Preferred Options Local Plan

Map 1: Location of Local Authority Areas

How does this fit with National Guidance?

2.9 The Localism Act 2011 places a Duty to Co-operate on local planning authorities and county councils[2]. This requires them to engage constructively, actively and on an on-going basis in the preparation of plans where this involves strategic matters. The National Planning Policy Framework adds to this statutory duty as it expects local planning authorities to demonstrate evidence of having co-operated effectively to plan for issues with cross-boundary impacts.

2.10 This strategic chapter of the authorities' plans meets the requirements of the Duty to Co-operate for the authorities involved, as it concerns strategic matters with cross-boundary impacts in North Essex.

2.11 Against this background, the main purposes of this strategic chapter of the local plan are to:

• Articulate a spatial portrait of the area, including its main settlements and strategic infrastructure, as a framework for accommodating future planned growth;
• Set out the numbers of additional homes and jobs across the area that will be needed covering the period to 2033;
• Provide a strategic vision for how planned growth in North Essex will be realised;
• Set strategic objectives and policies for key growth topics; and
• Highlight the key strategic growth locations across the area and the necessary new or upgraded infrastructure to support this growth.

Spatial Portrait

2.12 Braintree, Colchester and Tendring districts are located to the north of Essex between the East coast ports and London Stansted airport. The principal towns are Braintree, Colchester and Clacton-on-Sea, together with the port of Harwich and a number of secondary settlements: Witham, Halstead, Wivenhoe, Tiptree, Brightlingsea, Walton and Frinton. Map 2 identifies the settlements that link with the main road and/or rail infrastructure.

2.13 Beyond these settlements much of the area has a rural character.

2.14 The area covered by this strategic planning approach comprises a large part of the Haven Gateway, an established partnership area which is identified in a range of existing strategy and investment documents[3]. The Haven Gateway includes the administrative areas of Braintree, Colchester and Tendring Councils and extends northwards into Suffolk.

2.15 The area's strategic road and rail network is heavily used, particularly given the proximity to and connectivity with London. The principal roads are the A12 and A120, while the A130, A133 and A414 also form important parts of the strategic road network.

2.16 The Great Eastern Main Line provides rail services between London Liverpool Street and the East of England, including Chelmsford, Colchester and Clacton-on-Sea. It also carries freight traffic to and from Harwich International Port, which handles container ships and freight transport to the rest of the UK. Harwich is also one of the major UK ports for ferry and cruise departures.

2.17 Crossrail is expected to start operating in the first part of this plan period with services commencing just south of Chelmsford in Shenfield. The opportunities that Crossrail will bring in terms of additional capacity and quicker journeys to a wider choice of destinations will be a contributor to the continued attractiveness of north Essex as a place to live and to do business.

2.18 London City, Gatwick, Stansted and Southend airports serve the North Essex economy and the growing demand for the use of these facilities from an increased population will create additional pressures on road and rail infrastructure. The County Council along with South East Local Enterprise Partnership, local and national agencies and other organisations will also need to work collaboratively with the Local Planning Authorities to ensure infrastructure meets demand for enhanced economic growth.

2.19 Braintree and Colchester are the major centres of employment within the strategic area. While there are high levels of commuting to London, many residents work and live within the area with significant commuting across city and district boundaries, reflecting a functional economic geography.

2.20 The area has a mixed economy focused on the service sector, including wholesale and retail, business services, tourism, health and education, although there is also manufacturing and construction capacity. Due to the extensive rural area outside settlements, agriculture plays an important part in the overall economy.

2.21 This rurality also means that there are large areas of open countryside, including protected natural and historic landscapes. Areas of importance for nature conservation are to be found particularly along the coast and river estuaries, while the villages, towns and city include many built heritage assets.

