Garden Communities Topic Paper Oct 17 - Framework

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EB/028Garden CommunitiesTopic PaperBraintree District Council Local PlanColchester Borough Council Local PlanTendring District Council Local PlanOctober 2017

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)CONTENTS1Introduction . 32What are Garden Communities . 43Local Decision Making processes . 114Alternative Options Considered . 185Summary & Conclusions . 22Page 2 of 24

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)1Introduction1.1Colchester Borough Council (CBC), Braintree District Council (BDC) andTendring District Council (TDC) have been working together, alongside EssexCounty Council in order to identify an agreed strategic approach to theallocation and distribution of large scale housing led mixed use development.1.2The approach is set out in a shared strategic Section 1 of each Council’sLocal Plans, which sets out strategic policies across North Essex includingapproach to housing, employment and infrastructure.1.3A key part of the strategy as set out in the Local Plans is the inclusion of asmall number of large scale ‘Garden Communities’. These will becomprehensively planned new settlements containing a wide range ofservices and facilities and will set the basis for growth across the North Essexarea both for the current plan period but also for future plan periods.1.4Given the importance of the Garden Communities, this topic paper has beenprepared to provide further information relating to the nature of suchsettlements and decision making process that has been followed.1.5This paper sets out: Page 3 of 24The origins, policy context and rationale behind the GardenCommunities concept;The local plan making process with specific reference to theconsideration of Garden Communities across North Essex;A summary of alternative Garden Communities that were consideredas part of the process; andA summary of the rationale behind the selection of GardenCommunities in North Essex

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)2What are Garden Communities‘Garden Cities’ and the origins of large scale planning2.1The concept of ‘Garden Cities’ upon which various derivatives such asGarden Towns, Villages & Communities originate, has its historical basis fromEbenezer Howard's book "Tomorrow: a Peaceful Path to Real Reform"published in 1898. This put forward a vision of towns that would take the bestelements of the city: good employment prospects, relative wealth for itsinhabitants and good communications, and merge these with the bestelements of the countryside: a healthy and affordable setting. Parkland wascentral to the design, as was a covered space where people could shop. TheGarden City was intended to be surrounded by an agricultural belt to helpmake it self-sufficient in food and to prevent unchecked sprawl.2.2The concept promoted by Howard was the ‘marriage of town and country’ inthe ‘Garden City’. It was a new form of development in which people wouldlive close to places of work in an environment that brought the open spaces ofthe country into the city. ‘Human in scale’, garden cities would separateresidential uses from non-residential uses to give cleaner living environments,but still provide access to employment areas, town centre services & facilities,and the surrounding countryside2.3At the heart of the Garden City ideas is the development of holisticallyplanned new settlements which enhance the natural environment and providehigh-quality affordable housing and locally accessible jobs in beautiful, healthyand sociable communities. The Garden Cities were among the firstmanifestations of attempts at sustainable development.2.4Letchworth Garden City was founded in 1903 as the first Garden City. It wasbright forward by a dedicated Garden City Companies - First Garden City Ltdwhich was formed in 1903 and purchased around 1600 hectares (almost 4000acres) of agricultural land in the three adjacent villages of Letchworth, Willianand Norton. Welwyn Garden City was the second Garden City to be built,established in 1922.2.5The Garden City movement was the precursor to state involvement in creationof a wave of new towns during the latter half of the 20th Century, following the1946 New Towns Act. This gave the government power to designate areas ofland for new town development. A series of “development corporations” set upunder the Act were responsible for one of the projected towns. In nearly allcases an existing minor settlement provided a basis for wider developmentPage 4 of 24

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)2.6Large scale development in various forms has formed part of the planning anddevelopment process for many years, mostly originating from or heavilyinfluenced by the initial Garden City Movement. Key principles around qualityplacemaking, sustainable development and creating successful communities ,has have fed into the new towns programme, and more recently into initiativessuch as sustainable communities, sustainable urban extensions, newsettlements, Ecotowns and now into the recent Garden Villages & Townsprogramme supported by the Department for Communities & LocalGovernment (DCLG).Garden City Principles2.7Clearly society has changed in many ways since the original Garden Citiesand the concept requires a modern interpretation.2.8The Town & Country Planning Association (TCPA), founded in 1899 byEbenezeer Howard has had an important role in considering the application ofkey Garden City principles and have had a strong influence on planning andplacemaking right up to today. Whilst there is no formal statutory definition towhat a Garden City entails, the TCPA have published guidance and a seriesof key principles that they consider should be embodied in any approach,which set the concept apart from traditional or standard types of development.These key principles are: 2.9strong vision, leadership and community engagement;land value capture for the benefit of the community;community ownership of land and long-term stewardship of assets;mixed-tenure homes that are affordable for ordinary people;a strong local jobs offer in the Garden City itself, with a variety ofemployment opportunities within easy commuting distance of homes;high-quality imaginative design (including homes with gardens),combining the very best of town and country living to create healthyhomes in vibrant communities;generous green space linked to the wider natural environment,including a mix of public and private networks of well managed, highquality gardens, tree-lined streets and open spaces;opportunities for residents to grow their own food, including generousallotments;access to strong local cultural, recreational and shopping facilities inwalkable neighbourhoods; andintegrated and accessible transport systems – with a series ofsettlements linked by rapid transport providing a full range ofemployment opportunities (as set out in Howard’s vision of the ‘SocialCity’).The TCPA have been active throughout the period to promote and lobby forthe concept to be positively considered as a potential additional approach tohousing supply. The concept and principles have been directly referred to inPage 5 of 24

