READING BOROUGH LOCAL PLAN
READING BOROUGH LOCAL PLANAdopted November 2019DRAFT READING BOROUGH LOCAL PLAN APRIL 2017
FOREWORDFOREWORDBy Councillor Tony PageThe Local Plan is the document that guides development in Reading up to2036, and it will therefore play a decisive role in how our town evolves overthe next two decades. It will be the main point of reference for anyonewishing to undertake new buildings, changes or developments withinReading over that period.This plan has been carefully developed to address some of the key issuesfacing Reading. In particular, this Council declared a Climate Emergency in 2019, and set out itscommitment to work towards achieving a carbon neutral Reading by 2030. We must therefore ensurethat new development only takes place where it can help us in achieving that aim. The Local Plancontains sustainability policies that put it at the cutting edge of authorities across the country. We areproud in Reading to be in the top 5% of local authorities in Britain for cutting carbon emissions and theLocal Plan will play a major part in building upon that success.Over recent years, Reading has had great economic success, and this has resulted in considerableinvestment in the town. However, this success brings its own issues. In particular, Reading faces anacute housing crisis. There are not enough homes in general, and there is a particular need forgenuinely affordable housing which represents more than half of our overall assessed housingneed. The Local Plan is a major part of our response to this issue, and we continue to work withneighbouring councils to look at the needs of the Reading area as a whole.Other critical issues to be considered include how to provide the employment space and supportinginfrastructure to make sure that Reading continues to be an attractive place in which to work, to liveand to study. The benefits of Reading’s economic success also need to be shared out more equally withthose communities in Reading that suffer high levels of deprivation and social exclusion.The Plan also takes a positive approach to conserving and enhancing Reading’s considerable but, in thepast, often overlooked historic legacy. Reading has some truly significant historic sites, some of whichare identified for future use and enhancement as part of this Plan. Improving Reading’s environmentis a major part of the Plan, both in terms of revitalising tired and run-down sites and areas, and inpreserving those elements that are essential to our residents’ quality of life.This Plan will ensure that our town remains a great place in which to live, work and play for peopleliving here now - and in the future. It provides an excellent basis for delivering on our ClimateEmergency Declaration earlier this year, and achieving a sustainable and prosperous future forReading.Tony PageDeputy Leader, Reading Borough Council andLead Councillor for Strategic Environment, Planning and TransportREADING BOROUGH LOCAL PLAN ADOPTED NOVEMBER 20191
CONTENTSCONTENTS1. Introduction1.1 Role and Status of the Document71.2 Context for Reading71.3 Relationship with Other Plans and Strategies91.4 Process of Production101.5 Evidence and Technical Reports102. Vision and Objectives122.1 Vision122.2 Objectives133. Spatial Strategy153.1 Western Berkshire Housing Market Area153.2 Spatial Strategy for Reading174. General Policies214.1 Cross-Cutting Policies214.2 Built and Natural Environment344.3 Employment654.4 Housing724.5 Transport994.6 Retail, Leisure and Culture1084.7 Other Uses116Area-Specific Sections1245. Central Reading1255.1 Area Context1255.2 Strategy for Central Reading1265.3 General Policies for Central Reading1305.4 Central Reading Site-Specific Policies1456. South Reading1666.1 Area Context1666.2 Strategy for South Reading1676.3 South Reading Site-Specific Policies1707. West Reading and Tilehurst1827.1 Area Context1827.2 Strategy for West Reading and Tilehurst1827.3 West Reading and Tilehurst Site-Specific Policies1858. Caversham and Emmer Green271968.1 Area Context1968.2 Strategy for Caversham and Emmer Green1978.3 Caversham and Emmer Green Site-Specific Policies199READING BOROUGH LOCAL PLAN ADOPTED NOVEMBER 2019
