Devon Local Strategic Partnership A TOOLKIT FOR SUSTAINABLE RURAL COMMUNITIES

Transcription

1 Devon Local Strategic Partnership A TOOLKIT FOR SUSTAINABLE RURAL COMMUNITIES Final Study Report December 2008 ruralservices network

2 ROGER TYM & PARTNERS Dix s Field, Exeter, Devon EX1 1QA t f e southwest@tymconsult.com w

3 CONTENTS 1 INTRODUCTION THE STUDY PROCESS FINDINGS FROM INITIAL RESEARCH & LITERATURE REVIEW DEVELOPING THE TOOLKIT OVERVIEW OF THE TOOLKIT NEXT STEPS APPENDIX THE CONSULTANT STUDY TEAM

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5 1 INTRODUCTION This work was commissioned by a wide range or organizations from within and beyond Devon 1 in order to inform Local Development Frameworks, community planning and specifically the Devon Local Area Agreement The need for the work was identified through development of the Devon Local Area Agreement ( ) and focussed on the question of how to make sure that rural communities thrive. Traditionally, planning and housing policies have focused development at key locations based on assessment of the availability of public transport, shops, facilities and services. It was the view of the Local Area Agreement Housing Working Group that planning and development processes need to be more sophisticated if we are to encourage a more sustainable approach that recognises how places and communities really work in practice. Such an approach would be set out within a toolkit or toolkits which would be relevant across a range of spatial levels from the smallest, most scattered hamlet to larger market towns. If a more rounded approach is to be successful, then housing, planning and development professionals need to agree on the process by which sustainability assessments are made and to implement this approach consistently. The brief for the study was thus that the toolkit(s) must be easily applicable, replicable and capable of being monitored in house. As the study progressed it became clear that there was a significant opportunity to secure the engagement and commitment of local communities to the processes of planning and investment in their areas, and improve communication and the quality of information on which such processes depend. It also became apparent there may be potential for better exchange of information and dialogue between local partners, particularly those operating within Local Area Agreement processes, which could provide significant benefits in the processes to identify needs within rural communities and in targetting investment to enhance their sustainability. The toolkit was therefore developed with a specific focus on LDF processes but also in relation to community planning and the work of other partners. This document explains the process of the study and sets out its main findings. 1 Commissioning Partners for the project: Devon County Council, Devon Strategic Housing Group, Torridge District Council, West Devon Council, SWAN, Commission for Rural Communities, South West Regional Assembly, Housing Corporation and SPARSE (the Sparsity Partnership of Local Authorities) December

6 A Stage One Report Planning for Sustainable Rural Communities provided an analysis of policy and practice in relation to sustainable rural communities and a wider analysis of toolkits and the measurement of social capital. This report is accessible by website or direct from project partners. The final proposals for the Toolkit (and the processes to use it) are contained in a parallel report. The toolkit has been developed through an intensive process of research, dialogue and testing with pilot communities. The consultant team is extremely grateful for the inputs of these community representatives, the Steering Group for the study and a range of consultees. December

7 2 THE STUDY PROCESS The study was commissioned on behalf of the Devon Local Strategic Partnership and has been directed throughout by a Steering Group chaired by Pauline Warner, Devon County Council. The Steering Group included representatives from Devon Strategic Housing Group, Commission for Rural Communities, SPARSE [a special interest group of the Local Government Association comprising the most rural local authorities in England], SWAN [the South West ACRE Action with Rural Communities Network], South West Regional Assembly, South West Regional Development Agency, Housing Corporation, West Devon Borough Council, Torridge District Council and the Community Council of Devon. The study arose from a seminar ( Developing and Living in a Sustainable Village ) held in November 2006 that set out to discuss some of the criteria that could be used to identify settlements that worked well as sustainable communities. This discussion identified the need to agree on the process by which sustainability assessments are made and implement this approach consistently. An important element would be to ensure the approach has sign up across all interests community; Local Authority; Strategic bodies; Local Strategic Partnerships. The brief for the study was published in February 2008, and the consultant team of Roger Tym & Partners and Rural Innovation appointed in March Following an Inception Process and dialogue between the Steering Group and consultant team, Phase 1 of the study focussed on developing a detailed understanding of the policy context, recent research and existing knowledge and good practice relating to assessing, and securing the future sustainability of rural communities. The project team investigated the operating context taking into account both local development documents, strategies and community plans, and material from wider research and literature. Consultations were opened with relevant (local) stakeholders, identifying their interests and key contacts. A draft Stage 1 report was submitted for discussion with the Steering Group, and finalised with recommendations for the next Phase of work to develop the toolkit. The Phase 1 report is available by website or from the project partners. Stage 2 of the study focussed on the design, testing, validation and development of the toolkit. It was an iterative process including discussion at various stages with the Steering Group as a whole, and with individual members. A Design Group of individuals with particular experience of planning for rural communities in Devon, West Devon and Torridge (including local councillors) was established to guide the consultant team in drafting processes and materials suitable to the study (their December

