Scarborough Borough Council November 2015 Scarborough Borough Local Plan Settlement Hierarchy Background Paper Scarborough Filey Settlement Hierarchy Background Paper CONTENTS 1.0 INTRODUCTION 2.0 THE SETTLEMENT HIERARCHY 3.0 THE BOROUGH’S SETTLEMENTS APPENICES APPENDIX 1: SETTLEMENT ASSESSMENTS APPENDIX 2: BUS TIMES Settlement Hierarchy Background Paper 1.0 INTRODUCTION 1.1 A key role of the Local Plan is to manage the scale and pattern of development across the Borough as a means of delivering sustainable growth; recognising that development that makes use of existing facilities and services, and thereby reduces the need to travel by private car, is inherently ‘more sustainable’ than isolated development. This is reflected in paragraph 17 of the National Planning Policy Framework (NPPF), which states that planning should, as one of the 12 core planning principles; “…actively manage patterns of growth to make the fullest use of public transport, walking and cycling, and focus development in locations which are or can be made more sustainable.” 1.2 To this end, the Local Plan recognises that the potential capacity for growth differs from settlement to settlement, depending on their sustainability. The sustainability of a settlement is defined by its functional role within the overall network of settlements, which is in turn shaped by the level of services and facilities it provides. This is reflected within the plan’s Settlement Hierarchy policy (policy SH1). What is the Settlement Hierarchy? 1.3 The Settlement Hierarchy provides a basic framework for managing the broad distribution of development across the Borough. It categorises settlements according to their relative sustainability within a hierarchical (tiered) structure; distinguishing between those that have access to a wide range of services and facilities, including access to major service centres by public transport, and those that do not. 1.4 This approach allows development to be initially targeted towards locations where existing and future residents are able to access services and facilities by means other than the car, thus following the approach advocated by the National Planning Policy Framework. 1.5 It should be noted that the designation of a settlement within a particular tier of the hierarchy does not mean that it will have to accommodate a certain level of growth in the absence of suitable development sites. The precise scale and location of development (site allocations) will ultimately be determined through a detailed assessment of respective sites against detailed policy considerations. Conversely, the designation of a settlement does not preclude otherwise appropriate development from coming forward, e.g. infill development, redevelopment of existing buildings, exceptions housing (to meet identified local needs), etc. What is the purpose of this paper? 1.6 The purpose of this background paper is to provide the justification and context for the settlement hierarchy policy by detailing the precise level of service provision within each the Borough’s settlements. The paper is split into two parts; with part one providing the assessment of service provision and part two setting out a description of the Borough’s settlements. NOTE: The Settlement Hierarchy only covers those settlements in Scarborough Borough that are outside of the North York Moors National Park. 1 Settlement Hierarchy Background Paper 2.0 THE SETTLEMENT HIERARCHY Assessment Criteria 2.1 The criteria used to assess the relative sustainability of the Borough’s settlements have been derived from an analysis of relevant national and local policy. At the national level, the National Planning Policy Framework (NPPF) acknowledges the three dimensions of sustainability (economic, social and environmental) and from a social perspective, it states that planning should create a “high quality built environment, with accessible local services that reflect the community’s needs and support its health, social and cultural well-being”. 2.2 Chapter 8 of the NPPF has regard to the promotion of healthy communities. Notably, paragraph 70 states that planning should deliver the social, recreational and cultural facilities that a community needs. These include shared space (mixed use public realm), community facilities (such as shops, meeting places, sports venues, cultural buildings, public houses and places of worship) and other local services to enhance the sustainability of communities and residential environments. 2.3 At the local level, the Borough’s Sustainable Community Strategy (SCS) aims to ensure that local communities are able to prosper, be safe and healthy, inclusive and vibrant, accessible and to live in high-quality environments. More specifically, it recognises the intrinsic links between quality of life and being able to access employment opportunities, leisure and social activities and other essential services. 