EAST RIDING OF COUNCIL LOCAL DEVELOPMENT FRAMEWORK

ISSUES & OPTIONS CONSULTATION PAPER

AUGUST 2005 Issues and Options Consultation Paper

Contents

1 Introduction 3

1.1 The LDF 3

1.2 Progress to date 3

1.3 Core strategy 4

2 Smaller Settlements 5

2.1 The existing development strategy 5

2.2 Rural service centres 5

2.3 Other rural settlements 5

2.4 Identification of rural service centres 6

2.5 Options 6

2.6 Development limits 8

3 Housing 9

3.1 Background: Providing sufficient land to meet the housing requirements 9

3.2 Issue 1: Distribution of the housing requirement 10

3.3 Issue 2: Housing in the smaller settlements (Rural Service Centres) 17

3.4 Issue 3: Releasing housing land for development 18

3.5 Issue 4: Creating mixed communities 19

3.6 Issue 5: Density 20

4 Employment 22

4.1 Background: The East Riding Economy 22

4.2 Issue 1: Focus for new development 23

4.3 Issue 2: Smaller settlements, farm diversification and the countryside 25

4.4 Issue 3: Reviewing existing employment land allocations 27

4.5 Issue 4: Reuse of employment land for alternative uses. 27 Issues and Options Consultation Paper

5 Generic development control policies 29

5.1 Background 29

5.2 Local development framework (LDF) format 29

5.3 Generic development control policies 29

6 Sustainability Appraisal 32

6.1 What is it and why do it? 32

6.2 What has been done so far and what are the existing 'constraints'? 32

6.3 What are the next steps? 33

East Riding of Yorkshire Council Issues and Options Consultation Paper

1 Introduction The LDF, along with the Regional Spatial Strategy (formerly Regional Planning Guidance) prepared by the This informal Issues and Options consultation comes Regional Assembly for Yorkshire and the , will at an early stage in the programme of continuous comprise the statutory 'Development Plan', which is the community and stakeholder involvement that will lead basis for all planning decisions in this area. to the preparation of the East Riding Local Development Framework. 1.2 Progress to date

It will assist in identifying 'Preferred Options' for You may already have been consulted on the preparation consideration during the next stage of formal of the LDF at one of the town and parish planning consultation, leading towards the adoption of a Local workshops at which the LDF project was outlined, or Development Framework (LDF) to replace the existing in an earlier exercise that considered its project plan the Development Plan. Local Development Scheme (LDS).

1.1 The LDF The LDS, now agreed with the Government Office for , identifies the following The LDF is intended to streamline the local planning Development Plan Documents (DPDs) to be prepared process and promote a positive proactive approach to during the initial three year period; managing development. The new arrangements for the i. a Smaller Settlements DPD planning system introduced by the Planning and ii. a Generic Development Control DPD Compulsory Purchase Act 2004 will result in considerable changes to the current development iii. a Housing DPD planning system. iv. an Employment DPD

The LDF will replace the existing land use development These DPDs form only part of the LDF with other plans that cover the East Riding, comprising a Structure DPDs programmed for the period beyond 2007. Plan (outlining the overall strategic planning policies), This consultation on 'Issues and Options' is in effect and four Local Plans, (setting out detailed and site the first stage in the preparation of the four DPDs listed specific proposals). above. It has been possible to combine this initial Initially, all existing local plan policies have been 'saved' informal consultation exercise into one, rather than under the Local Development Scheme (LDS). As such consult individually on each document, because all four they will continue to provide the basis for determining DPDs are at the same stage of development. In the next planning applications until they are replaced by the next round of consultation, when the 'Preferred Options' are generation of policies which will be established in the put forward each will be at a different stage of LDF. advancement and separate consultation exercises may be undertaken. The Local Development Framework will consist of a portfolio of individual local development documents Each of the 'Issues and Options' consultation papers covering a range of topics, that collectively will deliver that follow are preliminary thoughts on the respective the spatial planning for the area. DPD and will be the foundation from which to develop, in the light of your response, 'Preferred Options' for a formal period of consultation that follows early in 2006.

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Your views, suggestions or comments on the issues or Policy DS3, states that nine further East Riding options mentioned in the four sections or any additions, 'Towns' (, , that you feel need to be considered are welcomed. Please Elloughton/Brough, , , , submit any comments to the Forward Planning Unit and ), will act as a focus for at County Hall, , HU17 9BA by 9th development, and that they will support and September 2005 complement the Principal Towns and Sub-Regional Urban Area. 1.3 Core strategy Policies DS4 and DS5 deal with smaller settlements An important component of the LDF is the Core in the countryside and are considered in more Strategy. The recently adopted Joint Structure Plan (JSP) detail in the Smaller Settlements section. which has itself undergone extensive consultation, will act as the Core Strategy for the LDF. It sets out a revised Development Strategy for the area, incorporating Broadly the aim of the new development strategy is to updated national and regional guidance. direct most new development towards the Sub-Regional Urban Area, Principal Towns and Towns, where The Development Strategy divides the East Riding into employment, housing, services and other facilities can four sub-areas: the northern area based on the Vale of be provided in close proximity. This provides York and parts of the ; an eastern opportunities for access by walking and cycling and mainly coastal sub-area: the western sub-area based on helps ensure these facilities can be served by public the port of and surrounding towns: and the busy transport, which is a key element in the Government's central sub-area that surrounds and is heavily influenced thrust to build Sustainable Communities and limit by the city of Hull. The distribution of future climate change. This established strategy is important development, particularly housing, within these four when considering the following Issues and Options sub-areas is a main issue for consideration as part of consultation paper. this consultation exercise and the LDF in general.

The Development Strategy seeks to concentrate development on a more limited number of settlements than previous policy allowed. It establishes that future development in the East Riding will be distributed in accordance with policies DS1 to DS5 of the Core Strategy (JSP).

Policy DS1 states that the built up area of Hull and the adjoining settlements of Anlaby, Willerby, Kirkella, Cottingham and is to fulfil the role of a 'Sub-Regional Urban Area'.

Policy DS2 states that the settlements of Beverley, and Goole will fulfil the role of 'Principal Towns'. They will function as focal points for development providing a complementary and supporting role to the Sub-Regional Urban Area.

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2 Smaller Settlements These Rural Service Centres should not be regarded as being of strategic importance, like the Towns. They will only be expected to accommodate limited development The Smaller Settlements Development Plan in accordance with policy DS4 of the Core Strategy Document (DPD) will identify Rural Service (JSP), otherwise this would interfere with the overall Centres suitable for limited development in the strategic direction of the LDF that seeks to focus most context of the Development Strategy set out in the new development on the Sub Regional Urban Area, Core Strategy (JSP). It will also look at the Principal Towns and Towns. potential removal of development limits in smaller In those settlements identified as Rural Service Centres, countryside settlements development will be controlled by Core Strategy (JSP) policy DS4. This states:

2.1 The existing development strategy Policy DS4 states;

Other than the Sub-Regional Urban Area, Principal The countryside should function as an attractive and viable Towns and Towns identified through the Core Strategy environmental, economic and recreational resource, with existing (JSP) as the focus for future development, there are villages providing for most of the everyday needs of local numerous smaller settlements across the East Riding communities. that have a wide and varied range of characteristics and perform different roles and functions. These are the Limited development will be allowed in existing villages if this settlements that the Smaller Settlements DPD will be meets local needs and contributes to sustaining the role of the dealing with. settlement. Housing development in existing settlements must conform to the requirement of JSP Policy H7. Some smaller settlements may already provide important local services and facilities, but on a lesser scale than Policy H7 states; the Towns. They help provide for the everyday needs of the local community, often complementing the larger Housing development in existing villages should meet an identified towns. However, other settlements have a very low level local need, particularly for affordable housing but also to support of, or no, services and facilities and could not sustain a existing village services. Development should be limited in scale, complementary role. with a preference given to previously developed sites, infill plots and conversions. Development that would result in unacceptable A number of settlements are in relatively sustainable long distance commuting will be resisted. locations in terms of their proximity and relationship to larger settlements, and the frequency of public 2.3 Other rural settlements transport services. Others are located in much more isolated locations and consequently residents must travel In those settlements not identified as Rural Service to a range of destinations for education, services, Centres and in the countryside, certain types of facilities and employment, often resulting in a reliance development will still be appropriate. These types of on the private car for most, if not all, trips. development are controlled by Policy DS5 of the Core Strategy (JSP). 2.2 Rural service centres

A key purpose of the Smaller Settlements DPD is to identify, from this array of smaller settlements, those that could provide a 'Rural Service Centre' role.

