Ev o lu tio n o f the Plan All the parties who collaborated at the DSP
Transcription
Ev o lu tio n o f the Plan All the parties who collaborated at the DSP
Most of the key participants agreed that policy and design principles should drive forward a solution rather than considerations of land ownership. TPF promoted ‘walkable neighbourhoods’ as fundamental to the creation of sustainable communities, where the majority of daily needs are available within an approximate 400metre walkable distance of every home. See Figure 2. Evolution of the Plan All the parties who collaborated at the DSP EiP stage made presentations to the EbD. From these the following key themes emerged: • Sherford should constitute an exemplar sustainable community • Sherford should function as a gateway into Plymouth • Sherford should be seen as an urban extension, not a stand-alone development and should be able to accommodate growth beyond 2016 • urban form should respect the natural topography of the site • the development should accommodate a sizeable element of communal open space that would also serve a role in structurally defining an absolute eastern growth boundary for Plymouth • Sherford should deliver a quality public transport system, improving both local connectivity and also routes to and from Plymouth, all aimed at maximising non-car use • in association, early construction of a road link from Deep Lane to the A379 was required • Sherford should provide new and accessible employment opportunities for existing and future residents • Sherford should deliver a range of affordable housing opportunities • facilities and opportunities at Sherford should enhance, where possible, and certainly not undermine existing communities • Sherford should deliver appropriate community facilities, including schools, shopping, leisure, cultural and health services. These should be well integrated within the development and delivered as early as possible This theme was strongly endorsed by the EbD participants. Figure 2 Walkable Neighbourhood (ODPM) The consensus opinion was that the new community at Sherford should embody the following: • accessibility to most daily needs within 5 minutes (400 metres) walking distance of each home • a compact pedestrian-friendly urban form and street network, with its own ‘heart’, providing a focus for community life • a variety of dwelling types, prices and tenures to accommodate a traditional mixed community • properly mixed-use, including commercial and employment uses that may be clustered towards neighbourhood hearts but may not be zoned in single-use car dependent locations • interconnected public streets, squares, greens and parks providing continuous and varied public realm, overlooked by buildings providing natural surveillance from those living and working inside • clear distinction between public and private spaces, particularly within residential areas, in order to facilitate the essential balance between community and need for privacy 109 • • • public transport that links neighbourhood centres thereby maximising accessibility streets designed to suppress excessive vehicle speeds and which are environments where pedestrians and cyclists have equal status a variety of open spaces distributed within and between neighbourhoods at a scale in keeping with the essentially urban character of the development TPF tabled a Pattern Book illustrating the rich and diverse patterns and styles of development local to Sherford, to help establish what is really meant by local character or vernacular. The Pattern Book can be viewed online at www.redtreellp.com. The July EbD 3-day event divided the assembled gathering of 70 plus into six groups. Each group was challenged to determine how Sherford could be laid out. Each group came up with slightly varied solutions; however common to each proposition was a compact urban form immediately south of A38. Figures 3 and 4 show examples of the groups’ output, illustrating an urban form, based very clearly on the walkable neighbourhood diagram. Initial outcomes also contemplated development on the ‘Elburton edge’ and possible expansion to the north-west beyond 2016. Figures 3 and 4 Examples of the Groups’ Output at the End of Day 2. 110 Evolution of the Plan This drafting exercise drew attention to the need to resolve one very important issue. A good part of Sherford north of Sherford Road and east of Brixton Road was defined as a ‘Mineral Reserve Area’ where the DSP deemed it necessary to conserve the underlying minerals. Negotiations involving the mineral company, Aggregate Industries (AI), Devon, Plymouth and South Hams Councils concluded that the ‘mineral resource’, as defined by the DSP, compromised the ability of Sherford to achieve the ideal orientation and compact urban form, together with necessary community, transport and physical connectivity with the existing urban areas of Elburton and Plymstock. A solution was agreed with all parties that meant that in the long term no mineral potential was lost. Instead of progressing with two long-term quarry sites east and west of Vinery Lane, the mineral company agreed to the alternative of a larger and more efficient extension to