4. The Spatial Strategy & Key Diagram – where should growth happen?

Introduction – The Path to Spatial Sustainability

4.1 The location of new development across the southern part of central Bedfordshire District and Luton Borough, hereafter referred to as Luton and southern Bedfordshire, will have a major impact on sustainability. By integrating the provision of new development including, homes, employment and social/community infrastructure uses with high quality public transport, particularly in the form of the Guided Busway, we will help to shape both new development and future travel patterns in a highly sustainable way. Taking an integrated approach to the provision of new development and its associated sustainable transport linkages is probably the most powerful way in which the planning system can contribute to environmental sustainability as well as sustainable communities generally.

4.2 National Planning Policy Statements (PPSs) together with the East of England Plan and the Sub-Regional level Milton Keynes and South Midlands Sub Regional Strategy (MKSMSRS) all hierarchically provide important central and regional Government context for this Core Strategy and subsequent documents of the Local Development Framework (LDF) to sit within and conform to.

4.3 The MKSMSRS and the East of England Plan RSS allocate amounts of growth to this area; the former also identifies areas of search for potential Green Belt review in order to accommodate sustainable strategic urban extensions. These may be found on pages 10 and 11 of that strategy. Generally speaking the areas of search for such urban extensions lie to the north-west, and north of Dunstable, north of Houghton Regis and Luton, east of Luton (in North Hertfordshire District) and around Leighton Buzzard and Linslade.

4.4 These areas of search have been investigated further in the preparation of this Core Strategy and two preferred strategic urban extensions on the northern fringe of the main conurbation have emerged. Additionally, one smaller scale strategic urban extension is preferred to the east of Leighton Buzzard. A further preferred direction of growth has been identified. This lies to east of the main conurbation and mostly lies in North Hertfordshire District. The North Hertfordshire District Local Development Framework will progress the planning of this growth with the Joint Committee inputting where and when appropriate. The MKSMSRS and the RSS also set out a sub-regional approach to the delivery of urban regeneration, transport and the safeguarding of rural areas from inappropriate development.

4.5 This Core Strategy develops the regional and sub-regional approach at the next level by setting out a spatial approach to the delivery of 6/17

sustainable growth across southern Bedfordshire up to 2031 in a timely way that meets the needs of all in the area now and in the future. The Growth area is defined as comprising the main conurbation of Luton, Dunstable and Houghton Regis, and the market town of Leighton Buzzard and Linslade, together with any preferred urban extensions of these settlements. It is also likely that some appropriately scaled growth will go to main rural settlements as illustrated on the Key Diagram at Figure 1. The Key Diagram presents a simple and accessible pictorial representation showing the preferred locations for strategic new development.

4.6 The first choice location for growth related development is within existing urban areas thereby making full use of previously developed land and buildings. This approach will ensure these areas remain vibrant in decades to come. Priority will be given to the main conurbation before Leighton Buzzard and Linslade owing to its higher levels of existing and potential sustainability and to maximise the opportunities for new development to support and enable its regeneration.

4.7 However in the light of the amount of growth southern Bedfordshire needs to accommodate up to 2031 not all of it can be accommodated within existing urban areas. The evidence demonstrates that concentrating development that cannot be accommodated within existing urban areas in urban extensions is the most sustainable strategic spatial strategy approach to pursue. This approach enables the new development to benefit from all that the existing urban areas have to offer, including public transport, whilst at the same time being of direct regenerative benefit to those same existing urban areas. Growth of the main conurbation in the east of the Growth Area in this way offers the opportunity for the most sustainable urban extensions generally thereby enhancing the overall pattern of sustainability for the growth area as a whole.

4.8 The evidence demonstrates the need to consolidate and develop Luton as the sub-regional centre serving southern Bedfordshire and adjoining areas. The spatial strategy is accordingly orientated towards this objective. It is also important to safeguard the future of Dunstable, Leighton Buzzard and Houghton Regis town centres. The evidence illustrates the significant role these subsidiary centres play in serving their local communities which also need to be nurtured. To this end the Core Strategy seeks to allocate appropriate levels of commercial and other development in these centres to ensure their continued vibrancy. 4.9 It is important to ensure that the rural settlements of the Growth Area continue to meet the local needs of the communities they serve. The Core Strategy seeks to ensure this happens by identifying such settlements where appropriately scaled development potential may exist.