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Policy DS5 states; The quality of existing and potential public transport services The countryside should function as an attractive and viable environmental, economic and recreational resource. Development Any environmental constraints and settlement will only be allowed if it involves; characteristics

i. the provision of essential infrastructure ii. sustainable rural diversification proposals and development Further indicators may also be looked at to help identify of existing rural enterprises, giving priority to the reuse of settlements with the potential to accommodate limited existing buildings; growth in support of the Towns. These could include: iii. development requiring direct access to rail and water transport infrastructure; Employment opportunities iv. the provision of appropriate facilities for sport/recreation Potential to accommodate small-scale development and/or tourism; and on previously developed land and in conversion v. essential development for agricultural or forestry purposes. of buildings. The restricted nature of this development and the Previous levels of growth location to which it applies i.e. 'the countryside' enables consideration to be given to the removal of development limits in those settlements not identified as Rural Service Question S1: Are there other indicators you think Centres in order to help them retain their rural nature are important or wish us to consider in the (see Options below). Only those uses appropriate to a identification of Rural Service Centres? countryside location as set out in policy DS5 or certain special exceptions to normal planning policy, like Investigating these issues will help in the identification affordable housing to meet local needs, would be of Rural Service Centres that will be the preferred acceptable within them. location for limited new development in rural areas. This development should help sustain their role and 2.4 Identification of rural service centres provide for the needs of the community. Rural Service Centres will complement the Sub-Regional Urban Area, As a first stage in identifying Rural Service Centres, it Principal Towns and Towns already identified in Core is intended to explore a number of indicators to assess Strategy (JSP) as the main focus for future development. how a settlement functions, the sustainability of its It will also help in identifying those settlements that do location and whether the settlement is relatively not fulfil this role, which will be considered, under Core self-contained with residents being less reliant on the Strategy (JSP) policy DS5 as being predominantly car for their everyday needs. These indicators are; 'countryside' settlements, where more restrictive policies towards development apply. This is explored below. The role of settlement. 2.5 Options The range and level of services and facilities The Core Strategy (JSP) recognises that the LDF is best The location and relationship to other settlements placed to identify Rural Service Centres. Two broad options to explore in developing a preferred approach to smaller settlements are

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i. The identification of a limited number of Rural focused approach by directing any development outside Service Centres. the Sub-Regional Urban Area, Principal Towns and the Towns, to a smaller number of complementary Rural ii. Not to identify any Rural Service Centres Service Centres.

Those settlements identified as Rural Service Centres Firstly, a continuation of the current dispersed patterns would be the preferred location for a limited scale of of development is outlined as a basis for considering new development in rural areas, in conformity with Core the alternative options. Strategy policy DS4, to help meet local needs and contribute to sustaining the role of settlements. Continuation of Dispersed Patterns of Development Both market housing (that includes an element of The present dispersed pattern of development (especially affordable housing), and wholly affordable housing for housing) across many East Riding settlements is allocations to meet an identified local need may be largely a result of previous planning policies. These appropriate. Business and community needs could also identified settlements according to a 'Settlement be accommodated, on an appropriate scale, to help Hierarchy' that resulted in a relatively large number of maintain the vitality of these Rural Service Centres. settlements being identified for at least some growth, with most development pressure almost inevitably being In those settlements not identified as Rural Service for housing purposes. Centres development would be limited to those 'countryside' uses set out in Core Strategy (JSP) policy The dispersed pattern of development has resulted in DS5 and, in respect of housing development, to many people having a dependency on the private car to affordable housing that meets an identified local need. reach the range of destinations necessary to access Such affordable housing would be considered on employment, education, shops, entertainment and most 'exceptions sites', (see* below) that would not otherwise other day-to-day needs, often provided for in the Towns. be released for general market housing, provided it can The level of local facilities now available in many rural be secured in perpetuity for local people. settlements has diminished and the policy of dispersal has to an extent both failed to retain services and Question S2: Your views, on which villages would community facilities and to stimulate the provision of be suitable to fulfil a role as a Rural Service Centre new ones. capable of sustaining some limited development, would be welcomed. Continuing this dispersed pattern of development in the smaller settlements now needs to be reconsidered Option 2 - Not to Identify Rural Service Centres in today's policy context. This includes the Development Strategy's approach of requiring that any development The second option is to take a more stringent approach in such smaller settlements should contribute to meeting to the distribution of new development. This could be local needs, support local services and should not lead that no small settlements, regardless of size or level of to unacceptable long distance commuting. services, would be identified as Rural Service Centres.

Option 1 - The Identification of a Limited Number Future development within them, with the exception of Rural Service Centres of a very limited scale of affordable housing development to meet an identified local need, would be To promote more sustainable patterns of development, of a type appropriate to a countryside location, as set the existing dispersed pattern (especially for housing) out in Core Strategy (JSP) policy DS5. outlined above could be adapted to reflect a more

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Initial background work indicates that not many of the * Exceptions Sites for Affordable Housing East Riding's smaller settlements are truly self-contained. Residents need to travel, for most of their everyday Authorities that include rural areas are advised to include needs in particular, to reach their employment a rural exceptions site policy in their LDF. In the small destination. Where smaller settlements are dependent rural settlements that are subject to most restraint, such on other towns or village for their everyday needs issues sites are solely for the provision of affordable housing of their own ability to sustain their local community to meet local people's needs. Rural exception sites are could become important issues. not suitable for general market housing or market housing for local needs. The affordable housing Other issues that need to be considered with this option provided on such sites would have to be available in are the value of retaining development limits, and perpetuity for local people. whether exceptions sites solely for affordable housing should be identified (See * below). Question S5: Do you support the provision of affordable housing for local people in need as a Question S3: In a large area such as the East special 'exception' to normal planning policy? Riding is a restrictive approach to development in those settlements not identified as Rural Service Centres feasible? What are your views?

2.6 Development limits

Development limits have under current development plans provided a reliable means of directing acceptable development to the main body of the settlement. Outside such limits only uses appropriate to a countryside location would be acceptable.

In those smaller settlements not identified as Rural Service Centres, the type of development appropriate to them will be very limited. Consideration could be given to the removal of their development limits in order to give clearer policy guidance. Where no development limits are defined, only development that accords with Core Strategy (JSP) policy DS5 and limited affordable housing to meet a local need, would be permitted within them.

Question S4: Is there any need to define development limits in those settlements that are not identified as Rural Service Centres? What are your views?

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3 Housing to conform with policies in the Core Strategy (JSP), particularly the settlement hierarchy (as outlined in the introduction) and policies in regional and national The Housing Development Plan Document will; planning guidance, which relate to issues such as the 'sequential approach' and providing a mixed and Ensure the provision of a sufficient number balanced community (referred to in more detail below). of sites to meet the identified housing The Core Strategy (JSP) also sets the East Riding a target requirements of the Core Strategy (JSP). of achieving 30% of all housing completions on Ensure that new housing sites are released in previously developed 'brownfield' sites. This figure may a sustainable manner, giving priority to appear low but is a reflection of the fact that the East re-using previously developed land in Riding is a rural authority and has few large tracts of preference to Greenfield sites in urban areas, disused land within its settlements. and that new development has access by In order to determine the amount of land required to public transport to jobs, education and health meet the housing requirement it is necessary to consider facilities, shopping, leisure and local services. a number of factors. These include a calculation of the Ensure the provision of an appropriate mix number of dwellings that already have a planning of types, sizes and tenures of dwelling taking consent (and are therefore likely to be developed over into account the specific housing needs of the lifetime of the DPD) and a calculation of the the East Riding such as those for affordable number of dwellings that may be built on previously housing and for travellers and gypsies. developed 'windfall' sites (windfall sites are those sites that are not allocated but unexpectedly become available and are developed for housing) and small sites (small 3.1 Background: Providing sufficient land sites are those sites that are less than 0.25 hectares (ha) to meet the housing requirements in size or 5 dwellings).

