Oxford City Council · 1.2 Oxford City Council Corporate Plan – Measures of Success 1.3 ... Oxford’s origins lie in the late Saxon period: its original street pattern and some

Oxford City Council

Sustainability Appraisal Scoping Report

Local Plan 2016-2036 June 2016

Planning Policy

Table of Figures

Figure Name

1.1 Map of Oxford

1.2 Oxford City Council Corporate Plan – Measures of Success

1.3 OSP themes and reporting measures

2.1 Incorporating the Local Plan preparation with the SA/ SEA process

2.2 Problems encountered undertaking the Scoping Stage

3.1 Generally relevant plans and programmes

4.1 Relationship between topics, SA objectives and SEA themes

4.2 Collated list of sustainability issues

5.1 Relationship between topics, SA objectives and themes: Environmental

5.2.1 ‐5.6.4

Figures contained in Environmental papers

6.1 Relationship between topics, SA objectives and themes: Social

6.1.1 ‐6.8.3

Figures contained in Social papers

7.1 Relationship between topics, SA objectives and themes: Economic

7.1.1 ‐7.4.5

Figures contained in Economic papers

8.1 The SA Framework

8.2 Inter‐relationship between SEA Directive Issues and SA Objectives

8.3 Internal compatibility matrix

8.4 Potential Conflicts between SA objectives

9.1 Suggested Report Structure for the SA

10.1 Consultation questions

1.Introduction 1.1 Oxford City Council is preparing a new Local Plan for the area that will cover the

period from 2016‐2036. This report is the sustainability appraisal scoping report for the new Local Plan. This chapter discusses the Local Plan, and Chapter 2 discusses the sustainability appraisal process.

1.2 The Local Plan 2036 will help shape the future growth and regeneration of Oxford

City. It will be a single document that will replace: ‐ Oxford Local Plan 2016 (Saved Policies) ‐ Oxford Core Strategy (2011) ‐ Sites and Housing Plan (2013) It will not replace any Area Action Plans.

BackgroundtoOxfordCity

1.3 Oxford City Council is a District Council at the heart of the County of Oxfordshire. Oxford is centrally located in England. It has a total area of about 46 km2 (17.7 miles2), with parts of the urban area very densely developed. The built‐up area extends to the administrative boundary around much of the eastern side of the city, but the river corridors of the Thames and Cherwell penetrate as extensive green wedges into the heart of the city. This gives Oxford a distinct physical form, with much of the residential population concentrated to the east of the city centre.

1.4 The population of Oxford is approximately 160,000 (June 2016) and is set to rise to

around 180,000 by 20361. Oxford is the 11th fastest growing city and one third of the population is aged between 18 and 29. Oxford is home to 32,000 students and there are 55,400 households in Oxford. There are around 4600 businesses in Oxford which provide 114,000 jobs. There is a high level of in‐commuting in the City. According to the 2011 Census 100,000 people had their main job in Oxford, and 46,000 of them lived outside the city.

1.5 Oxford is a compact city with a unique and world‐renowned built heritage.

Oxford’s origins lie in the late Saxon period: its original street pattern and some of the earliest buildings and monuments still survive. Today the city retains its distinctive physical characteristics reflecting the different strands of social and economic growth that have shaped its history.

1.6 Oxford has easy access to international airports, the rail network and the M40

motorway. Around 27% of Oxford is within the Green Belt, with much of this land being flood‐plain. The historic city parks and nature conservation areas (including a Special Area of Conservation and several Sites of Special Scientific Interest) create pockets and corridors of green within the administrative boundary.

1 www.insight.oxfordshire.gov.uk Principal long‐term population forecast data.

1.7 In recent years, the city has experienced a booming housing market with rising house prices. This has led to open‐market housing becoming difficult to obtain and more expensive. It has also limited the supply of affordable housing. In Oxford, the average house price is 16.2 times average earnings. This makes Oxford the most unaffordable place to live in the country. This causes problems for existing residents wanting to relocate within the local community. There are severe pressures on the housing stock, with concentrations of Houses in Multiple Occupation and many homeless and vulnerable people. The lack of affordable housing can also make it difficult for employers to retain and recruit staff.

1.8 Oxford is a regional shopping destination and also a major centre for education,

healthcare, bioscience, IT, publishing and the motor industry. It has relatively low unemployment (around 4%) however there are some pockets of high unemployment. Oxford has a high level of in‐commuting. At the 2011 Census, around 40,000 of the city’s workforce (107,000) travelled to work from outside the Oxford.

1.9 As well as a city historically famous for its architecture and universities, there is

another less well‐known Oxford, which has areas of deprivation and a huge need for affordable housing. Some areas of the city experience relatively high crime rates, health deprivation and poor educational achievement.

OxfordCityCouncilStrategicPriorities 1.10 The City Council’s ambition, which has been developed with partners among local

businesses, community organisations, unions, the health and education sectors and the County Council, is to make Oxford a world‐class city for all our citizens. The Corporate Plan 2016‐2020 sets out the vision and strategy for the City Council

Building a world‐class city for everyone: By creating successful places in which to live and work and supporting people to reach their potential we will create a strong local economy and a city in which all our residents can thrive. Partnership: Building strong and effective partnerships with businesses, communities, voluntary sector, universities and the public sector joining up investments and services. Devolution: Working with neighbouring councils and our partners to ensure that Oxford has greater control over decisions on investments and services.

Figure 1.1 ‐ Map of Oxford Map © Crown Copyright and database right 2016. Ordnance Survey 100019348.

1.11 The Corporate Plan focuses on five interlinked priorities which address the key

needs of the city. The new Local Plan 2036 will help to deliver the Council’s strategic priorities which are set out below2: ‐ A Vibrant and Sustainable Economy; ‐ Meeting Housing Needs; ‐ Strong and Active Communities ‐ A Clean and Green Oxford ‐ An Efficient and Effective Council

1.12 Particularly relevant to planning are the following success measures:

Strategic Objective Measure of Success

A Vibrant and Sustainable Economy

15,000 sqm/ year from 2016/7 to 2019/20

Meeting Housing Needs Planning permission granted for 400 new homes per year from 2016/17 to 2019/20

A Clean Green Oxford Implementation of measures to reduce the City Council’s carbon footprint by 5% each year.

Figure 1.2: Oxford City Council Corporate Plan measures of success

2 Oxford City Council Corporate Plan, 2016‐2020 (

1.13 One of the key documents that a Local Authority used to have to produce was the Sustainable Community Strategy. Community Strategies were introduced by the Labour administration in 2007. The duty to produce a Sustainable Community Strategy was repealed as part of changes introduced through the Deregulation Act 2015.

1.14 No direct replacement for the Sustainable Community Strategy was ever legislated

for, but the Oxford Strategic Partnership (OSP) visioning document provides a similar strategic‐level publication.

1.15 The Oxford Strategic Partnership (OSP) also provides a distinct set of priorities for

the City. The OSP was founded in 2003 to promote joined‐up approaches for improving quality of life in Oxford. The OSP is made up of organisations including Oxford City Council and Oxfordshire County Council. The priorities that were developed by the OSP are set out in the Oxford Strategic Partnership Visioning Document.3

1.16 The Aims of the OSP are as follows:

‐ To provide a clear and ambitious vision for the future of Oxford, developing its environmental, economic and social life in a positive and sustainable manner;

‐ To improve the quality of life of all sections of the community, to reduce inequalities, and support the needs and aspirations of citizens in their local areas;

‐ To foster and promote closer working between local agencies to deliver responsive and high quality services across the city.

1.17 The OSP has a distinct vision statement, separate from that of the City Council

however the City Council is a member of the partnership and as such is aligned with the vision statement of the Oxford Strategic Partnership. The vision statement for the OSP is as follows:

1.18 The ambition of our partnership is that Oxford should be a city in which all our

citizens feel happy to live and experience a high quality of life. We want Oxford to be a world‐class city for everyone.

1.19 The OSP has a set of measures to deliver its successes against its priorities. Some of

these are directly related to planning. Those measures which are related to planning have been set out below.

OSP Theme Reporting Measure

Economy Number of Jobs in the city (by sector) Number of businesses by size/ sector

Housing Number of dwellings built

Natural Environment & Biodiversity, Heritage and Design

Change in areas of biodiversity importance Change in areas of UK Biodiversity Action Plan

3 Oxford Strategic Partnership: Vision, Aims, Challenges and Priorities (2013)

priority habitat Number of listed buildings and conservation areas.

Low Carbon Reduce CO2 emissions across the City

Figure 1.3 OSP themes and reporting measures

LocalPlan2036contents 1.20 Oxford’s Local Plan 2036 will set the spatial planning context for future

development within the city of Oxford until 2036. The plan will allocate sites for housing, employment and other uses such as retail. The plan will provide policies for the management of development within the city and will include policies for the preservation and enhancement of the historic environment, the conservation of nature and biodiversity. It will contain policies on urban design, flood risk management, including managing surface water flooding. It will also seek to address how Oxford can deliver housing within its administrative boundary.

2.SustainabilityAppraisalMethodology

Sustainabilityappraisal(SA)/strategicenvironmentalassessment(SEA) 2.1 The European Strategic Environmental Assessment (SEA) Directive4 requires

European Member States to carry out an environmental assessment on the preparation of land‐use plans (e.g. Local Plans). In 2004 this Directive was transposed into English law through The Environmental Assessment of Plans and Programmes Regulations 2004 SI No 1633 (The SEA Regulations).

2.2 The SEA Regulations state that SEA must assess the likely significant effects of the

plan or programme on the environment. The environment, according to the Regulations is considered to be made up of the following themes: ‐ Biodiversity; ‐ Population; ‐ Human health; ‐ Fauna; ‐ Flora; ‐ Soil; ‐ Water; ‐ Air; ‐ Climatic factors; ‐ Material assets; ‐ Cultural heritage, including architectural and archaeological heritage; ‐ Landscape; and ‐ The inter‐relationship between the above.

2.3 The Planning and Compulsory Purchase Act 2004 requires all Local Planning

Authorities to carry out a Sustainability Appraisal (SA) for their Local Plans. Sustainability Appraisal incorporates the requirements of the SEA Regulations fully and considers the social, environmental and economic implications of the emerging Local Plan (see Appendix 1). Where reference is made within this document Sustainability Appraisal, it also implies where appropriate to the Strategic Environmental Assessment Regulations.

2.4 Sustainability Appraisal is an iterative process to assist in the formulation of policy

for a Local Plan through an appraisal of options. It is a decision‐making tool that is used to appraise emerging options against the three elements of sustainability; namely the social, environmental and economic dimensions. In doing so it assists in selecting the preferred options deemed to be the most sustainable for the area, when assessed against all reasonable alternatives (including not producing a plan).

4 Directive 2001/42/EC of the European Parliament and the Council of 27 June 2001 on the assessment of the effects of certain plans and programmes on the environment

TheSEA/SAProcess

2.5 Table 1 (overleaf) shows this process. This SA/SEA Scoping Report completes Stages A1‐A4 of the SA/SEA process, namely:

1. Setting out the context of the Local Plan 2036 by establishing a review of all

relevant plans and programmes; 2. Establishing the environmental, social and economic baseline for the city; 3. Identifying existing sustainability issues and problems; 4. Developing SA/ SEA objectives in a combined framework known as the SA

Framework; 5. Describing the proposed structure of the final SA Report for the Local Plan

2036. 2.6 This report has been produced in‐house by Oxford City Council’s Planning Policy

Team. To ensure impartiality and objectivity, the report has been independently reviewed by Riki Therivel of Levett‐Therivel Sustainability Consultants

Local Plan preparation SA/ SEA Process

Evidence gathering and engagement

Stage A: Setting the context, establishing the baseline and deciding on the scope 1. Identify other relevant policies, plans,

programmes and sustainability objectives 2. Collect baseline information 3. Identify sustainability issues and problems 4. Develop the sustainability appraisal

framework 5. Consult the consultation bodies on the

scope of the sustainability appraisal report

Consult on Local Plan in preparation Prepare the publication version of the Local Plan

Stage B: Developing and refining alternatives and assessing effects 1. Test the Local Plan objectives against the

sustainability appraisal framework 2. Develop the Local Plan options including

reasonable alternatives 3. Evaluate the likely effects of the Local Plan

and alternatives 4. Consider ways of mitigating adverse effects

and maximising beneficial effects 5. Propose measures to monitor the

significant effects of implementing the Local Plan

Stage C: Prepare the sustainability appraisal report

Seek representations on the publication Local Plan from consultation bodies and the public

Stage D: Seek representations on the sustainability appraisal report from consultation bodies and the public

Examination, Local Plan adopted

Monitoring Stage E: Post adoption reporting and monitoring 1. Prepare and publish post‐adoption

statement 2. Monitor significant effects of implementing

the Local Plan 3. Respond to adverse effects.

Figure 2.1 Incorporating Local Plan preparation with the SA/ SEA process5

LinksbetweentheSustainabilityAppraisalandtheHabitatRegulationsAssessment

2.7 Oxford is home to part of the Oxford Meadows Special Area of Conservation (SAC).

The Oxford Meadows SAC is made up of four Sites of Special Scientific Interest.

‐ Cassington Meadows SSSI ‐ Pixey and Yarnton Meads SSSI ‐ Port Meadow with Wolvercote Common and Green SSSI ‐ Wolvercote Meadows SSSI

2.8 The Oxford Meadows Citation states:

Site description: Oxford Meadows includes vegetation communities that are perhaps unique in reflecting the influence of long‐term grazing and hay‐cutting on lowland hay meadows. The site has benefited from the survival of traditional management, which has been undertaken for several centuries, and so exhibits good conservation of structure and function. Port Meadow is the largest of only three known sites in the UK for creeping marshwort Apium repens.

Qualifying habitats: The site is designated under article 4(4) of the Directive (92/43/EEC) as it hosts the following habitats listed in Annex I:

Lowland hay meadows (Alopecurus pratensis, Sanguisorba officinalis)

Qualifying species: The site is designated under article 4(4) of the Directive (92/43/EEC) as it hosts the following species listed in Annex II:

Creeping marshwort Apium repens 2.9 Oxford City Council has carried out Habitat Regulations Assessments for all previous

planning documents.

5 Source: http://planningguidance.communities.gov.uk/blog/guidance/strategic‐environmental‐assessment‐and‐

sustainability‐appraisal/sustainability‐appraisal‐requirements‐for‐local‐plans/

2.10 HRA assessments were carried out for the Oxford Core Strategy, the Sites and

Housing Plan, and the Northern Gateway AAP, while screening assessments were carried out for the West End Area Action Plan and the Barton Area Action Plan.

2.11 The HRA for the new Local Plan will be undertaken using relevant material from

previous Habitat Regulations Assessments and updating studies where necessary to bring them up‐to‐date in order to be able to carry out assessment of the policies within the plan.

2.12 The Green Spaces Chapter of this Scoping Report discusses the conditions of the

component SSSIs and the findings of the previous HRA Assessments.

DutytoCo‐operateandGeographicalScopeoftheSustainabilityAppraisal

2.13 The Duty to Co‐operate places a legal duty on local planning authorities, county councils in England and public bodies to engage constructively, actively and on an on‐going basis to maximise the effectiveness of Local Plans in the context of strategic cross‐boundary matters.6

2.14 In the context of Oxford, strategic cross‐boundary matters, includes Oxford’s

housing need. The geographical scope of the Sustainability Appraisal therefore goes beyond the extent of the City Boundary. This is because housing need within the city is higher than the city can accommodate within its administrative boundary and it is likely, through the Duty to Co‐operate, that the Oxford Local Plan 2036, given the need to locate some of Oxford’s housing outside of its administrative boundary, will have an impact on neighbouring districts, and vice‐versa.

2.15 At the time of writing many meetings with Duty to Co‐operate stakeholders had

already taken place and other meetings have been scheduled in order to maintain a dialogue between relevant stakeholders.

2.16 The following list of Duty to Co‐operate bodies is relevant to Oxford City Council:

‐ The Environment Agency ‐ The Historic Buildings and Monuments Commission for England (Historic

England) ‐ Natural England ‐ The Homes and Communities Agency ‐ The Oxfordshire Primary Care Trust ‐ Oxfordshire County Council ‐ Cherwell District Council ‐ South Oxfordshire District Council ‐ Vale of White Horse District Council ‐ West Oxfordshire District Council

6 Planning Practice Guidance (www.planningguidance.communities.gov.uk)

‐ Oxfordshire Local Enterprise Partnership (LEP) ‐ Oxfordshire Local Wildlife Partnership (Wild Oxfordshire)

2.17 In terms of agreements being made about ensuring that an agreed amount of Oxford’s unmet housing need is met outside its boundaries, there have been on‐going discussions through the Oxfordshire Growth Board.

2.18 The Oxfordshire Growth Board agreed last year a working assumption of 15,000

homes representing the Oxford unmet housing need to be accommodated in Oxfordshire but outside the city’s boundaries by 20317.

2.19 Within the last year, two of the four Oxfordshire district Councils have declared a

working assumption for additional housing towards meeting Oxford’s unmet housing need (over and above their own identified housing needs), pending conclusion of the post‐SHMA work.

2.20 South Oxfordshire District Council has adopted a working assumption of 3,000

homes within their district towards meeting Oxford’s unmet housing need, pending conclusion of the joint post‐SHMA work, as they prepare their new Local Plan 20318.

2.21 Cherwell District Council has adopted a working assumption of 3,500 homes within

their district, pending conclusion of the joint post‐SHMA work, as they take forward a Partial Review of the Cherwell Local Plan Part 1 to address the Oxford unmet need issue9.

2.22 West Oxfordshire District Council has confirmed it will also address in the

submitted WODC Local Plan 2031 any additional housing need (over and above its own objectively assessed housing needs) arising from the post‐SHMA collective process outcome, representing a share of the 15,000 Oxford unmet housing need.

2.23 The Vale of the White Horse Local Plan Part 1 is currently at examination. Core

Policy 2 of that Plan addresses Oxford’s unmet housing need and provides that following the conclusion of the joint post‐SHMA work, likely to conclude in October 2016, the Vale will begin work on Part 2 of their Local Plan which will seek to address their agreed apportionment of Oxford’s unmet housing need.

7 Oxfordshire Growth Board 31st March 2016, Item 6: Post‐SHMA Work Programme Update Report 8 SODC Refined Options February 2015 9 Cherwell Partial Review Issues & Scoping Jan 2016

Limitations

2.24 Figure 2.2 below shows how the Scoping Stage was carried out and identifies any problems encountered.

Stage Who carried this out? Any problems?

Task A1 Identification of relevant plans, policies, programmes and sustainability objectives

Oxford City Council planning officers

None

Task A2 Collecting Baseline Information Oxford City Council planning officers

Data not always available in relation to Oxford. Not always possible to find comparable data.

Task A3 Identification of sustainability issues

Oxford City Council planning officers

None

Task A4 Developing the SA Framework Oxford City Council planning officers

None

Figure 2.2 Problems encountered undertaking Scoping Stage

2.25 The most significant limitations were:

‐ Limitations of data collection – see individual background papers ‐ This SA Scoping Report uses data from the 2011 Census, which is now several

years old. This has been updated with more recent data where available. ‐ Information concerning social, environmental and economic issues is currently

reported in the City Council’s Annual Monitoring Report. The new Local Plan 2036 will involve a review of these indicators. As such there could be some gaps in the data, for instance where the information is not available in a suitable form.

StructureoftheReport

2.26 This report is structured as follows:

‐ Section 3: sets out the Policy Context and identifies key relevant plans, programmes and policies influencing the Local Plan 2036.

‐ Section 4: introduces the baseline information for Oxford and summarises

the key sustainability issues as ‐ Section 5: discusses the environmental topics for the Sustainability

Appraisal. ‐ Section 6: discusses the social topics for the Sustainability Appraisal ‐ Section 7: discusses the economic topics for the Sustainability Appraisal ‐ Section 8: introduces the SA Framework ‐ Section 9: proposes a potential report structure for the SA ‐ Section 10: provides a set of questions about the SA Scoping Report

3.Policycontext

Introduction 3.1 Oxford’s Local Plan 2036 will be influenced by a range of plans and programmes as

well as external sustainability objectives. Table 3.1 presents an overview of the most relevant international, national and regional plans and guidance documents likely to influence the Local Plan 2036 and SA processes. An extensive policy review was undertaken as part of the preparation of the Local Plan 2036 SA Scoping Report. This review has ensured that that the SA process takes account of the most recent plans and programmes available at the time of writing.

3.2 The policy review has been structured according to SA topic as this enables readers

with specific interests to go directly to the relevant section of interest. The most relevant international, national and regional plans and programmes are presented at the start of each section.

KeyPlanningDocuments

InternationalandEuropeanpolicycontext

3.3 The most influential document on sustainable development at the international level is the Kyoto Protocol on Climate Change which commits parties to reduce their greenhouse gas emissions. In December 2015, as part of the ‘Paris Agreement’, European Union Member States committed themselves to a binding target of at least 40% reduction in greenhouse gas emissions by 2030 compared to 1990.

3.4 The European Union has also produced several documents influencing planning

policy in the UK, including the Habitats Directive (92/43/EEC) and the Water Framework Directive (2000/60/EC).

Nationalandregionalpolicycontext

3.5 The National Planning Policy Framework (NPPF) was published in March 2012 and it sets out the Government’s planning policies for England and how these are to be applied. It is supported by an online National Planning Practice Guide. Key NPPF requirements relating to Oxford are to:

‐ Build a strong and competitive economy ‐ Promote sustainable transport ‐ Deliver a wide choice of high quality homes ‐ Require good design ‐ Promote healthy communities ‐ Protect Green Belt land ‐ Meet the challenge of climate change and flooding

‐ Conserve and enhance the natural and historic environment

3.6 Planning bodies have a ‘duty to cooperate’ on planning issues, and Oxford City Council will cooperate with neighbouring authorities in aiming to achieve the NPPF’s objectives.

3.7 The Localism Act 2011 introduced the right for communities to shape development

in their areas through the production of Neighbourhood Plans, Neighbourhood Development Orders and Community Right to Build Orders. Currently Oxford has three designated Neighbourhood Forums – Headington, Wolvercote, and Summertown/ St Margaret’s. All three Neighbourhood Forums are working towards a Neighbourhood Plan for their area.

3.8 At the sub‐regional level, the Oxfordshire Local Enterprise Partnership (LEP) was

formed in 2011 and is responsible for championing and developing the Oxfordshire economy. The Oxfordshire LEP’s vision is “By 2030 we will have strengthened Oxfordshire’s position as a vibrant, sustainable, inclusive world‐leading economy, driven by innovation, enterprise and research excellence”. The Oxfordshire LEP produces the Strategic Economic Plan (SEP) for Oxfordshire. The SEP is currently being refreshed in order to provide an update and in order to refocus its content.

Localpolicycontext

3.9 In addition to key international, national, sub‐regional plans and programmes, local plans and strategies are considered as part of the policy review.

Oxfordshire Local Transport Plan (LTP) 4 (2015)

3.10 LTP4 ‐ Connecting Oxfordshire sets out Oxfordshire County Council’s policy and

strategy for developing the transport system in Oxfordshire to 2031. LTP4 has been developed with the following over‐arching transport goals:

‐ To support jobs and housing growth and economic vitality; ‐ To reduce transport emissions and meet our obligations from Government; ‐ To protect, and where possible enhance Oxfordshire’s environment and

improve quality of life; and ‐ To improve public health, air quality, safety and individual well‐being

3.11 LTP4 includes an area strategy for Oxford as well as other strategies including a bus

strategy which sets out how improvements will be made to the county‐wide bus network as well as developing rapid transit services along the busiest routes.

Cherwell District Council Local Plan 2031

3.12 Cherwell District Council is currently undertaking a Partial Review of Part 1 of their

Local Plan in order to consider how Cherwell should contribute to Oxford’s unmet housing need. The plan allocates land for over 20,000 jobs and more than 20,000

homes. Part 1 of the Cherwell Local Plan does not take account of Oxford’s unmet housing need.

South Oxfordshire District Council Local Plan 2031

3.13 South Oxfordshire District Council is producing a Local Plan for 2031. One of the

topics considered is whether South Oxford District Council can accommodate any of Oxford City’s unmet housing need. South Oxfordshire is planning for between 3,100 and 5,100 additional homes in addition to the 11,400 homes already allocated through their Core Strategy. The new Local Plan is also proposing to allocate a further 5 ha of employment land10.

Vale of White Horse Local Plan 2031

3.14 The Vale of White Horse Local Plan is currently at Examination. The Vale of White

Horse Local Plan proposes that Part 1 will contain the housing and employment data for the Vale of White Horse only and Part 2 will address the apportionment of Oxford’s housing need that is agreed through the Oxford Growth Board. The proposed Vale of White Horse Local Plan Part 1 allocates 20,560 new homes and 23,000 jobs.

West Oxfordshire District Council Local Plan 2031

3.15 The Examination into the West Oxfordshire District Council Examination has been

suspended in order to allow the Council the opportunity to undertake some further work on housing numbers and sites and to address the issue of ‘unmet’ need arising from Oxford City.

10 South Oxfordshire Local Plan 2031 Refined Options (2015)

Name of plan/ programme Summary

Kyoto Protocol to the United Nations Framework on Climate Change (1997)

Commits every member to reduce their emissions of carbon dioxide and other greenhouse gases, or engage in emissions trading if they maintain or increase emissions of these gases.

Habitats Directive Requires a ‘Habitats Regulations Assessment’ to ensure that plans do not have a significant impact on sites of international nature conservation importance

Water Framework Directive Commits Member States to achieving good qualitative and quantitative status of all water bodies by 2015 or, at the latest, by 2027.

Localism Act 2011 Key legislation introduced by the Government that includes the abolition of regional planning, a duty‐to‐co‐operate for local authorities, details of the community infrastructure levy, community right‐to‐build, neighbourhood plans and major infrastructure projects.

Planning and Compulsory Purchase Act 2004

Primary legislation that introduced Local Development Frameworks and regional planning (now revoked) as part of the development plan. Legislation includes the aim of achieving sustainable development.

National Planning Policy Framework (2012)

Over‐arching and concise document setting out the government’s national planning policy for England.

Planning Guidance (2014) Online guidance that makes clear the importance of Local Plans in setting a vision and agreed priorities for the sustainable development of an area. The guidance also supports local authorities and communities with plan‐making.

Oxfordshire 2030 – Oxfordshire Sustainable Community Strategy

County‐wide visioning document with a delivery plan covering issues such as environment and climate change, producing healthy and thriving communities, ensuring a world‐class economy and social inclusion.

Oxford Strategic Partnership – Vision Statement, Aims and Priorities (2013)

Visioning document that sets out the aims and priorities of Oxford. This document is produced by Oxford Strategic Partnership whose membership is made up of organisations including Oxford City Council and Oxfordshire County Council. The OSP was founded in 2003 to promote joined‐up approaches for improving quality of life in Oxford.

Figure 3.1 Generally relevant plans and programmes

3.16 Where appropriate more specific environmental, social and economic plans and policies are discussed in the following chapters.

4. BaselineInformationandExistingIssues

Introduction 4.1 In order to gain an understanding of the effect that the production of a Local Plan

would have on the city, it is important to gain an understanding of the current circumstances that exist within the city. This includes analysis of the trends that would continue if the Local Plan was not created. This information will then inform and influence the content of the new Local Plan.

4.2 The following three sections of this Scoping Report review the baseline conditions

for Oxford, referring to relevant policies and objectives. The information has been structured into three sections to reflect the three threads of the Sustainability Appraisal approach: Environmental, Social, and Economic. Each of those sections looks at a series of topics based on and ordered to match the Sustainability Appraisal Objectives. These topics also address the SEA Directive themes (derived from Annex I(f) of the SEA Directive). This approach means that some additional topics have been included to present information on issues such as housing, social inclusion, economy and tourism which are more directly related to the SA objectives than they are to the SEA themes. For clarity, Table 4.1 cross references the relationship between the topics, the SA objectives and the SEA themes. In addition, each topic starts by identifying the SA objectives and SEA themes that it addresses.

Table 4.1: Relationship between topics, SA objectives and SEA themes

Background Paper topic SA Objective SEA themes

Environmental

Flooding, Water Resources, Water Quality

1: Flooding12: Soil, water resources, water quality

Water; Climatic factors

Green Spaces, Biodiversity, open air sports

8: Green infrastructure, 9: Biodiversity

Biodiversity; Flora; Fauna; Landscape

Design, Landscape and Heritage 10: Historic Environment Material assets, Cultural heritage; Landscape

Transport 11: Transport and Air Quality Air; Climatic factors, Material assets

Air Quality 11: Transport and Air Quality Air; Climatic factors

Resources (PDL, Soil, Energy Waste)

2: Vibrant Communities 12: Soil, water resources, water quality 13: Resources

Soil; Climatic factors

Social

Housing affordability 3: Housing Population; Material assets

Housing needs and supply 3: Housing Population; Material assets

Housing types and sizes 3: Housing Population; Material assets

Students and Language Schools 3: Housing Population; Material assets

Health 4: Health Human health

Poverty, Social Exclusion, Crime, Inequality

5: Poverty and Social Exclusion

Population

Skills and Training 6. Education 14: Economic Development

Quality of essential services and facilities

7: Services and facilities Material assets

Economic

Employment and Economy 14: Economic Development

Retail, district centres and city centre

14: Economic Development, 2: Vibrant Communities

Regeneration and Economic Revival 14: Regeneration areas

Tourism 16: Tourism

4.3 From the analysis of key policy documents and baseline information, it was possible

to identify a number of emerging sustainability issues currently facing the City which the Local Plan should address. These issues are presented at the end of each topic. For clarity, Table 4.2 below collates all the sustainability issues identified in the following sections.

Table 4.2: Collated list of Sustainability Issues

Topic Key data Sustainability Issue

SA thread: Environmental


There are around 4,500 properties at a 1% or higher risk from flooding within Oxford. This figure could rise to nearly 6,000 by 2080 with the predicted impacts of climate change.

There is likely to be increased pressure to locate development in areas of a higher risk of flooding.

Climate change is likely to result in increased storm events and increased risk of flooding.

Increased demand for water will put pressure on water resources so a focus on water efficiency measures is required.


The Oxford Meadows Special Area of Conservation (SAC) is made up of four Sites of Special Scientific Interest (SSSIs). 27% of the administrative area of Oxford is designated Green Belt, this includes the ‘green lungs’ which run through the heart of the city and separate some of Oxford’s urban villages.

As Oxford’s population increases there will more demand for outdoor sports and recreation for the long term health and wellbeing of our communities.

Whilst many of Oxford’s green spaces are important and need long term protection, we may need to consider whether there are any green spaces that are less important that could help to provide new homes.

Green spaces will need to respond to climate change, providing long term flood protection and adaptable habitats for biodiversity.

Design and Heritage

Oxford contains buildings spanning every major period of British architectural history from the 11th century onwards. It contains 9 scheduled monuments and 15 Historic Parks and Gardens. There are 17 conservation areas within Oxford

A good understanding of heritage value will be required to ensure continued development pressure does not adversely affect assets.

Areas of archaeological and historical value should be considered where appropriate, in all future land allocations.

and around 1,500 listed buildings, with the proportion of grade I and II* as a total of all listed buildings being more than twice the national average.

High levels of tourism and development continue to put a strain on natural and historic sites and landscape/townscape features of Oxford.

Transport Oxford city residents are significantly less reliant on the car for journeys to work than residents in other Oxfordshire authorities (34% of Oxford residents travel to work by car in Oxford compared to 63% in the rest of Oxfordshire). Within Oxford 68% of journeys were made by sustainable methods of travel (bicycle, foot and bus).

With population and job growth in the city, a continuation of existing travel behaviour would threaten to over‐burden the transport network to an extent that compromises the character of Oxford and the quality of life of those living and working here.

It is important that housing development is delivered in locations that have a trend towards sustainable travel choices, for example close to established walking and cycling networks.

Barriers to increasing walking and cycling in Oxford should be overcome, including roads busy with other forms of transport, air quality and rivers and large areas of private land or rivers preventing direct routes.

Air Quality In Oxford, the air quality objectives are exceeded for annual mean concentrations of nitrogen dioxide close to major roads and at busy junctions across the city. Levels of nitrogen oxide (NO2) in Oxford are about 52ug/m3 (micrograms per cubic metre of air). This is a reduction from about 65ug/m3 in 1995, but it is still above the national objective of 40ug/m3, which needs to be met by 2020.

Tackling congestion, for example by reducing journeys to and within Oxford by motorised traffic would help improve air quality.

Encouraging uptake of low and zero emission vehicles, in particular buses and taxis which will continue to need to access the city centre.

Resources (Previously Developed Land, Soil, Energy Waste)

Since the 2010/11 monitoring year, all years have shown 100% completions on PDL except in the 2012/13 monitoring year where 99.6% of completions were on brownfield land. One dwelling was permitted on greenfield land

Higher costs associated with dealing with contaminated sites could increase pressure to develop greenfield sites.

Attractiveness of renewable energy technologies are likely to grow as costs fall with increased uptake.

in that monitoring year. Oxford’s CO2 emissions per capita were 5.88 in 201311. Oxford has reduced is CO2 emissions by 14% from 2005 to 201312

Although waste levels per household are not predicted to grow, the total amount of waste will increase as the number of households increase.

SA thread: Social

Housing affordability

Oxford currently has the greatest unaffordability of any city in the UK, with average house prices more than 16 times the average wage in the city, making it even less affordable than London Private rental prices reflect a similar picture, with Oxford scoring as even less affordable than London and other comparable cities in recent years on both the rental and house price unaffordability ratios.

House prices continue to rise and have become unaffordable to the majority of residents in Oxford.

Housing to rent on the open market is also unaffordable to a significant proportion of people, unless it is at social rent levels of discount.

Government changes to national policy through the Housing & Planning Act are likely to affect access to affordable housing and the delivery of new affordable housing.

Housing needs and supply

The SHMA identifies an OAN for Oxford ranging between 24,000 to 32,000 additional new homes needed between 2011 and 2031.

Lack of access to housing and affordable housing is already directly impacting on key local employers’ ability to attract or retain workers for key services and economic sectors. This is likely to worsen.

Oxford needs around 32,000 new homes between 2011‐2031, with capacity to only accommodate around 10,000. This means that some housing needs will need to be met in areas adjoining the city. The locations (to be determined through Local Plans) will impact on commuting flows into Oxford.

Without further large sites being identified, the number of small scale infill sites is likely to increase and could result in further pressure on existing infrastructure.

Housing types and sizes

The mix in Oxford tends to be higher density development and typically smaller homes, with a higher than average proportion of 1 and 2 bed properties at 43%, compared to 34% across the HMA, or 38% across the South East13. Oxford has the 14th highest

There may be a tension between maximising the number of dwellings on sites and providing dwellings in a range of sizes to meet different needs.

Provision of family‐sized homes is increasingly challenging. With such high land values and competition from HMOs, developers often seek to

11 www.centreforcities.org/city/oxford/ 12 CO2 emissions within the scope of influence of Local Authorities 2005‐2011, Department of Energy and Climate Change 13 SHMA para 2.20

number of Houses of Multiple Occupation (HMOs) in England and Wales. They form an unusually high percentage of homes in the city: an estimated 1 in 5 people live in an HMO.

maximise the numbers of units on sites.

Affordability issues have led to more people living in Houses of Multiple Occupation in recent years, this looks likely to continue.

Students and Language Schools

30,000 of the city’s adult population was a full‐time student at the time of the census, which at 24% of the total adult population was the highest proportion in England and Wales.

Adequate provision of student accommodation could have a significant beneficial impact on meeting housing need by freeing up properties currently under used, whilst also encouraging vibrancy in communities. However, it is important that this meets needs, rather than generating further demand.

The accommodation needs of undergraduate, postgraduate, and key workers/staff are all different and need to be addressed individually.

Additional data is required to inform our approach to academic floorspace, student numbers and student accommodation. For example, how many students attend further and higher educational establishments and language schools, the types of courses they are attending and to understand any planned or expected growth in student numbers over the plan period.

Health There are geographical inequalities in life expectancy ‐ men from the least deprived areas can expect to live 9.7 years longer than those in the most deprived areas. For women there is a much smaller gap of 3.3 years.

The disparity in health deprivation and sickness and disability across the city needs to be reduced.

Higher than average levels of activity and lower than average levels of obesity need to be maintained and increased.

There may be opportunities to address the issue of mental health and wellbeing through the Local Plan for example through improving quality of housing, access to open spaces and a focus on building communities.


In terms of the overall Index of Deprivation14, Oxford as a whole is ranked 166 out of 326 local authority areas in England. However 10 of Oxford’s 83 LSOAs are within the 20% most deprived

There are inequalities across the city in terms of opportunities and wellbeing. Action needs to be taken to address these inequalities to enable all parts of Oxford’s communities to experience a good quality of life.

14 A weighted measure based on information relating to income, employment, education, health, crime, housing and environment. This weighting is based on: Income Deprivation (22.5%); Employment Deprivation (22.5%); Education, Skills and Training Deprivation (13.5%); Health Deprivation and Disability (13.5%); Crime (9.3%); Barriers to Housing and Services (9.3%); and Living Environment Deprivation (9.3%).

in England, whilst 17 of Oxford’s LSOAs are within the 20% least deprived in England. This illustrates the significant range in overall levels of deprivation experienced across the city.

Oxford’s population is becoming increasingly diverse. It is important to bring people from difference backgrounds together and to support social cohesion.

Crime levels in Oxford are slightly higher than in similar areas and perceptions of safety in the city centre after dark are significantly lower than they are in the day time. Action needs to be taken to reduce opportunities for crime and to increase perceptions of safety in the city centre.

Skills and Training

Whilst Oxford has an exceptionally high proportion (63.5%) of residents with degree level qualifications (almost twice the UK or South East averages), the attainment in Oxford’s state schools remains below the UK average with only 54% of KS4 pupils achieving the equivalent of 5 A* to C GCSEs, and 22% of people aged 16 or over have either no qualifications or fewer than 5 GCSEs at C or above.

Skills mismatches increase in‐commuting, exacerbating congestion issues.

Employment growth in Oxford is most likely to be in the key sectors of education, bioscience, healthcare, and retail sector. There is also likely to be an increase in corporate R&D linked to the universities. Without appropriate skills & training, those jobs will not be accessible to local people.

Small scale brownfield development across the city is more likely to put pressure on existing school places, and will not in itself provide new school sites. State schools across Oxford, and particularly in deprived areas, generally under‐perform compared to regional and national averages.


Oxford is a relatively small city and fairly compact. It is also self‐sufficient in terms of essential services and facilities, both residents of Oxford and residents of the surrounding area can find a range of essential services and facilities within the city boundary. For residents these facilities are generally within a short journey by public transport or a relatively short walk.

Availability of services and facilities play a key role in the quality of life for residents and others, the plan will need to ensure that existing and new residents can enjoy good access to quality facilities.

Because of increased population and related journeys, it will become even more important to ensure that such facilities are easy to access for all by walking, cycling and public transport.

Trend for expanded ranges of services provided locally (for example in healthcare), and pressures on public spending will mean that opportunities should be sought for co‐location of facilities.

SA thread: Economic

Employment and Economy

The occupational structure of Oxford shows a high proportion (61%) of the workforce is employed in managerial, professional and associate professional jobs; which is slightly higher than Oxfordshire and significantly higher than the South East and England as a whole. The contribution of Oxford’s workforce to the national economy (GVA per worker) is ranked 7th, as compared to the other 54 cities in England for gross value added (£58,150).

It is unlikely that significant new sites will be identified for employment, the focus will more likely be on redevelopment and renewal of existing sites.

Ensuring sustained economic growth will be important in order that Oxford maintains its position provides for its population.

Ensuring the right balance of employment and housing growth is fundamental to ensuring Oxford’s growth.

Retail, district centres and city centre

October 2017 will see the redeveloped Westgate Shopping Centre open its doors to an 800,000 sq. ft. retail and leisure destination, increasing retail provision in the city centre by over 50% Online retail expenditure in the UK is forecast to reach £62.7bn by 2020, which would account for a predicted 17.1% of total retail sales. This would be an increase from the approximately 13‐14% in 2015.

Retail will continue to be an important part of thriving town centres. However the city and district centres will need to ensure there are a wide range of uses to complement it and ensure longer dwell times.

To attract people away from online shopping, city and district centres should have an attractive public realm, a range of activities and flexible venues.

Oxford will continue to need to complete with other towns and cities, to do so the many elements of what Oxford has to offer will need to be promoted.

Regeneration and Economic Revival

Whilst Oxford is generally a prosperous city with world renowned academic, medical and research facilities, there are parts of the city that suffer from deprivation and are in need of positive change. Despite being generally prosperous, Oxford has local concentrations of deprivation which can be masked by wider averages. In general, the south and east of the city is relatively more deprived than the north and centre of the city, with Blackbird Leys, Littlemore, Barton and Sandhills having relatively high levels of deprivation.

The diverse nature of Oxford’s economic base has helped the city to be resilient in the face of recession and it is important to maintain this.

The overall prosperity of Oxford masks localised areas of deprivation. Progress made in regeneration areas needs to be maintained to fully realise this change.

Physical regeneration interventions need to be supplemented with social, economic and environmental changes.

Tourism Oxford is a significant player in the British tourism economy. It is the seventh most visited city in the UK by international visitors and is the tourism gateway to the rest of Oxfordshire. The city attracts approximately 7 million visitors per year, generating £780 million of income for local Oxford businesses. Oxford is a major draw for visitors from overseas and also for domestic tourists and day visitors.

Tourists will continue want to access the city centre and the large number of day visitors (or part‐day visitors) will mean many additional trips to the city centre with significant implications for traffic congestion and air quality.