Hazeldene Quarry. At the end of Day 3, 9th July, TPF presented the emerging vision for Sherford at a public meeting held at the Plymouth Guildhall. The plan was based on three neighbourhoods in a ‘tri-bell’ structure, aligned between Deep Lane Junction and Elburton, with the valley bottom as the natural eastern boundary to urban development and with land on the eastern side of the valley serving as a Community Park. In strate- This information was presented and reviewed at a one day workshop on 13th September and provided important inputs into the further, more refined, design exercise scheduled for 4-6 October. The EbD Briefing Report can be viewed online at www.redtreellp.com. By the end of day two of the October session, TPF and the local planning authorities of South Hams and Plymouth agreed that a baseline position had very clearly emerged for the shape and form of Sherford and importantly that the masterplan would not include any development at Chittleburn, fronting the A379 between Brixton and Elburton. Most of the area promoted by the Plymouth and South West Co-operative Society lay in a separate valley configuration and well to the south and east of the urban/rural edge that had been agreed as a key fix. The solution offered by the Co-Op lacked support beyond the immediate The EbD process was now able to focus on the tri-bell concept defined in July. Progress on the technical and design issues consolidated confidence in the robustness of the plan and led to the explicit agreement of the key fixes which survive into the masterplan at the heart of this application. Since 2004 the scheme has been fine tuned. Detailed responses have been secured in response to technical testing and continuing open discussion with the EbD participants. The essential shape and form, eastern edge and the underlying principles of walkability and mixed-use, a Main Street to accommodate the heart of the development in retail, community and education terms, together with the public transport corridor remain undiluted. Evolution of the Plan Before the EbD process reconvened in October 2004, all participants agreed there was need to assemble detailed technical information which would inform the continuing evolution of the design. This included information related to: • public utilities and services, including diversions • mineral related constraints and opportunities • community facilities, including education, youth, sport and recreation requirements, together with initial information on triggers • potential transport links between the A38 to the A379 • greenspace and open space requirements; • outline drainage strategy/surface water drainage issues • commercial and retail dynamics • affordable housing options land interests that it served and varied considerably from the consensus position adopted by all the public authorities and EbD participants. gic terms the local planning authorities agreed that this was a coherent and workable solution, particularly when examined in parallel with existing urban areas to the north and south, the wider context of Plymouth and the desire lines towards Plymouth City Centre. At the end of the October 2004 session several important issues remained to be settled: • Firstly, the options for the ‘A379 link’. Should the Main Street from Sherford to A379 pass to the north or south of Elburton? Alan Baxter Associates working alongside TPF strongly advised on fundamental strategic grounds that a route north of Elburton was preferred • Secondly, land assembly. The EbD had not been influenced by land ownership interests. By the end of 2004 Red Tree now had the responsibility to assemble the increments of land that had been drawn in by design. This included the land owned by Aggregate Industries The EbD, now complete, had delivered consensus between the two local planning authorities, South Hams and Plymouth and had received the endorsement of Devon County Council as strategic planning authority, highway and mineral planning authority. SHDC also reached an important milestone in its own planning vision for Sherford. No longer did it consider a solution involving four separate villages, as expressed in the First Deposit Draft Local Plan Review of January 2002, ap- 111 Figure 5 Sherford Masterplan as a Result of the EbD, October 2004. 112 propriate or tenable. SHDC embraced the TPF proposition that concentrated urban development based on inter-locking walkable neighbourhoods that would deliver wide-ranging community and design benefits. Furthermore SHDC resolved that the EbD outcome, whilst it needed further testing, should only be materially changed if it were shown to require such changes on technical grounds. either north or south of Elburton to make the connection to A379. Development would be phased south west on the Main Street alignment and ‘backfill’ towards the north-west corner, where it was agreed that long-term growth north of a Greater Hazeldene Quarry may extend the development beyond the plan period post 2016. See Figure 6 for the initial phasing plan. The October 2004 proposition for Sherford (see Figure 5) profiled an urban footprint with the potential to yield approximately 4,500 to 5,000 dwellings, with