The Core Strategy (JSP) sets out the number of houses Dwellings with a planning consent: The Council's that need to be built in the East Riding of Yorkshire to monitoring records show that a significant proportion 2016. This is known as the 'housing requirement'. The of the land required to meet the housing requirement Strategy requires that for 2005 the East Riding will need is already made up from sites that have an existing to provide for 1,100 new dwellings, falling to 1,050 planning permission. The records show that as at 1 dwellings per year between 2006-2016. The Strategy April 2005 the number of dwellings with a current also divides this annual provision down to the four sub planning consent amounted to over 5,500, representing areas that make up the East Riding. It identifies that almost 50% of the total dwelling requirement to 2016. the central sub area should provide 400 dwellings per Development will have already commenced on many year (450 in 2005), both the eastern and northern of these sites, but in other instances, the planning sub-areas 200 dwellings and the western sub-area 250 consent may expire and the Council will be able to dwellings. This makes a total of 11,600 dwellings to be reconsider whether or not it is still appropriate for the provided between 2005-2016 in the East Riding of site to be developed. Yorkshire. Windfall and small sites: The Council is required to The principal responsibility of the Housing DPD will make an allowance for the number of dwellings that be to translate these development requirements into could be developed on previously developed windfall proposals which will bring forward the necessary land sites and on the smaller sites which will not be allocated. for development to 2016. The Housing DPD will need The Council monitors the development of such sites

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on a yearly basis in order to ensure that future 3.2 Issue 1: Distribution of the housing allowances remain robust and do not substantially requirement under/over estimate the actual figure. The settlement hierarchy outlined in the Core Strategy Once an allowance has been made for the number of (JSP) is based on increasingly focusing development on dwellings that may be provided through these factors, the Sub-Regional Urban Area (in and around Hull) and the Council will need to consider how much land it focusing appropriate levels of development to a limited needs to allocate to ensure that it is able to provide for number of identified Principal Towns and Towns. This its housing requirement. In considering which sites to represents a significant shift from the dispersed pattern allocate, the Council will need to follow government of development over the last 10-15 years which has guidance on the sequential approach and the settlement resulted in significant levels of development in many of hierarchy outlined in the Core Strategy (JSP). the East Riding's smaller and least sustainable settlements. The sequential approach represents a search sequence in identifying and allocating sites. When applied to the The future distribution of housing across the East East Riding it would mean that priority would be given Riding is considered in the following four tables. The to allocating those sites that involve the reuse of tables confirm the housing requirement and the number previously developed 'brownfield' land and buildings of dwellings that already have a planning consent (sites and other suitable infill opportunities within the that have a planning consent are known as 'committed' identified settlements. Where such sites are unable to sites) in each sub area. The tables provide a scenario provide sufficient land to meet the housing requirements for the amount of development that could be extensions to the identified settlements will be accommodated in each settlement and indicate the considered (in the order of the Sub-Regional Urban possible need to delete existing allocations or consider Area first, followed by the Principal Towns and Towns) new allocations. and finally, if necessary around nodes in good public transport corridors. The Council would welcome any views on the future distribution of housing within the four sub areas. It should be noted however, that the level of provision for each sub area is not raised as an issue as this has already been set through the Core Strategy (JSP).

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Eastern Sub Area

Total dwelling requirement: 2005 - 2016 = 2,200

Dwellings already with planning permission = 1,628 (74% of total requirement)

Residual dwellings to be provided = 572 (2,200 - 1,628; 26% of total req.) Comment: 1,628 dwellings have a current planning permission. 1,271 of these (58% of the total requirement) lie within the Principal Town or the Towns and 357 (16%) lie within the other smaller settlements. The LDF will therefore need to provide for an additional 572 dwellings to 2016.

Bridlington is identified as the Principal Town in the eastern sub area and already has a large proportion of dwellings with a current planning permission. Withernsea also has a substantial number of dwellings already committed, raising the question as to whether any further sites should be considered in this settlement. Hornsea however, only has a low number of committed dwellings and further allocations will need to be considered.

A residual of 572 dwellings offers some (albeit rather limited) scope to influence the balance of development between these settlements and ensure that development is directed to Bridlington, Hornsea and Withernsea as identified in the Core Strategy (JSP). The following scenario is proposed:

Settlement Dwellings with planning Proposed share of requirement and consideration of the need Hierarchy permission and for new housing allocations or de-allocation of existing sites. percentage of total requirement to 2016 Principal Town Bridlington 811 dwellings (37%) As the Principal Town in the sub area Bridlington should be the focus for most new housing development. The provision will need reflect the regeneration needs and priorities of the town. One scenario would be for Bridlington to provide 40-50% of the total requirement. Taking into account those sites already with a planning consent, land (to accommodate a further 69-289 dwellings) would be required to meet this provision. Bridlington presently has excess land allocated without planning permission to accommodate this requirement and there would be a need to reconsider and de-allocate a number of sites. Towns Hornsea 161 dwellings (7%) As the next tier down in the hierarchy one scenario would be for Hornsea to provide 15-20% of the total requirement. Land would be required to accommodate a further 169-279 dwellings. Hornsea

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Settlement Dwellings with planning Proposed share of requirement and consideration of the need Hierarchy permission and for new housing allocations or de-allocation of existing sites. percentage of total requirement to 2016 currently has excess land allocated without planning permission to accommodate this requirement and there would be a need to reconsider and de-allocate a number of sites. Withernsea 299 dwellings (14%) Alongside Hornsea, Withernsea could provide for 15-20% of the total housing requirement. Land would be required to accommodate a further 31-141 dwellings. Withernsea does not have enough allocated land to accommodate this additional requirement and further allocations would need to be considered. Other 357 dwellings (16%) A high proportion (16%) is already committed in the non-identified settlements settlements. The Core Strategy (JSP) states that limited development may be acceptable in these settlements where it meets local needs and supports existing services and facilities. It is not expected that the proportion to be accommodated in these settlements will rise significantly. Substantial uncommitted capacity exists in these settlements and many allocated sites will need to be reconsidered and de-allocated.

Question H1: We would welcome your views on the distribution of housing in the eastern sub-area. Taking into account the number of dwellings already with a planning consent, do you consider the suggested balance of provision between Bridlington, Hornsea, Withernsea and the other settlements to be right? If not what would be an appropriate alternative?

Northern Sub Area

Total dwelling requirement: 2005 - 2016 = 2,200

Dwellings already with planning permission = 1,109 (50% of total requirement)

Residual dwellings to be provide = 1,091 (2,200 - 1,109; 50% of total req.)

Comment: Of the 1,109 dwellings with a current planning permission, 447 (20% of the total requirement) lie within the identified towns and 662 (30%) lie within the other smaller settlements. The LDF will therefore need to provide for an additional 1,091 dwellings to 2016. Due to the large amount of existing commitments the smaller settlements will provide at least 30% of the requirement. This proportion is high and does not fit comfortably with the Core Strategy (JSP). However, the large proportion of dwellings to be provided (1,091) does offer some scope to influence the balance and ensure that development can be directed to Driffield, Market Weighton and Pocklington as required in the Core Strategy (JSP). The following scenario is proposed:

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Settlement Dwellings with planning Proposed share of requirement and consideration of the need Hierarchy permission and for new housing allocations or de-allocation of existing sites. percentage of total requirement to 2016 Towns Driffield 268 dwellings (12%) The Core Strategy (JSP) recognises that Driffield has a prominent role as the largest town within the northern sub area. One scenario would be for Driffield to provide for 25-30% of the total requirement. Taking into account those sites already with a planning consent, further land (to accommodate 282-392 dwellings) would be required to meet this provision. Driffield presently has excess land allocated without planning permission to accommodate this requirement and there would be a need to reconsider and de-allocate a small number of sites. Market 94 dwellings (4%) One scenario would be for Market Weighton to provide 15-20% Weighton of the total housing requirement. Land would be required to accommodate a further 236-346 dwellings. Market Weighton presently has excess land allocated without planning permission to accommodate this requirement and there would be need to reconsider and de-allocate a small number of sites. Pocklington 85 dwellings (4%) Alongside Market Weighton, Pocklington could provide 15-20% of the total housing requirement. Land would be required to accommodate a further 245-355 dwellings. Pocklington does not have sufficient land allocated to accommodate this additional requirement and further allocations would need to be considered. Other 662 dwellings (30%) An extremely high proportion is already committed in the settlements non-identified settlements. The Core Strategy (JSP) states that limited development may be acceptable in these settlements where it meets local needs and supports existing services and facilities, although it is not expected that the proportion to be accommodated in these settlements will rise significantly. Substantial uncommitted capacity exists in these settlements and many allocated sites will need to be reconsidered and de-allocated.

