E A S T N O R T HA MP TO NS HIR E CO UNCI L Three Towns , ,

Preferred Options

SEP T E M B E R 20 0 6 CONTENTS

Page Page

1.0 INTRODUCTION 3 Education 51 Car Parking 53 2.0 AREA PORTRAIT 8 Transport Interchange 54 Rushden Greenway and the 3.0 VISION AND OBJECTIVES 13 Green Wedge 55

4.0 GENERAL DEVELOPMENT PRINCIPLES 16 6.0 DEVELOPMENT PRINCIPLES: HIGHAM Settlement Hierarchy 16 FERRERS 56 Settlement Boundaries 16 Housing Provision 57 Plan Area Employment Approach 18 Mixed Use Development 58 Plan Area Housing Approach 19 Regeneration and Masterplan 60 Rural Area Provision 20 Education 61 Phasing 20 Housing Density 21 7.0 DEVELOPMENT PRINCIPLES: Housing Mix 22 IRTHLINGBOROUGH 62 Infilling 22 Housing Provision 63 Affordable Housing 23 Employment 66 Gypsy and Traveller Needs 31 Regeneration 67 Transport and Accessibility 31 Education 68 Residential Car Parking 32 Air Transport 33 8.0 DEVELOPMENT PRINCIPLES: Town Centres and Retail Issues 34 VILLAGE AND RURAL AREAS 69 Green Infrastructure 36 Scale and Distribution of Development 69 Flood Prevention 38 Crow Hill 70 Tourism 39 Avenue Road Area 71 Parish Plans 40 Rural Buildings 71 Local Nature Reserves 40 9.0 MONITORING 73 5.0 DEVELOPMENT PRINCIPLES: RUSHDEN 42 Housing Provision 43 10.0 WHAT COMES NEXT 74 Urban Potential 47 Employment 48 APPENDIX 1 75 Regeneration 48

This document can be made available in other languages and formats upon request. Please contact the Planning Policy team at the address on the back cover.

This document is printed on environmentally friendly paper. 2 THRE E TO W N S PL AN 1.0 INTRODUCTION The Three Towns Plan

1.1 The Three Towns Plan is a new concept. It will focus on the urban centres of Rushden, Higham Ferrers and Irthlingborough, along with the rural surrounds and will generally be referred to within this document as “the Plan”. It is the second of a new suite of documents being prepared by East Council under the government’s new planning system. It presents an exciting and timely opportunity to focus on key planning issues within a discrete area on an inclusive basis considering environmental, social and economic issues as well as local needs and aspirations. The Plan will set out the vision and detailed policies for the development, regeneration and planned growth of Rushden, Higham Ferrers and Irthlingborough and put in place proposals for the sustainable development of rural communities. It will include the identification of sites for housing, employment, recreation and other land uses and will contain policies relating to specific areas where individual development, conservation or design considerations apply.

The Preferred Options Report

1.2 Before preparation of this preferred options document baseline studies on a variety of issues have been prepared. These have been fed into this document to ensure that the preferred option is a considered and appropriate way forward and conforms to other policies and strategies already in place. Examples of previous studies include the Community Strategy, Landscape Character Assessment, Urban Capacity Study and Housing Needs Survey.

1.3 A crucial element of the production of the Plan is early stakeholder and community involvement. To aid this a series of “Design for the Future” discussion papers were produced in 2004, including papers covering Rushden and the surrounding area, Higham Ferrers and the surrounding area and also Irthlingborough and the surrounding area (regulation 25). The public were encouraged to comment on the issues identified and the Council subsequently published a feedback paper summarising responses in September 2005. As part of the continuous process of involving the community and stakeholders in the development of the Plan, in line with the Statement of Community Involvement (SCI), the Council is publishing this Preferred Options Report. This report represents a statutory milestone in the process of producing the Plan. The process is illustrated overleaf:

THRE E TO W N S PL AN 3 Diagram 1 – The Development Plan Document Process

0 Pre production Evidence gathering Years

Prepare issues and alternative options in consultation Reg 25

Public participation on preferred options Reg 26

1 Production Representations on preferred options Reg 27 in Part 2 Regulations) in Part 2 Regulations) Preparation of submission DPD Community involvement (as outlined involvement Community Submission of DPD Reg 28

Representations on submitted DPD Reg 29 Sustainability appraisal

Pre examination meeting

2 Examinations Independent examination Representations and Representations Binding report participation in examination participation in examination

Adoption

3 Adoption Monitoring review

Process Ongoing engagement Statutory consultation (6 weeks)

1.4 The aim of this formal public participation on preferred options stage is to give people the opportunity to comment on how the Council is approaching the preparation of this Plan. This is to ensure that it takes account of everyone’s needs and that the Council is aware of all possible options before a draft Plan is prepared. This document outlines clear reasons for the selection of the preferred options, together with a précis of the alternatives where they were also considered.

Sustainability Appraisal, Strategic Environmental Assessment and Appropriate Assessment

1.5 Under the new planning Act, a Sustainability Appraisal (SA) is mandatory in order to ensure the Council fulfils the objectives of contributing to the achievement of sustainable development in preparing plans. An Environmental Assessment must also be conducted in accordance with the requirements of European Directive 2001/42/EC on the “assessment of the effects of certain plans and programmes on the environment” (Strategic Environmental Assessment (SEA) Directive). The requirement to carry out a SA and a SEA are distinct; however both can be satisfied through a single appraisal process.

1.6 European directive 92/43/EEC requires an Appropriate Assessment for all Plans that may have an impact on Natura 2000 sites (European sites). This 4 THRE E TO W N S PL AN INTRODUCTION classification includes Special Areas of Conservation (SAC’s) and Special Protection Areas (SPA’s). The Appropriate Assessment considers the potential effects of a proposed plan on actual and proposed European sites. There is the possibility that the Upper Nene Valley Gravel Pits will become an SPA, the area has recently been designated as a Special Site of Scientific Interest (SSSI), a precursor for the SPA designation.

1.7 As such, a SA Report incorporating SEA and AA accompanies this preferred options report for the Plan.

Where the Plan sits in the new planning system

1.8 This Plan must conform with the policies and proposals contained within national planning guidance, the Regional Spatial Strategy for the and the Core Strategy for . Coverage of the Core Strategy can be seen on map 1.

Diagram 2 – The New Planning System

SupplementarySupplementary Annual PlanningPlanning Monitoring DocumentsDocuments Report

Local Development Scheme

Core Strategy

Regional Spatial SiteSite LOCAL Strategy SpecificSpecific DEVELOPMENT Allocations Allocations FRAMEWORK

Adopted Proposals Map

AreaArea ActionAction PlansPlans Other Other Statement of DevelopmentDevelopment Plan Community Plan Involvement DocumentsDocuments

Development Plan Documents Project Required Optional Plan

1.9 The Core Strategy has undergone the preferred options stage which was completed in early 2006, it is expected that the submission Core Strategy will be submitted to the Government in October 2006 and adopted in October 2007. This Plan has to be in conformity with the Core Strategy and has been based on the preferred options stage of this document. If the submission Core Strategy is significantly different this Plan will have to be changed accordingly. THRE E TO W N S PL AN 5 Map 1 – Core Spatial Strategy Coverage

1.10 Because of the close geographical and functional links of the Plan area with the predicted growth at this location needs to be taken account of and cross-boundary working will &RUE\ be encouraged to ensure that (DVW the growth is co-ordinated and 1RUWKDPSWRQVKLUH complementary to the Plan area. .HWWHULQJ

1.11 This document will be referred to in the determination of planning applications from this point forward. This is :HOOLQJERURXJK to ensure that the Council’s &RUH preferred options continue to be 6SDWLDO viable and that the sustainability 6WUDWHJ\ of sites is maintained. &RYHUDJH

How to get involved and next steps in the process

1.12 The Council invites representations on the preferred options and proposals and the Sustainability Appraisal report over a specified period of six weeks in accordance with Regulation 26. The Council will consider all representations made, and will have regard to them in the preparation of the draft Plan. Representations made at this stage will NOT be taken forward as representations to be considered at the independent examination.

1.13 The draft Plan will be made available for comment for a further statutory six-week period during which formal representations can be made. All representations made at this time will be considered at an Independent Examination to be conducted by a Planning Inspector. The “soundness” of the Plan will be tested. The Inspector’s report will be binding on the Council. It will be expected that representations regarding the allocation of specific development will have been dealt with prior to the examination.

Timetable

1.14 The document will be printed and distributed in September 2006 with the statutory 6 week period for representations running from the 11th September 2006 and will run until 23rd October 2006. The full Plan will then be prepared ready for submission to the Secretary of State in Spring 2007. A public examination will then be required in order to test the ‘soundness’ of the proposals and adoption of the Plan is expected in early 2008. As the Plan must conform to the Core Strategy, it will run until 2021 and will be revised as and when necessary, as highlighted through the Annual Monitoring Report published in December each year. 6 THRE E TO W N S PL AN INTRODUCTION

The Plan Area

1.15 This Plan will cover the towns of Rushden, Higham Ferrers and Irthlingborough along with their rural hinterland, as shown on map 2. This constitutes the wards of Rushden North, Rushden East, Rushden South and Rushden West; Higham Ferrers and Irthlingborough made up of 9 parishes. The other Plan areas that will cover the District are the Rural North, and and the Area Plan. The Rural North, Oundle and Thrapston Plan reached preferred options stage earlier in the year with the Raunds preferred options to follow on later this year. Coverage can be seen in map 2.

