Plan Strategy

Introduction

2.1 The circumstances in which planning takes place are constantly changing and planning policies must take account of the latest social and economic trends, together with the latest guidance from Government and other bodies. The strategy of the Local Plan is set within the context of the Government’s aims for sustainable development and has been strongly influenced by the latest Government thinking on planning matters set out in the series of Planning Policy Guidance notes. Particularly influential is the guidance PPG3: Housing which sets out the Government’s sequential approach to the sustainable development of housing; with the emphasis on the use of previously developed sites within the built-up area and need for new development to be accessible by public transport. The Plan has however been prepared in the light of the full range of PPG advice, which covers topics such as Housing, Industrial and Commercial Development, the Countryside and the Rural Economy, Nature Conservation, Historic Buildings and Conservation Areas, Sport and Recreation, Tourism, Pollution and Noise.

2.2 Regional Planning Guidance for the South East (RPG9) was published March 2001. RPG9 sets key development principles for the region which include: increasing the attractiveness of urban areas with the emphasis on developing previously used sites before greenfield land; aiming to create a less dispersed and more sustainable pattern of development and activity; encouraging economic growth; providing sufficient housing for all who work and live in the Region as well as providing a better mix of sizes and types; continuing the protection of the environment, landscape and heritage and achieving better use of the Region’s natural resources; encouraging rural diversification and improved access to jobs and facilities; and reducing the need to travel.

2.3 The north part of Mid Sussex lies just on the edge of the western arc, an area to the west and south of London defined in RPG9, where it is recognised that there is pressure for economic growth and additional employment development but that due to environmental and policy constraints and transport congestion an element of restraint is required. Whilst the importance of Gatwick to the sub-regional economy and the need for associated growth is recognised the area is not identified in RPG9 for regionally significant growth. However, attention must be given to accommodating the additional housing required to serve employment growth, much of it associated with the airport, in accessible locations and in the most sustainable way, such that it minimises the additional pressures on land and labour resources.

2.4 The most important influence on the strategy of the Local Plan is, of course, the West Sussex Structure Plan. This document sets out the strategic planning policies to be followed in West Sussex and sets out the amount of development to be accommodated in each district, together with the locations of major growth. The strategy of this Local Plan is, to a large extent, pre-determined by the strategy of the West Sussex Structure Plan.

2.5 The 1998 West Sussex Structure Plan (not formally adopted) has now been superseded by the West Sussex Structure Plan 2001-2016 Deposit Draft. However, the 12 strategic land use objectives set out in the 1998 Plan have been endorsed by the District Council as a basis for the policies and proposals of this Local Plan. They are as follows:

1. Development and activity in the County which are sustainable in terms of amounts, locations and types.

2. An improved urban and rural environment protected from harm from development and other man-made pressures and from the consequences of changes in the natural environment.

3. The prudent use and conservation of the county’s natural and historic resources.

4. The economic and social well-being of the county’s inhabitants.

5. The prosperity of its business enterprises.

6. The location of most new development within or adjoining built-up areas and with good access to a choice of means of transport.

7. A reduced need for travel, with a choice of safe, adequate and economic opportunities by means of transport which have minimal environmental impact.

8. The efficient use of energy where possible from renewable sources.

9. The provision of improved infrastructure and services in step with the development which expands the need for them.

10. Development to high standards of design and layout.

11. A countryside of varied and productive economic and social activity.

12. The maintenance and effective use of the existing built environment.2.6 The policies and proposals of the Local Plan translate these objectives into land use policies.

Sustainable Development

Background

2.7 In 1987 the World Commission on Environment and Development chaired by Mrs Brundtland published a report entitled ‘Our Common Future’. This report brought the concept of sustainable development on to the international agenda and explained the term in the now familiar words:

‘development that meets the needs of the present without compromising the ability of future generations to meet their own needs.’

This report received public backing by over 80 nations including the UK, and in Britain prompted the publication in 1990 of ‘This Common Inheritance’ which was adopted by the Government as the UK’s environmental strategy. This White Paper was based on a belief in, and understanding of, ‘stewardship’ which it describes as “our responsibility to future generations to preserve and enhance the environment of our country and planet”. The Paper sets out many specific long term targets and objectives were set.

