Harlowbury Land North of Gilden Way Planning Statement Barratt Strategic Persimmon Homes Taylor Wimpey January 2011
LDA DESIGN 14 Wells Mews London W1T 3HF Tel: 020 7467 1470 Fax: 020 7467 1471 www.lda-design.co.uk
LAND NORTH OF GILDEN WAY, HARLOW OUTLINE PLANNING APPLICATION BY BARRATT STRATEGIC, PERSIMMON HOMES AND TAYLOR WIMPEY UK SUPPORTING PLANNING STATEMENT Residential-led mixed use development comprising approximately 1,200 dwellings, community, commercial, open space uses and associated infrastructure 01.134 February 2011 49 North Hill, Colchester Essex CO1 1PY T 01206 769018 F 01206 564746 colchester@boyerplanning.co.uk www.boyerplanning.co.uk
CONTENTS Page No. SECTION ONE - INTRODUCTION 1 SECTION TWO - THE PROPOSAL 2 2.2 Site and Surroundings 2 2.3 The Proposed Development 2 SECTION THREE - PLANNING HISTORY 5 3.2 Original Planning Application 5 3.3 Harlow Local Plan 5 3.4 Replacement Harlow Local Plan 7 3.5 Summary 8 SECTION FOUR - THE PLANNING JUSTIFICATION FOR PERMISSION 9 4.3 Regional Spatial Strategy 9 4.4 Local Development Scheme 11 4.5 Housing Land Supply 12 4.6 PPS3 14 4.7 Alternative Options 17 4.8 Affordable Housing Needs 18 4.9 Contribution to Wider Planning Objectives 20 SECTION FIVE - CONCLUSIONS 21 APPENDICES 1. ILLUSTRATIVE MASTERPLAN
SECTION ONE - INTRODUCTION 1.1 This Statement is submitted in support of an outline planning application by Barratt Strategic, Persimmon Homes and Taylor Wimpey in respect of land north of Gilden Way, Harlow. 1.2 It forms one of a composite suite of documents accompanying the application, the others being: Design & Access Statement; Environmental Statement; Transport Assessment (within the Environmental Statement); Flood Risk Assessment (within the Environmental Statement); Statement of Community Engagement. 1.3 The role of this document is to provide an overarching statement which explains the background to the proposal, its compatibility with planning strategy and the justification for the grant of planning permission at this time. 1.4 For a more detailed explanation of the proposal and its implications in relation to the site and surroundings, reference should be made to the documents listed above, and in particular the Design & Access Statement and Environmental Statement. 1
SECTION TWO - THE PROPOSAL 2.1 This Section provides a brief description of the site and the development principles of the proposed scheme. 2.2 Site and Surroundings 2.2.1 The site comprises 62.58 hectares of land lying on the eastern edge of Old Harlow, bounded to the south by Gilden Way and to the north by the railway line. 2.2.2 The southern 37.5 hectares of the site is designated in the Replacement Harlow Local Plan as a Special Restraint Area (SRA), i.e. land excluded from the Green Belt and reserved for future development. The background to and implications of this designation are addressed later in this Statement. The remaining northern part of the land is within the Green Belt. 2.2.3 The majority of the site is currently in agricultural use, occupied on an agricultural tenancy from Harlowbury Estates, the freehold owners of the site. The present applicants have the necessary contractual control of the site by agreement with Harlowbury Estates to promote and implement the present scheme. 2.2.4 Detailed descriptions and analyses of the site are provided in the Design & Access Statement and the Environmental Statement. 2.3 The Proposed Development 2.3.1 The application proposes a residential-led mixed-use scheme comprising up to 1,200 dwellings and associated facilities. The land use budget for the scheme is as follows: 2
Land Use Ha School 2.16 LEAPs 1.18 NEAPs 1.58 Sports Pitches 6.34 Allotments 1.49 Internal Open Space 1.62 Balancing Ponds 1.37 Ecological Mitigation and Landscape (Green Belt) 17.12 Residential and Mix Use Area 29.72 Total 62.58 2.3.2 The proposed scheme is identified on the Illustrative Masterplan attached to this Statement at Appendix 1. For the purposes of Circular 01/2006 the scheme is described on the Parameters Plans and accompanying schedules. The principal components are: Approx. 1200 dwellings in a range of types and sizes including up to 33% affordable housing Land for a primary school A mixed use area comprising facilities for shops, live work units and community uses, such as early years/nursery provision, adult learning hub, space for visiting health workers, library provision Public open space comprising sports pitches, children s play space and allotments, in addition to internal open space, in accordance with local authority standards A substantial area of ecological mitigation and landscaping within the Green Belt Two vehicular access points from Gilden Way, the primary one being at the Churchgate Street roundabout Retention and enhancement of pedestrian routes and provision of new pedestrian/cycle routes within the site. 2.3.3 As the site is in the control of housebuilders, it is immediately available for development. Moreover the fact that three separate companies have been involved in the promotion of the scheme from the outset will enable the completion rate to 3
