Report on Highgate Neighbourhood Plan 2016 - 2031 An Examination undertaken for the London Boroughs of Haringey and Camden Councils with the support of the Highgate Neighbourhood Forum, on the July 2016 submission version of the Plan. Independent Examiner: Jill Kingaby BSc(Econ) MSc MRTPI Date of Report: 28 February 2017 Intelligent Plans and Examinations (IPE) Ltd, Regency Offices, 3 Portwall Lane, Bristol BS1 6NB Registered in England and Wales. Company Reg. No. 10100118. VAT Reg. No. 237 7641 84 1 Contents Page Main Findings - Executive Summary 3 1. Introduction and Background 3 • Highgate Neighbourhood Plan 2016 – 2031 3 • The Independent Examiner 4 • The Scope of the Examination 4 • The Basic Conditions 5 2. Approach to the Examination 5 • Planning Policy Context 5 • Submitted Documents 6 • Site Visit 7 • Written Representations or Public Hearing 7 • Modifications 7 3. Procedural Compliance and Human Rights 7 • Qualifying Body and Neighbourhood Plan Area 7 • Plan Period 8 • Neighbourhood Plan Preparation and Consultation 8 • Development and Use of Land 8 • Excluded Development 8 • Human Rights 9 4. Compliance with the Basic Conditions 9 • EU Obligations 9 • Main Issues 9 • Issue 1 – Social and Community Needs and 10 Economic Activity • Issue 2 – Transport 14 • Issue 3 – Open Spaces, Public Realm and Historic 16 Environment • Issue 4 – Key Sites 21 5. Conclusions 24 • Summary 24 • The Referendum and its Area 24 Appendix: Modifications 26 Intelligent Plans and Examinations (IPE) Ltd, Regency Offices, 3 Portwall Lane, Bristol BS1 6NB Registered in England and Wales. Company Reg. No. 10100118. VAT Reg. No. 237 7641 84 2 Main Findings - Executive Summary From my examination of the Highgate Neighbourhood Plan and its supporting documentation including the representations made, I have concluded that subject to the policy modifications set out in this report, the plan meets the Basic Conditions. I have also concluded that: - The plan has been prepared and submitted for examination by a qualifying body – the Highgate Neighbourhood Forum; - The plan has been prepared for an area properly designated – the Highgate Neighbourhood area as shown on the map at Figure 1 of the Neighbourhood Plan (NP); - The plan specifies the period to which it is to take effect – paragraph 1.4.8 states that the Plan will cover the 15 year period 2016-31; and - The policies relate to the development and use of land for a designated neighbourhood area. I recommend that the plan, once modified, proceeds to Referendum on the basis that it has met all the relevant legal requirements. I have considered whether the referendum area should extend beyond the designated area to which the plan relates and have concluded that it should not. 1. Introduction and Background Highgate Neighbourhood Plan 2016 - 2031 1.1 The idea of establishing a Neighbourhood Forum and producing a NP was first discussed at a meeting in January 2012 at the Highgate Society. Local organisations and Councillors were invited and the requirements of the Localism Act 2011 explained. Some seventy people attended and agreed to create a Forum. As stated in paragraph 1.4.9 of the NP, the Forum had to define the boundaries of the neighbourhood area which straddles the London Boroughs of Haringey and Camden. Beginning with the London N6 postcode area and after consulting residents’ associations and representatives of neighbouring plan areas, the NP area of Highgate was defined. The final Neighbourhood Plan Area was approved by both London Boroughs in December 2012 and is shown in Figure 1. Intelligent Plans and Examinations (IPE) Ltd, Regency Offices, 3 Portwall Lane, Bristol BS1 6NB Registered in England and Wales. Company Reg. No. 10100118. VAT Reg. No. 237 7641 84 3 The Independent Examiner 1.4 As the plan has now reached the examination stage, I have been appointed as the examiner of the Highgate Neighbourhood Plan by Haringey and Camden Councils, with the agreement of the Highgate Neighbourhood Forum. 1.3 I am a chartered town planner and former government Planning Inspector, and have experience examining other neighbourhood plans. I am an independent examiner and do not have an interest in any of the land that may be affected by the draft NP for Highgate. The Scope of the Examination 1.4 As the independent examiner I am required to produce this report and recommend either: (a) that the Neighbourhood Plan is submitted to a referendum without changes; or (b) that modifications are made and that the modified Neighbourhood Plan is submitted to a referendum; or (c) that the Neighbourhood Plan does not proceed to a referendum on the basis that it does not meet the necessary legal requirements. 