7 It is necessary to understand what being suitable for redevelopment given their constitutes ‘exceptional circumstances’. The proximity to the built up area. Many of the phrase is not defined in Policy C20 and is sites are, however, in isolated and landscape open to interpretation. Developers have sensitive locations, where replacement attempted to argue that the close proximity development might be inappropriate. In the of the glasshouse to the built-up area is case of remote and isolated older sufficient for the Minister to make an glasshouse structures, which have no disuse exception to the policy to replace it with and disrepair conditions, these non-agricultural development. However this circumstances are potentially more difficult interpretation would fail to provide any to resolve. benefit to the Island apart from the replacement of the derelict glasshouses. This 7.5.10 It is therefore important to consider approach gives no recognition to the mechanisms which would fund the removal compromise made by the Island in allowing of glasshouses and, at the same time, glasshouse development to take place in improve the overall appearance of the sensitive countryside locations. Instead, it is countryside. This could involve the reasonable for the Island to expect the requirement for financial contributions to be owners of these structures, who have had made where the development of those the economic benefit of the glasshouse glasshouse sites capable of redevelopment complex, and for owners of modern glass could help fund the removal of remote which carries a disuse and disrepair derelict glasshouse sites which are in the condition, to have made the necessary most sensitive landscape areas and financial provision for removal. unsuitable for any form of development.
7.5.8 The terms 'derelict' and 'redundant' are also used in the policy to describe the Question 48 condition of the glasshouse structures, and it is important to be clear what the Derelict glasshouses terminology means. Redundancy on its own may simply mean that the grower is no Do you agree that the redevelopment of longer willing to invest in the industry and derelict and redundant glasshouses has decided to stop production. Accordingly should be promoted to enable their it may be appropriate to revise the policy and removal and the restoration of the only permit the redevelopment of derelict countryside? and redundant wooden traditional glasshouses which are dilapidated, ruined or abandoned and of no further value to the agricultural industry. If the term ‘redundancy’ is retained as a sole criteria for
90 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 7.6 Agricultural buildings and possible future needs with regard to new buildings. This information could then be 7.6.1 Agricultural building capacity used to formulate policy in the review.
7.6.1.1 In 2007, a scoping paper was 7.6.1.2 Over an approximate 6 month produced by the Environmental Management period a selection of farmsteads were visited Rural Economy team to steer the input into and measurements of buildings were taken the Review of the Island Plan (Countryside). and the use of the buildings identified. A It was identified in the paper that an database has just recently been completed Agricultural Building Capacity Study was which now holds the relevant information. required to enable a better understanding of the existing agricultural built infrastructure 7.6.1.3 The survey found a total of 769 buildings, 573 of which are in active agricultural use. Those buildings have been sorted by size, as shown below:
7.6.1.4 The scope of the study was the agricultural sheds, the main infraction expanded to take account of the smaller being that temporary change of use permits unused buildings and further detailed were out of date. information was requested to identify agricultural buildings which have received 7.6.1.5 It should also be noted that larger planning permission for a change of use or sheds in the potato industry are now being are lying empty. It became apparent when used for multi functions and not just for seed the visits to the premises were completed potato storage but for packing lines and that there was comparatively little misuse of machinery storage also, therefore the shed space is used to capacity all year round.
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7.6.2 New and extended agricultural needed by the agricultural industry and buildings whether existing buildings can be used, in many cases, by other farm holdings. 7.6.2.1 There is concern that the 2002 Island Plan Countryside Planning policies 7.6.3.3 Currently where an agricultural need review in terms of new agricultural building is shown to be redundant it can go sheds and proposals for the change of use to any use. In practice this has meant of existing ones. widespread residential conversion. The stock of such buildings is reduced but still 7.6.2.2 Many traditional granite ancillary significant. farm buildings built as part of farmstead are unsuited to modern agricultural practices. 7.6.3.4 The reuse of traditional agricultural There has been pressure to build new buildings, such as potato stores, has been agricultural buildings, whilst at the same time an important source of housing in Jersey and there has been pressure to redevelop or has prevented much new development in convert other farm buildings. The scale of the open countryside. However, in practice, conversion of the older stock now means it has excluded the use of these buildings that there are relatively few traditional granite for other economic purposes - such as farm outbuildings left unconverted. self–catering accommodation or other commercial use - and has contributed to a 7.6.2.3 The States have published more densely populated countryside. In the Supplementary Planning Guidance on UK restrictive planning polices favour modern agricultural buildings, which has economic uses before conversion to proven successful and the main principles residential which has led to a more of which can be included in the revised plan. significant expansion of rural business and tourist accommodation. 7.6.2.4 To gain a better understanding of the needs of the agricultural sector, in terms 7.6.3.5 To facilitate the most efficient use of which buildings may be redundant and of redundant agricultural buildings, it has which new buildings may be needed, an been suggested that a web site is developed, agricultural capacity study has been giving information on the availability and undertaken through an on-site survey of demand for agricultural buildings, to assist most of the Island’s farms. in any assessment about the appropriateness of alternative uses. 7.6.3 Conversion/redevlopment of redundant agricultural buildings Question 49 7.6.3.1 The 2002 Island Plan sets down a series of tests regarding re-use of redundant Redundant agricultural buildings agricultural buildings. It seeks to distinguish When agricultural buildings are between modern farm buildings, which redundant from agricultural use do you should where possible be removed rather agree that there should be a than redeveloped or reused, and traditional presumption in favour of their re-use for farm buildings, which should be conserved. employment and commercial uses, as 7.6.3.2 The application of the policy has opposed to being converted to provide proven difficult. There is an increasing new homes in the countryside? knowledge of what kind of buildings are
92 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 7.6.4 Farmhouses and agricultural employment for staff. But equally, the staff accommodation development of new food retail outlets in the countryside can generate unsustainable 7.6.4.1 The Island Plan allows the car-trips and can have adverse implications construction of new farmhouses and for local shops and village centres. agricultural staff accommodation, provided that the applicant is a bona fide agriculturalist 7.7.4 Other UK local authorities have faced and there is an agricultural justification for similar pressures and more permissive the accommodation. Recent discussions with policies, in support of farm shops, have been the stakeholder groups highlighted the need adopted. A typical example would be where for staff accommodation across all sectors 45 per cent of the produce sold by a farm of the industry. It has been suggested that shop must come from the holding; 45 per such proposals should consult with the rural cent must be grown locally; and 10 per cent economy team and pass a business case may be brought in from anywhere else in the test to show that the operation to which it is world. The National Farmers Market and attached is viable. Retail Association in the UK support applications where 40% of goods are own 7.7 Farm shops produce plus local foods, 40% regional and 20% from elsewhere as, from their 7.7.1 Farm shops in the countryside raise experience, this will lead to a more viable particular challenges. Their role of business. encouraging farm diversification and the growth of local markets for local produce 7.7.5 There may also be a case for needs to be reviewed against their growth allowing the sale of other goods produced in size and number; the considerable on the farm, or craft and other goods expansion of the range of goods sold; and produced in Jersey. There would appear to their impact on shopping patterns and the be a limited case for allowing a wider range health and viability of existing local shops of goods to be sold, such as horticultural and village centres. goods, as applications for garden centres should be judged on their own merits. 7.7.2 The 2002 Island Plan has a general and restrictive policy on retail development outside the built up area. It restricts farms Question 50 shops to selling fresh local farm produce and goods from elsewhere in the respective Farm shops proportions of 70%/30%. This restriction has Do you agree that farm shops should come under pressure and is being have more flexibility in being able to sell challenged by the larger farm shops which a greater proportion of non-farm grown are now selling a much extended range of goods? non-locally produced food and non food items.
7.7.3 The ability to sell non-local products 7.8 Rural recreation is clearly desirable for the farmer, enabling them to provide a service throughout the 7.8.1 Jersey has an extensive network of year, overcoming the problems of green lanes popular with walkers and cyclist, seasonality and providing continuity of however however the 'restricted' nature of access to the countryside has meant that
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there are relatively few footpaths except on 7.9 Fisheries the coast and in some valleys. It is, however, an objective of the Countryside Renewal 7.9.1 There are two distinct sectors within Scheme to widen countryside access for the Island's commercial fishing industry - passive recreation in association with the related to wet and captured fish; and award of funds. aquaculture - each with specific land use requirements. Their yield and value, as a proportion of the Island's fishing industry, is set out below:
7.9.2 In addition to its economic sales outlets; and fresh locally caught fish is contribution, the Island's fishing industry a culinary asset and part of the tourist offer produces other benefits which cannot be for the Island's restaurants. easily quantified. For example, as well employing people within the industry itself, 7.9.3 Whilst the fishing industries have it also provides employment in ancillary limited requirements for development on land industries, such as food processing and to support them, there are challenges in meeting their specific requirements.
94 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Aquaculture Question 51
7.9.4 The increase in oyster and mussel Land-side development for production has seen a requirement for land aquaculture side facilities on the east coast and the need to address the provision of shore base Do you agree that there should be a facilities for oyster and mussel farming is presumption in favour of the becoming more pressing. The flat landscape development of land-side facilities in of the east coast area, and the level of support of aquaculture on the coast? residential development along the coast here, makes it difficult to find a suitable site in reasonable proximity to the oyster farming Question 52 activity. Harbour land for commercial fishing 7.9.5 The seaward implications of the further development in aquaculture are Do you agree that land should be considered in 4.3.6 ‘Managing aquaculture’. safeguarded in support of the Island's commercial fishing industry, and 7.9.6 Other new fish farming initiatives are ancillary operations, at the harbour? also emerging, with St Catherine's Vivier farming turbot and La Crete Quarry providing a site for the experimental farming of ormers and scallops.
Fishing
7.9.7 The Island's commercial fleet of fishing boats is based at the Fish Quay at La Collette, where there is considerable pressure on the availability of port space for leisure marine uses and other non-marine uses. Many fisherman have resorted to inland redundant farm sheds to house their equipment. In addition, there is also a requirement for ancillary services, such as marine engineering facilities, to service the fishing fleet.
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96 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 8 Visitor economy
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 97 8 Visitor economy
8 Visitor economy 8.1.4 The great strength of tourism is that it is potentially a sustainable activity based 8.1 Introduction on the sensitive exploitation of Jersey’s natural resources. Properly managed and 8.1.1 Most people in Jersey are affected developed, it has a long term future and in some way by tourism and the wider visitor prospects for growth. economy. It is important to distinguish between tourism and the wider visitor 8.1.5 Tourism cannot flourish in Jersey economy as a number of visitor attractions without the wholehearted support of the are increasingly reliant on attracting island States and the wider community. There is a residents. concern that tourism is taken for granted and not given the recognition it deserves. 8.1.2 Without the income from visitors to the Island there would likely be: 8.1.6 Jersey’s tourism declined in the 1990s. Whilst the number of visits remained Fewer air services and probably no fast broadly constant until 1997, it fell by 10% ferries from 1997-99. In 2005 the decline reversed, for the first time in many years, with a small Fewer shops and a more restricted increase in numbers, however from choice 2005-2006 there was a 3% decrease in visitors. In 2007 however there was a A limited number of hotels and restau- dramatic turnaround with nearly a 5% rants increase on 2006 figures and the Island may be starting to benefit from the significant A poorer bus and taxi service investment that has taken place in the hospitality industry over the past five years. Less business for farmers, hairdressers, A total of 947,943 people arrived in Jersey decorators, accountants and a host of last year, 41,775 more than in 2006. Staying small enterprises holiday visitors account for just over half of these and one in five are leisure day trips. Less income for Jersey Post and Tele- Business and conference visitors are also a coms and possibly higher charges significant element, with the UK being by far the most important market, accounting for 8.1.3 As a small, independent island, 80% of holiday visitors Jersey has limited economic choices. The 8.1.7 Tourism has also changed in other finance industry, the mainstay of the ways with a decreasing length of stay, economy, faces its own long term risks and shorter booking times and a fall in the threats and there is little else to replace proportion of visitors in the main season. tourism. Decline would have significant wider Visitors have also become older and more repercussions. There is a synergy between upmarket. The industry also faces a critical tourism and other parts of the economy. The situation in recruiting and retaining staff due finance industry relies on much of the to the stringent employment and housing infrastructure which is supported by tourism regulations. This is intensified by competition such as hotels, transport and restaurants. from the finance sector, making it difficult to Tourism helps project a positive image of operate efficiently, with high turnover and Jersey to the outside world. seasonal employment.
98 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 8.2 Current policy context Increase and stabilise the volume of visitors at 900,000 8.2.1 The Tourism Strategy for Jersey Spread the season (2000 – revised 2003) aims to: Diversify the market base Reduce the average age of visitors Attract more first-time visitors to top up the gradual erosion of existing visitors 8.3 Accommodation and bring in fresh blood. Target younger visitors to replace the 8.3.1 In recent years Jersey’s registered older visitors who are gradually fading tourist bed stock has undergone some major away. changes. Total bed space capacity reached Attract more people from mainland a peak of over 27,500 by the mid 1970’s, Europe as Jersey is over-dependent on with guest houses accounting for over a third the UK market. of this total. At this time there was a concern Become more market focused and about the environmental impact of this deliver what the visitor wants; there is number of tourists and the Island Plan placed a particular emphasis on spa/business a ‘cap’ of 25,000 on bedspaces. and short break and event based tour- ism and the extension of the shoulder 8.3.2 A total capacity of over 27,000 bed seasons. spaces was maintained until the late 1980’s. Make more of niche and special interest The increasingly competitive climate in the markets where Jersey has an tourism market and on-Island pressures for advantage. housing led to a sharp decline in registered tourist establishments and bed spaces 8.2.2 The attraction of niche and specialist throughout the 1990’s to the present day. markets is that they are less destination Between 2000-2003 alone Jersey lost 27% dependent and more driven by an activity, of its accommodation bedspaces. However, special interest or a facility. Although in recent years the decline has slowed and individually, these markets are small, they there are signs that the industry is willing and can be cost effective to reach, are less able to invest in the future. There have been season-dependent and provide an additional a variety of investments, both in new and source of business. Jersey has some existing establishments, over the last few significant strengths which it can exploit such years, with more in the planning process for as: activity and special interest tourism e.g. the future. Most of the tourist accommodation walking, cycling, marine conservation, golf, is in small hotels, with very little self catering gardens, water sports, yachting and fishing accommodation in the Island. and event-led tourism based around arts, sports, and activities, such as the 8.3.3 Whilst the rate of loss is slowing, the International Air Display and Battle of accommodation stock is shrinking year by Flowers. The strategic importance of facilities year. Although much of the contraction has such as the Durrell Foundation as key taken place at the lower end of the market, attractors must also be recognised. operators are finding trading conditions increasingly challenging, to the extent that 8.2.3 Targets set by the 2003 strategy are some are considering exiting the hotel to: industry.
Increase visitor spending in Jersey to £300 million pa
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8.3.4 The continuing loss of reduced pressure for greenfield land and has accommodation in Jersey is of great concern contributed towards meeting the Island's and if left unchecked, Jersey is unlikely to housing needs. survive as a major destination. There is considered to be a need to create a 8.3.8 In view of the declining visitor revitalised, outward looking and viable bedstock and the need to encourage further accommodation sector by encouraging fresh new investment in visitor accommodation in blood and innovation, supporting the Island, there remains a need to modernisation and investment, encouraging determine how best to maintain and enhance new development and extending the range the provision of new, improved hotel and type of accommodation on offer. accommodation in Jersey.
8.3.5 In the 1990's a ‘key hotel sites’ policy was introduced, which sought to protect Question 53 certain hotel sites from change of use or development for other uses, to ensure that Existing hotel sites these prime sites remained available to the tourism industry, because of their strategic Do you agree that the new Island Plan locations. This policy was extremely should maintain an approach which controversial as it prevented exit from the allows the redevelopment of hotels for industry and, it was argued, prevented new other uses, such as residential investment because of the lack of a fallback development? position.
8.3.6 The 'key site' policy was subsequently abandoned and the 2002 Question 54 Island Plan sought to encourage tourism and hotel investment in identified Tourism New hotel development Development Areas, at Havre des Pas, St Brelade's Bay, St Aubin and Gorey. The Do you agree that the development of majority of new hotel investment has, new hotels should be encouraged but however, been in St Helier, which has also restricted to St Helier and the existing been supported by the existing policy regime built-up areas of the Island? in the 2002 Island Plan.
8.3.7 There still remains pressure for the Self-catering accommodation redevelopment of hotel sites and their conversion to other non-tourism related uses, 8.3.9 The Island has a lack of self catering particularly residential development. At the accommodation. In England planning policy stakeholder group for Tourism it was has encouraged the provision of self catering reported that even viable hotels have conversions on farms. In Jersey, by contrast, received offers from developers to sell for it has been much easier to obtain permission residential development. It, therefore, needs to convert redundant farm buildings for to be recognised that former hotel sites have residential use. This has led to pressure to been a prime source of housing in St Helier build new self catering accommodation in and elsewhere. As a form of 'brownfield' rural locations, often proposed in the form development, their redevelopment has of purpose built chalets popular on the continent.
100 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 8.3.10 In other jurisdictions, such as be important to stress that this would be to Northern Ireland and Scotland, outside solely boost tourism and could not be used protected landscape areas, such facilities for housing purposes. are often permitted where they are farm-based or meet an identified tourist need. Where such a proposal is acceptable Question 56 on the basis of meeting tourist need, it is essential that the accommodation intended Hotel at Gorey for tourists is retained as such. To this end, it is desirable to condition the Should a special case be made for accommodation for holiday occupation only zoning an area for a 4/5 star hotel at and not for permanent residential Gorey? accommodation. St Aubins Question 55 8.4.4 St. Aubins has seen growth in its restaurant trade and has larger more modern Self-catering visitor accommodation hotels than Gorey putting it in a stronger Do you agree that the new Island Plan position. There are local issues about should encourage the provision of new, parking and traffic movements. A recent local purpose-built self catering visitor visioning exercise run by the Parish accommodation in the countryside? considered and firmly rejected the option of reclamation as a part of an overall strategy to develop the village. 8.4 Key sites 8.5 Golf courses Gorey 8.5.1 The Island's golf courses have full 8.4.1 There has been notable recent membership and there are considerable developer interest in new hotel development waiting lists. In the early 1980's an area was in St. Helier, but outside of St. Helier this has identified for a new course at Les Creux, now been limited, other than some re-furbsihment the Millennium Country Park. More recently, of existing sites. The one exception to this there have been two enquiries about the is at Gorey, one of the tourism 'jewels' of the potential development of new courses in St Island, where interest for a new premier Ouen and St Martin. standard hotel has been registered. 8.5.2 Private sector proposals have 8.4.2 I t would be a challenge to find a generally struggled to assemble sites and, suitable location for such as development whereas existing courses have amortised given that the harbour area is very sensitive, their costs over many years, any new course a proposed built heritage conservation area would not have this advantage leading to and surrounded by escarpment green zone. issues of viability and pressures for ‘linked development’ such as housing/hotel facilities 8.4.3 If a special case were to be made in the countryside. Also the interior agri- for zoning a site, (should one be located cultural lands in Jersey often make a poor outside the existing built up area), it would
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 101 8 Visitor economy
landscape for challenging course design with 8.6.3 The Marine Leisure Growth Group small fields and a lack of ‘landmark’ trees has carried out a study that has established and features. a demand for improved facilities in the island, and this is feeding into studies for the East 8.5.3 Under the existing planning policy of Albert (see St Helier and Waterfront regime, if an additional golf course or Chapter). The options for meeting this courses were to be permitted it would have demand include developing new facilities at to be an exception to normal policy on loss St Catherine, Gorey, Havre des Pas, the Old of agricultural land and on the basis of Harbours in St Helier or St Aubin. Each of meeting recreational need and boosting these options has been assessed and rated. tourism. The most viable option is considered to be the Old Harbour, which is now being considered as part of East of Albert studies. Question 57 St Aubin received the second highest rating, and St Catherine (summer moorings only), Golf courses the third highest. The Gorey and Havre des Pas options were considered longer term Do you agree that the new Island Plan and more expensive options. There is the should encourage the provision of potential to relocate some low costs additional golf courses? moorings from St Helier's Old Harbours to Gorey. 8.6 Marinas Question 58 8.6.1 There is a severe shortage of marina facilities on the Island with strong latent Marinas demand from Island residents and limited facilities for visiting yachtsmen. There are Do you agree that the Island Plan should also no facilities for larger vessels such as make provision for additional marina ‘super yachts’. facilities?
8.6.2 The Island’s Marine Leisure Growth If you agree please use the free text box Group has been considering the options for to indicate which of the following you growing the industry. A recent study by the would consider most suitable? British Marine Federation has examined the economic benefits of marinas and St Helier a) An extension of facilities in St Helier's Harbour had one of the largest impacts of Old Harbours all the case study marinas. This is largely driven by the high number of on-site tenant b) At St Aubin Harbour businesses and the significant number of boating visitors. However, marinas have c) At Gorey Harbour or opportunity to generate even greater impact in line with the increasing demand for Jersey d) At St Catherine's Breakwater. as a destination for marine leisure tourism, focusing particularly on associated financial, leisure, retail and marina services to attract and accommodate even more boats and related businesses.