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4.10 In order to safeguard the countryside the evidence shows it is appropriate for the Core Strategy to limit development outside those principal settlements referred to above. The reason for this are three fold:

• to ensure the most sustainable pattern of development is delivered; • to help support and secure the regeneration of existing areas; and • to protect the countryside.

Associated with this is the need to ensure that the recast Green Belt, with its new boundaries following the provision of land for urban extensions, has a defined role.

4.11 A brief description of the specific building blocks or elements that together make up the direction of travel of this Spatial Strategy and Core Strategy as a whole now follow. They are set out in the order they appear in the subsequent chapters where more detail on each topic may be found.

The Building Blocks of the Spatial Strategy

i) A Framework of Strategic Transport Infrastructure

4.12 In order to deliver a Core Strategy that is sustainable it is important to ensure that new development and as much existing development as possible is easily accessible by public transport and other alternatives to the private car as well as ensuring that private car accessibility is also adequately planned for. This spatial strategy has this at its heart.

4.13 Key elements of additional public transport infrastructure are included in order to achieve this: These are;

• The committed Luton Airport – Houghton Regis Guided Busway; • Proposed extensions to the Busway through the proposed urban extensions to the north of the main conurbation (and in the preferred extension to the east in North Hertfordshire District, which that District’s LDF will provide planning policy for), • Bus priority schemes along the A6 New Bedford Road and A505 Hitchin Road; • Improved multi-modal accessibility to public transport in Luton, Dunstable, Houghton Regis and Leighton Buzzard town centres, a key node will be at Luton Central Railway Station; • Park and Ride sites to the north of the main conurbation on the A5, M1, A6, and A505; • An aspiration for a Luton Northern Parkway Railway Station to the north of the main conurbation;

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• Enhancements to existing railway stations associated with the Thameslink 2000 project; and • Improvements to radial public transport services in Leighton Buzzard/Linslade;

The new public transport framework created through the implementation of the above projects, together with general enhancements to existing public transport services and facilities and maximising opportunities to walk, cycle and avoid the need to travel at all, offer a comprehensive package of measures to ensure the delivery of sustainable growth across southern Bedfordshire. These schemes create a strengthened public transport framework. These will be linked with general enhancements to existing public transport provision and improved opportunities to walk and cycle. Together this represents a comprehensive package of measures to ensure the sustainable delivery of growth across southern Bedfordshire.

ii) Urban Concentration

4.14 National and Regional guidance including PPSs, PPGs the East of England Plan RSS and the Milton Keynes and South Midlands Sub Regional Strategy (MKSMSRS) all stress the importance of concentrating new development within existing urban areas. This is also a key principle of this spatial strategy. It is considered that concentrating development in existing urban areas contributes to their regeneration and helps to ensure that new development is delivered in a sustainable way, close to existing services and facilities. By locating such development close to public transport infrastructure necessary new development can be delivered whilst congestion is minimised.

4.15 Significant opportunities exist in existing urban areas across the growth area to accommodate new, particularly residential development. Therefore an ‘urban area first’ principle is preferred regarding the delivery of new development with 60% of all new residential development taking place in these areas up to 2021 and 40% thereafter to 2031. Indeed up to the year 2012/13 new residential development will be concentrated within these areas, particularly the main conurbation comprising Luton, Dunstable and Houghton Regis on the eastern side of the Growth Area. The Strategic Housing Land Availability Assessment (SHLAA) supporting this Core Strategy includes details of the opportunities that exist for new residential development across the existing urban areas. The extent to which the targets for achieving new development within existing urban areas are achieved will vary geographically across the Growth Area with Luton Borough expected to achieve more than the former South Bedfordshire as more opportunities of this type exist in Luton. This position is reflected in the associated Housing Trajectory. The Annual Monitoring Report (AMR) will track performance in different parts of the Growth

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Area and this will enable targets to be reviewed as appropriate. The monitoring areas will be as follows:

• Luton Borough; • the Dunstable, Leighton Buzzard/Linslade and Houghton Regis urban areas; • each principal rural settlement; and • the rest of the rural area.

4.16 As well as new residential development, new employment and improved social and community infrastructure will also be delivered within existing urban areas. For example at emerging Napier Park in Luton and the former Herts. BTR site in London Road, Dunstable.

