Making and Growing Places - Darlington Borough Council

Transcription

Making and
Growing Places
Preferred Options
Development Plan Document
June 2013
Darlington Borough Council
June 2013
CONTENTS
1. Introduction
What is this document and consultation all about?
2. Context
Draft Policy MGP1
5
5
9
11
3. Achieving a More Sustainable Community
14
Draft Policy MGP3 – Town Centre Fringe
33
Draft Policy MGP2 – Darlington Town Centre
Draft Policy MPG4 – Existing Strategic Commitments
Draft Policy MGP5 – North West Urban Fringe
Draft Policy MGP6 – Eastern Urban Fringe
20
39
49
58
Draft Policy MGP7 – Durham Tees Valley Airport
63
Draft Policy MGP9 – Economic Development in the Open Countryside
69
4. Prosperous Darlington
71
5. A Vibrant Town Centre and Accessible Shops and Services
77
Draft Policy MGP13 – The Primary Shopping Area
84
Draft Policy MGP15 – District and Local Centres
86
Draft Policy MGP8 – Development Limits
Draft Policy MGP10 – Residential Uses in the Open Countryside
Draft Policy MGP11 – Promoting Employment Opportunities
Draft Policy MGP12 – Town Centres
Draft Policy MGP14 – Fringe Shopping Areas
65
70
74
84
85
6. Quality Housing for All
87
Draft Policy MGP17 – Top-End Executive Housing
96
Draft Policy MGP16 – New Housing Sites
Draft Policy MGP18 – Red Hall Housing Regeneration Area
93
98
Draft Policy MGP19 – Housing Intensification
102
7. A Distinctive, Greener, Cleaner Environment
107
Draft Policy MGP22 – Local Landscape Character
119
Draft Policy MGP24 – Green Infrastructure Standards
126
Draft Policy MGP20 - Accommodating Travelling Groups
Draft Policy MGP21 – Protecting Darlington’s Heritage Assets
Draft Policy MGP23 – Green Infrastructure
Draft Policy MGP25 – Biodiversity and Geodiversity and Development
Draft Policy MGP26 – Outdoor Sports Facilities
106
112
125
130
136
8. Efficient and Effective Transport
137
Draft Policy MGP28 – Improving Access and Accessibility
149
Draft Policy MGP27 – Delivering a More Sustainable Transport Network
Draft Policy MGP29 – Parking Provision
9. Infrastructure
Draft Policy MGP30 – Physical Infrastructure
Draft Policy MGP31 – Supporting the Delivery of Community and Social Infrastructure
10. Managing Development
Draft Policy MGP32 – Safeguarding Amenity
Draft Policy MGP33 – Sustainable Design and Adaptation to Climate Change
148
149
150
152
159
160
162
167
Draft Policy MGP34 – Sustainable Drainage Systems (SUDS)
171
11. Monitoring
174
Draft Policy MGP35 – Airport Safety
2
PAGE
173
LIST OF FIGURES
FIGURE NUMBER TITLE
1.1
1.2
3.1.1
3.2.1
3.3.1
3.4.1
3.4.2
3.5.1
6.1.1
6.1.2
6.1.3
7.3.1
Relationship of Making and Growing Places to other planning policy documents
covering Darlington Borough
Stages of Preparation of Making and Growing Places
PAGE
6
7
Town Centre Regeneration Options
15
Central Park Masterplan Summary Diagram
35
Town Centre Fringe Sub Areas and Main Proposals
North West Urban Fringe Options
North West Urban Fringe Proposed Development
Options for locating initial housing at the Eastern Urban Fringe
Sources of expected new housing supply: 5 year periods
Sources of expected new housing supply: whole plan period
Housing Delivery Trajectory 2011-2026
30
43
46
53
90
90
92
Overview of Darlington’s Green Infrastructure Network
121
10.2.1
Designing Energy Efficient Developments
165
10.4.1
Safeguarding Zones and Public Safety Zone associated with Durham Tees Valley Airport
TABLE NUMBER
TITLE
2.6.1
Organisations engaged with under the Duty to Co-operate
12
Housing Requirement 2011-2026
89
8.1.1
10.3.1
Key features of the sub-regional transport network
Drainage Hierarchy
LIST OF TABLES
2.1.1
3.2.1
6.1.1
6.1.2
6.1.3
6.5.1
Summary of Local Plan Strategic Objectives
Town Centre Fringe Sub areas
Existing commitments and proposed allocations
Existing general commitments not started
Preferred Option: Planned provision for Gypsy and Traveller sites
11.1
AMR Indicators Identified
APPENDIX
TITLE
LIST OF APPENDICES
137
169
173
PAGE
9
32
74
74
104
175
PAGE
1
Saved Policy Replacement List
3
Local policies, plans, strategies and studies
182
Darlington’s Heritage Assets
185
2
4
5
6
7
8
Technical Papers List
Demonstrating Functional Need
178
181
184
Natural Environment and Rural Communities Act List
188
Locality Map
191
Open Spaces
190
3
Darlington Local Plan:
Making and Growing Places Preferred Options
FOREWORD
Darlington Borough Council’s places a high priority on growing the local
economy and stimulating appropriate development. Development plan policies
and site specific proposals can be one way of demonstrating this, indicating to
investors, developers and local people where the opportunities for new
development are and what infrastructure will be needed to help make them
happen.
This document sets out Darlington Borough Council’s preferred options for site
allocations and development management policies to guide development in
the Borough until 2026. Once adopted, it will be part of the new Local Plan
for the area, helping to make new places and shape the growth of the
Borough.
This consultation document contains 35 draft policies and covers a wide range
of topics. It builds on the policies in the Council’s Core Strategy and brings
together the results of several consultations which have taken place over the
past two years or so.
Responses from local people and other stakeholders have been taken into
account in policy development, but there have been difficult choices to make.
Please take a look at this document and the draft policies it contains to find
out what might affect you, the places and spaces that you use, and/or plans
for new land uses and developments that you may look forward to using.
The Council wants to hear your views on this now, so it can consider them in
finalising this document. Look out for publicity about the consultation events
where you will be able to talk to Planning Officers and find out more about
any aspect of the plan.
Please remember to send in any comments you wish to make. The closing date
for comments is 2nd August 2013.
Councillor Chris McEwan
Economy & Regeneration Portfolio Holder
June 2013
4
1. INTRODUCTION
1.1 WHAT IS THIS ‘MAKING AND GROWING PLACES’
DOCUMENT AND CONSULTATION ALL ABOUT?
1.1.1
1.1.2
1.1.3
1.1.4
1.1.5
This document sets out draft policies and proposals for using and developing
land. The Council wants to include these in its Darlington Local Plan, alongside
the already adopted policies contained in the Darlington LDF Core Strategy.
Once finalised, the policies and proposals in this document will replace the
remaining saved policies of the Borough of Darlington Local Plan (1997,
including adopted alterations 2001), and complete an up-to-date development
plan for the Borough. Once adopted, this document will replace the saved
policies listed in Appendix 1.
The relationship of this document to other planning policy documents relevant
to the Borough is set out in Figure 1.1, and the timetable and stages of
preparing the Making and Growing Places document are set out in Figure 1.2.
Each draft site allocation, policy or proposal in this document is the Council’s
preferred option for addressing the policy issues identified. The other options
considered before deciding on the preferred option are also outlined, and the
reasons for rejecting them are set out briefly. A draft policy should not be read
in isolation; there may well be other draft policies within the document that
are relevant to a particular site or type of development, and there could also
be relevant policies in the adopted Core Strategy.
A draft Policies Map has also been prepared to accompany this document. It
shows on an OS base where each site allocation is, and where each draft
policy or proposal would apply. It is best accessed on line via
www.darlington.gov.uk/planningpolicy. It will also be available to view at
public consultation events, and extracts will be provided on request.
This document and the accompanying draft Policies Map have been prepared
to allow the public and others to comment on the draft policies and
proposals. It also allows for those comments to be considered by the Council
in preparing its next version of the document and invites formal
representations on it. The period for making comments on this ‘Making and
Growing Places Preferred Options’ document is 21st June to 2nd August 2013.
For more details on how to comment, copies of the response form and for the
programme of the public consultation events please:
• visit www.darlington.gov.uk/planningpolicy, or
• e-mail Planning Policy at planning.policy@darlington,gov.uk , or
• telephone the Planning Policy team on 01325 388644
THE CLOSING DATE FOR RECEIPT OF COMMENTS IS
5PM ON FRIDAY 2ND AUGUST 2013
5
1.1.6
Copies of the document, response forms and key supporting technical
documents will be available at the Crown Street, Cockerton and mobile
libraries. Responses can be made in the following ways:
•
•
•
1.1.7
Using the on-line response form, and e-mailing it with any additional
attachments to [email protected]
Completing and returning a paper response form to:
Planning Policy Team
Freepost nea2890
Town Hall
Darlington DL1 5QT
Completing a comments form or speaking to a Planning Officer at one of
the public consultation events.
All written comments received will be acknowledged. A summary of all the
responses received will be published on the Council’s website as soon as
possible after the end of the consultation period, and advertised as available
in Darlington Together.
Figure 1.1: Relationship of Making and Growing Places to other planning policy
documents covering Darlington Borough
The Statuatory Development Plan
Local Plan
Local Development Plan Documents
Core Strategy Development Plan Document
(DPD) (adopted May 2011)
Making and Growing Places DPD
Preferred Options Publication (Spring 2013)
Final Publication and Submission (Spring 2014)
Adoption (December 2014)
Saved policies in the existing Darlington Local
Plan (adopted 1997, with alterations 2001).
Saved policies will be replaced when the Making
and Growing Places DPD is adopted.
Tees Valley Minerals
and Waste Core
Strategy DPD (adopted
October 2011)
Tees Valley Minerals
and Waste Policies and
Sites DPD (adopted
October 2011)
Any Neighbourhood Plans
Supplementary Planning Documents
Design of New
Development SPD
(adopted July
2011)
Planning
Obligations SPD
(adoption January
2013)
Tees Valley Waste
Management
Developments
SPD (adoption
Autumn 2013)
Community Infrastructure Levy (CIL) Charging Schedule (from 2014)
Statement of Community Involvement (to be updated in 2013)
6
1.1.8
1.1.9
A number of more technical documents, including a sustainability appraisal
and equalities impact assessment, have also been prepared setting out the
information underpinning the choice of policy direction. These are all available
on-line at www.darlington.gov.uk/planningpolicy, and on request by phoning
or e-mailing the planning policy team. A full list of the technical documents is
set out in Appendix 2.
For more details on how you can get involved in planning in Darlington, please
refer to the Council’s Revised Statement of Community Involvement (SCI).
Figure 1.2: Stages of Preparation of Making and Growing Places
Accommodating Growth DPD
Scoping Report, April 2012
Accommodating Growth DPD
Issues and Options Report,
November 2012
Making Places and Accommodating
Growth Scoping Report, March 2011
Eastern Town Centre Fringe
Area Action Plan Scoping
Report, January 2011
Making and Growing Places
Scoping Report, March 2011
Green Infrastructure Strategy
2012-26
Economic Strategy 2012-26
Housing Strategy 2012-17
THIS DOCUMENT
Preferred Options June 2013
CONSULTATION PERIOD:
21st June to 2nd August 2013
Sustainability Appraisal
FUTURE STAGES
Town Centre Fringe
Masterplan, April 2013
Town Centre Regeneration:
Vision, medium
term ambitions and core
development principles,
December 2012
Issue Publication Draft of Making and Growing Places
and invite representations.
January 2014
Submit Making and Growing Places to Government
for Examination
April 2014
Public Examination of Making and Growing Places
Summer 2014
Council adopts Making and Growing Places
December 2014
7
1.1.10 This document contains site specific policies and proposals and criteria-based
development management policies. These appear in the remainder of this
document in the following order:
Chapter 2: Context, including presumption in favour of development
Chapter 3: Achieving a More Sustainable Community, including policies
and proposals for the strategic development locations, Development Limits
and Rural Development Policies
Chapter 4: Prosperous Darlington, setting out the policy to promote
employment opportunities
Chapter 5: A vibrant town centre and accessible shops and services, including
Town Centre Frontages, Fringe Shopping Areas, District and Local Centres
Chapter 6: Quality Housing for All, including land for new housing, top-end
executive housing, housing intensification, housing regeneration at Red Hall
and accommodating travelling groups.
Chapter 7: A Distinctive Greener, Cleaner Environment, including heritage
and landscape policies, biodiversity and geodiversity, green infrastructure and
playing pitches
Chapter 8: Efficient and Effective Transport, including transport allocations,
access and accessibility, parking.
Chapter 9: Infrastructure, covering physical and social infrastructure
Chapter 10: Managing Development, covering amenity, alterations and
extensions, climate change adaptation, and sustainable urban drainage systems.
1.1.11 The suite of policies is slightly different to that proposed in the Scoping
Report, which was consulted on in October 2012. Policies on affordable
housing and specialist housing are no longer included, as the Core Strategy,
together with the Planning Obligations Supplementary Planning Document are
considered to provide enough guidance on these matters. It has also been
concluded that no local policy is needed on advertisements, accommodation
for older people, specialist housing or affordable workspace. There is sufficient
guidance on controlling advertisements in the National Planning Policy
Framework, accommodating older people and specialist housing has been
covered as parts of other policies in the plan (e.g. draft Policies MGP5 and 6),
and further work has shown that there is already sufficient affordable
workspace in the Borough. On the other hand, new issues have been
identified which require a suitable policy, such as airport safety, identifying
Red Hall as a housing regeneration area, and sustainable drainage, design and
adaptation to climate change.
1.1.12 In some instances, the policies in this document will replace all or part of
policies currently contained in the Core Strategy. This is to ensure that the
policy framework is in accordance with national planning policy and does not
include out of date information. Where this is the case, the relevant policies
have been identified in Appendix 1.
8
2. CONTEXT
2.0.1
2.0.2
The draft policies and proposals in this document have been prepared having
regard to national planning policy statements, such as the National Planning
Policy Framework, and local strategies, such as the Darlington Economic
Strategy and the Darlington Housing Strategy, that have been completed since
the Core Strategy was adopted.
The policies are also being drawn up in consultation with neighbouring local
planning authorities and other bodies with whom the Council now has a duty
to co-operate (under the provisions of the Localism Act 2011) and the
implications of neighbourhood planning, also introduced by the Localism Act,
have been considered in developing this document.
2.1 STRATEGIC PLANNING POLICIES
2.1.1
2.1.2
2.1
The objectives in full are
on page 17 of the
adopted Core Strategy.
2.1.3
The Council’s adopted Core Strategy sets out the strategic planning policies
guiding the use and development of land in the Borough. The vision, objectives
and policies of the Core Strategy are the starting point for developing the more
detailed and site specific draft policies contained in this document.
The spatial vision for the Local Plan is set out in the Core Strategy. It states
that ‘By 2026 Darlington will be a more sustainable community where a real
step change has been achieved in enhancing the quality of life and local
environment, and expanding local opportunities for work and for sustainable
travel. Those who live in, work in or visit the Borough will enjoy the
opportunities and vibrant life of an ambitious city, but within the fabric of a
friendly, historic market town with a distinctive atmosphere, surrounded by
attractive countryside and villages’.
The strategic objectives in the Core Strategy have also shaped the policy
approach of this document. The eight strategic objectives include two cross
cutting objectives and six theme specific objectives are summarised in Table
2.1.1 below2.1.
Table 2.1.1: Summary of Local Plan Strategic Objectives
Objective No.
1
2
3
4
5
6
7
8
Content
Minimise the impact of and adapt to climate change, by making more
sustainable use of land and resources, promoting sustainable development and
reducing human exposure to environmental risks.
Providing equal opportunities for everyone, now and in the future, by helping to
create more sustainable communities and reduce locational disadvantage.
Support sustainable economic growth by ensuring there is enough attractive and
suitable land for local businesses to expand and to attract new businesses with
well paid jobs.
Provide enough choice of land for housing and improve and reuse existing stock
to better meet local needs and aspirations, including for older people and those
needing affordable housing.
Protect and capitalise on the functions of Darlington Town Centre so it can continue
to be a vibrant, attractive, safe, friendly and comfortable historic market town centre.
Protect and enhance the historic and natural environment, and providing and
upgrading a range of community facilities, recognising that these all contribute
to the happiness, fulfilment, health and well being of residents and visitors alike.
Strengthen the unique character, function, intrinsic quality and sense of place of
the many facets and areas of Darlington Borough.
Support the promotion of sustainable transport and tackle congestion, to make
travel for all as easy and affordable as possible, both with the Borough and on
the key links to/from the Borough.
(source: Darlington LDF Core Strategy, 2011)
9
2.2
See adopted Core Strategy
Policy CS1.
2.1.4
The Core Strategy also clearly sets out the priority locations for new
development and regeneration in the Borough2.2.. The Town Centre, Central
Park and then the Town Centre Fringe are the priorities for development and
regeneration, whilst the same locations, as well as Lingfield Point, Faverdale,
Morton Palms and Durham Tees Valley Airport are identified as the strategic
locations for employment development. New housing will be focussed on the
main urban area, particularly Central Park, the Town Centre Fringe and Lingfield
Point, but significant additional land is also needed at the North West Urban
Fringe and Eastern Urban Fringe. The Core Strategy also recognises Darlington’s
distinctive landscapes and townscapes, and it’s built, historic and natural
environments, and seeks to safeguard and enhance their intrinsic integrity.
2.2 NATIONAL PLANNING POLICY CONTEXT
2.2.1
2.2.2
New national policy documents, the National Planning Policy Framework (NPPF)
and Planning for Traveller Sites were published in 2012, after the Council
adopted its Core Strategy in 2011. The Council has reviewed the policies in its
Core Strategy and concluded that the plan is consistent with the NPPF, except
for Policy CS10: New Housing Development. This does not explicitly reflect the
new requirement in NPPF to identify a supply of specific deliverable sites
sufficient to provide five years worth of housing against housing requirements
with an additional buffer of 5% (moved forward from later in the plan period)
to ensure choice and competition in the market for land.
Draft Policy MGP16 in this document is intended to rectify this; once adopted,
the housing delivery and phasing indicated in this document will supersede
that set out in Policy CS10 of the Core Strategy.
2.3 SUSTAINABLE ECONOMIC GROWTH
2.3.1
2.3
with planning permission
and either underway or
not yet started.
2.3.2
2.3.3
2.3.4
10
The NPPF reminds us that the focus of good planning should be sustainable
economic growth. The Darlington Core Strategy provides that focus, and the
more detailed policies, proposals and site allocations proposed in this
document will give further expression to that. In doing so, this document
reflects more up–to-date economic forecasts and the priorities indicated in the
Darlington Economic Strategy 2012..
This document also recognises the contribution that housebuilding can make
to the local economy. It allocates new land for about 2,300 homes, which is in
addition to about 3100 new homes that have been completed since April
2011 or which are in the pipeline2.3. It allocates both previously developed land
in locations where development will be supported by significant public sector
investment, as well as a range and choice of greenfield sites, both within and
on the edge of the urban area.
Elsewhere in this document, the significant contribution of the town centre
and retailing to the local economy is recognised, as is the potential of railway
heritage tourism. Work done recently on a town centre strategy and a town
centre fringe masterplan underpins new land allocations for retail, mixed use,
leisure and commercial development in this document, whilst the work of the
Rail Heritage Enquiry Group has informed proposals in the North Road/railway
museum area.
Recognising that new development needs to be supported by investment in
infrastructure, this document sets out the priorities for investment in it,
including significant remodelling of the inner ring road, new car parking
provision in/around the town centre, and the provision of a new north-south
green corridor through the Town Centre Fringe, focussed on the River Skerne.
2.4 PRESUMPTION IN FAVOUR OF SUSTAINABLE
DEVELOPMENT
2.4.1
2.4.2
2.4.3
The NPPF also articulates a presumption in favour of sustainable development.
This presumption is at the heart of the national approach to planning, and
through the Planning Inspectorate, the Government is requesting that all
Councils include a policy covering this in their Local Plan.
The option to not include the policy has been considered and rejected on the
basis of the potential extra work and costs that would be involved in
defending the Council’s decision not to. As the approach accords with the
Council’s development plan approach, it was identified that there was no issue
in including the policy.
This policy, together with others in the adopted Darlington Core Strategy and
proposed in this document, will help to make sure that decisions are taken in
line with the presumption in favour of sustainable development. It is included
in this document because it is the first local plan document to be prepared
since the NPPF was published, and it contains similar detailed development
management policies.
Draft Policy MGP1: Presumption in Favour of
Sustainable Development
A positive approach to considering development proposals will be taken that reflects
the presumption in favour of sustainable development contained in the National
Planning Policy Framework. Where appropriate, the Council will work proactively with
applicants to find solutions which mean that proposals can be approved wherever
possible, and to secure development that improves the economic, social and
environmental conditions in the area.
Planning law requires that applications for planning permission must be determined in
accordance with the development plan unless material considerations indicate
otherwise. Planning applications that accord with the policies in the development plan
(including, where relevant, with policies in neighbourhood plans) will be approved
without delay, unless material considerations indicate otherwise. Proposed
development that conflicts with the development plan will be refused, unless other
material considerations indicate otherwise.
Where there are no policies relevant to the application or relevant policies are out of
date at the time of making the decision then permission will be granted unless
material considerations indicate otherwise – taking into account whether:
•
•
any adverse impacts of granting permission would significantly and demonstrably
outweigh the benefits, when assessed against the policies in the National Planning
Policy Framework taken as a whole; or
specific policies in that Framework indicate that development should be restricted.
2.4.4
The policy will be implemented and monitored by making and reviewing
decisions on planning applications. Following this consultation, the viability of the
local plan overall will be assessed, taking into account the policy requirements
set out in this plan, the Core Strategy and any of the Council’s supplementary
planning documents. This will be completed in time to inform the next version
of this document, Making and Growing Places: Publication Draft.
11
2.5 OTHER LOCAL POLICIES, PLANS, STRATEGIES
AND STUDIES
2.5.1
The content of this document takes account of policies, plans, strategies and
studies prepared by the Council and its partners. Some of the more recent
examples include the Darlington Economic Strategy (2012), the Darlington
Housing Strategy (2012) and the Darlington Green Infrastructure Strategy
(2013). A full list of the local documents that have been taken into account is
set out in Appendix 3.
2.6 DUTY TO CO-OPERATE
2.6.1
Under its duty to co-operate, the Council has engaged with and will continue
to engage with the organisations listed in Table 2.2 during the preparation of
the Making and Growing Places DPD to date. The duty requires that councils
and public bodies ‘engage constructively, actively and on an ongoing basis’ to
develop strategic policies and for Council’s to consider joint approaches to
plan making.
Table 2.6.1: Organisations engaged with under the Duty to Co-operate
Organisation
Durham County Council
Stockton on Tees Borough Council
Middlesbrough Borough Council
Hartlepool Borough Council
Redcar & Cleveland Borough Council
Hambleton District Council
Richmondshire District Council
Darlington Clinical Commissioning Group
National Health Service Commissioning Board
Environment Agency
English Heritage
Natural England
Civil Aviation Authority
Homes and Communities Agency
Office of the Rail Regulator
Highways Agency
Darlington Council (as local highway authority)
2.6.2
12
In addition to the above, as required by Regulations, the Council has had
regard to the Tees Valley Local Enterprise Partnership and the Tees Valley Local
Nature Partnership in preparing this plan. A full statement of the actions taken
by the Council under its duty to co-operate will be published alongside the
Publication Draft version of this document in due course.
2.7 NEIGHBOURHOOD PLANNING
2.7.1
2.7.3
2.7.4
2.7.2
The Localism Act 2011 gives local communities the power to help decide
where development should go and the type and design of development, by
preparing neighbourhood plans for their areas. The Act places a duty on the
Borough Council to support such work.
Once adopted, neighbourhood plans become part of the statutory
development plan for the area. Planning applications should be determined in
accordance with the development plan, unless other material considerations
indicate otherwise.
Any neighbourhood plan prepared within Darlington Borough must be in
general conformity with the strategic policies that are included in the
Darlington Core Strategy. Further information on neighbourhood planning can
be found in the planning policy area of the Council’s website
www.darlington.gov.uk/planningpolicy or on www.gov.uk.
As the Council is in the early stages of preparing its detailed Local Plan site
allocations and development management policies for the area, it will be
making efforts to engage with all sections of the community to get their
feedback on the options in each policy area. It is hoped that through this
engagement, the policies in the Local Plan that will guide where development
should go and the type and design of development will, wherever possible,
reflect local community wishes, without the need for communities to prepare
their own neighbourhood plans.
13
3. ACHIEVING A MORE
SUSTAINABLE COMMUNITY
3.1 DARLINGTON TOWN CENTRE
3.1
3.2
3.3
3.4
3.5
3.6
3.7
3.8
Darlington Core Strategy
(Adopted May 2011)
Context
3.1.1
Policy CS7 and CS8 of the
Core Strategy
Policy CS9 of the Core
Strategy
Main town centre uses are
defined in the National
Planning Policy Framework
Annex 2, CLG 2012
National Planning Policy
Framework (NPPF) March
2012
Darlington Core Strategy,
CS7 and strategic
objectives in its Section 2
3.1.2
In the adopted Core Strategy3.1, Darlington Town Centre, as defined on the
Policies Map, is the first priority for development and regeneration activity in
the Borough3.2 and appears as the first centre in the hierarchy of centres3.3.
It continues to be the primary retail centre in the borough and as such, a key
location for other main town centre uses3.4, in line with national planning
policy3.5.
To help realise the core strategy vision and objectives3.6 a Draft Town Centre
Development Strategy and Vision has recently been agreed3.7, and account also
needs to be taken of the provisions in national policy3.8.
Issues
3.1.3
Cabinet 4th December
2012 Minute C84(1)
The main issues considered in developing proposals for the town centre were:
•
•
•
NPPF, paras 23-27
•
3.9
The NPPF requires local
planning authorities to
retain existing markets
and, where appropriate,
re-introduce or create new
ones, ensuring that
markets remain attractive
and competitive.
how to continue the programme of town centre regeneration to meet
modern day needs;
establishing the scale and type of new development needs;
considering suitable sites to meet the retail, leisure, commercial, office,
tourism, cultural, community and residential needs identified within the
town centre and at edge of centre (where suitable and viable town centre
sites are not available);
how Council owned land and premises in and around the town centre
could be used to help unlock development, increase footfall and deliver
public goods;
•
how to retain and enhance the existing markets in Darlington3.9;
•
key pieces of evidence, including Darlington Retail Study (2008 and 2010
update), retail advice to Darlington Borough Council on potential
supermarket developments in Darlington, the draft Town Centre
Development Strategy and the outcome of consultation and engagement.
•
making the most of town centre frontages onto the River Skerne;
Identified needs
3.10
14
Retail Advice to Darlington
Borough Council on
Potential Supermarket
Developments in
Darlington (England &
Lyle, Oct. 2012)
3.1.4
Capacity for a food supermarket of some 4,000m2 gross, between 2016 and
2021 has been identified3.10, or by 2023 there may be sufficient capacity for a
supermarket of some 6,000m2 (mostly for food, but including some
comparison goods). A qualitative need for another food supermarket in
Darlington has also been identified. Taking into account the current vitality
and viability of the town centre, this could be accommodated without any
significant adverse impacts on the town centre or any other centres within
Darlington, as a new supermarket would be likely to attract expenditure back
into Darlington that currently goes to stores outside of the catchment area,
e.g. in Bishop Auckland and Northallerton.
3.11
Industry intelligence from
liaison with developers
3.12 Business Engagement
Intelligence 2012
3.1.5
3.1.6
There is still demand for larger footprint fashion and other non-food retail units
within Darlington Town Centre3.11, and work is continuing with the preferred
developer of the Oval scheme at Commercial Street on how this can be delivered.
There is also a latent demand for about 3000m2 of office use in the town
centre, but not enough to fully occupy/pre-let a larger facility3.12. There is the
possibility of public sector collaboration and this will require further work to
be undertaken.
Options considered
3.1.7
The options considered are shown on Figure 3.1.1.
Figure 3.1.1: Town Centre Regeneration Options
Town Centre
Regeneration Options
Plans produced by Development Division,
Services for Place
Date: May 2013
Scale 1:3000 @ A4
© Crown copyright and database rights 2013 Ordnance Survey 0100023728.
You are not permitted to copy, sub-license, distribute or sell any of this data
to third parties in any form.
15
3.13
Feethams Planning &
Development Brief (DBC,
2008)
3.1.8
The Council owned land options considered were:
a)
Feethams and Beaumont Street: this is the residual land in this area3.13 that
is currently surface car parks, and is not included in the land required for
the cinema, hotel and leisure development, which is due to open in 2014.
Part of the land benefits from a riverside location and it is well connected
to the main shopping areas. There are opportunities to add value to and
change the image of the area, including improving access to it, improving
its amenity and mitigating flood risk;
b) Town Hall site: this land is currently unavailable, but opportunities to
release it may arise if shared accommodation with other public sector
agencies can be achieved for a reduced Council workforce.
3.14
c)
Planning application ref.
no. 06/00953/FULE and
10/00042/FUL
3.1.9
d) Abbots Yard: this site is currently a surface car park, lying between High
Row and Skinnergate.
Also considered were entirely or partly privately owned sites that could
accommodate town centre uses:
e)
3.15
16
See Draft Policy MGP 24
Green Infrastructure
Commercial Street: the Oval development that was to occupy this site3.14
has stalled due to the recent economic downturn, although the Council is
still working with potential developers to realise a scheme in this area. It
still has many advantages, being close to the larger floorspace comparison
retail of the Cornmill Centre and Northgate, and with good access,
straddling the inner ring road. The Core Strategy identifies the Commercial
Street area as the first priority for a major, multi-unit, retail-led scheme,
physically and functionally integrated with the primary shopping area, to
be occupied mainly by comparison goods retailers, with a mix of uses to
be encouraged as part of the scheme.
f)
Garden Street area: the surface car park and neighbouring land and
building. This has been subject to recent developer interest for a 4000m2
food store. As it is outside the town centre, within the Town Centre
Fringe, it is considered in Policy MGP4.
East Street: building and associated car park (Sports Direct), whose river
frontage and accessibility suggest greater potential, particularly for
implementing a strategic green corridor running along the River Skerne3.15,
to add value to and change the image of the area, including improving
access to it, improving its amenity and mitigating flood risk.
Preparing a Draft Policy – the Preferred Option
3.1.10 Significant feedback was received on development options for the town
centre, during a series of workshops and other consultation events in the
town centre in Summer 2012. It was used to develop core principles to guide
the future regeneration of the town centre and emerging policy. The headline
principle is that ‘a thriving town centre is a key priority, and maintaining a
balance between different geographical areas is an important part of this’.
Other principles to emerge were:
•
•
•
•
•
•
•
•
It is important to focus development in and around the town centre;
any development proposal will have to have a range of uses;
It is important to maintain and provide office accommodation in the town
centre;
Darlington’s distinctive character must be protected and enhanced;
The balance between different parts of the town centre needs to be
considered when development takes place;
It is important to support the markets as a key asset in terms of
Darlington’s heritage and future vitality;
Transport policy and strategy must help Darlington thrive;
The River Skerne is an important feature and is an opportunity for new
public realm improvements.
3.1.11 Engagement was also undertaken with the development industry, considering
the public feedback and the development opportunities presented. This
revealed that:
•
•
•
•
•
•
3.16
3.17
3.18
Darlington Town Centre
Regeneration Strategy Part
1: Developing the Vision,
Cherishing the assets
(Dec. 2012)
Cabinet report 4th
December 2012: Town
Centre Regeneration.
Darlington Retail Study
2008 and update 2010
(Martin Tonks) and ‘Retail
advice to DBC on potential
supermarket
developments in
Darlington’ (Oct. 2012,
England & Lyle)
•
there may be potential for further leisure development in the town centre
depending on the nature of any proposal;
housing remains a depressed market although student accommodation
and elderly residential housing may be viable;
a supermarket or food store that has a positive impact on the town centre
could help to realise the value required to deliver regeneration aspirations;
multi-storey car parking could be funded commercially;
there may be incentives for the low carbon refurbishment of the Town Hall
and potential links with the Dolphin Centre;
delivering some key infrastructure could release more council land and
widen the scope of any development package;
land values other than for retail remain depressed, and so may not
generate enough direct receipts to fund the relocation of the Town Hall.
3.1.12 The background work for the town centre development strategy3.16, the
consultation responses3.17 and the resultant core development principles
underpin the identification in this policy of what type of development
interventions are planned, and broadly where and when. Other studies, such
as Darlington Retail Study 2008 and 2010, and Darlington Borough Council
Retail Database have also been relied upon3.18.
17
Commercial Street: Non-food retail development
3.1.13 There is still evidence of demand for larger footprint fashion and other nonfood retail units that would have been the key offer of the Oval Shopping
Centre, and the Council is currently in a Development Agreement to deliver
such units on the site. The Oval site is one of the three regeneration focus
points in the Council’s Town Centre Vision. Although the permitted scheme is
unlikely to be viable under current economic conditions, other ways of
delivering a scheme there that allows linked trips with the existing town centre
offer are being explored, potentially accommodating a realignment of the
inner ring road. There are considered to be no other options for delivering
major non-food retail development in the town centre.
Food Retail development
3.1.14 The town centre development options work also established that there is no site
currently available within the town centre that could accommodate a food store
of the size likely to satisfy qualitative needs, and to clawback trade currently
leaking outside of the borough. Areas outside of, but on the edge of the town
centre, are therefore being investigated for this provision (see Policy MGP 4).
3.19
See Darlington Core
Strategy Policy CS7
(The Town Centre)
Beaumont Street area: Office and leisure development
3.1.15 The Core Strategy identifies the town centre as one of the first priority
locations for office development3.19, recognising that this use can help boost
pedestrian flows and retail trade, and can help make workplaces as accessible
as possible. It indicates that after the Oval site, the first priority location for
the development of major non-retail town centre uses in the borough will be
other parts of the present town centre, including the Feethams / Beaumont
Street area.
3.1.16 The Beaumont Street area is therefore the preferred location for further office
development. Office and leisure development could be promoted there,
capitalising on the cinema development and should be designed to allow
linked trips with the existing town centre offer.
Abbots Yard
3.1.17 Abbots Yard could support a range of uses, but is currently a popular car park
for people with disabilities, serving both the Skinnergate and High Row areas.
It is not therefore being promoted for development at the current time, and
while the Parking Strategy sets out how it will continue to operate as a car
park, it also recognises that the site is a potential future development site.
Markets
3.1.18 Improvements and investment in the covered market are part of the agreed
vision for the town centre. Work being led by Darlington Partnership is ongoing
to bring forward a refurbishment project for the Covered Market that refreshes
the vision and aspirations for this key town centre building; subject to a funded
business plan, it could be delivered in the initial years of the plan period.
Car Parking
3.1.19 The conclusions above, regarding Beaumont Street and Abbots Yard are
subject to findings of complementary work on a Parking Strategy, to be
consulted on alongside this document.
18
Other elements of the town centre vision
3.1.20 The vision for the town centre, also established from the consultation work
undertaken, includes continued support for the independent retail sector to
the south and west of the town centre, including Grange Road and Coniscliffe
Road. This will be achieved through continued working with the businesses in
this part of the town to try to increase footfall and promote the offer of this
sector. In conjunction with this, the Council will also work with the traders
within Skinnergate and Duke Street to investigate the possibility of re-opening
Skinnergate to vehicular traffic and integrating short stay on street parking,
identified as significant issues by traders during the consultation.
3.1.21 Rationalisation / improvement of bus and coach facilities will also be
undertaken, to improve access and further enhance the public realm in the
pedestrian heart. This will initially involve investigating the needs of coach
and bus users, the routes taken and facilities that could be required.
3.1.22 The town centre vision also aims to develop and encourage the evening
economy and the cultural life of the town within the town centre. The
implementation of the cinema and hotel development at Feethams should
provide a kick start to this, boosting the evening economy in other parts of
the town centre, for pubs, clubs, restaurants and cafes.
3.20
3.21
3.21
3.22
Plan for Growth, Budget
2011, HM Treasury
Allowable solutions are
small, medium or large
scale carbon-saving
projects on or off site
required to deliver carbon
compliance.
Revised Design of New
Development
Supplementary Planning
Document (DBC July 2011)
Making and Growing
Places Preferred Options
Report, DBC, April 2013
Renewable energy and high quality sustainable design
3.1.23 All non residential development should achieve BREEAM 2011 standards ‘very
good-outstanding’, from 2019 all development should be zero carbon. A
combination of highly energy efficient design and development and renewable
or low carbon technologies (see draft Policy MGP 33) is expected to deliver the
majority of carbon savings on site, with ‘allowable solutions’3.20 being used to
deliver any outstanding requirements.
3.1.24 The design of development within the town centre must be of a high quality,
reflecting the prominence of the development sites identified, and appropriate
in terms of its surroundings, in line with the principles contained in the
Council’s adopted design guidance3.21.
3.1.25 The Sustainability Appraisal3.22 generally found land options A and C to be the
most sustainable, having positive economic, social and environmental impacts.
It was considered that impacts such as increased traffic generation were
outweighed by the accessibility of other forms of transport and the central
locations of the sites. On the whole, no significant differences between the
impacts of the two options were identified, as the areas they cover have
similar characteristics in that they are in locations within or adjoining the town
centre.
3.1.26 Taking into account all the matters outlined above, the findings of other
background studies underpinning this document and the ‘planning for real’
exercises undertaken, the preferred option, comprising land options A and C,
is expressed in draft Policy MGP2. It also reflects on-going work, indicates the
initiatives the Council will develop and support to sustain town centre vitality
and viability.
19
Draft Policy MGP 2: Darlington Town Centre
Development and regeneration of Darlington town centre will be promoted through
the plan period to deliver the following:
TC1 – Commercial Street
a) the Commercial Street area identified on the Policies Map, will be reserved for new
comparison-led shopping development in the period 2016-2021, and to accommodate
realigning of the inner ring road (see Policy MGP27). Development of the site will be
required to achieve:
i)
ii)
a range of larger footprint (300m2 or above) comparison shopping units;
design that takes account of the wider area, not just the site itself; and
iv) car parking provision at a level specified in the Parking Strategy.
TC2 - Feethams
b) the Feethams area (2.15ha) as defined on the Policies Map, will be reserved for
office and leisure development, and parking provision indicated in the Parking Strategy
to be delivered in the period 2014-16. The development will be required to accord
with an agreed planning brief for the site. Development of the site will be required to
help complete part of the strategic green corridor along the River Skerne, creating new
biodiverse greenspace, flood mitigation measures and cycling / walking routes (in
accordance with the vision for the town centre fringe)
Development of both sites TC1 and TC2 will be required to be of a high quality design
appropriate for a prominent town centre site, including public realm and a street
frontage that allows good pedestrian access as a continuation of the existing primary
shopping area. They should also achieve BREEAM 2011 standards ‘very goodoutstanding’ or any successor; BREEAM Zero Carbon from 2019.
Development in the town centre should achieve at least 10% of predicted energy supply
through on site provision of decentralised and renewable or low carbon sources of energy,
including micro-generation, unless it can be shown that it is not feasible or viable.
The redevelopment of any sites adjacent to the River Skerne will be required to include the
re-engineering of the River Skerne to a more natural form within a wider green corridor.
The Council will also undertake projects to:
a)
improve and invest in the covered market and further develop the offer of the
markets in general;
b) enhance the Skerne riverside at Feethams, in conjunction with any redevelopment
of land at East Street;
c)
provide continued support to the independent retail sector to the south and west
of the town centre;
d) rationalise/ improve bus and coach facilities;
e)
f)
20
improve the accessibility, convenience and quality of car parking facilities;
develop the evening economy and the cultural life of the town, focussed on the
town centre.
Making it Happen
3.1.27 Land use and planning actions will complement a programme of other actions
to ensure that the town centre fulfils its potential. Specific projects include
traffic management arrangements on Skinnergate and Duke Street, town
centre car parking and considering the relationship between the town centre
and Town Centre Fringe, particularly the proposed green corridor along the
River Skerne and alterations to the inner ring road. Specific proposals to
address these matters will be included in this policy if the conclusions of
ongoing work indicate a town centre land use/planning element is required.
3.1.28 The ‘Darlington Town Centre Regeneration Strategy; Part 1: Developing the
Vision’, and accompanying report to Cabinet in December 2012 sets out how
the Council and its partners will be supporting the development and
regeneration of the town centre. It includes reinvesting capital receipts,
producing action plans, strategies and business plans that will attract other
funding sources, preparing planning briefs and other non-statutory plans, as
necessary to guide the development of privately owned sites, and continuing
public and other stakeholder engagement.
3.2 TOWN CENTRE FRINGE
3.23
2011, Policy CS1
3.24 Uses outside of any use
class, e.g. theatres, shops
selling motor vehicles,
retail warehouse clubs,
nightclubs, taxi
businesses, amusement
centres and casinos.
3.25
3.26
A more limited area than
the wider masterplan area
–see darlington.gov.uk
Context
3.2.1
3.2.2
Policies CS1, CS5, CS7 and
CS10
3.2.3
3.27
Town Centre Fringe
Masterplan, DBC/EA/HCA,
April 2013
3.2.4
The Core Strategy3.23 identifies the Town Centre Fringe (the Fringe) as the third
priority location for development and regeneration within the Borough (after
the town centre and Central Park), with most development activity expected
from 2016. The Fringe is an extensive area: over 70 hectares of land, buildings
and roads, much of which is underused. It contains a mix of employment,
residential, retail, leisure, car parking and sui-generis uses3.24, and much of
area’s housing is occupied by deprived households. The Town Centre Fringe is
identified on the Policies Map3.25.
The Fringe has great potential - easy to get to by several modes of transport,
close to the town centre, containing key buildings like the Civic Theatre and
Bank Top Railway Station and other heritage assets, and with the River Skerne
flowing through it. It is also very visible, from local roads and the East Coast
Main Line. The Core Strategy recognised the potential of the area3.26,
identifying it for 650 new homes, 17 hectares of general and mixed use
employment, and an extension to Darlington Town Centre when it is needed.
The River Skerne was also identified as a strategic green infrastructure corridor.
Before the area is able to contribute much more to the growth, prosperity and
quality of life of Darlington, there are significant issues to overcome. These
include managing flood risk, improving the highway network, changing the
image of the area, tackling contamination and hazards, and improving
connectivity across the inner ring road; considering the area comprehensively
provides the best way to ensure that both public and private investment is
made effectively and in a timely and co-ordinated manner.
A Town Centre Fringe masterplan3.27 has recently been agreed by the Council,
to be implemented during and beyond this plan period. More of the detail on
the issues and options for this area have been developed and consulted upon
during preparation of the masterplan. The purpose of this policy is to embed
key elements of the masterplan in the statutory development plan, providing
more certainty about how much and what type of development and
interventions are planned, and broadly where and when.
21
Developing the Preferred Options: Issues and
Options Considered
3.2.5
3.28
3.29
3.30
Flood Zone 3: areas of
higher flood risksee1Darlington Strategic
Flood Risk Assessment
Level 2, JBA, 2010
Darlington Town Centre
Fringe Flood Mitigation
Strategy, JBA, 2011
Consultation feedback and analysis of technical reports allowed several key
issues to be identified that need to be addressed to achieve successful
development and regeneration across the Fringe as a whole. These are set out
below, together with a summary of the options that were considered to
address each, which option for each issue has been selected, and why.
Flood Risk
3.2.6
3.2.7
As identified by the
Technical Guidance to the
NPPF, DCLG, 2012
Much of the Town Centre Fringe lies within Flood Risk Zone 33.28, making it
unsuitable for built development unless there are overriding sustainability
reasons to do so, and appropriate flood management measures are put in
place to reduce the risk to people and property. Some parts of the Fringe also
have a high susceptibility to surface water flood risk3.28.
A number of different flood management measures have been modelled3.29.
The preferred option, is the only acceptable option that allows the amount
and locations for development proposed for the Fringe in this draft policy. It
has several elements which would significantly reduce the flood risk to
development sites and to existing properties including the emergency services,
a highly vulnerable use3.30. All the elements outlined below will have to take
place in the appropriate locations and at the right time, to satisfy the
Environment Agency:
1.
2.
3.
4.
5.
3.2.8
3.2.9
22
6.
create a widened green corridor, of about 9 hectares, either side of the
River Skerne, to create additional flood storage and flatten the peak flood
flow;
raise land required for new development and some roads either side of
the Skerne;
provide a small flood wall or bund parallel to Chestnut Street and small
sections of flood defences in other appropriate locations;
remove Russell Street Weir, to significantly reduce the flood risk from the
Skerne;
incorporate appropriate sustainable drainage systems to reduce the risk of
surface water flooding;
raise floor levels within some new development.
The southern part of the Fringe near the Town Centre is likely to be developed
first. The flood management measures for this area can stand alone; some are
likely to be integrated with modifications to the inner ring road (see
paragraph 3.2.14), but most, including the green corridor, will need to be in
place before development north of St. Cuthberts Way can take place.
Work is still ongoing to agree the detailed phasing and associated flood
management works for specific sites, so that complementary objectives for the
area can also be achieved.
3.31
As identified by the
emerging Darlington
Strategy, DBC, 2013
3.2.10 The existing river is within a heavily modified channel; buildings generally turn their
back on it, access to and along it for people and wildlife is limited, and in places, it
has been culverted. The river corridor is vital to enhancing the environment and
image of the area, and could be the focus for greening the town centre fringe
as a whole, contributing to the liveability and biodiversity of the area3.31.
3.2.11 Within the Fringe, there is only about 2.25ha of accessible quality open space
for recreation, play and amenity. There are few opportunities for wildlife to
establish itself between the more wildlife friendly areas of Rockwell Meadows
and Victoria Embankment, to the north and south respectively. The creation of
9ha of accessible green space as part of flood management will improve
access to quality open space, but another 0.4ha will need to be provided away
from the river, to meet the needs of future residents.
3.2.12 The options considered were:
(a) create a new green corridor to deliver flood management measures and
undertake limited restoration work. This is the lowest cost option, but
would miss the opportunity to realise the potential that a more attractive,
green riverside environment could have on the image of the Town Centre
Fringe as a whole;
(b) create a new green corridor to deliver flood management measures, the
priority objectives of the Darlington Green Infrastructure Strategy and
draft Policy MGP 24. This would recognise the importance of the river as a
key green infrastructure asset, and use its presence to add value to the
development of the area;
(c) In addition to b), provide and improve appropriate accessible open space
away from the river for informal recreation and play, and to improve
connectivity for wildlife.
23
3.2.13 With low levels of open space overall, option c was considered to be the most
appropriate, providing, retaining and improving as much open space as
possible, and to enhance and connect spaces so that they become an
important green infrastructure asset, linking Victoria Embankment and
Rockwell for sustainable transport, recreation, play and biodiversity.
Transport, Connections and Movement
3.32
Policies CS7, CS19 and
Darlington Connections
Study, Urban Initiatives
2009
3.2.14 The inner ring road and accesses to, from and through the Town Centre Fringe
can suffer from peak hour congestion, which without change, could be made
worse by the significant additional new development proposed in this plan. At
the same time, the scale and form of the inner ring road cuts off the Fringe
from the town centre for pedestrians and cyclists, reducing the attractiveness
of the area and preventing expansion of town centre uses there3.32. The current
road also has few frontages or street activity, but its alignment beside the
River Skerne and the space it occupies means that any changes to that
alignment are opportunities to improve local amenity and mitigate flood risk,
e.g. by improving the green corridor along it.
3.2.15 The proximity of the Fringe to the town centre means that the area lends itself
to walking and cycling use, as well as public transport use, but the scale of
development proposed will also require improvements to the local road
network.
3.2.16 The options considered to address these issues were:
(a) do nothing, which would result in further congestion and unaltered
pedestrian movements, stifling development and continuing to present
the Fringe in a poor light; or
(b) signalise several existing roundabout junctions and modify the route of
the inner ring road alongside other strategic interventions to support this.
Also, develop a web of local routes through the Fringe, including routes
for pedestrians and cyclists, focussed on a new linear riverside park. This
would minimize delay, help achieve consistent journey times through the
area, provide more attractive, convenient and direct pedestrian/cycle
accesses across the ring road, and achieve more travel into the heart of
the Fringe, increasing the visibility of the investment opportunity; or
(c) modify the path of the inner ring road and/or bury it to create new public
realm and development opportunities. This option would be very costly,
due to flood risk and groundwater in the area, and would only address
movement issues in part of the Fringe.
3.33 DBC/HCA/EA April 2013.
24
3.2.17 Option b) is therefore the preferred option. Further detail on what this could
entail for particular junctions and areas is set out in the Town Centre Fringe
Masterplan3.33. Options for car parking to meet the needs of new development
and some of the strategic needs of the town centre are being developed
through the Council’s emerging Car Parking Strategy, a draft of which will be
consulted upon later this summer.
Historic Environment and Heritage
3.2.18 The area contains a wealth of historic buildings, including the listed Civic
Theatre and Bank Top Station. On the area’s northern boundary is the
scheduled Skerne Bridge, the oldest working railway bridge in the world, and
the Head of Steam railway museum is nearby, just outside the Town Centre
Fringe. The area also includes parts of the Northgate Conservation Area and a
potential new Conservation Area at Parkgate, whilst masterplanning provides
an opportunity to repair, retain and reconnect historic street patterns.
3.2.19 Given that local heritage and the historic environment contribute so much to
Darlington’s distinctiveness, the only option considered was to recognise and
value the important historic assets of the area. Projects to address transport
and movement issues will, where possible, preserve the historic street pattern,
whilst the linear park proposed will provide the setting for part of a walking
and cycling route from which to enjoy and celebrate Darlington’s heritage. The
designation of a Parkgate Conservation Area and associated projects to
improve shop fronts, bring upper floors into use and improve the public realm
around the railway station are also proposed.
Existing Housing
3.2.20 There are several distinct areas of existing housing within the Town Centre
Fringe. It is mostly older traditional two storey terraced stock in private
ownership, and some is in a poor state of repair and needs modernising. There
are also pockets of long term vacancy and areas with concentrations of houses
in multiple occupation, contributing to a poor residential environment.
(a) focus on building new housing in the area, in the belief that over time,
this will improve the image of the area and increase the value and
desirability of the existing stock, providing people with the access to
finance and motivation to improve their property;
(b) improve the existing stock to modern standards, by providing grants or
loans to existing homeowners and undertaking environmental
improvement schemes; or
(c) demolish some existing housing to allow for redevelopment. Whilst this
may create new development opportunities, it would displace the existing
community. Also building new homes without addressing the issues faced
by existing residents would make integration of old and new more
difficult.
3.2.22 The preferred option is therefore a combination of option a) and option b).
Projects to improve the energy efficiency of existing housing and the
environment of residential areas are proposed, to help address fuel poverty
and anti-social behaviour.
25
Gas Infrastructure and Contaminated Land
3.2.23 The potential hazard presented by the gasholder on Valley Street North
constrains the amount and type of new development that can take place
nearby. The options considered were:
(a) do nothing and accept that development options in this northern part of
the Town Centre Fringe will continue to be limited;
(b) decommission and remove it, enabling the site and its environs to be
redeveloped for a range of residential, employment and commercial uses;
or
(c) find an alternative use for it, compatible with the vision for the wider
area. However, no suitable or feasible alternative uses have been
identified, and its retention could detract from efforts to change the
image of the area and secure enough development there.
3.34
Remediation – the removal
of pollution or
contamination from a
brownfield site intended
for development
3.2.24 Option b) to remove the gasholder is therefore the preferred option.
3.2.25 Contaminated land is another hazard constraining the potential development
of many sites across the Town Centre Fringe, but the level of contamination
varies from site to site. Remediation is likely to be required in many
instances3.34.
