march 2011 development framework boscomoor lane Inglewood Investment Company Limited

Transcription

1 boscomoor lane development framework march 2011 Inglewood Investment Company Limited

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3 contents executive summary introduction development plan context green belt site context site analysis site constraints and opportunities design concepts conclusion

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5 executive summary Inglewood Investment Company (IIC) has asked SLR Consulting to undertake a review of the potential for built developent policy in relation to land at Boscomoor Lane, Penkridge. The site is located on the southern periphery of the settlement boundary. The site is located approximately 9.5km south of Stafford, 15km north of Wolverhampton and 6.5km to the north east of Cannock. The site is currently within the Green Belt and a Landscape Improvement Area. There is thus a presumption against development in this location. However, within the adopted South Staffordshire Local Plan (policy GB4) five development sites are proposed within the Green Belt, and policy GB3 also allows for the removal of the area to the east of the site for residential development; this development has now been completed. The Development Plan therefore recognises that changes to the Green Belt are necessary in order to accommodate the required level of development in this area. Within the emerging LDF Penkridge is identified as accommodating 23% of the District s growth, which includes 330 new dwellings. The site does not currently perform the functions of the Green Belt because it is visually enclosed by built development on three sides and is narrow in form. It does not, therefore, appear to be open, which is the pre-requisite for land in the Green Belt. Development of the site would not cause a perception of encroachment or sprawl, since built development is already visually dominant from points within and around the site. Development of the site would not cause a perception of coalescence as there would still be over 6km of open land between the southern edge of Penkridge and the next major settlement. Development of the site would create a new defensible boundary for the Green Belt, which would be marked by a mature hedgerow and a public right of way. This same public right of way already provides the established Green Belt boundary to the east, so rolling back the Green Belt to this feature is both logical and practical. The landscape character of the site is already urban, a fact acknowledged within the Staffordshire County Council Landscape Assessment. The site therefore has potential for development, and could also deliver enhanced green infrastructure and/or public open space. executive summary

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7 section one introduction

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9 1.0 introduction 1.1 purpose SLR Consulting Limited (SLR) was asked by Inglewood Investment Company Limited (Inglewood) to review the potential for development at Boscomoor Lane, Penkridge. The site boundary of land owned by Inglewood and the extent of the Green Belt is shown on the drawing opposite. The key objectives of this Development Framework Document are: to establish the geographic context of the proposed development site to highlight the present extent of the green belt to set out the national, county and district planning policy context to assess the functionalilty of the Green Belt designation in this location to explain the existing landscape and visual characteristics of the proposed development, and to investigate the potential for development in this location taking into account the landscape and planning context as well as the current and future needs of Penkridge 1.0 introduction 9 Green Belt STAFFORD PENKRIDGE Site Boundary Green Belt Green Belt CANNOCK

10 1.0 introduction To provide an initial discussion document to engage with South Staffordshire District Council and other local stakeholders Site Location and Context The village of Penkridge is situated in the West Midlands county of Staffordshire within the district of South Staffordshire. It is situated approximately 9.5km south of Stafford, 15km north of Wolverhampton and 6.5km to the north east of Cannock. The village lies to the south of the River Penk. The Birmingham branch of the West Coast Main Line railway borders the western edge of the village and the M6 motorway, the eastern edge. The Staffordshire and Worcestershire Canal runs through the village in a north south direction, passing alongside the eastern boundary of the site. The village has a population of circa 8,758 (2004 estimate) 1. Penkridge is located on the northern boundary of the West Midlands Green Belt which surrounds Birmingham, Coventry, Wolverhampton. The Green Belt boundary follows the southern bank of the River Penk and wraps around the settlement edge of Penkridge mirroring the line of existing built development. The site proposed for development is located at NGR , in a gap in the southern settlement edge of Penkridge to the south of Wolgarstan Way at its junction with Boscomoor Lane. The site is approximately 480m long by 150m wide and 3.83 hectares in area. The site is situated within the current boundary of the Green Belt. 1 penkridge_parish_council.aspx 1.0 introduction 10