Question H2: We would welcome your views on the distribution of housing in the northern sub-area. Taking into account the number of dwellings already with a planning consent, do you consider the suggested balance of provision between Driffield, Market Weighton, Pocklington and the smaller settlements to be right? If not what would be appropriate alternative?

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Western Sub Area

Total dwelling requirement: 2005 - 2016 = 2,750

Dwellings already with planning permission = 575 (21% of total requirement)

Residual dwellings to be provided = 2,175 (2,750 - 575; 79% of total req.)

Comment: Significant scope exists within the western sub area to influence the future balance of residential development in accordance with the Core Strategy (JSP). This is because Goole, Howden and Snaith have an extremely low number of dwellings with an existing planning permission. In total only 575 dwellings have a current planning permission, meaning that the LDF will need to provide for a further 2,175 dwellings to 2016. The following scenario is proposed:

Settlement Dwellings with planning Proposed share of requirement and consideration of the need Hierarchy permission and for new housing allocations or de-allocation of existing sites. percentage of total requirement to 2016 Principal Town Goole 99 dwellings (4%) As the Principal Town within the sub area Goole should be the focus for most new housing development. One scenario would be for Goole to accommodate 40-50% of the total requirement. Taking into account those sites already with a planning consent, further land (to accommodate 1,001-1,276 dwellings) would be required to meet this provision. Goole does not have sufficient land to accommodate this additional requirement and further allocations would need to be considered. Towns Howden 62 dwellings (2%) One scenario would be for Howden to provide 15-20% of the total housing requirement. Land would be required to accommodate a further 351 - 488 dwellings. Howden presently has excess land allocated without planning permission to accommodate this requirement and there would be a need to reconsider and de-allocate a small number of sites. Snaith 65 dwellings (2%) Alongside Howden, Snaith could provide 15-20% of the total housing requirement. Land would be required to accommodate a further 348-485 dwellings. Snaith does not have any allocated land to accommodate this additional requirement and further allocations would need to be considered.

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Settlement Dwellings with planning Proposed share of requirement and consideration of the need Hierarchy permission and for new housing allocations or de-allocation of existing sites. percentage of total requirement to 2016 Other 349 dwellings (13%) A modest proportion is already committed in the non-identified settlements settlements. The Core Strategy (JSP) states that limited development may be acceptable in these settlements where it meets local needs and supports existing services and facilities, although it is not expected that the proportion to be accommodated in these settlements will rise significantly. Substantial uncommitted capacity exists in these settlements and many allocated sites will need to be reconsidered and de-allocated.

Question H3: We would welcome your views on the distribution of housing in the western sub-area. Taking into account the number of dwellings already with a planning consent, do you consider the suggested balance of provision between Goole, Howden, Snaith and the other settlements to be right? If not what would be an appropriate alternative?

Central Sub Area

Total dwelling requirement: 2005 - 2016 = 4,450

Dwellings already with planning permission = 2,222 (50% of total requirement)

Residual dwellings to be provided = 2,228 (4,450 - 2,222; 50% of total req.)

Comment: The central sub area includes both the City of Hull and a large portion of the East Riding. The above figures relate to the East Riding requirement only. The Core Strategy (JSP) identifies that Hull should provide 950 dwellings in 2005 rising to 1,200 dwellings per year in 2010 (12,450 dwellings in total).

Significant scope exists within the East Riding portion of the central sub area to influence the future balance of residential development in accordance with the Core Strategy (JSP). With the exception of Elloughton (882 dwellings), all the settlements within the central sub area have a small number of dwellings already committed. The LDF will need to provide for an additional 2,222 dwellings to 2016. A key consideration in the central sub area is the provision to be directed to the East Riding settlements of Anlaby, Willerby, Kirkella, Cottingham and Hessle to add to the 75% of the total central sub area provision already directed to the City of Hull. The following scenario is proposed:

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Settlement Dwellings with planning Proposed share of requirement and consideration of the need Hierarchy permission and for new housing allocations or de-allocation of existing sites. percentage of total requirement to 2016 Sub-Regional Urban Area Anlaby, 245 dwellings (6%) Hull together with Anlaby, Willerby, Kirkella, Cottingham and Willerby, Hessle make up the Sub-Regional Urban Area. The Core Strategy Kirkella, (JSP) states that this area should be the focal point for housing and Cottingham, other activities. The Core Strategy allocates 68% of the total central Hessle area provision to Hull in 2005, rising to 75% by 2010. In order to ensure that the Sub-Regional Urban Area remains the focus for development Anlaby, Willerby, Kirkella, Cottingham and Hessle could provide 10-20% of the total East Riding requirement. This would take the overall provision of the Sub-Regional Urban Area in the central sub area to 76-79% by 2010. Taking into account those sites already with a planning consent further land would be required (to accommodate 200-645 dwellings) to meet this provision. Anlaby, Willerby, Kirkella, Cottingham and Hessle do not have sufficient land allocated without planning permission to accommodate this requirement and further allocations would need to be considered. Principal Town Beverley 204 dwellings (5%) As the Principal Town it is suggested that Beverley could provide for 25-35% of the total East Riding requirement. Land would be required to accommodate a further 909 - 1,558 dwellings. Beverley does not have enough allocated land to accommodate this additional requirement and further allocations would need to be considered. Towns Elloughton 882 dwellings (20%) 20% of the total East Riding requirement is already committed in Elloughton. It is suggested that no further large housing allocations should be provided in this settlement. Hedon 315 dwellings (7%) One scenario would be for Hedon to provide 10-20% of the total East Riding requirement. Land would be required to accommodate a further 130-575 dwellings. Hedon does not have sufficient allocated land to accommodate this requirement and further allocations would need to be considered. Other 577 dwellings (13%) A modest proportion is already committed in the non-identified settlements settlements. The Core Strategy (JSP) states that limited development may be acceptable in these settlements where it meets local needs

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Settlement Dwellings with planning Proposed share of requirement and consideration of the need Hierarchy permission and for new housing allocations or de-allocation of existing sites. percentage of total requirement to 2016 and supports existing services and facilities, although it is not expected that the proportion to be accommodated in these settlements will rise significantly. Substantial uncommitted capacity exists in these settlements and many allocated sites will need to be reconsidered and de-allocated.

Question H4: We would welcome your views on the distribution of housing in the central sub-area. What proportion of the overall central sub area requirement should be directed to the Sub-Regional Urban Area?

Question H5: Taking into account the number of dwellings already with a planning consent do you consider the balance of provision between Beverley, Elloughton-cum-Brough, Hedon and the other smaller settlements to be right? If not what would be an appropriate alternative?

3.3 Issue 2: Housing in the smaller In addition to providing a sufficient number of housing settlements (Rural Service Centres) allocations to meet the above housing requirements for each sub area, it is necessary to consider whether or not Although the Core Strategy (JSP) directs most a flexibility allowance is required to compensate for any development to those settlements identified in the unforeseen difficulties in the availability of some sites. settlement hierarchy it is recognised that limited development may be supported in smaller settlements It is important that any flexibility does not detract from when it meets an identified local need and supports the aims and objectives of the Core Strategy (JSP) and existing services and facilities (for example, schools, in particular the priorities for action and regeneration doctors, shops, etc). (Please note that the identification for each of the sub areas and consolidating development of Rural Service Centres (if any) is considered in the to a limited range of settlements in the East Riding. If Smaller Settlements section). a 5% flexibility allowance was implemented in each sub area the implications would be that a further 110 It is important that the level of development in the dwellings would need to be provided for in both the smaller settlements is not excessive to the extent that it eastern and northern sub areas, 138 dwellings in the results in an imbalance with the proportion of western and 223 in the central. development directed to the larger settlements identified in the settlement hierarchy. The Core Strategy (JSP) Question H6: Do you consider that a flexibility makes it clear that any residential development in the allowance should be added to the number of Rural Service Centres should be largely for affordable dwellings to be provided in each sub area? If so homes, although in certain cases, small-scale market what level of flexibility should be considered? If housing development may be acceptable. It is also not what would be a suitable alternative and why? important that the principles of sustainable development are applied to considering development in smaller settlements. A settlement's 'sustainability' is assessed against a number of factors as set out in the Smaller Settlements section.