1.5 The scope of the examination is set out in Paragraph 8(1) of Schedule 4B to the Town and Country Planning Act 1990 (as amended) (‘the 1990 Act’). The examiner must consider: • Whether the plan meets the Basic Conditions; • Whether the plan complies with provisions under s.38A and s.38B of the Planning and Compulsory Purchase Act 2004 (as amended) (‘the 1990 Act’). These are: - it has been prepared and submitted for examination by a qualifying body, for an area that has been properly designated by the Local Planning Authority1; - it sets out policies in relation to the development and use of land; - it specifies the period during which it has effect; - it does not include provisions and policies for ‘excluded development’; 1 In this case section 61I of the 1990 Act applies, as the designated area falls within two local authorities, Camden and Haringey. Intelligent Plans and Examinations (IPE) Ltd, Regency Offices, 3 Portwall Lane, Bristol BS1 6NB Registered in England and Wales. Company Reg. No. 10100118. VAT Reg. No. 237 7641 84 4 - it is the only Neighbourhood Plan for the area and does not relate to land outside the designated neighbourhood area; - whether the referendum boundary should be extended beyond the designated area, should the plan proceed to referendum; and • Such matters as prescribed in the Neighbourhood Planning (General) Regulations 2012 (‘the 2012 Regulations’). 1.6 I have considered only matters that fall within Paragraph 8(1) of Schedule 4B to the 1990 Act, with one exception. That is the requirement that the Plan is compatible with the Human Rights Convention. The Basic Conditions 1.7 The ‘Basic Conditions’ are set out in Paragraph 8(2) of Schedule 4B to the 1990 Act. In order to meet the Basic Conditions, the Neighbourhood Plan must: - Have regard to national policies and advice contained in guidance issued by the Secretary of State; - Contribute to the achievement of sustainable development; - Be in general conformity with the strategic policies of the development plan for the area; - Be compatible with and not breach European Union (EU) obligations; and - Meet prescribed conditions and comply with prescribed matters. 1.8 Regulation 32 of the 2012 Regulations prescribes a further Basic Condition for a Neighbourhood Plan. This requires that the Plan should not be likely to have a significant effect on a European Site (as defined in the Conservation of Habitats and Species Regulations 2012) or a European Offshore Marine Site (as defined in the Offshore Marine Conservation (Natural Habitats etc.) Regulations 2007), either alone or in combination with other plans or projects. 2. Approach to the Examination Planning Policy Context 2.1 The “development plan” for Highgate, not including plans relating to excluded minerals and waste development, is complex. As the Basic Intelligent Plans and Examinations (IPE) Ltd, Regency Offices, 3 Portwall Lane, Bristol BS1 6NB Registered in England and Wales. Company Reg. No. 10100118. VAT Reg. No. 237 7641 84 5 Conditions Statement sets out, the following documents for the Greater London Authority and London Boroughs of Camden and Haringey have been adopted as the development plan and they set out policies for the development and use of land: • The Spatial Development Strategy for Greater London, the London Plan 2016; • Camden Core Strategy 2010; • Camden Development Policies 2010; • Haringey Local Plan Strategic Policies 2013; and • Haringey saved UDP Policies, 2013. In addition, Haringey is preparing a new suite of Local Plan documents which are currently undergoing examination and are likely to supersede the 2013 plans in the near future. A new Camden Local Plan was submitted for examination in June 2016 and is expected to replace the 2010 plans on adoption. The precise form and content of these emerging plans is not yet wholly set as the examinations are still underway, however, they are at a sufficiently advanced stage for the strategic direction to be relatively clear. 2.2 The planning policy for England is set out principally in the National Planning Policy Framework (NPPF). The Planning Practice Guidance (PPG) offers guidance on how this policy should be implemented. PPG makes clear that whilst a draft neighbourhood plan is not tested against the policies in an emerging Local Plan, the reasoning and evidence informing the Local Plan process is likely to be relevant to the consideration of the Basic Conditions against which a neighbourhood plan is tested. It cites, as an example, that up-to-date housing needs evidence is relevant to the question of whether the housing supply policy in a neighbourhood plan contributes to the achievement of sustainable development2. Paragraph 184 of the NPPF also provides, “The ambition of the neighbourhood should be aligned with the strategic needs and priorities of the wider area”. On this basis, I make reference to Haringey and Camden’s emerging Local Plans in this report. Submitted Documents 2.3 I have considered all policy, guidance and other reference documents I consider relevant to the examination, including those submitted which comprise: • the submission draft Highgate Neighbourhood Plan 2016-2031; • the map in Figure 1 of the Plan which identifies the area to which the proposed neighbourhood development plan relates; • the Consultation Statement, May 2016; • the Basic Conditions Statement, April 2016; • all the representations that have been made in accordance with the Regulation 16 consultation; and • the Strategic Environmental Assessment (SEA), Regulation 16 update prepared by AECOM.