3.2.26 Three options were considered:
(a) avoid redeveloping or disturbing those sites likely to be most heavily
contaminated. This could produce a disjointed urban form, but could help
to identify areas suitable for open space, for which clean up costs are
significantly lower.
(b) tackle contamination on a site by site basis, bringing in public sector
funding to support this as necessary;
(c) develop a comprehensive contamination ‘clean-up’ strategy, that
recognises the different costs of remediating land for different uses, and
the need to tackle pathways for, as well as sources of, contamination.
3.2.27 Option c) is the preferred option.
26
3.35
3.36
Policy CS3.
against the 2010 Building
Regulations
3.37 & 3.38
See section 10.2 for an
explanation of these
technical terms.
District Heating and Fuel Poverty
3.2.28 The Core Strategy3.35 required at least 20% of the predicted energy supply of
the Fringe to come from on site renewable and low carbon technologies, with
each development contributing pro rata to reflect its energy use. As the
Government has changed its approach to achieving viable sustainable
development (see MGP33), and most of the Fringe is expected to be delivered
from 2016, zero carbon residential development will be required (for non
residential development from 2019). A 70% reduction in carbon emissions3.36
will be required from carbon compliance3.37 (60% from energy efficiency and
10% from renewable and low carbon technologies on site, unless a specific
opportunity is identified for connection to a district heating network from
regulated energy emissions. The remaining 30% should be delivered through
allowable solutions3.38
3.2.29 This is the only option considered, as it will provide a high level of sustainable
development as part of a viable development in accordance with the national
approach. It has in-built flexibility, which is important in areas like the Fringe
where development will be phased over at least 10 years, and could take place
in a range of market and economic conditions.
Arts and Cultural Facilities
3.2.30 The Civic Theatre and Forum Music Centre are key cultural venues in the
Borough Road/Parkgate area, and the former could be an important anchor
for future development. Cultural and arts venues and activities in the Fringe
are complementary to the cinema development that is soon to get underway
at Feethams, and the continued use of the Dolphin Centre, market square and
pedestrianised streets of the town centre for such things. Transport
improvements to the inner ring road (see paragraph 3.2.14 above) should help
to link the two areas.
(a) create a new Cultural Quarter, building on the existing facilities; or
3.39
see Cultural Quarter
Feasibility Study, 2011,
Globe Consultants Ltd
(b) ensure proposals for adjacent sites are for compatible or complementary
uses.
3.2.32 Further work3.39 has indicated that the ambition behind Option a) is more
likely to be achieved organically than through a specific development plan. To
achieve a cluster and diversity of arts/cultural venues and activities, publicly
funded interventions and promotions will be required, rather than restricting
uses through the planning process.
3.2.33 Therefore, neither Option a) or b) will be pursued, as progress to tackle arts
and cultural issues will be through other non-planning activities.
27
Shops and Services
3.2.34 The area has its own population with its own local needs, but could also
accommodate developments serving a wider area. Indeed, within the area,
there are three Fringe Shopping Areas (see draft Policy MGP14) – Northgate,
Parkgate and Victoria Road. These are streets that radiate out from the town
centre, providing local shops and services as well as containing some
businesses that serve the town as a whole, benefitting from a relatively central
location without the higher rents of the town centre.
3.2.35 Significant new housing is likely to support the provision of new local shops,
services and primary school places. Local food shop(s) of up to 400m2 could
be appropriate if a geographical deficiency of food shopping can be
demonstrated, and the northern-most part of the area is most likely to
experience this; otherwise each shop would be limited to 100m2 gross (see
Core Strategy Policy CS9). Additional primary school places may also be
needed and this could be provided by either a new single form entry primary
school or the expansion of other schools in the area.
3.40
DBC Cabinet 4th December
2012
3.2.36 Potentially serving wider needs, a site in the Garden Street area of the Fringe is
being explored to accommodate a proposed food store of around 4000m2
(gross), subject to specific design requirements and provision of better street
level pedestrian links to the town centre. This reflects the agreed Town Centre
Vision3.40, which identifies areas adjoining the ring road to the north of the
town centre as one of three major regeneration focus points, and would
complement proposals for the town centre (see draft Policy MGP 2).
3.2.37 Because of uncertainty about the need for a larger than local foodstore and
for a new school, the only option considered was to support their provision if
the need is established, but not to allocate land, as this could lock up land
indefinitely which could otherwise come forward for other uses.
28
Delivering New Housing and Employment Development
Opportunities
3.41
e.g. through the Darlington
Business Sites and Premises
Review, May 2013, Local
Brownfield Study, 2012
and Strategic Housing Land
Availability Assessment.
3.2.38 To achieve the overall vision for the area, consideration has been given to what
kind and how much development would be most suitable and could be
accommodated in different parts of the Fringe, and what might affect when it
could come forward. In doing so, account has been taken of any site specific
constraints, market information and dialogue with landowners3.41. For example,
the business sites and premises review indicated that the most viable
proposition for the Borough Road area would be a residential led mixed use
development, for proposals for the south west Fringe area to be developed
through a site specific masterplan, and for the northern part of the Town Centre
fringe to be regenerated with a high proportion of residential accommodation.
3.2.39 Account has also been taken of land ownerships and its effect on viability and
deliverability. The Fringe contains some significant landholdings along the
inner ring road and in the John Street/Eastmount Road area, but elsewhere,
there are multiple land ownerships and existing viable businesses; land
assembly and business relocations may therefore be required to achieve
sensible development sites. Currently, low land values in the area are also a
barrier to investment, but as the overall vision for the area is realised, an uplift
in value is expected, which can be captured and reinvested to further develop
and improve the area.
3.2.40 Up front investment will also be required to address many of the constraints,
e.g. removing the gasholder and mitigating flood risk, identified above. The
options considered were:
(a) where there is sufficient viability in proposed developments, seeking
contributions for key upfront infrastructure from proposed developments,
alongside programmed public sector funding. This would help ensure that
the costs of improving the area as a whole are shared equally by all those
who stand to benefit from them; or
(b) seeking contributions towards infrastructure on a site by site basis. Whilst
this would allow development to proceed as quickly as the market
dictates, it could prevent the strategic issues identified above being
tackled in the most cost effective comprehensive manner, and could
constrain development of some sites further down the line.
3.2.41 The only option being considered for the distribution and type of uses in the
Town Centre Fringe has been dictated by issues of viability and deliverability.
It is an overall approach that ensures that areas closer to the town centre and
main roads are primarily developed for higher value uses, such as commercial
and office development, and the more remote areas for lower value uses such
as community uses, open space and new housing, with a more residential feel.
For all types of development, maximum use will be made of the sites that are
brought forward for development. An indication of what is envisaged, where
and when is set out in Table 3.2.1. The sub-areas are identified on Figure 3.2.1.
29
Table 3.2.1: Town Centre Fringe Sub Areas – proposed mix of uses and phasing
Sub Area
Employment
Uses
New
Homes
(H)
Area 1: St. Cuthberts
Way South
12,000sqm (B1)
office space
0
Area 2: Bank Top
Station West
2,000sqm office/
workshop/atelier
(B1/B2)
80
Area 3: Borough Road 6,000sqm office/
workshop/atelier
(B1/B2)
Area 4: Valley
Street South
6,000sqm office/
workshop/atelier
(B1/B2)
Area 5: Valley
Street North
Area 6: John St/
Eastmount Rd
TOTAL
Other uses
Green
infrastructure
Leisure/cultural
Car parking?
Car parking?
30
Green
infrastructure
130
Green
Infrastructure
Retail
Leisure/cultural
200
300
26,000sqm
3.43
30
Section 106 contributions
and /or Community
Infrastructure Levy.
see Opportunity
Darlington, via the
planning policy pages of
www.darlington.gov.uk
20112016
20162021
20212026
H
H
H
H
H
H
H
H
H
740
H - indicates new housing delivery Shaded areas - Commercial/Employment
3.42
Timing of delivery
3.2.42 The preferred option for funding infrastructure is option (a). Funding will be
sought through the Environment Agency, Regional Growth Fund and other
Government funding programmes, alongside a £20 million HCA loan, and
Council investment. As the regeneration progresses, income is expected from
the enhancement of land values, business rates uplift, New Homes Bonus and
developer contributions3.42. Tools that may be used to help bring about the
changes required include local development orders and compulsory purchase
orders, preparing more detailed planning briefs or masterplans for specific
opportunity areas, using HCA funding and a programme of strategic property
acquisitions. A Town Centre Fringe Development Procurement Strategy is being
prepared to identify how and when the infrastructure required will come
forward and how bringing forward land for development will be facilitated.
Work done so far3.43 indicates that initial activity will be in St. Cuthberts Way
South (area 1), and Valley Street North (area 6), as well as programmes across
several sub-areas, to deliver improvements to the inner ring road and to
address flood risk.
Comments Received and Sustainability Appraisal Findings
3.2.43 During consultations, issues raised included the need for better links to the
town centre and railway station, improving the amenity of the River Skerne,
better access to services and cultural opportunities, opportunities for small
scale business accommodation and new housing, improving the environment
at points of arrival in Darlington, redeveloping empty and derelict sites, more
greenspaces and trees, and fears over land contamination.
3.44
Making and Growing
Places Preferred Options
Sustainability Appraisal,
DBC, 2013.
3.2.44 The sustainability appraisal3.44 generally found the preferred options selected to
be the most sustainable, rating highly or very highly against a range of
sustainability objectives, and taking into account mitigation that could be
secured in the design and layout of new development. The exceptions were
the issue of transport, connections and movement, where option (c)
performed best, and arts and cultural facilities, where option (a) performed
best. These are not being pursued because the Council does not have enough
resources to do so. The economic sustainability of several options could be
improved by doing more to ensure that any business that need to be relocated
are retained within the Borough, and social sustainability could be maximised
if open spaces are ‘secured by design’.
31
Preparing a Draft Policy
3.2.45 Taking into account all the above, the draft policy proposed will
comprehensively plan for the development and regeneration of the area, and
reflect the preferred options identified above. More detail on the policy
approach for specific themes within this policy can be found elsewhere in this
document, e.g. draft Policies MGP16 (new housing), MGP27 (transport), and
MGP 24 (green infrastructure).
Figure 3.2.1: Town Centre Fringe Sub Areas and Main Proposals
Figure 3.2.1 Town Centre Fringe Sub Areas
Services for Place
Date: May 2013
Scale 1:8000 @ A4
© Crown copyright and database rights 2013 Ordnance Survey 0100023728.
You are not permitted to copy, sub-license, distribute or sell any of this data
to third parties in any form.
32
Draft Policy MGP3: Town Centre Fringe
Development and regeneration of the Town Centre Fringe will be promoted
throughout the plan period, so as to deliver the following:
a)
about 650 new dwellings, including at least 10% affordable housing in the period
to 2021 and 10-15 % thereafter;
b) about 26,000m2 of office, light industry, workshop and ancillary retailing space;
c)
a green corridor of at least 9 ha to accommodate an approved comprehensive
flood management scheme
d) realignment and re-engineered traffic management measures, focussed on the
inner ring road, but including Parkgate and Borough Road;
e)
f)
a linear park (about 9ha) as part of a strategic green corridor along the River
Skerne, including new biodiverse greenspace, flood mitigation measures and linear
cycling/walking routes, as part of a wider local heritage trail;
additional locally important open space (about 0.4ha) for informal recreation, play
and wildlife within the Fringe area (see draft Policy MGP24)
g) removal of the gas holder on Valley Street North;
h) a new conservation area at Parkgate (see draft Policy MGP21);
i)
retention, enhancement and new links in the open space network in the Fringe
area;
j)
local shops of up to 400m2 to meet local needs;
l)
where it does not conflict with other objectives for the area, retaining, repairing
and reconnecting historic street patterns and retaining and repairing other local
heritage;
k)
energy efficiency and residential environment improvements to existing housing;
m) facilitating the delivery of a site on the edge of the town centre that is capable of
accommodating a 4000m2 foodstore, should the capacity for this additional
provision be demonstrated;
n) reserve land for and facilitate the delivery of a suitable site for a single form entry
primary school, such land to be reserved for educational use until at least 400 new
homes have been completed or the site is no longer required, whichever is the
earlier
o) strategic car parking to meet some of the town centre needs, as well as provision
to meet the needs of new Town Centre Fringe development.
Making it Happen
3.2.46 Through implementation of the Town Centre Fringe masterplan, the associated
Town Centre fringe Development Procurement Strategy and its supporting
plans, strategies and funding programmes.
33
3.3 EXISTING STRATEGIC COMMITMENTS: CENTRAL
PARK, LINGFIELD POINT AND WEST PARK
Context
3.3.1
3.45
2011, Policy CS1.
3.3.2
Within the Borough, there are three strategic development locations where
development must continue to come forward if the local plan’s locational
strategy3.45 is to be achieved. These are Central Park, Lingfield Point and West
Park, as shown on the Policies Map. Central Park is identified in Core Strategy
(Policy CS1) as a strategic development and regeneration site second only to
the town centre for mixed use development, principally housing and
employment. Lingfield Point and West Park (in addition to Central Park) are
identified in the Council’s adopted Core Strategy as being key growth areas
for housing (CS10) and mixed employment uses (CS5 – Lingfield Point only).
For each site, the current position and any specific issues for each are outlined
below, followed by a policy to reaffirm the Council’s commitment to their
delivery during the plan period.
Central Park: Issues
3.3.3
3.3.4
34
The site is a flagship regeneration scheme within the Tees Valley, whose
development is being supported by over £20 million of public sector
investment. It is a mostly previously developed site close to the town centre
and to Bank Top station on the East Coast Main Line, making it well placed to
attract inward investment to Darlington. A further and higher education
campus has already been delivered on part of the site, and significant site
preparation works on the remainder have been carried out.
The site now benefits from a hybrid planning permission (for the next 15
years) and accompanying masterplan (see Figure 3.3.1). It includes detailed
planning permission for 324 residential units and significant new green space
within Central Park North, outline planning permission for new local shops off
Haughton Road, a further 180 dwellings in Central Park North, and a
commercial development of up to 26,000m2 in Central Park south, including
offices, a hotel and potential additional education facilities.
Figure 3.3.1: Central Park Masterplan Summary Diagram
© Crown copyright and database rights 2013 Ordnance Survey 0100023728. You are not permitted to copy,
sub-license, distribute or sell any of this data to third parties in any form.
3.46
Local Enterprise Zone
status removes barriers to
private sector business
growth, particularly lower
tax levels, planning and
other regulatory and
administrative burdens.
3.3.5
The current plans are for Central Park North to be delivered in the period up to
2019, and Central Park South (see Figure 3.3.1) to be delivered in the period
from 2014 to 2021. Part of the southern area already benefits from Local
Enterprise Zone Status3.46.
35
3.3.6
The main issues for this site are:
•
•
•
3.3.7
ensuring appropriate infrastructure linking the site to the town centre and
Town Centre fringe (see Policy MGP4) is brought forward;
ensuring that high quality buildings, a rich urban form and significant and
effective public open space is delivered; and
considering whether there are any other appropriate uses that could come
forward if elements of the current scheme cannot be delivered.
These issues are likely to be more significant in the southern part of the site,
where a new road junction to Yarm Road and better pedestrian access to the
station, town centre and town centre fringe is required, and land assembly still
need to be completed. The continuation of the linear park through this part of
the site is also a key element.
Lingfield Point: Issues
3.3.8
3.47
Darlington Business Sites
and Premises review,
NLP/DTZ, 2013
3.3.9
Lingfield Point is a former manufacturing site extending to 43ha on the
eastern edge of the urban area. Mostly previously developed land and
buildings, the southern portion already houses a thriving office and industrial
development.
It is a priority area for promoting further employment generating uses
throughout the plan period3.47, and is also a key site for new significant
housing. As a former manufacturing site, its reuse and redevelopment will
improve the appearance of one of the main eastern gateways of the town,
including refurbishing the most prominent landmark factory buildings.
3.3.10 In 2010, the remainder of the site was granted outline planning permission
(valid until 2024) for 1220 residential units and 2900m2 of B1 office space, as
well as various facilities and open space to serve the needs of the
development. The western portion was recently granted detailed permission
for 273 dwellings and associated open space, and development is due to
commence this year.
3.3.11 Key to developing this site sustainably will be:
•
•
•
•
•
encouraging alternatives to the private car, such as providing financial
support for the provision and operation and/or maintenance of routes for
cycling, walking and public transport;
building new homes at zero carbon standards;
implementing on site renewable/low carbon energy generation,
providing community facilities and services to meet local needs,
particularly as new housing comes forward, and
integrating the development with neighbouring Red Hall, through
attractive and safe access across the Eastern Transport Corridor.
3.3.12 Highway improvements will also be required to nearby junctions to mitigate
the traffic impact, and consideration should be given to the heritage value of
the existing buildings on site, prior to demolishing or converting them, so that
archives for the Paton and Baldwin company are preserved. The site is
considered a heritage asset of regional significance.
36
West Park
3.3.13 The West Park site received outline planning permission in 2002 for a major
development of predominantly residential character, and is still being built out.
Almost 500 new dwellings, a new hospital, a major urban park, a new primary
school, and a cluster of shops, children’s day nursery and a public house have
already been completed. This redevelopment of former manufacturing land
and adjoining greenfield land has already transformed the appearance of one
of the main gateways to the town and created a thriving neighbourhood.
Continued housebuilding at West Park is needed to support housing delivery
in the early and middle parts of the plan period. About 400 remain to be
delivered on the site as part of existing planning permissions, of which at least
10 should be affordable housing and at least 42 low cost housing.
3.3.14 There are no major issues remaining at the West Park development, though an
extension to the existing West Park Local Centre is planned. This is considered
vital to meet the needs of further housing now proposed beyond West Park
(see Policy MGP 16), as well as existing needs arising from both within West
Park and the neighbouring High Grange estate.
Options Considered
3.3.15 The three sites have been identified by the Council as key strategic
development locations for some time and most benefit from planning
permission in some form or another. The purpose of any policy would be to
reaffirm the Council’s commitment to bringing forward these sites and to
highlight key matters that any new proposals should address to deliver the
overall aims for the site, should the schemes that currently have planning
permission not come forward as envisaged.
3.3.16 The only other option considered is to have no policy covering these sites,
allowing their future development to be determined by market forces and the
application of non-site specific national and local planning policies.
37
Preparing a Draft Policy: the Preferred Option
3.3.17 Taken together, these sites will make a significant overall contribution to the
delivery of the Core Strategy objectives and vision, and as such, the ‘no policy’
option was rejected as it does not highlight sufficiently the importance of
specific aspects of development on each of the sites that are regarded as
critical to delivering sustainable developments and the Core Strategy overall.
Central Park
3.3.18 The principles behind the masterplan’s locational strategy (Figure 3.3.1) would
be the starting point for the consideration of any alternatives/alterations to
the scheme at Central Park. Central Park South could accommodate office,
hotel and additional further and higher educational space if required, in
addition to small scale retail or café and restaurant type uses at ground floor
level to create active frontages along the spine road and open spaces.
Lingfield Point
3.3.19 Any further planning applications on the site will have to comply with the
principles covering highways, transport, sustainable design, renewable, community
facilities and retail aspects that are set out in the existing outline permission.
The provisions set out in paragraph 3.3.11 above will form the baseline
starting point for any further planning applications or variations on this site.
West Park
3.3.20 Further applications will be encouraged that complement the development
that has taken place so far. Development will have to relate well to West
Auckland Road and Edward Pease Way and include high quality walking and
cycling access along those routes.
3.3.21 The area of land identified on the Policies Map is the undeveloped part of the
site to which planning permission relates.
38
Draft Policy MGP4: Existing Strategic Commitments
Central Park
The remainder of 32ha of land at Central Park is identified for a mix of uses, primarily
residential and up to 26,000 m2 of commercial development, to deliver the following:
Central Park North
a)
up to 350 residential units of an appropriate mix, including at least 15%
affordable housing unless this can be demonstrated to be unviable;
b) new local shopping to a maximum of one A1 use unit of up to 400m2 and three
A1 use units up to 100m2, appropriate A3/A4 uses with potential for B1a uses
above ground floor; and
c)
the northern section of the spine road and possible need for additional junction
improvements to Haughton Road.
Central Park South
a)
B1 and A2 uses within up to 26,000m2 of commercial space
c)
about 150 dwellings of an appropriate mix for the locality, including at least 15%
affordable housing unless this can be demonstrated to be unviable;
b) potential for C1(hotels) and D1(non-residential institutions) uses;
d) the southern section of the spine road and junction to Yarm Road, as set out in
Policy MGP27);
e)
f)
improved pedestrian links to Bank Top Station;.
adequately mitigate any impact on the setting of the nearby listed building (St
John’s Church) and upon the distinctive character of the central area skyline as
identified in Core Strategy Policy CS14.
Overall
In addition to the area specific requirements identified above, the following are
required across the whole site:
a)
a layout that is in general conformity with the types and locations of uses
indicated on the masterplan;
b) linear multi-functional greenspace that enhances biodiversity, is accessible and
connected, and provides sustainable drainage (SUDS) and quality amenity space
for all age groups;
c)
active frontages along the spine road and overlooking of open space;
e)
subject to viability, conformity with the existing quality aspirations for the site,
including as a minimum, the requirements of Core Strategy Policy CS4 and a
BREEAM rating of Very Good.
d) appropriate linkages to, from and within the site for pedestrian and cycle routes;.
39
Lingfield Point
43ha of land at Lingfield Point is identified for a mix of uses, including:
a)
up to about 1200 new dwellings;
c)
up to 2700m2 of floorspace in use classes A1-A5, of which 80% to be in a single
location and no retail unit on the site to be larger than 1000m2;
b) up to 41000m2 of floorspace in use classes B1-B3;
d) new community and sports facilities to serve the needs arising from the
development;
e)
f)
at least 12ha of multifunctional public open space;
adequate improvements to highways to mitigate the effect of traffic generation on
the local highway network;
g) support for sustainable transport, including a high frequency bus service into the
site;
h) zero carbon housing to achieve Code for Sustainable Homes Level 6 and up to
10% reduction in carbon emissions from on site renewable or low carbon
technologies on site, with up to 30% being provided through allowable solutions;
i)
j)
due regard to be paid to the heritage value of the site, with the Paton and
Baldwin’s archives to be conserved on site or transferred to Durham County
Record Office;
on-site renewable or low carbon energy generation to provide 10% of the energy
consumed by the site.
West Park
46ha of land is identified for the provision of a mainly residential development
including:
a)
about 400 dwellings;
c)
an expansion of community facilities to meet local needs on land to the north of
the existing local centre (see draft Policy MGP16).
b) around 10 dwellings to be affordable and 40 to be low cost; and
Making it Happen
3.3.22 Planning permissions are currently in place at all of the above sites, but some
required further details to be submitted in reserved matters applications.
Should development at any of these sites not come forward in line with
existing consents, the Council would still require these sites to come forward
to deliver a similar scheme, as all are critical to delivering the wider vision for
supporting growth in the Borough.
40
3.4 NORTH WEST URBAN FRINGE
Context
3.48
Darlington LDF Core
Strategy, DBC, May 2011:
policies CS1, CS5 and
CS10
3.4.1
3.4.2
3.4.3
3.49
Review of Darlington
Business Sites and
Premises, NLP/DTZ for
DBC, March 2013.
3.4.4
The North West Urban Fringe is identified as a strategic location for new housing
and employment development in the Darlington Core Strategy3.48. It is greenfield
land which wraps round existing and emerging residential areas of West Park
and High Grange, either side of the A68 West Auckland Road, extends south to
the Barnard Castle Railway Path and is contained to the east by the A1(M). This
section is concerned with the area to the south of the A68, which extends to
about 85 hectares, and encompasses Mount Pleasant Farm and Stag House
Farm. The area to the north, known as Faverdale, is considered in Section 4.
The Core Strategy plans for about 700 new dwellings to be provided at the
North West Urban Fringe in the 10 year period 2016-2026. It assumed that
about 400 dwellings were still to be completed as part of the current planning
permission for West Park.
The scale of planned provision provides an opportunity to bring forward a wide
range and choice of new housing as part of a comprehensively planned and
sustainable residential neighbourhood, with associated community uses,
greenspace and physical infrastructure. It could also support facilities that meet
wider community needs, and the potential of the northernmost part of the
land to accommodate a high quality business park has also been considered3.49.
The amount of suitable and available development land in this area means
that development of this new neighbourhood will continue beyond 2026, the
end date of this plan.
41
Issues
3.4.5
The main issues considered in identifying the land allocation and mix of uses
for the primarily residential element of development at the North West Urban
Fringe were:
•
3.50
defined in Annex 2 of the
Framework, CLG, 2012
•
•
•
•
•
•
•
•
42
making sure that new housing can be readily integrated with existing and
planned areas of new housing, and is as close as possible to existing shops
and services;
providing an appropriate amount of affordable housing3.50 and/or other housing
to meet specific needs or demand, to create a mixed and balanced community;
providing appropriate new community infrastructure, such as local shops,
school places and health services to meet the needs arising from the new
development;
including other uses, e.g. employment, sports club provision;
delivering at least 20% of the predicted energy supply on site from
decentralised and renewable or low carbon sources of energy;
providing appropriate amounts and types of open space and green
infrastructure is needed, to meet the needs of the new development and
to provide an attractive setting for it;
ensuring that travel on foot, by bike or by public transport to, from and
within any new development is an attractive choice;
ensuring that the extra traffic generated by the development does not have a
severe impact on the local highway network, or affect the efficient functioning
of the strategic highway network, particularly at Junction 58 on the A1(M);
in the interests of residential amenity, investigating whether the power
lines across the site can be diverted or undergrounded, or whether the
masterplan will have to take account of their existing alignment.
3.51
Accommodating Growth
DBC, Nov. 2010
Options Considered
3.4.6
Three options for locating new housing at the North West Urban Fringe were
considered and consulted on previously3.51:
(a) Stag House Farm and the south-easternmost part of Mount Pleasant Farm;
(b) the southern half of Mount Pleasant Farm; and
3.52
Issues and Options Report
Consultation Responses
3.4.7
(c) the southern part of Mount Pleasant Farm and an area of land north of
Rotary Way/east of West Auckland Road
Taking account of responses to this consultation3.52 two more options were
considered:
(d) making use of former Corus land currently allocated for employment
beyond the eastern end of Rotary Way;
3.4.8
(e) encompassing all the land at Mount Pleasant Farm (about 63ha) and Stag
House Farm (about 22ha).
These options are shown on the Figure 3.4.1
Figure 3.4.1: North West Urban Fringe Options
43
3.4.9
More recent information has also been taken into account, particularly:
(i)
(ii)
(iii)
(iv)
3.53
Business Sites and
Premises, NLP/DTZ for
DBC, May 2013
(v)
(vi)
anticipated rates of housebuilding are not now expected to be as high,
so not all of the 700 homes originally envisaged here in the plan period
are likely to be delivered;
land north of Rotary Way is part of a wider area that now has in
principle planning permission for a data centre (subject to signing a
Section 106 agreement), and a recent study3.53 recommends it be
reserved for employment uses beyond the plan period;
land off Edward Pease Way with planning permission for a rugby club
will not be implemented, as the intended occupants have relocated
elsewhere;
should funding become available, Darlington School of Mathematics and
Science would consider a proposal to relocate to a new site in the
Newton Lane area. There will also be a need for additional primary
places arising from the new housing; it may be possible to accommodate
some or all of this by extending the existing Mount Pleasant Primary
School nearby, but land can also be safeguarded within the development
area for new primary provision;
a recent study3.53 recommended removing the employment allocation
from the former Corus land, and identifying land for a high quality
business park at the northern end of the Mount Pleasant Farm site.
there will be a shortfall of 19.5 playing pitches in the Borough (see policy
MGP 26), which could partially be met within a development of this size;
(vii) there will be a shortfall of primary care facilities in this part of Darlington
compared to the planned population, which could be met by providing a
new GP surgery within the development, or as part of the proposed
extension to West Park local centre (see draft Policy MGP 31);
(viii) Tees and Esk Mental Health Trust, the operators of West Park Hospital on
Edward Pease Way, would like to extend their site for more car parking;
(ix)
(x)
(xi)
44
slower than expected progress in the development of cost effective and
viable renewable energy technologies, and an increased focus on energy
efficiency as a means of reducing carbon emissions from new
developments means that a revised approach to delivering the renewable
energy targets is required;
to meet aspirations, high speed broadband should be provided
throughout the development;
a recent study3.53 indicated that office use in the northern part of this site
could help to address the shortfall in high quality office accommodation
in Darlington, for small and medium sized enterprises, and could
accommodate telecare or high value elements of the subsea sector.
3.54
Responses to Potential
Gypsy and Traveller Sites
Consultation, 2012
3.4.10 Of the five options considered, a sustainability appraisal found that option (e),
making use of land at Stag House Farm and Mount Pleasant Farm, to be the
most sustainable. It scored comparably with options (a) and (b) on things like
proximity to services and surface water flood risks, but scored better by virtue
of its larger area providing more scope to integrate the necessary green
infrastructure into the design of the development while still delivering the
required number of houses. Option (e) also allows well located land previously
earmarked for a rugby club to be considered for development. By taking
account of the full development potential of this land now, any on-site or offsite infrastructure can be designed with capacity to accommodate further
development beyond 2026, and things like transport, landscape and green
infrastructure networks can be planned comprehensively from the outset. The
elements of this will need to be identified in a comprehensive masterplan
agreed with the Council to guide the development of this area within the plan
period and beyond.
3.4.11 In earlier consultations3.54, issues identified regarding the development of land
south of Newton Lane included loss of open land and nature conservation,
flooding and loss of open space. However, the land is currently in agricultural
use with no formal public access and any surface water flooding can be
addressed through on-site flood water storage through the creation of wetlands
and use of sustainable urban drainage schemes (see also Policy MGP 34) .
3.4.12 Figure 3.4.2 indicates how the proposed land uses could be accommodated
within the proposed allocation area, and how development of the site could
progress. The matters outlined below are considered essential for the proper
planning of the area, to create a neighbourhood where people will aspire to
live, and to ensure that the impacts on the existing local community and
businesses are, on balance, positive.
45
Figure 3.4.2: North West Urban Fringe Proposed Development
© Crown copyright and database rights 2013 Ordnance Survey 0100023728. You are not permitted to copy, sublicense, distribute or sell any of this data to third parties in any form.
3.4.13 Because of slower rates of housebuilding, this policy envisages that about 650
new homes will be delivered here by 2026, but with the expectation that
development will continue on this site well beyond 2026. To ensure that
development can be readily integrated with existing and proposed community
facilities, and that key infrastructure (such as a road link between Newton
Lane and Edward Pease Way to mitigate traffic impact) is put in at the outset,
residential development should be phased from the area adjacent to the
southern end of Edward Pease Way first, and progressing from there both
westwards onto Stag House Farm and northwards.
46
3.4.14 Because of uncertainties around the availability of funding to support new
community infrastructure such as schools, local shops and health provision,
the preferred option encourages and allows for the possibility of new
provision, but is not prescriptive about this. In addition, so that land at the
heart of the new neighbourhood is not sterilised indefinitely, the draft policy
allows for its use for other purposes if there is no prospect of the intended
development being realised once development is well advanced.
3.55
Darlington Strategic
Housing Market
Assessment, Arc4 for DBC,
2012
3.4.15 The development will be expected to include a range of house types and sizes.
The area is particularly suitable for detached 4+ bedroomed housing,
addressing a shortfall in the stock compared to demand3.55 whilst land closest
to community facilities, shops and services would be suitable for housing for
older people and for those with disabilities; this should amount to about 5%
of all new housing. The development will also be expected to meet the Core
Strategy 30% affordable housing requirement in full, with provision to be at
about this level for each phase of development.
3.4.16 The local centre at West Park (see draft Policy MGP15) could meet most of the
day to day needs of people living in and visiting this area, but some of the
most southern parts of it are relatively remote from the local centre, with the
nearest alternative shops being a local shopping parade over 800m away at
Whitby Way, Branksome, and local shops on Nickstream Lane. Through the
masterplan, consideration must be given to providing additional shop(s) to
meet local needs, ideally in conjunction with other community facilities, in the
Newton Lane/southern end of Edward Pease Way area, where accessibility is
potentially greatest to the local people it is intended to serve, and from which
sustainable travel routes should radiate, linking it to both existing and
proposed new housing areas and other local community facilities.
3.4.17 Significant new playing field provision (about 8ha, see draft Policy MPG 26) is
also proposed, to meet both local and town wide needs. To ensure the
efficient use of land, the opportunity for some of this to be multi purpose
should be explored through masterplan preparation.
3.56
3.57
2011, HM Treasury
scale carbon-saving
compliance.
3.4.18 Whilst recent work indicates that land at the northern end of the North West
Fringe would be suitable for high quality office accommodation, this is also
being promoted elsewhere in the town, including in more sustainable
locations like the Town Centre Fringe, and through some re-use of existing
buildings at Lingfield Point. Any new office development in this location will
need to complement rather than compete with existing and planned provision
elsewhere in the Borough, and will be expected to do so through the high
quality of the design and environment provided.
3.4.19 As new housing is not scheduled in this location until 2016, it will all need to be
zero carbon to comply with Government policy3.56; all other development should
achieve this standard from 2019. A combination of highly energy efficient
design and development and renewable or low carbon technologies (see draft
Policy MGP 33) is expected to deliver the majority of carbon savings on site, with
‘allowable solutions’3.57 being used to deliver any outstanding requirements.
3.4.20 The relationship of the site to features around its boundaries, and the need for
development to avoid the corridors of the existing infrastructure that cross the
site are the starting point for planning open spaces and green infrastructure.
Green infrastructure is also the means by which other development needs,
such as sustainable urban drainage systems, enhancing biodiversity and
ecological networks, and noise attenuation can be achieved, and is a key
element of creating an attractive and liveable residential environment that
supports healthy living. Green space provision will need to include specific
types of provision, such as children’s play areas and allotments.
47
3.58
Darlington Local
Development Framework
Transport Area Action
Plans, ARUP for DBC,
2010.
3.4.21 Wherever possible, existing hedgelines and trees should be incorporated into
new areas of green infrastructure. At its boundaries, the new development
must include significant structural landscaping, with mixed woodland and
species rich planting. This should be provided along the A1(M) boundary from
A68 southwards, along West Auckland Road and along the northern side of
the Barnard Castle railway path. Green corridors from the existing
neighbouring housing and West Park Local Centre to the urban fringe, and
linking across Newton Lane to the Barnard Castle Railway Path, will also be
required. Both should provide access for walkers and cyclists through the
development, and form the locations for specific outdoor recreation and
greenspace provision, such as kickabout areas, adventurous and natural
childrens’ play, community orchard planting, dedicated fitness areas and
outdoor gyms, activity trails of various lengths for walkers, joggers and cyclists
and semi-natural greenspace. The south-western corner of the site is expected
to be the focus for informal recreation and wetland habitat creation/
enhancement, including the balancing ponds needed as part of the
sustainable drainage scheme for the Stag House Farm area, where some
surface water flooding has occurred. Balancing ponds will also be required to
the north of Newton Lane, which could be accommodated in the structural
landscaping area along the A1(M) boundary. To support ongoing management
and maintenance of high quality spaces, a green infrastructure management
levy on all new housing would be applied.
3.4.22 Specialist advice3.58 indicates that to avoid severe impacts on the local highway
network, the proposed development will need to include an internal road
network that includes a link between Edward Pease Way and Newton Lane,
and bus stops within the development that are no more than 300m from any
home. High frequency bus penetration, together with new high quality
walking and cycling routes that link to the existing sustainable transport
routes along West Auckland Road and Barnard Castle Railway Path, will
provide travel choice, whilst the link road will help to disperse any other
vehicular traffic across the network, rather than concentrate it on West
Auckland Road/Woodland Road. Contributions will also be required towards
signalising roundabouts on Woodland Road/West Auckland Road and Newton
Lane, and high frequency bus services will need to be provided from the area
to the Town Centre. Contributions may also be required for works to mitigate
the traffic impact at Junction 59 of the A1(M).
3.4.23 33kV and 132kV power lines cross the site. Some in the vicinity of Edward
Pease Way have already been undergrounded. In drawing up the masterplan
for the area, the expectation will be that the remaining power lines will be
rerouted or undergrounded, the appropriate solution to be agreed in
consultation with Northern Powergrid.
48
Draft Policy MGP5: North West Urban Fringe
85ha of land at Stag House Farm and Mount Pleasant Farm is allocated for a mix
of uses, primarily residential, and will be developed according to a masterplan
for the area agreed with the Council, so as to deliver the following:
(i)
(ii)
(iii)
(iii)
(iv)
(v)
about 150 new dwellings by 2021, about 450 by 2026, and further development
thereafter, as part of a new neighbourhood at the north west urban fringe.
30% affordable housing provided within each phase of development, each phase
to include both social rented and intermediate tenures;
the overall housing mix to include housing capable of being readily adapted to
meet a range of needs and/or housing to meet specific needs, the level and type
of such provision to be agreed with the Council, and not less than 5% of the
overall new housing;
a small, high quality office development within the northern end of the site,
zero carbon housing to achieve Code for Sustainable Homes Level 6 and up to
At least 7.13ha of open space to include :
a.
b.
c.
d.
(vi)
e.
significant structural landscaping belts along the outside boundaries of
the development area;
green corridors linking West Park Local Centre and the existing
neighbouring housing to the urban fringe and to the Barnard Castle
Railway Path;
a significant area in the south-western corner of the site to be a focus for
informal recreation and wetland habitat creation/enhancement; and
childrens play areas; and
allotment provision.
at least 8ha of playing field provision
(vii) a network of linked streets, including a new road link between Edward Pease
Way and Newton Lane;
(viii) a road network enabling the ready penetration of buses to serve stops within
300m of every home;
(x)
(xi)
new high quality walking and cycling access along main routes and green
corridors to link in with the existing footpath/cycle routes along West Auckland
Road/Woodland Road, Newton Lane, and along the Barnard Castle Railway Path;
high speed broadband to every home.
The following off-site provision and contributions will be also required as part of
the development to mitigate its impact:
(xii) signalising roundabouts on Woodland Road/West Auckland Road and Newton Lane;
(xiii) support for a high frequency bus service from the North West Urban Fringe to
Darlington Town Centre;
(xvi) enhancement/provision of walking and cycling routes along West Auckland Road
and Newton Lane in the direction of Cockerton village and to/from local schools;
(xvii) funding to support smarter travel initiatives.
49
In addition, the masterplan should reserve land as follows:
(a)
(b)
about 10.3ha land in the vicinity of Newton Lane for secondary and primary
educational use, such land to be reserved until at least 400 new dwellings are
completed. If there are no firm plans for the school(s) at that time, the land may be
made available for alternative community uses. If none of these can be delivered
within a reasonable time, the land may be released for additional new housing.
land of appropriate configuration in the area around the southern end of Edward
Pease Way/Newton Lane, capable of accommodating at least local shop(s) and
the potential development of a new GP surgery.
Making it Happen
3.4.24 By preparing a masterplan to guide use and development of the area, disposing
of Council owned Stag House Farm, and establishing a project delivery team.
50
3.5 EASTERN URBAN FRINGE
3.59
DBC 2011 Policies CS1,
CS6, CS10
Context
3.5.1
3.5.2
3.60
3.61
and Premises Review, NLP,
2013
with outline planning
permission for B1, B2, B8
uses, a hotel and
pub/restaurant
3.5.3
The Eastern Urban Fringe is identified as a strategic location for new housing
and employment development in the Darlington Core Strategy3.59. It is split by
the Eastern Transport Corridor; the northern section is greenfield land identified
for housing extending to about 88ha, adjacent to the existing Red Hall housing
area, extending east to the A66 (T) and is contained to the north west by the
River Skerne and to the north by Great Burdon and Stockton Road.
The scale of planned residential provision is an opportunity to bring forward a
wide range and choice of new housing as part of a comprehensively planned
and sustainable residential neighbourhood, with associated community
facilities, green and physical infrastructure. The overall amount of suitable and
available development land in this area means that development of the new
neighbourhood will continue beyond 2026, the end date of this plan, so the
phasing of development and infrastructure will be important.
The area to the south of the Eastern Transport Corridor, extends to about
78.77ha3.60. It is greenfield land for employment uses, and wraps around
existing and emerging employment areas known as Lingfield Park, Link 663.61,
Yarm Road South and Morton Palms (see Policy MGP11). This scale of highly
accessible land provides an opportunity to bring forward a mix of prestige
office space and general employment uses on sites of different sizes as part of
a balanced portfolio to meet existing and emerging business needs.
51
Issues
3.5.4
The main issues considered in identifying land allocations and the mix of uses
for development at the Eastern Urban Fringe were:
•
•
3.62
Affordable housing:
defined by the National
Planning Policy
Framework, DCLG, 2012
•
•
3.63
3.64
Zero carbon: over a year, a
development achieves no
net carbon dioxide
emissions from energy use
on site. There may still be
emissions but these are
balanced by savings in
emissions elsewhere in the
Borough.
•
•
•
Policies CS2, CS3
•
•
•
•
•
3.65
Issues & Options, DBC,
2010
promoting and re-establishing the area as a vibrant, attractive
neighbourhood where people aspire to live and work;
making sure that new housing can be readily integrated with existing and
planned areas of new housing at Red Hall (see Policy MGP16) and
Lingfield Point (see Policy MGP3), and is as close as possible to shops and
services;
providing an appropriate amount of affordable housing3.62 and/or other
housing to meet specific needs and demand, to create a mixed and
balanced community;
providing appropriate new community infrastructure, such as local shops,
school places, health services and sports facilities to meet the needs
arising from the new development;
making sure that new employment uses complement existing provision,
have the right supporting infrastructure and broadband available at the
right time to meet demand;
delivering zero carbon3.63 housing development and the appropriate
BREEAM sustainability standard (see draft Policy MGP33) for non
residential development3.64;
providing appropriate river and surface water flood management and
sewerage to protect future residents and properties from the risk of
flooding;
providing an appropriate amount and mix of green infrastructure to meet
the needs of the new development and to provide an attractive setting for it;
ensuring that travel on foot, by bike or by public transport to, from and
within any new development is an attractive choice;
ensuring that the extra traffic generated by the development does not
have adverse impact on the local highway network, or affect the efficient
functioning of the strategic highway network, particularly at junctions
with the A66 (T);
ensuring that sufficient car and cycle parking is available to meet the
needs of employees working in the new development;
ensuring, through a masterplan, that only appropriate non residential
development is situated within the exclusion zone for the high pressure
underground gas pipeline running along part of the location’s eastern
boundary.
Options Considered
3.5.5
Three options for locating the initial amount of new housing at the Eastern
Urban Fringe were considered and consulted on previously3.65:
•
•
•
Land to the north of the eastern end of Coombe Drive;
Land north of the Eastern Transport Corridor; and
Land extending along the northern side of the Eastern Transport Corridor.
These options are shown on Figure 3.5.1 overleaf.
52
Figure 3.5.1: Options for locating initial housing at the Eastern Urban Fringe
3.5.6
Two options for identifying employment uses were considered and consulted
on previously:
Option (a) to promote employment uses on a range of sites including Lingfield Park,
Yarm Road South, Link 66 (all for B1/B2 and B8 uses) and Morton Palms (for B1a uses)
or
Option (b) to include other suitable sites suggested for employment uses as well.
3.5.7
More recent information has also been taken into account, particularly:
(i)
(ii)
(iii)
(iv)
(v)
recent housebuilding rates ( see 3.5.2 above);
a recent business sites and premises review3.49 that recommends that
Lingfield Park, Yarm Road South and Link 66 be allocated for B1/B2 and
B8 uses and Morton Palms for high quality B1 uses (see Policy MGP11);
proposals to regenerate the adjoining Red Hall housing area (see Policy
MGP16) should complement the masterplan of the new housing area,
particularly to provide linkages between existing and new development;
should funding become available, a 3-11 year school could be provided in
later phases of the housing development. The required additional primary
places arising from this development could also be accommodated at the
existing Red Hall Primary School nearby (see draft Policy MGP16);
to meet the increasing demands for pitch sports there will be a shortfall
of 19.5 playing pitches in the Borough (see draft Policy MGP 26), which
could be partially met within a development of this size;
53
(vi)
3.66
3.67
(vii) a recent study3.66 recognised that all five junctions on the A66 (T) will
need capacity improvements in the future, as well as eventual dualling of
the road itself (see draft Policy MGP27);
A66(T) Darlington Bypass
Capacity Enhancement
Scheme
(viii) it is a requirement of the outline planning permission for Link 663.67
that a sustainable balancing pond to manage surface water run off
(approximately 4ha) should be accommodated to the north of the
Eastern Transport Corridor before development begins in the south
western corner of the housing area;
(ix)
Section 106 agreement: a
legal agreement
negotiated between the
Council and developers,
landowners as a result of
a planning application to
secure infrastructure
required to help mitigate
the impact of new
development
(x)
(xi)
3.68
there will be a shortfall of primary care facilities in this part of Darlington
compared to the planned population, which could be met by providing a
new GP surgery within the development (see draft Policy MGP31);
the s106 agreement for Link 663.67 and Lingfield Point (see draft Policy
MGP3) requires financial contributions to be made, to deliver highways
improvements at the McMullen Road/Eastern Transport Corridor junction
and at all junctions on the A66(T) on a pro rata basis, reflecting the
amount and type of development delivered. Any other development that
generates an impact on these roads and junctions will be expected to
provide mitigation in the same way;
slower than expected progress in the development of cost effective and
viable renewable energy technologies, and an increased focus on energy
efficiency as a means of reducing carbon emissions from new
developments means that a revised approach to delivering sustainable
buildings is required;
to meet aspirations, high speed broadband should be provided
throughout the area, particularly to the employment development areas;
(xii) a recent emerging strategy3.68 seeks to designate two new Local Nature
Reserves at Red Hall Wetland and Mill Lane adjacent to the south west and
north west of the housing area (see draft Policy MGP25). Four green
corridors cross the area connecting the Eastern Urban Fringe to the rest of
the green infrastructure network; within their buffer zones (see draft Policy
MGP24) highly green wildlife friendly development should take place.
Emerging Darlington
Strategy, DBC, 2013
54
3.69
Accommodating Growth:
Issues and Options,
Consultation Responses
DBC, 2011
3.70
Making and Growing
Places Preferred Options:
Sustainability Appraisal,
DBC, 2013
3.5.8
3.5.9
In earlier consultations3.69 issues identified included loss of agricultural land
and biodiversity, river and surface water flooding and increasing the number
of houses identified to ensure deliverability. However, the loss of agricultural
land was agreed at the Core Strategy Examination land, the natural flood plain
will be kept and any surface water flooding can be addressed through on-site
storage through the use of sustainable urban drainage schemes (see also draft
Policy MGP 34) .
The sustainability appraisal3.70 indicates that a combination of options (b) and
(c) scored highly because of the benefits delivered as a result of their proximity
to the main public transport and cycle route of the Eastern Transport Corridor.
Preparing a Draft Policy: the Preferred Housing Option
3.5.11 Of three options considered for housing, a combination of option (b) and (c)
that made use of land in the south western corner of the site first was
considered the most sustainable. It allows the sustainable drainage scheme for
the Link 66 development to be integrated into the approach for the housing
area, alongside landscape and green infrastructure networks. Also, it provides
the most opportunity for links to Red Hall to be realised within this plan
period. On-site or off-site infrastructure should also be designed with capacity
to accommodate further development beyond 2026. The matters outlined
below are considered essential for the proper planning of the area, to create a
neighbourhood where people will aspire to live and to ensure that the new
community integrates positively with the existing residents. The details will
need to be identified in a comprehensive masterplan agreed with the Council,
to guide the development of this area within the plan period and beyond.
3.5.12 Whilst about 230 new homes are envisaged by 2026, to ensure that there is a
continuous supply of housing land, there is an expectation that further
significant new development to create a new neighbourhood will continue on
this site well beyond 2026. To ensure that development can be readily
integrated with the existing and proposed community at Red Hall, and that
key infrastructure (such as a road link from the Eastern Transport Corridor to
provide safe access and egress) is put in at the outset, residential development
should be phased for build out from the south western corner adjacent to the
Eastern Transport Corridor and Red Hall first, and progressing from there both
eastwards and northwards. To deliver sustainable growth and quality of life
benefits, it is important that the new residential area is not a ‘bolt-on’ to Red
Hall; links between the two are important to ensure that the existing homes
and new ones integrate over time, and that the services within each can be
shared.
3.71
3.72
3.73
Housing Market
2012
Policy CS11
defined in policy CS9
DBC 2012
3.5.13 The development will be expected to include a range of house types and sizes.
The area is particularly suitable for three and four bedroom houses, addressing
a shortfall in the stock compared to demand3.71, whilst land closest to
community facilities, shops and services would be suitable for housing for
older people and for those with disabilities; this should amount to about 5%
of all new housing. The development will also be expected to meet the Core
Strategy affordable housing requirement in full3.72, with provision to be at
about 30% for each phase of development.
3.5.14 The local shops proposed at Lingfield Point and existing at Red Hall could meet
most of the day to day needs of people living in the new housing, but the
wider area is relatively remote from local shops, with the nearest alternatives
being at Haughton Village and the Whinfield District Centre and Morton
Palms, over 1.5km away. Through the masterplan, consideration must be given
to providing additional shops to meet local needs3.73, ideally in conjunction
with other community facilities, in the central part of the site, and from which
sustainable travel routes should radiate, linking provision to both existing and
proposed new housing areas and other local community facilities.
3.5.15 Because of uncertainties around the availability of funding to support new
community infrastructure such as schools and health provision, the preferred
option encourages and allows for the possibility of provision, but is not
prescriptive about this. In addition, so that land identified for these uses is not
sterilised in the long term, the draft policy allows for its use for other purposes
if there is no prospect of the intended facilities being realised.
55
3.74
Flood Zone 3b: land
where water has to flow
or be stored in times of
flood
3.5.16 A large part of the north western area close to the River Skerne is a natural
flood plain and lies within Flood Zone 3b3.74 rendering it unsuitable for built
development. It is important that this large area is fully integrated into the
overall masterplan; floodplains can be a valuable green infrastructure resource,
particularly for wildlife and sport. Opportunities to promote this land
efficiently by using about 8ha as playing fields to meet the needs of local
teams should be explored.
3.5.17 Housing development should have a positive, vibrant green interface with the
strategic Darlington-Stockton green corridor, and a much softer, wildlife-rich
interface with the strategic River Skerne corridor3.68. The relationship to other
existing green infrastructure, particularly the Local Nature Reserves (see draft
Policy MGP 25), the need for development to avoid areas of flood risk, the
requirement to protect and provide access to the Scheduled World War II
bombing decoy control shelter in the north eastern part of the area and the
desire for development to be buffered from roads and railway lines are the
starting point for planning an attractive, well connected network of green
infrastructure for sport, recreation, adventurous and natural play, local food
and wildlife.
Preparing a Draft Policy: the Preferred Employment
Land Option
3.5.18 Of the two options considered for employment land, Option (a) which makes
use of Lingfield Park, Link 66 and Yarm Road South for B1/B2 and B8 uses and
Morton Palms for B1a uses was considered the most sustainable (see draft
Policy MGP 11). It allows sites to come forward in locations that have
previously been successful in attracting those types of occupiers. Morton
Palms provides significant opportunities for the expansion of high value office
development, while Lingfield Park and Link 66 should be promoted as a
priority location for employment uses over the plan period. Yarm Road South
provides for complementary B1/B2 and B8 uses to meet identified needs.
