Wigan Core Strategy Examination Additional Hearing Sessions

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1 Wigan Core Strategy Examination Additional Hearing Sessions Morris Homes & Persimmon Homes Session on Specific Proposals to Meet the Identified Shortfall in Housing Land Golborne & Lowton 6 th March 2013

2 Prepared by: Paul Williams Version: Final Date: 15 th February 2013 Mosaic Town Planning Lowry House 17 Marble Street Manchester M2 3AW

3 Contents 1 INTRODUCTION EXPLANATION OF COUNCIL S PROPOSAL AND MODIFICATION REQUIRED SUMMARY OF TRANSPORT AND TECHNICAL ASSESSMENTS AND SUSTAINABILITY APPRAISAL DELIVERABILITY AND POTENTIAL CONSTRAINTS... 7 Evidence of Deliverability and Viability... 7 Land Ownership Issues... 7 Infrastructure and Development Requirements... 9 Other Potential Constraints POTENTIAL ADVERSE IMPACTS AND MITIGATION... 10

4 1 INTRODUCTION 1.1 We act jointly for Persimmon Homes and Morris Homes over the Core Strategy overall. In relation to the present session, Persimmon is the landowner of part of 7.3 Ha of the safeguarded site at Pocket Nook. 1.2 Our clients both agree that a proportion of the Borough s housing needs should be met in Golborne and Lowton but share our analysis that the contribution of safeguarded land here within the plan period should be reduced by 800 dwellings. 1.3 Our site-specific comments about Pocket Nook are primarily based on the input of Persimmon Homes due to the different nature of our clients interests. 2 EXPLANATION OF COUNCIL S PROPOSAL AND MODIFICATION REQUIRED 2.1 Whilst the starting point is for the Council to explain its approach, we have comments to add on the three discussion points listed by the Inspector: Potential contribution to supply of housing number of houses and timing 2.2 In relation to Pocket Nook, a masterplan produced by e*scape Urbanists for Persimmon found that their ownership could accommodate some 150 new homes, having regard to a buffer adjacent to Carr Brook and the Council s desire to include a proportion of low-density housing. 2.3 This site is already owned by the developer and technical assessments referred to below confirm that there is no constraint which would prevent early delivery at this level. 2.4 Our clients advise that Lowton is a more attractive location to the market than Golborne and this view is consistent with the evidence from its higher average house Morris Homes and Persimmon Homes 1

5 prices. Lowton is therefore more likely to deliver the aspirational housing sought by the Council in the submission Core Strategy. Policy implications for the safeguarded land at Golborne and Lowton 2.5 The Broad Location will need to be redefined to exclude Coldahurst Lane. We have previously supported this change and we believe it to be a relatively minor alteration which would not materially affect the Strategy. 2.6 In comparison with the submission Core Strategy, under the Council s proposals it would remain the case that this Broad Location would have an emphasis on higher value, lower density housing compared with the rest of Wigan. Paragraph 8.26 states that Lower density means lower than average density for new development across the borough, with some development likely to be around 10 houses per hectare. This definition could remain unchanged. The Masterplan for our client s site achieves a density of 20.5 dwellings per hectare, an average which reflects pockets of higher and lower densities within it. This compares with the Borough-wide figure of 33 now applied by the Council in the 2012 SHLAA Update. 2.7 The Submission Core Strategy also says: From within East Lancashire Road corridor a site or sites will subsequently be identified and allocated in a future development plan document. (parag. 8.27). There was therefore a very clear indication that more than one site could be required and an expectation that this would happen in the Allocations DPD. 2.8 Paragraph 9.52 says A fifth broad location for new development, the East Lancashire Road corridor, outside of the east-west core of the borough, includes four areas of safeguarded land. Some of this land will be allocated in a subsequent development plan document, in accordance with policy SP4. The remainder will be retained as safeguarded land. This is compatible with our own position that the constrained portion of Pocket Nook should remain safeguarded. This Morris Homes and Persimmon Homes 2

6 means that some of the safeguarded land would be allocated, as opposed to all of the safeguarded land which is now the Council s position. Extent of change from submitted plan in terms of type and scale of development proposed at Golborne and Lowton, focus on East-West Core and overall spatial strategy 2.9 The Council has suggested that the capacity of the three remaining sites is for 2,650 homes, of which 2,350 could be built within the plan period. This would account for 15.6% of the minimum of 15,000 dwellings to be provided across the Borough. For the reasons set out below, the capacity of Pocket Nook should be reduced by 800 which would reduce the contribution to a little over 10% Draft Core Strategy Policy CP6 proposes focusing around 85% of new housing in the East West Core. We believe that locating over 15% of dwellings in Golborne and Lowton would be at odds with this, as it would leave no capacity for dwellings outside of the East West Core elsewhere. An intention to provide some 10% of dwellings in Golborne and Lowton would be more consistent with the strategy, bearing in mind that these percentages would inevitably be departed from in reality in any event. Notwithstanding this, our clients believe that focussing 85% of development in the East West Core is excessive and that this should be reduced to achieve a deliverable Strategy. 3 SUMMARY OF TRANSPORT AND TECHNICAL ASSESSMENTS AND SUSTAINABILITY APPRAISAL 3.1 It is appropriate to distinguish between the technical work necessary to justify individual development proposals and that which would be required to support the Morris Homes and Persimmon Homes 3