11 section two the development plan context

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13 2.0 the development plan context The current Adopted Local Plan for the South Staffordshire area is the South Staffordshire Local Plan, (SSLP), adopted in A review of the Plan was started in 2003, and a Deposit Local Plan was published for consultation together with a suite of background studies. However, the Council took the decision in 2005 to cease work on the replacement Local Plan and to move forward with a Local Development Framework for South Staffordshire in line with new guidance. All policies in the adopted Local Plan were saved for 3 years when the Planning and Compulsory Purchase Act came into force, however in September 2007 some policies were deleted. The Secretary of State for Communities and Local Government issued a Direction and Schedule of Policies to confi rm which policies were to be saved after that date. This review is based on these saved policies. Included within the Key Objectives of the plan are: To make provision for housing demand in accordance with the policies of the Structure Plan To meet the local needs for housing to rebut the general presumption against inappropriate development in the Green Belt. The site is situated in the Green Belt however the surrounding land uses are residential to the east, industrial to the west and agricultural to the south. Other relevant site specifi c policies are: Policy C2 Use of Agricultural Land The use of the best and most versatile agricultural land (i.e. that land classifi ed as Grades 1, 2 and 3a by the Ministry of Agriculture, Fisheries & Food) for any form of irreversible non-agricultural development will not normally be permitted. (See also Policy AG1). Policy C3 Development on Agricultural Land Where development is permitted involving agricultural land, the development shall be carried out so that: The site at Boscomoor Lane is identifi ed on Inset Plan 47 of the (SSLP). The site is identifi ed as within the Green Belt (Policies GB1, C2, C3 see below) and a Landscape Improvement Area (Policy LS10 see below). The general Green Belt policy (GB1) is consistent with the national policy for the restriction of developments in Green Belts. The plan states that an application for planning permission will need to demonstrate a case strong enough a) The minimum amount of land, consistent with the nature of the development and the need for its assimilation into the landscape, is taken out of agricultural use; The Agricultural Land Classifi cation for the site is Grade 2 and 3. However the site does not constitute a stand-alone farming unit and can be readily assimilated into the landscape. The site is designated as anlandscape Improvement Area and is covered by policy LS10 below. 2.0 the development plan context 13 Policy LS10 Landscape Improvement Areas - Development Proposals In considering development proposals within the Landscape Improvement Areas the District Council will seek to ensure that existing landscape features and wildlife habitats are conserved and that new planting of locally native species is provided as part of the development. Any proposed development will ensure any landscape features and wildlife habitats are conserved as part of the development. Along the eastern edge of the site boundary runs the Staffordshire and Worcestershire canal. The canal is designated as a Conservation Area; this is dealt with under policy BE7. This requires that any development that might have an effect on a Conservation Area is properly assessed. In addition, the SSLP identifi es two County Grade 1 Sites of Biological Interest, both located within 0.8km south east of the site boundary. South Staffordshire Local Development Framework As a replacement to the SSLP, South Staffordshire Council has produced the Local Development Framework (LDF) Core Strategy Publication Document. The Core Strategy is a key component of the LDF and sets out the long-term vision, spatial objectives and planning policies to guide the future development of the District between now and The Core Strategy is currently on public consultation until the 6 th May 2011.

14 2.0 the development plan context SLR had made representations on behalf of Inglewood to the LDF process over the past two years. The following representations have been made: Policy Choices reps March 2010 Preferred spatial strategy reps March 2009 Green Belt SPD reps May 2009, and Site Allocation SPD reps Sept 2009 Objectives for Penkridge The emerging South Staffordshire LDF has a vision for South Staffordshire; the Vision Locality Area 1 (Northern area) includes the village of Penkridge. The vision plans to carefully manage housing growth and provide key services and facilities at local community level. The village of Penkridge will develop its key role as the main service village and improvements to community infrastructure, facilities and services including social care and health facilities and the provision of extra care housing will be delivered with partners. The proposed Policies relevant to the site are: Policy GB1: Development in the Green Belt Policy EQ1: Protecting, Enhancing and Expanding Natural Assets Policy EQ3: Conservation, Preservation and Protection of Heritage Assets Designations As described above, the site is within the Green Belt and the Landscape Improvement Area. It is also adjacent to the Canal Conservation Area. There are no other designations in respect of ecology, landscape, archaeology. The site lies outside the fl ood zone, however the land next to west boundary of Boscomoor Lane has been subject to fl ooding and is within a light blue area of the Environment Agency Flood Map. The light blue area shows the additional extent of an extreme fl ood from rivers or the sea. These outlying areas are likely to be affected by a major fl ood, with up to a 0.1 per cent (1 in 1000) chance of occurring each year. The framework also includes a number of core policies. Core Policy 1 The Spatial Strategy for South Staffordshire identifi es Penkridge as a Local Services Village and will be the main focus for housing growth, employment development and service provision. Village centres will also be the focus for new shopping and small scale offi ce development to maintain their vitality and viability. The framework also identifi es Penkridge to provide 23% (330 dwellings) of the District s housing growth. The village is identifi ed as the main focus for housing growth. A choice of housing will be delivered to meet identifi ed local needs including affordable housing, with extra care and specialist housing for elderly being a particular priority. The focus will be to make effi cient use of land and buildings with priority given to reuse of previously developed land in sustainable locations. Penkridge is also identifi ed as a focus for economic growth and employment. With these comes a need for more housing. The co-location of facilities through the shared use of buildings and sites will be supported to enhance the provision of services within local communities. Open space, sport 2.0 the development plan context 14 and recreation facilities will be enhanced. The provision of additional facilities will be supported. The site had already been promoted in the LDF Site Allocations for future uses such as housing, community facilities, Open space, Education/health facilities including a care home and dispensary. Strategic Housing Land Availability Assessment A Strategic Housing Land Availability Assessment (SHLAA) as undertaken by consultants on behalf of the Council and completed in April The report forms part of the evidence base for the LDF and informs the allocation of sites in the Site Allocations Document on a locality basis. The SHLAA identifi es the immediate and longer-term housing land supply in the District and looks at ways in which the Council might meet its housing requirement in the local planning strategy, known as the Core Strategy. The SHLAA is currently being refreshed and will be published with the next stage of the Core Strategy Consultation The Publication Stage. Summary of housing land availability The key fi ndings of the 2008 assessment are set out below: South Staffordshire s deliverable supply of new housing is approximately 1,495 dwellings; looking beyond 2012, there is a developable supply within existing settlement boundaries of 298 dwellings;

