5 Spatial strategy

5 Spatial strategy

5.1 The vision and strategic objectives of the Local Plan have been translated into the following spatial strategy that aims to ensure the sustainable development of the borough to 2030. The Local Plan sets out the Council's ambitions for growth and development and how this will be distributed across the borough. The key components of the strategy are meeting future housing needs and supporting economic growth and the Plan seeks to support a level of growth that is higher than that required to meet local needs. The key elements of the Council's strategy are the delivery of in the region of 22,000 new homes and to support an additional 14,000 people in employment.

Levels of new development

5.2 The Preferred Policy Directions (PPD) outlined the Council's preferred option for growth which would deliver 1,050 new homes per annum (21,000 over the Plan period). This figure would be a mid-range figure between 2008 based household projections and the housing requirement set out in the revoked Regional Spatial Strategy. The figure also equated to past completions between 1996 and 2011, although this in itself was not intended as the basis for objectively assessed need. Since preparation of the PPD the Council has updated its evidence base to take account of Census information and revised Government household projections and has prepared a new Strategic Housing Market Assessment based on an updated household survey.

5.3 The Government's 2011 based interim household projections that run to 2021 identify that the number of additional households forming in Cheshire West would be around 500 per annum. Whilst these figures represent a baseline for meeting objectively assessed housing need, they should be seen as a starting point and will not necessarily address the issues facing the borough. Meeting around 10,000 new dwellings over the Plan period will potentially hamper future economic growth through restricting labour supply and would not meet the need for affordable housing. As demonstrated through the Strategic Housing Market Assessment (SHMA) there is a need for 714 affordable houses per annum.

5.4 There are a number of economic strategies that the borough has prepared itself or with partners that express a variety of ambitious targets for economic growth and housing delivery. The Cheshire and Warrington Local Economic Partnership produced  ‘Unleashing the Potential of Cheshire and Warrington' (draft July 2011).  The document outlined the sub-region should aim to increase the population by 100,000 people, provide 22,000 new jobs and 71,000 new dwellings by 2030.  In 2013 the Council published the 'Altogether Better for Business: An economic growth strategy for West Cheshire' that aspires to facilitate an additional 5,000 new jobs, 7,300 homes and £500m worth of private sector investment by 2018. These economic strategies have been considered through the preparation of the Local Plan (Part One) and where appropriate their aspirations reflected through the Plan's policies.

5.5 The National Planning Policy Framework (NPPF) states that plans should be aspirational but realistic and it is recognised that in recent years housing completions have been at a very low level due to the wider economic climate. The Plan has tried to address this problem through significantly boosting the supply of land for new housing and supporting a mix of housing land (greenfield and brownfield) in a variety of locations.

5.6 The housing requirement and land for business development is slightly higher than that set out in the PPD but will meet the Council's economic growth aspirations and help address affordable housing needs. 

Spatial Areas and approach to accommodating growth

5.7 The borough has been split into five areas (Chester, Ellesmere Port, Northwich, Winsford and rural area) which broadly reflect how regeneration is delivered in the borough.  Key teams and projects supporting regeneration in the borough include Chester Renaissance, Weaver Valley Partnership, Ellesmere Port Development Board and Rural Regeneration Board.

5.8 The Chester Renaissance programme focuses on the area in and around the wider city centre.  The 'Chester One City Plan' is a 15 year strategy to guide economic regeneration in the city.

5.9 The Ellesmere Port Development Board, supported by the Council, has prepared a regeneration framework to support investment and regeneration in the town over the next 10 to 15 years.

5.10 The rural and market towns are supported by a Rural Regeneration Board which in 2011 produced a 'Rural Regeneration and Rural Housing Strategy'.

5.11 Whilst regeneration strategies and projects have been considered through the Local Plan (Part One) it is important to note that none of the regeneration strategies constitute plans or programmes that have been assessed through the Strategic Environmental Assessment (SEA) process.