be maximised. This will optimise contributions to the 5 year housing land supply. It will also ensure that the scheme provides a wider range of house types than would be the case if only a single developer was involved. 4
SECTION THREE - PLANNING HISTORY 3.1 The site has an extensive planning history during which it has been recognized as suitable for development through both the development control and development plan processes. This Section summarizes the relevant history. 3.2 Original Planning Application 3.2.1 The first indication of the site's development potential was contained in a Consultation Plan published by Essex County Council in 1982. It was identified as a possible option to accommodate future growth at the town. Harlow Council acquired an option to develop the site and in 1985 produced proposals for a scheme involving 800-1,200 dwellings covering both the SRA and the Green Belt area within the site. 3.2.2 A deemed planning application was submitted by the Council in 1986 for a development of 1,200 dwellings on this basis. That application, together with an application involving some 3,500 dwellings at Brenthall Park (Church Langley) was called in for determination by the Secretary of State. As a result of a Public Inquiry, planning permission was granted for the Church Langley scheme but refused for the Gilden Way scheme. Following this decision the Council's Option on the site lapsed and it was acquired in August 1990 by Harlowbury Estates, the present owner. 3.3 Harlow Local Plan 3.3.1 A Consultation Draft of the Harlow Local Plan was published in 1987. It identified the site for housing. The allocation was however removed from the Deposit version of the Plan in November 1990 which proposed that it be included within the Green Belt. Harlowbury Estates objected to this proposal, seeking a housing allocation for 600-800 dwellings on the area now within the SRA. Following the Local Plan Inquiry the Inspector recommended that the site be allocated. He commented at para. 3.6.8 of his Report: 5
"This site is therefore the only site proposed at the Inquiry that could meet the whole of the housing shortfall in the Plan period. It is also a single selfcontained site which could be developed as a neighbourhood unit and has no practicable possibility of extension. In my opinion this site is the most suitable for allocation in Policy H1 to meet the shortfall." 3.3.2 Harlowbury Estates made two further planning applications for housing in 1990. As a result of refusals by the Council, one of these was the subject of an Appeal Inquiry in June - October 1992. The Appeal was dismissed. By the time that the Appeal was under consideration, the Council had already resolved that the site should be designated Green Belt and that land at New Hall Farm (Newhall) should be allocated for 440 dwellings with the remainder removed from the Green Belt as an SRA. The Local Plan was adopted on this basis in April 1995. 3.3.3 Harlowbury Estates challenged the adoption of the Plan and the case was heard in the High Court in January 1996. The Court ordered that the policies allocating Newhall for housing and land north of Gilden Way as Green Belt should be quashed. This represents the position as shown on the adopted Local Plan of 1995. 3.3.4 As a result of the Court's decision there was a shortfall in the housing land supply to 2001. This matter was addressed through a Second Alteration to the Local Plan which was adopted in December 1998. It allocated Newhall for housing but confirmed the removal of the Gilden Way site from the Green Belt and its identification as an SRA. 3.3.5 In 1994 further planning applications had been submitted on both the Gilden Way site and Newhall for 440 dwellings. Appeals were lodged. The Appeal in respect of this site was subsequently withdrawn but planning permission was granted for the Newhall development which is now under way. 6