The quality of the visitor experience is likely to become a more important factor in travel choices as more options become available and competition between destinations increases. Quality and management of public realm, availability and accessibility of attractions and services will be key.

Need to consider what priority hotel (and other tourism) uses are given in the plan due to latent demand and competing pressures for limited sites.

5. Environmentaltopics 5.1 This section comprises a series of topic discussions with an environmental theme.

They are ordered to reflect the SA Objectives but also address a number of the SEA themes as summarised below:

Figure 5.1: Relationship between topics, SA objectives and SEA themes Environmental topics SA Objective SEA topic


1: Flooding 12: Soil, water resources, water quality

Water; Climatic factors


8: Green infrastructure, 9: Biodiversity

Biodiversity; Flora; Fauna; Landscape

Design, Landscape and Heritage 10: Historic Environment Material assets, Cultural heritage; Landscape

Transport 11: Transport and Air Quality Air; Climatic factors, Material assets

Air Quality 11: Transport and Air Quality Air; Climatic factors

Resources (PDL, Soil, Energy Waste) 2: Vibrant Communities 12: Soil, water resources, water quality 13: Resources

Soil; Climatic factors

5.2 Each topic discussion presents:

‐ a summary of the relevant plans, policies and programmes ‐ a picture of the current situation using data ‐ a discussion of the likely future trends without a new Local Plan ‐ a series of sustainability/plan issues

Flooding, Water Quality and Water Resources

Introduction The Oxford City Strategic Flood Risk Assessment (SFRA) was carried out in 2008 and reviewed in 2010. A new SFRA is to be undertaken to support the new Local Plan. This will be completed to support the development of policies in the plan and will look at flooding from all sources in Oxford. The most recent flood events in Oxford were in 2007 (July), 2012 (November) and 2014 (January). These resulted in significant disruption across the City. The principal source of flood risk in Oxford is from fluvial flooding from the River Cherwell and the River Thames. Water Quality issues have been brought to the forefront of planning since the introduction of the Water Framework Directive. This European Directive seeks to ensure that the biological and chemical quality of rivers reaches a good standard. The Environment Agency has responsibility for ensuring that relevant rivers and watercourses are of an appropriate standard. Water Resources is about of drinking water. It is important that there are sufficient water resources for the existing population of Oxford as well as for the new population arising as a result of future planned developments. Thames Water is responsible for ensuring that there are sufficient water resources available throughout the plan period.

Plans, Policies and Programmes

National Planning Policy Framework (NPPF) The NPPF suggests that Local Planning Authorities should adopt proactive strategies to mitigate and adapt to climate change, taking account of flood risk and water supply considerations. NPPF flooding policy seeks to direct development away from areas at highest risk, and where development is necessary, to make it safe without increasing flooding elsewhere (sequential and exception tests). The NPPF suggests that when determining planning applications it should give priority to sustainable drainage systems. In order to give priority to SuDS systems, in the absence of the implemented sections of the Flood and Water Management Act, Local Planning Authorities need to have appropriate policies in place.

This topic addresses: SA Objective: (1) To reduce the risk of flooding and the resulting detriment to the public well‐being, the economy and the environment. (12) To maintain and improve water quality; and manage water resources SEA Theme: Water; Climatic factors

The NPPF requires that Local Plans should be supported by an SFRA and develop policies to manage flood risk from all sources, taking account of advice from the Environment Agency and other relevant flood risk management bodies, such as Lead Local Flood Authorities.

Flooding

The Flood and Water Management Act, 2010 This piece of legislation establishes upper tier local authorities as Lead Local Flood Authorities and provides them with a range of duties. Not all sections of the Act have been implemented as yet.

Thames Catchment Flood Management Plan, Environment Agency, 2009 The Catchment Flood Management Plan proposes action to be taken for Oxford through a Flood Risk Management Strategy for Oxford. According to the Thames Catchment Flood Management Plan, Oxford has between 2,000 and 5,000 properties at risk from flooding (from rivers).

Policy Paper – Oxford Flood Alleviation Scheme, CLG, 2016 The Oxford Flood Alleviation Scheme will reduce the number of properties at a 1% or higher annual risk of flooding from 4,500 to 1,800. The aim of the project is to reduce flood risk through the development of a flood relief channel. If all approvals and funding is secured, it is likely that work will start in spring 2018, with construction expected to take between 2‐3 years.

Water Quality

Water Framework Directive, 2000/60/EC Key piece of European Legislation designed to improve and integrate the way water bodies are managed throughout Europe. The Directive requires Member States to reach good chemical and ecological status in inland and coastal waters by 2015.

Thames River Basin Management Plans, Environment Agency 2015 The River Basin Management Plans are documents which set out the current state of the water environment, pressures affecting the water environment, environmental objectives for protecting and improving waters, and a programme of measures and actions needed to achieve the objectives as set through the Water Framework Directive.

Water Resources

Thames Water Resources Management Plan 2015‐2040 The Thames Water Resources Management Plan 2015‐2040 sets out the preferred programme for managing water resources in the Thames Water area up to 2040. It sets out forecasts of supply and demand, alongside options to manage demand and provide supply of water resource across the Thames Water area. It finally sets out a programme of investment to ensure that water resources within the Thames Water area are appropriately managed to ensure that water supply is provided to existing homes as well as the development planned within the Thames Water supply area.

Current Situation

Flood Risk There are around 4,500 properties at a 1% or higher risk from flooding within Oxford. This figure could rise to nearly 6,000 by 2080 with the predicted impacts of climate change1.

Figure 5.1.1 – Map of River Flooding in Oxford (Environment Agency)

Once the Strategic Flood Risk Assessment (SFRA) is completed, the City Council will have a clear understanding of how new development will be impacted upon by different sources of flooding, including fluvial (river), groundwater, surface water, and sewerage flooding. The SFRA will also show how Oxford will be impacted upon by flooding in the future through the inclusion of a “climate change” scenario. The most recent flood (January 2014) affected homeowners, businesses and recreation spaces as shown in the photos overleaf:

1 Policy Paper – Oxford Flood Alleviation Scheme https://www.gov.uk/government/publications/oxford‐flood‐risk‐management‐scheme/oxford‐and‐abingdon‐reducing‐flood‐risk

Figure 5.1.2: Photos of Oxford under flood conditions

Photo 1: Abingdon Road (Jan. 14) Photo 2: Angel and Greyhound Meadow (Jan. 14)

Water Quality River Basin Management Plans provide information at the National level. The following table shows the number of water bodies in England. Figure 5.1.3 Number of water bodies in England

Water Body Category

Natural Artificial Heavily modified Total

Rivers, canals and surface water transfers

2,549 268 1,107 3,924

Lake 93 171 325 589

Coastal 34 2 26 62

Estuarine 24 11 69 104

Surface Water Total

2,700 452 1,527 4,679

Groundwater 271 0 0 271

Total 2,971 452 1,527 4,950

The Following table shows the ecological and chemical 2015 classification for all surface waters in England. This table shows that the majority of surface water bodies in England are in Good chemical status and moderate ecological status. Figure 5.1.4: Ecological and chemical 2015 classification for surface water in England

Ecological Status or Potential Chemical Status

No. of water bodies

Bad Poor Mod Good High Fail Good

4,679 136 765 2,966 805 7 137 4,542

The following table shows the chemical and quantitative 2015 classification for groundwater in England. Figure 5.1.5: Chemical quantitative 2015 classification for groundwater in England

Quantitative Status Chemical Status

No of water bodies

Poor Good Poor Good

271 84 187 128 143

Figure 5.1.5 shows that in terms of the groundwater in England, the majority are in good quantitative status and just over half of all groundwater are in good chemical status. Figure 5.1.6 shows the number of water bodies across the River Thames Basin District. Figure 5.1.6 showing the number of water bodies in the River Thames Basin District

Water body categories

Natural Artificial Heavily modified Total

Rivers, canals and surface water transfers

287 21 106 414

Lake 7 47 19 73

Coastal 0 0 1 1

Estuarine 1 4 5 10

Groundwater 47 0 0 47

Total 342 72 131 545

Figure 5.1.7 shows the ecological and chemical 2015 classification for surface waters. Figure 5.1.7: Ecological and chemical 2015 classification for surface waters in the Thames River Basin District


No. of water bodies

Bad Poor Mod Good High Fail Good

498 27 112 320 39 0 5 493

Figure 5.1.8 shows the chemical and quantitative 2015 classification for groundwaters in the River Thames Basin District.

Figure 5.1.8: Chemical and quantitative 2015 classification for groundwaters in the River Thames Basin District.


No of water bodies

Poor Good Poor Good

47 22 25 18 29

The Thames River Basin Management Plan (EA, 2015) provides the following series of objectives and how these can be managed.

Where good status has already been achieved, to maintain this status to comply with the requirement to prevent deterioration

In other cases to aim to achieve good or better by 2021

In addition, where first cycle objectives for 2015 have not been met these must be met as soon as practicable.

It is suggested that some of the objectives are considered by Local Authorities when making spatial plans. The following should be considered, according to the Environment Agency when Local Planning Authorities are preparing spatial plans:

‐ Physical Modifications: Physical changes such as widening, deepening and straightening rivers, estuaries and coasts help to meet the needs of society and the economy. Physical modifications allow the water environment to be used and valued for many purposes, including for navigation, flood risk management, fishing and other recreational activities that improve people's wellbeing and quality of life. These changes have helped towns and cities to develop and the economy to grow, but this can sometimes be at the expense of the water environment. Local government should consider any impacts on the physical characteristics of the shape, boundaries and content of a water body when preparing spatial plans;

‐ Managing Pollution from wastewater: Pollutants in waste water can affect the dissolved oxygen levels within the receiving waters and can impact on ecology. Nutrients can disturb the natural ecological balance of a water body and cause excessive growth of vegetation and algae, which may starve the water of oxygen. Other pollutants such as metals and everyday chemical used in products around the home which are discharged in sewage may be directly toxic to plants or animals. Humans can also be affected, for example, through chemicals that accumulate in food or bacteria and viruses in waste water affecting bathing waters. Local government should consider the impact on water quality when preparing spatial plans;

‐ Managing pollution from towns and cities: Rainwater draining from roads and pavements carries many pollutants. These include metals, vehicle emissions, silt, grit, bacteria from animal faeces and oil. Other issues arise from pollution from households and business, for example, misuse of the drainage network. Pollution can enter surface water sewers that discharge to rivers, estuaries and coastal waters, causing harm to animals and plants. Local government should consider pollution arising from land‐use activities (both urban and rural) that is dispersed across a river catchment, or sub‐catchment, and does not arise as an effluent discharge, when developing spatial plans. Local government should make sure that new development addresses potential pollution problems by using sustainable drainage systems. Local government should incorporate green and blue infrastructure into regeneration schemes where possible;

‐ Changes to natural flow and levels of water: Taking too much water from freshwater or tidal rivers, canals, lakes and groundwater damages the environment. Changes in the natural flow and level of water could affect some Natura 2000 sites; particularly water dependent Special Areas of Conservation such as the Oxford Meadows SAC. Improving the way water resources are managed will make sure that there is enough good quality water for a healthier water environment and secure supplies of water for people, businesses and agriculture. It will also provide more leisure opportunities and increase the amenity value of natural environments, leading to health benefits for people. Local government should set Local Plan policies requiring new homes to meet the tighter water efficiency standard of 110 litres per person per day as described in Part G of the Building Regulations 2010. Local government should commissions water cycle studies to inform spatial planning decisions around local water resources

Water Resources The Thames Water Resources Plan 2015‐2040 breaks down the Thames Water area into several distinct water resource zones. Oxford is within the SWOX water resource zone which covers Swindon, Oxford and London. The Environment Agency has developed a methodology for identifying and classifying relative levels of water stress in England. The Government has used this information to designate areas of serious water stress for the purpose of accelerating water metering. Oxford is within an area of serious water stress. The South East of England is considered to be an area of serious water stress. This includes the Thames Water Area in which Oxford lies. Average water consumption in the UK is 150l/p/d per capita consumption. By 2030, the government is committed to reducing per capita water consumption to 130l/p/d per capita consumption, or possibly even 120 l/p/d per capita consumption depending on new technological developments and innovation2

Likely trends without a new Local Plan

Flood Risk Over the plan period, the climate is likely to continue to change. This is likely to result in hotter, drier summers and milder, wetter winters, with more extreme weather events such as droughts or flooding. Increased storm events may lead to increased flood risk. The Oxford Flood alleviation scheme is likely to reduce the number of properties at a 1% or higher risk of flooding from 4,500 to 1,800. This is likely to happen without any new policies in the new Local Plan as it is a project which is being led by the Environment Agency.

Water Quality The River Basin Management Plan for the River Thames outlines some key measures (which need funding secured) that would benefit the river water quality throughout the Local Plan period. These include aspirations to undertake action on the River Cherwell between Banbury and Oxford, involving landowners, BBOWT and community groups. The aims of the project (subject to funding) are to re‐naturalise the river corridor, attenuate water flow and provide habitat for fish and invertebrate species. There are also aspirations to undertake a major project to restore degraded ecosystems along the river between the Thames source and Oxford. Again this is an aspirational project should funding become available within the plan period. The River Basin Management Plans predict improvements in water quality for surface and groundwater bodies at the national and river basin district level. There is limited information that is readily accessible within the River Basin District Management Plans pertaining to locally relevant information such as statistics for Oxford itself. This is because the River Basin Management Plans are separated by catchments which are often not aligned directly with localities. For instance, Oxford sits in both the Cherwell catchment and the Cotswold catchment. Figure 5.1.9 shows the predicted 2021 ecological and chemical status of surface water bodies in England.

2 Future Water – The Government’s water strategy for England (2008)

Figure 5.1.9: Ecological and chemical status of surface water bodies in England


Bad Poor Mod Good or better

Fail Good

Current 136 765 2,966 812 137 4,542

2021 113 661 2,926 979 136 4,543

Change ‐23 ‐104 ‐40 167 ‐1 1

Figure 5.1.10 shows the current and predicted 2021 quantitative and chemical status of groundwater bodies in England. Figure 5.1.10: Current and predicted 2021 quantitative and chemical status of groundwater bodies in England


Poor Good Poor Good

Current 84 187 128 143

2021 68 203 119 152

Change ‐16 16 ‐9 9

Figure 5.1.11 Current and predicted 2021 ecological and chemical status of surface water bodies in the Thames River Basin District. Figure 5.1.11: Current and predicted 2021 ecological and chemical status of surface water bodies in the Thames River Basin District


Bad Poor Mod Good or better

Fail Good

Current 27 112 320 39 5 493

2021 22 109 317 50 5 493

Change ‐5 ‐3 ‐3 11 0 0

Figure 5.1.12 shows the current and predicted 2021 quantitative and chemical status of groundwater bodies in the Thames River Basin District Figure 5.1.12 current and predicted 2021 quantitative and chemical status of groundwater bodies in the Thames River Basin District


Poor Good Poor Good

Current 22 25 18 29

2021 19 28 18 29

Change ‐3 3 0 0

Water Resources Water supply in the Thames Valley comes from surface water abstraction (70%) and groundwater abstraction (30%). Within the SWOX water resource area Thames Water predict a dry year critical period from 2020 growing from less than 1Ml/ day in 2020 to ‐32Ml/ day in 2040. The dry year critical period is the time in the year when water demand is greatest – it is also known as the “Summer Peak Period”. These changes are principally driven by the impact of climate change on

groundwater sources and therefore reflect a reduction in the amount of water available (known as the deployable output). The Thames Water Resources Plan 2015‐2040 considers that as a result of planned growth in the SWOX area:

‐ Demand for household water is likely to increase by 250Ml/ day ‐ Demand for non‐household water is likely to remain static

Figure 5.1.13 shows the supply demand balance in the SWOX water resources area. Figure 5.1.14: Supply demand balance in the SWOX water resources area

Water Resource Zone 2011 2015 2020 2025 2030 2035 2040

Swindon and Oxfordshire 37.34 27.08 ‐ 0.14 ‐12.05 ‐ 21.30 ‐ 26.70 ‐ 32.66

Potential implications of these trends are that either strategic infrastructure could be required in order to meet the deficit, or demand could be reduce through planning policies that require tighter water efficiency standards (e.g., 110 litres per person per day as described in Part G of the Building Regulations 2010, or a combination of these and other demand reduction measures. Without new policies in the new Local Plan, water demand will continue to rise as projected by Thames Water above. This could result in an increased need for strategic infrastructure to support development within the SWOX area, for instance a new reservoir.

Sustainability/Plan Issues There is likely to be increased pressure to locate development in areas of a higher risk of

flooding; increasing levels of development may have an adverse impact on water quality due to increased levels of run‐off.

Climate change is likely to result in increased storm events and increased risk of flooding.

Increased demand for water will put pressure on water resources so a focus on water efficiency measures is required.

1

Green Spaces, Biodiversity and Open Air Sports

Introduction Green spaces can perform a number of important social, environmental and economic functions. In order to make best use of Oxford’s limited land it is important that we think carefully about how we use green spaces and look for opportunities to maximise the benefits they provide, both individually and cumulatively.

Figure 5.2.1 Why Oxford’s green spaces are important Quality of Life and Culture

Wellbeing Provide opportunities for leisure, sports and recreation (physical health) Attractive environment/proximity to nature/tranquillity (mental health) Provide opportunities for social interaction (building communities) Provide opportunities for play/exploration/learning (child development)

Heritage Significant contributions to the setting of listed buildings Significant contributions to the character of conservation areas Important to historic views Some green spaces are of heritage value in their own right and are designated historic parks or local heritage assets

Sense of place Contribute to the special character of the city and part of what makes Oxford unique Green belt prevents unrestricted sprawl and stops neighbouring towns/villages from merging into each other Provide links with the surrounding countryside

Environmental Quality

Biodiversity Provision of habitats for plants and animals (particularly important are those that are recognised as being of European or national significance) Enable the movement/migration of species and genes

Water Management

Active floodplain for Oxford’s rivers, streams and brooks (water storage and retention) Help to manage surface water runoff (sustainable drainage)

Air quality Vegetation helps to improve air quality (also benefiting human health)

Climate change mitigation

Natural cooling (provision of shade, enabling air flow) Vegetation provides carbon capture and storage Flood protection

Oxford’s Economy

Jobs Businesses and jobs related to the use and management of green spaces

Tourism Historic parks and views attract visitors to the city Green spaces encourage visitors to spend longer in the city

Attractive setting for business

Green spaces are part of the character of the city and the “Oxford brand” Creates a more attractive business environment

Workforce Contact with nature and active recreational use of natural green spaces contributes to people’s psychological well‐being and physical health, reducing sick days and increasing productivity and staff retention. Opportunities for formal and informal learning, training and education

This topic addresses: SA Objective: (8) To provide adequate green infrastructure, leisure and recreation opportunities and make these readily accessible for all. (9) To conserve and enhance Oxford’s biodiversity SEA Theme: Biodiversity; Flora; Fauna; Landscape

2

through the use and management of green spaces, including volunteering.

Resources Opportunities for local food production including allotments, city farms, orchards and agriculture (also reduces food miles) Potential sources of low carbon energy such as biofuels and hydro power

Plans, Policies and Programmes Habitats Directive (European Commission 92/43/EEC) Promotes the maintenance of biodiversity across the European Union. It designates Special Areas of Conservation as priority locations for biodiversity conservation. In Oxford this is the Oxford Meadows. The effects of any plan or programme on these designated areas must be assessed.

Conservation of Habitat and Species Regulations 2010 Transposes the Habitats Directive into English law. Under the regulations, public bodies have a duty in exercising their functions to have regard to the EC Habitats Directive.

Natural Environment and Rural Communities Act 2006 Section 40 of this Act places a duty on all public authorities in England and Wales to have regard, in the exercise of their functions, to the purpose of conserving biodiversity.

National Parks and Access to the Countryside Act 1949 Section 21 of this Act enables local authorities to designate Local Nature Reserves where they are of high natural interest in the local context.

Small Holdings and Allotments Act 1908 Places a duty to provide allotment gardens where demand for them exists. Requests for allotments submitted by at least six local people must be taken into account when considering whether demand exists.

National Planning Policy Framework (NPPF) and Planning Practice Guidance (PPG) Planning should encourage multiple benefits from the use of land in urban and rural areas, recognising that some open land can perform many functions (such as for wildlife, recreation, flood risk mitigation, carbon storage, or food production) (Paragraphs 17).

Green Belt (Paragraphs 79‐92) The fundamental aim of Green Belt policy is to prevent urban sprawl by keeping land permanently open. Inappropriate development that conflicts with the purposes of the Green Belt should only be permitted in very special circumstances.

Local planning authorities should plan positively to enhance the beneficial use of the Green Belt, such as looking for opportunities to provide access; to provide opportunities for outdoor sport and recreation; to retain and enhance landscapes, visual amenity and biodiversity; or to improve damaged and derelict land. Green Belt boundaries should only be altered in exceptional circumstances, through the preparation or review of the Local Plan. When defining boundaries, local planning authorities should: ensure consistency with the Local Plan strategy for meeting identified requirements for sustainable

development; not include land which it is unnecessary to keep permanently open;

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where necessary, identify in their plans areas of ‘safeguarded land’ between the urban area and the Green Belt, in order to meet longer‐term development needs stretching well beyond the plan period;

make clear that the safeguarded land is not allocated for development at the present time. Planning permission for the permanent development of safeguarded land should only be granted following a Local Plan review which proposes the development;

satisfy themselves that Green Belt boundaries will not need to be altered at the end of the development plan period; and

define boundaries clearly, using physical features that are readily recognisable and likely to be permanent.

Local Green Space (Paragraphs 76‐78) Local communities can identify areas of particular importance to them for special protection through the preparation or review of local plans. Designating land as Local Green Space rules out development other than in very special circumstances and policies should be consistent with those for Green Belt. The Local Green Space designation will not be appropriate for most green areas or open space. The designation should only be used: where the green space is in reasonably close proximity to the community it serves; where the green area is demonstrably special to a local community and holds a particular local

significance, for example because of its beauty, historic significance, recreational value (including as a playing field), tranquillity or richness of its wildlife; and

where the green area concerned is local in character and is not an extensive tract of land.

Green Infrastructure (Paragraph 114) Local planning authorities should set out a strategic approach in their Local Plans, planning positively for the creation, protection, enhancement and management of networks of green infrastructure. Green infrastructure is defined in the NPPF glossary as a network of multi‐functional green space, urban and rural, which is capable of delivering a wide range of environmental and quality of life benefits for local communities.

Biodiversity (Paragraphs 109‐117) Local planning authorities should set out a strategic approach in their Local Plans, planning positively for the creation, protection, enhancement and management of networks of biodiversity. Impacts of development on biodiversity should be minimised, with net gains in biodiversity provided where possible. Consideration should be given to the likely changes to biodiversity resulting from climate change. Local planning authorities should take a pragmatic approach; the aim should be to fulfil statutory obligations in a way that minimises delays and burdens. Local plans have the potential to affect biodiversity both within and outside designated areas of importance. Local planning authorities should seek opportunities to work collaboratively with other partners, including Local Nature Partnerships, to develop and deliver a strategic approach to protecting and improving the natural environment based on local priorities and evidence. Equally, they should consider the opportunities that individual development proposals may provide to enhance biodiversity and contribute to wildlife and habitat connectivity in the wider area. To minimise impacts on biodiversity, planning policies should: Plan for biodiversity at a landscape‐scale across local authority boundaries; Identify and map components of the local ecological networks, including the hierarchy of

international, national and locally designated sites of importance for biodiversity, wildlife corridors and stepping stones that connect them and areas identified by local partnerships for habitat restoration or creation;

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Promote the preservation, restoration and re‐creation of priority habitats, ecological networks and the protection and recovery of priority species populations, linked to national and local targets, and identify suitable indicators for monitoring biodiversity in the plan;

Aim to prevent harm to geological conservation interests; and Where Nature Improvement Areas are identified in Local Plans, consider specifying the types of

development that may be appropriate in these Areas. Biodiversity enhancement in and around development should be led by a local understanding of ecological networks, and should seek to include: habitat restoration, re‐creation and expansion; improved links between existing sites; buffering of existing important sites; new biodiversity features within development; and securing management for long term enhancement.

Valued landscapes The planning system should protect and enhance valued landscapes, geological conservation interests and soils. Local planning authorities should set criteria based policies against which any development proposals for development on or affecting protected wildlife or geodiversity sites or landscape areas will be judged. Distinctions should be made between the hierarchy of international, national and locally designated sites, so that protection is commensurate with their status and gives appropriate weight to their importance and the contribution that they make to wider ecological networks.

Sports and Recreation Provision (Paragraphs 73‐75) Planning policies should be based on robust, up‐to‐date assessments of the needs for open space, sports and recreation facilities and opportunities for new provision. The assessments should identify specific needs and quantitative or qualitative deficits or surpluses in the local area. Information gained from the assessments should be used to determine the required level of provision. Existing open space, sports and recreational buildings and land, including playing fields, should not be built on unless: An assessment has been undertaken which has clearly shown the open space, buildings or land to be

surplus to requirements; or The loss resulting from the proposed development would be replaced by equivalent or better

provision in terms of quantity and quality in a suitable location; or The development is for alternative sports and recreational provision, the needs for which clearly

outweigh the loss.

Planning policies should protect and enhance public rights of way and access. Local authorities should seek opportunities to provide better facilities for users, for example by adding links to existing rights of way networks including National Trails.

Biodiversity 2020: A Strategy for England’s wildlife and ecosystems services (Department for Environment, Food and Rural Affairs) Sets out how international and European commitments are to be implemented in England. The strategy aims to halt overall biodiversity loss, support healthy well‐functioning ecosystems and establish coherent ecological networks, with more and better places for nature for the benefit of wildlife and people. Much of England’s wildlife is now restricted to wildlife sites, which consist largely of semi‐natural habitats. However, surviving in small, isolated sites is difficult for many species, especially in the longer term and given climate change. Biodiversity 2020 encourages a larger number of high quality sites which contain the range

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and area of habitats that species require. This includes the ecological connections that allow species, or their genes, to move between these sites. For many species, habitat does not have to be a continuous, physical connection for them to disperse. A network of high quality sites, protected by buffer zones, and connected by wildlife corridors and smaller, but still wildlife‐rich, “stepping‐stone” sites can help to achieve this goal.

Planning for a healthy environment: good practice guidance for green infrastructure and biodiversity (Town and Country Planning Association & The Wildlife Trusts) Multi‐functionality is central to the green infrastructure concept and approach. A well‐considered green infrastructure strategy will support the efficient use of land by deriving multiple uses and benefits from green spaces. The provision of green infrastructure is just as important as the provision of grey infrastructure. To be successful green infrastructure should reach into every neighbourhood and be designed to complement the natural hydrology and drainage of the area. Key guiding principles when planning for Green Infrastructure:

i. Take a strategic approach (including cross‐boundary working) to ensure a comprehensive and integrated network;

ii. Establish wide partnership buy‐in from a multi‐disciplinary, cross‐organisational team of partners; iii. Obtain and utilise sound evidence); iv. Ensure multi‐functionality (integration and interaction of different functions within single sites and

the network as a whole); v. Consider resourcing from the outset (including the aspects of green infrastructure that can generate

income, productivity and employment); vi. Make it central to the design of development; vii. Facilitate biodiversity gain; viii. Achieve physical and functional connectivity; ix. Include accessible spaces and facilitate physically active travel; and x. Integrate with other policy initiatives.

A Place to Grow: a supplementary document to growing in the community (DCLG + LGA 2010) The guide strongly advocates that local authorities prepare allotment strategies, which will guide the development of the allotments service, but also form part of the broader strategic policy for green spaces. Recent changes in the level of demand for allotments demonstrates that ‘need’ is not static. It is good practice to build into both policy and practice sufficient flexibility to enable land to be redistributed between different green spaces uses, to accommodate changing demands, and with co‐location a key tactic.

Oxford City Council Green Spaces Strategy 2013‐2027 The strategy focuses on green space that is freely available to the public for informal recreation, allotments and play irrespective of the landowner. It states that current levels of green space should be maintained and opportunities sought to increase this. It also states that a green space standard linked to population (e.g. Core Strategy Policy CS21) is no longer appropriate. Instead the focus should be on protecting and enhancing existing green space and ensuring that new developments contribute to the provision of high‐quality, multi‐functional green space where it is required most (e.g. financial contributions to improve the quality of existing spaces or on‐site provision of new green space). “Linking the green spaces identified within this study are the wide flood plains of the River Thames and the River Cherwell which comprise thousands of hectares of agricultural land and private land which together have the potential to form an integrated network of green infrastructure. Improving public access to these areas by collaborating and building partnerships with stakeholders is a key aim of this strategy.”

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“Our aspiration is that people do not have to walk more than 1,900m to their nearest large park, not more than 750m to their nearest medium park and not more than 400m to their nearest small park. This standard will be applied to all new developments as well as existing residential areas.”

Oxford City Council Playing Pitch Strategy 2012‐2026 The strategy assesses current and future need for playing pitches in Oxford. It was developed through consultation with Sport England and other stakeholders. The main conclusion is that there is currently a shortage of playing pitch provision in Oxford that has secured community use, however additional new pitches are not necessarily required to meet the shortfall, as securing community use at currently unsecured sites could result in adequate provision for all sports.

Oxford City Council Biodiversity Action Plan 2015‐2020 The action plan identifies opportunities for improving wildlife and habitat connectivity, including cross‐boundary networks, in line with Planning Practice Guidance.

Current situation

Green Spaces in Oxford Oxford has a range of different green spaces that perform a variety of functions. This includes: Green Belt, wildlife sites, floodplain, parks and open spaces, sports fields, allotments, private gardens and cemeteries. Figure 5.2.2 Green spaces in Oxford (Source: Oxford Green Space Strategy)

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Figure 5.2.3 Neighbourhood Statistics DCLG

Oxford Meadows SAC The Oxford Meadows Special Area of Conservation (SAC) is made up of four Sites of Special Scientific Interest (SSSIs). These are as follows:

‐ Cassington Meadows SSSI ‐ Pixey and Yarnton Meads SSSI ‐ Port Meadow with Wolvercote Common and Green SSSI ‐ Wolvercote Meadows SSSI

The condition of the constituent parts of the Oxford Meadows SAC is available from Natural England. The table below shows when the most recent assessment on the SSSIs that make up the Oxford Meadows SAC were undertaken and what condition the SSSIs were in at the time the assessment was undertaken. Figure 5.2.4: The condition of the SSSI units making up the Oxford Meadows SAC

SSSI Condition Date of latest assessment

Cassington Meadows SSSI Favourable 17/08/2011

Pixey and Yarnton Meads SSSI Favourable 20/12/2012

Port Meadow with Wolvercote Common and Green SSSI

Favourable (Wolvercote Green is in Unfavourable Recovering condition)

06/07/2010

Wolvercote Meadows SSSI Favourable 05/08/2010

The previous Habitat Regulations Assessments (HRAs) undertaken to support the Core Strategy, Sites and Housing Plan and Northern Gateway Area Action Plan all concluded that the policies in these plans would not have an adverse impact on the integrity of the Oxford Meadows SAC. The existing HRAs provide information that needs to be taken into account in terms of developing the Local Plan 2036. The HRA for the Core Strategy recommended that further work was undertaken at the Area Action Plan stage for the Northern Gateway. The Sites and Housing Plan recommended that certain sites provide mitigation measures (including information boards, additional publicly accessible green space, and dog bins. These measures, in addition to the policy framework, ensure no adverse impact on the integrity of the Oxford Meadows SAC from the policies in the Sites and Housing Plan. The HRA for the Northern Gateway suggested including bespoke wording within the Area Action Plan and a policy on the conditions under which planning permission will be granted on the site in relationship to the Oxford Meadows SAC. The HRA also recommended that the HRA include an increased amount of public open space to be provided on‐site at the Northern Gateway. The policies relied upon in the HRA for the Sites and Housing Plan, are as follows:

‐ NE.12 Groundwater Flow ‐ NE.13 Water Quality ‐ CS11 Flooding (sustainable drainage)

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As these policies form mitigation measures in the Habitat Regulations Assessment, consideration as to how best to take them forward as part of the new Local Plan 2036 should be undertaken. The HRA Assessments only considered the Oxford Meadows SAC. This is because the other sites within 20km – Cothill Fen SAC and Little Wittenham SAC could not be impacted upon by policies within the Oxford Local Plan. The HRA for the new Local Plan will consider whether the conclusions drawn from the previous HRAs still stands for these SACs.

Green Infrastructure No comprehensive green infrastructure assessment has been undertaken for Oxford so there is little accurate information available on this subject. Existing assessments tend to focus on specific functions of specific types of green spaces rather than providing full assessments of green infrastructure based on multi‐functionality. A comprehensive green infrastructure assessment would be helpful when considering the future of Oxford’s green spaces and in ensuring an efficient use of land.

Local Green Space Currently no designated Local Green Spaces in Oxford.

Green Belt Figure 5.2.5 The Oxford Green Belt (Source: LUC 2015 Oxford Green Belt Study)

The Oxford Green Belt covers approximately 66,000 hectares. Only part of the Green Belt is within Oxford city. The Oxford Green Belt also covers parts of Cherwell, South Oxfordshire, Vale of White Horse and West Oxfordshire district council areas. 27% of the administrative area of Oxford is designated Green Belt, this includes the ‘green lungs’ which run through the heart of the city and separate some of Oxford’s urban villages. In 2015 LUC published the Oxford Green Belt Study. This was commissioned jointly by the county and district authorities. The aim of this study was to assess the extent to which the land within the Oxford Green Belt performs against the five purposes of the Green Belt set out in paragraph 80 of the NPPF. In order to

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undertake this study the green belt was split into a number of parcels and individually assessed against each purpose. The results are summarised below:

Green Belt purpose 1: To check the unrestricted sprawl of large built‐up areas Only the Green Belt parcels immediately adjacent to the ‘large built up area’ (comprising Oxford, Botley, Kennington and Wolvercote) were assessed against this purpose.

Figure 5.2.6: Protection of open land from urban sprawl

Figure 5.2.7: Ability of boundaries/features to contain development and prevent urban sprawl

Higher rated parcels are those within the ‘green wedges’, including Port Meadow, within and very close to the urban area. These areas are subject to other protective designations and constraints (such as SSSI or floodplain) and remain open and unaffected by urban sprawl. Lower rated parcels are generally found to the south and south west of the built up area, where urban sprawl has already occurred to some degree. This does not imply that these areas are less valuable as Green Belt as the remaining open land in a parcel significantly affected by urban sprawl could be considered more valuable in preventing further development.

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Green Belt purpose 2: To prevent neighbouring towns merging into one another Figure 5.2.8:

Higher rated parcels are found, not surprisingly, between the large built up area and surrounding relevant settlements (considered under Purpose 2). Higher ratings are also given in relation to gaps associated with smaller settlements between Oxford and Wheatley where these gaps, although not situated directly between settlements defined as towns, are considered to make an important contribution to the overall perception of the Oxford‐Wheatley gap.

Green Belt purpose 3: To assist in safeguarding the countryside from encroachment Figure 5.2.9:

Higher rated parcels and broad areas are generally further away from the larger settlements, where there is a stronger sense of openness and countryside character.

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Green Belt purpose 4: To preserve the setting and special character of Oxford Figure 5.2.10:

Smaller parcels close to the urban area, from which there are views into and out of the City are generally rated highly. Smaller parcels on the ‘outer side’ of the surrounding towns and which tend to have weaker physical or visual links to the historic core of Oxford tend to rate lower. Similarly, broad areas that are within the ‘zone of theoretical visibility’ and /or form part of the physical setting of the City are generally rated highly. Broad areas further away from the City, where the physical or visual connection is more limited, achieve lower ratings.

Biodiversity Figure 5.2.11: Area of sites designated for their environmental importance in Oxford (Source: AMR 2014/15)

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Figure 5.2.12: Areas of importance for wildlife in Oxford (Source: Oxford Biodiversity Action Plan 2015)

Figure 5.2.13: Records of protected and notable species (Source: Oxford Biodiversity Action Plan 2015)

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Figure 5.2.14: Records of habitats of principal importance (Oxford Biodiversity Action Plan 2015)

Valued Landscapes The Oxford landscape is dynamic and has evolved and changed over time in response to prevailing social and economic conditions. Historically, changes in agriculture and timber requirements, changes in the socio‐economic structure of local communities and industrialisation have all had a significant impact. More recently expansion of residential areas, changing patterns of employment, demand for out of town shopping and business facilities, increased traffic levels and infrastructure development have all been dominant influences on local character. It is the cumulative effect of these past changes that has created the distinctive character of the city today and the landscape of Oxford will continue to evolve in the future.

Figure 5.2.15: Summary of Landscape Value (LUC, March 2012)

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Sports and Recreation Provision Current provision of publically accessible outdoor sport and physical activity spaces in Oxford includes:

117 playing pitches (used for various sports including football, cricket, rugby and hockey) 12 Synthetic Turf Pitches 58 tennis courts 14 Multi Use Games Areas

The main conclusion from the Oxford City Council Playing Pitch Strategy is that there is currently a shortage of playing pitch provision in Oxford that has secured community use; this is especially prevalent in cricket. Given this shortfall, the assessment suggests that all provision within the city should be protected. The strategy does not necessarily suggest that additional new pitches are required to meet the shortfall, as securing community use at currently unsecured sites could result in adequate provision for all sports. However provision for youth and mini football is an exception, but in the main this shortfall can be addressed by the spare capacity in other pitch provision. The aim of the Council should be to continue to look to secure community access against other providers’ playing pitches in key strategic areas. The pitches within the city are generally of good quality and this needs to be maintained to ensure no reduction in their capacity. Any loss of provision would place greater pressure on the other remaining facilities.

Parks / Public Open space There are different types and sizes of parks that perform different roles within the city:

Figure 5.2.16: Oxford Park Types (Green Spaces Strategy)

The Green Flag Award is an international standard that recognises the cleanliness and attractiveness of parks and green spaces. Five of Oxford’s large, City Council managed, parks have achieved this award. However the Green Spaces Strategy states that a number of medium and small parks currently fall below their potential.

Allotments There are 35 allotment sites currently in active use in Oxford. The Oxford and District Federation of Allotment Associations (ODFAA) have gathered a large amount of data covering most sites. Current data shows that Oxford’s allotments are well used. However there is some variation between allotment sites, with some having a small proportion of vacant plots available and others having a number of people on

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waiting lists. This may reflect varying levels of supply and demand across the city and the relative attractiveness of different sites to allotment users.

Figure 5.2.17: Allotment walking distance: 1,900 metre distance to allotments (Green Spaces Strategy)

Figure 5.2.18: Allotment walking distance: 750 metre distance to allotments (Oxford Green Spaces Strategy)

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There is a fairly good spread of allotments around the Oxford, although the South East of the city has the highest concentration of allotments. Allotments tend to be located on the edges of more suburban areas, close to where people live. There is no provision in the city centre. This is perhaps expected as this part of the city is predominately non‐residential.

Likely trends without a new Local Plan Biodiversity Increases in summer temperatures, milder winters, changes in rainfall distribution and seasonality, and more extremes of weather are anticipated long term impacts of climate change. The effects of these changes on biodiversity are uncertain and may occur as sudden and unexpected step changes. Biodiversity 2020 suggests that in the longer term, over a fifth (22%) of priority habitats are at high risk of direct impacts. The indirect effects of climate change, including adaptation action by other sectors that are key to land and water management, could have a significant impact in the short term and may bring positive or negative consequences for biodiversity and the delivery of ecosystem services. A particular concern is the impact of climate change on the Oxford Meadows SAC. The Oxford Meadows improvement plan states that a 2014 survey indicates that the Apium repens population in Port Meadow has significantly declined in size. It is considered that this change may be associated directly or indirectly with hydrological changes possibly deeper, more prolonged and frequent flood episodes. Adjustment of the water level management is proposed as a means to help mitigate for these changes.

Allotments Allotment waiting lists can provide a good indication of demand. However they should not be taken as definitive as there can be a number of uncertainties (for example: allotments can be managed and provided in different ways; people may add their names to more than one waiting list; lists may become out of date; and long waiting lists may deter some people from applying).

Figure 5.2.19 The National Allotment Society (2013) Allotment waiting lists in England

Demand for allotments across the country has increased significantly since 1996. This is likely to be due to a number of factors, including: increased desire for healthy organic food; increased awareness of sustainability issues and aims to reduce food miles; allotment gardening is increasingly seen as a fashionable pastime; and it is a way to reduce food bills, particularly needed in periods of recession. Since 2010/11 it appears that demand has started to level off, which could be, in part, a result of the improved national economic outlook.

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Sports and Recreation A growing population means that there is likely to be increasing demand for outdoor sports provision and public open spaces in the long term. Demand for these facilities will also increase as people are encouraged to live healthier, more active lifestyles.

Policy Context Overtime, trends in policy making for green spaces have changed. There is now more of an emphasis on green infrastructure, an approach which involves considering different purposes/uses of green spaces collectively rather than individually and managing them as such.

Sustainability / Plan Issues As Oxford’s population increases there will more demand for outdoor sports and recreation for the

long term health and wellbeing of our communities. Whilst many of Oxford’s green spaces are important and need long term protection, we may need to

consider whether there are any green spaces that are less important that could help to provide new homes.

Green spaces will need to respond to climate change, providing long term flood protection and adaptable habitats for biodiversity.

Design, Landscape and Townscape and the Historic Environment

Introduction

The importance of high quality design in creating places where people feel safe and rooted and want to be is well‐recognised. Good design can enhance or create unique character, can make a place attractive for walking and cycling, can make it feel safer from crime and vehicle traffic and it can help stimulate social interaction. Good design means resources are used more efficiently and maintenance costs are reduced. Good design is linked to health and wellbeing.