Map 2 – The Plan Area for the Three Towns

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THREE TOWNS PLAN 7 2.0 AREA PORTRAIT

Map 3 – Overview of the three towns ¯

Irthli ngborough Inset

Nene Valley Strategi c Green Corridor Higham Ferrers Inset

Rushden Inset Borough of Wellingborough

Town Boundary

Distri ct Boundary

Possi ble Town Boundary Borough

Indi cat i ve road alignment Reproduced from the Ordnance Survey mappi ng wi th the permi ss i on of the Controll er of Her Majesty's Stationery Offi ce.© Crown Copyri ght. Unauthori sed reproductioni nfr i nges crown copyri ght and mayl ead to prosecution or civil proceedings. East Northamptonshire Council . L i cence No. 100019072. 2006. For Reference Purposes Onl y. No further Copies may be made.

2.1 The Three Towns Plan area, as seen on map 3, has a concentrated urban focus in the west, encompassing the three towns of Rushden, Higham Ferrers and Irthlingborough. The eastern portion of the Plan area exhibits a more dispersed and rural settlement pattern, incorporating the three villages of , Caldecott and . The Plan area covers 4,789 hectares and the population in 2001 was 39,571 (2001 Census). The flows through the Plan area creating a natural barrier between Irthlingborough and the remaining settlements. 8 THRE E TO W N S PL AN AREA PORTRAIT

2.2 Located at the southern extent of the District, Rushden is the principal town in and the fourth largest in North Northamptonshire. Many of the buildings are of a Victorian style, built in the early 1900s to replace many of the buildings destroyed by fire in 1901. Rushden Hall is a prominent building in the town and is now occupied by the Town Council, whilst the grounds are used as a recreational facility by local residents.

2.3 Higham Ferrers adjoins Rushden to the north and is closely bound by the south-eastern floodplain of the River Nene. Historic growth patterns have seen the convergence of the two settlements, although the settlements continue to maintain distinctive characters. The town is built on former land and has had significant growth in the last few years. The town centre is covered by a conservation area and contains many significant buildings associated with Chichele College.

2.4 Irthlingborough has been historically involved with the iron and gravel mining industry. More recently it has become the home of the Rushden and Diamonds Football Club, located at which was rebuilt in the 1990s to become a county-wide significant recreation, leisure and business facility. Associated with Irthlingborough is the Crow Hill development that has recently undergone significant regeneration and the addition of a new community building.

2.5 The Plan area villages have a combined population of 612 (East Northamptonshire Council 2006 estimate). Historic buildings within these settlements principally include the churches of Chelveston and Newton Bromswold, which have distinctive features and notable heritage significance. Chelveston airfield is located several miles to the south-east of Caldecott. This airfield was previously used as an active United States and RAF airbase but has been decommissioned and returned to farmland. The site has a number of MoD residential units which are currently unoccupied.

2.6 The River Nene passes through the Plan area, providing a key landscape feature. There is a need to protect the floodplain land from impacts of development. The River is used for recreational activities and the Nene Way follows its course. There is a project underway to promote an area for wider recreation, along the River Nene, from Northampton across this Plan area towards Peterborough.

Demography

2.7 The Plan area has a total population of 39,571 with a density of 8.26 persons per hectare and an average age of approximately 40 years. The population is estimated to increase by around 25% from the 2006 estimate of 43,631 to 55,139 in 2021. With a total of 16,503 dwellings in the Plan area, 12,629 are privately owned and 2,567 are socially rented (Census 2001). Census 2001 figures also indicate that the Plan area has a 73% economically active population (28,887 persons) incorporating 67% in full time employment and 27% inactive.

Accessibility

2.8 The Plan area has particularly good road transport links which serve the three towns, these being the A45 and the recently completed A6 Bypass Road. The remaining villages are generally accessed via the B645 and additional local roads. THRE E TO W N S PL AN 9 2.9 Public transport servicing the Plan area towns is limited to reasonable bus services, generally linking to Wellingborough or which host Midland Mainline train stations.

Residential Development

2.10 Historically, residential development in the District has been consistently high. Development has been concentrated in the major settlements, the towns having seen large areas of development, with nearly 2,000 dwellings completed since 2001.

The Economy

2.11 There is reliance on larger settlements outside of the Plan area such as Wellingborough, Bedford and Northampton for employment, with approximately 40% of full time employed persons travelling greater than 10 kilometres (6.2 miles) to work (Census 2001).

2.12 Rushden has several successful business parks which include the Express and the Crown Business Park. There are several major employers located in the town these are still involved with the manufacture of shoes, which historically has been the main employment focus of the area.

2.13 Higham Ferrers, mainly due to the proximity with Rushden, has fewer employment areas. There is an area to the east of the town that contains several businesses; however the largest employer is RPC Group, an international company, with the head office located in the town. An industrial area to the north of the town, adjacent to the A45, called Chowns Mill is the location of several businesses.

2.14 Irthlingborough has the Nene Park area, which includes the Rushden and Diamonds complex. Whitworths is located in the town and employs several hundred people and focuses on food manufacture.

2.15 In terms of regeneration there has been a market town initiative for Irthlingborough that commenced in 2003. This has brought forward several proposals for small regeneration projects and environmental improvements in the town in conjunction with Irthlingborough Partnership. A Masterplan has been produced for Rushden and Higham Ferrers; this has identified several projects that could be undertaken in the towns with regard to built form, public space, road hierarchy, public parking, public transport and pedestrian network.

2.16 The village of Chelveston contains a few businesses and there are several farmsteads in the rural area.

Retail

2.17 Rushden town centre has several chain stores and supermarkets as well as a number of independent speciality shops whereas Higham Ferrers combines historic interest within the centre with speciality independent retail units. Irthlingborough has two small supermarkets within the town centre and also several independent stores covering a wide interest.

10 THRE E TO W N S PL AN AREA PORTRAIT

2.18 On the outskirts of Rushden there is a small out of town shopping area which includes Waitrose and Focus. These shops have a wide pull factor to the town with people travelling from within the district as well as outside to these facilities.

2.19 The towns provide services for their residents as well as the villages in the Plan area, and also an area of North and . However this pull to the towns is mainly from within the district, due to the competing settlements relatively close by, which contain a larger retail presence.

Recreation and Leisure Provision

2.20 Leisure and recreation facilities of differing varieties and quality are available within each of the Plan area towns, with limited opportunities in the remaining villages. There is major competition from centres outside of the Plan area, both within the District and externally.

2.21 Within Rushden the leisure facilities include a swimming pool, sports and leisure complex, tennis courts, bowling greens as well as cricket, rugby and football clubs. Rushden Hall grounds provide an excellent park area close to the town centre for residents and visitors to enjoy.

2.22 Permission has been given for several football pitches and associated facilities to be developed close to the A6 in Higham Ferrers. There are also two large recreational areas close to the town centre on Vine Hill Drive and Kimbolton Road.

2.23 Irthlingborough has several recreational parks around the town, but no dedicated leisure facility other than the facilities provided at the Rushden and Diamonds Centre. Adjacent to the Plan area is Stanwick Lakes, an area for recreation, conservation and access to the countryside; links into the Plan area are good and provides an ideal location for leisure pursuits.

2.24 Due to the close proximity to Bedford, use of these recreation facilities as well as the health and community facilities are also utilised by those living in northern Bedfordshire.

Competition and Relationships

2.25 Surrounding larger urban centres such as Wellingborough, Kettering, Northampton and Bedford interact with the Plan area, particularly by providing alternative focal points for competition in retail offer, significant employment sites and leisure facilities. This is especially evident for employment opportunities as the Plan area (and East Northamptonshire generally) has a high level of out-commuting for work opportunities.

2.26 As many of the surrounding towns and cities form part of the growth area projects, there will be major development occurring close to the border of the Plan area. This will impact on infrastructure provision, which has already accommodated growth over the previous ten years. THRE E TO W N S PL AN 11 2.27 The Borough of Wellingborough Local Plan (2004) identifies ‘Wellingborough East’ (WEAST) as a significant development area. This is a substantial development encompassing 2,875 dwellings, 110.8 hectares of employment land, nine hectares of leisure use as well as community and social facilities and various open spaces. It should be noted that avoiding coalescence and undue impact with nearby settlements including Irthlingborough and Rushden is a priority of the development.

2.28 The location of the Plan area and the boundaries that it has means that there are many relationships with adjoining areas, these are complex and are on many different levels covering employment, leisure and retail.

2.29 There are wider relationships with the surrounding authorities within North Northamptonshire. The Plan area shares its western boundary with the borough of Wellingborough, whilst also abutting Cambridgeshire and Bedfordshire Counties who are also in the growth area agenda.