4.17 Key new elements of public transport infrastructure such as:

• the Luton – Dunstable Guided Busway, • additional on-road bus-priority measures, and • public transport interchange points in town centres, particularly in the main conurbation;

enable the Strategy to guide development in existing urban areas to locations where it can be accessed sustainably.

4.18 The emerging Luton – Dunstable Guided Busway and on-road bus priority measures, bus interchange points in town centres in the main conurbation provide important elements of public transport infrastructure and guide the distribution of development in the existing urban areas to locations where it can be sustainably accessed. Existing and potential new railway stations also similarly represent important nodal points and therefore by locating new development near to them they play a key role in ensuring development is delivered sustainably.

iii) Strategic Urban Extensions

4.19 Not all of the development needed across southern Bedfordshire can be delivered within existing urban areas. Therefore the Core Strategy must identify the most sustainable ways of making use of precious and finite undeveloped land by firstly establishing what form new development areas should take in southern Bedfordshire. Following strong advice set out in MKSMSRS, supported and reaffirmed by local evidence and opinion, a set of strategic extensions to existing urban areas are preferred.

4.20 The most sustainable form of urban extension are those with sufficient ‘critical mass’ to function in a way that ensures they do not place unreasonable burdens on existing or new infrastructure. They should also contribute to serving the needs of adjacent existing urban areas 6/21

where infrastructure deficits exist. This approach may take a little longer to deliver because larger urban extensions tend to be more complex and time consuming to bring forward. Nevertheless, it is considered preferable to follow the path of bringing forward a small number of large-scale, strategic urban extensions than to release a larger number of non-strategic, smaller urban extensions which will be unlikely to bring forward appropriate amounts of supporting infrastructure. Allied to this is a key aim is to secure the regeneration of existing urban areas, particularly Luton which has significant areas of deprivation. To achieve this aim large scale strategic urban extensions are required in order to lever in sufficient capital to make a focused, meaningful and positive impact on the regenerative needs of southern Bedfordshire’s existing urban areas. It is considered that this approach will deliver sustainable communities.

4.21 The strategic urban extensions will each contain a mix of land-uses, supporting infrastructure and services, together with a high quality environment. These will be provided in a timely way that meets emerging community needs in-parallel with the delivery of Growth. Where discussions between landowners and the relevant planning authorities are well advanced, a master planning approach can be pursued early on to ensure that a timely start is made on the strategic urban extensions and thereby deliver early residential and other associated development from this source in accordance with the timescales set out Chapter 6 below, “Providing New Homes”.

4.22 Thirteen areas were identified as having potential as strategic urban extensions in the Issues and Options, June 2007. Through a process of assessing technical evidence, completing a site by site assessment matrix and considering feedback from public consultation four preferred strategic directions of growth have emerged. Three of these are within Central Bedfordshire District. This Core Strategy allocates these urban extensions for mixed use development. The land allocated will be removed from the Southern Bedfordshire Green Belt with new permanent Green Belt boundaries being derived as a result of this process.

4.23 The fourth lies in North Hertfordshire District and therefore, although a preferred strategic direction of growth, the Core Strategy cannot allocate this land for development. This will be done through the Local Development Framework (LDF) being prepared by North Hertfordshire District. The directions of preferred strategic urban extension growth are indicated on the accompanying Key Diagram at Figure 1.

4.24 Two of the three preferred urban extensions within Central Bedfordshire lie to the north of the Luton, Dunstable and Houghton Regis conurbation, hereafter referred to as the main conurbation. These are referred to as:

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• North of Luton; and • North of Dunstable and Houghton Regis.

The remaining preferred strategic urban extension location within Central Bedfordshire lies to the east and north east of Leighton Buzzard. Compared to the main conurbation Leighton Buzzard and Linslade has fewer services and facilities and has less potential to attract new employment opportunities and achieve sustainable travel. This, coupled with its attractive market town character makes it appropriate for this preferred urban extension to be smaller than the preferred urban extensions to the north of the main conurbation and the preferred direction of growth to its east, mainly in North Hertfordshire District. However, like the other urban extensions it is important that it is also able to deliver a scale of new development that has the potential to achieve a constant supply of housing, together with necessary supporting employment and community infrastructure opportunities to meet the needs of the towns up to 2031. This location to the East of Leighton Buzzard is considered to be the only option around the towns where this could be achieved where the impact on the surrounding countryside can be mitigated and/or justified.