15 2.0 the development plan context there is therefore potential for 1,793 dwellings on all deliverable sites plus developable supply within existing settlement boundaries; the developable supply can be increased by a further 586 dwellings if outstanding White Land allocations are taken into account. This increases the developable supply to 884; there is a further potential developable supply of 548 dwellings if other greenfield sites (outside of existing settlement boundaries and outside of the Green Belt) are brought forward. This includes 546 dwellings on two sites to the north of Penkridge. This would take the overall developable supply to 1,432 dwellings; and looking at all Green Belt sites proposed through the consultation these have capacity for some 28,000 dwellings: approximately 15,000 on land surrounding the main service villages, 11,000 at the local service villages and 2,500 at other villages. Housing land supply and the RSS The Regional Spatial Strategy (RSS), has now been revoked by the coalition government in July The revocation of RSS, was ruled unlawful by the High Court on the 10th November However fi ndings of assessments carried out in this case are still relevant. For the 15-year period South Staffordshire needs to plan for 2,625 dwellings, in accordance with the emerging RSS Option of 175 dwellings per annum (dpa) The need is for 3,325 dwellings for the whole RSS period to For a fi ve year deliverable supply the requirement is therefore 875 dwellings. The fi ve year deliverable supply identifi ed in the 2008 assessment (for ) is 1,495 dwellings. The 2008 SHLAA identifi ed that in terms of the developable supply for , there is a requirement for 1,750 dwellings. Not accounting for any potential oversupply from the fi rst fi ve years, a developable supply of 298 dwellings has been identifi ed looking solely at sites within existing settlement boundaries. The total supply of deliverable sites and developable sites within existing settlement boundaries is therefore 1,793 which: represents a residual requirement of 832 dwellings to be found for the period ; and represents a residual requirement of 1,532 dwellings to be found for the period Options to meet the residual requirement There are a range of options explored to meet the residual requirement to 2022 and The Council could: bring forward outstanding White Land allocations; and/or consider allocating the identified other greenfield sites ; and/or review existing employment allocations in 2.0 the development plan context 15 line with PPS3 based on an employment land study and determine whether surplus sites could be reallocated; and/or attempt to justify the inclusion of a windfall allowance in housing land supply calculations; and/or through the core strategy process identify the most appropriate spatial option and if necessary undertake selective reviews of Green Belt boundaries (reviewing options proposed on Green Belt sites listed in this report to meet these requirements). It is proposed that a combination of these options may be pursued and more appropriately examined through the Core Strategy. Sites in the Green Belt The SHLAA makes the key assumption that all sites in the Green Belt are considered undeliverable on the basis that they are not suitable in policy terms. The Assessment identifi es two sites, defi ned as Major Developed sites in the Green Belt (PPG2 Annex C sites ); Baggeridge Brick plc sites, Gospel End; and former Littleton Colliery Site, Huntington.

16 the development plan context The emerging LDF places significant emphasis on Penkridge as a focus for growth in the area. The main issue in terms of releasing the site will be removing the land from the Green Belt. It is evident from the 2008 SHLAA that the Penkridge Green Belt was identified as being able to absorb further housing development within the white land to the north of the village. The emerging LDF continues to place significant emphasis on Penkridge as a focus for growth in the area, and the availability of the Boscomoor Lane site should be promoted as appropriate to accommodate that growth. Conclusion The Core Strategy would therefore need to consider whether the Council needs to make a decision on the best approach to sustainable development and whether local reviews of the Green Belt would be necessary. the development plan context 2.0