whole of a strategic site such as Pocket Nook or some combination of the three safeguarded sites in Golborne and Lowton. Persimmon Homes Ownership 3.

7 whole of a strategic site such as Pocket Nook or some combination of the three safeguarded sites in Golborne and Lowton. Persimmon Homes Ownership 3.2 With regards to the Persimmon Homes owned section of land at Pocket Nook in Lowton, a series of technical assessments have already been carried out in order to support the site appraisal and masterplan by e*scape Urbanists. 3.3 The 7.3 Ha site is well related to adjacent residential areas and is accessible by a range of different transport modes. It is well located to local services and amenities including primary and secondary schools. Morris Homes and Persimmon Homes 4

8 3.4 The Persimmon Homes ownership has the benefit of two existing access points from the housing area to the north. Its capacity using the existing highway network has been assessed by Singleton Clamp transport consultants. They concluded that it can be assessed in a suitable manner using Canaan and Glastonbury Avenue. The level of development has been considered in relation to the percentage increase in flow on Mayfield Drive and, assuming a 30% increase, the site could accommodate around 150 units. The Mayfield Drive junction onto St Helens Road would require improvement, for example by traffic signals, to accommodate this level of development. 3.5 An Ecological Survey and Assessment has been undertaken by ERAP Consultant Ecologists. This uncovered no significant ecological issues. No evidence was found of Badgers, Otters, Great Crested Newts, reptiles or Schedule 1 birds. 3.6 While mitigation measures will be required in relation to hedgerows and wildlife habitats, implementing these would mean that residential development could be successfully undertaken in accordance with wildlife legislation and planning policy requirements. 3.7 The land is located within Flood Zone 1 and the capacity of 150 allows for a stand-off zone to Carr Brook along the southern boundary. The strategic site falls within a Critical Drainage Area in the Strategic Flood Risk Assessment, but the Council has confirmed that this northern section is not identified as being of high or intermediate risk of surface water flooding. 3.8 In relation to the Sustainability Appraisal, when carried out at the level of a strategic site on the scale of Pocket Nook, this is a very blunt tool for assessing the impact of individual development proposals. In a planning application, the form, nature and extent of the development would be informed by the appraisal and a desire to deliver a sustainable development. Many of the impacts identified would be avoided or Morris Homes and Persimmon Homes 5

9 mitigated by design, working methods, provision of additional infrastructure, compensation and careful attention to detail. Broad Location Overall 3.9 It is evident that the overall scale of development would lead to increased peak time congestion in Lowton and Golborne. In assessing this, it should be recognised that it is not unusual for junctions to be operating close to or at capacity in peak periods. It is this that has led to the statement in NPPF that development should not be refused on traffic grounds unless an impact is severe It is also evident that there are opportunities to address the impact of additional development. In addition to a series of identified measures to improve bus, cycle and pedestrian facilities these include: A Lowton Loop extension to the busway Potential rail station at Golborne and improved linkages to nearby Newton-le- Willows station which now has improved park and ride facilities Options for link roads and junction improvements affecting the Stone Cross and Pocket Nook sites 3.11 Whilst this may be sufficient to identify this as a Broad Location for development, it will be necessary to produce more specific evidence-based proposals in order to allocate specific sites for development. Morris Homes and Persimmon Homes 6

10 4 DELIVERABILITY AND POTENTIAL CONSTRAINTS Evidence of Deliverability and Viability 4.1 In the case of the land being promoted by Persimmon at Pocket Nook, issues of deliverability and viability do not arise. It is a greenfield site with no abnormal development costs in the strong housing market area of Lowton. The development of some 150 houses would not be strategic in scale and could be accommodated within the existing highway network. 4.2 Looking at the wider picture, all three strategic sites are greenfield. Although land values are lower in Golborne, this remains a reasonable market area within the context of Wigan. However, in order to rely upon the delivery of all three of the sites, more specific work would be necessary to determine the actual highways works proposed, their costs and how this would affect phasing. 4.3 The uncertainty reinforces the need for flexibility in the Core Strategy by not assuming that an excessive amount of development can be delivered in a relatively restricted geographic area during the plan period. Land Ownership Issues 4.4 The Pocket Nook site is in multiple ownership and so characterised by mixed deliverability, a point which was emphasised by Persimmon Homes in representations to the Council s consultation on addressing the shortfall. 4.5 A significant portion (almost half) of the Pocket Nook site at Carr Farm owned by Mr Adamson is undeliverable due to two significant constraints. This affects an area of 29.1 Ha, out of a total Ha. He confirmed in writing for a second time on 25 th January 2013 that he does not wish to sell the land. In addition, there has been a Morris Homes and Persimmon Homes 7