2.22 A more detailed assessment of the characteristics of each area is provided in the second part of this local plan.

Map 2: Districts with principal towns and road & rail network

Key Issues: Opportunities and Challenges

2.23 Due to its strong economic base, proximity to London and attractiveness as a place to live and work, the area has seen significant growth over recent years. In particular Braintree and Colchester have regularly exceeded planned housebuilding targets.

2.24 Future population growth will require an appropriate response from the local authorities to ensure that sufficient homes, employment premises and land, and supporting social and other infrastructure are provided. The ageing profile of residents also requires a proactive response to provide the right type of homes, including independent living and supporting services; as well as sufficient healthcare facilities to support both older residents and the population as a whole.

2.25 The education needs of a growing population must be addressed, requiring careful planning to assess future pupil numbers and to address further education needs. The assessed need must in turn be translated into new or expanded education facilities which are available to meet the needs of new communities at the appropriate time.

2.26 New development should be accessible by sustainable forms of transport, including walking and cycling. However, growth will create demand for additional road and rail use with the associated need for new and upgraded infrastructure. Future planned growth provides the opportunity to address some of these infrastructure needs, although growth locations and sites need to be considered carefully with regard to the balance of providing necessary infrastructure and the viability and deliverability of development.

2.27 The National Planning Policy Framework expects local authorities to set out the strategic priorities for the area in the Local Plan. Of those listed in the Framework[4] and based on the above key issues, this strategic plan chapter addresses:

• the homes and jobs needed in the area;
• the provision of infrastructure for transport and telecommunications;
• the provision of education, health, community and cultural infrastructure; and
• conservation and enhancement of the natural and historic environment, including landscape.
  

Vision for the Strategic Area

2.28 It is important that addressing growth at any spatial scale is founded on a clear vision of how and where change should occur. The vision for North Essex sets this out at a strategic level and provides a context for the more detailed vision for the growth of each individual authority's area.

North Essex will be an area of significant growth over the period to 2033 and beyond, embracing positively the need to build well designed new homes, create jobs and improve and develop its infrastructure for the benefit of existing and new communities.

Sustainable development principles will be at the core of the strategic area's response to its growth needs, balancing social, economic and environmental issues. Green infrastructure, and new and expanded education and health care facilities will be planned and provided; while the countryside and heritage assets will be protected and enhanced

At the heart of our strategic vision for North Essex are new garden communities. The garden communities will attract residents and businesses who value innovation, community cohesion and a high quality environment, and who will be keen to take an active role in managing the garden community to ensure its continuing success. Residents will live in high quality, innovatively designed, contemporary homes, accommodating a variety of needs and aspirations. There will be a network of leafy streets and green spaces, incorporating and enhancing existing landscape features. This will provide safe and attractive routes, and sustainable drainage solutions, as well as excellent opportunities for people to play. Open spaces will be attractive areas which offer leisure and recreation opportunities for residents of the garden communities. All Garden City principles will be positively embraced including new approaches to delivery and partnership working, and sharing of risk and reward for the benefit of the new communities.

Strategic Objectives

2.29 The following strategic objectives are designed to support the vision for the area and provide a basis for the development of strategic topic-based policies that will help in achieving the vision.

• Providing Sufficient New Homes- to provide for a level and quality of new homes to meet the needs of a growing and ageing population in North Essex; to achieve this by ensuring the availability of developable land in appropriate locations and that the market delivers a suitable mix of housing types.

• Fostering Economic Development- to strengthen and diversify local economies to provide more jobs; and to achieve a better balance between the location of jobs and housing, which will reduce the need to travel and promote sustainable growth.

• Providing New and Improved Infrastructure- to make efficient use of existing transport infrastructure and to ensure sustainable transport opportunities are promoted in all new development. Where additional capacity is required in the form of new or upgraded transport infrastructure to support new development, to ensure this is provided alongside the development. To enable provision of upgraded broadband infrastructure and services.

• Addressing Education and Healthcare Needs- to provide good quality educational opportunities as part of a sustainable growth strategy, including practical vocational training and apprenticeships linked to local job opportunities. To work with partners in the NHS and local health partnerships to ensure adequate provision of healthcare facilities to support new and growing communities.