These uses are also being promoted elsewhere in the town, including more
sustainable locations like the Town Centre Fringe and at the nearby Lingfield
Point. Any new employment development in this location will need to
complement existing and planned provision elsewhere, and will be expected to
do so through the high quality of the design and environment provided,
including the provision of high speed broadband and appropriate car and
cycle parking.
3.5.19 Wildlife friendly greenspace should be incorporated, to enliven the
employment development, including through the creative use of sustainable
drainage3.68. Quality landscaping and tree planting will provide space for
nature, places for employees to relax and an attractive setting. The
relationship to other existing green infrastructure, particularly the green
corridors, existing balancing ponds at Morton Palms and the Maidendale Local
Nature Reserve (see draft Policy MGP 25), and the desire for development to
have a high level of landscape amenity space should be considered in the
planning of green infrastructure for informal recreation, walking, cycling and
wildlife.
3.5.20 A high pressure gas main runs along the eastern boundary of the A66 (T) (see
draft Policy MGP 30) just outside this location. But the outer limits of its
exclusion zone cross into the eastern area of Link 66 and Morton Palms. The
impacts on employment land are negligible but where appropriate, solutions
should be agreed in consultation with the Health and Safety Executive.
56
3.75
Sustainable drainage
systems: cover the range
of sustainable approaches
to surface drainage
management, including
SuDS and mimic natural
drainage, managing
surface water runoff as
close to where it falls as
possible.
3.76
2011, HM Treasury
3.77
scale carbon-saving
compliance.
Preparing a Draft Policy: General Issues
3.5.21 Parts of the Eastern Urban Fringe are at high risk of surface water flooding,
meaning that sustainable drainage3.75 (see draft Policy MGP 34) needs to be
planned and put in place before development begins. The south western part of
the housing site is expected to be the focus for a network of highly biodiverse
balancing ponds to manage surface water run off from the housing area and
the Link 66 site. They should be an integral part of the green infrastructure
network and provide for informal recreation and education to complement the
existing, adjacent Red Hall Wetland. Elsewhere appropriate surface water
management should be incorporated into the design of development.
3.5.22 As new housing is not scheduled in this location until 2016, it will all need to be
zero carbon to comply with Government policy3.76; all other development should
achieve this standard from 2019. A combination of highly energy efficient design
and development and renewable or low carbon technologies (see draft Policy
MGP 33) is expected to deliver the majority of carbon savings on site, with
‘allowable solutions’3.77 being used to deliver any outstanding requirements.
3.5.23 At its boundaries, all new development must include significant structural
landscaping, with mixed native woodland and species rich planting along the
A66(T) boundary. Wherever possible, existing hedgerows, roadside verges and
native mature trees should be retained and integrated into the green
infrastructure network, particularly along the Eastern Transport Corridor, the
A66 (T), Stockton Road and along the northern side of the Bishop Auckland to
Saltburn railway line to enhance landscape and environmental quality, and
promote an attractive and distinctive area. To support ongoing management
and maintenance of high quality spaces, a green infrastructure management
levy on all new development will be applied.
3.5.24 Links to, along and between the green corridors should be provided or
improved particularly to the existing sustainable transport routes along
Stockton Road, the A66(T) and Eastern Transport Corridor to provide access for
walkers and cyclists between different neighbourhoods and for home, work,
school and leisure. Public rights of way connecting Red Hall to Great Burdon,
and Yarm Road to the southern urban fringe, should be integrated into the
green infrastructure network.
3.5.25 High frequency bus penetration within the housing area should ensure that bus
stops are no more than 300m from the majority of homes. Bus services should
also be provided from different parts of the wider area to the Town Centre which
together with new high quality walking and cycling routes, will provide travel choice.
3.5.26 The A66(T) currently experiences a high volume of traffic, particularly at peak
times, as people travel to and from employment areas in the Eastern Urban
Fringe and elsewhere in Darlington, and others travel into the Tees Valley and
North Yorkshire. The Great Burdon roundabout and the Yarm Road
roundabout are earmarked for improvement by 2015, but this is dependent
on securing funding. In the long term, to avoid severe impacts on the strategic
and local highway network, all proposed developments will need to mitigate
their overall impact by contributing to highways improvements along the A66
(T) on a pro rata basis reflecting the amount and type of development
proposed. Each site must also include roads to an appropriate standard to link
areas of new development to the existing highway network.
3.5.27 The sustainability appraisal3.70 indicates that all the employment sites in this
location performed well under option (a), particularly if landscaping was
integrated for those sites adjacent to the A66(T), as this would also make a
positive contribution to biodiversity and the green infrastructure network.
57
Draft Policy MGP6: Eastern Urban Fringe
130.5 ha of land at the Eastern Urban Fringe is allocated for a mix of uses according to
a masterplan for the northern or southern area agreed with the Council, so as to
deliver the following:
A. Housing development:
i)
ii)
about 250 new dwellings (2021-2026), and further significant new housing and
associated development thereafter, to create a new neighbourhood in the Eastern
Urban Fringe;
30% affordable housing provided within each phase of development, each phase
to include both social rented and intermediate tenures;
iii) an overall housing mix that include housing capable of being readily adapted to
meet a range of needs and/or housing to meet specific needs, the level and type of
such provision to be agreed with the Council, and to be not less than 5% of the
overall new housing;
iv) up to 400m2 gross floorspace for local shops to meet everyday convenience needs;
v)
zero carbon housing to achieve Code for Sustainable Homes Level 6 and up to
vi) at least 2.74ha of publicly accessible green infrastructure to include:
a.
b.
c.
d.
e.
significant structural landscaping belts along the boundaries with the
Eastern Transport Corridor, the A66 (T) and Stockton Road;
green corridors linking the Eastern Transport Corridor to the River Skerne
and to Stockton Road, to shops and community facilities and Red Hall;
wildflower meadows, wetlands and woodland within the River Skerne
buffer zone;
a significant area in the central part of the site to be a focus for informal
recreation and children’s play;
an allotment site.
vii) a flood management scheme for fluvial and surface water run off, to include at
least 4ha for balancing ponds;
viii) 8ha of playing fields in the western part of the housing site;
ix) a network of linked streets, including a new road link from the Eastern Transport
Corridor;
x)
a road network enabling the ready penetration of buses to serve stops within
300m of every home;
xi) new high quality walking and cycling access along main routes and green corridors
to link in with the existing footpath/cycle routes and public rights of way along the
River Skerne, Eastern Transport Corridor and along the A66 (T); and
xii) high speed broadband to every home.
In addition, the masterplan should reserve land as follows:
a)
in the housing area, about 2ha land in the central part of the site for primary
education, such land to be reserved until at least 400 new dwellings are
completed. If there are no firm plans for the school at that time, the land may be
made available for alternative community uses. If none of these can be delivered
within a reasonable time, the land may be released for additional new housing;
b) land of appropriate configuration capable of accommodating a potential new GP
surgery.
58
B. Employment development:
i)
A mix of employment land at:
a.
b.
c.
ii)
d.
Morton Palms (8.18ha) for B1a use;
Lingfield Park (7.52ha) for B1, B2 and B8 use;
Link 66 (30.56ha) for B1, B2 and B8 use;
Yarm Road south (32.51ha) for B1, B2 and B8 use.
sustainability standards:
a.
b.
BREEAM 2011 ‘very good–outstanding’ 2013-2018;
Zero carbon development from 2019 onwards;
c.
To include 10% from renewable and low carbon sources.
a.
significant structural landscaping belts along the boundaries with the
Eastern Transport Corridor, the A66 (T), Yarm Road, Salters Lane and the
Bishop Auckland- Saltburn railway line;
iii) at least 4.28ha of wildlife friendly green infrastructure to include:
b.
c.
creation of a green corridor adjacent to the A66 (T);
connections from Yarm Road South to Maidendale Local Nature Reserve.
iv) appropriate surface water management to meet the needs of each development;
v)
a network of linked streets, including a new road link from each site to the local
highway network;
vi) a road network enabling the ready penetration of buses;
vii) new high quality walking and cycling access along main routes and green corridors
to link in with the existing footpath/cycle routes and public rights of way along the
Eastern Transport Corridor, Yarm Road and along the A66 (T);
viii) high speed broadband to every employment unit.
The following off-site provision and contributions will be also required as part of
the development of each site within the location to mitigate its impact:
a)
signalising roundabouts on Eastern Transport Corridor/A66 (T), Yarm Road/A66 (T)
and Stockton Road/A66 (T);
b) support for a high frequency bus service from the Eastern Urban Fringe to
Darlington Town Centre;
c)
enhancement/provision of walking and cycling routes to neighbouring areas and
to/from local schools;
d) funding to support smarter travel initiatives.
Making it Happen
3.5.28 By preparing a masterplan to guide use and development of the area, and
establishing a project delivery team.
59
3.6 DURHAM TEES VALLEY AIRPORT
Context
3.6.1
3.78
Darlington Local
Development Framework
Core Strategy, DBC May
2011
3.6.2
3.79
3.80
3.81
60
Policies CS1 and CS5 of
the Core Strategy
Airport related uses may
include terminal facilities,
aircraft/airport
maintenance, car facilities,
ancillary offices, air freight
warehousing and
distribution, hotels and
airport related training
centres.
Business Sites and
Premises, NLP for DBC,
May 2013
3.6.3
The Government’s new Aviation Policy Framework (March 2013) highlights the
importance of aviation infrastructure to economic growth, at the national and
regional level, and suggests there are also social and cultural benefits arising
from greater national and international connectivity. The Darlington Core
Strategy3.78 recognises the role of Durham Tees Valley Airport as an economic
driver, and acknowledges its contribution to economic growth. The airport
currently accommodates passenger flights, business and general aviation, but
at a much reduced level than was achieved during the mid 2000s. The wider
site is also home to other uses, both airport related (e.g. a hotel, fire training
school and an aircraft recycling facility) and non airport related, e.g. Priory
Healthcare, and includes a significant amount of unused and underused land.
The area is served by a rail halt at its north-eastern boundary, but there is
currently only a once a week service. A bus service links the airport to
Middleton St. George and Darlington Town Centre.
Maintaining a viable and thriving regional airport will help to deliver one of
the Core Strategy objectives, improving links between the Borough and further
afield, affirming the role of the Borough as a gateway to the wider Tees Valley
sub-region. To help create the conditions for a thriving airport, the Core
Strategy3.79 supports about 20ha of airport related development3.80 and about
5ha of general employment development there throughout the plan period.
There is also provision in Core Strategy Policy CS5 for employment sites with
special attributes to be safeguarded for employment uses or for mixed uses,
unless an alternative mix of uses offers greater potential benefits to the
community in meeting local needs for business and employment, or has other
regeneration benefits. Airport related employment land is considered to be
employment land with special attributes.
A recent study3.81 suggests that 57.90ha of land on three sites at the airport,
should be restricted for airport-related uses only, as it offers the potential to
serve a unique function within the Tees Valley economy for sectors or end
users that have distinctive scale, location or site attribute requirements. The
study also notes that proposals to open up the land south of the runway as
part of a package of measures to sustain the airport are currently being
worked up, but does not conclude on how the latter would be supported by
the recommendation.
3.82
3.1.12 of the Core
Strategy refers
Issues
3.6.4
3.6.5
Continuing poor economic conditions since the Core Strategy was adopted
mean that some of the plans for the future growth of the airport3.82, for which
planning permissions were granted in February 2007, are no longer being
actively pursued by the airport’s operators. Instead, with both Stockton and
Darlington Borough Councils (the site straddles the two boroughs), they are
investigating the options for sustaining a viable airport, including the
preparation of a masterplan, as a clear statement of intent regarding future
development of the airport.
Many reasons for the declining use of the airport are related to the wider
economic situation and national airports policy. These can only be addressed
through a proactive business plan that includes business development,
lobbying and marketing to achieve higher levels of air traffic, and achieving
more intensive and active use for airport related business at the airport site.
The Airport has sought funding to support new infrastructure and
development that would help to achieve this. This would include rerouting the
access road to land south of the runway to open up that land for
development, rail freight improvements, and potentially, new rail facilities for
passengers3.83. On its own, this may not be sufficient to sustain the airport
until economic conditions improve; further development of the airport site,
making better use of land to the north of the runway may, as a subsidiary
element of an overall business plan, be required to complement this.
Options Considered
3.6.6
The options considered regarding the content of the policy were as follows:
(a) a policy that supports and facilitates restoring a viable and thriving airport
in the short-medium term that will meet in full the needs of the wider
Tees Valley sub-region for business and leisure flights, or;
(b) a policy that supports and facilitates sustaining a viable airport in the
short to medium term, meeting the minimum required to ensure that
businesses in the Tees Valley can continue to be connected by air to
locations remote from the sub-region, and supports and facilitates
restoring a viable and thriving airport over the longer term that will meet
in full the needs of the wider Tees Valley sub-region for business and
leisure flights; or
(c) do nothing, and rely on the existing strategic policy content of the Core
Strategy.
61
3.6.7
3.6.8
3.6.9
Option (b) is the preferred option. It is aspirational over the longer term, but
recognises that until the middle part of the plan period, the forecast poor
economic conditions are unlikely to deliver significant additional passenger
growth. Option (a) is unlikely to be deliverable in the ongoing poor economic
conditions, and the scale of any enabling development required to deliver it
could significantly adversely affect the Council’s ability to deliver its other
planning and regeneration objectives. Option (c) may not provide sufficient
policy guidance on the amount and type of development that could be
acceptable at the airport, and may not acknowledge enough the wider
benefits of a viable airport to the sub-region.
The sustainability appraisal found the preferred option to be the most
sustainable, but it scored poorly against environmental objectives because
increasing flights would result in more air/noise pollution and carbon
emissions. It also found that a pro-active policy, rather than relying on existing
Core Strategy policies, would be an opportunity to secure environmental
mitigations as part of any new development.
The unimplemented planning permission on land to the north of the airport
runway for the extension of the airport to create a business park, hotel and
associated facilities and improvements to the airport was conceived in more
buoyant market conditions, and in the current economic climate, is unlikely to
be delivered. However, proposals with planning permission to the south of the
runway are still being pursued. Also, as part of a wider Tees Valley Metro
project, there are proposals to replace the existing Airport railway station with
a new station closer to the terminal building, on the eastern side of the access
road to the airport. However, no funding has been identified for this element
of the Metro project yet.
3.6.10 The extent and type of development that could be permitted at the airport is
not open ended. To safeguard the achievement of the overall Core Strategy
vision, its locational strategy and regeneration objectives, any planning
application for non airport related uses, and for general employment uses on
more than about 5ha land, will need to be accompanied by a statement
setting out why the applicants consider the proposed development will not
adversely affect the likelihood of development of the same type as the
proposed uses on other more sustainably located sites within the Borough,
identified elsewhere in this document.
3.6.11 The objective of any development beyond that envisaged in the Core Strategy
must be to support a viable airport over the much longer term; most
development can be expected to last at least a generation, so it must be
demonstrated that development additional to that envisaged by the Core
Strategy should sustain an operational airport contributing to the economic
needs of Tees Valley over the long term.
3.6.12 Any justification of amounts and types of development beyond that indicated
in the Core Strategy would also need to set out clearly the extent to which
each element is required to fund or part fund other tangible project(s) that
will demonstrably sustain the viability of the airport over the long term. In
doing so, it must be clear the per unit contribution that would be made by
each type of proposed development to the proposed linked project(s).
62
3.6.13 Types and amounts of development for which adequate provision is made
elsewhere in the Local Plan will only be permitted if credible evidence has
been submitted to demonstrate that it is the minimum needed to enable
tangible projects, that it can be demonstrated that the projects proposed will
contribute significantly to efforts to sustain a viable airport over the longer
term, and the impact on the deliverability of the Core Strategy as a whole can
be shown not to be significant. It will also need to be demonstrated that the
funding for such projects is not available from any other source.
Draft Policy MGP7: Durham Tees Valley Airport
225 ha of land at Durham Tees Valley Airport is safeguarded for the continued
unfettered operation of a thriving regional airport, and for a mix of airport related
uses and other uses that may be required to sustain it.
About 20ha of airport related development and about 5ha of general employment
development will be permitted within the site.
Where it can be demonstrated that this will not be sufficient to sustain a viable
operational airport, additional amounts of airport related and/or general employment
uses, and then other non airport related uses which would not undermine the
achievement of Core Strategy objectives nor constrain existing or future aviation and
airport related activity may be permitted, where it can be robustly demonstrated that:
(a) the amount and type of development will not adversely impact on the Council’s
ability to deliver the locational strategy and key development sites of the Local
Plan and its wider strategic objectives, and
(b) the proposed development is the minimum necessary to enable tangible projects
that will demonstrably help to sustain the airport over the longer term to be
delivered; and
(c) any projects proposed under (b) above must be clearly identified in a credible long
term business plan, to be submitted to the Council with any planning application;
and
(d) that best endeavours have been exercised in making best use of existing land,
buildings and facilities to support a viable airport; and
(e) funding to sustain the airport or deliver the tangible projects in (b) above is not
available from another source.
Making it Happen
3.6.14 Land use and development proposals to sustain a viable airport and improve
airport infrastructure will be included in a plan for the airport, to be
progressed jointly by Stockton and Darlington Borough Councils with the
support of Tees Valley Local Enterprise Partnership, and then through bids for
funding and planning applications.
63
3.7 LIMITS TO DEVELOPMENT
Context
3.84
Policy CS1, Darlington LDF
Core Strategy, DBC, May
2011
3.7.1
3.7.2
3.85 National Planning Policy
Framework Paragraph 154
Limits to development are an established policy tool in the Local Plan, which
will help to achieve the locational strategy for new development3.84. Generally,
the Darlington Core Strategy indicates that new development should take
place within the limits to development, unless there are specific justifications
otherwise. The limits to development also help preserve the distinctive
identities of existing settlements, and protect the open countryside between
settlements.
The limits to development currently depicted on the Local Plan Proposals Map
were drawn up in the 1990s and need to be brought up to date, to reflect
new development that has happened since then, and to accommodate any
new edge of settlement land allocations that are required for this plan period.
The revised limits, defined through the policy below, will provide more
certainty as to where development will generally be permitted or not
permitted3.85 (National Planning Policy Framework Paragraph 154), and
highlight the exceptions to it.
Options Considered
3.7.3
The approach above is considered to be the only option to achieve the
objectives outlined above. Within this general approach, options were
considered for the treatment of specific areas:
•
•
•
where new development may call into question the validity of retaining
separate limits to development for neighbouring built up areas. Examples
are the land separating two of the larger villages of Middleton St. George
and Middleton One Row and also Hurworth and Hurworth Place.
where development has taken place since the current Local Plan was
adopted that have changed the character of the area. Examples are West
Park and some smaller scale development around the fringes of the
Borough’s villages.
where inconsistencies in application of existing limits were identified, e.g.
Summerhouse.
3.7.4
3.86
Darlington Association of
Parish Councils Briefing
Note, 25 September 2012.
3.7.5
64
The criteria and approach to reviewing the limits to development have been
drawn up in consultation with interested parties, for example the Darlington
Association of Parish Councils, and received broad support3.86. Representations
received so far regarding limits to development have also been taken into
account, e.g. Sadberge Parish Council requested that limits to development for
Sadberge remain unaltered.
The Sustainability Appraisal findings for the options scored the same across
each objective. All options would be appropriate, providing that decisions on
changes to development limits are informed by an agreed set of criteria that is
clearly referenced and identified within the policy.
3.7.6
3.7.6
3.7.7
In order to provide more certainty about where specific plan policies apply,
assessment criteria have been used to identify where the edge of the built up
area ends and the countryside begins. This has taken into account factors such
as the nature of the land use or building and whether it would be typically
located within the urban area or the countryside, and following clearly defined
permanent features, such as a walls, fences or roads wherever possible. Where
separate limits to development are close to one another, e.g. between
Middleton St. George and Middleton One Row, the role that any land in these
gaps plays in the characterising the area was considered.
The limits to development have been drawn to include areas identified for
future planned growth of housing and employment adjoining the urban area
including North East Urban Fringe, North West Urban Fringe, housing sites in
the Harrowgate Hill/Beaumont Hill area and employment sites at Faverdale.
The results of this work are the development limits identified around the main
urban area of Darlington and around rural settlements, as shown on the
Policies Map. The draft policy also expands on the ‘rural needs’ clause of Core
Strategy Policy CS1.
Draft Policy MGP8: Development Limits
Development within the limits identified on the Policies Map will be acceptable in
principle subject to compliance with other relevant national and local policies.
Making it Happen
3.7.8
Through the development management process.
65
3.8 DEVELOPMENT IN THE COUNTRYSIDE
Context
3.8.1
3.87
Framework (NPPF), CLG
2012
3.88
Core Strategy Policy CS1
3.89
NPPF, paragraph 28
3.90
Core Strategy objective 7
3.8.2
3.8.3
see draft Policy MGP 7 for
Durham Tees Valley
Airport
The Darlington Core Strategy3.88 identifies the main urban area and existing
villages as the most suitable locations for future development, and that
outside the limits to development, it should only be to meet identified rural
needs. However, it does not explain what rural needs are.
National Policy3.89 also indicates that plans should support economic growth in rural
areas, including the development and diversification of agriculture, and rural tourism
and leisure which respects the character of the countryside. The Core Strategy also
seeks to strengthen the character, function, intrinsic quality and distinctiveness of
the countryside3.90, also addressed in draft Policy MGP 22 later in this document.
Issues
3.8.4
3.91
The countryside or rural area is the entire Borough outside the development limits of
the main Darlington urban area (draft Policy MGP 8). It includes open countryside
and rural settlements, and Durham Tees Valley Airport. National planning policy3.87
indicates that the intrinsic character and beauty of the countryside should be
recognised and the thriving rural communities within it supported.
The Core Strategy indicates that the preferred location for new development in
the rural area should be within the limits to development of villages. It is
envisaged that development in these areas should be capable of
accommodating most of the social and economic needs of rural areas, but it is
also recognises that there will be instances where this is not possible, and
development outside of development limits may be needed, or could be
appropriate. Achieving the right balance between supporting economic growth,
vital and viable communities and protecting the character of the countryside
could require local policy on detailed matters. The matters considered were:
1.
2.
3.
66
what form and type of development would be acceptable within the
development limits of villages and other rural settlements3.91;
what types of economic development may be sustainable in the open
countryside;
what controls are needed on the conversion of existing buildings in open
countryside, and on residential extensions and replacement dwellings in
the open countryside;
Options Considered
3.8.5
3.8.6
The two options considered were:
a)
b) set locally distinct and detailed policies that support appropriate new
sustainable developments and enable existing rural developments and
enterprises to grow within the open countryside areas of the Borough.
The main matters (b) above would need to include are:
•
•
•
3.92
3.93
Core Strategy Policies CS1
and CS14
3.8.7
3.8.8
to rely on national policy to guide the location, nature and extent of
development within the open countryside; or
rural employment, including tourist accommodation and equestrian uses;
reuse, conversion, replacement and extension of existing buildings in the
open countryside, both residential and non residential; and
new buildings in the open countryside, both residential and non
residential.
There is sufficient planning policy to guide the form and type of development
within development limits in the Core Strategy and the Revised Design of New
Development SPD3.92, so this aspect is not taken forward here.
Option b) was selected, because the Borough’s rural areas have experienced
significant development pressure in recent years, and sustaining the character
and appearance of the countryside around the main urban area and villages is
an important strand of the adopted Core Strategy3.93. This option will also
introduce more clarity and certainty into the planning process for the rural
parts of the borough, helping to speed up decisions on planning applications.
Rural Employment
3.8.9
Supporting economic growth in the countryside can mean accommodating
acceptable farm diversification schemes, including things like equestrian
centres or livery yards, tourist accommodation (including static caravans,
touring caravans and chalet-type accommodation – see Core Strategy Policy
CS6), office space elements of storage, restoration or arts and crafts
businesses in the open countryside. To safeguard the intrinsic character of the
countryside, development associated with such uses should be appropriate in
a rural setting, and minimise its impact on its surroundings. For caravan sites
and tourist accommodation, this means compact and unobtrusive sites,
making use of natural or enhanced screening wherever possible, provided by
trees and landscaping, and making use of any existing buildings where
possible. Touring caravan and camping sites, although mainly involving
temporary structures, should also be screened as much as possible by existing
or enhanced landscaping, with any associated facilities and new buildings kept
to a minimum, by making use of existing buildings where practicable (see
draft Policy MGP 22).
3.8.10 Developments in the open countryside also need to be sited to get the benefit
of their open countryside location, and should not adversely affect existing
agricultural operations. Equestrian developments, for example should be
located where there is or could be ready and safe access to the bridleway
network, and any developments should not limit the future viability or sever
any existing farm holding.
67
3.8.11 There can be instances where new economic activity in the open countryside
requires associated residential accommodation. Where this is so, evidence will
need to be submitted demonstrating that suitable alternative accommodation
is not available within the existing local housing stock within a reasonable
distance, and that the need for on-site accommodation cannot be dealt with
by other means, such as CCTV surveillance.
Re-use and conversion of existing buildings
3.94
3.95
3.96
NPPF paragraph 28
Development SPD, Zone 5.
3.97
NPPF paragraph 55.
3.98
NPPF paragraph 54.
3.99
68
Wildlife and Countryside
Act 1981
Core Strategy Policy CS13.
3.8.12 This is the most common development pressure in the open countryside, but
not all buildings are suitable. For example, some may be too big or may
require significant alteration, some may not be structurally sound enough and
would require significant reconstruction, and others may not be in keeping
with their surroundings, or the works required could pose a threat to a
protected species3.94.
3.8.13 As existing buildings in the open countryside are a limited resource, these
should be considered for economic or community use, prior to conversion for
residential use3.95; the Council will require evidence of this as part of any
planning application. Residential conversions can, due to their domestic
requirements, have a greater impact on the character of a building and its
setting.
3.8.14 Similarly, replacement dwellings and extensions to existing dwellings can,
individually and cumulatively, have a significant adverse impact on the
character of individual properties and their surroundings. Extensions should
appear subsidiary to the existing dwelling and should not attempt to compete
with or dominate the original dwelling, as first built. Any altered or extended
building should still respect and reflect the character, scale and proportions of
the host dwelling (which should remain predominant), as well as the character
and appearance of the surrounding area. It should fit with the existing
context, make use of the existing footprint, and be sited at or behind any
existing building line, unless an alternative provides a better design solution,
in terms of highway safety amenity or other reasons . More details on
appropriate design and materials are provided in the Design SPD3.96.
3.8.15 The replacement of rural dwellings will be carefully controlled to avoid the loss
of buildings that are worthy of retention, (e.g. those identified on the
Borough’s Local List that are attractive or are valuable historic features within
the landscape and make a positive contribution to the character of the area),
and to ensure that they do not have a significantly greater built impact on the
countryside character and appearance than the dwelling it is proposed to
replace. Where buildings are worthy of retention, applicants will have to
demonstrate to the satisfaction of the Council that they are not capable of
renovation. Replacement dwellings should be comparable in size with the
original building.
3.8.16 Isolated new dwellings in the countryside will only be permitted in the
circumstances outlined in national policy3.97. One such circumstance where new
residential dwellings may be justified in the countryside is if it can be
demonstrated there is a specific need for a rural worker(s), and the draft policy
and Appendix 4 sets out the tests that will be applied to establish such a need.
3.8.17 Affordable housing proposals would be considered against Policy CS11 and
national policy3.98; it was not considered necessary to include a rural exceptions
site policy in this document. Accommodating Gypsies and Travellers is dealt
with in policies elsewhere in the Local Plan3.99.
3.8.18 Note that as this document was being prepared, revised permitted development
rights for rural buildings are expected to be published by the Government during
Spring 2013. The draft policies below may need to be reviewed in the light of this.
3.8.19 The Sustainability appraisal supports the preferred option as this ensures the
localised conditions are properly considered in planning decisions and there is
opportunity for a more localised consideration of social, economic and
environmental factors.
Draft Policy MGP 9: Economic Development in the
Open Countryside
Rural enterprises will normally be permitted, provided it can be shown that an open
countryside location for such a development will not harm, or it is subsidiary to or related
to a main agricultural use and necessary to sustain the agricultural holding as a whole.
Where proposals are for a farm shop then, in addition, it must be demonstrated that
the functional need for a shop cannot be met within nearby town or district centres
(defined in Policy MGP 14) or within existing vacant premises in village locations.
Proposals that would undermine an existing village shop will not be supported.
Where possible, proposals should reuse existing buildings and any necessary new
buildings must be well-related to existing buildings. The character, scale and design of
the proposal should be appropriate to its open countryside surroundings, and there
should be satisfactory access from the road network. Consideration must be given to
economic and community uses before residential use is proposed.
Proposals for the conversion and re-use of buildings in the open countryside
should be:
a)
largely accommodated within the existing building, without significant demolition
or rebuilding and should make use of retained features where practicable;
b) for a building that is large enough to be converted without the need for additional
buildings, substantial new extensions will not be permitted. Any extensions that
are required are subordinate in scale and proportion to the original dwelling;
c)
capable of conversion without significant alteration, and not prejudice any viable
agricultural operations on an active farm unit;
d) for a building of visual, architectural or historic importance, and
e)
f)
in keeping with it’s surroundings; and
structurally sound and capable of re-use without fundamental rebuilding (as
demonstrated by a structural survey submitted at the time of making an application); and
g) reasonable in terms of using domestic features, such as new window or door
openings, chimneys, porches, dormers, external garaging and garden area. They
should not be excessively used and may not be acceptable at all in rural locations.
Where the re-use or conversion of existing rural buildings is not practicable or viable,
replacement buildings for non-residential use may be permitted if it would result in a
more acceptable and sustainable form of development and it would be appropriate in
scale and design to its setting and any neighbouring buildings;
If the proposals are for equestrian related development then, in addition:
a)
there must be adequate land and, for commercial uses, adequate off-road riding
facilities available safely nearby for the number of horses to be kept on the land;
b) any buildings required should be commensurate in size with the number of horses
to be kept on the land and the amount of land available for use by those horses;
c)
an agreed comprehensive scheme of management for any ancillary development
including hard standing, access roads, parking, fencing, lighting, storage, waste
disposal, ménages and sub division of fields will be required; and
69
d) the proposal, either on its own or cumulatively, taking account of any other horse
related uses in the area, is compatible with its surroundings and adequately
protects water courses, groundwater and the safety of all road users.
If the proposals are for tourist accommodation then, in addition:
e)
f)
new static caravan and chalet type accommodation must be sited within a mature
landscape containing established woodland that screens the site from roads,
viewpoints and other public places, and will be subject to conditions to prevent
occupancy all year; and/or
new camping and touring caravan sites should be sited and landscaped so as to
minimise its visual impact, should have good access to the road and footpath network,
and will be subject to conditions to prevent the permanent occupation of the site.
Proposals for extensive outdoor leisure uses will also be supported in appropriate
locations, provided that their impact on the open countryside is minimised, and they
provide satisfactory access arrangements and protect amenity.
Draft Policy MGP10: Residential Uses in the Open
Countryside
The replacement and extension of residential buildings in the open countryside will
only be permitted if there is no detrimental effect on the character, appearance and
amenities of the site and surroundings.
Extensions of residential buildings must satisfy criteria a) to f) in draft Policy MGP8.
Replacement dwellings will only be permitted if:
a)
the existing dwelling has a lawful use, has not been abandoned, and is not a
caravan, mobile home or other temporary structure;
b) the size of the new replacement dwelling is not significantly larger than the
original house volume or footprint;
c)
the number of new dwellings is no more than the number of dwellings to be
demolished and replaced; and
d) they are positioned on the footprint of the existing dwelling, unless a more
appropriate location is indicated for landscape, highway safety, neighbouring
residential amenity, or other environmental reasons.
New permanent dwellings will only be permitted if they are required to support
existing agricultural activities on well-established agricultural units, and provided that:
a)
there is a clearly established existing functional need (see Appendix 4);
c)
the unit and the agricultural activity concerned have been established for at least
three years, have been profitable for at least one of them, are currently financially
sound, and have a clear prospect of remaining so (see Appendix 4);
b) the need relates to a full-time worker, or one who is primarily employed in
agriculture and does not relate to a part-time requirement;
d) the functional need could not be fulfilled by another existing dwelling on the unit,
or any other existing accommodation in the area which is suitable and available
for occupation by the workers concerned; and
e)
other planning requirements, e.g. in relation to access, or impact on the
countryside, are satisfied.
Making it Happen
3.8.20 Primarily through the Council’s development management function.
70
4. PROSPEROUS DARLINGTON
4.1 PROMOTING EMPLOYMENT OPPORTUNITIES
4.1
(May 2011); Policy CS1
and CS5.
4.2
Framework (CLG, 2012)
Paragraph 22
4.3
4.4
4.5
Context
4.1.1
4.1.2
Review of Business Sites
and Premises; NLP/DTZ,
2013
Darlington Employment
Land Review; Report and
Recommendations (DBC,
2009)
4.1.3
Economic Strategy for
Darlington 2012-2026
(DBC, Darlington
Partnership)
4.1.4
The Core Strategy4.1 indicates generally where and how a continuous and
diverse supply of employment land will be provided within the Borough to
meet the needs of existing and future economic development. It planned for
up to 235ha of additional land for general and mixed use employment across
the Borough in the period to 2026.
National planning policy4.2 suggests that employment sites should not be
protected over the long term if there is no reasonable prospect of a site being
used for that purpose. It also indicates that where that is the case, planning
applications for alternative uses should be treated on their merits, having
regard to market signals and the relative need for different land uses to
support sustainable local communities.
Since the Core Strategy was adopted, a business sites and premises review has
been carried out4.3 updating earlier evidence4.4 and taking account of the latest
local economic strategy4.5. It found that the Borough’s economy experienced
strong job growth during the early-mid 2000s, but a severe contraction postrecession. Currently strong economic sectors include services, manufacturing,
advanced engineering and construction, whilst emerging strengths are forecast
to include digital and media, subsea, and telehealth and telecare.
The study also found that although the area’s office stock has been enhanced
by a number of recent developments, the town is still a secondary office
location. It also found there to be a significant supply of available employment
land. The study suggests that:
•
•
•
•
4.1.5
•
The site area has reduced
slightly since the BSPR
work was undertaken to
take in some land to the
adjacent nature reserve.
about 110ha of employment land should be provided in the Local Plan;
land next to the main highway and rail infrastructure should be protected
to support development within the advanced manufacturing and subsea
sectors for Darlington; and
more premises of 250-600ft2 and more move-on space is needed in the
Borough’s main industrial estates, either as new build development or
subdivision and refurbishment of larger, older buildings;
Since the study data was collected, new national initiatives to support
employment growth have been announced and new information has become
available. For example:
•
4.6
embedding major ‘footloose’ businesses within the local economy should
remain a key priority;
•
the Council is contributing to work to secure City Deal status for the Tees
Valley, which, if successful could bring more public investment to prepare
key employment sites for development to Darlington;
Tees Valley Unlimited is researching the needs of the large scale logistics
markets to better understand how large scale sites such as those at
Faverdale Reserve (Policies Map ref KEL1) could attract such uses;
There is new interest in certain sites, such as for a data centre on the Faverdale
Reserve site (see Policies Map KEL1), for employment development on the
Faverdale East Business Park site which is currently being marketed (see
Policies Map EN1), and Yarm Road South4.6, where a Regional Growth Fund
bid is being submitted to reflect current employment interest in the site.
71
Issues
4.1.6
The main issues considered in developing a policy promoting employment
opportunities were:
•
•
•
•
4.7
4.8
4.9
4.10
Business Sites and
Premises Review (BSPR)
(NLP, 2013)
4.1.7
BSPR Section 5 and
Employment Land Review;
Report and
Recommendations (DBC,
2009)
Issues and Options
Consultation (November
2010)
Business Sites and
Premises Review; (NLP,
2013)
Section 5
4.1.8
where and how many allocations of available employment land should be
made; and
whether more flexibility of uses should be applied to any of the
employment sites.
The business sites and premises review4.7 suggests far less land (about 110ha)
is needed than is currently allocated (about 360ha), taking into account
forecasts of employment growth and what employment land supply is needed
for the growth of particular sectors within the borough. The review also
assessed a wide portfolio of potential employment land4.8, including existing
employment sites currently in use, unused land within existing sites that could
provide for expansion, sites currently included in saved policy EP2 of the
Borough of Darlington Local Plan, sites suggested in previous consultations4.9,
and the poorest sites recommended for deallocation4.10.
The sites and premises review also recommended applying flexibility and
pragmatism within the planning process to ensure that employment
developments can be brought forward, suggesting that alternative uses within
existing employment sites should be considered where it can clearly be shown
that these improve or enhance the overall area.
The options considered regarding how much employment land to allocate
were;
a)
Issues and Options
consultation, winter
2010/11.
what existing employment land should be protected;
Options Considered
4.1.9
4.11
what are the employment land needs over the plan period;
allocate employment land entirely in accordance with the sites and
premises review recommendations. This would result in 112.96ha of land
being allocated for employment uses, with a further 27.9ha identified for
airport-related uses at Durham Tees Valley Airport, and 50.93ha in the
Yarm Road South and Faverdale Reserve areas being reserved for
employment beyond the plan period. Land currently allocated at Drinkfield
and McMullen Road East would be deallocated, and part of the land at
the North West Urban Fringe would be identified to help to address the
shortfall in high quality office accommodation (see Policy MGP5). This
would accord with the views expressed by stakeholders at a recent
consultation4.11.
b) allocate employment land taking account of the sites and premises review
evidence and other up to date local economic information. This would
allow account to be taken of the complementary information set out in
4.1.5 above.
4.1.10 The only option considered regarding flexibility of uses within employment
areas was as recommended in the sites and premises review (see Para 4.1.8
above).
72
4.12
4.13
4.14
Development Plan
Document (DPD) Issues
and Options consultation
November 2010
Further details of the
responses, together with
the outcome of the
Business Survey, are
included within the
Business Sites and
Premises Review
Housing Land Availability
Assessment Update (3)
Autumn 2011; Site 97 St
Modwens Site, Faverdale
(DBC, 2012)
4.1.11 The sustainability appraisal general found option (b) to be the most
sustainable. The two options presented differ only in their exclusion or
inclusion of three large potential employment sites. The sites scored positively
on both social and economic sustainability objectives, but negatively against
environmental ones. However, the appraisal indicates that they are not the
least sustainable of other sites considered as part of the exercise that are
included in option (a). Overall, provided the required mitigation measures are
carried out, the appraisal found option (b) to be the most sustainable, since its
advantage in terms of social and economic sustainability outweighs the
additional environmental impact that will come from development of its three
additional sites.
4.1.12 Previous consultations4.12 generated a variety of views on employment land
issues. In 2010, general comments included support for the broad locations
for new employment development, a need for more manufacturing, a view
that there was inadequate provision of high quality business parks and too
much employment land, and a number of site specific comments. Comments
were also received regarding the impact of employment uses, e.g. traffic
congestion, noise, effect on local nature sites.
4.1.13 A more recent event with developers and commercial agents active in the
Borough4.13 suggested that Darlington should be economically aspirational,
and plan to deliver growth, by distinguishing itself in the wider economy and
property market. Views were also expressed that additional land allocations
could be potentially harmful to existing allocations, given the current
oversupply of employment land, and that there should be fewer restrictions
and more flexibility on single uses of sites, including to enable higher value
uses to cross subsidise speculative development or the provision of
infrastructure on employment sites. Alternative uses should be similar in
character to the allocated or existing use, e.g. in terms of job numbers,
environmental impact, etc.
4.1.14 The review recommendations have been balanced against other
considerations, such as the momentum that could be generated by more
recent interest and initiatives (outlined in paragraph 4.1.5 above) and the
need to have a range and choice of sites. Also, in Darlington Borough, the
disadvantages of retaining large areas of land for employment use that might
not get taken up in the plan period are not considered to outweigh the
benefits indicated above. For example, land at Faverdale East Park is not
considered suitable for other uses4.14.
4.1.15 Taking account of all of the above, Option b) has been selected as the
preferred option, and is reflected in Policy MGP 11 below. It recognises that it
would be premature to deallocate sites until the outcomes of ongoing work
and recent expressions of interest are known, as there is still a reasonable
prospect of employment uses being delivered on the three sites identified.
Their retention does not prejudice identifying enough suitable land for other
uses in the plan, and will ensure that a range and choice of employment land
is available to meet all user requirements over the plan period.
4.1.16 The policy also includes a requirement for a particularly high standard of
design on those sites where it is considered justified due to location (prestige
employment locations), and land is identified for high quality business parks in
a range of locations to address consultation responses and the sites and
premises review findings.
73
4.1.17 The preferred option also recognises the contribution that alternative uses can
make to employment areas, where they comply with the objectives of the plan
and are applied consistently, and can help to realise the development of
employment uses, and the continued retention and attractiveness of
employment sites. Acceptable uses are predominantly those that have a similar
character to employment uses, but may not be in the same use class, and could
include training centres related to employment in the industries on the estate,
or related to a particular occupier, genuinely ancillary uses, or more diverse uses
where they relate to the function of the estate or the surrounding area.
4.1.18 The preferred option, whilst planning for employment development in specific
locations, recognises that employment uses outside of the employment areas
identified can make a contribution to the local economy, where they are in
suitable locations with compatible uses able to co-exist alongside one another.
To this extent it is required that employment uses outside of employment
areas will be suitable where they comply with the other policies in the plan
and have no adverse effect on: the amenity of adjacent occupiers, the
character of the area, and the surrounding environment.
4.1.19 The proposed planning approach at Durham Tees Valley Airport, which
includes provision for employment uses, is dealt with in draft Policy MGP 7.
The identification of land for a small high quality office development at the
North West Urban Fringe, for small and medium sized enterprises, will be
identified through masterplanning for the wider site (see draft Policy MGP 5).
Draft Policy MGP 11: Promoting Employment
Opportunities
Existing employment areas
The following existing employment areas, as shown on the Policies Map, are
safeguarded as employment areas. Within these areas, planning permission will be
granted for business (Use Class B1), general industrial (Use Class B2) and storage and
distribution (Use Class B8) uses, and initiatives to improve (through refurbishment,
subdivision or replacement) existing buildings, to allow their continued contribution to
the local economy:
EE1
Faverdale Industrial Area (including Faverdale East Business Park);
EE2
Cleveland Street;
EE4
Red Barnes Way
EE3
EE5
EE6
EE7
EE9
EEP1
EEP2
Albert Hill;
Banks Road;
Lingfield Point;
Yarm Road Industrial area;
Aycliffe Industrial Estate
Yarm Road South
Morton Palms
Sites EEP1 (Yarm Road South) and EEP2 (Morton Palms), as shown on the Policies Map,
are safeguarded for Prestige Employment Development.
74
New Employment Sites
The following sites, as shown on the Policies Map, are allocated for new employment
within use classes B1, B2 and B8, to meet employment needs over the plan period:
EN1
EN2
EN3
EN4
EN5
Faverdale East Business Park (32.38ha);
Yarm Road South Extension (32.64ha)
McMullen Road West (6.62ha);
Heighington Lane North (4.54ha).
Lingfield Park (See Policy MGP 6)
EN6
Albert Hill (1.87ha)
EN8
Faverdale Industrial Estate (11.41ha)
EN7
EN9
ENP1
ENP2
Cleveland Street (0.81ha)
Banks Road (0.72ha)
Yarm Road North (30.56ha)
Former Torrington’s Site Yarm Road (7.41ha)
Site ENP1 (Yarm Road North) and site ENP2 (Former Torrington’s Site Yarm Road) as
shown on the Policies Map, are safeguarded for Prestige Employment Development.
Office / Business Park development
The following sites, as shown on the Policies Map, are allocated for B1 (Business) use:
ENB1 Morton Palms (8.18ha);
ENB2 South East Town Centre Fringe (1.59ha) (mixed use);
ENB3 Central Park (2.16ha) (mixed use).
Within all areas safeguarded or allocated for Prestige Employment or for
office/business park development, any development will be required to achieve a
particularly high standard of design and landscaping in accordance with Policy CS2
(Achieving High Quality, Sustainable Design) of the Core Strategy and the Design of
New Development Supplementary Planning Document.
Within all the employment areas identified above, the Council will particularly
encourage good quality accommodation for a range of small and medium sized
enterprises (23-60m2).
Uses other than those identified for each site may be permitted, where the proposed
use is of similar character to the uses for which they are identified. Where such uses
form part of the comprehensive development of the site for employment purposes, it
must be demonstrated that they contribute to the economic growth objectives of the
plan. Where ancillary uses are proposed, it must be demonstrated that these will
benefit the immediate area, its existing occupiers, and where applicable, occupiers of
neighbouring estates.
75
Key employment locations
The following sites, as shown on the Policies Map, are allocated for B1, B2 or B8 uses
to meet the needs of new or emerging growth sectors, innovative or large user
requirements or other uses not provided for elsewhere in the Borough, as identified in
Policy CS5 of the Core Strategy:
KEL1 Faverdale Reserve (120ha); and
KEL2 Heighington Lane South (6.42ha)
Employment Development outside of allocated areas
Proposals for B1, B2 or B8 uses outside of the allocated areas will be assessed on their
merits, subject to the land not being designated for another use. Proposals must be in
conformity with other policies within this plan and should have no adverse effect on:
the amenity of adjacent occupiers, the character of the area, and the surrounding
environment.
Making it Happen
4.20
76
By implementing the land based actions in Darlington Economic Strategy.
5. A VIBRANT TOWN CENTRE
AND ACCESSIBLE SHOPS
AND SERVICES
5.
Context
5.1
5.2
Framework (CLG, March
2012), Para. 23
(May 2011) Policy CS7
5.3
5.2
5.1
A VIBRANT TOWN CENTRE AND ACCESSIBLE
SHOPS AND SERVICES
National planning policy5.1 indicates that the Council should pro-actively
promote competitive town centre environments that provide consumer choice
and a diverse retail offer. The Darlington Core Strategy5.2 Policy CS7 (The Town
Centre) sets out the overall approach to town centres and retailing, to ensure
the vitality and viability of the town centre is maintained and enhanced, and so
that it continues to provide a range of retail, leisure and business uses.
The Core Strategy also sets out5.3 the hierarchy of centres in the borough,
defining the role and appropriate developments for each, to ensure that their
role in providing food shopping and a range of local shops, leisure uses and
services, is safeguarded and enhanced.
Issues
5.3
The main issues considered were:
•
•
•
5.4
•
defining the boundaries of the town centre, primary shopping area, local
and district centres;
the function of frontages within the town centre and the local and district
centres;
the thresholds for requiring impact assessments for town centre
development outside of existing centres;
The appearance of shop fronts.
Consideration of these issues was informed by information in background
studies, such as the Darlington Retail Study 2008 and 2010, as well as
information in the Darlington Borough Council Retail Database, and further
analysis undertaken in autumn 2012.
Town centres
5.5
5.4
5.6
The Core Strategy seeks to focus retail activity within the defined town, district
and local centres in the borough, and to avoid developments outside of these
centres that would compromise their vitality and viability, by drawing trade
away from them. These policies do not prevent the development of small
shops or convenience stores that serve local needs, but do help ensure that
development within centres is consistent with a centre’s scale, function and
physical capacity to integrate extensions. Adverse impacts on vitality and
viability could result in local services and amenities not being available to local
communities, and people having to travel further for everyday goods and
services, thereby reducing accessibility to some members of the community.
The hierarchy of centres is set out in the Core Strategy5.4; the town centre is at
the top, followed by Cockerton and North Road District Centres, and then the
local centres of Mowden, Neasham Road, Whinfield, Yarm Road, West Park
and Middleton St George.
77
Options Considered
5.5
A statement
demonstrating that a
search for other, more
sustainable sites within
existing centres, have
been considered and are
not suitable, available or
deliverable. More
information on this can be
found in the practice
guidance ‘of need, impact
and the sequential
approach (CLG, 2009)
5.6
Framework, CLG 2012
5.7
(DBC, May 2011) CS7
5.8
5.9
Retail Technical Note No.
3: Darlington Town Centre
Boundary (January 2013)
Planning for town centres:
Practice guidance on
need, impact and the
sequential approach (CLG,
2009)
Town centre boundary and Primary Shopping Area
5.7
Town Centre Boundary
5.8
5.9
The town centre is the defined area where main town centre uses will be
located. Main town centre uses are defined in national policy5.6 as retail
development (including warehouse clubs and factory outlet centres); leisure,
entertainment facilities, the more intensive sport and recreation uses
(including cinemas, restaurants, drive-through restaurants, bars and pubs,
night clubs, casinos, health and fitness centres, indoor bowling centres, and
bingo halls), and arts, culture and tourism development (including theatres,
museums, galleries and concert halls, hotels and conference facilities);
Strengthening the town centre by channelling new main town centre uses,
including retail, leisure, and community uses, is vital if Darlington is going to
fulfil its role as a sub-regional centre (see Core Strategy5.7).
Work undertaken in early 20135.8 to review the town centre boundary,
considered the following options:
a)
5.8
5.9
5.10
78
This document defines the extent of Darlington town centre and the Primary
Shopping Area (these are defined below). This is important as it identifies
where town centre uses will be acceptable, and where, for the purposes of
town centre uses, a sequential assessment5.5 will be required.
Retain the existing town centre boundary;
b) Extend the existing town centre boundary at the eastern end of Duke
Street and Bondgate to include areas that contain town centre uses and
which are well connected to, and easily accessible from, the town centre.
National guidance5.9 indicates that a town centre boundary should contain the
primary shopping area, and areas predominantly occupied by main town
centre uses within or adjacent to the primary shopping area.
Both options accord with the Core Strategy, but Option b) includes areas that
are adjacent to the town centre, that also contain main town centre uses, and
perform a shopping function in conjunction with trips to the town centre.
Their town centre role was also recognised in separate work to define the
Business Improvement District boundary.
Option b) is therefore the Preferred Option, as it better reflects the use and
function of the centre. The additional areas of Duke Street and Bondgate
contain uses that complement the shopping function of the town centre. Their
inclusion is unlikely to dilute the concentration of retailing, as the focus of the
latter will remain the primary shopping area (paragraph 5.13 below).
5.10
5.11
5.12
5.13
5.14
those that are identified
as containing a high
proportion of retail uses.
those that provide greater
opportunities for a
diversity of uses.
2: Darlington Primary
Shopping Area Boundary
(November 2012)
Primary shopping area is
defined within the NFFP
(2012) as ‘defined area
where retail development
is concentrated (generally
comprising the primary
and those secondary
frontages which are
adjoining and closely
related to the primary
shopping frontage)’.
Primary Shopping Area
5.11
5.12
5.13
5.14
2012), Para 26
5.18
5.19
6; Impact Assessment
Threshold for Town Centre
Proposals (November
2012)
5.20
5.21
5.16
Framework (March 2012),
Para 26
The only option5.12 considered was one based on the national definition of a
primary shopping area5.13, with a development management policy to maintain
and enhance the uses within this area. The primary shopping area will be
reviewed and extended as development occurs, along with the Town centre
boundary, where appropriate.
Development outside the town centre
5.15
5.15
The primary shopping area is defined as the area where retail development is
concentrated, and is delineated in this document. It covers all primary
frontages5.10 and those secondary frontages5.11 that are contiguous and closely
related to the primary frontage.
The Council’s policy (Policies CS7 to 9 of the adopted Core Strategy) is that
main town centre uses should be within existing centres (see paragraphs 5.55.6 above). However, where development does take place elsewhere, it is
important that it does not undermine existing centres.
So that the impact of proposals outside existing centres can be understood,
national policy5.14 sets an overall national threshold of 2,500sqm above which
all proposals for main town centre uses outside of existing centres must be
accompanied by an assessment of impact on existing centres. There is scope
for the Council to set its own local thresholds, if necessary.
There is no minimum threshold for sequential assessments (see paragraph 5.7
above).