102 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 9 Housing
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 103 9 Housing
9 Housing to a lesser extent elsewhere, provided that these were of good quality and affordable to 9.1 Introduction ordinary citizens.
9.1.1 Housing, and in particular the 9.2 Current Island Plan performance location of new housing development, is perhaps the most highly contentious and States Strategic Policies controversial subject area to be tackled by 9.2.1 The States Strategic Plan the new Island Plan. The 'home' is central to 2006-2011, includes a number of life, providing the fundamental need for commitments to the people of Jersey which human shelter, in addition to meeting human have a direct or indirect bearing of future desires for comfort , security, privacy, housing provision. Perhaps the most independence and personnel identity. The pertinent of these is the commitment to location of new housing has been subject to promote 'a safe, just and equitable society'. ongoing levels of objection and increasing The intended outcome of the Council of politicisation over recent years. Ministers, in this respect, is a good standard 9.1.2 The objectives of the Housing of affordable accommodation for all' to be chapter are to assess housing requirements indicated by; for the period from 2008 to 2018 (in the Increased levels of home ownership context of the available supply of housing Reduction in the number of people and housing land), to identify the key land waiting to be adequately housed use issues arising and to examine the strategic options for supplying residential A supply of homes that better meets the accommodation to meet requirements. Island’s housing requirements Equity in access to the housing market 9.1.3 The land use planing system has a Stable housing market/prices crucial role to play in providing an adequate Building standards that are equal to supply of land to meet the housing those in the UK requirements of the community. To this end, Increase in the percentage of homes in the island Plan is the primary mechanism public ownership at Decent Homes governing the availability of land for housing. Standard Increase in provision of Island-wide 9.1.4 It is clear that more housing is likely sheltered housing to be needed in the future whether or not more inward migration takes place, as more 9.2.2 The 2002 Island Plan aims to ensure people will be living alone and household sufficient land and opportunities for homes size reduces. The Imagine Jersey to meet the needs of Island residents. The consultation revealed strong sentiments Economic and Community Strategy of the among participants in response to the Plan seeks to achieve a vibrant economy proposals for new housing. Two clear and high quality of life in the Island, and in messages emerged: firstly, that the public this respect, specifically for housing, the Plan participants were strongly opposed to any aims to: new building on greenfield land, and secondly, that many were willing to accept Ensure there is an appropriate balance new housing developments in St Helier and between housing provided for social rent and first time buyers, housing for private
104 Island Plan Review: Strategic Options Paper Green Paper (July 2008) rent and purchase and lodging community life and do not strain accommodation, to cater for those who resources and facilities. have difficulty in affording homes of an 2002 Island Plan Performance appropriate standard for their needs; Secure the most efficient use of land 9.2.3 The 2002 Island Plan estimated while ensuring sufficient amenity space requirements for 3,180 homes for the is provided and a high quality of urban qualified and 1,610 for the unqualified living can be achieved; sectors (total 4,790) for the five year period Provide for choice and suitability 2002-2006. These figures, assumed at that including homes for the elderly and time, very limited movement between the those with mobility impairments, family qualified and unqualified sectors, and a homes, homes for smaller households, surplus in some tenure sectors with a and those with or without residential shortfall in others. The Plan looked to provide qualifications; and sufficient land and opportunities for 90% of Create vibrant and mixed-use the 3,180 requirement estimated for the communities where housing forms part qualified sector and did not plan any of a mix of land uses, ensuring that new provision identified in the unqualified sector. housing developments contribute to It therefore intended that sites for 2,860 additional homes would be provided over the first half of the Plan period.
Completed Dwellings (Net)
Category A Homes Other Purpose Demand Purpose Built Total Total Built Housing Year Category A First Time Completions Social Rental (Category Buyer Homes Completions Homes B)
2002 92 300 392 493 885
2003 161 109 270 389 659
2004 52 -36 16 343 359
2005 18 29 47 497 544
2006 80 193 273 429 702
2007 184 61 245 295 540
Sub-Total 587 656 1243 2446 3689
Dwelling Completions 2002-2007
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 105 9 Housing
9.2.4 The dwelling completions 2002-07 The size of housing provided in private table shows the number of completions of developments approved through the normal new homes in the qualified sector since application process is generally dictated by 2002. The years 2002 and 2003 witnessed the market. The issue of a housing mix policy a boom in residential construction work and is dealt with later in this chapter in the 9.9 impressive numbers of new homes were ‘Dwelling mix’ section. completed. Since then, the number of completions has remained relatively high, 9.2.8 Regrettably, there are no accurate despite significant net reductions in figures on the size of homes completed or purpose-built 'Category A' completions. under construction during that period. However, the signs are that overall net ‘Planning for Homes 2006’ did look at a completions in the qualified sector will sample of completions from 2005 and the continue into 2008 and the average building first half of 2006, which indicated a good rate since 2002 of over 600 new homes per spread of 1-, 2- and 3- bedroom year is very healthy and compares completions. However, it also revealed the favourably with the long term average rate prominence of 1-bed home completions (1986-2008) of 435 units. (boosted by the completion of the Spectrum development) and the limited number of 4- 9.2.5 In terms of overall numbers, it can and 5-bedroom family homes completions. be argued that the 2002 Island Plan has A similar exercise was carried out in the been successful in delivering homes to meet same document for outstanding identified requirements. The delivery of 3149 commitments as at mid-2006. This indicated homes in the qualified sector over the period healthy supplies of 1-, 2- and, notably, 2002-2006 has exceeded the Plan target of 3-bedroom homes in the pipeline. Once 2,860 homes. Furthermore the overall supply again, there were only limited numbers of of new homes in the pipeline have been larger 4- and 5-bedroom homes indicated generally sufficient to meet revised amongst the outstanding commitments. requirements for a maximum of 2,400 homes in the qualified sector over the period 9.2.9 In the light of the above, it would 2005-2009 (i.e. the rolled forward figures appear that any shortfall in provision for identified in the 2004 Housing Needs Survey. previously identified housing requirements (1) for the period 2005 to 2009 is likely to be concentrated in the larger 3-, 4- and 9.2.6 The challenge for the next plan is for 5-bedroom family home market, which is it to deliver the same or better levels of covered in the next section on Housing housing provision. However, this is likely to Demand. be constrained by expected restrictions of not developing green field sites and is likely 9.3 Housing demand to depend more heavily on higher density developments in existing urban areas. Dwelling requirement from population modelling Completions by size & type 9.3.1 A population model, which used the 9.2.7 To date planning policy has only latest population figures (as described in the attempted to control the size of units in Population Chapter), was run by the Category A or 'need' housing developments. Statistics Unit to calculate the requirements
1 http://www.gov.je/ChiefMinister/Statistics/Households/Housing+Needs+Survey.htm
106 Island Plan Review: Strategic Options Paper Green Paper (July 2008) for new dwellings over the period of the plan. 9.3.5 The Table ‘Housing demand A base year of 2008 was established which requirements 2008-2018’ summarises the provided both current population and demand requirements over the Plan period estimated dwelling stock figures. and includes the current latent demand for housing as described in the following section 9.3.2 This model was then run for Imagine on the 2007 Housing Needs Survey. Jersey population scenarios. They provide for alternative migration assumptions, Housing Needs Survey including ‘nil net migration’ and net annual immigration levels of +150, +250, +325 and 9.3.6 The recently published Housing +650 economically active heads of Needs Survey is the latest in a series of households respectively. The largest surveys aimed at establishing potential immigration assumption of +650 households housing requirements, based upon people's per year is provided for information, but is expressed aspirations. With each survey not regarded as a realistic future option and refinements have been made to improve the is not included in the assessment of land value and accuracy of information obtained. availability. It is important to recognise that the current housing needs survey looks into the housing 9.3.3 It should also be understood, from requirements over the next 5 years from the outset that the calculation of future 2008 to 2012 and has come after two years housing requirements by whatever means of increased employment (especially for will never be an exact science, because it locally-qualified people); average earnings must, of necessity, be based on numerous increasing faster than inflation; and strong assumptions. It is recognised that some real growth in the economy in 2006. additional refinement work needs to be carried out on the average household size 9.3.7 The Statistics Unit conducted and figures and this could lead to adjustments in analysed the survey and is pleased with both the overall household demand figures the level of response and quality of the presented here. resulting information received. Indeed, the survey has proved to be the most rigorous 9.3.4 The Jersey population model has so far, in terms of: been constructed in-house by the Statistics Unit using updated population figures and Accuracy : This is due to the fact that Jersey fertility and mortality data. In order to it had a very high statistical sample of convert future numbers of individuals to just over 10,000 and a superb response numbers of households, assumptions of rate of 56%; future average household size have been Representation : The survey had a made. The baseline figure used was that very good response rate from across all measured by the 2007 Housing Needs tenures; Survey: average household size of 2.33. This Issues Explored : The survey not only was assumed to reduce linearly to 2.25 by detailed supply & demand analysis in 2015 and to 2.20 by 2020 in order to account terms of type, size and tenure of for reduced household size due particularly dwellings but also: affordability, to emergence of concealed households and first-time buyers; and older persons’ the ageing of the resident population. housing
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9.3.8 Total demand for dwellings over the future surplus of 1-bedroom flats and next five-year period, assuming zero net sizeable potential shortfalls in larger sized migration, is estimated to be about 10,700 houses. The Housing Needs Survey table with total potential supply of properties freed indicates the effective potential surpluses up by those wishing to move or through and shortfalls in each size category by death and care being slightly greater, at tenure. This shows that the majority of around 10,900. These figures correspond to potential shortfalls over the next 5 years more than a quarter of the current total (2008-2012 inclusive) in the qualified sector dwelling stock. occur in 2-, 3- and 4-bedroom owner-occupier properties. It also shows 9.3.9 By simply subtracting potential large potential surpluses occurring in the supply of freed up properties from demand private rental sector (predominantly 1 and 2 in the various categories of dwelling type and bedroom) and potential surpluses throughout size the report highlights a large potential the non-qualified sector.
Qualified Sector Non-Qualified Sector
Tenure/ Regist Owner States Housing Trust/ Private Private Staff/ Private Size ered Total Occupier Rental Parish Rental Rental Rental (NQ) Service Lodging Lodging
1 Bed (-35) 140 (-55) 890 255 105 5 75 1,375
2 Bed (-1,320) 105 (-110) 850 70 5 (-15) - (-420)
3Bed (-835) (25) (-30) 215 100 5 (-25) - (-600)
4 Bed (-380) (10) 10 65 30 - - - (-290)
5+ Bed 45 - - 45 - - - - 90
Total (-2,525) 210 (-185) 2,060 450 110 (-35) 75 155
Five-Year Requirement (Supply-Demand) by Tenure and Size of Dwelling Unit
9.3.10 The results set out in the Housing into the context of “realistic aspiration” by Needs Survey table are based on all the establishing a certain level of housing need recorded responses of households to the based on household size (number of survey questionnaire. As such they occupants) and the number of bedrooms of effectively provide an upper limit of the the desired dwelling unit. To this end potential future housing requirements. households which expressed a desire to move were excluded from the analysis where 9.3.11 Further analysis was carried out in desired number of bedrooms exceeded the an attempt to distinguish more firmly-based number of occupants +1. The results are set need (termed “realistic aspiration” in this out in the table on Realistic Aspiration' Five report) from rather less well-founded -Year Requirement (Supply-Demand) by expectations. The analysis estimates of Tenure and Size of Dwelling Unit below potential shortfalls and surpluses were put
108 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Qualified Sector Non-Qualified Sector
Tenure/ Housing Private Size Owner States Trust/ Private Registered Staff/ Private Rental Total Occupier Rental Parish Rental Lodging Service Lodging (NQ) Rental
1 Bed (70) 140 (55) 835 255 105 5 50 1,265
2 Bed (1,390) 105 (110) 765 45 5 (15) - (570)
3Bed (740) (10) (30) 285 70 5 (25) - (440)
4 Bed (155) (10) 10 30 30 - - - (100)
5+ Bed 90 - - 25 - - - - 115
Total (2,265) 225 (185) 1,970 400 110 (35) 50 270
Realistic aspiration' five -year requirement (supply-demand) by tenure and size of dwelling unit
9.3.12 One impact of excluding added to the housing demand from that “unrealistic” aspirations is reducing the derived from the population modelling. potential shortfalls in the owner-occupier Because the original population modelling sectors for 2-, 3- and 4-bedroom dwellings has accounted for some of the latent demand by some 250 units (2,535 units reduced to through assumptions made about average 2,285). Most significantly, the original household sizes reducing over time, the shortfall of 380 4-bedroom owner-occupier figure coming from the housing needs survey units reduces to 155 units. Furthermore, the can be reduced by an equivalent level. In potential surplus in 5-bedroom properties other words, although the housing needs could potentially address more than half of survey has identifed a latent demand, a the 4-bedroom owner-occupier shortfall. significant amount has been accounted for in the population modelling. 9.3.13 The greatest impact of excluding “unrealistic” aspiration is a reduction in the 9.3.15 The “realistic aspiration” analysis shortfall of 2-, 3- and 4-bedroom of the Housing Needs Survey identified owner-occupier houses by over 300 units to potential shortfalls of about 1,400 and 700 1,565 houses. In contrast the shortfall of 2-, 2- and 3-bed units of accommodation, 3- and 4- bedroom flats increases slightly, respectively, over the period 2008-2012. to around 700 units compared to Approximately half of this total remaining approximately 650 units without excluding short-term shortfall of some 2,100 units is “unrealistic” aspirations. addressed in the population modelling approach by the ongoing reduction of Additional latent demand from Housing average household size, leaving a residual Needs Survey total additional front-end shortfall, identified by the Housing Needs Survey, of 1,000 units. 9.3.14 Using the base information from This is seen in the table below. the Housing Needs Survey, the Statistics Unit have identified a maximum of 1000 additional households that needs to be
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9.3.16 Furthermore, from a capacity Total demand perspective, the potential large complementary surpluses in qualified sector 9.3.18 The table below summarises the private rental accommodation might be used total demand for housing over the period at some level to address this residual 2008-2018 under the 5 population scenarios additional shortfall. If this is achieved at the first described in the Imagine Jersey 2035 level of 50%, the effective total residual event, although as previously stated in the shortfall (not covered by population 2.2 ‘Planning assumption’ section of the modelling) is of the order of 500 units. population chapter The States have yet to decide which population scenario they will 9.3.17 To this identified additional shortfall adopt. The table highlights a significant should be added the upper bound of 400 range in housing requirements, from 2,600 units of older person’s accommodation, to 10,100 units. It is worth noting that even resulting in an additional front-end shortfall, under the nil-net migration scenario a not not covered by the population modelling insignificant number of homes are required. approach, of some 1,000 units of These figures are used in the following accommodation. section to set against future housing supply in order to determine the ‘Net housing requirements 2008-2013’. Population Scenarios
Nil Net +150 +250 +325 +650
2007 Housing Needs Survey (Additional latent Demand not 1,000 1,000 1,000 1,000 1,000 discounted by population modelling)
Estimated 2008-2013 1,100 2,000 2,600 3,000 4,900 additional Dwelling Requirements 2014-2018 500 1,300 1,900 2,300 4,200 From population Modelling
Total 2,600 4,300 5,500 6,300 10,100
Housing demand requirements 2008-2018
those identified in the current Island Plan - but notably not from the re-zoning of any 9.4 Housing supply green field sites, including; 9.4.1 At this time, it is anticipated that the supply of required new homes in the ‘qualified sector’ over the next ten years will come from a range of sources, similar to
110 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Sites from the 2002 Island Plan consultations with parishes and related public consultation. Land already rezoned for Category A Brownfield sites homes; Suitable sites for Category A homes Existing sources among those listed in Policies H3 and H4 of the Plan. Opportunities at the Waterfront; Opportunities presented by town Other sites regeneration; Windfall developments elsewhere in the Other sites considered suitable for Built-Up Area; Category A homes (notably sheltered/ last time homes), to emerge from 9.4.2 Housing Supply highlights the estimated supply of housing over the next 10-15 years.
Delivery Period supply Total 2013 2018
Existing H2 Category A Housing 200 - 200
Lifelong Dwellings Proposition (one 300 - 300 third first time buyer)
West of Albert 600 400 1,000
Town Capacity 1,000 1,000 2,000
Brownfield Sites 500 500 1,000
Windfall outside of Town 750 750 1,500
Less outworn sites -150 -150 -300
Total 3,200 2,500 5,700
Housing supply
Existing and likely sites for Category A anticipated that any significant re-zoning of housing (200) 'green fields' will be put forward in the new revised plan and so this number is relatively 9.4.3 Only a small number of Category A small. homes are left to be completed from the original category A housing (H2) sites in the 9.4.4 There were some sites put forward 2002 Island Plan. Following feedback from in the 2002 Island Plan to be safe guarded the Imagine Jersey Event, in relation to the for future Category A housing (H3 & H4 negative response of developing green fields policy). Subsequent detailed analysis has sites to meet future housing needs, it is not shown, however, that some of these sites
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are unsuitable for housing development and Town capacity opportunities (2000) will not be taken forward as part of the revised plan and so are not included in 9.4.8 St. Helier has traditionally been the potential future supply figures. principal source of supply for new homes accounting for around half (51%) of all Lifelong dwellings and first time buyer developments between 2002-2006. (2) proposition (300) 9.4.9 A study has recently been carried 9.4.5 The 'Provision of land for lifelong out by the Planning Department (as part of dwellings (for people over 55) and first-time the imagine Jersey process) to determine buyers: amendment to Island Plan (2002)' the capacity of the town to deliver additional report and proposition was lodged in the housing. The study stems from the states in May 2008 to enable the provision recognition that the re-development of urban of land for housing on 8 sites, involving an town sites for residential use should be area of land of approximately 58.5 vergées, encouraged because it fosters a number of through amendment of the 2002 Island Plan. key sustainable patterns of transport and development, and supports the economy of 9.4.6 Subject to states approval, six sites St Helier. However, it also makes it clear that will be developed for lifelong homes (for increases in capacity must also be people over 55 for social rent and purchase accompanied by positive urban regeneration on the open market) and the remaining two strategies that enhance the town and sites will provide homes for first-time buyers. improve the living and working experiences The provision of new homes on these sites for all concerned. will be subject to the same proportional split of tenure as those H2 sites already zoned in 9.4.10 The town capacity study is the 2002 Island Plan, such that at least 45% discussed in more detail in the 3.3 should be for ‘need’ or ‘affordable’ (i.e. social ‘Performance of the spatial strategy’ chapter rent) and up to 55% can be for sale to within this paper. first-time buyers and, under this proposition, older people (over 55). West of Albert opportunities (600-800)
9.4.7 Desktop estimates of potential 9.4.11 The Castle Quays development housing yield from these eight sites indicate has approval for nearly 600 homes which that they have the potential to provide at should be completed within the first 5 years least 337 homes, together with associated of the plan. In addition, it is expected that the community and other facilities in some Esplanade Quarter Scheme will generate cases. One proposed site – Fields 516, 516A around 400 homes towards the latter end of and 518 in St. Saviour – has the potential to the plan period. provide half of this potential yield, the remainder of the proposed provision being Windfall developments from built-up area spread around the remaining seven, smaller -outside town (1500) sites in six parishes. A rounded supply figure 9.4.12 There will continue to be ‘windfall’ of 300 is used for the purposes of this (development on sites within the built up exercise. area) sites outside of St Helier brought forward by private developers through the
2 (source: Planning for Homes 2006, pg 44) .
112 Island Plan Review: Strategic Options Paper Green Paper (July 2008) normal planning application process. existing schools/shops, will have low visual Between 1990 and mid 2006 such intrusion, are on good transport corridors developments accounted for an average of and close to or abutting existing built up 165 homes/annum. A reduced figure of 150 areas areas. per annum is used to estimate future windfalls because it is considered the 9.4.17 Due to their location, most of these opportunities for re-development within the sites are more suited to lower density family built up area will reduce over time. style homes than some of the town regeneration sites. This is a housing type Brown field sites (1000) that the 2007 housing needs survey indicated was in high demand and which 9.4.13 Brownfield sites can be defined as could also contribute to the re-generation of sites which are, or were, occupied by a some of the villages and bring in younger permanent structure and associated fixed families to support the schools and other surface infrastructure. The definition covers community facilities. the curtilage of the development. 9.4.18 The spatial options regarding 9.4.14 In the Jersey context, it could brownfield sites are considered in the options include uneconomic, disused or derelict farm for the location of new development section buildings. Glasshouses and glasshouse sites of the spatial strategy chapter. It is important are generally regarded as temporary to understand that in order to realise all of structures on agricultural land, and would the potential brownfield supply indicated here not normally be included within any definition some of the sites may require the rezoning of brownfield land. The removal of of land or changes to the existing built up uneconomic, disused or derelict glass can, area boundary. however, be problematic and accordingly there may be wider environmental benefit Less outworn sites (-300) and public interest in securing their redevelopment, in appropriate cases. 9.4.19 This is an estimate of the likely loss of units associated with the planned 9.4.15 The brownfield sites that have re-development and upgrading of old been identified occur in both built up and outworn housing estates. rural areas. Some of the sites identified, such as outworn glasshouse sites will be outside Moving the Port (600-800) of the built up area and could be considered on their individual merits and against the 9.4.20 Conservative estimates indicate context of the existing policy regime that approximately 600-800 dwelling units (Redundant Glasshouses Policy C20, 2002 could be developed if the existing port Island Plan). Analysis of the sites indicates facilities were moved to La Collette. The that 60% (around 54 acres/600 units) of the figure has not been used in the supply table identified brownfield sites fall outside of the as it is seen as a longer term option, outside existing built up area. of the 10 year lifespan of the revised plan.