Understanding of existing character, whether that is from natural or built features, is the starting point of creating good design. Strongly linked to that is identifying and understanding heritage assets. Heritage assets are strongly protected in national policy. In recent years there has been a subtle change in national policies that require the significance of heritage assets to be weighed up against the potential benefits of new development. There is also an increased understanding of the wide range of things that contribute to the importance of heritage assets, which includes the significance placed on them by local people. This issue also links closely to design of streets (see Background Paper 9: Transport), housing space standards and amenity standards (see Background Paper 1: Housing) and also efficient uses of resources (see Background Paper 12: Resources)

Plans, Policies and Programmes The National Planning Policy Framework (NPPF) and Planning Practice Guidance (PPG) The NPPF puts significant emphasis on the importance of good design. It states that Good design is a key aspect of sustainable development, is indivisible from good planning, and should contribute positively to making places better for people. (Para. 56) In paragraph 64 the NPPG says that permission should be refused for development of poor design that fails to take the opportunities available for improving the character and quality of an area. Paragraphs 58, 60 and 61 set out how planning policy and decisions should aim to ensure that new developments:

establish a strong sense of place; respond to local character and history, and reflect the identity of local surroundings and

materials, while not preventing or discouraging appropriate innovation; address the connections between people and places; integrate with the historic environment; and promote or reinforce local distinctiveness. The design section of the PPG says:

i. Good design is essential to the delivery of successful places. ii. High quality design can also help to deliver a range of wider social, environmental and economic

objectives.

This topic addresses:

SA Objective:

(10) To protect and enhance the historic environment and heritage assets

SEA Theme: Material Assets, Cultural Heritage, Landscape and Archaeology

iii. Well designed places should be functional, adaptable and resilient, have mixed uses and tenures, support ease of movement, have high quality public spaces, be attractive and have a distinctive character.

iv. The layout, form, scale, detailing and materials of buildings and the spaces between them need to be taken into consideration.

v. There are a number of different planning processes and tools available to help achieve good design. vi. The PPG sets out some specific design issues that should be considered for specific types of

development (housing, town centres and streets and transport corridors) The NPPF also notes that pursuing sustainable development involves seeking positive improvements in the quality of the historic environment (paragraph 9). It says planning should always seek to secure high quality design and should conserve heritage assets in a manner appropriate to their significance so that they can be enjoyed for their contribution to the quality of life of this and future generations (paragraph 17). Paragraphs 126 to 141 of the NPPF contain heritage specific policies. The objective of the policies is to maintain and manage change to heritage assets in a way that sustains and, where appropriate, enhances its significance. Heritage significance is the value of a heritage asset to this and future generations because of its heritage interest, which may be archaeological, architectural, artistic or historic. This significance may derive not only from its physical presence, but also from its setting. All grades of harm, including total destruction, minor physical harm and harm through change to the setting, can be justified on the grounds of public benefits that outweigh that harm taking account of the ‘great weight’ to be given to conservation and provided the justification is clear and convincing (paragraphs 133 and 134). Public benefits will most likely be the fulfilment of one or more of the objectives of sustainable development as set out in the NPPF, provided the benefits will endure for the wider community and not just for private individuals or corporations. In order to make a sound decision a planning authority needs to understand from the applicant the significance of any heritage asset affected (paragraph 128). This may require some investigative work, but the information to be supplied with the application should be proportionate to the asset’s importance and the potential impact.

Urban Design Compendium (Homes & Communities Agency) The Urban Design Compendium was first published by English Partnerships in 2000. A third edition was updated by the HCA in 2013. Part 1 contains urban design principles and shows how these can be applied to create places where people want to live, work and socialise. This sets out how design should start with appreciating the context, then the urban structure and connections should be designed, and finally the details of the place, including how to make positive outdoor spaces. Part 2 gives practical guidance on the steps that can be taken and barriers that need to be overcome during policy and project management to improve the quality of place delivered. This states that Urban design is now embedded in the UK planning policy and sustainable development. The challenge is to interpret and apply this policy at the local level. Design policy is an essential tool for making sustainable places….Effective policies need to provide support for urban design at every level, from the strategic to the local. It suggests that effective urban design policies should contain a design objective and an explanation of how a solution might fulfil that objective. Policies, as well as detailed designs, should be based on an understanding of local context.

Assessment of the Oxford View Cones (Oxford City Council) A View Cones Assessment has been prepared to examine the significance of views, identifying their special qualities. The View Cones Assessment sets out a methodology for heritage assessment of the Oxford views and applies this to each of the view cones. It describes and analyses the important features of the view cones. The study enables a greater understanding of the significance of all parts of the view cones, ie not just the skyline. It is designed to aid understanding of the impact of proposals on views.

The Oxford Character Assessment Toolkit (Oxford City Council) The Oxford Character Assessment Toolkit has been prepared to help developers, planners and the community assess the character of areas within the city and to record features that contribute to a sense of place.

A Character Assessment of Oxford in its Landscape Setting (LUC, 2002) The report was commissioned in recognition of the importance of the city’s landscape and townscape and the changes it faces. The assessment considers the historic, cultural and architectural associations, open places, wildlife and natural habitats and perceptual characteristics that combine to create Oxford’s sense of place. The study helps in understanding which open spaces in the city are important in landscape terms, which areas of the city are sensitive to change and merit protection and opportunities for enhancement.

Roger Dudman Way Review‐ Report of Findings and Recommendations (Vincent Goodstadt, Dec 2013) An independent review was undertaken of the processes involved in granting planning permission for post‐graduate accommodation at Castle Mill, Roger Dudman Way. Some of the findings and recommendations arising from this independent review are:

Commitment to review design policies as a result of the Roger Dudman Way Review: “In terms of planning policies the Review has already identified the need to strengthen the policy approach to protecting the setting of the City and its design policy.” (para 215)

The Review recommended review of the heritage policies: “Wider concern has been raised about the commitment to the existing heritage policies and the need to bring forward the Heritage Strategy.”(para 215)

The Review recommended review of the longer term balance between need for development and heritage protection: “The balance between the provision of much needed accommodation, the protection of the Greenbelt and the safeguarding of its heritage, a cornerstone of Oxford’s international image, now needs to be reviewed and resolved through a refreshed longer term view and its conclusions reflected in the development plan policies for Oxford.” (para 216)

Current Situation Key to Oxford’s character is the fact that it is located in a floodplain overlooked by surrounding ridges. These ridges provide an important backdrop to Oxfords cityscape. Oxfords’ setting is defined by agricultural vales to the north and south, wooded hills to the east and the west and rivers valleys extending through the urban core of the city. Oxford City has a distinct physical form. The river corridors running either side of Oxford’s historic core are an essential part of its special character and landscape setting. Oxfords character is also defined by its unique built environment. The iconic skyline and architecture produced by the limestone colleges and towering spires create a world famous urban environment

Oxford contains buildings spanning every major period of British architectural history from the 11th century onwards. It contains 9 scheduled monuments and 15 Historic Parks and Gardens. There are 17 conservation areas within Oxford and around 1,500 listed buildings, with the proportion of grade I and II* as a total of all listed buildings being more than twice the national average. Two of Oxford’s heritage assets are currently on Historic England’s Heritage at Risk Register, which identifies sites most at risk of being list as a result of neglect, decay or inappropriate development. These are the Church of St Thomas the Martyr, St Thomas Street (condition poor, priority category C‐ slow decay; no solution agreed) and Swing Bridge, Near Rewley Road (condition very bad, priority category B‐ immediate risk of further rapid deterioration or loss of fabric‐ solution agreed but not yet implemented). Existing policies are working to protect the historic environment. The conservation policies are the saved historic environment policies in the Oxford Local Plan 2001‐2016 and Core Strategy Policy CS18. Ten appeals were determined in 2014/15 where these policies had been cited as a reason for refusal. Eight of these appeals (80%) were dismissed. During the 2014/15 monitoring year five listed building consents/planning permissions were granted for the total, substantial or partial demolition of a listed building (Table 22). Although granting permission for the total, substantial or partial demolition of any listed building goes against the Core Strategy target, there were strong conservation reasons for permitting this in all the cases approved in 2014/15. In the two cases where structures were to be permanently demolished, they were within the curtilage of a listed building but of no particular historic interest in themselves. In all cases the decision supported the enhancement and/or long term preservation of the special character, setting or features of the listed structures concerned. There have however been concerns about the application of policies designed to promote high quality design and protect and enhance Oxford’s heritage.


There is an on‐going development pressure on historic assets and this is likely to remain the same over the coming years. However, a strong suite of historic environment policies remains in place within the Oxford Local Plan 2001‐2016 and Core Strategy (Policy CS18), and will be reviewed in the new Local Plan 2036. A Design SPD is due to be published at the beginning of 2017. This will ensure that the design of new development comes from an understanding of existing character. The Oxford Design Review Panel has been set up to ensure that there is a consistently high standard of design for significant built environment projects.. It aims to embed best practice in urban design into the planning process. The panel provides independent and impartial evaluation through a panel of built environment experts who assess the design of new spaces. Panellists have been selected for their expertise in a range of built environment disciplines including architecture, landscape architecture, engineering, heritage, town planning and urban design. Oxford continues to develop exciting new buildings at the forefront of modern architectural design. 5 of the 17 2016 RIBA south award winners were new buildings in Oxford, with many designed by internationally renowned architects, including Zaha Hadid.

Sustainability / Plan Issues A good understanding of heritage value will be required to ensure continued development

pressure does not adversely affect assets.

Areas of archaeological and historical value should be considered where appropriate, in all future land allocations.

High levels of tourism and development continue to put a strain on natural and historic sites and landscape/townscape features of Oxford.

Transport

Introduction The mode of transport people choose has implications for the environment and also for human health. Fossil‐fuelled vehicles use limited resources and emit fumes that have widespread negative impacts, including on climate change, human health, ecosystems and historic buildings. Perception of road safety for pedestrians and cyclists is also affected by the number of motorised vehicles. Opportunities to walk and cycle in a safe environment without harmful fumes is important in encouraging use of these modes, which themselves can benefit people’s health and wellbeing. The increase in population expected in the city and across Oxfordshire will mean there are more people needing to travel into and around the city. Within Oxford a much higher proportion of journeys are made by bus and cycle than the national average and the rest of Oxfordshire. Journeys to Oxford that originate outside Oxford are much more likely to be by car. It is important that new developments are located and provided for so that sustainable modes of travel are the preferred choice. It is also important that infrastructure is provided to maximise the attractiveness of these modes. The limited availability of land in Oxford means that the best use must be made of space, including road space. It is important that streets are attractive spaces. Reducing parking also saves space.

Plans, Policies and Programmes The National Planning Policy Framework The NPPF says plans should minimise the need to travel for employment, shopping, leisure, education and other activities. Land‐use is important, and within large‐scale developments, key facilities should be located within walking distance of most properties. Use of sustainable transport modes, ie walking, cycling and public transport should be maximised. The NPPF also says that parking charges in town centres should not undermine vitality.

Manual for streets (Department for Transport and Department for Communities and Local Government) The Manual for Streets contains principles for the design of residential and other lightly trafficked streets. Its aim is for streets that are designed not just to accommodate the movement of motor vehicles but also for streets to be designed as ‘places’. It sets out the importance of a ‘movement framework’ that enables and encourages walking and cycling and public transport use. Walkable neighbourhoods usually have a range of facilities available to residents that can be accessed on foot. The environment is attractive and convenient for walking. Pedestrian or cycle only routes must be designed properly so they do not lead to anti‐social behaviour.


SA Objective:

(11) To reduce traffic congestion and associated air pollution by improving travel choice, shortening

journeys and reducing the need to travel by car/ lorry

SEA Themes: Air; Climatic Factors; Material Assets

The Oxford Transport Strategy (OTS) The OTS is part of the Local Transport Plan: Connecting Oxfordshire 2015‐2031 (LTP 4) and was adopted at a full council meeting of Oxfordshire County Council in Spring 2015. The Plan is aimed at improving access and making Oxford a better place to live, work and visit, by reducing congestion, improving public transport and making Oxford more cycle and pedestrian friendly. It sets out city wide measures, as well as going into more detail with a North Oxford Transport Strategy, Eastern Arc and the City Centre. A key OTS project is mass transit, which involves improvement on 3 lines (Kidlington to Blackbird Leys, Cumnor Park and Ride (not in existence currently) to Thornhill Park and Ride, and Eynsham Park and Ride to Lodge Hill Park and Ride (neither in existence currently); reallocation of road space; improved interchanges; use of high capacity electric vehicles; off board ticketing; and reopening of the Cowley Branch Line. Another key OTS project is to manage traffic through remote park and ride, access restrictions to the city centre and exploring a workplace parking levy. OTS projects also include the promotion of ‘active travel’, ie walking and cycling. Super premium cycle routes, both radial and orbital are suggested, and connector routes through neighbourhoods, as well as improved wayfinding and improved cycle parking (including underground cycle storage in the city centre).

The City Council’s response to LTP The City Council’s response to LTP was prepared on behalf of the City Council by Alan Baxter Ltd. This considered the OTS to represent a forward thinking and ambitious package of measures, albeit with potential to be taken further. The report made the following key comments and recommendations:

Generally more radical solutions were proposed. It suggested the LTS could go further to support walking, cycling and public transport, with a significant re‐allocation of road space ;

As a compact city, Oxford should set a radical and ambitious strategy for increased cycling and walking, based on adopting best practice from other European cities. This should include a walking strategy;

Concern that the proposed frequency of bus rapid transit is not high enough for ‘turn up & go’ especially if changing lines; also time to cross to other side of Oxford could be 1 hr +;

There should be review of bus routing and a bus management strategy which can deliver further service improvements including further bus priority;

Park & Ride – do not support closure of existing sites as no evidence to support – should enhance existing as well as investigate additional sites;

Support development of a freight consolidation strategy;

Strongly support Zero Emissions Zone;

More intelligent management of ring road e.g. Intelligent Transport Systems;

Support Workplace Parking Levy;

Hospitals – consider dedicated P&R parking for hospital staff, and potential for direct access to the Ring Road for emergency vehicles.

The Oxford Residents’ Survey 2014/15 The Oxford Residents’ Survey 2014/15 carried out by Ipsos MORI asked what things were important in making somewhere a good place to live. 27% said level of traffic congestion was an important aspect of making somewhere a good place to live (7% said this in the comparison council area), and 38% said public transport (18%said this in the comparison council area). This put public transport as the 4th most important aspect of 21 in making somewhere a good place to live and traffic congestion 10th . Residents were also asked which aspects were in need of improvement. 62% said traffic congestion needs improvement (compared to 15% in the comparator council). This makes it the aspect of

Oxford most in need of improvements according to residents surveyed. In the North East area of Oxford 70% said improvement is needed.

Major infrastructure work programmed Cutteslowe and Wolvercote roundabouts, on Banbury and Woodstock Road, are key junctions on arterial routes into the city that are already heavily congested at peak times. Increased demand is expected from developments such as Oxford Parkway and Northern Gateway. The main approaches to both roundabouts will be widened, traffic signals will be introduced, and new cycle and pedestrian crossing facilities and off‐carriageway cycle facilities will be introduced. Work is underway currently. By mid‐July 2016 the A44 southbound between Peartree and Wolvercote roundabouts will be opened as two full‐width lanes. £38m of transport improvements are programmed for the A40. Work could start as early as September 2018. Access to Headington is a project to deliver a £12.5m package of schemes in the Headington area to improve access to the major employment, health and education sites in Headington. Existing traffic congestion in the area leads to a number of problems, including delay to bus services and an unwelcoming environment for pedestrians and cyclists, therefore measures will be aimed at managing growth in car traffic and planning for more walking, cycling and use of public transport.

Current Situation Commuting patterns Between 2001 and 2011 the net increase in the number of commutable jobs (those involving a set journey from the home to place of employment) in the city was almost 8,000 (9% increase). The Eastern arc area saw a 23% increase and it has now surpassed the city centre as the area of the city with the most jobs. 73% of Oxford city residents work within the city. However, almost half of Oxford’s workforce (45,900 people or 46%) commuted into the area in 2011. This is an increase in absolute numbers (of 5,801) but a slight decrease in proportion compared to 2001. The greatest numbers of inbound commutes and the greatest increase in the numbers of journeys since 2001 is from the Vale of White Horse, with 10,800 commutes into Oxford, 1,100 more than 2001. Outbound commuting from Oxford has increased since 2001, although below the growth in inbound commuting. 16,000 employed Oxford residents (23%) travel out of Oxford to work elsewhere, mainly other Oxfordshire districts (The Vale of White Horse receiving the most commuters from Oxford) and London.

Mode share of commuting journeys Oxford city residents are significantly less reliant on the car for journeys to work than residents in other Oxfordshire authorities (34% of Oxford residents travel to work by car in Oxford compared to 63% in the rest of Oxfordshire). Within Oxford 68% of journeys were made by sustainable methods of travel (bicycle, foot and bus). These have all increased from 2001, whereas the use of a car for commuting within the city has stayed the same (see graph in figures x.1 and x.2 below).

While the modal share for public transport trips into the city has increased steadily in recent years, the majority (66.8%) of commuters travelling into Oxford from elsewhere travel by car (see Figures 5.4.1 and 5.4.2 below). Travel by car remains the dominant form of transport to all destinations other than the city centre. Since 2001, the number of journeys made by car have increased from 27,700 to 30,600.

Figure 5.4.1: graph to show the mode of travel of Oxford‐resident and non‐resident commuters

Figure 5.4.2: graph to show the mode of travel into Oxford, out of Oxford and within Oxford

Source: Oxfordshire Insights Census data analysis:

http://insight.oxfordshire.gov.uk/cms/system/files/documents/TTWmode_Oct14_FINAL.pdf

The 2011 Census figures show that the highest relative ratios of private motorised transport trips compared to those made by sustainable modes for travelling to work are in Cowley, Littlemore and North Oxford. The proportion of car journeys made varies depending on the part of Oxford that is the end destination. As the table in Figure 5.4.3 below shows, the Eastern Arc attracts more car journeys, and a higher proportion of car journeys, than the city centre or North Oxford. The number of trips by private motorised transport into workplaces in the city centre or north Oxford declined from Census 2001 to Census 2011. This reduction in numbers was exceeded by the increase in this type of travel to the Eastern Arc. However, the percentage change in those accessing the Eastern Arc to work by bus was the largest percentage increase.

Figure 5.4.3: Graph to show the mode share of commuter travel to three employment areas in Oxford at the time of the 2001 and 2011 censuses

Source: LTP4 Background Paper changing patterns of growth and travel

Traffic congestion As a medieval city, Oxford’s often narrow streets are, in many areas, unsuited to motorised vehicles. Peak period traffic congestion is a persistent problem. Within the centre there is a clear conflict between cars, buses and delivery vehicles which compete for the limited space with pedestrians and cyclists. Traffic congestion on Oxford’s road network, ring road and approaches is already significant, as the diagram in Figure 5.4.4 below shows. Levels of traffic have not been increasing, and have decreased slightly in some areas since 2001, but congestion and delay is still a problem, in peak times particularly. Figure 5.4.4 Map showing the areas of greatest congestion in and around Oxford

Walking Walking is an essential component of almost all journeys. Walking has many advantages over other modes. It creates no emissions and does not contribute to congestion or damage the environment. It is also good for people’s health. More people walking in an area can also help deter crime and may even contribute to the building of social cohesion. Its compact nature makes Oxford a walkable city. Walking should be made as attractive as possible, both to ensure it is used as a mode in itself, and also in recognition of the importance of attractive walking routes to bus stops or train stations in encouraging use of these modes over the car. To encourage more walking it is necessary to consider

the pedestrian environment and also the connectivity of walking routes. It is important that roads can be crossed safely and directly, and also that new developments are well linked to facilities and workplaces. Volumes and speeds of motorised traffic also affect the quality and range of pedestrian activity.

Cycling The percentage of workers cycling to work in Oxford, at 17%, is the second highest in England and Wales, after Cambridge (see chart in Figure 5.4.5 below). This compares to 5% of journeys to work being made by bike in Oxfordshire as a whole, and 3% in England and Wales. There are likely to be many reasons for this, including the cycling culture and the use as cheap transport by students, as well as the relatively compact urban area. There are many dedicated cycle routes in Oxford and 20mph zones which are likely to encourage cycling. Barriers to increasing the proportion of cycling are likely to include hazardous junctions, and insufficient space on roads. There are opportunities to encourage more cycling, many of which are outlined in the OTS, for example joining up the ‘quiet routes’, and integration with bus, train and rapid transit. The map in Figure 5.4.6 below shows that there is variation across the city in the number of workers cycling to work. Many of the areas with lower percentage cycling to work than most of the city are those around the ring road. However, there are also some areas closer to the city centre that have lower percentages than elsewhere in Oxford. This is likely to do with the destinations being out of range for cyclists; however there is also likely to be potential to improve cycling routes from these areas to areas of work to increase levels of cycling. Figure 5.4.5 Graph to show the local authority areas with the highest % of workers cycling to work, from the 2011 census

Figure 5.4.6: map to show the % of workers cycling to work from different areas of Oxford

Mass transit (bus and train) Mass transit in Oxford has been key to limiting growth in traffic congestion in the city over the past 10 to 20 years. Few areas outside London have such a high mode share of public transport use. Figure 5.4.7 below shows that mode share of public transport use in Oxford overall is just over 20%. This figure has remained relatively static over the last decade. It is to workplaces in areas around Cowley and Blackbird Leys to which travel by bus has remained particularly static. Figure 5.4.7: Graph to show mode share of public transport in Oxford

Source: Oxford Transport Strategy

Oxford has city and inter‐urban bus routes with very high frequencies and also five park and ride sites. The table in Figure 5.4.8 below shows the existing bus patronage and service on each main bus corridor in Oxford. Very high bus patronage is taken to be over 1000 passengers per hour, and four of Oxford’s bus corridors exceed this in the AM peak and five in the PM peak. The high frequency of buses serving routes into the city centre means there are 190 buses and coaches entering the city centre per hour at peak times.

Figure 5.4.8: Table to show buses per hour and bus patronage on Oxford’s key bus corridors Corridor Buses per hour

(in peak) Two way bus patronage

AM peak hour PM peak hour

London Road Inner cordon 64 1,596 1,825

Outer cordon 64 1,328 1,310

Cowley Road Inner cordon 50 1,396 1,353

Outer cordon 36 939 672

Woodstock Road Inner cordon 26 799 940


Botley Road Inner cordon 42 1,150 1,149


Banbury Road Inner cordon 46 855 902

Outer cordon 50 1,050 1,097

Iffley Road Inner cordon 14 580 470


Abingdon Road Inner cordon 44 924 1,119


Eastern Arc Inner cordon 16 214 161


Oxford’s rail mode share for commuting journeys into the city is fairly limited. The mainline rail station provides access for 5% of commuters to the city centre. The main origins of these commuters are Banbury, Didcot and Bicester, which are served by two or three direct services to Oxford in the peak hours. Other areas of employment in Oxford, particularly the Eastern Arc, are relatively inaccessible by rail and access requires interchange on to local buses.

Parking Parking takes up land that could be used for other uses and enables car use. However, there will be those who need to drive or who drive for to access certain areas at certain times and for particular types of trips. The needs of people to access services and potential impacts on local centres if there is not enough parking must be balanced against the negative effects of car traffic generation. Many areas of Oxford are covered by a controlled parking zone (CPZ), as shown on the map in Figure 5.4.9 below. A CPZ is an area where parking is only permitted in designated parking bays, and the rest of the kerbside space is restricted by yellow lines. Residents, their visitors, and local businesses can park in designated bays when displaying a relevant parking permit for that zone. In controlled parking areas, new developments with little private parking are less likely to have a negative impact on surrounding areas, as parking cannot be displaced to the street.

Figure 5.4.9 Map to show parts of Oxford where a Controlled Parking Zone is in force


Predicted growth of employment and housing The population of Oxfordshire is expected to grow significantly. As background work to the OTS, the County Council has made some high‐level analysis of the SHMA 2031 housing allocations for the county which indicated there could be up to 26,000 additional trips in and around Oxford. The choice of mode for making these trips is likely to be heavily influenced by the location of new housing. The highest levels of growth in the number of commutable jobs by 2031 are expected to be seen in North Oxford and the Eastern Arc. The maps in Figure 5.4.10

Figure 5.4.10: Maps to show the predicted population growth in different parts of Oxford and potential new employment growth areas in Oxford

Source: LTP Background Paper changing patterns of growth and travel

Walking and cycling Nationally, cycling levels have declined slightly in recent decades, with the distance travelled by bicycle falling by 2% between 1995/97 and 2008. However, cycling in Oxfordshire does not tend to follow this trend and automatic bicycling counts indicate that overall cycling levels may have increased slightly since 2005 (source: Oxfordshire Local Transport Plan 2011‐2030). There is not good data on the number of walking trips because walking forms a component of almost all journeys and happens almost everywhere. However, in the ten years to 2003, the number of walking trips measured nationally fell by 20%. This decline in walking journeys is largely accounted for by trips that have transferred to the car (source: Oxfordshire Local Transport Plan 2011‐2030).

Mass transit The Oxford Transport Strategy has considered available options for road based mass transit solutions, and given the constraints of Oxford’s geography and urban form has proposed bus rapid transit as the best solution for developing a level of prioritised road‐based travel. BRT has the potential to make road based public transport significantly more attractive and to expand capacity. Rail demand forecasting work carried out by Network Rail in 2013 found that the rail network around Oxford will be subject to a high level of infrastructure investment over the next fifteen years and the result of the planned package of rail improvements, will be an increase in passenger demand for rail services. The predicted growth in Oxfordshire’s population would lead to 20% increase in use rail commuters into Oxford by 2031, if travel patterns remain the same. However, it is been forecast that the rail network improvements strategy could lead to a 70% increase in patronage (OTS).

The new service from Oxford to London Marylebone, with a new station at Oxford Parkway, provides new strategic rail connections and an alternative route to London and is likely to lead to increased rail patronage and better access to employment sites north of the city for those travelling from Bicester for example. The re‐opening of the line between Bicester Town and Bletchley will place Oxford at the centre of an expanded network of trains from the south and west of England and the West Coast and Midland Main Lines. Electrification of the main line from London to Newbury and Oxford will include the introduction of new trains. Oxfordshire County Council is currently working with Chiltern Railways on their proposals to reopen the Cowley branch line for passenger trains, creating stations at Oxford Business Park and Oxford Science Park and served by an extension of the London Marylebone to Oxford line. Improvements to the railway won’t only lead to an increase in commuters to Oxford travelling by train. Network Rail predict a 71% increase in passenger demand on routes from Oxford by 2026, rising from 4.9m to 8.3m journeys. The route with the greatest absolute increase in passenger demand is oxford to Central London, with a forecast increase of 1m journeys between 2011 and 2026 (Network Rail forecast).

Advances in technology Driverless cars are being tested now and are expected to be on the road within 3 years, with mass‐production in the 2020s. Driverless cars have the potential to save roadspace, save time, improve safety and reduce emissions. They bring the potential for efficient and convenient car‐sharing amongst communities, which could save considerable amounts of urban space by reducing the need for private parking spaces. Smart management systems such as tidal flow of traffic in the am & pm peaks and ring road roadside information on the most congested routes are being introduced and have the potential to help manage congestion.

Sustainability/Plan Issues With population and job growth in the city, a continuation of existing travel behaviour would

threaten to over‐burden the transport network to an extent that compromises the character of Oxford and the quality of life of those living and working here.

It is important that housing development is delivered in locations that have a trend towards sustainable travel choices, for example close to established walking and cycling networks.

Barriers to increasing walking and cycling in Oxford should be overcome, including roads busy with other forms of transport, air quality and rivers and large areas of private land or rivers preventing direct routes.

Air Quality

Introduction Air quality has been improving in Oxford over many years. Most air pollution in Oxford comes from motorised traffic. The introduction of a low emission zone helped reduce emissions further. However, the improvement in air quality was not as dramatic as hoped, and levels of some pollutants are still above 2020 target levels. Further action will be required. This paper links closely to the background paper on transport

Plans, policies and programmes EU Ambient Air Quality Directive The EU Ambient Air Quality Directive sets legally binding limits for ambient concentrations of certain pollutants in the air. For NO2 (Nitrogen Dioxide) there are two limit values for the protection of human health. These require member states to ensure that annual mean concentration levels of NO2 do not exceed 40µg/m3 and hourly mean concentration levels of NO2 do not exceed 200µg/m

3 more than 18 times a calendar year. Member states were required to meet these limits by 1st January 2010 unless an extension was granted for up to 5 years to 1st January 2015. The Air Quality Strategy for England, Scotland, Wales and Northern Ireland Where it appears that air quality objectives will not be met by designated target dates, local authorities must declare an Air Quality Management Area and develop an action plan.

The Air Quality Action Plan (AQAP, 2013‐2020) and Air Quality Management Area (AQMA) The whole of the Oxford City Council area was declared an AQMA in 2010 because assessments of air quality predicted that the annual mean objective for nitrogen dioxide would not be met in a number of areas. The AQAP was developed to seek to address the issue of poor air quality in Oxford.

The Low Emission Strategy (May 2013) Oxford City Council The Low Emission Strategy (May 2013) provides a framework for integrating all of the Council’s activities to reduce carbon and air quality related emissions across the city. It is focussed on measures and policies the City Council can carry out or influence, categorised into action on its own estate, direct influence through regulations, planning policies and procurement practices and wider influence through partnerships and leadership. Land‐Use Planning and Development Control: Planning for Air Quality (The Institute of Air Quality Management, 2015) This document was published to ensure that air quality is adequately considered in the land‐use planning and development control processes. This sets out how land‐use planning can play a critical role in improving local air quality. The pattern of land use determines the need for travel, which is a major influence on transport related emissions. At a strategic level, spatial planning can provide for more sustainable transport links between home, work and facilities. Development is not inherently

This topic addresses: SA Objective: (11) To reduce traffic congestion and associated air pollution by improving travel choice, shortening journeys and reducing the need to travel by car/ lorry SEA Theme: Air, Climatic Factors

negative for air quality; policies should promote high quality building standards that reduce energy use and use cleaner technologies. Air quality has an important influence on health of humans and ecosystems. In the UK it has been estimated that the mortality burden of long term exposure to particulate matter (PM2.5) in 2008 was equivalent to nearly 29,000 premature deaths in those aged 30 or older. In England the fraction of mortality attributable to air pollution is 5.4%. It is estimated that removing exposure to all PM2.5 would have a bigger impact on life expectancy in England and Wales than eliminating passive smoking or road traffic accidents. The economic cost from the impacts of air pollution in the UK is estimated at £9‐19 billion every year, comparable to the economic cost of obesity (over £10 billion). Nitrogen Dioxide can also, independently of particulate matter, play and adverse role in exacerbating asthma, bronchial symptoms, lung inflammation and reduced lung function.

Current Situation Levels of air pollution in Oxford In Oxford, the air quality objectives are exceeded for annual mean concentrations of nitrogen dioxide close to major roads and at busy junctions across the city. In the city centre, the hourly mean objective was exceeded in streets such as St Aldate’s, High Street, George Street, Frideswide Square, Worcester Street and St Clement’s. Levels of nitrogen oxide (NO2) in Oxford are about 52ug/m3 (micrograms per cubic metre of air). This is a reduction from about 65ug/m3 in 1995, but it is still above the national objective of 40ug/m3, which needs to be met by 2020. The World Health Organisation has recently released data looking at air pollution world‐wide, which looked at those pollutants posing the greatest risk to human health. This found that 10 towns and cities in the UK, including Oxford, breached safe levels of PM10, and another 39 urban areas, including Oxford, breached safe levels of PM2.5.

Air pollution ‘hotspots’ in Oxford The following map (Figure 5.5.1), extracted from the AQAP shows the AQMA (black line) and mean air quality hot spots (pink circles) in the city. This shows the many of the main roads in the city centre are air quality hotspots, as well as key junctions on the ring road and many district centres (Summertown, Headington and Cowley).

Figure 5.5.1: map to show air quality hotspots in Oxford

Sources of air pollution in Oxford The pie charts in Figures 5.5.2 and 5.5.3 below, extracted from the AQAP, show the emissions of NOx by source in Oxford and an estimate of the NOx emissions by vehicle type. NOx is a term for NO and NO2. They are formed when combustion occurs in the presence of nitrogen so are found in areas of high motor traffic. Transport emissions were identified as the main source of NOx in Oxford and the vehicle type creating the most NOx is buses and coaches.

Figure 5.5.2: pie chart to show NOx emissions by source in Oxford

Figure 5.5.3: pie chart to show NOx emissions by vehicle type in Oxford

Mortality attributable to air pollution The World Health Organisation (WHO) says that ambient air pollution, made of high concentrations of small and fine particulate matter, is the greatest environmental risk to health, causing more than 3 million premature deaths worldwide every year. The WHO estimates that there are 40,000 early deaths a year in the UK from air pollution. In Oxford, 5.6% of all mortality is attributable to long‐term exposure to fine particulate matter (PM2.5). The table in Figure 5.5.4 below shows that this is higher than the average for England and the South East. Road traffic can make substantial contributions to PM2.5 concentrations at the kerbside (within 1m of the kerb), but a few metres from the kerb the contributions are relatively limited.

Figure 5.5.4: Table to show mortality attributable to particulate air pollution, comparing Oxford to England and Oxford to the South East

Likely trends without a new Local Plan Population and job growth in Oxfordshire and expected effects on air quality Growth in population and jobs is expected to happen within Oxford and across Oxfordshire. Congestion is likely to become increasingly severe without a strategy to reduce or prevent the increase in traffic in Oxford and on its approaches. This is likely to lead to worsening air quality within the city and on trunk roads nearby, such as the A34. The County Council has produced a Local Transport Plan. However, without implementation of a transport strategy aimed at reducing car use, greater congestion in and around Oxford will be expected.

UK air quality trends The UK trend in sulphur dioxide, nitrogen oxides, non‐methane volatile organic compounds, Ammonia and particulate matter (PM10, PM2.5) emissions is that of a steady decrease, especially from 1990. However, the graph in Figure 5.5.5 suggests the rate of reduction is slowing. Figure 5.5.5: Trends in UK sulphur dioxide, nitrogen oxides, non‐methane volatile organic compounds, ammonia and particulate matter (PM10, PM2.5) emissions 1970‐2013

Oxford air quality trends Air quality in Oxford is improving. Ten year trends from the City Council’s data collection and analysis show that nitrogen dioxide (NO2) levels have dropped by typically 35% at roadsides in the city centre, when looking at all monitoring sites, including non‐automatic monitoring sites. The graph in Figure 5.5.6 below shows a smaller reduction at the three automatic monitoring sites in the city centre. The annual mean objective is 40µg/m3, which is being exceeded in St Aldate’s and High Street. Figure 5.5.6: Annual mean levels of nitrogen dioxide in central Oxford, 2005‐2014

Low emission zone and low emission vehicles A low emission zone was introduced for the city centre in 2014. This requires all bus services to operate low emission vehicles. It is possible that a zero emission or ultra‐low emission zone could be introduced if it seems to become necessary in order to reach air quality targets. This would happen in a process separate to the Local Plan. It is expected that electric, hybrid and lower emission vehicles will become more widely used during the Local Plan period, with or without the Plan or an ultra‐low emission zone. These can bring air quality and carbon reduction (climate change) benefits. Work to identify suitable public charging points in on‐going.

Climate change and carbon emissions The UK Climate Impacts Programme predicts that Oxfordshire’s temperature increase by 2050 is unlikely to be less than one to two degrees. This will have impacts that will have to be adapted for, but it is equally important that action to limit climate change. Major actions to reduce emissions will need to be taken at the national and international level, but a contribution through local actions is important also. Transport in Oxfordshire contribute to carbon emissions. To reduce carbon emissions from transport requires a reduction in trips or for trips to be made in a way that uses less carbon. Electric vehicles and more fuel efficient vehicles reduce carbon emissions as well as brining local air quality benefits. Transport planning to reduce car use would also result in reduced carbon emissions for vehicular traffic.

Sustainability/Plan Issues

Tackling congestion, for example by reducing journeys to and within Oxford by motorised traffic would help improve air quality.

Encouraging uptake of low and zero emission vehicles, in particular buses and taxis which will continue to need to access the city centre.

Resources (Previously developed land, Soil, Energy, Waste)

Introduction Using scarce resources efficiently is vital to ensuring Oxford’s sustainable growth and development. Oxford is a small city with a tightly drawn administrative boundary and a growing population. It is important to ensure that energy use per capita continues to reduce as well as the amount of waste that goes to landfill is reduced and that the percentage of waste that recycled increases. This background paper examines the efficient use of resources and focuses on soil, land density, energy and waste.

Plans Policies and Programmes National Planning Policy Framework (NPPF) Soil The NPPF promotes the protection and enhancement of valued soils and geological conservation interests, as well as offering policy protection to soils from unacceptable levels of pollution or land instability. The NPPF promotes the mitigation and remediation of despoiled, degraded, contaminated and unstable land, where appropriate. In considering soil types specifically, the NPPF advocates a system of ensuring the best agricultural land is preserved from development and poorer quality agricultural land is used where appropriate. The NPPF states that new development should be appropriate to its location. This is in order to prevent unacceptable risks to development from pollution and land stability. The NPPF also sets out that contaminated land should be remediated so that it is suitable for use and no longer considered as contaminated under the Environmental Protection Act 1990.

Previously Developed Land and Density The NPPF states that planning should encourage the effective use of land by re‐using land that has been previously developed (brownfield land), provided that it is not of high environmental value. The NPPF also states that LPAs can consider whether to set a locally appropriate target for the use of PDL and also that they should set out their own approach to housing density to reflect local circumstances.


SA Objective: (2) To encourage urban renaissance by improving efficiency in land‐use, design and layout and to create and sustain vibrant communities (12) To maintain and improve water quality, and manage water resources (13) To increase energy and resource efficiency (including minimising waste) and renewable energy, with the aim of mitigating climate change SEA Theme: Soil, Climatic Factors

Energy The NPPF encourages the use of renewable and low‐carbon energy and sets out the following in terms of what LPAs should do:

‐ Have a positive energy strategy to promote energy from renewable and low‐carbon sources ‐ Design their policies to maximise renewable and low‐carbon energy development, while

ensuring that adverse impacts are addressed satisfactorily, including cumulative landscape and visual impacts;

‐ Consider identifying suitable areas for renewable and low‐carbon energy sources, and supporting infrastructure, where this would help secure the development of such sources;

‐ Support community‐led initiatives for renewable and low‐carbon energy, including developments outside such areas being taken forward through neighbourhood planning;

‐ Identify opportunities where development can draw its energy supply from decentralised, renewable or low‐carbon supply systems and from co‐locating potential heat customers and suppliers

Waste In terms of waste and waste management the NPPF considers that: “LPAs should set out strategic policies to deliver the provision of infrastructure… including waste management and that LPAs should work with other authorities to assess the capacity and infrastructure for… waste, and its ability to meet forecast demand.”

Planning Practice Guidance (PPG) Planning Practice Guidance (PPG) contains specific planning considerations relating to hydropower, active solar technology, solar farms and wind turbines. Many of the considerations relating to these technologies (for example landscape and visual impact assessment) can be applied to other forms of energy generation. PPG also contains guidance on light, noise and odour pollution/air quality and also on planning considerations for climate change, including mitigation and adaptation.

Climate Change Act, 2008 The Climate Change Act was passed in 2008 and established a framework to develop an economically credible emissions reductions path. The Act commits the UK to reducing emissions by at least 80% in 2050 from 1990 levels. The Act requires Government to set legally binding ‘carbon budgets’. A carbon budget is a cap on the amount of greenhouse gases emitted in the UK over a five year period. The first four carbon budgets have been put into legislation and run to 2027. The fifth carbon budget is expected to be set by the end of June 2016. The Government will then be able to set out more detail about how the targets will be met. A new emissions reduction plan is expected towards the end of 2016 and will set out the proposals in full.

Directive to Promote Electricity from Renewable Energy (2009/28/EC) This Directive establishes a common framework for the promotion of energy from renewable sources. It sets mandatory national targets for the overall share of energy from renewable sources in gross final consumption of energy and for the share of energy from renewable sources in transport. It lays down rules relating to statistical transfers between Member States, joint projects between Member States and with third countries, guarantees of origin, administrative procedures, information and training, and access to the electricity grid for energy from renewable sources.

National Planning Policy for Waste (October, 2014, DCLG) This document sets out that National Planning Policy for Waste which is applicable to Local Authorities that are waste management authorities. The National Planning Policy for Waste document states that:

All local planning authorities should have regard to its policies when discharging their responsibilities to the extent that they are appropriate to waste management.

Waste Management Plan for England The Waste Management Plan for England sets out the Government’s ambition to work towards a more sustainable and efficient approach to resource use and management.

Land Strategy for Oxford City Council (2014) This strategy seeks to ensure that Oxford’s residents and natural environment are not exposed to unacceptable risks from land contamination and to improve our environment for a sustainable future. It achieves this by working with developers, landowners and other key stakeholders to manage the risks from land affected by contamination efficiently and effectively. Implications for planning policy of the strategy: Objective 1: To deal with contamination through development control and building control wherever possible.