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Question H7: How should the Council consider implement its delivery in accordance with the strategy. the balance between the total amount of housing This approach could place significant pressure on the to meet local needs and support existing services Development Control Section, especially in those parts and facilities against the sustainability of the of the East Riding such as the central sub area in high settlement? demand. The housing DPD would still allocate land for housing, but this would not provide any certainty Question H8: How can the Council assess whether when a particular site could be developed. or not a development will support a local service or facility? Under the ranking approach, the Housing DPD would rank sites in a preferred order of release. Ranking would 3.4 Issue 3: Releasing housing land for identify an order (on a site by site basis or on the basis development of groups of sites) in which available sites must be released before those in the next rank can be released. A key role for the Housing DPD will be to control the Ranking on a site by site basis would be a time pattern and speed of urban growth in order to ensure consuming exercise but can send a clear signal as to that sufficient housing completions are delivered on an which sites are preferred for early development. annual basis to meet the requirements set out in the four sub areas. Such control will be exercised through Under the phasing approach the Housing DPD would 'managing the release' of housing sites in order to be divided into a number of time periods (for example control the location and type of sites that are developed three phases of 4 years) and for each phase a number and the order and timing in which they are released for of sites would be identified for achieving the housing development. requirement.

It is important that the Housing DPD sets out an Phasing allows for a full range of planning issues to be effective approach to managing the release of sites. addressed. For example, whilst previously developed Government guidance currently offers three possible land should be built on before Greenfield sites, it will approaches; be necessary to allocate some Greenfield sites in the East Riding in order to meet the housing requirements. the criteria based approach Phasing allows such Greenfield land to be brought the release of sites based on ranking and, forward (if required) without prejudice to the previously a phasing approach. developed sites.

A criteria based approach sets out criteria that will be Phasing would set out a clear but broad, indication of used by the Council to judge whether a proposal is the preferred order for the release of sites and the likely acceptable for development at the time the application timescales for their release. is made. The criteria may relate to a number of factors including location, relationship to the settlement Question H9: Which approach to managing the hierarchy and various tests of sustainability, such as release of sites do you consider is the most accessibility and the availability of previously developed appropriate for the East Riding of Yorkshire? land.

Under the criteria based approach, the Housing DPD would still allocate housing sites but the onus would be on the Development Control Section of the Council (the section that determines planning applications) to

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3.5 Issue 4: Creating mixed communities students/young people, rough sleepers, the homeless and those who need hostel accommodation, key workers Influencing the type and size of housing such as teachers, travellers and occupiers of mobile homes and houseboats. A balanced mix of dwelling types and sizes is essential to enable local people to have a dwelling that meets Question H11: Are there any other specialist forms their needs without having to leave the area and in of housing that should be given special creating communities that have different types of consideration through the Housing DPD? households. The Housing DPD will need to take full account of housing need across the East Riding and The Council is concerned that in granting planning provide for a variety of housing opportunities to meets permission for a dwelling to meet a local need, it can these needs. To do this, the Housing DPD will need ensure that when that dwelling is first occupied or to influence (possibly through a criteria based policy subsequently sold, it is by/to a person who is in need that will enable the Council to be prescriptive at the of a house in the settlement. time an application is submitted) the types and sizes of dwelling to be provided in new schemes (for example In considering a proposal for a dwelling that meets an by requiring a greater number of two-bed properties if identified local need, the Council believes it is crucial there is a particular need in the settlement). to ensure that the property is secured for local needs in the future. Therefore, it is proposed that local needs The ability of the Council to fully reflect the range of housing should only be allowed where the dwelling is needs for different types, sizes and tenure of housing secured in perpetuity with a Registered Social Landlord. lies in the Housing Needs Survey. The latest Housing This will ensure that in the event of the original and Needs Survey for the East Riding was undertaken in each subsequent occupant moving house, the dwelling 2001/02 and found that whilst there is a high level of will be sold to another resident in housing need. The owner occupation in the East Riding there is a particular alternative is for the Council to allow the dwelling to demand for one, two and three-bed properties. The be sold on the open market and continue to allow new Council is examining whether or not the information dwellings to be built to meet local needs. contained within the survey provides the robust evidence needed to inform the Housing DPD. If it Question H12: Do you agree with the Council's doesn't it is likely that the Council will need to consider proposed approach to the consideration of local commissioning a new survey. needs housing? Are there any other approaches that should be considered? Question H10: Government advice expects developments to include a mix of house types. Are One specific group to be considered through the they any circumstances when such a mix should Housing DPD is that of gypsies and travellers. The not be required? Government has recently consulted on draft guidance on planning for gypsy and traveller sites and suggests Housing Need that local planning authorities should be required to identify suitable, permanent sites in the LDF to In providing for a mixed and balanced community the accommodate such needs and develop policies for Housing DPD will also need to reflect any specialist determining future applications for sites that are not forms of housing need of the area. Housing need allocated. encompasses a wide range of types including affordable housing (see below) and housing to meet the needs of The Council (under the Gypsy and Traveller Support specific groups such as the elderly, disabled, Services Project) is presently examining the provision of gypsy and traveller sites within the East Riding and

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is concentrating on improving the provision of transit Government guidance presently advises that affordable sites. The provision of additional permanent sites is housing should be considered on developments of 25 being regarded as a second phase of the project and is or more dwellings or sites of 1ha or more. A lower to be considered through the Housing DPD. threshold may be acceptable if it can be demonstrated that there are exceptional local constraints but the Question H13: The Council would welcome your threshold should not fall below 15 dwellings or 0.5ha. views on addressing this issue and an approach for In settlements in rural areas with a population of 3,000 identifying sites for gypsies and travellers. or fewer Government guidance permits the Council to adopt lower thresholds where it is justified to do so. Affordable Housing Question H15: Are there any circumstances where Whilst much of the housing need can be met through these thresholds should be reduced? the open market, some residents will be unable to afford to meet their housing needs through the private housing Government advice suggests that local planning market and require assistance through the provision of authorities should consider allocating sites for wholly alternative, 'affordable housing'. It is important that the affordable housing in rural areas. Such sites should be Housing DPD delivers sufficient affordable housing to within or adjoining settlements, with the level of housing meet local needs where a lack of such housing exists. provided determined by the overall need for affordable housing in the settlement and the settlement's The Council's current approach to accommodating the sustainability. need for affordable housing is through the provision of subsidised housing for rent managed by a registered Question H16: Do you think that sites should be social landlord (Housing Association). However, the allocated for wholly affordable housing in rural Government states that affordable housing should settlements? include both low-cost market and subsidised housing. 3.6 Issue 5: Density Question H14: How can the occupancy and cost of an affordable dwelling best be controlled so they Developing at higher densities can play an important are available only for those in need of such housing? role in helping to sustain local services such as public transport, shops and health/education facilities. It will The current level of need for affordable housing is also help to reduce the amount of land that is required derived through the Housing Needs Survey which has to meet the overall housing requirement. New identified that there is a lack of both affordable housing development should avoid making the inefficient use in the private sector and suitable housing in the social of land and a minimum target of 30 dwellings per housing sector within the East Riding. The level of this hectare (dph) has been set nationally. In some areas need is likely to grow in the future as house prices where a site has good access to services and facilities continue to outpace rises in income. development at higher densities (for example between 30 - 50 dph and above in highly accessible areas) should At present the four Local Plans that cover the East be encouraged. Riding have significantly different thresholds for the requirement of affordable housing. The Beverley The Housing DPD will need to provide guidance on Borough Local Plan for example has the highest the density of new developments across the East threshold and only requires affordable housing on Riding. Presently, the Council is aiming to achieve the windfall sites above 2ha. A key role for the Housing minimum density of 30 dph on all sites and in DPD is to establish a new, consistent threshold at which the provision of affordable housing will be required.

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appropriate circumstances supporting proposals for higher densities in the Principal Towns of Beverley, Bridlington and Goole and many of the Towns.

The Council is concerned that this approach is rather simplistic and doesn't fully reflect the different circumstances across the East Riding (for example, is it appropriate to have the same minimum density in a small rural village as a Principal Town?). An alternative approach is set out in the Council's Strategic Urban Potential Study which establishes a set of density targets for a number of settlements. Each of the settlements identified has been divided up into five zones based on walking distances (up to 800 metres) to the rail stations, bus stations, defined shopping centres and major bus routes. Density targets ranging from 30-75 dph have been established, based on the ease of access to each of these features, with higher density housing being promoted in locations with access to all four features.

