DEVELOPMENT BRIEF ALWAY REGENERATION AREA, NEWPORT PLANNING AND DESIGN GUIDELINES DRAFT SUPPLEMENTARY PLANNING GUIDANCE November 2005

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1 DEVELOPMENT BRIEF ALWAY REGENERATION AREA, NEWPORT PLANNING AND DESIGN GUIDELINES DRAFT SUPPLEMENTARY PLANNING GUIDANCE November 2005

2 2

3 This brief comprises a written statement and associated plans to provide guidance to developers and the public on the planning framework and specific requirements of Newport City Council in respect of the development of this site. Newport City Council Contacts: Judith Askew Housing Enabling & Project Manager Newport City Council t: Wendy Hall Principal Urban Designer Newport City Council t:

4 CONTENTS 1.0 INTRODUCTION PURPOSE OF THE GUIDELINES THE SITE PLANNING STATUS DESIGN GUIDELINES CONSULTATION AND IMPLEMENTATION

5 1.0 INTRODUCTION 1.1 The regeneration at Alway is seen by the City Council as an important opportunity to secure the sustainable regeneration of Alway Parade, Elgar Circle and the Curzon Court Area within a five year period, attracting private sector investment. The commitment for the City Council is to develop an exemplar mixed use, mixed tenure sustainable housing regeneration scheme. 1.2 This document provides Supplementary Planning Guidance (SPG) to the Newport Unitary Development Plan (UDP) for the development of brownfield land within the Alway Area of Newport. The SPG sets out the basis upon which Newport City Council requires proposals to be brought forward and outlines the principles and criteria against which the proposals will be assessed. 1.3 The Guidance has been prepared by Newport City Council in consultation with the Gwent Association of Voluntary Organisations (GAVO), Alway Community Association and other key stakeholders and draws on the findings of the Communities First Consultation Report and Action Plan prepared by Community Design Gwent in This Guidance will remain informal until such time as it is adopted by the City Council. Statutory public consultation will be undertaken in advance of its adoption. Once formally adopted as SPG, the guidance will be a material consideration in determining applications for planning permission for the development of this area. 2.0 PURPOSE OF THE GUIDELINES 2.1 These guidelines have been prepared to assist prospective developers and their multidisciplinary design team to work towards proposals for the site that will be acceptable to Newport City Council as landowner, local planning and highway authority. 2.2 The guidance within this document identifies the technical information available together with guidelines on the following aspects of the development; site planning engineering infrastructure urban form landscape design sustainability community liaison implementation 2.3 The guidelines are a minimum benchmark, the Location Plan: Preferred Option is illustrative and has been prepared to demonstrate the way in which consultations with the community have developed the design aspirations and layout for the scheme. The City Council does not wish designers to be constrained by this; it is committed to an imaginative, sustainable 4

6 proposal, however, the aspirations of the community are uppermost in providing an acceptable solution to the regeneration of the development site. 3.0 THE SITE Location 3.1 The development site is located within the Alway Housing Area, to the east of Newport City Centre directly accessed from the new Southern Distributor Road, an elevated site with views over Llanwern towards the Severn Estuary. 3.2 The development site area comprises of approximately 7.5 hectares (17 acres) as illustrated in the Development Site Plan. The redevelopment covers areas at Elgar Circle and Alway Parade which sit within an area of existing housing of mixed tenure. The site area includes the residential maisonettes above the shopping centre and an area of cleared land at Elgar Circle together with an area of cleared land at Curzon Court on Aberthaw Road. 3.3 The site at Elgar Circle is largely sloping and falls around 28m north to south; from 55.16m AOD to 26.87m AOD. The area at Alway Parade has a lesser slope of around 9m north to south, falling from 26.94m AOD to 17.5m AOD on Aberthaw Road with localised mounding to the southern part of the site where there is an area of existing semi mature trees. The aspect of both sites is south facing. Land Ownership / Use 3.4 Newport City Council owns the site; residents are currently being re-housed as the demolition of blocks progresses. It is envisaged that some of the residents may return to the estate as part of a new scheme. 3.5 A number of community and retail uses within Alway Parade are still trading / in use, these include the community centre and youth facility, police base and the City Council s Area Housing Office. There is also a supermarket, pharmacy, takeaway and the Alway Community Association office within the parade. To the rear of Alway Parade is the local doctor s surgery. 3.6 Also located in the centre of Alway but not included within the identified regeneration area for this project, are St. Teilo Church and its vicarage, Lady Hill day centre, Kingdom Hall of Jehovah s Witness and an Electricity Substation. 3.7 Land will be released on a freehold or long leasehold basis linking the redevelopment of Elgar Circle to the redevelopment of the shopping centre / Alway Parade. Access 3.8 The road network within Alway is accessed directly from the new Southern Distributor Road to the south, which connects to Aberthaw Road and Aberthaw Avenue. Vaughan Williams Drive, Elgar Circle, Elgar Avenue and Ladyhill Road form internal estate roads, which previously served existing property in this area. A network of predominantly roadside footpaths 5