9.4.16 The brownfield sites have been 9.4.21 The option of moving the port is selected as they meet most of the key criteria discussed in more detail in the 3.5 ‘Longer when considering sites for new housing perspective’ section in the Spatial Strategy development, such as being bad neighbours/environmentally poor, near
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 113 9 Housing
chapter and the 5.6 ‘Role of St Helier’ section in the Built Environment chapter within this 9.5.1 The net housing requirement is paper. summarised below for three population 9.5 How much housing scenarios over the period 2008-2018, using information from the previous sections. development might be needed
Population Scenarios
+150 +250 +325 Supply/Demand 2008- 2014- 2008- 2014- 2008- 2014- 2013 2018 2013 2018 2013 2018
Total Estimated 3,000 1,300 3,600 1,900 4,000 2,300 Demand
Total Estimated 3,200 2,500 3,200 2,500 3,200 2,500 Supply
Net +200 +1,200 (-400) +600 (-800) +200 Requirement
Totals +1400 +200 (-600)
Comment Potential supply would Potential supply would Potential supply
significantly exceed marginally exceed would not meet
potential demand potential demand potential demand
Net housing requirements 2008-2013
9.5.2 The evidence suggests that, in sheltered/retirement housing purposes. In overall terms, the current housing land general terms, there are no grounds for any availability situation remains reasonably large-scale release of additional land. healthy. It should be possible to balance identified requirements for new homes over 9.5.3 The average build rates required to the next 10 years with sufficient supply from meet the demand for housing under the +250 existing sources (e.g. existing planning scenario up to 2018 would be 550 dwellings permissions, opportunities for development per annum, which compares with the at the Waterfront and windfall developments average over the period of the current plan in the built-up area) and from sites already (2002-2008) of 530 dwellings per annum. zoned specifically for Category A or
114 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 9.5.4 However meeting the demand for prioritised reserve. The plan would also need the first five years would require an annual a contingency in case some sites did not building rate of 720 dwellings, which has only come forward and 15% is recommended. been exceeded once (2002) in the last 22 years, although 2006 was close with 702. Question 59 The reason for this is that latent demand (1000 units) has been front loaded to the first Release of housing land five years of the plan as this is perceived as current demand. Do you agree with the preferred option of setting a flexible target for housing Stop-go land releases, only releasing greenfield land when there is a shortage of 9.5.5 A key issue expressed at the brownfield supply? stakeholder meetings has been the need to move beyond the ‘stop go’ approach to housing provision. Longer term perspective - Imagine Jersey 2035 9.5.6 It is suggested that the revised plan set targets for affordable and overall dwelling 9.5.10 The requirements beyond the permissions over a rolling five year period. current plan period (2008-2018), as identified Only if a target were not met would in the Imagine Jersey 2035 events, needs alternative spatial options need to be to be considered in order to properly plan considered. the longer term options once the current sources of supply are exhausted. 9.5.7 In the revised approach the plan would identify a 5 year tranche of supply and 9.5.11 The spatial options for delivering a reserve of supply over the following 10 housing beyond the lifetime of the current years - in two 5 year tranches. The first 5 plan is dealt with in the 3.5 ‘Longer years of supply could be developed. The perspective’ section of the Spatial Strategy subsequent tranches would be a reserve of chapter. sites that would only be released if the stock of available permissions for housing failed 9.6 Affordable housing to maintain a continuous rolling 5 year supply. 9.6.1 House prices are very high in Jersey in comparison with average wages, and this 9.5.8 An advantage of this approach is remains a pressing concern for Government. that if town regeneration completions do The affordability of property for low-income increase some less suitable options sites earners is of central importance in any might not be needed to be released – it housing debate, and a considerable amount would be flexible and pragmatic. of effort has been channelled in the direction of alleviating affordability problems the 9.5.9 It is proposed that an annual introduction of the Jersey Homebuy scheme. ‘Planning for Homes’ report - to be published annually, sets down the current position on 9.6.2 The average (mix-adjusted) price of permission and the state of the 5 year dwellings sold in Jersey during the first housing land supply, indicating how much quarter of 2008 was double (117%) than that land would need to be released from this in the UK as a whole and a third (32%) higher than in Greater London.
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9.6.3
House Price Trends
9.6.4 The average (mix-adjusted) price of about a fifth higher than a year earlier, whilst dwellings sold in Jersey during Q1 2008 was 3- and 4-bedroom houses were more than £474,000.This was 28% higher than that a quarter higher. The average prices of 1 recorded for Q1 2007 (corresponding to and 2-bedroom flats sold in Q1 2008 were about £100,000). This latest annual rate of substantially higher than that seen in increase is greater still than that recorded in previous quarters, largely as a result of new the previous two quarters, Q3 and Q4 2007, developments coming onto the market; which saw annual rates of increase of 18% and 20%, respectively. 9.6.6 The current Island Plan zoned specific areas of the island for 'Category A 9.6.5 Houses, rather than flats, in Housing' development to provide cheaper particular have seen a greater rate of housing to first time buyers, which together increase than in previous years. The average with occupancy controls also prevents price of 3-bedroom houses sold in Q1 2008 distortions to the market from second home exceeded half a million pounds (£510,000), owners. Historically such houses have the average price of 2-bedroom houses was transacted for significantly less than other
116 Island Plan Review: Strategic Options Paper Green Paper (July 2008) houses in the locally qualified market by around 30%. There are a small number of transactions of such properties each year, and schemes vary significantly, making year on year comparisons difficult.
First time buyer housing
9.6.7 An innovative aspect of housing policy in Jersey is the zoning of land, in part, for first time buyer housing. A definition of first time buyer housing was approved by the States several years ago.
9.6.8 A new aspect of the 2007 Housing Needs Survey explored the issues related to first-time buyers. It found that out of all households which expressed a desire to purchase a property within the next five years, approximately half (corresponding to some 3,100 households) would be classified as first time buyers.
9.6.9 The survey identified two potential components of first-time buyer demand, from existing and concealed households (see Table 6.1 below), almost two-thirds (63%) being from existing households in Jersey.
9.6.10 Approximately half (51%) of all potential first-time buyers were found to be currently living in the qualified private rental sector and one in ten (11%) are in the non-qualified private rental sector. Almost a third (30%) currently live in an owner-occupied dwelling, including concealed households still residing with their families or households living in share transfer accommodation.
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Current tenure Existing Concealed All Households
Owner Occupier 110 815 930
States rental 100 45 145
Housing trust/ Parish rental 45 15 60
Private rental (qualified) 1,380 205 1,585
Private rental (non-qualified) 285 65 350
Registered lodging house 25 - 25
Staff/ service - - -
Private lodging 25 - 25
Total 1,970 1,145 3,115
Current tenure of households intending to purchase a property for the first time.
9.6.11 The type and size of property that households stating that they would like this first-time buyers would like to purchase type of property. Only 3% of potential during the next five-year period is shown in first-time buyers stated that they would like the table below. Over 40% of first-time a 3 bedroom flat, suggesting that when buyers would like a 2 bedroom property, people want a 3 bedroom property they amounting to some 720 flats and 625 generally do not immediately consider flats houses. There was also a large demand for as an option given that there is also a limited 3-bedroom houses, with more than 1,000 supply of 3 bed flats in the market).
Property Type % Number of Households
1 bed Flat 10% 295
2 bed Flat 23% 720
3+ bed Flat 3% 110 Totals 36% 1,130 1 bed House 1% 20
2 bed House 20% 625
3 bed House 33% 1,040
4+ bed House 10% 305
Totals 64% 1,990
Demand by property type for first-time buyers over the next five-years.
118 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Options for meeting affordable housing schemes - in our case built by parishes or demand trusts, on suitable sites outside but adjoining the built up area of the settlement where it 9.6.12 The 2002 Island Plan met the meets a demonstrable local need. requirements for affordable housing by re-zoning green fields for Category A 9.6.15 The potential requirement for small housing, but it is likely that following the amounts of development to support rural Imagine Jersey 2035 Event a clear message Parish communities is addressed in the 3.4 was that green fields should be protected ‘Options for the location of new development’ from future development. There are a section of the Spatial Strategy chapter, but number of options that can be considered to no provision of numbers is made in the bring sites forward although a detailed study housing supply figures for this potential is also currently underway which will source. recommend options for the delivery of affordable housing. Jersey Homebuy
Affordable housing on windfall sites 9.6.16 It is clear from the results of the 9.6.13 Currently affordable ‘Category A’ Housing Needs Survey, that affordability is housing is only secured on zoned sites. More a critical issue that needs to be urgently affordable housing could be secured on addressed. Mechanisms must be found to windfall sites (that is sites which are not enable Jersey's young people to purchase specifically zoned and come forward through their first home. the normal planning process) which would reduce the need for green field land for such 9.6.17 To this end ‘Jersey Homebuy’ has housing, as well as providing affordable recently been launched. It is a proposal housing in more accessible locations. which allows the purchaser to buy the whole property, whilst initially paying only part of Question 60 the first time buyer full market price as may be determined by the Minister. The legal Affordable housing on windfall sites arrangements regulating the unpaid balance of the full market price must be approved by Should private developers be required the Minister for Housing and the property to provide a proportion of affordable must remain in the first time buyer market in housing on windfall sites which come perpetuity. forward through the normal planning process? 9.6.18 This approach would need a 'gateway' system which would be used to allocate people to the appropriate form of affordable housing based on need. All buyers Village developments would be allocated through the affordable 9.6.14 A further potential policy change housing allocation gateway. To ensure that relates to sites around the main rural Jersey Homebuy is targeted at those who settlements. Consideration could be given cannot afford to purchase at full first-time to introducing a similar kind of policy buyer levels, all allocations to those homes approach to that in Guernsey and the UK must be means tested by the Housing which allows small affordable housing
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Department. Developers could run their own met minimum parameters. Jersey Homebuy schemes provided they
Proposed Affordable Housing Allocation Gateway
9.6.19 The need to maintain an up to date 9.7 Unqualified sector picture of the constantly changing need for affordable housing should continue to be 9.7.1 The assumption of the 2002 Island monitored through the annual ‘Planning for Plan is that the needs of those without local Homes’ Report. The Minister for Planning housing qualifications for lodging and staff and Environment would be able to determine accommodation will be met by the market. the proportion of the units provided on a Any proposals for new zoning of land are Category A housing site that are first time restricted to housing needs in the qualified buyer homes, social rented housing or sector. another type of affordable housing, based on an assessment of needs at the time.
120 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 9.7.2 The forthcoming Migration Policy will apartments close to the finance district which introduce new mechanisms that will facilitate are currently solely restricted to the qualified an integrated approach to the application of sector.In many instances these will be business licensing and housing preferable to what were previous family qualifications. houses in the town area that have been converted into multi room lodging facilities. 9.7.3 Under the new system there will be an additional requirement for all new 9.7.7 This need could be met through residents to Jersey to register as soon as development of new ‘lodging they arrive in order to obtain employment or houses’/unqualified sector apartments. accommodation. If they have the required Current population/housing control policy skills, qualifications or experience, they will restricts the classification of new be able to gain 'licensed employment' and development in this way. Whether this should access to the controlled housing market. This be changed is now being consulted on. The is very similar to the current “J category” concern about any such change in policy consent, except that the assignment of would be the impact on the availability of licences to an individual will be down to the land for the development of controlled employer, so long as they are within the total accommodation for the local market. number of licences they have allocated to them. Question 61 9.7.4 Under the new policies there will continue to be a substantial number of Do you agree with allowing a suitable persons classed as 'registered', who will not proportion of new housing on sites in be able to access controlled housing, and the main urban area to be available to who will only qualify to occupy a limited the unqualified sector? range of accommodation, whether lodging, or by some other restrictive designation.
9.7.5 The stock of dwellings available on Question 62 the market to those who will be registered is relatively small. Most needs in this sector Do you think we should continue to rely are provided for through registered lodging on the market to meet future house accommodation for which there is no requirements for homes in the security of tenure. There some with 5,600 unqualified sector, through windfall registered beds in 2008. At the time of the conversions, private lodgings and new 2001 Census there were 1,500 households staff accommodation? in private lodgings, and a further 1,700 in staff accommodation. 9.8 Housing density 9.7.6 If the States pursues one of the higher economic growth targets following the Housing density Imagine Jersey consultation, there may be an increase in unqualified sector housing 9.8.1 Densities of zoned housing sites in requirements. Arguably, the most suitable Jersey, have been typically around 30-35 housing for some sections of the unqualified dwellings per hectare (around 12-14 sector (such as short term finance sector dwellings/acre) on recent schemes on the employees) are the in-town high density urban edge and around villages. This is
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similar to the existing densities of three comprise 2 bed flats (565 units), 2 bed bedroom housing in suburban and rural houses (755 units) and 3 bed houses (745 settlement locations around the Island. Given units). that land is such a precious resource on the Island, it is arguable that this density is 9.9.2 The distribution of the shortfalls in wasteful and simply increases need for 2-bedroom dwelling units indicates two-fifths housing on greenfield sites. (43%) of the total shortfall is for flats and three-fifths (57%) for houses. As the property 9.8.2 In locations with good access to size increases it becomes apparent that the amenities and services - including shops, demand for houses supersedes flats, with schools, places of work and good bus routes for example 90% of the potential shortfall for - it should be possible to increase the density 3 bedroom units being for houses. of development to ensure a more efficient use of land. 9.9.3 The private rental sector shows large potential surpluses in 1 and 2 bedroom flats 9.8.3 The 5.5.1 ‘Density of development’ (1,260 units) and in 2 and 3 bedroom houses section looks at the use of density as a (555 units). If tenure were not an issue, these design tool and examines whether we should large potential shortfalls could potentially move towards a more ‘design led’ approach satisfy some of the demand in the with density simply being a minimum figure owner-occupier sector. to prevent the wasteful use of land. 9.9.4 The States do not currently operate 9.9 Dwelling mix a dwelling mix policy on new housing. Although some attempt is made to control 9.9.1 The 2007 Housing Needs Survey the mix of units on zoned sites within the provides estimates of surpluses and constraints imposed by Category A shortfalls in houses and flats by size and description. In most cases, therefore, the tenure over the next five years. The table current Island Plan policies allow developers below is taken from Survey report and flexibility in responding to the market as they addresses the qualified sector. It indicates see it. This can lead to market slow down if that the potential shortfalls are predominantly developers go after a limited market, for in the owner-occupier accommodation, example, providing a glut of smaller flatted amounting to more than 700 flats and some properties and not enough larger families 1,800 houses. These predominantly dwellings.
Housing Trust / Tenure / Owner - occupier States rental Private rental Parish rental size Flat House Flat House Flat House Flat House 1 bed (65) 30 160 (20) (45) (10) 840 45 2 bed (565) (755) 125 (20) (55) (55) 420 425 3 bed (90) (745) 25 (55) 30 (55) 80 130 4 bed (10) (375) - (10) - 10 20 45 5 + bed - 45 - - - - - 45 Total (730) (1,795) 310 (100) (75) (110) 1,365 695
Five-year requirement (supply-demand) by house and flat in the qualified sectors.
122 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 9.9.5 If a dwelling mix policy were to be introduced it would need to be flexible, taking into account year on year completions of dwellings of different sizes. This could be done through the annual Planning for Homes report, taking into account the current market information.
9.9.6 If the principle of mixed residential developments is found acceptable, then a revised formula will be created using the 2007 Housing Needs Survey to arrive at a new proportional split, which will be reviewed annually in the Planning for Homes report.
Question 63
Dwelling mix
Should the planning process intervene in requiring all new housing developments to meet the current dwelling mix needs?
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124 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 10 Travel and transport
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 125 10 Travel and transport
10 Travel and transport Harbour and Jersey Airport, will arise during the Plan period and require consideration. 10.1 Introduction The Transport and Technical Services Department has published related policy (1) (2) 10.1.1 The States Strategic Plan sets out documents ; which, whilst yet to be a vision for a thriving Island community that adopted by the States, require consideration is underpinned by sustained economic in the context of the review of the Island growth. The ability to travel to, from and Plan. around Jersey, and the availability of efficient transport is critical to the economic success 10.1.5 The 2002 Island Plan set out a of the Island. But the way that people travel series of objectives for travel and transport has an effect on the environment, people's to, from and around the Island, against which health and the overall quality of life. it is appropriate to assess the performance of the Plan and to consider current issues 10.1.2 The Strategic Plan recognises that and options. These include: if the economy is to be maintained and grown, without adversely affecting the quality Reduce the need to travel: through the of life, there is a need to adopt more Spatial Strategy and development sustainable ways of travelling. Specifically, policies that influence the location of the Strategic Plan seeks to shift attitudes development relative to transport; towards the ownership and use of the private Provide alternatives: put in place a car. Its also seeks to maintain and enhance more energy efficient and competitive sea and air links to the Island. environmentally sustainable transport system for the Island, giving an 10.1.3 It is, however, important to enhanced rôle for public transport, recognise that the Island Plan is but one part walking and cycling and enabling more of a comprehensive policy regime affecting people to make an alternative choice to travel and transport to, from and around car travel; Jersey: air and sea transport policies, Influence travel demand and choices: developed by the Economic Development increase public awareness of the Department; and travel and transport policy, implications of their journeys and developed by the Transport and Technical introduce traffic measures to encourage Services Department, will provide much of use of alternatives; the strategic and operational policy Make efficient use of existing framework for this sphere of activity. The transport infrastructure: including Island Plan needs to respond to travel and improvements to, and maintenance of, transport objectives and proposals, the road network, and the Island's established in other policy regimes, where harbour and airport; they relate to the use of land and buildings, Improve safety and security for to ensure that it can contribute towards the transport users: including accident attainment of shared objectives. reduction measures and priority for pedestrians, cyclists, the mobility 10.1.4 Major issues related to the operational and non-operational use of land at the Island's principal ports; St Helier
1 Turning travel around: sustainable travel and transport plan draft framework (July 2005) 2 Draft Integrated Travel and Transport Plan: action plan 2007-2011(2007)
126 Island Plan Review: Strategic Options Paper Green Paper (July 2008) impaired and public transport users over reducing the need for motorised travel the car; (and thus reducing associated energy Manage travel within the centre of St consumption and pollution); Helier: put in place a movement ensuring that those who do not always strategy for the town centre that gives have access to a car can gain access priority to the pedestrian, cyclist and to facilities and services; those with mobility impairments and helping people to live healthier lives by assists the town centre to be a vibrant encouraging walking and cycling. and an attractive place to work, shop, live or visit. 10.2.3 The Transport and Technical Service Department's draft Integrated Travel 10.2 Planning more to travel less and Transport Plan: action plan 2007-2011(2007) - draft ITTP(2007) - seeks 10.2.1 There is a clear link between to secure a 15% reduction in peak hour land-use and travel: by ensuring that new traffic, and associated congestion. This is development is well located to existing the level of peak-hour traffic flow services - workplaces, schools, shops and experienced during school holidays and is other services and good transport routes - perceived to reflect an 'acceptable' level of people can be encouraged to travel less and congestion when the existing infrastructure to travel by the most sustainable modes of is operating within its physical capacity. transport, such as walking, cycling and public Reaching this target would mean people transport. The Island Plan and the planning changing the way in which they travel: the policies within it - particularly the spatial following table provides an idea of the extent strategy, which will determine at a strategic of change, in different transport modes, level where new development on the Island required during the morning peak period to should be accommodated - can seek to secure a 15% reduction in traffic flow (at actively manage urban growth to make the 2008 levels) : fullest use of public transport and to focus development in existing centres and near to good transport routes. By doing this, people will be given wider and genuine choice about how they travel.