Ensure that land contamination is taken into account when developing planning policy documents

Current Situation Soil Oxford contains several wedges of agricultural land. The best and most versatile agricultural land (Grades 1, 2, and 3a) is considered to be a national resource and should not be lost. Most of the agricultural land in Oxford is not of this quality, but there are some parcels of Grade 2 agricultural land north of Binsey and in the Cherwell Valley. Oxford has seen significant industrial change to the present day. Oxford’s industrial history has resulted in a substantial amount of land affected by contamination. Almost all of the major former industrial sites have been remediated and redeveloped, such as Lucy’s in Jericho and the former car factory site in Cowley. However, there remain a significant number of smaller sites that may still have the potential to be affected by contamination. In 1989 Oxford City Council commissioned a review of former landfill sites in the city. It was a comprehensive piece of work that has allowed the city council to manage risks associated with those sites. A review of council owned allotments sites was also undertaken in the 1990s following some concerns about the quality of the land as a growing medium. Since then council owned land, such as former depots, have been redeveloped to housing and the necessary site investigations and remediation secured through the planning process. Much of the land in Oxford is located near a water source and as result has been raised to avoid flooding. The resulting ground is often contaminated with materials used in the filling process. Oxford City Council maintains a public Contaminated Land Register in accordance with the legal requirements. There are currently no entries on the Contaminated Land Register. It is worth noting

that the register does not include details of sites that have been remediated through the planning process.

Previously Developed Land The NPPF does not include a target for development on previously developed land and leaves it to LPAs to determine the most appropriate target. The Core Strategy includes a target of 90% of new housing to be developed on brownfield land during the period 2009‐2014. After 2014, to reflect the implications of the allocation and progress through the planning process of large strategic greenfield sites such as Barton Park, this target is reduced to 75%. Figure 5.6.1 shows the percentage completions on PDL and garden land. Since the 2010/11 monitoring year, all years have shown 100% completions on PDL except in the 2012/13 monitoring year where 99.6% of completions were on brownfield land. One dwelling was permitted on greenfield land in that monitoring year.

Figure 5.6.1 Percentage completions on previously developed land (PDL)

Source: Oxford City Council Annual Monitoring Report 2014/15

Residential Density The Annual Monitoring Report includes a target that housing development within the City and District Centres is of a higher residential density than those developments elsewhere. Policy CP.6 of the Local Plan includes a policy with a minimum density of 40dph. This policy applies to developments of 10 units or more. Figure 5.6.2 shows the residential densities of developments within Oxford since the 2010/11 monitoring year. The graph shows that the locally set density target of 40 dwellings per hectare has been met. (There were no qualifying developments completed over 10 units in the 2011/12 monitoring year).

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Waste The work of the Oxfordshire Waster Partnership has reduced the amount of household waste generated by 8%. The amount of household waste recycled and composted has reduced from 38.5% in 2006/7 to over 60% in 2011/12. The amount of household waste sent to landfill has reduced from 61.4% in 2006/7 to 38% in 2011/12. These reductions in household waste are mainly to do with initiatives outside of the scope of planning. For instance the City Council has undertaken a campaign to increase awareness of recycling which has involved reducing the sizes of bins which go to landfill and keeping the sizes of the recycling bins the same.

Likely trends without a new Local Plan Soil There is likely to be a continued need for the remediation of contaminated land in order that land is recycled and used efficiently.

Previously Developed Land and Density As the population of Oxford continues to grow, it is likely that there will be increased pressure for development within the City, which could result in higher residential densities and increased pressure to develop sites that are constrained in some way.

Energy Reductions in greenhouse gas emissions nationally have been documented in the Department of Energy and Climate Change (DECC) Report which shows a reduction of 42.9 MtCO2e across all sectors. Reductions in residential emissions nationally have been noted and between 2013 and 2014 when there was a 17% decrease in greenhouse gas emissions. This is attributed to the fact that 2014 was warmer than 20135. In fact, total emissions from all sectors (excluding international aviation

5 Department of Energy and Climate Change (DECC) Report 2014 UK Greenhouse Gas Emissions

resulted in a reduction in carbon dioxide emissions in 2014. As temperatures continue to rise (as a result of climate change and further efficiencies are made) it is likely that emissions may continue to fall in this sector.

Waste Future Trends in Waste Management are shown in the Joint Waste Management Strategy. Figure X.X shows that after several years of continual waste reduction, while the total amount of waste per household is not expected to increase, the number of households will increase. To 2030 this will see total waste increase from less than 300,000 tonnes per year (2011/12) to just under, 350,000 tonnes per year (2029/30).

Figure 5.6.4 showing the predicted increases in total waste up to 2030

Sustainability/Plan Issues

Higher costs associated with dealing with contaminated sites could increase pressure to develop greenfield sites

Attractiveness of renewable energy technologies are likely to grow as costs fall with increased uptake

Although waste levels per household are not predicted to grow, the total amount of waste will increase as the number of households increase.

6.Socialtopics 6.1 This section comprises a series of topic discussions with a social theme. They are

ordered to reflect the SA Objectives but also address a number of the SEA themes as summarised below:

Figure 6.1 Relationship between topics, SA objectives and SEA themes Environmental topics SA Objective SEA topic

Housing affordability 3: Housing Population; Material assets

Housing needs and supply 3: Housing Population; Material assets

Housing types and sizes 3: Housing Population; Material assets

Students and Language Schools 3: Housing Population; Material assets

Health 4: Health Human health


5: Poverty and Social Exclusion 6: Crime

Population

Skills and Training 14: Economic Development


7: Services and facilities Material assets



Housing affordability and affordable housing Introduction

Buying a home in Oxford costs on average 16 times a person’s salary; this makes it the least affordable place in the country. This has many impacts, including on employers and key services who struggle to keep staff, such as schools and hospitals, and on families and communities who might be split up because of housing costs. High house prices mean that there is a large private rented sector in the city, however rent levels are so high that renting a home on the private market is also out of reach for many people. So ‘social rent’ of housing (rented from the City Council or a Housing Association, usually at about 40% of market cost) plays an important role in meeting needs in Oxford. The constrained housing supply and increasing unaffordability of housing are both having significant sustainability impacts for those living and working in the city. It also puts pressure on welfare spending on housing benefit. Housing provision is a well‐known key determinant in attracting and retaining workers to support continued economic growth of the city and therefore also impacts the wider region, as does the congestion on roads into and within Oxford as a result of people living further away from their jobs in the city. This paper focusses on the affordability of housing and factors affecting the delivery of affordable housing, whilst the supply and demand is covered in a Housing Needs and Supply paper. There is also a further housing background paper which considers housing types and sizes.

Plans, Policies and Programmes National Planning Policy Framework In the National Planning Policy Framework (NPPF) providing a supply of housing, including affordable housing, is identified as a key element for delivering sustainable development (NPPF paragraph 7). The NPPF makes clear that local planning authorities should have a robust understanding of housing requirements in their area, and that Local Plans must support delivery of market and affordable housing to meet the needs of their area, unless this would compromise key sustainable development principles. Planning Practice Guidance then sets out further clarification about how the NPPF should be applied. Particularly relevant to delivering affordable housing are the changes which amend the thresholds for seeking developer contributions towards affordable housing (thereby exempting certain

This topic addresses: SA Objective: (3) To meet local housing needs by ensuring that everyone has the opportunity to live in a decent affordable home SEA Theme: Population; Material assets

developments from affordable housing requirements). These changes were temporarily introduced in 2015, reversed as a result of a High Court decision, and then re‐introduced in May 2016 as part of measures to incentivise developers to deliver housing. Changes to Permitted Development Rights for conversion of office to residential were also introduced by Government to incentivise housing delivery, initially on a temporary basis but made permanent in April 2016, which has a similar impact of effectively exempting those developments from affordable housing contributions.

Housing and Planning Act 2016 The Housing and Planning Act (2016) introduces a number of changes designed to boost the supply of new housing nationally, to devolve significant new powers to a local level, and to support first time buyers to make home ownership more affordable. The reforms, which affect the planning system and other policy areas, are likely to have significant implications for affordable housing provision in Oxford but the detail of the changes has not yet been set out in regulations. The Act is potentially bringing in significant changes to the definition, delivery, and supplies of affordable housing. Similarly the changes to the welfare system could affect people’s ability to afford to buy or rent properties. The changes are likely to include: - Introduction of ‘Starter Homes’ as part of Section 106 legal agreements, which would sell at 80%

of market levels; - Introduction of ‘Pay to Stay’ for social housing tenants whose income increases; - Annual payments by local authorities for the highest value council homes (High Value Property

Void levy); - Caps on Local Housing Allowance/annual rent increases for social rent providers; and - Extension of voluntary right to buy for social rent tenants.

Oxford City Council Corporate Plan 2016‐2020 The City Council identifies housing affordability as a key issue facing the city, both for local people and local employers. This is acknowledged in the Corporate Plan which seeks to help deliver investment in new affordable homes to help key workers, those on low incomes, and the most vulnerable to find a home that they can afford and that meets their needs.

Oxford City Council Housing Strategy 2015 ‐ 2018 Oxford City Council’s Housing Strategy 2015‐2018 includes objectives to deliver more affordable housing to meet housing needs. It sets out corporate actions to deliver this including delivering new council homes, Barton Park strategic site, and implementing strategies around affordable housing and empty homes.

Current situation

Oxford currently has the greatest unaffordability of any city in the UK, with average house prices more than 16 times the average wage in the city, making it even less affordable than London as

illustrated in Figure 6.1.1. Many people who work in Oxford cannot afford to live here.

Figure 6.1.1Housing affordability at 2015

Source: Centre for Cities 2016

The figure below shows how affordability has changed over time, and across different parts of Oxford. It shows the average house price and affordability ratio for the period 1997‐2000 and compares this to the situation in 2010‐2013. Since then the house prices have continued to rise and unaffordability further worsened. Figure 6.1.2 Affordability ratios and median house prices in Oxford

Private rental prices reflect a similar picture, with Oxford scoring as even less affordable than London and other comparable cities in recent years on both the rental and house price unaffordability ratios. Figure 6.1.3 Rental affordability and house price affordability for UK cities in 2012

Affordability is also an important consideration in the Oxfordshire Strategic Housing Market Assessment (SHMA). This shows the indicative income required by households to purchase or rent properties, and shows the contrast with the adjoining districts in the rest of the Housing Market Area.

Figure 6.1.4 Indicative incomes required to purchase or rent properties in Oxford Area Lower quartile

purchase price Lower quartile private rent

Affordable rent Lower quartile social rent

Cherwell £52,900 £24,900 £19,900 £15,600

Oxford £61,700 £36,900 £29,500 £15,800

South Oxon £67,100 £30,700 £24,500 £16,700

VoWH £56,900 £26,600 £21,300 £17,600

West Oxon £53,700 £26,600 £21,300 £18,000

Extract from SHMA, Table 43: Indicative income required to purchase/rent without additional subsidy (based on 2013 data)

This indicates that in 2013 a household income of at least £36,900 was required to afford to rent market housing, or £61,700 to buy a property, even at the lower quartiles of the market. This was significantly higher than the national average cost of £21,800 to rent market housing and also significantly higher than the median household income in Oxford at the time of £30,429. This illustrates why home‐ownership, and in many cases market rent levels, is beyond the means of many households in Oxford. Accordingly the SHMA takes an assumption of 35% of household income being used for housing costs, compared to a national average of only 25% (all figures from the SHMA 2014). The combination of housing unaffordability and lack of supply means that a high proportion of people working in Oxford have to travel in from areas outside of the city in order to be able to afford a home. Around 40,000 people travel into Oxford each day for work. The average distance travelled

by those employed in Oxford is 36km, with people travelling into the City from a range of surrounding towns1.

Figure 6.1.5 Number of employed residents who work in Oxford by LSOA, 2011

Main origins of people commuting into Oxford, Extract from Centre for Cities Report 2016 There are knock‐on consequences of more people needing to commute longer distances from their homes outside of Oxford. It places increased pressure on transport infrastructure in and around the City, with potential for increased congestion, on the A34 and A40 roads for example, which could impact on quality of life for people spending time caught up in the congestion and on local businesses. Commuters frequently face long, expensive and unpredictable journey times into Oxford due to the congestion. This contrasts with the patterns for those living and working within Oxford, for whom the cycling levels are amongst the highest in the country. A large proportion of those that live and work within Oxford choose to cycle or walk to work. Those with irregular working patterns do not necessarily have the choice to travel to work by means other than the car. Improving those travel options will be important. Some Oxford employers including the hospitals, BMW, and Oxford University are reporting having increasingly difficulty recruiting and retaining high quality staff. It is clear that housing provision and affordability are key determinants in attracting and retaining people to support continued economic growth of the City. Promoting new housing in areas where there is good access to these jobs by means other than the car is vital in reducing car travel and the associated congestion and its negative effects.


1 Centre for Cities 2016

The affordability of housing in Oxford is likely to worsen in future as the lack of land for housing and increasing land values push house prices up further. Correspondingly market rental prices are likely to increase as the unaffordability of buying homes puts additional pressure on the rental market, which in turn affects the types of homes required for example more people may turn to HMOs as a more affordable option. These graphs give an indication of the potential trajectory and rate of increasing prices to buy or rent homes in the private sector:

Figure 6.1.6: Indication of potential rate of increasing costs of purchase or rental in the private sector

Source: Oxford City Council statistics 2015, based on Valuation Office Agency

Affordability will also be influenced by government changes around incentivising home ownership, and also the supply of new affordable housing (for rent or purchase). In the local context of Oxford, it is anticipated that the supply of affordable homes is likely to worsen, particularly social rent. This is due to the compounding impact of: losses through Right to Buy, especially since the increased discount introduced in 2012; combined with the lack of land to provide replacement affordable homes and changes to national policy which reduce the opportunities for delivering homes through developer contributions; and caps on rental incomes for local authorities or registered providers which have been introduced as part of the national Welfare Reform programme. These factors are likely to impact on the overall numbers of affordable housing, as well as the mix and balance of communities in Oxford during the Plan period. The new Housing Company set up by the City Council aims to mitigate some of these impacts, and to ensure that the City Council can still continue to contribute towards provision of additional affordable housing, but it is likely to be more difficult to deliver affordable housing overall which will impact on the general affordability of homes in Oxford.

Sustainability/Plan Issues House prices continue to rise and have become unaffordable to the majority of residents in

Oxford.

Housing to rent on the open market is also unaffordable to a significant proportion of people, unless it is at social rent levels of discount.

Government changes to national policy through the Housing & Planning Act are likely to affect access to affordable housing and the delivery of new affordable housing.

Housing needs and supply

Introduction

The National Planning Policy Framework (NPPF) requires that Local Plans are prepared using a

proportionate, adequate, up‐to‐date and relevant evidence base “about the economic, social and

environmental characteristics of the area”. This background paper draws together and summarises

the evidence with regard to meeting housing needs and delivery.

The urgent need for more housing and the constrained supply in Oxford is well documented and

frequently features in the press and research studies. This is not a new problem; it was an issue also

back in previous plans including the Core Strategy and former South East Plan. Independent

inspectors at those times recognised the challenges of the urgent and significant level of housing

need in Oxford versus the physical constraints of a city already built up to its boundaries. More

recently the Oxfordshire Strategic Housing Market Assessment (SHMA) provided updated figures

and an ‘objectively‐assessed’ need figure, but in essence the broad scale and challenges of the

problem of meeting housing needs remain similar to those of 10‐15 years ago because whilst

housing has been delivered the population has also increased.

The constrained housing supply and increasing unaffordability of housing in Oxford have significant

sustainability impacts for those living and working in the City. It also puts pressure on welfare

spending, because increasing rents push up spending on housing benefit. Housing provision is a well‐

known key determinant in attracting and retaining people to support continued economic growth of

the City, and therefore also impacts the wider region, as does the congestion on roads around

Oxford resulting from people living further away from their jobs in the City.

The supply of student accommodation and older persons accommodation are covered in subsequent

papers.

Plans, Policies and Programmes National Planning Policy Framework (NPPF) The NPPF identifies housing as one of the key elements to delivering sustainable development:


“a social role – supporting strong, vibrant and healthy communities, by providing the supply of

housing required to meet the needs of present and future generations; and by creating a high

quality built environment, with accessible local services that reflect the community’s needs and

support its health, social and cultural well‐being” (NPPF para 7, emphasis added).

The NPPF makes clear that local planning authorities should have a robust understanding of housing

requirements in their area, and that Local plans must support delivery of market and affordable

housing to meet the needs of their area, unless this would compromise key sustainable development

principles. The NPPF asks local councils to plan for a mix of housing based on current and future

demographic trends and the needs of different groups in the community. The key sections of the

NPPF in relation to housing are in Section 6, Delivering a wide choice of high quality homes

(paragraphs 47 to 53) and Para 159 within the Plan‐making evidence base section.

Other housing requirements and guidance within the NPPF are: the ability to make a windfall

allowance if compelling evidence is available; the requirement to demonstrate a five‐year supply of

deliverable housing sites (Para 48); that relevant policies shall not be considered up‐to‐date if a five

year supply of housing sites cannot be demonstrated (Para 49); encouraging local authorities to

bring back empty houses and buildings into use and should normally approve changes to residential

use from commercial (Para 51); and resisting inappropriate development within residential gardens

(Para 53). It is also noteworthy that the introduction of the NPPF removed targets for development

on previously developed (brownfield) land and the requirement to have regard to national minimum

density for housing.

Paragraph 159 sets out the evidence base requirements regarding housing need and supply,

stipulating that local planning authorities should prepare a Strategic Housing Market Assessment

(SHMA) and a Strategic Housing Land Availability Assessment (SHLAA)1. The SHMA should assess the

full housing needs, identifying the scale and mix of housing and the range of tenures that the local

population is likely to need over the plan period. This should meet household and population

projections, taking account of migration and demographic change; address the need for all types of

housing, including affordable housing and the needs of different groups in the community; and cater

for housing demand and the scale of housing supply necessary to meet this demand. The SHLAA

should establish realistic assumptions about the availability, suitability and the likely economic

viability of land to meet the identified need for housing over the plan period.

Planning Practice Guidance (first published 20142) The PPG supplements the NPPF to provide more information about the methodology for assessing

housing needs and supply.

It sets out that these should not be constrained by land availability, or other infrastructure or

environmental factors. ‘Housing Market Areas’ are identified within the guidance as the basis for the

1 Note that guidance produced since the NPPF now encourages integration with employment land assessments, so is often referred to as a HELAA rather than SHLAA which only considers housing. 2 Note the PPG is subject to ad-hoc updates by Government, so where quoted we have included the date of the extract for clarification.

needs Assessments. It also specifies that to determine housing requirements local planning

authorities should turn first to household projections, and Census and Labour Force Survey data.

Housing and Planning Act 2016 The Housing and Planning Act is likely to have significant implications for the delivery of housing in

Oxford, especially affordable housing. As the Act continues through the statutory stages it will be

clarified through Regulations as the full impacts are not known at this stage. Potential changes yet to

be confirmed in the implementation detail of the Act which could impact on supply of homes

include:

- Introduction of Starter Homes as part of S106 agreements

- Introduction of ‘Pay to Stay’ for social housing tenants whose income increases.

- Annual payments by local authorities for the highest value council homes (High Value

Property Void levy)

- Caps on Local Housing Allowance/annual rent increases for social rent providers

- Extension of voluntary right to buy for social rent tenants.

It is also anticipated that there will be further changes to the operation of the planning system in

response to the Government Technical consultation on Implementation of Planning Changes, which

considered measures such as ‘Permission in Principle’, and a new ‘Brownfield Register’. The

Government has not yet confirmed such changes, although the brownfield register is already being

trialled in some authorities including Oxford.

Additional local powers through devolution processes are also being explored by the Oxfordshire

authorities. This could also affect housing delivery in Oxford if relevant new powers are granted and

funding, but at present this is unknown.

Other Relevant National Plans and Policy In an attempt to boost the supply of new housing nationally and devolve significant new powers to a

local level, the Government has implemented or is continuing to progress, various changes to the

way the planning system operates and changes to national policy for planning and housing.

In recent years there have been various incentives introduced to see more homes built including:

New Homes Bonus to local authorities for new homes delivered

Neighbourhood Planning for communities who wish to deliver additional homes

Changes to Permitted Development Rights for conversion of office to residential

Exemptions of certain developments from developer contributions for affordable housing

Community Right to Build

As well as incentives to promote home ownership such as the increased discount on Right to Buy3

properties, and financial incentives for first time buyers like the Help to Buy ISA.

3 as of April 2012, the discount cap has been increased to 75% nationwide, in order to incentivise tenants to buy their properties

Oxfordshire Strategic Housing Market Assessment (SHMA) 2014 The main evidence about housing need for Oxford is the Oxfordshire Strategic Housing Market

Assessment (SHMA, 2014).

The SHMA identifies the overall scale of housing need, as well as the mix of housing and range of

tenures which the local population is likely to need in the period to 2031. It considers household and

population projections, taking account of migration and demographic change. It also addresses the

need for all types of housing, including affordable housing needs, and the needs of different groups

in the community. It then brings this information together to identify the ‘objectively assessed need’

(OAN).

Consistent with guidance, we worked jointly with neighbouring authorities and considered needs

across administrative boundaries to assess the whole Housing Market Area (Oxfordshire). A joint

study was commissioned by the Oxfordshire authorities, undertaken by GL Hearn and published in

April 2014. Since then some authorities4 have undertaken minor updates for their district areas to

take into account demographic projections (eg 2012‐based Population and Household Projections)

published by Government subsequent to the SHMA publication. Those updates to inform Local Plan

examinations, are consistent with the methodology in the SHMA, do not seek to provide an

alternative assessment of housing need, and were found not to fundamentally or significantly alter

the 2014 findings.

The Local Plan period will run until 2036 so some further technical work will be needed to roll

forward the Oxford OAN calculations from 2031 to 2036, and to ensure the latest population and

household projections are taken into account. This is in accordance with PPG which requires the

most up‐to‐date estimates of household growth should inform work but that assessments are not

outdated every time new projections are issued5.

In the meantime the SHMA is sufficiently up to date to inform the initial stages of the Local Plan: The

demographic‐led projections in the SHMA were based on the ONS 2011‐based Interim Sub‐National

Population and Household Projections as a starting point, and then extended beyond 2021, and re‐

based to take account of the 2011 Census data to address the apparent suppression in household

formation rates especially in Oxford. The adjustments and sensitivity applied to the data pre‐empted

the adjustments which were then borne out in the subsequent data releases such as the CLG 2012‐

based Household Projections, ONS 2012‐based Sub‐National Population Projections, and ONS Mid‐

year Population Estimates for 2013 and 2014.

Oxford Strategic Housing Land Availability Assessment 2014, and the Housing and Employment Land Availability Assessment 2016 The Strategic Housing Land Availability Assessment (SHLAA) assesses the total quantity of housing

that could be provided in Oxford by considering sites against suitability, availability, and achievability

criteria. It does not allocate or indicate preferences of sites. In 2014 the capacity identified totalled

10,212 dwellings for the period 2011‐2031. This figure incorporates planning permissions and a

4 Vale of White Horse, and West Oxfordshire District Councils 5 PPG paragraph 2a‐016‐20150227

windfall allowance, as well as other identified sites which are anticipated might be submitted as

planning applications in future.

In 2016 the SHLAA is being updated and incorporated into a Housing and Employment Land

Availability Assessment (HELAA) in accordance with national guidance. At the time of writing this

work is on‐going, however emerging findings have identified sites with a total capacity for around

6,000 dwellings in the period 2016‐2036 (excluding windfalls). (The HELAA will be published on the

City Council’s website when the work has been completed). The HELAA also considers the demand

and supply of land for employment, and the interrelationship with land for housing.

Gypsy, Traveller and Travelling Showpeople Accommodation Needs Assessment, 2014 update Oxford City, South Oxfordshire, and Vale of White Horse district councils have jointly considered the

needs for Gypsy, Traveller, and Travelling Showpeople in an accommodation needs assessment,

most recently updated in 20146. The study considers the accommodation needs for those specific

groups, for the period up to 2026. This is supplemented by bi‐annual caravan counts.

Oxford City Council Corporate Plan 2016‐2020 Meeting housing needs is identified as a key priority in the City Council Corporate Plan, and the lack

of affordable housing is recognised as a constraint to the City’s growth potential. The impact of the

current housing crisis is also recognised, particularly the impact on major employers, and the most

vulnerable and least well paid people. The plan sets a success measure of 400 new homes per year

being granted planning permission.

The City Council also has several other adopted strategies which seek to address different elements

of housing need alongside the role as local planning authority, for example the Homelessness

Strategy, Housing Strategy, and Empty Property Strategy.

Current situation Housing needs Housing need and housing targets mean different things in national policy. The NPPG makes it clear

that the assessment of housing needs should be objective and based on facts, without limitations

such as land supply or viability being imposed. This is the ‘objectively assessed housing need’ (OAN).

Other factors, such as land supply, sustainability appraisal, and aligning the housing and economic

strategy, are then addressed subsequently in development plan policies when setting the housing

target.

Objectively‐assessed need for housing in Oxford

6 Oxford City, South Oxfordshire and Vale of White Horse district councils Gypsy, Traveller, and Travelling Showpeople Accommodation Needs Assessment Update (ORS, 2014)

The SHMA identifies an OAN for Oxford ranging between 24,000 to 32,000 additional new homes

needed between 2011 and 2031.

This calculation takes into account demographic trends, committed economic growth (such as the

City Deal), as well as addressing the huge affordable housing needs. Assuming a mid‐point of the

range results in a figure of 1400 homes per year needed through the period 2011‐2031.

Figure 6.2.1 Summary of Oxford Objectively‐assessed need

Housing Needed per Year (2011‐

31)

A. Demographic

Base + Shortfall

B. To Support Committed Economic Growth

C. To Meet Affordable Housing

Need in Full

D. Range: Housing Need per Year

E. Midpoint of Range

Cherwell 682 1142 1233 1090‐1190 1140 Oxford 780 700 2058 1200 ‐ 1600 1400 South Oxfordshire 552 749 965 725‐825 775 Vale of White Horse

508 1028 683 1028 1028

West Oxfordshire 541 661 685 635‐685 660 Oxfordshire 3063 4280 5624 4678 ‐ 5328 5003

Extract from SHMA (2014), Figure 15 Conclusions on Future Housing Need

Affordable housing need The SHMA also considers the need specifically for affordable housing. The SHMA considers the

backlog of affordable housing need plus newly‐arising (projected) need from newly‐forming

households, and existing households falling into need, against the supply of affordable housing from

social rent re‐lets, and re‐lets/sales from intermediate sector or registered providers, as well as role

of the private rented sector in meeting needs.

Current planning policies in Oxford seek to deliver at least 50% affordable housing from qualifying

housing developments, of which 80% should be social rent and up to 20% intermediate affordable

housing tenures. Notwithstanding those high targets, there is a backlog of pent up demand and

overall the demand for affordable housing is still likely to increase during the Plan period,

exacerbating the already existing difference between affordable housing demand and supply. The

SHMA identified that for Oxford 988 net additional affordable homes are needed per year to meet

future demand and the backlog that has accrued, such as people currently in unsuitable housing

such as overcrowded households7. This is in addition to the current supply in the development

pipeline and the supply through existing re‐lets (SHMA table 55).

In terms of the social rent element of affordable housing need, there are currently 3,300 households

on the Council’s Housing Register for social housing. This is likely to increase during the plan period

on the basis that on average only about 500 properties become available to let each year8. The City

Council is striving to build more new homes including setting up a Local Housing Company9, but

overall there is anticipated to be a net reduction in social rent homes because homes will be sold off

as a result of the Government proposals to increase Right to Buy, and the proposed new levy that

7 Table 55 in SHMA, annual net affordable housing need 2011‐2031 including development pipeline 8 Figures from Oxford Allocations Policy document 9 Report to CEB 17 March 2016 http://mycouncil.oxford.gov.uk/documents/s28744/Housing%20Company%20Report%20FINAL.pdf

the Council will have to pay to Government on High Value Council Void Properties10. These trends

are likely to result in loss of dwellings from the stock available for social rent, and particularly of

larger family‐sized dwellings.

Current planning policies in Oxford prioritise delivering social rent affordable housing11 on the basis

that even intermediate forms of affordable housing are still beyond the reaches of many

households. This is illustrated in the marked difference in tenure profile in Oxford compared to other

parts of Oxfordshire and nationally.

Figure 6.2.3 Tenure profile of Oxford

Extract from SHMA Table 4, Detailed Tenure Profile from 2011 Census

Oxford City Council manages its own housing stock of around 7,500 homes. Of the current stock of

social rent housing, some is owned and managed by the City Council, and others are run by

registered providers. Similarly the delivery of new social rent stock is through a combination of City

Council direct new builds under the Government‐funded Affordable Homes Programme, and

provision through on‐site developer contributions from market housing schemes, the units are then

taken on and managed by either the City Council or registered providers.

Gypsy, Traveller, and Travelling Showpeople accommodation needs Oxford currently has no Gypsy & Traveller sites and has seen only one caravan recorded during the

caravan counts of the past 5 years. The 2011 Census indicates that the Gypsy and Traveller

population in Oxford is 92, which indicates that there are a number of households living in bricks and

mortar. The Travelling Showpeople caravan count indicates there are no Showperson caravans

within Oxford. There are several sites close to Oxford’s boundary at Redbridge Hollow (24 pitches),

Middle Ground Wheatley (16 pitches), Ten Acre Park Sandford (16), as well as Manor View Marston

(4) and Kiln Lane Garsington (1) (both unauthorised, tolerated sites.

In conclusion, the Accommodation Assessment identifies that no additional pitches (for Gypsy &

Travellers) or plots (for Travelling Showpeople) are needed in Oxford in the period 2012‐2029.

Housing target

10 Government proposals that councils would be forced to sell off their most expensive properties when they become empty in order to help fund the extension of the Right to Buy to housing associations 11 Core Strategy Policy CS24, Sites and Housing Plan Policy HP3, and Affordable Housing and Planning Obligations SPD

The target or requirement is different from the OAN. The current housing target is set in the

adopted Core Strategy at 8,000 homes in the 20 year period 2006‐2026, averaging 400 homes per

year. The Core Strategy target is clearly a constrained and capacity‐based target, and the Inspector

clearly acknowledged that the target does not represent the full need nor perpetuate to meet that

need in full. The need figure for the city has always been far higher than the capacity to meet the

need and the most recent SHMA did not demonstrate a need that was not known previously, hence

the Core Strategy target remains appropriate despite it being lower than the full OAN. The OAN

identified in the Oxfordshire SHMA identifies a need for between 24,000 and 32,000 dwellings for

Oxford in the period 2011‐2031, which would average out at 1,200‐1,600 per year. However the

OAN does not automatically supersede the Core Strategy target. This was confirmed by the

Government that an OAN identified in a SHMA “is untested and should not automatically be seen as

a proxy for a final housing requirement in local plans. It does not immediately or in itself invalidate

housing numbers in existing local plans”12.

The full OAN would clearly not be a deliverable target or a realistic requirement for Oxford due to

the extensive land constraints in the city. A significant proportion of the OAN will therefore need to

be met outside of the city, elsewhere within the Oxfordshire Housing Market Area. The City Council

is actively pursuing this with the neighbouring authorities through the Oxfordshire Growth Board.

The Local Plan will need to consider what an appropriate total, and annualised, target for housing

should be. Currently there is a working assumption with the Oxfordshire authorities that

approximately 15,000 of Oxford’s housing need will be met in adjoining areas within the HMA.

Housing supply Housing permissions and housing land supply This table shows dwellings permitted (net) since the start of the Core Strategy period. This takes into

account dwellings gained and lost through new build completions, demolitions, changes of use and

conversions. It excludes outline permissions where reserved matters have subsequently been

permitted to avoid double counting. This shows that there are substantial permissions already

granted and that are due to commence which will boost housing supply in future monitoring years,

particularly with major schemes such as Barton Park.

Figure 6.2.4 Net additional dwellings permitted in Oxford

Year Net additional C3 dwellings permitted

2006/07 501

2007/08 653

2008/09 348

2009/10 283

2010/11 148

2011/12 235

2012/13 102

2013/14 1,350

2014/15 184

12 Letter from Brandon Lewis MP, open letter to the Planning Inspectorate in December 2014

Total: 3,804 The HELAA (and formerly the SHLAA) assesses the housing land supply from these and other sources

of identified sites. The 2014 SHLAA identified sites with a capacity of around 6,400 dwellings, and the

2016 update in the HELAA is due to be published shortly.

Windfall supply Windfall sites are those which have not been specifically identified as available due to the City

Council not being aware of them until a planning application. They would normally comprise

previously‐developed sites that have unexpectedly become available. All sites identified in the

SHLAA or the HELAA are considered to be identified sites and so are not windfall sites.

Windfall sites may be justified by the Local Authority as part of the housing land supply if “they have

compelling evidence that such sites have consistently become available in the local area and will

continue to provide a reliable source of supply” (NPPF, paragraph 48). Oxford has a strong housing

market with high demand for new homes and a high proportion of previously‐developed sites and

conversions, and as such windfall sites have consistently come forward at varying rates.

Traditionally the housing land supply has only considered sites of 10 or more dwellings, so sites of

less than 10 dwellings were counted within the windfall allowance. In the 2016 HELAA the site size

threshold has been adjusted identify sites of 5 or more dwellings, so the windfall rate will also be

adjusted down accordingly to avoid double counting.

Likely trends without a new Local Plan Housing Supply There are a range of factors which significantly constrain the supply of land available for new

housing or any other type of new development within Oxford. Amongst others are the tightly bound

nature of the city administrative area, with significant areas at risk of flooding. These factors

increase the competition for land between housing, student accommodation and employment and

other uses. This pressure on infrastructure is exacerbated by the fact that the majority of housing

developments are on small scale, infill sites, either through re‐development of sites or back garden

developments, with limited opportunity to deliver new on‐site or strategic infrastructure.

This competition for land in Oxford is putting increasing pressure on other land uses which are

important elements of sustainable communities such as public open spaces, school playing fields,

and sites of ecological interest, and community facilities. These all face pressure from speculative

residential development. Changes to national policy in recent years, such as permitted development

right changes for office to residential conversions, has exacerbated these pressures, as homes built

under permitted development do not have the same planning considerations about supporting

infrastructure or impact on the local area. It is important to have sufficient infrastructure such as

school places, public open space, and public transport capacity, alongside new housing.

As identified above, there is not capacity within Oxford to fully meet the OAN. We are therefore

working with neighbouring districts, landowners, and developers to identify locations for housing in

and around Oxford. The joint work through the Oxford Growth Strategy is on‐going. The next stage is

for an apportionment to be agreed later in 2016 of how much un‐met need will be accommodated

by each district. The exact locations within the districts are not yet known as it will be tested and

confirmed through their local plans. However there are clear sustainability benefits to those

locations most proximate to Oxford in the form of urban extensions which can maximise use of

existing transport and other infrastructure in the City more than locating growth at more remote

locations13.

Housing completions During the Core Strategy period (since 2006), the majority of new homes have been delivered on

small scale, dispersed, brownfield sites, either redeveloping existing sites or converting existing

buildings. The majority of developments are either 1‐3 units, or 10‐20 units. The two notable

exceptions to this are Barton Park and Northern Gateway. At Barton Park construction is in progress

to deliver 885 dwellings, with the first residential completions anticipated in Spring 2017. Northern

Gateway is an employment‐led development but is also expected to deliver 500 homes.

The cumulative number of dwellings completed in the nine years since the start of the Core Strategy

period (2006/07 to 2014/15) is 3,46014 dwellings (net). The cumulative number of completions that

might have been expected during this period is 3,600 dwellings. Therefore at the end of 2014/15

there were just 140 fewer completed dwellings than might have been expected. It is anticipated that

this will be addressed within the next few years when completions are forecast to increase.

Fluctuations in delivery rates reflect not only changes to national economy (impacting on viability)

but also the normal fluctuations that can be expected when supply is made up from primarily small

sites.

Figure 6.2.5 Net additional dwellings completed since start of the Core Strategy in 2006

Year Dwellings Completed (net)

2006/07 821

2007/08 529

2008/09 665

2009/10 257

2010/11 200

2011/12 228

2012/13 213

2013/14 215*

2014/15 332*

Total: 3,460 *Note: Totals for 2013/14 and 2014/15 include residential dwellings plus a dwelling equivalent figure for student accommodation and care homes, to reflect changes introduced in the PPG in 2014.

13 Oxford Growth Strategy and Route Map work https://www.oxford.gov.uk/info/20201/oxford_growth_strategy/763/oxford_growth_strategy 14 Includes a dwelling equivalent figure for student accommodation and C2 care homes, for the years 2013/14 and 2014/15 only, to reflect the changes introduced in the Planning Practice Guidance in 2014.

In the 2014/15 monitoring year, 332 (net) dwellings15 were completed in Oxford. This represents a

positive increase in comparison to recent years. This takes into account dwellings gained and lost

through new build completions, demolitions, changes of use, and conversions and includes purpose

built student accommodation.

Recent government changes are also now promoting an increase in self‐build homes, although in

Oxford this is expected to have a more limited affect because by the nature of small sites the

majority are already not developed by major housebuilders and are often small scale local builders

or self‐build. At May 2016 there was only one person on the self‐build register.

Affordable housing delivery In recent years the annual delivery of new affordable housing has fallen. This reflects a number of

factors including the (declining) availability of grant funding, timing of delivery of specific schemes,

and changes to national policy regarding permitted development rights and exemption thresholds.

Figure 6.2.6 Affordable housing completions in Oxford

Extract from Annual Monitoring Report 2014/15, Figure 5 Net Affordable Dwelling Completions 2006/7 to

2014/15

Just 17 affordable dwellings were completed in the 2014/15 monitoring year. The situation is

expected to improve in future monitoring years as existing planning permissions are built out,

particularly on some of the larger sites. Planning permission was granted for 493 (net) affordable

dwellings in 2013/14. This includes 354 (net) affordable dwellings at Barton Park, where work has

now commenced on site and the first completions are anticipated in spring/summer 2017. The

permissions also include 107 (gross) affordable dwellings being provided through the City Council’s

own building programme which had not been completed by April 2015 (the reporting period for the

AMR) and so will be reported in the 2015/16 monitoring year. It is anticipated that the pipeline of

permissions will significantly boost the supply of affordable housing in Oxford in the next few years

as the permissions are built out.

15 For the monitoring year 2014/15 this includes 270 C3 residential dwellings, plus student accommodation units equivalent to 62 dwellings in accordance with Planning Practice Guidance, totalling 332 net dwellings

Changes to national policy over the last few years have also reduced the opportunities to deliver

new affordable housing (or secure financial contributions towards it,) through planning permissions.

For example changes to permitted development rights resulted in a loss of 32 new affordable homes

that would normally have been secured through developer contributions in 2014/1516. The changes

to the PPG which introduced17 a minimum threshold for affordable housing contributions of 10 units

or 1000sqm, will also impact on the delivery of affordable housing from smaller scale developments:

in Oxford small scale developments account for about 50% of developments.

The Housing and Planning Act is potentially bringing in significant changes to the definition, delivery,

and supplies of affordable housing in the coming years. Similarly the changes to the welfare system

could have implications for the level of need and demand for affordable housing18. These changes

include the reduction in social rents and extending the Right to Buy, which will change the context

for delivering affordable housing in future. The City Council has also set up a Local Housing Company

so this will also influence future delivery rates of affordable housing. Changes to the definition of

affordable housing nationally could affect the calculations for the need and supply of affordable

housing in the SHMA but this is not yet confirmed, for example whether Starter Homes are included

within the definition.

Gypsies, Travellers, and Travelling Showpeople accommodation provision It is not anticipated that there will be much change in the provision for Gypsy and Traveller

accommodation in Oxford during the Plan period because no need has been identified from recent

assessments. There are currently no pitches in the city, and whilst there are people living in bricks

and mortar it has not been identified that they wish to move to caravans. There are no indications

that this situation is likely to change but will continue to be monitored.

Sustainability Issues Lack of access to housing and affordable housing is already directly impacting on key local

employers’ ability to attract or retain workers for key services and economic sectors. This is likely

to worsen.

Oxford needs around 32,000 new homes between 2011‐2031, with capacity to only

accommodate around 10,000. This means that some housing needs will need to be met in areas

adjoining the city. The locations (to be determined through Local Plans) will impact on

commuting flows into Oxford.

Without further large sites being identified, the number of small scale infill sites is likely to

increase and could result in further pressure on existing infrastructure.

16 AMR Table 13, Proportion of affordable housing where there is a policy requirement 17 First introduced in November 2014, then quashed in July 2015 by a High Court decision, which was then overturned by Court of Appeal in May 2016. 18 Oxford City Council Corporate Plan 2016‐2020

Housing Types and Sizes

Introduction The Local Plan will need to consider the overall number of homes delivered in Oxford, but it will also

need to consider the specific housing needs of different types of households for example the type of

home, size, and features such as accessibility.

People have different needs in terms of the types and sizes of homes that are needed to suit their

lifestyles and different stages of life. The Local Plan will need to respond to the range of needs as

well as adding to the choice available to people.

This Background Paper will consider these issues including:

‐ Different types of housing (flats, houses, shared houses or ‘houses of multiple occupation’,

student accommodation);

‐ Housing for older persons and other specialist needs, such as residential moorings and Gypsy

and Traveller accommodation;

‐ Tenure (private/market homes, affordable)

‐ Sizes of homes (number of bedrooms, and internal space standards)

The general need and supply of housing student accommodation is covered in subsequent papers.

There is also a paper which discusses the affordability issues linked to housing in Oxford.

Plans, Policies and Programmes National Planning Policy Framework (NPPF) The National Planning Policy Framework (NPPF) asks local councils to plan for a mix of housing based

on current and future demographic trends and the needs of different groups in the community,

including older and disabled people.

The key sections of the NPPF are in Section 6, Delivering a wide choice of high quality homes

(paragraphs 47 to 53) and Para 159 within the Plan‐making evidence base section. Paragraph 50 of

the NPPF sets out that local planning authorities should identify the size, type, tenure and range of

housing that is required in particular locations, reflecting local demand:


“To deliver a wide choice of high quality homes, widen opportunities for home ownership and create

sustainable, inclusive and mixed communities, local planning authorities should:

- plan for a mix of housing based on current and future demographic trends, market trends and

the needs of different groups in the community (such as, but not limited to, families with

children, older people, people with disabilities, service families and people wishing to build

their own homes);

- identify the size, type, tenure and range of housing that is required in particular locations,

reflecting local demand; and

- where they have identified that affordable housing is needed, set policies for meeting this need

on site, unless off‐site provision or a financial contribution of broadly equivalent value can be

robustly justified (for example to improve or make more effective use of the existing housing

stock) and the agreed approach contributes to the objective of creating mixed and balanced

communities. Such policies should be sufficiently flexible to take account of changing market

conditions over time.”