7 connects various areas of residential development in the estate in addition to the footpath routes around Alway Parade connecting all the community facilities to the surrounding streets. 3.9 Current servicing access to the retail units in Alway Parade is from Gilbert Close, off Aberthaw Road, to the local supermarket and off Penkin Hill / Penkin Close to the shop units at Alway Parade. There is an existing bus top on Aberthaw Avenue adjacent to the retail development. Retail / Community Facilities Links 3.10 Existing residential and commercial development at Alway was built in the 1960 s with the local shopping facility providing an important link to the Alway community. This link needs to be retained and reinforced within the new proposals for the regeneration of the area The demolition of properties in Alway was started in 2001 and is now nearing completion. During the course of community consultation through Communities First it has been identified that tenants, residents, businesses and local people are keen to see properties and amenities put back on these vacant sites It is intended to link back new mixed tenure residential development to the shopping centre at Alway Parade in the centre of Alway. There is also a need to upgrade the retail provision and undertake overall environmental enhancements to the public space framework within the area There is a requirement for the replacement development to include affordable housing units. The affordable housing requirements are outlined in further detail elsewhere within this document The existing community and youth centre will be demolished during the course of the redevelopment of the area. New facilities must be provided as part of the regeneration scheme. The specification for new community facilities will be made available by the City Council within a separate technical pack. Open Space Provision / Existing Trees / Lime Kiln 3.15 There is limited public open space within the existing development area. An enhanced public realm will be required within new development proposals together with the provision of a Multi Use Games Area in accordance with National Playing Fields Association Standards (NPFA), to allow for 5 a side competition matches. The location of this is identified on the Preferred Option Layout Plan There are a number of existing trees within the regeneration site, a survey of which will be made available by the City Council within a separate technical pack Within the Alway Parade area there are a number of mature trees in a landscape mound, which, whilst making a valuable contribution to the entrance to Alway, are unfortunately suffering from Scale Insect, making the trees, appear sickly, grow poorly and perhaps die back. The insect is a brown grey colour, 6

8 producing waxy wool. Control measures are not practicable to apply and it is preferred that the trees would be removed An old limekiln has recently been uncovered on land adjacent to residential property, to the north of Lady Hill Road. This has now been given a Grade II listing by Cadw and its setting and enhancement must be considered in any development proposals. It requires some structural work in terms of removing vegetation and tree roots. It is envisaged that it would be incorporated into an area of carefully designed, overlooked public space within the network of open space provided within the development There would be an opportunity for artists to be engaged in developing artwork relating to the history of the site through the history of the kilns, this would be incorporated into the overall development proposal. Ground Conditions & Utilities 3.20 Prospective developers will have to satisfy themselves as to the ground conditions and location and capacity of utilities on site. Detailed survey information will be made available by the City Council within a separate technical pack. 4.0 PLANNING STATUS 4.1 The City Council wishes to encourage highly experienced and committed developers who can demonstrate an understanding of the objectives for the development. The developers must be willing to provide affordable homes as required by the Council, have a proven track record in the implementation of high quality sustainable design and be committed to ongoing dialogue with the local community. 4.2 The redevelopment of the site must be in accordance with the Welsh Assembly Government s planning policies as set out in Planning Policy Wales (PPW) and relevant Technical Advice Notes (TAN s). In particular, reference should be made to TAN 12 (Wales) on design. Planning Policy Context Strategic Policy Framework - Wales: A Better Country 4.3 The Welsh Assembly Government published its strategic agenda in September 2003, entitled Wales: A Better Country. This sets out a vision for a sustainable future for Wales where action for social, economic and environmental improvement work together to create positive change. This vision has seven principal components: promoting a diverse, competitive, high added-value economy, with high quality skills and education, that minimises demands on the environment; action on social justice that tackles poverty and poor health, and provides people and 7

