Part 1
ITEM NO.
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REPORT OF THE STRATEGIC DIRECTOR FOR SUSTAINABLE REGENERATION
___________________________________________________________________
TO THE LEAD MEMBER FOR PLANNING AND TOWN TWINNING
ON MONDAY 6 JUNE 2011
___________________________________________________________________
TITLE: CORE STRATEGY PRE-PUBLICATION CHANGES AND
INTERIM HOUSING FIGURE CONSULTATION
___________________________________________________________________
RECOMMENDATIONS:
1)
That approval be given to the Core Strategy Pre-Publication Changes
document as set out in Annex 1 to this report and its use for public
consultation over the period Monday 20 June 2011 to Monday 1 August 2011.
2)
That at the same time, the city council consult on the use of the net housing
requirement and phasing as set out in the Pre-Publication Changes document
(Proposals C and D) on an interim basis until such time as the Core Strategy
is adopted.
___________________________________________________________________
EXECUTIVE SUMMARY:
It is proposed that an additional consultation should take place on the Core Strategy
in June/August 2011, before the Publication stage is reached in December 2011.
This consultation will serve two main purposes:
1)
2)
To allow people to suggest alternative options that are not in accordance with
the Regional Strategy (legislation currently requires the Core Strategy to be in
general conformity with the Regional Strategy, but the Government is
proposing through the Localism Bill to revoke all Regional Strategies later this
year, opening up new options for the Core Strategy); and
To comment on the significant changes that the city council is proposing to
make to the Core Strategy before it is submitted for public examination
(including a new housing requirement for Salford)
This ‘Pre-Publication’ consultation will help to ensure that stakeholders are fully
involved in the Core Strategy process and to minimise the risks of the Core Strategy
being found unsound at a public examination.
It is also proposed to consult at the same time on using the housing requirement and
phasing in the Pre-Publication Changes document on an interim basis until such time
as the Core Strategy is adopted. This is because the Government’s proposed
revocation of the Regional Strategy would leave Salford without an official housing
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figure, and so there would be no basis on which to calculate the city’s five-year
housing land supply.
___________________________________________________________________
BACKGROUND DOCUMENTS: None
(Available for public inspection)
___________________________________________________________________
KEY DECISION:
YES (item 42 on the May 2011 Forward Plan)
___________________________________________________________________
DETAILS:
1.
Background
1.1
In November 2009, the city council published a Draft Core Strategy covering
the period 2007-2027. It had been intended that the Publication Core Strategy
would be released in August 2010, prior to it being submitted to the Secretary
of State for a public examination. However, progress has been delayed whilst
the city council has been determining the most appropriate way to respond to
the Government’s proposed revocation of the Regional Strategy and other
changes to the planning system.
1.2
The proposal to revoke existing Regional Strategies is contained in Clause 89
of the Localism Bill. They would be revoked on the day of enactment, which is
currently expected to be in November 2011. All of the options that the city
council has previously considered as part of the Core Strategy process have
been in general conformity with the Regional Strategy, as required by Section
24 of the Planning and Compulsory Purchase Act 2004. Similarly, the city
council has advised others that any alternative options that they suggest
should also be consistent with the Regional Strategy.
1.3
The revocation of the Regional Strategy will open up new options that have
not previously been considered by the city council. Given that one of the tests
of soundness at the public examination will be whether the Core Strategy
represents the most appropriate option when considered against alternatives,
it will be important to ensure that stakeholders have had the opportunity to
suggest alternative options that are not necessarily in general conformity with
the Regional Strategy before the city council produces its Publication Core
Strategy.
1.4
It is also proposed that the city council should take advantage of the new
freedoms that will result from the revocation of the Regional Strategy to
identify its own housing requirement for Salford rather than continuing to use
that set by the existing Regional Strategy. Furthermore, in order to minimise
the potential for problems during the public examination process, and to
maximise the amount of information that the city council has before finalising
its proposals, it is considered advisable to consult on any significant changes
that the city council wishes to make to the Core Strategy before it produces its
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Publication version and submits it to the Secretary of State for a public
examination. Some of these proposed changes result from the availability of
new and updated information.
1.5
An additional public consultation period is therefore proposed, which would
serve two main purposes:
1)
2)
To allow people to suggest alternative options that are not in
accordance with the Regional Strategy; and
To comment on the significant changes that the city council is
proposing to make to the Core Strategy before it is submitted for public
examination
1.6
Even though the consultation relates to a relatively small number of issues
rather than a fully revised draft Core Strategy, it is considered advisable that
the public consultation period cover a six week period (from Monday 20 June
2011 to Monday 1 August 2011).