4.25 The fourth preferred strategic direction of growth is located to the east of the main conurbation and lies` mainly in North Hertfordshire District. It is envisaged that a strategic mixed-use urban extension of an equivalent scale to the two urban extensions proposed to the north of the main conurbation will be delivered here. This preference is appropriately indicated on the accompanying Key Diagram and it will be taken forward as part of the North Hertfordshire District LDF.

4.26 Development of the strategic urban extensions will be phased to ensure their incremental release in-parallel with the delivery of supporting infrastructure between 2012/13 and the end of the plan period in 2031.

4.27 The boundaries of the strategic urban extensions will be defined in the draft submission version of the Core Strategy and the Core Strategy prepared by North Hertfordshire District, as appropriate. The strategic urban extensions will take the form of strategic mixed-use allocations which will then be appropriately subdivided into specific land uses in the forthcoming Site Allocations DPD.

iv) Rural Development

4.28 The East of England Plan allocates an additional quantum of residential development to southern Bedfordshire. This lies outside and away from the main growth settlements: the main conurbation and Leighton/Linslade. This additional development will be delivered in or on the edge of rural settlements. The rural settlements considered to have potential to accommodate some of this additional development

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are shown on the Key Diagram at Figure 1. Small scale reviews of the Green Belt boundary around these settlements may be required. Both this matter and the allocation of land to satisfy the need for development in the rural area will be brought forward through the Site Allocations DPD which will follow and accompany this Core Strategy within the LDF.

4.29 Development away from settlements selected to accommodate growth will be strictly limited to that which is appropriate in countryside protected by Green Belt designation.

v) Monitoring and Review: the approach to Contingencies

4.30 However carefully assembled a Core Strategy or any other DPD is, it is never possible to be categorically certain that its contents will all be delivered within the timescales and locations set out and in the quantities specified. Therefore, this Core Strategy and other subsequent DPDs will be kept under regular monitoring and review through the system of Annual Monitoring Reports and more strategically at each of the major five year Plan, Monitor Manage time horizons set out in Bedfordshire and Luton Policy 2(b) of the MKSMSRS. Should it be found at any stage that the strategy underpinning any DPD is failing to deliver as expected appropriate reviews will be undertaken and contingency strategies deployed without delay.

vi) Resulting Spatial Development Principles

4.31 The following principles summarise the strategic approach to development in southern Bedfordshire in the period up to 2031. Each element, together with the background to it explained in more detail elsewhere in this chapter provide a robust, sound and comprehensive template to guide development across the Growth Area. Subsequent chapters in this Core Strategy develop each of these principles further under a series of specific development type topic headings. The Spatial Development Principles are set out in the following box:

Box 1

Spatial Development Principles

Development up to 2031 will be directed in accordance with the following Spatial Development Principles:

• Maximise the potential of existing urban areas to accommodate new development with priority given to the main conurbation before Leighton Buzzard and Linslade, especially in the period up to 2012; • Provide for the provision of two strategic urban extensions to the 6/24

north of the main conurbation comprising Luton, Dunstable and Houghton Regis; • Provide one further strategic urban extension to the subsidiary urban area comprising Leighton Buzzard and Linslade; • Seek a further strategic urban extension to the east of Luton, mainly in North Hertfordshire District, to be planned for through the North Hertfordshire Local Development Framework • Deliver growth in rural settlements identified on the Key Diagram of a scale appropriate to their existing form and character; • Limit development outside these locations and protect the countryside ;

4.32 The committee considers that this Spatial Strategy delivers a strong overarching framework that subsequent chapters of the Core Strategy build upon. It ensures that each specific development type is delivered in a sustainable and timely way to the benefit of present and future generations.

4.33 Preferred Option policy CS1, ‘Spatial Development Strategy’ now follows:

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Preferred Option CS 1 – Spatial Development Strategy

The Joint Committee’s preferred option is to:

Plan for the continued delivery of housing and employment together with associated supporting infrastructure throughout the plan period to 2031 in order to deliver the regeneration of the southern Bedfordshire Growth Area in accordance with the MKSMSRS and the East of England Plan RSS. The following sub – sections of this preferred option outline how it is proposed that this is to be delivered.

