Cabinet Report

Report of Strategic Director

Author: Caroline Emery

Tel: 01491 823790

E-mail: caroline.emery@southoxon.gov.uk

Cabinet Member responsible: Councillor Angie Paterson

Tel: 01491 614033

E-mail: angie.paterson@southoxon.gov.uk

To: CABINET

DATE: 11 January 2010

AttachmentsAppendix one: Wallingford housing sites review – brief for consultants

Appendix two: Studio REAL report and review of evidence

Appendix three: Summary of advantages and disadvantages of all strategic housing site options for Wallingford

Appendix four: Wallingford consultation plan

AGENDA ITEM NO 4

Local Development Framework: WallingfordRecommendation

Cabinet is asked to decide if it wishes to include site A at Wallingford as a preferred strategic housing site, and, if so, to approve a community consultation exercise in accordance with government regulations

Purpose of Report

1. This report provides an update on the timetable for the Local Development Framework core strategy and on the ongoing work to decide on the most appropriate strategic housing site for Wallingford. The report seeks cabinet approval to consult the community and stakeholders on a further strategic housing site to the north of the town.

Strategic Objectives

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CONFIDENTIAL

2. One of the council’s priorities is to increase the supply of housing in the district. The core strategy will determine our approach to housing and it will allocate strategic housing sites. The allocation of 750 dwellings in Wallingford will significantly increase the supply of housing, including affordable housing, in the district.

Update on core strategy

3. The council is currently producing the Local Development Framework core strategy for South Oxfordshire, which sets out the key elements of the spatial planning framework for the district. The core strategy will specify the overall amount of development in the district to the year 2026 and the broad locations for delivering housing, employment and other development needs. The strategy will identify and allocate the strategic development sites.

4. We have completed consultation on the core strategy preferred options stage. The next stage will be to produce our submission document, which is the preferred strategy of the council. Following approval by full council of the submission document there will be a six week period during which individuals and organisations can make representations. The purpose of this is to gather representations on the soundness of the core strategy which will be submitted to the Secretary of State to examine as part of the submission material.

5. The submission version of the core strategy is currently scheduled for consideration by cabinet and council in March 2010. On this timetable we would expect to submit the core strategy and its accompanying sustainability appraisal to the Secretary of State in June/ July 2010.

Wallingford sites

6. The core strategy preferred options consultation document identified strategic housing allocations for the towns of Didcot, Wallingford and Thame. These were for 1450 dwellings to the North East of Didcot, 850 dwellings to the South of Thame and 850 dwellings in Wallingford. Of five possible housing sites in Wallingford we decided, based on the evidence available, to consult the community on sites B and E as preferred options.

7. The preferred options document paragraph 16.3 advised that we were not minded to support sites A, C or D for housing and gave reasons for this. Paragraph 16.5 outlined the advantages and disadvantages of sites B and E. A summary of the advantages and disadvantages of the five Wallingford sites are set out in appendix three attached.

8. Full site appraisals of the five Wallingford site options were contained in the Wallingford background paper, which accompanied the preferred options document. A landscape assessment was carried out by Machin Bates Associates, the council’s term consultants. Both of these are available under the core strategy

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background papers section at www.southoxon.gov.uk/evidence. The map below shows the location of the five site options.

Map 1 Extract from page 126 of Preferred Options document

9. The responses to the preferred options consultation at Wallingford generated the greatest number of responses received on the core strategy. There was no clear preference for either site B or E. A summary of the responses can be found on the council’s website by following the link at the end of this report.

Choice of sites for the core strategy

10. Cabinet members have noted the many community concerns about the impact of a large housing development on the historic settlement of Wallingford and, while recognising the need for new housing, they wish to ensure that housing is distributed in a way that most benefits the town and maintains its historic urban form. Members felt it was not sufficiently clear from the evidence or the outcomes of the consultation exercise, whether housing should be built on site B or E or indeed, a combination of both.