10.2.2 The 2002 Island Plan sought to continue the approach of the 1987 Island Plan which was to restrict development, as far as possible, to the existing built-up area of the Island, where there is the greatest concentration of services, facilities and transport provision and routes. Ensuring that development takes place in locations accessible on foot, by bike and/or public transport contributes towards a more sustainable form of development by;
making the best use of existing or proposed transport infrastructure;
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Resultant Reduction in Total Change in Mode of Transport Traffic
50% increase in bus use 3%
50% increase in cycling 2%
50% increase in walking 5% (from outside of the Ring Road)
6% increase in car occupancy rates 5%
10.2.4 During the 8 a.m. to 9 a.m. the St Helier Waterfront, there will inevitably commuter rush period over 11,000 people be an increase in the demand for travel, come into (or drive through) St Helier in particularly to and from St Helier 8,500 private motor vehicles, (4 out of 5 commuter journeys) whereas only about 700 10.2.7 The location of new development people come into St Helier by bus (not will, therefore, be a critical determinant in including school bus users), about a 5% influencing the demand and need to travel, modal share. This means that a large and the success or otherwise of managing percentage increase in bus rides produces peak hour traffic levels. It is essential that only a small reduction in car use. A doubling land-use planning is integrated with transport of bus use would therefore equate to a planning in any review of the Spatial Strategy reduction of 6% in private vehicle use for the new Island Plan for progress to be (assuming a direct transfer between the two). achieved. Given the practicalities of providing for a doubling of bus use in the short term, a more 10.2.8 Critically, in an attempt to maintain realistic yet still very ambitious short term and reduce the demand for and need to target proposed in the Integrated Transport travel, the extent of new residential and Traffic Plan is a 50% increase in usage development in town should be maximised at peak times, which would equate to a 3% to provide people with wider and genuine decrease in other traffic. At least in the short travel choices - preferably to walk or cycle. term buses alone are not the answer to Jer- Where housing development occurs outside sey’s traffic problems of town, it should be located on good public transport corridors and near facilities such 10.2.5 Significant and noticeable as schools and shops in an attempt to reductions will only occur if, in addition to reduce car dependence. It is inevitable that increased bus use, progress is made to even small-scale residential development in encourage more cycling, walking, car rural areas will cumulatively lead to higher sharing, working from home and reductions levels of new traffic generation as people's in unnecessary trips. travel choices here will be more limited, as walking, cycling or taking the bus becomes 10.2.6 When this is considered against less viable. Other developments - such as the backdrop of increased economic activity; retailing and other commercial developments the potential for population increase; - should also be carefully located so that decreasing household size and the continued more car use is not encouraged. demand for homes; and the development of
128 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Question 64 facilities. The planning system can require these facilities through the review, adoption Planning more to travel less and application of planning policy related to Travel Plans (see section 10.4 10.4 Do you agree with the principle of ‘Influencing demand and travel choices’) and locating new development in or close to supplementary planning guidance relating existing urban areas, to reduce the need to standards for the provision of access, to travel and to provide wider and parking and associated facilities. genuine travel choices? 10.3.1.3 Because of the limited width of Jersey's highway network, the draft ITTP 10.3 Providing alternatives proposes the development of off-road cycle routes to promote cycle use, and specifically 10.3.1 The draft ITTP acknowledges that to provide a facility that links population for significant modal shift to occur, a cultural centres in the eastern parishes with St change is required in people's travel Helier, akin to the facility provided by the behaviour and this requires them to be given Railway Walk Cycle Route which connects real choice in their travel options. Providing Corbiere to town. The draft ITTP alternatives to the private car is part of this acknowledges that the route of the former and whilst many of the measures necessary Eastern Railway is now largely developed to make this happen are related to other and does not offer the potential for creating aspects of travel and transport policy, the a continuous cycle route, but proposes Island Plan can make a contribution. investigation into the viability of developing sections of an eastern cycle route on an 10.3.1 Cycling and walking incremental basis. Once a route is defined, the Island Plan can help to safeguard and Cycling and walking promote the development of a route.
10.3.1.1 Walking and cycling are the most 10.3.1.4 Travel to work by foot is relatively sustainable modes of transport and the high within St Helier: the enhancement of Island Plan can assist and encourage people the public realm, and specifically the to choose these travel options in a number improvement of strategic walking routes into of ways. the town from outlying suburbs and residential districts within the Ring Road, 10.3.1.2 The location of new development could encourage even more people to walk. relative to the amenities and services that The development of a public realm strategy people need to access - shops, schools, - as part of the St Helier Development and workplaces, leisure facilities and other Regeneration Strategy - may identify specific facilities - can influence whether walking or proposals to assist in the realisation of this cycling is a realistic option for a greater objective. number of people. Some larger developments - such as offices and other workplaces - can foster greater walking and cycling use by ensuring that there is physical provision made on sites and within buildings for safe and convenient access routes for pedestrians and cyclists; cycling parking; and changing, personal storage and drying
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(Routes 1 and the 15) serve those parts of Question 65 the Island with the highest population density outside St Helier and as such are Eastern cycle route profitable routes with relatively high frequency and duration of service. The Do you agree with the development of remainder of the Island's bus routes are a an Eastern Cycle Route to promote social necessity, which due to their lower more cycle use? usage, inevitably are less frequent with a more limited period of service and run at a loss. Access to the bus service, based on 10.3.2 Public transport winter timetable peak weekday morning service, is shown in fig 3.2.1 10.3.2.1 The Island has an extensive bus network which is expanded during the summer tourist season. The southern routes
Access to Bus Service
10.3.2.2 Travel on buses only accounts facility, far superior to that of the former for a small proportion of peak hour transport Weighbridge bus station - should also boost (at about 6% (3)), but bus patronage is bus use. increasing, up 4% in 2005 and a further 7% in 2006. The completion of Liberation Station 10.3.2.3 Routes 1 and 15, serving the - offering a modern, convenient, indoor southern routes to Gorey and Red Houses respectively, are already running at full
3 2001 Census
130 Island Plan Review: Strategic Options Paper Green Paper (July 2008) capacity during peak times. Most of the 10.3.2.1.2 Park and ride schemes have routes to the northern parishes have some proved popular in the UK and on the conti- spare capacity at peak times. nent. They provide the comfort of the private car for the first stage of the journey and 10.3.2.4 The route 1 and 15 serve the overcome the problems of congestion and areas of highest population density and space associated with car parking at the end therefore offer the highest potential for of the journey. Park and ride and traffic increased bus patronage. The draft ITTP restraint may be complementary and may proposes that no measures to attract need to be introduced in parallel. Traffic passengers to those routes should be taken restraint will require enhanced bus capacity, until increased capacity can be provided. and driving the last part of the journey to St Helier may still prove too attractive to drivers 10.3.2.5 The ITTP does set out other without restraint. There is, however, initiatives which may serve to assist bus anecdotal evidence that people already 'park patronage, some of which may have land and ride ' in Jersey, using sites such as use implications and which could be Goose Green car park, which is adjacent to delivered or assisted through the planning Route 15. The draft ITTP proposes the system, including: development of a trial, using Goose Green, and the consideration of other site options. Real time information system (live “next bus” information on electronic signs or 10.3.2.1.3 The ability to provide high via mobile phones) frequency bus services at park and ride sites More Bus shelters is related to the size of the site. Providing Transport hubs (Outlying points of large sites in Jersey is not easy and the connection between services) development of sites for this purpose may Park and ride schemes have an undesirable environmental impact. The southern coastal routes, however, have 10.3.2.1 Park and ride/ transport high frequency bus services and it may be hubs viable and more acceptable to provide a number of small sites on these routes. More 10.3.2.1.1 The relatively low density users on those routes would enable the population of Jersey’s northern parishes frequency of buses to be further increased, means it is difficult to provide them with a provided that bus capacity is increased to high frequency bus service. It has been match demand. proposed in the past that minibus services could bring people to “transport hubs” where they would link to a high frequency core Question 66 service. The draft ITTP suggests that high levels of subsidy would be required for such Sites for park and ride and transport an operation, andwould have the hubs disadvantage of requiring the public to use two public transport vehicles to travel a Do you agree with the development of relatively short distance. Such an park and ride sites or transport hubs arrangement would be unattractive in around the main urban area, next to high comparison to using a car, and would only frequency bus routes, to increase bus be utilised if strong disincentives for private patronage? car use were put in place.
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10.3.2.2 Public transport planning in 1995 to cost £48 million and would have obligations agreements a significant environmental impact, including removal of the western cycle track. Any such 10.3.2.2.1 It may also be appropriate to scheme would cater for a limited customer use planning obligation agreements to base, potentially competing with the Island's secure developer contributions, where bus service, and would not be able to physi- appropriate to fund measures which would cally reach the centre of St Helier: the 1995 serve to enhance the bus service and to study estimated that it could be expected to increase bus use. The following may offer reduce traffic flows along the south western some potential: route by 2 to 3%. The draft ITTP does not support further investigation of light transit securing 'pump-priming' contributions at this time and suggests that efforts are to sustain currently unviable routes or directed into an enhancement of the Island's to enhance the duration and/or bus-based public transport system and frequency of existing routes; infrastructure. the provision of or contribution to bus infrastructure, which may include the 10.4 Influencing demand and travel provision or enhancement of real-time choices information; bus shelters; or bus-related highway improvements - such as bus 10.4.1 Travel behaviour can be influenced priority or junction improvements; by travel choice. Travel Plans are documents some developments, such as which set out a range of objectives and large-scale retail schemes, may warrant measures designed to increase the travel the provision of a park-and-ride service. options available to people associated with a particular development, the key objective of which is usually to reduce car use. Policy Question 67 TT22 of the 2002 Island Plan sets out a requirement for the provision of Travel Plans Contributions to enhance bus use as an integral element of large scale development above specified thresholds. Do you agree with the use of planning Travel Plans should set out targets and obligation agreements to support the monitoring for reducing car use and should enhancement of the bus service? encourage measures like car sharing. The implementation, monitoring and enforcement of this policy through the planning system is 10.3.2.3 Light transit not easy to achieve, particularly when developments - such as many office 10.3.2.3.1 The introduction of some form developments - are speculative and an of light rail, tram/mass transit system, end-user is not apparent at the determination particularly between the west and St Helier, of the planning application. is raised periodically as a potential solution to the island’s transport problem. The viability 10.4.2 Travel Plans can also be employed and value of such a scheme has been outwith the planning system as part of an assessed in the past and shown to be organisations own objectives to manage and unviable. It would require significant capital influence its own travel and transport, and investment; a route from St Helier to the implications that this might have. The Quennevais and the Airport being estimated Minister for Planning and Environment's
132 Island Plan Review: Strategic Options Paper Green Paper (July 2008) ECO-ACTIVE programme encourages their parks in the town area occupy valuable adoption and the Transport and Technical space which could be used more efficiently Services Department has launched a and effectively - for the provision of homes car-sharing initiative for the States of Jersey. or commercial activity.
10.4.1.4 Island Plan 2002 Policy TT28: Question 68 Private Car Parks conferred a presumption against the provision of more private car Travel Plans parks in the town in an attempt to discourage more car use; reduce congestion; and to Do you agree that larger developments promote the more efficient use of urban land. should be required to prepare and provide Travel Plans as an integral part of planning applications? Question 69
Private car parks 10.4.1 Parking Do you agree that proposals for new 10.4.1.1 The ability to park is fundamental private car parks in town should to the use of the private car: the availability continue to be resisted? of parking at the start and end of each journey is a critical factor in car use. The planning system can influence this mode of Parking standards for new development transport through a policy framework that seeks to provide for and regulate parking 10.4.1.5 What we know is that if there is provision as an integral element of a parking space available it tends to be used development, or a development activity and .Regulating the level of parking provision, as use of land in its own right. part of development proposals through the planning process, can serve as a valuable Parking provision tool to influence the demand to travel by car. Reviewing current car parking standards is 10.4.1.2 Owing to the significance of fundamental if the the planning process is parking to the use of the private car, the to help contribute to the objective of reducing provision and availability of car parking - car use and the associated levels of particularly in the Island's principal congestion. residential, economic, leisure and retail centre of St Helier - is critical, and has 10.4.1.6 For a long while a more pragmatic implications for congestion, traffic approach has been adopted tothe provision management and economic viability and of parking. The current guidelines for the vitality of the town. Proposals for the provision of car parking associated with new management of car parking in St Helier are development do not help to deliver a more set out in section 5.6.9 ‘Parking and road sustainable form of development in the access strategy for St Helier’. Island as they are still based on the premise of seeking to accommodate greater car 10.4.1.3 In land-use planning terms, the ownership and use - resulting in an inefficient provision of car parking encourages car use use of land and encouraging more journeys and - particularly in St Helier - can represent an inefficient use of land. Surface level car
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by car - rather than seeking to manage travel 10.4.1.8 For residential parking the issues demand and to encourage other, more are different. Residential uses are more sustainable modes of travel. scattered and in some locations public transport is not available, although such 10.4.1.7 For workplace parking there is a locations may not be suitable for major strong case towards moving towards growth. In locations with good public so-called restraint based parking which transport such as in town, or in those areas involves setting maximum rather than served, in particular, by Routes 1 and 15, it minimum standards. may be possible to have developments with little or no parking because of the constraints on on-street parking.
Examples of current residential car parking standards
Potential dwelling Town centre Within Ring Road Beyond Ring Road occupancy
1 person 1 space 1 space 1space
3 persons 1 space 1.5 spaces 2 spaces
5 persons 1 space 2 spaces 3 spaces
10.4.1.9 Any review of parking standards On-street parking for new development will need to consider accessibility to public transport and car 10.4.1.10 The demand in the town centre ownership levels. for parking on-street constantly exceeds the supply. Many private car users prefer to park Question 70 close to their destination rather than use a more distant off road car park, even though Office parking standards there is usually spare capacity to do so. Priority for the use of road space should, Do you agree with the idea of limiting however, be given to unloading and servicing the amount of car parking provided with vehicles as well as disabled badge holders. new office development? Improved pedestrian space will enhance the quality of the town centre and help maintain its vitality. Proposals for the management of Question 71 road space in the town centre is set out in section 5.6.9 ‘Parking and road access Residential parking standards strategy for St Helier’.
Do you agree with the idea of reducing 10.4.1.11 A number of town residents park the amount of car parking required with over night on street in time restricted zones new residential development? and are obliged to move their car to an off street car park during the day time. Residents’ parking zones should be supported where they reduce the need to
134 Island Plan Review: Strategic Options Paper Green Paper (July 2008) make unnecessary vehicle trips and congestion and delay. Most of these areas encourage residents to walk to work. Zones experience congestion during the morning have been introduced in the Stopford afternoon and evening peaks, such as the Road/St Marks Road area in the north east north east section of the ring road, of St Helier and to the west in Cheapside Cheapside, Five Oaks, Mont Millais, and the and have been popular with local residents. Tunnel. Beaumont is particularly prone to The Parish of St Helier is proposing to traffic congestion, which can extend to other introduce such zones throughout the town. parts of the working day, as well as the weekends. 10.4.1.12 Care has to be taken to enable businesses in the area to be serviced. It is, 10.5.1.2 The 2002 Island Plan identified however, possible that these schemes will parts of the primary route network that have encouraged car ownership, by making warranted detailed traffic studies to attempt parking cheaper and more accessible. While to address congestion and delay on the residents in St Helier are entitled to enjoy network in these areas including; the advantages of car ownership, they also have the advantage of better public transport the Ring Road on the south-eastern side and more amenities within walking distance of St Helier; than residents of the country parishes. the junction of Commercial Buildings Residents’ parking schemes are needed to and the A17; minimise unnecessary trips, but they should the junction of La Route de la Haule and not be priced so cheaply as to encourage Beaumont Hill; and increased car ownership. Mount Bingham
10.5 Road network 10.5.1.3 Traffic modelling associated with the development of the St Helier Waterfront; 10.5.1 Jersey's dense, and predominantly masterplanning of the La Collette and St narrow, road network is a key strategic asset Helier Harbours; and the St Helier and makes a significant contribution to the Development and Regeneration Strategy will economic and social vitality and viability of consider all of those areas above that are the Island. The 2002 Island Plan recognises within St Helier. '5.6.9 ‘Parking and road the role that it has to play and, in partnership access strategy for St Helier’' of this paper with the strategic highway authority, seeks sets out the detail of the some of the to ensure that its role is protected and proposed traffic management measures for enhanced. Island roads are classified the town which have emerged from the according to a hierarchy of routes which is EDAW St Helier Development and used to manage activity on them and which Regeneration Strategy. is used in the consideration of planning applications, particular where there are 10.5.1.4 The Minister for Transport and implications for development upon the Technical Services draft Integrated Travel primary route network. and Transport Plan (2007) specifically addresses the situation at the Beaumont 10.5.1 Network capacity Hill/Route de la Haule Junction and states that the heavy traffic congestion experienced 10.5.1.1 The draft ITTP acknowledges that here is not solely due to the filter in turn there are a number of areas in the Island junction. Even if an improved capacity at that where there is a concentration of traffic junction were to be provided, it is considered exceeding the road capacity causing that La Route de la Haule, between the
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Beaumont junction and Bel Royal, would be unable to carry any additional traffic at peak Question 72 times. Its capacity is constrained by the density of housing, numbers of entrances Primary route network and junctions, and pedestrian crossings along its length. Do you agree that there is a requirement to build more roads in the Island to ease 10.5.1.5 The land take for and costs of congestion and delay? such a scheme would be substantial, involving the acquisition of land from a large number of landowners/house owners, to enable substantial road building in the area. Question 73 A road construction solution would therefore involve not just increased capacity at Beaumont/ La Haule junction Beaumont, but increased capacity on the road system through to Victoria Avenue. Do you agree that changes should only Highway improvements in this one area be made to improve the Beaumont/ La would allow more vehicles to pass through Haule junction where it can be justified Beaumont, but would subsequently put more on the basis of improvements to public demand on junctions nearer St Helier. transport?
10.5.1.6 Although congestion at Beaumont is costly to the Island’s community it can also 10.6 St Helier Harbour be argued that it has a positive effect in that it acts as a disincentive for private car use 10.6.1 St Helier Harbour handles the vast from the south west. On the basis of this majority of the Island's freight and provides assessment, it is considered by the an essential passenger link to both the UK Transport and Technical Services and continental Europe, and the Island Plan Department that increasing the capacity of will need to ensure that the operational the roads in the Beaumont area will requirements of the port can be provided for encourage car use, and would result in fewer over the Plan period. There are, however, people being persuaded to use the some key strategic issues facing the sustainable modes of transport promoted operational efficiency of St Helier Harbour: elsewhere in this Plan. these are considered in detail in the section, 3.5 ‘Longer perspective’ ,of this paper. 10.5.1.7 The draft ITTP proposes that a study of traffic circulation in the Beaumont 10.7 Jersey Airport to Bel Royal area will be carried out, and any potential solutions will consider the possibility 10.7.1 Like St Helier Harbour, Jersey of reducing delays. It also states, however, Airport is a key strategic asset for the Island that any change to the road network in the and is essential, in particular, to its economic area to address congestion would only be vitality. The airport has undergone justifiable where it secured improvements to substantial change in recent years but is public transport through the area and where continuing to develop and enhance its it did not increase the number of single efficiency and effectiveness, and is in the occupancy cars. process of reviewing the efficacy of use of its land and assets.
136 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 10.7.2 The Island Plan review will clearly need to prioritise, promote and protect the operational requirements of the airport and will continue to safeguard other land uses and development from the most adverse effects - in terms of noise and risks to public safety - of aviation activities. In this respect, policies relating to the Aircraft Noise Zone will be carried forward and work already undertaken to review the definition and policy regime applicable to the Public Safety Zone around the airport, taken forward into the new plan. The need to regulate development and the use of land to minimise the possibility of aircraft bird strikes may also require consideration.
10.7.3 The Plan will need to consider proposals to further develop and expand aviation related uses at the Airport, such as new freight facilities, maintenance facilities, private aviation growth, and an aviation museum. Other uses which do not necessarily require an airport location - such as light industry, warehousing, bus storage; bulky goods retailing and park and ride - will need to be considered on their merits relative to the benefit to the Island community and their potential impact - environmentally and economically.
10.7.4 In addition over the longer term if the financial sector continues to grow the Esplanade Quarter and other Esplanade schemes may not be sufficient. A dedicated business park could be developed at the airport, but with the disadvantage of losing the social and spin off commercial advantages of central offices.
Question 74
Non-operational uses at Jersey Airport
Would you agree with the use of land at the Airport for non-airport related uses?