Social Infrastructure Issues

2.30 Overall, the Plan area experiences a lack of educational attainment in young children as well as a shortage of qualifications and skills in the working age population as measured by the indices of education, skill and training. Additionally, the indices of deprivation indicate that portions of Rushden East and West experience multiple deprivation. Crime, fear of crime and anti-social behaviour are also Plan area issues, with several areas experiencing high crime rates particularly relative to burglary, theft, criminal damage and violence.

2.31 The Plan area ranks well when assessed against health deprivation, where there are lower numbers of people who die prematurely or who are impaired by poor health. Part of Rushden South is one of the best areas in the country for the living environment, which comprises the quality of housing, air quality and road traffic accidents.

2.32 Research indicates that there is currently a shortfall in affordable housing provision within the Plan area. This is an essential issue to address in terms of meeting the needs of existing and new residents in the area.

2.33 The Plan area does not have any A&E hospital provision; the nearest can be found in Kettering, Northampton or Bedford. Even without this facility the population in the Plan area mostly describe their health as good.

2.34 There are 18 schools in the Plan area; those in Irthlingborough are forecasted to be at or over capacity by 2010. This is in contrast to the schools located in Rushden and Higham Ferrers where there is expected to be spare capacity in the majority of schools. There has been a recent approval for a branch of Moulton College to form a new educational campus focusing on training and education for trade’s people close to Higham Ferrers on the A6.

12 THRE E TO W N S PL AN 3.0 VISION AND OBJECTIVES

3.1 If the Plan is to influence change and achieve sustainable communities across the area, it must be visionary and therefore look forward over a long period of time. The main reason for providing the vision and objectives is to set out the purpose of the Plan.

3.2 The vision and objectives are focused on the area covered by the Plan rather than being general aims that could be relevant anywhere in the country.

3.3 The Community Strategy for East Northamptonshire 2005 – 2010 sets out five key challenges to deliver the community’s priorities. The key challenges are:

■ we must promote sustainable environment through all our actions; ■ to improve the health and housing needs of our residents through working in partnership with all local agencies and local people, continuing to fund current initiatives and developing new ones; ■ we have an under achieving learning District with a tradition of low expectations for academic and vocational achievement. We must work to improve expectations, opportunities, participation and achievement; ■ crime and fear of crime are significant obstacles to our community wellbeing. We must work to make East Northamptonshire a safer place in which to live, work and visit; and ■ to work towards sustainable economic development across the District now and for generations to come, which has positive impact on the quality of life of workers, residents and visitors to the District.

3.4 The vision and objectives of the Plan have been developed with these key challenges in mind. Any challenge that can be influenced by the planning system will be integrated into the content of the Plan.

3.5 The preferred vision and objectives of the North Northamptonshire Core Strategy have also been taken into account. It is considered that the proposed vision and objectives of this Plan are compatible with the Core Strategy.

THRE E TO W N S PL AN 13 ionThe VisionThe

Create a distinctive and successful area that will deliver growth and future development in accordance with the Core Strategy guidance.

Recognise the dominant role of the towns as the primary growth locations for the Plan area, without forgoing the aspirations of the remaining villages in their network role, to develop an area where people want to live, work, visit and invest.

Objectives

3.6 Having identified the Vision of the Plan, the objectives will be developed and addressed through planning policies to attain this Vision. The following are the preferred Objectives of the Plan.

1 Promote Rushden as the principal settlement within the Plan area, reinforcing its continuing role as the primary urban centre within the District whilst recognising its supportive and complementary role within the framework of North Northamptonshire settlements. 2 Deliver a significant level of residential growth at Irthlingborough, incorporating appropriate complementary services, facilities and infrastructure, whilst affording careful consideration to the impact of growth on greenfield sites. 3 Exploit and enhance Higham Ferrers’ vitality and distinct historic identity. Promote the role of the town as a cultural centre by providing high quality unique services to the wider area. 4 Enable villages to prosper, ensuring that vital local services, facilities and infrastructure are retained and appropriate opportunities are available to meet housing and employment need, including those of the farming communities. 5 Foster a diverse and robust economy, encouraging investment from internal and external sources in a variety of forms sensitive to local opportunities, and increasing local self sufficiency. 6 Ensure the local labour force is matched in skills to existing and emerging employment opportunities, promoting a flexible, knowledge based economy. 7 Deliver high quality residential growth focused on the urban centres which is sensitive to local environmental, social and economic conditions and which is guided by the strategic housing need. 8 Deliver attractive, vibrant and complementary town centres with appropriate mixes of use that meet the economic, social and cultural aspirations of the community, which are well designed and provide high quality public spaces.

14 THRE E TO W N S PL AN VISION AND OBJECTIVES

9 Ensure high quality design and promote use of local materials to safeguard local distinctiveness and character of settlements. 10 Promote a range of transport modes suited to the local role of each settlement, ensuring accessibility for all sectors of the community and appropriate further connections to regional centres and wider transport links. 11 Promote the provision and ongoing maintenance of essential local infrastructure, including community services and facilities, matched to the role and requirements of each settlement, whilst addressing any present deficiencies. 12 Ensure that all sectors of the community have adequate access to vital health services as well as leisure and recreational facilities, promoting healthy and active communities. 13 Protect, enhance and manage the local natural environment with due regard to regional and wider implications. Develop an accessible inter-connected green infrastructure network. 14 Foster safer communities, reduce crime, fear of crime and anti- social behaviour.

THRE E TO W N S PL AN 15 4.0 GENERAL DEVELOPMENT PRINCIPLES

4.1 The Plan will contain a suite of general development principles that are applicable across the Plan area.

Settlement Hierarchy

4.2 The Core Strategy “preferred options” document (November 2005) describes Rushden, Higham Ferrers and Irthlingborough as Smaller Towns and the remainder to be classified as Network Villages, this document will follow these principles.

4.3 However within this category of Network Villages, further definitions including smaller scale service centres and also Restraint Villages will be used.

4.4 The Restraint Village classification will be retained from the 1996 Local Plan, based on village form and character, where development will be limited to conversions and changes of use.

Settlement Boundaries

4.5 A key principle of Government planning policy is that new buildings in the open countryside should be strictly controlled and this has consistently been reflected in the Local Plan and Structure Plan with policies that generally prevent development outside settlement boundaries. The adopted Local Plan defined settlement boundaries in written terms instead of indicating a boundary on a map. However, as part of extensive consultation for the Plan the delineation of settlement boundaries on maps has been widely supported.

4.6 In accordance with the sequential approach as set out in national planning policy (PPG3 Paragraph 30), the preferred North Northamptonshire Core Strategy promotes development within and on the edge of settlements. Showing village boundaries increases certainty, openness and transparency and assists with the application of a sequential approach to the release of land for development.

4.7 The preferred direction of growth or allocations will be illustrated on maps.

4.8 In the town centres of Rushden, Higham Ferrers and Irthlingborough, the settlement boundary will be delineated tightly to reflect the main built up part of each settlement. Boundaries are drawn along the peripheral curtilages of the 16 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRINCIPLES property, except where this is extensive; in which case the area most immediately related to the built development has been included (e.g. the essential garden area). Peripheral playing fields have been excluded, including school playing fields. In the case of the latter the boundaries have been delineated to include the school building complex and immediate open land within the curtilage. The boundaries include land with extant planning permission at the base date of 31 March 2005.

4.9 Land on the periphery of the towns has been included if it is:

■ small in scale relative to its surroundings; ■ well related to the urban area (existing or committed); ■ clearly distinct from the countryside physically and visually; ■ bounded by compatible development (existing or committed); ■ bounded by existing or committed development on all sides but one, which should be adjoined by a road (or other strong and distinct physical feature); ■ where it is unlikely to be of any beneficial uses as open land, including for agriculture; and ■ proposed allocation for development.

4.10 Exceptionally, land that does not meet the last criteria has been included, where the unique appearance of the land and its relationship to adjacent development is such as to consider it a logical and potentially beneficial extension and it is small in scale relative to its surroundings.

4.11 In the case of the Network Villages the following guiding principles will be adopted to define the settlement boundary:

■ existing employment uses, caravan sites or leisure uses on the edge of villages which are obviously detached from, or peripheral to, the main built up area are excluded; ■ free-standing, individual or groups of dwellings, nearby farm buildings or other structures which are obviously detached from, or peripheral to, the main built up area are excluded; ■ public open spaces and undeveloped areas of land on the edge of villages are excluded; ■ the curtilages of dwellings are included unless the land has the capacity to extend the built form of the village; ■ areas of land currently with planning permission adjoining the built up area are included; and ■ proposed allocations are included.

4.12 Village frameworks need not be contiguous. It may be appropriate given the nature and form of the settlement to define two or more separate elements.

4.13 In the case of Network Villages that are classified as Restraint Villages, it is considered appropriate to show no settlement boundary as development will be limited to conversions and changes of use.

Preferred Option

4.14 Settlement boundaries will be delineated based on the extent of the main built up area and defined using the approaches set out above. This will provide reliable THRE E TO W N S PL AN 17 and consistent means of directing development to the main body of the settlement. The boundaries that adhere to the above methodology can be found in appendix 1.

Other Options Considered

4.15 A settlement boundary based on strong and distinct physical barriers is considered too flexible in many circumstances and would lead to substantial development in the rural areas. This is considered contrary to the preferred spatial strategy for the distribution of development and would result in an unsustainable pattern of development.