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)recent Government documents on the subject, albeit these have beencarefully presented to enable local places to evolve their own interpretationsbased upon local circumstances and ambitions.Recent policy & guidance relating to Garden City style development2.10In recent years, there has been a renewed level of interest in Garden Citystyle development in part stimulated by the need to utilise all possiblemechanisms to address the Country’s chronic housing shortage and meethousing needs at a national and local level.2.11The most notable relevant policy paper “Laying the foundations: housingstrategy for England“ (DCLG, 2011) referenced the opportunity that locally ledlarge scale development could play stating that:“Sometimes the supply of new homes may best be achieved throughcomprehensively planned development – whether through new settlements orextensions to existing villages and towns. Well-planned, large-scale projectscan be highly successful and the best examples of these have been a greatBritish contribution to international thinking on planning.”((Laying the Foundations: a housing strategy for England para 41)2.12Alongside this policy paper, the then Housing Minister invited the Town &Country Planning Association (TCPA) to “reinvent the garden city concept forthe 21st Century”. This culminated in the “Reimagining Garden Cities” reportpublished by the TCPA in July 2012, with DCLG officials providing thekeynote speech at the launch event.2.13The important role given to large scale Housing projects was recognised atthe heart of Government. In the then Prime Minister’s speech on infrastructurein March 2012 the ambition was reinforced stating that we “urgently need tofind places where we’re prepared to allow significant new growth to happen.That is why we’ll begin consultation later this year on how to apply theprinciples of garden cities to areas with high potential growth in places peoplewant to live”.2.14Around the same time, the National Planning Policy Framework waspublished (March 2012) and made explicit reference to the potential role oflarger scale development, evolved in accordance with garden city principles:“The supply of new homes can sometimes be best achieved through planningfor larger scale development, such as new settlements or extensions toexisting villages and towns that follow the principles of Garden Cities. Workingwith the support of their communities, local planning authorities shouldconsider whether such opportunities provide the best way of achievingsustainable development. In doing so, they should consider whether it isappropriate to establish Green Belt around or adjoining any such newdevelopment.”(National Planning Policy Framework, para 52)Page 6 of 24

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)2.15The Royal Town Planning Institute published a paper – “Delivering LargeScale Housing” (RTPI Sept 2013) to provide further thinking aroundopportunities and challenges of building at scale. This made reference to thepotential role that long term large scale development could play, stating:“There is no single solution, but large schemes can provide an important partof the solution The experience of the last 20 years suggests that the level ofdemand for new homes over the next decade will not be met by piecemealincremental developments. There are many ways in which the housing crisiscan be tackled. These include looking at the role of the existing stock, andconsidering how small scale development (for example infill) can play a part.Responses should also encompass issues of housing mix, affordability,sustainability, demographic change and preparedness for an ageingpopulation While there is no single solution, large scale housing-leddevelopments could provide an important part of the response, as a largenumber of houses can be built whilst giving an opportunity for planners todesign communities that people want to live in – with appropriateinfrastructure, community services and green spaces.”(Delivering Large Scale Housing, RTPI Sept 2013 paras xx)2.16In the Budget 2014 the Government announced that it would support a newGarden City at Ebbsfleet in Kent, for up to 15,000 new homes based onexisting brownfield land, to be driven forward by a development corporationwith compulsory purchase powers.2.17Following Government announcements on support for garden cities, the Townand Country Planning Association (TCPA) published, the “Art of Building aGarden City – Garden City Standards for the 21st Century” in June 2014,which, set out practical information on the standards required to deliverGarden Cities.2.18Subsequent to and as referenced in the DCLG Housing Strategy quotedabove, a prospectus was published by DCLG in 2014 inviting expressions ofinterest from Local Authorities who were interested in working withGovernment to consider locally led opportunities. The prospectus did not set aformal definition of what a garden city was, but did set out additional contextto the potential role and opportunities they may offer, stating:“We need to build more homes. However, we know that people can beconcerned that developers will throw up sprawling extensions to theircommunities which place additional pressures on local infrastructure. GardenCities provide a unique opportunity for local areas to prevent this, by takingcontrol of development, integrating planning to decide where best to locatedevelopments and ensuring that public services, green spaces and amenitiesare hardwired into designs from the beginning. Development at a large scalecreates the opportunity to secure real and important benefits: attributes thatpeople most value – such as quality design, gardens, accessible greenspace near homes, access to employment, and local amenities – can bePage 7 of 24