3.4 Replacement Harlow Local Plan 3.4.1 The Borough Council commenced work on a Replacement Local Plan in the late 1990s and it was eventually adopted in July 2006. It covers the period to 2011 in accordance with the former Essex and Southend-on-Sea Structure Plan (April 2001). 3.4.2 The Draft Plan retained the SRA and Green Belt designations as they affect the site. At the Local Plan Inquiry in 2004 the Inspector heard arguments in favour of both allocating the SRA land for housing and extending the Green Belt to cover it. At para. 15.6.11 of his Report the Inspector confirmed the appropriateness of the Gilden Way site for future development: "In summary, therefore, I recognize that the suitability of land north of Gilden Way for development has been established in principle". 3.4.3 However he concluded that adequate housing provision could be made from other sources of supply, including allocated land at Newhall. He did not support the suggestion that the Gilden Way site be added to the Green Belt but proposed the deletion of SRA status as being out of line with the 'plan, monitor and manage' approach established by PPG3. 3.4.4 The Council published Proposed Modifications to this effect in 2005 which resulted in a further Public Inquiry. On that occasion the Inspector concluded that SRA designation was a "useful planning tool" and that the designation should be restored, at least as far as the present site is concerned. The Council accepted that recommendation, resulting in the current SRA designation. 3.4.5 The site is now the only SRA identified in the adopted Local Plan (reference NE5/1). This status recognizes its inherent suitability for development. The policy therefore seeks to prevent development which would prejudice its ability to be developed for longer-term needs. It states that release for this purpose would need to follow a Review of the Local Plan. 7
3.4.6 This Review is underway in the form of the Harlow Local Development Framework, commencing with the recent Core Strategy Issues and Options consultation (November 2010). The latest (2009-2010) Harlow Annual Monitoring Report (AMR), includes the application site as part of a committed capacity for around 5,000 dwellings in the town. The AMR assumes the site will deliver 400 dwellings as a contribution to the current 5 year housing land supply. 3.5 Summary 3.5.1 The planning history of the site demonstrates that it has been recognized as being suitable for development for some 25 years. This has resulted in a positive allocation of the site for housing on two occasions during the preparation of the Harlow Local Plan and the submission of planning applications in the 1980s and 1990s. 3.5.2 Although past proposals were ultimately rejected, this did not represent a judgement on the suitability of the site for housing but merely an issue of timing on grounds of housing need arising from a decision to develop, first, Church Langley and, second, Newhall. 3.5.3 The present status of the site as SRA recognises its suitability for housing. The site now forms part of the committed supply of housing and is relied on by the Council to achieve 400 completions by March 2016. 8
SECTION FOUR - THE PLANNING JUSTIFICATION FOR PERMISSION 4.1 A comprehensive review of planning policy at national, regional, county and local levels relevant to the application is set out in the Environmental Statement. This Statement does not seek to replicate that material but instead focuses on those elements of the planning policy framework which are relevant to considering the merits of the release of the site for a housing-led development at this time. 4.2 This Section sets out the justification for the grant of permission in the context of the following matters: Regional Spatial Strategy; The Emerging Local Development Framework; Housing Land Supply; PPS3; Alternative Options; Affordable Housing Needs; Contribution to Wider Planning Objectives. 4.3 Regional Spatial Strategy 4.3.1 The Government's Sustainable Communities Plan of 2003 identified Harlow as part of one of the designated Regional Growth Areas. This growth status has subsequently been reflected in the Regional Spatial Strategy, the East of England Plan (published May 2008). Through the various preparatory stages of the RSS, the precise scale and location of growth at Harlow varied. The principle has however remained the same, namely to provide for substantial growth, which has been confirmed in the final version of the East of England Plan. 4.3.2 Para. 13.55 of the East of England Plan expresses the matter as follows: "The expansion of Harlow provides a major opportunity to address the substantial need for economic and physical regeneration of the post-war new town, to meet a significant proportion of the development needs of the London Stansted Cambridge Peterborough growth area to 2021 and beyond, 9