4.16 A second option is to continue with the written definition instead of indicating a boundary on a base plan; however this option is not favoured because it provides uncertainty to developers, housebuyers and existing residents as well as to elected Members in making decisions on planning applications.

4.17 A third option is to delineate settlement boundaries for all settlements. In the case of Restraint Villages this is considered too flexible and would lead to substantial development in the rural areas in villages where this would adversely affect their form and character.

Plan Area Employment Approach

4.18 Recently a strategic employment study was undertaken for the North Northamptonshire area which recognised that there is a reasonable level of land supply (relative to demand) for both distribution and general industrial development across the District. Additionally, the Core Strategy Preferred Options document recognises that both general industrial and strategic distribution land uses are presently over-allocated, while the office land use has an indicative required allocation of only one hectare across East Northamptonshire. Further review of travel to work information reveals that a significant proportion of Plan area residents commute to Wellingborough or Bedford for employment.

4.19 The Council has recently commissioned a more detailed employment land study, looking at the quantity and quality of employment land both existing industrial sites and new areas with planning permission. Results are expected in late October and will assist in drafting The Plan.

4.20 The core strategy is aiming for a more diversified economy with more office and research based jobs. There is a large commitment for a business development at (Skew Bridge). The Plan will need to prioritise skills and training to match the changing employment profile of the area.

Preferred Option

4.21 The preferred approach is to diversify the economic base and to reduce the out commuting from the Plan area. Currently it is not expected that new employment sites will need to be identified in order to achieve this, as there are already large existing planning permissions. In addition major town centre regeneration is proposed which will incorporate new business opportunities. Finally 18 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRII NC PLES better use can be made of existing industrial areas by intensifying and improving them which means that new greenfield sites are not expected to be needed.

Other Options Considered

4.22 Do nothing and allow continued high levels of out commuting in the plan area, however this is not sustainable in the long term and will not help to achieve self sufficient local communities.

4.23 More land could be allocated for employment use, however there is no proven need for this considering the large existing permissions in the Plan area. Also allocating land for employment does not necessarily mean that the land would be viable for such uses, would be likely to lead to an oversupply of employment land in the Plan area and may attract further distribution uses which will not assist with diversifying the local economy.

Plan Area Housing Approach

4.24 The preferred Plan approach is to review and allocate the Plan area housing requirement on an overall basis up to 2021. Using this method, the individual housing requirements set out through the Core Strategy are combined to provide a single housing requirement for the Plan area. This allows for a more comprehensive approach to be taken in determining and allocating suitable housing sites, while accounting for sequentially preferable land within the three towns of the Plan area. The following table details the housing distribution for the Plan area:

Core Spatial Strategy requirement 5090 Completions and commitments in the Plan area (2001-2006) 3084 Urban Potential Study (large ‘likely’) identified sites 842 Remaining units to allocate 1164

4.25 Sections 5 to 8 of this document will set out the preferred options for the allocation of the remaining units throughout the Plan area.

Preferred Option

4.26 It is the councils preferred option to meet the strategic housing requirement across the three towns in the Plan area in the following manner:

SETTLEMENT COMPLETIONS UNDER LIKELY LARGE NEW TOTAL 2001-2006 CONSTRUCTION AND URBAN POTENTIAL GREENFIELD EXTANT PLANNING SITES (SOME TO BE ALLOCATIONS PERMISSIONS# ALLOCATED) Rushden 1,008 757 471 197 2433 Irthlingborough 469 148 371 553 1541 Higham Ferrers 466 236 0 414 1116 TOTAL 1,943 1141 842 1164 5090

# includes a 2.9% lapse rate year on year for 5 years.

THRE E TO W N S PL AN 19 Other Options Considered

4.27 Utilising individual town allocations (as set out in the Core Strategy Preferred Options report) is an alternative option considered. This stated that Rushden would have a strategic requirement of 2370, Higham Ferrers would have 1020 and Irthlingborough 1700 over the Plan period of 2001-2021. However, this option is not favoured because it prescribes the detailed breakdown for the provision of housing between the three towns of the Plan area and this does not allow flexibility to take account of local preference or need.

Rural Area Provision

4.28 Within this Plan area there are only two rural settlements with a village boundary, these being Chelveston and Crow Hill. Caldecott and Newton Bromswold are smaller, more scattered settlements that do not have a core area meeting the criteria set out in paragraph 4.11. No allowance is made for future development in the rural part of the Plan area, above and beyond what already has planning permission. See section 8 for more detail.

Phasing

4.29 The North Northamptonshire preferred Core Strategy approach is that the Plan will outline detailed phasing of developments in relation to infrastructure, and that having no policy of phasing is not a viable option.

4.30 Phasing sets out a clear but broad indication of the preferred order for the release of sites and the likely timescale for their release. A phasing mechanism to monitor and manage the release of housing land is considered essential in order to control the pattern and speed of growth across the Plan area and ensure a better balance between housing, infrastructure and jobs. The absence of a phasing mechanism is likely to result in early take up of development opportunities with greenfield sites being taken up ahead of brownfield sites, contrary to the sequential approach, and offers no guarantees that the existing infrastructure will have the capacity to cope with the housing growth.

Preferred Option

4.31 The Plan will propose a mechanism to control the rate and location of development in accordance with the PPG3 sequential approach and the delivery of jobs and infrastructure.

4.32 In terms of potential sites across the Plan area, these should have a phased approach with the priority being given in the early phases to previously developed land. It will be necessary to allocate some greenfield sites in the District in order to meet the housing requirements. These strategic sites will be critical to delivery of the Plan objectives, and will be phased to take place throughout the Plan period.

4.33 It is also considered that there is a need to ensure balanced growth across the District and as a consequence the phasing approach should ensure that those 20 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRII NC PLES greenfield allocations considered necessary within this Plan are co-ordinated with the development of similar strategic sites elsewhere in the District.

4.34 The release of further greenfield sites will be dependent on the monitoring of land supply including the progress on the delivery of brownfield sites.

Other Options Considered

4.35 Criteria based approach sets out factors that will be used by the Council to judge whether a proposal is acceptable for development at the time the application is made. Sites would still be allocated for housing, but the onus would be on Development Control section to implement its delivery in accordance with the strategy. This approach places too much pressure on the Development Control section, and would not provide any certainty when a particular site could be developed.

Housing Density

4.36 PPG3 on housing states that local planning authorities should avoid development which makes inefficient use of land (those of less than 30 dwellings per hectare net); encourage housing development which makes more efficient use of land (between 30-50 dwellings per hectare net); and seek greater intensity of development at places with good public transport accessibility such as city, town, district and local centres.

Preferred Option

4.37 The preferred option is to set specific minimum required density for different geographical areas of the Plan. For example setting a different minimum required density for the centre of the towns than for the edge of the built up area of the town. This will provide more flexibility to take into account the individual character of the area.

4.38 In village locations where existing densities may be lower, it may be appropriate to look at a lower density than 35 to the hectare. This is to ensure consideration is given to the local character of settlements. Surrounding density can be used to work out the proposed development density rate.

4.39 In town centre locations where there is better access to services and facilities including public transport, it is suitable to apply a higher density of more than 35 to the hectare. This will make more efficient use of land in these areas; however other criteria will also have to be met, particularly regarding design.

4.40 It is expected that all development would be accompanied by a design and access statement explaining the developer’s justification of the density levels proposed.

Other Options Considered

4.41 The Plan could look at setting a minimum required density for all individual THRE E TO W N S PL AN 21 developments regardless of location. It is considered that this would not take into account the nature of this Plan area and the individual character of the settlements located here.

4.42 A standard 35 units to the hectare could be stated; however this is not considered flexible enough and would not account for local requirements.

Housing Mix

4.43 The Housing Market Assessment for North Northamptonshire is scheduled for completion at the end of November 2006 and will provide valuable information to guide decision making. It will provide an evidence base on the required mix of dwelling types and sizes, which will enable policies to be drawn up for inclusion in the Plan.

Preferred Option

4.44 The Plan will include policies relating to housing mix, both on a general basis and on specific sites.

Other Options Considered

4.45 No other options were considered, as Government policy requires Plans to set out a policy approach to housing mix, based on an up to date housing market assessment.

Infilling

4.46 The District has a history of high infill units within town and village boundaries. This has sometimes led to a loss of character and handling development on such sites with care is a real challenge. The cumulative impact of infilling previously over the last fifteen years has altered the character of lower density areas and tended to place additional strains on the existing infrastructure and services without adding commensurate benefits to the community in which it is located.

Preferred Option

4.47 In order to strictly limit the amount of residential infilling, the Plan will include a criteria based policy. This will indicate that within the built up area of settlements (as delineated on maps located in appendix 1), small scale housing development will only be permitted provided that a number of criteria are satisfied. The Plan will outline the criteria in such a way as to ensure that dwellings built during the Plan period will meet the needs of the community in terms of their size and design and maintain the character of individual settlements. Design based criteria will be informed by the production of Parish Plans and Village Design Statements.