• Ensuring High Quality Outcomes- to promote greater ambition in planning and delivering high quality sustainable new communities, including through new garden communities and strategic growth areas. Overall, new development must secure high standards of urban and built design which creates attractive places where people want to spend time.

Strategic Issues and Policies

Presumption in Favour of Sustainable Development

Meeting the Need for New Homes

2.32 Provision of sufficient housing is critical to meet the needs of a growing population and for the effective functioning of local economies.

2.33 The North Essex authorities are committed to plan positively for new homes and to significantly boost the supply of housing to meet the needs of the area. To meet the requirements of national policy to establish the number and type of new homes, the authorities commissioned Peter Brett Associates to produce an Objectively Assessed Housing Need Study building on earlier work. This was first published in July 2015 and updated in January 2016. It meets the requirements of the NPPF to prepare a Strategic Housing Market Assessment (SHMA).

2.34 Detailed analysis in the report suggests that a Housing Market Area comprising Braintree, Colchester, Chelmsford and Tendring Council areas forms a sound basis for assessing housing need.

2.35 Demographic projections are the starting point for assessing how much housing will be required across an area. Based on 2012 national projections covering the period 2013 to 2037, some 4,910 more people will be living in the area each year. This translates to 2,589 additional households per year, which generates a need for an additional 2,691 new homes each year.

2.36 Analysis of economic forecasts reveals that to support the expected jobs growth would require 3,090 net new homes per year. This represents an uplift of 399 additional homes, or 15%, over the demographically projected need referred to above. The report concludes that this 15% 'future employment' uplift over the whole HMA will cover any 'market signals' adjustment that can reasonably be justified. It also makes an allowance for additional London related migration.

2.37 The conclusion reached is that the objectively assessed need across the Housing Market Area is 3,090 new homes a year over the period 2013 - 2037. This is the number of new homes needed to provide sufficient labour to meet the number of forecast jobs. The total requirement across north Essex, excluding Chelmsford City Council's area, is 2,315 new homes per year.

2.38 The Objectively Assessed Housing Need Study and SHMA update seek to establish a balance between jobs and homes across the area, although there is some uncertainty in relation to this arising from unattributed population change (UPC) within Tendring. 550 dwellings a year is suggested as the indicative objectively assessed need for Tendring because at this level of provision affordable need can be met. This reasonable rounded figure, which should be kept under review, is considered an appropriate response to the uncertainty arising from the UPC.

2.39 Evidence on overall levels of affordable housing provision and the requirements of Gypsies and Traveller and Travelling Showpeople accommodation will be set out in more detail within the individual Local Plans, but a figure of 30% of affordable housing across the new garden communities is supported by the evidence base.

2.40 As the fourth local authority in the housing market area, Chelmsford City Council have been involved at every stage of the work on objectively assessed need and affordable housing need which were all commissioned jointly. The Council is aware of and supportive of the approach and the housing numbers that are set out in the table above, however due to a mismatch between the timetables of the Local Plan, were not able to be part of the strategic plan. Uttlesford District Council and other neighbouring authorities are not part of the Strategic Housing Market and will be looking to meet their own needs within their own housing market area.

Providing for Employment

2.41 A key objective for the area is to strengthen and diversify local economies to provide more jobs; and to achieve a better balance between the location of jobs and housing, which will reduce the need to travel and promote sustainable growth.

2.42 Braintree District's employment is relatively focused on industrial-type sectors, including construction and manufacturing. London Stansted airport plays a significant role in not only employing residents of the District, but through the indirect economic benefits associated with proximity with such a large employment hub.

2.43 Retail is the second largest sector by employment, and plays an important role in sustaining the District's three key town centres. The financial & insurance sector, where Braintree District traditionally has a relatively small proportion of employment, has seen some strong employment growth in recent years. This may be a growth sector in the future.