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)designed in from the outset. In short, Garden Cities are about far more thanhouses alone: they are about creating sustainable, economically viable placeswhere people choose to live. These are the principles on which the GardenCities movement was based, and they remain as relevant today as they wereover a century ago”(Locally Led Garden Cities Prospectus, DCLG 2014)2.19In March 2016 a further prospectus was issued by Government “Locally-ledgarden villages, towns and cities” and invited expressions of interest fromlocal authorities who wanted to create new communities based on garden cityprinciples across a broader range of scales than the 2014 prospectus. Thisstated that:“Large new settlements have a key role to play, not only in meeting thiscountry’s housing needs in the short-term, but also in providing a stablepipeline of housing well into the future .We want to encourage more localareas to come forward with ambitious locally-led proposals for newcommunities that work as self-sustaining places, not dormitory suburbs. Theyshould have high quality and good design hard-wired in from the outset – anew generation of garden villages, towns and cities.“(Locally Led Garden Villages & Towns Prospectus paras 3-4)Scale2.20The original Howard concept considered new Garden Cities that couldaccommodate 30,000 residents, equivalent today of around 13,000 homes.albeit this was considered in a very different context to today in relation topopulation, society and how places function.2.21The post war new town programme included a range of places and scales,with far higher overall capacities, such as Milton Keynes which has witnessedpopulation growth of over 200,000 people since designation and is stillgrowing today.2.22The original Garden Cities Prospectus referred to 15,000 homes as aminimum size threshold, and the more recent prospectus broaden the scaleand typology range to include Garden Villages of over 1,500 homes andTowns of over 10,000 homes.2.23In relation to selecting an appropriate scale to relation to potential GardenCommunities in North Essex, the primary consideration has been to ensuringcritical mass of on site population to provide essential services and facilitiesand ensure that a community can be truly fostered within a new place.2.24Of particular significance has been an appropriate threshold to ensureprovision of both primary and secondary education on site. The core rationaleis that a community should provide for its children through to adulthood, andthat the quality of community life is impoverished if older children do notparticipate because they are sent elsewhere each day. Growing up in aPage 8 of 24

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)sustainable community also provides a sound foundation for citizenship,social mixing and interaction.2.25Secondary school catchments can therefore form a sensible basic buildingblock when designing the size of a new community. This infers that thenumber of homes should as a minimum be in the range 4,000-5,000 homes,therefore capable of generating the need for a (minimum) 8 form entrysecondary school.2.26This has formed the basis of thinking around potential sites available in theNorth Essex context, and has set a minimum potential size threshold.Key opportunities offered by Garden Communities2.27In the 21st century we need a very different approach. Our small markettowns are often cited as the most popular settlements in Britain but few ofthese have sufficient capacity to accommodate major population growth.Moreover, because of their popularity, housing costs in these towns are oftenvery high.2.28Inevitably, meeting housing need will involve a range of types and patterns ofdevelopment, and the relative merits of in-town, edge-of-town and newcommunities varies depending on the circumstances of particular locations. Aportfolio of solutions is needed to fit local circumstances and secure the mostsustainable option for the location concerned. Clearly, development ofbrownfields sites, infill and urban regeneration will always play a role inmeeting housing and planning objectives, and appropriate opportunitiesshould be incorporated into respective Local Plans.2.29Opportunities provided by developing at scale are varied and numerous. Thisis not to say that many could be realised by alternative forms of development,but both the opportunity and prospect of realisation are enhanced throughscale. Such opportunities include but are not limited to the following: Planning for large scale, long term development provides the opportunityto ensure that well planned development, incorporating all necessaryservices, facilities and a blend of end uses incorporated from the outsetas opposed to piecemeal, sprawling development. By virtue of their scale, and if carefully designed and developed toproduce integrated, ‘holistic’ settlements, they can encourage andaccommodate highly-sustainable patterns of living. Major development, but perhaps particularly one on a greenfield site,provides opportunities to fully integrate considerable green infrastructureand environmental assets. Major planned developments provide an opportunity to design-in thegreenest of technologies, in ways that are not possible in smaller infill orincremental schemes. This could include aspects such as Sustainableurban drainage systems (SUDS), approaches to public transportsystems and local energy generation and supply systemsPage 9 of 24