22 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRII NC PLES

Other Options Considered

4.48 Maintain the current approach in the Local Plan, where there is a general presumption in favour of residential infilling. However, this was not considered to be acceptable because this has led to a gradual loss of local character and had an impact on the quality of the local environment. The nature of infill development makes it hard to phase and has contributed to an acute over supply of housing land in the District over the previous Plan period.

4.49 Another option is to maintain the approach as set out in the interim policy on managing the release of housing land. However, there is a need to ensure balanced growth across the District with limited small scale development to meet local needs and to ensure that settlements retain services and facilities. Without the prospect of additional housing then service providers are likely to take a negative approach if the economics of provision are questioned.

Affordable Housing Definition

4.50 At the national level, neither Planning Circular 06/1998: Planning and Affordable Housing, nor Planning Policy Guidance 3: Housing, provide a formal definition of affordable housing, although both do require Local Planning Authorities to define housing affordability for their area through the Local Development Framework.

4.51 Emerging national guidance on affordable housing is provided through draft Planning Policy Statement 3: Housing and is reflected in the East Northamptonshire District Developer Contributions Supplementary Planning Document. Although not yet approved, the draft Planning Policy Statement defines affordable housing as follows:

Non-market housing, provided to those whose needs are not met by the market for example homeless persons and key workers. It can include social-rented housing and intermediate (for example shared equity) housing. Affordable housing should:

■ meet the needs of eligible households, including availability at low enough cost for them to afford, determined with regard to local incomes and local house prices; and ■ include provision for the home to remain at an affordable price for future eligible households, or if a home ceases to be affordable, any subsidy should generally be recycled for additional affordable housing provision.

4.52 A District wide Housing Needs Survey was undertaken by consultants for the Council in 2004. The affordable housing definition developed for this Survey is as follows:

Housing with subsidy for people who would otherwise be excluded from the general housing market due to the relationship between local housing costs and THRE E TO W N S PL AN 23 local incomes. In other words, affordable housing is that housing which is provided to meet the need of the local population.

4.53 The Council’s recently adopted Housing Strategy 2006 – 2009 addresses the provision and management of affordable housing within East Northamptonshire and states that it is not possible to give an absolute definition of affordable housing that is consistent across the District. Any site specific definition will depend on a number of factors such as the local housing market and the income levels of those looking to purchase in a particular area. In this regard the Housing Strategy 2006 - 2009 sets out the following guidelines:

■ affordable Housing should enable those who are struggling to access the private rented sector, or purchase their own home, the opportunity to do so. Therefore, we would expect the rent or open market value of an affordable property to generally be below that of the private rented sector or open market - for comparable properties in any given area; ■ variance to this will normally only be acceptable where the affordable housing is targeted at a specific needs group, such as key workers, where affordability will be calculated in accordance with income; ■ affordability levels for low cost home ownership developments should be agreed with the Strategic Housing Team - and will be based upon evidence relating to income levels, comparable open market property values and housing needs information; and ■ affordable housing, to be defined as such, should remain so in perpetuity, and arrangements should be in place to ensure that this is the case.

Preferred Option

4.54 Affordable Housing need will be reviewed by the Housing Strategy team on a case by case situation using the best available housing market data at the time. East Northamptonshire Council defines Affordable Housing as “non-market housing provided to those whose needs are not met by the market”.

4.55 This option will take into account the varying house prices across the Plan area, while linking into the proven local need and reviewing the differences in the urban and rural settlements.

Other Options Considered

4.56 It could be assumed that as the Plan will make provision for a range of dwelling types and sizes, overall development will incorporate smaller units, generally more affordable than larger units. However, this approach is flawed as not all affordable housing need is for smaller units. In order to meet particular needs, larger affordable houses will be required. Additionally, depending upon the income level of households in need of affordable dwellings, smaller units still may not be affordable.

Targets

4.57 The 2004 Housing Needs Survey for East Northamptonshire provides detailed housing need information for the District, at a local level, enabling overall 24 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRINCIPLES information to be allocated between parish groups. The Plan area incorporates the Parish groups of Higham Ferrers (including Chelveston and Newton Bromswold), Irthlingborough and Rushden.

4.58 The 2004 Housing Needs Survey indicates that within the Plan area, there is a total requirement for 401 affordable dwellings per annum to the year 2009, incorporating a backlog of demand of 108 affordable dwellings per annum. If affordable housing targets for the year 2009 (as specified within the Housing Needs Survey) are met, the backlog of affordable housing need will be negated and the annual requirement will be reduced to 293. Preliminary advice from the Councils Housing Strategy Officer indicates that the supply of affordable housing within the District from the year 2004 is significantly lower than the supply rate recommended through the Housing Needs Survey, consequently exacerbating the backlog of need.

BACKLOG NEWLY ARISING PARISH GROUP ANNUAL SUPPLY ANNUAL SHORTFALL (2004-2009) ANNUAL NEED Higham Ferrers 18 49 31 36 Irthlingborough 19 51 33 37 Rushden 71 193 125 139 TOTAL 108 293 189 212

Note: Backlog refers to the number of affordable dwellings required to be delivered each year (from 2004 – 2009) to address the insufficiencies as at 2004.

4.59 The planning system plays a key role in delivering more affordable properties, particularly through securing developer contributions from market housing schemes. In this regard, the Council’s recently adopted Developer Contributions Supplementary Planning Document addresses the provision and management of affordable housing by applying standardised contribution requirements to development which exceeds pre-determined thresholds.

4.60 Government guidance requires that the preferred option for the Plan should set out targets for affordable housing as a proportion of overall dwelling provision.

Preferred Option

4.61 Within the Plan area, the target will be to provide a minimum of 800 suitably located new affordable dwellings, to the conclusion of the Plan period (2021). Affordable housing will be delivered, in most cases, through S106 legal agreements, prepared in accordance with East Northamptonshire District Council’s statutory “Supplementary Planning Document – Developer Contributions” (adopted June 2006).

4.62 Given that housing developments on allocated sites and large urban potential sites in Rushden, Irthlingborough and Higham Ferrers should provide approximately 2000 new dwellings, it is considered feasible to expect developer contributions from these sites to provide for approximately 800 new affordable dwellings.

THRE E TO W N S PL AN 25 Other Options Considered

4.63 No target set for affordable housing delivery. However, this option is not appropriate as Government guidance requires that the preferred option for the Plan should set out targets for affordable housing as a proportion of overall dwelling provision.

4.64 Setting a higher target for affordable housing delivery. The Housing Needs Survey outlines an overall shortfall of 212 affordable dwellings per annum across the Plan area. A target of 800 units over the Plan period represents only 53 affordable units per annum towards this need. It is clear that the planning system will be unable to wholly satisfy the requirement when the current land supply situation is considered (residual requirement for only 134 dwellings per year over and above existing permissions and dwellings under construction).

4.65 Set a lower target for affordable housing delivery. However, the preferred approach for distributing housing growth stated in the Core Strategy allows that the areas covered by this Plan should provide a maximum of 5090 dwellings and a target of 800 represents only 16% of the Plan area housing requirement over the 2001-2021 period. It is considered that setting a lower target will not make significant inroads into the identified need for affordable housing across the plan period.

Threshold

4.66 The Office of the Deputy Prime Minister’s Planning Circular 05/2005: Planning Obligations provides the framework for Local Planning Authorities to set out standardised developer contribution requirements through the Local Development Framework, particularly encouraged through Supplementary Planning Documents. Further to this, the Office of the Deputy Prime Minister’s Planning Circular 06/1998: Planning and Affordable Housing sets out the minimum development thresholds above which Local Planning Authorities may require contributions towards affordable housing. In accordance with Planning Circular 06/1998, the minimum development threshold in urban areas (settlements with a population greater than 3,000) is 15 dwellings, where exceptional local constraints are evidenced. In settlements with fewer than 3,000 persons, Local Planning Authorities may apply lower thresholds which they consider appropriate in light of a proven housing need. The Council’s adopted Developer Contributions Supplementary Planning Document supplements Local Plan Policy GEN3 while conforming to the requirements as set out within Planning Circular 06/1998.

Preferred Option

4.67 The Council will negotiate affordable housing contribution requirements in accordance with the policy guidance as set out within its Developer Contributions Supplementary Planning Document, as follows:

■ for development within the three towns of Higham Ferrers, Irthlingborough and Rushden yielding 15 or more dwellings or residential sites of 0.42 hectares or larger, irrespective of the number of dwellings; and ■ for development in all other settlements yielding 10 or more dwellings or 26 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRII NC PLES

residential sites of 0.28 hectares or greater, irrespective of the number of dwellings.

Other Options Considered

4.68 Apply a consistent threshold of 15 dwellings throughout the Plan area. This approach is deemed inappropriate as there are differing objectives for residential development within urban and rural areas. Setting a common threshold would also compromise the delivery of affordable housing in addressing the need of both areas.

4.69 Setting the threshold at a lower level is considered to impact on development scheme viability too significantly. Conversely, setting the threshold at a higher level will reduce the ability of planned sites to contribute towards meeting the significant affordable housing needs in the Plan area.