2.
Proposed changes to the Core Strategy
2.1
The consultation document sets out a series of changes that are proposed to
the Core Strategy compared to the draft version that was published in
November 2009. The main changes are summarised below.
Time period
2.2
The time period of the Core Strategy is being updated from 2007-2027 to
2010-2030, to reflect the availability of more up-to-date information and to
ensure that there is at least a 15 year time horizon from the proposed date of
adoption as required by Government guidance.
Boundaries of the City Centre and the Regional Centre
2.3
The boundary of the Manchester/Salford City Centre within Salford is currently
the Inner Relief Road. It is proposed that it should be extended along Chapel
Street and the Crescent as far as the University, to reflect the city council’s
ambitions and the scale of development proposed for this area. This would be
similar to the incorporation of the Oxford Road Corridor within the city centre
definition in Manchester’s Publication Core Strategy.
2.4
The boundary of the Regional Centre is being extended to include the Salford
Innovation Park and the area to the north of Salford Quays that is likely to
form an important part of MediaCityUK (east of Weaste Cemetery and south
of Eccles New Road). This reflects the significant economic role of these
areas, and is considered to be consistent with the approach that Manchester
and Trafford have taken to the identification of the Regional Centre within their
districts.
Housing
2.5
A net housing requirement of at least 22,000 dwellings over the period 20102030 is identified, equating to an average of 1,100 dwellings per annum. This
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is based on household forecasts for the city, whilst making an allowance for
the extra households that would be generated by the city council’s economic
growth ambitions. It also assumes a reduction in the proportion of properties
in the city that are vacant, in accordance with the Private Sector Housing
Strategy. This housing figure is significantly lower than the 1,600 dwellings per
annum identified for Salford in the Regional Strategy (2003-2021), and the
1,688 dwellings per annum in the Draft Core Strategy (2007-2027).
2.6
An indicative phasing is included, recognising that housing delivery is likely to
be slower in the earlier part of the plan period due to the impacts of the
recession. This is important as it affects the calculation of the city’s five year
housing land supply requirement.
2.7
A mix of 40.9% houses and 59.1% apartments is proposed. This is a much
more even mix of dwellings than proposed in the Draft Core Strategy (28.1%
houses and 71.9%), and responds to concerns by members and other
stakeholders about the dominance of apartments in the supply of new housing
as well as reflecting significant changes in the housing market over the last
few years.
2.8
Around 43% of the new dwellings would be within the Regional Centre, 30%
in the rest of Central Salford, and 27% in Salford West. This compares with a
50/30/20 split in the Draft Core Strategy. The change in distribution largely
reflects the increased proportion of houses in the proposed supply. The table
below compares the scale of housing provision proposed in different parts of
the city with that identified in the Draft Core Strategy.
Area
Regional Centre
Crescent
Greengate
Liverpool Street
Ordsall Waterfront
Salford Central
Salford Quays
Rest of Central Salford
Broughton Park and Higher
Broughton
Charlestown and Lower
Kersal
Claremont and Weaste
Eccles New Road
Greengate North and Trinity
Lower Broughton
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Draft Core Strategy
(2007-2027)
Net
Proportion
dwelling
of city total
provision
Proposed changes
(2010-2030)
Net
Proportion
dwelling
of city total
provision
600
4,000
400
1,450
2,800
7,600
1.8%
11.9%
1.2%
4.3%
8.3%
22.5%
600
1,500
200
1,000
2,100
4,100
2.7%
6.8%
0.9%
4.5%
9.5%
18.6%
500
1.5%
400
1.8%
1,950
5.8%
1,900
8.6%
650
650
1,100
3,550
1.9%
1.9%
3.3%
10.5%
500
300
700
1,500
2.3%
1.4%
3.2%
6.8%
Area
Ordsall
Pendleton
Salford West
Eccles
Irlam and Cadishead
Swinton and Pendlebury
Walkden and Little Hulton
Worsley and Boothstown
Draft Core Strategy
Proposed changes
(2007-2027)
(2010-2030)
Net
Proportion Net
Proportion
dwelling
of city total dwelling
of city total
provision
provision
800
2.4%
500
2.3%
950
2.8%
800
3.6%
1,600
1,250
1,000
2,650
250
4.7%
3.7%
3.0%
7.9%
0.7%
1,800
600
800
2,100
600
8.2%
2.7%
3.6%
9.5%
2.7%
Regional Centre total
Rest of Central Salford total
Salford West total
16,850
10,150
6,750
49.9%
30.1%
20.0%
9,500
6,600
5,900
43.2%
30.0%
26.8%
Salford total
33,750
100.0%
22,000
100.0%
2.9
The figure for Worsley and Boothstown has been increased to reflect the fact
that this is the main location in the city where there is the potential to secure
higher value housing, helping to diversify the supply of new dwellings in
Salford. However, it would still be a relatively low figure compared to that
proposed for other areas of a similar size in the city. It is likely to require the
release of greenfield land to accommodate around 300 dwellings. The city
council will need to work with the local community and landowners to identify
the most appropriate sites.