2.44 Colchester is the dominant town within the Essex Haven Gateway and will accommodate much of the future growth in the sub-region. It is one of the UK's fastest growing towns and has developed a strong economy, linked to the town's historic character, cultural activities and its university.

2.45 Tendring District has a diverse economy with local employment across a range of activities. Health, retail, and education are the largest sectors in terms of the number of jobs, and together represent 45% of the district's total employment.

2.46 Harwich is home to Harwich International Port - one of the district's major employers. To the west of the district, the economy and labour market of Manningtree is influenced by its relative proximity to Colchester and good transport links to London. The interior of the district is largely rural and is characterised by a high quality environment, interspersed with small settlements.

2.47 Opportunities have been identified for Tendring to develop potential future strengths in Offshore Wind and the Care & Assisted Living sector.

2.48 As part of the SHMA work, analysis of economic forecasts was undertaken together with demographic projections to establish the inter-relationship between population growth, forecasts of new jobs and the number of new homes needed to accommodate these levels of growth. Employment Land Needs Assessments have been carried out by each authority which set out the amount of employment land that is required within the Plan periods.

Infrastructure and Connectivity

2.49 A growing economy impacts on travel demand. The challenge is to provide a sustainable transport system, while providing good access to jobs and services, to support economic growth.

2.50 There are significant levels of local employment in each authority which generate short work trips concentrated in the peak hours. Of those commuting out of a local authority area, there is generally a westerly commuting movement, with London having a stronger effect on Braintree and Colchester. There is a strong level of movement from Tendring into Colchester for work, and Colchester to Chelmsford. Town centres are a focal point for work trips with most of the town centres offering a substantial proportion and variety of local employment opportunities. Most of the urban areas have business parks on their edges, which have access to the strategic road network. Those living in the rural areas are drawn to the main urban areas for employment but there is an emerging trend for "working at home". When combined with trips to education, accessing stations, retail and leisure trips results in urban traffic congestion at certain locations at certain times. This congestion has negative impact on journey time reliability, air quality, accessibility and the quality of the place. The ability to change significantly the urban road network is limited however there are greater opportunities for short trips to be made by walking, cycling and public transport.

2.51 Growth promoted through the new Local Plans will need to be supported by the appropriate transport infrastructure. Braintree, Colchester and Tendring will continue to work closely with Essex County Council, Highways England and other partners to improve roads and public transport and to promote cycling and walking, and to better integrate all forms of transport. An infrastructure delivery plan is being developed which will provide more detail about the phasing and costing of the infrastructure requirements.

Strategic transport network

2.52 Highways England manages and maintains the national strategic road network. This includes the A12 and A120 trunk roads that pass through the area. Network Rail is responsible for the railway network with train operating companies franchised to provide the rail services. Essex County Council is the statutory local transport, traffic and highway authority responsible for the majority of the transport network, including strategic roads.

The inter-urban road network

2.53 On the inter-urban road network, traffic levels have increased significantly in recent years with parts of the A12 around Colchester carrying 90,000 vehicles per day, which is high for an A class trunk road.

2.54 Most of the inter-urban road network, particularly the capacity of the A12, is constrained by the operation of the junctions and sub-standard slips. The Highways England A12/A120Route Based Strategy (March 2013) shows that the A12/A120 is an ageing route which has several key maintenance issues. It will also be functioning above capacity by 2021.

A12

2.55 The A12 is set to have major improvements as part of the Government's Roads Investment Strategy (2015-2020) (RIS), with the aim of improving capacity and relieving congestion. The plans were announced in December 2014 and will represent the largest investment in road infrastructure received by Essex.

2.56 The RIS confirmed

• investment in a technology package for the length of the A12 from the M25 to the junction with the A14:,
• phased improvement of the road to a consistent dual 3 lane standard; and
• Improvement to the A12/M25 junction.