Two options were considered in developing this policy:
1.
2.
maintain current general policy reflecting national policy on sequential
and impact tests; or
set local thresholds for sequential and impact tests for new floorspace.
The consequence of not setting a threshold would be that only proposals over
2,500sqm would require an impact assessment.
An examination of unit size data (including vacancies) in the primary shopping
area5.15, elsewhere within the town centre and within district and local centres,
and new floorspace developed in the last ten years indicates that an
appropriate local floorspace threshold for development outside the town
centre for Darlington could be 500sqm (gross). Requiring an impact
assessment for proposals above 500sqm would ensure that full consideration
is given to the scale of development and any significant impacts that could
result from retail proposals, when taken both individually and cumulatively
with other proposals and developments. This is the level above which a
significant adverse impact on the smallest centres is a strong possibility.
An impact assessment will be required with every relevant application.
Matters to be considered in an assessment are set out in national planning
policy5.16.
79
In the town centre
5.22
5.17
Darlington Retail Study
and Update (Martin Tonks,
2008, 2010)
5.23
This document defines the extent of Darlington town centre and identifies
primary shopping frontages where loss of retail shopping floor space for other
purposes would be resisted for its negative impact on town centre vitality and
viability.
Darlington town centre continues to perform well and has good vitality and
viability (The Darlington Retail Study5.17). However, like many other centres, it is
losing market share in most goods categories to out-of-centre shops and the
internet, and the centre needs to diversify further and improve its non-alcohol
leisure offer.
Primary Shopping Frontages
5.24
5.25
5.18
1; Darlington Town Centre
Primary and Secondary
Shopping Frontages;
(November 2012)
5.26
The existing primary shopping frontages (primary frontages) accurately reflect
the current concentration of retail activity in Darlington Town Centre5.18, so no
changes are proposed to these.
Non A1 uses are playing a much greater role in modern town centres, and
shopping is becoming more of a leisure pursuit, with the growth of coffee
shops, cafes and restaurants in high streets, alongside the traditional shopping
destinations5.18. Managing the proportion of non-A1 uses in a primary
frontage can help ensure that these other uses support and do not dominate
the primary retail function of the area, and maintain its vitality and viability.
Three options to control uses within primary frontages have been considered:
1.
2.
3.
5.27
5.28
80
continue existing policy approach of allowing only A1 retail uses at
ground floor level in all primary frontages;
set a percentage of non-A1 uses that would be allowed along any one
primary frontage;
allow non A1 uses in exceptional circumstances and only where the
proposed use complies with a set of criteria to ensure that it contributes
to vitality and viability.
Option 1 would retain the existing position, which has resulted in a small
number of properties remaining vacant for long periods of time in primary
shopping frontages. It would give a clear policy position that only A1 uses
will be allowed. However, from the research undertaken, it does not reflect
the changing nature of town centres in general and Darlington town centre in
particular, and may have unintended consequences of stifling the use of
properties for uses that could genuinely contribute to vitality and viability, for
example, providing services direct to members of the public and generating a
similar footfall to a retail use.
Option 2 builds in a small amount of flexibility to allow a more diverse set of
uses, and would be subject to the proportion being high enough to maintain
a dominant retail offer. However its success depends on setting a suitable
threshold for uses in frontages that differ from their current offer. Option 3
allows the flexibility for a more diverse set of uses, but only where it remains
complementary to the retail offer in primary shopping frontages. This option
goes more to the heart of the intentions of the policy, requiring that the
primary retail function of the frontages is maintained whilst recognising that
other uses that are not A1 may have certain characteristics that would
contribute to the vitality and viability of the frontage. Option 3 is therefore
the preferred option.
Secondary Shopping Frontages
5.29
5.30
5.19
Borough of Darlington
Local Plan 1997 (with
adopted alterations
September 2001)
5.31
5.32
Beyond the primary frontages, are the Secondary Shopping Frontages
(secondary frontages), including streets such as Skinnergate, Bondgate, Tubwell
Row and Post House Wynd. These are well connected to the primary frontages,
and whilst also having a predominantly retail character, they contain some
ancillary uses, such as cafes, restaurants and some community uses.
The existing secondary frontages still largely function as such5.18. In some
limited areas, though, there are so few A1 uses that these parts have now lost
their shopping character. Examples of these are the north side of Bondgate, to
the east of Commercial Street, a section of Tubwell Row south side, and parts
of the market square, such as Horsemarket and West Row.
Currently, the relevant policies of the Local Plan5.19 are clarified in
Supplementary Planning Guidance, which provides the basis for decisionmaking for proposals for non-A1 uses in secondary frontages and uses
thresholds and a number of supplementary criteria for this. If this approach
was to be continued, there would be a need to reduce the SSF in these places
as the guidance would be no longer effective.
In terms of retaining and enhancing the vitality and viability of the town
centre through the control of secondary frontages, two main options have
been considered:
a.
b.
5.33
5.34
retain existing secondary shopping frontages, and introduce more
flexibility within them for non-A1 uses that contribute to the vitality of the
frontage; or
amend existing secondary shopping frontages, by shrinking them to take
out the areas that are no longer operating as such, and maintain the
existing thresholds relating to the proportion of non-A1 shop uses that are
allowed in a particular frontage;
Option a) would recognise that even where there is no strong shopping
character, there is still a connection to and relationship with the town centre,
as the uses are complementary and reflecting the different elements of a
leisure shopping destination. There is also a link between some of the
shopping routes into the town centre and these areas of more diverse
character. Option b) could adversely affect the ability for other development
sites (set out in draft Policy MGP2) within the town centre to functionally and
physically connect to the primary shopping area. Both options would require
further guidance on application of the policy through a Supplementary
Planning Document, e.g. in terms of how vitality and viability can be
measured, and setting any thresholds.
The preferred option is to retain the existing frontages, but to reconsider the
thresholds for allowing appropriate non A1 uses, so as to allow some flexibility
in considering proposals, particularly on frontages which are not currently
operating as shopping frontages.
81
Fringe Shopping Areas
5.35
5.36
Fringe Shopping Areas are the streets that are situated outside of the town
centre, but radiate out from it, providing local shops and services as well as
containing some businesses that serve the town as a whole, benefitting from a
relatively central location without the higher rents of the town centre. Taking
into account the proposed town centre boundary, these fringe shopping areas
consist of Northgate, Parkgate and Victoria Road.
Although generally any new retail development should be situated in existing
centres, given the current diverse use of the buildings within the fringe
shopping areas, it is considered that small-scale development that does not
conflict with other policies in the plan, should be permitted, to maintain the
efficient use of these buildings, and also to allow their improvement. The
Core Strategy defines a small shop as one that is 100m2 and it is considered
that this is an acceptable threshold by which to guide the development of
small shops, or small extensions to existing shops, within these areas. Other
uses that are considered acceptable are A2, A3, A4, A5, B1, D1 and D2. Given
the current diverse set of uses within these areas, it is not considered that
there are any other options in terms of the control of uses within these
shopping areas and the opportunities that they provide to existing local
businesses. Due to the nature of the uses in the area, it is considered
important to cross reference the amenity policy (draft Policy MGP 32).
District and Local Centres
5.37
5.20
5.21
2012); Para. 70
Darlington Core Strategy;
Policy CS9, DBC May
2011.
5.38
5.39
5.40
5.22
5: Study to identify
boundaries of new and
existing district and local
centres (December 2012)
5.41
The District and Local Centres are important in serving local needs, providing
food shopping and a range of other local shops, services and leisure uses, and
having the benefit of being both accessible to local residents and reducing the
need to travel.
National planning policy5.20 indicates that policies should guard against the
unnecessary loss of valued facilities and services where this would reduce the
community’s ability to meet its day-to-day needs, and ensure that established
shops and services are able to develop and modernise in a way that is
sustainable, and retained for the benefit of the community.
District and local centres are safeguarded and enhanced in the Core
Strategy5.21 but this document needs to identify/review the boundaries of the
centres and consider if any controls over uses are needed within them.
The options considered in terms of the protection of district and local centres
are set out within a technical paper5.22which sets out the boundaries of these
centres, together with an analysis of the uses within them, and the function
that these centres serve. It also considers the boundary of a new local centre
to serve needs at the North West urban fringe (draft Policy MGP5) and a
boundary for an existing group of shops and services at Middleton St George.
The policy options considered were:
a)
a policy which sets a minimum level of A1 uses in frontages in district and
local centres to ensure that they maintain a minimum level of vitality and
viability; or
b) a policy which allows proposals for all uses within district and local
centres to be considered on their merits, taking into account vitality and
viability of the centre at the time of any planning application.
82
5.42
Option b is the preferred option. It would allow consideration to be given to
the community benefits of other uses, but would still recognise the
importance of the contribution that A1 uses make to district and local centres
in maintaining their vitality and viability. As the district and local centres each
have a different current mix of uses, a threshold for all centres, as suggested
in option a), could result in other beneficial uses being resisted in areas where
they would provide benefits, and could prejudice the efficient use of some
buildings within these centres.
Shop Fronts
5.43
In assessing development that will impact on the shop fronts in Darlington
Town Centre, district and local centres, and the fringe shopping areas, the
Council will have regard to the Council’s Design SPD as regards shop fronts,
signs and shop security, and any subsequent updated guidance on this issue.
5.44
5.45
5.46
5.47
5.48
5.49
For the town centre boundary, Sustainability Appraisal found options A and B
to have similar impacts, although indicates that option B in particular, should
be guided by the amenity policy, given the distinct character of these areas.
For thresholds for requiring impact assessments for town centre development
outside of existing centres, Sustainability Appraisal found option two to be the
most sustainable, having more positive social and economic impacts.
For the Primary Shopping Frontages, Sustainability Appraisal found option
three to have positive social and economic impacts, and no significant impact
on the environment. Given the changes in economic context in recent years,
the other two options presented were expected to have negative social and
economic impacts.
For the Secondary Shopping Frontages, Sustainability Appraisal found option a
to have positive social and economic impacts and no significant environmental
impact. Given the changes in economic context in recent years, the other
options presented were expected to have negative social and economic
impacts.
For the District and local centres, Sustainability Appraisal found option b to
have a positive social and economic impact through contributing to the vitality
and viability of the centre involved. Environmental impacts are expected
overall to be positive, in terms of promoting and enabling local access to a
wider range of local shops and services. The alternative option was found to
have negative social and economic impacts.
Taking into account the matters outlined above, the Council’s preferred option
comprises:
•
•
•
•
•
Town Centre Boundary Option b;
Impact Assessment thresholds Option 2;
Primary Shopping Frontages Option 3;
Secondary Shopping Frontages Option a;
District and Local centres Option b
83
Draft Policy MGP 12: Town Centres*
The Council will safeguard and enhance the vitality and viability of the town, district
and local centres, in accordance with Policies CS7 to CS9 of the adopted Darlington
Core Strategy. Development which, on its own or when taken with other recent and
proposed developments, would undermine that vitality and viability will not be
permitted.
Proposals must comply with draft Policies MGP2, 13, 14 and 15.
Out of centre development
Proposals that include more than 500m2 (gross) of new or additional floorspace for
main town centre uses in an out of centre location should demonstrate that:
a.
b.
c.
there are no sequentially preferable sites that are suitable, viable and available; and
there will be no significant adverse impact on the vitality and / or viability of
existing centres when considered cumulatively with other developments; and
the site is sustainably located and accessible by modes of transport other than the
private car.
Conditions restricting the range of goods sold, the sub-division of units, or internal
alterations that would increase floorspace may be applied to protect the vitality and
viability of centres.
*includes district and local centres, in accordance with the definition in National Planning Policy Framework
Draft Policy MGP 13: The Primary Shopping Area
Darlington town centre, primary shopping area
Within the Primary Shopping Area designated on the Policies Map, are the Primary and
Secondary Shopping Frontages, where the majority of retail uses are focussed.
Primary Shopping Frontages
The Council will seek to safeguard and enhance the concentration of A1 uses in
Primary Shopping Frontages as shown on the Policies Map, and proposals that would
involve the loss, by change of use or redevelopment, of ground floor class A1 shops,
will generally be resisted. Exceptionally, proposals for other uses may be permitted if it
can be demonstrated that:
a)
the proposal has an active frontage and contributes to the vitality and viability of
the frontage; and
b) the proposed use will provide a service direct to members of the public and can
demonstrate a similar footfall to an A1 use; and
c)
the proposal will have an attractive shop front which contributes positively to the
appearance of the street; and
d) the proposal would not result in non-retail uses being grouped together in such a
way that it undermines the retail role of the street; and
e)
84
the proposal does not prevent upper floors from being effectively used, including
the possibility of independent use.
Secondary Shopping Frontages
Within the secondary shopping frontages defined on the Policies Map changes to nonretail use at ground floor level will be considered on their merits and proposals will be
supported where it can be demonstrated that:
1.
2.
3.
4.
5.
6.
the proposal would not result in an over-concentration of non-retail uses where
the cumulative impact would lead to a negative impact on the shopping character
of the frontage;
the proposal would not result in an over-concentration of similar uses that would
lead to amenity problems;
to proposal will have an attractive shop front which contributes positively to the
appearance of the street; and
the proposal would not result in the creation of ‘dead’ frontage not in use during
the day; and,
the proposal is compatible with adjoining uses; and,
the proposal does not prevent upper floors from being effectively used, including
the possibility of independent use.
Elsewhere within the Town Centre, planning permission will be granted for retail, food
and drink outlets, financial and professional services and other leisure and tourist related
uses (use classes A1-A5, B1, D1 and D2) and appropriate residential development where
an acceptable level of amenity can be achieved in accordance with Policy MGP 32.
Draft Policy MGP 14: Fringe Shopping Areas
The Fringe shopping areas, as defined on the Policies Map, are the small shopping
areas that radiate out from the town centre, serving the town as a whole.
Within these areas, the Council will permit small new shops of 100m2 gross floorspace
or less, limited extensions to existing shops, and other services in Use Classes A2, A3,
A4, A5, B1, D1 and D2, together with appropriate residential development, provided
that the proposal satisfies the requirements of other policies in the Local Plan,
particularly amenity, highways and access.
Planning permission will be subject to a condition restricting the hours of operation
where residential amenity requires safeguarding in accordance with Policy MGP 32.
85
Draft Policy MGP 15 : District and Local Centres
The following District and Local Centres, as defined on the Policies Map, will provide
for the day to day needs of local residents:
District Centres
Cockerton District Centre
North Road District Centre
Local Centres
Mowden Local Centre
Neasham Road Local Centre
Whinfield Local Centre
Yarm Road Local Centre
West Park Local Centre
Middleton St George Local Centre
New shopping development (including development within use classes, A1, A2, A3, A4
and A5) and leisure and community uses will be permitted within these centres where
it does not, on its own or cumulatively with other developments, significantly harm the
vitality or viability of the centre itself or any other centre within the hierarchy set out in
Policy CS9 of the Core Strategy, particularly their role for food shopping.
Development within these locations will be expected to:
i)
ii)
be of an appropriate scale taking into account the role of the centre, in
accordance with the thresholds set out in Policy CS9 of the Core Strategy;
be physically integrated with the rest of the centre,
iii) have good pedestrian links with the rest of the centre;
iv) achieve an acceptable level of amenity in accordance with draft Policy MGP32;
v)
achieve an acceptable level of highway safety in accordance with Policy CS2 of the
Core Strategy.
West Park Local Centre
Provision is made for the extension of the West Park Local Centre, as identified on the
Policies Map, in accordance with the criteria set out above, to provide additional small
shops, community facilities, and other local services for local residents in an area of
strategic housing growth.
Making it Happen
5.51
86
Through the development management process, and by preparing a
supplementary planning document ‘Change of Use of A1 shops within Primary
and Secondary Shopping Frontages’.
6. QUALITY HOUSING FOR ALL
6
6.1
6.2
as required by para 6.2.9
of the adopted Darlington
Core Strategy, DBC 2011
DBC, 2011
This section includes policies that cover meeting general housing
requirements, providing land for top-end executive housing, supporting
housing regeneration, controlling housing intensification and accommodating
travelling groups. After consideration6, a rural exceptions site policy for
affordable housing has not been included.
6.1 NEW HOUSING SITES
Context
6.1.1
NPPF, paragraph 47
6.1.2
6.3
see Housing Topic Paper
for more detail on this.
6.1.3
6.4
6.5
Delivery rates agreed
with representatives of
housebuilders, affordable
housing providers and
other local housing
development
professionals, who form
the SHLAA (Strategic
Assessment) Steering
Group.
Housing Market
2012.
6.1.4
The Darlington Core Strategy6.1, indicates that to meet the identified housing
requirements of the Borough, about 350 new homes should be provided every
year until 2021, and about 400 per year until 2026. The National Planning
Policy Framework (2012)6.2 requires this approach to be amended slightly, so
that there is an additional buffer of 5% above the annual requirement for the
first five years, this provision being moved forward from later in the plan
period.
Whilst the Core Strategy was adopted in 2011, this document is unlikely to be
adopted until the end of 2014. By that time, almost four of the fifteen years
of the whole plan period will have elapsed. Because there has not been a
persistent underdelivery of new housing in Darlington over the longer term6.3
and because the Council is keen that deliverable housing land is available
when the market is able to make use of it, the approach taken to meeting the
housing requirement in this document is to ensure that there is a ‘five years +
5% supply’ of deliverable sites for the five years from 2015/16, the first full
year after plan adoption. The 5% uplift will be brought forward from the
period 2021-26.
Since the Core Strategy was adopted, the housing market has remained
sluggish across the Borough, reflecting wider regional and sub-regional
subdued economic conditions. Housing delivery since the credit crunch in
2007/8 has fallen from over 500 new dwellings per annum to less than 200 in
the year 2012/13. This document assumes the housing market will not recover
to the mid 2000’s level within this plan period, but expects delivery on
individual sites to increase from 2014/15, to progressively reach previous levels
by 2019/206.4. The shortfall of housing delivery against the planned
requirement in the Core Strategy that has already occurred will be made up in
the period from 2019 onwards, when the housing market is expected to have
substantially recovered.
An updated study6.5 of housing needs and demand has also informed
development of this policy. The generally self contained Darlington housing
market continues to have relatively high house prices compared to the rest of
the Tees Valley and neighbouring areas of County Durham. Market demand is
mostly for 3+ bed houses, 2 and 3 bed flats and 2 and 3 bed bungalows,
suggesting that both higher and lower density sites in a variety of locations
will be required to meet this demand. There are also fewer larger 4+ bed
properties compared with demand. Top-end executive housing is dealt with in
Section 6.2.
87
6.1.5
6.6
See draft Policies MGP3 &
4 in this document.
Throughout the plan period, strategic sites, smaller sites that already have
planning permissions and new sites identified through this document will all
need to contribute to meeting the overall housing requirement. The Core
Strategy indicates that most new homes should be provided in the main urban
area, particularly at Central Park, West Park, Lingfield Point and in the Town
Centre Fringe6.6; these larger sites are expected to account for 40% of overall
new housing provision, whilst a range of new smaller greenfield and
previously developed sites have been identified within the existing urban area,
to provide a further 12% of the overall provision. Strategic new housing
provision at the North West and Eastern Urban fringes, will provide a further
15% of the overall housing provision, and three sites in the Harrowgate
Hill/Beaumont Hill area on the urban fringe will provide 2.5% of the overall
housing provision. Taken together, these will provide a range and choice of
sites and a continuous supply of housing land throughout the plan period, so
that the identified housing needs and demand in the Borough can be met.
Issues
6.1.6
The main issues considered in identifying a preferred housing land portfolio were:
•
•
•
•
•
•
88
meeting the requirements of new national planning policy;
setting out criteria and a sequence for searching and selecting sites that
accords with the overall locational strategy of the Local Plan, concentrating
as much new development as possible within the main urban area;
confirming the realistic deliverability of potential sites, particularly those
identified to come forward in the first five years after adoption;
including a range and choice of sites, capable of delivering the mix of
housing required;
considering whether sites currently in or allocated for other uses, such as
open space and employment land, would be better used for housing
identifying what is needed to mitigate the potential impact of new
housing on local amenity and infrastructure immediately around sites, on
the wider neighbourhood and the town/Borough as a whole, taking into
account the cumulative effect of these and developments that already
have planning permission.
Options Considered
6.1.7
The options considered were:
6.1.8
The first option considered was to meet the requirements of the Core Strategy
in full, taking into account the 5% buffer required by national policy (see
paragraph 6.1.1 above). This would require a sustained proactive approach to
ensuring the delivery of all the sites identified, and for site viability and
deliverability to improve in line with the market recovery expectations outlined
earlier (see 6.1.3 above). This approach most closely reflects the conclusions of
the latest Strategic Housing Land Availability Assessment Update 4 (Dec 2012).
6.1.9
6.7
6.8
6.9
e.g. Firth Moor
Regeneration, West Park,
and currently Central Park.
see draft Policies MGP3, 5,
6 and 18 in this
document.
see Housing Topic Paper.
(a) Number of New Homes Planned
The alternative option was as above, but with an additional 5% throughout
the plan period to provide more flexibility to deliver enough new housing if
some sites do not come forward as anticipated. This option would be based
on a more pessimistic scenario of development viability and deliverability, and
would assume that identifying more housing land would result in more homes
being delivered.
6.1.10 The first option is the Council’s preferred option, as it is considered most likely
to achieve other Core Strategy objectives and help deliver the locational
strategy as well. The Council has a good track record of being pro-active in
bringing forward new housing delivery, as part of wider regeneration
schemes6.7 and intends to continue to do so6.8, so this approach is considered
deliverable. In addition, the second option was rejected because local evidence
indicates that there is no clear link between the amount of suitable, available
and deliverable land in the Borough and new homes actually being built in the
Borough; the Council has been able to demonstrate a five year supply of
housing land every year since March 2009, but housebuilding has languished
at less than two thirds of the required level through that period6.9.
6.1.11 The effect on the timing of housing delivery throughout the plan period,
compared to that set out in the Core Strategy, is indicated in Table 6.1.1.
Table 6.1.1: Housing Requirement 2011-2026: Net additional dwellings
Year
Core Strategy requirement (about)
requirement (about)
Change
6.10
Assessment, March 2009.
2011-16
1750
2016-21
1750
2021-26
2000
2011-26
5500
1400
2200
2250
5850
-350
+450
+250
+350
Note: an estimate of 5 demolitions per year was included in calculating the Core Strategy requirement, so is not
counted again here.
(b) Estimating density: the Core Strategy plans for 30-50 dwellings per
hectare across the Borough overall. To estimate each site’s capacity, a design
based assessment has been undertaken, alongside consideration of the type of
housing that is likely to sell in the area and the viability of delivering the site
for the type of housing assumed. The alternative would have been to rely on
the standard formulae applied to sites in the Strategic Housing Land
Availability Assessment6.10.
(c) Speed of delivery: no options were considered. The approach taken was to
rely on information about site build out rates provided by developers/ landowners
where it was provided and to make assumptions for other sites based on build
out rates for future years agreed with the SHLAA Steering Group6.10.
89
6.11
Windfalls are new housing
from unanticipated sites
or small sites of 5
dwellings or less.
6.12
See Housing Topic Paper
for more information.
6.13
More detail will be given
in a Town Centre Fringe
Development Procurement
Strategy.
d) Windfall allowance6.11: windfalls are taken into account in calculating how
much new land is needed for housing development, because there is several
years of evidence indicating that this is a consistent source of new housing
supply. From 2017-18, an allowance of 50 dwellings per year is made, for the
remainder of the plan period. This is about the average contribution that small
(less than 6 dwelling) windfalls have made to overall new housing provision
over the last 10 years or so, excluding development in residential gardens6.12.
Small windfalls add to the range and choice of housing sites and locations in
the Borough and can meet a variety of needs. As well as these small windfalls,
larger windfalls could also come forward, e.g. about 40 dwellings at the
former Arts Centre, Vane Terrace if a future arts/tourism use cannot be secured
for the site.
e) Approach to the Town Centre Fringe: The first option considered was to
identify specific sites where housing or a mix of development including
housing was proposed. The second was to identify the whole of the Town
Centre Fringe as a single mixed use allocation, giving little detail about where
within the area new housing was likely to go. The third, and the preferred
option selected, was to identify six sub-areas within the Town Centre Fringe
and to indicate the approximate number of new homes expected in each five
year segment of the plan period (see Table 3.2.1). The preferred option
provides more certainty as to what will happen and when, but without being
overly prescriptive about bringing forward specific sites where the challenges
of multiple ownerships, site remediation, flood mitigation and a range of
other constraints prevail; the delivery programme will be sufficiently fluid to
respond to rapid changes in the availability of public sector funding streams to
support infrastructure delivery and site preparation, and to embrace willing
landowners as they seek to become involved6.13.
6.1.12 The starting point for options development was to take account of about 600
or dwellings still to come forward on schemes that already have planning
permission and that are underway, or that have already been completed since
April 2011. This leaves about 5250 to be identified from sites with planning
permission that have not yet started, or on proposed new allocations. The
contributions of commitments and completions are indicated in Figures 6.1.1
and 6.1.2.
Figure 6.1.1 - Sources of expected new
housing supply: five year periods
Figure 6.1.2 - Sources of expected new
housing supply: whole plan period
2500
7%
2000
1500
40%
1000
37%
500
0
7%
2011-16
Allocations
2016-21
2021-26
Allocations
Windfalls
Windfalls
Commitments (started)
Commitments (started)
Commitments (not started)
Completions
90
9%
Commitments (not started)
Completions
6.14
6.15
6.16
Available at
www.darlington.gov.uk/
planningpolicy
Housing Sites Assessment
Draft Criteria Consultation
June 2011: summary of
responses received,
August 2011
and Premises Review, NLP
for DBC, 2013.
6.1.13 Then consideration was given to the initial portfolio of sites and the options
for mixed use and strategic sites set out in the Accommodating Growth Issues
and Options Report, (Nov 2010), and the consultation responses received on
it6.14. More potential sites have been identified and assessed since then,
according to methodology and criteria for site assessment which were
finalised in August 2011, after a consultation with key stakeholders6.15.
Consideration of further potential sites was necessary because housing is
being built at a slower rate than anticipated, and many sites with planning
permission for housing have not even been started, which will result in a
shortfall against requirements unless new sites are identified.
6.1.14 Additional potential housing sites assessed came from several sources:
(a) former and existing playing fields, where these are no longer needed, or
where alternative equivalent provision is being provided or is proposed
elsewhere in this document.
(b) employment land which is no longer suitable for employment use, or is
not needed for employment use within the plan period6.16;
(c) within the Town Centre Fringe, in accordance with the draft masterplan;
(d) underused land within existing Council housing estates;
(e) other Council owned land and buildings which are already unused or
underused or are likely to become so in the future;
(f) sites within or adjacent to the main urban area where the owner has
indicated a willingness to sell for housing development.
6.1.15 Supply may also be boosted by the Government’s plans to allow from Spring
2013, a change of use of B1 Office uses to residential dwellings without the
need to apply for planning permission. It is too soon to estimate how many
new dwellings could come forward in this way.
6.17
of Making and Growing
Places, Preferred Options,
DBC 2013
6.1.16 The preferred portfolio of sites proposed in draft Policy MGP16, together with
new housing to be achieved as part of the regeneration of Red Hall (see draft
Policy MGP 18), represents the most sustainable option6.17 for meeting the
housing needs of the Borough, provided that other planning requirements for
each site (to comply with policies elsewhere in the plan), are achieved. Urban
previously developed sites generally scored well against environmental and
most social objectives, and the larger sites scored well against economic
objectives. Sites currently occupied by businesses or allocated for business use
performed less well, as it could result in employers choosing to locate
elsewhere. The sustainability of urban greenfield sites varied according to their
existing value and function as open space, e.g. in terms of public access,
landscape and biodiversity, but larger sites have greater potential to include
features to mitigate against any potential harm. Sites at the urban fringe
generally rated lower than sites with the urban area, being greenfield and
relatively remote from local centres and services. The most sustainable urban
fringe site assessed was land north of the White Horse (Ha2), it being close to
sustainable transport routes, with some local services nearby, and being of
sufficient size to provide opportunities for any environmental impacts to be
mitigated through careful design of new development there.
6.1.17 In addition, whilst planning permission has been granted (subject to Section
106 agreement) for 160 dwellings on land at Neasham Road, this is not being
reaffirmed in this plan, because its development is linked to proposals to
relocate the Cattle Mart, and would not normally be considered a suitable site
for new housing development.
91
6.1.18 The housing trajectory shown in Figure 6.1.3 illustrates the expected rate of
housing delivery for the plan period.
6.1.19 This preferred portfolio also takes account of the viability of delivering sites at
different times within the plan period, and excludes potential sites that are
better retained for other uses. The portfolio could deliver an estimated 3063
new homes on previously developed land, and 2968 on greenfield sites. Only
about 20% of new housing is proposed on land that extends the existing main
urban area, and no new sites for general housing are proposed as allocations
within or on the edge of the Borough’s rural settlements, though some
existing commitments are reaffirmed.
Figure 6.1.3: Housing Delivery Trajectory 2011-2026
Adoption
500
400
300
200
2025/26
2024/25
2023/24
2022/23
2021/22
2020/21
2019/20
2018/19
Completions
Strategic sites (inc. commitments and allocations
Other allocations
Planned requirement for Making & Growing Places
Other commitments
Core Strategy requirement
92
2017/18
2016/17
2015/16
2014/15
2013/14
0
2012/13
100
2011/12
Number of housing completions
600
Adoption + 5 years
Small windfall allowance
Draft Policy MGP16: New Housing Sites
The following existing commitments and proposed allocations will provide significant
new housing, critical to the delivery of the plan’s housing strategy:
Site Name
Status
Area (ha)
Hs1: Lingfield Point*
Commitment
32.13
Hs2: Central Park*
Commitment
31.62
Hs4: Town Centre Fringe
Allocation
58.43
Hs3: West Park
Hs5: North West Urban Fringe*
Hs6: Eastern Urban Fringe*
STRATEGIC SITES TOTAL
Commitment
Allocation
Allocation
Approx. no.
new homes
Delivery
timescale
500
2011-21
770
2011-26
46.23
410
2011-26
85.53
650
2016-26
88.39
650
250
3230
2016-26
2021-26
*not exclusively housing – part of a mix of uses
In addition, the following sites are reaffirmed and new general housing allocations
proposed. A small windfalls allowance of 50 dwellings per year is made from 2017/18.
93
Site Name
Existing General Commitments Not Started
Hc1: Former Corus Site, Whessoe Road
Hc2: Former DFC Ground, Feethams*
Hc3: Yiewsley Drive*
Hc4 Hopetown Park
Hc5: Rear of Heron Drive
Hc6: Ruck/rear Cockerton Club
Hc7: Croft House, Hurworth Place
Hc8: Fmr Harrowgate Hill Infants School
Hc9: North Farm, Summerhouse
Hc10 1 Blackwell Lane
Hc11: West Newbiggin Farm*
Hc12: Forge Tavern, Albert Hill
Hc13: Minors Crescent
Hc14: 136 Lowson Street
Hc15: Rise Carr Club
Hc16: 36-40 Clifton Road
Commitments on sites of less than 6 dwellings
TOTAL GENERAL COMMITMENTS
Allocations
Ha1: Former Eastbourne School combined
Ha2: North of White Horse Pub/Hotel
Ha3: Memorial Hospital (south)
Ha4: Former Springfield School and area
Ha5: South of 22-24 Burtree Lane
Ha6: South of Bowes Court/Haughton Rd
Ha7: Former Alderman Leach School Field
Ha8: Woodburn Nursery
Ha9: Mowden Hall
Ha10: Hartington Way/Bellburn Lane
Ha11: Darlington Timber Supplies
Ha12: Glebe Road South
Ha13: Land at Carmel School
Ha14: Glebe Road North
Ha15: Hammond Drive
Ha16: East of A167, opposite White Horse
Ha17: Emley Moor/Buxton Moor
Ha18: Former Eastbourne Nursery
Ha19: Alverton Drive
Ha20: Rear of Scargill Shops
Ha21: Eggleston View
Ha22: Edgemoor Road
TOTAL GENERAL ALLOCATIONS
*technical starts only
6.18
94
Darlington Housing
Strategy 2012-17, DBC,
2012
Making it Happen
6.20
Greenfield or
previously
developed
Site
area
(ha)
Approx Delivery
no. new timescale
homes
PDL
PDL
PDL
PDL
PDL
PDL
PDL
PDL
PDL
PDL
PDL
PDL
PDL/GF
PDL
PDL
PDL
PDL/GF
7.69
2.18
4.01
1.41
1.34
0.39
0.85
0.32
0.69
0.12
0.50
0.03
0.56
0.05
0.06
0.04
250
94
67
61
48
20
19
16
14
9
9
8
8
7
6
6
174
816
2016-26
2011-21
2011-21
2011-21
2021-26
2016-21
2011-16
2011-16
2011-16
2016-21
2011-16
2011-16
2011-16
2016-21
2016-21
2011-16
2011-21
PDL/GF
GF
PDL
PDL/GF
GF
PDL
GF
PDL
PDL
GF
PDL
GF
GF
GF
GF
GF
GF
PDL
GF
PDL
GF
GF
4.17
5.20
1.05
2.93
2.34
2.02
0.94
1.83
3.42
1.42
0.63
0.71
1.21
0.75
1.17
0.50
0.85
0.27
0.37
0.19
0.45
0.26
112
80
60
58
50
40
38
36
35
32
30
28
24
23
22
20
20
14
12
12
8
6
760
2011-21
2016-21
2011-21
2011-21
2016-26
2021-26
2016-21
2011-16
2011-21
2016-21
2021-26
2016-21
2016-21
2016-21
2011-16
2016-21
2011-16
2011-16
2016-21
2016-21
2021-26
2011-16
The Council’s Housing Strategy 2012-17 and associated action plan6.18, sets out
how the Council and its partners will be supporting the delivery of new
housing on these sites, and the Town Centre Fringe Masterplan and
Procurement Strategy provide more information on new housing delivery in
that area. Core Strategy Policy CS10 provides the mechanism for identifying
additional land should a continuous five year supply of housing land not be
available from the commitments and allocations identified above.
6.2 TOP END EXECUTIVE HOUSING
Context
6.2.1
6.19
6.20
6.21
May 2011, page 49
Tees Valley Economic
Regeneration Statement
of Ambition, 2010; Tees
Valley Sub-Regional
Housing Strategy, 2006,
and Darlington Strategic
Housing Market
Assessment, 2012
Tees Valley Strategic
Housing Market
Assessment and Local
Housing Assessment
Update, 2009
6.2.2
6.2.3
The Darlington Core Strategy recognises that the Borough will continue to
help meet a sub-regional need for small numbers of top-end executive
housing. It defines such housing as being ‘set in its own grounds at a density
of no more than 6 dwellings per hectare. It has 4 or more bedrooms, above
average levels of garaging, security and privacy and individual, high quality
designs and finishings. It comprises both new and older period homes’ 6.19.
The importance of having local aspirational housing that is attractive to the
creative, skilled, entrepreneurial and managerial people who drive the local
economy is widely acknowledged in work done for the Tees Valley and
Darlington6.20. A connection has been made between purchasers of executive
homes and the creation of jobs6.21 and it its role in helping to achieve
regeneration targets6.20.
The Wynyard development is the largest and most well known expression of
the demand for this type of housing, but there is also scope for
complementary provision across the Tees Valley, for those who want to live in
a mature residential environment and as part of an established community.
Issues and Options Considered
6.2.4
6.2.5
The issues are determining how much top end executive housing to plan for
and whether to allocate land for it, or not.
Three options were considered to determine an appropriate figure for the
likely demand for top-end executive houses over the plan period. These were:
a)
applying a percentage of the total housing requirement. However, it is
difficult to come up with a justified percentage;
b) using past annual completions of top-end executive houses and projecting
numbers forward. However, monitoring suggests that no houses meeting
the top-end executive housing definition have been developed in
Darlington in the last five years, and past demand may not reflect future
demand because the mortgage products available now are much more
restrictive than in the past and are unlikely to return to those generous
offers; and
c)
6.22
see Executive Housing
Topic Paper
6.2.6
letting the market decide on the appropriate number, by considering all
proposals against Local Plan policies and not allocating any sites
specifically for top-end executive housing. There may be latent demand in
Darlington, because no sites have ever been allocated solely for top-end
executive housing. Also, the Council’s call for sites in Spring 20126.22
resulted in 20 sites being proposed, suggesting that landowners, at least,
are willing to sell land for top-end executive housing.
Options a) and b) would require some allocations, and some 20 potential sites
were assessed for this purpose6.22.
95
Preparing a Draft Policy: The Preferred Option
6.2.7
None of the options was totally satisfactory, and a further option, testing the
demand for this type of development by allocating several small sites from
those which performed best in the assessment, was selected. Three sites at
Blackwell Grange Golf Course, land south of Staindrop Road and Harewood
House performed best, but Harewood House is more likely to be converted to
apartments, and the land south of Staindrop Road can be isolated by flooding
and may be suitable for general housing beyond the plan period.
Draft Policy MGP 17: Top-End Executive Housing
About 9 hectares of land is allocated in four sites at Blackwell Grange Golf Course to
accommodate a maximum of 52 dwellings for top-end executive housing, to meet
demand for the whole plan period. The sites and their capacities are:
He1: rear of Upsall Drive, Blackwell Lane
He2: rear of Blackwell Grange Hotel, Blackwell Lane
He3: east of Grangeside/The Spinney
He4: east of Carmel Road South
(6 dwellings)
(4 dwellings)
(12 dwellings)
(30 dwellings)
New housing must contribute to conserving and enhancing the key features of the
parkland and the heritage assets.
If completions on the above sites exceed three per annum in three consecutive years,
the Council will consider introducing new sites to meet demand.
6.2.8
The preferred option, therefore, is to identify land at Blackwell Grange Golf
Course and test the market for top-end executive houses in Darlington. A
demand for about three houses per year is anticipated but if plots are
developed more quickly, the policy can be reviewed and further land allocated
for top-end executive housing later in the Plan period. Given the important
landscape and the setting for the listed building (Blackwell Grange Hall), a
Design and Planning Brief will be prepared by the Council to ensure the
proposed development and the future management of the parkland conserves
and enhances the key features and the heritage assets. The undeveloped
parkland to the west of Carmel Road South will become public accessible open
space, and the undeveloped parkland surrounding Blackwell Grange Hotel will
be managed to retain its parkland character (see draft Policy MGP 24).
Making it Happen
6.2.9
96
The Council will prepare a Design and Planning Brief before the Local Plan is
submitted to the Secretary of State. The Council will pass a resolution to sell
sites He1, He3 and He4 following the commercial deal with Blackwell Grange
Golf Club to relocate to Stressholme Golf Course.
6.3 HOUSING REGENERATION – RED HALL
6.23
Darlington LDF Core
Strategy, DBC, May 2011
6.24
Darlington Housing
Strategy 2012-17, DBC
2012
Context
6.3.1
6.3.2
The Darlington Core Strategy6.23 indicates the Council’s commitment to
supporting the regeneration and improvement of existing housing areas,
including within the Haughton East ward, to ensure that the housing stock
can meet modern day expectations and changing needs. The Council has
identified Red Hall as a focus for housing regeneration activity to follow the
current programme underway at Cockerton6.24.
Within the main urban area, Red Hall is a relatively isolated predominantly Council
–owned housing estate, mostly built in the 1960s with part at the eastern end,
known as the Courts, built in the 1970s. The neighbourhood also accommodates a
primary school, a convenience store, a community centre, a multi use games area,
areas of open space and other childrens’ play facilities. There is open land
alongside a watercourse to the north, including the hardstandings of a former
cluster of vacant farm buildings. There are main transport routes to the west
and south, and a proposed new nature reserve immediately to the south-east.
Future development of significant new housing is planned at Lingfield Point to
the south and at the Eastern Urban Fringe (draft Policy MGP6) to the east.
Issues and Opportunities
6.3.3
The main issues and opportunities identified are:
•
•
•
•
•
•
•
•
•
6.3.4
a lack of tenure choice, most housing being social rented with limited
uptake of right to buy
increasing difficulties and costs associated with upkeep of standards of repair
and maintenance, particularly of poorly designed housing at the Courts;
low demand for housing in The Courts area;
relative isolation and poor links with rest of the main urban area – there is
only one road in/out, and greater connectivity access is needed to
employment opportunities at nearby Lingfield Point;
poor local service provision;
poor quality environment across the estate;
fuel poverty, high levels of deprivation and pockets of anti-social
behaviour contribute to a poor image of the estate amongst townspeople;
underused previously developed and greenfield land in part of the green
wedge to the north – how much of this is integral to the functioning of
the green wedge to achieving any other environmental, open space, green
infrastructure, flood mitigation objectives?;
land at the south-eastern extremity of the site is of sufficient quality, both
in terms of biodiversity interest and public access, to be designated a
Local Nature Reserve in the short term. The wetland is part of the flood
mitigation required when the eastern Transport Corridor was built.
Options Considered
Options will be developed through the work indicated in paragraph 6.3.8 below.
For housing, these will include repair, adaptation and remodelling, and could also
include selective demolition, redevelopment and newbuild. Options will also need
to be considered regarding making linkages to planned developments nearby, and
into and between open spaces and community facilities. All options will also
consider how much housing could be accommodated on the land of the
former Red hall Riding Stables and its environs.
97
6.3.5
6.3.6
6.3.7
This draft policy is to enable and provide the land use context for the delivery
of a specific action set out in the Housing Strategy6.24.
By utilising existing housing and identifying appropriate opportunities for new
housing development within and adjacent to existing housing, the regeneration at
Red Hall will contribute to meeting Borough-wide general and affordable housing
needs and increase tenure choice, and improve the condition of the housing stock
overall. It is estimated that up to about 120 new dwellings could be provided on
land in the area, although this will need to respond to any new information that
comes forward through the masterplanning process and public consultations.
Masterplanning regeneration activity is also an opportunity to help improve
the liveability of the area, by addressing social, economic and environmental
issues in an integrated way. The scope of regeneration works within the area
could also therefore include measures to:
(a) improve access to and within estate for public transport, walking and cycling;
(b) improve environmental quality;
(c) create links to the new neighbourhoods planned nearby at Lingfield Point
(draft Policy MGP3) and the Eastern Fringe (from 2021, draft Policy MGP6);
(d) enhance open space/playing facilities;
(e) enhance existing community facilities;
6.3.8
(f) provide high speed broad band across the area.
Options for regenerating the Red Hall area have not yet been identified (these will
be developed through the masterplanning process), so sustainability appraisal
cannot be undertaken at this stage. Key environmental and social sustainability
considerations for the land to the north of the estate are likely to be retaining
access to good quality open space and impact on Haughton Conservation Area.
Draft Policy MGP 18: Red Hall Housing
Regeneration Area
A Red Hall Housing Regeneration Area is identified as a focus for housing regeneration
activity from 2014/15. Proposals for the area, which will be agreed through the
preparation of a masterplan for the area, will be to improve and increase the housing
stock, diversify tenure, improve access to and integration with surrounding areas and
the rest of the town, and create a more liveable residential environment.
Making it Happen
6.3.9
The policy will be implemented through the following actions, alongside other
initiatives to address problems in the area, e.g. using Green Deal Programme
and Warm Up North to address fuel poverty:
•
•
•
•
98
Prepare and appraise options for remodelling the existing housing estate.
In conjunction with local residents:
Establish the local needs for different types, sizes, and tenures of housing;
Prepare a master plan for consultation during 2013/14, to include
development proposals, reconfiguration of the estate, possibly selective
demolition and replacement and,
Identify suitable development partners.
6.4 HOUSING INTENSIFICATION
6.25
As defined by Section 254
of the Housing Act 2004
6.26
Housing Market Assessment
(SHMA) 2012
Context
6.4.1
6.4.2
6.4.3
6.4.4
6.4.5
High concentrations of sub-divided housing stock or other forms of Homes in
Multiple Occupation (HMO’s)6.25 can cause problems within a local community if
not properly managed. Changes to permitted development regulations have
made it easier for such properties to be created, and they can form a vital part
of the overall housing mix, However when concentrations get too high,
problems can arise, to the detriment of the amenity of existing residents.
The creation of HMO’s and self-contained flats has increased in recent years, in
response to the increasing number of smaller households6.26 and the need for
more affordable, low cost housing. Needs are expected to increase further in
response to recent changes to housing benefit payments. HMO’s of 3 to 6
unrelated individuals who share basic amenities in a single property (Use Class
C4) do not require consent under changes made in October 2010 to the
General Permitted Development Order so local authorities have less control the
previously over the establishment of such properties.
New HMO’s and self contained flats have generally been achieved by building
new properties and converting large houses or commercial properties. In some
instances, their provision can be detrimental to the amenity of existing
residential areas. A concentration of these properties can lead to problems
such as a shortage of on street parking, increased noise and disturbance and
inadequate bin storage areas, whilst short term lets and low levels of owner
occupation can be associated with lower standards of maintenance and
environmental decline. The conversion of existing larger homes can also
reduce the proportion of family homes in an area, and result in an unbalanced
community. As such, this could prejudice the plan’s environmental
improvement and regeneration objectives.
Paragraph 53 of the NPPF states that local authorities should consider the case
for setting out policies to resist inappropriate development of residential
gardens, for example where development would cause harm to the local area.
The recent changes to national policy exclude private residential gardens from
the definition of previously developed land emphasise that there is no
presumption that garden land is suitable for housing. In general the Council
will not accept proposals for developments on back garden land but proposals
for development of backland sites in other uses will be considered subject to
the criteria below and other relevant policies. As stated in Policies CS10 and
CS11, the use of previously developed land and vacant or underused buildings
is the council’s first preference for residential development.
Issues
6.4.6
The main issues considered in developing a policy for housing intensification
were:
•
6.27
Garden Development’ :
the construction of a
dwelling(s) within the
domestic curtilage of an
existing residential property.
•
controlling future development where high concentrations of HMO’s and
self contained flats created from existing housing stock are already in
existence; and
setting out an approach to dealing with applications for additional
dwellings within gardens of existing properties (‘garden development’)6.27.
99
6.28
Framework, paragraphs
47,& 53
Options Considered
6.4.7
6.4.8
6.4.9
National planning policy6.28 allows Councils to set out policies to resist
inappropriate development, to set out their own approach to housing density
to reflect local circumstances, and requires consideration to be given to a
policy controlling inappropriate development of residential gardens. Because
these issues are often locally contentious, a policy is considered appropriate,
to provide more clarity for applicants and decision makers alike.
Garden development is a Borough wide issue, so a policy approach is proposed
that would be applied to all such developments. As national policy allows
Councils to consider the need for a policy rather than offering specific guidance
on how new development on garden land should be viewed, the only viable
option was to provide a policy clarifying a local approach to such applications.
In relation to the creation of HMO’s and self contained flats within existing
dwellings, the following three options were considered:
Option a) Borough wide policy approach that would be applied to all
proposals requiring planning permission.
Option b) a policy approach limited to existing areas where saturation of
HMOs and self contained flats is being reached, to deter further development
from being permitted in unsuitable areas.
Option c) a policy approach limited to existing areas of ‘saturation’ and also
for areas approaching saturation.
6.29
Special Place Scrutiny
Committee Background
Paper 12th November
2012
6.4.10 Taking into account the feedback of Northgate Residents Group and the Place
Scrutiny Committee1, the preferred option is Option b). Options a) was
regarded as unnecessarily restrictive, and Option c) also too restrictive, since
recent work6.29 indicates that the problem is concentrated in parts of the
Northgate Ward, around the Northgate Conservation Area and central parts of
the ward (around Corporation Road and Greenbank Road).
6.4.11 Some guidance on acceptable densities for new build housing development is
provided in the Council’s adopted Design of New Development SPD, but is too
general to address the issues identified above.
Sub-division of existing housing stock including HMO’s and self-contained flats
6.4.12 Whether a residential property is considered acceptable for conversion will
depend on size, unsuitability for continued family occupation or long
established use. Acceptable areas for conversion are likely to be close to town
centres or services and facilities, or within mixed use areas providing there is
no risk of flooding (see Core Strategy Policy CS16).
6.30
100
A direction which
withdraws automatic
planning permission
granted by the General
Permitted Development
Order
6.4.13 However, in some localized areas which would otherwise be suitable, a
significant level of complaints have been recorded associated with an existing
concentration of HMOs and self contained flats; the most affected area is
around Corporation Road in the Northgate Ward. The creation of self
contained flats within existing dwellings currently requires planning permission
in all circumstances, but HMO’s of three to six unrelated individuals who share
basic amenities in a single property (Use Class C4) do not. Therefore, it is
proposed to identify an area of saturation on the Policies Map and restrict the
further development of this kind of housing, by means of an Article 4
direction6.30; which removes permitted development rights.
1. Special Place Scrutiny Committee 12th November 2012
Conversion of business premises to housing
6.4.14 Conversion of business premises to housing in multiple occupation and self
contained flats will also be resisted within the area of saturation identified on
the Policies Map. Outside of this area, proposals will be subject to the same
considerations as other new development, and will need to comply with all
other relevant national and local policies. Depending on the detail of the
forthcoming changes to Permitted Development Rights (expected Spring
2013), it may be necessary to include within the Article 4 direction the change
of use of commercial premises to multiple residential uses within the ‘area of
saturation’.
Backland or garden development
6.4.15 In order to safeguard a range and choice of housing, including properties with
larger than average gardens at the upper end of the property market, and to
maintain local character, biodiversity and amenity space, the Council will resist
proposals for developments on garden land. However, to help support the use
of previously developed land and buildings, the Council may permit proposals
for development of backland sites in other uses, subject to the criteria below
and other relevant policies.
6.4.16 In relation to HMO’s and Self Contained flats the Sustainability Appraisal
found the preferred option to score well against social objectives. The option
to restrict development in other areas approaching saturation also scored well
against social objectives. A borough wide restriction would have some
negative social impacts. The environmental and economic impacts of all the
options are expected to be limited. Options b and c, unless mitigated, may
have a negative impact on sustainable transport by diverting new housing
development away from areas close to the town centre. It is therefore
important that the plan encourages and provides for a significant proportion
of housing development to be in areas close to the town centre, for example
through new build or through residential conversions in areas where they are
not currently a problem. The plan should also ensure that proposals for the
sympathetic conversion of historic buildings to smaller residential units are
permitted, where it is necessary for their conservation.
6.4.17 In relation to Garden Development the Sustainability Appraisal found the
preferred option to restrict such development scored significantly better against
social and environmental objectives, and better against economic objectives
than the option to have no policy on such developments. The preferred option
restricts one potential source of housing supply. However, for various reasons
identified above, that would not be a sustainable source of housing supply
there are no trends on which we could base any sound projection of how much
that source would contribute to meeting the borough’s housing need. A mixed
effect is recorded against the objective on economic growth since, depending
on drafting, the policy may result in restrictions being placed on start up
businesses in residential areas, although whether or not this is a significant
impact depends on how much such development contributes to the supply of
business sites at present. Further investigation is required on current trends for
business development on garden land. If this is recognised as a significant
source of business sites then consider focussing the policy on restricting
residential development on garden land, and leaving business developments
on garden land to be dealt with by other policies.
101
Draft Policy MGP 19: Housing Intensification
Within the area of high concentrations of self contained flats and Houses in Multiple
Occupation (HMO’s), identified as an ‘area of saturation’ on the Policies Map, the subdivision of existing dwellings into smaller units of accommodation will be resisted,
along with proposals for new flats and dwellings in multiple occupation, either in the
form of new buildings or change of use of buildings.