Background – The Building Blocks of the Spatial Strategy

This will be achieved through the allocation of a balanced portfolio of suitably located land comprising an appropriate mix of:

• Land in existing urban areas; • Strategic urban extensions; and • Sites in rural settlements excluded from the Green Belt of a scale appropriate to the settlement concerned.

This portfolio will meet the needs of both existing and new communities and contribute to the sustainability of the area. It will include large scale mixed use developments and will be served by major new transport schemes.

New development will be distributed so as to strengthen the established network of settlements. New development in open countryside outside of proposed urban extensions will be strictly controlled in accordance with nationally defined principles controlling development in the green belt.

Distribution of New Development

Initially new development will be primarily focused within existing urban areas, with priority given to the main conurbation in the east of the Growth Area. Development opportunities for high density, high – trip generating uses, including office, retail and leisure developments will be encouraged, primarily in Luton Town Centre. Smaller development of this type will be supported in Dunstable, Houghton Regis and Leighton Buzzard town centres. They will also be supported around key transport routes and nodal points.

This package will be supported by the allocation of three large scale mixed-use strategic urban extensions, two to the north of the main conurbation and one smaller one to the east of Leighton Buzzard as shown on the key diagram.

Development of the urban extensions will be phased to ensure their 6/26 incremental release in-parallel with the delivery of supporting infrastructure between 2012/13 and the end of the plan period in 2031.

A fourth strategic urban extension is preferred to the east of Luton which will be allocated through the North Hertfordshire District Core Strategy. This is also shown on the key diagram.

Implementing the Urban Extensions

In planning for the implementation of these urban extensions the emphasis will be on:

• Providing a range of residential development opportunities to serve all sectors of the existing and new communities up to 2031; • Increasing and diversifying employment opportunities, particularly associated with the new strategic employment sites proposed around M1 Junction 11a and London Luton Airport; • Maximising opportunities to extend the Guided Busway to connect the town centres of the main conurbation and other key destinations such as London Luton Airport with the urban extensions; • Contributing to the regeneration of Houghton Regis, Marsh Farm and other parts of the existing urban areas identified as being in regenerative need; and • Ensuring the delivery of the appropriate levels of supporting social, community, leisure, cultural and green infrastructure, both to serve the urban extensions and the wider growth area.

The preferred strategic urban extension to the east of the main conurbation will also be planned for in a similar way by North Hertfordshire District Council.

In planning for the implementation of the urban extension to the East of Leighton Buzzard, the emphasis will be on:

• Providing a range of residential development opportunities to meet the majority of the new housing needs of Leighton Buzzard and Linslade to 2031; • Increasing the employment opportunities and providing additional new community facilities which cannot be provided in the existing urban area of the towns; • Complementing and safeguarding the character and viability of Leighton Buzzard town centre; • Providing appropriate public and private transport options to reduce congestion without harming the townscape and landscape; and • Providing further high quality open space and green linkages to 6/27

the countryside.

Other Strategic Spatial Matters relating to the Urban Areas

Preference will be given to locations that are accessible by a choice of means of travel, particularly town centres. Area Action Plans will be prepared to enable the town centres of Luton, Dunstable, Houghton Regis and Leighton Buzzard, shown on the accompanying key diagram, to accommodate significant new development.

Development in Rural Settlements

A limited scale of development will be allocated or supported in rural areas. This will be in and/or on the edge of the rural settlements that are currently excluded from the Green Belt. Such development will be sympathetic to the scale and character of the settlement concerned. Small scale reviews of the Green Belt boundary on the edge of these rural settlements may be required to enable such development to proceed. Subsequent development plan documents (DPDs) will specifically identify opportunities for such development on the edge of such rural settlements across the Growth Area.

Delivery and Monitoring

4.34 Delivery will be achieved through:

• the flexible and responsive implementation of this Spatial Strategy through targeted policies, allocations and guidance within the submission version of the Core Strategy and subsequent Site Allocations DPDs, Development Management DPDs and Action Area plans; • working closely with all partners and stakeholders to ensure that the understanding of the land and premises needs of the area are continually updated; • securing appropriate financial and other resources, such as through developer contributions, to ensure that development can be delivered in an integrated, phased and managed way that balances the need to deliver growth within necessary timescales whilst also ensuring that the right development is delivered in the right place; • maintaining a strong working relationship with key infrastructure providers, including transport related partners like the Highways Agency and Highway Authority; and • regularly monitoring the detailed implementation of this policy through the Annual Monitoring Report (AMR) as well as being strategically monitored at each of the 5 year

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Plan, Monitor, Manage time horizons set out in the Bedfordshire and Luton Policy 2(b) of the MKSMSRS.