2.8 Mounting international concern led to and was expressed at the UN Conference on the Environment and Development held in Rio de Janeiro in 1992 where over 150 countries were represented. As a result of agreement reached at this Conference the Government published the ‘UK Strategy’ and local authorities are required to produce Local Agenda 21 strategies. Mid Sussex District Council has published a local Agenda 21 Strategy: Mid Sussex into the Millennium.

Principles of Sustainable Development

2.9 Within the UK Strategy published in January 1994 the Government tries to reconcile economic development with the protection of the environment and the need to plan for both present and future generations. It is recognised that a healthy economy is important to the generation of resources to meet people’s future needs; that not every aspect of the environment should necessarily be preserved; but, that decisions should have proper regard to environmental importance.

‘Sustainable development is about getting economic and environmental trends working in harmony.’

The Strategy sets out four principles regarding sustainable development:

• Decisions should be based on the best possible scientific information and analysis of risks.

• Where there is uncertainty and potentially serious risks exist, precautionary action may be necessary.

• Ecological impacts must be considered, particularly where resources are non-renewable or effects may be irreversible.

• The “polluter pays” principle should be used.The Protection of Critical and Constant Assets

2.10 Work which has developed out of the UK Strategy, identifies three main types of assets: natural assets such as the countryside; created assets such as historic environments and created rural and urban landscapes; and social assets such as the freedom to travel and leisure facilities. In order to achieve sustainable development goals decisions need to be made as to whether resources and assets which would be destroyed or damaged by development are renewable or replaceable. The Strategy document sets out the problems and opportunities and includes a framework for making sustainable choices. It acknowledges that sustainable development is difficult to define and presents a considerable challenge in reconciling the various, and often conflicting, interests. As such, public participation and debate is seen as an important aspect of the strategy and particularly of Local Agenda 21 work.

2.11 The West Sussex Structure Plan Third Review (now superseded by the West Sussex Structure Plan (2001 - 2016) Deposit Draft) has used the definitions ‘critical’ and ‘constant’ when considering the importance of assets. Critical assets are those resources which are considered to be vitally important and/or irreplaceable. Constant assets are those resources which could be replaced elsewhere without critical loss to the environment as a whole. Some trading-off between development and environmental considerations may be acceptable but compensation such as the relocation of the asset may be required. The possibility also exists that the cumulative loss of constant assets could cause the asset to become critical. For example: a particular piece of public open space may be lost to a specific area without detrimentally affecting the environment as a whole (ie it is a constant asset). In order to compensate local people for its loss it may be required that a new area of public open space be created or designated close by. It is possible however that the cumulative loss of open space from within an urban area could in time become critical depriving future generations of this amenity to the detriment of the environment and community.

2.12 As part of the background work for the Third Review the County Council with the districts and many other bodies undertook an Environmental Appraisal of the County, this included an assessment of existing assets and a study of potential capacity of the environment to take further development. Where there is doubt about the potentially serious environmental effects of specific development a precautionary approach is advocated.

2.13 The Environmental Appraisal included an Urban Capacity Study of the main towns and large villages in West Sussex. Mid Sussex District Council published an Urban Capacity Study in December 2001. The study produced a range of figures which indicate potential urban capacity based on a number of scenarios and policy approaches, such as seeking development at higher density and with less parking.

UK Strategy Aims

2.14 In land-use terms the UK Strategy sets out three main aims for sustainable development:

• ‘to balance the competing demands for the finite quality of land available and, in particular, to optimise the use for development of vacant urban land and to reclaim and develop derelict or contaminated land;

• to protect, as far as possible, the countryside for its landscape, wildlife, agricultural, recreational and natural resource value;

• to maximise access to facilities for individuals and to markets for business, while minimising the amount of travel required.’

Land Use Implications

2.15 Within existing towns the Government’s approach is to encourage development at a fairly high density, of at least 30 dwellings per hectare (net) and with minimum energy consumption in terms of construction and proximity to other facilities. The development of vacant or derelict sites and buildings is encouraged in order to promote urban renewal and reduce the pressure on greenfield sites. Higher densities can be achieved in town centres close to a range of facilities and well served by public transport. Quality of life with green spaces, good design and easy access is important so that towns are attractive places for people to live and work in.