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138 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 11 Minerals
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 139 11 Minerals
11 Minerals 11.2 Policy context
11.1 Introduction States Strategic Policies
11.1.1 Minerals such as granite and sand 11.2.1 Mineral provision does not feature are vital natural resources which make a specifically in the States Strategic Plan 2006 major contribution to the Island’s economic to 2011, although two of six commitments to well-being and to quality of life. They are the people of Jersey set out in the plan are used for the construction and repair of roads, particularly pertinent, including: homes and schools and for other essential Commitment One: We will maintain building work. As a consequence, a ready and enhance a strong successful and and adequate supply must always be environmentally sustainable economy; available, be it from local extraction, and secondary and recycled materials or sources Commitment Four: We will maintain off the Island. and enhance the natural and built 11.1.2 It is a role of land use planning to environment. address where essential minerals can be 11.2.2 There are also a number of aims sourced and, through the Island Plan, to and outcomes set out in the plan which could manage where mineral development takes be applied indirectly to mineral planning. place. In doing so, the new plan will have For example, under commitment one, the to strike the right balance between demand stated intention is to promote existing for minerals and the potential effects of industries which play a large part in mineral development on the environment preserving the Island's heritage and and people. character. 11.1.3 Left uncontrolled, the extraction of 11.2.3 In any event, it is likely that if the minerals has the potential for considerable States continues to pursue its strategic aim adverse environmental impacts in a small for controlled economic growth, there will be Island like Jersey, where land supply is continuing significant demand pressures for limited and the high quality landscape and minerals (especially aggregates) of the right remaining wildlife habitats are extremely quality to serve the building industry. sensitive to the effects of intrusive development. The dispersed settlement The Jersey Minerals Strategy 2000-2020 pattern in the Island also creates the potential for adverse environmental health 11.2.4 The Jersey Mineral Strategy was impacts on local residents associated with derived from a comprehensive study noise and dust emissions, blast vibration, undertaken by Arup Consultants and heavy traffic generation and impacts on local subsequent work by the Planning water resources. Department. It aims to provide a framework for the future provision of construction aggregates and was lodged for States debate in March 2001 (P.51/2000). The strategy was never debated by the States, having been deferred pending completion of a traffic modelling exercise. However, it was
140 Island Plan Review: Strategic Options Paper Green Paper (July 2008) used to inform the statutory Jersey Island and a large proportion of its future Plan 2002 and so in effect was adopted aggregate requirements; and through this mechanism. 5. using La Gigoulande Quarry, St. Mary for landfill with inert waste and for 11.2.5 The main components of the secondary / recycled aggregate strategy are as follows production, when La Collette Phase II reclamation site has been filled, and 1. continued production of aggregate at restoring the quarry for a suitable end Ronez Quarry, St. John into the longer use. term beyond 2020; 2. continued production of aggregate at La 11.2.6 In effect, therefore, the strategy Gigoulande Quarry, St. Mary for 13-20 looks to move from the current position of years, depending on extraction rates; 'maximising local supply' to a new position 3. winding down of Simon Sand and involving a reduction in the extraction of Gravel Ltd., St. Ouen’s Bay by 2018 and primary aggregates locally, a shift towards progressive restoration of the site; the bulk importation of aggregates and 4. creating a new berth and handling area continuing production of recycled at St. Helier Harbour for importing all aggregates. The main advantages and the Island’s future sand requirements disadvantages of this approach were set out in Jersey Mineral Strategy report (November 2000), as follows:
Advantages Disadvantages
Generally accords with States strategic policies Requires extension of La Gigoulande to secure immediate and medium term supplies
Makes provision for the disposal of inert waste and Will result in continued traffic the Island’s main recycling operation movement to and from Ronez and Gigoulande
Reduces the long term impact of mineral working on Will leave Jersey Harbours with a the Island monopoly situation over imported materials
Maximises local quarrying where this is essential to Costly, unless port charges reduced maintain supplies and is environmentally acceptable
Provides feasible new berth and handling facilities, Will effectively push a large which can be developed in a relatively short proportion of the Island’s mineral time-frame, at relatively low cost, in a location close demand into ‘someone else’s to the main source of most future building activity backyard’ and increase the extent of aggregate transportation
Helps maintain indigenous business and local traffic flows generated around the employment Harbour
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 141 11 Minerals
Advantages Disadvantages
Avoids a monopoly situation arising in the supply of aggregates after La Gigoulande is exhausted
Overcomes the usage limitations of local sand
Avoids continuing dune ecology impacts at Les Mielles
Ensures that land worked for minerals is restored and given a beneficial after-use Overcomes perceived problems of rock reactivity associated with the output from Ronez Quarry (i.e. the so-called ‘concrete-cancer problem’)
11.2.7 The required the traffic modelling lack of an alternative route when Commercial exercise called for by the States was Buildings is unavailable was a concern also undertaken on its behalf by Parsons flagged up at the time. Brinckerhof who reported in November 2002. The report was not targeted Jersey Island Plan specifically at the traffic impacts of the Jersey Mineral Strategy, but instead, on the wider 11.2.8 The 2002 Island Plan includes a traffic impacts of all the Waterfront and La series of policies governing proposals for Collette Developments. It identified that the mineral working, secondary aggregate proposed developments at the Waterfront production and minerals importation. would lead to considerably increased 11.2.9 In accordance with the findings of congestion during the morning peak period, the Mineral Strategy, a site was safeguarded but that the road system would cope with for an aggregate importing facility at St. off-peak traffic (with the exception of the Helier Harbour and La Gigoulande Quarry tunnel). The report identified that office was designated for future landfill. developments would produce the highest number of trips. Unfortunately, it is harder to 11.3 Resource availability analyse the effects of the Mineral Strategy (and notably the proposed importing facility) Resource availability from the traffic modelling exercise undertaken. Importing some 200,000 tonnes 11.3.1 Historically, because of its of aggregates per year through La Collette geographical isolation, Jersey has had to (as originally envisaged) would produce the rely heavily on indigenous mineral equivalent of 20 truck movements per hour, resources. This has primarily involved the which is low in terms of the existing traffic working of hard rocks for building and using Commercial Buildings and almost construction materials, but large quantities insignificant in a traffic model. It should be of sand and gravel have also been taken recognised, however, that there would be from beaches and wind-blown sand deposits significant reductions in traffic volume if the in the past. Other minerals previously importation is programmed to commence after the end of tipping at La Collette. The
142 Island Plan Review: Strategic Options Paper Green Paper (July 2008) exploited include industrial minerals (e.g. (vi)large stone blocks required for china-stone, Molybdenite and lead/zinc coastal defence works and reclamation lodes) and clay for brick making. cannot be readily sourced from existing quarries in Jersey, given the difficulties 11.3.2 The Jersey Mineral Study of producing large enough blocks and undertaken by Ove Arup and Partners in of transporting such blocks by road; 1998 / 1999, provides an assessment of (vii)quarry stone resources on the Island mineral reserves in the Island, having regard are constrained significantly by deeply to the current use and specification of weathered upper rock layers, which are minerals and to other geological factors, unsuitable for most uses and by such as depth of weathering, superficial coverings of loess (principally deposits and chemical suitability. The agricultural land), head and wind-blown general conclusions could be summarised sand deposits, which reduce as follows: accessibility and economic potential for rock quarrying and present additional (i) in geological terms, there is no environmental constraints; shortage of rock suitable for crushing (viii)if it became necessary at a future for aggregate for a wide variety of date to provide additional land-won modern building and construction uses; aggregate sources other than from (ii) some intrusive dyke rocks, which existing quarries, the granite forming occur widely on Jersey in sedimentary, the north-west part of the Island, would volcanic and igneous rock formations, be the most practical source area; contain deleterious minerals and forms (ix)there are considerable reserves of of silica. These can react adversely with pure sand on the Island, with the largest the moisture and alkali in concrete and being the wind-blown sand deposit in cause cracking and surface spalling. St. Ouen’s Bay. However, the main This has become known as the shortfall in resource availability, is the ‘alkali-silica reactivity problem’; absence of realistically extractable (iii)although the presence of potentially sources of good quality, sharp building reactive dykes limits the overall sand. (N.B. at present the industry suitability of the host rocks for use in accommodates this problem by a concrete, it does not affect other uses combination of small scale imports of and in any event, potential problems sand and by using crushed and graded can be obviated where the stone is rock fines in place of sharp sand); selectively worked; (x) there are no major reserves of gravel (iv)there are a wide variety of rock types which can be economically processed. on the Island, which would be suitable For this reason, most of the gravel for block stone for traditional masonry currently used in the Island is generated use, in restoration work, sympathetic by rock crushing; architecture and monuments; (xi)there has been no systematic study, (v) it is doubtful that Jersey could or exploitation of offshore mineral sustain a modern large-scale dimension resources around the Island. stone processing industry based on Marine-dredged sources may be able local stone, given the block sizes to address the shortfall in sharp sand required by modern stone processing and gravel, although probably not in the (i.e. 3-5 m3); short term. In any event, this would require evidence of a market size
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sufficient to attract a commercial developers on sites where significant company to thoroughly explore the demolition takes place (under the terms of relevant areas of seabed; approved ‘Waste Management Plans’). From (xii)it is evident that the area of seabed time to time, some aggregates are imported that might be available for sand and to the Island. In the past, this has included gravel extraction, is not actually that considerable amounts of rock armour for extensive, when account is taken of beach replenishment; and small quantities concerns about the effect of near-shore of sand, gravel and lica, which are dredging on coastal erosion, dredging occasionally imported by Ronez for specialist depth capabilities (presently about 20m) works (N.B. The latter has not exceeded and the extent of Jersey’s territorial limit 2000 tonnes per year in recent years). (i.e. currently 12 miles); (xiii)Banc de la Schole, south of 11.4.3 Market demand for aggregates is Alderney is probably the only offshore cyclical, but in recent years the Island has area of seabed with realistic potential consumed on average over 400,000 tonnes for supplying Channel Island markets each year. This compares with the average with large volumes of construction 450,000 tonnes demand in the mid 1990's. aggregates. Sand banks closer to the It is also significantly below the peaks in Jersey coast (e.g. Banc du Chateau off demand, when the construction industry was Gouray and other smaller accumulations operating at or over capacity, in the late around submerged rock shoals such as 1980's and early 1990's (525,000 tonnes) Ecreviere Bank to the east of Les and the late 1990's (500,000 tonnes). A Echrehou) are likely to be ruled out comparison of current and earlier mineral because of the possible effects on output figures is set out in the table below. beaches. Unfortunately, this does not show the increasingly important contribution made by 11.4 Current mineral extraction recycled aggregates over recent years. The only figures available for recycled aggregates 11.4.1 At present, the only minerals which in the last 5 years are those from the are actively worked in the Island are sand centralised recycling centre at La Collette. and gravel, and stone (principally in the form The average figures used in the table also of crushed rock). The majority of this is used fail to highlight the rapid increase in output as aggregates for the construction industry. of recycled aggregates from La Collette, which rose from approximately 30,000 11.4.2 There are currently two major rock tonnes in 2003 (under a previous recycling quarries on the Island (Ronez and La operator) to 62,000 tonnes in 2007. Output Gigoulande), one rock quarry producing of recycled aggregates from development small quantities of stone (La Saline) and one sites and other smaller recycling operations sand pit (Simon Sand and Gravel Ltd). remains an unknown. Additional supply is provided by recycled aggregates from the construction and demolition waste stream. This is mainly produced at a centralised recycling centre (AAL Recycling at La Collette), which is often referred to as "the Island’s third rock quarry". However, other sources include various smaller private recycling operations and
144 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Source Average Output (Tonnes p. a.)
late 1980's / 1996 1989 & 1990 last 5 years or early 1990's so
Ronez 250,000 175,000 210,000 140,000
Granite Products 150,000 170,000 158,000 150,000
La Saline 5,000 2,500 2,250 5,000
L.E.J. Moon 30,000 10,000 10,000 - (ceased operating)
Simon Sand and 80,000 60,000 77,000 76,000 Gravel
sub-total 515,000 417,000 457,250 371,000
Recycled 10,000(1) +- 40,000 +- 50,000 35,500+ Aggregates
Total Output 525,000 457,500 507, 250 406,500+
1. No accurate figures available
11.4.4 The current position with the quarrying techniques. Ronez currently principle producers is as follows: has approximately 1.5 million tonnes of reserves within the consented area and Ronez - located in the 'Green Zone' in if no extensions are permitted the the Parish of St. John on the north coast reserves could still be increased to 2.2 of the Island. The quarry has been million tonnes. This would give a life operational since 1890 and is presently expectancy of 16 years to 2024 at constrained by Route du Nord and Sorel recent extraction rates (140,000 tonnes Point. The current output is used in a per annum). However, Ronez have wide range of products, including: plans to extend the operational area of asphalt (15-20%); ready-mixed concrete the quarry to allow for the extraction of (35-40%); concrete blocks and other further reserves in and around the concrete products (15-20%); and quarry. The company presently intends general market graded loose aggregate to make a planning application to this sales (25-30%). Some specialist end either later this year, or in 2009. It material is imported. Aggregate from is considering a westward extension Ronez has been adversely affected by (including the south east corner of the the 'alkali-silica reactivity problem', scrambling track and fields to the south which has affected the use of quarried of the track), which could deliver 2.3 material as a concreting aggregate. The million tonnes of recoverable reserves quarry company has sought to address and a southern extension (under the this problem and manage the risk existing plant and offices), which could through the introduction of low alkali deliver 4 million tonnes. If planning cement, quality control and selective permission were granted for either of
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these proposals it could extend the life screening rock) with state-of-the-art of the quarry by a further 16 years or 29 plant and relocating this, together with years respectively. If both extensions the stocking areas, to a more central were to be granted consent, it would location at the base of the quarry. This enable the quarry floor to be deepened effectively paved the way for the latest from -20mAOD to -50mAOD and in so planning permission in 2007 doing would increase the total (P/2006/1273), which allows an increase recoverable reserves in the quarry to in the depth of mineral extraction at the 17million tonnes and the life of the western end of the quarry by 7m to quarry to over 120 years (at current provide an additional 10 years of extraction rates). In association with the reserves (1.4m tonnes). The company latter option for expansion, the company estimates there are approximately 3.5 is currently considering the feasibility of million tonnes of consented reserves constructing a port basin in 50-70 years remaining at the quarry, giving a time. The possibility of developing an theoretical life expectancy of 23 years all-weather port / importing facility at at current extraction rates (150,000 Ronez (as an alternative to St. Helier tonnes per annum). However, it argues Harbour), was examined as part of the that the life of the quarry could extend Jersey Mineral Study. Clearly, if it were to some 30 years, if recycling operations feasible, there would be a strategic are established in 10 years time, leading value for the Island. However, the idea to a reduction in extraction rates. was dismissed at that time, because of La Saline - located in the 'Zone of known tidal and navigational problems Outstanding Character' and the 'Green and the costs associated with providing Zone' on the north coast, approximately a breakwater in deep water, in order to one kilometre north of St. John's avoid swell in any new harbour mouth. Village. This is the only quarry on the La Gigoulande - located in the Island that produces building stone and, 'Countryside Zone' in St. Peter's Valley, as such, it supplies the majority of local on the parish boundary between St. stone masons and builders. Mary and St. Peter. The quarry is Simon Sand and Gravel Ltd - this operated by Granite Products Ltd. family business has been extracting Approximately 40% of the normal quarry sand from St. Ouen's Bay since 1909. output is used for ready mixed concrete, The present workings are located in the 30% is used for concrete products and 'Green Zone' at the foot of Mont a la the remaining 30% is sold as graded Brune, on land which was zoned by the loose aggregates (including hoggin). In States of Jersey in 1976 specifically for July 2001, planning permission was 'sources of sand for building purposes'. granted for a considerable eastward The quarry is in a particularly sensitive extension to the quarry, which made coastal dune landscape and is available some 2 million tonnes of rock. significant in terms of visual impact and It was estimated at the time that this habitat disturbance. The company would extend the life of the quarry by currently quarries sand and shale stone between 13 and 20 years (depending and supplies several different products on extraction rates). More recently, to the local construction industry and planning permission (P/2006/0427) has the general public, including: windblown been given to replace the aging mineral sand for concrete and block making; processing plant (used for crushing and beach sand for plastering, rendering and
146 Island Plan Review: Strategic Options Paper Green Paper (July 2008) painting; darker sand for backfill of the approved site which it says could trenches and foundations; and shale yield an additional 3-5 years of supply. stone of various sizes for pipe-bedding, AAL Recycling - This is the main centre garden landscaping, drives and in the Island for recycling inert pathways. Approximately a third of the construction, demolition and excavation sand output is supplied to Granite waste and it is located at La Collette Products and Ronez for use in the Phase II reclamation site. The company manufacture of concrete products. Due has been given a five-year contract up to the fineness and uniformity of the to 2011 and has made a substantial windblown sand, those companies add investment in plant and equipment to granite dust to meet the required produce quality recycled aggregates concrete grading specifications, whilst and other materials. Effectively, this making good use of a by-product of their provides Jersey with a “third quarry”, stone processing. At present, Simon extends the life of existing mineral Sand and Gravel Ltd is only licensed to reserves, reduces waste for landfill and continue its operation until 2018. In will help extend the life of La Collette December 2003, it was granted planning Reclamation Site. The company has permission (P/2003/1318) for a the capacity to process some 350,000 continuation of extraction and tonnes of waste per annum. If such processing of sand and gravel until levels of inert waste were to be 2018. This included proposals for an produced in the future, the current extension of extraction area, the output of recycled aggregates (62,000 construction of a storage shed, tonnes per annum) could theoretically landscaping and the development of increase to 85,000 tonnes per annum, screening bunds. The company at a conservative average recycling rate anticipates that there are sufficient of 25%. reserves within the approved site boundary to meet local requirements 11.5 Other alternative sources until the expiry date, based on average annual extraction rates. However, the 11.5.1 There are several other possible company owns land immediately to the sources of aggregate: north of the existing approved site (Field 246A), which has sand reserves and is Other on-Island stone reserves - within the boundaries of the land for Whilst there is no shortage of suitable sand extraction. This field is currently rock for the Island to be self-sufficient being used for landscape enhancement in stone aggregates for thousands of and restoration purposes (as part of years, opening new stone quarries is approved landscaping conditions) and likely to have very significant and is being covered with sand which will serious environmental impacts relating, effectively sterilise the deposit. If it were in particular, to land loss, visual and to be approved for extraction, the landscape effects, road traffic company estimates that it could extend generation and other specific the life of the quarry by 8 -10 years at location-dependent effects. current average rates of extraction. The Other on-Island sand reserves - company has also pointed to potential Although there are considerable additional reserves under several reserves of wind-blown sand in St. smaller fields immediately adjacent to Ouen's Bay, opening new sand and
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gravel quarries is not regarded as a aggregates in concrete and suitable option, given the special demonstrates that a blend of 20% landscape character of this part of the recycled aggregate with natural Island, which requires the highest level aggregate does not have a negative of protection and the likely impact on concrete performance. That environmental impacts. said, one of the Island's main quarry Future recycling - Construction and operators has made the point that demolition activities have typically recycled aggregates are a finite accounted for around 70% of the weight resource and is of the view that they will of Jersey's solid waste between 2003 be optimised at a level not significantly and 2006. Recycling material from the higher than is presently the case. In waste stream has the advantage of any event, any significant longer term reducing the amount of waste going to contribution by locally recycled landfill and also serves to reduce the aggregates will be dependent on the demand for primary aggregates from identification of a suitable site/s when the Island's quarries. The solid waste the main centralised La Collette strategy looks to maximise aggregate recycling site is no longer available. recycling and sets a target to increase The Jersey Mineral Strategy identified recycling (and composting) to at least La Gigoulande Quarry as a future site 32% by the end of 2009. However, the for recycling in association with landfill Minister for Transport and Technical and the 2002 Island Plan supports the Services is proposing to raise the target principle of recycling operations on to 36% by 2018. The present success active mineral or landfill sites. The of aggregate recovery activity in the options for future recycling are Island owes much to the prevailing examined in the next Chapter. economic and market conditions. It is Marine dredged aggregates - No more profitable to produce recycled aggregates are currently dredged from aggregates in Jersey compared to Channel Island waters, but, as inferred anywhere in the UK, because of the above, there is at least one suitable relatively high production costs and area from which material could be selling prices of local quarry products. drawn in future (Banc de la Schole). The Mineral study work undertaken by This can not be considered as a realistic Arup in 1999 indicated that recycled option until a proper survey has been aggregates could continue to play a undertaken to establish the potential. leading role in managing the overall This would have to examine numerous future demand for minerals in the issues, including: rights to extract; Island. It suggested that future recycled nature and quality of the resource; output might account on average for suitability for construction industry use; 8%-10% of the aggregates market. A potential conflict with sea fisheries and recent study by the UK based 'Waste fishing interests; operational and and Resources Action Programme' economic feasibility; and ecological and (WRAP) provides added weight for other environmental impacts (including optimising the use of recycled effects on marine eco-systems and aggregates by the construction industry potential beach erosion problems). In and overcoming barriers to such use. any event, the feasibility of using marine It provides detailed technical information dredgings would be dependent upon on the performance of recycled having suitable port facilities for landing
148 Island Plan Review: Strategic Options Paper Green Paper (July 2008) the large volumes that would be to natural sand. Part of the reclamation involved, if this is to be an economic site at La Collette is currently set aside proposition. for a new aggregate importing facility to Imported aggregates - It would be handle sand imports when Simon Sand possible to import more material to the closes down (in 2018) and for rock Island and so reduce the reliance on, aggregate imports when consented and the difficulties presented by, a reserves at La Gigoulande are continuing supply of locally produced exhausted (originally thought to be aggregates. Crushed rock and/or sand anywhere between 2013 and 2020). and gravel aggregates are readily However, such a facility may not be available in the nearby French necessary for at least 20 years, given hinterland and the British South Coast the recently extended life expectancy and, as alluded to above, they may even of La Gigoulande and particularly if be available from Channel Island current informal proposals by Simon Waters. One of the main problems with Sand and Gravel and Ronez to extend importation at present, however, is the their operations were to be granted high costs occasioned by port dues and consent. In its 1999 report, Arup handling charges at St. Helier Harbour. Consultants carried out an assessment Furthermore, any significant bulk of various sand and gravel supply importation will not be possible unless options (against environmental effects suitable port facilities are created with and socio-economic considerations) and a berth and an adequate area for importation of sand and gravel emerged material storage and handling to as the most acceptable approach. The guarantee future supply. If the Simon main downside identified was the likely Sand and Gravel Ltd operation does road transport impacts. The option of close in 2018, sand for the construction importing rock aggregate also scored industry will need to be imported. It well in the evaluation. However, Arup would seem that this, in itself, would be Consultants pointed out that this might sufficient to require the creation of a rate poorly in terms of 'sustainability' suitable importation facility, given the and future generations may not judge it current average quarry output of around wise for the Island to effectively be 76,000 tonnes per year (fluctuating to a "exporting" the environmental effects of high of 89,000 tonnes per year) and the meeting its aggregate requirements. previous conclusion of Arup Consultants that imports of 60,000 tonnes per year 11.6 Planning for the future might reasonably be handled using existing arrangements at St. Helier 11.6.1 A number of factors are likely to Harbour (Jersey Mineral Study Report, influence mineral requirements in future, 1999). However, it is not clear how including: much sand would actually need to be imported in future. In response to the Population Size; economies of importation and the Growth in smaller households and other prohibitive costs involved, it is likely that demographic changes; the two quarry operators would invest The pace of economic growth; in dust washing technology and make The extent to which developers re-use more use of rock dust and fines in and recycle materials; concrete manufacture as an alternative
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The nature of building methods of inert construction, demolition and employed in new developments; excavation waste; Planning policies regarding the design Under terms of current consents sand of new buildings. extraction in St. Ouen’s Bay will cease by 2018, unless further extraction is 11.6.2 This is really the starting point for permitted, and it will be necessary to considering policy options and reviewing import sand for the construction industry existing policies. However, it is necessary to thereafter; recognise the dangers inherent in predicting The level of public concern regarding demand (e.g. uncertainties about future the potential long-term environmental economic performance, changes in the impact of further local expansion of amount and nature of construction output, mineral workings will remain high; and changes in the future levels of waste There are likely to be ever higher minimisation and recycling). For these environmental standards required during reasons, it will be necessary to adopt a ‘Plan, mineral working and in restoration. Monitor and Manage’ approach to ensure the Island Plan evolves to respond effectively 11.7 Options to changing circumstances (rather than simply pursuing a ‘Predict and Provide’ Constraints on Future Options approach). 11.7.1 There are numerous potential 11.6.3 That said, at this time it is constraints which must be taken into account reasonable to make the following medium in considering the options for providing for term assumptions: the Island's Minerals needs in the future, including the following: The demand for rock and sand resources will remain almost entirely 1. The quality, attractiveness and dependent on construction industry character of the local landscape and activity; coastline, and the sensitivity to the There will be continuing significant effects of intrusive development; demand pressures for minerals 2. potential damage to local wildlife; (especially aggregates) of the required 3. potential environmental and health quality to serve the construction problems associated with dust, noise, industry, if the States pursues its vibration and shock waves (from strategic aim for controlled economic blasting), visual intrusion, transport growth, ranging from 400,000 - 500,000 impacts, impact on water resources etc. tonnes per annum; 4. willingness or otherwise of customers In the foreseeable future (medium term) to accept secondary / recycled demand for rock aggregates will be aggregates largely met from local sources; 5. historic problems of rock (alkali-silica) The contribution made by recycled reactivity at Ronez, which make aggregates will increase until it reaches aggregates unsuitable for certain types the maximum possible to satisfy market of construction products. demand; 6. the landscape, ecological (maritime There will be a requirement for a new heathland) and geological (Sorel Point) site/s to provide for centralised recycling constraints around Ronez.