Question H17: Should a minimum density be applied to all new development sites across the East Riding or should a tiered approach be developed that sets different minimum standards depending upon the location of the site?

Question H18: Are there any circumstances under which the Council should consider permitted residential development below 30 dwellings per hectare?

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4 Employment 20% of all VAT registered businesses in the East Riding are in agriculture and related sectors, although the number of such businesses fell by 40% between The Employment Development Plan Document 1997-2003. It is perhaps not surprising that the East will: Riding has a high percentage of firms employing 1-10 people and very few businesses employing over 200 Provide for sustainable business and people. employment needs, including the provision of sufficient employment land to The East Riding retains a high reliance on more accommodate a range of sizes and type of traditional industries such as agriculture and employment uses. manufacturing. Whilst agriculture is a relatively strong sector in the East Riding economy, it is not employee Support the rural economy and facilitate the intensive (employing 4% of the working population). diversification of the agricultural industry. The East Riding has a high proportion of employees in the public administration; education and health sector 4.1 Background: The East Riding Economy (34%) but is significantly under-represented in the banking, finance and insurance sectors. The measure of productivity in a particular economy The East Riding is covered by four different travel to can be gauged through an examination of the Gross work areas (TTWA's). TTWA's are defined zones where Value Added (GVA) figures. GVA in 2002 in the East the majority of the resident population also work. They Riding of Yorkshire was £3423m (£10,757 per head) reflect existing commuter patterns and include Hull, compared to an average of £15,614 per head for the Goole/Selby, York and Bridlington/Driffield. UK. This represented the lowest GVA per capita of any of the Humber authorities and was below the Efforts to promote and secure the long-term economic regional and national averages (just over two-thirds of well being of the East Riding economy are reflected the UK average). through a variety of existing and emerging plans, strategies and frameworks. These include the Regional Despite having a relatively weak economy the East Economic Strategy (incorporating the concept of the Riding is characterised by a high employment rate and Humber Trade Zone) and the Northern Way at the a relatively low unemployment level. Unemployment regional level and the draft East Riding of Yorkshire levels tend to fluctuate over the course of the year with Rural Strategy, East Riding Economic Development lower levels during the summer months due to increased Strategy and the East Riding Community Plan at the employment in the tourism and food production local level. The Employment DPD will need to reflect sectors. Highest unemployment rates are in South East these documents when considering new policies and Holderness (including Withernsea), Bridlington and land use allocations. Goole. In total the East Riding has 148,000 employed residents but only 135,000 jobs in its area. This means In accordance with many of the above strategies, the that the East Riding is a net exporter of labour. Core Strategy (JSP) identifies that there are many strengths to build upon and opportunities to diversify The East Riding has a relatively high number of the economic base of the East Riding by encouraging, businesses per 10,000 people, especially in comparison for example, the development of port related activities to the other Humber authorities. Rural areas tend to and manufacturing/distribution uses, chemicals and have a greater business stock than urban areas reflecting the number of agricultural businesses and small businesses in rural areas. This is shown by the fact that

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health, information and communication (ICT), the food The T owns identified in the Core Strategy (JSP) are and tourism sectors and by encouraging agricultural also important providers of local employment diversification. opportunities and provide a smaller focus for employment and enterprise. Driffield, Pocklington and 4.2 Issue 1: Focus for new development Howden for example, all provide a substantial range of employment opportunities for their surrounding area. The settlement hierarchy of the Core Strategy (JSP) reinforces national and regional planning guidance that The Core Strategy (JSP) identifies that any further places importance on concentrating economic activity employment development in the Sub-Regional Urban in existing urban areas. The S ub-Regional Urban Area Area, Principal Towns and Towns should be in keeping including the East Riding settlements of Anlaby, with the role and function of the settlement(s). Table Willerby, Kirkella, Cottingham and Hessle should 1 below summarises the amount of existing vacant provide the focus for most employment development. allocated employment land in these settlements and The strategy then identifies that the P rincipal Towns highlights any potential shortfalls or areas of excess of Bridlington, Goole and Beverley, which already have provision. large concentrations of employment activity and account for around a third of all jobs in the East Riding, should Question E1: The Council would appreciate your continue to function as significant employment centres. views on the future allocation of employment land in the Sub-Regional Urban Area, Principal Towns and Towns as set out in table 1.

Table 1: Focus for new development

Settlement Remaining land allocated for employment purposes and possible implications for future hierarchy provision Sub-Regional Anlaby, Willerby, Over 3ha of allocated employment land remains at De La Pole in Urban Area Kirkella, Cottingham, Cottingham (although this is presently under development) and less Hessle than 3ha remains at Hessle. A further 19ha is allocated at the foot of the Humber Bridge and whilst this allocation does not lie within the Sub-Regional Urban Area, it will, if developed, contribute towards the Sub-Regional Urban Areas employment development requirements. No vacant allocated sites remain at Anlaby, Willerby or Kirkella.

The City of Hull contains over 56ha of allocated employment land and a further 86ha that has a current planning consent. Taking into account the existing supply in the City of Hull should additional land be allocated at Anlaby, Willerby, Kirkella, Cottingham and Hessle?

Principal Beverley Less than 3ha of land remains allocated on three sites. Is this likely Towns to be sufficient over the lifetime of the plan (to 2016)?

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Settlement Remaining land allocated for employment purposes and possible implications for future hierarchy provision Bridlington Less than 2ha remains allocated on two sites at Bessingby Way and Pinfold Lane. In addition over 70ha remains allocated at Carnaby industrial estate. The future role (if any) of Carnaby will need to be considered in accommodating some of Bridlington's future employment activity. Do you consider that further employment land is required in the town and to what extend should the employment needs of Bridlington be provided for on Carnaby Industrial Estate? Goole Despite the construction of the new float glass-manufacturing plant, over 80ha remains allocated on a variety of sites. Is this likely to be sufficient over the lifetime of the plan. Towns Driffield Just under 10ha remains allocated in two locations; Skerne Road and Kelleythorpe (although considerable development is presently taking place at Kelleythorpe). Is further employment land required to serve the needs of Driffield to 2016? If so should it be directed to Driffield, to the nearby Kelleythorpe Industrial Estate or both? Elloughton-cum-Brough 50ha remains allocated on one large site. Is this allocation too large to serve the future requirements of Elloughton-cum-Brough to 2016? Hedon Just over 5ha remains allocated on one site to the west of the town. Taking into account the fact that there is further vacant allocated land in close proximity at Salt End and on Hedon Road, Hull, is there a need to consider further allocations in the town? Hornsea Under 4ha remains allocated on three separate sites. Is further employment land required to serve the needs of Hornsea to 2016? Howden Over 13ha remains allocated on one site to the north of the A614. Is this likely to be sufficient over the lifetime of the plan? Market Weighton Over 12ha remains allocated on two sites at York Road. Is this likely to be sufficient over the lifetime of the plan? Pocklington Over 40ha remains allocated at the Pocklington airfield. Is this allocation too large to serve the future requirements of Pocklington to 2016? Snaith Just under 1ha remains allocated on Gowdall Lane. Is further employment land required to serve the needs of Snaith to 2016? Withernsea Just over 2ha remain allocated at the Beacon Industrial Estate on Hull Road. Is this likely to be sufficient over the lifetime of the plan?