2.16 Within the countryside this means weighing development demands against the protection of open countryside especially areas such as best and most versatile agricultural land, landscape heritage and natural habitats. However, the need for rural development will mean that some development may be permitted. Where, in such cases, development is permitted, compensation for the loss of environmental assets may be required. Generally major development in the countryside is not sustainable in terms of the infrastructure required and trips generated. In order to retain a healthy rural economy which is sustainable in terms of providing local employment sites which currently are in employment use, or have permission for such use, should be retained.

2.17 The relationship between leisure, economic development and the environment must be managed such that the environment is sustained in the long term for enjoyment by future generations. Leisure activities and developments must not be allowed to damage the environment or bring about any unacceptable impacts. They should respect the scale, nature and character of their location.

2.18 Transport policies necessarily affect and are affected by other land-use policies. As an important aspect of the Government’s approach to reducing traffic growth development should be accessible by alternative modes of transport to the car, eg in terms of its location to public transport routes and its accessibility by foot and bicycle.

2.19 The Government’s aims for sustainable development are reflected in Planning Policy Guidance notes. Advice relating to specific types of development is mentioned in the appropriate chapters of this Local Plan. The Council recognises the contribution of the Development Plan towards the Government’s objectives of ensuring that development and growth are sustainable and it supports the statement in PPG12 that:

‘The sum total of decisions in the planning field, as elsewhere, should not deny future generations the best of today’s environment.’

It is the Council’s intention that this advice forms the basis for the Plan Strategy and is reflected throughout the aims, policies and proposals in this Plan.

Local Plan Aims

The Protection and Improvement of the Environment

2.20 The Local Plan attaches great weight to the protection and improvement of the urban and rural environment of Mid Sussex, the quality of life which residents and visitors enjoy, and the conservation of its natural and created resources. This means precluding development which destroys or unacceptably damages the environment. The Plan aims to protect and strongly resist development within the countryside particularly those areas of special qualities such as the best and most versatile agricultural land, Areas of Outstanding Natural Beauty and Strategic and Local Gaps. The loss of wildlife habitats and corridors will also be resisted. Enhancement of the countryside through good management will be encouraged. Where due to their nature, scale and/or location developments are likely to have significant effects on the environment the Council will, in accordance with Circular 2/99, require Environmental Impact Assessments from developers.

Design and Impact of Development

2.21 The Local Plan aims to encourage high standards of design wherever new development is permitted, and to reduce the impact of development to a minimum. This includes seeking to protect both the rural environment of countryside areas and the built environment of towns and villages in the District. The Plan aims to conserve buildings of architectural or historic interest and to preserve and enhance the special character and appearance of Conservation Areas. Equally, it aims to safeguard open space as an important social and visual amenity and an integral part of the built environment. In addition to the policies on design, which are included in the Built Environment Chapter, all significant new allocations will have a design brief prepared for them.

The Location of Residential Development

2.22 In order to contribute to the aims of securing a more sustainable settlement pattern, the Local Plan requires that development will be located as far as possible to minimise the consumption of countryside resources, make efficient use of derelict or under used land within built-up areas, be at as high a density as is reasonable bearing in mind the surroundings, provide homes and jobs broadly in balance with each other at the local level, reduce the need to travel particularly by private car, and to be accessible by a variety of means of transport.

2.23 In order to meet the above objectives, the most desirable location for new residential development is considered to be within, or adjacent to, existing built-up areas, and in particular the three main towns of the District. These towns offer the widest range of services and the greatest possibility for the provision of public transport. However, some limited development opportunities also exist within the villages where there is sufficient infrastructure to accommodate development or where the benefits of the development are important to the village. The smaller settlements in the District are less likely to offer either of these advantages, and are therefore less sustainable locations for development.