including in regard to employment activities related to the growth of Stansted Airport and housing, and to enhance Harlow's sub-regional status as an important centre for the surrounding areas of Essex and Hertfordshire." 4.3.3 Policy H1 requires a minimum of 16,000 dwellings to be built at Harlow over the period 2001-2021, including urban extensions to the town in Epping Forest and East Hertfordshire Districts. This represents an annual housing provision of at least 800 dpa. The policy records that completions over the period 2001-2006 totalled 810 dwellings so that the requirement for the remainder of the period (2006-2021) is 15,190 (i.e. 1,010 dpa). Monitoring information obtained from Harlow Council (AMR 2009-2010) calculates a total of 1,478 completions over the 9 year period 2001 2010. On this basis the requirement for the remainder of the period is 14,522 (i.e. 1,320 dpa). 4.3.4 Policy HA1 of the East of England Plan proposes that the required additional housing should be provided: within the existing area of the town; through urban extensions to the north, east and (on a smaller scale) the south and west. The supporting text emphasizes the need for an early and sustained emphasis on regeneration and development from the first of these categories. 4.3.5 The capacity of the SRA at Harlow was consistently included in the RSS process as contributing to the available supply of housing land. Thus the established recognition of the Gilden Way site's suitability for housing (and its omission from the Green Belt) demonstrates that it represents a priority source of greenfield land. It is distinguishable from the majority of the land proposed for urban extensions which is currently within the Green Belt. The East of England Plan specifies the need for a review of the Green Belt boundary to accommodate those urban extensions. 4.3.6 Policy HA1 of the RSS sets out a comprehensive strategic planning policy for the growth and regeneration of Harlow. It requires "joint or co-ordinated 10
Development Plan Documents" to determine the distribution of growth between the proposed urban extensions, as part of a development strategy "which promotes Harlow's regeneration, is as sustainable as possible and can be implemented at the required pace". Para. 13.62 comments that the growth required by the East of England Plan "represents a significant uplift from that in recent years." It is stated that an appropriately fast rate of delivery will need to be ensured. 4.3.7 The East of England Plan represents current and up to date policy as part of the Development Plan, having been published in May 2008, albeit that the stated intention to abolish this tier of policy in the future is a material consideration. 4.3.8 Irrespective of the future status of RSS, the principle of a significant increase in housing provision and the role of SRA and other land currently outside the Green Belt, is not in question. The recent Core Strategy Issues and Options consultation confirms the commitment of Harlow Council to continue to pursue a strategy of growth of the order set out in the Regional Strategy in support of regeneration objectives. 4.4 Local Development Scheme 4.4.1 Harlow Council's latest LDS (Issue 4), was published in 2007. It identifies the Core Strategy and Site Specific Allocations DPDs (the two DPDs most relevant to delivering the housing strategy) as running in parallel, although this is no longer intended to be the case. The LDS suggested that both elements would commence with Issues and Options consultation in Spring 2008, and eventual adoption by May 2011. In reality the first stage consultation on the Core Strategy has only recently ended, in January 2011, and therefore substantial slippage against this programme is inevitable. 4.4.2 Delivery of the major urban extensions proposed in the East of England Plan depends on both these DPDs as well as DPDs in the adjoining Districts of East Hertfordshire and Epping Forest.. This is primarily because they represent a 11
significant departure from existing planning policy, most obviously a detailed Green Belt Review which can only be conducted through the development plan process. 4.4.3 So far as Harlow itself is concerned, the Growth Strategy to which the Council is committed will require not only committed housing capacity (which includes the SRA at Gilden Way) but also an urban extension in the Green Belt. Given the timescales discussed above it will be several years before there will be an adopted development plan providing the necessary policy framework for the release of Green Belt land to facilitate that urban extension, especially as there is no intention to include any strategic allocations within the Core Strategy. 4.5 Housing Land Supply 4.5.1 In the meantime, the supply of housing land is restricted to allocations in the Replacement Harlow Local Plan, other outstanding commitments and informally identified sites. Notably this includes land north of Gilden Way, where delivery is assumed from 2012/13 onwards, within the Housing Trajectory at Appendix 1 of the latest AMR. This identifies the following rate of completions over the five years 2011/12-2015/16 based on these sources: 2011/12 282 2012/13 467 2013/14 279 2014/15 284 2015/16 165 Total 1,477 4.5.2 It is clear that Harlow is extremely restricted in terms of housing land supply. The following table indicates the number of years supply that this provision represents on the basis of the relevant minimum dwelling requirement contained within the emerging Harlow Core Strategy, and as regards Harlow as a whole the East of England Plan, both centred on Harlow as a whole and the levels assumed to relate to the administrative area of Harlow District. 12
