Working towards a Core Strategy for Wiltshire Draft topic paper 12: Infrastructure

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1 Wiltshire Local Development Framework Working towards a Core Strategy for Wiltshire Draft topic paper 12: Infrastructure Wiltshire Core Strategy Consultation June 2011

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3 Executive summary Draft Topic Paper 12 - Infrastructure This document is one of a series of draft topic papers to support the Wiltshire Core Strategy Consultation Document, which is out for a full public consultation between 13 June and 8 August, The draft topic papers will undergo revision before the publication of the submission draft Wiltshire Core Strategy, which will be the subject of a further public consultation towards the end of Topic Paper 12 Infrastructure summarises the infrastructure planning process underpinning the Wiltshire Core Strategy. Infrastructure planning is a critical part of the preparation of the Core Strategy and is deeply embedded in the central vision and strategic objectives. The delivery and settlement strategies, which set out the amount and location of development proposed in the Core Strategy, are heavily influential in determining infrastructure requirements. The infrastructure planning process will need to identify what infrastructure is needed, how much it is going to cost, when it will happen, who will deliver it and who will pay for it. This information will be encapsulated in an Infrastructure Delivery Plan (IDP), which will be a separate document supporting the Core Strategy. The IDP will set out this information in a delivery schedule and also deal with issues such as prioritisation of competing demands for infrastructure, delivery and funding mechanisms, governance, risks and contingency planning, and monitoring and review of infrastructure delivery. The Core Strategy will guide development in Wiltshire for the next 15 to 20 years but it must be in conformity with a broad framework of national policies. Planning Policy Statement (PPS) 12, in particular, sets out the need for local authorities to work with other service providers and prepare a robust infrastructure planning evidence base to demonstrate the deliverability of the Core Strategy. The infrastructure planning process to support the Wiltshire Core Strategy has involved partnership working and consultation with other service providers, through targeted consultations and the establishment of the Wiltshire Infrastructure Delivery Board (WIDB). This is a director-level, decisionmaking body that has oversight of the preparation of the IDP. The IDP is influenced by and, in turn, facilitates the delivery of a range of other plans and strategies pertaining to Wiltshire. The delivery of infrastructure in a timely manner, the purpose of the infrastructure planning process, is crucial to achieving many of the aims and objectives of these other strategies. Particular examples include the Wiltshire Council Corporate Plan, the Wiltshire Community Plan and the Wiltshire Local Investment Plan (LIP). The IDP will identify infrastructure requirements for the amount of development proposed by the Core Strategy in each community area. It will also specify particular needs for the allocated strategic sites. The identification of the infrastructure required to deliver the proposed development comes through discussions with infrastructure providers and knowledge about community aspirations for infrastructure provision in their areas. Core Policy 3 of the Wiltshire Core Strategy requires that the necessary infrastructure is delivered prior to, or in conjunction with, new development. As mentioned above, infrastructure is such a critical part of the Core Strategy that it is the subject of its own specific higher level policy. The development of Core Policy 3 is based upon evidence from infrastructure providers, community plans and consultations, and national policy requirements. The next step in the infrastructure planning process will be a targeted consultation of infrastructure providers and other stakeholders to develop a draft IDP, which will accompany the submission draft of the Wiltshire Core Strategy. The consultation will ascertain the detailed infrastructure requirements of the revised housing and employment requirements and strategic sites complete with evidence of need and deliverability.

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5 Table of contents Draft Topic Paper 12 - Infrastructure Executive summary Main chapters Chapter 1: What is the scope and purpose of infrastructure planning? p.1 Chapter 2: What are the national, regional and local policy requirements? p.11 Chapter 3: How will we work in partnership with others? p.21 Chapter 4: What are the links with other plans and strategies? p.29 Chapter 5: What can we learn from infrastructure planning elsewhere? p.34 Chapter 6: What infrastructure is required in Wiltshire? p.39 Chapter 7: What are the community s aspirations? p.50 Chapter 8: What are the policy options? p.68 Chapter 9: What are the next steps? p.74 Glossary p.77 Appendices Appendix 1: Breakdown of housing and employment requirements by community area p.82 Appendix 2: Community area infrastructure profiles (available as a separate document)