Permission will only be granted for proposals in these areas where it can be clearly
demonstrated there will be no significant adverse impact upon the following:
a)
privacy of existing homes and gardens of neighbours must be maintained;
c)
service provision – there should be sufficient space to accommodate adequate bin
storage and accommodate other ancillary functions for the increased number of
residents.
b) vehicular access or car parking – both in terms of highway safety or visual, noise or
light impact on neighbours;
d) housing stock – to protect the existing small family housing stock, and to allow for
adequate residential space standards in the proposed subdivided dwelling, the
subdivision of existing properties of less than 4 bedrooms will not be permitted.
An Article 4 direction for the ‘area of saturation’ will be prepared, to retain control
over the creation of smaller HMO’s which currently benefit from permitted
development rights.
The loss of residential gardens will not normally be permitted. Exceptionally, a limited
scale of garden development may be acceptable, if it does not have a significantly
adverse impact upon the following:
i)
ii)
rear garden land which contributes either individually or as part of a larger swathe
of green space to amenity of residents or provides wildlife habitats;
the privacy of existing homes and gardens of neighbours, in accordance with the
SPD, and to support draft Policy MGP 32;
iii) vehicular access or car parking – these must not have an adverse impact on
neighbours in terms of visual impact, noise or light. Access roads between
dwellings and unnecessarily long access roads will not normally be acceptable;
iv) any other material consideration raised in the Revised Design of New Development
SPD, including mass and scale of development, protection of existing trees, shrubs
and other wildlife habitats.
v)
a conservation area, a listed building or its setting - proposals will need to comply
with draft Policy MGP21.
Making it Happen
6.4.18 Through the development management process, and by preparing and
adopting an Article 4 Direction for the ‘saturation area’ identified in Policy
MGP 17 above.
102
6.31
6.32
(May 2011), Policy CS13
(Accommodating
Travelling Groups)
Planning Policy for
Traveller Sites (CLG, March
2012)
6.5 ACCOMMODATING TRAVELLING GROUPS
Context
6.5.1
6.5.2
The Darlington Core Strategy makes provision for travelling groups at the
existing sites of Honeypot Lane and Neasham Road, together with other small
sites within the Borough. It also indicates that additional accommodation to
meet needs over the plan period should be allocated in accordance with a set
of criteria, such criteria also be the basis for making decisions on windfall sites.
Since the Core Strategy was adopted, the Government has updated national
policy6.32. In addition to the criteria set out in Core Strategy Policy CS13 ,
national policy now indicates that the Council should set pitch targets for
Gypsies and travellers, and plot targets for travelling showpeople, to address
the likely permanent and transit site accommodation needs of travellers in
their area, and should update annually a supply of specific, deliverable sites,
sufficient to provide five years worth of sites against those targets, and a
supply of specific developable sites or broad locations for growth for years six
to ten, and, where possible, years 11-15.
Issues
6.5.3
The main issues considered in developing policies for Gypsies and Travellers,
and Travelling Showpeople are:
•
•
•
•
the likely permanent and transit accommodation needs of gypsies and
travellers over the plan period, and travelling showpeople in the local area;
identifying suitable sites to meet the needs identified above;
guidance for developing sites;
whether or not to identify a site for Travelling showpeople
Options Considered
6.33
6.34
6.35
6.36
Tees Valley Gypsy and
Traveller Accommodation
Needs Assessment
(University of Salford,
2009)
Stockton on Tees,
Hartlepool,
Middlesbrough and
Redcar and Cleveland
Councils
Potential Sites for Gypsies,
Travellers and Travelling
Showpeople Consultation,
Background Paper, March
2012
Consultation on potential
sites for Gypsies, Travellers
and Travelling
Showpeople Consultation,
Spring 2012
6.5.4
6.5.5
6.5.6
6.5.7
A need for 142 pitches across the Tees Valley was identified in 20096.33. The
‘needs where it is seen to arise’ approach’ indicated that of these, 97 pitches
would be required in Darlington, but the study recognised that this would
result in a uneven distribution of pitches across the sub-region and that
authorities would need to collaborate to agree how needs should be
apportioned across the Tees Valley.
The Council has been unable to reach an agreement with the other Tees Valley
local authorities6.34, and has undertaken further work since 2009 to gain more
insight into local needs, taking account of trend data, more recent planning
application data and other local evidence6.35.
This work suggested that there is a need for some 35 additional permanent
residential pitches for Gypsies and Travellers needed over the plan period, and
this figure was consulted on during spring 20126.36.
The potential locations where need could be accommodated were also
consulted on. The potential sites included in the consultation were:
a)
Honeypot Lane;
c)
North West Urban Fringe (part);
e)
Blackett Road Open Space; and
b) Neasham Road;
d) Salters Lane West (part);
f)
Oakwood Farm, Roundhill Road.
103
6.5.8
The consultation also formed a ‘call for sites’, and through this, six other
privately owned sites were also put forward for consideration:
g) Land south east of Swan House Roundabout, Heighington;
h) Skipbridge Brickworks
i)
j)
k)
6.5.9
6.37
6.38
Cabinet Report, 10th July
2012; Potential Sites for
Gypsies, Travellers and
Travelling Showpeople
consultation; Appendix 1:
Schedule of responses
Cabinet Report, 10th July
2012; Potential Sites for
Gypsies, Travellers and
Travelling Showpeople;
para. 39
l)
South side of Dene Beck, Walworth Road;
Black Banks, Snipe Lane;
Little Beck, Burma Road;
Oak Meadows, Middleton St George;
No needs for a site for Travelling Showpeople have been identified in
Darlington6.33. However, unmet needs elsewhere in the Tees Valley have
resulted in approaches to this Council for suitable land.
6.5.10 The consultation on potential sites generated a large amount of responses6.37.
The vast majority of respondents were in favour of accommodating most of
the need through extending existing sites.
6.5.11 Following consideration of the sites listed in paragraphs. 6.4.8 above against
Core Strategy Policy CS13, and taking account of the consultation responses,
the need to bring some sites forward quickly and the need for a range and
choice of sites, the Council agreed6.38 the portfolio of sites set out in Table
6.4.1. The number of pitches that could be delivered is indicated as a range
rather than a specific figure as this could depend on how each potential
allocation is delivered.
Table 6.5.1: Preferred Option: Planned provision for Gypsy and Traveller sites
Preferred Option
Neasham Road
Honeypot Lane
Oakwood Farm
Wardens accommodation at Honeypot Lane
Windfalls – planning permission granted
No. of new
pitches
20
Years 1-5
8-12
Years 11-15
1
Years 1-5
3-5
Years 1-5
16
Years 1-5
8-24
Years 1-15
Total planned provision
48-54
Total
51-78
Other potential windfalls
When
(July 2012) - Table one has been updated to take into account of additional permissions granted since July 2010
and a change in emphasis of the project to deliver Neasham Road with the HCA funding in the first five years of
the plan period.
6.5.12 The portfolio reaffirms that the Council owned sites at Honeypot Lane and
Neasham Road will be the most important locations for delivering additional
pitches in the short and medium term, and improvements to existing pitches
will also be planned there at the same time.
104
6.39
Unallocated sites coming
forward, in private
ownership, usually to
provide for the needs of a
single family unit.
6.5.13 The reliance on windfalls6.39 to meet some of the needs provides the flexibility
in the policy to allow appropriate opportunities to be taken for new provision
as they arise. It will also help to ensure a mix of private and public owned
sites. Windfalls have been assumed to come forward at 1.6 pitches/year, the
same rate as the average annual rate for the last five years. It is considered
that it is reasonable to assume this level will continue. Given that there will be
alternative site options at the allocated sites of Honeypot Lane and Neasham
Road, through the plan period, it is likely that this windfall level will fall to
some degree, however there remains an element of flexibility in terms of the
range of pitches indicated in the Preferred Option.
6.5.14 The only alternative considered was to rely less on windfalls to meet needs,
and allocate more sites. However, this was rejected because further allocations
would not necessarily slow down the rate of windfalls, and it could result in
less range and choice of sites overall, as allocations are larger sites, and
windfalls are smaller sites.
6.5.15 The Sustainability Appraisal found the preferred option to score well against
social objectives compared to other sites assessed, having reasonable
accessibility to services and overall scoring neutrally against environmental
objectives having limited environmental impact. It recognised that the
Oakwood Farm site is more distant from services, but has no other negative
effects identified. Other options considered were considered to have a variety
of negative effects, including contamination issues, landscape, pollution,
biodiversity and loss of green infrastructure, highways issues and distance
from services.
105
Draft Policy MGP 20: Accommodating Travelling Groups
A target of a minimum of 35 additional permanent residential Gypsy / Traveller pitches
is set, to be provided within the first five years of the plan period. To meet this target,
and to indicate the broad locations for provision thereafter, the following sites, as
shown on the draft Policies Map, will be safeguarded for continued Gypsy and
Traveller use:
GTE1
Neasham Road
GTE2
Honeypot Lane
GTN 1
Land at Neasham Road (20 pitches, years 1-5)
The following sites are allocated for Gypsy and Traveller use, as shown on the
Policies Map:
GTN 2
GTN3
Honeypot Lane (8-12 pitches, years 6-10)
Land at Oakwood Farm, Roundhill Road (3-5 pitches, years 1-5)
Development of these sites should achieve the following:
a)
adequate spacing in between pitches to ensure an acceptable level of residential
amenity;
b) space within the site for circulation;
c)
space for visitors / touring caravans;
e)
vehicular access to and from the local road network adequate to accommodate
mobile residential units and any vehicles associated with residents working
activities;
d) have or can be provided with individual utility blocks;
f)
Adequate landscaping and amenity space.
The allocations set out within this policy, along with extant planning permissions, meet
the short and medium term needs for the 2011-2016 and 2017-2021 periods. Sites to
meet longer term needs from 2021 period or additional needs for travelling groups
arising within the short to medium term periods, will come forward through the
development management process and be determined against Policy CS13 of the
adopted Core Strategy and the criteria set out in this policy.
6.5.16 Regarding sites for Travelling Showpeople, no site is identified at this time,
and any suitable site is likely to come forward as a windfall.
6.5.17 The delivery of this policy will be reviewed annually and a five year supply of
specific, deliverable sites will be identified to satisfy on-going needs.
Making it Happen
Delivery
Organisation
Funding/Means of Delivery
DBC
HCA funding of £1.5 million to provide 20 additional permanent
Gypsy / Traveller pitches by March 2015.
Council’s own resources/external funding to provide Honeypot
Lane extension/enhancements after 2015.
DBC
DBC
106
Development Management Decisions
50K released by Cabinet to undertake a detail feasibility appraisal
which will demonstrate how the 20 new travellers pitches will be
delivered to meet the Homes and Communities Agency grant
funding conditions by March 2015.
7. A DISTINCTIVE, GREENER,
CLEANER ENVIRONMENT
7.1 SAFEGUARDING THE HISTORIC ENVIRONMENT
7.1
7.2
7.3
Chapter 12, National
Planning Policy Framework
(NPPF), DCLG, 2012
Context
7.1.1
DBC 2011, Policy CS14
see draft Policies MGP 2224
7.1.2
7.4
7.5
7.6
identified on Durham
County’s Historic
Environment Record
(HER), a computerised
inventory of all aspects of
our surrounding
environment that have
been built, formed or
influenced by human
activity, including known
heritage assets, sites
without statutory
protection and the findspots of archaeological
objects
Paragraphs 132 to 134 of
the NPPF
Listed buildings list and
Scheduled Ancient
Monument 2009 work
7.1.3
National planning policy7.1 requires local planning authorities to set out in their
Local Plan a positive strategy for the conservation and enjoyment of the
historic environment. It emphasises the importance of sustaining and
enhancing the significance of heritage assets and acknowledges the wider
social, cultural, economic and environmental benefits that conservation of the
historic environment can bring. The Council’s adopted Core Strategy7.2 also
seeks to protect, enhance and promote the quality and integrity of the
Borough’s distinctive built heritage and archaeology. This includes locally
significant railway and Quaker heritage as well as nationally significant assets.
The historic environment includes areas and buildings, archaeological sites,
historic streets and ‘strategic historic routes’ 7.3, historic landscapes, parks and
other green spaces. It is a non-renewable, shared resource, and any loss or
harm to it is often irreversible. Understanding the significance of the historic
environment and the contribution that the setting of historic assets makes to
their significance is essential in guiding good decisions about land use change
and development affecting them.
As a group, Darlington’s archaeology and historic buildings are of considerable
significance. The Borough’s designated heritage assets7.4 include:
•
•
•
7.1.4
•
Over 500 Listed Buildings;
20 Scheduled Ancient Monuments (SAM’s);
16 Conservation Areas; and
2 Registered Parks and Gardens
The Borough also contains a wealth of non designated heritage and
archaeological assets, recorded locally7.4, which can sometimes be as
significant as designated assets.
Listed Buildings and Scheduled Ancient Monuments
7.1.5
The Council has a statutory duty to protect listed buildings and scheduled
ancient monuments. This is supported by a national planning policy
presumption in favour of their conservation7.5, and informed by survey
information about the condition of and risk to them7.6 and any potential
improvements required.
Conservation Areas
7.1.6
A conservation area is designated by the Council under the Planning (Listed
Buildings and Conservation Areas) Act 1990 and is defined as ‘an area of
special architectural or historic interest, the character or appearance of which
is desirable to preserve or enhance’. Once designated, particular attention
must be given in all planning decisions to the desirability of conserving and
enhancing its character and appearance. It is a duty of the council to
designate new Conservation Areas and currently, consideration is being given
to the designation of a Parkgate Conservation Area.
107
7.1.7
Where the Council considers there to be a planning threat to the character,
appearance and significance of any conservation area and that protection is
required to prevent harm to such significance, the permitted development
rights will be withdrawn under Article IV of the Town and Country Planning
Act (General Permitted Development Order) 1995 as amended.
Historic Parks and Gardens
7.1.8
A Register of Parks and Gardens of "Special Historic Interest" is maintained by
English Heritage, to encourage their protection and conservation, but has no
associated statutory controls. There are two registered sites within Darlington
Borough, both Grade II quality, and both publicly owned: South Park and West
Cemetery.
Archaeology (Designated and Non-Designated)
7.1.9
Significant archaeological finds in the Borough include those from the Iron
Age, Roman and Medieval periods. New investigations and finds mean the
record7.4 is always being updated. Survey and recording prior to development
is an important way of adding to the record, particularly in areas of known
local historical interest, such as within designated Conservation Areas, and
non-designated Areas of Special Archaeological Significance7.7, where
archaeological finds are more likely.
Designated and Non- Designated Heritage Assets of significance to Railway and
Quaker Heritage
7.1.10 Darlington has particularly strong railway and Quaker heritage. Opened in
1825, the Stockton and Darlington railway was the world's first publicly
financed passenger railway. Its route through the Borough (shown on the
Policies Map) is mostly intact, serving some transport functions. The route
includes several important structures, but only some, such as the scheduled
Skerne Bridge, have statutory protection. The area around North Road Railway
Station and within the Northgate Conservation Area has a particular
concentration of railway heritage interest, e.g. the Head of Steam Museum,
the lime cells, a goods shed and associated Victorian residential terraces. In
addition to designated assets, Westbrook Villas, off North Road, the Coal
Drops to the rear of Westbrook Villas, the Railway Tavern Public House on
Northgate and the Black Swan Public House on Parkgate are examples of nondesignated assets to be found in the Borough with strong links to the town’s
railway heritage.
7.1.11 Darlington Quakers played an active part in government, industry, commerce
and development in the town during the eighteenth and nineteenth centuries.
They were are responsible for many of Darlington’s Victorian public buildings
and manor houses, parks and cemeteries, including the listed South Park and
the indoor market/clock tower and the Grade II* Listed Friends Meeting House.
The value and significance of these assets within the borough is recognised,
for their contribution to the unique identity of the borough and their potential
contribution to tourism. Non-designated heritage associated the Quaker
movement includes Elm Ridge Methodist Church and Carmel School (formerly
Hummersknott).
108
Issues
7.1.12 As national planning policy provides a strong basis for protecting designated
heritage assets from inappropriate development, the key issues arising from
the above for local policy development are:
•
•
•
•
how to ensure that non designated heritage assets and archaeology are
recognised and afforded appropriate protection;
how to indicate where unidentified assets are most likely to be discovered;
and
how to encourage proposals that help conserve heritage assets; and
how to ensure the wider contribution of locally distinctive heritage is
recognised in new development and regeneration projects.
7.1.13 Where there are heritage constraints relating to specific sites, these will be
covered in future detail on specific site allocations.
Options Considered
7.1.14 The only option that would deliver local plan objectives, particularly to
safeguard local distinctiveness and identity, was to prepare a positive policy
which seeks to enhance key heritage themes within the Borough, outlines the
additional measures that will be in place to safeguard them, and identifies
areas where development will be encouraged to enhance the interpretation of
assets. More detail is also considered necessary to guide potential developers
on how to define the significance of heritage and archaeological assets and
assess the impact of development upon them.
Darlington’s Approach to Safeguarding the
Historic Environment
7.1.15 Non-designated historic assets, including those of railway or Quaker origin,
will be identified through conservation area character appraisals and the
preparation of a list of heritage assets of local interest, and where appropriate
will be protected through other policies, e.g. ornamental gardens detailed in
draft Policy MGP 22. Developers may also be alerted to non-designated assets
through pre-application enquiries by reference to the ‘local list’ and any
updates to it.
7.1.16 The route of the former Stockton and Darlington Railway through the Borough
is identified on the Policies Map to alert potential developers that this is an
area where there is a higher likelihood of undiscovered heritage assets, and to
help safeguard it from inappropriate development. Proposals that encourage
the creation of a ‘heritage campus’ to enhance the historic interest of the
North Road Railway Station and surrounding area (including lime cells and
railway shed) are currently being prepared by the Railway Heritage Enquiry
Group, and will be reflected in this document when firm proposals emerge.
7.1.17 For buildings within conservation areas, the objective is to secure the optimum
viable use. Keeping a building in its original use is preferred, as it generally has
least impact on its character or appearance. If this cannot be achieved viably,
an applicant may be able to justify converting it to a new use, if it can be
demonstrated that, on balance, it will be compatible with the significance and
the setting of the historic building, and not detract from other evidential,
historic, aesthetic or communal heritage values.
109
7.8
7.9
7.10
drawn up by Durham
County Council’s
Archaeology Service and
include Scheduled
Monuments (including 50
m buffer zone),
undesignated deserted or
shrunken medieval
villages, Conservation
areas, the ‘historic cores’
of settlements (defined in
the County Durham and
Darlington Historic
Landscape
Characterisation Project),
Registered Historic Parks
and Gardens, areas
identified from existing
research, areas previously
only marked with a point
rather than a spatial
indication of their true
extent.
NPPF, paragraph 128
could be heritage
statement or in a Design
and Access Statement
7.11
www.darlington.gov.uk
7.12
English Heritage defines
the significance of a
heritage asset as “The
sum of the cultural and
natural heritage values of
a place, often set out in a
statement of
significance”.
7.13
English Heritage defines
the setting of a heritage
asset as “The
surroundings in which a
place is experienced, its
local context, embracing
present and past
relationships to the
adjacent landscape”.
* A list of these assets is
included at Annex 1
110
7.1.18 In Areas of Special Archaeological Significance7.8 (as identified on the Policies
Map), development proposals involving ground disturbance will need to be
accompanied by an archaeological evaluation report. This report should set
out a mitigation strategy to either preserve in situ, or to excavate, analyse and
report, or a combination of the two, if archaeology is present, and conditions
will be attached to any grant of planning permission to ensure an acceptable
mitigation strategy is implemented. Any archaeological evaluation report
required should be provided at the same time as the planning application is
submitted.
7.1.19 ‘Heritage at Risk’ includes buildings, structures and sites whose preservation is
threatened, often by vacancy or lack of regular repair and maintenance.
English Heritage compiles regional Heritage at Risk Registers, which include
grade I and II* Listed Buildings, Listed places of worship, Scheduled
Monuments, Registered Parks and Gardens, Registered Battlefields and
Conservation Areas known to be at risk as a result of neglect, decay or
inappropriate development. Darlington Council maintains a register of Grade II
Listed Buildings at Risk (available online and on request). The ultimate
responsibility for a historic building lies with its owner; however the Council
has the authority to issue a Section 125 Notice, a Repairs Notice or an Urgent
Works notice to ensure the building is repaired and no longer at risk. These
powers are used reluctantly and it is in the best interests of all parties for work
to be carried out voluntarily and before emergency work is required. Proposals
that either secure the future of heritage at risk or prevent assets from
becoming ‘at risk’ in the first place will be encouraged where the significance
of the asset can be adequately protected.
7.1.20 National planning policy7.9 requires applicants to assess the significance of
specific heritage assets and the impact of development on them. In order to
assist applicants with this, a Borough wide context has been prepared as a
starting point (see Appendix 5). Such assessments7.10 will be required alongside
submission of those planning applications that the Council considers may
affect heritage assets. Potential developers should visit the Council’s website7.11
and if required contact the Council in advance to find out what level of detail
will be required, as this will vary for the type and size of proposal, and the
number and significance of heritage assets likely to be affected.
7.1.21 The assessment of heritage significance7.12 should include:
•
an understanding of the fabric and evolution of the place;
•
identifying who values the place, and why they do so;
•
considering the relative importance of those identified values;
•
•
relating identified heritage values (see below) to the fabric of the place;
considering the contribution of associated objects and collections;
•
considering the contribution made by setting7.13 and context;
•
defining the significance of the place.
•
comparing the place with other places sharing similar values; and
7.1.22 When assessing the impact of proposals, four aspects of heritage asset value
and their relative importance should be considered. The wider significance of
Darlington’s heritage assets are set out in Appendix 4 and in brief, the values
are as follows:
•
•
•
•
evidential: the potential of a place to provide evidence about past human
activity;
historical: the ways in which past people, events and aspects of life can be
connected through a place to the present.
aesthetic value: the way people draw sensory and intellectual stimulation
from a place
communal value: the meanings of a place for the people who relate to it,
or for whom it figures in their collective experience or memory
7.1.23 The Council will assess whether the benefits of a proposal for enabling
development, which would otherwise conflict with planning policies but which
would secure the future conservation of a heritage asset and offer sufficient
benefits in heritage terms outweigh departing from those planning policies.
Any assessment will be based upon sound evidence that demonstrates that
enabling development is the only way to secure the long term future of the
heritage assets.
7.1.24 The Sustainability Appraisal indicated that whilst the option to rely on national
policy would have positive effects against several objectives, those positive
effects are weaker than those identified for the policy options that would be
tailored to local circumstances. In some cases this option would imply
inaction on various issues, meriting a negative rating. The option of a local
policy on key heritage themes has potential positive effects against the most
different objectives, including several very positive effects, although in many
cases these are dependent on the themes that are identified (themes that
relate to the heritage found around central Darlington would give a higher
rating, since that is a more sustainable location for development). The option
to encourage development to interpret heritage assets has more limited
effects but those that it has, are positive especially if the areas referred to are
in and around central Darlington. The option to provide additional guidance
for developers on the significance of and impact on heritage assets is also
considered to have positive impacts on various objectives.
111
Draft Policy MGP21: Protecting Darlington’s
Heritage Assets
A) Conservation areas
Development in a conservation area, involving the alteration, extension or change of
use of a building or construction of any structure must respect:
a)
existing architectural and historic character and associations by having regard to
the positioning and grouping, form, scale, detailing of development and the use
of materials in its construction; and
b) existing hard and soft landscaping features including areas of open space, trees,
hedges, walls, fences, watercourses and surfacing and the special character
created by them; and
c)
historic plot boundaries and layouts.
Built development will not normally be permitted on public and private open spaces
within or adjacent to conservation areas where they are important to the landscape or
townscape qualities of the conservation area or provide views or vistas into, from or
within the conservation area, unless it can be demonstrated that the wider public
benefit demonstrably outweighs the harm to the heritage asset.
The demolition of buildings or structures in a conservation area will not normally be
permitted if:
d) the building makes a positive contribution to the architectural or historic character
of the conservation area; and
e)
f)
the structural condition of the building is repairable; and/or
there are no approved detailed plans for the redevelopment of the site and a contract
has not been entered into for the implementation of that redevelopment; and
g) there has been insufficient consideration of other options to re-use the building in
its current form.
The Council will prepare and keep up to date Conservation Area Character Appraisals
and Management Plans for each conservation area, including any proposed new or
extended areas, as the basis for determining proposals within or where it would affect
the setting of conservation areas.
B) Listed Buildings
Development involving the alteration, extension or change of use of a listed building
or construction of any structure within its curtilage must:
a)
protect its significance as a listed building;
c)
protect historic plot boundaries and layouts; and
b) protect existing historic hard and soft landscaping features including trees,
hedges, walls, fences and surfaces;
d) ensure the optimum viable use of the building.
Any development affecting the setting of a listed building will be permitted if the
proposal conserves or enhances either its significance as a listed building and/or the
contribution its setting makes to its significance.
Proposals involving the demolition of a listed building or structure within the curtilage
of a listed building will not be permitted, except in exceptional circumstances as
detailed in national policy.
112
C) Archaeological Sites and Monuments
Development proposals involving ground disturbance in Areas of Special
Archaeological Significance (as identified on the Policies Map), must be accompanied
by an archaeological evaluation report, except for all householder development and
extensions, and for alterations to existing commercial premises of 40m2 or less, unless
the proposed development directly affects or is within 50m of a Scheduled Ancient
Monument.
Outside Areas of Special Archaeological Significance, planning applications on sites of
more than 1 hectare must be accompanied by an archaeological evaluation report,
unless the area is already known to have been archaeologically sterilised by previous
development such as mineral extraction etc.
D) Historic Parks and Gardens
Development will only be permitted in Parks and Gardens of National Interest where it
can not be accommodated elsewhere, is directly related to the conservation
management of the park or garden, and does not detract from its significance.
E) Heritage assets of local interest
The conservation or enhancement of heritage assets of local interest will be promoted
by preparing a Local List and undertaking Conservation Area Character Appraisals.
Ornamental Parks and Gardens as identified in Policy MGP21 will also be included on a
local list.
The significance, character and setting of heritage assets of local interest, including
those on a local list, will be protected by:
i)
ii)
using the above criteria (under B Listed Buildings) when assessing the demolition
of a non-designated heritage asset;
requiring alterations and extensions to be based on an accurate understanding of
the significance of the asset including the structure, and respect the architectural
character, and detailing of the original building. The structure, features, and
materials of the building which contribute to its architectural and historic interest
should be retained or restored with appropriate traditional materials and
techniques;
iii) requiring any proposals to protect and enhance the setting of non-designated
heritage assets;
F) Darlington’s Railway and Quaker Heritage
The Council will encourage developments promoting the educational, recreational
and/or tourism potential of the industrial and cultural heritage of the borough through
sensitive management, enhancement and interpretation of railway and Quaker
heritage assets.
Particular support will be given to schemes that preserve and significantly enhance the
heritage assets settings and archaeological remains most at risk through neglect, decay
or other threats, including the line of the Stockton and Darlington Railway of 1825 (as
indicated on the Policies Map) and associated structures. Any proposal for
development on or adjacent to the line must include measures that preserve any
physical remains along the route, aid their interpretation on site and reinstate a legible
route where those remains no longer exist.
113
G) Enabling development
Proposals for enabling development, which would otherwise conflict with planning
policies (the development plan and national policies) but which would secure the
future conservation of a heritage asset may be permitted if it :
i.
ii.
secures the long-term future of an asset and, where applicable, its continued use
for an appropriate purpose; and
is necessary to resolve problems arising from the inherent needs of the asset,
rather than the circumstances of the present owner, or the purchase price paid;
and
iii. sufficient funding is not available from any other source to support the heritage
asset; and
iv. the amount of enabling development is the minimum necessary to secure the
future of the asset and that its form minimizes harm to public interests; and
v.
the public benefit of securing the future of the asset significantly outweighs the
disbenefits of not being in accordance with other policies.
Making it Happen
7.1.25 Through the development management process, preparing and keeping up to
date conservation area appraisals and management plans, preparing a Local
List, and maintaining the Historic Environment Record.
114
7.2 LOCAL LANDSCAPE CHARACTER
7.14
7.15
Darlington LDF Core
Strategy, DBC, May 2011,
Policies CS14, CS15, CS17
Context
7.2.1
Emerging Darlington
Strategy, DBC, 2013
The Darlington Core Strategy7.14 protects and seeks to appropriately enhance
the distinctive character of the Borough’s natural and historic townscapes and
landscapes, including unique features like rural gaps, green wedges, green
corridors, strategic historic routes and parklands. However, there are some
parts of the inner urban area where landscape or townscape quality could be
improved7.15, in particular to better promote Darlington’s railway heritage (see
draft policy MGP 21).
7.2.2
7.2.3
The issues associated with protecting and enhancing landscape quality in the
Borough have been considered, and are set out below, together with a
summary of the options that were considered to address each.
The role and function of rural gaps, green wedges and local green spaces are
quite similar; all protect the Borough’s settlement pattern, maintaining
openness between different neighbourhoods, so that each keeps their unique
identity. But rural gaps, e.g. between Middleton One Row and Middleton St
George are also predominantly agricultural land in the rural area, whereas
green wedges, e.g. between Red Hall and Haughton, provide a continuous link
between the inner urban area and the countryside, and provide space for
recreation and wildlife within easy reach of urban residents. Local green
spaces can be any type of green space but must have a special significance to
the local community. As the Borough continues to grow rural gaps, green
wedges and local green spaces will safeguard the identity of communities,
particularly in areas that face growth pressures.
Rural gaps
7.2.4
7.2.5
Rural gaps are wide, open areas of green infrastructure that provide a clear
and distinct division between villages. The rural gaps between the settlements
of Middleton One Row and Middleton St George, Middleton St George and
Oak Tree, and Hurworth on Tees and Hurworth Place have existed for many
years. Today these relatively small gaps remain important to the rural
settlement pattern, to the character of the rural area and to its residents. But
the edges of these villages continue to be under pressure from development,
this policy together with draft policy MGP 10, will continue to protect the
rural gaps as a way to conserve the character and openness of the wider
landscape, and its mix of urban and rural development.
Given the local importance of rural gaps, the only option considered was to
identify and protect rural gaps in locations where more than one village has
existed historically, but developed separately over time.
115
Green wedges
7.2.6
7.16
Local Landscape Character
Assessment, DBC, 2013
7.2.7
7.2.8
7.2.9
Green wedges are open areas of green infrastructure that penetrate the urban
area, linking to the rural area and providing a clear and distinct division
between two neighbourhoods. The green wedges at Blackwell/Skerne Park,
Cocker Beck/Mowden and Haughton/Red Hall maintain a continuous link
between town and country for people and wildlife. As such their length will
extend to the proposed development limit of the main urban area (see draft
policy MGP 10). Each green wedge is different7.16 but equally important, on
account of their land uses, landscape components, openness, topography,
nature of their urban edges and their relationship and importance to the
character of Darlington. All also fulfil (or can potentially provide) a mix of
sport and recreation, sustainable transport, biodiversity, heritage, amenity,
flood and air quality management functions. The width of each reflects the
extent to which the space can appropriately perform or will need to perform
these landscape and green infrastructure functions in the future.
The identification and designation of green wedges will help ensure that new
development within a green wedge makes a positive contribution to it, e.g. by
improving habitat value or travel routes. Only high quality development
ancillary to green infrastructure function(s), limited infilling or reuse of
previously developed land will be permitted that would not have any impact
on the openness of the landscape.
The only option considered for defining the extent of green wedges was to
base it on the findings of a landscape character assessment, completed in
20137.16 .
The options considered to manage development within green wedges were:
a)
set out criteria for development within the green wedge, to include a
range of different types of low density, high quality green built
development which could deliver distinctive development but which
would reduce openness of the wedges and could also impact upon the
other functions e.g. flood management that these spaces perform; or
b) only permit built development within green wedges that is ancillary to a
green infrastructure function, or is for limited infilling on previously
developed land which would not have greater impact on the openness of
the landscape than the existing development, and set out criteria against
which proposals will be considered. This will ensure that only a limited
amount of appropriate quality development is permitted, while retaining
urban sprawl.
Local Green Spaces
7.17
7.2.10 Local Green Spaces are close to the community it serves, which has local
significance and is local in character and is not an extensive size. National
planning policy7.17 indicates a Local Green Space may have special importance
to a local community because of its attractiveness, heritage, recreational or
biodiversity value. But their primary role is to maintain the openness and
permanence of the landscape.
7.2.11 Local Green Spaces are relatively new; as such there are none in the Borough
at the moment. The only option considered was to protect any Local Green
Spaces, where identified in the future.
116
7.18
7.19
7.20
7.21
7.22
7.23
7.24
identified in the emerging
Darlington Green
Infrastructure Strategy,
DBC, 2013
strategic historic route:
route with local historical
associations, currently
used as a green corridor
Public art: permanent or
temporary works of art
visible to the public,
either part of a building
or free standing, includes
sculpture, lighting, street
furniture, paving, railings
and signs.
Objective 7, Darlington
LDF Core Strategy, DBC,
May 2011
Seven rural parklands:
Walworth Castle,
Rockcliffe Hall, Neasham
Hall, Hall Garth,
Redworth Hall, Middleton
Hall, Newbus Grange
Blackwell Grange Golf
Club Statement of
Significance, ArchaeoEnvironment, August
2012
Village green: an area
usually in the centre of a
village, consisting of a
plot of grassy land
Green Corridors and Strategic Historic Routes
7.2.12 Strategic and local green corridors7.18, such as the River Tees and the former
Darlington and Stockton Railway corridor, have a unique character that
contributes to the identity and setting of adjoining neighbourhoods, and as a
result, their length, distinctiveness and buffer zones vary (see draft policy MGP
24). Five are also strategic historic routes7.19, which have historically connected
nearby towns, villages, hamlets and scattered farms to the market town of
Darlington, and provide insights into the past. Some, like Cemetery Lane, have
kept much of their original width and features including walls and gateposts,
others like Salters Lane have original hedgerows, ditches and banks in places.
7.2.13 The unique landscape character of each should be reflected in the design of
development along their route. This could be within the buildings themselves, the
design of open space or through public art7.20 and interpretation features. Mature
trees, hedgerows, banks, ditches, walls, gateposts and verges which contribute to
character should be retained where possible (see draft policy MGP 21).
7.2.14 Given that green corridors and strategic historic routes contribute so much to
Darlington’s distinctiveness, and that this is a key objective of the Core Strategy7.21,
the only option considered was to protect and improve their landscape qualities.
Parklands
7.2.15 Parklands are planned and designed gardens which have evolved over a long
period of time for informal leisure. In the rural area they often provide the
setting for a country house, whilst in the urban area, they are laid out with a
network of footpaths connecting features like a bandstand and a lake. The
Borough has eleven ornamental parklands dating from the 15th to the early
19th centuries. All have clearly defined boundaries; walls, woodlands,
hedgerows and iron railings separate them from the surrounding rural or
urban area, reinforcing their unique character. Many are covered by other
national and local designations, and all contain a range of listed or locally
important heritage features (see draft policy MGP 21).
7.2.16 The focal point for the seven rural parks7.22 is a large country house and related
buildings, such as Walworth Castle. They comprise extensive landscaped
grounds, created over a long period of time, and can include original features
like ornate gateways and lodges (Rockcliffe Hall), long tree lined driveways
(Neasham Hall) and areas of original ridge and furrow (e.g. at Walworth
Castle). Many continue to be actively managed today.
7.2.17 In the urban area South Park, North Lodge Park, Blackwell Grange and West
Cemetery have very different characteristics reflecting their urban location and
different intended uses. Dating from the Victorian period the parks are
characterised by a network of paths connecting bandstands, fountains and
formal gardens to be enjoyed for informal recreation, while at West Cemetery,
paths link the burial grounds and the crematorium. Blackwell Grange, whilst
urban in location, has the character of a rural park7.23.
7.2.18 Given that each parkland contributes so much to Darlington’s character and
landscape quality, the only option considered was to protect and improve all
parklands, where appropriate
Rural landscape
7.2.19 The rural landscape is characterised by a mix of unique landforms, ditches and cuts,
for example Bishopton Motte (draft policy MGP 21), village greens7.24 and in places
traditional field patterns, hedgerows and wetlands. All help distinguish the rural area
from the rest of the Borough, and so will be protected through this draft policy.
117
Areas of landscape improvement
7.25
7.26
7.27
Green Food Conclusions,
DEFRA, 2012
Darlington
Characterisation Study,
DBC, 2009
Development SPD, DBC,
2011
7.2.20 There are landscapes and townscapes in the Borough which detract from or
do little to positively contribute to the Borough’s attractive and distinctive
character. This can be the case with derelict land in the inner urban area, and
with sterile land along rail, river and road corridors7.18, and in parts of the rural
area7.25. Taken together and if not addressed, these areas can adversely affect
the image of the Borough and its attractiveness to businesses and investors.
7.2.21 Proposals for the Town Centre Fringe (draft policy MGP 3) which include
restoring a more natural river course, will help to address this. Elsewhere in
the urban area, the Darlington Characterisation Study7.26 and the Design of
New Development SPD7.27 will be used to inform the environmental quality
improvements that will be sought in the design of new development and
regeneration, focussing on elements like density, height, massing, heritage,
biodiversity, materials and detailing to restore or enhance the local landscape
or townscape. Within the rural area, provision should be made to recreate
hedgerows, field margins and wetlands lost, complemented by the use of
agri-environment schemes, where appropriate.
7.2.22 No specific consultations have been carried out on this issue previously, but
responses by residents to planning applications submitted in the last two years
that have an impact on areas of landscape quality identified above have all
outlined the desire to protect and improve their qualities where appropriate.
7.2.23 Protecting and improving local character, heritage and distinctiveness is a key
local plan objective, supported by people responding to consultations. This is
why only limited options are being proposed; to do other than that would not
achieve a key local plan objective. The options for each issue being pursued are:
•
•
•
•
•
•
Rural gaps: to protect and enhance their landscape quality;
Green wedges: option b): identify three green wedges but exclude any built
development unless ancillary to green infrastructure. Provide criteria to guide
decisions on applications for new development adjacent to green wedges;
Local Green Spaces: the draft policy encompasses all the issues identified
in paragraph 7.2.10;
Green corridors and strategic historic routes: the draft policy encompasses
all the aspects outlined above in paragraphs 7.2.12-13;
Parklands: continue to protect the landscape qualities of parklands,
ensuring their key features are retained while allowing some development
consistent with other policies in this document, where appropriate;
Areas of landscape improvement: secure through new development
significant improvements to areas of limited landscape quality,
incorporating areas of high biodiversity value in the design of any proposal.
7.2.24 The sustainability appraisal recommended that option B is the preferred option
for green wedges; by identifying enough housing allocations in other
sustainable locations a balance will be achieved between protecting landscape
character and delivering sufficient housing land. All of the other landscape
character options identified above achieved positive impacts. As a result the
sustainability appraisal supported the preferred option identified.
118
Draft Policy MGP 22: Local Landscape Character
The character and local distinctiveness of the urban area, villages and rural area will be
protected and improved by:
A. Retaining the openness and green infrastructure functions of:
i) the rural gaps, between Middleton St George and Middleton One Row, Middleton
St George and Oak Tree, and Hurworth on Tees and Hurworth Place;
ii) the green wedges of Cocker Beck/Mowden, Blackwell/Skerne Park and
Haughton/Red Hall; and
iii) Local Green Spaces.
Within these areas, development will only be permitted if it :
a) protects and enhances the landscape character, setting and identity of the
area as identified in the Local Landscape Character Assessment7.16;
b) enhances biodiversity value by promoting protected and priority habitats
and species;
c) retains connectivity within the green infrastructure network;
d) is ancillary to a green infrastructure use; and
e) is for limited infilling on previously developed land, which would not have
greater impact on the openness of the landscape than the existing
development.
B. Retaining and enhancing the length, continuity, biodiversity, amenity and heritage
value of:
i) The strategic and local green corridors identified in the Darlington Green
Infrastructure Strategy7.15 and their buffer zones;
ii) The strategic historic routes of the Darlington/Middleton St George/A66/A67/
Stockton Corridor, the Former Barnard Castle Trackbed, Salters Lane, Nunnery Lane
and Cemetery Lane;
Development that adjoins these designations should:
a) positively respond to the landscape setting;
b) conserve and enhance traditional landscape features including ancient and
semi-natural woodland and hedgerows;
c) retain connectivity for people and wildlife;
d) protect and enhance their ecological and heritage value in accordance
with draft policies MGP 21 and MGP 25; and
e) incorporate appropriate interpretation for ecological and heritage features.
C. Retaining and improving the special landscape, heritage and ecological qualities of urban
and rural parklands at South Park, North Lodge Park, West Cemetery, Blackwell Grange,
Rockcliffe Park, Middleton Hall, Walworth Castle, Redworth Hall, Hall Garth, Newbus
Grange and Neasham Hall in accordance with draft policies MGP 21 and MGP 25.
D. Protecting and enhancing the natural landscape quality of the rural landscape,
where appropriate, reinstating traditional natural and built features in accordance
with draft policies MGP 21 and MGP 25.
E. Seeking high quality design in areas of low landscape quality in the urban area, to
strengthen local character and distinctiveness, in accordance with the Darlington
Characterisation Study7.26 and the Design of New Development SPD7.27.
All features are identified on the draft Policies Map.
7.2.25
Making it Happen
•
•
Operating the Council’s development management function, taking account
of the Darlington Characterisation Study, Revised Design of New Development
SPD, and the Blackwell Grange Golf Club Statement of Significance
Preparing masterplans for areas of significant development and regeneration.
119
7.3 GREEN INFRASTRUCTURE
Context
7.3.1
7.28
Core Strategy CS14, CS15,
CS17, CS18
7.3.2
7.29
7.30
7.31
7.32
7.33
Green Food Conclusions,
DEFRA, 2012
7.3.3
as identified in the
emerging Darlington
Strategy,
DBC, 2013
Tees Valley Biodiversity
Action Plan, Tees Valley
Nature Partnership, 2013
Darlington Allotment
Strategy, DBC, 2009
7.3.4
Green infrastructure includes locally important green spaces, green wedges,
wildlife sites, allotments, urban fringe, trees, woodland, rights of way and
countryside. The Darlington Core Strategy7.28 recognises the value of Darlington’s
network of multi-functional green spaces and inter-connecting links, which are
planned, designed and managed to meet the environmental, social and economic
needs of the community. It aims to protect, enhance and extend green
infrastructure and the biodiversity and geological features that are found within
it, to ensure that there is no net loss, except in exceptional circumstances7.28.
Green infrastructure covers publicly accessible open spaces (about 580ha) and
open land (about 660ha) in the main urban area and villages. Publicly
accessible open space has unlimited public access, whereas open land is green
infrastructure with no public access, e.g. the grounds of a large building,
agricultural land and landscaping buffers. Between them, they provide places
where people can enjoy sport, recreation, play and nature, and contribute to
amenity and landscape quality (draft MGP 22). They can also support
movement and food production, and can be critical to sustaining ecosystems.
They can also contribute to achieving the appropriate sustainable building
standards (see draft MGP 33) and sustainable drainage (see draft MGP 34)
required in new developments.
In accordance with national planning policy7.29, rather than managing green
infrastructure in a piecemeal fashion, a landscape scale approach will be
adopted, using and managing land for what it is best suited to7.30. Through
investment, management and maintenance, more will be made of the network
so that that a range of green infrastructure needs are met in each local area
and in the Borough as a whole, according to the priority actions of the
emerging Darlington Green Infrastructure Strategy7.31, the Tees Valley
Biodiversity Action Plan7.32 and the Darlington Allotment Strategy7.33.
The green infrastructure network of Darlington links up with networks within
the rest of Tees Valley, Durham and North Yorkshire, providing for walking and
cycling routes and allowing for species movement between areas.
7.3.5
A range of issues associated with protecting, extending and improving green
infrastructure in the Borough have been considered, and are set out below,
together with a summary of the options that were considered to address
them. Specific consideration is given to allotment provision.
Green Infrastructure: Issues and options
7.3.6
7.34
120
as identified in the Tees
Valley Green Infrastructure
Strategy, Tees Valley Joint
Strategy Unit, 2008
At the heart of Darlington’s green infrastructure network are a network of green
corridors; some follow natural features, including watercourses and woodlands
and others follow man made routes such as railway lines and roads. Some are
relatively new (the Eastern Transport Corridor) and others started as trade routes
(Salters Lane) (see draft policy MGP 22). Most are used now, but some will be
new corridors (or parts of) added over the lifetime of this plan. All are important
for movement, wildlife, landscape and recreation. Four strategic green
corridors7.34 including the River Tees and the River Skerne function within and
across the Borough’s boundaries while the eight local green corridors7.31
including the former Barnard Castle Trackbed function within the Borough,
usually connecting neighbourhoods or the urban and rural areas.
These connect a range of spaces for informal recreation, play, nature, movement
and amenity (see Figure 7.3.1). Most spaces, such as South Park, have more than
one of these functions. The width of their buffer zones (identified in this draft
policy) are different, reflecting the minimum width needed for habitats within or
adjacent to the corridor to function, for a distinct landscape to be recognised,
and to provide appropriate and sufficient space for access and recreation.
Figure 7.3.1: Overview of Darlington’s Green Infrastructure Network
Services for Place
Date: April 2013
7.35
as set out in the Green
Infrastructure Topic Paper,
DBC, 2013
7.3.7
7.3.8
7.36
Localities are North West,
Central, South West,
South East, North West
and Rural Area
7.3.9
Scale 1:70,000 @ A3
© Crown copyright and database rights 2013
Ordnance Survey 0100023728
You are not permitted to copy, sub-license, distribute
or sell any of this data to third parties in any form.
The amount, quality, value and main function of each accessible green space
in the urban area and villages has been assessed7.35, and the amount of open
land and its landscape, biodiversity and amenity value has been assessed7.35.
Unless a space has been identified for an alternative, more sustainable use, all
are protected by this draft policy to ensure that there is enough open space
and open land in the Borough over the plan period to meet resident’s needs
and provide the other functions that green infrastructure is needed to
perform. For practical purposes only those of 0.1ha or more will be identified
on the Policies Map.
Most people have easy access to a good quality park for formal and informal
recreation and play, while Darlington’s impressive play offer means that most
children have easy access to adventurous play, for example at West Park and
Broken Scar. Wildlife friendly spaces including Local Nature Reserves and Local
Wildlife Sites provide most people with access to a quality natural
environment (see draft MGP 25), and a complementary network of smaller
spaces provide for informal recreation e.g. walking, jogging, close to homes
and work.
However, quantity, quality and access to different types of open space varies
between localities7.36 within the Borough (see Appendix 8 for map)7.35. For
instance the North East would benefit from more children’s play space, while
people living in the South East would benefit from better access to a park. So it
is important that a draft policy reflects the different open space characteristics,
needs and aspirations of people that live in each part of the Borough.
121
7.37
see Planning Obligations
SPD, DBC, 2013
7.38
Major new development:
20 or more dwellings or
1000m2 gross non
residential floorspace
7.39
7.40
Maintenance levy: annual
sum paid by the
houseowner or property
owner to an independent
body or management
company to enable the
long term maintenance of
green space
November 2010
7.3.10 These unmet needs will remain unless existing spaces are put to new uses
and/or new spaces are provided. Projects7.34 to increase use of existing spaces
to meet residents needs, including Salters Lane Community Garden and The
Banks, Middleton One Row are underway, where community groups have got
funding from organisations like the National Lottery for the works. Elsewhere
planning obligations, secured with new development, may also be used7.37.
7.3.11 As the Borough is relatively rich in the amount of green infrastructure it
contains, new open space will only be sought as part of major new
development7.38 where the amount and mix of development proposed requires
substantial green infrastructure to deliver a sustainable new neighbourhood,
or to create an appropriate business or leisure environment. The Council
recognises it is not always possible to achieve this all on site; in those cases,
equivalent off site provision will be sought7.38.
7.3.12 Quantity standards (see draft policy MPG 24) will be used to ensure that there
is enough accessible open space overall and for each open space function
throughout the plan period, taking account of population change (to 2026)7.35.
Standards take account of the amount and location of existing space, and
planned losses/gains of space, and the amount and location of new
development. Spaces must also be of the appropriate quality and within a
reasonable walking distance of most people’s homes to ensure they are used
positively. The standards proposed will also help guide the use of resources,
including those that may arise from planning obligations7.37 and the
Community Infrastructure Levy.
7.3.13 Provision should also be made for open space maintenance to ensure quality
remains. For new large greenspaces, particularly those in the strategic
locations, a maintenance levy7.39 will be applied, to ensure long term
maintenance by a management company. Elsewhere, where agreed, a one off
maintenance contribution may be sought so that maintenance can be
undertaken by the Council7.35.
7.3.14 Two options for protecting and improving green infrastructure have been
considered and consulted on previously, in 20107.40:
a)
identify green infrastructure over 1ha or more in the urban area and 0.1ha
in the villages that have been identified as a necessary part of the future
green infrastructure network in an adopted strategy, and/or, have been
identified as requiring quality and/or access improvements to meet the
communities needs;
b) in addition, include any sites identified through the consultation.
7.3.15 Reflecting more recent issues the following options have also been considered:
c)
protect all green infrastructure in the Borough irrespective of size,
eliminating spaces which are better retained for alternative uses, but only
identify sites of 0.1ha or more on the Policies Map for legibility;
d) establish an overall quantity, quality and accessibility standard for
accessible greenspace and for each type of open space;
e)
f)
in addition to b), establish standards for each locality area;
where appropriate, identify the indicative amount of open space to be
provided with major new development;
g) negotiate open space provision on a site by site basis.
122
7.3.16 Open space standards of provision: Option d) which identifies a quantity,
quality and accessibility standard for accessible greenspace at a Borough and
locality level and for each type of open space, will ensure that there is enough
accessible greenspace in the Borough to meet resident’s needs in the long
term. Without standards local open spaces may be lost to development and
the mix of uses may not meet resident’s needs.
7.3.17 Green space provision through new development: Option f) will ensure
that new development provides the right amount and type of green space to
meet its needs, based on a clear approach7.34 (set out in Appendix 7), rather
than providing open space in a piecemeal fashion, which can lead to an
undersupply of certain types of open space in some areas. It will ensure
developers are aware from an early stage of the requirements for open space
from major new development.
7.3.18 In earlier consultations7.40, issues identified included identifying and protecting
all areas of existing and potential green infrastructure, ensuring all new
development provides enough greenspace to meet its needs, protecting trees
and providing enough allotment sites. However, all green infrastructure will be
protected by draft policy MGP 23, more guidance on trees is provided (see
draft policy MGP 25) and five new allotment sites are identified to meet an
identified demand in draft policy MGP 23. The new standards of provision will
ensure that the amount of open space is kept at an appropriate level to meet
the needs of residents while draft policy MGP 23 and Appendix 6 identifies the
amount of new open space to be provided for by major development.
7.3.19 The sustainability appraisal found that a combination of options b), c) and f)
will provide the most opportunity to improve the quantity, quality and access
to green infrastructure in the Borough. Taking all the above into account,
option b), in combination with options c) and f) is the preferred option,
having eliminated spaces which are better retained for other uses. It is made
up of spaces identified previously7.35, new smaller spaces, and new open space
provided with new development7.35.
7.41
20 plots per 1000
households, National
Allotment Society
Allotments – issues and options
7.3.20 Allotments provide residents with space to grow their own fruit and
vegetables. With 0.3ha per 1000 people (equivalent to about 24 plots/1000
households)7.35, Darlington’s allotment provision is slightly above the national
average7.41 but it is concentrated in the more densely populated parts of the
urban area, and parts of Faverdale, Cockerton West, College, Harrowgate Hill,
Eastbourne and Park West wards lack provision. There has been a recent surge
in demand, with an estimated 300 people currently on the Council’s and self
managed sites waiting lists. This indicates a need for more allotments, which
could be provided by making better use of existing allotment space, including
reducing the size of existing plots as they are released and/or providing new
allotment sites, and/or providing more opportunities for people to get
involved in growing plants, e.g. through community gardens. In the rural area
sites are managed by Parish Councils and self managed associations; all have
on average between 4-6 people on their waiting lists, which they are able to
manage through natural turnover.