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11. As a consequence, the cabinet member for planning determined that a further review of the evidence be undertaken. A steering group was formed, chaired by the cabinet member for planning, and comprising two representatives each from Wallingford Town Council and the adjoining parish councils of Brightwell-cum-Sotwell, Cholsey and Crowmarsh Gifford. Officer advice was provided by the strategic director and representatives from the policy planning and development control teams. A brief for this project was produced and quotes were sought from a number of urban design and planning consultancies.

Brief and appointment of consultants

12. The brief (appendix 1) specified that the study should consider:

Character and relationship of new housing and facilities to the town, surrounding villages and countryside including historic context, surrounding landscape, links (pedestrian, cycle and vehicular), and permeability, maintaining character of existing settlements, avoiding coalescence, integration and cohesion with town and nearby villages.

Environmental constraints/ opportunities - archaeology, historic buildings / monuments, flooding, landscape (including AONB), transportation including access, key links and permeability, biodiversity, loss and retention of agricultural land, air quality, noise and minerals.

Implications on the requirements for new infrastructure and facilities and siting in optimum locations.

In addition to reviewing sites B and E we also asked for a validation analysis on sites A, C and D.

Studio REAL of Oxford was appointed to undertake the project. Studio REAL is a architectural and urban planning partnership that focuses on urban design. Over the last 15 years, the Practice has worked on over 100 towns and neighbourhoods.

13.The brief took into account the revised housing figure of 750 dwellings for Wallingford, rather than the 850 identified in the preferred options report. The reduction came about because of planning consents granted for the Central Oxfordshire area within this plan period. These revised figures are explained in the 2009 Annual Monitoring Report, which can be found on the council’s website under policy planning.

Analysis of the sites

14.Studio REAL carried out a desktop review of the available evidence and in addition they carried out a more detailed urban design analysis. Studio REAL also carried out site inspections and met on site with the steering group members. Two meetings were held with the steering group to discuss progress on the project.

15.The final report analyses the sites in relation to the following seven criteria;

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• Urban form • Connectivity for pedestrians and cyclists • Proximity to facilities • Impact of landscape setting of town • Impact on AONB • Separation of settlements • Aspect – view of town from the outside 

16.Studio REAL also considered whether there are any technical constraints to delivery, which would prevent any of the sites being delivered. This includes considerations of flood risk, minerals, sewerage, highways, biodiversity and archaeology.

17.Studio REAL’s report, at appendix two, recommends that site A, which the council had ruled out after the issues and options consultation, provides a better overall location for housing development at Wallingford than either site B or E. Their report states that the required 750 dwellings could be accommodated on approximately one third of site A.

18.The key arguments put forward by Studio REAL for this recommendation are

The southern part of site A offers the best opportunity to extend the town through a logical and legible extension of the historic route structure, that is to say, by connection to both the primary routes on which the town developed: the Shillingford Road and the Wantage Road.

Site A offers better routes for pedestrians and cyclists into the town centre via Wantage Road and Wilding Road, than the other sites

The southern part of site A is the closest option to Wallingford School making for convenient walking and cycling routes to school, and also has the potential to provide additional playing fields for the school, should they be needed to meet the increased pupil numbers

19. Studio REAL’s report argues that the growth of Wallingford should not be a mechanical infilling of open spaces around the town but rather it should follow an analysis of the relationship of each of the sites to the town centre and the historic urban form and route structure.

20.As with other sites there are disadvantages to be taken into consideration in respect of site A. The main ones are

There are known to be mineral deposits on the site, with the most workable deposits being at the northern end. Further work is required with Oxfordshire County Council to determine if this is an obstacle to housing development

The northern end of Site A abuts the South Wessex Downs AONB. Housing development on the site would occupy around one third of the southern end of the site. There would be visual impact from the AONB and careful design would be required to minimise this

21. A full analysis of advantages and disadvantages of site A can be found in

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appendix three.

Determination of preferred site or sites

22. Cabinet needs to decide if it wishes to introduce site A as a preferred site for housing development at Wallingford. A summary of the main advantages and disadvantages of each of the five potential strategic housing sites for Wallingford is attached at appendix three to inform decision-making.