5.12 The city of Chester and towns of Ellesmere Port, Northwich and Winsford will be the main focus for development. This will enable the best use of previously developed land and allow the integration of homes, jobs, services and facilities in the most accessible locations. Policies have been set in the rural area to enable a significant number of new homes and support economic development and rural businesses. The approach taken to the rural area is to locate development in the most sustainable settlements whilst enabling communities to bring forward additional development through neighbourhood plans. The Council has strongly supported local communities bringing forward neighbourhood plans and enabling local communities to shape their own future. The countryside of West Cheshire is recognised as a key feature of the borough in terms of making it an attractive place to live, work and visit and the Plan seeks to protect this asset.

Approach to Green Belt release and Chester

5.13 Since its designation, the North Cheshire Green Belt has played an important role in protecting the character of the north of the borough where development pressures are the greatest.  At both a regional and local scale the designation has assisted urban regeneration, checked urban sprawl, protected the identity of settlements and safeguarded the countryside. In relation to Chester and its surrounding network of villages the Green Belt has assisted in preserving the setting and special character of Chester. Given the importance of Green Belt, the Plan seeks to maintain the general extent of the North Cheshire Green Belt as the development identified can be met without Green Belt release, except that for Chester.

5.14 Chester is the borough’s largest settlement, a focus for economic development and acts as a sub-regional centre for shopping, leisure and tourism.  Chester is the only part of the borough with significant levels of in-commuting with an excess of 16,000 jobs over economically active residents.  It is accepted that Chester has good public transport links and its proximity to Wales will invariably mean a high level of cross border commuting. However, as outlined in the SHMA there is a high affordable housing and family housing need in the city and the SHLAA has identified a declining supply of brownfield sites.  The changing student accommodation offer in the city has also reduced the supply of sites available for general housing although it is accepted student accommodation does contribute to meeting wider housing needs.  Whilst future housing development could be accommodated in other parts of the borough it is considered that exceptional circumstances exist for targeted Green Belt release exists around the city, taking account of the need to promote sustainable patterns of development.  Additional detail and justification for the approach of Green Belt release is set out in the 'Strategy and Housing Background Paper'.

5.15 Key factors in the approach to the location of development was to maintain the strategic gap between Chester and Ellesmere Port, maintain the separation and distinct character between Chester and the surrounding villages and ensure that Green Belt boundary change respects the need to safeguard the setting and special character of the city.  Given that housing and employment needs for the borough as a whole were not dependent on Green Belt release it was possible to take a cautious approach that should the release of Green Belt harm the setting and character of Chester then development could be accommodated elsewhere in the borough, albeit less sustainably. Work to review Green Belt in the vicinity of Chester paid high regard to preserving the special setting and historic character of the city. The Stage Two of the Chester Green Belt Study (2013), building on previous work, identified that for the most part the city’s periphery were considered unsuitable for Green Belt release due to potential harm to the purposes of Green Belt.

5.16 The following policies identify levels and locations for development as well as growth in the five spatial areas.

STRAT 1 Sustainable development

Explanation

5.17 The sustainable development principles reflect the Council's shared sustainability objectives and priorities set out within the Council's Sustainable Communities Strategy as updated by 'Altogether Better: An interim partnership plan, July 2012' and Council Plan 'Altogether better, the Council Plan 2011-15'.

5.18 Policy STRAT 1 reflects the presumption in favour of sustainable development which is seen as a golden thread running through both plan making and decision taking, as set out in the National Planning Policy Framework (NPPF).  Sustainable development is at the heart of the Local Plan (Part One).  The Council must ensure that development, regeneration and growth in the borough is sustainable.

5.19 The policy provides a framework of locally specific sustainability principles which provide the basis upon which other policies within this Plan and the Local Plan (Part Two) Land Allocations and Detailed Policies Plan will shape development in the borough over the plan period.  The policy seeks to facilitate and encourage opportunities to meet the economic, social and environmental needs of the borough without undue delay in the planning process. The Local Plan for Cheshire West and Chester is the principal planning policy document for the borough and as such follows the approach set out in the NPPF which ensures development which is sustainable is approved without delay.  The Council will support applications which meet the relevant sustainability principles outlined above alongside the policies within the Local Plan and work with applicants to find solutions where an application is not in accordance with the above policy or other policies within the Local Plan.