4.35 The Key Diagram now follows. This important component of the preferred options Core Strategy indicatively shows the spatial distribution of new development in the context of key existing and proposed transport infrastructure and existing land uses. Figure 1 - Key Diagram

4.36 The Key Diagram set out at Figure 1 opposite illustrates the preferred spatial approach to delivering development across the Growth Area. It highlights the following key existing spatial elements:

• the town centres according to their relative size and importance; • existing urban areas; • main public and other transport routes and nodes; • main rural settlements; • key environmental capital, such as the Chilterns Area of Outstanding Natural Beauty (AONB); and • important watercourses.

The diagram also indicatively shows the preferred new development comprising the following forms:

• new public and other transport routes and nodes; • park and ride sites; • strategic urban extensions (the diagram also shows those that are not preferred); • strategic employment areas; and • main rural settlements with some potential to accommodate an appropriate scale of development .

This diagram should be read in conjunction with Policy CS1, The Development Strategy above and the chapters that follow below.

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Figure 1 - Key Diagram

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Delivering Supporting Infrastructure and Developer Contributions

Introduction

4.37 The Integrated Development Programme (IDP) identified sources of funding that can be used to help pay for infrastructure that is necessary to appropriately support development across the Growth Area. The timely provision of such infrastructure is vital in order to secure sustainable success.

4.38 Developer contributions will be an important source of funding towards both, strategic, large scale, infrastructure as well as smaller scale site specific requirements, often directly related to a particular planning application. Both Luton Borough and Central Bedfordshire have, or soon will have, Supplementary Planning Documents (SPDs) on developer contributions which will be complementary in their overall approach.

4.39 The Local Delivery Vehicle (LDV) will be important in helping to establish a comprehensive approach to developer contributions. This will include the use of a form of ‘tariff’ based approach, the details of which are currently being finalised. It will also include a refined approach to securing site-specific ‘section 106’ type Planning Obligations. This Core Strategy will set the overall approach to securing developer contributions in the light of input from the LDV.

4.40 Preferred Option policy CS2, ‘Developer Contributions & the Delivery of Supporting Infrastructure’ now follows:

Preferred Options CS 2 - Developer Contributions & the Delivery of Supporting Infrastructure

The Joint Committee’s preferred option is to:

Develop a comprehensive approach to securing developer contributions across the Plan Area to help provide strategic and local infrastructure needed to support development. This will be based on discussions with the Local Delivery Vehicle (LDV) and emerging legislation and regulations. The overall approach will be in two complementary forms. These will:

• Set out a ‘tariff’ based approach to securing developer contributions for the provision of strategic infrastructure, whether or not in the form of the emerging Community Infrastructure Levy (CIL); and

• Set out the approach to securing developer contributions via the section 106 Planning Obligations.

This comprehensive approach to securing developer contributions will ensure consistency across the Plan Area. 6/32

Delivery and Monitoring

4.41 Delivery will be achieved through:

• the flexible and responsive implementation of this policy, as refined in the light of the results of the ongoing detailed work being undertaken to establish the Joint Committee’s detailed approach to the way CIL and traditional Planning Obligations will complementarily operate across southern Bedfordshire and in the light of the resulting up to date Supplementary Planning Document(s) SPD(s) in use at the time of negotiation with developers; • working closely with all public and private sector partners to achieve appropriate financial support, at the appropriate time, for infrastructure identified as being needed to support development; and • maintaining a strong working relationship with all infrastructure providers to ensure the right infrastructure hard-ware is delivered in a phased and timely way; and • regularly monitoring the detailed implementation of this policy through the Annual Monitoring Report (AMR) as well as being strategically monitored at each of the 5 year Plan, Monitor, Manage time horizons set out in the Bedfordshire and Luton Policy 2(b) of the MKSMSRS.

4.42 The spatial topic specific chapters now follow starting with Chapter 5, Accessibility and Transport.

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