Economic development
2.10 A net increase of 500,000m2 of office floorspace is proposed for the period
2010-2030. This is lower than the 650,000m 2 figure in the Draft Core Strategy
due to the impacts of the recession and the large amount of floorspace
completed over the period 2007-2010 (the first three years of the Draft Core
Strategy period, when 86,942m2 of floorspace was completed). However, it
still represents an ambitious target, above forecasts from the Greater
Manchester Forecasting Model, supporting the aim to significantly enhance
economic growth levels.
2.11 The provision of 400,000m2 of new industrial and warehousing floorspace is
proposed (a gross rather than net figure). This is below the 460,000m2 figure
in the Draft Core Strategy, due to a reassessment of the sites likely to come
forward and the intention to no longer support the release of 40 hectares of
Green Belt land at Barton for employment development. It is considered that
the demand for and suitability of any such Green Belt proposal needs to be
assessed in a Greater Manchester context, to ensure that there is no
unnecessary development in the Green Belt. It would also seem appropriate
to assess the actual impacts of the major development and transport
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infrastructure proposals already permitted in that part of the conurbation
before deciding whether to release further land for development.
2.12 It is estimated that approximately 420,000m 2 of existing industrial and
warehousing floorspace could be redeveloped for other uses such as housing
over the period 2010-2030, equating to around 119 hectares of land. This is
lower than the figure of 130 hectares in the Draft Core Strategy due to the
lower amount of new floorspace proposed that would offset the loss of existing
floorspace, and updated job forecasts from the Greater Manchester
Forecasting Model.
Retail development
2.13 The new Salford Retail and Leisure Study has been used as the basis for
estimating the amount of new retail floorspace that could be accommodated
within the city centre, town centres and local centres over the period 20102030, taking into account the proposed scale and distribution of residential
development. It has been assumed that an improvement in retail provision
within these centres would enable a small increase in the proportion of Salford
residents’ expenditure that is spent within the city.
2.14 The proposed scale of growth in most of the centres will be taken up by
existing planning permissions and completions since April 2010. The main
exceptions to this are:

Swinton Town Centre – potential for a new medium-sized superstore or
equivalent

Pendleton Town Centre – potential for around 4,000m2 of comparison
goods floorspace (in addition to that proposed in the new Tesco)

Salford Quays (new town centre designation) – potential for around
11,000m2 of comparison goods floorspace, and a small amount of
convenience goods floorspace

Greengate – potential for around 4,000m2 of comparison goods
floorspace, and a small amount of convenience goods floorspace

Lower Irlam Local Centre – potential for around 3,000m2 of comparison
goods floorspace, and a small amount of convenience goods
floorspace
2.15 The Retail and Leisure Study will be published alongside the Pre-Publication
Changes as part of the evidence base.
Sustainable energy
2.16 The proposed approach is focused around ensuring that new developments
move as far up the energy hierarchy as possible, with a strong emphasis on
minimising energy demand. A diagram is included showing the main
sustainable energy opportunities in the city, including district heating network
development areas, but it is not proposed to require a specific technological
solution in particular locations as this would be inflexible and would not take
account of individual site circumstances or continual changes in the costeffectiveness of different technologies.
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2.17 The national targets relating to reductions in carbon dioxide emissions
associated with new developments compared to the 2006 building regulations
(44% reduction by 2013 and 100% reduction by 2016) have been included as
local targets, to ensure that any potential changes at a national level do not
weaken the city council’s efforts to significantly reduce overall carbon
emissions from within Salford.
2.18 Maximum emission standards have been proposed for biomass-fired energy
facilities, to ensure that they do not lead to a worsening of air quality in the
city. This will help to protect public health.