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Whilst the Core Strategy (JSP) directs the majority of Question E2: Goole (Junction 36), employment development to the Sub-Regional Urban and Melton have been identified in the Core Area, Principal Town and Towns, there are some uses Strategy (JSP) as locations to take advantage of the that are not generally appropriate within urban areas. unique multi-model transport links. Are there any Storage and distribution uses for example tend to use further sites that should be allocated in the large areas of land, generate significant traffic movement Employment DPD? and generally involve low levels of employment whilst major manufacturing uses tend to generate large freight The Core Strategy identifies a further strategic movements. In these instances, the regional spatial employment site to the west of Hessle at the foot of the strategy and the Core Strategy (JSP) promote the Humber Bridge. The site has been identified for major development of such uses in locations with employment developments that would take advantage multi-modal freight transport infrastructure. of its prestigious location such as those with a national or international choice of location designed to meet the The East Riding, having rail, water (including the port needs of high-tech products and processes and service of Goole and various wharves) and highway links, is in sector growth. A planning application has been a good position to take advantage of multi-modal submitted for the site and is currently under transport. The Humber estuary and ports have been consideration by the Council. highlighted through various strategies as major opportunities and the Humber Trade Zone has been 4.3 Issue 2: Smaller settlements, farm established to, amongst other things, increase their diversification and the countryside potential. Whilst the majority of development will be directed to The Humber Estuary and port of Goole, together with the Sub-Regional Urban Area, Principal Towns, Towns the Aire and Calder Navigation, Rivers Aire and Ouse, and the strategic sites with multi-model transport links, M62 and the east-west train line have contributed to the Employment DPD will need to include policies the identification of an east-west multi-modal freight which can support the development of the rural transport corridor in the regional spatial strategy. This economy and the diversification of the farming industry. corridor is promoted further through the Core Strategy (JSP) which identifies three sites in the East Riding that One way in which the DPD can support the provide direct access to the corridor. These are at Goole development of the rural economy is through the (Junction 36), Hedon Haven and Melton and are allocation of sites in some of the East Riding's smaller identified as strategic employment sites. settlements for future employment development. The Core Strategy (JSP) highlights the balance that needs to A key role for the Employment DPD will be to promote be struck between the conservation and protection of and develop the east-west corridor for businesses that the countryside and the promotion of a viable rural can use these unique transport opportunities. In economy. It states that development in rural areas particular, the DPD will need to allocate and safeguard should be focused on providing local employment the three strategic sites for end-users that require access opportunities and maintaining or enhancing the vitality to the corridor, for example in the case of Hedon and viability of the local area. It should also enable rural Haven, a use that requires deep-water facilities. It is businesses to become more competitive and adapt to important that these sites are not viewed as alternatives changing markets. In particular it states that the scale to developing within the settlement hierarchy. of development should not result in significant levels of commuting or traffic generation.

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Question E3: Should employment development in Question E6: Are there any further considerations and around the smaller settlements be encouraged? that should be taken into account in developing a If yes, what type and size of developments should policy for farm diversification proposals? be allowed? Question E7: Are there any particular types of farm Question E4: Should land be allocated in the diversification that are not appropriate in the smaller settlements specifically for employment countryside and should not be allowed? If so why? development? The introduction to this section highlighted that there Question E5: Are there any specific smaller are many existing businesses currently operating in the settlements that require employment sites to be countryside. Businesses often choose such locations allocated? due to the pleasant environment and the availability of relatively cheaper premises in comparison with built-up Farmers are increasingly looking to diversify beyond areas. Such businesses are often, but not exclusively, agriculture to supplement their incomes through providing services to the agricultural sector, whilst others activities such as holiday accommodation, bed and may for example manufacture non-agricultural related breakfast, tourism developments, sport and recreational products (such as windows and furniture) and specialise activities, nature trails, farm shops, equestrian businesses in vehicle repairs. and industrial/storage accommodation. Farm diversification is advantageous in that it helps to Initially businesses in the countryside tend to operate diversify the rural economy and provides valuable local from existing rural buildings and are of a scale that is employment opportunities. However, such proposals accepted within a countryside environment. Many may be in relatively isolated locations and are not always businesses tend to remain at this scale. However, a key accessible by public transport and may lead to problems issue arises when such businesses wish to expand their of excessive traffic generation. operations and the Employment DPD will need to consider balancing their expansion and growth against Government and regional guidance recognises that the accessibility and sustainability of the location (for diversification into non-agricultural activities is vital to example is it appropriate to allow a business to develop the continuing viability of many farm enterprises and where a sizeable workforce is dependent upon the car states that local planning authorities must set out in their to get to work?) and the need to protect the character LDF the criteria that should be considered when and appearance of the countryside. determining future planning applications for farm diversification schemes. The guidance states that One possible scenario could be to only allow businesses schemes should help to sustain the farm holding, be to expand where the size of the expansion is below a consistent in scale to the rural location, not result in certain percentage of the current size of the existing excessive expansion and encroachment of new buildings building(s). Another could be to only allow those into the countryside (by using existing buildings businesses that require a countryside location to expand wherever possible) and be considerate to the amenity and direct other businesses to relocate to a purpose built of nearby residents. Other considerations may include site on a nearby industrial estate. any loss of the best and most versatile agricultural land, traffic generation and suitability of existing access and Question E8: Under what circumstances should approach roads. the Council support the expansion and growth of businesses in the open countryside? Should any restriction be imposed on the size and scale of the proposed expansion?

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Question E9: Is there any particular type of considered), Holme upon Spalding Moor (almost 12ha employment activity that should be allowed to of which 10ha lies at the former airfield), Hutton expand in the countryside? Is there any particular Cranswick and Newport (almost 10ha) and type of employment activity that should not be Brandesburton and Full Sutton (over 6ha). allowed to expand in the countryside? It should also be noted that a potentially excessive 4.4 Issue 3: Reviewing existing employment supply of allocated employment land remains in some land allocations of the settlements identified in the settlement hierarchy (as illustrated in table 1) and de-allocation will also need It is important that the supply of employment land to be contemplated in these settlements. In other allocated in the Employment DPD is sufficient and settlements, new allocations may need be proposed to includes an adequate range of sites to satisfy future ensure that the settlement fulfils its role in the development needs in the East Riding to 2016. development strategy.

The Council's latest monitoring records identify that as Question E10: The Employment DPD will need at July 2004 over 570ha of land was allocated for to provide for a range of employment opportunities employment uses and still available for development in the settlements identified in the Core Strategy across the East Riding (of which 250ha fell within the (JSP) and in the strategic locations identified as four strategic sites identified in the Core Strategy (JSP)). having suitable multi model opportunities. Are Taking into account the speed at which allocated there any other factors that should be taken into employment land is usually developed in the East account when considering the de-allocation of Riding, it is estimated that there is sufficient land existing employment allocations? allocated to last for the next 30 - 35 years. Question E11: The East Riding currently has a This would suggest that there is more than an adequate supply of allocated and available employment land supply of allocated employment land in the East Riding, to last 30-35 years. How far should this supply be meaning that the Employment DPD will need to review reduced taking into account the need to maintain the existing allocations and examine the possibility of a sufficient range of sites to 2016? de-allocating sites where they no longer conform with the Core Strategy (JSP). The benefits of reducing the 4.5 Issue 4: Reuse of employment land for supply are that it will provide greater certainty to alternative uses. developers as to which sites are suitable for development and enable a more focused approach to funding any Many existing employment areas across the East Riding, necessary land preparation works. especially those in built up areas and near to existing residential development are coming under pressure for The amount of allocated land that may need to be alternative uses, particularly for new housing. In the considered for de-allocation can be gauged by examining larger settlements there may be a range of alternative the number of sites that presently lay outside the employment sites that provide further employment settlements identified in the Core Strategy (JSP) or the opportunities, but in some of the East Riding's smaller four strategic employment locations. Monitoring records settlements the redevelopment of a site may result in indicate that just over a quarter of the allocated the loss of the only employment source in the village employment land lies outside these areas. The sites and have a detrimental effect upon the vitality and included within this category include Carnaby (70ha - viability of the settlement. although the role of Carnaby in supporting the future employment needs of Bridlington needs to be

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The Government published guidance on this issue earlier this year which generally supports proposals for housing or mixed-use developments on land allocated for employment use provided that there is no longer a need for the employment use. At the same time, the Government also advises that local planning authorities should provide a balanced mix of uses in settlements where residents have access to a range of facilities including employment opportunities.

Question E12: Under what circumstances should the Council restrict the redevelopment of employment land for alternative uses? Should such land be safeguarded in the Employment DPD for employment use only?

Question E13: How should the Council judge when a site is no longer needed for employment use?

Question E14: Are there any existing employment areas in the East Riding that should be considered for alternative uses or be safeguarded from redevelopment?

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5 Generic development control Once complete LDF policies will consist broadly of; policies Strategic policies set out in the Core Strategy (JSP). The Joint Structure Plan (JSP) will act as the Core Strategy (JSP). The Generic Development Control Development Plan Document (DPD), will set out key development control policies for use Policies developed in individual Development Plan in day-to-day decision making on planning Documents (DPDs). This includes the Generic applications. This Issues and Options DC Policies DPD to which this section relates, consultation paper seeks your views on the and other topic based DPDs prepared in topics that are best covered by general accordance with the programme set out in the (generic) criteria based policies. Local Development Scheme (LDS).