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7 Draft Topic Paper 12 Infrastructure 1. What is the scope and purpose of infrastructure planning? Overview 1.1 The infrastructure planning process is central to the delivery of the Wiltshire Core Strategy. It is, therefore, appropriate, that this chapter begins by showing how infrastructure is embedded within the central vision and strategic aims and objectives of the Core Strategy. This provides a crucial frame of reference for how infrastructure planning fits into the Core Strategy as a whole. Then this chapter summarises three of the key pieces of information for the Infrastructure Delivery Plan (IDP); housing and employment requirements, strategic development sites, and the settlement strategy. With this background information covered, Chapter 1 then outlines the following key facets of the IDP: the role and purpose Monitoring and review process Risk and contingency planning Delivery methods 1.2 Finally, this chapter provides guidance on the scope of the topic paper, and the infrastructure planning process in general, cross-linkages with other topic papers and the structure of the topic paper itself. Vision 1.3 Infrastructure is central to the delivery of the Wiltshire Core Strategy and, as such, assumes a prominent position within the Spatial Vision for Wiltshire (see below): By 2026 Wiltshire will have a much more sustainable pattern of development, focused principally on Trowbridge, Chippenham and Salisbury. Market towns and service centres will have become more self-contained and supported by the necessary infrastructure, with a consequent reduction in the need to travel. In all settlements there will be an improvement in accessibility to local services, a greater feeling of security and the enhancement of a sense of community and place. This pattern of development, with a more sustainable approach towards transport and the generation and use of power and heat, will have contributed towards tackling climate change. Employment, housing and other development will have been provided in sustainable locations in response to local needs as well as the changing climate and incorporating exceptional standards of design. Wiltshire s important natural and built environment will have been safeguarded and, where necessary, extended and enhanced to provide appropriate green infrastructure, while advantage will have been taken of the county s heritage to promote cultural and lifestyle improvements as well as tourism for economic benefit Individual visions for each of the community areas form part of the spatial strategies for these areas and the specific infrastructure requirements for each, including any allocated strategic sites, are included within these spatial strategies and dealt with in Chapter 6 of this topic paper. Strategic objectives 1.5 The delivery of the necessary infrastructure to support new development is so important that it is one of the key strategic objectives of the Wiltshire Core Strategy. Strategic Objective 9 (see below) aims to ensure that the appropriate infrastructure is in place to contribute towards sustainable communities. 1 Wiltshire Council, Wiltshire Core Strategy Consultation Document (June, 2011), p

8 Draft Topic Paper 12 Infrastructure Strategic objective 9: to ensure that infrastructure is in place to support our communities The anticipated level of growth within Wiltshire will increase demand on local infrastructure services and facilities. The strategy will need to ensure that infrastructure requirements are appropriately secured and implemented. Key outcomes Infrastructure will have been delivered at the right time to support new development. Critical infrastructure, such as transport, water, energy, flood alleviation, sustainable urban drainage systems (SUDs) and telecommunications, will have been coordinated with all new development. Provision of essential infrastructure, including affordable housing, education, health care, emergency services and waste and recycling, will have been achieved. Appropriate place-shaping infrastructure, such as leisure and open space, green infrastructure, libraries, public art and cultural facilities, will have been secured. There will have been effective partnership working between the council, other infrastructure providers and developers to facilitate infrastructure delivery. Full advantage will have been taken of opportunities for the co-location and multi-functional use of existing and new infrastructure services and facilities. Existing infrastructure services and facilities will have been protected, unless they are no longer needed or there is alternative provision elsewhere. The provision of new or improved infrastructure will have been positively supported provided there is no detrimental environmental impact. Appropriate contributions will have been secured from developers towards the cost of new and improved infrastructure. Rural facilities will, as far as possible, have been maintained and enhanced. 1.6 The direction of Strategic Objective 9 is carried through to the individual community area spatial strategies and to Core Policy 3 Infrastructure Requirements, the development of which is the subject of Chapter 8 of this topic paper. Housing and employment requirements 1.7 The Wiltshire Core Strategy spatial strategy makes provision for the growth of around 27,000 jobs, and hectares of new employment land for general broad based employment uses to help deliver job growth, and around 37,000 new homes. 1.8 New employment land and housing development will be focused on the principal settlements of Chippenham (31.5 to 33 ha of employment land and 4,000 homes), Salisbury (29ha of employment land and 6,060 homes), and Trowbridge (30ha of employment land and 5,860 homes). The Core Strategy will also support the regeneration of the central areas of these principal settlements. 1.9 In addition to the principal settlements, there will also be strategic housing allocations for Amesbury, Bradford-on-Avon, Tidworth and Warminster, and strategic employment allocations at Devizes and Westbury Appendix 1 has a breakdown of these housing and employment requirements by Community Area