STRAT 2 Strategic development

Explanation

5.20 A key purpose of the Local Plan is to set out the levels and location of new development to meet future needs as well as essential infrastructure to support this growth and create sustainable communities. The Plan aims to balance housing and jobs and to ensure that a range of deliverable employment land is available both for indigenous firms and inward investment. With the revocation of the Regional Spatial Strategy it is for the Local Plan to identify levels of growth to meet objectively assessed needs. The starting point for assessing need has been the production of up to date demographic forecasts that looked at a series of scenarios to assess future housing need up to 2030. It is not the intention of the policy to limit higher levels of development where sites come forward on sustainably located previously developed land and where no infrastructure issues would arise.

5.21 As set out  previously the level of new housing is higher than that proposed at the Preferred Policy Directions stage. It is recognised that 22,000 new dwellings to 2030 is an ambitious figure given continued economic uncertainty and that average completions of 1,100 per annum have not been achieved in the recent past. The Local Plan has been prepared positively and this level of growth will enable a significant boost in housing supply in line with the National Planning Policy Framework.  From 2010 the economic uncertainty and issues surrounding mortgage and development finance have subdued the housing market.  Although the Council has granted a significant number of housing permissions and taken a pro-active stance regards delivery of sites, the Plan relies on house builders to build out sites.  The Cheshire, Halton and Warrington Economic Model (CHWEM) forecasts an improving economy as the plan period progresses, therefore it is considered any backlog during more difficult times should be made up over the lifetime of the Plan. The housing requirement of at least 22,000 new dwellings (1,100 dwellings per annum) is a net figure. If recent trends continue it could be anticipated that up to approximately 50 dwellings per year may be lost to other uses or demolished. On this basis the number of housing completions that would be needed to meet the net requirement of 1,100 dwellings per annum would equate to a gross average of 1,150 dwellings per annum and the overall supply of housing land will need to reflect this.

5.22 Locating most new development within and on the edge of the borough’s main urban areas and rural key service centres will enable the maximum use of existing infrastructure and resources and allow homes, jobs and other facilities to be located close to each other. This has the potential to enable people not to be reliant on travel by car and can support existing public transport modes. Whilst the Plan aims to maximise the use of brownfield land with over 60 percent of new housing anticipated to be delivered on previously developed land, the release of greenfield sites will be required especially within the rural area.

5.23 The Local Economic Assessment identifies that there is not a single economic geography for the borough. The economic mix is extremely diverse and as such there is a need to plan for a range of different sizes and types of employment sites. The Local Plan policy aims to provide employment land of various scales and types across the borough alongside new housing development, enabling people to work close to where they live, ensuring this is attractive to indigenous and inward investors.

5.24 The 'Employment Land Study Update' (2013) has been produced to assess the supply and demand for employment land and premises in the borough (falling within the B use classes). The policy takes account of the recommendations from the study and has been informed by the National Planning Policy Framework, a review of sub-regional and local economic growth and regeneration strategies, primary research with businesses and property market stakeholders and recent property market trends. It considers the likely demand for future employment land based on a review of the borough’s undeveloped employment land supply, the historic development of employment land and population and economic forecasting. The policy aims to respond positively to wider opportunities for growth.

STRAT 3 Chester

Explanation

5.25 Chester has the largest population in the borough with over 81,000 people (25 percent of the population of the borough) and acts as a sub-regional centre for employment, shopping, leisure, culture, tourism and other facilities. Chester is the only part of the borough that has significant in-commuting with a large imbalance between number of jobs and residents. Given the potential of Chester to drive economic growth and the need to meet the city's housing requirements it is considered 5,200 dwellings should be accommodated during the Plan period.

5.26 As set out in further detail in Policy ‘ECON 2 Town centres’, a major retail and leisure scheme is to be brought forward through the Northgate city centre redevelopment as identified on the Policy Map. The Council is committed to bringing forward a new theatre complex within the city Centre to improve the cultural and leisure offer of the city as supported through the 'Chester One City Plan'.

5.27 The level of development proposed for Chester will require Green Belt release.  The Council has taken account of the 'ARUP Green Belt Study (2013)' in identifying the most suitable land for Green Belt release. The study has looked at the purposes of Green Belt around the city especially relating to impact on the setting and special character of the city.