development commencing in the northeast, close to Deep Lane. A Main Street delivering public transport and a retail heart in the north east neighbourhood would extend This had the joint benefit of protecting long term mineral resource and of identifying the direction of any future expansion. At this stage the outline masterplan anticipated that some mineral activity, longer term, would extend up to 400 meters east of Vinery Lane. Evolution of the Plan Evolution of the Plan Figure 6 Initial Phasing Plan, October 2004 Testing Over the period 2005/6, the EbD outline masterplan has been subject to testing and refinement. A number of factors emerged which adjusted the initial EbD proposition: • Aggregate Industries (AI) reached the conclusion that Greater Hazeldene entirely west of Vinery Lane could deliver, long term, the amount of mineral anticipated by the preSherford reserves. As a consequence AI was prepared to release all of its land east of Vinery Lane • Sherford Quarry could not be redeveloped as initially anticipated. Evidence of bats and the desire to maximise the opportunity of this extraordinary feature led to agreement to retain and enhance its existing form • More detailed engineering and topographical analysis of the Main Street route concluded that it would ideally be shifted northwards in order, more sympathetically, to respond to the landscape and avoid aggressive engineering solutions (cut and fill) • This solution corresponded with the need to avoid the Quarry and engaged more ef- • • • • fectively with the opportunity made available by the addition of the AI land A more northerly route also had the benefit of providing a spine centred through the development, enabling parallel distribution of traffic on secondary routes and localised permeability This more northerly alignment also improved the ‘desire-line’ from Deep Lane towards the city and also to the need to reserve a longer-term access route to the northwest expansion land This triggered debate resulting in agreement that the ‘town centre’ should shift from the north east neighbourhood close to Deep Lane towards the central neighbourhood. This single adjustment had significant implications for the overall phasing assumptions. The South Hams and West Devon Primary Care NHS Trust (PCT) signalled their desire to include within Sherford a new local Health and Social Care Centre. As this facility was required to serve Sherford and the western South Hams, the PCT was originally pre-disposed towards a location close to 113 Deep Lane. However negotiations with the PCT concluded that the facility would be better located in a more central location. Technical Appraisal A follow-up three-day technical workshop was held at Kitley House on 25-27 April 2005. TPF continued to facilitate discussions involving officials representing the public authorities, local community representatives and a wide body of experts instructed by Red Tree. This workshop continued to embrace the principles of EbD. Issues were identified and consensus was achieved through discussion, technical examination and drawn proposition. Support was wide-ranging for South Hams District Council’s determination that the following were absolute principles which could not be compromised: • the principles of walkability • the valley bottom definition of the eastern margin Site Visit to Sherford Quarry Accommodating the opportunities and constraints identified since the 2004 EbD sessions, the need to create Sustainable Urban Drainage Solutions (SUDS) across the site, overlaid by the need for better integration of green spaces and opportunities for wildlife to move freely within the development, led to an updated ‘open space’ solution. As issues demanded, multiple site visits were made, with wide participation from all those who took an interest in the subject field. Further examination of the Main Street focussed on how to keep it functioning as a vital artery for public transport and cars whilst retaining its role as public space for pedestrians and cyclists. The issue of the ‘power corridor’, along which the 132kv overhead lines and the strategic gas main run, was also resolved in more detail. Its new route was confirmed around the northern edge of development. The visual and perceived benefit of removing the pylons and the release of development land were considered to more than offset the cost burden of diversion. Over the next day more detailed discussions on the urban edge treatment, including the quarry boundary and the location of key facilities such as schools and playing fields took place. This involved detailed specification and phasing discussions with service providers, again informed by site visits. The output from the April workshop represented, not a new solution, but an organic masterplan evolution. The scheme footprint now included the extra AI land, increasing the yield to an estimated 5,500 dwellings; the Main Street was located in an alignment north of Sherford Quarry; the town centre and revised phasing were emerging at the heart of the town; urban development better integrated with open space and a ‘deformed grid’ of permeable streets provided the opportunity for future residents to access their daily needs within walkable neighbourhoods. The Consolidation Plan, dated 27th April 2005 is the output of this evolution of the scheme and was published by SHDC as part of the Sherford AAP Preferred Options Stage in June 2005. See Figure 7. 