2.24 The strategy of this Local Plan towards the allocation of land for housing seeks to meet the objectives set out above and to be in line with the Government’s sequential approach (as set out in PPG3: Housing). Firstly optimum use should be made of previously developed sites within the built-up areas. Particularly in the three main towns, the Council will encourage:

• the re-use of empty homes;

• conversion of empty or under-used space above shops and offices;

• conversion of existing houses to flats, where appropriate;

• conversion or redevelopment of non-residential buildings, where the use is redundant or is moving to other, more suitable premises; and

• redevelopment of existing buildings or sites, where this is considered necessary or appropriate to allow for the efficient use of the site.

2.25 Secondly, and in addition, the greenfield development which is required will be concentrated on the edges of the main towns and a few of the villages. In each case the sites allocated are small scale urban extensions adjacent to existing development where no major investment in new infrastructure is required. Such sites are however limited and it is anticipated that within the next Plan period, when this Local Plan is reviewed, the sequential approach will need to consider significant infrastructure improvements to enable further urban extension. Allocations for major housing development to the south of Haywards Heath, and the construction of the associated relief road, are carried forward from the adopted Haywards Heath Local Plan.

Infrastructure

2.26 The Local Plan aims to ensure that development should make maximum use of existing infrastructure, taking advantage of spare capacity wherever possible. However, where existing infrastructure is inadequate or not available, development will not be permitted unless the infrastructure required to service it can be made available at the appropriate time. This may be either directly by the developer or by means of financial contributions to the appropriate service providers. If possible, the infrastructure improvements required in conjunction with development should benefit the wider community as well as provide for the needs of the individual development concerned. Such as the Western Distributor Road for Burgess Hill and the Haywards Heath Relief Road.

2.27 Wherever possible, this Local Plan sets out as precisely as possible the likely infrastructure requirements associated with specific development proposals. As it is not always possible to anticipate these requirements, particularly in respect of small developments and unidentified sites, the County Council has published Supplementary Planning Guidance entitled 'The Provision of Service Infrastructure Related to New Development in West Sussex' Part 1 (July 1999) which sets out the overall approach to meeting service infrastructure needs generated by new development. The guidance has been prepared jointly by the West Sussex Planning Authorities in order to provide consistency of approach across the county. This document is supplemented by Supplementary Planning Guidance 'The Provision of Service Infrastructure Related to new development: Part 2 Mid Sussex', published by Mid Sussex District in February 2003. Part 2 explains in detail the requirements of the various service providers and is intended to help developers quantify the likely costs of providing infrastructure.

Transport

2.28 The Local Plan aims to contribute towards reducing the need for travel, and aims to encourage alternatives to the car. Similarly it aims to encourage the use of rail transport for freight. It is, however, also very aware of the need to provide an adequate level of access to facilities for individuals and for businesses to assist economic growth.

2.29 The Plan aims to ensure that new development is located close to existing transport infrastructure including public transport routes, also that it is accessible by alternative modes of transport. Generally the Plan seeks to promote greater use of public transport, cycling and walking through the provision of priority measures, improved facilities and education. Car restraint measures in the form of controlling parking provision and traffic calming are also encouraged. Nevertheless the Plan also seeks to encourage efficient and safe traffic movements by the completion of the proposed road network and by traffic management measures to reduce congestion and improve road safety.

Provision for Business Development

2.30 The amount of business development provided for in the Local Plan is closely related to the proposals for housing development. The aim of the District’s Economic Development Strategy is to promote the economic and social well being of its existing and future inhabitants and the growth of its business enterprises. The intention is to make provision to supply sufficient jobs for the resident workforce and sufficient workforce for the local economy to grow and adapt to new products and processes. However, because of the limit set by an acceptable level of housing development, it is recognised that some economic growth may have to be deflected elsewhere if rapid growth takes place within the labour market.

2.31 Of great importance to economic development is the protection of the environment and the social and physical amenities which make the District attractive to business. The Plan expresses the need for the location and construction of new development to respect the principles of sustainable development. New employment generating development should be located close to existing transport infrastructure and allow for opportunities to minimise the need to travel.