5.28 The land removed from the Green Belt at Wrexham Road to the south of Chester would represent a logical extension to Chester with good access to public transport and major employment areas and will meet the need for both market and affordable housing, especially larger family homes.  The release of Green Belt land will be taken forward in a planned way to ensure the urban extension at Wrexham Road delivers the appropriate mix of development, including community facilities, to deliver a high quality and sustainable development.

5.29 The 'Employment Land Study Update' (2013) identifies that there is limited land available within Chester for future employment development. Chester Business Park is identified as a flagship location for new offices, although this is now substantially developed it remains a key location for existing business and office space. The study also identifies a lack of space for large, modern office premises above 1,000m2 floorspace. As a successor to the Business Park, the 'Chester One City Plan' identifies the potential of the Chester Business Quarter to deliver a mixed use scheme that will bring future employment activity through small, medium and large enterprises. Within this area, Chester Central Business District is a major regeneration initiative in the north east of the city, adjacent to the railway station. There is the potential to deliver high quality new office space, approximately 44,000m2, to drive Chester’s commercial offer and future economic growth. Chester West Industrial Estate, including areas of Sealand Road Industrial Estate, are identified as being important to meet local needs for industrial premises to the west of the city. The Plan recognises the need to protect employment land and premises in this location and encourage qualitative improvements.

5.30 There is one Air Quality Management Area in Boughton, therefore the policy takes account of the need to mitigate any adverse impacts on air quality arising from development proposals in line with policies ‘STRAT 1 Sustainable development’ and ‘SOC 5 Health and well-being’.

STRAT 4 Ellesmere Port

Explanation

5.31 Ellesmere Port has the potential to deliver a significant amount of economic growth during the Plan period. This policy is intended to guide the level and location of new development in Ellesmere Port to 2030, primarily in relation to new housing and employment development.  A high level of new housing has been planned for the town to tie in with the potential to deliver employment opportunities, particularly in the advanced manufacturing, environmental technologies and distribution sectors.  The focus will be on delivering new quality homes to enhance the range and choice of properties available in the town, including family homes and homes for older people, to meet the needs of the existing community and attract new residents to Ellesmere Port. Although Ellesmere Port does have a large supply of brownfield sites, it is considered that greenfield land should also be released to provide for a range of housing sites to  ensure both market and affordable housing is delivered. The policy supports the ambitions of the 'Ellesmere Port Vision and Strategic Regeneration Framework (SRF)'.

5.32 Ledsham Road is a large greenfield site located on the western edge of Ellesmere Port and is identified primarily for residential development. There is the potential to provide for a medium density development of up to 2,000 homes including the conversion and reuse of the existing farm house and barn, local shop, a new primary school, a community building, a  linear park, playing fields and other public open space and allotments. The area is predominantly in agricultural use (grade 3a agricultural land quality) but was safeguarded to meet potential future development needs as identified through a new Local Plan.  Although brownfield sites have the potential to meet a significant amount of the housing requirement for Ellesmere Port there is uncertainty about how quickly they will come forward. The Ledsham Road site would deliver lower density development than that on land within the town and have the potential to attract new residents to the area. A comprehensively planned approach will be required for the development of the site in line with an agreed development brief.

5.33 There is the opportunity to support the tourist offer with links to the Waterways Museum, as well as the general offer for tourists visiting Ellesmere Port. The National Waterways Museum is located in the Ellesmere Port Docks Conservation Area.

5.34 The Local Economic Assessment identifies that wage levels in Ellesmere Port are high compared to the regional average. It identifies that the area retains strengths in manufacturing even though half of the workforce has been lost over the last decade. The policy supports ongoing employment growth in Ellesmere Port. In line with the SRF, the policy identifies the potential for continued investment by existing businesses and new developments in specific growth sectors of the economy, in particular environmental technology and energy generation, specialist chemicals, automotive, retail, tourism and leisure, ports and logistics and education. Proposals for new employment development should optimise the use of ports and waterways, whilst at the same time protecting their integrity for biodiversity.