Share of Affordable Housing

4.70 The Regional Spatial Strategy requires the delivery of 9,400 dwellings in East Northamptonshire from the year 2001 to the year 2021. As at March 2006, approximately 320 dwellings per annum (in excess of existing permissions and dwellings under construction) are required to meet this housing requirement by 2021. When considered in relation to the affordable housing shortfall of 402 per annum across the District, the Council is unlikely to satisfy all housing need. However, given the extent of affordable housing shortage, it is considered a significant contribution can be made through an increase in the proportion sought where appropriate.

4.71 Previously, the Council has sought to deliver affordable housing at a ratio of 30% (of the overall number of dwellings associated with a development scheme) where pre-determined contribution thresholds were exceeded. The recently adopted Developer Contributions Supplementary Planning Document now provides an affordable housing delivery target of 40% in response to the lagging provision of affordable housing throughout the District.

Preferred Option

4.72 The Council will negotiate affordable housing contribution requirements in accordance with the policy guidance as set out within its Developer Contributions Supplementary Planning Document. Specifically, the Council will adopt a target of 40% affordable housing provision where contributions are required above specified thresholds. Account will be taken of any particular costs associated with the development and whether there are other planning objectives which need to be given priority.

Other Options Considered

4.73 Although affordable housing needs within the District are acute, any site specific target over 40% for market housing is considered unrealistic and THRE E TO W N S PL AN 27 undeliverable. In these circumstances, it is more appropriate to allocate sites solely for affordable housing on land that would otherwise not be suitable for development.

4.74 The Plan could promote a range of affordable housing targets ranging from 30% to 50%, dependent on local circumstances. However, providing a set figure of 40% provides greater certainty for developers. Given that development will often take place below the standardised thresholds (requiring no affordable housing provision); it is considered that a target of 40% for affordable housing (where contributions are required) is both realistic and deliverable, and will help to meet identified housing needs.

Types

4.75 The Planning for Mixed Communities Consultation Paper (Office of the Deputy Prime Minister, January 2005) requires that Local Authority Development Plan Documents should specify the size and type of affordable housing required and that this should be further translated into the balance of market and affordable housing to be provided. It is noted within East Northamptonshire’s Rural Strategy that the Council is particularly keen to promote shared ownership as a form of tenure that can meet the aspirations of those in local need.

4.76 The National Affordable Housing programme considers various ways of increasing investment in new affordable homes and providing a wide range of products to meet identified need. An example of this is the Office of the Deputy Prime Minister consultation document ‘HomeBuy – expanding the opportunity to own’, which proposes a wide range of low cost home ownership options.

4.77 Best available housing needs data demonstrates an increasing interest in shared ownership products across the District, in addition to the traditional rented accommodation.

Preferred Option

4.78 The Plan will seek to ensure that 70% of affordable housing throughout the District provides for new rented accommodation, with the remaining 30% providing for shared ownership and shared equity properties. The appropriate mix of housing tenures and sizes within a development will be determined in response to identified needs at the time of development. The Council will not consider planning obligations (Section 106 developer contributions) as satisfied unless the type and tenure of housing proposed through development responds to local needs.

4.79 The above approach rejects the concept of pre-determined distribution of rented, shared ownership, sheltered / supported housing and other schemes and recognises that local need and local market conditions must guide the distribution of affordable housing. However, it also notes that rented affordable housing will be in the greatest demand throughout the District.

4.80 There are various types of programmes that contribute to meeting the local housing needs, including: 28 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRINCIPLES

Mixed Fund Rented Social HomeBuy Intermediate Rent New Build HomeBuy Temporary Social Housing

The Council will support schemes of this nature in order to meet a proven local need, particularly where provision for key workers is met. Providing an appropriate mix of affordable housing options will address a variety of existing needs within the Plan area.

4.81 The need for affordable housing is evidenced not only through the 2004 Housing Needs Survey, but also through a number of separate research studies, principally including the Northamptonshire Key Worker Study.

4.82 Further housing market assessment of the North Northamptonshire area is scheduled for during 2006 and will seek to establish levels of housing need and determine which affordable housing products can best meet the need. Results of any further housing market assessment (and any additional relevant studies) will help to guide further preparation of this Plan.

Other Options Considered

4.83 A site specific balance comprised of social rented and shared equity housing for each development site, irrespective of location, to ensure that the required balance is achieved over the Plan period. However, this option does not take account of local needs.

4.84 Setting percentages based on a pre-determined split of tenure is rejected because it is contrary to national planning guidance.

Affordable Housing Allocations

4.85 Findings of the 2004 Housing Needs Survey indicate the annual need for an additional 402 affordable housing units throughout the Plan area during the period 2004 - 2009.

4.86 It is considered that windfall sites (which generally only make an affordable housing contribution above specified thresholds) and rural exception sites (generally permitted in smaller scales only) are unlikely to make major inroads into this affordable housing need. However, the Plan may allocate sites solely for affordable housing. This concept is termed Sites of Social Diversity by the Countryside Agency.

4.87 Due to the chronic problems with affordability in the rural areas of the District (including to a lesser extent Chelveston, Caldecott and Newton Bromswold), and to assist with early delivery of affordable housing in other suitable locations, the Plan may allocate small Sites of Social Diversity where there is an identified need.

4.88 As noted in the Rural Strategy, delivering Sites of Social Diversity will assist in addressing government objectives for the countryside, such as meeting housing need, promoting social inclusion and providing and / or retaining rural workers. The nature of such development would be guided by an up to date, robust local THRE E TO W N S PL AN 29 housing needs assessment (supplementing the 2004 District wide Housing Needs Survey), providing evidence of an imbalance between local incomes and house prices.

Preferred Option

4.89 Allocate Sites of Social Diversity where robust evidence demonstrates a specific local need.

Other Options Considered

4.90 Not providing specific allocations and simply relying rural exception sites and windfall sites (where the threshold is triggered). However, this creates uncertainty for developers. Additionally, the number of new homes provided under the ‘exceptions’ policy has been relatively small. It is considered that in order to make a step-change in affordable housing provision within the Plan area, further mechanisms such as Sites of Social Diversity are required.

Rural Exceptions Sites

4.91 Rural settlements within the Plan area are limited to the network villages of Chelveston, Caldecott and Newton Bromswold. Opportunities to deliver affordable housing within these settlements and surrounding rural areas are restricted, particularly given the scarcity of suitably sized developments above the required thresholds to trigger developer contributions in accordance with the related Supplementary Planning Document.

4.92 National planning guidance requires that affordable housing provision in rural areas should be supported by a rural exception policy. A rural exception policy ensures that affordable housing can be provided where it is needed in a flexible manner.

Preferred Option

4.93 The Plan will support a rural exception policy (allowing exceptions to be made to the normal limits on development in such locations) which meet a number of specified criteria including, but not limited to, the following:

■ the site is within or well-related to a village and is the most sustainable location available; ■ the subject village offers (individually, or as part of a network of villages with an affordable housing need) at least a basic range of services appropriate to the form of housing to be provided; ■ the impact on adjoining countryside is minimised through careful siting, design and landscaping; ■ a local need for the scale and nature of development proposed is demonstrated; and ■ occupation of the affordable housing is controlled to ensure that the benefits of affordable housing are enjoyed by subsequent as well as initial occupiers.

4.94 In addition, the Plan will provide a framework for involving other 30 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRII NC PLES partnerships in bringing forward rural sites for development, building on the work of the Rural Housing Enabler, Housing Corporation and the Countryside Agency.

Other Options Considered

4.95 Removing the current rural exception policy is contrary to Government guidance and will not deliver the affordable housing needed.

4.96 Broadening the scope of the exceptions policy to allow mixed use developments and employment sites that meet local needs to be considered as an exception to normal planning policy based on the above criteria. However, whilst national planning guidance supports an affordable housing rural exception policy, no such national policy support is given to mixed use and employment developments outside the normal limits of development in rural areas. It is considered that to satisfy the sequential approach, new employment sites should normally be restricted to within the main built up areas of settlements.

Gypsy and Traveller Needs

4.97 Currently the Council has not undertaken a Gypsy and Travellers Needs Survey, so at present cannot justify the inclusion of any identified sites. A joint study covering the North Northamptonshire area has been commissioned, and the results of this study will be available late 2006. This will be reviewed to take into account any findings that may highlight a need within this Plan area. It is a Government requirement to identify potential sites if there is a need shown through the study.

Transport and Accessibility

4.98 The Community Strategy for East Northamptonshire aims to reduce dependence on the car and improve access to public and community transport for all people including school travel.

4.99 Bus services run between the towns and out of the Plan area to the adjacent settlements. Other transport choice is limited, with the nearest railway station in Wellingborough and minimal use of the River Nene for freight transport.

4.100 The Core Strategy has identified the A45, among others, as a key strategic corridor in North Northamptonshire and there is an intention for improvements to be made to this trunk road in the future to allow it to carry out its role in North Northamptonshire.

4.101 As well as road improvements, priority will also be given to developing the public transport links in the Plan area. Improvement to the movement of people in the Plan area as well as links with the other surrounding towns, especially those that have railway stations will be crucial to provide an alternative to the private car.

Preferred Option

4.102 The Plan will support the preferred Core Strategy by promoting key THRE E TO W N S PL AN 31 development on locations either well served by (or offering the potential for) public transport, pedestrian and cycle links.