Source : Harlow 2009-2010 AMR Harlow District (Growth Strategy/ Core Strategy) Harlow Area (East of England Plan Policy H1) Minimum Requirement 2001-2021 8,000 16,000 Completions 2001-2010 (9 Years) 1,478 1,478 Remaining Requirement 2010-2021 6,522 14,522 (11 Years) Pro-rata Requirement 20011-2015 2,965 6,601 Annual Requirement 593 1,320 Supply 1,477 1,477 No. Years Supply 2.5 1.1 4.5.3 The Table demonstrates that there is a very restricted supply (even assuming it is all deliverable) when measured against either requirement, therefore clearly failing to achieve the PPS3 requirement to maintain a minimum five year supply of housing land. Even allowing for delivery of only the provision intended within the Harlow administrative area, only a 2.5 year supply can be demonstrated. It is also clear that, as confirmed within the AMR, only 49.82% of this provision can be met from existing sources. As noted above these existing sources rely on a contribution of 400 dwellings from land north of Gilden Way. 4.5.4 It is further evident from this table that housing delivery performance in the nine year period from 2001 to date has been particularly poor, at an average of 164 dwellings per annum. This highlights the step-change in completions that is required to meet the requirement, with the emphasis on moving to this higher rate at the earliest opportunity, clearly not facilitated by the current housing land supply and LDF situation. 4.5.5 On this basis the present supply is wholly inadequate, especially in the context of government policy considered in the following paragraphs. Given the inevitable delays in bringing other sites forward through the LDF process, there is clearly a need to facilitate delivery of sites where the principle of development is accepted in a timely manner through the development control system. 13
4.6 PPS3 4.6.1 PPS3 represents the government's current housing policy, issued in June 2010. Para. 2 states that a principal aim of the guidance is "to underpin the Government's response to the Barker review of housing supply and the necessary step-change in housing delivery, through a new, more responsive approach to land supply at the local level". Subsequent pronouncements by Government, including the Housing Green Paper of July 2007, have given further emphasis to the drive to increase housing delivery. 4.6.2 PPS3 sets out a number of measures to achieve the Government's objectives, focusing in particular on the need to deliver a flexible supply of land for housing. One facet of this is that Local Authorities should not refuse applications solely on the grounds of prematurity (para. 72). This is of particular relevance having regard to the lengthy programme for the Harlow LDF as set out above, in addition to its limited housing land supply situation. 4.6.3 Also relevant in this context, para. 68 states that when making planning decisions for housing developments after 1st April 2007, Local Authorities should have regard to the policies in PPS3 as a material consideration "which may supersede the policies in existing development plans". This is also relevant to the application site in view of its recognized suitability for housing. The only consideration which has militated against its release to-date has been a perceived lack of housing need. Plainly that no longer applies, as acknowledged by Harlow Council. 4.6.4 Another significant measure in PPS3 designed to stimulate housing delivery is the requirement that Local Authorities should be able to identify a five year supply of housing land from deliverable sites. Windfall allowances should not be included for the first ten years (para. 59). To be considered deliverable para. 54 states that sites should: 14