8 assistance is gratefully noted). The process also included research and consultation with various individuals and representatives with particular experience of rural communities and planning for sustainability key findings are noted later. A central element of the work programme was a simulation of the toolkit process with representatives of two communities (one in West Devon, one in Torridge) to pilot the approach and the draft materials. This process resulted in significant development and enhancement of the toolkit approach and the materials which are finally reported in the parallel ( Toolkit ) report. Key elements of Stage 2 thus comprised: Initial design of a toolkit, based on the Bristol Accord approach; with attention to identifying available and appropriate data sources Drafting of toolkit resources as a basis for consultation and pilot testing Consultation and peer review with a range of local and national organisations Pilot testing with two communities Report of consultation and pilot work to the Steering Group Review, redrafting and development of the toolkit approach and materials Further consultation with the Steering Group organisations Final drafting and reporting The final drafts of Stage 2 work were reported to the Steering Group in September 2008, and these final reports submitted in October December

9 3 FINDINGS FROM INITIAL RESEARCH & LITERATURE REVIEW Stage One was intended to build a detailed understanding of the policy context and existing approaches to identifying sustainable rural communities as set out in national, regional and local polices and strategies. In order to fulfill this task the team: Explored the policy position at national and regional level for sustainable (rural) communities Focused on the planning position at national, regional and local level in terms of sustainable communities, how these are identified and what guides choice of acceptable locations for development Explored the aspirations of other related strategies (economic, regeneration, community) in relation to sustainable development and sustainable communities and the extent of linkage with the planning approach Reviewed a range of toolkits and considered the different types of toolkit available Researched the measurement of social capital Drew initial conclusions around the key issues arising in order to aid the development of the toolkit in Stage Two The research found that whilst there is great consistency across the literature placing sustainable communities as central in planning and policy, there is no consensus on a definition of rural sustainable communities. Rather there is a broad set of fairly consistent criteria which are the subject of interpretation in their application. The criteria which are used fairly consistently could be found for example in the new UK sustainable development strategy 2 which defines as a Sustainable Community as being: Active, inclusive and safe - fair, tolerant and cohesive with a strong local culture and other shared community activities. Well run - with effective and inclusive participation, representation and leadership. Environmentally sensitive - providing places for people to live that are considerate of the environment. Well designed and built - featuring a quality built and natural environment. Well connected - with good transport services and communication linking people to jobs, schools, health and other services. Thriving - with a flourishing and diverse local economy. Well served - with public, private, community and voluntary services that are appropriate to people's needs and accessible to all. Fair for everyone - including those in other communities, now and in the future 2 Securing the Future The UK s Sustainable Development Strategy December