With regards to accessibility and wheelchair housing standards, the NPPF is clear that local planning

authorities should plan to create safe, accessible environments and promote inclusion and

community cohesion. This includes buildings and their surrounding spaces. Local planning authorities

should take account of evidence that demonstrates a clear need for housing for people with specific

housing needs and plan to meet this need1.

Housing and Planning Act 2016 The changes introduced as a result of the Housing and Planning Act are likely to affect the types and

sizes of new housing in Oxford, especially affordable housing, although the full impacts are not

known at this stage. Potential changes which might influence size and types of homes (market and

affordable homes) include:

- Introduction of discounted Starter Homes as part of S106 agreements

- Annual payments by local authorities for the highest value council homes (High Value

Property Void levy)

- Caps on Local Housing Allowance/annual rent increases for social rent providers

- Extension of voluntary right to buy for social rent tenants.

Planning Policy for Traveller Sites (first published March 2012, updated August 2015) This document sets out how local planning authorities should make provision for traveller sites

through assessment of need which should be met through the allocation of sites. Access to education, health, welfare and employment infrastructure from sites is crucial, whilst protecting

amenity. It sets out a number of key processes that should be undertaken in assessing need,

including traveller community liaison and co‐operation.

Planning for traveller sites should be on a similar basis to housing in general, by identifying a five

year supply of sites to meet the identified needs‐based plot and pitches target; and broad locations

for years 6 to 10 and 11 to 15. Criteria should guide allocations where there is an identified need and

criteria‐based policies for decisions on applications as they arise.

1 Paragraph: 005 Reference ID: 56-005-20150327

National Optional Technical Housing Standards (2015) In 2015 the Government introduced new national optional technical housing standards, intended to

streamline and simplify the various standards for housing developments, replacing the Code for

Sustainable Homes and other guidance. There is now a suite of technical housing standards,

including nationally‐described space standards2.

Local planning authorities have the option to set additional technical requirements, exceeding the

minimum standards required by Building Regulations in respect of access, water, and space

standards, where justified and appropriate. This must include considering the impact on viability

from any additional requirements. Where a local authority wishes to require an internal space

standard, it should only be done so in the Local Plan and it justified taking into account need,

viability, and transition time for developers to factor the revised standards into land acquisitions3.

Oxford City Council Housing Strategy 2015 ‐ 2018 Oxford City Council’s Housing Strategy 2015‐2018 includes objectives to meet the housing needs of

vulnerable groups, to support growth of a balanced housing market, and to support sustainable

communities.

There are around 18,000 people (12.4% of the population) in Oxford with a long term health

problem or disability4. Some of those will need specialist adaptations to their homes, such as level

access or wheelchair accessibility. Until recently, requirements to build new properties to Lifetime

Homes standards helped to ensure that properties could be adapted to meet changing needs. This

has now been superseded by the national technical housing standards.

Oxford City Council Review of Older Persons Accommodation (2016) The City Council’s Housing Strategy 2015‐2018 included an action to undertake a review of

accommodation for older people in Oxford. Public consultation was undertaken and a review report

was published in February 20165. The review considers the need/demand and supply of sheltered

and other housing options for older people aged 55+ in Oxford alongside the competing pressures

of: high housing costs; high levels of general housing demand; reduced budgets (County Council and

Oxford City Council) and a complex and changing legislative and policy framework (the former

Housing and Planning Bill, and Care Act 2014).

City Council HMO licensing strategy (2015) Oxford has the 14th highest number of Houses of Multiple Occupation (HMOs) in England and Wales.

Only the metropolitan and unitary authorities and some London boroughs contain more. This means

that they form an unusually high percentage of homes in the city: an estimated 1 in 5 of the resident

population live in an HMO.

2 https://www.gov.uk/government/publications/technical‐housing‐standards‐nationally‐described‐space‐standard 3 NPPG Paragraph: 018 Reference ID: 56‐018‐20150327 and Paragraph: 020 Reference ID: 56‐020‐20150327 Revision date: 27 03 2015 4 Oxford Housing Strategy 2015‐2018 5 http://mycouncil.oxford.gov.uk/documents/s28908/Appendix%201%20Review%20of%20Older%20Persons%20Accommodation%20V4.pdf

High demand for properties in Oxford means that some landlords offer lower quality properties

because they can still be confident of finding tenants. In 2005 the Council carried out a survey and

found that HMOs provided the poorest homes in the city and that 70% were unsafe to live in. HMOs

also generate around 2,000 service requests/complaints a year associated with issues that affect the

neighbourhood such as rubbish and anti‐social behaviour.

In response to this the Council now requires landlords for all HMO properties to obtain an annual

licence to ensure that minimum standards are being adhered to. Requiring a licence is different to

most parts of England and reflects the uniquely high concentrations of HMO properties in Oxford.

Current situation Housing mix (types and sizes) Generally the mix of dwelling sizes in Oxford differs from the surrounding more rural areas. The mix

in Oxford tends to be higher density development and typically smaller homes, with a higher than

average proportion of 1 and 2 bed properties at 43%, compared to 34% across the Oxfordshire

Housing Market Area (HMA), or 38% across the South East6.

It was identified that this was leading to a mismatch between need and supply, so the City Council

adopted planning policies to steer the mix of sizes in developments, the Balance of Dwellings

Supplementary Planning Document (SPD) (2008). Currently the SPD sets out a prescribed mix of

dwelling sizes for developments depending on their location and scale. The mix varies for different

parts of the City but generally the emphasis is towards 3‐bed units, to address the identified need

for family dwellings. Housing mix was also considered in the Strategic Housing Market Assessment

(SHMA) (see Figures 6.3.1 and 6.3.2 below) which suggested a mix not dis‐similar from the ranges in

the SPD and emphasises the need for 3‐bedroom dwellings particularly in market housing.

Figure 6.3.1 Dwelling size mix (market)

Extract from SHMA Table 65, Estimated dwelling requirement by number of bedrooms (2011‐2031) market

sector

6 SHMA para 2.20

Figure 6.3.2 Dwelling size mix (affordable)

Extract from Table 66, Estimated dwelling requirement by number of bedrooms (2011‐2031) affordable sector

As well as the number of bedrooms, it is also important that new homes are sized appropriately and

that internal spaces are usable and accessible. Minimum standards are now generally set nationally7

and apply to new build properties as well as conversions or sub‐divisions of existing properties into

flats or smaller dwellings as is often the case in Oxford. The exception to this is where conversions

are carried out under permitted development rights through a ‘prior approval’; In such instances the

local authority has no power to seek particular standards or conditions so the space standards do

not apply to those types of developments. The standards set a minimum floorspace required

according to the number of people and number of storeys, as well as a requirement for built‐in

storage.

Housing mix (tenure) The proportion of Oxford households who own their own home has been declining in recent years,

so has the proportion of people who live in social rented properties. In the meantime the proportion

of households living in private rented homes has almost doubled.

In 2011 more households rented than owned their home, with nearly 16,000 households renting

their home in the private sector by 2011. Whilst this general trend is not dissimilar to the rest of the

country, the percentages in Oxford are still much higher than elsewhere. In 2011 28% of households

in Oxford rented their home, which is much higher than the 17% national average, and 47% owner

occupation was much lower than the 64% national average. 21% of households lived in socially

rented homes.

7 Technical housing standards – national described space standard (DCLG, March 2015) https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/524531/160519_Nationally_Described_Space_Standard____Final_Web_version.pdf

Figure 6.3.3 Housing tenure of Oxford households 1981 ‐ 2011

Figure 6.3.4 Households by housing tenure, 2001 to 2011

Source of both tables, 2011 Census data

Key worker housing Key employment sectors in Oxford are already facing significant challenges in recruiting and

retaining staff as a result of the lack of affordable housing. Many of these groups of workers may not

qualify for social rent but are classed as ‘key workers’8 who would qualify for intermediate housing

options such as shared ownership if there were properties available.

With such high house prices and private rents in Oxford, it means that even government schemes

designed to assist such households with house buying such as the 20% first time buyer’s discount,

the proposed ‘Starter Homes’ initiative, and extended Right to Buy, would still be far out of reach for

8 Defined in Sites and Housing Plan A2.30 as including NHS staff, teachers in state schools, academic staff at the Universities, police officers, and specified occupations within local authorities.

many key workers, and even further out of reach for those seeking to move on from social rented

tenures9.

The City Council already offers key worker support through Oxfordshire Homechoice10, and has

further identified it as a priority11 to work with partners to develop a greater range of housing

options, such as co‐housing, shared ownership schemes, and housing for key workers including a

continuation of the equity loan scheme for teachers. There may also be alternative delivery models

to reflect the changing funding available to local authorities and the scarcity of land in Oxford. For

example there may be opportunities for some employers, as landowners, to deliver key worker

housing in addition to the usual developer contributions required.

Houses of Multiple Occupation Oxford already has an unusually high percentage of HMOs. With an estimated 20% of the population

living in an HMO they play an important role in meeting housing needs in Oxford. For many people

including young professionals, they offer a more affordable solution than renting individually or

buying a property where prices are so high in Oxford. The City Council through its licencing scheme

already has a very proactive approach to ensuring that these properties are well‐managed both in

terms of the tenants and the potential impacts on surrounding communities12.

Continuing trends of family‐sized dwellings being converted into HMOs also adds pressure to the

supply of 3‐4 bedroom homes available for families across Oxford.

Housing for older people Whilst Oxford’s population is relatively young compared to its neighbouring districts, people are

living much longer and overall it is expected that over the Plan period there will be an increase in the

number of older people resident in the City.

‘Older persons housing’ covers a range of housing types, such as: designated 55+ older person

accommodation, sheltered housing (council or registered provider), extra care housing, residential

care and nursing homes, and general needs housing with adaptations13.

Suitable accommodation plays an important role in helping older people to live independently for

longer, but the housing needs and aspirations of older people can vary significantly depending on

age, health, finances, transport needs, and availability of support from family or other networks.

Providing suitable housing can also help to reduce under‐occupancy and free up family‐sized homes

for those that need the larger properties.

The Oxford City Council Review of Older Persons Accommodation (2016) identifies that there is a

good range of sheltered and designated 55+ accommodations in Oxford, and even potentially an

9 Starter Homes: Will they be affordable (Shelter, 2015) https://england.shelter.org.uk/__data/assets/pdf_file/0011/1183790/Starter_Homes_FINAL_w_Appendix_v2.pdf ; and http://www.local.gov.uk/media‐releases/‐/journal_content/56/10180/7694909/NEWS 10 https://www.oxfordcitycbl.org.uk/Data/ASPPages/1/5321.aspx 11 Oxford City Council Corporate Plan 2016 12 www.oxford.gov.uk/info/20113/houses_in_multiple_occupation/374/houses_in_multiple_occupation_background 13 Oxford City Council Older Persons Accommodation Review 2016

over‐provision of sheltered and designated 55+ accommodations in Oxford with relatively low take‐

up and some schemes unpopular due to the need for refurbishment/modernisation. The

need/demand for sheltered schemes and Extra Care Housing (ECH) appears to be generally low, with

small waiting lists for ECH in Oxford and sheltered housing carrying voids at times and current supply

meeting demands. The 75+ age group is most likely to need access to Sheltered and ECH. ECH is also

provided on a county‐wide basis and Oxfordshire County Council records show over 700 units across

the county, some of which could help meet Oxford needs.

The review notes that addressing future need is about more than simply building new

accommodation but will be about remodelling of existing schemes, changes to the Council allocation

policy and which groups it prioritises for certain properties. It is also important to ensure

appropriate infrastructure to support people alongside the homes, especially with local authority

budget cuts impacting on day centres, transport, and warden visits.

Housing for other specialist needs Gypsy, Travellers and Travelling Showpeople also have specific housing needs to consider. Whilst

there are several sites very close to the edge of Oxford, there are currently no pitches or plots

(authorised or unauthorised) within Oxford. There are some people from the Gypsy & Traveller

community living in ‘bricks and mortar’ homes within Oxford but it has not been identified that they

wish to move to caravans. It is not anticipated that there will be much change in the provision for

Gypsy and Traveller and Travelling Showpeople accommodation in Oxford during the Plan period

because no new need has been identified in recent assessments.

Residential moorings are another element of housing in Oxford along the canals, with around 60

permanent authorised moorings14. Much of the boat‐dwelling community in Oxford relies on the

existence of residential moorings, which are defined as having planning permission for long‐term

mooring in a fixed location, and for occupation as a household’s sole or main residence. There is also

a need to balance provision of permanent residential moorings with short‐stay visitor moorings

which are important in promoting tourism.

Likely trends without a new Local Plan Housing Mix (types and sizes) Despite the identified need for more family‐sized dwellings, in recent years there has generally been

a trend towards provision of smaller dwellings and flats, in response to market factors (such as

developer profit) and high land values, which mean that developers may seek to maximise the

number of units on a site.

Another significant factor that influences the type and size of dwellings delivered is that many

developments in Oxford are conversions and garden land developments which lend themselves

towards smaller‐sized residential units. In 2014/15 nearly 80% of new homes were 1 or 2 bedroom

properties. Even with current policies that seek to steer the housing mix15 in place, many

developments either fall below the Balance of Dwellings policy threshold (the policy only applies to

14 Jericho Wharf Trust Survey of Residential Boaters, 2012 15 Annual Monitoring Report 2014/15, Indicator 16 Mix of Housing

developments of 4 or more dwellings,) or are exempt from the current policies because they are

developed under Permitted Development Rights or Prior Approval applications. Larger sites such as

Barton Park therefore remain important in helping to deliver significant numbers of larger properties

for families.

With very few large sites to accommodate a mix of sizes, and future delivery likely to be reliant on

urban renewal and brownfield infill sites this trend is likely to continue.

Housing mix (tenure)

Whilst the proportion of people who live in social rented property has been declining, the

proportion of households living in private rented homes has been increasing, with more people in

Oxford now living in privately rented homes than owner‐occupied. As housing affordability looks

likely to continue to worsen this trend looks set to continue.

Planning policies in recent years16 have prioritised social rent tenures (of the 50% affordable housing

provision, policy has sought 80% social rent and 20% intermediate forms of affordable housing). This

approach is facing challenges in the light of changes to national policy away from social rent tenures.

For example the Housing & Planning Act introduces measures such as the requirement for Starter

Homes, and this coupled with welfare reform changes which cap rental incomes and housing

benefit, and increased Right to Buy, then it will be increasingly challenging to deliver and retain

social rent tenure properties in Oxford.

The Local Housing Company set up by the City Council in 2016 will help with direct delivery of

affordable homes but it is too early to determine yet what tenure those would be.

Key worker housing It is reported that lack of access to housing is already directly impacting on key local employers’

ability to attract or retain workers for key services and economic sectors including the NHS and state

schools. Without intervention this situation is likely to continue and may worsen.

Government schemes of recent years designed to assist key workers and other households in the

intermediate sector with house buying, tend to have had very limited effect in Oxford because the

prices are so high that even discounted or shared ownership homes are still far out of reach for

many key workers.

There may be alternative delivery models, for example there may be opportunities for some

employers, particularly those who are also landowners, to deliver key worker housing directly, for

staff to either rent or purchase at subsidised rates.

Houses of Multiple Occupation Shared properties can help to meet housing needs, although the conversion of family homes to

HMOs can also lead to a shortfall in family accommodation. In 2014/15 applications were approved

16 Core Strategy and Sites and Housing Plan

for 30 new HMOs across Oxford. In the context of increasing house prices, this trend is likely to

continue to increase as more people turn to this as a more affordable way to live in Oxford.

Housing for older people Whilst the increase in the older population in Oxford is not expected to be as high as that estimated

for the other Oxfordshire districts, it is likely to affect the demand for and delivery of services,

including housing, and care and support17. The SHMA considers the expected increase in the older

person population (Table 69 of SHMA) and anticipates that it might rise to 36% in Oxford by 2031.

Housing for other specialist needs It is not anticipated that there will be much change in the provision for Gypsy and Traveller and

Travelling Showpeople accommodation in Oxford during the Plan period because no new need has

been identified in recent assessments. There are no indications that this situation is likely to change

but will continue to be monitored through the bi‐annual caravan counts and updates to the Gypsy

and Traveller Accommodation Assessment.

No specific need has been identified to increase the provision of residential moorings.

Sustainability/Plan Issues There may be a tension between maximising the number of dwellings on sites and providing

dwellings in a range of sizes to meet different needs.

Provision of family‐sized homes is increasingly challenging. With such high land values and competition from HMOs, developers often seek to maximise the numbers of units on sites.

Affordability issues have led to more people living in Houses of Multiple Occupation in recent years, this looks likely to continue.

17 Oxford City Council Older Persons Accommodation Review 2016

Students and student accommodation (higher education, language courses, private further education)

Introduction Demand for student accommodation places pressure on the local housing stock, both from students accommodated directly in private rented housing, and also from student accommodation being developed on sites that may equally be suitable for other types of housing. High proportions of students may also result in perceived or actual harmful impacts on communities accommodating students. Furthermore large numbers of foreign language students accommodated in the city during the spring and summer can impact on public transport and the city centre environment. Oxford City Council has a long standing policy approach to attempt to manage and reduce pressures of students on the housing market. Core Strategy Policy CS25 requires each university to have no more than 3,000 full‐time students living in Oxford outside of university‐provided accommodation. To avoid worsening the situation, all increases in student numbers at the two universities should be matched by an equivalent increase in student accommodation. Planning permission will not be granted for new academic facilities if the numbers of students exceeds 3000. This policy also restricts occupation of new student accommodation to students in full‐time education on courses of an academic year or more. The Sites and Housing Plan contains a more detailed policy about the location of new student accommodation (HP5). It recognises that it is important to locate student accommodation in a way that avoids changes in character and great increases in activity along quieter residential streets. It also recognises the issue that new student halls are often proposed on sites that would otherwise be developed for housing and contributions to affordable housing are required from larger student accommodation schemes (HP6). Current policies do not recognise or respond to the differing accommodation needs of undergraduate, postgraduate, and key worker/staff. This might need addressing through the emerging Local Plan.

Plans, policies and programmes National Planning Policy Framework The NPPF makes no specific reference to student accommodation. However, key policy principles set out in the document are relevant to informing any Local Plan policy approach. In particular, local planning authorities should ‘plan for a mix of housing based on current and future demographic trends, market trends and the needs of different groups in the community’ (paragraph 50).


National Planning Policy Guidance The final bullet point of paragraph 021 (reference ID 2a‐021‐20160401) of the NPPG states that: Local planning authorities should plan for sufficient student accommodation whether it consists of communal halls of residence or self‐contained dwellings, and whether or not it is on campus. Student housing provided by private landlords is often a lower‐cost form of housing. Encouraging more dedicated student accommodation may provide low cost housing that takes pressure off the private rented sector and increases the overall housing stock. Plan makers are encouraged to consider options which would support both the needs of the student population as well as local residents before imposing caps or restrictions on students living outside of university‐provided accommodation. Plan makers should engage with universities and other higher educational establishments to better understand their student accommodation requirements.

Paragraph 3‐038‐20140306 of the NPPG allows for student accommodation to be counted towards the housing requirement for a district, based upon the amount of accommodation it releases from the housing market: All student accommodation, whether it consists of communal halls of residence or self‐contained dwellings, and whether or not it is on campus, can be included towards the housing requirement, based on the amount of accommodation it releases in the housing market. Notwithstanding, local authorities should take steps to avoid double‐counting.

Current Situation Number of students living in Oxford The Census 2011 provides information on adults living in Oxford who are full time students. It does not distinguish between those at university, school, colleges and other educational establishments, although the majority of full‐time students aged 18+ are attending one of the two universities. The data shows that 30,000 of the city’s adult population was a full‐time student at the time of the census, which at 24% of the total adult population was the highest proportion in England and Wales.

Oxford’s two universities had between them over 32,000 students enrolled for full‐time study in 2014/15 according to the Higher Education Statistics Agency (HESA). Just over 11,000 more students were enrolled for part‐time study, a significant portion of whom were studying a modular course rather than a full degree. Not all of these students were living in the city or even studying in it‐ Oxford Brookes, for example, has three campuses outside the city and some of its students study at franchise organisations elsewhere.

University Student Accommodation Many university students live in halls of residence, either purpose built or university‐owned accommodation, but there are not enough places in halls of residence to accommodate all students. Most students not living in halls of residence or purpose built student accommodation will be living in private rented accommodation. The majority of University of Oxford students live in university or college owned accommodation. The University of Oxford had 22,346 students attending the University at 1 December 2014. Certain students are considered as not generating accommodation requirements, including part‐time students and students living within the city prior to entry onto a course. At December 2014 there were 17,706 full‐time students with accommodation requirements. At 1 December 2014 there were

14,796 accommodation places provided across the University of Oxford, leaving a total of 2,910 students living outside of university provided accommodation in Oxford. This is a decrease on previous years (see Figure 6.4.1 below). This is within the target contained in the Core Strategy, meaning that new academic floorspace could be approved if applied for.

Figure 6.4.1: Graph to show the number of University of Oxford students living outside of university provided accommodation 2010/11‐2014/15 (based on data provided by the University to inform the City Council’s Annual Monitoring Report)

Oxford Brookes University had 16,553 students attending the university at 1 December 2014. Taking into account the agreed exclusions, at 1 December 2014 there were 11,617 full‐time students in need of accommodation, with 5,038 places of accommodation provided by Oxford Brookes University and 3,128 students living at home or outside of Oxford. This results in 3,451 students living in the city without a place in university provided accommodation, which was an increase from the two previous years (see Figure 6.4.2 below). Figure 6.4.2: Graph to show the number of Oxford Brookes students living outside of university provided accommodation 2010/11‐2014/15 (based on data provided by the University to inform the City Council’s Annual Monitoring Report)

3,2513,401 3,508

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Visiting students, short‐term language courses Many students from outside the city attend courses at further education establishments and language schools. Many of these students are on short‐term courses, often in the summer when they may be housed in university accommodation. Many are also housed in ‘homestay’ accommodation. These are often younger students, rather than adult (18+) students. Data on the overall numbers, ages and lengths of stay of these students is not readily available. Increasingly, further education colleges are housing their students in speculatively built student accommodation, in direct competition with the universities. Bellerby’s, D’Overbroecks, Oxford International College and Cherwell College all house some of their students in new purpose‐built student accommodation. The table in Figure 6.4.3 below shows the further education colleges which are beginning to house some of their students in boarder accommodation Figure 6.4.3: Table to show boarding accommodation used by further education colleges College and ages of pupils

Course types and accommodation types provided

Boarder accommodation Capacity of boarder accommodation (no. pupils)

Bellerby’s 14+ Boarding and homestay. Age 14‐19

St Ebbe’s (bar med) age18+ 50

Pensons Gardens, St Clement’s 31

St Aldate’s (Spice Lounge) age 14‐17 59

Luther Court (not yet occupied) 82

D’Overbroeck’s Yr 7‐6th form

Day students only until sixth form‐ mix of day and borders

106 Banbury Road 20

Hayfield House 18

Benson’s 7

Oxford International College 15‐18

A level students in halls, IGCSE with host families

Wavy Gate new pb halls (shared with Kings and Brookes) Travis Perkins site (originally restricted to Brookes/UofOx)

93

Cherwell College 14‐6th form

Cherwell House, Mill Street

New purpose built student accommodation In 2014/15 financial year, 55 privately developed student accommodation rooms were completed, with a further 13 rooms granted planning permission. These will be available to private colleges as well as the two Universities. In December 2014 there were 227 additional University of Oxford‐provided accommodation places available compared to the same point in 2013. There were also 211 accommodation units under construction relating to the University of Oxford, and the University currently has planning permission for another 361 rooms.

Likely trends without a new Local Plan Numbers of university students The graphs in Figure 6.4.4 below show that since the 2000/01 academic year, the total number of students at Oxford Brookes and the University of Oxford has grown. This growth has happened in different ways. At the University of Oxford the full‐time undergraduate population has changed little in size, whereas the number of full‐time postgraduates has grown by 3,000. At Brookes, growth has been in the undergraduate population. At Brookes the full‐time undergraduate population was

2,500 larger by 2007/08, with little growth since. At the University of Oxford the full‐time undergraduate population was 2,500 larger by 2007/08, with little growth since.

Figure 6.4.4: Graphs showing the changes in student population at Oxford’s two universities between 2000/01 and 2014/15, based on HESA data

Student accommodation costs Oxford Brookes University has reported that the affordability of student accommodation is becoming a big issue. The highest rents are £178 per week, and the lowest rents are £85 per week. Student accommodation is more frequently coming forward as studio units, rather than cluster flats (where students have individual bedrooms and bathrooms, but share kitchen and living room space). Higher prices are charged for such accommodation. Also the layout of units does not allow for social interaction. It is important that the accommodation provided does not become so expensive that it can only be afforded by the most wealthy students.

Sustainability Issues Adequate provision of student accommodation could have a significant beneficial impact

on meeting housing need by freeing up properties currently under used, whilst also encouraging vibrancy in communities. However, it is important that this meets needs, rather than generating further demand.

The accommodation needs of undergraduate, postgraduate, and key workers/staff are all different and need to be addressed individually.

Additional data is required to inform our approach to academic floorspace, student numbers and student accommodation. For example, how many students attend further and higher educational establishments and language schools, the types of courses they are attending and to understand any planned or expected growth in student numbers over the plan period.

Health

Introduction There are many indicators of health; a range of physical and mental wellbeing indicators are identified below to try and build a general picture of the health of Oxford. Whilst in Oxford the percentage of physically active adults is high and the percentage of obese adults is low, mental health problems and substance misuse are prevalent within the population.

The health of people in Oxford is varied compared with the England average. There are real disparities across the city with some areas benefiting from much greater quality of health than others only a few miles away. Life expectancy for Oxford residents is 80 years for men and 84 years for women. This is similar to the national average. There are geographical inequalities in life expectancy ‐ men from the least deprived areas can expect to live 9.7 years longer than those in the most deprived areas. For women there is a much smaller gap of 3.3 years.

This discussion of health links very directly to that of air quality, the health aspects of air pollution are discussed in that section.

Plans policies and programmes

National Planning Policy Framework (NPPF) and Planning Practice Guidance (PPG) The NPPF states that planning’s social role includes creating a high quality environment, with accessible local services that reflect the community’s needs and support its health, social and cultural well‐being (paragraph 7). The NPPF includes a section on ‘Healthy Communities’. This states, in paragraph 69, that the planning system can plan an important role in facilitating social interaction and creating healthy, inclusive communities. The focus of this section is on encouraging strong communities. General health is mentioned in this section in relation to green spaces. Paragraph 73 states that access to high quality open spaces and opportunities for sport and recreation can make an important contribution to the health and well‐being of communities. Mentions of health are scattered throughout the NPPF. Transport policies should be considered in terms of their role in contributing to health objectives (paragraph 29). The effects of pollution on health should be taken into account (paragraph 120). In gathering the evidence base, local authorities should work with public health leads and health organisations to understand and take account of the health status and needs of the local population

This topic addresses: SA Objective: To improve the health and well‐being of the population and reduce inequalities in health SEA Theme: Human Health

(such as for sports, recreation and places of worship), including expected future changes, and any information about relevant barriers to improving health and well‐being. (paragraph 171)

Oxfordshire’s Joint Health and Wellbeing Strategy 2015‐19 The Health and Wellbeing Board is the principal structure in Oxfordshire responsible for improving the health and wellbeing of the people of the County. The Board is a partnership between Local Government, the NHS and the people of Oxfordshire. Members include local GPs, Councillors, Healthwatch Oxfordshire and senior officers from Local Government. The Board has produced a strategy setting out priority areas for joint action. The Strategy has a number of overarching themes, most of which have implications for the Local Plan to some extent:

The need to shift services towards the prevention of ill health;

The need to reduce inequalities, break the cycle of deprivation and protect the vulnerable;

The need to give children a better start in life;

The need to reduce unnecessary demand for services;

To help people and communities help themselves;

The need to make the person's journey through all services smoother and more efficient;

The need to improve the quality and safety of services;

The need to streamline financial systems, especially those pooled between organisations, and to align all budgets more closely.

These are then translated into priorities for action: Priority 1: All children have a healthy start in life and stay healthy into adulthood Priority 2: Narrowing the gap for our most disadvantaged and vulnerable groups Priority 3: Keeping all children and young people safe Priority 4: Raising achievement for all children and young people Priority 5: Working together to improve quality and value for money in the Health and Social Care System Priority 6: Living and working well: Adults with long term conditions, physical or learning disability or mental health problems living independently and achieving their full potential Priority 7: Support older people to live independently with dignity whilst reducing the need for care and support Priority 8: Preventing early death and improving quality of life in later years Priority 9: Preventing chronic disease through tackling obesity Priority 10: Tackling the broader determinants of health through better housing and preventing homelessness Priority 11: Preventing infectious disease through immunisation

The Joint Strategic Needs Assessment Annual Summary Report 2015 The Joint Strategic Needs Assessment (JSNA) monitors trends in the health and wellbeing of Oxfordshire’s population and assesses changing patterns of need and demand for services across the county. Much of this data is taken from that report.

Oxfordshire Clinical Commissioning Group Strategy for 2014/15‐2018/19 and Implementation Plan for 2014/15‐2015/16 The CCG has set out five year vision for the Oxfordshire health and social care system. Several elements of this vision are relevant to the Local Plan:

Delivering fully integrated care, close to home, for the frail elderly and people with multiple physical and/or mental health needs.

A primary care service that is driving development and delivery of this integrated care, and is itself offering a broader range of services at a different scale.

Routinely enabling people to live well at home and to avoid admission to hospital when this is in their best interests.

Be continuing to provide preventative care and to tackle health inequalities for patients and carers in both its urban and rural communities.

The CCG is aiming to reduce the amount of time spent avoidably in hospital through the provision of better integrated care in the community. To achieve this they will increase investment in primary care and in community services and aim to “deliver a substantial shift in activity and resources from acute services into community and primary care.”

Current situation

Health deprivation The Health domain is one of the indices of deprivation. It measures morbidity, disability and premature mortality. There is variation in the level of health deprivation found across the city, as shown in the map in figure 6.5.1 below. The area with the greatest level of health deprivation is Greater Leys. The lowest level of health deprivation is found in Summertown.

Figure 6.5.1: Variation of health deprivation (indices of deprivation 2010 health domain)

Sickness and disability The map in figure 6.5.2 below shows that the percentage of residents who are economically inactive due to long‐term sickness or disability is in most parts of Oxford outside of the top 20% of areas. However, there are a few areas in Oxford within the top 10% of areas in England.

Figure 6.5.2: Map to show areas with higher concentrations of residents who are economically inactive due to sickness or disability

General health The graphs in figure 6.5.3 below, show that a higher percentage of people in Oxfordshire report good or very good health, than in the South East or in England. Within Oxfordshire, people in Oxford report the highest percentage of very good or good health.

Figure 6.5.3: Population reporting good health

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mental health problems among children and young people with learning disabilities, looked after children, and children who are homeless or sleeping rough. In 2013/14 around 11,000 Oxfordshire residents were referred to Oxford Health mental health services and seen at least once. This represents an increase of around a thousand from the previous two years. More female than male residents were referred, making up 56% of the service users, compared with 44% male. Nine in ten Oxfordshire service users for whom ethnicity data have been recorded were from White British backgrounds (90%). Of the total number of referrals for Oxford Health mental health services, the largest proportion were among people aged 15‐19 (12.5%), followed by those aged 10‐14 (8.9%), those aged 20‐24 (8%) and those aged 25‐29 (7.6%)Almost half of the referrals were for Oxfordshire Adult Mental Health Services (47%). Around a quarter were for Children and Adolescent Mental Health Services (24%) and nearly two in ten were to the Oxfordshire Older Adult Mental Health Services (18%). Significant minorities of referrals were for Oxfordshire Psychological Services (8%) and Eating Disorders Oxfordshire (2%). The remaining referrals were to one of 14 other mental health services. In 2013/14 around 37,000 (6.6% of) patients aged 18 and over registered with GPs in the Oxfordshire Clinical Commissioning Group area had an unresolved diagnosis of depression. The figure was up slightly from 6% in 2012/13. This was similar to the proportion in England overall (6.5%) and slightly above that for the Thames Valley area (6.1%). In 2013/14 the recorded prevalence of dementia stood at 0.6% of people registered with GPs in the Oxfordshire Clinical Commissioning Group area. In 2012/13 the rate of emergency hospital admissions for intentional self‐harm Oxfordshire was 180 per 100,000 people. This represents a slight increase on the previous year (171.7 people per 100,000). The figure was similar to rates in the South East (183) and England overall (187). Across the county, the rate of emergency hospital admissions for intentional selfharm was higher in Oxford than in other districts (248 per 100,000 people, significantly worse than the rate for England). The data does not include patients who attended but were not admitted to hospital; and is therefore likely to be an underestimate of the true rate of self‐harm in the population. In 2013/14 around 5,300 (0.8% of) patients of all ages had a record of serious mental illness, such as schizophrenia, bipolar affective disorder or other psychoses. This was similar to the proportion in 2012/13 and those for the Thames Valley area and England overall (0.7% and 0.9%, respectively). Section 136 of the Mental Health Act enables the police to act if they believe that someone is suffering from a mental illness and is in need of immediate treatment or care. The police may take that person from a public place to a place of safety, either for their own protection or for the protection of others. This is known as a Section 136 detention. In 2013/14 Thames Valley Police made 347 Section 136 detentions across Oxfordshire. This represented an increase of 19% from the previous year. During the first eight months of the 2014/15 financial year there were 187 detentions. Across the county 44% of the detentions made between April 2012 and November 2014 were in Oxford. In 2010‐12 the rate of suicide in Oxfordshire was 8.5 people per 100,000. This was similar to rates seen across the South East (8.4) and England overall (8.5). The number of suicides reduced to 47 in 2012 from 55 in 2011. The suicide rate in men is three times that in women, similar to the national picture. In Oxfordshire the suicide rate in men is comparable to surrounding areas and the national rate. Generally, rates in younger people have decreased and rates in older people have increased.

The highest risk group is men aged 45‐59. Because of the small numbers involved, it is difficult to establish clear patterns in suicide rates over time or across different parts of the county.

Isolation and loneliness Various national and international research studies have linked social isolation and loneliness with adverse health outcomes, including higher mortality rates. Social engagement has also been found to be a driver of quality of life. A national survey of GPs in 2013 found that over a quarter saw one to five people per day who they thought had come in mainly because they were lonely. One in ten reported seeing between six and ten lonely patients a day, and a small minority (4 per cent) said they saw more than 10 lonely people a day. A 2013 study of people aged 55 and over in Great Britain1 found that 15% reported often feeling lonely. Moreover, 57% experienced at least half of the symptoms identified by academics as being associated with loneliness (the gap between these figures could be ascribed to the stigma of loneliness). The same study found that around a third of people aged 55 and over ‘never’ or ‘not very often’ met up for an outing with friends or family (34%) and a quarter ‘never’ or ‘not very often’ had a chat on the phone (25%). In 2013/14 half of social care users in Oxfordshire2 said they had as much social contact as they would like (49.7%). This continues an improving trend since 2011/12 (when 41.5% said they had as much social contact as they would like). The proportion of Oxfordshire social care users satisfied with the amount of social contact they had was higher than for England overall (44.2%). Although living alone does not necessarily imply loneliness, people who make the transition to living alone in later life (primarily due to the death of a cohabiting partner) have been found to be more vulnerable to psychological distress in the initial period thereafter. In 2011 28.8% of people aged 65 and over in Oxfordshire lived alone. In Oxford proportionately more older people lived alone (36.4%) relative to the other districts.

Physical activity and weight Levels of physical activity and of obesity are important contributors to health. People who have a physically active lifestyle have a 20‐35% lower risk of cardiovascular disease, coronary heart disease and stroke compared with those who have a sedentary lifestyle. Physical inactivity has been linked to a range of other health conditions, including diabetes and some cancers; it is estimated to be responsible for a significant proportion of premature all‐cause mortality. Oxford’s population reports higher than average levels of activity. The proportion of active adults in Oxford in 2014 was 65.9%, compared to 57% in England. Excess weight in adults is recognised as a major determinant of premature mortality and avoidable ill health. The Active People Survey began including questions on height and weight for the first time from January 2012 to enable the monitoring of excess weight in adults at a local level. Self‐reported data for 2012 indicated that almost 61% of Oxfordshire’s adult population were overweight or obese. This was significantly lower than the national average (64%). Data for the districts indicated similar levels except in Oxford where the proportion is slightly lower at 55%.

1 ComRes and The Silver Line Loneliness Study, 2013: https://www.thesilverline.org.uk/wpcontent/uploads/2013/11/The‐Silver‐Line‐Loneliness‐Survey‐FULL‐FINDINGS‐1.pdf 2 Adult Social Care User Survey: http://www.hscic.gov.uk/socialcare/usersurveys

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standardised rates for alcohol‐specific hospital admissions in both male and female residents were relatively high in Oxford: 654.5 male admissions per 100,000 in the population; and 286.2 female admissions. These were significantly above the rates for the Thames Valley area and England. Drugs are known to have a variety of damaging effects on both physical and mental health and wellbeing. In 2012/13 there were around 1,700 people aged 18 and over in drug treatment in Oxfordshire. According to the latest estimates (for 2011/12) around half of opiate and crack users in the county are in treatment. Poor oral health can have important physical and psychological effects for both children and adults, including pain, sleeplessness and poor dietary intake. In 2011/12 the proportion of five year old children with some tooth decay experience in Oxfordshire was 32.9%. This represented an increase from 25.7% in 2007/8. It was higher than the proportion for England overall (27.9%) but similar to that for the Thames Valley. In Oxford, 39% of two to ten year olds had some tooth decay experience. In 2013 Oxfordshire had a rate of 720.8 Sexually Transmitted Infections per 100,000 people. This was below the rate for England (834.2) but significantly higher rate than in the Thames Valley area (640.5). Below county level it can be seen that the high rate is driven by Oxford. The reasons for this are complex and are currently being investigated. It may be influenced by the proportionally larger younger population in Oxford, given that younger people tend to have riskier sexual behaviour. In addition, individuals who do not provide their residential postcode are allocated the postcode of the clinic they attend, which would either be in Oxford or Banbury. HIV is associated with serious morbidity, high costs of treatment and care, significant mortality and a high number of potential years of life lost. The prevalence of HIV in Oxfordshire, (1.3 people per 1,000 15‐59 year olds in 2012) remains significantly lower than the average across England (2.1). However the prevalence rate in Oxford (2.4 in 2012) is significantly higher than the national average. This is likely to be due to the diverse population including more young people and proportionately more people from ethnic minority groups: HIV is more prevalent in Black African communities and Oxford has a relatively high proportion of Black ethnic minorities.

Housing and health Although the relationship between housing and health is difficult to assess precisely, it has been found that bad housing conditions including homelessness, temporary accommodation, overcrowding, insecurity, and housing in poor physical condition – constitute a risk to health. Research suggests that poor housing, which presents certain structural or environmental hazards to inhabitants, is associated with increased risk of cardiovascular diseases, respiratory diseases and depression and anxiety. At the time of the 2011 Census, 38.5% of people in Oxford lived in households with more than one person per bedroom; this compares with 33.3% in Oxfordshire as a whole and 34.9% in the South East and 36.8% in England overall. Cold homes are linked to increased risk of cardiovascular, respiratory and rheumatoid diseases, as well as hypothermia and poorer mental health. The elderly have been found to be particularly likely to suffer ill health in a cold home. In 2012 Oxford had 12.4% of people living in fuel poverty3; in Oxfordshire this was 8%, in the South East 7.8% and 10.4% in England overall.

3 Under the ‘Low Income High Cost’ measure of fuel poverty, households are considered to be fuel poor when: (i) they have required fuel costs that are above average (the national median level) and (ii) were they to spend that amount, they would be left with a residual income below the official fuel poverty line.

Homelessness is associated with adverse health. Across the county, Oxford had higher rates of statutory homelessness than Oxfordshire overall. This is could in part be related to the presence of homeless facilities in the city. In 2013/14 45 people were estimated to be homeless in Oxford and a count of rough sleepers found 19 people.

Likely trends without a new Local Plan Much of the data presented above includes information on trends over time. It can be seen that many health indicators have shown an improvement (even if only slight) in recent years. Much of this is likely to be as a result of health interventions, improvements to services and treatments and also improvements in awareness and education of lifestyle factors in particular. The data also shows however that there are several areas where Oxford performs below the local or national average, where more focus is needed to secure similar improvements.

Causes of death The graphs in figures 6.5.8 and 6.5.9 below show that there was and increasing number of deaths from dementia and Alzheimer’s disease in Oxfordshire from 2011 to 2013. This became the most common cause of death of women in Oxfordshire by 2013 (having been the third most common form of death in 2011). For men in Oxfordshire it was the fifth most common form of death in 2011 to the second most common form of death in 2013.