2.57 The A12 from Chelmsford to the A120 junction is to be widened to three lanes, with work expected to start in 2015/16-2020/21. The A12 is also due to be widened to three lanes around Colchester (between junctions 25 and 29) and improvements to local junction layout, to be implemented post 2020/21. Other works include the M25 to Chelmsford section of the A12 which will be developed post 2021.

A120

2.58 The A120 is a key east-west corridor across Essex providing access to London Stansted Airport in the west to Harwich Port in the east and serving the economies of Colchester, Tendring and Braintree, with links to Chelmsford via the A130. The road is dualled between the M11 and Braintree, but the section from Braintree to the junction of the A120/A12 is of a low standard with heavy congestion, high accident risk and poor journey reliability.

2.59 Highways England and Essex County Council will work together to study options for dualling the A120 between Braintree and A12 junction with the County Council taking the lead.

2.60 It is essential that work on both the A12 and A120 are directly linked and informed by the planned growth, identified in emerging Local Plans, through partnership working between all parties. In addition, such projects are essential in enabling planned growth to come forward supported by the necessary strategic infrastructure. The scale of new development envisaged will also need to deliver public transport improvements, including improved rail infrastructure and potential for rapid transit services into Colchester.

Route Based Strategies

2.61 Route based strategies are prepared and delivered by the County Council for strategic road corridors, in consultation with local authorities. The following strategies are currently being prepared for delivery post 2018/19: A130 - Chelmsford to Braintree; A133 - Colchester to Clacton; A131 and A120 Colchester to Harwich.

2.62 The strategies aim to provide:

• improved journey times and reliability for all users with traffic management, capacity enhancements and congestion relief measures;
• passenger transport improvements along the routes;
• walking and cycling improvements along the routes where appropriate;
• targeted safety improvements; and
• highway asset renewal.

Rail

2.63 The rail network is heavily used by passenger trains and through freight from the Haven Ports. The Great Eastern Main Line provides services to London Liverpool Street.

2.64 The Anglia Route Study shows that while capacity varies along the line capacity to accommodate growth is limited and is particularly constrained in peak times from Chelmsford to London. Improvements are required along the line to accommodate growth and provide a faster more competitive service across the region.

2.65 The Study identifies a package of improvements necessary to respond to the need for increased capacity, which are seen as priorities to enable growth, improve services and journey reliability. The improvements include:

• the introduction of passing loops at Witham;
• the introduction of automated in cab signalling;
• a passing loop on the Braintree branch line, and
• the removal of level crossings.

2.66 These improvements are assumed to provide the gross capacity required along the line but further work is needed to identify specific local improvements in response to local growth and to define the timescale for delivery.

Public transport, walking and cycling

2.67 Alternative forms of transport to the private car (walking, cycling and public transport) to travel to work are important in managing congestion and to accommodate sustainable growth.

2.68 Within the urban areas, the bus network is available although it is currently underutilised. Essex County Council wishes to address this through a new passenger transport strategy. By promoting travel by sustainable modes there are wider benefits to local people such as personal health, less pollution and using less resources (including land), and they are cost effective.

2.69 The levels of growth in the Local Plan will require that the consequent need to travel is managed. Travel planning and smarter choices initiatives will be promoted to ensure that all residents have good access to local jobs, services and facilities, preferably by either walking or cycling. For longer trips and in rural areas where there are fewer local services and employment opportunities, public transport will be promoted.

Education and Healthcare

2.70 New development must provide for the educational needs of new communities. This will involve the expansion of existing schools where feasible and identification of opportunities to create new schools. Education requirements will need to be based on a strong understanding of future pupil numbers, with co-operation between county, district and borough councils. A range of educational opportunities will need to be addressed as part of a sustainable growth strategy, including practical vocational training and apprenticeships.

2.71 The authorities will need to work with the NHS and local health partnerships to ensure adequate provision of healthcare facilities to support new and growing communities. This will be particularly important given the ageing profile of existing and future residents. There is already a need for more and better quality health care facilities across the region with some areas such as Witham, having relatively poor access to health care facilities.