17 section three green belt

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19 3.0 green belt The following paragraphs do not represent an exhaustive review of PPG2, but instead seek to highlight some of the aspects of the guidance which are particularly relevant to this Green Belt review. Paragraph 1.4 of PPG2 states that the fundamental aim of Green Belt policy is to prevent urban sprawl by keeping land permanently open; the most important attribute of Green Belts is their openness. The main purposes of including land in Green Belts, as defi ned in paragraph 1.5 of PPG2 are: To check the unrestricted sprawl of large built-up areas; To prevent neighbouring towns from merging into one another; To assist in safeguarding the countryside from encroachment; To preserve the setting and special character of historic towns; To assist in urban regeneration, by encouraging the recycling of derelict and other urban land. In addition, paragraph 1.6 of PPG2 states that a Green Belt has a positive role to play in fulfi lling the following objectives: To provide opportunities for access to the open countryside 3.0 green belt 19 for the urban population; To provide opportunities for outdoor sport and outdoor recreation near urban areas; To retain attractive landscapes, near to where people live; To improve damaged and derelict land around towns; To secure nature conservation interest; To retain land in agricultural, forestry and related uses. However, as paragraph 1.7 states, the extent to which the use of land fulfi ls these objectives is however not itself a material factor in the inclusion of land within a Green Belt, or in its continued protection. Paragraph 1.7 goes on to state that the purposes of including land in Green Belts [see above] are of paramount importance to their continued protection, and should take precedence over the land use objectives. Paragraph 2.1 of PPG2 states that the essential characteristic of Green Belts is their permanence. Their protection must be maintained as far as can be seen ahead. To this end, as paragraph 2.8 states, it is necessary to establish boundaries that will endure. They should be carefully drawn so as not to include land which it is unnecessary to keep permanently open. Paragraph 2.9 states that wherever practicable a Green Belt should be several miles wide, so as to ensure an appreciable open zone all around the built up area concerned. Boundaries should be clearly defi ned, using readily recognisable features such as roads, streams, belts of trees or woodland edges where possible. Paragraph 3.15 of this guidance states that the visual amenities of the Green Belt should not be injured by proposals for development within, or conspicuous from the Green Belt which, although they would not prejudice the purposes of including land in Green Belts, might be visually detrimental by reason of their siting, materials or design. Section 3.4 of the guidance looks at the construction of new building inside the Green Belt boundary. It states that is it inappropriate unless it is for the purpose of a number of reasons, including limited development or limited expansion. Paragraph 2.11 of PPG2 required that settlements where development within the Green Belt might be appropriate should be inset rather than washed over. Penkridge falls into the latter category, and this is refl ected in the SSLP.

20 3.0 green belt The now deleted policy GB3 identifi es land at South of Wolgarston Way, Penkridge as being deleted from the Green Belt to accommodate housing. This was considered by the inspector during the March 1993 Deposit Plan Inquiry. He concluded at paragraph 3.61; This site is about 1.6km from the village centre, which is not an unreasonable distance, and Wolgarston Way is a bus route. There are also shopping and other facilities much closer to hand. This development has been completed immediately to the east of the Boscomoor Lane site. In addition Policy GB4 Long Term Development Needs identifi es fi ve sites within the District where development would be acceptable on sites deleted from the Green Belt. Included in this schedule is Land at Cherrybrook Drive, Penkridge which is located at the north-east corner of the village. Policies GB3 and GB4 demonstrate that the Green Belt at Penkridge has been subject to recent change. The sites at Wolgarston Way and Cherrybrook Drive can be considered to be a rounding off of the village in a similar way to the Boscomoor Lane site. 3.0 green belt 20 Interpretation of Green Belt Policy based upon Appeal Decisions Openness: As has been noted, paragraph 1.4 of PPG2 states that the most important attribute of Green Belts is their openness. However, there is no defi nition of openness within PPG2. Consequently, it is only by reviewing appeal decisions and Inspector s reports that one can gain an understanding of how openness has been interpreted. It is clear from a number of Inspector s reports that intervisibility across an area is not in itself a measure of openness: for example, the Inspector s report for the Shortwood Appeal 2 states that open character [in the sense implied within Green Belt policy] does not necessarily equate with having uninterrupted views. For example, a track in a forest or an area of open countryside with trees and tall hedges might afford very limited views. What is clear is that built, or engineered, development is generally perceived as being injurious to openness, particularly where it contrasts with its rural setting. For example, at the Three Nooks 3 appeal the Inspector was concerned about the effects of new screen bunds on the openness of the Green Belt as the bunds would rise steeply out of the landscape, taking on the appearance of highly engineered pinnacles quite unsympathetic to their immediate surroundings. The visibility of these buildings or engineered structures is also an important 2 Appeal reference APP/M3000/A/96/ Appeal reference APP/D3450/A/00/ (September 2000) consideration: for example, at the Sandyforth Farm Appeal 4 the Inspector s report noted that there is concern that the nature of the proposed waste disposal at an exposed location in a limited area of open land would compromise the openness... of the Green Belt. In summary, Inspector s reports contain a number of important themes when addressing the issue of openness: fi rstly, that openness is harmed by built development (or operations associated with development); secondly, that more visible built development has the potential to cause a greater degree of harm to openness; thirdly that only structures which are anomalous in their context are likely to be viewed as built development; and fourthly, that a reduction in intervisibility within a Green Belt is not, per se, harmful to openness. 4 Appeal reference APP/V4250/A/04/ (October 2006)