Figure 6.5.8 leading causes of male death in Oxfordshire (time series)

Figure 6.5.9 leading causes of female death in Oxfordshire (time series)

Sustainability/Plan Issues The disparity in health deprivation and sickness and disability across the city needs to be

reduced

Higher than average levels of activity and lower than average levels of obesity need to be maintained and increased

There may be opportunities to address the issue of mental health and wellbeing through the Local Plan for example through improving quality of housing, access to open spaces and a focus on building communities

Poverty, Social Exclusion, Crime & Inequality

Introduction The location and design of development, open spaces and infrastructure can affect how a place feels and functions and can have direct impacts on the quality of people’s lives. Good planning can support community wellbeing and help to increase the opportunities available to local people, for example: Wellbeing By shaping the quality of the environment in which people live, work and play (i.e. by

influencing the quality of housing, provision and design of outside spaces, helping to manage air quality, etc);

By providing opportunities for travel by walking and cycling and opportunities for sports, recreation and leisure all of which encourage physical exercise supporting physical and mental health;

By reducing opportunities for crime through the design of building and spaces; By supporting the provision and strengthening of local healthcare facilities such as GP

practices, hospitals and medical research (including the provision of housing for key workers such as nurses who are essential to the effective delivery of these services);

By providing space and opportunities for social interactions; and By supporting community cohesion by bringing together people who live, work and play in

an area.

Opportunities By increasing access to housing through the number, type and location of new homes; By increasing/maintaining access to a range of job opportunities; By supporting educational attainment through the provision and strengthening of local

educational facilities such as schools and colleges (including the provision of housing for key workers such as teachers who are essential to the effective delivery of these services); and

By ensuring that Oxford’s public buildings and spaces are accessible to everyone regardless of age, background or physical ability.

As planning can influence the wellbeing of, and opportunities available to, Oxford’s communities in so many ways, these are key issues running through all the background papers. The purpose of this background paper is to emphasise how planning can influence quality of life and to identify where there may be specific issues related to social deprivation, exclusion or inequalities that may need to be addressed.

This topic addresses: SA Objective: (5) To reduce poverty and social exclusion; reduce crime and the fear of crime SEA Theme: Population

Plans, Policies and Programmes National Planning Policy Framework (NPPF) Well‐designed buildings and places can improve the lives of individuals and communities. Plans should support strong, vibrant, healthy communities and social and cultural wellbeing. Planning policies should aim to create places which bring together those who work, live and play in an area and that promote opportunities for meetings between members of the community who might not otherwise come into contact with each other. Plans should promote safe and accessible environments where crime and disorder, and the fear of crime, do not undermine quality of life or community cohesion. Plans should take account of and support local strategies to improve health, social and cultural wellbeing for all, and deliver sufficient community and cultural facilities and services to meet local needs. Local planning authorities should work with public health leads and health organisations to understand and take account of the health status and needs of the local population (such as for sports, recreation and places of worship), including expected future changes, and any information about relevant barriers to improving health and well‐being.

Planning Practice Guidance (PPG): Health and Wellbeing A healthy community is a good place to grow up and grow old in. It is one which supports healthy behaviours and reductions in health inequalities. It should enhance the physical and mental health of the community and, where appropriate, encourage:

Active healthy lifestyles that are made easy through the pattern of development, good urban design and good access to local services and facilities by walking, cycling and public transport, as well as green open space and safe places for active play and food growing.

The creation of healthy living environments for people of all ages which supports social interaction. It meets the needs of children and young people to grow and develop, as well as being adaptable to the needs of an increasingly elderly population and those with dementia and other sensory or mobility impairments.

Oxfordshire’s Joint Health and Wellbeing Strategy 2015‐2019 The Health and Wellbeing Board is the principal structure responsible for improving the health and wellbeing of the people of Oxfordshire through partnership working. The Board is a partnership between Local Government, the NHS and local people. Key priorities of Oxfordshire’s Joint Health and Wellbeing Strategy are to reduce inequalities, improve educational attainment, support the elderly and those with long term conditions in living independently, tackling obesity (particularly by increasing physical activity) and the provision of better quality housing.

The current situation

A wide range of factors can influence the wellbeing of, and opportunities’ available to, individuals and communities. These factors are often complex, multidimensional and interrelated making them challenging to isolate and address. Measures of wellbeing and opportunities are often comparative, with assessments being relative to what is considered the current societal ‘norm’ or average.

Deprivation (The English Indices of Deprivation 2015 DCLG) The Indices of Deprivation are based on the concept that deprivation consists of more than just poverty. Poverty is not having enough money to get by, whereas deprivation refers to a broader lack of resources and opportunities. In terms of the overall Index of Deprivation1, Oxford as a whole is ranked 166 out of 326 local authority areas in England. (In the previous Indices of deprivation published in 2010 Oxford ranked 131 out of 345 authorities in England.) Whilst this overall ranking suggests that the city as a whole sits around the middle of the scale in national terms, if you look more closely at the smaller, Lower‐Layer Super Output Areas (LSOAs) it is clear that there is significant variation in the levels of deprivation experienced across the city (Figure 6.6.1).

Figure 6.6.1: Spatial distribution of overall deprivation in Oxford (LSOAs)

10 of Oxford’s 83 LSOAs are within the 20% most deprived in England, whilst 17 of Oxford’s LSOAs are within the 20% least deprived in England. This illustrates the significant range in overall levels of deprivation experienced across the city. The three most deprived wards in Oxford are Blackbird Leys, Northfield Brook, and Barton and Sandhills, with Rose Hill and Iffley 76 scoring the highest level of overall deprivation and sitting within the top 8% most deprived LSOAs in England. Whilst the overall index of deprivation provides a summary of how areas of Oxford rank across the whole range of indicators, it is also useful to consider performance against individual indicators to identify specific issues that may be hidden by the overall ranking.

1 A weighted measure based on information relating to income, employment, education, health, crime, housing and environment. This weighting is based on: Income Deprivation (22.5%); Employment Deprivation (22.5%); Education, Skills and Training Deprivation (13.5%); Health Deprivation and Disability (13.5%); Crime (9.3%); Barriers to Housing and Services (9.3%); and Living Environment Deprivation (9.3%).

Figure 6.6.2: Spatial distribution of barriers to housing and services in Oxford

The barriers to housing and services deprivation indicator considers the physical and financial accessibility of housing and key local services. Figure 6.6.2 suggests that there are significant barriers to housing and services across the majority of the city, a likely result of the well documented disparity between income and house prices. Overall, Oxford’s LSOAs are more deprived than other areas of England in terms of access to housing and services, with 60 out of 83 LSOAs ranked 5 or lower. The most deprived areas in terms of barriers to housing and services are Churchill 26 and Blackbird Leys 17, both of which are within the 5% most deprived in England. Figure 6.6.3: Spatial distribution of living Environment Deprivation in Oxford

The living environment deprivation indicator measures the quality of the local environment taking into consideration both the ‘indoors’ living environment (including quality of housing) and the

‘outdoors’ living environment (including air quality and road traffic accidents). 18 of Oxford’s LSOAs are within the 20% most deprived areas of England in terms of the living environment they offer. The spatial distribution of living environment deprivation is slightly different, with levels of deprivation being highest in the city centre and improving towards the outer parts of the city (Figure 6.6.3). Figure 6.6.4: Spatial distribution of crime in Oxford

The crime deprivation indicator measures the risk of personal and material victimisation at the local level. This is based on the numbers of reported crimes relating to violence, burglary, theft and criminal damage. Figure 6.6.4shows that there are significant differences in crime rates between the north and south of the city, with the city centre and south of the city having a much higher risk of crime than the north (with the exception of parts of Marston and Barton and Sandhills). 19 of Oxford’s LSOAs rank amongst the top 20% most deprived areas in England in relation to crime. Areas in the 10% most deprived areas in England in relation to crime are: Jericho and Osney 51; Carfax/Holywell 22; Hinksey Park 44; Rose Hill and Iffley 76; St Clement's 82; and St Mary's 88. (Note this data is at odds with crime data received from Thames Valley Police which does not identify Jericho and Osney as crime hot spots.)

Figure 6.6.5: Spatial distribution of income deprivation affecting children in Oxford

Income deprivation affecting children considers the proportion of children aged 0‐15 in each LSOA that live in families that are income deprived (those that are in receipt of Income Support, income‐based Jobseeker’s Allowance, Pension Credit Guarantee or Working/Child Tax Credit below a given threshold). 16 of Oxford’s LSOAs are within the 20% most deprived areas of England in terms of income deprivation affecting children (Figure 6.6.5). The most deprived LSOA with regard to child poverty is Rose Hill and Iffley 77, where 45% of children aged 0‐15 are considered to be affected. In contrast, income deprivation affects only 1% of children aged 0‐15 living in Summertown 91. Figure 6.6.6: Spatial distribution of income deprivation affecting older people in Oxford

Income deprivation affecting older people considers the proportion of a LSOA’s population aged 60 and over receiving Income Support, income‐based Jobseekers Allowance, income‐based Employment and Support Allowance, or Pension Credit (Guarantee). Oxford no longer contains any LSOAs amongst the 10% most deprived areas in England in terms of deprivation affecting older

people (Figure 6.6.6), although 12% of Oxford’s LSOAs are amongst the 20% most deprived in England (Barton and Sandhills 13, 14, Rose Hill and Iffley 76, 77, Carfax/Holywell 22, St Clement’s 82, Northfield Brook 68, 69, St Mary’s 87, and Churchill 25). 28‐36% of older people in the most deprived areas of Oxford are affected, whilst only 3‐6% of older people are affected in the least deprived LSOAs.

Oxford Residents’ Survey 2014/15 (Ipsos Mori for Oxford City Council) Overall the findings of the 2014/15 Oxford Residents’ Survey are extremely positive, although residents in South East Oxford tended to be less positive than average on a range of measures, particularly with regards to views on community life and the prevalence of anti‐social behaviour issues. Overall, residents identified crime levels, health services, and affordable decent housing as being the most important factors that make somewhere a good place to live. The main findings from this survey relating to community wellbeing and opportunities are summarised below:

Social Cohesion Figure 6.6.7: Perceptions of social cohesion

Social cohesion is an important aspect of community wellbeing, particularly in places such as Oxford where the community is made up of a diverse range of people from different ethnicities and backgrounds. This survey provides a useful indication of how local people view levels of social cohesion across the city. Overall, perceptions of social cohesion are generally positive, with the majority of people agreeing that people from different backgrounds get on well together (72%). However, it is clear that views of community cohesion are least positive in South East Oxford, where only 59% of respondents agreed that people from different backgrounds get on well together. This is significantly lower than responses for other areas of Oxford.

Perceptions of safety Figure 6.6.8: Perceptions of safety

Perceptions of safety are extremely important in terms of how successfully places function. It is people’s perceptions of safety that will affect if and how they use public spaces and interact with others. This survey suggests that generally people feel safe across the city during the day, however perceptions of safety decrease significantly after dark, particularly in the city centre.

Personal finances Figure 6.6.9: Personal financal difficulties

Figure XX provides an indication of financial wellbeing in 2014/15. This is important as personal finances can have direct impacts on physical and mental health and the opportunities available to people. The data shows that only 39% of respondents had not encountered any financial difficulties in the last 12 months. It is notable that nearly a quarter of respondents (23%) had not been able to buy or move home in the last 12 months, echoing the findings of the Indices of Deprivation that there are barriers to housing across the majority of the city. Many of the difficulties people faced in

the last 12 months would have direct impacts on their quality of life and wellbeing such as being unable to afford energy bills, food and/or rent or mortgage payments.

Crime Statistics (Home Office2) Figure 6.6.10: Oxford crime rates compared with similar areas

Figure 6.6.10 suggests that the overall crime rate in Oxford per 1000 population was higher than the average crime rate across similar areas in 2015. When this is broken down by type of crime, crime rates in Oxford were significantly higher than the group average for theft (specifically bicycle theft and theft from person) and possession of weapons. Crime rates were significantly lower in Oxford than the group average for violence and sexual offences and robbery.

Health Figure 6.6.11: Oxford Health profile3

Figure 6.6.11 shows that overall life expectancy for both males and females in Oxford is similar to the national average, however there are geographical inequalities in life expectancy across the city.

2 https://www.police.uk/thames‐valley/N448/performance/compare‐your‐area/#msg_comparison (April 2016) 3 NHS (2016) Healthy New Towns Programme: Barton Park and the Surrounding Area Statistics

Men in the least deprived areas of Oxford have a life expectancy 8.8 years longer than those in the most deprived parts of the city. For females, the gap is 3.7 years. Figure 6.6.12: Health indicators Oxfordshire (Public Health Outcomes Framework, Public Health England)

Indicator Time period

England South East Oxford Cherwell South Oxfordshire

Vale of White Horse

West Oxfordshire

Percentage of children aged 4‐5 classified as overweight or obese

2014‐15 21.9 20.3 20.0 18.1 16.8 19.5 18.3

Percentage of children aged 10‐11 classified as overweight or obese

2014‐15 33.2 30.1 32.6 32.5 24.9 27.2 26.0

Percentage of adults classified as overweight or obese

2012‐14 64.6 63.4 53.5 64.1 61.1 63.1 64.7

Percentage of adults achieving at least 150 mins of physical activity per week

2014 57.0 59.0 65.9 60.8 62.8 65.4 59.7

Percentage of adults classified as ‘inactive’

2014 27.7 25.4 15.6 25.8 22.6 22.4 24.2

Percentage of working days lost due to sickness absence

2011‐13 1.5 1.5 2.7 2.2 1.4 0.8 1.6

Obesity (being overweight or having excess body fat) is a problem across the country. 64.6% of England’s population is classified as obese. Obesity is concerning as it can lead to conditions such as diabetes, heart disease and strokes as well as depression and low self‐esteem, which can impact upon quality of life and may reduce life expectancy. Encouraging exercise and good eating behaviours is key to tackling this issue. Whilst Figure 6.6.12 suggests that the percentage of adults classified as obese in Oxford is lower than the national average, obesity still affects more than half of the adult population (53.5%). The reason that adult obesity levels are slightly lower in Oxford may be explained in part by a higher than average percentage of adults achieving at least 150 minutes of physical activity per week (65.9% in Oxford compared to 57% nationally). The percentage of adults classed as ‘inactive’ in Oxford is also lower than the national average (15.6% in Oxford compared to 27.7 nationally). There remains however a real need to address levels of adult obesity in the city. Particularly concerning is the proportion of Oxford’s children classified as being obese (20% of children aged 4‐5 and 32.6% of children aged 10‐11). Bad habits learnt in childhood can continue on throughout their lives and may have long term impacts on health and wellbeing. Studies suggest that there is a link between childhood obesity and household income. Children living in households in the lowest income quintile are most likely to be obese (boys 22%, girls 21%), whereas children living in households in the highest income quintile are least likely to be obese (boys 7%, girls 6%).

Figure 6.6.13: Health indicators Oxfordshire (Public Health Outcomes Framework, Public Health England)

Indicator Time period

England South East Oxford Cherwell South Oxfordshire

Vale of White Horse

West Oxfordshire

Noise complaints per 1000 population

2013‐14 7.4 5.4 9.0 5.8 3.6 4.3 2.8

Noise can also affect health and wellbeing in a number of ways. Figure 6.6.13 shows that there are more noise complaints in Oxford per 1000 population than the national and South East averages. This likely reflects the compact nature of the city which means that development is higher density and therefore noise from different properties and land uses are more easily heard by those in the surrounding area.

Life Satisfaction 2011‐12 (Office for National Statistics) Figure 6.6.14: Life satisfaction ratings by ethnic group (United Kingdom) 2011‐12

There are links between levels of life satisfaction and wellbeing and mental health. Figure 6.6.14 suggests that there is significant variation in life satisfaction between ethnic groups, with Indian people having highest levels of life satisfaction (closely followed by white, Chinese and other Asian groups) and black/African/Caribbean people having the lowest levels of life satisfaction.

Wellbeing Figure 6.6.15: Average life satisfaction scores Oxford

(Source: Towards Mental Health and Wellbeing in Oxford.

Supplementary evidence base: local indicators for Oxford – ONS Annual Population Survey 2011‐12)

This data is based on respondents’ answers to the following questions:

Overall, how satisfied are you with your life nowadays? Overall, to what extent do you feel the things you do in your life are worthwhile? Overall, how happy did you feel yesterday? Overall, how anxious did you feel yesterday?

Education Figure 6.6.16: Oxfordshire GCSE attainment

Educational attainment can affect the opportunities available to people in terms of their ability to access to jobs and their earning potential. Oxford is, in general, a well‐educated city. In 2011 an estimated 43% of the population was qualified to degree level or above compared to an England average of 27%. However, GCSE attainment in Oxford has been relatively poor compared to other areas in Oxfordshire. Between 2010 and 2014, 51% of Oxford pupils at state‐funded schools obtained 5 or more A*‐C grades at GCSE (including English and Maths). This is lower than attainment percentages for Oxfordshire overall (59%) and the rest of England (58%). Figure 6.6.16 shows that there are significant geographical differences in attainment within Oxford itself. GCSE attainment in much of South and East Oxford is significantly lower than the Oxfordshire average, whilst much of the North and West of the city is performing significantly above the county average.

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Social Exclusion Figure 6.6.21: A comparison of Oxford’s LSOAs ranked amongst the most deprived in England in 2010 and 2015

Figure 6.6.21shows that the number of Oxford’s LSOAs ranked amongst the most deprived in England has decreased in comparison to the findings of the previous Indices of Deprivation published in 2010. However, Blackbird Leys, Northfield Brook, and Barton and Sandhills have consistently scored comparatively poorly against key indicators maintaining their positions in the 20% most deprived areas of England over a number of years. These parts of the city have particularly low rankings in relation to income (particularly child poverty) and poor educational attainment (Figure 6.6.22).

Figure 6.6.22: Oxford’s most deprived LSOAs rankings against indicators (1 = most deprived and 10 = least deprived)

Health Figure 6.6.23: Life expectancy at birth over time (Oxford and England)

Female Male

People are now living longer. As Figure 6.6.23 shows, life expectancy at birth in Oxford is increasing in line with the national average.

Figure 6.6.24: Percentage of adult population classified as obese (England)

Obesity rates are increasing (Figure 6.6.24).

Crime Figure 6.6.25: Violent crime hospital admissions over time (Oxford and England)

Violent crime admissions decreasing over time in Oxford and nationally. Oxford significantly below national crime rates for violent crime.

Sustainability / Plan issues There are inequalities across the city in terms of opportunities and wellbeing. Action needs

to be taken to address these inequalities to enable all parts of Oxford’s communities to experience a good quality of life.

Oxford’s population is becoming increasingly diverse. It is important to bring people from difference backgrounds together and to support social cohesion.

Crime levels in Oxford are slightly higher than in similar areas and perceptions of safety in the city centre after dark are significantly lower than they are in the day time. Action needs to be taken to reduce opportunities for crime and to increase perceptions of safety in the city centre.

Education, skills, and employability/training

Introduction Traditional land use planning is fairly limited in terms of directly influencing education, skills, and employability/training beyond allocating land for delivering new or expanded educational facilities such as schools or university academic space. However the planning system does play an important role in creating the conditions for economic growth, and can be used as tool to promote the use of local labour and help to provide training and employment opportunities for local residents. Increasingly Local Plans are looking beyond land use, and councils are seeking opportunities at both the construction and end‐user phases of development, to contribute towards a range of employment, skills, and training measures, to mitigate the impacts of development to ensure that local people can better access job opportunities arising from new development1. Furthermore other strategies and organisations which work closely with planning, such as the Local Enterprise Partnership and broader corporate objectives, are putting in place measures to address education and skills, which will help the local plan to achieve influence in these areas.

Plans, policies and programmes National Planning Policy Framework (NPPF) The NPPF seeks that Local Plans should make appropriate provision for education and school places:

37. Planning policies should aim for a balance of land uses within their area so that people can be encouraged to minimise journey lengths for employment, shopping, leisure, education and other activities…. 72. The Government attaches great importance to ensuring that a sufficient choice of school places is available to meet the needs of existing and new communities. Local planning authorities should take a proactive, positive and collaborative approach to meeting this requirement, and to development that will widen choice in education. They should:

● give great weight to the need to create, expand or alter schools; and ● work with schools promoters to iden fy and resolve key planning issues before applications are submitted.

1 SPD’s on contributions towards skills & training by Reading Borough Council (2015) , Lancaster, and Arun District Council

This topic addresses: SA Objective: (6): To raise educational attainment and develop the opportunities for everyone to acquire the skills needed to find and remain in work. (14): To achieve sustainable economic growth (including the development and expansion of a diverse and knowledge‐based economy)

Infrastructure 162. Local planning authorities should work with other authorities and providers to:

● assess the quality and capacity of infrastructure for transport, water supply, wastewater and its treatment, energy (including heat), telecommunications, utilities, waste, health, social care, education, flood risk and coastal change management, and its ability to meet forecast demands;

The NPPF does not directly reference training but encourages growth to create jobs. This in turn relies on the premise that employment and skills training should be maximised, and that local planning authorities should have a clear understanding of business needs:

“Local planning authorities [LPAs] should have a clear understanding of business needs within the economic markets operating in and across their area [including] … working closely with the business community to understand their changing needs and identify and address barriers to investment, including a lack of housing, infrastructure or viability … Local Planning Authorities should use this evidence to assess … locations of deprivation which may benefit from planned remedial action” (NPPF para 160‐161).

There are also several locally‐specific plans and strategies related to economic growth in Oxford and Oxfordshire, which include sections on training and education, including the Oxfordshire Strategic Economic Plan, the Oxfordshire Skills Board Strategy, and the Oxford City Council Corporate Plan.

Oxfordshire Strategic Economic Plan (Oxfordshire Local Enterprise Partnership, March 2014) Oxford City Council is a board member of the Oxfordshire Local Enterprise Partnership (OxLEP). The Strategic Economic Plan (SEP) prepared by OxLEP covers the whole LEP area. The plan highlights the challenges, in particular: the mis‐match of skills needed for high‐technology businesses; retaining University graduates; and labour shortages in service roles particularly in many STEM‐based sectors [science, technology, engineering and maths], as well as health and social care, retail, and hospitality and the logistics sectors. To address these, it identifies strategic objectives and interventions relating to skills and training:

• Increase the proportion of the working age population qualified to level 2 and above to 90% • Ensure our further education capital stock meets the needs of 21st century learners and employers • Improve school attainment above the national average of 60.4% of GCSE students achieving at least five A* to C grades including English and Maths • Increase the amount of Skills Funding Agency funding that supports our STEM sectors by 15% to better reflect our economic profile • Deliver 1,150 more apprenticeships for young people with a focus on our priority growth sectors • Retain our graduate talent and encourage more Oxford graduates to stay • Maximise our environment to encourage sustainable living, enhancing quality of life and a range of opportunities for people to learn, improve their skills and improve health and well‐being.

Some of the specific actions which the SEP identifies to achieve these are outside the remit of planning and rely on other sectors or partners to deliver, but some are directly influenced by the planning system, such as:

Embedding ‘employment and skills plans’ into major employment‐generating developments, and working with developers to deliver skills and training outcomes for all, especially those most marginalised from the workforce.

Capital projects to enhance the Further Education portfolio, to meet the needs of 21st century learners and employers, and provide better support for our knowledge rich sectors, including STEM sectors.

Oxfordshire Skills Board Strategy (2014) The Oxfordshire Skills Board supports the work of OxLEP. It provides a strategic and coordinated response to skills development in the county. In its Skills Strategy to 2020 it sets out the following five Strategic Priorities to 2020:

“SP1: To meet the needs of local employers through a more integrated and responsive approach to education and training: developed in partnership with our provider network, to encourage more training provision in priority sectors ‐ both current and projected ‐ to meet the needs of employers or to train future entrepreneurs, particularly in science, technology, engineering and mathematics (STEM).

SP2: Creating the ‘skills continuum’ to support young people through their learning journey: The ambition is to develop integrated, seamless services that support young people through school and on into training, further education, employment or business, where they understand the full breadth of career options, including local demand, and the training path to succeed in that career.

SP3: Up‐skilling and improving the chances of young people and adults marginalised or disadvantaged from work Based on moving them closer to the labour market.

SP4: To increase the number of apprenticeship opportunities, particularly those offered by small to medium sized businesses.

SP5: To explore how we can better retain graduates within Oxfordshire to meet the demand for the higher level skills our businesses need”.

Oxford and Oxfordshire City Deal Agreement (2013) The Oxford and Oxfordshire City Deal is a joint partnership strategy between all of the Oxfordshire districts, the County Council, the LEP, and the two universities. It aims to unlock a new wave of innovation‐led growth by maximising the area’s world‐class assets, such as the universities of Oxford and Oxford Brookes, and the “big science” facilities such as those at the Harwell Science and Innovation Campus. It acknowledges the region’s strong track record of delivering growth and seeks to support those existing, and new, businesses in achieving their full potential. The ambition is to create the conditions that make Oxford and Oxfordshire the location of choice for the world's leading science and technology businesses. City Deal partners are committed to increasing connectivity along the ‘knowledge spine’, connecting people to jobs, opening up a choice of housing to skilled workers and enabling specific sites. The City Deal will bring around £55.5 million of government funding that can be used locally to boost innovation and business growth, create jobs and help secure Oxfordshire’s place as a world leader in technology, knowledge and expertise. In total the deal is expected to be worth over £1.2billion when private sector investment is taken into account. In Oxford, key sites to delivering these commitments are the BioEscalator at Old Road Campus, and Northern Gateway.

Oxford City Council Corporate Plan 2016 ‐ 2020 The Oxford City Council Corporate Plan includes two objectives related to skills and training:

“Residents in Oxford will be able to acquire the range of skills they need to join our world‐class workforce and meet employers’ needs” and “Young people in Oxford will have a positive transition to adulthood through good education, skills training and opportunities for work and leisure”. These highlight the need to address the current mis‐match which sometimes occurs with skills and jobs in Oxford, and the blocks to people accessing the specialist hi‐tech, knowledge‐based jobs that are so important to the Oxford(shire) economy.

Current situation Oxford is consistently identified as one of the top performing economies in the UK. However this strong economic growth, especially in B1 high‐tech and knowledge‐based industries, masks a city of contrasts in qualifications and skills. Qualifications and educational attainment are one clear area of divide, for example:

- whilst Oxford has an exceptionally high proportion (63.5%) of residents with degree level qualifications (almost twice the UK or South East averages)2,

- the attainment in Oxford’s state schools remains below the UK average with only 54% of KS4 pupils achieving the equivalent of 5 A* to C GCSEs 3, and

- 22% of people aged 16 or over have either no qualifications or fewer than 5 GCSEs at C or above4.

- These disparities are disproportionately seen in the most deprived areas. Collectively this presents skills challenges for future economic growth, and creates a barrier to local people accessing jobs in the knowledge‐intensive activities that Oxford’s economy is built around (approx. 67% of jobs are in this sector5). This inequality affects parts of the city more than others. Education & skills deprivation is particularly concentrated in the communities to the east and south east of Oxford, as illustrated in the following maps:

2 https://www.nomisweb.co.uk/reports/lmp/la/1946157324/report.aspx?town=oxford#tabquals 2015 data 3 2013/14 Department for Education 4 2011 Census 5 Jobs in ‘knowledge‐intensive’ industrial sectors, Business Register and Employment Survey 2014, Office for National Statistics. This is a broad definition which includes financial services, information technology, hi‐tech services, education, health services and hi‐tech manufacturing.

Figure 6.7.1 Education and skills deprivation across Oxford

Figure 6.7.2 Employment deprivation across Oxford

Figure 6.7.3 Skills deprivation across Oxford

Figure 6.7.4 Education deprivation across Oxford

Source: https://www.oxford.gov.uk/info/20125/education_and_skills/455/education_and_skills_in_oxford

Upskilling the labour force will be important in maintaining Oxford’s economic competitiveness through the Plan period. A better, appropriately skilled local workforce will help to provide a pool of talent to both developers and end occupiers. This will reduce the need to import skills, and in doing so reduce congestion and unsustainable travel to work modes. Furthermore some new developments or employment growth can exacerbate existing skill shortages if labour is brought in from outside, or if it attracts specialist knowledge from further afield.

Driving up the skills capacity of the local population will help to ensure a more flexible and productive workforce which in turn is a key driver of productivity improvements. For young people in particular, it can lead to better employment opportunities, improved pay prospects and a better quality of life. For business, it means success with improved productivity, innovative practice and quality products. For the county, it represents sustained future prosperity. Training, skills, and apprenticeships will also be important in addressing the divides between the prosperous and the deprived parts of the city. It can bring wider benefits in terms of income equality and potentially a reduction in child poverty and social exclusion by reducing the potential for economic and social disparity. Likely trends without a new Local Plan There are two longer‐term trends in Oxford (also reflected in the UK as a whole,) which are likely to drive inequalities in the City rather than narrow them over the Plan period. Oxford has an increasingly polarised labour market in which there are many high‐wage, high‐skill jobs and low‐wage, low‐skill jobs, with fewer jobs at intermediary levels. Growth is most likely to be in the key sectors of education (university‐related), bioscience, healthcare, and retail sectors, and there is also likely to be an increase in corporate R&D linked to the universities, the most likely being biomedical, engineering, and computing. These jobs may not be accessible to local people, unless the skills and training gap is addressed. In addition there is the increasing divide between those who have access to good quality housing (and wealth associated with owner‐occupation,) and those who do not6. This has knock‐on effects for those wishing to access jobs in Oxford, in that they may not be able to afford to live close to the jobs. To some extent, the strategies and plans outside of the planning system, such as the Strategic Economic Plan, will continue irrespective of the Local Plan. However their impact can be enhanced and maximised by integrating the ambitions into the Local Plan, and into planning decisions. For example incorporating commitments for skills and training for local people, into developer contributions agreements. With significant predicted jobs growth locally and sub‐regionally during the Plan period, there is opportunity for local people through securing contributions from developers to help address the ‘skills mismatch’ which otherwise might only be reinforced by the developments, and skills shortages. Obligations are already being secured by the City Council on a number of developments now, so that both the construction and end user phases of development contribute towards a range of employment, skills, and training measures. This helps to mitigate the impacts of development to ensure that local people can better access job opportunities arising from new development. This is particularly relevant in a city like Oxford, where the development of new homes or employment space, may not be currently accessible to many people who do not have the skills or finance to access them. A recent example is Barton Park, where the contractors have recruited locally for construction and groundworks jobs. The other important aspect for the Local Plan will be to ensure sufficient land is safeguarded and protected to deliver sufficient school places, through new sites and through retaining space for existing schools to expand. In recent years some school playing fields in particular have come under

6 Our Changing City, Social Trends in Oxford (Oxford Strategic Partnership, February 2015)

pressure for residential development, and without safeguarding policies in the plan then those areas may be at risk from development in a piecemeal way. The nature of most housing growth in Oxford is through small scale brownfield infill sites, so there is rarely opportunity or requirements for entire new schools to be provided, rather provision is made via existing capacity or growing existing schools. Therefore the existing sites must be protected to ensure there is room to accommodate the additional pupil places generated by small scale developments during the plan period.

Sustainability/Plan issues Skills mismatches increase in‐commuting, exacerbating congestion issues. Employment growth in Oxford is most likely to be in the key sectors of education, bioscience,

healthcare, and retail sector. There is also likely to be an increase in corporate R&D linked to the

universities. Without appropriate skills & training, those jobs will not be accessible to local

people. Small scale brownfield development across the city is more likely to put pressure on existing

school places, and will not in itself provide new school sites. State schools across Oxford, and

particularly in deprived areas, generally under‐perform compared to regional and national

averages.


Introduction There are a range of services and facilities that together offer residents (and employees and visitors to Oxford) the amenities that are required for a good quality of life. This paper looks at primary healthcare, education, community and selected other facilities. It compiles data on accessibility and quality. Oxford is a relatively small city and fairly compact. It is also self‐sufficient in terms of essential services and facilities, both residents of Oxford and residents of the surrounding area can find a range of essential services and facilities within the city boundary. For residents these facilities are generally within a short journey by public transport or a relatively short walk.

Plans, Policies and Programmes National Planning Policy Framework (NPPF) The NPPF states that alongside the economic and environmental dimensions there is an important social dimension to sustainable development. The planning system should seek to support: “strong, vibrant and healthy communities, by providing the supply of housing required to meet the needs of present and future generations; and by creating a high quality built environment, with accessible local services that reflect the community’s needs and support its health, social and cultural well‐being;” (paragraph 7) The NPPF also states that: “To deliver the social, recreational and cultural facilities and services the community needs, planning policies and decisions should:

plan positively for the provision and use of shared space, community facilities (such as local shops, meeting places, sports venues, cultural buildings, public houses and places of worship) and other local services to enhance the sustainability of communities and residential environments;

guard against the unnecessary loss of valued facilities and services, particularly where this would reduce the community’s ability to meet its day‐to‐day needs;

ensure that established shops, facilities and services are able to develop and modernise in a way that is sustainable, and retained for the benefit of the community; and

ensure an integrated approach to considering the location of housing, economic uses and community facilities and services.” (paragraph 70)

Oxfordshire Clinical Commissioning Group Strategy for 2014/15‐2018/19 and Implementation Plan for 2014/15‐2015/16 The CCG has set out five year vision for the Oxfordshire health and social care system. Several elements of this vision are relevant to the Local Plan:

Delivering fully integrated care, close to home, for the frail elderly and people with multiple physical and/or mental health needs.

This topic addresses: SA Objective: (7) To provide accessible essential services and facilities SEA Theme: Material assets

A primary care service that is driving development and delivery of this integrated care, and is itself offering a broader range of services at a different scale.

Routinely enabling people to live well at home and to avoid admission to hospital when this is in their best interests.

Be continuing to provide preventative care and to tackle health inequalities for patients and carers in both its urban and rural communities.

The CCG is aiming to reduce the amount of time spent avoidably in hospital through the provision of better integrated care in the community. To achieve this they will increase investment in primary care and in community services and aim to “deliver a substantial shift in activity and resources from acute services into community and primary care.”

Oxford City Council’s Community Centres Strategy 2016‐2020 The strategy classifies facilities in three tiers. The top tier are community hubs which are multi‐functional community facilities, the next tier are smaller community centres, or community halls with the final tier being rooms for hire, either owned by the Council or other organisations. The strategy identifies eight priority themes: Improving Facilities:

1. Establish Rose Hill as a vibrant, inclusive community hub. 2. Draw up development plans for the Blackbird Leys and Barton Community Centres aimed

at widening and improving the range of functions and activities which they offer, and securing effective community involvement in the management of these centres.

3. Work with the Reference Group to extend and improve the range of activities offered at the East Oxford Community Centre, and to consider the results of the feasibility study into its future physical shape and functions.

4. Develop a prioritised maintenance plan for all centres with a five year time horizon. Sustainable management:

5. Review ways in which those centres that are currently managed by the City Council can be effectively managed in future on a long term and stable basis with strong community involvement.

6. Review the current lease arrangements for each centre and place on a long term stable basis.

7. Support Associations in developing management skills and expertise and in recruiting volunteers to run the centres’ activities.

8. Support Associations to recruit and retain trustees and manage their buildings.

Oxford City Council’s Leisure & Wellbeing Strategy 2015‐2020 In 2009 the City Council entered into a partnership with Fusion Lifestyle to manage its leisure centres. The strategy notes that: “From a low base, our sport development function and all five of our leisure centres have achieved QUEST (the UK’s quality scheme for sport and leisure) along with significant sport and leisure infrastructure improvements. Since the leisure contract commenced facilities have been greatly improved with around £14.4 million of investment…Participation in the city’s leisure centres has increased by over 53% and Oxford has had the third highest increase in adult participation nationally.” The strategy has three key objectives:

Objective 1 ‐ A world‐class leisure offer Objective 2 – Our focus sports – more people, more active, more often Objective 3 – Partnership working

Royal Mail Strategy1 This strategy recognises that Royal Mail will need to be flexible to meet changing customer demands. Initiatives relevant to the Local Plan include:

Extending our Local Collect network to enquiry offices, providing over 11,700 collection points across the UK

Investing in our enquiry offices to enhance customer experience

Improving access to our products and services by providing later acceptance times and weekend processing in mail centres, increasing services in enquiry offices and extending opening hours

The current situation Overall geographical coverage A range of the services and facilities that provide for the needs of the city have been quantified and mapped and where possible qualitative data has been gathered. The assessments below are in the main, made on a postcode basis. There are 4 postcode sectors that cover the city: OX1 (the city centre), OX2 (North Oxford), OX3 (North East Oxford) and OX4 (South East Oxford).

Figure 6.8.1 below identifies the number of each facility in a postcode sector and a calculation to assess the number of people resident in that sector per facility. Note the calculation has not been carried out for secondary schools or leisure centres as both these facilities have much wider catchments.

Figure 6.8.1: Numbers of facilities per area and per head of population

Population

OX1 OX2 OX3 OX4

17,730 31,201 39,060 63,915

Facility/service Total People per facility Total

People per facility Total

People per facility Total

People per facility

G.P. Practice 6 2,955 5 6,240 7 5,580 8 7,989

Dental Practice 5 3,546 2 15,601 10 3,906 9 7,102

Pharmacy 3 5,910 7 4,457 8 4,883 16 3,995

Primary School 2 8,865 7 4,457 9 4,340 14 4,565 Secondary School 0 2 1 2

Community Centre 2 8,865 5 6,240 8 4,883 13 4,917

Leisure Centre 2 1 1 1

Children's Centre 1 17,730 2 15,601 3 13,020 4 15,979

Pub 49 362 27 1,156 22 1,775 46 1,389

Post Office 2 8,865 5 6,240 5 7,812 6 10,653

G.P. practices In total there are 27 NHS G.P. Practices in the city, but it is important to note that most (if not all) practices have more than one G.P. In terms of qualitative data, the NHS provides information from a patient satisfaction survey “Would you recommend this surgery?” (a measure of quality) and on whether practices are accepting new patients (a measure of access).

1 http://www.royalmailgroup.com/about‐us/our‐strategy

In the postcode sector OX1 there are six practices, all of which are accepting new patients; in terms of patient satisfaction they scored 94%, 93%, 89%, 86%, 79% and 60%. In the postcode sector OX2 there are five practices, four of which are accepting new patients; in terms of patient satisfaction they scored 82%, 77%, 76% and 71% (no score available for the fifth surgery). In the postcode sector OX3 there are seven practices, all of which are accepting new patients; in terms of patient satisfaction they scored 91%, 85%, 82%, 79%, 79%, 76% and 71%. In the postcode sector OX4 there are eight practices, all of which are accepting new patients; in terms of patient satisfaction they scored 88%, 87%, 85%, 83%, 76%, 71%, 69% and 65%. Dental practices In total there are 26 NHS dental practices in the city, but as with G.P. practices, it is important to note that most (if not all) practices have more than one dentist. In terms of qualitative data, the NHS provides information on whether practices are accepting new patients of different types (a measure of access). There are three categories of patient in this regard: new fee paying adults, new charge exempt adults, and new children. In the postcode sector OX1 there are five practices, only one is taking on new adults as patients (both fee paying and non‐fee paying) and three are taking on new children. In the postcode sector OX2 there are two practices, only one is taking on new adults as patients (both fee paying and non‐fee paying) and both are taking on new children. In the postcode sector OX3 there are ten practices, five are taking on new adults as patients (both fee paying and non‐fee paying) and five are taking on new children. In the postcode sector OX4 there are nine practices, six are taking on new adults as patients (both fee paying and non‐fee paying) and five are taking on new children.

Pharmacies There is no qualitative data for pharmacies, however in postcode sector OX1 there are three pharmacies; in OX2 there are seven; in OX3 there are eight; and in OX4 there are sixteen.

Primary schools Firstly, it is important to note in Figure 6.8.1 above that the calculation is made on the basis of total population, not of children of primary school age alone. In terms of qualitative data, information can be gathered in terms of Ofsted rating (a measure of quality, taken from the Ofsted website) and in terms of admissions (a measure of accessibility, taken from the County Council website). In the postcode sector OX1 there are two primary schools, both have Ofsted ratings of “Good” (the second best of four standards). Both of the schools were undersubscribed (all those who expressed a first place preference for a place at these schools in the 2016 intake were accepted). In the postcode sector OX2 there are seven primary schools, five have Ofsted ratings of “Good”, one is ranked as “requires improvement” (the third best of four standards) and there is no rating available for the seventh. Five of these schools were undersubscribed (all those who expressed a first place preference for a place at these schools in the 2016 intake were accepted) and the other two accepted 67% and 83% of first place preference applications. In the postcode sector OX3 there are nine primary schools, seven have Ofsted ratings of “Good”, one is “outstanding” (the highest standard) and there is no rating available for the ninth. Five of the schools were undersubscribed (all those who expressed a first place preference for a place at these schools in the 2016 intake were accepted) and the other four schools accepted 93%, 76%, 62% and 52% of first place preference applications.

In the postcode sector OX4 there are fourteen primary schools, five have Ofsted ratings of “Good”, four are rated as “requires improvement”, three are rated as “inadequate” (the lowest of four standards) and there is no rating available for the other two. Six of the schools were undersubscribed (all those who expressed a first place preference for a place at these schools in the 2016 intake were accepted) and the other schools accepted 93%, 91%, 88%, 85%, 84%, 82%, 78% and 70% of first place preference applications.

Secondary schools The same data is available for secondary schools although these operate on a much wider catchment area than the other types of facilities and so are not analysed on a postcode sector basis. In the city there are four secondary schools although there is an additional school just outside the boundary that serves a large number of pupils resident in the city and so it is also included in this analysis, making five secondary schools in all. Of these schools two have an Ofsted rating of “good”, one of “requires improvement” and there is no Ofsted rating available for the other two.