2.4 Given the above, the criteria used for assessing the relative sustainability of a settlement includes, whether it contains (within its determined boundary) the following facilities and services: • Food Store / Supermarket; • Other Convenience Stores; • Post Office; • Other Local Services (e.g. Banks, Library); • Primary School; • Health Facility / Surgery; • Community or Village Hall; • Employment Units; • Public House; • Open space; • Accessible Public Transport Provision. 2.5 These criteria are explained in further detail in Table 2.1 below. The table also provides a scoring matrix that will be used to allow for a simple comparison to be made between respective settlements. The scores for each of the criteria have been weighted to reflect the relative importance of the respective facilities to the overall sustainability of a settlement, i.e. to reflect that a Post Office is more important than a public house. 2.6 For the majority of criteria, the score indicated in the table below is the maximum score, whereby the presence of more than one facility of the same type does not score two (or more) times the points. However, those marked with an asterisk (*) will score 1 additional point for every additional facility of that type, e.g. a settlement with 2 Settlement Hierarchy Background Paper three “other convenience stores” will score three points, where a settlement with two primary school will only score the maximum total of four points. Table 2.1: Settlement Assessment Criteria Criteria Description Score Food Store Access to a food store within or adjacent to the settlement. This can include supermarkets, local shops and other stores that sell ‘everyday’ fresh food items like bread, milk, eggs. 3 In rural areas these could include petrol stations, garden centres, butchers, etc. Other Access to shops that provide other essentials such as Convenience butchers, bakers, greengrocers, pharmacies and Stores newsagents. It does not include bespoke stores that only 2* sell specialist comparison goods, e.g. crafts, equestrian goods, etc. Post Office Access to a Post Office within or adjacent to the settlement. 3 Other Local This refers to such facilities as banks, libraries and bespoke Services comparison stores. Whilst these are seen as being less 1* important than general food and other stores they do serve a purpose for a limited part of the community. Access to A primary school within the settlement. Primary 4 Education Doctors The provision of a doctors surgery or health facility within or Surgery or adjacent to the settlement. 3 other Health Provision Community A facility within or adjacent to the village available for the or Village Hall community. This can be in the form of a village hall, club or 2 other provision. Employment Significant local employment opportunities within or Units adjacent to the settlement providing sustainable live/work 2 patterns of development. Public House A public house within or adjacent to the settlement. 2* Open Space Accessible open/green space within walking distance. This includes access to sports pitches/playing fields, children’s 2 play areas and other recreational spaces. Place of A Place of Worship, e.g. church, temple, synagogue, 2* Worship mosque, within or adjacent to the settlement Accessible The settlements will be assessed in relation to their and Regular regularity of public transport to the main towns of Public Scarborough, Whitby and Filey (potentially Bridlington from Transport the southern villages of Reighton and Speeton) and scored accordingly. Settlements that have at least an hourly service will be classified as having met the criteria for accessible and regular transport. Before 09:00 and return after 17:00 (7 days a week) 4 Before 09:00 and return after 17:00 (excluding Sunday) 3 Before 10:30 and return after 15:00 2 Daily Service 1 No Service 0 3 Settlement Hierarchy Background Paper 2.7 The assessment results for each settlement are set out in Appendix 1 of this paper. Structure of the Settlement Hierarchy 2.8 The basic structure of the Settlement Hierarchy, which has been established through the various stages of plan production, is set out in the figure below. The settlements at the top of the hierarchy are considered to be ‘more sustainable’ than settlements falling within each subsequent tier. The description of each tier is provided in the commentary below. Tier 1: Scarborough Urban Area Tier 2: Whitby Tier 3: Filey Tier 4: Service Villages Tier 5: Rural Villages Tier 6: Countryside Figure 2.1: The Settlement Hierarchy Structure Main Towns (Hierarchy Tiers 1 to 3) 2.9 By virtue of their respective size (population) and services they provide, the Borough’s three main towns are positioned at the top of the hierarchy. The Scarborough Urban Area (as defined within Chapter 3 of this paper) is the largest town in the Borough, followed by Whitby and then Filey. The towns are positioned accordingly within the hierarchy. 2.10 It should be noted that this paper does not provide an assessment of the precise level of service provision within the main towns. The description of each town as set out in Chapter 3 is considered to provide sufficient justification / evidence of the respective roles of the main settlements.