Town Centres

2.32 The enhancement and promotion of the town centres is an important aspect of a sustainable approach to development. The Local Plan seeks to encourage the vitality and viability of the three main town centres through improved access, pedestrianisation, management and diversification and seeks to retain and broaden the range of shopping facilities within these towns. It also encourages new shopping development to locate within the existing town centres. Alternatively where no suitable town centre sites exist the Plan supports the consideration of edge of town centre sites which are within easy walking distance of other facilities. The Plan aims to strongly resist any new major retail developments outside of the town centres and most particularly to restrict proposals outside the built-up area.

2.33 District shopping parades and village shops are particularly important for those people with mobility difficulties who need or wish to shop locally including the elderly, parents with young children and those people without a car. The Plan aims to encourage and support the retention of local convenience shopping facilities both within urban and rural areas.

Leisure and Community Facilities

2.34 The Local Plan aims to safeguard and make the most efficient use of sport, recreation and community facilities and to seek adequate provision in new large scale residential developments. New opportunities for informal recreational use within the countryside are encouraged where these respect the aims of sustainable development.

2.35 Revised PPG17 Planning for Open Space, Sport and Recreation was published in July 2002. This was followed by the publication 'Assessing needs and opportunities: PPG17 Companion Guide' in September 2002. At the time that these documents were published the Local Plan Inquiry was well advanced. Therefore it was not possible to incorporate the requirements of these documents into the Plan. To do so would have resulted in delaying the adoption of the Plan.

2.36 Therefore throughout this Plan the revised PPG17 has been referred to, but policies have not been amended to meet the requirements of the guidance. Supplementary Planning Guidance will be produced which will set out the Council's approach to PPG17 and the companion guide in relation to the policies within Chapter 9 and all other relevant policies. This course of action was recommended by the Local Plan Inspector. Further information is contained within Chapter 9 of the Plan.

General Policies

2.37 The aims of the Plan Strategy set out above form the basis for the policies and proposals set out within the Local Plan. The Local Planning Authority will attach great importance to ensuring that the goals of sustainable development underlie all planning decisions (see policies G1 and G2). Development proposals should meet present needs without compromising the ability of future generations to meet their own needs. When there are significant doubts regarding the sustainable nature of the development a precautionary approach will be taken. Policy G3 relates to the need to ensure that adequate and appropriate infrastructure is provided with new development.

G1 Development will not be permitted where it would:

(a) cause irretrievable or irreplaceable loss of significant natural, created or social assets;

(b) cause unacceptable environmental damage;

(c) cause unacceptable disturbance or nuisance; and

(d) be inefficient in its use of resources, including water and energy.

G2 Development will be expected to:

(a) make efficient use of derelict or vacant land or buildings within built-up areas before using greenfield sites;

(b) be efficient in the use of land in terms of density (to comply with PPG3 requirements);

(c) meet high standards of design, construction and layout;

(d) include provision, where appropriate for adequate open space;

(e) be accessible by a choice of means of transport and not rely solely for access on the private car; and

(f) create high quality landscape settings including, where appropriate, wildlife habitats.

G3 In considering applications for planning permission, and before consent is granted, the Council will need to be satisfied by the developer that the necessary infrastructure to support the proposed development either exists or can be provided. Unless the Council determines otherwise, any necessary infrastructure will be provided by the developer either on or off the site as an integral part of the development. Suitable conditions may be imposed and, in appropriate circumstances, Legal Undertakings and/or Agreements to this effect will be required. Alternatively, and having regard to the tests set out in Circular 1/97, such provision as may be sought by the Council may be secured by means of financial contributions. The contributions will be made by the developer and/or the landowner to the appropriate service provider who will be responsible for the provision, pursuant to any Legal Agreements that may be entered into.

As examples, and in the context of this policy, the term ‘infrastructure’ includes:

• utility services;

• highways and transportation works and improvements, including traffic management schemes, contributions towards enhancements to public transport facilities and the provision of bus services;

• education services, including contributions towards schools provision;

• library services;

• community buildings and other facilities of benefit to the whole community;

• leisure facilities;

• open spaces, sports and recreational provision;

• fire and rescue services;

• recycling facilities;

• social care facilities;

• nature conservation and management schemes.