21 3.0 green belt Encroachment: the gradual spread of the urban area into the adjacent countryside. It is clear from many Appeal decisions (such as, for example, the development of a chalet in the Green Belt Glebe Land at Kidderminster 5, the extension to a dwelling at Ramsbottom 6 or the extension to a dwelling in Derbyshire 7 ) that the degree of encroachment caused by a development is partially, if not mainly, predicated on the degree of visibility which it would cause and the receptors which would be affected. For example, the Secretary of State s decision regarding a residential development in the Green Belt at Wickford in Essex 8 stated that the harm caused to the Green belt by the proposal is limited because meadow lane is in a secluded location, there are limited views into the site, and the pattern of occupation is low density. Sprawl: straggling, ungainly development of existing urban areas, such as ribbon development along major roads. As with encroachment it is clear from many Appeal decisions (for example a decision regarding a domestic extension at Lowdham, Nottinghamshire 9 ) that the degree of sprawl caused by a development is partially, if not mainly, predicated on the degree of visibility which it would cause and the receptors which would be affected. 5 Appeal reference APP/R1845/A/07/ (November 2007) 6 Appeal reference APP/T4210/A/08/ (April 2008) 7 Appeal reference APP/F1040/A/07/ (March 2008) 8 Application reference 02/01125/FUL, letter from SoS dated 8 th March Appeal Reference APP/B3030/A/07/ (November 2007) 3.0 green belt 21 Coalescence: the meeting of two or more settlements by further urban development. A report provided on behalf of DCLG in regarding the function of strategic gaps and green wedges acknowledged that (paragraph 7) the main overlap between strategic gap and green wedges and Green Belt purposes is in the area of preventing coalescence of settlements, since all of these designations serve to perform this function by preserving openness between settlements. In this context, it is helpful to note that several landscape and visual criteria for assessing the functionality of strategic gaps, and for thus defi ning strategic gap boundaries, are set out within the DCLG report. For example, at paragraph 4.14 the Secretary of State s Letter of Approval to the Hampshire CC Structure Plan 1993 is cited: he suggested two criteria for assessing the position and extent of strategic gaps, including the nature of the developed areas on either side of the gap and the visual perception of the gap, allowing for local topography. At paragraph 4.15 the DCLG report cites the factors which the Inspector at the Eastleigh Local Plan Inquiry recommended should be considered when defi ning Strategic Gap boundaries: Distance Topography Landscape character/type Vegetation Existing Uses and density of buildings 10 ODPM (2001) Strategic Gap and Green Wedge Policies in Structure Plans Nature of urban edges Inter-visibility (the ability to see one edge from another) Intra-visibility (the ability to see both edges from a single point) The sense of leaving a place These same rules can thus be usefully applied to the function of the Green Belt in relation to coalescence. Setting: the importance of providing an appropriate setting for historic towns and cities. This could include providing appropriate gateway features, frames to views, or an appropriate landscape context. Setting can thus be judged in relation to landscape character and visibility. In summary, whilst Green Belt is not a landscape designation, its application often depends upon landscape and, more particularly, visual criteria. It is for this reason that this review methodology relies not only upon the spatial relationship of any one parcel of land to existing settlements, but also assesses the way in which the functions of the Green Belt are visually perceived from the most frequently used visual receptors.

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23 section four site analysis

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25 4.0 site analysis Settlement Pattern The historic core of Penkridge is centred on Market Street, north of the proposed development site. The centre features many vernacular buildings. Penkridge Village centre Penkridge has expanded over many years with the greatest residential expansion occurring from the 1970s onwards resulting in the present settlement pattern. The railway line to the west of the village and the M6 corridor to its east have acted as physical barriers to expansion of the village to the east and west, leading to growth being focused to the north, but largely to the south. 4.0 site analysis 25 To the east of the village centre is a broadly triangular shaped area of housing known as The Marsh. Cannock Road borders its southern edge and Teddesley Road its western edge. The Staffordshire and Worcestershire Canal marks the eastern edge. The area is characterised by a mix of brick built semi-detached two storey houses and bungalows with mature gardens set within a framework of residential roads. The Marsh To the east of the canal is Little Marsh Park lying between the canal and the M6 motorway. The area is smaller and is characterised by a similar mix of housing types, mature gardens and residential streets. South of Cannock Road is Princefi eld, an extensive area of housing, consisting of brick built detached, semi-detached houses and bungalows. Wolgarston Way sweeps around its southern edge linking the area with Cannock Road and the M6 to its north and leading into Boscomoor Lane as it meets the A449 Wolverhampton Road to the south west. The area is bisected by the Staffordshire and Worcestershire Canal to the east and a stream to the west which passes through the residential area in a broadly north south direction providing open space amenity. To the south of Wolgarston Way and to the immediate east of the Staffordshire and Worcestershire Canal is a more recent development of housing consisting of semi-detached and detached two storey properties at St. Modwena Way. To the west of the area a footpath has been created alongside the canal providing an attractive frontage to this residential area and amenity value for residents. Residential off St. Modwena Way