CONTENTS9. East Reading2059.1 Area Context2059.2 Strategy for East Reading2059.3 East Reading Site-Specific Policies20810. Implementation21510.1 Implementation Measures21510.2 Delivery Timescales21710.3 Infrastructure Delivery Plan22111. Monitoring23012. Glossary235Appendices245Appendix 1: Housing Trajectory246Appendix 2: Criteria for Locally Listing Buildings and Structures249READING BOROUGH LOCAL PLAN ADOPTED NOVEMBER 20193
LIST OF POLICIESLIST OF POLICIES4CC1: PRESUMPTION IN FAVOUR OF SUSTAINABLE DEVELOPMENT21CC2: SUSTAINABLE DESIGN AND CONSTRUCTION21CC3: ADAPTATION TO CLIMATE CHANGE23CC4: DECENTRALISED ENERGY24CC5: WASTE MINIMISATION AND STORAGE26CC6: ACCESSIBILITY AND THE INTENSITY OF DEVELOPMENT27CC7: DESIGN AND THE PUBLIC REALM28CC8: SAFEGUARDING AMENITY30CC9: SECURING INFRASTRUCTURE31EN1: PROTECTION AND ENHANCEMENT OF THE HISTORIC ENVIRONMENT37EN2: AREAS OF ARCHAEOLOGICAL SIGNIFICANCE39EN3: ENHANCEMENT OF CONSERVATION AREAS39EN4: LOCALLY IMPORTANT HERITAGE ASSETS40EN5: PROTECTION OF SIGNIFICANT VIEWS WITH HERITAGE INTEREST41EN6: NEW DEVELOPMENT IN A HISTORIC CONTEXT42EN7: LOCAL GREEN SPACE AND PUBLIC OPEN SPACE42EN8: UNDESIGNATED OPEN SPACE45EN9: PROVISION OF OPEN SPACE45EN10: ACCESS TO OPEN SPACE48EN11: WATERSPACES49EN12: BIODIVERSITY AND THE GREEN NETWORK51EN13: MAJOR LANDSCAPE FEATURES AND AREAS OF OUTSTANDING NATURAL BEAUTY54EN14: TREES, HEDGES AND WOODLAND55EN15: AIR QUALITY56EN16: POLLUTION AND WATER RESOURCES59EN17: NOISE GENERATING EQUIPMENT61EN18: FLOODING AND DRAINAGE62EM1: PROVISION OF EMPLOYMENT65EM2: LOCATION OF NEW EMPLOYMENT DEVELOPMENT68EM3: LOSS OF EMPLOYMENT LAND69EM4: MAINTAINING A VARIETY OF PREMISES70H1: PROVISION OF HOUSING72H2: DENSITY AND MIX73H3: AFFORDABLE HOUSING76H4: BUILD TO RENT SCHEMES79H5: STANDARDS FOR NEW HOUSING81H6: ACCOMMODATION FOR VULNERABLE PEOPLE85H7: PROTECTING THE EXISTING HOUSING STOCK86H8: RESIDENTIAL CONVERSIONS87H9: HOUSE EXTENSIONS AND ANCILLARY ACCOMMODATION90H10: PRIVATE AND COMMUNAL OUTDOOR SPACE91H11: DEVELOPMENT OF PRIVATE RESIDENTIAL GARDENS93H12: STUDENT ACCOMMODATION95READING BOROUGH LOCAL PLAN ADOPTED NOVEMBER 2019
LIST OF POLICIESH13: PROVISION FOR GYPSIES AND TRAVELLERS97H14: SUBURBAN RENEWAL AND REGENERATION98TR1: ACHIEVING THE TRANSPORT STRATEGY99TR2: MAJOR TRANSPORT PROJECTS100TR3: ACCESS, TRAFFIC AND HIGHWAY-RELATED MATTERS104TR4: CYCLE ROUTES AND FACILITIES105TR5: CAR AND CYCLE PARKING AND ELECTRIC VEHICLE CHARGING106RL1: NETWORK AND HIERARCHY OF CENTRES108RL2: SCALE AND LOCATION OF RETAIL, LEISURE AND CULTURE DEVELOPMENT109RL3: VITALITY AND VIABILITY OF SMALLER CENTRES110RL4: BETTING SHOPS AND PAYDAY LOAN COMPANIES113RL5: IMPACT OF MAIN TOWN CENTRE USES114RL6: PROTECTION OF LEISURE FACILITIES AND PUBLIC HOUSES114OU1: NEW AND EXISTING COMMUNITY FACILITIES116OU2: HAZARDOUS INSTALLATIONS118OU3: TELECOMMUNICATIONS DEVELOPMENT119OU4: ADVERTISEMENTS120OU5: SHOPFRONTS AND CASH MACHINES122CR1: DEFINITION OF CENTRAL READING130CR2: DESIGN IN CENTRAL READING130CR3: PUBLIC REALM IN CENTRAL READING132CR4: LEISURE, CULTURE AND TOURISM IN CENTRAL READING133CR5: DRINKING ESTABLISHMENTS IN CENTRAL READING134CR6: LIVING IN CENTRAL READING135CR7: PRIMARY FRONTAGES IN CENTRAL READING137CR8: SMALL SHOP UNITS IN CENTRAL READING138CR9: TERRACED HOUSING IN CENTRAL READING139CR10: TALL BUILDINGS139CR11: STATION/RIVER MAJOR OPPORTUNITY AREA145CR12: WEST SIDE MAJOR OPPORTUNITY AREA151CR13: EAST SIDE MAJOR OPPORTUNITY AREA155CR14: OTHER SITES FOR DEVELOPMENT IN CENTRAL READING159CR15: THE READING ABBEY QUARTER164CR16: AREAS TO THE NORTH OF FRIAR STREET AND EAST OF STATION ROAD165SR1: ISLAND ROAD MAJOR OPPORTUNITY AREA170SR2: LAND NORTH OF MANOR FARM ROAD MAJOR OPPORTUNITY AREA173SR3: SOUTH OF ELGAR ROAD MAJOR OPPORTUNITY AREA175SR4: OTHER SITES FOR DEVELOPMENT IN SOUTH READING177SR5: LEISURE AND RECREATION USE OF THE KENNETSIDE AREAS181WR1: DEE PARK185WR2: PARK LANE PRIMARY SCHOOL, THE LAURELS AND DOWNING ROAD186WR3: OTHER SITES FOR DEVELOPMENT IN WEST READING AND TILEHURST188CA1: SITES FOR DEVELOPMENT IN CAVERSHAM AND EMMER GREEN199CA2: CAVERSHAM PARK202READING BOROUGH LOCAL PLAN ADOPTED NOVEMBER 20195