Community centres In terms of qualitative data the City Council has recently commissioned consultants to carry out an assessment of community centres in order to inform the city’s Community Centre Strategy. That assessment was not so much an assessment of quality of service but an assessment of centre’s impact in areas of strategic importance. The higher the score out of 8 the more strategically important the centre was assessed to be. “The criteria used to determine the overall ranking of each centre are based exclusively on the location of the centres and the extent to which they serve a catchment of strategic importance (i.e. without any other coverage and / or areas of high relatively deprivation). These are “Exclusivity of catchment” and “Coverage of deprived areas.” The scores are combined to create an overall score used to rank the centres." In the postcode sector OX1 there are two community centres, one owned by the city council and one not; they scored 4 and 5 out of 8 in the assessment. In the postcode sector OX2 there are five community centres, four owned by the city council and one not; they scored 1, 2, 2, 2 and 6 out of 8 in the assessment. In the postcode sector OX3 there are eight community centres, five owned by the city council and three not; they scored 1, 2, 3, 3, 4, 4, 4 and 7 out of 8 in the assessment. In the postcode sector OX4 there are thirteen community centres, ten are owned by the city council and three are not; they scored 1, 1, 3, 3, 3, 3, 3, 3, 4, 5, 5, 6 and 7 out of 8 in the assessment. In addition the community associations that run four of the centres have achieved the “visible” accreditation which is a quality system and standard for the charity and community sector.

Leisure centres As with secondary schools discussed above, leisure centres operate on a much wider catchment area than the other facilities and so are not analysed on a postcode sector basis. There are five facilities in the city run by the City Council’s partner Fusion. Three are leisure centres providing a range of sporting and leisure opportunities including swimming, one is an outdoor heated swimming facility and the other an indoor ice rank. All five of these facilities have achieved the Quest Quality Scheme for the management of leisure facilities which sets industry standards and good practice. Figure 6.8.2 below illustrates the recent and projected trend of increasing participation at these leisure centres and the associated reduction in subsidy per user.2

2Oxford City Council’s Leisure & Wellbeing Strategy 2015‐2020

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Likely trends without a new Local Plan Health services: there is nationally some pressure on G.P. services, the trend appears to be that G.P. practices combine or co‐locate into larger groupings to serve wider areas. This trend is supported by the move towards locating some of the out‐patient services more traditionally located at local hospitals at G.P. practices as outlined in the CCG strategy. Schools: the number of pupils nationally and in Oxford has been growing in recent years putting extra pressure on school places. The County Council has had a programme of expanding schools and a new school will come online as part of the Barton Park development in September 2019. With changes in central government policy encouraging academies and free schools (with autonomy from County Council control) all new schools will be academies or free schools and more existing schools are likely to become academies. Community centres: The City Council’s strategy is to invest in improvements particularly to those top tier (more strategic importance) centres and to work to find sustainable management solutions in order to increase the offer of services available and encourage greater use. Leisure Centres: the City Council with its partner Fusion has been investing in improvements to the city’s leisure centres, the trend will continue to be investment and improvement in existing facilities rather than new additional facilities. Figure 6.8.2 projects past trends on usage forward to 2023/24. Children’s Centres: there has been a well‐publicised debate about the future of children’s centres in Oxfordshire as the County Council looks for alternative ways to resource its facilities. At a County Council meeting in May 2016, the Cabinet agreed to: (a) develop three outreach centres (Barton, Rose Hill and Blackbird Leys) and a shared locality base (East Oxford Early Intervention Hub/Children’s Centre in Cowley). Several of these centres are likely to also offer child care on site. Pubs: the campaign group CAMRA claim that nationally 27 pubs are closing every week. It is claimed that pressures from the smoking ban and the cost of alcohol in supermarkets are part of the reason for this pattern; it is likely that these two factors will continue and so is possible that this downward trend will also. Across the country, over 600 pubs have been nominated as Assets of Community Value which triggers a moratorium on any sale, with the idea that local people bid to buy the pub. In Oxford 5 pubs have been listed as such (with more applications being processed), it is likely that this will continue in the future as campaign groups promote the process. Post offices: in recent years the Post Office has started to move away from providing services in their own premises and towards co‐locating services within shops or other premises for example. Recent campaigns indicate that the public still highly values local post office services and so this co‐location may become more common.

Sustainability / Plan issues Availability of services and facilities play a key role in the quality of life for residents and

others, the plan will need to ensure that existing and new residents can enjoy good access

to quality facilities

Because of increased population and related journeys, it will become even more important

to ensure that such facilities are easy to access for all by walking, cycling and public

transport

Trend for expanded ranges of services provided locally (for example in healthcare), and

pressures on public spending will mean that opportunities should be sought for co‐location

of facilities

7.Economictopics 7.1 This section comprises a series of topic discussions with an economic theme. They

are ordered to reflect the SA Objectives as summarised below. Please note these topics are directly related to the SA Objectives but do not reflect the SEA Directive themes.

Figure 7.1: Relationship between topics, SA objectives and SEA themes Environmental topics SA Objective SEA topic

Employment and Economy 14: Economic Development

Retail, district centres and city centre 14: Economic Development, 2: Vibrant Communities

Regeneration and Economic Revival 14: Regeneration areas

Tourism 16: Tourism



Employment and Economy

Introduction This background paper introduces some of the issues in relation to employment and economy within Oxford. Oxford plays a vital role in the national economy contributing significantly to the UK’s GDP. The city also anchors the sub‐regional county economy as well as providing thousands of jobs for local people. This background paper identifies the key plans, policies and programmes related to employment, as well as looking at the current situation for employment in Oxford. It considers some of the barriers to new growth and looks at potential future trends in employment growth in terms of which sectors are likely to grow over the plan period which, are predicted to shrink and which are likely to remain the same.

Plans, Programmes and Policies

National Planning Policy Framework (2012) National Planning advice1 (NPPF) requires local authorities to fulfil their economic role by contributing to building a strong, responsive and competitive economy by “ensuring that sufficient land of the right type is available in the right places and at the right time to support economic growth and innovation.” Local authorities therefore need to

‘set out a clear economic vision’;

‘set criteria or identify strategic sites for local and inward investment opportunities’;

‘support existing and emerging business sectors’; and

promote networks and clusters of knowledge driven, creative or high technology industries. The NPPF recognises that planning policies should recognise, and seek to address, any potential barriers to investment and proposes that LPAs facilitate flexible working practices.

Strategic Economic Plan (2014) The City Council is a board member of the Oxfordshire Local Enterprise Partnership (OxLEP). OxLEP developed the Oxfordshire Strategic Economic Plan (SEP) in partnership with the business community, academic institutions and the Local Authorities. The SEP sets out the long term vision and ambitions for economic growth in the county. The scale, ambition and deliverability of the SEP will form the basis of Growth Deal negotiations with Government and determines Oxfordshire’s allocation from the Local Growth Fund (LGF).

1 National Planning Policy Framework (NPPF): CLG (March 2012)

This topic addresses: SA Objective: (14) To achieve sustainable economic growth (including the development and expansion of a diverse and knowledge‐based economy)

The overall vision for the Oxfordshire Strategic Economic Plan is that by 2030 “Oxfordshire will be recognised as a vibrant, sustainable, inclusive world leading economy, driven by innovation, enterprise and research intelligence.” In addition to the thematic focus the Strategic Economic Plan focuses on priority localities of the Oxfordshire Knowledge Spine, which includes Bicester, Oxford and Science Vale. These complementary priority areas together form the focus for economic development in the area. The Plan recognises that Oxford’s world‐class education research and innovation underpins growth and that continued investment is needed to develop the infrastructure necessary to realise its full potential. The Strategic Economic Plan is currently being refreshed to take account of a wide range of information that has been published since its agreement by the LEP board in 2014. It is anticipated the refresh process will be completed by September 2016.

The Oxfordshire Innovation Engine: Realising the growth potential (2013) The University of Oxford and Science Oxford commissioned SQW to analyse the characteristics of high tech Oxfordshire today, its future growth potential and the challenges involved in realising that potential. This was with the aim of ensuring that Oxfordshire builds on its position as a leading high technology cluster, and that the Oxford brand is more consistently associated with science and innovation. ] The report lists the science and technology based assets and credentials already existing in Oxfordshire, which include:

A global brand, conveying an image of academic excellence, historical significance and of a beautiful place in which to live;

The University of Oxford, which is among the top few in the world, with outstanding research and teaching, and Oxford Brookes University, one of the best performing new UK universities;

A unique grouping of ‘big science’ and other research facilities, including the UK Atomic Energy Authority Culham Centre for Fusion Energy, Rutherford Appleton Laboratory, and Diamond Light Source;

A highly skilled labour force, with a higher proportion of graduates than any other English county;

A superb strategic location, 40 miles from Heathrow and 50 miles from London. The report finds housing to be a problem, and the biggest obstacle to achieving economic growth.

Economic Forecasting to Inform the Oxfordshire SHMA (Cambridge Econometrics, 2014) In September 2013, Cambridge Econometrics and SQW were commissioned to prepare a set of economic forecasts for Oxfordshire to be used to inform the Strategic Housing Market Assessment (SHMA) and the Local Enterprise Partnership’s Strategic Economic Plan (SEP). The study also looked at whether each district had sufficient employment land allocated, concluding that “it appears that there is sufficient land allocated in all districts except South Oxfordshire”. The study looked at potential risks to the planned economic growth projections to see if external factors including market conditions, labour market constraints, infrastructure constraints and rates of employment growth, could have an adverse impact on employment land requirements. The study took account of these risks and concluded that the planned economic growth projection

should not be reduced to take account of these factors because they do not appear to be particularly likely to reduce employment growth below that forecast.

Oxford and Oxfordshire City Deal (2014) The role of local areas in driving economic growth has been recognised by Central Government and is at the heart of the development of City Deals. These consist of bespoke agreements between the government and councils centred around major cities and provide greater powers and responsibilities in order to drive forward local economic growth. Through the City Deal agreement the government has committed its agencies (such as the Highways Agency) to assisting in the delivery of named City Deal projects. The Oxford and Oxfordshire City Deal seeks to unlock a new wave of innovation‐led growth by maximising the area’s world‐class assets, such as the University of Oxford and Oxford Brookes University, and “big science” facilities such as those at the Harwell Science and Innovation Campus. It acknowledges the region’s strong track record of delivering growth and seeks to support those existing, and new, businesses in achieving their full potential. The ambition is to create the conditions that make Oxford and Oxfordshire the location of choice for the world's leading science and technology businesses. The City Deal will bring around £55.5 million of government funding that can be used locally to boost innovation and business growth, create jobs and help secure Oxfordshire’s place as a world leader in technology, knowledge and expertise. In total the deal is expected to be worth over £1.2billion when private sector investment is taken into account. City Deal partners are committed to increasing connectivity along the ‘knowledge spine’, connecting people to jobs, opening up a choice of housing to skilled workers and enabling specific sites including the Northern Gateway.

Oxford Business Survey (2015) In January 2015 Oxford City Council commissioned Ipsos MORI to undertake surveys of Small to Medium sized Enterprises (SMEs) – businesses with less than 250 employees. Key findings from the survey included that Oxford has a well‐established business community and that familiarity with Oxford was the main reason why businesses located in the area. The survey also found that certain sectors (in particular retail/ arts/ accommodation and food sectors) are likely to have their goods delivered by road. The survey also found that unsuitable premises, expensive housing and transport costs, restrict growth of SMEs. The survey found that well established SMEs are more likely to have staff commuting from outside Oxford. It found that Oxford companies try to offer flexibility to their workforce. It also found that the cost of living is the main barrier to recruiting and retaining suitably skilled staff. Other barriers included the cost of commuting and the high costs of purchasing a property. The survey found that it is the medium sized SMEs that are driving recruitment and that one in five companies stated their intention to recruit trainees/ apprentices.

Oxford City Council Corporate Plan 2016‐2020 Oxford’s Corporate Plan sets out a vision and strategy focusing on five interlinked priorities which address the needs of the City. The City’s ambition, which has been developed with partners including local businesses, community organisations, unions, the health and education sectors and the County Council. The vision for the City Council is as follows:

Oxford City Council: Building a world‐class city for everyone

Sitting under the vision are the five interlinked priorities of which the following is relevant in this context:

Vibrant and Sustainable Economy The Corporate Plan recognises that Oxford is the economic and cultural hub of Oxfordshire’s world‐class knowledge economy. In fact the City’s economic output was valued at £6.8 billion in 2014, making it an important net contributor to the Treasury. The Corporate Plan acknowledges that Oxford is a diverse economy: a global centre for education, health, bioscience, digital and car manufacturing, a lead area for publishing and creative industries and high performance engineering, and a growing high‐tech sector. The Corporate Plan also acknowledges the challenges faced by the City:

There is a lack of land and premises for commercial and residential uses;

Shortage and cost of housing, transport costs and congestion are barriers to growth and staff recruitment and retention;

Labour shortages and skills needs are a barrier to entry level jobs;

Oxford is constrained by its boundaries, and infrastructure is at full capacity. The Corporate Plan contains a commitment to review the Local Plan to ensure that it continues to make the most opportunities for development to meet the city’s needs.

Oxford Economic Growth Strategy (2013) In 2013, the Oxford Strategic Partnership (of which Oxford City Council is a member) developed an Economic Growth Strategy for the City until 2023. The Economic Growth Strategy for Oxford considers how best to maximise the economic role that the city could perform as well as the necessary enabling actions. The Oxford Economic Growth Strategy realises that one of the key reasons for the city’s success is its diversity. Oxford is an international brand, a global seat of education, learning and research, a centre of engineering and scientific excellence, a world leader in automotive and advanced manufacturing, publishing, health care and life sciences, and an iconic tourist destination. As part of the process of building the Economic Growth Strategy, business, university and voluntary organisation leaders and City and County Council members and officers worked together to build a vision of Oxford’s economic future: The Growth Strategy itself consists of eleven elements as set out below:

1. Expanding Oxford’s knowledge economy using the global connections of Oxford’s Universities and major/ large employers to attract new companies, and promote new start‐ups;

2. Supporting the growth of existing employers including large, global companies, high value small and medium sized enterprise, the Universities, and the health sector;

3. Ensuring sufficient supply of employment land; 4. Strengthening Oxford’s city centre retailing offer; 5. Expanding the value of Oxford’s tourism across the region; 6. Continuing to improve education and skills attainment to support future economic growth

opportunities; 7. Increasing, the annual rate of housing development in locations which are easily accessible

to the city centre and other main employment areas by cycle, bus and rail; 8. Ensuring on‐going investment in broadband infrastructure;

9. Addressing the environmental challenges and opportunities presented by economic growth; 10. Investing in the physical and transport infrastructure to enable economic growth; and 11. Securing an effective partnership for implementation and ‘single team’ delivery for Oxford.

Oxford Strategic Partnership – Vision Statement, Aims, Challenges and Priorities (2013) In 2013, the Oxford Strategic Partnership set out its vision statement, aims, challenges and priorities. The vision statement is as follows:

The ambition of our partnership is that Oxford should be a city in which all our citizens feel happy to live and experience a high quality of life. We want Oxford to be a world‐class city for everyone.

Of particular relevance to Oxford’s economy, the Strategic Partnership seeks to realise its vision by promoting economic vitality and renewal. It seeks to do this in the following ways:

Agreeing with partners a vision for the Oxford city region’s economic future and providing measures that can realise that vision;

Providing more and better housing at rents and prices that allow a balanced community to be maintained;

Preserving and enhancing the natural environment and biodiversity alongside the city centre heritage and good urban design.

The document also examines some of the key challenges, the first being in relation to economic growth.

One third of the county’s jobs and seven of the ten largest Oxfordshire employers are within Oxford;

Land in Oxford is scarce. Residential developers find it difficult to secure sites for new projects, and it is thought that some companies have found it difficult to expand;

The labour market appears to have begun a recovery, indicated by a fall in the number of people claiming unemployment benefit over the last six months.

Current Situation The city has a high proportion of students and young people as a percentage of residents. Oxford’s population increased significantly between 2001 and 2011 by 12% to 151,900. The occupational structure of Oxford shows a high proportion (61%) of the workforce is employed in managerial, professional and associate professional jobs; which is slightly higher than Oxfordshire and significantly higher than the South East and England as a whole. The contribution of Oxford’s workforce to the national economy (GVA per worker) is ranked 7th, as compared to the other 54 cities in England for gross value added (£58,150)2.

The proportion of economically active residents is comparable to other areas. The level of unemployment in Oxford is low, comparable to Oxfordshire but significantly lower than the South‐East and England. The workforce is Oxford is highly qualified with 60% of the working age population qualified to NVQ4 level and above to degree level; ranked 2nd compared to other cities in England.3

Employment in Oxford is dominated by the public sector and in particular education and health 54,000 (48%), which is significantly higher than Oxfordshire, the South‐East and nationally. This is

2 www.centreforcities.org 3 www.centreforcities.org

shown in the table below which shows employment by sector in 2014. It is important to recognise that public sector jobs are particularly vulnerable in times of austerity. Oxford has seen a strong growth in private sector jobs of 17.8% over the last five years, placing them in the top five of UK cities.4 This emphasises the importance of the ‘knowledge sector’, which is supported by its ranking amongst other major cities as 2nd, with some 67% people working within this sector.

Figure 7.1.1: Sectoral percentage of Oxford’s businesses

Oxford (%)

Oxfordshire (%)

South‐East (%)

England (%)

Agriculture and mining (A & B)

_

0.2

0.2

0.4

Energy and water (D & E)

_

0.8

1.1

1.1

Manufacturing (C)

3.6

7.1

6.2

8.5

Construction (F)

5.4

5.2

4.8

4.5

Wholesale and retail, inc motor trades (G)

9.9

15.2

17.0

15.9

Transport storage (H)

2.3

3.3

4.6

4.5

Accommodation and food services (I)

6.8

7.3

7.4

7.1

Information and communication (J)

5.5

4.9

5.8

4.1

Financial and other business services (K‐N)

15.8

22.2

22.5

22.2

Public Admin, education and health (O‐Q)

47.8

29.8

25.6

27.4

Other services (R‐S)

2.7

4.8

4.8

4.4

Source: ONS business register and employment survey 2014

Oxford’s economy does however have employment opportunities in other key sectors, such as publishing, BMW Mini Plant Oxford, and the retail and tourist sectors (although some of these are part‐time jobs). Oxford has pockets of unemployment and these coincide with those super output areas that are among the 20% most deprived areas in England. These areas, which are in Leys, Rose Hill, and Barton experience multiple levels of deprivation including, low skills, low incomes and relatively high levels of crime5. The background paper on Community Opportunities and Well‐Being focuses in more detail on these issues. From 2008 until the end of 2015, the estimated unemployment level in Oxford was approximately 4,700 (annual average)6. Around a half of those unemployed claimed Job Seekers Allowance (JSA) benefits. JSA is an unemployment benefit for those who are out of work and actively seeking work. In 2015, the claimant count was highest among the biggest working age cohort – those aged 25 to 49, followed by those aged 50 to 64. JSA claimants aged 16 to 24 has been the lowest among the three age cohorts since 2013.

4 Fast Growth Cities – The opportunities and challenges ahead (Centre for Cities March 2016) 5 2015 Index of Multiple Deprivation Report 6 JSA Counts: Office of National Statistics

Figure 7.1.2: JSA claimants in Oxford and those NEET

Source (Office for National Statistics)

A person is considered a NEET if they are aged 16 to 24 and not in education, employment or training. In Oxford, the proportion of the population that is NEET has declined since the end of 2012, after reaching a high of 11.3% in July 2009. Throughout 2015, the monthly NEET statistic averaged 4.2% or approximately 146 youths. This is higher than the average NEET rate of 2.6% across the other Oxfordshire districts.7 One of the impacts of the recession in the UK was to further exacerbate existing regional and local disparities, with areas such as Oxford suffering less than areas that were already struggling prior to the recession8. Oxford was well‐placed, with its diverse range of employers to deal with the recession and the city remained fairly buoyant throughout what was nationally and internationally a tough economic time. At the start of recession in April 2008 around 1,600 people were claiming JSA in Oxford. This stayed relatively stable until the height of the financial crisis in September 2008 at which point the number of people claiming rose, hitting a peak of around 3,000. It stabilised at around 2,900 until the end of recession in September 2009. At the start of January 2010 the number of claimants then began to fall; at the time of writing there are around 2,600 claimants9. Today there is a higher proportion of medium and large companies based in the city, as compared to Oxfordshire the South‐East and England. The job density (defined as the number of jobs in an area divided by the resident population aged 16‐64 in that area) within the city (1.08) is significantly higher than Oxfordshire and the South‐East; showing the high concentration of jobs in Oxford. Oxford has a significant ‘unmet’ housing need and issues real concerns about affordability with high house prices. These factors together with the very low unemployment numbers means that the local labour market is subject to problems of both recruitment and retention of staff in Oxford.

An analysis of travel to work patterns (2001‐2011) shows an increase in inbound commuters from outside the district mainly by car. In fact, almost half of Oxford’s workforce (45,900 people or 46%) commuted into the area in 2011 and despite an increase in absolute numbers (an additional 5,800 people), this is a lower proportion than in 2001. The greatest number of inbound commutes, and

7 NEET Count: Oxfordshire County Council Early Intervention Service 8 Centre For Cities (2012) Cities Outlook 2012 9 Department of Work and Pensions, 2010

the greatest increase in number of journeys since 2001, is from the Vale of White Horse: 10,800 commutes, which 1,100 more than in 2001. Interestingly, outbound commuting has also risen since 2001 however it is below the growth in inbound commuting. 16,000 residents employed Oxford residents (23%) travel out of the district to work. This is an increase of 1,900 since 2001. The greatest number of outbound commutes from Oxford was to the other Oxfordshire Districts and London, with the Vale of the White Horse as the most common destination.

Within Oxford commuting by bicycle, on foot has increased by almost a third and bus use increased by 11%. Outbound commuters from Oxford to other destinations, such as London, have increased by train and bus.

Likely trends without a new Local Plan Oxford’s population is forecast to rise to 186,000 by 2031 and there is forecast to see growth in employment within the city by an additional 24,300 jobs to 2031. A range of forecasts was produced from 36,400 jobs in the Baseline, up to 88,000 jobs in the Planned Economic Growth forecast across the County. For Oxford the range was between 4,600 jobs in the Baseline, up to 24,300 jobs in the Planned Economic Growth forecast. For Oxford the Planned Economic Growth projections show that in 2031 Oxford will have 147,600 jobs, an increase of 24,300 from the 2011 figures. This equates to an increase in jobs of 0.9% pa. The report included the following commentary about the planned economic growth scenario stating “Sustained economic growth of 1% pa over a 20 year period would be an achievement, especially in the current economic environment, but by no means unprecedented”. The report found that this significant growth in employment will take place in the education (university related), bioscience and healthcare and retail sectors. There is also likely to be an increase in corporate R & D linked to the Universities, the most likely being biomedical, engineering and computing. There may be a slight decline in publishing. The report estimated that this will generate growth of 8,100 jobs above trend all of which would be accommodated within existing employment‐generating sites.10 It is likely that the city will retain its policy of protecting key employment sites as there is likely to continue to be pressure to develop employment sites for housing. An Article 4 Direction was recently implemented to stop the loss of Oxford’s key protected employment sites through permitted development, to housing. Given Oxford’s housing shortage it is important that a balance of employment land and housing sites are maintained in order to ensure that Oxford’s growth continues in a balanced manner. The new Local Plan will need to explore options and find the appropriate balance between new housing and jobs in order that Oxford continues to evolve in a sustainable manner.

10 Economic Forecasting to Inform the Oxfordshire SHMA (Cambridge Econometrics, 2014)

Sustainability/Plan Issues It is unlikely that significant new sites will be identified for employment, the focus will

more likely be on redevelopment and renewal of existing sites.

Ensuring sustained economic growth will be important in order that Oxford maintains its position provides for its population.

Ensuring the right balance of employment and housing growth is fundamental to ensuring Oxford’s growth.

Retail, District Centres and City Centre

Introduction Whilst the focus of town centres has traditionally been on retailing, more recently attention has

been given to the other varied roles of centres. This refocus reflects a number of trends including

the pressures on retailing and the sustainability of access to centres. Instead of now seeing centres

as solely (or even primarily) places to shop, the trend is to identify the opportunities that centres

have to offer in terms of accommodating:

residential developments – city centre (and smaller centre) living continues to be attractive

and offers additional benefits in terms of sustainable travel, such centres can successfully

accommodate car‐free developments, (also see Background Paper 1: Housing)

employment developments – centres are seen as attractive locations by employees who can

access other services at lunchtime for example (also see economy paper)

education and research – for similar reasons as above, workers and students can benefit

from the amenities available and particularly in Oxford, Oxford University is very focused in

the city centre (also see Background Paper 13 Employment and Economy and Background

Paper 5 Students and Language Schools)

tourism – the city centre will continue to be the focus for tourism trips to Oxford, the

volume of visitors mean that this is a significant factor and the implications need to be

considered (also see Background Paper 6: Tourism)

transport solutions – in Oxford the city centre currently plays a crucial role in the public

transport network, many bus routes start and end in the city centre and it plays an

important interchange role. In the future other centres could play a greater part in this role

to enable interchange outside the city centre and thereby easing pressure (also see

Background Paper 9: Transport)

Plans, Policies and Programmes National Planning Policy Framework (NPPF) and Planning Practice Guidance (PPG) The NPPF has policies on how Local Plans should consider town centre uses and how planning

applications for town centre uses should be considered. In the Glossary, the NPPF defines main town

This topic addresses: SA Objective: (14) To achieve sustainable economic growth (including the development and expansion of a diverse and knowledge‐based economy) (2) To encourage urban renaissance by improving efficiency in land‐use, design and layout and to create and sustain vibrant communities SEA Theme: Material assets

centre uses 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); offices; and arts, culture and tourism development (including

theatres, museums, galleries and concert halls, hotels and conference facilities).

The NPPF says that planning policies should promote competitive town centre environments and set

out policies for the management and growth of centres over the plan period. In drawing up Local

Plans, local planning authorities should:

● recognise town centres as the heart of their communi es and pursue policies to support their

viability and vitality;

● define a network and hierarchy of centres that is resilient to an cipated future economic changes;

● define the extent of town centres and primary shopping areas, based on a clear defini on of

primary and secondary frontages in designated centres, and set policies that make clear which uses

will be permitted in such locations…

The PPG and NPPF say that Local Plans should assess and plan to meet the needs of main town

centre uses in full, and they should also take a ‘town centre first’ approach when allocated sites to

meet the predicted need for town centre uses, with well‐connected edge of centre sites to be

considered if there are not enough town centre sites. This positive approach should include seeking

to improve the quality of parking in town centres and, where it is necessary to ensure the vitality of

town centres, the quantity too. Local Plans should also recognise that residential development can

play an important role in ensuring the vitality of centres…

The NPPF says that the approach to determining planning applications, where a town centre use

such as retail is proposed on a site that is not allocated for that use in a Local Plan, should be to:

• First carry out a sequential test for town centre uses‐ if not an allocated site, development

should be, in order of preference:

– In town centre (or district centre)

– Edge of centre

– Out of centre

• Then, if no alternative site is available in a town centre location an impact assessment

should be carried out to assess the impact on vitality and viability of town centres over a 5

and/or 10 year period

The General Permitted Development Order (GPDO) The GPDO 2015 came in to force in April 2015. This allows some changes of use from retail to other

uses without planning permission being required, including: • A new non‐time limited permitted change of use from retail premises (A1) to financial and

professional services (A2), and restaurants and cafes (A3); • Permitted change of use from retail (A1) to assembly and leisure (D2) (this is subject to prior

approval); • Permitted change of use of A1 to C3 (residential development) (this is subject to ‘prior

approval’).

Planned Developments in the City Centre The city centre is currently experiencing significant change and investment. The redevelopment of

Frideswide Square was completed in December 2015; October 2017 will see the redeveloped

Westgate Shopping Centre open its doors to an 800,000 sq. ft. retail and leisure destination,

increasing retail provision in the city centre by over 50%; the Station Masterplan, Oxpens

redevelopment; and public realm improvements are also in various stages of project planning.

Current Situation Oxford’s centres Oxford’s city centre is currently defined on Oxford’s Policies Map and broadly extends from the railway line to the West, to Longwall Street in the East; and from St Giles in the North to the River Thames in the South. In addition to the City Centre, the Policies Map also defines 5 District Centres at Summertown, Headington, Cowley Road, Cowley Centre and Blackbird Leys. The Local Plan 2001‐2016 contains polices that restrict planning permission for uses other than A1, with the aim of maintaining a proportion of A1 above 75% in the primary shopping area of the city centre and above 65 % in district centres. The table in Figure 7.2.1 below shows the % of units in A1 use (retail) in the city centre primary retail area and at other retail locations in the city. It also shows the % of vacant units. Vacancy rates in district centres and the city centre are generally low, and all below the national average of 10%. The surveys were undertaken in January 2016.

Figure 7.2.1: table to show the % of vacant units and units in A1 use in main shopping areas in Oxford

Location % of units vacant % of units in A1 use

City Centre Primary Shopping Area

4 78

City Centre Secondary Shopping Frontage

3 50

Headington 7 62

Summertown 6 63

Templars Square 6.5 72

Making successful centres Successful centres are often easy to identify but the factors that make them successful can be less

so; there are a range of interlinked factors that can help in making a centre successful. The first,

more obvious factor is that of development. In Oxford there are many schemes either underway or

planned in the city and district centres (e.g. Westgate, ROQ, Oxpens, Cowley Centre, Blackbird Leys

centre etc). Such schemes will clearly have an important role to play in the quality of the local area.

Other factors that help make centres successful include:

Active management – To help promote the city centre the City Council has in place a City

Centre Manager, Town Team and City Centre Ambassadors

Investment and partnership working – aligning public and private sector funding and using

that to attract government funds

Infrastructure improvements – public transport improvements, public realm investment, wi‐

fi facilities etc. Many such schemes are complete, underway or in the early stages of

planning. Enhancements to the public realm in Summertown and Headington have taken

place in recent years, and changes linked to the Westgate are underway or being planned in

the city centre

Marketing and promotion – arts and events, linked trips, encouraging people to stay and

spend a little more in the centres

Cleanliness and maintenance – waste collection, litter and fines; washing;

Inclusiveness and safety – accessibility (surfaces, levels and seating), civilising streets (shared

spaces and crossings), safety (CCTV and lighting)

Place making and character – enhancing the historic and contemporary character, quality

planting and landscaping

Jobs in retail and other town centre uses The proportion of jobs in wholesale and retail is lower in Oxford than Great Britain and the South

East, as shown in Figure 7.2.2 below. The proportion in Oxford remained relatively steady from 2009

to 2013, at around 10% (compared to around 16% in Great Britain). The proportion of jobs in

accommodation and food services (as shown in Figure 7.2.3) is much closer

Figure 7.2.2: Graph showing the proportion of jobs in wholesale and retail, including motor trades

Figure 7.2.3: Graph showing the proportion of jobs in accommodation and food services

Likely trends without a new Local Plan Vacancy rates and footfall In the past few years Oxford has gone from being the fifth to the seventh most visited city in the UK.

Over the past 18 months footfall in the city centre has reduced by over 6%. This drop is nearly twice

as much as the national average. The decrease in footfall can probably be attributed to a number of

factors including significant roadworks. Over the year commuters have been faced with substantial

delays on many arterial roads leading into the city centre. This has and continues to create a

perception amongst many that it is easier to access and shop elsewhere. Although most of the

roadworks have ceased, many local’s preferred shopping destinations are now somewhere else and

without being provided with reasons as to why they should come back to the city centre they are

unlikely to do so before the Westgate reopens. Unless footfall and sales figures improve in the next

18 months some of the smaller businesses claim they will not survive to take advantage of any

increased footfall created once the Westgate opens.

Figure 7.2.4: Designated retail frontages – proportion of vacant units 2011/12‐2014/15

0%

2%

4%

6%

8%

10%

12%

City Centre CowleyTemplar Square

Cowley Road Headington Summertown

2011/12

2012/13

2013/14

2014/15

Changing Consumer Habits Less than 50% of sales are now on the high street (over 50% of sales are out of town and online).

Online retail expenditure in the UK is forecast to reach £62.7bn by 2020, which would account for a

predicted 17.1% of total retail sales. This would be an increase from the approximately 13‐14% in

2015. While the popularity of online retail continue to grow, it does seem that the market is

maturing, with 2015–20 growth 37.4 percentage points lower than in the preceding five‐year period.

Figure 7.2.5 Graph to show the % of internet sales as a total of UK retail sales

Data from ONS

The High Street still has a part to play despite the strong desire for convenience, and modern day

consumers are still willing to swap online shopping with in store as they get to feel, touch and smell.

The convenience of online shopping means that environment and experience is now more important

than ever in attracting customers. Modern retailers and shopping centres have to compete for

customers’ attention and this is leading to diversification. For example, clothes stores are combining

themselves with eateries, shoe shops are using technology for customers to design their own

footwear in‐store and some shops even offer a concierge service so shoppers can book a theatre trip

or an exercise class.

Online‐only retailers are increasingly looking for physical outlets to service click‐and‐collect and as

‘showcase stores’ which are a reaction to customers’ desires to touch products before purchase and

to create affinity with their brands. It is likely to be main shopping centres that benefit from this. The

economic recovery is helping retail sales, but the shopping centres that benefit will be regional

centres and those that have a strong draw beyond retail.

http://www.spring‐board.info/updates/article/BRCfvmnews‐april‐2015

Loss of Retail through Permitted Development and changes to the proportion of retail In 2014, the government introduced permitted development rights in England allowing the

conversion of certain retail units into residential accommodation. However, figures released by the

Department for Communities and Local Government (DCLG) show that only 402 schemes took

advantage of the 2014 change in the GPDO that allows conversion of certain retail units into

residential accommodation in the nine months following its introduction. This equates to an average

of just 1.3 applications per council.

As the table in figure 7.2.6 below shows, the proportion of retail units at ground floor level on

Oxford’s designated frontages has remained fairly consistent in recent years, with no significant

change since the new legislation was introduced. Targets for the city centre and Cowley Centre are

exceeded, and Headington and Summertown are very close to their targets. The exception to this is

Cowley Road, which has a much higher proportion of food and drink premises. Whilst this means

that levels of retail fall below Local Plan targets, these other uses make a strong contribution to the

character and vibrancy of this area.

Figure 7.2.6: proportion of retail units at ground floor level on Oxford’s frontages

Local Plan Target

Jan 2016 2014/15 2013/14 2012/13 2011/12

City Centre

Primary shopping frontage

75% 78% 78.19% 77.73% 78.57% 79.15%

Secondary shopping frontage

50% 50% 50.00% 52.27% 51.88% ‐

District Shopping Frontages

Cowley Centre (Primary district centre)

65% 72% 73.91% 74.73% 74.71% 74.42%

Cowley Road 65% 57% 58.49% 50.33% 58.49% 58.49%

Headington 65% 62% 63.39% 64.29% 63.40% 63.72%

Summertown 65% 63% 63.00% 64.00% 64.36% 64.36%

Prospective new schemes to enhance the city centre The City Council intends to bring forward developments in George Street and other landowners are

in the early stages of planning, such as Jesus College in Cornmarket. This growth is expected to have

a positive impact on the economic success of the city, including providing additional employment,

living and commercial space opportunities and it should also provide greater visitor numbers, an

increase in dwell times, encourage existing customers to shop for longer, create more public spaces

and reduce the current ‘leakage’ of shoppers to other destinations such as Oxford St, London, Milton

Keynes and Reading.

Sustainability/Plan Issues Retail will continue to be an important part of thriving town centres. However the city and

district centres will need to ensure there are a wide range of uses to complement it and

ensure longer dwell times.

To attract people away from online shopping, city and district centres should have an

attractive public realm, a range of activities and flexible venues.

Oxford will continue to need to complete with other towns and cities, to do so the many

elements of what Oxford has to offer will need to be promoted.

Regeneration and Economic Revival

Introduction Cities are dynamic. Their roles change and evolve over time. Some sites or areas may fall into decline

when they are no longer able to meet current needs or fulfil their full potential. Regeneration is a set

of actions that reverse the physical, economic and/or social decline of a site or area. Often a long

term programme of intervention is required to facilitate this where market forces would not do so

on their own. The causes of decline are often complex and interlinked, and intervention is likely to

be most successful when different organisations work together towards a shared goal (for example:

local authorities, the NHS, police, education providers, private organisations and

voluntary/community groups).

Whilst Oxford is generally a prosperous city with world renowned academic, medical and research

facilities, there are parts of the city that suffer from deprivation and are in need of positive change.

There are also areas of the city that are underperforming in terms of meeting the city’s current and

future needs and making an efficient use of land. Regeneration of specific areas of the city is needed

to ensure that Oxford maintains its status as a world class city and that it meets the needs of its

current and future population.

Plans, Policies and Programmes

National Planning Policy Framework (NPPF)

Planning should encourage the efficient use of land by reusing land that has been previously

developed, provided that it is not of high environmental value (Paragraph 17).

In drawing up Local Plans, local planning authorities should identify priority areas for economic

regeneration, infrastructure provision and environmental enhancement (Paragraph 21).

Pursuing sustainable development involves seeking positive improvements in the quality of the built,

natural and historic environment, as well as in people’s quality of life, including replacing poor

design with better design and improving the conditions in which people live, work, travel and take

leisure (Paragraph 9).

The Oxfordshire Strategic Economic Plan (2014) (Oxfordshire Local Enterprise Partnership)

(Currently being refreshed)

Vision: “By 2030 Oxfordshire will be recognised as a vibrant, sustainable, inclusive, world leading

economy driven by innovation, enterprise and research excellence.”


SA Objective: (14) To achieve sustainable economic growth (including the development and

expansion of a diverse and knowledge‐based economy)

Oxford is the key engine for growth for the Oxfordshire economy and a national economic asset.

Oxford is an international brand, a global seat of education, learning and research, a centre of

engineering and scientific excellence, a world leader in automotive and advanced manufacturing,

publishing, health care and life sciences and an iconic tourist destination. This diversity has helped

Oxford remain resilient throughout the global economic recession.

Despite being generally prosperous, Oxford has local concentrations of deprivation which can be

masked by wider averages. In general, the south and east of the city is relatively more deprived than

the north and centre of the city, with Blackbird Leys, Littlemore, Barton and Sandhills having

relatively high levels of deprivation. The disparity between the city‐wide trends and more localised

realities indicates that Oxford performs highly in terms of jobs and skills, but requires investment in

education and connectivity to narrow the gap between job opportunities and the labour pool, and to

deliver opportunities for all. Relative low wages and absence of sufficient affordable housing

provides a barrier to attracting new business and attracting the right mix of labour to work in

Oxford’s enterprising economies. Successful places help to create successful businesses.

Oxfordshire 2030: A partnership plan for improving the quality of life in Oxfordshire

(Oxfordshire Partnership)

This is the Sustainable Community Strategy which demonstrates how local organisations and

agencies will work together to improve the economic, social and environmental well‐being of their

area.

“By 2030 we want Oxfordshire to be recognised for its economic success, outstanding environment

and quality of life; to be a place where everyone can realise their potential, contribute to and benefit

from economic prosperity and where people are actively involved in their local communities.”

A key aspect of the ambition is to “Break the cycle of deprivation by addressing the regeneration

needs of disadvantaged communities; reducing the gap between the best and worst off and

supporting people to maximise their talents and raise their aspirations.”

A Regeneration Framework for Oxford to 2026 (Oxford City Council)

The regeneration objectives for Oxford are:

to reduce inequalities between citizens;

to increase the supply of housing, particularly affordable housing;

to create places where people wish to live;

to increase skills and promote skills development;

to provide sustainable jobs for all through economic growth in central Oxfordshire;

to improve connectivity between employment, housing and those seeking employment.

The current situation

Key regeneration challenges for Oxford are: responding to rapid population growth within the

capacity of the city; the shortage and affordability of housing; connecting local people to

employment opportunities; encouraging inward investment and business retention; and supporting

new business start‐ups.

Figure 7.3.1: Oxford’s current regeneration areas

Source: A Regeneration Framework for Oxford to 2026

THE WEST END

The West End is an important part of Oxford’s city centre, however it is currently underutilised and

its offer does not match Oxford’s international reputation. The regeneration of the West End is

important to the long‐term success of the whole City.

An Area Action Plan (AAP) has been produced to guide development and change in the West End

and is a key part of this regeneration project (adopted 2008). The vision for the West End is to

deliver high quality, mixed‐use development appropriate to its location and role. The regeneration

of the West End is not just about buildings and their uses, but about creating an exciting, vibrant city

centre location that supports strong, healthy, sustainable communities.

The West End is made up of a large number of individual sites. Many are currently in use and are

under different landownership. Sites will therefore become available for redevelopment at different

times. It is important that there is a consistent approach across the West End in order to achieve the

AAP vision. The City Council will need to work closely with relevant land owners to achieve this.

Key development projects that are currently planned, in progress or have been delivered in the West

End are:

Oxpens

The Oxpens site is the largest remaining development area in the city centre and holds

significant potential to deliver new homes and jobs. A Supplementary Planning Document (SPD)

has been produced that sets out a development framework and masterplan for the area to

ensure it meets its full potential in a way that complements and supports the vision for the

wider West End area (adopted 2013). In March 2016, Oxford City Council and Nuffield College

formed a joint venture company to bring together the land in the Oxpens area in preparation for

comprehensive redevelopment.

Westgate Planning permission has been granted for the expansion and redevelopment of the Westgate

Shopping Centre to include a variety of retail and leisure uses as well as residential and public

realm works. This is an important development for Oxford that will significantly boost its appeal

as a retail and leisure destination in line with the city’s world class reputation and aspirations.

Development commenced on site in early 2015 and is expected to be completed by autumn

2017.

Oxford Railway Station Accessibility and connectivity are key enablers of growth and prosperity. Oxford Station is a

gateway to the city, but is in need of significant upgrading as operational and passenger needs

will soon surpass the station’s current capacity. The redevelopment of Oxford Railway Station is

a major opportunity to deliver a first class multi‐modal transport interchange that meets the

aspirations of the city and supports economic growth. A masterplan for the station has been

produced and initial stakeholder consultation undertaken. Work is currently underway to secure

the funding required to deliver this project.