Other Options Considered

4.103 The “do nothing approach” – however this would not encourage development or improvements of the public transport network.

Residential Car Parking

4.104 Strategic planning guidance states that parking policies are a significant element in the overall challenge to create sustainable developments. Government policy is that developments having on average more than 1.5 car parking spaces per dwelling should not be permitted. New draft Government policy does however recognise that in some areas a higher provision may be needed, such as in remote rural areas where public transport is presently limited. Parking policies will need to have regard to expected levels of car ownership in different locations, the efficient use of land and the importance of promoting good design.

4.105 In most of the Three Towns Plan area, alternatives to the private car are more viable than other parts of the district. Facilities and employment in the towns are within walking or cycling distance of most residential areas. Bus services are available, although they require some improvement in terms of quality and frequency.

4.106 The towns in the Plan area provide many different services and facilities for the villages of Chelveston cum Caldecott and Newton Bromswold. Due to the size and location of these villages, it is unlikely that transport choice can be sufficiently increased to access services in the three towns. In line with the Core Strategy for the area, and the general approach to be followed in the Three Towns Plan, development in these villages will be restricted to meeting local affordable housing needs and any exceptional circumstances linked with rural diversification.

Preferred Option

4.107 Parking policy for the three towns will recognise their more accessible nature and range of facilities. In the town centres there will be a recognition of the mixed use nature of development and the likelihood that residential accommodation will include less family housing. Some town centre locations with good accessibility to services may require no residential car parking spaces.

4.108 A criteria based policy will be developed to ensure clarity for this policy issue in relation to transport choice, this will consider the need for parking provision against the transport choice available.

4.109 In the villages, any residential development to meet local needs may require higher parking provision to reflect the availability of alternative means of transport to services and employment.

32 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRII NC PLES

Other Options Considered

4.110 Higher provision throughout the Plan area was considered, however policies need to recognise the urban nature of most of the area and the greater accessibility of services and facilities, therefore less requirement for a private vehicle.

4.111 Lower provision (maximum 1.5 spaces per dwelling) throughout the Plan area was also considered, in line with current Government policy. However this does not recognise the varied nature of the Plan area and take into account the needs of rural communities in particular.

Air Transport

4.112 Chelveston Airfield is located within the open countryside and has previously been used by the RAF and USAF as an operational airfield and more recently by the USAAF as a high frequency radio station with some 15 or more tall masts. Most of the onsite buildings and former radio masts have been removed and the site has become naturalised into the landscape. To the west of the site there are a number of existing MoD residential units. The site is located within the open countryside.

Preferred Option

4.113 Due to the naturalisation of the site, it is appropriate to consider the airfield site as greenfield land. As a result the site would be restricted by national and local planning policies for greenfield land within the open countryside.

4.114 The existing dwellings will be considered as being within the open countryside with only small scale residential alterations and extensions being considered appropriate as long as other policy and material considerations are met.

Other Options Considered

4.115 Allow the site to be developed as a local airfield. This was not considered appropriate due to the unsustainable nature of air transport, the visual impact of development of this nature in the open countryside and the wider environmental effects on the quality of life for local residents.

4.116 Allow the site to be developed for employment uses. This was not considered appropriate due to the unsustainable location of the site, the visual impact of development of this nature in the open countryside and the wider environmental effects on the quality of life for local residents.

4.117 To treat the MoD housing site as a village and draw a boundary around the built up area using the criteria at the beginning of the document in paragraph 4.11. This would allow infill, conversions and extensions as long as other policy and material considerations are met. This is not considered appropriate as the site has no facilities and would be an unsustainable location for further development.

THRE E TO W N S PL AN 33 Town Centres and Retail Issues Town Centres and Primary Shopping Areas

4.118 National guidance (PPS6 – Planning for Town Centres) stresses the importance of maintaining the vitality and viability of town centres, as the main focus of shopping provision in particular. PPS6 provides most of the guidance that is necessary, and a detailed proliferation of policies relating to specific retailing issues should be avoided.

4.119 It is also noted that the towns of Rushden, Higham Ferrers and Irthlingborough fulfil much more than a retailing function for their hinterlands, including providing a wide range of facilities for their areas. Leisure and recreation facilities, in particular, need to be supported by locating them in the town centres – a principle that is reflected in Government guidance contained in PPS6.

4.120 The identification of town centres and primary shopping areas is required by national and strategic guidance, and the definition of these policy areas provides the basis for the operation of the sequential approach required by PPS6, which seeks to prefer town centre locations before edge of centre (and then out of centre) sites for development.

4.121 PPS6 advises that the town centre should be identified as the area that includes the primary shopping area and also the adjacent areas of predominantly leisure, business and other main town centre uses.

4.122 The Plan will define the primary shopping areas as those parts of the town centre where retail uses are focused. It is important that retail remains as a primary function of the town centre. It is important that in creating a “real” town centre with a mix of features that more diverse retail uses are established and that they are concentrated within or very close to the Primary Shopping Area.

4.123 The Plan will define the town centre boundary based on the following criteria:

■ main concentration of retail, including the Defined Shopping Frontage; ■ services and facilities well related to the main concentration of retail units.

4.124 The definition of a town centre boundary is a new concept that is not in the Local Plan.

Preferred Option

4.125 The Plan will define the town centres of Rushden, Higham Ferrers and Irthlingborough as illustrated in maps 4, 5 and 6.

4.126 The Plan will define the primary shopping area as those areas delineated as the Defined Shopping Frontages in the Local Plan (maps 4, 5 and 6).

34 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRINCIPLES

Map 4 (left) – Town centre and primary shopping area for Rushden Map 5 (right) – Town centre and primary shopping area for Higham Ferrers

8 1

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Reproduced from the Ordnance10 SurveyST mapping with the permission of theWor Controller ks of He r Majesty’s Stationery Office. © Crown Copyright. Unauthorised reproduction infringes crown copyright and may lead to prosecution or 10 2

4 T Reproduced from the Ordnance Survey mapping with the permission of the Controller of He r Majesty’s Stationery Office. © Crown Copyright. Unauthorised reproduction infringes crown copyright and may1 lead to prosecution or

16 E

E E 2

civil proceedings. East Northamptonshire Council. Licence No. 100019072. 2006. For Reference Purposes OnlOS y. No further Copies may be made. R

9 1 L T civil proceedings. East Northamptonshire Council. Licence No. 100019072. 2006. For Reference Purposes Only. No further Copi esma y be made. C S lSubS E H 4 OK 8 T E

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Reproduced1 from the Ordnance Survey mapping with the permission of the Controller of He r Majesty’s Stationery Office. © CrownCLO Copyright. Unauthorised reproduction infringes crown copyright and may lead to prosecution or 13 2 E 2

1 TH 3

civil proceedings. East Northamptonshire Council.1 Licence No. 100019072. 2006. For Reference Purposes Only. No further Copi esma y be made.

Y

1 2 A S T Greenvale W R AW OW D THREE TOWNS PLAN 35 Other Options Considered

4.127 None – The identification of town centres and primary shopping areas is required by national and strategic guidance.

Approach to Town Centre Development

4.128 Whilst different areas of town centres present different opportunities in the extent, range and composition of mixed use, creating high density mixed use development remains a key objective in the pursuit of a broader, more sustainable and more diverse urban environment. This should not be confused with “high rise” development, as it is considered that development can make more efficient use of land and still sit in context with their surroundings.

Preferred Option

4.129 The approach to town centre development is to positively and proactively support the three town centres by encouraging a mix of uses, activities and investment that will sustain or enhance their character, attractiveness, vitality and viability. This type of support will aid the three towns to avoid competition from nearby town centres in other districts. Rushden’s role as the primary centre in the Plan area will be enhanced through major regeneration proposals outlined in section 6 of this document. Higham Ferrers and Irthlingborough will consolidate their roles as local centres, serving the day to day needs of the town communities.

Other Options Considered

4.130 Do nothing and allow market forces to determine the future roles of the town centres. This is not preferred as it will lead to a continuing decline in a range of facilities available, as retailers in particular increasingly focus their efforts on larger centres.

Green Infrastructure

4.131 Green Infrastructure is the term used to describe the network of green spaces in an area, whether existing or potential. These spaces may have a range of uses, such as recreation and leisure, but they may also have value for nature conservation or heritage purposes, and may provide an important open break within mainly developed areas. Development should be planned within this framework of green spaces and provide opportunities to improve access, enhance wildlife or heritage value, and contribute to wider health, social and economic objectives. Across the county as a whole, key green infrastructure corridors have been identified that mainly follow the river valleys and link these with ancient woodland and other locally distinctive habitats. Further locally important corridors provide additional connections into the heart of the urban areas, although these are generally in need of enhancement to achieve a wider range of benefits for local communities.

4.132 The three towns of Higham Ferrers, Rushden and Irthlingborough all 36 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRINCIPLES overlook the Nene Valley, which is one of these key green infrastructure corridors. The valley helps to keep the three towns apart and to retain their individual identities, rather than simply becoming one large urban area over the years. It is also a nearby and generally accessible recreation resource for the 40,000 people currently living there. Locally, there are green wedges extending into all three towns and providing vital links to the wider river valley. The main green wedge is to the north of Rushden and is discussed in more detail in the Rushden Development Principles section of this document. There are also important green wedges to the west of Higham Ferrers and both to the west and south of Irthlingborough.