LIST OF POLICIES6ER1: SITES FOR DEVELOPMENT IN EAST READING208ER2: WHITEKNIGHTS CAMPUS, UNIVERSITY OF READING212ER3: ROYAL BERKSHIRE HOSPITAL213READING BOROUGH LOCAL PLAN ADOPTED NOVEMBER 2019
1. INTRODUCTION1.INTRODUCTION1.1Role and status of the document1.1.1 The Local Plan for Reading is the document that contains the policies for how Reading willdevelop up to 2036, which is the end date of the plan. It identifies the amount of developmentthat will take place, the areas and sites where development is expected to be accommodated,and where it will be restricted, and sets out policies for how planning applications will bedecided.1.1.2 The plan has ‘development plan’ status. This means that, legally, it is the main consideration indeciding planning applications in Reading. Decisions should be in line with the plan, unlessmaterial considerations indicate otherwise1.1.1.3 The local plan replaces all existing development plans in Reading. This means that the CoreStrategy (adopted 2008, amended 2015), Reading Central Area Action Plan (adopted 2009) andSites and Detailed Policies Document (adopted 2012, amended 2015) cease to be used now thatthis Local Plan is adopted. With the exception of minerals and waste planning, which will beundertaken jointly with neighbouring authorities, it means that all planning policies arecontained within a single document, which makes our policy substantially simpler.1.1.4 It is important that this document is read as a whole. Whilst there might, for instance, be apolicy dealing with a specific type of development (for example, development for schools) orsite, other policies in the plan may also be relevant, for instance around amenity or design.1.2Context for Reading1.2.1 Reading Borough cannot be viewed in isolation from its wider context. The Borough itself formsthe core, but not the whole, of the urban area that is generally considered to constituteReading. Figure 1.1 shows how the urban area centred on Reading extends beyond the Boroughboundaries, particularly into Calcot, Purley-on-Thames and parts of Tilehurst in West Berkshire,and Woodley and Earley in Wokingham. These areas largely function as suburbs of Reading. In awider sense, the Reading urban area in many ways functions as a single ‘city region’ with thenearby towns of Wokingham and Bracknell. The relationship to South Oxfordshire is different, inthat the Borough boundary forms the edge of the urban area, and partly the beginning of theChilterns Area of Outstanding Natural Beauty.1.2.2 Reading Borough itself was home to 155,700 people2 at the time of the 2011 Census, and thiswas estimated to have risen to 160,800 in 20143. Whilst, in common with most areas, there is anageing population, Reading nonetheless has a younger population profile than many of itsneighbours. Given the urban nature of Reading, it is unsurprising that it ranked fourth in theSouth East for population density at the time of the 2011 Census, with 38.5 people per hectare4.Affordability of housing is an increasingly critical issue, with rising house prices and rents putting1Section 38(6) of the Planning and Compulsory Purchase Act 20042This compares to 252,900 people in the wider urban area, which also includes Purley, Tilehurst, Calcot, Earley, Lower Earley, Winnersh andWoodley3ONS Mid-Year Estimates for 2014, published 2015 - 011 Census (QS102EW)READING BOROUGH LOCAL PLAN ADOPTED NOVEMBER 20197