Frideswide Square Frideswide Square is a high profile public area in the city. Tens of thousands of cars, buses,

cyclists and pedestrians pass through each day and it is the first point of welcome for rail

passengers arriving in Oxford. Previously this area was dominated by road junctions and traffic

and did not provide a high quality environment in keeping with Oxford’s status and aspirations.

The County Council have led the regeneration of this site, reducing the dominance of vehicles

and transforming it into a much enhanced, high quality public space.

BARTON

Key statistics (2011 Census)

Population 3,748 people (an increase of +829 since 2001)

Households 1,480 households (15% headed by lone parents, double the Oxford average)

Diversity 37% of residents from non‐white British ethnic groups (was 14% in 2001)

Housing tenure

Historically built as a social housing estate. 46% of households still rent their home from the council or a housing association.

Education 45% of residents have low or no qualifications (Oxford average is 22%)

Poverty and deprivation

36% of children living below the poverty line (22% Oxford average). 38% of older people living below the poverty line (Oxford average is 17%)

Barton is one of the most deprived areas of the city. It is currently identified as a priority area for

regeneration in the Oxford Core Strategy 2026. The aim is that new residential development at the

Barton strategic site will be a catalyst for change for the existing communities of Barton and

Northway in terms of physical integration, improved accessibility, new community facilities and

additional people to make services more viable. An Area Action Plan (AAP) has been produced to

guide the development of the strategic site and a key objective is to support the wider regeneration

of neighbouring estates, including:

Safer and easier to use cycle and pedestrian access between Barton and the rest of Oxford;

Improved bus connections;

New neighbourhood facilities and services shared by residents in existing and new

communities and acting as a focal point for integration;

Pockets of under‐used or neglected land brought back into use; and

Job and training opportunities such as building apprenticeships.

Significant progress has been made in bringing forward new homes at the Barton strategic site.

Outline planning permission was granted in September 2013 and a reserved matters application for

works needed to prepare the site for development was approved in February 2015, with work

commencing on site in summer 2015. Reserved matters approval for Phase 1 of the development

(237 dwellings) was granted in early 2016, with work on Phase 1 due to commence on site in

summer 2016.

BLACKBIRD LEYS


Population 13,068 people (increase of +872 since 2001)

Households 5,100 households (nearly 20% headed by lone parents)


Housing tenure

Historically built as a social housing estate. 50% of households still rent their home from the council or a housing association.

Education More than 50% of residents have low or no qualifications (Oxford average is 22%).


34% of children living below the poverty line (22% Oxford average). 25% of older people living below the poverty line (Oxford average is 17%).

Blackbird Leys is a residential estate on the southern edge of Oxford’s boundary. It is one of the

most deprived areas of the city and is identified as a priority area for regeneration in the Oxford

Core Strategy 2026. The Blackbird Leys regeneration project aims to link physical redevelopment

with social improvements to achieve maximum benefits. This is to be achieved by:

Embedding the community in the project from the start of the procurement and

masterplanning processes;

Bringing together public services to share space and share knowledge;

Investigating new ways of making housing available for key workers such as teachers,

nurses, technicians and others;

Setting up a learning programme for school pupils and young people about the regeneration

project;

Undertaking a study into the best practice design and management of flatted properties;

and

Seeking to understand more about our elderly residents' motivations for downsizing and

how this might free up more homes for families.

An important element of the project is the redevelopment of Blackbird Leys district centre. This area

was constructed in the 1950s and '60s, with many of the buildings now suffering from significant

deterioration. In particular the retail block and community centre are nearing the end of their design

life and carry significant maintenance liabilities. The poor quality public realm, dominated by the

highway, and fragmented land uses are unattractive and represent inefficient use of land which

could be better used to address the housing shortage. The City Council is now exploring options for a

regeneration partner to help deliver the project.

NORTHWAY


Population 1,500 people (Increase of +82 since 2001)

Households 630 households (8% headed by lone parents)


Housing tenure

39% of households rent their home from the council or housing association




Northway is located on the north‐east outskirts of the city. It is one of the most deprived areas of

the city and is identified as a priority area for regeneration in the Oxford Core Strategy 2026. The

regeneration of Northway is closely linked to the Barton strategic site. Northway will also be able to

share benefits of improved access, including buses, and new neighbourhood facilities.

ROSE HILL



Households 1,242 households (14% headed by lone parents)

Diversity 42% of residents from non‐white British ethnic groups (was 21% in 2001).

Housing tenure

49% of households rent their home from the council or housing association.

Education 49% of residents have low or no qualifications (Oxford average is 22%).



Rose Hill is one of the most deprived areas of the city and is identified as a priority area for

regeneration in the Oxford Core Strategy 2026. Rose Hill has been the focus of a number of

regeneration projects over the last 7 years. The housing stock regeneration programme that

involved the redevelopment of life‐expired houses to provide 254 new residential units (113 market

and 141 affordable) was completed in 2011. A new community centre has also been delivered,

providing a range of facilities including a gym, meeting rooms, social club, advice centre, and youth

area.

WOOD FARM



Households 1,242 households (14% headed by lone parents)


Housing tenure

49% of households rent their home from the council or housing association




Wood Farm is one of the most deprived areas of the city and is identified as a priority area for

regeneration in the Oxford Core Strategy 2026. The redevelopment of the Wood Farm primary

school/Slade nursery school site to include enhanced facilities for the wider community was

completed in 2013. Planning permission has also been granted for upgrading works to Foresters

tower block.


Barton, Blackbird Leys, Northway, Rose Hill and Wood Farm and continue to be priority areas in need

of regeneration. Whilst some important steps have been taken to deliver positive change in recent

years, these are complex, long term regeneration projects that need tackle multiple issues of

deprivation. More time is needed to deliver required development and infrastructure and for the

social, environmental and economic benefits to be realised.

Similarly, whilst progress has been made against a number of key projects in Oxford’s West End,

further change is needed to help this area of the city centre meet its full potential. These projects

will also take time to plan and deliver.

Sustainability / Plan Issues: The diverse nature of Oxford’s economic base has helped the city to be resilient in the face

of recession and it is important to maintain this.

The overall prosperity of Oxford masks localised areas of deprivation. Progress made in

regeneration areas needs to be maintained to fully realise this change.

Physical regeneration interventions need to be supplemented with social, economic and

environmental changes.

Sustainable tourism

Introduction Oxford is a significant player in the British tourism economy. It is the seventh most visited city in the UK by international visitors and is the tourism gateway to the rest of Oxfordshire. The city attracts approximately 7 million visitors per year, generating £780 million of income for local Oxford businesses. Oxford is a major draw for visitors from overseas and also for domestic tourists and day visitors. As well as the significant financial and profile benefits of Oxford’s popularity with tourists, the volume of visitors does make additional demands on the city’s infrastructure, in particular transport, but also the pressure of hotel and other tourism uses competing for development sites amongst other uses.

Plans, Policies and Programmes NPPF The NPPF only has one relevant reference to tourism, and this is in the context of town centres: “Planning policies should be positive, promote competitive town centre environments and set out policies for the management and growth of centres over the plan period. In drawing up Local Plans, local planning authorities should:

allocate a range of suitable sites to meet the scale and type of retail, leisure, commercial, office, tourism, cultural, community and residential development needed in town centres. It is important that needs for retail, leisure, office and other main town centre uses are met in full and are not compromised by limited site availability. Local planning authorities should therefore undertake an assessment of the need to expand town centres to ensure a sufficient supply of suitable sites” (paragraph 23).

The current situation Overseas tourism The Office for National Statistics’ International Passenger Survey collects data on visits by overseas residents to UK towns and cities (where visitors report spending at least one night during their trip). It is possible to track the pattern of overseas visits over time and Oxford’s relative ranking against other British towns and cities.

This topic addresses: SA Objective: (16): To encourage the development of a buoyant, sustainable tourism sector

Figure 7.4.1: Overseas visits to Oxford

Total number staying visits of overseas visitors

City ranking

1999 390,000 6

2000 410,000 6

2001 360,000 6

2002 390,000 6

2003 360,000 6

2004 400,000 6

2005 437,000 7

2006 449,000 7

2007 460,000 8

2008 437,000 8

2009 416,000 8

2010 412,000 7

2011 465,000 7

2012 430,000 7

2013 454,000 7

2014 489,000 7

This data can also be interrogated by country of residence, for 2014 this can be summarised as:

Figure 7.4.2: Origin of overseas visitors to Oxford in 2014 Oxford 2014 Total

visits

Western Europe 255,000

North America 71,000

Asia 48,000

Australasia 32,000

Eastern Europe 32,000

Middle East 6,000

South America 5,000

Africa 5,000

Central America 1,000

Other 35,000

The survey also provides information on type of stay, nights spent and expenditure although these details are only provided at an Oxfordshire level. To mitigate this difference in the basis of the data the following aspects are expressed as percentages rather than actual numbers. For comparison purposes, visits to Oxford make up something like 77% of the Oxfordshire total; the total number of overseas staying visits to Oxfordshire 2014 was 631,568 compared to 489,000 for Oxford more specifically.

Figure 7.4.3: Details of overseas visits to Oxfordshire 2014

Seasonality of visits (Oxfordshire 2014)

% of all visits % of all nights stayed % of all spend

Jan‐Mar 17.65% 19.49% 15.76%

Apr‐Jun 25.50% 24.61% 22.24%

Jul‐Sep 39.84% 38.07% 40.89%

Oct‐Dec 17.01% 17.83% 21.10%

Journey Purpose (Oxfordshire 2014)


Holiday 36.94% 24.64% 25.04%

Business 23.65% 19.32% 31.33%

Friends/Relatives 29.85% 29.56% 14.19%

Study 6.10% 24.79% 26.62%

Misc 3.46% 1.70% 2.81%

Duration of stay (Oxfordshire 2014)


1‐3 nights 28.75% 8.91% 15.75%

4‐7 nights 30.67% 17.81% 29.72%

8‐14 nights 23.21% 21.79% 20.05%

15+ nights 17.37% 51.49% 34.48%

Domestic tourism Visit Britain’s Great Britain Tourism Survey (GBTS) is a national consumer survey measuring the volume and value of domestic overnight tourism trips taken by residents of Great Britain. In 2015, British residents took 102.7 million overnight trips in England, totalling 300 million nights away from home, with an expenditure of £19.6 billion. £191 was spent per trip, and with an average trip length of 2.92 nights, the average spend per night was £65. Visit Britain’s Great Britain Day Visits Survey (GBDVS) measures the volume, value and trip characteristics of tourism day visits in Britain. During 2014, Great Britain residents took a total of 1,585 million tourism day visits to destinations in England, Scotland or Wales. Around £54 billion was spent during these trips. This is very similar to the volume of visits taken in 2013 (1,588 million tourism day visits). Total expenditure during these visits also remained stable year on year at £53.9 billion in 2013 and £53.8 billion in 2014. In 2014, visits to cities and large towns were most commonly for the purpose of seeing friends or family (20%), followed by special shopping (11%), eating out (10%), nights out (10%) and entertainment (10%). Data from the GBTS and GBDVS can be used at an Oxford level when expressed as a three year average.

Figure 7.4.4: Domestic visits to Oxford 2012‐2014

Oxford 3 year average (2012‐14)

Day visits

total visits 5,561,000

expenditure £205,000,000

All overnight tourism

total trips 646,000

total nights 1,526,000


Total tourism

total visits 6,207,000


Hotels Business rates data shows that there are 26 hotels and 46 guest houses in the city. The most recent study of Oxford’s hotels and short stay accommodation was produced to inform the Core Strategy in 2007. This study is now somewhat dated but does provide a detailed analysis of the sector in the city at that time. If this study were updated it would provide a good picture over the trends over time. In 2007 the city had 23 hotels and 74 guest houses together providing 2,416 rooms, 72.5% of which were at the hotels and 27.5% at the guest houses. (In addition there were 3 hostels, 34 serviced apartments, 61 self‐catering units and 6,500 rooms at the colleges.) In the previous 5 years the hotel supply had increased by 17.6% and the guest house supply had reduced by 6.9%. The study also looked at hotel developer interest: “Over 40 hotel developers, operators and investors were contacted to test their interest in investing in Oxford. Of the 30 responses received, all were interested in investing in Oxford. The interest ranged from 4 star and luxury offers through to ‘super budget’ hostels, and included emerging offers such as serviced apartments and budget boutique hotels. There was a general perception that the city is under‐hotelled and very difficult to get into…By far the greatest barrier to investment cited by developers and operators was the difficulty of securing sites, in terms of availability, values, competition from other higher value uses, and ownership and control.” Colliers UK publish a Hotel Market Index to identify which markets are attractive for both the acquisition of existing hotels and the development of new properties. The index analyses nine performance indicators of the hotel sector and ranks cities accordingly. (The performance indicators used are: GDP per capita; room occupancy; active pipeline as a % of current supply; land prices; 3 year revenue per available room trend; valuation exit yields; market appetite; build costs; average daily rate). Oxford ranks at number 28 in this analysis, scoring highly in the active pipeline, market appetite, average daily rate, and valuation yield criteria; but particularly poorly in build cost and land price. This would seem to support the developer interest findings of the 2007 study.

Visitor attractions Visit Britain’s Annual Survey of Visits to Visitor Attractions records visitor numbers at attractions; note the survey only features those attractions that choose to participate and make their results public.

Figure 7.4.5: Visits to selected visitor attractions in Oxford

In this survey, the four Oxford museums all ranked in the top 20 most visited free attractions in the South East: Ashmolean Museum (2), Oxford University Museum of Natural History (3), Pitt Rivers Museum (5) and Museum of History of Science (9).

Tourism as a source of employment The Economic Impact of Tourism on Oxfordshire Estimates for 2014 prepared by Tourism South East provides an assessment of the economic impact of tourism in Oxford.

Figure 7.4.5: Economic impact of tourism in Oxford Full time equivalent employment supported by tourism spending

Total 2014 Total 2013 % change

Oxford 9,746 9,356 4.20%

Actual employment supported by tourism spending

Total 2014 Total 2013 % change

Oxford 13,310 12,779 4.20%

Proportion of jobs sustained

Total employee jobs1 Total actual jobs supported

% of total workforce supported by tourism spend

Oxford 105,100 13,310 12.70%

1 The information comes from the Business Register and Employment Survey (BRES) an employer survey conducted by ONS in December of each year

Attraction 2010 visitors

2011 visitors

2012 visitors

2013 visitors

2014 visitors % 13/14

Ashmolean Museum

1,042,350

739,339

844,340

754,957

875,407 16.0

Cycle Tours Oxford / / / 200

550 175.0

Museum of the History of Science

181,586

183,738

189,044

175,778

184,551 5.0

Oxford University Museum of Natural History

522,731

554,159

548,672 /

644,747 n/a

Pitt Rivers Museum 337,496

349,787

372,542

338,494

423,603 25.1

Sheldonian Theatre 15,000

16,633

17,753

18,202

20,435 12.3

St Michael at the North Gate / / /

75,000

75,000 0.0

Trends It seems likely that Oxford will continue to maintain its position as a popular destination for overseas visitors, the past trend has shown little variation with the city being ranked between 6th and 8th most popular destination over a period of 15 years. In terms of domestic overnight tourism, the national trend is an upward growth in in the number of domestic trips (11% growth year on year) and corresponding growth in spend (8% growth, reaching an all‐time high in nominal terms). This may be in part due to economic circumstances with families in particular, swapping overseas trips for domestic ones. It seems reasonable to project that some growth will continue in this sector and that it would also be seen at an Oxford level. In contrast, the number of British day visits nationally has been steady over the last few years as has the total spend. Visit England has produced a report2 which identifies five sets of trends that will influence domestic tourism over the period to 2023 and beyond. These include:

population changes (including longer healthy life expectancy and a changing shape of families from horizontal to vertical i.e. families with more generations – but fewer people in each generation) which could mean more travelling older people and more cross‐generational groupings

economic recovery, it is unclear whether this would mean that the upward trend for domestic overnight visits continues, or is reversed, however the length of the downturn does seem to have imbedded some changes in behaviour including a new focus on value.

It seems likely that Oxford will continue to be an attractive destination for hotel operators and that if sites are available there would be a good degree of interest in their development and competition with other uses for sites.

Sustainability / Plan issues Tourists will continue want to access the city centre and the large number of day visitors (or

part‐day visitors) will mean many additional trips to the city centre with significant implications for traffic congestion and air quality.

The quality of the visitor experience is likely to become a more important factor in travel choices as more options become available and competition between destinations increases. Quality and management of public realm, availability and accessibility of attractions and services will be key.

Need to consider what priority hotel (and other tourism) uses are given in the plan due to latent demand and competing pressures for limited sites.

2 Visit England (2013) Domestic Leisure Tourism Trends for the Next Decade

8.TheSustainabilityAppraisalFramework

Introduction 8.1 The Sustainability Appraisal (SA) Framework provides a method by which the

sustainability effects of a plan can be adequately identified, described, analysed and compared. The SA Framework consists of SA objectives, decision‐making criteria and indicators.

8.2 The SA objectives provide a method by which to test whether the Local Plan will

yield the best possible outcomes in terms of sustainability. Essentially they are used to test the sustainability of the plan – its environmental, social and economic effects. The SA objectives therefore cover a full cross‐section of sustainability issues. The 16 objectives in Figure 8.1 consolidate, amend and update the previous set of 16 objectives that were set out in the previous LDF Scoping Report. The shortened list of objectives was developed in response to the appraisal process itself where there was an element of duplication during the assessment stage.

8.3 The decision‐making criteria consist of a series of questions which help expand the central focus of the SA Objectives, which are often open‐ended. The questions should be used to ensure that all the issues are considered as part of the assessment process and to address any ambiguities that may arise. They should not be considered as a definitive list when conducting the Sustainability Appraisal.

8.4 The success of the Local Plan 2036 in meeting the SA objectives can be monitored through a series of indicators that are also identified in the SA Framework. These indicators enable the sustainability effects of the Local Plan to be monitored. The indicators in Table 8.1 show how the proposed SA Objectives could be monitored in the future. Some objectives are monitored through the Annual Monitoring Report process.

8.5 The SA Objectives and indicators can be revised as baseline information is collected and sustainability issues and problems are identified.

Figure 8.1 – The SA Framework

SEA Topics SA Topic Sustainability Objectives

Decision‐making criteria – Will the option/ proposal help to…

Potential Indicators

Water, Climatic Factors

1. Flooding, Water

To reduce the risk of flooding and the resulting detriment to the public well‐being, the economy and the environment

Sustainably manage water run‐off, ensure that the risk of flooding is not increased (either on site or downstream) and where possible reduce flood risk

Number of planning permissions granted contrary to Environment Agency advice on grounds of flood risk or water quality. Number and proportion of completed new developments which will be at risk from fluvial, tidal surface water and sewer flooding indicated by the SFRA. Completed new developments which: ‐ incorporate SUDS discharge surface water to a watercourse ‐ discharge surface water to sewers and combined sewers

Population, Material Assets

2. Vibrant Communities

To encourage urban renaissance by improving efficiency in land‐use, design and layout and to create and sustain vibrant communities

Meet the day to day needs of residents near to where they live Respect, maintain and strengthen local distinctiveness and sense of place, and promote high quality urban design Respect, maintain and strengthen local distinctiveness and sense of place, and promote high quality urban design

Estimate of total population Population by broad age group (0‐15, 16‐ 64 and 65 and over) in absolute terms, and as a proportion of the total Resident satisfaction with (by location): ‐ Their home as a place to live ‐ The choice of housing in their area ‐ The quality of housing in their area Planning approvals for schemes which include provision of public art, by location and type




Material Assets, Population

3. Housing

To meet local housing needs by ensuring that everyone has the opportunity to live in a decent affordable home

Deliver affordable housing to meet local needs Provide a mix of dwelling sizes and types to support the local housing market Meet the needs of specific groups (e.g. elderly, disabled, young, families, etc.) Provide housing that is designed and constructed sustainably Provide housing that is adaptable to meet changing family needs and the changing climate

Housing approvals, completions and losses by location, type, affordable and greenfield / brownfield (within trajectory showing net additional dwellings per year from the start of the plan period) Net additional pitches provided in the reporting year, and total provision as a % of the identified need. (Gypsy and traveller provision)

Human Health, Population, Material Assets

4. Human Health

To improve the health and well‐being of the population and reduce inequalities in health

Provide accessible and appropriate healthcare services and facilities for all residents Provide opportunities to gain access to locally –produced fresh food Improve Health ranking on the indices of multiple deprivation

Rank of health deprivation and disability score, by local authority Adult participation in sport (% of total population) Proportion satisfied with their area as a place to live, by location, age, gender and ethnicity




Population, Material Assets,

5. Poverty, Social Exclusion, Crime, Inequality

To reduce poverty and social exclusion; reduce crime and the fear of crime

Minimise opportunities for criminal and anti‐social behaviour and the fear of crime Reduce social exclusion and reduce the number of wards in the least deprived 20%. Reduce disparities in well‐being across Oxford

Rank of crime score, by LSOA Rank of number of wards in least deprived 20%


6. Education

To raise educational attainment and develop the opportunities for everyone to acquire the skills needed to find and remain in work.

Provide suitable education for those who require it Facilitate skills and education enhancement Reduce disparities in education

Number of targeted recruitment and training agreements linked to development schemes, by type Rank of Education, Skills and Training Deprivation, by output area.

Material Assets,

7. Essential Services and Facilities

To provide accessible essential services and facilities

Increase the provision of essential services and facilities

Amount of new residential development within 10, 20 and 30mins travel time by public transport to a GP, hospital, primary school, secondary school, large employer, food stores, major retail Rank of Barriers to Housing and Services, by output area.

Landscape, Cultural Heritage

8. Green Spaces, Open Air

To provide adequate green infrastructure, leisure and

Provide an appropriate range of formal and informal sports and recreation facilities that are

Approvals, completions and losses of community, major sport, leisure and tourism developments, by location (in/edge/out‐of‐centre, and rural), type and size.




Sports and Leisure

recreation opportunities and make these readily accessible for all

accessible to all Provide a range of cultural, leisure and community facilities that are accessible by all

Proportion of residents satisfied with “Parks and green spaces” Number of allotment sites and plots Green Belt additions and deletions Planning applications and permissions advertised as departures from Green Belt policies

Biodiversity, Flora, Fauna,

9. Biodiversity

To conserve and enhance Oxford’s biodiversity

Protect and enhance internationally, nationally and locally designated habitats Protect and enhance priority habitats, and the habitat of priority species Protect and enhance priority habitats and the habitats of priority species Achieve a net gain in biodiversity Enhance biodiversity through the restoration and creation of well‐connected multifunctional green infrastructure

Changes in areas of ecological importance, comprising areas designated for their intrinsic ecological value, including sites of national, regional or local significance. This will include: Monitoring of the application of relevant Local Plan policies on SSSIs, Local biodiversity sites, LNRs, and RIGSs Monitoring the condition of the above designations. Monitoring of the application of relevant Local Plan policies on the Wildlife Corridor network.




Cultural Heritage, Landscape and Archaeology

10. Urban Design and Heritage

To protect and enhance the historic environment and heritage assets

Assess, record and plan archaeological features Preserve and enhance buildings and structures of architectural or historic interest Preserve and enhance the setting of cultural heritage assets Support access to, interpretation and understanding of the historic environment Protect and enhance important views into and out of the city Protect and enhance the setting of Oxford

Significant buildings and housing scheme audit 33. Change in the extent and quality of the historic built environment: Number of scheduled monuments, grade I, II*, II listed buildings, battlefields, historic parks and gardens, conservation areas and other heritage assets; Loss of, or addition to heritage assets Additions or removals from the risk register Recorded damage to heritage assets

Air, Climatic Factors

11. Transport, Air

To reduce traffic congestion and associated air pollution by improving travel choice, shortening journeys and reducing the need to travel by car/ lorry

Actively encourage ‘smarter choices’ including public transport, cycling and walking Provide appropriate travel choices for all residents including the needs of specific groups Improve Air Quality

Planning permissions granted with implementation of a travel plan as a condition of development, by location, type and size of development Mean reading (24hr / annual average) for NO2 within city‐wide AQMA Weekday traffic flows, river crossings and inner and outer Oxford cordons




Short and long stay car parking provision in existing centres

Water 12. Water Quality and Water Quantity and Soil

To maintain and improve water quality; and manage water resources

Protect groundwater, especially in the most sensitive areas (i.e. source protection zones) Maintain and where possible improve water quality Minimise water consumption and support sustainable levels of water abstraction Use land efficiently and minimise the loss of best and most versatile agricultural land

% of river length assessed as fairly good or very good for chemical quality and biological quality, by river. Water use per capita Amount of best and most versatile agricultural land. No of contaminated sites remediated through the planning process

Material Assets, Climate Change, Soil, Air, Population

13. Efficient Use of Resources (including Energy, Waste)

To increase energy and resource efficiency (including minimising waste) and renewable energy, with the aim of mitigating climate change

Reduce energy consumption from non‐renewable resources Generate energy from low or zero carbon sources Minimise carbon and other greenhouse gas emissions Increase supply of renewable and low‐carbon energy

Per capita CO2 emissions Installed capacity of renewable energy generating development by type % of new developments above relevant government scheme for sustainable development standards Capacity of decentralised energy networks, by installed capacity, and committed capacity




Encourage recycling of household waste Encourage recycling of materials and minimise consumption of resources during construction

Amount (tonnes) of municipal waste arising, by management type and percentage of municipal waste sent to landfill


14. Economy, Employment land demand and supply

To achieve sustainable economic growth (including the development and expansion of a diverse and knowledge‐based economy)

Provide accessible jobs Ensure an appropriate balance between jobs and housing is delivered Provide a range of jobs and premises Contribute to a low‐carbon economy Support the vitality and viability of nearby existing and proposed centres Support the vitality and viability of nearby existing and proposed centres

Business survival rate (annual VAT registrations minus de‐registrations / 10,000 population) Total number of jobs Proportion of working‐age residents in employment Amount of employment floorspace approved, completed and lost by size (m2), location (including allocated employment land / key employment area), type (use class) and greenfield / brownfield. Amount of employment land (ha) available by type and location Approvals, completions and losses of retail developments, by location (in/edge/out‐of‐centre, and rural) and gross internal floorspace (m2) Vitality and viability health checks of centres, including: total units and total floorspace (m2), and % vacant




units and % vacant floorspace Provision of new employment floorspace and an adequate employment and land portfolio to 2036

15. Regeneration Areas

To stimulate economic revival in priority regeneration areas

Improve employment opportunities for people in the most deprived areas? Reduce the number of people claiming unemployment benefit who have been out of work for more than a year?

Bespoke programmes of investment completed to provide improvements to regeneration areas (Barton, Blackbird Leys, Northway, Rose Hill and Wood Farm. and regenerate areas of the city including the West End. Projects currently underway include: E.g. Blackbird Leys District Centre Regeneration Oxford Station Masterplan Oxpens Redevelopment, Westgate Shopping Centre


16. Sustainable Tourism

To encourage the development of a buoyant, sustainable tourism sector

Increase the number of jobs in the tourism sector? Increase the number of visitors staying overnight? Increase the total number of visitors and spend?

Approvals, completions and losses of community, major sport, leisure and tourism developments, by location (in/edge/out‐ofcentre, and rural), type and size. Number of overnight visitors in Oxford Number of visitors to Oxford per year

8.6 The SEA Directive stipulates under Article 5(1) and Annex I that the Environmental Report prepared as part of the Strategic Environmental Assessment is to include information on the likely significant effects on the environment, including biodiversity, population, human health, fauna, flora, soil, water, air, climatic factors, material assets, cultural heritage (including architectural and archaeological heritage), landscape, and the inter‐relationship between these factors. Table 5.3 shows the extent to which the SA Objectives relate to these factors. In each case a number of SA Objectives relate to each SEA Directive issue.

Figure 8.2: Inter‐relationship between SEA Directive Issues and SA Objectives

SEA Directive Issue SA Objectives

Biodiversity 1, 8, 9, 11, 12

Population 1‐16

Human Health 4, 5, 6, 11, 14

Flora 1, 8, 9, 10, 11

Fauna 1, 8, 9, 10, 11

Soil 1, 8, 9, 11, 12

Water 1, 8, 9, 11, 12

Air 11, 13

Climatic Factors 1, 11, 13,

Material Assets 1, 2, 3, 7, 8, 10, 12, 13

Cultural Heritage (inc. architectural and archaeological)

1, 2, 8, 10, 16

Landscape 1, 2, 8, 9, 10

* These terms are not clearly defined by the SEA Directive

8.7 The internal compatibility matrix (Figure 8.3) was completed by considering each objective sequentially with all the other objectives and considering whether there was more likely to be a significant interaction between the two. There are likely to be many more interactions than those in the grid; meeting objectives is complicated and will involve numerous other effects. Indirect, uncertain, and insignificant effects have not been included (for example, if achieving an objective is likely to increase congestion it is also likely that it will conflict with aims to decrease air pollution, but this is an indirect effect and thus would not be identified).

Figure 8.3: Internal compatibility matrix

Sustainability Objectives

16 15 14 13 12 11 10 9 8 7 6 5 4 3 2 1

Sustainability Objectives

1 X /X /X X X

2 /X /X /X

3 /X X /X X X

4

5

6

7

8 X /X

9 X

10 /X /X /X

11 /X X Potential compatible

12 X Potential incompatible

13 /X Potential compatible or incompatible

14

15

16

8.8 Figure 8.4 below briefly outlines the potential conflicts highlighted in Figure 8.3 above.

Figure 8.4: Descriptions of potential conflicts between SA Objectives

Objective Objective/s potentially in conflict with

Description of potential conflict

1 (Reduce Flooding)

8 (to provide adequate green infrastructure) Both incompatibility and compatibility

Many of the green spaces within Oxford are wetland areas that require some flooding to maintain their nature conservation value and biodiversity. Care must be taken to ensure that any flood defence schemes proposed take this into account. On the other hand, increasing flooding could damage areas of countryside and biodiversity and some protection could be required to maintain their intrinsic value.

9 (biodiversity) Both incompatibility and compatibility

3 (Meet local housing need) In a city such as Oxford that has been built around crossing points over two rivers, there is a clear conflict between avoiding increasing flood risk and of building more housing within the existing urban area on previously developed land. Requirements for sustainable drainage systems, flood risk assessments and flood protection measures can help to mitigate this conflict.

2 (Efficient use of land)



14 (Economic Growth) Achieving economic growth can require the development of new employment sites as well as the modernisation of existing sites. In a compact city such as Oxford there are often competing development pressures for land sometimes employment land can be lost to other higher value uses and this can increase the demand for additional employment sites. Given the limited land resource available in Oxford this could mean that pressure for additional employment sites in areas of existing higher flood risk. This pressure can be increased because some small urban sites may be unsuitable for modern employment uses.

2 (Efficient use of land)

8 (green infrastructure) 9 (biodiversity) Both incompatibility and compatibility

Improving efficiency in land use can encourage urban renaissance and ensure other benefits, including helping to make good public transport viable. Ensuring high development densities can reduce pressure to develop open spaces. However the desire to concentrate development in Oxford, where there are good access to existing facilities and places of employment, can also lead to pressure to develop on green spaces, including back gardens which may cause harm to amenity and diversity.

10 (Historic Environment) Both incompatibility and compatibility

Ensuring high densities in Oxford may reduce pressure to develop within the historic core and other sensitive areas. However, high densities can also mean an increased pressure to build upwards and this has the potential to harm Oxford’s historic views if not managed sensitively.

3 (Housing Need)

14 (Economic Growth)

There are a limited number of sites for new development within the City and a limited number of existing employment sites that have the potential for further intensification in the built‐up area. Meeting housing need is likely to require the development of many available and suitable sites. As such a balance needs to be struck between employment and housing development



within the city. There is likely to be pressure to develop existing employment sites for housing.

9 (Biodiversity) 8 (To provide adequate green infrastructure)

There is a potential conflict between the need to protect sites for open space, nature conservation and biodiversity and the need to develop sites for much needed new housing.

8 (Green Infrastructure)

9 (Biodiversity) Potential incompatibility and compatibility

Protecting and enhancing the countryside often goes hand in hand with increasing biodiversity. However some nature conservation areas can be sensitive to recreational pressure and therefore a balance needs to be struck between attracting people to less sensitive areas of countryside and ensuring management of visitors to ensure that nature conservation sites are not damaged accidently by people visiting them.

10 (Historic Environment)

11 (Transport) Both incompatibility and incompatibility

The need to improve transport infrastructure could involve infrastructure that is unsuited to the historic environment or could involve potentially intrusive traffic being directed along streets that are unsuitable in terms of their sensitive historic environment. However improvements to the transport network that reduce any detrimental effect of traffic on historic streets and the potential for detrimental chemical effects of air pollution on historic buildings.

3 (Housing ) Both incompatibility and incompatibility

There is the potential that new housing and employment development, if not properly managed, could impact adversely on the historic environment. It is important that development is well‐located to reduce the need to travel by private car. However new development can also lead to investment and can lead to opportunities to restore historic buildings and make improvements to the historic environment.

14 (Economic Growth) Both incompatibility and incompatibility

13 (Resource Efficiency) Both incompatibility and incompatibility

Renewable energy infrastructure has the potential to conflict with the historic environment. However smart design and the incorporation of such technologies



within poorly maintained historic buildings could provide benefits to the historic environment. Sensitive design of renewable energy infrastructure also has the ability to mitigate any potential conflicts.

11 (Reduce Congestion)

16 (Tourism) Both compatibility and incompatibility

Tourism has the potential to create congestion, particularly if tourists access the city centre using the private car. It is essential that congestion is controlled in order that tourists are not discouraged from visiting as congestion can make an unpleasant environment, thus making visiting certain attractions an unpleasant experience. A difficult balance needs to be struck between allowing tourists ease of access whilst not adding to congestion in the city.

3 (Housing need)

Increases in development could lead to increases in congestion if not successfully mitigated. It is important that new development is well located in order to reduce the need the need to travel and that it is accessible by modes of transport other than the private car.



9 (Biodiversity)

There is a potential conflict between the need to protect sites for nature conservation and biodiversity and as open spaces for recreation and the potential need to develop employment sites to help achieve economic growth.

8 (Green Infrastructure)

9.SAReportStructure 9.1 The final report will be structured in line with the recommendations in Appendix 15

of the Government Guidance published in 2005. The suggested structure for the SA is set out below:

Figure 9.1: Suggested Report structure for the SA

Structure of the Report

Outline of Information Provided

Non‐Technical Summary

A non‐technical summary of the SA Report including a statement of the likely significant effects of the plan, any proposed recommendations and mitigation measures, a statement on the difference the process has made to date and how to comment on the report

1. Introduction An outline of the purpose and structure of the report An invitation to comment

2. Background Information on the requirements for an SA/ SEA Background on the Local Plan 2036 Plan objectives and an outline of contents Compliance with the SEA Directive/ Regulations

3. Appraisal Methodology

Approach to SA/ SEA When was the SA carried out? Who carried out the SA? Who was consulted, when and how outcomes of consultations taken into account

4. Baseline Information and Sustainability Objectives

Links to other policies, plans and programmes and sustainability objectives and how these have been taken into account Summary of the social, environmental and economic baseline characteristics and the predicted future baseline Summary of the main social, environmental and economic issues and problems identified Limitations of the information, assumptions made, etc. The finalised SA Framework, including objectives, targets and indicators Testing the plan objectives against the SA framework objectives

5. Assessing Options and Alternatives

Description of the main options considered and how they were identified Appraisal of alternative options including the ‘Do Nothing’ option How the SA process was considered when choosing the preferred options Any proposed mitigation measures

6. Appraisal of the preferred strategy

Appraisal of the preferred options Sustainability implications of preferred policies and spatial strategy Breakdown of secondary, cumulative and synergistic effects Proposed mitigation measures Uncertainties and risks

7. Implementation and monitoring

Links to other tier plans and programmes at the project level Recommendations and considerations for monitoring Review of existing monitoring framework Summary and next stages

10.ConsultationontheSAScopingReport

Listofconsultees 10.1 The Government has designated the Environment Agency, Natural England and

Historic England as “authorities with environmental responsibilities”15. These agencies must be consulted by plan making authorities on the content of the SA Scoping Report and SEA Requirements. The Regulations also specify that the consultation bodies are to be given a period of 5 weeks to respond from the date when they receive the Scoping Report.

RespondingtothisConsultation 10.2 Please send or email your response to the address details below. All responses

should be received by 11.59pm on Friday 5 August 2016. 10.3 Please email your response marked for the attention of Richard Wyatt to

[email protected] 10.4 Please submit any written responses to the following address:

FAO Richard Wyatt Planning Policy Team St. Aldate’s Chamber 109‐113 St. Aldate’s Oxford OX1 1DS

10.5 Please fax any responses to 01865 252144 10.6 If you have any questions or would like clarification on any aspect of this report

please contact Richard Wyatt

Email: [email protected] Phone: 01865 252704

10.7 The Scoping Report is also available on the website: www.oxford.gov.uk/localplan

15 Environmental Assessment of Plans and Programmes Regulations 2004, SI No. 1633

ConsultationQuestions 10.8 The consultation questions are set out at Figure 10.1.

Figure 10.1: Consultation Questions

Consultation Questions

Task A1 – Identification of relevant plans policies, programmes and sustainability objectives

1. Are there any key plans, policies and programmes and sustainability objectives that will influence or affect the plan (other than those set out in Section 4)?

Task A2 – Collecting Baseline Information

2. Do you agree that the baseline data collection (Chapter 4) is appropriate to the Local Plan 2036?

3. Do you have, or know of, any additional relevant baseline data which should be added to that already listed?

4. Are you aware of any inaccuracies in the data presented?

Task A3 – Identifying Sustainability Issues?

5. Do you agree that these are the key sustainability issues for Oxford?

6. Are you aware of any other sustainability issues which, in your opinion, should be added?

Task A4 – Developing the SA Framework

7. Are the Objectives, Decision‐Making Criteria and Indicators given in Table 5.1 appropriate?

8. Should any other Objectives, Decision‐Making Criteria or Objectives be added, or should any be removed?

9. Are you able to provide any indicators with baseline data that may help inform the Sustainability Appraisal?

10. How should we address the sustainability issues identified in the topic papers/ SA Baseline?

11. What alternatives do you think we can reasonably assess through the SA process?

Appendix1:TheSEADirectiveRequirements

Requirements Where covered in the SA Report

Preparation of an Environmental Report in which the likely significant effects on the environment of implementing the plan or programme, and reasonable alternatives taking into account the objectives and geographical scope of the plan or programme, are identified, described and evaluated The information to be given is (Art. 5 and Annex I)

To be addressed at a later date

a) An outline of the contents, main objectives of the plan or programme, and relationship with other plans and programmes.

Scoping Report – chapters 3, 4

b) The relevant aspects of the current state of the environment and likely evolution thereof without implementation of the plan.

Scoping Report chapter 4

c) The environmental characteristics of areas likely to be significantly affected.

Scoping Report chapters 4, 5

d) Any existing environmental problems which are relevant to the plan or programme including, in particular, those relating to any areas of particular environmental importance, such as areas designated pursuant to Directives 79/409/EEC and 92/43/EEC.


e) The environmental protection objectives, established at international, Community or national level, which are relevant to the plan or programme and the way those objectives and any environmental considerations have been taken into account during its preparation.


f) The likely significant effects on the environment, including issues such as: biodiversity, population, human health, flora, fauna, soil, water, air, climatic factors, material assets, cultural heritage (including architectural and archaeological heritage), landscape and the inter‐relationship between the above factors.

(Footnote: These effects should include secondary; cumulative; synergistic; short, medium and long‐term; permanent and temporary; positive and negative effects)


g) The measures envisaged to prevent, reduce and as fully as possible, offset any significant adverse effects on the environment of implementing the plan or programme.


h) An outline of the reasons for selecting the alternatives dealt with, and a description of how the assessment was undertaken, including any difficulties (such as technical deficiencies or lack of know‐how) encountered in compiling the required information.


i) A description of the measures envisaged concerning monitoring in accordance with Article 10


j) A non‐technical summary of the information provided under the above headings


The report shall include the information that may reasonably be required taking into account current knowledge and methods of assessment, the contents and level of detail in the plan or programme, its stage in the decision‐making process and the extent to which certain matters are more appropriately assessed at different levels in that process to avoid duplication of the assessment (Article 5.2)

Information contained throughout the SA Scoping Report

Consultation Authorities with environmental responsibility, when deciding on the scope and level of detail of the information to be included in the environmental report (Article 5.2)

The Scoping Report will be consulted on between Friday 24th June 2016 and 05 August 2016

Authorities with environmental responsibility and the public shall be given an early and effective opportunity within appropriate timeframes to express their opinion on the draft plan or programme and the accompanying environmental report before the adoption of the plan or programme (Article 6.1, 6.2)


Other EU Member States, where the implementation of the plan or programme is likely to have significant effects on the environment of that country (Article 7)

Not Applicable

Taking the environmental report and the results of the consultation into account in decision‐making (Article 8)

When the plan or programme is adopted, the public and any countries consulted under Article 7 shall be informed and the following made available to those informed: ‐ The plan or programme as adopted; ‐ A statement summarising how environmental

considerations have been integrated into the plan or programme, and how the environmental report pursuant to Article 5, and the opinions expressed pursuant to Article 6, and the results of consultations entered into pursuant to Article 7 have been taken into account in accordance with Article 8, and the reasons for choosing the plan or programme as adopted, in the light of other reasonable alternatives dealt with; and the measures decided concerning monitoring (Article 9 and 10)


Monitoring of the significant environmental effects of the plan’s or programme’s implementation (Article 10)