9 their communities with the means to help themselves and break out of the poverty trap; action in our built and natural environment that enhances pride in the community, supports bio-diversity, promotes local employment and helps to minimise waste generation, energy and transport demands; strengthening Wales cultural identity and helping to create a bilingual country; ensuring all our children and future generations enjoy better prospects in life, and are not landed with a legacy of problems bequeathed by us; supporting people to live healthy and independent lives; promoting openness, partnership and participation. National Policy - Planning Policy Wales 4.4 Planning Policy Wales was published in March 2002 and sets out the land use planning policies of the Welsh Assembly Government together with their commitment to sustainable development. 4.5 The Assembly has a duty under Section 121 of the Government of Wales Act 1998 to promote sustainable development in the exercise of its functions. Planning Policy Wales states that the Assembly will promote sustainable development, that is, development that meets the needs of the present without compromising the ability of future generations to meet their own needs. There are four broad sustainability objectives: social progress which recognises the needs of everyone; maintenance of high and stable levels of economic growth and employment; the prudent use of natural resources; and effective protection of the environment. Local Policy - Newport Unitary Development Plan 4.6 Newport City Council published the Newport Unitary Development Plan (UDP) rd Proposed Changes to the Deposit Plan on 27 July The Inspectors Report on the UDP Inquiry has been received and modifications to the plan are to be advertised. Formal adoption of the plan is expected by June The UDP is therefore, not adopted and does not form part of the development plan, however, it is a material consideration when determining planning applications and carries appropriate weight. It will replace the Gwent Structure Plan and the 8

10 Usk Riverfront and S.E Newport Local Plan when adopted. 4.8 The Strategy of the UDP; the main emphasis of the plan is a brownfield strategy. As well as conserving land, this also helps to achieve the objective of reducing the need to travel and thereby contributes to sustainability. Urban regeneration therefore remains a key priority to the City Council. Relevant Policies within the UDP to be noted are:- Part One SP1 Sustainability SP2 Quality of Development SP11 Planning Obligations SP17 Urban Regeneration Part Two CE38 Quality of Design CE39 Residential Design and Layout CE45 Safety and Security R7 District Shopping Centres CF4 Open Space Standards CF5 Opens space in Housing Development CF16 Provision of New Community Facilities 4.9 Within the UDP the site is not designated for future development as none of the demolition proposals are illustrated. There is however a commitment from the City Council to secure the sustainable regeneration of these now brownfield areas of land in Alway, Alway Parade and the Elgar Circle Area within a five year period, attracting private sector investment. The commitment for the City Council is to develop an exemplar mixed use, mixed tenure sustainable housing regeneration scheme It is likely that development proposals, which form the planning application, will require an Environmental Statement, the scope of which will have to be determined. A screening opinion will have to be determined thorough the City Councils development control department As freeholders of the development site, Newport City Council is keen to take an active role to ensure the delivery of this regeneration scheme, which will contribute to sustainable development objectives within the city It is important to note that Newport City Council s role as Planning Authority runs independently of this brief. Developers must be aware that compliance with the brief does not automatically mean that planning permission will be granted. The planning application documentation must comply with Appendix 1 of TAN 12. Supplementary Planning Guidance 4.12 There are a number of documents covering various aspects of development control adopted as Supplementary Planning Guidance which should be taken into consideration when responding to this Brief; 9

11 Highways Design / Parking Guidelines 4.13 The provision for parking should be made in accordance with the Standing Conference on Regional Policy in South Wales Parking Guidelines revised Edition The design of the proposed highways should be undertaken in accordance with the Gwent Design Guide Residential and Industrial Estate Roads 2 nd Edition Masterplanning Principles 4.15 The Masterplanning principles for the site should reflect the guidance given in Masterplanning Principles Supplementary Planning Guidance published by Newport City Council August A Model Design Guide for Wales Residential Development 4.16 Design proposals should implement the objectives set out within this Design Guide, prepared for the Planning Officers Society for Wales with the support of the Welsh Assembly Government. This document is currently out to public consultation to be adopted by the City Council as Supplementary Planning Guidance later this year. Affordable Housing 4.17 The Welsh Assembly Government has highlighted the importance of securing affordable housing in its policy documents. This is reflected in the City Council s Unitary Development Plan, which provides the policy basis for seeking to negotiate elements of affordable housing on all new housing developments. Supplementary Planning Guidance can be found at the following URL: ments/plans_and_strategies/n_ pdf Details of the affordable housing requirement for this scheme are outlined later within this document. Planning Obligations, Draft SPG July Details of good practice guidelines for planning obligations are set out within this SPG, providing examples of where obligations are applicable and aims to establish circumstances for co-operation between negotiating partners. Other Strategy Guidance A Community Strategy for Newport Building our Future Together Whilst not Supplementary Planning Guidance, as background to the commitment of the City Council towards a vision for local people, this document presents the vision for the future, which local people have helped identify and develop. The principal aim is to make the city a better place to live, work and visit and the strategy s vision sets out what it should be like. The Community Strategy can be found at the following URL: - 10