9 Settlement strategy Draft Topic Paper 12 Infrastructure 1.11 Core Policy 1 2 of the Wiltshire Core Strategy sets out the different tiers of the settlement strategy and, in broad terms, defines the type and scale of development that is appropriate at each tier. Table 1.1 is a summary of the settlement strategy. Tier Function Settlements Principal settlements Market towns Local service centres Large and small villages Other settlements Strategically important centres and the primary focus for development Settlements, outside of the principal settlements, with the ability to support sustainable patterns of living through their current levels of facilities, services and employment opportunities. They will be the focus of locally significant development to increase the jobs and homes in each town necessary to sustain and enhance their role. Smaller towns and larger villages that serve a surrounding rural hinterland and possess a level of services and facilities that, together with local employment, provide the best opportunities outside the Market Towns for greater self-containment. They will be the focus of modest levels of development to safeguard their role and deliver affordable housing. Large villages are settlements with a limited range of employment, services and facilities. The majority of development will be small sites within existing settlement boundaries. Small villages have a low level of services and facilities and few employment opportunities. Limited infill only. At settlements other than those identified in the hierarchy, new development will be restricted and will only be permitted in exceptional circumstances. Chippenham, Salisbury and Trowbridge Amesbury, Bradford-on-Avon, Calne, Corsham, Devizes, Malmesbury, Marlborough, Melksham, Tidworth and Ludgershall, Warminster, Westbury and Wootton Bassett (see individual Community Area spatial strategies for details of these settlements) (see individual Community Area spatial strategies for details of these settlements) (see individual Community Area spatial strategies for details of these settlements) Table 1.1 The Settlement Strategy Purpose of the infrastructure delivery plan 1.12 The Infrastructure Delivery Plan (IDP) will support the Wiltshire Core Strategy and inform the rest of the Local Development Framework. However, it also has a wider corporate role within Wiltshire Council; from synergies with the Local Investment Plan (LIP) to contributing to its working relationship with key external partners. The role of the IDP 1.13 The main role of the IDP is to meet the requirements of Planning Policy Statement (PPS) 12 by setting out how the infrastructure necessary to deliver the development proposed in the Wiltshire Core Strategy will be brought forward. This is achieved by the identification of the key infrastructure projects needed to fulfil the objectives and policies in the Core Strategy, and by identifying the broad locations where the infrastructure will be located. 2 Wiltshire Council, Wiltshire Core Strategy Consultation Document (June, 2011), p

10 Draft Topic Paper 12 Infrastructure 1.14 The corporate role of the IDP for Wiltshire Council is to identify, support and inform other strategies and decisions relating to capital investment. The IDP identifies infrastructure requirements across Wiltshire arising from the development and growth proposed in the Core Strategy. Wiltshire Council will need to align its own financial decision making to facilitate the deliver of necessary infrastructure for which it is responsible and work closely with its external partners through the Wiltshire Infrastructure Delivery Board (WIDB) and beyond It will also be necessary to secure funding through planning obligations (i.e. Section 106) and a future tariff system of pooled contributions, e.g. the Community Infrastructure Levy (CIL) and the IDP will be used to inform the preparation of a CIL Charging Schedule and a future supplementary planning document (SPD) on planning obligations. Monitoring and review of the IDP 1.16 Wiltshire Council will own the Infrastructure Delivery Plan and it will be a key corporate document. The IDP will be managed, monitored and reviewed by the Spatial Planning Team The IDP will be a dynamic document, based upon information from Wiltshire Council and the various external infrastructure providers. This is likely to change over the plan period Wiltshire Council undertakes regular monitoring through its Annual Monitoring Report (AMR), published by 31 December each year. It is anticipated that the IDP will be updated annually alongside the Annual Monitoring Report. The monitoring of the IDP will also be incorporated into the AMR process. The AMR report will include a separate section specifically on the IDP, reviewing the progress made against the IDP Delivery Schedules and identifying whether this gives rise to concerns that a more formal periodic review of the IDP is necessary The AMR is subject to approval by the Cabinet Portfolio Holder for Planning before it is submitted to the Secretary of State each year. This approval process will ensure there is corporate and political recognition of the progress that has been made on infrastructure planning in the preceding year and commitment to any corrective or additional actions necessary to ensure the continued delivery of the Core Strategy proposals Liaison with infrastructure service providers will be an important part of the monitoring process each year. The mechanism for doing this will be through regular meetings of the Wiltshire Infrastructure Delivery Board (WIDB), comprising directors and senior managers of relevant organisations, and designated officer working sub-groups Tables 1.2 and 1.3 set out the monitoring framework for infrastructure policies within the Wiltshire Core Strategy. Core Policy 3 - Infrastructure requirements Core strategy outcome Delivery indicators Target Data source Delivery of infrastructure to meet community needs Completed infrastructure projects in accordance with infrastructure delivery plan Meet requirements set out in infrastructure delivery plan Service providers In house monitoring Table 1.2 Monitoring framework for core strategy policies on infrastructure delivery - 4 -