150 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 7. the ecological impact of sand extraction end production at Ronez Quarry when at Les Mielles on the coastal dune land. consented reserves are exhausted in 8. the previously highlighted limitations of 16 years or so (2024), at recent average sand from Les Mielles (i.e. fine, uniform, extraction rates); well-rounded wind blown sand) which end production at La Gigoulande Quarry requires the addition of granite dust to when consented reserved exhausted in meet the grading specification for approximately 23 years (2031), at concrete. existing extraction rates (N.B. 30 years 9. the commitment to wind down Simon if combined with recycling operation); Sand by 2018. continue winding down production at 10. limited space currently available in the Simon Sand and Gravel to end when port for importing, handling and storing the current consent terminates in 10 large volumes of imported materials. years (2018); 11. unavailability, at this time, of the create a new berth and handling area planned special importing and handling at St. Helier Harbour for importing the facility at La Collette II reclamation site. vast majority of the Island's concreting 12. the potential costs of creating a new aggregates requirements (UK/France). berth and storage and handling facilities Option 3: Concentrate at Ronez - for importing aggregates. involving: 13. potential traffic impacts on the port area. commitment to long-term significant 14. historically high port dues and expansion of Ronez (potentially up to stevedoring charges in comparison to 120 years); other ports rendering ‘harbour gate’ end production at La Gigoulande Quarry prices higher than ‘quarry gate’ prices. when consented reserves are exhausted in 23-30 years time; The options continue winding down production at Simon Sand and Gravel to end when 11.7.2 There are four distinct future current consent terminates in 10 years strategic supply options, which are capable (2018); of providing for the future aggregate import the Island's future sand requirements of the Island's construction requirements through St. Helier Harbour industry as follows: Option 4: Current Mineral Strategy Option 1: Maximise local supply - option (as amended by recent involving: approvals) - involving expansion of Ronez Quarry westwards expansion of Ronez and continued and southwards, as required (potential production into the longer term max. 120 years); (potentially up to 120 years); expansion of La Gigoulande Quarry continued production of aggregate at La when existing reserves exhausted in Gigoulande Quarry for 30 years or until 23-30 years; consented reserved exhausted; continuation of Simon Sand and Gravel wind down sand production at Simon for as long as ecologically feasible Sand and Gravel by 2018, when current (potential max. 20-25 years). consent terminates; Option 2: Importation through St. create a new berth and handling area Helier - involving: at St. Helier Harbour for importing the Island's future sand requirements and
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a large proportion of its future stone aggregate production when La Collette aggregate requirements (replacing II reclamation site has been filled. those produced at La Gigoulande); using La Gigouande Quarry for landfill 11.7.3 The main advantages and with inert waste and for recycled disadvantages of each option are set out in the Table below.
Option Advantages Disadvantages
1. Maximise provision for long-term increases environmental Local sustainable mineral supply impacts of mineral extraction Supply retains the Island's self sufficiency locally in aggregates potential longer-term visual, landscape, ecological, water avoids sterilising significant quality and land loss issues / workable local reserves effects at Simon Sand and Gravel internalises environmental potential long-term visual, impacts landscape, geological, traffic and land loss issues / effects minimises travel distances of at Ronez bulky mineral products and the associated environmental costs potential long-term visual, landscape, ecological, water prolongs the life of existing quality, traffic and land loss established quarries and so issues / effects at La maintains indigenous business Gigoulande and local employment in the longer term continues reliance on sand with limitations for use in concrete avoids a monopoly situation production arising in stone aggregate production
provides alternative source of aggregate which is not susceptible to Alkali-Silica Reactivity
maintains a supply of aggregates from La Gigoulande which is acceptable for use with historic buildings and their settings as an alternative to Jersey Granite (in terms of colour, texture and silica content)
152 Island Plan Review: Strategic Options Paper Green Paper (July 2008) Option Advantages Disadvantages
no need for new large scale port provision at St. Helier Harbour reduces traffic and increases space for development at St. Helier Harbour
no provision needed for sand imports for 20-25 years
potential for significant new port / marina provision at Ronez (50 -70 years time) through long-term excavation of quarry at little public expense
strategic value of a second deep water port or marina.
Critical Is the Island content to accept existing and increased environmental Decision: / land use conflicts of inland mineral extraction?
2. eventually removes land-related removes the Island's self Importation impacts of existing mineral sufficiency in aggregates through St. extraction sites (including externalises environmental Helier potential visual, landscape, impacts of aggregate ecological, geological, water production (i.e. exports quality, traffic, dust, noise, problem to somewhere else) vibration and land loss impacts). effectively sterilises significant overcomes usage limitations of workable reserves local sand removes indigenous business overcomes perceived problems and local employment in in relation to Alkali-Silica established mineral extraction Reactivity increases travel distances of bulky mineral products and the new port facilities at St. Helier environmental costs associated would be well located close to the with transportation main source of most future building activity will require a very large area for handling aggregates at St. Helier Harbour and reduce the space available for other developments; significant traffic impacts in St. Helier Port area;
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Option Advantages Disadvantages
will leave Jersey Harbours with a monopoly situation over imported materials
considerable increases in the costs of aggregates without adjustment to port charges;
will end supply of aggregates from La Gigoulande which is acceptable for use with historic buildings and their settings in the Island as an alternative to Jersey Granite (in terms of colour, texture and silica content)
Critical Can suitable large-scale import facilities (at acceptable port charges) Decision: be arranged at St. Helier?
3. internalises environmental effectively sterilises existing Concentrate impacts of stone extraction workable reserves at Ronez removes established helps to retain much of the indigenous business and local Island's self-sufficiency in employment at Simon Sand aggregates and Gravel and Granite Products reduces environmental impacts opposition from Simon Sand of mineral extraction by having and Gravel and Granite only one extraction point Products avoids potential longer-term would create a monopoly visual, landscape, ecological, supplier of stone aggregates water quality, traffic and land-loss which could lead to higher issues / effects at Simon Sand prices and Gravel and La Gigoulande considerable increases in cost prolongs the life of Ronez Quarry of sand without adjustment to and so maintains established port charges indigenous business and local employment at Ronez in the concentration of traffic around longer term Ronez no need for new large scale port provision at St. Helier Harbour
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reduces traffic and increases concentration of stone space for development at St. aggregate production at a Helier Harbour quarry with perceived problems in relation to Alkali-Silica potential for significant new port Reactivity / marina provision at Ronez (50 -70 years time) through long-term TTS may not be willing to use excavation of quarry at little public Ronez aggregate for some expense concreting end uses
strategic value of second will end supply of aggregates deep-water port or marina from La Gigoulande which is acceptable for use with historic overcomes usage limitations of buildings and their settings in local sand the Island as an alternative to Jersey Granite (in terms of colour, texture and silica content)
Critical Is TTS willing to accept Ronez output for concreting aggregate? Are Decision: the States willing to have a monopoly supply in the stone aggregates market?
4. Current reduces the environmental impact removes the Island's Mineral of mineral working on the Island self-sufficiency in aggregates Strategy by moving towards having only potential long-term visual, (retaining one extraction point landscape, geological, traffic some local maximises local quarrying where and land loss issues / effects production, this is essential to maintain at Ronez but moving supplies and is environmentally effectively sterilises existing towards acceptable workable sand reserves more removes established importation) allows the Island to remain indigenous business and local self-sufficient in aggregates until employment at Simon Sand the move to bulk importation and Gravel (in the short term) and Granite Products (in the avoids potential longer-term medium term) visual, landscape, ecological, opposition from Simon Sand water quality, traffic and land-loss and Gravel and Granite issues / effects at Simon Sand Products and Gravel and La Gigoulande externalises the environmental impact of producing a large proportion of the Island's future
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Option Advantages Disadvantages
Prolongs the life of Ronez Quarry aggregate needs (i.e. exports and so maintains the established the problem to somewhere indigenous business and local else) employment in the longer term increases travel distances of avoids a monopoly situation bulky mineral products (to meet arising in the supply of stone a considerable proportion of aggregates after La Gigoulande the Island's future aggregate is exhausted requirements) and the environmental costs associated no need for new large scale port with transportation provision at St. Helier Harbour will leave Jersey Harbours with provides for a feasible new berth a monopoly situation over and handling facility, which can imported materials be developed in a relatively short time-frame, in a location close to considerable increases in cost the main source of most future of sand without adjustment to building activity port charges
provision has previously been increases traffic around the made at La Collette to Harbour accommodate a new aggregates berth and handling area of the will end supply of aggregates size required from La Gigoulande which is acceptable for use with historic allows for potential significant new buildings and their settings in port / marina provision at Ronez the Island as an alternative to (50 -70 years time) through Jersey Granite (in terms of long-term excavation of quarry at colour, texture and silica little public expense content)
strategic value of second deep-water port or marina
overcomes usage limitations of local sand
ensures there is always an alternative supply of rock aggregate to overcome perceived problems in relation to Alkali-Silica Reactivity with output from Ronez Quarry.
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Critical Can a suitable import facility (at acceptable port charges) be arranged Decision at St. Helier? Is the Island willing to accept the environmental consequences of long term mineral extraction at Ronez?
11.7.4 Not surprisingly, a view strongly Question 75 expressed by the existing mineral operators at the Stakeholder Group meetings was that Minerals Strategy - options Jersey should be making best use of its own minerals resources, by maximising recovery Do you agree or disagree with of reserves from existing quarries, rather continuing with the existing strategy than relying on imports. They argue that this which reduces the extent of local would be more sustainable because it would extraction and moves towards the minimise travel distances of bulky goods with importation of sand and a significant its associated environmental and economic proportion of aggregate requirements costs. Another argument is that there is no through St. Helier Harbour. current acceptable alternative to Jersey Granite (from La Gigoulande) for historic If you disagree please indicate in the buildings and their settings, in terms of free text box which of the following colour, texture and silica content. options you would support;
11.7.5 Any option which may eventually Option 1: Maximising local supply of be chosen as the best way forward will need sand and aggregate from existing to be developed to make provision for future quarries, or aggregate recycling activities and for the restoration of mineral workings for a Option 2 : moving to bulk importation beneficial after-use (see waste Chapter). of sand and aggregate through St. Helier Harbour, or
Option 3 : Concentrating aggregate production at Ronez, with sand imports through St. Helier Harbour.
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Question 76
Local mineral extraction
Do you agree or disagree with extending extraction activities in the existing quarries?
If you agree please use the free text box to indicate which of the following quarry sites you would support extending.
a) La Gigoulande
b) Ronez
c) Simon Sand and Gravel
158 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 12 Waste
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12 Waste existing and proposed waste management facilities and operations (both centralised 12.1 Introduction and within housing areas).
12.1.1 How we deal with solid waste is a 12.1.4 Given the significance of ‘inert big challenge for the Island. Waste produced waste’ in particular, it is clear that land use by households, industry and commerce is planning also has an important part to play effectively a “misuse of resources” and we in controlling new development so as to need to reduce and manage it safely and reduce the extent of demolition and building effectively to achieve environmental and waste requiring disposal. Controlling the economic benefits. By reducing waste nature of new development, promoting production we can bring about significant proper waste management on development savings in raw materials, energy, production sites and encouraging the use of recycling and waste disposal costs. materials, are all ways in which the need for waste disposal can be reduced, so extending 12.1.2 In the five years between 2003 and the life of La Collette II reclamation site and 2007 the Island has produced a staggering the demands placed on future alternative average of 316,000 tonnes of waste per year disposal sites. By so doing, this would also to be thrown away. More than two-thirds of have the added benefit of reducing demand this by weight was ‘inert’ stone, soil and for quarried materials, so extending the life rubble produced by the building industry of the Island's existing quarries. (average 215,000 tonnes per year). The remainder comprised ‘non-inert’ rubbish 12.2 Current position (biodegradable and combustible waste) from households, shops, offices and other 12.2.1 In 2007, Jersey produced businesses. approximately 281,500 tonnes of solid waste, which is significantly less than in recent 12.1.3 The ways in which waste is years. It can be seen from the figure 0.1 managed, such as recycling, composting, below, that the majority of this (175,000 burning and disposal all require places where tonnes or 62%) is inert waste produced from these operations can be carried out. Land the construction and demolition industry, and use planning, therefore, has a clear role in most of this is land filled at La Collette. The ensuring adequate provision is made for remaining 'non-inert' waste of some 106,000 tonnes, which includes biodegradable and combustible waste, comes from household, commercial and industrial premises.