2.19 The proposed changes seek to support the move towards an increased use of
electric vehicles. This would involve all new residential garages and secure
marked-out residential car parking spaces having to include an electrical
socket suitable for charging electric vehicles. It is also proposed that nonresidential developments providing 200 car parking bays or more should
provide rapid charging points in at least 3% of those bays.
3.
Next steps on the Core Strategy
3.1
The responses to the consultation will be taken into account in the
development of the Publication Core Strategy, which it is proposed will be
approved at the full council meeting in November 2010.
3.2
The timetable for the rest of the Core Strategy process is set out below.
Stage
Pre-publication consultation
Publication and period for representations
Submission to the Secretary of State
Public examination
Adoption
Dates
June to August 2011
December 2011
to January 2012
March 2012
July to August 2012
January 2013
4.
Interim housing figure
4.1
The proposed revocation of the Regional Strategy will leave Salford without
any identified housing requirement in its development plan. This will create
uncertainty and problems in determining planning applications, because the
concepts of housing need and a five-year housing land supply are often at the
heart of decisions on residential schemes. It is therefore important that the city
council clarifies its position.
4.2
It is proposed that the housing figure and phasing contained in the PrePublication Changes document should be adopted by the city council on an
interim basis until the Core Strategy has been adopted, as they are
considered to be the most appropriate basis on which to calculate Salford’s
five-year housing land supply. The consultation on the Pre-Publication
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Changes document would double up as a consultation on this proposed
interim figure, with this being explained in a separate covering letter rather
than within the Pre-Publication Changes document itself. It is then anticipated
that the interim figure would be adopted by full Council in November 2011.
5.
Recommendations
5.1
It is recommended that:
1)
2)
The Core Strategy Pre-Publication Changes document be approved for
public consultation over the period Monday 20 June 2011 to Monday 1
August 2011.
At the same time, the city council should consult on the use of the net
housing requirement and phasing in the Pre-Publication Changes
document (Proposals C and D) on an interim basis until such time as
the Core Strategy is adopted.
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KEY COUNCIL POLICIES: Local Development Framework
___________________________________________________________________
EQUALITY IMPACT ASSESSMENT AND IMPLICATIONS: See separate
Community Impact Assessments in Annex 2 and Annex 4 to this report
___________________________________________________________________
ASSESSMENT OF RISK: Medium – If the city council seeks to move straight to the
Publication stage without this Pre-Publication consultation then there is a risk that
the public examination might conclude that there has been insufficient opportunity for
people to suggest alternative options or to influence proposals on key issues such as
the scale and distribution of housing. If an interim housing figure is not adopted then
it will make it more difficult to determine planning applications, as there will be no
agreed basis on which to calculate whether additional housing is required.
___________________________________________________________________
SOURCE OF FUNDING: Local Development Framework budget
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LEGAL IMPLICATIONS Supplied by Nicky Smith (ext 3083)
In view of the changes to be effected if the Localism Bill is enacted as proposed, it is
important for the Council to take into account the new options which will be available
once existing Regional Strategies are revoked. As the report states, this is an
opportunity to invite representations from stakeholders at an early stage and will
show that the Council has taken every opportunity to engage in consultation.
___________________________________________________________________
FINANCIAL IMPLICATIONS Supplied by Stephen Bayley (ext 2584)
Additional consultation will be funded from the Local Development Framework
budget.
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___________________________________________________________________
OTHER DIRECTORATES CONSULTED: Environment Directorate in relation to
biomass policy
___________________________________________________________________
CONTACT OFFICER: David Percival
TEL. NO. 0161 793 3656
___________________________________________________________________
WARD(S) TO WHICH REPORT RELATE(S): All
___________________________________________________________________
Annexes
1. Core Strategy Pre-Publication Consultation Document
2. Core Strategy Pre-Publication Consultation Document Community Impact
Assessment Screening Report
3. Core Strategy Pre-Publication Consultation Document Sustainability Appraisal
4. Proposed Interim Housing Figure Community Impact Assessment Screening
Report
5. Proposed Interim Housing Figure Sustainability Appraisal
6. Core Strategy Housing Supply: Potential Sites from the Strategic Housing
Land Availability Assessment and Windfalls
Pre-publication
Pre-publication CIA
consultation 3 (3).doc
(3).doc
SHLAA Annex
(3).doc
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Pre-publication SA
(3).doc
Housing figure CIA
(3).doc
Housing figure SA
(3).doc