11 Draft Topic Paper 12 Infrastructure Core strategy outcome Development of strategic sites with associated infrastructure Core Policy 2 - Delivery strategy Delivery indicators Target Housing completions Phased delivery Completed infrastructure projects Meet requirements set out in infrastructure delivery plan Data source In house monitoring Service providers and in house monitoring Table Monitoring framework for core strategy policies on strategic site allocations and associated infrastructure requirements Delivering development in the Wiltshire Core Strategy 1.22 The IDP contains information on the type, timing and potential costs of infrastructure needed to support the development proposed by the Core Strategy. The IDP and future updates enable the council to plan successfully for this development and to ensure that this development is accompanied by the delivery of wider sustainability, economic, social and environmental objectives The role of Wiltshire Council in delivering the necessary infrastructure will vary between types of infrastructure and will include: the delivery of infrastructure through core policies by drafting generic policies in the Core Strategy to support the delivery of infrastructure and to enable developer contributions to be secured the delivery of infrastructure through spatial policies by specifying infrastructure requirements for strategic sites allocated in the Core Strategy or smaller sites allocated in a subsequent Site Allocations DPD, or by allocating sites for specific infrastructure items the direct funding of the infrastructure the indirect funding of infrastructure- by enabling private sector investment, including through negotiating to secure planning obligations or preparing a tariff system for pooled infrastructure contributions, such as the Community Infrastructure Levy (CIL) indirect funding by influencing third party public sector investment providing a statutory service that impacts on its spatial policies - e.g. the provision of education, adult and children s services and public transport) Risk and contingency planning 1.24 The ideal situation would be to secure the delivery of all infrastructure requirements. However, prioritisation may be required, mostly likely during the planning application process for development proposed in the Core Strategy. This is likely to reflect development viability, the availability of public sector funding sources and current service priorities. For example, some categories of infrastructure, such as utilities, transport and schools are critical to ensuring that sufficient services are available to meet the needs of existing and future residents. Other infrastructure categories are more directly related to enhancing quality of life or improving biodiversity A method of prioritisation has been developed for the IDP in Core Policy 3 Infrastructure Requirements of the Wiltshire Core Strategy. Table 1.4 sets out the priority categories, which relate to the level of importance of each infrastructure project to the delivery of the Core Strategy and, hence, the level of risk posed to the delivery of the Core Strategy if the project is not delivered

12 Risk to the Core Strategy Critical Essential Place-shaping Definition Draft Topic Paper 12 Infrastructure The identified infrastructure is critical, without which development cannot commence, e.g. some transport and utility infrastructure The identified infrastructure is essential to support new development but the precise timing and phasing is less critical and development can commence ahead of its provision, e.g. schools, primary health care The identified infrastructure will contribute towards the place shaping of communities but timing and phasing is not critical over the plan period, e.g. libraries, green infrastructure and youth provision. Table Assessment matrix to prioritise infrastructure projects identified in the IDP 1.26 The IDP will also include an assessment of the likely risk of individual infrastructure projects not being delivered, linked where appropriate to information on any contingencies that may be required. Table 1.5 sets out the risk categories and the criteria for each category. Risk to not proceeding Either/ or: Definition High Medium Low Infrastructure requirements are identified but there is no clear mechanism at present to secure funding. Planning and/ or other consents are required to secure delivery. The likelihood of consents being granted in uncertain. Infrastructure requirements are identified and there is a clear mechanism identified to secure funding. Planning and/ or other consents may be required to secure delivery. There is a strong likelihood that consents would be granted. Infrastructure requirements are identified, costs are known and funding is secured or a robust mechanism identified to secure funding. No other planning or consents are required, and/ or there is a statutory duty to provide the required infrastructure in step with development. Table Assessment matrix of risk to delivery of individual infrastructure projects Scope 1.27 The term 'infrastructure' can be quite wide-ranging and it is important to clarify what is meant by the term. For the purposes of this topic paper, based on guidance from the Planning Advisory Service (PAS) and best practice examples, infrastructure is divided into three broad categories: Physical infrastructure, e.g. transport, utilities, ICT, waste and recycling etc. Social and community infrastructure, e.g. education, health, emergency services, leisure and cultural facilities, social services etc. Green infrastructure, e.g. open space, green public realm, river corridors, forests and woodland etc

13 Draft Topic Paper 12 Infrastructure 1.28 Figure 1.1 and Figure 1.2 provide a more detailed definition of physical infrastructure and social and community infrastructure based on PAS guidance. Green infrastructure is being considered in a separate topic paper, Topic Paper 13 - Green Infrastructure, which provides a more detailed description of this infrastructure category. Cross-linkages 1.29 There will eventually be 19 topic papers that will form part of the evidence base to support the emerging Wiltshire Core Strategy. These topic papers have been produced in order to present a coordinated view of some of the main evidence that has been considered in drafting the Core Strategy The complexity of some of the above infrastructure categories means that the following are covered in greater detail in other topic papers: Transport (Topic Paper 11 - Transport) Renewable energy (Topic Paper 1 - Climate Change) Historic legacy/ Public Realm and Safety (Topic Paper 10 - Built and Historic Environment) Economic facilities (Topic Paper 8 - Economy) Affordable housing (Topic Paper 2 - Housing) 1.31 However, the IDP will encompass all identified infrastructure projects necessary to deliver development proposed in the Core Strategy and provide evidence to show that they are deliverable. This is irrespective of whether the subject, be it transport or green infrastructure for example, is covered in more detail within the parameters of another topic paper. Therefore, the infrastructure planning process will need to work closely with the owners of these other topic papers to ensure that any information about infrastructure needs relating to that topic area feeds into the IDP This topic paper will focus in more detail on the following infrastructure categories: Utilities (i.e. energy, water and ICT etc.renewable energy will be covered in Topic Paper 1 - Climate Change. Waste and recyclingwith reference to the Wiltshire and Swindon Waste Development Plan Documents. Historic legacy (i.e. archaeological storage etc.)with reference to Topic Paper 10 - Built and Historic Environment. Public realm and safetyas above Education Health Emergency services Leisure facilities Cultural facilities Social services Community facilities 1.33 There will also be close links between this topic paper and Topic Paper 9 - Planning Obligations, which will detail the council's approach to securing developer contributions, through Section 106 agreements and the Community Infrastructure Levy (CIL), towards the cost of infrastructure necessary to deliver development