Garden Communities Topic PaperNorth Essex Local Plans (Section 1) Infrastructure costs are often a key challenge in delivering newdevelopment. Large scale development will generally involve areas ofgreenfield/agricultural land with relatively low values, providing theopportunity to fund infrastructure from the uplift in value. A sense of community cohesion can be established by creating asufficient critical mass of population and social mix, generating sufficientdemand to support a full range of services and facilities locally within thecommunity (including community facilities, education, retail, socialmeeting places and commercial uses) Scale enables sufficient critical mass of local population to also make theonsite provision of services and facilities viable and deliverable – forexample sustaining local amenities and making new strategic publictransport interventions viable with sufficient patronage. Developing a new place at scale provides the opportunity to createsuccessful ‘hubs’ of activity that can foster community development andpositive human interaction, creating a sense of belonging and a safe andinclusive environment. A sustainable and healthy environment can be designed in from theoutset, for example to encourage a walkable environment, and provisionof well designed and accessible recreation facilities and attractiveparklands. Trip generation is likely to be less in relatively large settlements,provided they are reasonably self-contained, and provided that servicesand places of employment are located in close proximity to places ofresidence. Scale provides greater scope to create assets that can be passed overto new local communities, promoting a greater sense of belonging withactive long-term stewardship and community empowerment. Ownership or control of a large area of land by a small number ofstakeholders, with a ‘master-developer’ or ‘town-builder’ component,provides the basis fora long term view of the scheme and ensures thatthe essential infrastructure, facilities and components that turn adevelopment into a place are planned and phased to support theimplementation of development. A master-developer can betterrecognise and benefit from taking a long term view, with high-qualityplace making and direct provision of infrastructure adding value to theland by making the scheme location more attractive and valuable tooccupiers over a long time period. Smaller scale development risksowners/developers being less interested in the long term performance ofthe place as they would not retain any long term interest.Page 10 of 24

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)3Local Decision Making processesLocal Plan Process: Consideration of Garden Communities3.1Officers and Members from Braintree, Colchester, Tendring and Essex havebeen working closely together during the preparation of the draft Local Plans,particularly in relation to the proposals for new garden communities.3.2To aid coordination and the legal requirements of the Duty to Cooperate, theCouncils initiated a joint approach to strategic plan-making. This included theevolution of a common evidence on strategic matters (such as housing, theeconomy transport and the natural environment) and included considerationof the concept of Garden Communities to potentially deliver part of the growthrequired within the strategic area. The selection of the best sites to deliverGarden Communities were informed by Sustainability Appraisal work andconsideration of alternatives. Braintree, Colchester and Tendring jointlycommissioned Sustainability Appraisal work for strategic cross-boundaryproposals, which resulted in submission plans containing separateSustainability Appraisal reports for the shared Section 1 of the plan containingstrategic proposals and the locally specific Section 2 of each Local Plan.3.3In accordance with this strategic approach, both BDC and CBC Local PlanIssues and Options consultations included the potential for new settlements.Braintree Local Plan3.4BDC began preparation of its Local Plan in June 2014. An initial call for sitesexercise was held between August and October 2014.3.5BDC produced a Local Plan Issues and Scoping Document in January 2015which highlighted some of the main issues that needed to be addressed in thenext Plan and suggested a number of approaches to managing growth. Thedocument asked whether these were the right issues and strategies and ifpeople wanted to suggest other for consideration. Further sites were acceptedduring this Issues & Scoping consultation. The Local Plan SustainabilityAppraisal (SA) Scoping Report was also subject to consultation at the sametime.3.6The BDC consultation ran roughly at the same time as a similar Issues &Options consultation in CBC, with both documents containing the possibility ofa new settlement on the border of the two authorities. The BDC consultationdocument made direct reference to potential new villages; areas where newhousing could fund major infrastructure, and the consideration of key crossboundary issues.3.7Within BDC two broad locations were identified as the most appropriatepotential areas for Garden Communities - one to the west of Braintree andRayne (including some land within Uttlesford District) and one to the east ofPage 11 of 24