10 This set of criteria has been further adapted by the Academy for Sustainable Communities, set up by ODPM following the Egan Review (Skills for Sustainable Communities, 2004). Sustainable communities are thriving, prosperous and vibrant communities where people want to live and work now and in the future. Supporting the wellbeing of existing and future residents, they are safe, well planned, built and run, environmentally sensitive, provide equal opportunities and contribute to a high quality of life. Academy of Sustainable Communities, June 2006 The Bristol Accord the UK Presidency EU Ministerial Informal on Sustainable Communities, December 2005 confirmed this approach setting out the 8 characteristics of successful places cities and other human settlements in urban and rural areas. However, practice in relation to key policy issues such as planning and housing could not be found to reflect or apply this conceptual approach in a consistent way. For example there has been some concern and debate in recent national reports related to housing, in respect of their application to smaller rural settlements in a potentially restrictive way. Functionality is now identified as a key driver in planning policy at the regional and local level. Understanding functionality is based on analysis of the roles that settlements play (in people s lives) and a notion of complementarity between settlements within a settlement hierarchy. Within the concept of functionality, there is no specific reference to settlement size although a measure of size is introduced into policy by the use of a cut off point of 3,000 head of population to introduce exception sites. Whilst descriptions of sustainable communities 3 generally hold good when compared to sub regional and local expressions of sustainability, three differences are apparent: The issue of housing markets, meeting housing needs and affordable housing in particular The emphasis on climate change factors and particularly carbon emissions and reducing the need to travel The growing importance of transport as a cross cutting theme to provide the linkages and enable functionality to be looked at on a group not individual settlement basis 3 Such as those included in the Egan Review or the Bristol Accord (see Literature Review) December

11 In reviewing the use of toolkit approaches to planning for sustainable rural communities, Stage 1 identified four main types of approach: Guided / Managed Process: a document which takes the user through a defined approach to project development or problem solving. Self Assessment / Questionnaire: a document which raises issues / challenges and requires user to respond, either through choosing the most appropriate from a group of statements or by answering a series of questions. Assessments and Appraisals: methods of assessing or scoring some form of proposition, (i.e. a document, project, policy or strategy). Participative and Interactive: methodologies and supporting materials for use in an interactive environment. The consultant team concluded from this review that in order to meet the needs of the client group the toolkit(s) need to be: Based on a common and replicable methodology Capable of use at different spatial levels Establish a baseline / standard Provide for assessment (by the user) of the subject against that baseline / standard Requires some form of scoring mechanism Requires direct and relevant comparison with baseline Support relative comparison of settlements Be built from, or linked to, evidence (in order to meet LDF requirements) Be capable of use by professionals and within communities Allow a community to develop an assessment of their own performance Requires it to be accessible and simple Some element of fun might help The Stage 1 report then started to identify the key requirements of the toolkit approach, and reviewed potential data sources, which were developed through the draft toolkit resources, pilot with local communities and other work in Stage 2. December

12 Following completion of the Stage 1 work, contact with Plymouth City Council identified the work which had been conducted recently to develop an approach to planning for Sustainable Neighbourhoods in the city. This provided an extremely interesting and positive illustration of how key principles could be carried through statutory planning processes and could achieve significant levels of community engagement. This approach is well summarised at and can be accessed through the Plymouth City Council website at communityassessments.htm This approach differs in detail from that which developed for assessing sustainable rural communities, reflecting different organisational priorities and some differences between urban and rural contexts. For example, the characteristics of the built environment are strongly represented in the Plymouth approach; while accessibility (to work, housing, services, facilities, community activities) has different connotations and impact between the urban and rural contexts. However, the Plymouth work is a useful example and comparison for those seeking to develop and apply an analysis of sustainable communities in a spatial planning process. December

13 4 DEVELOPING THE TOOLKIT Through Stage 2 of the study, work to develop the toolkit progressed through two main processes: pilot testing with 2 local communities consultations and dialogue with a variety of stakeholders and interested parties, including consultation with a Regional Reference Group and wider national consultations Reports on both of these processes were provided to the Steering Group and their findings discussed. Community Pilots The pilot events were organised with assistance from the District Councils, and included a range of representatives of the local communities. The two pilot areas for testing the draft toolkit are Torridge District and West Devon. A community-testing event was organised in each District, one in Lifton Parish (West Devon population 1,200) and one in Holsworthy (Torridge population 3,435) on July 31 st Members of the local community (including parish councillors) were invited to work with the consultant team to test how the toolkit might work in practice and to make suggestions about both its contents and its use. 6 people attended the group at Lifton and 30 people were in the Holsworthy group. Feedback from the pilots indicated that participants really enjoyed them, and that the pilots proved a very helpful exercise, providing full detailed comment and suggestions for improvement and use of the toolkit. The detail of the exercise is not reported here, but overall findings from the process were that: the toolkit worked and ease of use was fine, however instructions could be confusing and questions needed simplifying. the toolkit stimulated useful debate. groups could always come to a judgement, which attendees recognised as a fair reflection of their community. the toolkit worked for both scales of user group. there was a need for simplification in language and presentation style of the toolkit. there is a need for a facilitator in the use of a toolkit, particu larly for initial use by community groups. each characteristic in the toolkit required approximately minutes of discussion, which was not condensable. December