14 Draft Topic Paper 12 Infrastructure Figure 1.1 Types of physical infrastructure - 8 -

15 Draft Topic Paper 12 Infrastructure Figure 1.2 Types of social infrastructure - 9 -

16 Structure of this topic paper Draft Topic Paper 12 Infrastructure 1.34 Table 1.6 summarises the organisation of the main chapters in this topic paper. Chapter Title Description 2 What are the national, regional and local policy requirements? How will we work in partnership with others? What are the links with other plans and strategies? What can we learn from infrastructure planning elsewhere? What infrastructure is required in Wiltshire? What are the community's aspirations? What are the policy options? A summary of national, regional and local policies relating to infrastructure. A timeline of the infrastructure planning process, charting who has been involved and when and the role of the Wiltshire Infrastructure Delivery Board (WIDB) in governance and oversight of the process. A survey of related plans and strategies and the role of the IDP in relation to all of these documents. An examination of best practice examples from other local authorities and lessons learnt. Evidence gathered from infrastructure service providers about infrastructure requirements necessary to deliver proposed development in the Wiltshire Core Strategy. An in-depth study of community aspirations with relation to the provision of infrastructure for their Community Areas. The development of policy options for inclusion in the Wiltshire Core Strategy designed to address the issues identified through the infrastructure planning process. Table Structure of topic paper 12 - infrastructure

17 Draft Topic Paper 12 Infrastructure 2. What are the national, regional and local policy requirements? Overview 2.1 The Core Strategy will guide development in Wiltshire for the next 15 to 20 years but it must be in conformity with a broad framework of national policies. This chapter will identify what the national policies relevant to the topic area tell us we 'have' to do. It will also summarise the regional and local policies that are currently in place. National policy 2.2 The advent of 'spatial planning' in recent years signalled a move away from the more limited land-use role of town planning in the past. This new approach is more holistic, borne out of a realisation that how land is used can not be seen in isolation from wider social, economic and environmental issues. It follows, therefore, that spatial planning is perfectly placed to coordinate new development with the provision of the necessary infrastructure. 2.3 The previous government's White Paper on Planning for a Sustainable Future (May, 2007) agrees, saying that the strategic overview of local infrastructure provision is the responsibility of planners in local authorities. It pushes for a much stronger relationship between local development plans and infrastructure. It expects local authorities to show how and when infrastructure will be delivered. 2.4 National planning policy is set out in a number of planning policy statements (PPSs) and, their precursors, planning policy guidance notes (PPGs). Most prominently, PPS 12 Local Spatial Planning (June, 2008) confirms that the onus is on local authorities to take on a co-ordinating role in delivering infrastructure. This should be undertaken through the authority's Local Development Framework (LDF), or more specifically their core strategy. 2.5 To meet this new strategic responsibility, PPS 12 anticipates the core strategy having to do three things: Develop an evidence base Prepare a delivery plan Work with infrastructure providers 2.6 PPS 12 states that 'the core strategy should be supported by evidence of what physical, social and green infrastructure is needed to enable the amount of development proposed for the area 3 '. This evidence base must cover any extra infrastructure needed, as well as remedying any existing deficiencies. 2.7 The Infrastructure Delivery Plan (IDP) is intended to be a separate document, which sits alongside the core strategy and details the infrastructure required to support the development set out in the core strategy 4 The IDP should cover: Infrastructure needs and costs; Phasing of infrastructure projects; Funding sources and gaps; Responsibilities for infrastructure delivery, and Specific infrastructure requirements of any strategic development sites allocated in the core strategy. 3 Planning Policy Statement (PPS) 12: Local Spatial Planning, June 2008, para. 4.8, p.8. 4 PPS 12 emphasises the importance of having a delivery strategy for achieving the vision and objectives of the core strategy. This should set out how much development is intended to happen and when, where and by what means it will be delivered