12.2.2
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households, street cleaning and commercial 12.2.3 The sources of Jersey's non-inert premises served by the public waste waste are fairly evenly divided between collection service. The present disposal construction, household and commercial as route for this non-inert waste is the shown in the figure below. Approximately Bellozanne Incinerator and Energy from two-thirds of the non-inert waste is 'municipal Waste Plant. solid waste'. That is, waste collected from 12.2.4
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Present Disposal Route
aggregates coincides with the first full year 12.2.5 The recycling rate for non-inert of operation of the current centralised waste is currently over 30%. The largest recycling facility (AAL Recycling). individual contribution to this is the 15,000 tonnes of green waste that is recycled in the 12.2.6 The amount of non-inert waste form of composting and which represents arisings in the Island have continued to rise approximately 14% of the total non-inert in recent years. Between 1998 and 2004 waste arising. Figure 0.2 above also shows these rose on average by 2.5% per year. the contributions made by numerous other Disturbingly, the annual rate of increase rose recycling initiatives currently in place to to 3.4% from 2004 to 2007, despite a steady reduce non-inert waste. Recycling also plays and significant increase in the recycling rate an important role with inert waste. In 2007, over the period from 20% to 30%. Although the inert waste stream was reduced very the reasons for the growth in waste arisings significantly by the production of some are complex, it is likely that the principle 62,000 tonnes of recycled aggregates, which reasons for this increase have been the is more than double the recorded average growing number of households, the growth annual tonnage of recycled aggregates in packaging with goods and the fact that produced in the preceding 4 years. The more goods are disposable. improvement in the amount of recycled 12.2.7 In the three years between the start of 2004 and the end of 2006, recorded levels of inert waste at La Collette have remained
162 Island Plan Review: Strategic Options Paper Green Paper (July 2008) fairly constant averaging around 223,700 "Bring Banks"- several of these have tonnes per year. Encouragingly, however, been established around the Island near this dropped to approximately 175,000 residential / community centres for tonnes in 2007. This might be explained, in recyclable materials. They have been part, by record levels of aggregate recycling, well supported by the general public and but also by the unrecorded off-site activities there are regular demands for more of private recycling operations. The such facilities. recorded annual recycling rate for inert waste Pilot door-to-door recycling at La Collette fluctuated between 10% and collection service - in August 2006, 13% for the years 2003 to 2006 and this the Parish of St. John introduced a pilot increased to 26% in 2007. Figures for the door-to-door collection service, which the first quarter of 2008 suggest that the now covers newspapers and tonnage of recycled aggregates will be magazines, food an drinks cans, and similar to 2007, but that overall levels of inert plastic bottles. The scheme has proved waste destined for land fill are on the popular with local residents and increase. Whilst current recycling rates of Transport and Technical Services are 26% are similar to those in the EU as a promoting its benefits to all the other whole, they are well below the recycling Parishes. All the Parishes, with the levels of more than 80% achieved in exception of the Parish of St. Helier, Denmark, The Netherlands and Belgium. have a door-to-door glass collection scheme for recycling. 12.2.8 In 2005, the Waste Management Green Waste Composting Plant, La (Jersey) Law was implemented. This Collette - This is an open "wind-row" introduces a regulatory system for waste facility that provides for controlled handling and disposal facilities. It means decomposition of uncontaminated facilities are now licensed and monitored. organic wastes and is used to produce a quality soil improver. It currently 12.2.9 Existing provision in the Island for accepts approximately 15,000 tonnes managing solid waste includes: of green waste from residents and Various waste minimisation schemes businesses that would otherwise require - including the active promotion of an alternative means of disposal. The washable nappies and home location of this facility has given rise to composting by Transport and Technical nuisance issues, particularly smells. Services and educational initiatives in The recent La Collette hazard review, schools and States Departments. undertaken in the aftermath of the Buncefield Fuel facility explosion, A temporary Re-use and Recycling concluded that it was not appropriate to Centre, Bellozanne Valley - this has locate waste facilities serving the operated since June 2007 and has general public close to the Fuel and Gas proved a popular and successful Storage facility, which meant that the addition to the Island's recycling public green waste collection has to be service. It offers residents the located away from La Collette. opportunity to recycle a wide range of materials, including paper, card, glass, Inert Waste Recycling / Reclamation cans, textiles, scrap metal, waste oil, Centre, La Collette - This is the main batteries, waste electrical equipment, centre in the Island for recycling inert mobile phones, construction rubble and construction, demolition and excavation plastic bottles. waste into new products. It is currently
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operated by AAL Recycling. The facilities; clinical waste incinerator; company was awarded a five-year sludge drier; oil recovery operation; ash contract in 2006 and has made a separation and treatment plant and substantial investment in plant and ferrous and non-ferrous metal equipment to produce quality recycled extraction. aggregates and other materials. The La Collette Reclamation Site - used company has the capacity to process for disposal of most of the Island's inert some 350,000 tonnes of waste per waste, when all options further up the annum (well above the recent average). 'Waste Heirarchy' have been If such levels of inert waste were to be exhausted. This includes ash from the produced in the future, the current Energy from Waste Plant, asbestos and output of recycled aggregates (62,000 glass. All inert waste which contain tonnes per annum) could theoretically components that would harm the increase to 85,000 tonnes per annum, environment and/or pose health hazards at a conservative average recycling rate if released (including ash, asbestos and, of 25%. if necessary, spoil from contaminated Privately operated inert waste sites), are disposed of in secure lined recycling schemes - includes pits. The decision to reclaim additional unregulated recycling of inert waste by land to the south of the La Collette privately owned waste recycling reclamation site was made in the late contractors who generate their revenue 1980s by the States when the limits on from the sale of product and whose the tipping capacity of the West of Albert businesses have benefited as a result site became apparent. Construction of of the gate fee charged at La Collette the outer La Collette Phase 2 II. It also includes developers on large breakwater commenced in the early development sites where significant 1990s and was completed in 1995. Land demolition / excavation takes place. filling at the site has been on-going These will have to comply with approved since 1996 and its life expectancy was 'Waste Management Plans' requiring on originally anticipated to be 20 years (by site recycling and they are, in any event, approximately 2016), excluding super increasingly seeking to reduce costs by filling around the eastern and southern reusing material on site or selling it into periphery, which it was thought would the local market. extend the tipping life for several more Incinerator and Energy from Waste years. TTS currently charge a gate Plant, Bellozanne Valley - this is old, fee for the disposal of inert waste, with unreliable and inefficient and has "clean loads" attracting a fee of £3.60 unacceptable emission standards. The per tonne and "mixed loads" attracting facility is currently used to burn 70% of a fee of £11.50 per tonne. the Island's ‘non-inert’ waste and also Export facilities - (e.g. for hazardous recovers energy in the form of and animal waste which pose a electricity. Originally commissioned in particular threat to human health and/or 1979, the plant has reached the end of the environment and require special its useful life and is in need of urgent management care; and for waste that it replacement. is economic to send off-Island for Other waste disposal facilities in recycling such as paper and card and Bellozanne Valley - These include scrap metal) hazardous waste collection and disposal
164 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 12.2.10 There are also various proposals those currently proposed. Clearly, for new facilities, as follows: whatever decision is made by the States will need to be accommodated in the A new Energy from Waste Plant at La new Island Plan. Collette - In June 2006, the States A new "in-vessel" composting facility approved the location of the plant at La - this enclosed replacement facility will Collette to replace the Bellozanne have air filtering equipment which will incinerator. Outline planning permission prevent nuisance odours. There is for an Energy from Waste plant was on-going work to establish the best site granted in October 2007. In July 2008, for the facility (including the reception the Minister for Transport and Technical of commercial green waste), but the Services will be asking the States to preferred location of the Minister for approve his detailed proposals for a Transport and Technical Services is La replacement plant and to authorise him Collette II Reclamation Site Industrial to accept the tender of the preferred Area. He has reached this conclusion bidder (P.72/2008). The preferred following a detailed evaluation of Energy from Waste plant has emerged numerous privately owned and from a review of waste technology States-owned sites. options, is proven technology and A new temporary Public Green Waste consists of two streams with modern Reception Facility, Bellozanne - flue gas treatment and a highly efficient Compound 6 in Field 1491 is considered steam turbine. The size and capacity a suitable temporary alternative location of the plant is smaller than originally to La Collette for public garden waste envisaged when outline consent was reception by the Transport and granted. It is 20m shorter in length and Technical Services Department. This could handle 105,000 tonnes of waste is because of its central location and per year (compared to the original because it offers the opportunity for proposed 126,000 tonnes). It would residents to deliver garden waste at the also be able to generate between 5% same time as delivering other recyclable and 7% of the Island's electricity waste at the temporary Re-use and requirements. The plant would separate Recycling Centre. the fly ash from the useful bottom ash A permanent Re-use and Recycling and would enable approximately 90% Centre (including green waste of the ash to be recycled into reception), Bellozanne - it is presently construction materials in due course. envisaged that this will be established In so doing, it will resolve many of the after the new Energy from Waste Plant current problems associated with ash at La Collette becomes operational and disposal. It is recognised that the the existing incinerator is proposals have been heavily criticised decommissioned and the site cleared. by the Environment Scrutiny Panel Other possible re-use and recycling regarding the cost, the technology centres (including green waste proposed and the volumes of material reception) - The Minister for Transport necessary to keep it running efficiently. and Technical Services has supported The Panel favours what it regards to be the principle of establishing additional a more environmentally progressive centres, in response to a proposition by approach, which would allow for much Deputy Fox (P.7/2008), which called for higher targets for waste recycling that 2 new centres to serve the west and
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east of the Island respectively. This Planning policies regarding the design decision is subject to the required of new buildings; additional revenue being made available technological advances; to operate the facilities. The Increasing costs of waste disposal. advantages would include: increasing accessibility to all the heavily populated 12.3.2 The main role of land use planning areas of the Island; minimising traffic will be to ensure that the Island Plan and associated environmental impacts provides adequate and appropriate support Island-wide; and reducing the effects on for the approved waste strategy, based on the amenities of the residents of the internationally accepted Waste Bellozanne Valley. If suitable locations Hierarchy. are not determined in the interim, then the new Island Plan will need to include 12.3.3 At this time, it is thought realistic to a strategic criteria-based policy to help make the following assumptions: guide and assess future applications. The volume of waste will continue to 12.3 Planning for the future increase; Incineration (with energy recovery) and 12.3.1 A large number of factors are likely landfill will continue to be the principal to influence waste management methods of waste disposal, unless requirements in future, including: current moves by the Environmental Scrutiny Panel persuade the States to Population Size; adopt an alternative approach; Growth in smaller households and other The lifespan of La Collette Reclamation demographic changes; site for the receipt of inert waste is The pace of economic growth; unlikely to extend beyond 2018; The level of consumer spending; There will be increasing public Future trends in packaging and awareness of the benefits in reducing disposable goods; waste and waste recycling; Future markets for recycled goods; The States’ commitment to minimising Growing public and business awareness waste production and more sustainable of the issues surrounding waste waste management will remain central management and the need to recover, to its strategic planning. reuse and recycle items or materials; The proportion of waste which is The extent to which the States act to recycled will increase significantly in influence / accelerate the transition to future years. more sustainable waste management; The rate of change in relation to waste The extent of Parish and the Public reduction and recycling will tend to be support for investment in recycling gradual rather than sudden, because infrastructure for household waste (e.g. widespread behavioural change will take door-to-door recycling collection time. schemes; "bring" collection banks); Increasingly higher standards of The extent to which developers and environmental protection will be required others re-use and recycle materials; for waste management. The nature of building methods employed in new developments;
166 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 12.4 Current planning context attitudes towards waste production and, in particular, encourage individuals and States Strategic Policies organisations to address the non-inert waste issue. 12.4.1 The States Strategic Plan aims to “reduce per-capita waste arisings that reflect 12.4.5 The Strategy is based on the best practice globally". The plan also aims general principles which underpin to ensure that “waste systems meet sustainable waste management, including: international standards and the use of resources is improved”. This will be indicated reducing the amount of waste the Island by: produces; making best use of the waste that is Increased recycling and composting to produced; and at least 32% by 2009; choosing waste management practices Decrease in cost per tonne of handling which minimise the risks of immediate waste once the new Energy from Waste and future environmental pollution and plant is in operation; harm to human health. Emissions standards achieved for new Energy fro Waste plant; 12.4.6 It looks to achieve these objectives Reduction in per-capita consumption of through a development of the internationally resources; accepted ‘hierarchy’ of waste management Waste growth reduced in line with the options, which is effectively a best practice ‘Waste Strategy’. model. This Waste Hierarchy ranks the options according to their relative 12.4.2 The intention of the Plan is to environmental benefits and disbenefits and address these commitments by, among other looks to ensure that, before waste is things: disposed of in landfill, all alternative measures have been considered. The Implementing the Solid Waste Strategy; modified model which the strategy aims to Bringing forward for consultation and follow is: debate a package of environmental tax and expenditure measures that address Prevention and minimisation (to current unsustainable patterns of reduce waste generation by changing resource use; and behaviour through financial New guidance to the construction mechanisms); industry on waste management. Reuse and recycling (by increasing awareness of the need to reuse and 12.4.3 The Plan specifically identifies as recycle materials and by making it a new priority the update of the Island Plan possible for people to recycle more with a new emphasis on forward planning, types of materials). The strategy including “planning for the next generation identifies intentions to develop: a ‘Reuse of inert waste sites”. and Recycling Centre’ for paper, glass, cans and PET plastic; improved Solid Waste Strategy aggregate recycling facilities; and further incentives to encourage reuse and 12.4.4 The States have produced (May recycling. The overall target of the 2005) and approved a Solid Waste Strategy strategy is to increase recycling and (July 2006). It aims to change Community composting to at least 32% by 2009
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(compared to 22% in 2004). The composting (establishment of modern improvements in recycling since 2004 composting facility and encouragement mean that the 2009 target within the of home composting); strategy can now be exceeded (subject Energy from Waste Plant (replacement to resources being made available). of existing plant; commission This has led the Minister for Transport Environmental Impact Assessment of and Technical Services to indicate that alternative sites at Bellozanne and La a new 36% recycling target by 2018 is Collette; examine advantages of joint appropriate and could be sustained. scheme with Guernsey); Composting (by removing green waste Disposal (bring forward a proposal for from the waste stream and recycling it a new secure inert waste disposal site in the form of compost). The strategy before La Collette is full). calls for the development of a modern dedicated and enclosed green waste Jersey Island Plan plant by 2007 and the encouragement of home composting. 12.4.8 The 2002 Island Plan was adopted Energy recovery (by recovering in advance of the approved ‘Solid Waste energy from the waste stream in the Strategy’, but acknowledges the importance form of heat and electricity from an of the Waste Hierarchy. It includes a series Energy from Waste plant). The aim was of policies covering waste minimisation and to replace the current Energy from recycling, and development sites and Waste plant with a modern facility by proposals for waste management facilities 2009. and landfill. Disposal This involves a secure 12.5 Constraints on future waste disposal site/s for the residual inert waste. The current site is La Collette management options Reclamation Site and the Strategy recommends that a new disposal site 12.5.1 The following are considered to be be identified and brought forward before constraints on future waste management La Collette is full. options:
12.4.7 The Strategy also provides 1. Restricted landfill facilities for inert / comprehensive recommendations for non-biodegradable waste. La Collette preventing, reducing, recycling and disposing is currently the principal landfill site but of waste, relating to: has a limited life expectancy. La Gigoulande Quarry and St. Aubin's waste collection (bring back and Reclamation area offer the only kerbside); approved alternatives for land fill at this financial incentives (e.g. environmental time. taxes) to promote waste prevention and 2. No existing landfill capacity for minimisation; biodegradable wastes. more recycling (including tougher 3. Costs of the different waste targets; establishment of Reuse and management options. Recycling Centre; improved aggregate 4. Availability of markets for reuseable / recycling); recycled products. If the market is not there, there is little advantage in collecting materials for recycling.
168 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 5. The capacity to process materials 12.6 Planning for the next collected for recycling. If the processing generation of inert waste sites capacity is not available, there is little point in increasing the collection of 12.6.1 The most important outstanding materials for recycling. solid waste related issue to be tackled by 6. The environmental costs of recycling future land use planning policy (which has materials. In some instances, these may not already been addressed and cannot be have a greater impact than waste covered by planning policy alone) is how the disposal and producing new materials, Island will deal with the issue of inert waste and so be counter-productive. disposal and centralised recycling of 7. Ever more onerous EC standards on aggregates when the current facilities at La waste and pollution. Collette II reclamation site reach the end of 8. The fragmented nature of the Island's their life. It is recognised that disposal is the refuse collection. least desirable method of waste 9. Environmental obligations under management, but despite efforts to strictly international conventions, including: apply the Waste Hierarchy to the Island's waste management challenges, it is Basel Convention on the Control of inevitable that there will continue to be some Transboundary Movements of waste that has to be disposed of. A decision Hazardous Wastes and Their will, therefore, be needed on an alternative Disposal , which says jurisdictions option for guaranteeing adequate waste should deal with their own waste unless disposal facilities in sufficient time before La not possible (N.B. This does not Collette is full. This in turn, requires a clear preclude export of materials for understanding of the life expectancy of La recycling and of hazardous material Collette. It also follows that the land use which can’t reasonably be expected to implications of any such option must be be handled locally); provided for and made the subject of specific Ramsar Convention on Wetlands of proposals in the new Island Plan. International Importance (especially as wildfowl habitat), which require a Capacity of La Collette special degree of protection and/or management. N.B. The south-east coast 12.6.2 The Planning Department has (from La Collette to Gorey Pier) is so commissioned a study by Hydraconsultant designated, as an internationally Ltd to assist in gaining a more accurate important marine area. – thus restricting determination of the remaining life of La opportunities for further reclamation. Collette II reclamation site for waste disposal. The study findings are set out in Convention on the Prevention of a report entitled "Interim Report: Inert Waste Marine Pollution by Dumping of Arisings and Landfill Capacity", May 2008. Wastes and Other Matter (The London Convention) , which does not 12.6.3 The study examines the nature of permit marine dumping of waste. the reclamation site, agreed plans for the extent and levels of fill (including super fill) and historical figures on the tonnage of material being deposited at the site and the
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rate at which land has been created. It also 12.6.6 The Hopkins Master Plan for the recognises the principal factors affecting the redevelopment of the Esplanade Quarter remaining life of La Collette, which include: estimates that the project will produce some 410,000 cubic metres or approximately changes in the level of construction 717,500 tonnes of excavated material activity; sometime in a 12 to 18 month period implementation of Waste Management commencing in 2009 (subject to planning Plans requiring on site recycling; permission). The Masterplan states: activity of private contractors acting as recycling operators and bypassing La "Based on current recycling rates from Collette; the incoming material to the La Collette impact of the gate fee at La Collette II site, it is estimated that between 20% imposing a financial disincentive to use and 40% of the material could be this facility; and recycled. Much will depend on the improved rates of recycling being nature of the original fill material and the achieved at the Reclamation Centre opportunity for resale in the market (AAL Recycling). place at the time of excavation. The overall volume equates to about 3.85 12.6.4 With regard to the level of future years of space in the current La Collette construction activity, the study takes into II reclamation site with no recycling. If account a small number of major 20% recycling is achieved, this volume development projects for St. Helier, which equates to about 3 years. If 40% will create large additional quantities of recycling is achieved, this volume material that needs to be disposed of at La equates to about 2.3 years." Collette, along with the more normal inert waste arisings... so bringing forward the 12.6.7 The Castle Quays project will also need for a new landfill site. These projects be a significant short-term producer of inert include the Esplanade Quarter and Castle waste for disposal at La Collette. The project Quays. is expected to produce approximately 61,200 cubic metres, or 107,000 tonnes of 12.6.5 The Esplanade Quarter is a excavated waste material in a 12-month proposal to create a new commercial, period in 2008 (again subject to receipt of recreational and residential quarter of the the necessary approvals). town, which also reconnects the vibrant town centre with the foreshore. The project has 12.6.8 It had been thought that the Town recently been approved in principle by the Park would add a further 150,000 tonnes of States and includes proposals to lower the contaminated soil for disposal at La Collette. level of the existing road (La Route de la However, the preference is now for on-site Liberation) and to provide significant treatment and soil recycling rather than 'dig underground parking. The developer will be and dump'. required to explore innovative techniques to 12.6.9 In the light of the above, the study ensure the highest achievable levels of concludes that, at current rates of fill and recycling / reusing the excavated material. taking into account the effects of planned However, it should be noted that the volumes major developments at St. Helier Waterfront are such that a large amount of material is (the Esplanade Quarter and Castle Quays), still likely to end up for disposal at La Collette it is now likely that La Collette will be closed II within a short space of time. to the receipt of inert waste in 2018. This
170 Island Plan Review: Strategic Options Paper Green Paper (July 2008) accounts for most of the super filling, but as possible) and sustainability. It is a basic allows for the southern area of super fill to principle of sustainable waste planning to be retained for the storage of ash from the avoid, as far as possible, the use of Energy from Waste Plant until 2024 resources for long distance transport of (assuming that the disposition of this material useless material. is still possible long after the site is closed to the receipt of inert waste). If this location 12.7.2 In any event, the location of the is adopted for the long-term disposal of ash, Island’s next landfill site/s needs to be it will allow infill to be commenced at any new decided by a thorough and robust process landfill facilities using inert waste only, until that takes a strategic approach to solid inert deposits are above natural water tables waste disposal. The proposal itself will be enabling non-inert wastes to be received and subject to Strategic Environmental stored in specially engineered pits, subject Assessment as part of the Island Plan to the necessary studies, assessments and Review. There will also be a need for approvals. There is no scope for further detailed feasibility studies and environmental super filling at La Collette II, except on a impact assessments before any sites are temporary basis, because the land has been finalised. Furthermore, whatever option is designated for light industrial, leisure and chosen, there will be a requirement for marine activities, aggregate storage and the operators to obtain licenses under the Waste new Energy from Waste Plant. Management (Jersey) Law, which will provide environmental controls, promote 12.6.10 However, it should be recognised technical competence and reduce that some of the early ideas for East of environmental risks. Albert, explored in Part 11 could substantially raise the amount of inert waste requiring 12.7.3 Other than land reclamation and disposal and reduce and reduce the life of terrestrial landfill, the only practical option La Collette accordingly. for waste disposal before around 2018 would appear to be superfilling (land raising) at La 12.7 Options for disposal of inert Collette II, albeit temporarily until a landfill waste in future site is available. This would lead to double handling of waste material and would delay 12.7.1 In Jersey, there are only two development proposals for the area. As a realistic options for the disposal of inert stop gap solution, until a fill site is available, wastes that cannot be practically reused or it may also be worth considering temporary recycled. These include what has become landraising of open fields. This too would known in Jersey as 'land reclamation' involve costly double movement of material, involving land fill to recover land from the but it is also likely to be visually harmful and sea and 'terrestrial land fill'. Other options would damage the land involved. mooted in the past include sea disposal and exportation, but these are not considered Land reclamation suitable. Disposal of waste at sea would be 12.7.4 In the absence of traditional against the Convention on the Prevention of terrestrial landfill opportunities, the Island Marine Pollution by Dumping of Wastes (The has increasingly turned to land reclamation London Convention). Exporting waste would (or beach infill) as a means of waste be expensive and against the principles of disposal. Since the 1960s La Collette I and proximity (that waste should generally be II have expanded the area of St Helier disposed of as near to its point of generation significantly beyond the original waterfront
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area of the Esplanade. The potential to 12.7.7 Notwithstanding the above, there extend La Collette II to create a further are some significant disadvantages in reclamation site is mentioned in the Strategic pursuing the land reclamation option. The Plan 2006-2011 and emerging ideas for more obvious disadvantages are the initial extending land reclamation at La Collette enormous expense involved in reclaiming have been put back on the agenda. land from the sea and the detrimental visual impact of landfill for many years in a 12.7.5 In addition to providing a valuable sensitive coastal location. In addition, it can waste disposal facility, land reclamation has, result in the loss of areas of ecologically over many years, provided the added bonus valuable marine habitat which is arguably of of making available additional land to meet higher importance and more sensitive than the community's development needs for terrestrial habitats. Reclamation also has homes, businesses and social and leisure less predictable impacts such as on tidal activities. This is particularly beneficial in a flows and sedimentation patterns around the densely populated and affluent Island of only coastline. 45 square miles, where land is a precious and finite resource, is intensively used and 12.7.8 In recent years the States has is under increasing pressure from competing recognised the value of, and sought to uses. There can be little doubt that land protect the Island's precious marine reclaimed from the sea has resulted in less environment, including the inter-tidal zones. greenfield development than would otherwise Further land reclamation from the sea would have been the case. In this way, it can be not be consistent with States' policy argued that land reclamation has made an decisions and commitments in this regard. important contribution to protecting the quality of the Island's remaining countryside 12.7.9 The current Island Plan policy areas, which have long been recognised as framework has a clear presumption against being among the Island's finest assets. further marine land reclamation. In particular, Clearly, the creation of new developable land Policy M1 states that ‘the sustainable use of around La Collette could be especially the Island’s marine environment will be beneficial in locational terms, given the ensured by the Marine Protection Zone proximity of town with its significant resident extending from Mean High Water to the population and potential workforce, the territorial limits’ and that ‘within this zone accessibility to a wide range of community there is a presumption against all facilities and services, the existing utilities developments except those which are and infrastructure provision, the reduced essential for navigation, access to water, need to travel and the opportunities to use fishing and fish farming and coastal defence.’ more sustainable forms of transport (i.e. Land reclamation does not fall within any of walking, cycling and public transport). these categories and, is mentioned in the supporting text as an example of 12.7.6 The option of further land development that will not normally be reclamation at La Collette could also take permitted. The only exception to this is the into account the long term expansion needs proposed small-scale reclamation site at St. of the port (see Built-Up Area Chapter) and Aubin, intended primarily as a car park, the potential requirement to locate or which the States approved as an amendment relocate infrastructure in the area. The during the Island Plan debate and which has potential needs of sewerage, gas and fuel recently been rejected by a local forum. farms are mentioned in other chapters.