1. INTRODUCTION Crown Copyright. All rights reserved. Reading Borough Council. Account No. 100019672. 2016Figure 1.1: Context of Reading Boroughhousing beyond the reach of many of our residents. This also forms a barrier to economicgrowth, with access to housing making recruitment difficult in many sectors.1.2.3 Reading is a major centre of employment, with 89,100 people working in the Borough at thetime of the 2011 Census. There are more jobs in Reading than workers, which means thatReading typically imports workers from other local authority areas, placing strain on thetransport network and on the housing market. This reflects the economic success of the town,which functions as the centre of the Thames Valley, one of the most economically dynamicregions in the country. Reading is a hub for a variety of businesses, including ICT, professionalservices and pharmaceuticals, and at the same time it still hosts a number of industrialactivities, and has an increasing role in logistics. Many of these businesses rely on the high levelof skills in the area, and there are also strong relationships with the University of Reading.However, despite the overall economic buoyancy, there are pockets of deprivation within theurban area where there are unemployment issues and concentrations of low skills.8READING BOROUGH LOCAL PLAN ADOPTED NOVEMBER 2019
1. INTRODUCTION1.2.4 Reading town centre is also one of the UK’s most important centres. Its importance for retail,boosted by the opening of the Oracle in 1999, is long established, but it is also significant forleisure and culture, and, increasingly, as somewhere to live.1.2.5 Reading is an ancient town with over 1,000 years of history, and contains a wealth ofarchaeology and historic buildings. The historic environment has been, and is, important informing the identity of the town and its people. The historic environment – all the archaeology,buildings and landscapes that surround us – contributes to the underlying framework thatcreates a sense of place for Reading. However, there is a clear need for Reading to make moreof those important historic assets.1.2.6 Reading’s location on the Great Western main rail line and the M4 motorway makes it a majorhub for transport movement. Reading station is one of the busiest stations outside London, andwill also mark the western extent of the Elizabeth Line (formerly known as Crossrail), withservices to Reading due to begin in 2019. In addition, Reading’s location on the Kennet & Avoncanal and River Thames and at the meeting point of several national cycle routes gives itsignificance for a variety of other modes of travel.1.3Relationship with other plans and strategies1.3.1 The Local Plan is the main planning document for Reading. It replaces the three previousdevelopment plan documents – the Core Strategy (adopted 2008, amended 2015), ReadingCentral Area Action Plan (adopted 2009) and Sites and Detailed Policies Document (adopted2012, amended 2015).1.3.2 The only topics that the Local Plan does not cover are minerals and waste planning. These willbe the subject of a separate Minerals and Waste Local Plan, which is being prepared jointly withWokingham Borough Council, Bracknell Forest Borough Council and the Royal Borough of Windsorand Maidenhead. More information on the Joint Minerals and Waste Local Plan, which wentthrough consultation on a Draft Plan between August and October 2018, can be found on thewebsite5.1.3.3 There will be specific sites or topics that require more detailed consideration, and this willmean the production of Supplementary Planning Documents (SPDs). These may include planningbriefs for specific sites, or topic based SPDs on matters such as sustainable design. These cannotmake policy on their own, and can only provide more detail on a policy in a Local Plan. Someexisting SPDs will continue to apply under the proposed new policies, and the relevant sectionof the plan states where this is the case.1.3.4 This plan has been prepared in accordance with the National Planning Policy Framework (NPPF),which sets out the overall national approach to planning. Local plans should be consistent withthe principles and policies in the NPPF, including the presumption in favour of andplanningandenvironment/berksconsultREADING BOROUGH LOCAL PLAN ADOPTED NOVEMBER 20199