123
a) to provide enough new allotment sites to meet the needs of the waiting list
during the plan period;
b) to provide enough allotment sites to provide for half the waiting list
through new provision and make better use of existing allotment sites and
community gardens to provide for the remaining half.
7.3.22 Option a) would require the identification of a significant amount of new
land, which is either currently unused or used as another type of open space.
The identification of new sites was constrained by the specific requirements
for new allotments, e.g. good quality uncontaminated soil, ability to connect
to a water supply, sufficient space for on-site car parking. It was also limited
to only lower quality open spaces in the urban area. As such, insufficient land
could be identified to deliver this option.
7.3.23 The sustainability appraisal found that Option b) is the preferred option as it
will deliver a more sustainable and manageable approach to increasing
allotment space than Option a).
7.3.24 Option b) is therefore the preferred option. An assessment7.35 identified two
small spaces in Harrowgate Hill and Cockerton West that could be converted
to allotments to address unmet demand in these areas. Also, the existing
Barmpton Lane Allotments Association have expressed interest in extending
their site into land to the north, by securing funding from organisation like the
National Lottery. Elsewhere, the potential developers of the North Western and
Eastern Urban Fringes (see draft MGP 5 & 6) have indicated that allotments
will be incorporated into their green infrastructure provision.
7.3.25 These five potential new allotment sites could provide at least 168 full plots or
about 250 full and half plots, meeting over half the waiting list demand.
Changing full plots to half plots on existing sites as they become available,
and the promotion of local food production in community gardens, could
meet the rest of the demand.
124
Policy MGP 23: Green Infrastructure
Green infrastructure will be protected, and where appropriate, improved and extended
to provide a quality, safe and accessible network of well connected, multifunctional
open spaces for recreation and play and to enhance visual amenity, biodiversity,
landscape and productivity. This network and its key features will include:
A) Strategic and local green corridors. All new development within 30m of the centre
line of a strategic green corridor and 15m of the centre line of a local green
corridor should, through good design, seek to conserve and enhance the function,
setting, biodiversity, landscape, access and recreational value of the corridor;
7.42
Locally Important Open
Spaces: accessible parks,
cemeteries, wildlife
friendly greenspace, green
corridors, informal open
space, landscape amenity
space, children’s play
areas, civic spaces
7.43 Local Green Spaces: spaces
close to the community it
serves, which has local
significance, is local in
character and is not an
extensive size
B) Priority projects identified in the Darlington Green Infrastructure Strategy;
C) Locally Important Open Spaces7.42 in accordance with adopted standards in draft
policy MGP 24;
D) Allotments;
E)
F)
Local Green Spaces7.43 in draft MGP 22;
Wildlife friendly greenspaces identified in draft policy MP25;
G) Green wedges identified in draft policy MP22;
H) Parklands identified in draft policy MP22;
J)
About 46.06ha of new accessible multifunctional open space provided for through
major new residential development identified in Appendix 6 :
K) About 22.74ha of new wildlife friendly greenspace provided for, over the plan
period, through non residential development identified in Appendix 7:
L)
New allotments on:
1.
2.
3.
4.
5.
land at Muscar House Farm (50 plots) (by 2015);
land within the North West Urban Fringe (50 plots) (by 2021);
land at The Ridgeway (12 plots) (by 2016);
land within the Eastern Urban Fringe (50 plots) (by 2026);
land to the rear of Bylands Way (6 plots, by 2016)
M) Ensuring that all major development includes high quality structural landscaping
along its boundaries and between different uses.
All sites of more than 0.1ha are identified on the Local Plan Policies Map.
125
MGP 24: Green Infrastructure Standards
Within the Darlington urban area, open space will be maintained and enhanced to
achieve the following overall standards of provision:
A. 6.0 ha of open land per 1000 people, of which 4.9ha per 1000 people will be
accessible open space to bring 95% of people within a 15 minute walk (1000m) of
an accessible space;
B.
0.99 ha of parks per 1000 people and so that all parks are at least 4* quality;
C. 4.1 ha of informal recreation space per 1000 people so that all spaces are at least
3* quality;
D. 1.7 ha of children’s play space per 1000 children so that all spaces are at least 4* quality;
E.
F.
3.2 ha of wildlife friendly greenspace per 1000 people so that 65% of spaces are
at least 3* quality and 25% are 4 star quality and above;
1 ha Local Nature Reserve per 1,000 people to bring 95% of people within 1km of
a Local Nature Reserve identified by draft MPG 25;
G. 0.30 ha of allotment space per 1000 people.
Within each locality, accessible open space will be protected and improved to achieve
the following standards of provision:
Accessible
open space
Parks
Informal
recreation
space
Wildlife
friendly
greenspace
Children’s
play space
Ha per 1000 people
children aged 0-16
A. North West
3.7ha
0.3ha
3.2ha
2.7 ha
1.3ha
C. South East
4.8ha
0.4ha
4.5ha
3.0ha
1.2ha
E. North East
5.8ha
0.6ha
4.7ha
3.4ha
3.6ha
B. Central
D. South West
3.5ha
6.0ha
0.3ha
0.3ha
3.7ha
5.0ha
2.7ha
3.7ha
2.5ha
1.0ha
Other accessible green space should be maintained to the following quality standards:
A. Green corridors: to be at least 4* quality and above;
B.
Landscape amenity space: at least 3* quality and above;
C. Cemeteries: at least 4* quality and above;
D. Civic spaces: all spaces to be 5* quality.
Outside the urban area provision of open space will be protected and improved where
appropriate, so that 80% of sites are maintained at 3 star quality or above, with at
least 30% being 4 star quality or above.
In areas of open space deficiency, where it is feasible or viable, the following open
space provision should be made to meet the needs of the new development:
1.
2.
3.
126
5 dwellings (or 0.1ha) or more or 500m2 gross non residential floorspace or more
will be required to make provision for off site accessible open space;
20 dwellings or above (or 0.2ha) or 1,000m2 or above gross non residential
floorspace will be required to make provision for accessible open space as required
by draft policy MGP25, primarily on site for design, amenity and community reasons;
In the strategic development locations, open space provision will be expected to
be met on site.
7.3.26
Making it Happen
•
•
•
•
•
•
Operating the Council’s development management function;
Preparing masterplans for each of the strategic locations;
Implementing the emerging Darlington Green Infrastructure Strategy;
Delivering the Tees Valley Biodiversity Action Plan;
Preparing Planning Briefs and other non statutory plans;
Supporting Friends Groups, self managed associations and community
groups to securing funding to improve, manage and maintain specific
locally important spaces.
127
7.4 PROTECTING AND ENHANCING BIODIVERSITY
AND GEODIVERSITY
7.4.1
7.44
7.46
Designated sites: Sites of
Special Scientific Interest,
Local Nature Reserves,
Local Wildlife Sites,
Community Woodland
7.4.2
Natural Environment and
Rural Communities Act
2006, Conservation of
Habitats and Species
Regulations 2010
7.4.3
7.46
7.47
7.48
7.49
7.50
128
as identified by the
emerging Darlington
Strategy, DBC, 2013
Biodiversity 2020: A
Strategy for England’s
wildlife and ecosystem
services, DEFRA, 2011
7.4.4
7.4.5
identified by the Tees
Valley Biodiversity Action
Plan, Tees Valley Nature
Partnership, 2013
e.g. breaking down waste
products, regulating water
and air quality, pollinating
food and climate control
in accordance with the
Design SPD, DBC, 2011
7.4.6
7.4.7
Core Strategy Policy CS15 sets out the broad principles for protecting and
enhancing biodiversity and geodiversity. This policy aims to expand upon
CS15 and in particular, the effect of new development on biodiversity and
geodiversity assets (point 2 of CS15). It will provide more detail on how
potential impacts will be considered, to give more certainty to applicants and
decision makers. Some practical design advice is also provided in the Council’s
Revised Design of New Development SPD (section 6.10).
Darlington’s 42 nationally and locally designated wildlife sites7.44 provide
different levels of protection for a growing range of protected and priority
habitats and species, including the Noctule and Soprano Pipistrelle Bat and
Goosander. Nationally protected sites, including Neasham Fen SSSI and
Drinkfield Marsh Local Nature Reserve, will continue to be protected and
enhanced, consistent with national legislation7.45 and the objectives in their
management plans, while Local Wildlife Sites and Community Woodland have
local protection. Three Local Geological Sites protect areas of geological value
in the Borough.
Three new Local Nature Reserves will be designated at Red Hall, Cocker Beck,
and Mill Lane, while Brinkburn and Maidendale LNRs will be extended to
provide greater protection for the protected and priority habitats and species
that live there7.46. This will also help the Borough meet the national nature
reserve standard identified in draft Policy MGP 24.
In comparison to neighbouring authorities, Darlington does not have much
designated land of a European or National Level, so the 300ha of other local
wildlife friendly greenspaces, for example, Cocker Beck and Baydale Meadows,
are also of high importance. They allow wildlife, including protected Water
Voles and Great Crested Newts to move between designated spaces for
feeding, mating and migrating, so helping to ensure biodiversity remains
viable in the long term.
‘More, better, bigger and connected sites’7.47 across the Borough, linked by
wildlife corridors, smaller wildlife rich ‘stepping stones’ and ‘buffer zones’ (see
draft Policy MGP 24), such as along the green corridors, will help establish
healthy ecological networks for all species7.48, including the Brown Trout, Little
Grebe and Grey Wagtail, and allow ecosystems to be sustained, with
attendant benefits7.49.The alternative, managing spaces in isolation, could lead
to a decline in their number, quality and mix, potentially resulting in habitats
being lost and the beneficial functions of ecosystems being reduced.
Connectivity will be improved along watercourses, including the strategic River
Tees and River Skerne, public rights of way and railway lines and along field
margins in the rural area7.46, to ensure species can move easily across and
beyond the Borough. Improving the wildlife value of lower quality urban
greenspaces will provide valuable habitats for species, including the Dingy
Skipper and Holly Blue butterfly, and nesting birds like the Song Thrush and
Spotted Flycatcher, which are in serious decline.
There are also big opportunities to increase the stock of protected and priority
habitats and species through well-designed new developments7.50, especially in
the strategic locations. Development at Central Park (see draft Policy MGP3)
and in the Town Centre Fringe (see draft Policy MGP4) particularly, will enrich
biodiversity in areas of limited provision.
7.4.8
7.51
7.52
Phase 1 Habitat Survey:
assess habitats present,
rare plant species and
whether the habitat has
potential to shelter
protected or BAP species
submitted with a planning
application.
7.4.9
7.53
7.54
7.55
detailed in the
Conservation of Habitats
and Species Regulations
2010
Through Tree Preservation
Orders
Planning Obligations SPD,
DBC, 2013
Biodiversity varies according to location and the presence of protected and
priority habitats and species. The type and level of assessments required
alongside new development proposals will reflect biodiversity value, and a Phase
17.51 Habitat Survey (Extended), tree surveys and/or detailed species surveys may
be required if protected or priority habitats and species are likely to be
present. Through an Ecological Masterplan7.50 and/or the Design, Access and
Sustainability Statement7.52, the design and layout of new development should
be informed by, and respond positively to, the ecological value of the site and
the immediate environment and show this will be protected and enhanced.
Even where little biodiversity exists, functional ecological networks should be
created; landscaping schemes and green roofs and walls can provide nesting
sites, roosting sites and shelter for birds, bats and amphibians. Provision in or
adjacent to a green corridor or a designated site, should be informed by the
strategic aims of the corridor7.45 or the site’s management plan.
Where internationally and nationally protected species, such as the otter and
water vole are identified, development should protect them and their breeding
and resting places from disturbance or injury. This will be monitored through
application of the derogation tests set out in national legislation7.53.
7.4.10 With the exception of protected species, where a licence may need to be
sought from Natural England, impacts which are unavoidable, should be fully
mitigated for within the locality. Appropriate enhancements can include
maintaining existing priority habitats, creating new habitats, providing
sustainable drainage schemes with wetlands and reedbeds (see draft Policy
MPG 34), new native woodland and street trees and the protection of existing
trees7.54 on or off site, particularly in the strategic locations. Planning
conditions and/or planning obligations7.55 may be used to secure mitigation.
7.4.11 Off site mitigation measures will only be considered where there are justifiable
ecological reasons that would result in a more appropriate solution to
potential impacts on Biodiversity as a result of development. This may include
the relocation of a species or habitat to a more favourable location owing to
existing circumstances or the creation of new habitats in an area nearby that
will have a greater gain in Biodiversity than that which can be provided on
site. Such provision would be an exception from the normally accepted choice
of providing on site mitigation measures and will therefore be expected to
clearly set out in the supporting ecological study why off site provision would
be the superior solution. It is not considered that geological mitigation could
be provided off site and satisfactory on site solutions should be found if
planning permission is to be granted.
7.4.12 To ensure suitable schemes are brought forward and that the long term
quality of all biodiversity features proposed is maintained, a masterplan,
showing how the features will be designed should be submitted with any
major planning application, together with a management and maintenance
plan, showing how the features will be maintained in the long term, and this
should be submitted with any planning application. A maintenance
contribution secured via a Section 106 agreement may be required7.55.
129
Preparing a Draft Policy; the Preferred Option
7.4.13 Given the important role of biodiversity in providing the basic life support
system that we all depend upon, the only option considered was to recognise,
protect and value the different biodiversity sites and features in the Borough,
and to improve the biodiversity value of degraded areas, so that there is no
net loss of biodiversity in Darlington in the long term.
7.1.14 In preparing this draft policy a Sustainability Appraisal has been undertaken of
the policy options Option A (to rely on national policy) would have positive
impacts against several objectives, since national policy does contain some
provisions for protection of biodiversity. However it would have negative
impacts against others since these protections are not adequate to meet the
criteria of various objectives. Options B (a local policy to recognise, protect
and value the different biodiversity sites and features in the Borough) and C
(local policy to improve the biodiversity value of degraded areas) are both
rated well against multiple objectives. In some cases this positive impact is
dependent on certain things being included in the policy, namely: wetland
creation, flood management measures, river restoration and tree planting, and
the application of Secured by Design principles to the design of new green
space. In addition the positive impact on economic objectives is dependent on
any active businesses displaced by habitat creation projects relocating to
elsewhere in the town. The sustainability appraisal indicated that Options B
and C were the most favourable
Draft Policy MGP 25: Biodiversity and Geodiversity
and Development
The Council will ensure that sites and features of biodiversity and geodiversity
importance are given full and appropriate recognition and protection.
Development should provide for no net loss in biodiversity or geodiversity by:
a)
protecting and mitigating any impact upon protected species, to be monitored
through application of the derogation tests detailed in the Habitats Regulations;
and;
b) significantly and demonstrably enhancing the quality, extent and mix of priority
habitats and species identified in the NERC list (see appendix 6)
i)
ii)
providing new habitats; and/or
creating, improving or extending ecological networks; and/or
iii) improving opportunities for public enjoyment.
Within the areas listed below, as identified on the Policies Map, specific actions will be
taken as follows:
A) River Tees Strategic Corridor: encourage protection and enhancement of
connections between different parts of the ecological network through:
•
•
•
•
•
•
130
creating quality riverside habitat in buffer zones (see Policy MGP 24)
managing agriculture less intensively;
planting native trees and ground plants;
diversifying the mix of wetland and wet woodland habitats;
management of invasive species;
creating artificial habitats such as otter holts, bird boxes.
B) River Skerne Strategic Corridor: encourage improvements to the value and
ecological mix to:
•
•
•
•
•
•
•
provide quality priority habitats and species in the buffer zone;
restore the natural river course and systems and character, e.g. meanders
and earth bank sides;
retain the natural floodplains;
incorporate sustainable drainage systems;
plant more native broadleaved, trees, grassland and wetlands to
accommodate a range of protected and priority habitats and species;
incorporate green features, such as green roofs and green walls; and
manage invasive species.
C) Rural area (see Policy MGP 8,9 &10): promote the reinstatement of traditional
species rich field margins and hedgerows & trees, along with new opportunities
for mixed habitats, including Meadow, woodland and wetlands, to provide greater
connectivity for wildlife.
D) Nationally and locally designated wildlife sites: protect, maintain, manage and
where appropriate extend, in accordance with their management plans, including:
4 Sites of Special Scientific Interest (SSSIs),
7 Local Nature Reserves (with extensions at Maidendale and Brinkburn),
28 Local Wildlife Sites
3 Community Woodlands, and
Ancient woodland
E) Local Nature Reserves; designate new sites which meet the Natural England
Criteria, to ensure the protection of land and species including Red Hall Wetland,
Mill Lane (spanning the Skerne), and Cockerbeck.
F)
Wildlife friendly greenspaces, parks and parklands: Protect and improve their
wildlife value (appendix 6).
G) Local Geological Sites (LGS’s): protect the existing sites at Killerby (North Lane
Quarry), Houghton-le-Side (Disused Quarry, Side Hill) and High Coniscliffe Quarries
(Disused), and designate new sites, as appropriate.
Applicants proposing development within or adjacent to the above sites that are likely
to impact upon their biodiversity and/or geodiversity will need to follow the following
sequence of actions to identify and adequately mitigate impact on
biodiversity/geodiverisity, and submit evidence that this process has been followed
with any planning application :
1.
establish the type and mix of habitats present and any likely impacts on the habitat;
3.
where protected species are present, further survey work will be required to comply
with Habitats Regulations7.53 including fulfilling the three derogation tests.
2.
4.
for any habitats adversely affected, undertake an Extended Phase 1 Habitat Survey,
and identify appropriate mitigation;
take account of and reflect the detailed advice set out in the Darlington Green
Infrastructure Strategy and Revised Design of New Development SPD.
If impact cannot be adequately mitigated, compensatory measures to mitigate for the loss
must be included, including the creation of priority habitats, as detailed in NERC list at
Appendix 6. ), with the first priority being on site provision. Only with adequate reasoned
justification will any off site mitigation measures be permitted, and such provision would
be secured by Section 106 contribution or Community Infrastructure Levy.
131
7.5 OUTDOOR SPORTS FACILITIES
7.56
2011, Policy CS18
7.57
Darlington Playing Pitch
Strategy, PMP, 2009
Context
7.5.1
7.5.2
7.58
7.59
Darlington Sport and
Recreation Facilities
Strategy, PMP, 2009
as set out in the Green
Infrastructure Topic Paper,
DBC, 2013
7.5.3
The Darlington Core Strategy7.56 recognises the important role quality, accessible,
managed outdoor sport and recreation facilities can have on residents’ health and
quality of life. Since 2011 it has helped increase participation in sport in Darlington
to 24.2%, currently the highest in the Tees Valley7.57. It aims to protect, enhance and
extend this sporting offer, to ensure that provision meets residents’ needs now and
in the future. As a result, any loss of sports facilities will only be considered in
exceptional circumstances in accordance with the criteria in the Core Strategy7.56.
Outdoor sports and recreation facilities cover playing fields and synthetic turf
pitches as well as a wide range of other facilities for tennis, bowling, golf,
athletics and cycling, in the urban area and the villages. Between them, they
enable people to enjoy sport at parks, schools and private clubs, either for
casual, ‘pay as you play’ or competitive use. Complementary indoor sports
facilities are covered by draft Policy MGP 31.
Through investment, management and maintenance, the most effective use
will be made of the network in the future, consistent with the priority actions
identified in other Council strategies7.57, 7.58.
7.5.4
A range of issues associated with protecting, extending and improving playing
fields and outdoor sports facilities in the Borough have been considered, and
are set out below, together with a summary of the options that were
considered to address them.
Playing fields: Issues and options
7.5.5
7.60
Secure community use:
guaranteed access to the
facility out of hours for
organised community
groups and teams
7.5.6
7.5.7
132
Consistent with the Core Strategy7.56, playing fields are provided and
maintained in accordance with a hierarchy of provision. Within each playing
field, a number of playing pitches can be marked out, sizes are different for
adults and juniors, and the mix of pitches can vary to reflect the sporting
seasons. The focus are the three managed hub sites at Blackwell Meadows,
Eastbourne Sports Complex and Longfield Academy which provide facilities for
different sports for adults and juniors, and have changing rooms and car
parking. All have secure community use7.60 and provide for competitive league
matches as well as ‘pay as you play’. A complementary network of smaller
satellite sites including schools, parks and sports clubs provide for pitch sports
closer to home and work. Single pitch sites in open spaces are the lowest tier
and have no changing rooms or car parking. Continued use of this hierarchy
will ensure provision best meets local needs and future demands, and
encourages greater participation in sport in a cost effective way.
The amount, quality, carrying capacity and accessibility of each playing field in
the urban area and villages has been assessed7.59 to determine whether there is
enough provision to meet the demand for football, rugby union, cricket and
hockey for adults and juniors, now and in 2026. All playing fields will be
protected by this draft policy and will be identified on the Policies Map.
Quantity, quality and access to playing pitches varies, and for each type of sport7.57.
Darlington’s 109 playing pitches provide for adult and junior football, rugby union,
cricket and hockey. Accessibility, particularly to educational facilities, has increased
significantly in the last five years; 74% of pitches now have secure community use,
but securing access to the remaining pitches at schools is important, particularly
in areas where access to sports facilities is otherwise limited, e.g. villages.
7.5.8
7.5.9
Pitch quality tends to be lower in open spaces, including the three playing
fields at Glebe Road, Eastbourne School and Springfield School identified by
draft policy MPG 16 for future housing development7.59. All are below average
quality single playing fields and are not capable of accommodating league
matches, have no changing rooms or car parking, and are also used by
residents for informal recreation. These will be re-provided at a managed hub
and/or satellite site, for example Blackwell Meadows. As a result each pitch will
be laid out to a higher quality, making it able to accommodate more matches
a week, helping to reduce the overall amount of new pitches required over the
long term. Secure community use will also be a requirement, and playing pitch
re-provision will be phased, so that development will only start once the
replacement pitch is available for use, so teams will experience no disruption
to their programmed matches and training.
About 33.98 hectares of playing fields will be needed in 20267.59 for adult,
junior and mini football, rugby union, cricket and hockey, unless more pitches
are provided and quality and accessibility improvements to existing pitches are
made. The shortfall of junior football at peak times is likely to increase from
12 junior football pitches to 15.9 in 20267.59. Provision will also need to
respond to the changing requirements of football; in the next few years
changes are expected to be made to the way junior football operates, with
mini soccer expected to be more common. Work is still ongoing to agree the
detailed requirements for junior and mini soccer as part of a Playing Pitch
Strategy Review.
7.5.10 A shortfall of four junior rugby union pitches will increase from 4.0 to 4.5 in
2026 while adult rugby players will need an additional pitch over the same
timescale; Mowden Park Rugby Football Club, which has recently relocated to
Darlington Arena, aspires to create a new hub site with at least five new rugby
union pitches (about 7.8ha of playing fields). This is expected to meet the
demand for rugby union in the Borough in the long term. Provision for adult
football, as well as cricket and hockey meets demand.
7.61
Planning Obligations SPD,
DBC, 2013
7.5.11 Additionally, it is expected that new playing fields will only be provided on site
at the strategic locations where the size and mix of development proposed
requires sports facilities to deliver a sustainable new neighbourhood. In the
long term, the potential developers of the North Western and Eastern Urban
Fringes (see draft policies MPG 5 and MPG 6) have indicated a hub site could
be accommodated within their masterplans; about 8ha of playing fields will be
provided at each, which could include any requirements from new schools.
Provision will be phased to reflect the delivery timescales for housing in these
locations, ensuring that playing pitch provision is delivered steadily over the
plan period to meet the needs of residents at that time. For all major
development elsewhere, a financial contribution may be sought to provide or
improve playing fields in the Borough7.61 in accordance with the priorities of
Council strategies.
7.5.12 These two new playing field hubs and the new hub site at Darlington Arena
could provide at least 15 pitches, meeting two thirds of the demand. In the
medium term, Darlington Football Club also aspire to return to the town and
would require new playing fields. Additionally the development of new
schools potentially at Lingfield Point or the Town Centre Fringe will require an
appropriate amount of playing fields to meet the curriculum needs of the
pupils. For all new educational facilities, secure community use will be
required, secured via planning condition attached to a planning permission.
This will help reduce the shortfall further. Outstanding shortfalls will be met
through improving the quality of existing pitches and securing access to
educational facilities.
133
7.62
7.63
Maintenance levy: annual
sum paid by the
houseowner or property
owner to an independent
body or management
company to enable the
long term maintenance of
green space
November 2010
7.5.13 A quantity standard will be used to ensure that there are enough playing
fields overall, throughout the plan period, taking account of population
change (to 2026)7.59. Standards take account of the amount of playing fields
and planned losses/gains, the quality of pitches and their ability to
accommodate an appropriate number of matches a week, and the amount
and location of new development. The standard proposed will also help guide
the use of resources, including those that may arise from planning
obligations7.61 and the Community Infrastructure Levy.
7.5.14 Provision should also be made for maintenance to ensure quality remains. In
the strategic locations, a maintenance levy7.62 will be applied, to ensure long
term maintenance by a management company. Elsewhere, where agreed, a
one off maintenance contribution may be sought, so that maintenance can be
undertaken by the Council7.62.
7.5.15 Two options for protecting and improving playing fields were considered and
consulted on previously7.63:
a)
identify land for new playing pitches in the urban area and the villages that
have been identified as a necessary part of the Borough’s sporting offer in
the Playing Pitch Strategy, and/or, have been identified as requiring quality
and/or access improvements to meet the communities needs;
b) in addition include any sites identified through the consultation.
7.5.16 Reflecting more recent issues identified above the following options have also
been considered:
c)
identify an overall quantity standard for playing fields;
e)
provide at least two thirds of the identified amount of playing fields
through new provision at the North Western and Eastern Urban Fringes
and Darlington Arena and improve the quality, management and
accessibility to existing playing pitches, to improve provision overall.
d) provide the shortfall of playing fields as new sites during the plan period;
7.5.17 Option d) would require the provision of a significant amount of land which is
either currently unused or used as another type of green infrastructure. The
identification of new sites was constrained by the specific requirements for
new playing fields, e.g. good quality, uncontaminated soil, land that is not
required to be left open as a flood plain and the ability of the site to be
managed through a school, club or community facility. Not enough land could
be identified to deliver this option.
7.5.18 The sustainability appraisal found that option b) in combination with options
c) and e) would maximise local residents ability to participate in sport as a
result of an appropriate number of quality, accessible playing fields to meet
their needs in the long term. The new hub sites in the North Western and
Eastern Urban Fringes will be re-assessed by the sustainability appraisal once
their location has been identified through the masterplan process (see draft
policies MGP 5 and MGP 6) to ensure their provision is sustainable.
134
7.5.19 Taking into account the conclusions above and the findings of supporting
documents, to ensure that there are enough playing fields planned for over
the long term to meet residents needs, option b) (of the two options
considered previously7.64) is the most sustainable in combination with options c
and e, after the re-location of single pitches has taken place. The portfolio
includes those playing fields identified previously with additional playing fields
included that have been provided since 2010, for example at Blackwell
Meadows. This also takes into account the provision of three new hubs at
Darlington Arena and at the North West and Eastern Urban Fringes (see draft
Policies MGP5 & 6). Securing community use at other educational sites and reproviding lower quality unmanaged single pitches to hub/satellite sites could
meet the remainder of the demand.
Other outdoor sports facilities – issues and options
7.5.20 Access to the Borough’s other sports facilities varies, as does its quality and
spare capacity. Current sport and recreation provision will be maintained,
focussing on improving quality and access, for example at Eastbourne Sports
Complex. Opportunities for new facilities that complement existing provision
should be in accordance with the hierarchy set out in the Core Strategy7.56, for
example at Lingfield Point (see draft Policy MGP4).
7.5.21 In recent years, access to sports facilities at educational sites has improved,
with only 26% not providing access out of school hours. Several schools have
successfully converted to Academy status and new and improved facilities
have been provided as a result, for example new tennis courts are being
provided at Longfield Academy.
7.5.22 As most sports provision is market led or otherwise outside Local Authority
control, quality and access improvements can only be secured through the
planning system by attaching conditions to planning permission for
extensions, alterations or for new facilities.
7.5.23 Two options for protecting and improving sports facilities were considered and
consulted on previously7.63:
a)
identify land for new sports facilities in the urban area and the villages
that have been identified as a necessary part of the Borough’s sporting
offer in the Sport and Recreation Facilities Strategy, and/or, have been
identified as requiring quality and/or access improvements to meet the
communities needs;
b) in addition, include any sites identified through the consultation.
7.5.24 Two new sites were identified through the consultation so option a),
supported by the findings of the sustainability appraisal, is the preferred
option. It will ensure that existing and new facilities are protected, based on a
clear approach7.63.
135
Draft Policy MGP26: Outdoor Sports Facilities
Within the Borough, playing fields will be maintained and enhanced to achieve 0.85 ha
of playing field per 1000 people in the Borough. This will include:
a)
playing fields that have been identified in the Darlington Playing Pitch Strategy;
c)
a new playing pitch hub at Darlington Arena (about 7.8ha) (by 2017);
e)
a new playing pitch hub within the Eastern Urban Fringe (about 8ha) (by 2026).
b) new playing fields at Blackwell Meadows (about 3.04ha) (by 2014);
d) a new playing pitch hub within the North West Urban Fringe (about 8ha) (by
2024);
In addition land will be reserved for playing fields at the Town Centre Fringe and
Lingfield Point to meet the curriculum needs of new primary and secondary schools
identified in the Borough. If new schools are not required in these locations (draft
policies MGP 3 & 4 refer), then the land should be made available for other community
sport. If this cannot be delivered within a reasonable time, the land may be released
for additional new housing.
Other outdoor sports facilities will be protected, and where appropriate, improved and
extended, to provide a safe and accessible network of quality facilities for outdoor
sport. This will include:
i)
ii)
All outdoor sports facilities that have been identified in the Darlington Sport and
Recreation Facilities Strategy;
New outdoor sports facilities at Lingfield Point (by 2026);
All will be protected and identified on the Local Plan Policies Map.
If there is a deficiency of playing fields or outdoor sports in the Borough, where it is
feasible or viable, the following provision should be made to meet the needs of new
development:
1.
2.
10 dwellings (or 0.2ha) or more or 1000m2 gross non residential floorspace or
more will be required to make provision for off site outdoor sport facilities in
accordance with the Planning Obligations SPD
in the strategic development locations, provision will be expected to be met on
site. Site specific requirements will be set out in draft policies MGP 3, 5 and 6.
Making it Happen
•
•
•
•
•
•
136
Through operation of the Council’s development management function;
Through preparation of masterplans for each of the strategic locations;
Through operation of the Darlington Playing Pitch Strategy;
Through operation of the Darlington Sport and Recreation Facilities Strategy;
Through preparation of Planning Briefs and other non statutory plans.
Through academies, private clubs, Parish Council and other organisations
securing funding to improve, manage and maintain facilities.
8. EFFICIENT AND EFFECTIVE
TRANSPORT
8.1 DELIVERING A MORE SUSTAINABLE TRANSPORT
NETWORK
Context
8.1.1
It is vital that the Borough is accessible by a choice of transport modes and
that improvements to the transport infrastructure encourage sustainable travel
to and from all the growth areas within it, to neighbouring regional centres
and to strategic transport facilities such as Durham Tees Valley Airport,
Teesport and the East Coast Mainline. Owing to its location and existing
infrastructure, Darlington Borough also has a key role to play in delivering the
wider vision for sustainable transport across the Tees Valley. The transport and
travel needs of those with impaired mobility (such as disabled and elderly
people, parents with small children and wheelchair users) is also integral to
this agenda.
Tees Valley Transport Context
8.1.2
Darlington is the gateway to the Tees Valley City Region, and contains many
key elements of the sub-regional transport network. Darlington is the point of
arrival for those arriving by road via the A1 and A66, by air via Durham Tees
Valley Airport and by rail from Bank Top Station on the East Coast main line.
Figure 8.1.1 shows the key features of the sub-regional transport network.
Figure 8.1.1: Key features of the sub-regional transport network
© Crown copyright and database rights 2013. Ordnance Survey 0100023728
You are not permitted to copy, sub-license, distribute or sell any of this data to third
parties in any form.
Source - Tees Valley Unlimited
137
8.1.3
8.1
published by Tees Valley
Unlimited, the Local
Enterprise Partnership
8.1.4
8.2
including local authority
representatives, the
Highways Agency,
Network Rail, Environment
Agency, PD Ports, Peel
Holdings, North East
Chamber of Commerce
(NECC), Confederation of
British Industry (CBI),
Arriva, Stagecoach,
Northern Rail.
The Council works closely with four other local authorities and both public and
private sector partners across the Tees Valley as a member of the Tees Valley
Local Enterprise Partnership (LEP), to promote the Tees Valley City Region for
economic growth and regeneration. The LEP’s Statement of Ambition sets out
a clear vision for the Tees Valley that responds to its economic geography and
builds on the strengths of each borough. It makes it clear that good transport
within and between the centres of activity is vital. The Tees Valley Economic
Regeneration Statement of Ambition and the Economic and Regeneration
Investment Plan8.1 reflect the links between transport, economic growth and
regeneration, and set out the priorities for delivering new transport
infrastructure across the Tees Valley.
Three transport challenges, based on the national transport challenges in place
prior to May 2010, have been prioritised by leaders in the Tees Valley, through
the TVU Transport Advisory Panel8.2, and confirmed by Transport for Tees Valley.
The challenges are to:
•
•
•
improve the journey experience of transport users of urban, regional and
local networks, including connectivity with national & international
networks. This could include improved public transport pick up and drop
off facilities, public realm improvements between public transport
methods, etc;
deliver quantified reductions in greenhouse gas emissions within cities and
regional networks, taking account of cross-network policy measures; and
improve the connectivity and access to labour markets of key business
centres.
Darlington Transport Context
8.3
8.4
including One Darlington
Perfectly Placed
Community Strategy,
2010.
8.1.5
Third Local Transport Plan
– Transport Strategy 2011
– 2026, DBC, March 2011.
Within the Borough, short and long term interventions to improve the local
transport network to meet the Council’s and wider community objectives8.3 for
the economy, carbon reduction, health and social inclusion are set out in the
Council’s Local Transport Plan 3 (LTP3)8.4. LTP3 seeks to maintain and improve
all aspects of the local transport system within tight financial constraints,
focusing on maintaining the transport network for all types of travel and
managing it to improve reliability and performance. The Key priorities of the
LTP3 are reflected in the Darlington Investment Plan and priorities for
delivering these improvements were prioritised as follows:
1.
2.
3.
8.1.6
138
4.
Improvements to Bank Top Station
A66 Capacity Improvements
A1(M) Junction 58 Improvements
Inner Ring Road Realignment
The Local Transport Plan and Sustainable Community Strategy both
acknowledge that the existing capacity of the road network is a major issue
for the Borough in delivering growth over the plan period. Some locations
already experience traffic congestion during peak periods and this is likely to
increase if no interventions are made. By focussing new development on parts
of the Borough which have good access to existing or planned public
transport provision, the spatial strategy of the Local Plan (see Policies CS1,
CS7, CS5 and CS10 of the Core Strategy) is designed to keep the impact of
new development on the transport network to a minimum, but some
supporting highway improvements will still be needed to enable regeneration
plans to be delivered.
Rail
8.1.7
8.5
8.6
8.7
Office of Rail Regulation /
Northern Rail LENNON
2009/10 data
Accession output,
including walk time
between town centres and
stations and any wait
times
8.1.8
AA Online route planner,
accessed October 2010,
does not include walk
time from car park to
destination
8.1.9
8.8
The County Durham Plan –
Local Plan Preferred
Options, September 2012
8.9
Department for Transport,
UK Port Freight Statistics:
2011 Final Figures
.
Darlington is the main interchange hub in the Tees Valley for national and
inter-regional rail connections, making it a ‘gateway’ for rail journeys into and
out of the Tees Valley. There are over 360,000 annual return trips from
Darlington to London stations8.5, and strategic rail connections to Scotland,
the Midlands and South West, and to Leeds and the North West.
However, in comparison to its excellent north-south connectivity, Darlington is
relatively inaccessible from other key centres within the Tees Valley and from
nearby employment areas of South Durham via the Bishop Line. Journey times
to Darlington from Middlesbrough and Stockton (as adjacent key centres) are
relatively poor, taking between 40-60 minutes8.6, compared to a journey time
of 19-23 minutes for car travel8.7, and there are currently no direct train
services from Stockton to Darlington. This relatively poor east-west
connectivity by rail within the Tees Valley impacts on the external connectivity
of the Tees Valley as a whole, reducing the attractiveness of the excellent
north-south links from Darlington to potential users from the rest of the Tees
Valley. However, capacity issues at Darlington are currently a constraint to
enhancing these local rail links.
Given the predicted increase in car ownership in the Tees Valley and the
advantage of car journey times, increased trips are forecast on the road
network. Therefore, improvements to local as well as long distance rail services
are sought by 2026.
8.1.10 Ensuring that rail freight can move easily to and from Teesport will be an
important issue during the Local Plan period, for example, in the operation of
the proposed Hitachi train manufacturing plant at Newton Aycliffe. The
Preferred Options for the County Durham Plan8.8 identifies its site at Aycliffe
Business Park, where the Hitachi Rail Plant is due to be located, as being one
of the key employment opportunities in the North East and it is intended that
components and other supplies required by the plant will be transported by
rail as often as possible. There are also plans for a rail freight facility at
Newton Park, Newton Aycliffe. For either of these sites to be well served by rail
from Teesport, improvements and upgrades to Bank Top Station are required.
Teesport is by some margin the most important port in the North East and the
fifth largest in the UK (by all freight traffic handled at 35.2m tones) and 4th
largest by oil and gas traffic in the UK8.9.
Roads
8.1.11 The main north-south road links to the Tees Valley are provided by the A1(M),
a key national motorway network link for the west of the City Region, while
the east of the City Region is served by the A19(T). The main east-west links
are provided by the A66(T) and A174(T). The Council is a partner in the
emerging Tees Valley Area Action Plan which will set out the strategic priorities
for the Tees Valley Local Enterprise Partnership. In Darlington, the priorities
are to improve key junctions serving the area from the A66(T) Darlington
Bypass and the A1(M) to avoid levels of predicted traffic congestion that will
prevent regeneration of employment areas.
139
Issues
8.1.12 The transport network in the Borough needs to sustainably facilitate the
economic development of the Borough, building on its locational strengths of
strategic road, rail, sea and air links that pass through the area or nearby.
8.1.13 In doing this, the transport interventions need to:
1.
2.
3.
4.
enable more jobs and homes without creating unsustainable levels of
traffic on the highway network;
effectively manage the demand for roadspace from all types of transport;
provide everyone with the ability to travel to training and jobs, especially
those without access to a car; and
improve Darlington’s strategic links so that it can continue to play its role
as a major gateway to the Tees Valley sub-region.
8.1.14 Transport schemes therefore are focused on
1.
2.
3.
4.
5.
6.
supporting and enabling the sustainable development of employment and
residential land;
minimising vehicle trips and trip lengths, especially single occupancy car
journeys;
promoting real travel choices for people to choose how they travel;
improving the safety and access for disabled people;
protecting radial and other key traffic routes within the area; and
promoting more active and healthier lifestyles.
Options Considered
8.1.15 This section is intended to replace Section 9 of the adopted Core Strategy,
including Policy CS19: Improving Transport Infrastructure and Creating a
Sustainable Transport Network. This is to reflect the more up to date transport
approach and investment priorities and acknowledges the more limited
funding available now for transport infrastructure schemes.
8.1.16 The option to prepare new policies alongside the Core Strategy policy was
considered, but rejected, because it would not provide the necessary clarity
about the Council’s transport and accessibility approach and priorities to users
of the Local Plan.
8.10
140
as required by NPPF,
paragraph 41.
8.1.17 In addition to recasting the strategic policy, the proposed policies also provide
more detail, e.g. identifying and protecting any routes which could be critical
in developing infrastructure to widen transport choice8.10. An access and
accessibility policy (MGP28) is also proposed, to support wider Council and
Community Strategy policies and objectives.
Preparing the Preferred Options for Policies MGP27 –
Delivering a More Sustainable Transport Network, Policy
MGP28 – Improving Access and Accessibility & Policy
MGP29 – Parking Provision
8.1.18 The sustainability appraisal of options indicates that the preferred options for
access and accessibility and for public parking are likely to have positive social,
economic and environmental impacts, and that for creating and improving
disabled access to buildings is likely to have little environmental impact and
positive social and economic impacts. An adverse environmental impact arising
from the inclusion of a multi storey car park in the public parking preferred
option could be mitigated by good design that respects the local character of
the built environment. No significant direct social, economic or environmental
impacts are likely from the preferred option for private parking standards.
8.1.19 The policies in this section seek to improve the Borough's transport
infrastructure to meet the future access and travel choice expectations of local
and regional communities and businesses, particularly for areas where
strategic growth and development is planned.
Creating a more Sustainable Road Network (including improvement to bus
services & new road based transport technologies)
8.1.20 The quality of the road network will remain a vital part of any transport
strategy as it is shared by several transport modes, including some more
sustainable modes, such as public transport and cycling. It is therefore in the
wider interest of sustainable travel to have a road network that is as free
flowing as possible.
8.1.21 Although congestion in and around Darlington is less than in many other parts
of Britain, new development planned across the region will add significantly to
trips on the strategic and local highway networks. Without action, both will
become more congested and unsafe as traffic levels increase, deterring or
restraining development unless action is taken to improve capacity.
Strategic road network
8.11
Tees Valley Area Action
Plan, Tees Valley Unlimited
and the Highway Agency,
November 2009
8.1.22 The strategic roads through the Borough (A1(M) and A66(T)) are forecast to
come under increasing strain during the plan period, as a result of background
traffic growth and traffic generated by specific proposed new
developments8.11. Improvement works at the following locations on the
strategic highway network are likely to be prioritised within the plan period:
•
•
•
•
8.12
and Planning Obligations
SPD
A1(M) Junction 58 (Faverdale)
A66(T) Morton Palms – Junction with Yarm Road
A66(T) Great Burdon
A66(T) Blands Corner
8.1.23 Initial work suggests that improvements can be largely accommodated within the
existing highway network or on land in the ownership of the relevant highway
authority, so it is not proposed to safeguard any land for them. The Council has
been working with the Highways Agency and other Tees Valley Local Authorities to
produce an Area Action Plan (AAP) for the Tees Valley region. Schemes identified
through the AAP will be submitted to funding bodies such as the forthcoming
Local Transport Board for financial support and the Highways Agency. In addition
major developments within the vicinity of these junctions may be required to
contribute towards funding in the form of developer contributions8.12.
141
8.1.24 A longer term improvement to the strategic road network has been identified
for the provision of north facing entry and exit slip roads at the A1(M)
Junction 57 with the A66(M). This junction is within North Yorkshire County
and therefore out of the scope for this plan, but would provide improved road
access to and from Durham Tees Valley Airport, Teesport and the wider Tees
Valley area.
Local highway network extensions
8.13
Town Centre Fringe
Masterplan DBC/HCA/EA,
May 2013.
8.1.25 As part of the overall mixed use development of Central Park (see draft Policy
MGP4), a new spine road is proposed, linking Haughton Road and Yarm Road.
This will enable greater public transport choices for accessing and serving the
site. The junction with Haughton Road is already in place, but a newly created
junction onto Yarm Road is required to open up the South of Central Park for
development. It is therefore critical to the delivery of this key site to safeguard
the land required for this junction.
8.1.26 Significant local highway works are required In the Town Centre Fringe to
deliver the vision of the Masterplan8.13 and the provisions of draft Policy MGP4.
Principally, it is proposed to re-align the ring road from Northgate so that it
links to Greenbank Road, using land to the west of the existing ring road, and
also to realign the section of the ring road in the opposite direction between
Northgate and Victoria Road. Detailed design of the re-alignment has not yet
been undertaken, but the options are limited by recognised constraints. It is
therefore proposed to safeguard the land that is likely to be needed to deliver
these realignment works.
8.1.27 There is also a longer term aspiration of the masterplan to reinstate some of
the historic street patterns around the Town Centre Fringe and create more
local linkages between the Town Centre Fringe and surrounding areas. These
could include a link road from Valley Street North to Cleveland Street and a
similar link from Chestnut Street to Eastmount Road. Development of such
links will be encouraged and the proposed routes of the links safeguarded.
8.1.28 As part of the development of the North West Urban Fringe (see draft Policy
MGP5), a link road connecting Edward Pease Way with Newton Lane will be
required. The detailed alignment of this will be identified through the
masterplanning process for the area as a whole.
8.1.29 The Council also remains committed to mitigating congestion at ‘pinch point’
junctions and funding for such is being pursued as a priority. As these works
can generally be achieved within the existing highway, no land safeguarding
for these schemes is required.
142
Local highway network improvements
8.1.30 The Third Local Transport Plan highlighted that bus patronage is falling and
steps must be taken to reverse this trend. Evidence was also provided of poor
public transport connectivity to other labour markets within the Tees Valley.
8.14
Within the urban area of
Darlington, these Core
Routes are identified as
Key and Secondary Public
Transport Corridors (as
identified on the Policies
Map)
8.1.31 A Tees Valley Bus Network Improvements (TVBNI) Scheme is focussing on
upgrading ‘Core Routes’8.14 – main bus routes across the Tees Valley, usually
linking urban areas or connecting with emerging rail proposals. Improvements
will include bus priority measures to improve the punctuality and reliability of
buses, enhanced passenger facilities including routes to and from bus stops,
and changes to vehicles and ticketing. The recently completed North Road
junction improvement has already achieved significant improvements,
reducing journey times for a number of ‘Core Route’ services passing through.
There are a few remaining reconfigurations of existing junctions and road
layouts to be carried out, e.g. Parkgate and Inner Ring Road at Stonebridge,
by 2015.
8.1.32 It is important to take steps to protect the legacy of previous and current
sustainable transport programmes such as Local Motion, Cycling
Demonstration Town and TVBNI during the plan period in order to achieve and
sustain improved bus patronage. There is also an ongoing review of how
Darlington Town Centre could improve its function as a public transport hub
this could include improvements to waiting facilities and alterations to how
services enter and exit the town centre.
Walking and cycling
8.1.33 Providing convenient access to an extensive, efficient and attractive footpath
and cycle path network makes a major contribution to achieving sustainability
and transport objectives, including improving health and well being amongst
the local population that uses it, particularly where they are used for travel
that may otherwise have been by private car, e.g. for journeys to work, shops,
schools and other community facilities.
8.1.34 A key priority for improving the walking and cycling network is identified in
the Town Centre Fringe Masterplan and draft Policy MGP3. The inner ring
road, in its current form, effectively severs the town centre from other key
facilities and transport infrastructure such as the Civic Theatre and Bank Top
Station in the Town Centre Fringe. Proposals to realign and improve the inner
ring road include safer, more convenient and quicker access across it, on foot
or by bike.
8.1.35 Elsewhere, for cycling, National Cycle Route 14 is being developed between
Darlington and Stockton and beyond to North Yorkshire, and Regional Route
52 runs inside the southern edge of the Borough. The Council has recently
improved the cycle network between Darlington and Newton Aycliffe
improving and creating around 2.6km of cycle path along the A617, Durham
Road within the Borough and more works funded beyond the Borough
boundary, to encourage more sustainable journeys to work between the two
settlements. All these routes and future improvements will be safeguarded,
promoted and developed as necessary.
8.1.36 For walking, the existing network of public rights of way is safeguarded by
draft Policy MGP23, and new provision will be made within the Strategic and
Local Green Corridors identified in the Darlington Green Infrastructure
Strategy. These corridors have a key role to play in improving connectivity,
particularly to the town centre, for pedestrians and cyclists.
143
Creating a more sustainable rail network
8.1.37 The Council is working with other local authorities along the route of the East
Coast Main Line (ECML) and with other Tees Valley local authorities to make
the case to Government and the rail industry for further investment in the East
Coast Main Line. Such investment is seen as essential to improve journey
times, service reliability, service frequency and the line capacity that is needed
to support the movement of people and freight envisaged for Darlington and
the Tees Valley, as set out in Darlington's Economic Strategy and the Tees
Valley Statement of Ambition. The local authorities are keen to have a strong
partnership with the rail industry, to create a vision for and the strategic
development of the ECML and connecting services and routes, both for
passengers and freight. Improvements that may be brought forward within
the Plan period are:
a)
a revised platform layout and better passenger facilities at Darlington
Station, either for local train services only or for ECML/High Speed 2 and
local train services;
b) a new station serving Durham Tees Valley Airport located near the access
road to the Airport. This station would be served by improved local train
services that are being introduced as part of the Tees Valley Metro project;
and
c)
modifications to rail infrastructure to permit larger shipping containers to
be moved on freight trains, thus increasing the competitiveness of local
businesses including Teesport.
Durham Tees Valley Airport
8.1.38 Durham Tees Valley Airport is essential to the economic performance of the
Tees Valley, and the Council will continue to work with the airport and regional
partners to promote more use of the airport. Other than potential
improvements to rail (see paragraph 8.1.37 above), other matters relating to
airport development are covered in draft Policy MGP7.
144
Improving Access and Accessibility
8.15
Carbon Reduction
Strategy for Transport,
Low Carbon Transport:
A Greener Future, DfT, July
2009
8.1.39 Development that offers better access for all forms of travel will help the
borough to become more sustainable, healthy, green and prosperous.
Sustainable modes of travel such as walking, cycling, public transport and
alternative fuel vehicles will be promoted through travel planning as well as
good design. The 2009 Carbon Reduction Strategy for Transport8.15 identifies
some key technological improvements including the use of electric and low
emission vehicles; the development of a recharging network for such electric
and plug-in hybrid vehicles; the development of sustainable biofuels and
alternative fuel sources; and improved broadband coverage to help reduce the
need for travel.
8.1.40 Development proposals that are likely to generate significant additional
journeys should be accompanied by a Transport Assessment and a Travel Plan
whilst smaller developments will require Transport Statements.
8.1.41 Additional transport infrastructure and other measures will be required for
areas of new development, so that people living and working there can make
sustainable and efficient travel choices. The kind of transport links and
demand management measures needed to ensure that growth takes place as
sustainably as possible were considered when the strategic locations in this
Core Strategy were selected (Policy CS1), and are expanded on further in draft
Policies MGP3 to MGP6 of this document. Proposals that link into the
multifunctional sustainable transport routes identified in the emerging
Darlington Green Infrastructure Strategy will be encouraged particularly at the
strategic development locations. Parking should be provided at levels
appropriate to the use and location and should promote sustainable transport
choices (Policy CS2).
8.1.42 Physical infrastructure interventions, such as access roads, will be combined
with travel information and marketing measures to encourage walking, cycling
and the use of public transport wherever possible, particularly on or near Key
and Secondary Public Transport Corridors as identified on the Policies Map.
Travel plans and developers planning obligations (Policy CS4 & Planning
Obligations SPD) will be the main tools used to embed sustainable travel
choices and behaviours into new developments from the outset.
8.16
Including Public Footpaths,
Bridleways and Byways
8.1.43 Whilst most roads have a footpath along side and the Rights Of Way
network8.16 provides a comprehensive network of footpaths and bridleways in
both the urban and rural areas, there are still gaps in the walking network for
some, meaning it is difficult to connect to other modes of transport such as
rail or bus. During the plan period, the Council will seek to improve these
connections particularly where they are poor near to proposed development.