5.35 The SRF identifies key development opportunities in the Eastern Employment Zone, comprising the three key areas of New Bridge Road, Stanlow and Ince Park.

5.36 The New Bridge Road area represents a significant opportunity for new employment development, given there are a number of cleared sites ready for redevelopment. An Area Development Framework has been prepared to encourage future investment to the area. It proposes a ‘buffer zone’ of high quality employment development between the M53 to the west and the area of Stanlow to the east which is more industrial in nature. Improvements to the highway network with a new link road to the A5117 set out in Policy ‘STRAT 10 Transport and accessibility’ will assist the development of this area and potentially unlock further development opportunities.

5.37 Within Stanlow, the Essar group have recently acquired land and propose to invest in the region of £300 million. The 'Employment Land Study Update' (2013) identified the need for a clearer understanding of what land is available to accommodate new development. This will be taken forward through the Local Plan (Part Two) Land Allocations and Detailed Policies Plan.

5.38 Ince Park is an extant planning commitment at Ince Marshes to the east of Ellesmere Port. The site has a consent for a 95MW energy from waste facility together with the development of a multi-modal resource recovery park, comprising an integrated waste management facility and environmental technologies complex. It is a regionally significant proposal for the development of the UK's largest multi-modal Resource Recovery Park and Energy from Waste facility. The site has the potential to create over 1,000 jobs and will deliver £500 million of investment in the North West of England. It will also produce more than 110MW or renewable and low carbon heat and electricity. In relation to Ince Park this policy should be read alongside policies ‘ECON 1 Economic growth, employment and enterprise’ and ‘ENV 8 Managing waste’.

5.39 Land at Hooton Park is a strategic employment site located between the M53 motorway and the Manchester Ship Canal. It is the location of the GM Vauxhall Motor works. As such, the policy supports the continued prosperity and competitiveness of the motor plant. It recognises the economic growth potential of the area in connection with advanced manufacturing and the automotive industry. The policy allows for individual development plots within this area to be developed for employment uses, which would lead to the creation of new jobs and economic benefits for the borough and wider sub-region.

5.40 Due to the proximity of Cheshire Oaks the town centre fulfils a local shopping function primarily based on food shopping but has a range of other town centre uses. The 'Cheshire Retail Study' has identified a limited need for additional food retailing that should be directed to the town centre in line with policy ‘ECON 2 Town centres’ and schemes should assist the regeneration of the town centre.

5.41 Development proposals in Ellesmere Port should include measures to address any environmental issues raised by development adjacent to the Mersey Estuary SPA/Ramsar site and on nationally and internationally important sites. Proposals should not have any unacceptable impact on the area's national and internationally designated sites, environmentally sensitive areas. This includes safeguarding of supporting habitat for the bird species protected by international designations.

5.42 Further modelling of the Ellesmere Port wastewater treatment facility will be required to assess the impact of future development. Appropriate infrastructure improvements should be provided where necessary to avoid any adverse impacts on water quality.

5.43 Development in Ellesmere Port is not likely to be significantly affected by flood risk. However, any development alongside the Manchester Ship Canal could be at risk if the structure were to fail. There are also localised areas of flood risk around Stanlow and Ince. In line with the recommendations from the Strategic Flood Risk Assessment (SFRA), additional flood risk assessments may be required for development proposals coming forward in this area. The impact of drainage from new development on water quality should be carefully considered as proposals are brought forward. The Ellesmere Port waste water treatment facility has capacity until 2015. Further assessment and modelling will be required to assess the impact of new development proposed to avoid any adverse impact on water quality.

5.44 There is an existing Air Quality Management Area on the A5032 Whitby Road/Station Road in Ellesmere Port. Increased transportation as a result of new development could exacerbate vehicular emissions in this area. New development should consider air quality and further industrial development which will be subject to strict controls to ensure that air quality is not a danger to public health under other legislation.

5.45 The Council will support the identification of more locally specific policies and proposals through the Local Plan (Part Two) Land Allocations and Detailed Policies Plan.

STRAT 5 Northwich

Explanation

5.46 Northwich is defined as the town of Northwich and adjacent settlements of Anderton, Barnton, Davenham, Hartford, Lostock Gralam, Lower Marston, Lower Wincham, Rudheath and Weaverham.