Provisions contained in other Local Development 5.1 Background Documents (LDDs) such as Supplementary Planning Documents (SPDs), that address, specific The Local Development Framework (LDF) provides issues or topics in detail. an opportunity to establish a new and updated policy framework for use in the determination of planning applications across the East Riding. It will incorporate 5.3 Generic development control policies the latest national and regional planning guidance and ensure policies are in conformity with the strategic policy The policies in the four existing local plans have framework and vision for the area as set out in the Core generally served the East Riding well, providing the Strategy (JSP). policy basis for decisions on planning applications and appeals, but they are now in need of review through the This policy framework will replace a large number of LDF process. policies (over 300) in the existing four local plans, (for the Beverley, Boothferry, East Yorkshire and Holderness Some of these policies contain general considerations areas). The LDF provides an opportunity to rationalise that are common in assessing many different forms of this situation and to provide for a more consistent policy development proposal (e.g. highway safety, residential base than currently exists. amenity). Due to their widespread application these considerations have in the past often been repeated in 5.2 Local development framework (LDF) a number of different policies. The Generic DC Policies format DPD provides an opportunity to improve this situation by creating a set of general (generic), criteria based, Initially, all existing local plan policies have been 'saved' policies that are relevant to most forms of development. under the Local Development Scheme (LDS), the Repetition of common considerations in individual project plan for the LDF. As such they will continue to policies will be avoided if they are set out in a limited provide the basis for determining planning applications suite of generic policies that apply to all development until they are replaced by new policies in the LDF. proposals throughout the area.

The Generic DC Policies DPD will cover those issues of a general nature that are not to be dealt with in individual topic based DPDs. The Council has produced

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a draft information note to illustrate which of the as highways and drainage. It has also required certain existing Local Plan policies will be reviewed through housing developments to include outdoor playing space the various DPDs. Your comments on this draft paper and affordable housing. However, there is often particularly if you believe that a policy would be better widespread public perception that local services and considered through a different DPD would be facilities are inadequate to cope with further welcomed by 9th September 2005. This will enable development. existing policy topics to be reviewed and any gaps in coverage to be identified. Question G2: Are there any types of 'infrastructure' that you think development should provide or The following issues could be addressed by generic contribute to? criteria based policies; Modern Transport Systems Topic Areas Coverage Highway and Sustainable Transport, Parking, Sense of Place Transport Transport Assessments, Travel Development Overlooking, Landscaping, Matters Plans. Standards Noise, Infrastructure, Street Pattern Accessibility Accessibility to Public and Safety Transport, Disabled Provision, Protecting Piecemeal Development, Highway Safety. Residential Density, Amenity Space, Amenity Development in Gardens, Planning Obligations Major developments can have significant transportation implications that can only be fully assessed by the Sustainable Secure by Design, Massing, completion of a 'Transport Assessment' that examines Design Form, Layout, Visual Impact, the potential wider impact of the development on the Principles Safe Pedestrian Movement, highway network. These assessments will need to Crime Reduction, Views. address issues such as the traffic generated by the development, its modal split and parking arrangements. New development can be influential in helping to create The Generic DC Policies DPD will set out the scale distinctive, attractive and vibrant communities. To and nature of developments that will require a Transport achieve this they must be 'well planned', with Assessment and the types of issues that it should consideration given to the amenity enjoyed by residents, address. securing good design and the standards of development that help create places where people want to live. Question G3: Are there any particular types of development you think should undertake a Question G1: Are there any particular issues you Transport Assessment? consider should be given priority or are important in ensuring good standards of development in our Councils are expected to deliver sustainable transport local communities? objectives, including reductions in car usage and increased use of public transport, walking and cycling. The Council is able to require developers to provide These are set out in its Local Transport Plan. certain 'infrastructure' as part of developments provided Development that would generate significant amounts that the development would otherwise be unacceptable. of travel will be expected to submit 'Travel Plans' that The Council has traditionally required developers to will set out how that development will contribute to the undertake works, where necessary, to such infrastructure various targets set out the Local Transport Plan.

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Question G4: Are there any particular types of development you think should undertake a Travel Plan?

High Quality Environment

Protecting the Surface and Foul Water Environment Disposal, Control of Contaminated Land, Pollution, Flood Protection,Flood Risk, Minimal Consultation Zones Advertisement Control, Proximity to Waste Water Treatment Works, Ground Water Quality

Safeguarding, protection and generally recognising the value of environmental and natural resources can contribute to creating a high quality environment. Some of the issues involved lend themselves to consideration in generic policies. These include contaminated land, water quality, flood protection, foul and surface water issues and others concerning for example the protection of residents from development near to Waste Water Treatment Works.

Question G5: Are there any specific 'environmental quality' issues that you consider to be important in the planning of new development?

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6 Sustainability Appraisal 6.2 What has been done so far and what are the existing 'constraints'? 6.1 What is it and why do it? Sustainability Appraisal was undertaken as part of the Sustainability appraisal is as a systematic and repetitive preparation of the Core Strategy (JSP) (Sustainability process that appraises the social, environmental and Appraisal for the Joint Structure Plan for Hull and the economic effects of the strategy and policies of each East Riding, January 2003), which will act as the Core document, from its outset. It is undertaken so that Strategy for the Local Development Framework (until decisions can be made that seek to ensure that a new Core Strategy is prepared after revised Regional development brings 'sustainable development', i.e. a Spatial Strategy is issued by the Secretary of State). This better quality of life for everyone, both now and future Sustainability Appraisal identified some of the key generations. sustainability issues affecting the East Riding and the findings will be incorporated into the appraisal of each The Government's sustainable development strategy (A Local Development Document (LDD). More detailed Better Quality of Life, a Strategy for Sustainable issues will need to be defined for each LDD as they Development in the UK) sets the following four aims: emerge.

i. social progress which recognises the needs of However, the Core Strategy has already defined some everyone; of the spatial choices the Local Development Documents will have to make and these will not be ii. effective protection of the environment; re-visited. For example, it has defined various sub areas for the East Riding (with their priorities for action and iii. the prudent use of natural resources; and rationale), the higher levels of the settlement hierarchy, strategic employment locations and housing provision iv. maintenance of high and stable levels of economic figures. growth and employment. Other plans and programmes will also influence the preparation of each Local Development Document. The Council is required to undertake a 'Sustainability For instance, Local Development Documents will have Appraisal' of Local Development Documents to ensure to conform generally to existing 'higher' planning policy that they are prepared with a view to achieving (e.g. national and regional planning policy set out in sustainable development. Planning Policy Guidance/Statements and the Regional The Council must also comply with European Union Spatial Strategy) and may be affected by other legislation Directive on Strategic Environmental Assessment (e.g. on Health and Safety). The Sustainability Appraisal (Directive 2001/42/EC) in preparing all its local will also need to identify and review other relevant development documents. This Directive requires formal policies, plans and programmes and consider the strategic environmental assessment of plans and principles of precedence where there is any conflict programmes that are likely to have significant effects between them. on the environment. The Sustainability Appraisal will incorporate the Strategic Environmental Assessment Directive's requirements.

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6.3 What are the next steps?

This 'Issues and Options Consultation' stage is neutral on the alternatives to be followed in each Local Development Document. The preferred option(s) to be followed will be considered later in their preparation following continuous consultation with stakeholders.

The Council will be appointing consultants to determine the scope of the Sustainability Appraisal, bearing in mind the Sustainability Appraisal already done on the JSP. Once the scope has been determined, it will be necessary to establish the 'baseline' position so that the key issues the Sustainability Appraisal will need to address can be identified. The adequacy of the Council's Base Evidence document (East Riding of Yorkshire Evidence Base July 2005) will be reviewed as part of this process.

The Sustainability Appraisal scoping exercise is an opportunity to define key issues for each Local Development Document and to develop sustainable objectives and options. The scope of the Sustainability Appraisal and the appraisal methodology and programme will be developed with key stakeholders as it emerges.

Question SA1: What Sustainable Development (social, economic and environmental) issues do you think the Council should be aware of whilst undertaking the Sustainability Appraisal/Strategic Environmental Assessment of the Local Development Framework/Local Development Documents?

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