8.1.44 Darlington has over 40km of dedicated off road cycle routes based around
seven radial routes which start in the town centre and end in various locations
on the edge of the urban area. The routes are signed using specially approved
cycle signs which show times rather than distances and are colour coded
depending on the route. There is also a circular route which connects the main
radial routes to each other and provides a longer leisure route for cyclists.
Work in recent years has focussed on connecting rural communities to the
urban area of Darlington and also connecting to County Durham in the north
where a significant number of commuter journeys begin or end.
145
8.17
8.18
Development
Supplementary Planning
Document, DBC, July 2011
One Darlington: Perfectly
Placed A Vision for
Darlington: 2008 – 2021
p.20
8.1.45 Access to sustainable transport should also be integrated into the design of
new developments from the outset, and some guidance is provided within the
Design of New Development SPD8.17. The Borough already has an extensive
network of cycle routes, but more needs to be done to make cycling a more
attractive option compared to the private car. Larger employers, particularly
within the urban area, will therefore be encouraged to provide facilities such
as secure cycle parking, changing and showering facilities, where practicable.
8.1.46 The creation of safe and convenient access for all to all buildings and spaces is
also a priority to help ensure that everyone can help create and benefit from a
more prosperous Darlington8.18. The Core Strategy (Policy CS2) seeks to ensure
links to existing networks are convenient for all, including those with
disabilities, and the proposed Policy MGP28 below seeks to take this a step
further, promoting suitable access to individual buildings and places, and
encouraging developers to design in access arrangements and facilities that
are in accordance with the Disability Discrimination Act 2005.
Parking
8.19
8.20
8.21
8.22
8.23
NPPF Paragraphs 39 and
40
Tees Valley Design Guide &
Specification: Residential
and Industrial Estates
Development, Tees Valley
Authorities
Darlington Parking
Strategy 2014-2026 Due
for consultation Summer
2013
total weekday peak
demand by 2020, will
increase from the current
level of about 3,250 to
4,148 spaces, exceeding
current capacity (3,776
capacity) total Saturday
peak demand by 2020,
with all developments in
place, will increase from
the current level of about
3,405 to 4,358 spaces,
exceeding current capacity
(3,797 capacity)
Traffic Regulation Order
8.1.47 National policy8.19 requires local authorities to consider setting local parking
standards for new development and to ensure there is an improved quality of
parking in town centres that is convenient, safe and secure.
8.1.48 There are already local parking standards for new development and changes
of use in place, set out in the Tees Valley Highway Design Guide8.20, and further
advice on integrating parking within new development is included in the
Council’s Design of New Development SPD8.17 this should include appropriate
provision for disabled parking and secure motorcycle parking.
8.1.49 In relation to town centre parking, the emerging Parking Strategy8.21 indicates
that by 2020, it is expected that demand for parking will exceed supply based
on current provision8.22. At the same time, there is likely to be development
pressure, particularly within the Inner Ring Road, on some of the sites
currently used for parking.
8.1.50 The emerging Parking Strategy proposes a zonal approach to provide enough
convenient parking options to support the vitality and viability of the Town
Centre. There will be a small number of time limited short stay parking spaces
in central locations with wider short stay provision within the Inner Ring Road
(area identified as ‘Town Centre’ on the Policies Map). Outside of the ring road
will be generally be protected for long stay parking.
8.1.51 Because of the issues identified in paragraph 8.1.49 above, further car parking
provision will be required within the plan period. A need for a multi-storey car park
around the Beaumont Street/Feethams area within the ring road is identified8.21.
Work is currently ongoing to examine the viability of appropriate sites and once
a suitable site(s) are identified, land will be safeguarded for car parking use.
8.1.52 The Council will also continue to annually review parking charges and ensure
they are set so as to not undermine the vitality and viability of the town centre.
Steps will also be taken to make parking more convenient, with new pay and
display machines and a greater range of payment options including pay on foot.
8.1.53 The Council will continue to support and facilitate sustainable development of
businesses in the town centre by offering contract parking for operational
needs to businesses with more than 5 employees8.23 who have an employee
travel plan in place. This initiative recognises that businesses located in the
town centre can be more sustainable in terms of the transport movements
that they generate, yet need convenient parking for operational purposes to
keep commercially competitive.
146
8.24
NPPF Paragraph 35
8.25
NPPF Paragraphs 29-41
8.26
Core Strategy objectives 2
and 8
8.1.54 National Policy8.24 also requires plans to exploit opportunities for the use of
sustainable transport modes including incorporating facilities for charging
plug-in and other ultra-low emission vehicles. To encourage the use of electric
vehicles, it is therefore proposed that any development involving the creation
of car parking areas of 50 or more spaces provide at least one double electric
vehicle charging point and for each additional 50 spaces up to a maximum of
three double charging points.
8.1.55 The draft policies proposed are consistent with national planning policy8.25 and
support the delivery of the strategic objectives of the Core Strategy8.26. Land
required for future transport proposals will, where possible, be protected or
safeguarded as an integral part of other land use proposals to ensure they are
deliverable.
8.1.56 The Sustainability appraisal indicated that a combination of options to
retaining Core Strategy policy CS19 and allocate land to deliver the projects
identified within it as well as updating projects and revise the timescales for
the Tees Valley Metro is recommended. Option C had positive impacts against
a range of social, environmental and economic objectives. Option A (simply
retain CS19 and allocate land for the projects within it) was rated well against
many social, environmental and economic objectives, but option B was rated
better against almost all of them. In most cases this was due simply to the
additional potential for general positive impacts arising from the inclusion of
extra projects based on up to date development projections. In a few cases,
for example the Inequalities, Biodiversity and Green Infrastructure objectives,
the newly identified projects had a greater positive impact because of their
location in areas with particular potential for improvement. In order to achieve
the very positive potential effects identified against multiple sustainability
objectives, allocations should be located and designed in such a way as to
improve where possible the accessibility of health and other community
facilities and business premises; encourage sustainable transport modes;
conserve the setting of heritage assets; minimise any potential blight; and
where relevant, improve green infrastructure, river and biodiversity corridors.
147
Draft Policy MGP27: Delivering a More Sustainable
Transport Network
In order to deliver a transport system which is balanced in favour of sustainable
transport modes, the Council and its partners will work together, where appropriate
using developer contributions, to make the best use of and improve existing transport
infrastructure within and connecting to the Borough, having considered first solutions
to transport problems that are based on better promotion, management and the
provision of sustainable forms of travel.
To achieve this, the following priorities and actions have been identified:
For the road-based transport network this will be by:
1.
2.
3.
mitigating against congestion at pinch points and continuing to actively manage
roads that are under its control as local highway authority;
working with the Highways Agency to ensure the safe and efficient operation of
the strategic road network; and
providing new local access roads to open up the locations for development
identified in the Core Strategy and this document.
Specific priorities for the road network will be:
4.
5.
6.
7.
8.
safeguarding the route of the proposed re-aligned Inner Ring Road and associated
junction improvement between Parkgate and St. Cuthbert’s Way;
safeguarding the route of a proposed link road from Eastmount Road to Chesnut Street;.
safeguard the land required for the junction for the second phase of the Central
Park spine road to join Yarm Road;.
supporting the ongoing provision of the Tees Valley Bus Improvement Scheme and
protecting the ‘key and secondary public transport corridors’, as identified on the Policies
Map, and other related infrastructure from inappropriate development. Proposals for
new built development along these routes must demonstrate that connections to
these routes are sufficient or shall provide improved connections where necessary.
protecting the land required for an improved junctions at Yarm Road/A66(T), Little
Burdon A66(T) and Blands Corner A66(T);
For the rail-based transport network this will be by:
9.
improving inter and sub-regional links to neighbouring centres by ensuring that
the Borough is served by high quality public transport links
10. improving connectivity between other forms of sustainable travel and the rail
network mainly by providing improved interchange facilities;
11. in the long term (to 2026), investigating the extension of rail facilities through to
Central Park and a new halt at Morton Palms.
Specific priorities for the rail network:
12. supporting the implementation of the Tees Valley Metro and safeguarding its route
and any ancillary land required, including the creation of a relocated rail halt
serving Durham Tees Valley Airport.
13. supporting the improvement of Darlington Bank Top Station. Any ancillary land
required to accommodate trains using the East Coast Main Line, the forthcoming High
Speed 2 line, local routes and improved interchange facilities will be safeguarded.
For the cycling, walking and other sustainable transport this will be by:
14. protecting existing footpaths, cycle routes and bridleways from development which
would impair their functioning for recreation or as alternatives to the private car for
accessing employment opportunities, shops and other community facilities.
148
15. supporting the development of the ‘Strategic’ and ‘Local Green Corridors’
identified in the Darlington Green Infrastructure Strategy and safeguarding their
routes from development which would impair their functioning for recreation or
as routes for pedestrians and cyclists to access employment opportunities,
schools, shops and other community facilities.
Draft Policy MGP28: Improving Access and Accessibility
The Council will seek to promote public transport and other non-car based modes of
travel especially in the Urban Area and Larger Villages. Improvements to access and
accessibility will be sought by locating development where good access to public
transport is available or can be provided, backed by measures to reduce the need for
travel and effective provision for cyclists, pedestrians and people with impaired mobility.
Development will be appropriately located to minimise the need to travel by car and
the number and length of car trips made to access local amenities. Transport
improvements will be focussed on the strategic development locations, as identified in
Core Strategy CS1.
8.28
As defined by The Town
and Country Planning
(Development
Management Procedure)
(England) Order 2010
In order to achieve this:
a)
major new developments8.28 or concentrations of smaller developments which
combined have a major impact will be required to include new footpaths and cycle
routes, with links into existing networks and any proposed extensions to them.
b) proposals for new buildings or the change of use or alteration of existing buildings to
which the general public and employees have access will be required, where practical and
reasonable, to provide suitable access and facilities, particularly for people with disabilities.
c)
new developments within the urban area, should include facilities to encourage cycle
travel, such as secure cycle storage and where possible, changing and shower facilities.
Draft Policy MGP29: Parking Provision
The Council will continue to ensure there is an adequate supply of safe, secure and
convenient public parking for vehicles within and adjacent to the town centre. Priority
will be given to:
a)
providing short stay parking within the ‘Town Centre’ as identified on the policies
map and long stay outside it; and
b) safeguarding land at Beaumont Street/Feethams for a multi-storey car park.
Throughout the Borough, new development (including change of use) will be required
to provide safe and secure space for vehicle parking and servicing within the site.
Provision should be made for residents, employees, customers, deliveries, visitors and
others who may visit the premises, including people with disabilities. The number of
spaces provided and the nature of the provision will have regard to local circumstances
and the standards set out in the Tees Valley Highway Design Guide or any successor.
New commercial developments and public facilities creating over 50 parking spaces
should provide at least one double electric vehicle charge point (2 spaces). For each
additional 50 parking spaces one double charging point should be provided up to a
maximum of three (6 spaces).
Making it Happen
8.1.56 The Council will work with partners and neighbouring authorities to deliver
the package of proposals outlined above, to enhance the movement of
people, goods and information, and to manage trip demand.
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9. INFRASTRUCTURE
9.1 PHYSICAL INFRASTRUCTURE
Context
9.1.1
9.1
9.2
Framework (March 2012)
(DBC, May 2011) Policy
CS1
9.1.2
9.1.3
9.1.4
The term ‘physical infrastructure’ embraces all services necessary for any
development, including water supply, wastewater and its treatment, energy
and telecommunications. In this document, transport infrastructure is
addressed separately, in draft Policy MGP27.
National planning policy9.1 requires the Council to identify priorities for
infrastructure provision, including the need for strategic infrastructure, and to
support the expansion of electronic communications networks. The Core
Strategy9.2 encourages enhanced infrastructure provision that supports delivery
of its vision and objectives.
Policy CS4 of the Core Strategy sets out strategic requirements for developer
contributions to support the delivery of infrastructure, including utilities
infrastructure. The Planning Obligations Supplementary Planning Document,
adopted in January 2013, which sets out how developer contributions will
operate for most forms of infrastructure, does not cover utilities infrastructure.
Darlington’s Local Economic Partnership, Tees Valley Unlimited, is currently
preparing a strategic infrastructure plan. Once published, its conclusions will
inform this policy, where necessary.
Issues
9.1.5
Four issues for utilities infrastructure provision in Darlington over the plan
period have been identified:
(i) providing better broadband;
(ii) coping with the impacts of climate change on the networks, and the
adaptations and mitigations required;
(iii) facilitating growth and economic development of Darlington; and
9.1.6
9.3
150
BDUK Next Generation
Access - Baseline Mapping
for Darlington BC,
November 2012
9.1.7
(iv) ensuring there are no significant adverse amenity or public safety impacts
arising from providing new radio and telecommunications equipment.
Darlington’s broadband provision is currently poorer than in other parts of the
Tees Valley. There aren’t any locations in the Borough with more than one
superfast broadband provider (known as ‘black areas’) and several strategic
development locations, such as the North West Urban Fringe and much of the
Town Centre, lack superfast broadband altogether9.3. Although BT has recently
announced a large investment in broadband in the town, it is unclear at this
stage what impact this will have, and where.
Whilst broadband networks in the Borough need to expand, the way this
expansion is carried out should have due regard to public and residential
amenity. Telecommunications equipment tends to introduce new elements into
the character of residential areas; it need not necessarily harm that character,
and the Council will use its planning and prior notification powers to ensure
that the siting and design of equipment respects townscape character and
does not cause substantial harm to amenity or highways matters.
9.1.8
9.1.9
Initiatives and policies to reduce energy use and carbon emissions (e.g. Core
Strategy Policy CS3 and Warm Up North) are essential to deliver the objectives
of the Core Strategy. However, the strain on the electricity supply network is
expected to increase. This is because there will be more things like new
domestic scale renewable installations feeding into the electricity grid through
existing connections, and new heavy users of electricity such as electric vehicle
charging points and heat pumps are anticipated.
The direct effects of climate change, such as shorter but heavier periods of
rainfall, are likely to see continued stress on all utilities infrastructure systems,
e.g. flooding of combined sewers, at the same time as sources of funding
become more limited. Infrastructure networks are therefore under pressure
and this increases the importance of avoiding unnecessary stresses to
networks from inappropriate new development, in accordance with Core
Strategy Policy CS4.
9.1.10 The Council has consulted with the providers of infrastructure to ensure that
there is sufficient capacity in existing infrastructure for the housing,
employment and other growth proposed in this document. No need for
specific planning policies to enable or facilitate improvements to the
infrastructure networks has been identified.
Options Considered
9.1.11 The following three options were considered:
a)
a short, positively framed, criteria based policy solely dealing with
telecommunications to meet the minimum requirements of the NPPF.
b) a more detailed policy that, as well as the limited telecommunications
issues specified in the NPPF, includes a criterion to encourage broadband
development and guide its design and siting, and expands on policy CS4
to ensure that new development does not have an unnecessarily negative
effect on infrastructure networks.
c)
a policy that does everything in Option (b) and also encourages the
development of broadband networks in specific priority locations.
9.4
9.5
Town and Country
Planning General
Permitted Development
Order part 24, 2001
Electronic
Communications Code
(Conditions and
Restrictions) Regulations
2003
9.1.12 The preferred option is Option (b). Option (a), whilst meeting national policy
requirements, would not address any of the local priority areas described
above. Option (c) would highlight the strategic development locations which
are also some of the main parts of the urban area that are least well served by
existing broadband. However, given that broadband provision is covered in the
relevant strategic location policies elsewhere in this document (see draft
Policies MGP 3, 4, 5 and 6) and that most of the works required would be
minor or not requiring planning permission9.4,9.5 this option was also rejected.
9.1.13 Option (b) would allow some guidance to be provided regarding the instances
in which the Council would place conditions on the installation of apparatus.
These would be to ensure that any infrastructure associated with
telecommunications provision does not obstruct the highway unduly or give
rise to substantial noise pollution or amenity issues.
151
9.1.14 Option (b) would also allow the capacity of existing utilities networks to be
protected, bringing it in line with other infrastructure provision covered by the
Planning Obligations SPD. Utilities that are under strain can negatively affect
the attractiveness of the Borough’s residential and business environments, and
unless mitigated, new development can place additional stress on the
networks, increasing the likelihood of temporary failure.
9.1.15 Core Strategy Policy CS4 states ‘Developer contributions… should mitigate any
additional impacts the development would have in the locality.’ Unlike other
infrastructure, the Council cannot seek planning contributions for utilities, as
this type of infrastructure is delivered by others. It is therefore necessary to
ensure that developments are accompanied by the utilities required to support
the development at the time it is built, to ensure there is no net negative
impact on the operation of existing networks. This can be done through the
insertion of a specific criterion in the draft policy.
9.1.16 All utilities companies have identified early consultation with potential
developers as an important requirement. Before submitting a planning
application, those applying for new development or intensification of use will
be expected to contact all the relevant utilities providers and regulatory
bodies, or submit their proposals to the Council’s pre-application service, to
ascertain how their development can be accommodated.
9.1.17 Sustainability appraisal recommended Option B as expected to have the most
positive impact in terms of improving access and quality of telecommunications
and broadband access and by doing so improving the attractiveness and
sustainability of residential areas. This would also be expected to greatly
enhance the attractiveness of the Borough as a place for businesses to locate
and develop and so this option scores well against these objectives. This
objective incorporates consideration of the impact of new development on
existing infrastructure and proper planning of needs of new development and
so would be expected to help to increase the sustainability of residential and
employment areas.
Draft Policy MGP 30: Physical Infrastructure
Proposals for new development must be capable of being accommodated by existing
or planned utilities (whether supplied by utilities providers or the development itself),
and should not:
(a) have a net negative impact on the operation of existing utilities networks; or
(b) worsen the services or protection from risk enjoyed by the existing community.
Utilities will include off-site service infrastructure, surface water, sewage disposal,
water and sewerage facilities, flood risk defences and control facilities, and power.
Development of radio and telecommunications equipment and installations will be
encouraged provided that the telecommunications equipment and installation is sited
and designed to respects the character of the area and is not materially harmful to
visual or aural amenity or the safety of road or pavement users.
Making it Happen
Through the development management process, including consideration of
prior notifications, and by ensuring the provision of other new utilities
infrastructure where a need has been indicated by the utilities providers.
152
9.2 SOCIAL INFRASTRUCTURE
Context
9.2.1
9.6
Core Strategy Policies CS6,
CS7, CS9, and CS18.
Social infrastructure encompasses a range of community facilities including
schools, community centres, libraries, health care facilities, indoor sports
facilities, cemeteries and arts and cultural facilities. Access to a wide range of
good quality community facilities is identified within the Core Strategy9.6 as a
key contributor to the health and well-being of people who live and work in
the Borough, and the timely provision and upgrading of facilities is required to
ensure Darlington’s future growth brings more prosperity, safety, sustainability
and inclusiveness.
9.2.2
The land use and planning issues associated with providing particular types of
social infrastructure in the Borough are set out below, together with a
summary of the options that were considered to address each.
Indoor Sports Facilities – Issues and Options
9.2.3
9.7
9.8
9.9
9.10
as defined in Darlington’s
Sport and Recreation
Facilities Strategy (2009)
St Aiden’s Academy;
Darlington College for
Maths and Science
(formerly Branksome
School, now sponsored by
Longfield Academy);
Hurworth Secondary
School Academy;
Hummersknott Academy
and QE VI Form College.
Review of the Borough
wide Sports Facilities
Database
9.2.4
9.2.5
9.2.6
Sport and Recreation
Facilities Strategy,
Darlington Borough
Council (2009).
9.2.7
Indoor sports facilities include swimming pools, sports halls & community
halls, health and fitness facilities and dance studios, and other specialist
provision such as indoor bowls, squash courts, gymnastics centres, boxing
gyms and indoor tennis9.7. These facilities can be provided by academies,
schools and colleges, private sports clubs, parish councils and at community
and village halls.
The Core Strategy (Policy CS18) seeks to protect and where appropriate,
enhance a range of quality, accessible and safe facilities, to support more
participation in indoor sports and promote healthier lifestyles. In recent years,
access to sports facilities at educational sites has improved, as several schools
have successfully converted to Academy status and new and improved
facilities have been provided, e.g. a new sports hall at Longfield Academy is
underway, providing better access to indoor sports provision in the northern
part of the Borough. This will function as a third strategic ‘hub’ site, in
addition to the Eastbourne Sports Complex and the Dolphin Centre.
Improvements to facilities at other key education sites9.8 will provide a network
of complementary satellite sites for indoor sports provision.
However, recent work9.9 indicates that access to and quality of existing facilities
can be improved further. This may be partially addressed if more schools
convert to Academy status, as this includes a requirement for public access,
but there is evidence9.10 to suggest there is also not enough specialist sports
provision, specifically indoor tennis courts, nor enough indoor active play
facilities, such as BMX tracks and skate parks.
As most indoor sports provision is market led or otherwise outside Local
Authority control, quality and access improvements can only be secured
through the planning system by attaching conditions to planning permission
for extensions, alterations or for new facilities. The Core Strategy (Policy CS18)
requires community use to be secured for new provision on educational sites
in priority locations. This policy could address how applications for new
development outside priority locations are treated, as new provision in these
locations could also meet identified local needs.
The policy could also set quality and access standards for any new, extended
or altered facilities.
153
9.11
One Darlington Perfectly
Placed: A Vision for
Darlington 2008-2021
9.12
ONS Interim 2011 Based
Population projections
9.13
According to projection
work undertaken by NHS
Property Services for the
Darlington area.
Primary Health Care Facilities - Issues and Options
9.2.8
9.2.9
Helping to reduce health inequalities is a key local policy objective9.11 and
providing accessible local healthcare facilities can improve the quality of life
and well being of residents. Darlington has a network of primary and
community care facilities, such as GP surgeries, dentists and a walk in centre,
as well as mental health and acute hospital facilities at West Park and
Darlington Memorial Hospital respectively; both of these are expected to
continue to offer accessible healthcare from their existing sites. There is also a
private general hospital at Morton Park, and a private mental hospital at the
Durham Tees Valley Airport site.
Housing growth and an ageing population are placing pressure on primary
healthcare facilities in Darlington; population projections9.12 indicate a further
7,800 people by 2026, which is around 2,600 extra patients in every five year
period, while the over 65 population, which places a higher demand on
services, is projected to increase by 4,100 from 2011 to 2021. These factors
suggest three additional consulting rooms will be needed every five years, and
a further three consulting / treatment spaces to specifically support the needs
of an ageing population, by 2021.9.13
9.2.10 During the plan period, significant new housing is planned in north-west,
central and east Darlington, and more limited numbers in north Darlington
(see draft Policy MGP 16). This will generate additional needs for primary
health care, for which no dedicated general practice provision is currently
planned. Some GP practices near to these areas are already experiencing
significant pressure on patient lists, e.g. from the West Park development, but
have limited additional capacity at existing premises to expand.
9.2.11 The planning options considered were:
a)
absorb future demand within existing capacity of GP practices – most
practices in the Borough have already expanded to the capacity of their
premises. There are also limited options for changing the use of other
health facilities;
b) expand existing premises to create additional capacity - there are limited
opportunities to do this as most GP practice sites are already fully
developed;
c)
provide outreach or satellite health care facilities within community / social
care buildings – this could help GP services to be provided near to or
within the new housing areas where people are expected to live; or
d) provide new build premises – this is likely to be the most costly option,
though part of the costs could be met by developers, if provided where
significant new housing is proposed. It would also help provide GP
services near to where people will live. New development beyond West
Park will allow for the possibility of a new GP surgery being provided, or
this could be provided within an expanded West Park Local Centre (see
draft Policies MGP5 and MGP15).
9.2.12 In addition, the GP surgery at Middleton St George is at full capacity and
cannot expand its existing building further. The GPs have identified and
purchased a larger site within Middleton St George to accommodate a larger
relocated general practice facility on Yarm Road, but have yet to secure
funding. This plan can safeguard the site for this use, to help facilitate its
delivery, and is the only option being considered.
9.2.13 All the options above depend on funding being available.
154
Arts and Cultural Facilities – Issues and Options
9.13
Creative Darlington:
Investing in a Creative
Community - An Arts
Vision for Darlington ,
Arts Enquiry Group
(2011).
Cultural Quarter Feasibility
Study, Globe Consultants
Limited (2011).
9.2.14 There are aspirations (see Core Strategy, One Darlington Perfectly Placed: A
Vision for Darlington 2008-2021 and recent studies9.13) to promote and
enhance arts and culture in the Borough, The Creative Darlington vision
identifies arts and culture as being central to Darlington’s future identity and
economic success. Through bringing people together, the arts have a key role
to play in promoting and enabling social inclusion and cohesion. The Town
Centre and Town Centre Fringe both play a key part in the arts and cultural
offer. The latter is home to the Civic Theatre which continues to be a key
focus for cultural and arts activity and this is complemented by the Town
Centre offer which remains a focus for cultural heritage and an ideal setting
for cultural activity and events. The new retail, entertainment and leisure
development at Feethams will further complement the existing offer.
9.2.15 Cultural and arts facilities are facing new challenges as income sources,
including public sector funding, are increasingly under pressure. It is likely that
not all arts and cultural facilities can be sustained, and any new facilities will
need to be largely privately provided and supported. It may be possible to
sustain some existing provision or to deliver new facilities, by sharing facilities
and/or support with other community uses. As recognised within the Creative
Darlington vision, the sustained development of the sector will depend on the
support, co-ordination and prioritisation across arts organisations.
9.2.16 A new policy could:
a)
set standards of quality and community access for new provision, and for
altering and extending existing provision;
b) provide more guidance on when proposals outside the Town Centre and
Town Centre Fringe will be acceptable; and
c)
9.14
9.15
Community assets can be
land or buildings in public
or private ownership. Also
see ‘Report to Cabinet,
5th March 2013, Assets of
Community Value’,
Appendix 4, Draft
Operational Policy Darlington Borough
Council Policy on The
Community Right to Bid
for Assets of Community
Value
A High Quality Place for
Every Child, School
Organisation Plan (SOP)
2013-17, DBC
seek to resist redevelopment of key cultural or arts attractions.
Community facilities – Issues and Options
9.2.17 The Core Strategy (Policy CS9) seeks to safeguard local services and facilities
that meet people’s day to day needs. Local shops and other retail outlets are
covered within draft Policies MGP2 and MGP15. This section covers community
centres, village halls, social clubs, children’s centres, churches, mosques and
other community resources, such as libraries, which are important for
socialising and other community activities. While pubs are a retail use (A4 use
class) in planning, they are also important venues for community engagement
and hosting community activities, and are therefore considered here. The
range of community facilities within a community varies across the Borough.
9.2.18 Many community facilities are experiencing reduced income, arising from
either reduced use or reduced public sector or other external funding. Under
the Localism Act 2011, the Council is required to maintain a list of community
assets, and if these come up for sale, community groups can bid for them, to
retain it9.14.A planning policy to resist the loss of a community facility where it
is the only remaining facility in a community where there is an identified need
for it and for which a source of funding for ongoing management and
maintenance could support this.
155
Schools - Issues and Options
9.16
9.17
9.18
Academies are state
funded independent
schools. Free Schools are
usually new schools
funded directly by
government and not
maintained by local
authorities
Every 100 new houses is
expected, on average, to
produce between 18 and
20 primary school age
children and 13-15 pupils
of secondary age.
The SOP (2013-17)
indicates that existing
schools could provide
almost 600 additional
school places and meet
immediate needs for
further school places,
especiallly reception age
children.
9.2.19 Access to good schools is critical to the quality of life of residents, and
improving it is a key ambition within the Core Strategy. The Council has to
assess the local need for school places and ensure that every child resident in
the Borough can have a place in a state funded school in Darlington9.15. It
works with a wide range of education providers, such as Academies and free
schools9.16 to ensure this. More schools are expected to convert to Academy
status over the next few years, so that by April 2013, 70% of all schools in the
Borough are likely to be Academies.
9.2.20 The main planning issue is how to meet the need for additional school places
arising from planned housing growth and population change9.17. There is an
immediate need for primary places and a longer term need to review
secondary provision. Primary places across all ages are needed, but
particularly reception places for four year olds, whilst increased secondary
capacity is unlikely to be needed until 2020.9.14
9.2.21 Several existing schools can meet the immediate needs9.18, but additional
needs are likely to arise in the areas where significant new housing is
proposed (see Policy MGP15), particularly in north and north west Darlington
and at the Eastern Urban Fringe. Expansion of existing primary and secondary
provision should be able to accommodate additional demand for school places
associated with new housing at Central Park and the Town Centre Fringe, but
to provide for the possibility of school provision close to where people live, the
development of the Town Centre Fringe and North West Urban Fringe must
provide for land to be identified for educational use until it is clear there is no
longer a need (see draft Policies MGP3 and MGP5).
9.2.22 The options being considered are:
a)
absorb future demand within existing capacity, although there are only a
limited amount of spaces to accommodate projected demand and this is
likely to be taken up within one to two years;
b) re-open former classrooms that were taken out of use when numbers
were falling, providing opportunity to increase the schools capacity
without major capital investment;
c)
expand existing schools to create additional capacity and increase the
admission number, such as additional classrooms. This is not possible in
some areas, e.g. northern and eastern Darlington where most primary
schools are already at capacity;
d) provide new build premises - this is likely to be the most costly option,
though part of the costs could be met by developers, if provided where
significant new housing is proposed. This would also help to provide
school places close to new neighbourhoods. New development at the
North West Urban Fringe will allow for the possibility of new educational
facilities being provided (see draft Policy MGP5) which could be
replacements for existing provision.
156
West Cemetery Extension
9.2.23 The Council is responsible for managing and maintaining three cemeteries,
West Cemetery on Carmel Road North (the largest), North Cemetery on North
Road and East Cemetery on Geneva Road.
9.19
There are on average 69
burials per annum using
new graves in the West
Cemetery and there are
currently 500 new grave
spaces remaining.
9.2.24 North and East Cemeteries are likely to have enough space during the plan
period (to 2026), however in order for the Council to continue to meet the
burial needs of the Borough there is a significant need for new burial space at
West Cemetery, the existing space for graves is likely to be used by 2019/209.19.
The cemetery has been extended four times since it opened in 1858, with the
latest extension in 1997 the area now covers 15.3 hectares.
9.2.25 At West Cemetery, there is 2.24ha of land adjoining the existing cemetery site,
which is enough to meet all of the need for the remainder of the plan period.
Through this policy, it could continue to be reserved for that purpose to allow
for this. It is the only option being considered.
9.2.26 The results of sustainability appraisal were as follows:
(a) For indoor sports facilities, option B (improve access to and quality of
existing facilities) and option C (address how applications for new
development outside priority locations are treated) were the most
sustainable, both scoring particularly well against social objectives.
(b) For primary health care facilities, Option C was the most sustainable;
Options A and B could only be part of a sustainable policy if pursued in
combination with other options.
(c) For arts and cultural facilities, all options had positive impacts across
environmental, social and economic objectives;
(d) For community facilities, Option B (local policy building on the Core
Strategy and national policy) performed better than Option A (reliance on
existing policy) because the latter would result in insufficient detail to
properly guide decision making;
(e) For schools provision: Options C and D had the most positive impacts,
providing opportunities for sustainability to be designed in and required
from the outset. Option C scored best, as it was more likely to involve
development of previously developed land.
(f) For the West Cemetery extension, it concluded that there is only one
option to address this issue, which is sustainable, subject to any extension
taking account of local existing biodiversity and heritage value.
157
Preparing a Draft Policy: The Preferred Option
9.2.27 Taking into account comments received, the sustainability appraisal and the
findings of other background studies underpinning this document, the preferred
options which form the basis of the draft policy MGP31 below are as follows:
a) Indoor sports facilities: the preferred option is to set a policy to guide
quality and access standards for new, extended or altered facilities, and a
policy to guide decisions on applications for new development outside
priority locations;
b) Primary health care facilities: the preferred option is a combination of
options b) and c) in paragraph 9.2.11. Also the policy is to cover
safeguarding a site at Yarm Road in Middleton St. George for a
replacement GP surgery.
c)
Arts and cultural facilities: the preferred option is to set a policy which is
a combination of options a) to c) identified in paragraph 9.2.16, which
will address aspects relating to community access and provide guidance
for proposals for redevelopment of existing key cultural or arts attractions
or provision of new facilities.
d) Community facilities: the preferred option is for the draft policy to
encompass all the aspects outlined in paragraph 9.2.18. Evidence in support
of retaining the last community building will have to show there is no
accessible alternative suitable facility. A ‘lack of need’ argument would need
to be backed up by evidence, e.g. by surveying all community groups in the
area, and a lack of funding would need evidence that no other community
group in the neighbourhood would be prepared to take over the facility.
e) Schools provision: The preferred option is a combination of option b) and
c) in paragraph 9.2.22 to accommodate emerging demand within existing
buildings or school sites. Option a), absorbing demand within existing
schools is not sustainable as available spaces in existing schools will be
taken up within one or two years, and Option d) is likely to be less
deliverable, given lack of funding and certainty.
f)
158
West Cemetery extension: continue to reserve land for further burials at
the site.
Draft Policy MGP 31: Supporting the Delivery of
Community and Social Infrastructure
Land as identified on the Policies Map will be reserved for the following community
uses and facilities:
a)
1.2 hectares to the south of Yarm Road in Middleton St George for a replacement
GP surgery, associated consulting rooms and car parking; and
b) 4.6 hectares of land at West Cemetery for future burial space.
Comprehensive planning of land for development and regeneration at the Town Centre
Fringe, North West Fringe and the Eastern Urban Fringe will be required to include for
the possibility of new primary care and education provision as appropriate (see Policies
MGP 4, 5 and 6).
In general, the Council will work with other providers to meet identified needs for
health and education provision according to the following sequence, and provided
that in doing so, existing geographical gaps are addressed and not made worse:
(i) within existing premises; then
(ii) by expanding existing premises; then
(iii) by identifying other public sector buildings/space that could accommodate the
use; and then
(iv) by identifying suitable sites for new premises.
For new indoor sports provision and arts and cultural facilities, priority will be given to
new proposals according to the locational strategy set out in CS18 and CS6
respectively. Proposals will be permitted elsewhere if it is shown that:
a)
it cannot be provided in the priority locations; or
c)
it will be easily accessible by a choice of means of transport; and
b) there is a need for it in the location proposed; and
d) for arts and cultural facilities, that, through market research and/or an impact
assessment, it can be shown that there would not be any damaging impact on the
vitality and viability of the Town Centre, including the evening economy.
Secure community access, outside of core school hours, will be required for any new
provision on educational sites.
The loss of any community facilities will only be permitted if it can be demonstrated that:
(a) there are sufficient other suitable alternative community facilities either within the
neighbourhood or accessibly nearby; or
(b) the community facility is no longer needed; and
(c) there is no management and funding resources within the local community or that
could be generated by partial redevelopment that could sustain a facility that
meets identified local needs
Making it happen
•
•
•
•
Through operation of the Council’s development management function.
Through preparation of masterplans for areas of significant development
and regeneration;
By working with partners to facilitate and provide health and education
facilities to meet identified needs;
DBC to undertake works at West Cemetery by March 2018 to lay out land
for additional burial space.
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10.MANAGING DEVELOPMENT
10.1 SAFEGUARDING AMENITY
10.1
10.2
Framework (NPPF),
paragraph 17.
objectives 1, 2,5 and 8.
Context
10.1.1 A core function of planning10.1 is to ensure a good standard of amenity for all
existing and future occupants of all types of land and buildings, particularly
residential properties. It is also an objective of the Core Strategy10.2 to improve
the quality of life for those living in the Borough.
Issues
10.1.2 Without appropriate controls, new development could result in unacceptable
living environments for its occupants, reduce the quality of life for the
occupants of neighbouring buildings, and result in poor quality
neighbourhoods overall.
10.1.3 The Core Strategy plans for significant new development, mostly within the
existing urban area of Darlington, and the mix, density and concentration of
uses needs to be planned well at the detailed level to avoid conflicts between
uses, where segregation is not provided by land allocations.
10.1.4 The aspects of amenity taken into consideration are:
•
•
•
•
•
Privacy and overlooking;
Access to sunlight and daylight;
Visual dominance and overbearing effects of a development;
Noise and disturbance (including that caused by traffic);
Artificial lighting;
•
Vibration;
•
Commercial waste.
•
Unpleasant emissions from odour, fumes, smoke, dust, etc; and
Options Considered
10.1.5 Three policy options considered are:
a)
rely on national planning policy; or
c)
as for b), plus a supplementary planning document (SPD) covering in more
detail appropriate standards and good practice for protecting amenity.
b) complement national planning policy with more detailed local policy; or
160
10.1.6 The preferred option is option c). Option a) is not sufficient because national
planning policy lacks specific guidance on the protection of residential amenity
in existing properties or in those that are planned. Option b) was considered,
but the level of detailed guidance and range of issues would make the policy
overlong and complex. Option c) was therefore considered most appropriate
to allow more detail and consequently more certainty through providing
supplementary guidance on protecting amenity. Such an SPD will give more
certainty to applicants and decision makers about how impact on amenity will
be assessed, and include advice on minimising or mitigating potentially
harmful impacts. It will encourage early consideration of the amenity impacts
in the design of schemes, and help to minimise the potential expense incurred
by applicants from revising plans and incorporating necessary mitigation
measures later on.
10.1.7 Conflicts between uses and neighbouring developments can generally be avoided
by careful design, siting and orientation of buildings and spaces, paying particular
attention to those aspects which are most likely to cause issues (e.g. car parks,
bin stores and noisy equipment), and which are most sensitive to effects (e.g.
children’s play areas, outdoor spaces or habitable rooms). Planning conditions can
also be used to deal with matters such as the installation of extraction systems,
hours of operation, or preventing a development from changing its character.
10.1.8 There is not any current policy prescribing the location of employment uses
below 2,500m2. Such a policy is not required, as long as impacts on residential
amenity are carefully controlled. This policy (draft Policy MGP32) will therefore
be regularly applied to new or expanding employment uses. Where HGV
movements (vehicles having a gross laden weight greater than 7.5 tonnes) are
to be generated, apart from during construction, it is not appropriate that
residential roads are used.
10.1.9 This policy applies equally to amenity levels within new residential
developments. For instance, layouts should avoid locating living rooms,
bathrooms and kitchens next to, above, or below proposed and neighbouring
bedrooms of attached properties.
10.3
The Town and Country
Planning (General
Permitted Development)
Order 1995 and its
amendments.
10.4
NPPF Paragraph 200.
10.1.10 Other policies in this document deal specifically with uses which often have
particular amenity impacts; new employment use (Policy MGP11), housing
(Policy MGP16) and rural employment (Policy MGP 8) should be read in
conjunction with this policy where they apply. Note that this policy only
applies to the end result of developments. The construction process should
usually be dealt with through other mechanisms such as Environmental
Protection Act 1990 and other relevant law.
10.1.11 Certain development is permitted under national ‘permitted development’
rights10.3. In such circumstances impact on amenity is not a consideration as
development of this scale is deemed to be minor in scale. The Government is
currently reviewing permitted development rights for numerous types of
development including householder extensions and changes of use. At the
time of drafting, these changes were not known. Where there is clear
justification to do so, permitted development rights may be removed to
protect local amenity or the wellbeing of the area10.4.
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10.1.12 The Sustainability Appraisal indicates the preferred option (C) is most
favourable as whilst both option B (complement national policy with a local
amenity policy) and C (complement national policy with a local amenity policy
and SPD) would be positive, the advantages of C are greater since producing
an Amenity SPD would give greater scope to address local issues. Option A
(rely on national policy) had negative impacts against several objectives. Care
will have to be taken in drafting the policy to ensure it does not act as a
deterrent to sustainable adaptations to housing, especially to cater for older
people. A local policy on amenity would have to be positively framed in order
to facilitate high density development that does not damage the attractiveness
of neighbouring sites, rather than preventing high density development
altogether. Care will have to be taken in drafting the policy to ensure it does
not act as a deterrent to sustainable extensions of and changes of use to
business premises.
Policy MGP 32: Safeguarding Amenity
New development should be sited, designed and laid out to avoid significant
detriment to the living environment of existing or planned residential properties, and if
residential development is proposed it is acceptable in terms of:
Form of built development
a)
Privacy and overlooking;
c)
Visual dominance and overbearing effects of a development;
b) Access to sunlight and daylight;
d) The position of habitable rooms, windows and outdoor living spaces is particularly
important. A back-to-back distance of 20 metres between dwellings will normally
be required, unless it can be demonstrated that dwellings can be closer without a
detrimental effect on privacy.
Use of land and buildings, including traffic movements and hours of operation
e)
f)
Noise and disturbance;
Artificial lighting;
g) Vibration;
h) Unpleasant emissions from odour, fumes, smoke, dust, etc; and
i)
Commercial waste.
Proposals which would result in regular movements of HGVs on residential roads will
not be acceptable.
Where an otherwise acceptable development could change its character to a use that
would have a greater impact on amenity without needing planning permission,
conditions will be applied to restrict such changes.
Making it Happen
10.1.13 Through the development management process. A supplementary planning
document ‘Protecting Residential Amenity’ will be prepared, with guidance on
protecting residential amenity and on how extensions can be designed to
accord with this policy. Some detail on separation distances of new buildings
(but not conversions and extensions) is provided in the Design of New
Development SPD.
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10.2 SUSTAINABLE DESIGN AND ADAPTATION
Context
10.5
10.6
Climate Change Action
Plan for the North East,
Sustaine, 2008
Carbon Plan: Delivering
our low carbon future,
DECC, 2011
10.7
Powering the nation,
Energy Savings Trust, 2012
10.8
DBC, 2011
10.9
Development SPD, DBC
2011
10.10 Planing Obligations SPD,
DBC 2013
10.2.1 By the 2050s, as a result of climate change, the North East is predicted to
experience an increase of 21% in winter rainfall, a rise in extreme hot
temperatures by 3oC, and more frequent heatwaves, storms and flooding10.5.
A key factor causing climate change is carbon dioxide emissions. In 2009, 37%
of carbon emissions in the UK were from heating and powering homes and
buildings10.6, while in 2012, over 25% of the total carbon dioxide emissions
were from domestic buildings10.7.
10.2.2 Minimising the impact of and adapting to the effects of climate change is an
objective of the local plan (Core Strategy objective 1). Mitigating climate
change is about ensuring that the design and construction of new development
(external fabric and structure) and the layout of internal and outdoor space
minimises carbon emissions, and adaptation is about ensuring that buildings
can still function effectively in the future when the climate is expected to be
different. Mitigation and adaptation measures are complementary; they should
be integrated into the design of new development, when it is more cost
effective to achieve the requirements set out in this draft policy.
10.2.3 The adopted Darlington Core Strategy10.8 indicates that the design, layout and
construction of new development should reduce demand for energy from
fossil fuels, for transport, heat and electricity, to help reduce the effect of
carbon emissions on climate change. Together with more detailed guidance in
the Design SPD10.9, it also sets out sustainable building standards, and the
requirement to provide decentralised and renewable or low carbon sources of
energy as part of new development (Core Strategy Policies CS2 and CS3). Core
Strategy Policy CS410.8 and the associated Planning Obligations SPD10.10 also
indicates that for major developments, developer contributions could be
sought for a carbon management fund that would improve the energy
efficiency of existing development.
Issues and options considered
10.11 For residential
development, these are
Code for Sustainable
Homes, and for non
residential development,
the BREEAM 2011
standards
10.12 60% improvement on
2010 Building Regulations
10.13 Plan for Growth, Budget
2011, HM Treasury
i) viability/deliverability of existing policy requirements
10.2.4 Core Strategy Policy CS2(f) sets out national sustainable building standards10.11;
Code 3 of the Code for Sustainable Homes has been achieved in new
residential development since 2011. In 2013, the policy increased the standard
required to Code 4. This is now more demanding than national requirements,
which have not advanced at the pace expected when the Core Strategy was
prepared. It is also a significant step up from the Code 3 standard, requiring
much higher standards of energy improvement in each home10.12, and
generally requiring on site renewable and low carbon technologies. In 2013
the additional cost of these has proved to be an obstacle to bringing viable
developments forward across the Borough. As such, the policy and associated
text (paragraph 3.2.3 of the Core Strategy)10.8 need to be replaced, so as to
not unnecessarily constrain new development in the Borough.
10.2.5 For non residential developments, the same issues apply, but the relevant
nationally recognised BREEAM 2011 ‘very good-outstanding’ standard will now
remain in place until 2019, when zero carbon development will be introduced10.13.
10.2.6 The only option considered was to align local requirements with national
standards, so that progress can still be made towards sustainability targets
without unduly affecting the ability to deliver other local plan objectives (such
as building new homes), that rely on viable developments coming forward.
163
ii) recognising the limitations to delivering renewable energy on site
10.14 Regulated energy is
energy used in the home
for water heating,
lighting, pumps and fans,
whereas unregulated
energy is that consumed
by the occupants of
homes through activities
like cooking and using
household electrical
appliances, such as
televisions and computers.
10.15 Allowable solutions: small,
medium or large scale
carbon-saving projects on
or off site required to
deliver carbon compliance
10.16 Sustainable New Homes:
The Road to Zero Carbon:
Consultation on the Code
for Sustainable Homes
and the Energy Efficiency
standard for Zero Carbon
Homes, DCLG, 16
December 2009
10.17 against the 2010 Building
Regulations
10.18 rather than from both
regulated and unregulated
emissions required by the
Core Strategy
10.19 identified in a project in
the Darlington Green
Infrastructure Strategy
10.20 Core Strategy Policy CS1.
164
10.2.7 The Core Strategy10.8requires at least 10% of all major developments’ predicted
energy supply to come from on site renewable and low carbon technologies,
and 20% in the strategic development locations, taking into account regulated
and unregulated energy10.14. When the strategy was prepared, it was envisaged
that a range of technologies e.g. combined heat and power plants, would be
available at relatively little cost to suit most new developments. In the
strategic locations it was considered district heating networks would be key to
supplying the amount of energy required, sustainably.
10.2.8 Whilst still potentially part of the solution, these targets are proving difficult
to deliver, because of the impact of up front investment on development
viability and because infrastructure delivery can be relatively inflexible for
larger schemes, which can evolve in response to changes in the market. In the
strategic locations, whilst most development is not planned immediately, other
infrastructure costs and planning requirements are likely to make the higher
target hard to achieve.
10.2.9 It is therefore improvements to building fabric and layouts and off-site
‘allowable solutions’10.15 that are now considered the most likely and cost
effective ways of reducing carbon emissions, and as such, paragraphs 3.3.73.3.9 of Core Strategy Policy CS3 need reconsidering, including reviewing the
20% renewable energy requirement for development in the strategic locations.
10.2.10 The options considered were around the contribution that on-site renewable
or low carbon technologies should make to delivering sustainable
development. Current Government thinking suggests that from 2016 it will
not be possible to achieve zero carbon residential development on site10.16 (for
non residential development from 2019), so a 70% on site reduction in carbon
emissions10.17 will be required from carbon compliance (60% from energy
efficiency and 10% from renewable and low carbon technologies) from
regulated energy emissions only10.18. The remaining 30% should be delivered
through allowable solutions. Allowable solutions can be carbon-saving
projects on or off site used to deliver the overall reduction in carbon emissions
required by the new development. They can include improving the energy
efficiency of existing homes, using energy efficient appliances, planting trees
on or off site10.19 or any other alternatives identified by the Government.
10.2.11 To achieve a balance between sustainability and viability, a similar approach
will be used up to 2016 (or 2019 for non residential development); delivering
Code 3 and a further 10% reduction in carbon emissions from carbon
compliance (either energy efficiency measures, on site renewable or low
carbon technologies or a combination of both) on site. Only where this is not
viable or feasible will allowable solutions to used.
10.2.12 Core Strategy paragraph 3.3.8 identified a different approach to delivering
renewable energy in the strategic locations10.20. The approach set out in
paragraphs 10.2.10-10.2.11 above will supersede the adopted approach in
CS3, being the most viable alternative to achieving sustainable development
unless a specific opportunity is identified for connection to a district heating
network (see draft Policy MGP4).
Figure 10.2.1: Designing Energy Efficient Developments
All emissions, including those
from unregulated energy use
All emissions from
regulated energy use
Emissions standard for
Carbon compliance
These emissions are no longer
included in the 2016 definition
for Zero Carbon homes
Allowable
Solutions
On-site LZC Heat
and Power
Fabric Energy Efficiency
iii) including mitigation and adaptation measures in new development.
10.2.13 Mitigation and adaptation are complementary measures that should be
integrated into the design of new development. At this early stage,
incorporating energy efficiency measures are more cost effective to achieve,
and several measures can be designed to achieve other local plan and scheme
objectives too.
Preparing the Draft Policy
10.2.14 The policy proposed in this document is to replace those set out in Policies
CS2(f) and parts of Policy CS3 of the Core Strategy with a more flexible
approach, to reflect changing economic conditions and the availability of
sustainable technologies. Sustainable building standards will be aligned with
the new national requirements by focussing on the three priorities in the
energy hierarchy; energy efficiency improvements will be the principal means
of reducing carbon emissions on site, complemented by on site renewable
energy generation and/or allowable solutions. Development will be able to
exceed the national standards; new development that exceeds these will be
looked upon favourably. The sequential approach suggested is as follows.
10.21 Vulnerable area: parts of
the Borough at risk from
all types of flooding
10.2.15 Step 1: Reducing energy use, by building a high level of energy efficiency in to
the fabric, design and layout so that developments can mitigate and adapt to
climate change. This can include orientation of buildings, choosing building
materials with a high thermal mass, and including elements such as insulation,
making the most of natural light, advanced glazing systems, green roofs and
reflective surfaces, which can all help to regulate building temperature.
Including green spaces and trees can reduce temperatures and providing
shade for people and buildings and habitats for wildlife. Water conservation
measures that could be designed in include low flow taps and advanced
rainwater harvesting systems for larger developments.
10.2.16 Climate change adaptation measures will be a priority in vulnerable areas10.21,
in accordance with national planning policy10.22. The design of development in
areas at risk of all types of flooding should incorporate flood resilience
measures, for example moving electrical sockets higher up walls above future
flood levels, to significantly reduce the damage, cost and time of repair if
properties are flooded in the future. Sustainable drainage should also be
considered where there is a high risk of surface water flooding or when
private gardens are replaced with hardstanding (see draft Policy MGP 34).
165
10.2.17 Buildings should be designed to be fit for purpose, both now and in the future.
For example, hospitals, schools and homes for older people should have
adequate ventilation, so that an increase in temperature does not make the
building uncomfortable, and this should be built in from the outset rather than
added on by attaching air conditioning units at a later date. New developments
should also be robust enough to withstand storms and high winds, easy to
maintain and repair, and capable of being used in a different way.
10.2.18 Adaptations to Darlington’s important heritage buildings should be sympathetic
to the special interest of the heritage asset and ensure that its significance is not
affected (see Policy MGP21). For example, fitting appropriate insulation and
secondary glazing can have a positive impact, if planned and installed correctly.
10.2.19 Given the vulnerabilities identified in 10.2.16 above, the only option for climate
change adaptation considered was to ensure adaptation measures are integrated
into the design of new development reflecting specific needs and opportunities.
10.2.20 Step 2: Once maximum energy efficiencies have been achieved, additional
reductions in carbon emissions should be achieved from on-site renewable and low
carbon technologies. These could include wind, solar and biomass technologies
as well as directly connected combined heat and power or district heating schemes.
10.2.21 Step 3: Where the ability to reduce carbon emissions to the right standard,
cost effectively, on-site have been exhausted, all outstanding emissions must
be mitigated via a financial contribution to the carbon management fund10.10
for ‘allowable solutions’.