4.133 Additionally, the North Northamptonshire Core Strategy identifies ‘strategic gaps’ between Wellingborough’s eastern expansion and the towns of Irthlingborough and Rushden, to prevent future merging of development areas.

4.134 The disused Rushden and Higham branch railway line links the main green wedge to the north of Rushden with the town centre. It then runs through to link into open space to the east of both Higham Ferrers and Rushden. It is a key part of the green framework which includes the various public parks, recreation grounds and informal open spaces within the towns, some of which are identified for protection as ‘important open land’ in the current Local Plan. This green framework needs to be enhanced for the benefit of existing and future residents.

4.135 Sufficient recreational and amenity open space must be provided throughout the Plan area to meet the existing and future open space needs of the community. Government guidance requires the Council to prepare strategies for the provision and enhancement of open spaces, sport and recreational facilities based on up to date assessment of need. The Council has recently completed an audit of open space along with an assessment of quality and accessibility of these areas and this work will inform an open space strategy for the district. The strategy will identify where existing provision should be retained, enhanced or relocated; where provision is surplus to requirements; and where provision is needed for new open spaces and built facilities. The overall strategy and resulting policies in the Plan will be underpinned by the setting of local provision standards based on the above assessment.

Preferred Option

4.136 The Plan will use the completed open space study and the resulting open space strategy as the basis for planning policies and proposals in the area. The Plan will seek to protect and enhance the green framework provided by existing important open land designations, recreation and amenity areas. Policies will support and promote a varied network of accessible green spaces and parks, providing for a range of uses. Current and potentially future important open space designations will be assessed against the findings of the study, and identified within the Plan as appropriate.

4.137 It is the preferred approach to retain the current Important Open Land designations as part of this overall approach to enhancing green infrastructure for the area. The existing designations in the Local Plan have helped to maintain the form and character of towns and villages and have prevented visually important areas from being lost to infill development. The Plan will identify the existing designations and new proposals. THRE E TO W N S PL AN 37 4.138 The Plan will identify the extent of the strategic gaps between the planned growth of Wellingborough and Rushden / Irthlingborough.

Other Options Considered

4.139 No other options considered. PPG17 requires the preparation of an open space assessment and the findings of these to be used in the development of policies and proposals.

4.140 In terms of retaining the Important Open Space designations, the Plan could de-allocate these areas in preference for a design based approach which would help to avoid loss of character. However, this is not considered to provide enough certainty and protection for areas that are important to the form and character of the villages.

Flood Prevention

4.141 The overall standard of flood defence in the Plan area is a key issue in determining planning applications and in the selection and assessment of sites for development.

4.142 Since 1998 the Environment Agency has adopted a 200-year defence standard in the design of urban flood alleviation schemes along the Nene Valley (e.g. Northampton and Thrapston). This has been matched by corresponding adoption by local planning authorities upstream of East Northamptonshire of an equivalent standard. A recent report commissioned by the Council recommended that the Council adopt the current 200-year standard of flood protection afforded by the Environment Agency in the recently completed Thrapston flood alleviation scheme as a common standard for all significant development within East Northamptonshire, both in respect of flood risk to that development and for measures taken by developers to attenuate additional run off generated by that development. This standard is supported by the insurance industry.

Preferred Option

4.143 The Plan will adopt a 200 year standard of flood protection across the Plan area and take into account the overall recommendations of the Strategic Flood Risk Assessment.

Other Options Considered

4.144 None in terms of establishing a standard of flood defence. It is critical that the Plan provides sufficient standards of defence to avoid development in areas at risk from flooding and it is a requirement of Government guidance in PPG25 on flood risk. The preferred 200 year standard is recommended by specialists working on behalf of the Council and the insurance industry. Furthermore the Environment Agency has indicated support.

38 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRII NC PLES Tourism

4.145 The Southern part of the district comprises mainly of urban areas with strong historic links that attract visitors and contribute to the local economy. Rushden is the largest town in the district with a strong interest in historical transport, and local attractions include a Rushden museum and an historical transport museum. Higham Ferrers has many important architectural buildings and Irthlingborough has a mix of historic and modern buildings all these attract a wide range of people to the area. The River Nene flows through the Plan area and this attracts many walkers and nature enthusiasts to the area. Visitor accommodation includes hotels, bed and breakfasts, self catering accommodation and other places to stay overnight or for longer breaks.

4.146 The extant Local Plan is generally supportive of tourism proposals. More recent strategic planning guidance encourages tourism development in larger settlements and appropriate small scale schemes in rural settlements where they assist farm diversification or the retention of buildings which contribute to the character of the countryside.

4.147 Visitors to the area must be managed in a sustainable way, and a balance reached between the concerns of residents about traffic and pollution and the need to support local businesses which provide services to visitors.

Preferred Option

4.148 The towns are the preferred location for tourism development, where businesses and facilities are concentrated, and accessibility by public transport is highest.

4.149 Outside the built up areas, development for the benefit of visitors will assist rural diversification, benefit the local economy and facilitate the reuse of rural buildings which contribute to the character of the area. Wherever possible, tourist development should be accommodated in existing or replacement buildings. New buildings will be permitted only where a range of criteria are satisfied, such as conforming with Government guidance, the need for facilities in conjunction with an existing countryside attraction and that development does not detract from the character and appearance of the countryside, requires a countryside location and cannot be accommodated in urban location.

4.150 Extensions to existing tourist accommodation must be of a scale appropriate to its location, and where the extension may help to ensure the future viability of such businesses. However, it should not detract from the vitality and viability of existing centres or damage the environment which attracts visitors to the area.

4.151 The River Nene Regional Project is examining the case for a regional park within the wider green infrastructure study. The Plan will take account of any proposals that emerge from this work.

THRE E TO W N S PL AN 39 Other Options Considered

4.152 Do not encourage tourism development on the grounds that it will encourage increased car travel. This approach underplays the economic benefits of tourism which can be managed in a sustainable way, in order to create a balance between the various aspects of sustainability.

Parish Plans

4.153 Information set out in a Parish Plan (or Village Design Statement) may provide a valuable input into the preparation of the Plan, and can provide a high level of local detail regarding issues such as local characteristics, needs, opportunities and concerns which can be material considerations when determining planning applications.

Preferred Option

4.154 During the preparation of the Plan, and subsequent review, the Council will have regard to the contents of any Parish Plans and Village Design Statements submitted to the Council in the formulation of policy. The Council promotes these as they help to build consensus on local community aspirations.

Other Options Considered

4.155 Parish Plans could be adopted as Supplementary Planning Documents, however there are onerous regulations (for example, the need for sustainability appraisal and the need to be identified in the Local Development Scheme).

Local Nature Reserves

4.156 The River Nene flows through the Plan area, which leads to a great diversity in habitats, including the Ditchford Lakes and Meadows area. The Ditchford Lakes and Meadows area is a complex of old gravel pits, grassland and scrub which is important for breeding and wintering birds. It will be important that these sites are protected and enhanced through appropriate management and buffering and through the creation of habitat links between them. Several SSSI’s have been designated along the course of the River Nene, the local nature reserve in this area will complement this designation and protect a wider area of land in this location.

4.157 Most of the site is owned by East Northamptonshire Council but the large field in the north west and the south eastern corner around the old water purification plant are both in separate, private ownership.

4.158 Local Nature Reserves (LNR’s) are places with wildlife or geological features that are of special interest locally. They offer people opportunities to study or learn about nature or simply to enjoy it. The designation of Local Nature Reserves would add to the rich quality and biodiversity of the District contributing to the character and attractiveness of the area.

40 THRE E TO W N S PL AN GENERAL DEVELOPMENT PRINCIPLES

4.159 Designating Local Nature Reserves is seen as a useful planning tool for a number of reasons such as protecting wildlife habitats and natural features, and offering a positive use for land which local authorities would prefer was left undeveloped. In addition, because Local Nature Reserves is a statutory declaration, it is a very clear signal to a local community of the authority’s commitment to nature conservation.

Preferred Option

4.160 The Plan will designate Ditchford Lakes and Meadows (as shown in map 7) as a Local Nature Reserve, in liaison with English Nature and the land owners.

Map 7 – Area to be designated Local Nature Reserve

Ditchford Lakes and Meadows ¯

Ditchford Lakes and Meadows Boundary

SSSI

Proposed Local Nature Reserve

Reproduced from the Ordnance Survey mapping wi th the permi ss i on of the Controll er o f Her Majesty's Stati onery Office.© Crown Copyri ght. Unauthori sed reproductioni nfr i nges crown copyri ght and mayl ead to prosecution or civil proceedings. East Northamptonshi re Counc il . L i cence No. 100019072. 2006. For Reference Purposes Only. No further Copi es may be made. Other Options Considered

4.161 Not designating the site is rejected because Local Nature Reserve designation will allow for a more integrated approach to site management to protect the wildlife interest and public enjoyment of the site.

THRE E TO W N S PL AN 41