14 councillors proved very useful group members, knowing their neighbourhoods very well. people in groups from outlying areas (from peripheral parts of Market Town Area) found questions pitched in the toolkit harder to answer. planners (external to Steering Group) involved in testing events realised how the toolkit is not a desk based exercise raising the query of what resources are needed for Local Authorities to use the toolkit. Consultations Consultations beyond individual discussions with a range of stakeholders directly throughout the study process comprised two main processes: 1. Written consultation with a wide range (regional and national) of individuals and agencies most experienced in dealing with issues of sustainable rural communities 2. Consultation with a Regional Reference Group established by the South West Regional Assembly Written Consultation This consultation process included referring a summary issues paper and draft toolkit approach to named individuals in the following types of organisation: All Devon District Councils, and selected Devon County Council departments Housing Associations Government Departments and Government Offices of the Regions Regional Development Agencies House Builders and the Home Builders Federation Academics and others active in development of best practice in relation to Sustainable Rural Community issues the Design Group and the Steering Group December

15 The response to the consultation process elicited a range of important responses, particularly: general interest and support for the idea of a toolkit in relation to planning and engagement with rural communities support for the approach being developed in terms of concepts of sustainable rural communities issues around links with the planning system and parish planning - and in particular the need for better explanations of these links and the need to ensure that the process links effectively to LDF processes guidance needs to cover how the toolkit moves beyond healthchecks/parish plans need to ensure that the toolkit can involve people other than the most active participants and established representatives in existing partnerships (i.e. reach out to more people) there was particular concern from planning respondents about the resource implications there were some concerns about quality and validity of information; and about how information could be used in making judgements. Concerns about subjectivity of questions and responses and thus if conclusions would be valid and robust enough, or can be challenged and discussed. there were a number of comments about the need for external support when the toolkit is to be used by or with communities are made both in terms of technical/information issues; and in organising and facilitating the discussion to ensure useful results various concerns were expressed about wording, complexity and resources needed for its use. comments also pointed to the issue of how the toolkit is championed and managed or controlled in subsequent phases of development Various consultees were able to represent their appreciation of issues surrounding planning for sustainable rural communities and the use of a toolkit approach from their own experience and from discussions with other agencies active in the process. Their contributions were all positive, and provided reassurance on a number of points, including the sense that this approach fits well with the current Government guidance and Planning Inspectorate expectations for the process of preparation of Local Development Frameworks, community engagement and the development of the evidence base in relation to development in rural areas. As noted above, discussions were also held at this stage with Plymouth City Council officers, where recent work (in an adjacent area) provided useful experience and insights into the use of similar themes for the analysis of sustainable urban neighbourhoods. December

16 The comments received through the various channels were carefully considered and reported to the Steering Group. Through the iterative process of development, the toolkit design and guidance has been improved to respond to these issues as far as possible. The outcomes of this process of consultation and review are contained within the final proposals for the toolkit and its use; the issue of future development, management and roll-out of the toolkit is discussed below. December

17 5 OVERVIEW OF THE TOOLKIT The toolkit is set out in a parallel report. The toolkit provides both a set of resources and a series of guidance notes which will help to ensure its effective implementation. The Toolkit report contains the following Chapters: 1. Introduction 2. The Structure of the Toolkit 3. Toolkit Resources 4. Guidance on Sources and Use of Data 5. Worked Example 6. Guidance Note on the Community Testing Stage of the Toolkit 7. Guidance for Communities using the Toolkit 8. Guidance for Local Strategic Partnerships using the Toolkit 9. Guidance for Local Planning Authorities using the Toolkit December