26 4.0 site analysis As Wolgarston Way joins Boscomoor Lane there is a small, isolated group of residential properties at Boscomoor Court, off Boscomoor Lane consisting of semi-detached houses and linked properties (immediately adjacent to the site). View across the site to Boscomoor Court At the junction of Boscomoor Lane and the A449 Wolverhampton Road is a group of retail and commercial properties at Boscomoor Shopping Centre and Boscomoor Industrial Estate. To the west of Wolverhampton Road, extending northwards is a strip of housing situated between the railway line and Wolverhampton Road. Housing extends from south of the junction, north towards the centre of Penkridge and comprises of brick-built semi-detached properties. Further north towards St Michael and All Angels Church and Penkridge Conservation Area is an area of detached properties situated 4.0 site analysis 26 in the area surrounding St. Michael s Road. Penkridge Station is situated adjacent to this area of housing and St. Michael s Church. Housing to the west of Wolverhampton Road The excellent transport networks connecting Penkridge and adjacent towns and cities have been an important contributing factor to the residential expansion of Penkridge over the last 40 years. Natural and Man-Made Characteristics of the Site The site is currently used as grazing land and has been classifi ed as Grade 2 and 3. The site is low in elevation and slopes in a south west direction towards Boscomoor Lane. The site levels out towards the south eastern corner of the site and the hedgerow boundary to the south of the site. The site is tightly bound on three sides by built development. The northern boundary of the site is defi ned by Wolgarston Way and is separated from it by a small grass embankment and remnant hedgerow and three sycamore sp. trees. The Staffordshire and Worcestershire Canal forms a distinct edge to the eastern boundary of the site, with its hedgerow with occasional oak stands, narrow towpath and residential development beyond the canal to the east. Boscomoor Lane and Lyne Hill industrial estate defi ne the western boundary of the site. The southern boundary of the site is clearly defi ned by an existing mature hedgerow and public right of way connecting Boscomoor Lane and Pillaton to the east of the M6 motorway. The main vehicular circulation routes around the site are Wolgarston Way to the north of the site, Boscomoor Lane to the west of the site and numerous residential roads providing routes from Wolgarston Way to the residential areas to the east of the site described earlier. Otherton Lane is the nearest road to the south of the site and leads in a south east direction towards Cannock. Pedestrian routes around the site consist of the Public Right of Way (Footpath 19) running along the southern boundary of the site from Boscomoor Lane towards the M6, the pavement alongside Wolgarston Way to the north of the site, Bosomoor Lane to the west of the site and the towpath next to the canal to the east of the site.

27 4.0 site analysis - landscape character 4.0 site analysis 27

28 4.0 site analysis Flood Risk The site lies outside the fl ood zone, however the land next to west boundary of Boscomoor Lane has been subject to fl ooding and is within a light blue area of the Environment Agency Flood Map. The light blue area shows the additional extent of an extreme fl ood from rivers or the sea. These outlying areas are likely to be affected by a major fl ood, with up to a 0.1 per cent (1 in 1000) chance of occurring each year. Flood Extract Map extract obtained from the The Environment Agency. 4.0 site analysis 28 Archaeology Designations and Cultural Heritage The study area contains sixty-two listed buildings and two scheduled monuments, but none are contained within the site. Listed buildings comprise churches and churchyard memorials, railway and canal-related features, and houses and cottages. There are no Registered Parks and Gardens, Registered Battlefi elds, or World Heritage Sites. Approximately 1.4km to the east of the application site lie a scheduled monument and a number of listed buildings, a chimney and a listed garden wall at Pillaton Old Hall, with nearby listed farm buildings at Pillaton Farm. 1.9km to the west are listed buildings at Manor Farm. 700m south-west of the site lies scheduled monument Rodbaston Old Hall moated site and fi shpond. The development of the site is highly unlikely to result in any signifi cant effect on these assets which are screened from the site due to intervening built-up areas, vegetation and landform. The majority of the listed buildings in Penkridge lie in the conservation area within the settlement s historic core on the northern edge of settlement, about 1km north of the proposed site. The development of the site is highly unlikely to result in any signifi cant effect on setting of the conservation which is screened from the site due to intervening residential areas. An area of land to the north of Penkridge Conservation Area has been identifi ed in the Penkridge Conservation Area Townscape Appraisal as a buffer zone in order to protect the setting of the conservation area from development which may affect views into and out of the conservation area, thereby potentially having an impact upon the special architectural or historic interest of the conservation area. The canal corridor to the east of the site has been designated as a conservation area, however the contemporary setting of the canal in this location is already greatly altered by modern development. Ecology Designations There are no Ramsar sites, Special Protection Areas (SPAs), Special Areas of Conservation (SACs), Sites of Special Scientifi c Interest (SSSI), National Nature Reserves (NNR) or Local Nature Reserves within a radius of 2km of the site. Landscape Designations There are no landscape designated sites within a 2km radius of the site. Landscape Character Penkridge is located to the south east of the wider Shropshire, Cheshire and Staffordshire Plain National Character Area (NCA) as mapped by Natural England in the Character of England Landscape, Wildlife and Cultural Features Map produced in The plain is characterised by rolling landform with relatively minor changes in elevation, a predominant agricultural land use of diary, grazing and grass production intermingling with mixed arable to the south east of the character area, defi ned by a regular fi eld enclosure pattern bounded by managed hedgerows with numerous hedgerow trees.