11 change in circumstances as HS2 is now proposed to pass through this site along the line of a disused railway. The test in NPPF paragraph 47 for sites in broad locations for years 6 to 15 is that the sites should be deliverable, which means in a suitable location for housing development, there should be a reasonable prospect that the site is available and that it could be viably developed at the point envisaged. 4.6 On this basis, Mr Adamson s land should remain as safeguarded rather than relied upon to deliver housing within the plan period. This therefore reduces the potential deliverability capacity at Pocket Nook by approximately 800 units. Components Size Notes 1) Whole (gross) ha Council figure 2) Net developable ha Council estimate 3) Persimmon ownership 7.3 ha Deliverable now 4) Brideoake Will Trust 4.9 ha Actively promoted by landowner 5) Gordon Moon ownership 12.1 ha Intentions unknown 6) Adamson 29.1 ha Not for sale / affected by HS2 7) Wigan Council 0.75 ha Former railway affected by HS2 Net developable if 6) and 7) subtracted ha dph (parag SHLAA ) Morris Homes and Persimmon Homes 8

12 4.7 In addition, the intentions regarding the area owned by Gordon Moon (12.1ha) is unknown. This area therefore also cannot be relied upon to deliver homes. 4.8 The only areas of Pocket Nook being actively promoted are that of the Persimmon Homes and Brideoake Will Trust land. The Persimmon Homes land could be developed immediately as there are no constraints affecting it. Technical work has already been carried as described above, including on transport and ecology. Infrastructure and Development Requirements 4.9 We have reviewed consultation responses and feedback provided by the Council. We do not propose to repeat these here, but in relation to schools, services and other infrastructure or site-specific constraints, we have seen no evidence that these could not be addressed as part of the development proposals as is normal for development of this scale and character We agree with the Council that it would not be possible to provide a local plan for the next 15 years, as required to do by national planning policy, if this could only be done where there were firm plans and funding commitments in place to meet the additional infrastructure requirements arising from development However, as with transport improvements, additional work will need to be undertaken to bring forward the sites in the Allocations DPD. Again this reinforces the need for flexibility in the Core Strategy which should not be reliant upon an excessive amount of development being delivered in a relatively restricted geographic area during the plan period. Morris Homes and Persimmon Homes 9

13 Other Potential Constraints 4.12 We are aware of discussions between the Council and Orica UK over the consultation zone for its site in Glazebury. It is apparent that this would have no impact on its development at Pocket Nook. 5 POTENTIAL ADVERSE IMPACTS AND MITIGATION 5.1 Whilst potential impacts and mitigation have already been discussed in this Statement, the Council s updated Sustainability Appraisal provides an overview for the sites in Golborne and Lowton combined. 5.2 The key negative impacts that are difficult to mitigate are largely a function of the fact that the sites involve greenfield development on the edge of an existing urban area. As we have noted earlier, the form, nature and extent of the development would otherwise be informed by the Appraisal and a desire to deliver a sustainable development. Any residual negative impact should be weighed against the positive impacts identified of providing aspiration and affordable housing which will boost economic growth, enhancing recreation, enhancing infrastructure, provision of health support and promotion of sustainable travel. 5.3 In conclusion, this is a Broad Location for development and it will be through the Allocations DPD that more specific proposals will be developed which will confirm the works required, their costs and how development must be phased in tandem with mitigation. However, it is already clear that 800 houses at Pocket Nook are not deliverable within the plan period. If the Inspector does decide to proceed with the Core Strategy in a revised form, alternative provision in Standish would help to compensate for this, reduce the localised impact of development and introduce flexibility to ensure deliverability. Morris Homes and Persimmon Homes 10

SESSION ON COUNCIL'S SPECIFIC PROPOSALS TO INCREASE SUPPLY OF HOUSING LAND - GOLBORNE AND LOWTON

SESSION ON COUNCIL'S SPECIFIC PROPOSALS TO INCREASE SUPPLY OF HOUSING LAND - GOLBORNE AND LOWTON EPP reference: RES3-7261-JC-jc February 2013 1. EXPLANATION OF COUNCIL S PROPOSAL AND MODIFICATION REQUIRED