23. If cabinet decides site A should become a preferred site we will need to carry out further consultation with the community and stakeholders, as this site was not included previously as a preferred site for Wallingford. This consultation period will delay cabinet consideration of the full submission version of the core strategy, which is currently scheduled for 4 March 2010 in the forward plan. The revised date for consideration of the full core strategy, should we introduce site A as a preferred option, would become 8 April 2010.

24. The form of the proposed consultation is set out in appendix three. This is a scaled down version of that which was undertaken at preferred options stage and would include an exhibition, and direct consultation by letter of all those who have previously responded on Wallingford issues, relevant statutory consultees, and those who live close to site A.

Financial Implications

25.Costs for consultation on site A will be in the region of £2000 to £4000 including the attendance of Studio REAL at the exhibition which is usual practice when consultants carry out work for us. Studio REAL would also be expected to attend the Core Strategy Examination if site A was to be allocated. The estimated cost for this is £5000.

26.These costs form part of the approved budget for preparation of the Local Development Framework

Legal Implications

27.There are no legal implications associated with consultation on site A.

Conclusions

28. A re-evaluation of the evidence in relation to the strategic housing allocation for Wallingford and an urban design analysis has been carried out by planning and urban design consultants Studio REAL on behalf of the council. Their conclusion is that site A is the optimum housing development site for Wallingford.

29.Cabinet needs to consider the Studio REAL recommendations and the officer’s summary of advantages and disadvantages of each site option, and decide

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whether it wishes site A to be a preferred option for housing at Wallingford. If so, a consultation exercise will need to be undertaken. This will delay consideration of the core strategy by approximately a month.

Appendices

Appendix one: Wallingford housing sites review – brief for consultantsAppendix two: Studio REAL report and review of evidence Appendix three: Summary of advantages and disadvantages of all potential Wallingford strategic housing sitesAppendix four: Wallingford consultation plan

Background Papers (click on title below to be taken to the document on the council’s website)

Core strategy preferred options document Wallingford background paper Summary of preferred options consultation responses for Wallingford Machin Bate Associates landscape assessment

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Appendix one

Local Development Framework – Wallingford Housing Sites Review

EXTRACT FROM BRIEF FOR CONSULTANTS

The Project

We are inviting a small number of consultancies to provide a quote for a review of the proposed housing sites for Wallingford, to assist us with the identification of the optimum site(s) for our Local Development Framework (LDF) core strategy.

This is primarily a desktop review of available evidence, with requirement for dialogue with key stakeholders and partners, up to three meetings with a steering group, and inspection of the sites in question and the historic town of Wallingford, to bring context to the work.

Introduction

South Oxfordshire District Council is commissioning a study to evaluate existing evidence and policy documents relating to the allocation of new housing sites in Wallingford, a historic market town in South Oxfordshire. This work forms part of the preparation of our Local Development Framework (LDF) core strategy.

The appointed consultant is asked to examine existing evidence and make recommendations as to the preferred options for locating housing in Wallingford. The study will be used to inform the submission version for the Core Strategy, due to be considered by Cabinet and Council early in 2010.

Background

South Oxfordshire District Council (SODC) published its LDF preferred options Core Strategy in March 2009. To meet South East Plan housing requirements SODC needs to find sites for 1350 dwellings in Central Oxfordshire, which includes Wallingford (but excludes Didcot).

The preferred options document, based on evaluation of evidence and studies, suggests that one of two sites (site B and site E) in Wallingford should accommodate 850 dwellings with a further 600 dwelling accommodated amongst 6 settlements, two of which are neighbouring parishes to Wallingford – Cholsey and Crowmarsh. Following updated housing figures In March 2009, the number suggested for Wallingford is now 750 dwellings.

SODC is responding to the concerns expressed by Wallingford Town Council that the evidence is not sufficiently clear as to whether site B or site E identified in the preferred options report is the best location or indeed if a combination of the two sites is a better approach. Other sites identified in the earlier issues and options draft Core Strategy (Sites A, C and D) were discounted and a validation of this assessment is necessary.