12 5.0 DESIGN GUIDELINES The Vision 5.1 The vision for the regeneration of the site in Alway is to: deliver the highest quality standard of design; create a cohesive and integrated new residential neighbourhood; provide affordable housing as required; incorporate specific measures to promote sustainable development; enhance the public realm for the enjoyment of all; provide a permeable, accessible and well connected development; encourage access to a variety of transport modes; ensure safety is prioritised and integrated within the design (Secure by Design principles). 5.2 The purpose of this design guidelines section is to outline the development principles required for the site in assisting the preparation of an exemplar mixed use, mixed tenure sustainable housing regeneration scheme which meets the needs of its residents and the local community in the Alway area of Newport. These Guidelines must be read in conjunction with the Location Plan: Preferred Option. 5.3 At national and local level, planning policy is developing a strong consensus over the meaning and principle of good design and sustainability, particularly through TAN 12. It is important within this scheme that the principles of TAN 12 are translated into actions. 5.4 In conjunction with TAN 12, Supplementary Planning Guidance as referred to earlier, particularly A Model Design Guide for Wales Residential Development, should be taken into consideration. In association with this, the Welsh Development Agency (WDA) have recently published Creating Sustainable Places, which sets out sustainability and design expectations for all regeneration and development projects. Whilst this is not a WDA scheme the principles set out within the document are supported by National Policy. 5.5 On a more local level, it must be remembered throughout the course of the design process that Alway is a place with many families and children, where there is a need for family support; it is also a place where there are a high percentage of elderly residents, the needs of all the community need to be taken into consideration when developing proposals for new housing and commercial facilities. 5.6 These guidelines envisage a low rise, high density development reflecting much of the urban form already existing to the north and east of the regeneration area. The proposals must aim to integrate with the existing street structure and link and enhance the open space / public realm for the development. 11

13 5.7 The City Council requires a master plan to be developed for the whole site that demonstrates the layout, building types and forms, number of residential / commercial units, proposed community facilities, landscape open space / public realm design and road layout with pedestrian and cyclist infrastructure clearly identified. A phasing timetable for implementation is critical to the successful development of this project. Existing Conditions / Site Constraints 5.8 In summary, the Alway Estate is located between the A48, the new southern distributor road, Ringland and the Liswerry Ponds. The site has a southern, sloping aspect with distant views to the River Estuary, over Llanwern Steelworks. A large proportion of Llanwern and adjacent land holdings are due to be redeveloped as part of the eastern expansion area of the city, that is, some 1,030 hectares (2,547 acres). Details of this area can be reviewed within the East Newport Location Plan: Preferred Option Plan SPG available on the City Council s web site, at the following URL; ments/plans and strategies/n_ pdf 5.9 Alway contains a mix of architectural styles and residential tenure within the existing building stock. Large open spaces exist between blocks, streets are currently over capacity with today s vehicular standards and there is little car parking. There is a high dependency on public transport within the estate Some streets have front gardens others are fronted by communal lawns. The shopping parade and adjacent supermarket express is dated and badly in need of refurbishment / demolition and replacement. Play facilities for children vary in age and the range of suitable equipment A Lime Kiln has recently been discovered near the junction of Lady Hill Road with Penkin Hill set into the slope of the ground. Having been recently exposed and examined by Cadw s Historic Building Inspector it has been assessed as representing a good surviving example of a 19 th century kiln and is now Grade II listed The planning of residential development around this structure will have to be undertaken in a sensitive manner in order to respect the kilns setting. The most appropriate approach considered is to enhance the kilns setting through an integrated solution of public open space in this area. Site Planning 5.13 As a result of the consultation process the following is a list of the key development components required by the regeneration proposals:- A quality shopping experience with viable shops An improved and attractive environment A public / private mix of housing A full range of community facilities which form the hub of the community 12