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)Coggeshall and Feering at Marks Tey, much of which is situated withinColchester Borough.3.8The BDC Local Plan Sub Committee on 17th Feb 2016 provided an update tothe issue of potential Garden Communities. This referred to the appointmentof Garden City Developments CIC (GCD) and confirmed that the Councilswere actively seeking to evolve the policy process to consider if GardenCommunities should become broad locations for growth in their Local PlanPreferred Options consultations.3.9The Sub Committee was advised at this point that any Garden Communitywould be anticipated to contribute to a proportion of the assessed housingneeds of the district, and that a range of other sites would also be required tomake the Council’s ‘preferred options’ consultation robust. It referenced thatany Garden Community would need to be of sufficient scale to be viable andtherefore development was likely to extend throughout and beyond theemerging Local Plan period.3.10The BDC Local Plan Sub Committee on 14th March 2016 considered a BroadSpatial Strategy which included new planned Garden Communities. Thesewere set out as a way of creating standalone new towns or villages whichcould contain all the everyday services and facilities that a new populationwould need, including health, retail, education, culture and recreation space.The officers report set out that any new community would need to ensure thatappropriate infrastructure was provided from day one to ensure sustainabledevelopment that meets the principles of garden cities as set out by the Townand Country Planning Association and advocated by national government. Assuch the Officers considered them a sustainable way of providing newdevelopment in principle. The report noted that further studies were underwayto see if there were any suitable locations for a Garden Community in theDistrict.3.11The BDC Local Plan Sub Committee on 25th May 2016 approved that areasof search within the draft Braintree District Local Plan for two new GardenCommunities – one to the West of Braintree (which could be cross border withUttlesford) and one to the West of Colchester (shared with ColchesterBorough) as the most sustainable way of meeting that unprecedented levelsof local housing need. The report noted that the proposed areas of searchremained provisional and needed to be tested further.3.12The Officers report noted that the overall housing target to which the Councilswas working to was a substantial increase on that which was set out inprevious Local Plans. It presented a challenging target and the Councils earlyon recognised that new ways of addressing it would need to be fully exploredas part of the plan making process.3.13The main urban areas across North Essex provided sustainable areas for newgrowth as they contained the most facilities, services and employmentopportunities for residents, as well as public transport, road and some walkingPage 12 of 24

Garden Communities Topic PaperNorth Essex Local Plans (Section 1)and cycling infrastructure. However existing towns and villages haveconstraints and infrastructure and services can be stretched. Officers notedthat the Local Plan had considered the capacity and context of existingsettlements and included proposals for further growth including a number ofurban extensions on the edge, where these could be sustainablyaccommodated to make best use of their facilities and connections.3.14Villages in the area, particularly larger villages that had a good range of day today facilities were proposed for varying levels of growth, depending on thefacilities, accessibility and sustainability. Many of the smaller, more isolatedvillages were not being proposed for growth of any substantial nature, giventheir lack of facilities, services and public transport. However opportunitieswere taken where appropriate to allocate new sites for development,particularly on sites that have been previously developed or in villages thatmay have some facilities.3.15A number of sites were submitted through the call for sites exercises in 2014and early 2015 which set out initial considerations around potential growthoptions and the potential for stand-alone new settlements. Such exercisesprovided the starting point for site consideration and were appraised throughthe Sustainability Appraisal and Strategic Land Availability Assessmentprocesses.3.16The BDC Local Plan Sub Committee 12 July 2016 approved the North EssexGarden Communities Concept Feasibility Study and North Essex GardenCommunities Charter as part of the evidence base for the Local Plan.3.17The Feasibility Study provided an overview of issues, constraints andopportunities, helped to inform site selection and the consideration ofalternatives. The study investigated a range of scenarios in relation to thescope and scale of development that may be feasible, together with anevaluation in relation to meeting objectives, deliverability and anticipatedinfrastructure requirements. The aim of the study was to set out the keyalternatives for the Councils to consider and provide an evaluation of howeach of them performed. The work included liaison with a range of keystatutory stakeholders, particularly infrastructure providers such as UK PowerNetworks and Anglian Water, as well as liaison with a range of officers fromthe four Councils.3.18The Charter set out further detail and the tailoring of Garden City principles toNorth Essex against which alternative options could be considered. This wasa standalone statement of intent to demonstrate and articulate the level ofambition.3.19The BDC Local Plan Sub Committee on 16

2 What are Garden Communities ‘Garden Cities’ and the origins of large scale planning 2.1 The concept of ‘Garden Cities’ upon which various derivatives such as Garden Towns, Villages & Communities originate, has its historical basis from Ebenezer Howard's book "Tomorrow: a Peaceful Path to Real Reform" published in 1898.

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