be available now; be in a suitable location and able to contribute to the creation of sustainable, mixed communities; be achievable, i.e. with a reasonable prospect that housing will be delivered within five years. 4.6.5 Para. 71 of PPS3 states that where Local Authorities cannot demonstrate an up-todate five year supply they should give favourable consideration to planning applications for housing, subject to other policies within the PPS. As set out above, the current housing supply is only 2.5 years in terms of the Council s proposed target for the district alone is used, or 1.1 years measured against the East of England Plan requirement. In either case this is significantly below the required five year minimum. In these circumstances PPS3 sets out a presumption in principle in favour of the grant of planning permission. 4.6.6 Para. 69 sets out five considerations that Local Authorities should have regard to in deciding planning applications: achieving high quality housing; ensuring developments achieve a good mix of housing; the suitability of the site for housing, including its environmental sustainability; using land effectively and efficiently; ensuring the proposed development is in line with relevant objectives, reflecting the need and demand for housing and the spatial vision for the area. 4.6.7 These criteria are all met by the scheme. The first four are explained in the Design & Access Statement whilst the fifth has been addressed in this Statement in the context of the spatial strategy for Harlow set out in the East of England Plan, and carried forward by the emerging LDF. 15
4.6.8 These considerations represent a fundamental change of circumstances since the adoption of the Replacement Local Plan. The prospect that planning applications determined in accordance with PPS3 may conflict with existing Local Plans is addressed in PPS3 in two ways. 4.6.9 The application site represents a crucial element of housing land supply without which the current housing shortfall would be even more severe. At approx. 1,200 dwellings in total it represents 2 years supply on the basis of the current annual requirement of 593 for Harlow District set out above. Moreover, the total capacity also exceeds the AMR assumption of 1,000 dwellings and thus, in the longer term as well the site can make an increased contribution to provision. 4.6.10 The applicants estimate that, notwithstanding the assumption in the AMR, 625 dwellings would can be completed and contribute to supply over the initial 5 year period (see para. 4.6.12 below). This itself equates to 1.1 years of housing land supply. 4.6.11 Once outline planning permission is granted commencement of house construction is dependent on further approvals for infrastructure and house construction (reserved matters). Preparation of a planning application for the details of infrastructure required for Phase 1 and work on a Design Code will commence immediately following submission of the outline application, thus facilitating early delivery. 4.6.12 The following table illustrates the likely delivery programme assuming that planning permission is granted by Harlow Council in the statutory 16 week period. 16
Stage Date Outline Permission August 2011 Further Approvals March 2012 Commencement March 2013 150 Completions March 2014 225 Completions (375) March 2015 250 Completions (625) March 2016 250 Completions (875) March 2017 250 Completions (1,125) March 2018 75 Completions (1,200) December 2018 Development Complete (1200) December 2018 4.7 Alternative Options 4.7.1 In accordance with PPS3 the Council's housing trajectory takes account of all identifiable sources of existing housing capacity The only means of increasing housing delivery in the short-term is through the release of additional greenfield land. Apart from the application site, other potential sources might include increased rates of development at New Hall, and urban extensions relating to the East of England Plan strategy. 4.7.2 In terms of the former the rate of completions to-date at Newhall has been notoriously slow. Over the nine years between 2001 2010 a total of 402 dwellings were completed, an average of 44.7 dwellings a year. Although this includes the recent recession the period before the down-turn was similarly slow.. This is considered to reflect the lack of direct involvement by housebuilders, which is in marked contrast to the situation at Gilden Way. The housing trajectory assumes a continuation of build rates at New Hall, at 50 dwellings per annum, although even this may be optimistic where the phases overlap, on evidence of past performance. Any further increase over the five year period would therefore be unrealistic; 4.7.3 Unlike the application site, the further urban extensions that would implement the strategy of the East of England Plan involve the release of Green Belt land and, must therefore be pursued through the development plan process in accordance with national policy (PPG2). Those lying in the adjoining Districts are in any event 17