18 The toolkit is structured around eight characteristics which of a successful sustainable community, discussed and developed through the study: A. Active with a strong sense of community B. Well run and well represented C. Well connected D. Well served E. Environmentally sensitive F. Well designed with appropriate housing and public spaces G. Thriving with a successful local economy H. Fair December

19 The toolkit document explains how these characteristics can be assessed through a series of steps as follows: STAGE ONE: EVIDENCE BASED ASSESSMENT DATA Local authorities or other organisations prepare basic data sets for each characteristic Communities may lead this work and prepare data themselves INITIAL REVIEW Comments & conclusions on each characteristic Important that initial judgements are recorded and summarised STAGE TWO: COMMUNITY TESTING SHARING FINDINGS Evidence base and initial conclusions discussed with community representatives COMING TO A JUDGEMENT Using evidence and discussion to agree findings Structured process using the toolkit Judgements are recorded and summarised in toolkit notes CONCLUSIONS Sustainability Characteristics of the Community December

20 Chapter 3 of the toolkit document, Toolkit Resources, provides three main elements which can be used to create and record the analysis for any individual community or group of communities: a Flow Diagram, for planning use of the toolkit guidance as to how to prepare a Context and Headline Description for the selected community a schedule of questions and prompts to assemble the Evidence Base and Judgement Records in assessing the characteristics of the community Guidance is provided about Data Sources and Use and about Guidance for the various parties which may engage in the use of the toolkit. December

21 6 NEXT STEPS Toolkit Development and Roll-out The consultant team considered the progress made towards design and implementation of the toolkit approach, and completed its task by making the following suggestions to the Steering Group for the development and roll-out of the toolkit approach. Hopefully these suggestions will assist local strategic partners, other stakeholders and rural communities to achieve greater sustainability in their communities. Key Issues Development and roll-out of the Toolkit should be carefully programmed to achieve: 1. Effective implementation, to ensure positive results and a positive reputation 2. Support for communities and local authorities/partners using the toolkit 3. Dialogue around issues of identifying and planning for sustainable rural communities 4. Refinement and resolution of any outstanding issues in toolkit design and use The first stages of roll-out will be particularly important in supporting a positive reputation and general long-term commitment to the toolkit approach. It will be important to maintain the dialogue with the partners to this initial study, and it may be sensible to select competent, enthusiastic partners for the first real places for its use. The model for use of the toolkit, as currently written, depends on local authorities and their partners planning their own processes for implementation of the toolkit within community strategy, local planning and community planning processes and identifying the personnel and other resources needed to facilitate the process with communities. In the early stages of first uses of the toolkit it may be helpful to provide a forum or network of partners to discuss and support the detailed planning and implementation of these processes. These immediate priorities, and the longer-term use of the toolkit, probably require both a mechanism for providing support and/or channels of communication to provide advice, guidance and support for communities and authorities starting to use the toolkit; and this may imply the need for some resources, or processes to ensure that resources are available as and when required. December

22 Proposals In the light of these comments, the following actions are proposed: Sustainable Rural Communities Toolkit Steering Group The existing Steering Group should continue to meet and act as a clearing house for roll-out, experience and further development of the toolkit (sub-regionally, regionally and nationally). It should consider its composition to ensure continuing involvement of existing members and effective links to regional and national bodies, but needs to maintain the effective and enthusiastic representation of the various perspectives. The Steering Group should immediately consider: 1. How to help local authorities, partners and communities to use the toolkit particularly the issue of how the process is going to be properly resourced locally. Advice about how to facilitate and support the use by communities, and how to plan the integration of the toolkit with LDF and other work, should be available on a continuing basis. 2. How to identify and work with selected authorities and partners to ensure a positive momentum and useful feedback. 3. How to work with regional and national partners to disseminate the toolkit for use in other rural areas. The Steering Group should consider whether and how a continuing Sustainable Rural Communities Toolkit network or forum could be established as a resource to collate and exchange experience, and support further development and refinement of processes. Some sort of monitoring process may be useful, at least at the simple level of knowing where the toolkit has been used, what local processes have applied and whether/how the toolkit has been successful. The Steering Group should also consider issues where further dialogue may be appropriate to ensure that the toolkit and its processes will provide the greatest benefits and will satisfy requirements of formal processes. In particular, the Steering Group should consider further dialogue with Government Office, DCLG and the Planning Inspectorate to ensure that that the approach is accepted or positively endorsed for Local Development Frameworks and planning processes in general. December