172 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 12.7.10 Perhaps more importantly, the appropriate. However, Article 2.5 of the extension of La Collette II would be contrary Convention makes provision for site to the South East Coast Ramsar site deletions or restrictions and states that “any designation, which was agreed under an Contracting Party shall have the right . . . international convention. This Ramsar site because of its urgent national interests, to stretches from the edge of the current delete or restrict the boundaries of wetlands reclamation site to the tip of Gorey Pier and already included by it in the List”. includes the intertidal reefs and rocks around the south-east coast, which are exceptionally 12.7.13 In Jersey’s case, the Contracting rich in terms of marine biodiversity. Its Party is the UK. Therefore, if Jersey were to designation as a Ramsar site recognises the pursue the land reclamation option, it must international importance of this area as a first persuade the UK Government that its wetland and puts clear obligations on the justification for changing the boundary States of Jersey to conserve its wise use. constitutes an ‘urgent national interest’ and Because it incorporates all of the land that proposed compensation is adequate. surrounding La Collette II, any extension of the land reclamation in this area will intrude 12.7.14 If an ‘urgent national interest’ is into the Ramsar site. accepted, under Article 4 of the Ramsar Convention, Contracting Parties who 12.7.11 Potential impacts on the sea, both propose to delete sites or restrict site the Ramsar site and sea outside it are four boundaries are required to provide fold. Firstly there would be the direct loss of compensatory measures for the loss of sea habitat, which would need to be carefully conservation interests. The UK studied. Secondly there would be the impact Government’s view is that compensatory on sedimentation patterns and indirect measures should provide, as a minimum, no impact on marine habitat elsewhere. This net loss to the overall value of the national was recognised as a problem when La Ramsar site series, either by way of quality Collette II was proposed and changes to or area. If persuaded by the case put forward sedimentation have have an adverse impact by Jersey, the UK Government would then on St Aubins Bay. Thirdly there are the take this proposition to the next Council of impacts on hydrology/saline flow. Previous Parties who would comment upon the studies have concluded further southwards proposal and give a view. extension of La Collette would adversely impact on St Clements Beach. Finally there 12.7.15 Interpreting the guidance given is the risk of pollution from activities such as by the Convention texts, the following would off-loading petro-chemicals into the fuel farm. be required if it was decided to restrict the boundary of the site: 12.7.12 The Hydraconsult Ltd study takes the view that the proximity of the Ramsar Advance notification to the UK zone effectively prohibits the extension of La authorities of the Jersey Government’s Collette reclamation site beyond its current intention to restrict the boundary of the boundary, but this is not entirely accurate. Ramsar site 3UK150, South East Coast It is an overarching principle of the of Jersey, Channel Islands under article Convention that a wetland should remain 2.5 of the Convention. designated as a Ramsar site, and that the A proposal supporting the justification whole of its original extent should remain of ‘urgent national interest’ under Article designated, whenever possible and 2.5 of the Convention, which takes into account the items listed above. This
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would require a strategic environmental example, for creative use to benefit wildlife assessment of all landfill options within and recreation. In Jersey, there is the Jersey in order to satisfy the UK opportunity to capitalise on the existence of Government and also the Council of a few large quarries described in the Parties that an extension of La Collette previous chapter. The only other options for II would fall within the definition of terrestrial landfill are land raising and the ‘urgent national interest’. infilling of a valley/s. Neither of these are A full Environmental Impact Assessment considered appropriate because, leaving of the consequences of restricting the aside other considerations, they are likely to boundary, including justification of the have a seriously detrimental impact on local proposed compensation, under Article landscape character, local wildlife and 4.2, such as extending the existing agricultural or other valuable open land. Ramsar site to the north to St Catherine’s Breakwater, designating the 12.7.18 Clearly, where mineral workings South East Coast Ramsar area as a are located in environmentally sensitive Marine Site of Special Interest and locations, the environmental implications of designating further Ramsar sites within allocating land for waste disposal and a Jersey. planned after-use would require very careful consideration. In any event, however, it is 12.7.16 The procedural issues concerning essential that future landfill is properly Ramsar designation should not, however, engineered and managed so as to reduce divert from the key issues concerning the impact on amenity and prevent the risk environmental impact which apply to sea of pollutants contaminating groundwater. areas both inside and outside any potential This would preclude the use of all but truly boundary. inert wastes for landfilling in close proximity to major aquifers.
Question 77 La Gigoulande
Land reclamation 12.7.19 In recognition of the need for continued management of inert waste and Do you agree or disagree with extending the potential to use waste for the restoration land reclamation at La Collette through of quarries, the 2002 Island Plan states that landfill with associated centralised La Gigoulande Quarry should be considered aggregate recycling facilities to create for the Island’s next landfill site, subject to new development land (with no the outcome of an Environmental Impact terrestrial landfill) after La Collette II Assessment. However, the most recent reclamation site is full ? planning consent in 2007 to increase the depth of mineral extraction at the western end of the existing quarry has effectively Terrestrial landfill deferred when the quarry is able to accept inert waste for disposal. Much will depend 12.7.17 Terrestrial landfill offers particular on future extraction rates, as to when a advantages where it infills voids left from suitable void will be made available for the mineral workings, enabling landscape secure disposal of inert waste. Calculations restoration and/or facilitating the beneficial by Hydraconsult Ltd in consultation with the use of sites that might otherwise remain operator indicate that, at the lower limit of under-utilised. Opportunities may exist, for extraction (1000,000 tonnes per annum), the
174 Island Plan Review: Strategic Options Paper Green Paper (July 2008) quarry will not be in a position to receive 12.7.23 The Environmental Impact waste until 1-2 years after landfill operations Assessment prepared and submitted with cease at La Collette II. However, if the the most recent application suggests that quarry operates at average predicted the landfilling, with appropriate mitigation, extraction rates (150,000 tonnes per annum) should not have any significant adverse or above, there may be an overlap between impacts on the environment with regard to La Collette III closing and La Gigoulande population (i.e. through the affects of traffic, becoming available. visual intrusion, noise and vibration and nuisance), landscape, water (notwithstanding 12.7.20 The timing of these events is too the sensitive location), flora and fauna, soil, close to guarantee the Island's waste air and climate and material assets. Indeed, disposal routes are not put in jeopardy and, many of the impacts would be positive or in the absence of alternative provision, would neutral. necessitate temporary superfilling (land raising) for an interim period at La Collette Simon Sand and Gravel or elsewhere, to ensure storage is available until the new facility is able to receive waste. 12.7.24 There is also the option of utilising As alluded to earlier, this would, in turn, have Simon Sand as landfill. The site is currently the disadvantages of double-handling waste characterised by a very large open body of material and tying up (albeit temporarily) high water. There is a current planning value development land. requirement for landscape restoration at the site after 2016 and this includes the retention 12.7.21 As part of its most recent planning of the existing water body. Landfill would application, Granite Products calculated that allow for the restoration of a landscape the capacity of the void area being created approximating to the original coastal dune in the western part of the quarry will be character of the area, whilst removing the approximately 1,560,000 tonnes. Using water body. This could make a major historic rates for inert waste production contribution to enhancing the landscape (230,000 tonnes per annum) and taking into character of the 'special place' that is St. account aggregate recycling potential (@ Ouen's Bay and it could aim to reinstate the 60% of the waste materials) it estimated that ecologically rich dune habitats across the the life of the proposed infilling operations in whole site (not just the periphery). In so the western part of the quarry (alone) would doing, it would also address concerns be approximately 17 years. expressed by the Acting Director of Civil Aviation about the potential risks of 12.7.22 It is currently proposed that the 'bird-strike' for aircraft operations in the site be positively restored to a landform vicinity of the airport caused by birds which is generally consistent with that prior attracted to the water feature. Importantly, it to the quarry workings and which is in would serve to prevent the sterilisation of the keeping with the character of the surrounding adjacent known sand reserve by continued countryside . The proposed afteruse tipping and contouring of sand, as required predominantly comprises agricultural land by the current landscaping condition. and woodland. Although submitted as part of the previous application, neither the 12.7.25 As with all site options, there are restoration plans nor the proposed inert disadvantages and there would be technical recycling development have received challenges to overcome before managed planning permission. landfill could take place. Any such proposals would run counter to existing approved
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 175 12 Waste
planning policy and the consequent clear order of 4,000,000 tonnes, which is expectations of local residents that all equivalent to approximately 67% of the disruptive or intrusive operations at the site original capacity of La Collette II. will come to an end no later than 2018. There are also likely to be environmental 12.7.28 If landfill were to be approved at arguments put forward for retaining the open Simon Sand it would effectively provide a water, because it adds to the diversity of new commercial revenue for the site, which habitat and has attracted a significant is currently due to cease operations in 2018. amount of new birdlife. Another concern The owners have indicated that, from an would be potential traffic effects, in relation operational perspective, they could start to: traffic volumes; the routes taken by heavy accepting inert waste and develop vehicles carrying inert waste; the nature of associated recycling facilities in the short the approach roads to the site; and the term, provided environmental considerations distances involved in transporting inert waste and other issues were properly resolved and from its likely main in St. Helier. the necessary consents are in place. Clearly, if this is feasible, it would have the 12.7.26 Perhaps one of the more obvious advantage of allowing the quarry to be technical challenges would be avoiding the prepared for receipt of inert waste prior to potential risks of ground water the closure of La Collette II. This would contamination, given the 'aquifer sensitive' provide sufficient flexibility to guarantee conditions which prevail. The site lies on the continuity of inert waste disposal facilities in largest exploitable groundwater resource in the foreseeable future. However, the study the Island. However, the initial view of the undertaken by Hydroconsult Ltd takes a Assistant Director - Environment Protection more cautious view and concludes that (P&E) is that there are no fundamental Simon Sand may only be available to receive foreseeable technical objections to inert inert waste after it ceases quarrying in 2018, waste landfill at Simon Sand, provided there in order to prevent sand and gravel product are very strict controls on the wastes contamination. If La Gigoulande is also entering the site. That said, any application unavailable for tipping at that time, it may would need to be subject to the strictest again necessitate temporary superfilling investigation and licensing and there could (land raising) for an interim period at La yet be unforeseeable problems that arise as Collette or elsewhere with the attendant a result of detailed feasibility work and the disadvantages referred to above. required Environmental Impact Assessment. There remains some debate, at present, as 12.7.29 Allowing landfill with associated to whether it would be necessary to introduce aggregate recycling operations at Simon clay bunding/sealing prior to the controlled Sand in addition to La Gigoulande would tipping of waste. have the added benefit of avoiding a monopoly situation arising in the future. 12.7.27 The void being created at Simon Sand would have the capacity to secure Ronez disposal of the Island's inert waste for a considerable amount of time. The operator 12.7.30 It is not known whether there are has estimated that when its current license similar realistic landfill opportunities available expires in 2018, the total void will be of the at Ronez. However, the operator has indicated that its current objective is to maximise extraction and that this would be compromised by a landfill operation
176 Island Plan Review: Strategic Options Paper Green Paper (July 2008) alongside extraction. It would not possible and an alternative solution is necessarily discount landfill possibilities in justified in accordance with the States' wider the longer term, but the company will be environmental health objectives in relation examining the potential to create a port basin to the safe disposal of sewage and protection at the site which would, if pursued, militate of the quality of water supplies. The Minister against substantial landfill. for Transport and Technical Services is charged with responsibility for extending the foul sewer system to other areas of the Question 78 Island where this is practicable and economically and environmentally viable. Terrestrial landfill The liquid waste in the foul sewer system (including a proportion of surface water) is Do you agree or disagree with land filling collected at First Tower Pumping Station voids as part of landscape restoration from areas throughout the Island via a series (with associated aggregate recycling of smaller pumping stations, rising mains facilities)? and gravity sewers. From there, the sewage is pumped to the sewage treatment works, If you agree please indicate in the free which is located in Bellozanne Valley. text box which site(s) you would support: 12.8.3 The sewage treatment works was a) La Gigoulande originally constructed in the late 1950's and b) Simon Sand & Gravel has been subject to periodic improvements over the years to increase the capacity and c) Ronez quality of treated liquid waste. Perhaps the most notable improvement was the construction of an Ultra violet treatment plant 12.8 Liquid waste which improves the bacteriological quality of the effluent discharge via the outfall into St. 12.8.1 Although this chapter focuses on Aubin's Bay. In addition to discharging solid waste management, it is considered purified effluent to the sea, the works appropriate to say something about the produces treated sewage sludge. current position in respect of liquid waste, or Approximately 70% of this is dried in a water-borne sewage. thermal sludge drying plant to produce sewage pellets. These are either recycled 12.8.2 The Island's foul sewer system in the form of an agricultural fertilizer and covers a large proportion of the Island and applied to local fields, or diverted for all the main built-up areas. However, a large incineration when the land bank is number of properties in rural areas continue unavailable. to rely on private sewage treatment and disposal systems, including septic tanks and 12.8.4 Under normal conditions, sewage soakaways. Current planning policies is treated to a high standard at the works, generally presume against new but there are some difficulties in maintaining developments which rely on private sewage the standard at all times (e.g. under high treatment systems, because of the risks of /storm flow conditions). Indeed, it could be groundwater being contaminated by effluent. argued that the works is struggling to meet That said, exceptions are sometimes made its consent conditions, because of where connection to the public sewer is not technology difficulties and loading. Perhaps
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the most obvious environmental impact of 12.8.8 No question is asked on this the current works is the problem of smell specific issue as it is important to be which can, on occasions, extend over a large informed by the technical issues and costs, residential area to the south. which will form part of a special consultation report produced in parallel with this Strategic 12.8.5 The States is currently in the Options Paper. process of preparing a Liquid Waste Strategy, which will be reviewing the options for the future of the sewage treatment works. Some improvement is required whatever the future population scenario for the Island, but the scale and nature of the required improvements will be driven by the scale of population increase.
12.8.6 As part of the recent 'Imagine Jersey 2035' exercise, Transport and Technical Services provided some interim indications of what might be required under the various possible future population scenarios. They suggested that the existing works, with continued upgrades (as per the capital programme) and some further enhancement, should be able to accommodate a population of 95,000 to 100,000 (i.e. equivalent to a net annual inward migration of up to 250 households). This is subject to a full process review and on the assumption that there is no growth in industry which will generate a high loading on the works.
12.8.7 Higher levels of net annual inward migration would require more significant investments in new plant. There appear to be three broad options, as follows:
providing a number of subsidiary sewage works / large package plants at key locations and diverting existing flows to these; building a new or expanded sewerage works at Bellozanne, where the existing incinerator is located; building a new sewage works at La Collette II reclamation site, with full flow from the east of the Island pumping from Le Dicq pumping station.
178 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 13 Delivering the Plan
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 179 13 Delivering the Plan
13 Delivering the Plan 13.0.5 Planning obligations have been introduced to the planning system in Jersey Introduction to ensure, amongst other things, that any costs - particularly those relating to 13.0.1 The new Island Plan will contain a infrastructure - arising as a direct result of a mixture of planning policies against which development, are provided for as an integral new development proposals will be part of the planning process. assessed; and specific proposals for identified sites. It is only through the 13.0.6 This mechanism has been implementation of these policies and successfully used to deliver physical and proposals that the objectives of the new community infrastructure - such as Island Plan can be realised and delivered. improvements to roads, footpaths, junctions an crossings; drains and sewers; and the 13.0.2 The formal process of development provision of community facilities, such as control - where the Minister for Planning and buildings and open spaces. It can also be Environment assesses development used to deliver 'indirect' planning gains - proposals against the policy framework of such as the enhancement of the local bus the Island Plan, and other material service; improvements to the local public considerations - is a major part of realm; and public art. implementing policies, and contributing towards the objectives of the Plan: it is 13.0.7 Planning obligations have also been important that the Planning and Environment used to secure strategic objectives of the Department is sufficiently resourced to 2002 Island Plan - such as the provision of enable this process to be undertaken homes for social rent. Work is presently efficiently and effectively. ongoing to examine how the Island Plan might incorporate new mechanisms to 13.0.3 Other proposals in the Plan may secure the provision of affordable homes in involve direct engagement and Jersey through the planning system. implementation by the States, funded by government revenue, and these should be 13.0.8 The requirement for planning identified in spending programmes where obligations is presently assessed on a case they relate to proposals within the lifetime of by case basis and is not a requirement of all the Plan. development. This is principally because the mechanism is only used where a Planning obligations and gain development necessitates the provision or enhancement of infrastructure or some 13.0.4 Well designed development can regulation of tenure, and not all offer great benefits to the Island: it can developments do, depending on their scale, provide homes, work places, shops and form and location. This may make the other facilities that Jersey residents can development of some sites more difficult, or benefit from and enjoy. Development also less attractive, to develop than others, albeit has an impact on the environment, facilities that any additional cost implications should, and services of the area in which it is in theory, come off the value of the land. located, and can create and place undue burden and costs on local communities. 13.0.9 The potential use of the planning system to contribute more significantly to assist the delivery of specific planning objectives on a more consistent and
180 Island Plan Review: Strategic Options Paper Green Paper (July 2008) comprehensive basis - through a mechanism such as a planning tariff - remains to be the subject of further consideration and research. Any such mechanism might be used to deliver specific Plan objectives, such as the provision, maintenance and/or enhancement of physical infrastructure, including roads, sewerage, community buildings and open space; the provision of funds to support specific projects, such as the regeneration of St Helier or the provision of public art; and the provision of specific forms of tenure of housing, such as affordable homes.
Question 79
Planning tariff for Jersey
Would you support the introduction of a planning tariff on new development in Jersey, to assist the delivery of Island Plan objectives, that may not be related to the development upon which it is imposed?
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182 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 14 What next and how to comment
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 183 14 What next and how to comment
14 What next and how to 14.0.8 Then you will be able to browse the paper, save your draft responses and submit comment them, you will also be able to see other consultees final responses in real time. 14.0.1 The consultation will take place over three months - from 10 July to 02 Other ways to take part October - then the Minister for Planning and Environment will analyse and consider the 14.0.9 We recognise that not everyone results and draft the revised plan. will have access to or will be comfortable using the internet. For this reason the 14.0.2 We hope that this document covers Planning and Environment Reception at the main issues and options you consider South Hill, St Helier will be running sessions important. Inevitably there will be gaps. to help you enter responses or to fill in the Please let us know if there are any important responses for you. These sessions will be matters we have missed. every Tuesday and Wednesday during the consultation period and every day during the 14.0.3 The consultation closes at 5pm on penultimate week of the consultation. We 02 October 2008. regret that this will be unavailable during the 14.0.4 Please try to focus your response final week of the consultation. to the questions asked. Doing this will make 14.0.10 The Green Paper is also available it easier for us to take your views into in hard copy, together with a separate account. summary document containing all of the Online responses questions to enable people to submit their responses in writing, should they prefer. 14.0.5 We strongly urge all respondents These should be submitted to: to use the new easy to use on-line consultation system as this is the quickest Island Plan Review Team and easiest way for you to do so. Planning and Environment Department, South Hill, St. Helier, JE2 4US 14.0.6 It is not expected that everyone who wishes to take part in this consultation 14.0.11 A series of workshops will also be will want to read all of this material and held where discussion about the issues can answer all of the questions: you do not have be entered into and peoples' views captured. to. You may respond to as many or as few These will be advertised in the local press and publicised on the States of Jersey Island of the questions as you wish to, but we want (1) you to take part. Plan Review web site.
14.0.7 The Green Paper is available online 14.0.12 There will also be information (http://consult.gov.je/portal), where available at the Customer Services Centre, responses to the questions can be Cyril Le Marquand House during the completed and submitted. We would consultation period. encourage as many people as possible to use this way of responding to this consultation paper.
1 http://www.gov.je/PlanningEnvironment/IslandPlanReview/default.htm
184 Island Plan Review: Strategic Options Paper Green Paper (July 2008) 14.0.13 We also hope to work with the local media to ensure the key issues raised by this Green Paper are publicised as much as possible, to engender debate.
14.0.14 We will also be working with each of the parishes, for them to host their own exhibitions, focused on the key issues and options affecting their parish.
14.0.15 We are not planning to run any local exhibitions or public meetings but are happy to provide advice and/or speakers for such third party events should you wish to host your own and feed the results back to us.
14.0.16 Please note that responses submitted to all States public consultations may be made public (sent to other interested parties on request, sent to the Scrutiny Office, quoted in a final published report, reported in the media, published on a States of Jersey website, listed on a consultation summary etc). If a respondent has a particular wish for confidentiality, such as where the response may concern an individual’s private life, or matters of commercial confidentiality, please indicate this clearly when submitting a response.
Island Plan Review: Strategic Options Paper Green Paper (July 2008) 185 14 What next and how to comment
What next
Project Timetable
14.0.17 The States will publish a Draft For developers and landowners please tell Island Plan for people to consider, providing us if there are any proposals you wish us to another opportunity to make representations take forward. Under the new law we will have on specific policies and proposals, in early to consult on these as they cannot be added 2009. through lobbying at a late stage.
14.0.18 Representations will go forward Further information and advice to an independent Inspector who will hear evidence and report his or her findings to the If you have any queries, or require further Minister. information, please contact the Island Plan Review Team e: [email protected] or t: 14.0.19 The Minister for Planning and 448443 Environment will then publish a report and proposition to the States proposing the revised plan. Under the Planning Law only proposals that have been subject to public consultation can go forward, underlining the need to put forward ideas at an earlier stage.
186 Island Plan Review: Strategic Options Paper Green Paper (July 2008)