reliant on decisions to be taken by the respective local authorities which are outside the control of Harlow Council. These urban extensions are also major sites which are dependent on new strategic infrastructure. 4.7.4 Thus neither of these other sources represents a realistic means of increasing housing land supply in the short-term. The application site is immediately available for development and is not dependent on any review of Green Belt or other strategic policy designation. Its delivery, which is by comparison unconstrained, is relied upon to achieve even the low levels of housing land supply, and as noted above provides an opportunity to achieve slightly higher contributions to the 5 year housing land supply than have been allowed for in the AMR. 4.7.5 The site is already safeguarded for future development dependent on the identification of housing need. The expectation in the Local Plan that its release would be considered through a Review of the Local Plan is now overtaken given the scale of housing proposed by Harlow Council through its LDF process, government policy in PPS3 and the impending reform of the development plan process. 4.8 Affordable Housing Needs 4.8.1 A key component of the Government's housing delivery strategy is to improve affordability. PPS3 provides guidance on measures to achieve this in terms of the provision of both market sector and affordable housing. 4.8.2 Based on a Housing Needs Survey (2000), the Adopted Replacement Local Plan identifies an affordable housing requirement of 165 dwellings per annum, equivalent to 63% of the total housing provision. Policy H5 sets a baseline of 30% on eligible sites which was estimated to provide 501 affordable dwellings by 2011, leaving a shortfall of nearly 839. This situation has been updated within the Harlow Affordable Housing SPD (March 2007), based on a 2005 Housing Needs Survey, which sets a revised baseline of 33%. 18
4.8.3 The subsequent London Commuter Belt Strategic (East)/M11 Sub-Region Housing Market Assessment 2008 (Published January 2010), which covers the Harlow area, provides a further update. This reports that 750 households in Harlow (Figure 90) were at that time in housing need, although does also reflect that a lower percentage of affordable housing (20.5% social rented) as opposed to market housing (79.5%) is required (Figure 189). It is stated that the absence of a documented need for intermediate housing should not prevent this from coming forward as part of the tenure mix. It is also acknowledged, through reference to PPS3 (para. 29) that regard will need to be had to viability considerations. 4.8.4 It has become generally accepted, given recent economic conditions, that there is a need for flexibility to be applied, in order that overall housing delivery objectives are not harmed. This is a particularly important point given Harlow s restricted supply position, as detailed above. 4.8.5 The Council's Annual Monitoring Report (2009-2010) refers to Newhall and The Gateway scheme as providing a significant proportion of affordable units. Furthermore the AMR records 99 affordable housing completions in the District in the monitoring period (2009-2010), reporting that this represents an increase over previous years. 4.8.6 The application site therefore provides a further realistic opportunity to secure significant levels of affordable housing supply in the short-term. Based on a contribution of up to 33% it could generate as many as 400 units delivered over a 6 year period, subject to viability considerations and negotiation. This could address more than half of the level of housing need stated in the SHMA. 4.8.7 In the context of both identified local housing need and the thrust of Government policy to improve affordability, this represents a significant advantage to be derived from the current proposal. 19
4.9 Contribution to Wider Planning Objectives 4.9.1 The strategy for Harlow set out in the East of England Plan, and confirmed through the emerging LDF, is aimed at securing a broader package of economic and physical regeneration. The investment in new housing provision, contributing to meeting local and regional housing needs, is an important element of this. Similarly the recreation and community facilities in the scheme will enhance provision for the benefit of existing residents, especially in Old Harlow. 4.9.2 The scheme is expected to contribute to these broader planning objectives in a number of ways through enhanced physical and social infrastructure provision, through either on-site provision or by contributions towards off-site improvements as appropriate. This will be delivered in conjunction with the grant of planning permission by way of a Planning Agreement and/or Conditions. 4.9.3 The following Table sets out the items so far identified: Topic Area Affordable Housing Recreation/Open Space Education Transport Community Item Internal Open Space Play Areas Pitches Allotments Early Years/ Childcare Primary School Learning Hub/ Adult Education Roads Cycle/Pedestrian Travel Plan Community Space/Development Public Art 20