114 Evolution of the Plan Evolution of the Plan Working in Consensus Red Tree is very pleased to have participated from the outset in a very open, consensual dialogue with the key public authorities and local community representatives. The endorsement of Sherford by the DSP EiP Panel and its acceptance by the DSP authorities, led to the establishment of the Sherford Strategic Steering Group (SSSG) in 2003 and other specialist working groups (for example Movement, Housing, Design and Masterplanning, Information Communication and Technology, Sustainability, Sports and Recreation), all aimed at determining a deliverable and sustainable solution for Sherford. See Figure 8. Since then the SSSG has met on a monthly basis (as have most specialist sub-groups) with officers representing the three local planning authorities and the Highways Agency. The broad objective is to deliver the development at Sherford within planning policy and timeline. This would be done by creating not only the joint structure to lead and co-ordinate the management of the process but also the forum to resolve issues. Figure 7 Sherford Masterplan, April 2005. Under the umbrella of SSSG, local planning authority officers and Red Tree have invested considerable time and effort in holding detailed workshops aimed at investigating opportunities and determining solutions relating to: • open space and landscape • movement issues (including the detailed specification and character of the main street) • sustainability (including movement, energy, water and waste) • affordable housing • education and health provision • sports and recreation • youth matters • community governance • information technology requirements • masterplan design and design coding (including review sessions with CABE) • Elburton Edge • general Town Plan design updates 115 Most unusually Red Tree has also participated jointly with Devon County, South Hams and Plymouth Councils in meeting service providers in order to openly debate the profile of community and infrastructural demands and to review associated delivery matters such as phasing, capital funding, management and how these would be handled under the mechanism of a Section 106 Agreement. At the outset it was accepted that it may not be possible to accommodate the entire ‘wish-list’, but all parties, applicant and local planning authorities, subscribed to the same ambition: to engage in full, early and transparent discussions weighing the relative priority of demands on the development. SHDC has submitted its AAP. This constitutes a very detailed description and specification for Sherford. The success of the proposals within the AAP and those in this subsequent planning application will rely on confidence also in their deliverability. Cooperation and collaboration, past, present and ongoing underwrites that confidence. Figure 8 Sherford Coordination Structure 116 Evolution of the Plan Community Participation Arising from the first EbD session in July 2004 it became apparent to Red Tree that considerable opportunity existed in creating a formal connection with local community groups and associations. Red Tree understands that development, in itself, is not sustainable; it is the future residents’ sense of place, of community and their involvement in it and the relations with the neighbouring communities that ensures the enduring nature of development. Equally, consultation is not just about ticking a planning box for future development, but is a meaningful engagement with the people who live in the surrounding areas. It is not just because they are the ones who may be most affected by the outcomes; it is also because they are the communities that will inter-relate with future residents. They are therefore most likely to best know how to prepare, from inception, the management and social structures of that community. They may also become residents of the new community themselves. This belief led to the establishment of the Sherford Community Steering Group (CSG), not only as the appropriate forum for discussion, but also as likely key representation on the proposed ‘Community Trust’. Figure 8 shows the Sherford coordination structure. By the time of the next meeting, on 28th January 2005, participation had been extended to include three groups representing the communities north of the A38: • Plympton St Maurice Civic Association • Plympton Community Council • Chaddlewood Farm Community Association Not all of the representatives agreed with all of the proposals; indeed many were diametrically opposed to development. Nonetheless the involvement of this group has led to local communities being better informed on the design process and the reasons for the evolution of the proposals. The group has sensitised Red Tree to local issues, has reciprocally acted as a sounding board for emerging proposals and has driven many key changes and considerations into the designs. Gary Streeter, as