Broadband

2.72 The NPPF indicates how high quality communications infrastructure is crucial for sustainable growth. The availability of high speed and reliable broadband, particularly in rural areas is a key factor in unlocking new development opportunities and ensuring that people can access services online and work from home.

2.73 Fast broadband connections and telecommunications are an increasingly important requirement to serve all development. New development should contribute to the creation of a comprehensive and effective network in both urban and rural areas to promote economic competitiveness and to reduce the need to travel. The priority is to secure the earliest availability for universal broadband coverage and fastest connection speeds for all existing and new developments.

Creating Quality Places

2.74 New development must reflect high standards of urban and architectural design. It must also be functional and viable. Major new developments will be planned carefully with the use of masterplans and design codes where appropriate.

2.75 This requirement for high design standards will apply to public and private buildings across all scales of development, as well as to infrastructure projects. Enhancements to the public realm, landscaping measures and attention to architectural detail will be important features that the authorities will wish to see included in new developments. Strategic scale and more local green infrastructure can make a vital contribution to quality of place, biodiversity and health outcomes.

2.76 Future growth will contribute to maintaining and enhancing a well-connected network of sustainable settlements across North Essex. New homes, jobs, retail and leisure facilities serviced by new and upgraded infrastructure will be accommodated as part of existing settlements according to their scale, sustainability and role. The countryside will be protected and enhanced.

2.77 For the majority of settlements these issues are addressed in the second part of the plan dealing with each authority's area. However, it is relevant here to set out the spatial strategy at an appropriate level, as it relates to the main settlements and strategic-scale new development.

2.78 In Braintree growth the growth will be a mixture of urban extensions and new communities. Braintree town itself, as the largest service centre in the District will have a number of new urban extensions. Over 4,000 homes will be allocated in this area. The other main focus for development will be the A12 corridor with the main town of Witham and service villages of Hatfield Peverel, Kelvedon and Feering with allocations of just over 2,000. Other parts of the District, including the town of Halstead will have smaller allocations to reflect a more local need and making the best use of brownfield site, recognising that these areas are not as sustainable. Two new garden communities located on the A120 on the eastern and western edge of the District will provide at least 3,500 new homes within the Plan period, as well as the facilities and employment land to support them. These garden communities will continue to grow providing a key source of housing and jobs growth into future plan periods.

2.79 In Colchester the urban area of Colchester will continue to be a focus for growth due to its pre-eminent role as a centre for jobs, services and transport, with 4,000 units expected to be delivered over the plan period. The urban area of Colchester, however, has a limited and diminishing supply of available brownfield sites, so new communities will be included in the spatial hierarchy as a sustainable option for further growth of homes and jobs. Approximately 1200 homes will be allocated in the Rural District Centres of Tiptree, West Mersea and Wivenhoe. Smaller sustainable settlements will receive limited allocations proportionate to their role in the spatial hierarchy.

2.80 In Tendring the spatial hierarchy promotes growth in settlements that are the most assessable to the strategic road network, public transport and offer a range of services. Clacton, the Colchester Fringe and Harwich with Dovercourt are classified as strategic urban settlements and will accommodate around 5,000 new homes. The smaller urban settlements of Frinton with Walton and Kirby Cross, Manningtree with Lawford and Mistley, Brightlingsea and the expanded settlement of Weeley will accommodate between 1,500 and 2,500 new homes. The rural service centres and smaller rural settlements will accommodate around 1,500 new homes including a windfall allowance. Each of the strategic and urban settlements and to lesser extent the other settlements, will accommodate a share of 40 hectares of employment space, with infrastructure and services to accommodate the growth.

2.81 The spatial strategy as set out in the policy and supporting text is the Council's preferred options at this time. However if further evidence or work reveals that one or more garden community is not deliverable or viable in the way that meets with the policies set out below, then other options will be explored.

Map 3: Location of Proposed New Garden Communities