SECTION FIVE - CONCLUSIONS 5.1 This Statement accompanies an outline planning application for a housing-led mixed-use development on land north of Gilden Way. The site proposed for development is excluded from the Green Belt and safeguarded to meet future development needs. The Local Plan envisaged that the question of its release would be determined through a Review of the Local Plan. Circumstances have however changed fundamentally such that the release of the site at this time is now justified, and is indeed relied upon by Harlow Council as a significant contribution towards the short-term housing land supply. 5.2 A detailed description of the site and the proposed development is contained in other application documents, in particular the Design & Access Statement and the Environmental Statement. The recognized suitability of the site for housing extends back over some 25 years. At various times it has been proposed for housing by the County Council, the District Council and by Local Plan Inspectors but ultimately was held back on grounds of housing need in light of decisions to progress Church Langley and Newhall. 5.3 The site is formally designated as a Special Restraint Area which recognizes its suitability for longer-term development. The strategy of the Replacement Local Plan, adopted in 2006, is however based on work undertaken since the late 1990s and the strategic policy framework of the Replacement Essex and Southend-on- Sea Structure Plan of 2001. That policy framework is now significantly out-dated and in any event ceased to have effect from September 2007 onwards. 5.4 Subsequently the Government has identified Harlow as a key centre for development and change. It forms part of a Regional Growth Area in the Sustainable Communities Plan of 2003 and the Regional Spatial Strategy (East of England Plan) promotes growth as a means to meet both development needs and to secure the regeneration of the town. 5.5 Although it has been announced that the Government intends to abolish Regional Strategies, this currently remains a part of the Development Plan, and therefore 21
this vision for Harlow and the principle of substantial growth remain valid. In any event. the evidence base which underpinned the East of England Plan remains relevant, and Harlow Council have recently re-affirmed their commitment to delivering a growth strategy, reflecting this through the Core Strategy Issues and Options consultation. The strategy requires a significant increase in housing delivery. 5.6 A significant amount of the required provision is to be provided in urban extensions on the edge of the town on land that is to be released from the Green Belt in Epping Forest and East Hertfordshire Districts. The need for a Green Belt Review and the potential preparation of joint or co-ordinated DPDs between the Local Authorities mean that there is no prospect of these urban extensions providing a short-term increase in housing delivery. 5.7 The need for an increase is however urgent. The current supply is only 2.5 years in relation to an assumed 8,000 dwelling requirement for Harlow District, and just 1.1 years when measured against the minimum East of England requirement focused on Harlow as a whole. PPS3 expects Local Authorities to consider granting planning permission where there is less than a five year supply, provided to do so would not undermine other planning objectives. The recognized suitability of the application site, the lack of Green Belt or other strategic policy constraints and its immediate availability combine to provide a compelling justification for the release of the site now. Unlike other potential sites at Harlow it satisfies the tests of deliverability set out in PPS3 for sites which are to contribute to the five year supply. 5.8 On this basis, and having regard to all the submitted documentation, the current application is commended to Harlow Council for the grant of planning permission. Boyer Planning Limited February 2011 22
APPENDIX ONE ILLUSTRATIVE MASTERPLAN 23
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London Tel: 020 7467 1470 X:\JOBS\2984_Gilden_Way\6docs\Parameter Plans Harlowbury Fig. 3.6 Illustrative Masterplan No dimensions are to be scaled from this drawing. All dimensions are to be checked on site. Area measurements for indicative purposes only. Based upon Ordnance Survey map with the permission of the controller of H.M.S.O. Crown copyright, All rights reserved. 2010 Licence number 0100031673 LDA Design Consulting LLP. Quality Assured to BS EN ISO 9001 : 2000 Date: January 2011 Drawn: MW Scale: 1:5000 @ A3 Checked: MM Status: Final Approved: ChC Dwg. No: 2984_101