18 Draft Topic Paper 12 Infrastructure 2.8 The IDP should inform the core strategy and be part of a robust evidence base. This allows for the identified infrastructure to be prioritised in later discussions with key local stakeholders. 2.9 Underlying the evidence base and delivery plan should be effective co-operation between local authorities and infrastructure service providers. PPS 12 says that 'the core strategy should draw on and in parallel influence any strategies and investment plans of the local authority and other organisations 5 ' Service providers are also encouraged to work with local authorities in the infrastructure planning process and take the core strategy into account in their own planning process. Ideally, the agencies responsible for delivering infrastructure and the local authority producing the core strategy should seek to align their planning processes However, PPS 12 is realistic that the information might not always be available from service providers when it is needed by local authorities. This may be due to differences in timescale, budgeting processes or even commercial sensitivity. Such uncertainty is something that the core strategy must deal with through proper contingency plans. Woe betides the core strategy that places undue reliance on critical elements of infrastructure whose funding is unknown On 25 October, 2010, the drive to develop a more joined-up approach to delivering infrastructure manifested itself in the publication of the UK's first ever National Infrastructure Plan. The focus is squarely on the economic impact of infrastructure provision and the Plan identifies the challenges facing the UK's infrastructure and the major investment needed for sustainable growth in the future. Regional policy 2.12 The Wiltshire and Swindon Structure Plan 2016 (April, 2006) provides the existing strategic policy guidance for Wiltshire. One of the key objectives of the Structure Plan is 'to ensure the provision of adequate infrastructure and services, including health care and hospital services, to support development, protect the amenity of existing settlements and reflect agreed standards The Structure Plan, in addition to recognising that new development will require extra infrastructure, is also concerned with addressing existing deficiencies in infrastructure provision. Another key objective is 'to protect and improve the amenity of settlements, including their built and natural environment 7 ' The key policy in the Structure Plan that relates to the delivery of infrastructure is DP2, which states that 'development should not proceed unless the infrastructure services and amenities made necessary by the development can be provided at the appropriate time 8 '. It takes into account the availability and likely provision of critical infrastructure, such as water services and transport, without which development cannot go ahead However, it also goes a little further to state that 'the acceptability of development proposals will depend upon the existing availability or new provision of a wide range of appropriate community services and facilities 9 '. There is some recognition that the definition of infrastructure does and should go beyond the bare minimum needed for development to take place. It is a recognition that it is not just about building houses but also about building the communities that will live in these houses. This necessitates the provision of essential infrastructure, such as schools, health and recreation facilities and other community facilities to sustain a new community. 5 As above. 6 Wiltshire and Swindon Structure Plan, April 2006, para. 2.28(m), p As above, para. 2.28(i), p As above, para. 4.4, p As above, para. 4.5, p

19 Local policy Draft Topic Paper 12 Infrastructure 2.16 The following section summarises the existing policy background present in the four district local plans in Wiltshire. These were adopted prior to Wiltshire becoming a unitary authority and remain the valid local development plans for their respective areas until such time as they are replaced by new policies within emerging development plan documents (DPD), such as the Wiltshire Core Strategy. Attention has been concentrated on the core policies relating to infrastructure. Other local plan policies, such as those concerned with the provision of green infrastructure and transport infrastructure, are covered in the relevant draft topic papers The extant local plans are listed in Table 2.1 below. Local plan North Wiltshire Local Plan 2011 Adoption date Area covered June 2006 North Wiltshire Kennet Local Plan 2011 June 2003 East Wiltshire Salisbury District Local Plan 2011 West Wiltshire District Plan 1st Alteration June 2004 South Wiltshire June 2004 West Wiltshire Community areas Chippenham, Calne, Corsham, Malmesbury and Wootton Bassett & Cricklade Devizes, Marlborough, Pewsey and Tidworth Salisbury, Amesbury, Southern Wiltshire and South West Wiltshire Trowbridge, Bradford on Avon, Melksham, Warminster and Westbury Table The extant local development plans for Wiltshire 2.18 Looking through the existing saved local plans for Wiltshire, it is possible to detect certain policy themes. Broadly, infrastructure policy falls into the following categories, as set out in Table 2.2. Policy category Generic prohibitory Generic enabling Site specific and spatial 10 Thematic and spatial Thematic Regulatory Explanation A general infrastructure policy aimed at preventing overload of existing infrastructure A general policy explaining the approach of the LPA and including provision for developer contributions Highlights key infrastructure issues relating to allocated sites and funding Deals with subject areas (such as water) where these are deemed to be especially important within the district. Deals with infrastructure by topic and regulates infrastructure development, the aim being to prevent provision of infrastructure itself having a negative effect. Table Infrastructure policy themes in Wiltshire's extant local development plans 2.19 With the exception of generic enabling policies, which will be discuss in Topic Paper 9 on planning obligations, the identified infrastructure policy themes are discussed below. 10 Whether in an additional document or the local plan itself

20 Generic prohibitory Draft Topic Paper 12 Infrastructure 2.20 Polices which are designed to prevent infrastructure overstretch. These policies are present in all 4 District Local Plans and are all essentially negative or prohibitory in nature For example, North Wilts Local Plan,Policy C3 (development control core policy); New development will be permitted subject to the following criteria: viii) Avoid overloading of existing or proposed services and facilities, the local road network or other infrastructure 2.22 See also Kennet Local Plan, Policy HC43 (off site service infrastructure); Development which increases the demand for off-site service infrastructure, such as water supply, surface water, foul drainage or sewage treatment, will not be permitted unless sufficient capacity already exists or extra capacity will be provided in time to serve the development without harm to the environment. When improvements in off-site Infrastructure are programmed, the commencement of development will be co-ordinated with its provision. Where necessary improvements in offsite provision are not programmed, developer contributions towards the upgrading of existing provision to meet the requirements of the new development will be sought And, the Salisbury District Local Plan 2011; General Criteria for Development Policy G2 New development will be considered against the following criteria: (ii) avoidance of placing an undue burden on existing or proposed services and facilities, the existing or proposed local road network or other infrastructure; 2.24 And, the West Wiltshire District Plan 1st Alteration 2004, Policy U1; Utilities and Consumer Services Infrastructure Proposals for development will not be permitted where the infrastructure is inadequate to cater for the proposal unless the developer makes a contribution necessary to secure the provision of infrastructure related to the needs of the development which is required to secure its implementation. Site specific and spatial 2.25 Another means of dealing with provision and funding of infrastructure has been on a site specific basis In the Kennet Local Plan, for example, planners were so concerned about local infrastructure delivery issues that they decided to produce a Strategic Development Brief which would, inter alia, deal with key infrastructure issues