29 4.0 site analysis Natural England s NCAs have acted as a framework for further assessment work carried out by Staffordshire County Council. The National Character Areas have been subdivided into Regional Character Area, with the proposed site sitting within the West Staffordshire Lowlands whose character closely mirrors that of the NCA. The report notes vernacular buildings of a mellow reds which is true of most buildings in Penkridge. The Landscape Character Assessment goes on to identify further landscape character types and, where applicable, sub-types however the proposed site is situated within an Area of built character which has not been assessed as part of the Staffordshire County Council Landscape Character Assessment. The village centre of Penkridge and in particular the Penkridge Conservation Area has been considered in greater detail in a Townscape Appraisal 11, however the proposed development site lies approximately 860m to the south. To the south, west and north of the proposal site the landscapes have been characterised as Ancient Clay Farmlands and to the east of the M6 motorway corridor as Settled heathlands with a sub-type of Estatelands. The overriding character of the proposed site is urban given the presence of built development on three sides of the site. This observation is supported by the Staffordshire County Council Landscape Character Assessment 2001 which identifi es the proposed development site as being in an Area of built character 12. The overhead electricity transmission 11 South Staffordshire Council. Penkridge Conservation Area Townscape Appraisal Map 12 Planning for Landscape Change: Supplementary Planning Guidance to the Staffordshire and Stoke on Trent Structure Plan Appendix 1 Map site analysis 29 line crossing the site contributes to the built character of site. Beyond the southern boundary of the site, defi ned by the public right of way and existing hedgerow, there is a distinct change in the character of the landscape from an area of built character to an agricultural fringe landscape. The M6 motorway corridor to the immediate east diminishes the tranquillity of the farmland area to the south of the site due to the traffi c noise and acts as a reminder of the proximity to development. To the north of the village of Penkridge there is a clear defi nition between the built character of Penkridge and the open countryside beyond. Visual characteristics The site is overlooked by an existing group of residential properties at Boscomoor Court to the north east corner of the site, The Lodge an existing detached residence located on Boscomoor Lane, a former residential property converted for use as a children s day nursery situated on the southern boundary of the site off Boscomoor Lane and new residential development to the east of the site off St. Modwena Way. Other close range views are available from the footpath adjoining Wolgarston Way, the road bridge on Wolgarston Way over the canal and from the footpath bordering the southern edge of the site leading from Boscomoor Lane to Pillaton. Views into the site from the canal towpath are largely restricted by the hedgerow running along the eastern boundary of the site. A key characteristic of these close range views is an appreciation of the narrow width of the site, the ability to clearly see both edges, the visual dominance of built development to the north, west and east of the site which signifi cantly reduces any sense of openness. Intermittent longer range views towards the site are available from Otherton Lane, however from this location the site is entirely screened from view by existing hedgerows and mature hedgerow trees. Views from this location are experienced intermittently at gaps in the hedgerow bordering the lane and consist of grass pasture, hedgerows with intermittent hedgerow trees and housing which occupies a signifi cant proportion of the view. The hedge along the southern boundary of the site provides a clear boundary between the open countryside to the south of the site and the enclosed site and the built development to the north, west and east. View towards the hedgerow boundary defining the transition from open countryside to the urban area beyond and the site

30 4.0 site analysis 4.0 site analysis 30

31 section five how well does the green belt function?

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33 5.0 how well does the green belt function? How does the Green Belt Designation function in relation to the main purposes of the designation? An analysis of the functionality of the Green Belt designation in this location, with reference to the main purposes of the Green Belt as set out in section 3, above, has been carried out and is summarised below: Encroachment: Existing development on three sides of the site has already created a strong sense of urban encroachment. Development of the site itself would not therefore result in the perception of additional encroachment into the countryside. Existing views of the site, particularly from the south e.g. from Otherton Lane, would experience minor changes since these views are already characterised by residential development. The appreciation of the current settlement edge would remain largely unaltered. Openness: The narrow width of the site, combined with the visual dominance of existing buildings on three of its sides, signifi cantly reduces any sense of openness. This is particularly apparent in close range views of the site where it is possible to see built development on both edges of the Green Belt. By contrast, land to the south of the site is not enclosed by existing or proposed buildings and thus would remain open, should the site itself be developed. Sprawl: Again, the visual dominance of existing urban development around the site means that views into and out of the site are already characterised by built form. The development of the site would not therefore result in any additional perception of sprawl since appreciation of the settlement edge would not signifi cantly alter. 5.0 how well does the green belt function? 33