10.2.22 This approach will ensure that new development is designed to function easily
and effectively with the minimum amount of energy, and hence carbon
emissions, over its lifetime. It should be achievable in a viable development; by
designing for higher standards of energy improvement, which most
developments are already delivering, and providing for renewable energy
and/or allowable solutions, the costs and timings of provision are more flexible,
and can be phased more easily over the construction of the development.
10.2.23 Clear evidence in a viability assessment will need to be submitted to show
why a development cannot achieve these requirements.
Sustainability Appraisal and Consultations
10.2.24 The sustainability appraisal found that by including local carbon reduction targets,
but by taking a flexible approach to how they are met, the draft policy ensures that
more new development will incorporate sustainable design appropriate to local site
conditions, in combination with draft policies MGP 23, MGP 28 and MGP 34 for
green infrastructure, sustainable transport and sustainable drainage. This approach
will also ensure that the use of renewable energy and/or the carbon management
fund will maximise opportunities for incorporating sustainability measures while
reflecting changing economic conditions. Consistent with national planning
guidance, this draft policy does not recommend specific renewable technologies
for different parts of the Borough or within the strategic locations. However
this flexible approach does not discourage the use of measures such as district
heating in the strategic locations, where opportunities have been identified.
10.2.25 In terms of climate change adaptation the sustainability appraisal indicated
that the draft policy would deliver many economic, social and environmental
benefits by enabling Darlington’s existing and new development the
opportunity to adapt to the likely effects of climate change, including
reducing flood risk and managing increased temperatures.
10.2.26 No specific consultations have been carried out on this issue previously, but
the Council has had dialogue with housebuilders and developers over the last
year who have all outlined, and in some cases provided evidence of, the
challenges of delivering to Code for Sustainable Homes level 4 or above.
166
Draft Policy MGP33: Sustainable Design and
Adaptation to Climate Change
All new development and conversions should be sustainably designed and constructed to
meet the appropriate level of the national sustainable building standards or any successor.
In accordance with the energy hierarchy all major development should achieve at least
the following minimum standards:
Major residential developments of 10 or more dwellings:
i)
ii)
from 2013, Code for Sustainable Homes Level 3 and a further 10% reduction of
carbon emission from on site renewable and low carbon technologies;
from 2016, 60% of carbon emission reductions from energy efficiency measures
and a further 10% from on site renewable and low carbon technologies, with up
to 30% from allowable solutions.
Major non residential development of 1000m2 floorspace or more:
iii) from 2013: BREEAM 2011 standard ‘very good-outstanding’ and a further 10%
reduction of carbon emissions from on site renewable and low carbon technologies;
iv) from 2019: 60% of carbon emission reductions from energy efficiency measures
and 10% from on site renewable and low carbon technologies, with up to 30%
from allowable solutions.
Where it can be shown to be not feasible or viable to achieve these requirements, an
equivalent reduction in carbon emissions will be secured through a financial contribution
to the carbon management fund to deliver allowable solutions on and/or off site.
These requirements will be met by ensuring that the overall layout and massing of the
development:
a)
takes account of landform, layout, building orientation and landscaping to
minimise energy consumption;
b) maximises the use of passive solar heating, thermal mass, natural light and
ventilation, insulation, air tightness, green infrastructure and reflective materials to
control building and development temperatures;
c)
minimises all sources of flood risk to and from the development, taking future
climate change scenarios into account;
d) promotes the use of sustainable transport to minimise the impact of vehicle
emissions;
e)
f)
reduces water consumption through water efficiency, rainwater harvesting and
grey water recycling measures;
mitigates for possible subsidence, with careful consideration given to the design of
foundations and to the positioning and choice of trees;
g) minimises waste and promotes recycling and composting; and
h) takes account of the expected changes in local climate throughout the lifetime of
the development by incorporating sufficient flexibility in the design and layout to
enable easy adaptation to the impacts of climate change;
i)
is adaptable to meet the changing needs of the occupier
Making it happen
10.2.27 By operating the Council’s development management function, preparing
masterplans for each of the strategic locations, Planning Briefs and other non
statutory plans, and by revising and applying the Design SPD.
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10.3 SUSTAINABLE DRAINAGE SYSTEMS
Context
10.23 Darlington Strategic Flood
Risk Assessment Level 2,
JBA, 2010
10.25 Sustainable drainage
systems: manage surface
water runoff as close to
where it falls as possible,
and can include SuDS and
mimic natural drainage.
10.26 Darlington Core Strategy,
Policy CS16
10.27 Critical Drainage Area: an
area within Flood Zone 1
which has critical drainage
problems
10.3.1 Flooding from surface water and sewers occurs during extreme rainfall, storms
and when heavy snow melts, which is expected to happen more frequently
with climate change. It occurs where the ground or rivers cannot absorb all
the surface water or where sewers are not large enough to deal with all the
water entering them from the drains. It is more of a risk in the older built up
parts of the Borough with traditional drainage, such as the Town Centre
Fringe, and low lying areas10.23. The significant amount of new development
envisaged in the Local Plan could increase the risk, if the increase in
impermeable surfaces is not adequately mitigated.
10.3.2 To reduce the risk of surface water and sewer flooding in the long term, the
amount of water discharged into local sewers and drains from new
development should be limited and the capacity of the sewerage network
improved. To accord with national planning policy10.24, the appropriate
application of sustainable drainage systems10.25 will be prioritised. The
Darlington Core Strategy10.26 promotes their use in new developments, where
technically and feasibly possible, and requires an integrated surface water
management solution for development in the Town Centre Fringe, Darlington’s
only Critical Drainage Area10.27 (see draft Policy MGP 3).
10.3.3 Sustainable drainage systems also have other benefits; they remove pollutants
from runoff improving water and river quality, while green features, like ponds
and green roofs, can be visually attractive and provide habitats for wildlife. If
green elements of the system are publicly accessible and provide opportunities
for informal recreation, education and habitat creation, they can also
contribute to open space requirements for new development (see draft Policy
MGP25) and can help achieve the right sustainable building standard (see
draft Policy MGP 33).
i) Site location and topography
10.3.4 The most appropriate type of sustainable drainage system (SUDS) will depend
on the underlying geology of the site and the surrounding area, and the
groundwater level. Central and southern Darlington has freely draining loamy
soils, which absorb rainfall and allow it to drain more easily. Here, dealing
with surface water runoff as close as possible to where it falls (source control
techniques) may be the most appropriate approach. The rest of Darlington has
more clayey soils which drain slowly and are more likely to experience
waterlogging in heavy rain. Here, solutions that store water on site and slowly
release it in a controlled manner (attenuation techniques) may be most
appropriate.
10.28 Higher flood risk zones:
Flood zone 3b and 3a
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10.3.5 SUDS should also reflect the form of the land, keeping flow pathways open
and providing areas for water to pond naturally. This means identifying flood
risk zones10.28, contaminated land and the source protection zones of the
Magnesian Limestone Aquifer10.26 early in the design process, as these could
reduce the SUDS options available. For example, ponds that take up a lot of
space may not be appropriate in high risk flood zones, systems requiring deep
boreholes and infiltration must not be constructed in contaminated ground;
ponds, basins and permeable paving can be used, with appropriate liners.
ii) Type and size of development
10.3.6 This can affect the amount of space available for SUDS. High density housing and
commercial development may have limited space available, making permeable
pavements in parking areas, green roofs and water butts attractive options.
iii) integration with other site requirements
10.3.7 Early consideration of SUDS is essential so that where possible, it can be
designed to deliver other site requirements too, particularly the design of
public realm and green infrastructure.
10.3.8 The sequence of selecting the appropriate drainage solutions should be as
outlined in Figure 10.3.1. Each step controls and manages surface water as
close to the source as possible, reducing run-off, slowing the concentration of
flows, and reducing the size of downstream features, such as ponds, until it
can be discharged without risk.
Figure 10.3.1: Drainage Hierarchy
10.29 ensures that flood risk to
a proposed development
is considered, as well as
the impact the
development will have
elsewhere on people and
property. Its scope will
reflect the scale, nature
and location of the
development.
10.30 In line with the Planning
Obligations SPD
10.3.9 Underground storage will only be permitted where all other SUDS are shown to
be impractical. Only in exceptional circumstances will discharge to a watercourse
or public sewer be acceptable, and even then, potential developers will need to
demonstrate that capacity exists to serve their development. Discharge to main
rivers (Tees, Skerne and Cocker Beck) will require permission from the Environment
Agency. For other watercourses permission must be sought from the Council.
10.3.10 Site investigations and a Flood Risk Assessment10.29 will identify the most
appropriate technique to meet the needs of each development. This will be
particularly important in the strategic development locations, given the amount
and mix of development proposed (see draft Policies MPG 3, 4, 5 and 6) and
should inform an integrated drainage management plan for the location.
10.3.11 Regular and effective maintenance is essential if sustainable drainage systems
are to perform satisfactorily throughout their design life. Responsibility for
adopting and maintaining sewers and most SUDS currently lies with
Northumbrian Water Ltd; sustainable drainage in open spaces are usually
adopted and maintained by the Council. The provision for maintenance must
be identified in the planning application, and such provision will be secured
via a legal agreement where appropriate10.30.
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10.31 Flood and Water
Management Act
10.32 will set out how SUDS
must be constructed and
operated
10.3.12 New national legislation10.31 is expected to require any new development or
construction that reduces the ability of the land to drain rainwater, to
incorporate sustainable drainage from 2014, built to emerging National
Standards10.32. This is to reduce flood risk and improve water quality. The
approval of new systems will be separate from a planning application and will
be by the Council, as the SUDS Approving Body. It will adopt and maintain
most SUDS; only systems in the A66 (T) and A1 (M) will be adopted by the
Highways Agency, the strategic highway authority. A Sustainable Drainage SPD
will be prepared to provide clear and practical advice on designing, operating,
maintaining and adopting sustainable drainage systems.
Sustainability Appraisal Findings and Consultation
Responses
10.3.13 The findings of the sustainability appraisal indicated that the draft policy will
deliver a range of social, environmental and economic objectives, with no
negative impacts, particularly as it provides scope to provide detailed, locally
specific advice to help developers deliver effective SUDS.
10.3.14 Taking into account national legislation, emerging guidance, existing local
surface water flood risk and the sustainability appraisal findings, an efficient
and integrated approach to delivering, maintaining and adopting sustainable
drainage is the preferred option, and it forms the basis of draft Policy MGP 34.
170
Draft Policy MGP 34: Sustainable Drainage Systems
(SUDS)
10.33 Greenfield conditions:
the level of surface water
drainage from a site prior
to development
Sustainable drainage systems must achieve an infiltration capacity to meet or exceed
greenfield conditions10.33, incorporating an allowance for climate change. Where
practicable, they should be designed and located to improve biodiversity, the
landscape, water quality and local amenity.
Within the overall design and layout of a site for development of 10 or more dwellings
or 1000m2 or more of non residential floorspace, appropriate sustainable drainage
systems should be provided in the priority order as follows:
1.
2.
3.
4.
minimise the amount of impermeable area; then
use source control techniques to control rainfall on site; then
use attenuation techniques on site; then, if required to store any remaining run off,
use larger, strategic systems that receive and store water on or off site.
Within the strategic development locations (except the Town Centre and the Rest of the
Urban Area) sustainable drainage systems should be fully integrated into each phase of
development, as required by the location’s integrated drainage management plan.
Where appropriate, a maintenance contribution equivalent to 10 years maintenance
may be required for all developments identified above10.30.
All development that provides or replaces 5m2 or more of hard, impermeable surfaces
in a private front garden will be required to:
1.
2.
3.
incorporate a permeable surface;
provide adequate drainage; and
cause no increase in flood risk on site or to neighbouring properties.
Only in exceptional circumstances, where a Flood Risk Assessment, local site conditions
and/or engineering report show that sustainable drainage systems will not be feasible
will the discharge of rainwater direct to a watercourse, surface water drain or to a
combined sewer be considered.
Making it Happen
10.3.15 By operating the Council’s development management function, preparing
integrated drainage management plans for areas of significant development
and regeneration, preparing a Sustainable Drainage Systems Supplementary
Planning Document, and preparing Planning Briefs and other non statutory
plans for specific sites.
171
10.4 AIRPORT SAFETY
Context
10.34 Darlington Core Strategy
(DBC 2011) Policy CS1
Framework (DCLG 2012),
paragraph 172
10.36 Joint ODPM/DFT Circular
01/2003
10.4.1 Durham Tees Valley Airport is recognised by the Council as essential to the
economic performance of the Tees Valley, and to the Darlington Borough. It is
identified as a strategic location for airport-related uses in the Darlington Core
Strategy10.34. A policy specifically to address development needs at the airport
is included earlier in this document (draft MGP7).
10.4.2 The Core Strategy (Policy CS16) indicates there should be no detrimental impact
on the health and safety of the community arising from new development, and
national planning policy10.35 states that planning policies should use up to date
information on major hazards to mitigate the consequences of major accidents.
Issues
10.4.3 The airport is safeguarded as a civil aerodrome of importance to the national
air transport system10.36. As such, the capacity of the airport to operate safely is
protected by land use planning restrictions placed on the surrounding area.
These include requirements to consult with the airport operator for proposed
developments above a particular height or with certain other characteristics
that may create a hazard for aircraft using the airport, if proposed
developments are within identified zones. Examples are developments likely to
attract birds, developments with lights that could distract or confuse pilots, or
developments that reflect, diffract or otherwise interfere with the radio signals
used at the airport. Wind turbines can also have a distracting effect on radar,
so the operator of Durham Tees Valley Airport and the MOD will be consulted
on all applications for wind turbines measuring 11m or more from ground to
blade tip, or with a rotor diameter of 2m or more.
10.4.4 The safeguarding zones are shown on Figure 10.4.1.
10.37 DFT Circular 01/2010
172
10.4.5 The airport also has an associated Public Safety Zone at the south-western end of
the runway, also indicated on Figure 10.4.1. Government policy10.37 indicates that
various types of development that should not be allowed in a Public Safety
Zone and requires local planning policies to include reference to these zones in
their development plans. The aim of this designation is that there should be no
increase in the number of people living, working or congregating within the Zone
and that, over time, the number should be reduced, as circumstances allow.
Figure 10.4.1: Safeguarding Zones and Public Safety Zone associated with
Durham Tees Valley Airport
CAA Safety Zones
Services for Place
Date: February 2013
Options Considered
Scale 1:70,000 @ A3
10.4.6 The only option considered was to have a policy setting out the extent of
airport safeguarding zones and public safety zones in the Borough and
referring back to the relevant government guidance on how applications for
development within them should be treated. Any other option would not
adequately contribute to the safety of the inhabitants/users of new
development and of flights in and out of Durham Tees Valley Airport.
10.4.7 The proposed policy identifies the zones discussed above on the Policies Map,
and indicates the specific provisions that will apply in the processing and
consideration of developments proposed within them.
10.4.8 Sustainability appraisal: The option was rated very highly against the
‘community safety’ objective of sustainability appraisal, and neutrally against
the other objectives.
Draft Policy MGP35: Airport Safety
An Aerodrome Safeguarding Zone and a Public Safety Zone, as shown on the Policies
Map, are identified for Durham Tees Valley Airport.
Proposals for development within the Aerodrome Safeguarding Zone will be the
subject of consultation with the operator of that airport.
Proposals for development within either zone will be determined in accordance with
national policy.
Making it Happen
10.4.9 Through the Council’s development management function.
173
11. MONITORING
11.1
The AMR 2011-12 report
can be accessed at the
planning policy website
www.darlington.gov.uk/pl
anningpolicy
11.1
11.2
11.3
11.4
11.5
174
As part of the Annual Monitoring (AMR) process a number of indicators have
been identified (table 11.1) which have relevance for helping the Council to
keep track of the extent to which the policies in this document are having the
intended effect, and to establish whether any particular policy needs to be
revised.
However, due to the more limited availability of planning resources, availability
of data to underpin the indicators and changes in Government requirements,
it may not be possible to track progress against every indicator. Information to
underpin the indicators will therefore be collected, and progress against
indicators reported, as resources permit.
This approach was taken as part of the 2011-12 AMR11.1 for the Core Strategy.
The AMR only reported on a limited number of the indicators that were
identified in the Core Strategy and this was a reflection of the prevailing
availability of resources and Government regulations. The list of priority
indicators used were those which were identified as providing the most
effective measure of progress towards delivery of policy objectives in the Core
Strategy, within the confines of available resources. Anecdotal information was
also utilised where appropriate.
It is suggested that a similar approach is taken towards monitoring of
indicators for the MGP planning document. Once the MGP document is
finalised, all indicators will be brought together into a single set of indicators
to underpin monitoring of progress of Local Plan policies.
In terms of frequency of reporting on progress against policy objectives, it will
be appropriate to report on the majority of indicators at the end of the year as
part of the Annual Monitoring Report. A small selection of indicators will be
reported on a more frequent basis either quarterly or 6 monthly, this includes
for example, net additional homes, where progress throughout the year may
have particular significance for strategy and policy.
Completed dwellings meeting top-end executive housing definition.
MGP 17: Top-end Executive Housing Sites
MGP 19: Housing Intensification
MGP 18: Red Hall Housing Regeneration Area
Net additional homes
MGP 16: New Housing Sites
Number of dwellings constructed on garden land.
Number of applications for HMO’s and Flat Conversions granted at appeal within the saturation zone.
Number of HMO’s and Flat Conversions granted planning permission outside of the saturation area.
Project delivery milestones, as set out in progress reports on delivery of the Darlington Housing Strategy
/Action Plan.
Percentage of new homes delivered on previously developed land (PDL)
Amount of floorspace completed for town centre uses by type, by centre and for the borough as a whole
Amount of retail floorspace and vacancy rates in the town centre and district and local centres
Total amount of floorspace for town centre uses
Losses of employment land by type
Employment land available by type
Total amount of employment floor space on PDL by type
Total amount of additional (net and gross) employment floorspace by type
No. new dwellings completed to meet an identified rural need.
No new dwellings completed by converting redundant agricultural buildings.
No. commercial units granted planning permission/completed
No. rural buildings converted into a commercial or community use.
Amount and type of development granted as exception to policy.
Amount of airport related development (ha)
MGP14: Fringe Shopping Areas; MGP15: District and Local Centres
MGP 12:Town Centres; MGP13: The Primary Shopping Area;
MGP 11: Promoting Employment Opportunities
MGP 9: Economic Development in the Open Countryside and
MGP 10: Residential Uses in the Open Countryside
MGP 8: Development Limits
Development monitoring through theme specific policies.
MGP 7: Durham Tees Valley Airport
Development monitoring through theme specific policies, e.g. MGP16.
Milestones in preparing and agreeing masterplan for area
Amount and type of development completed compared with planning permissions.
Through monitoring of the Town Centre Fringe Masterplan, and draft Town Centre Fringe Procurement Strategy
Town Centre project milestones
Additional floorspace for retail, office and leisure by town centre, district and local centres.
MGP 5: North West Urban Fringe; MGP 6: Eastern Urban Fringe
MGP 4: Existing Strategic Commitments
MGP 3: Town Centre Fringe
Amount of completed A1 floorspace by town centre, district and Local centres and for the Borough as a whole.
MGP 2: Darlington Town Centre
Making and reviewing decisions on planning applications.
Percentage of planning applications granted that do not accord with Local Plan policies
Monitoring Indicator
MGP 1: Presumption in Favour of Sustainable Development
Policy
Table 11.1 – Making and Growing Places Proposed Monitoring Indicators*
175
176
Allotment provision in the Borough
MGP 30: Physical Infrastructure
MGP 29: Parking Provision
MGP 28: Improving Access and Accessibility
MGP 27: Delivering a More Sustainable Transport Network
MGP 26: Outdoor Sports Facilities
MGP 25: Biodiversity and Geodiversity and Development
Percentage of designated employment land rated as ‘black’ for broadband coverage (Target: 90%)
Percentage of the Borough’s households living in an area rated as ‘black’ for broadband coverage (Target: 90%)
Number of electric vehicle charging points provided (annual frequency).
Council Parking Provision Within the Urban Area, split into short stay (time limited), short stay unlimited and
long stay (annual frequency)/
Applications granted with new or improved access facilities for the disabled
Number of electric vehicle charging points provided in association with new development
Rail Patronage
Bus Patronage
Cycling to Town
Walking to Town
Peak period traffic flows
% of primary children travelling to school by car (inc car share)
% of primary children travelling to school by car (inc car share)
Bus services running on time
Congestion – average journey time during morning peak
Playing field area in Borough
Proportion of local wildlife sites which are being actively managed
Total no of Local Nature Reserves
Total number of Local Wildlife Sites
Open space provision in the urban area and Borough
MGP24: Green Infrastructure Standards
MGP 23: Green Infrastructure;
TBC#
MGP 22: Local Landscape Character
Developments located within the ‘Area of Special Archeological Significance’ which result in new finds.
Milestones for preparing local list
Number of additional pitches included in development plans (DCS1302)
No. of applications granted along the 1825 Historic Darlington to Stockton Railway Route that have made an
improvement to either access, interpretation, reinstatement or condition of the historic route.
MGP 21: Protecting Darlington’s Heritage Assets
Net additional Gypsy and Traveller Pitches
MGP 20: Accommodating Travelling Groups
Policy
None#
Number of new sustainable drainage schemes adopted / implemented
Number of CSH/BREEAM conditions discharged
No of 10% conditions discharged
Renewable energy capacity by type
Adapting to climate change
Percentage of appeals where this policy was a reason for refusal and where the Inspector does not uphold
that reason for refusal.
Standards of quality and access to indoor sports provision
Number of educational sports halls with out of hours community access
Adult participation in indoor sports activities
Numbers of GP surgery practices per 1,000 population or No of patients per GP
Available places in primary and secondary schools
Number of new tourism or cultural developments completed
# No indicators currently identified. This will be reviewed as part of the Annual Monitoring Report.
*Indicators identified in italics are those which were identified as priority indicators for monitoring of strategic policies in the Core Strategy for 2011-12.
MGP 35: Airport Safety
MGP 34: Sustainable Drainage Systems (SUDS)
MGP 33: Sustainable Design and Adaptation to Climate Change
MGP 32: Safeguarding Amenity.
Infrastructure
MGP 31: Supporting the Delivery of Social and Community
Policy
177
Appendix 1
Saved Local Plan Policy Replacement List
Please note ALL previously saved policies Local Plan (1997) policies will be deleted upon adoption of the
Making and Growing Places DPD
Proposed New Policy (working titles)
Replacing Saved Local Plan Policy/policies
MGP 2: Darlington Town Centre
EP11 – Central Area Development Limits
MGP 4: Existing Strategic Commitments
EP4 (Part) – Haughton Road
MGP 1: Presumption in Favour of Sustainable
Development
MGP 3: Town Centre Fringe
MGP 5: North West Urban Fringe
MGP 6: Eastern Urban Fringe
MGP 7: Durham Tees Valley Airport
MGP 8: Development Limits
MGP 9: Economic Development in the Open
Countryside
MGP 10: Residential Uses in the Open Countryside
MGP 11: Promoting Employment Opportunities
MGP 12:Town Centres
MGP 13: The Primary Shopping Area
MGP 14: Fringe Shopping Areas
MGP 15: District and Local Centres
MGP 16: New Housing Sites
MGP 17: Top-end Executive Housing Sites
MGP 18: Red Hall Housing Regeneration Area
MGP 19: Housing Intensification
MGP 20: Accommodating Travelling Groups
178
New Policy
New Policy
New Policy
New Policy
EP9 (Part) - Teesside Airport Employment Land - North
EP10 (Part) – Teesside Airport Employment Land – South
T49 – Teesside Airport
E2 – Development Limits
E4 (part)– New Buildings in the Countryside
E5 (part)- Change of use of buildings in the countryside
R14 – Recreation Development in the Countryside
R15 – Horse Related Development
E4 (part) – New Buildings in the Countryside
E5 (part) – Change of use of buildings in the countryside
H7 – Areas of Housing Development Restraint
EP2 – Employment Areas
EP3 – New Employment Areas
EP4 – Haughton Road
EP6 – Prestige Employment
EP7 – Office and business development
EP8 – Reserve Employment Site
EP9 (Part) - Teesside Airport Employment Land - North
EP10 (Part) – Teesside Airport Employment Land – South
EP11 – Central Area Development Sites
S4 – Town Centre Service Uses
S5 – Town Centre Food and Drink Uses
S6 – Non retail uses
S8 – Window Displays
S19 – Amusement Centres
S9 – Fringe Shopping Areas
S10 – Safeguarding District and Local Centres S11 – New
development in District and Local Centres
H5 – New Housing Development Sites
New Policy
New Policy
H13 – Backland Development
H17 – Concentrations of Housing in Multiple Occupation
H18 – Houses in Multiple Occupation in Other Areas
H20 – Gypsy sites
Proposed New Policy (working titles)
Replacing Saved Local Plan Policy/policies
MGP 22: Local Landscape Character
E3 – Protection of Open Land
E9 (part) – Protection of Parklands
E17 – Landscape Improvement
E18 – River Skerne
MGP 21: Protecting Darlington’s Heritage Assets
MGP 23: Green Infrastructure
MGP 24: Green Infrastructure Standards
MGP 25: Biodiversity and Geodiversity and
Development
MGP 26: Outdoor Sports Facilities
MGP 27: Delivering a More Sustainable Transport
Network
MGP 28: Improving Access and Accessibility
MGP 29 Parking Provision
MGP 30: Physical Infrastructure
MGP 31: Supporting the Delivery of Community and
Social Infrastructure
MGP 32: Safeguarding Amenity
MGP 33: Sustainable Design and Adaptation to
Climate Change
MGP 34: Sustainable Drainage Systems
MGP 35: Airport Safety
E9 – Protection of Parklands
E36 – Designation of further Conservation Areas
E9 (part) – Protection of Parklands
E18 – River Skerne
E21 – Wildlife Corridors
E20 (part) – Sites of Nature Conservation Importance
E22 (Part) – Local Nature Reserves
R12 – Access to Open land and Countryside
T36 (part), T39 (part), E9, E18, E20, E21 (part), E22, R16, R30
R4 – Open Space Provision
E20 (part) – Sites of Nature Conservation Importance
E21 (Part)- Wildlife Corridors
E22 (Part) – Local Nature Reserves
R11 – Artificial Turf Playing Pitch
T6 (Part) – Safeguarding Major Road Schemes
T44 – Passenger Railways
T46 – North Road Railway Station
T49 – Teesside Airport
T7 – Traffic Management and Main Roads
T8 – Access to Main Road
T9 – Traffic Management and Road Safety T15 –
Improvements for pedestrians
T19
T20
T21
T22
T26
T27
–
–
–
–
–
–
Multi Storey Car Parks
Town Centre surface car park
Public Use of private car parks
Priority in central car parks
Town centre fringe parking
On Street Parking Control
T52 (Part) – Drainage Infrastructure
T53 – Satellite Antenna
R27 – Sites for New Community Facilities
R29 – Village and Community Halls
R30 – West Cemetery Extension
E38 (part) – Alterations to business premises H12 –
Alterations and Extensions to Existing Dwellings
E53 (Part) – Satellite Antenna
S5 (part) – Town Centre Food and Drink Uses S11 (part) –
New Development in District and Local Centres
T40 (part) – New Development and Lorries, T43 (part) –
Residential areas and Lorries
New Policy
T52 – Drainage Infrastructure
New Policy
179
Policies not to be directly replaced and will therefore no longer form part of the development plan:
E12 – Trees and Development
E13 – Tree Preservation Orders
E14 – Landscaping and Development
E17 – Landscape Improvement
E37 – Enhancement of the Built Environment
E39 – Advertisements in Built Up Areas
E40 – Advertisements in the Countryside
S15 – Shopping Trolleys
S20 – Sale of large items
S21 – Petrol Filling Stations
S22 – Garden Centres
S23 – Sale from Factories
T5 – Environmental Appraisal of Major Road Schemes
T10 – Traffic Calming: Existing Roads
E41 – Poster Hoardings
T11 – Traffic Calming : New Development
E43 – Vacant Upper Floors
T17 – Rear Servicing
E42 – Street Furniture
E51 – Broken Scar Development Limitation Zones
H10 – Affordable Housing in the Rural Area
H19 – Special Care Accommodation
R3 – Provision of Public Facilities in New Buildings
R16 – Stressholme Golf Course
R23 – Off Road Motorcycle Facilities
R28 – School Provision at Brinkburn
EP12 – Office Development Limits
S3 – Abbotts Yard Development
S7 – Mechanics, Clarks and Bucktons Yards
T14 – Private Car Access to Town Centre
T18 – Collection/Distribution Centre
T32 – Feethams bus station
T35 – Taxi Offices
T36 – Taxi Ranks
T41 – Overnight Parking at Chestnut Street
T42 – Lorry Parks
T47 – Road/Rail Freight Depot
T50 – Overhead Line
T51 – Location of Services
T55 – Broken Scar Water Treatment Works
Implications for Core Strategy Adopted 6 May 2011
Policy CS2 (f) and CS3 relating to the on site provision of decentralized and renewable or low carbon technologies
will be deleted and replaced by policy MGP 33 of the Making and Growing Places DPD.
Section 9 including Policy CS19 would be deleted entirely to be replaced by Section 8 of the Making and Growing
Places DPD including policies MGP27, MGP28 & MGP29.
Policy CS10 has been partially superseded insofar as it relates to phasing of housing numbers only by updated
information provided in MGP16.
180
Appendix 2
Technical papers underpinning policy development
Reference
Topic/Title
Housing Technical Paper 1
New Housing
Housing Intensification
Retail Technical Note 1
General Technical Paper 1
General Technical Paper 2
(all published June 2013)
Top End Executive Housing Sites Assessment
Accommodating Travelling Groups
Darlington Town Centre Primary and Secondary Shopping Frontages
Primary Shopping Area Boundary - appendices do not appear to have been completed
Darlington Town Centre Boundary
Fringe Shopping Areas
Study to identify boundaries of new and existing District and Local Centres
Impact assessment threshold for retail proposals outside of centres
Limits to Development
Green Wedge Assessment
181
Appendix 3
Local policies, plans, strategies and studies taken into account in preparing
this document
Name of Document (by topic area)
Author
Published
One Darlington: Perfectly Placed, A Vision for Darlington:
2008-2021
Darlington Partnership
Oct 2008
Town Centre Fringe Masterplan
DBC
DBC
May 2012
Darlington’s Climate Change Strategy 2006-2010
Darlington Partnership
Sept 2006
East Durham Limestone and Tees Plain Wind Farm
Development and Landscape Capacity Study 2008,
and Addendum 2009
North East Regional Assembly
Aug 2008
& Oct 2009
Entec
Dec 2009
& July 2010
Various
Climate Change / Renewable and Low Carbon Energy
Darlington Climate Change Action Plan 2009/2010
Darlington Decentralised Renewable and Low Carbon
Energy Study, and Update
Sept 2006
A District Heating Utility for the Tees Valley: Strategic
Framework
Parsons Brinkerhoff
July 2010
Private Sector Housing Renewal Strategy 2008-2012
DBC
Jan 2008
Tees Valley Strategic Housing Market Assessment
Nathaniel Lichfield & Partners
(for the Tees Valley Housing
Market Partnership)
Jan 2009
Darlington Strategic Housing Land Availability Assessment
and Updates
DBC
Economic Viability of Housing Land in Darlington Borough
Levvel
March 2009 &
Dec 2010 and Jan
2012
Housing and Gypsy & Travellers
Darlington Housing Strategy 2008-2012
Darlington Strategic Housing Market Assessment
DBC
Arc 4
May 2008
May 2012
June 2010
Economic Viability of Housing Land in Darlington Borough
Addendum to Study
Levvel
January 2012
Darlington Town Centre Fringe: Improving Housing Stock
for the 21st Century
Brown Smith Baker
May 2011
Blackwell Grange Golf Club Statement of Significance
Tees Valley Gypsy and Traveller Accommodation Needs
Assessment
Archaeo-Environment Ltd.
University of Salford et al
(for DBC et al)
August 2012
Jan 2009
DBC
March 2012
BDP et al
Dec 2006
Potential Sites for Gypsies, Travellers and Travelling
Showpeople Study
Employment
Darlington Gateway Strategy 2006
Darlington Employment Land Review 2009
Darlington Business Sites and Premises Review 2013
Economic Viability of Non Housing Land in Darlington Borough
182
DBC
April 2013
DBC
NLP Planning/DTZ
Levvel
Dec 2009
May 2013
July 2010
Name of Document (by topic area)
Author
Published
Darlington Retail Study 2008 and 2010 Update
Martin Tonks
Retail advice to Darlington Borough Council on potential
supermarket developments in Darlington
England & Lyle
Dec 2008
& July 2010
October 2012
DBC Retail Surveys & Monitoring
Tees Valley Hotel Futures
DBC
Feasibility of a Cultural Quarter in the Town Centre Fringe
Hotel Solutions (for DBC et al)
Continuous
Globe Consultancy
2011
Retail, Hotels and Tourism
Biodiversity
Tees Valley Biodiversity Action Plan
July 2009
Tees Valley Biodiversity
Partnership (for DBC et al)
continuous
Parsons Brinkerhoff
May 2010
Town Centre Fringe Conservation Management Plan
Archaeo-Environment
July 2010
Darlington Open Space Strategy 2007-2017
DBC
April 2007
Tees Valley Green Infrastructure Strategy 2008
Tees Valley Joint Strategy Unit
March 2008
Town Centre Fringe Habitats Risk Assessment
Conservation
Open Space, Green Infrastructure and Recreation
Darlington Open Space Strategy Update
Draft Darlington Green Infrastructure Strategy
Darlington Sports and Physical Activity Facilities Strategy 2009
Darlington Playing Pitch Strategy 2009
DBC
DBC
PMP (for DBC)
PMP (for DBC)
November 2010
August 2012
June 2009
June 2009
The River Restoration Centre
for DBC
November 2010
Darlington Strategic Flood Risk Assessment 2009
JBA Consulting
Dec 2009
Darlington Town Centre Fringe Mitigation Strategy
JBA Consulting
July 2012
River Skerne through Darlington: River Restoration Options
Flood Risk
Darlington Level 2 Strategic Flood Risk Assessment
Transport
JBA Consulting
October 2010
Darlington Third Local Transport Plan Transport Strategy:
2011-2026
DBC
March 2011
Darlington Connections Study 2009
Darlington LDF Transport Area Action Plans
Urban Initiatives
Dec 2009
Position Statement for Darlington Borough Council LDF
Core Strategy
ARUP
Highways Agency
22/10/2010
Tees Valley Unlimited
In preparation
Darlington Contaminated Land Strategy
DBC
February 2002
Town Centre Fringe Archaeological Desk Study
Durham University
May 2010
Tees Valley Transport Area Action Plan
Darlington Parking Strategy, Technical Report
General
Darlington Local Brownfield Strategy
Town Centre Fringe Environmental Risk Assessment
MVA consultancy
Thomas Lester
Parsons Brinkerhoff
August 2010
December 2012
November 2011
May 2010
(DBC = Darlington Borough Council; BDP, PMP, etc are the names of consultancy firms, working for DBC unless otherwise indicated)
183
Appendix 4
Demonstrating Functional Need in Rural Areas
A functional test is necessary to establish whether it is essential for the proper functioning of the enterprise for one
or more workers to be readily available at most times.
Such a requirement might arise, for example, if workers are needed to be on hand day and night:
a.
b.
in case animals or agricultural processes require essential care at short notice;
to deal quickly with emergencies that could otherwise cause serious loss of crops or products, for example, by
frost damage or the failure of automatic systems.
In cases where the local planning authority is particularly concerned about possible abuse, the history of the holding
shall be investigated to establish the recent pattern of use of land and buildings and whether, for example, any
dwellings, or buildings suitable for conversion to dwellings, have recently been sold separately from the farmland
concerned. Such a sale could constitute evidence of lack of agricultural need.
The protection of livestock from theft or injury by intruders may contribute on animal welfare grounds to the need
for a new agricultural dwelling, although it will not by itself be sufficient to justify one. Requirements arising from
food processing, as opposed to agriculture, cannot be used to justify an agricultural dwelling. Nor can agricultural
needs justify the provision of isolated new dwellings as retirement homes for farmers.
If a functional requirement is established, it will then be necessary to consider the number of workers needed to
meet it, for which the scale and nature of the enterprise will be relevant.
New permanent accommodation cannot be justified on agricultural grounds unless the farming enterprise is
economically viable. A financial test is necessary for this purpose, and to provide evidence of the size of dwelling
which the unit can sustain. In applying this test (see draft Policy MGP10), the Council will take a realistic approach to
the level of profitability, taking account of the nature of the enterprise concerned. Some enterprises which aim to
operate broadly on a subsistence basis, but which nonetheless provide wider benefits (e.g. in managing attractive
landscapes or wildlife habitats), can be sustained on relatively low financial returns.
Agricultural dwellings should be of a size commensurate with the established functional requirement. Dwellings that
are unusually large in relation to the agricultural needs of the unit, or unusually expensive to construct in relation to
the income it can sustain in the long-term, will not be permitted. It is the requirements of the enterprise, rather than
those of the owner or occupier, that are relevant in determining the size of dwelling that is appropriate to a
particular holding.
Should permission be granted the Council may consider making planning permissions subject to conditions removing
some of the permitted development rights under part 1 of the Town and Country Planning (General Permitted
Development) Order 1995 (or subsequent replacement legislation) for development within the curtilage of a dwelling
house. For example, proposed extensions could result in a dwelling whose size exceeded what could be justified by
the functional requirement, and affect the continued viability of maintaining the property for its intended use, given
the income that the agricultural unit can sustain. Where possible such conditions will be targeted to restrict the use
of specific permitted development rights rather than to be drafted in terms which withdraw all those in a class.
Agricultural dwellings should be sited so as to meet the identified functional need and to be well-related to existing
farm buildings, or other dwellings.
184
Appendix 5
Summary of Designated Heritage Assets
Listed Buildings
A full list of Listed Buildings in Darlington Borough can be found at www.darlington.gov.uk/conservation
Scheduled Ancient Monuments (20)
Conservation Areas (16)
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
Archdeacon Newton: medieval site
Bishopton: Castle Hill earthworks
Brafferton: Ketton Bridge
Coatham Mundeville: medieval village
•
•
•
Bishopton
Coatham Mundeville
Cockerton Green
Denton
Darlington: Skerne Bridge
•
Haughton-le-Skerne
Great Burdon: World War II bombing decoy
control shelter
•
High Coniscliffe
Darlington: Coniscliffe Road waterworks
•
•
Heighington: camp on Shackleton Hill
•
High Coniscliffe: Ulnaby deserted medieval village
•
High Coniscliffe: Smotherlaw round barrow
Low Dinsdale: earthworks of manor house
Low Dinsdale: Anglo-Saxon cross
Middleton St. George: deserted village of
West Hartburn
Middleton St. George: Tower Hill Motte
Piercebridge: Roman station
Piercebridge: Piercebridge Bridge
Sadberge: shrunken medieval village
Sockburn: All Saints Church
Heighington
Hurworth
Northgate
•
Middleton One Row
•
Sadberge
•
Town Centre
•
•
Piercebridge
Summerhouse
Victoria Embankment
•
West End
•
South Park
Registered Parks and Gardens (2)
•
West Cemetery
Summerhouse: Summerhouse earthworks
Walworth: deserted village
185
Significance of Heritage Assets in Darlington Borough
In determining planning applications that may affect a heritage asset the Council requires applicants in a Heritage
Statement or Design and Access Statement to describe and assess the significance1 of the heritage asset(s) affected,
including any contribution made by their setting2.
As a group, Darlington’s archaeology and historic buildings are of considerable significance. The Borough’s
archaeology, historic buildings and historic landscapes are of national importance and of significant international
importance are the links to the formation of passenger railways and British Quaker heritage. In assessing the heritage
significance of a place consideration should be given to:
•
•
•
•
•
•
•
•
Understanding the fabric and evolution of the place
Identifying who values the place, and why they do so
Relating identified heritage values to the fabric of the place
Considering the relative importance of those identified values
Considering the contribution of associated objects and collections
Considering the contribution made by setting and context
Comparing the place with other places sharing similar values
Defining the significance of the place.
When assessing proposals which have impact upon heritage assets the relative values afforded by each asset will
need to be considered in order to determine if a proposal is acceptable. The borough wide values which contribute
to the significance of the borough’s heritage are summarised below, making reference to the principles set out in
English Heritage’s Conservation Principles document3.
Evidential value: the potential of a place to yield evidence about past human activity.
While existing knowledge of Darlington’s heritage assets is vast, there is still great potential to provide new
information and enhance our understanding of the Town’s historical development, the people who lived here and the
activities which occurred.
Further archaeological discoveries may be made within the local area and the significance of existing heritage assets
could be revealed or new heritage assets formally identified. Opportunities for the discovery of new evidence of the
role that sites, industries and people played in the history of the area are great.
There may also be knowledge within the local community in Darlington which has not been shared or well
documented but holds key information.
Historical Value: the ways in which past people, events and aspects of life can be connected through a place to the present.
Heritage assets within Darlington are invaluable in illustrating its history and development. Important monuments,
such as Roman Piercebridge, the Iron Age hill fort at Shackleton Beacon Hill and various Medieval deserted villages,
contribute to our understanding of early settlements, movements and defences in the North, with some offering
particularly well-preserved examples of their type within the region and nationally.
Perhaps the most important heritage assets though are those dating from the Industrial Revolution, such as the Tees
Cottage Pumping Station, Skerne Bridge and Hopetown Carriage Works, when Darlington was at the forefront of the
development of the railway in Britain and extensive innovation was occurring.
Alongside this, a valuable collection of civic and private buildings have strong historical associations with important
people, particularly those belonging to the Quaker movement which had a profound impact on Darlington and
Britain, both socially and economically. This Quaker influence is well represented through heritage assets including,
but not limited to; Barclay’s Bank, Crown Street Library and South Park.
1
2
3
186
English Heritage defines the significance of a heritage asset as “The sum of the cultural and natural heritage values of a place, often set out in a
statement of significance”.
English Heritage defines the setting of a heritage asset as “The surroundings in which a place is experienced, its local context, embracing
present and past relationships to the adjacent landscape”.
As identified in English Heritage’s ‘Conservation Principles’ April 2008
Aesthetic Value - the ways in which people draw sensory and intellectual stimulation from a place.
The aesthetic value of Darlington varies widely.
Attractive country houses, grand public buildings, historic villages and affluent suburbs demonstrate fine
architecture, often attractive settings and subtle beauty, highly valued by local communities.
Commonly co-located are simple and uniformed rows of terraces with strong rhythm and architectural integrity and
at times a feeling of enclosure. These complement a range of other more imposing buildings from the age of
industry which display, at times fortuitous, architectural splendour despite their utilitarian purpose.
The central urban landscape has a distinctive skyline with a range of towers and spires providing key landmarks
within the town centre. As mentioned in Core Strategy Policy CS14 these are the Market and Station Clock Towers,
St. Cuthbert’s Spire and St’ Johns Tower.
Darlington also has a number of distinct historic suburbs including the first suburban developments in the town,
dating from the 18th Century, such as the former Duke of Cleveland’s Estate, which includes Cleveland Terrace,
Milbank Road and Thornfield Road. Other areas also characterise periods of growth in the town such as the Victorian
suburbs around Eastbourne Road, Milton Street, Cobden Street and Bright Street, the railway suburbs in the Hopetown
and Rise Carr areas, and the garden suburbs off Yarm Road including The Mead, The Broadway and The Stray.
The rural landscape is well formed by traditional farmsteads and cottages, and provides a pleasing contrast to the
more urban areas along with attractive parks.
Communal Value: the meanings of a place for the people who relate to it, or for whom it figures in their collective
experience or memory.
The historical association between Darlington and the early development of the railways in Britain is represented
through a range of significant buildings. These are undoubtedly an integral part of the Town’s character, identity and
distinctiveness which instils a sense of civic pride within the local community.
Many heritage assets are valued for their associations with the past. The local community has deep attachments to many
buildings in Darlington which goes beyond the economic and amenity benefits. Family connections for many create a
sense of identity and remind communities of the foundations of the Town, despite continuous modern development.
187
Appendix 6
Habitats and Species of Principle Importance in Darlington
Natural Environment and Rural Communities (NERC) Act 2006
Habitats of Principal Importance in Darlington
(Extract from Section 41 of Natural Environment and Rural Communities (NERC) Act 2006: Habitats of Principal
Importance in England
Broad habitat
Habitat name
Arable and horticulture
Arable field margins
Freshwater
Ponds
Boundary
Freshwater
Hedgerows
Rivers
Grassland
Lowland calcareous grassland
Inland rock
Open mosaic habitats on previously developed land
Grassland
Wetland
Wetland
Woodland
Woodland
Lowland meadows
Lowland fens
Reedbeds
Lowland mixed deciduous woodland
Wet woodland
Species of Principal Importance in Darlington
(Extract from Section 41 of Natural Environment and Rural Communities Act 2006: Species of Principal Importance
in England)
Taxon name
Bufo bufo
Common Toad
Triturus cristatus
Great Crested Newt
Carduelis cabaret
Lesser Redpoll
Alauda arvensis subsp. arvensis
Carduelis cannabina subsp.
autochthona/cannabina
Dendrocopos minor subsp. comminutus
Emberiza citrinella
Emberiza schoeniclus
Species grouping
Vertebrates
Vertebrates
Taxon group
Amphibian
Amphibian
Sky Lark
Vertebrates
Bird
Linnet
Vertebrates
Bird
Lesser Spotted Woodpecker
Vertebrates
Bird
Yellowhammer
Reed Bunting
Vertebrates
Vertebrates
Vertebrates
Bird
Bird
Bird
Larus argentatus subsp. argenteus
Herring Gull
Vertebrates
Bird
Muscicapa striata
Spotted Flycatcher
Vertebrates
Bird
Poecile palustris subsp. palustris/dresseri
Marsh Tit
Vertebrates
Passer montanus
Tree Sparrow
Vertebrates
Locustella naevia
Poecile montanus subsp. kleinschimdti
Passer domesticus
Perdix perdix
188
Common name
Grasshopper Warbler
Willow Tit
House Sparrow
Grey Partridge
Vertebrates
Vertebrates
Vertebrates
Vertebrates
Bird
Bird
Bird
Bird
Bird
Bird
Taxon name
Common name
Prunella modularis subsp. occidentalis
Dunnock (Hedge Accentor)
Sturnus vulgaris subsp. vulgaris
Starling
Vanellus vanellus
Lapwing
Pyrrhula pyrrhula subsp. pileata
Turdus philomelos subsp. clarkei
Arvicola terrestris
Erinaceus europaeus
Lepus europaeus
Species grouping
Vertebrates
Taxon group
Bird
Bullfinch
Vertebrates
Bird
Song Thrush
Vertebrates
Bird
Water Vole
Hedgehog
Brown Hare
Vertebrates
Vertebrates
Vertebrates
Vertebrates
Vertebrates
Bird
Bird
Mammal
Mammal
Mammal
Lutra lutra
Otter
Vertebrates
Mammal
Nyctalus noctula
Noctule
Vertebrates
Mammal
Coenonympha pamphilus
Small Heath
Invertebrates
Micromys minutus
Pipistrellus pygmaeus
Erynnis tages
Lasiommata megera
Harvest Mouse
Soprano Pipistrelle
Dingy Skipper
Wall
Vertebrates
Vertebrates
Invertebrates
Invertebrates
Mammal
Mammal
Butterfly
Butterfly
Butterfly
Satyrium w-album
White Letter Hairstreak
Invertebrates
Butterfly
Chiasmia clathrata
Latticed Heath
Invertebrates
Moth
Oenanthe fistulosa
Tubular Water-dropwort
Higher plants
Vascular plant
Adscita statices
Tyria jacobaeae
The Forester
Cinnabar
Invertebrates
Invertebrates
Moth
Moth
189
Appendix 7
About 46.06 ha of new accessible multifunctional open space provided for through the following major new
residential development:
1.
2.
3.
4.
5.
6.
7.
8.
9.
within the Town Centre Fringe (about 9.4ha) (by 2026);
within Central Park, (about 3.8ha) (by 2021);
within the North West Urban Fringe (about 7.13ha) (by 2026);
within the Eastern Urban Fringe (about 2.74ha) (by 2026);
at Lingfield Point (about 12ha) (by 2026);
at the former Springfield School (about 0.64ha) (by 2021);
north of the White Horse Public House (about 0.55ha) (by 2021);
at Heron Drive (about 0.54ha) (by 2026);
at the former Eastbourne School (about 0.51ha) (by 2016);
10. at the Memorial Hospital (about 0.64ha) (by 2016);
11. at Glebe Road south (about 0.55ha) (by 2021);
12. south of 22-24 Burtree Lane (about 0.57ha) (by 2016);
13. south of Bowes Court (about 0.35ha) (by 2026);
14. at the former Alderman Leach playing field (about 0.45ha) (by 2016);
15. at Woodburn Nursery (about 0.49ha) (by 2016);
16. at Mowden Hall (about 0.43ha) (by 2021);
17. at Hartington Way (about 0.36ha) (by 2021):
18. at Darlington Timber Supplies (about 0.17ha) (by 2026);
19. at Hammond Drive (about 0.24ha) (by 2016);
20. at Blackwell Grange (about 1.1ha) (by 2026);
About 22.74ha of new wildlife friendly greenspace provided for, over the plan period, through the following
non residential development:
1.
2.
3.
4.
5.
6.
7.
8.
9.
at Faverdale East Business Park (1.0ha);
at Faverdale Industrial Estate (1.4ha);
at Albert Hill (0.23ha);
at Town Centre south (0.07ha);
at McMullen Road (0.82ha);
at Yarm Road Industrial Estate (0.91ha);
at Yarm Road South (0.41ha);
at Morton Palms (0.28ha);
at Heighington North (0.56ha);
10. at Heighington South (0.79ha);
11. at Faverdale Reserve (5.2ha);
12. at Yarm Road South extension (3.59ha);
13. at Durham Tees Valley Airport North (1.41ha);
14. at Durham Tees Valley Airport South (3.87ha);
15. at Durham Tees Valley Airport extension (1.85ha);
190
Appendix 8: Locality Map
Services for Place
Date: January 2012
Locality
Wards
North West
Faverdale, Cockerton West, Cockerton East, Pierremont
South East
Bank Top, Lascelles, Lingfield, Eastbourne
Central
Harrowgate Hill, North Road, Northgate, Central
South West
Hummersknott, Mowden, Park East, Park West, College
Rural Area
Heighington & Coniscliffe, Sadberge & Whessoe, Middleton St George, Hurworth
North East
Haughton East, Haughton West, Haughton North
191
Notes
192
Notes
193
Notes
194
Notes
195
Let us know what you think...
You can view Making and Growing Places, the draft Policies Map and fill
out comments forms at www.darlington.gov.uk/mgp, the Town Hall or
any of the Borough’s libraries.
Completed forms should be sent to:
By post:
Head of Place, Strategy & Commissioning Freepost DL64
Planning & Environmental Policy
Darlington Borough Council,
Town Hall, Darlington, DL1 5BS.
By email: [email protected]
Next steps
All comments received will be considered and changes will be made, where
appropriate, to Making and Growing Places. The final draft is likely to be
published and consulted on in Spring 2014.
An inclusive approach
If English is not your first language and you would like more information
about this document, or if you require information in large print,
Braille or on tape please contact the Policy Unit on 01325 388644.
Urdu
Punjabi
Hindi
Cantonese
01325 388644
01325 388644
01325 388644
01325 388017
Bengali
01325 388644
Arabic
Polish
01325 388644
01325 388644
This document will be made available on request in Braille, tape or large print.
June 2013
dpla0575

Making and Growing Places - Darlington Borough Council

Transcription

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