Chairman, has played an important part in stimulating wide-ranging, penetrating and robust debate. In a public forum on the 18th November 2005, Gary Streeter acknowledged that he originally did not favour the proposal but had become convinced that a new community, in the hands of Red Tree, could become a valuable and worthwhile example of urban development and community building. In this regard it is also important to note that both Brixton Parish Council and SHARD’s positions have also changed dramatically. Similarly SHARD was set up, as the name makes clear, explicitly to resist new community propositions in the western South Hams. Its initial focus was Lee Mill but when that prospect waned, following the Structure Plan EiP in 2003, it increasingly focussed upon defeating the Sherford initiative. SHARD’s Chairman, Steve Melia, has engaged vigorously with Sherford through the extended EbD process, the CSG and directly with Red Tree. From an original position where he was aggressively opposed to any development he and his group now understand Sherford and the philosophy promoted by Red Tree. Steve Melia, also provides a valuable contribution particularly with regards to sustainable transport and cycling. In ‘Planning’ magazine, 7 July 2006, in an article describing the importance of community involvement in the planning process across the UK, Steve Melia expressed how he had been surprised to be invited into the design and planning process, normally perceived to take place “behind closed doors in smoke filled rooms” and in “the corridors of power”. The article states: Evolution of the Plan Gary Streeter, MP accepted the invitation to become Chairman and South Hams and Plymouth Councils were invited to participate. The inaugural meeting took place on 5th November 2004 at the beautiful Georgian house on Elliot Terrace in Plymouth gifted to PCC by Lady Astor. In July 2006, the Parish Council, informed the South Hams Core Strategy Examination that it originally objected strongly to Sherford. It now appreciates that it will take place. Moreover, rather than merely resigning itself to the inevitability of development, the Council, through its engagement in the design process, at EbD and the CSG has, for the most part, become an enthusiastic supporter of the project. Initial CSG members were: • Brixton Parish Council • South Hams Against Rural Destruction (SHARD) • Elburton Residents Association • Plymstock Forum “Melia admits that the original SHDC proposals for 4 villages did not respond to all the concerns raised by the community, but many people recognise that improvements have been made. Most importantly, the local population knows that it has a voice in the ongoing process.” As importantly, it has been recognised that Red Tree’s motivation is not merely tokenism and that the process has had efficacy; voices have been heard and meaningful improvement have been made to Red Tree’s proposals as a result. Steve Melia admits that a more appropriate solution emerged and that “Sherford is being designed as a sustainable urban settlement with local centres and services”. 117 Sadly the community representatives north of A38 withdrew from CSG in July 2006, citing the view that their preference has always been for Sherford to be located further to the south. It is their view that the urban form is too close to the A38 and the existing communities. The three groups wished to object to the SHDC AAP and therefore felt unable to continue with the membership of CSG. Public Consultation On Red Tree’s behalf, TPF organised an all-day public exhibition in Plymstock on November 18th 2005. This was followed by a public meeting held in the evening at Plymstock School. The exhibition was held to expressly engage with and inform the local community of emerging plans for Sherford and to hear and track responses. The exhibition was publicised through local radio and other media, by CSG members and through reply card mail-drops. Issues raised before and afterwards were registered through the reply cards, e-mail, letter and web-site. For details of the responses please refer to: www.redtreellp.com The exhibition explained the following: • background context; the structure plan and need for housing • long-term growth and need for eastern boundary • principle of working together • sustainability and what it means • walkable neighbourhoods; access to daily needs • the role of a town centre • how green spaces will work at Sherford • the role of the community park • traffic and transportation in and around Sherford • the Elburton edge • how Sherford will be phased and grow • creating local character and identity • what Sherford will provide To view the exhibition boards go to: www.redtreellp.com 118 Evolution of the Plan The exhibition and public meeting were very well attended. Over 500 people visited the exhibition held in the Staddiscombe Community Centre and over 300 people attended the public meeting in the evening. Gary Streeter MP, acted as chairman. Keen interest was expressed in the overall design and sustainable philosophy and considerable support was shown for the type of development anticipated. The principal concerns expressed were: • the need for the development • traffic impact on local roads • foul water treatment • the amount of affordable housing required • impact on King George V playing fields The response to these issues is expressed in detail within the appropriate strategies. Young People’s Planning Day This is another example of the effectiveness of the joint workings of planning authorities, developer and local community and interest groups. This was an initiative stimulated by Devon County, adopted and hosted by Red Tree, led by Youth Work in Devon, promoted by CSG members and fully supported by SHDC and PCC. The ambitions, event, outputs and future plans are recorded in the paper ‘The Sherford Young People’s Planning Day – 19th April 2006’ This can be viewed at www.redtreellp.com. In summary the initiative was aimed at gaining “young people’s ideas on how Sherford should be developed, the facilities and services it should provide and how they should be tailored to meet the needs of the young people and how young people would wish to be involved in its planning, design, governance, management and delivery” One attendee said: “Interesting in finding out about Sherford as I didn’t know much before and I thought it was great that there were adults there who took all our ideas into account on how we could influence the development of the town. The road trip was cool too!” Photographs of the Young People’s Planning Day Evolution of the Plan A teenager from Modbury, near Ivybridge, who is studying for A-levels at Ivybridge Community College, said: “Where I live there is nothing for teenagers to do and part of the problem is that when Modbury was designed it was not something which was even considered. It is important to get involved with the proposals for Sherford at this stage because we hope that by doing so we can have an impact on the new town. Sherford has the potential to offer lots of opportunities not just for the people living there but also for others around it to share in the facilities.” The quotes are as reported in the Western Morning News on 21st April 2006 King George V Playing Fields The North Plymstock AAP proposal for the ‘A379 route’ crossing King George V playing fields has attracted considerable objection from local residents. Indeed, it has become the one single issue that has most exercised local opinion, such that the Sherford CSG requested whether any alternative could be examined and promoted. Enlisting the help and cooperation of AI, the Red Tree team has found an alternative, workable alignment north of King George V playing fields on land wholly owned by AI. This solution avoids all the land within the playing fields demise; satisfies highway and traffic parameters and avoids compromising the mineral company’s plans and operational objectives for Hazeldene Quarry. It is therefore a solution that Red Tree believes should attend to and allay public concerns. This solution departs from the route identified in the North Plymstock AAP, nevertheless it re- sponds to the overriding expression of public opinion. Analysis Without doubt, the process of long-standing and continued engagement between Red Tree, the local authorities, the local community and wider interest groups, facilitated considerably over the past 2 years by TPF, has led to the preparation of a better informed and more achievable solution and one of which neighbouring communities, local authorities and other interested groups together can have a proper sense of ownership. Red Tree is proud of the achievement to date. The journey, however, has only just started. The planning application needs to be determined, the development implemented and the opportunity given for a new community of people to establish itself and thrive. The strategies for delivery, described in the following chapters, demonstrate how this can be managed and achieved. 119 Table 1: Schedule of Attendees Enquiry by Design 2004 Invitees 120 Representing Mr Giles Chichester Landowner Messrs N G W and P G Curtis Landowner Mr JR Ellis Landowner Mr & Mrs J Haimes Landowner Mrs P Hannaford Landowner Mrs M MacBean Landowner Mr RH Pugh Landowner Mr & Mrs JF Rogers Landowner Mr & Mrs P Short Landowner Messrs G&V Staddon Landowner Mr Gerry Willis Landowner Mrs Helen Willis Landowner Mr Colin Yelland Aggregate Industries UK Ltd Mr Andrew Cameron Alan Baxter & Associates Mr Mark Hughes Alan Baxter & Associates Mr PG Cox Billacombe Residents Association Ms Rita Rowe British Red Cross Cllr Derek Curtis Brixton Parish Council Mr Peter Morgan Evans Brixton Parish Council Mr Mark Pearson CABE Mr Keith Clarke Carlton Power Mr Alan Street Chaddlewood Farm Community Association Rev David Arnott Churches Together in Devon Mr Ed Moffatt Churches Together in Devon Mr Roger Gage CPRE Mr J Woollcombe CBE CPRE Mr David Tucker David Tucker Associates Mr Rob Finch Devon & Cornwall Housing Association Mr David Andrew Devon County Council Mr Malcolm Baker Devon County council Ms Caroline Cozens Devon County Council Cllr Sir Simon Day Devon County Council Mr Vic Ebdon Devon County Council Mr John Halliday Devon County Council Cllr John Hart Devon County Council Mr Mike Jones Devon County Council Evolution of the Plan