34 5.0 how well does the green belt function? Coalescence: The southern edge of Penkridge is approximately 6.5km north west of Cannock and approximately 10km north of Wolverhampton. As has been noted, the land to the south of the site is open in character and largely free from buildings. Due to the expanse of land between these settlements, and the character of this land, the development of the site would not result in a perception of coalescence. Conclusions on Green Belt Functionality. Setting: The historic centre of Penkridge is designated as a Conservation Area and is situated approximately 1km to the north of the proposed site on the northern edge of the settlement. Penkridge Conservation Area is protected by a buffer zone to its north and is partially surrounded by Green Belt to the west and east. The development of this site would not have any impact upon the setting of the village. The site is a narrow remnant of Green Belt which both includes buildings and is bounded by buildings on three sides. It is not, therefore, entirely open land. Furthermore, development of the site would not cause any signifi cant increase in the perception of sprawl or encroachment, since built form is already visually dominant on three sides of the site, and within the site. If the site were to be developed, there is a broad expanse of Green Belt to the south of the site which would continue to perform all of the functions of Green belt as set out in PPG how well does the green belt function? 34

35 section six site constraints and opportunities

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37 6.0 site constraints and opportunities Site constraints Green Belt designation: the site is currently within a Green Belt designation and therefore development would require for the Green belt boundary to be relocated. However, adjacent existing developments, and proposals for development elsewhere around Penkridge, show that the Planning Authority is prepared to consider rolling back the Green Belt in this area. Main sewer crosses the northern edge of the site. the west at Lyne Hill Industrial Estate and with the extent of new residential development to the east. Opportunity for waterfront development. There is the potential for establishing an area of attractive frontage and/or public realm adjacent to the canal. A buffer zone of a similar width to the one to the east of the canal at Canal Side Close could be provided. Pedestrian access to existing transport links. Pedestrian routes from the development site to Wolgarston Way could be provided. Overhead electricity transmission line crossing the site. Site opportunities Pedestrian linkages. Sympathetic access from the development to the canal towpath would be created at suitable points along the eastern edge of the site. Development without compromising Green Belt functionality. The openness of the site has already been compromised by the visual dominance of existing building on three sides of the site. Development of the site would not result in a significant additional perception of sprawl or encroachment. The remaining Green Belt is open and wide and therefore provides ample protection against a perception of coalescence. Defensible Boundary A clearly defined and defensible Green Belt boundary could be drawn along the southern edge of the site, by an existing mature hedgerow. This boundary would marry with the development extent to Amenity improvements. The provision of public open space and allotments to the south of development site could result in direct positive benefits to the local amenity. Transport network. The development would make use of the existing transport infrastructure and would not require extensive alterations in order to access the site. Landscape Improvement Area. Wherever possible existing landscape features and wildlife habitats would be conserved. The existing landscape structure could be greatly enhanced by planting of new hedgerows and woodlands using native species. 5.0 site opportunities and constraints 37

38 7.0 design concept 7.0 conclusions 38

39 7.0 design concept Potential Design Concepts This document does not include detailed detailed development proposals for the Boscomoor Lane site but, if a need for development is established and the site is found to be suitable for built development, a well designed scheme could meet the development need and deliver enhancements along with a more logical and defendable Green Belt boundary. The development of the site could include the following features to improve the amenity of the surrounding area and provide new facilities to the village of Penkridge. Provision of a new community or health or care facilities; Provision of new housing to meet local needs; Improved public realm; Amenity improvements Provision of public open space or allotments to the south of development site. 7.0 design concept 39

40 8.0 conclusions SLR was asked by Inglewood to review the potential for development at Boscomoor Lane, Penkridge. The following conclusions were found:- The site is currently with Green Belt and a Landscape Improvement Area. There is thus a presumption against development in this location. However, within the adopted South Staffordshire Local Plan (policy GB4) five development sites are proposed within the Green Belt, and policy GB3 also allows for the removal of the area to the east of the site for residential development; this development has now been completed. The Development Plan therefore recognises that changes to the Green Belt are necessary in order to accommodate the required level of development in this area. Within the emerging LDF Penkridge is identified as accommodating 23% of the District s growth, which includes 330 new dwellings. The site does not currently perform the functions of the Green Belt because it is visually enclosed by built development on three sides and is narrow in form. It does not, therefore, appear to be open, which is the pre-requisite for land in the Green Belt. 8.0 conclusions 40 Development of the site would not cause a perception of encroachment or sprawl, since built development is already visually dominant from points within and around the site. Development of the site would not cause a perception of coalescence as there would still be over 6km of open land between the southern edge of Penkridge and the next major settlement. Development of the site would create a new defensible boundary for the Green Belt, which would be marked by a mature hedgerow and a public right of way. This same public right of way already provides the established Green Belt boundary to the east, so rolling back the Green Belt to this feature is both logical and practical. The landscape character of the site is already urban, a fact which is acknowledged within the Staffordshire County Council Landscape Assessment. The site therefore has potential for development, and could also deliver enhanced green infrastructure and/or public open space The site is a narrow remnant of Green Belt which both includes buildings and is bounded by buildings on three sides. It is not, therefore, entirely open land. Furthermore, development of the site would not cause any significant increase in the perception of sprawl or encroachment, since built form is already visually dominant on three sides of the site, and within the site. If the site were to be developed, there is a broad expanse of Green Belt to the south of the site which would continue to perform all of the functions of Green belt as set out in PPG2..