21 Policy HC8 - POTENTIAL IMPACT OF DEVELOPMENT Draft Topic Paper 12 Infrastructure Proposals for housing development on each of the sites listed in Policy HC2 will need to address the potential impact of development on transport (including walking, cycling and public transport), local communities and amenities (including affordable housing and recreation space), education, services and locally important natural features in accordance with policies PD1, AT2, HC30, HC34, HC37, HC42 and HC43 and other relevant detailed policies of the Plan. Kennet District Council consider that the best way to address these cumulative impacts and to ensure that these effects are appropriately mitigated is through the preparation of a Strategic Development Brief. The Council will prepare a Strategic Development Brief for the sites identified for housing development in Devizes at Quakers Walk, Roundway Mill, the former Le Marchant Barracks, Naughton Avenue and the North Gate/Wharf/Devizes Hospital sites. The Strategic Development Brief will be prepared in conjunction with landowners, town and parish councils, WiltshireCounty Council (transportation and education), other interested parties, such as the Environment Agency and relevant service providers and established local community and interest groups. Once complete the Strategic Development Brief will be adopted as Supplementary Planning Guidance and will ensure that all landowners are aware of the level and range of planning obligations that the Council will seek to negotiate at the time of an application West Wiltshire District Council Planners also adopted a site by site approach with infrastructure requirements identified in relation to allocated sites within the local plan document itself. For example; Policy H7 Staverton Triangle A site with a net developable area of about 2.2 hectares (5.5 acres) at the Staverton Triangle is allocated for about 80 dwellings as defined on the Proposals Map. The development of the site will require the following: 1. The provision of a recycling mini-bank station of approximately 10 square metres to make recycling convenient for the local community; 2. The provision of affordable houses to meet local needs (see Policy H2); 3.The provision of approximately 0.5 hectares (1.2 acres) of public open space within the development including a fully equipped children s play area (see Policy R5); 4. The provision of additional tree planting and landscaping, involving the planting of native tree species wherever appropriate; 5. The retention of the area of woodland within the site and incorporation of this area into the area of public open space; 6. The provision of an integrated cycleway and footpath provision connecting to the existing network; 7 The provision of traffic calming measures within the locality as approved by the County Highways Authority; 8 The provision of a landscaped river corridor covering the flood plain to meet the requirements of the Environment Agency (see Policy R8). Thematic and spatial 2.28 These deal with particular types of infrastructure which the plan picks out as being specifically important within the plan area. Policies are then formulated to cover these For example, Policy G3 of the Salisbury District Local Plan 2011;

22 Draft Topic Paper 12 Infrastructure Policy G3 The Water Environment Development will not be permitted which would increase the requirement for water unless adequate resources already exist, or will be provided in time to serve the development, and without detriment to existing abstractions, water environment, both quality and quantity, fisheries, amenity or to nature conservation. Thematic and regulatory 2.30 These deal with infrastructure for topic areas and regulates its development, the aim being to prevent development of infrastructure itself having a negative effect For example, in the Kennet Local Plan the following policies state; Policy HC43 OFF SITE SERVICE INFRASTRUCTURE Development which increases the demand for off-site service infrastructure, such as water supply, surface water, foul drainage or sewage treatment, will not be permitted unless sufficient capacity already exists or extra capacity will be provided in time to serve the development without harm to the environment. When improvements in off-site infrastructure are programmed, the commencement of development will be co-ordinated with its provision. Where necessary improvements in offsite provision are not programmed developer contributions towards the upgrading of existing provision to meet the requirements of the new development will be sought. Policy HC44 TELECOMMUNICATIONS Proposals for telecommunications development, including applications for prior approval under the Town and Country Planning (General Permitted Development) Order, 1995, will be permitted where: a) there is an operational requirement for the proposal; b) the siting, design, materials and external appearance of the proposal minimises its visual impact; and c) an assessment of alternative sites has been carried out, including the possibility of using existing structures and site sharing, and there are no satisfactory alternative sites for telecommunications available. Assessment of the efficacy of extant local plan policy 2.32 Existing development plan policy in Wiltshire was devised prior to the introduction of IDPs. Major questions for consideration are: How effective has local plan policy been in matching infrastructure to development needs? What kind of linkages and development plan policies might be needed to support the emerging IDP? What role has the IDP in relation to new development plan policies? 2.33 General observations on existing local plan policy having studies the policies relating to infrastructure might include the following