1. INTRODUCTION1.4Process of production1.4.1 Development of the Local Plan commenced when the Council consulted on Issues and Optionsfor the Local Plan between January and March 2016. This was the initial stage, and was adiscussion paper around some key topics and questions, rather than a draft plan. The results ofthat consultation can be found on the Council’s website6.1.4.2 The second stage of plan production was a full draft plan7. This was produced taking account ofthe responses to the Issues and Options consultation, as well as results of SustainabilityAppraisal and other considerations. Consultation took place in May and June 2017, and, again,the results of the consultation are available on the Council’s website8.1.4.3 The next stage was a Pre-Submission Draft Local Plan9, which was the final draft of the planbefore submission to the Secretary of State. Consultation took place between November 2017and January 2018, and the results of consultation are available to view on the website.1.4.4 The Local Plan was submitted in March 2018, which marked the beginning of a publicexamination by an independent Inspector, including a series of public hearings. Afterconsultation on main modifications in June and July 2019, the Inspector issued a report whichconsidered the plan to be ‘sound’ subject to modifications in September 2019. It was adoptedas the Council’s official policy on 4th November 2019.1.5Evidence and technical reports1.5.1 There are a significant number of background papers and pieces of research that have informedthis Local Plan and provide the justification for the policies. The full justification for eachpolicy or proposal is not included in the plan in order to keep the document as brief as possible,although some key elements may be referenced where relevant. The documents making up thefull evidence base are available on the Council’s website.1.5.2 Perhaps the most significant documents are those which identify the development needs. In thecase of housing, this is the Berkshire (with South Bucks) Strategic Housing Market Assessment(SHMA, published 2016)10, which identifies the ‘objectively assessed need’11 for housing for eachBerkshire authority as well as South Bucks up to 2036. For Reading, a need of 699 new dwellingseach year is identified. The SHMA also looks at the need for affordable housing, differentdwelling sizes and some specific types of housing such as residential care. There are alsodocuments that assess the need for new economic development (Economic Development NeedsAssessment, published 2016) and retail and leisure uses (Retail and Leisure Study, ment of Consultation on Issues and Options May 2016.pdf7Under Regulation 18 of the Town and Country Planning (Local Planning) (England) Regulations t of Consultation on Draft Local Plan.pdf9Under Regulation 19 of the Town and Country Planning (Local Planning) (England) Regulations -Market-Assessment/pdf/Berkshire Strategic Housing Market Assessment Feb 2016.pdf11‘Objectively assessed’ means resulting from an assessment that looks only at need for development. It does not take account ofconstraints on accommodating that development, e.g. flooding, physical capacity, policy designations etc, which are matters that must beconsidered later, when setting the levels of development sought in policy.10READING BOROUGH LOCAL PLAN ADOPTED NOVEMBER 2019
1. INTRODUCTION2017). These inform the overall strategy and are referred to
1.1.3 The local plan replaces all existing development plans in Reading. This means that the Core Strategy (adopted 2008, amended 2015), Reading Central Area Action Plan (adopted 2009) and Sites and Detailed Policies Document (adopted 2012, amended 2015) cease to be used now that this Local Plan is adopted.
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