The neighbouring villages are also interested in the possible location of housing in Wallingford and the impact of this upon the villages. The neighbouring parishes are Brighwell cum Sotwell, Cholsey and Crowmarsh.

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SODC wishes to ensure that the chosen housing site(s) in Wallingford is/ are best in terms of sustainability and deliverability.

The council has agreed to form a steering group with representatives from Wallingford Town Council and the three parish councils to oversee the project.

The relevant policy documents and evidence to consider are listed in the attached note: ‘ Wallingford Evidence and Background Papers’ Sept 2009. Also relevant to consider will be national guidance in the form of, the Regional Spatial Strategy, policy planning statements and CABE guidance on masterplanning, as well as the Taylor Report and the Government Response to the Taylor Report.

Other evidence should not be required unless it is readily available and meets the usual planning tests of impartiality and sound research methods.

Client Team and Roles

Client South Oxfordshire District CouncilProject Sponsors SODC Cabinet Member for Planning – Angie Paterson and

Strategic Director Anna RobinsonSteering Group Chairman: Angie Patterson. Two representatives from

each town and parish council .Project managers Cathie Scotting (Major Applications Officer) and Caroline

Emery (Principal Policy Officer).

Objective of the study

Carry out a strategic assessment of distribution of new housing in Wallingford and advise on the optimum location(s), taking into consideration:

Overall vision for Wallingford

Character and relationship of new housing and facilities to the town, surrounding villages and countryside.

Environmental Constraints / Opportunities

To include: archaeology, historic buildings / monuments, flooding, landscape (including AONB), transportation including access, key links and permeability, biodiversity, loss and retention of agricultural land, air quality, noise and minerals.

Character and Appearance

Historic context, surrounding landscape, links (pedestrian, cycle and vehicular), and permeability, maintaining character of existing settlements, avoiding coalescence, integration and cohesion with town and nearby villages.

Infrastructure and Facilities

Implications on the requirements for new infrastructure and facilities and siting in optimum locations.

Considering the Future Configuration of layouts and green space to protect / plan for the future.

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TasksAttend three meetings of the Wallingford housing steering group

Brief the steering group on findings and issues and consider the views of the steering group to inform the direction and outcomes of the study

Re-assess background evidence

Examine existing evidence including a validation of the preferred / discounted sites.

Obtain and consider information from stakeholders

Obtain relevant information from stakeholders (town and parish councils) including their vision for new growth in Wallingford and take into account in arriving at recommendations.

Consider site options for growth including split site options

Consider implications for infrastructure provision

Recommendations Make recommendations as to the best option for locating housing in Wallingford.

Skills Required

Strategic site analysis and masterplanning Masterplanning / urban design / place making Working with community representatives Strategic and policy planning/ Analysis of planning and environmental policies

and technical evidence

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Appendices two and three to follow

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Appendix 4

Wallingford consultation plan

Timescale

Following a cabinet decision to consult on 11 January the consultation period would begin w/c 25.01.10. We propose a four week consultation period to end 22.02.10. As this is a small scale, local, consultation we believe four weeks is sufficient for us to carry out all aspects of the consultation process.

Timescales breaks down as follows;

Information in Weekly Information Sheet 15.01.10Week call in period w/c 18.01.10Consultation period 25.01.10 – 22.02.10Analysis and report on responses 2 weeks

Activities

Meetings with Wallingford town council and Brightwell cum Sotwell and Cholsey councils)

Briefing of ward councillors Information published on council website and hard copies at

Wallingford library and town council Press release/advert in Wallingford Herald; Consultation leaflet produced and sent to statutory and non statutory

representatives. Notification to those newly impacted on by the new preferred

development location Notification to all the respondees to the Wallingford section of the

preferred options consultation; Information targeted to known campaign groups such as Save

Winterbrook, Brightwell cum Sotwell and Wantage Road groups; Posters produced and distributed via Wallingford town council (notice

boards) and Wallingford library;Exhibition held at town hall or Methodist hall dependent on availabili

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