23 2.34 What existing policy does: Draft Topic Paper 12 Infrastructure Regulates development (at point of application) to prevent overload Indicates main areas of concern (on a thematic or site specific basis) Indicates need for contributions and establishes in general terms a payment mechanism What existing policy does not: Does not plan infrastructure in advance Does not always assign responsibility Does not indicate costs clearly Does not deal with viability issues adequately Does not establish a sound forum for negotiation and to aid co-ordination 2.36 In general, existing policy appears relatively fragmented in its way of dealing with this issue within each document. It lacks clarity and a sense of urgency/ importance and is far more concerned with regulation than it is with positive planning or place-making. There is no adequate overview of the issues and the charging regime/ tariff is unclear. Most importantly it does not provide assurance that the approach taken to infrastructure provision is realistic and that the plan is consequently deliverable, or the strategy effective. The above is no more than typical of current UK local plans A reading of the Planning Advisory Service (PAS) soundness toolkit, together with recent Inspector s decisions suggest that a fragmented approach is no longer acceptable. There is therefore an important communications issue requiring that the IDP as a mechanism (and critically as an evidence base element) needs to be clearly mentioned and tied into the core strategy. This is in any case essential as the IDP will draw much of its legal status from the development plan and a direct policy reference and link is therefore vital. Development management view on existing local plan policies 2.38 In order to assess the efficacy of existing Wiltshire local plan policy regarding infrastructure, the opinions of the development managers of the area hubs were sought There was a general feeling that while existing policies were, for the most part, adequate, they were becoming out of date and more difficult to enforce due to changing circumstances. Many felt that revisions were overdue and urgent. The changed circumstances referred to included: Increasing community aspirations (for example for green infrastructure, footpaths, open space and community resources such as playing fields). Increased financial pressure on developers since the credit crunch Increased financial pressure on public and private sector infrastructure providers A hard line being taken by appeal inspectors on matters of policy clarity and the evidence behind requests from Local Planning Authority for infrastructure contributions The likely introduction of the Community Infrastructure Levy (CIL) and the need to have a policy structure in place 2.40 Development managers felt under more pressure than previously to justify their decisions and were inclined to feel that they lacked the best policy tools to do this. However a development management wish list to improve decision making confidence would include the following: Clearer generic policies setting out what is expected (e.g. Policy C2 of the North Wilts LP was criticised as failing in this respect.) Policies backed by an supplementary planning document (SPD) More site specific policies (allocated sites where the allocation policy spells out what is needed in infrastructure terms) Area development briefs (such as the Devizes Strategic Development Brief)

24 Draft Topic Paper 12 Infrastructure 2.41 Solid evidence base behind the SPD, particularly covering issues of the quantifiable need for the infrastructure (such as an affordable housing needs assessment) and, crucially and most topically, commercial viability In support of these needs, development managers pointed to increasingly protracted negotiations with developers, an increased tendency to respond with an appeal and some recent appeal decisions against the Council. Analysis of existing local plan policies 2.43 The following tables summarise an analysis of existing local plan policies, including input from Development Management. (a) Salisbury District Local Plan Policy Policy Type Comments G2 General infrastructure policy. Generic Prohibitory Comments concerning scope of policy rather than ability to manage infrastructure G3 Water infrastructure policy Thematic and Spatial Policy can lead to difference of opinion between water company and Environment Agency. G5 Water infrastructure policy Thematic Regulatory Good for making developers Connect to mains. Quality can still be an issue. G8 Water infrastructure policy Site Specific and Spatial Policy protects groundwater. Needs to be widened in scope G9 Developer contribution policy. Generic Enabling Too woolly. Would welcome detailed tariff based policy H17/ Policies to protect open space Be more precise and show more sites on a H18 R6 R16 R3 R8-R13 PS2 PS4 PS5 PS6 (iii) and (iv) Site Specific and Spatial Protection of community infrastructure (recreation areas) Thematic and Spatial Facilitation of public access to watersides Thematic and Spatial On-Site infrastructure (Open space) policy Thematic and Spatial Site specific allocation of recreational open space Site Specific and Spatial Provision of community infrastructure care homes Thematic and Spatial Allocates specific school site Site Specific and Spatial School provision Thematic and Spatial Play group and nursery provision Thematic and Spatial plan Policy needs to be re-worded as too tightly defined. Has caused problems with development not incompatible with recreation use but prohibited by this wording. Never used. Weak wording. Suggest delete Policy requires planning obligation. Unnecessary. Needs re-wording to use just conditions. Sites now overtaken by events. Needs reviewing. Restrictive. Need to extend scope to include non-detached properties and does not cover extensions No longer relevant. Delete. Needs re-wording due to legislative changes. Illogical wording Table 2.3 Analysis of the main infrastructure policies within the Salisbury District Local Plan 2.44 There is an overall desire for improved accuracy and precision. Development management are welcoming of an indication of infrastructure requirements on site specific plans. On the other hand, precision needs to be balanced with flexibility when necessary