14 Increased involvement of the whole community in activities and regeneration Reduced fear of crime, people feel safe in their homes and community Community working cohesively to combat crime and antisocial behaviour Environment - crime is designed out 5.14 It is envisaged that in line with current planning policy the density of proposed units within the site would be maximised in accordance with securing the most efficient use of land. The ultimate aim of the scheme is to produce a well designed sustainable place with a strong integrated community offering a good quality of life for everyone Scheme proposals should not only include a Masterplan for the development but a design statement as set out in TAN 12 explaining:- design principles and concept how these are reflected in the development how design relates to the site and the wider context (through a full contextual appraisal) how development reflects policy in the UDP and SPG statement to be illustrated as appropriate, by plans and elevations; photographs and other illustrations such as perspectives energy use and efficiency aspects to be maximised Urban Form on site waste management proposals to be included future maintenance and commitments to be outlined 5.16 The proposals for Alway require the regeneration of the area comprising of housing, community and retail facilities with associated public realm and Multi Use Games Area (MUGA). Detailed information relating to the area requirements for the community and retail facilities will be made available by the City Council within a separate technical pack. The housing mix, density, affordable housing and built form principles for the site are detailed within this section of the brief For detailed guidance for the objectives of good design Section 2.0 of A Model Design Guide for Wales Residential Development must be referenced outlining ten objectives relating to:- natural heritage compactness accessibility & ease of movement legibility character and context continuity and enclosure public realm variety and diversity adaptability; and resource efficiency 13

15 Housing Mix and Density 5.18 It is envisaged that up to 200 new homes could be developed, depending on the mix and size of the units within the regeneration area. The City Council wishes to see a range of house types with a limited number of apartments, the mix will also depend upon the incorporation of the affordable housing requirements as set out below. The Location Plan: Preferred Option illustrates the zoning of the mix which will be required at the Always Parade area to the south of the site, which has been developed in close consultation with the community The overall principles of development have identified an infill of 2, 3 and 4 bed houses on the area of land available on Elgar Circle, Elgar Avenue and Ladyhill Road Within the area of land bounded by Ladyhill Road, Penkin Hill, Aberthaw Avenue and Aberthaw Road the aim is to create positive street frontage wherever possible, with an area of terraced properties in a zone fronting Ladyhill Road To the front of the site facing the existing roundabout junction, the massing of built form identified as the community centre on the Location Plan: Preferred Option here must provide a sense of enclosure and reinforce the entrance to the new area. This would include any development proposed to the west of Aberthaw Avenue, on the vacant site left through the demolition of Curzon Court. It has been identified that this block would be more suited to apartment development The desire from community consultation is to keep the retail and community facilities separate. New community facilities are to be provided at the entrance to the site, adjacent to Aberthaw Avenue with new retail facilities to be provided to the west of the existing retail facilities. As can be seen from the Location Plan: Preferred Option these facilities be accessed by new road infrastructure leading off Aberthaw Avenue and connecting into the existing access to the doctors surgery and back into Gilbert Close The requirement for bungalows / senior citizen accommodation should be provided within this area. The extent and location of this is to be within the most accessible area of the site. Affordable Housing 5.24 The Welsh Assembly Government has highlighted the importance of securing affordable housing in its policy documents. This is reflected in the Council s Unitary Development Plan, which provides the policy basis for seeking to negotiate elements of affordable housing on all new housing developments The UDP states an affordable housing percentage of 30% of any new residential scheme should be provided. In this case the City Council would be asking for 25% or 40 units (although the final Affordable Housing units numbers will depend upon the design and density submitted by the successful developer). 14

16 This would be provided to a local housing association. The mix and type of affordable housing required is reflective of evidence of need identified in the Housing Requirement Study 2003 (Opinion Research Services) The affordable housing units will be proportioned (in unit numbers) as follows: General needs housing Approx Unit Size Sq M 7 x 4 person 2 bed houses x 2 person 1 bed flats 50 7 x 3 person 2 bed flats x 6 person 4 bed houses Older persons housing 10 x 3 person 2 bed bungalows (50% with wheelchair access Approx Unit Size Sq M Social Housing Grant is available to support the purchase of affordable housing. Therefore the developer will be expected to transfer the units at the Acceptable Cost Guidance (ACG) for the Alway ward area at the time of signing the Section 106 agreement For the Older persons housing, the developer will be expected to provide units at ACG for the Alway ward area at the time of signing the Section 106 agreement. However, for this accommodation, and depending on the location and layout a plot based calculation may be employed. The older persons housing should be located close to public transport nodes and shops with the remaining affordable housing to be integrated and pepper-potted across the site The external design of the affordable housing units should be indistinguishable from the sale homes. Detailed information regarding the value, cost, transfers arrangements and specifications applicable to the affordable housing units will be contained within the tender pack. Architectural Design 5.30 The City Council s commitment to good quality design requires that development proposals at Alway create an imaginative, original and good quality scheme. The Council require that an architect is employed by the successful developer who will have experience in residential design, take responsibility for the design and remain involved until completion of the project To achieve a successful scheme attention should be paid to:- materials selection the orientation of frontages / aspect sustainable urban drainage systems the visual impact of the development proposals integration of the new development with the existing built form boundary enclosure 15

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