23 Support for Local Use The toolkit does imply the need for resources personnel and other resources to support its effective implementation. It is our belief that these resources are often already being used in LDF and other processes (community strategies, parish planning, LSP analysis, etc.) and can therefore be found by careful planning and no net additional cost. However, this requires a certain amount of lead time before the new approach can bed down within existing processes and priorities, and a determination within lead authorities to ensure that current processes are modified to support the new approach. It is also possible that the toolkit demands different skills and personalities, particularly for the task of working with local communities to maximise the value of their work across a District. The very positive Plymouth city experience (covering around 40 neighbourhoods in a city of over 200,000 population) was apparently supported mainly by 3 officers (not full-time on this process) over a period of about a year combining research, planning and consultation skills. The Steering Group and partners should give consideration to models for resourcing which could include: a) local authority and local partners identifying a toolkit process/timetable and planning resources from amongst existing officers and programmes (officers may then need support and guidance in working with local communities and use of the toolkit) b) local authority and partners identifying funding to pay a third-party to lead work with local communities Working with Partners and other agencies We believe that the innovation of the Devon Sustainable Rural Communities toolkit is extremely worthwhile and its importance should not be lost as the principles become more widely considered. It would be sensible to define ground-rules for control and use of the toolkit from now on, to ensure proper and effective use within local planning and other processes anywhere in the country. December

24 This relates to ownership and branding the toolkit has been developed through the initiative and commitment or resources of the Devon Steering Group and experience with other toolkits suggest that a certain amount of guardianship and quality control can help to secure the reputation and general use of a toolkit. There are financial and commercial considerations here which could work particularly to help to establish best practice in supporting the sustainability of rural communities. It will be sensible to establish a working agreement as to how the existing partners and consultant team may work in this field in future to maintain the highest standards and secure sustainability outcomes. The Steering Group, if continued, can play a role in working with partners and other agencies across the UK, but it will be worth considering how communication and control can be exercised, and what ground-rules may apply. The consultant team are keen to stay involved with the development and use of the toolkit. They could help to support use of the toolkit: a) at the local level, working with local authorities, partners and communities to define programmes and facilitate processes b) at sub-regional, regional and national level to disseminate the toolkit and advise in its use c) generally to support roll-out, networking and further development of the toolkit as discussed above, their involvement should be based on mutual agreement with the study client partners and the commitment to achieving best practice in sustainable rural communities. December

25 APPENDIX THE CONSULTANT STUDY TEAM The consultant team was a joint effort by Roger Tym & Partners and Rural Innovation. Roger Tym & Partners is one of the UK s leading firms of planners and development economists, with some particular experience in rural regeneration initiatives and programmes particularly in the South West of England. Rural Innovation are specialists in rural regeneration, with experience in supporting and facilitating economic, social and community development across the rural areas of Britain. The toolkit study was project managed by Rob Hindle, from Rural Innovation. Jo Talbot (Senior Associate, Roger Tym & Partners) and Alison McLean (Associate, Rural Innovation) worked on all aspects of the study, with particular emphasis on working with stakeholders and community representatives to develop the toolkit approach; Lin Cousins, Mark Felgate and Jeremy Bennett (RTP) provided specialist inputs including development of data sources and methods. John Forsyth (Partner, RTP) was project director. Roger Tym & Partners, Dix s Field, Exeter EX1 1QA T: Rural Innovation, Welch House Barn Hothersall Preston PR3 2XB T: December 2008

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