5.47 The level of development proposed reflects the potential of previously developed land to meet future housing requirements and the transformational proposals for Northwich town centre bringing about a step change improvement to the shopping and leisure offer.  Development requirements can be accommodated within the Northwich area without the need to release Green Belt.

5.48 ‘Northwich Riverside’ has been developed by Cheshire West and Chester Council and the Weaver Valley Partnership to support the range of projects currently underway to regenerate the town (formerly known as Northwich Vision). It encompasses all Council and Weaver Valley schemes such as the Winnington and Wincham Urban Villages, Barons Quay redevelopment, the Memorial Court entertainment and leisure venue and the Lion Salt Works restoration. The Riverside project also includes public realm and highway improvements.

5.49 The Barons Quay development site represents a significant opportunity for the regeneration of Northwich Town Centre, public realm and environmental improvements and an improved and expanded retail offer within the town. Planning permission has been secured for Barons Quay which includes the construction of a comprehensive leisure and retail-led mixed-use development totalling up to 40,000m2 with associated highways and public realm improvements.

5.50 The Winnington Urban Village site is predominantly vacant, previously developed land which lies to the west of Northwich Town Centre. The site consists of a number of parcels of land most of which are vacant sites within a former industrial complex. 

5.51 The site has planning approval for 1,200 dwellings, commercial (B1, B2 and B8 uses) retail, leisure and community facilities, primary school, open space, landscaping and associated infrastructure. The Urban Village development offers a significant opportunity for the regeneration and urban renaissance of Northwich to complement the objectives of the Northwich Riverside project as well as remediation of a derelict and redundant site.

5.52 The Wincham Urban Village site offers an opportunity to contribute significantly to the regeneration of Northwich through the provision of a mixed land use scheme including up to 950 dwellings with sustainability benefits such as reduced reliance on the car through the formation of pedestrian and cycle links from the ‘village centre’, creation of pedestrian, cycle and bus links to the existing schools and employment areas and to nearby retail centres and the removal of existing undesirable land uses and remediation of contaminated land.

5.53 The 'Employment Land Study Update' (2013) identifies that Northwich has a good balance of employment sites and land suitable for a range of sectors. Gadbrook Business Park is an established employment area providing facilities for a diverse range of business users. It is designated as a Business Improvement District and various initiatives aim to enhance the quality and trading environment of the site. Local Plan policy therefore protects the site for continued employment use.

5.54 Northwich benefits from excellent transport links and proximity to the M6 and national motorway network. Proximity to Manchester and Liverpool John Lennon Airports also provide further economic opportunities. The 'Employment Land Study Update' indicates that whilst the borough has a good range of employment sites across most market segments, there are some sectors (e.g. warehousing and distribution) where sites are more limited. It suggests within the Northwich area, there is a need for 30ha of employment land allocations to 2030 to support economic growth in the medium to long term for a range of office, industrial and warehousing/distribution uses. Sites for new employment development will be identified through the Local Plan (Part Two) Land Allocations and Detailed Policies Plan or neighbourhood plan.

5.55 Northwich has been identified specifically through the outcomes of the West Cheshire Strategic Flood Risk Assessment (SFRA) as an area that is both at risk of flooding and part of a large scale regeneration programme. An Area Flood Risk Assessment (AFRA) for Northwich Town Centre was finalised in February 2009. In addition to guidance provided within national policy and the West Cheshire SFRA, the AFRA should be used to provide a strategic and holistic approach to managing the flood risk in Northwich town centre.

STRAT 6 Winsford

Explanation

5.56 The level of new housing in Winsford will help to support regeneration, especially of the town centre that has been in decline. The Winsford Neighbourhood Plan is at an advanced stage of preparation and the local community have highlighted that the key issue is the creation of a strong and vibrant town centre.

5.57 Winsford town centre is under-performing and has an increasing number of vacant retail units which threaten to further reduce the performance and attractiveness of the town centre. In order to reverse the decline, improvements to the town centre are needed to ensure it offers retailers a modern environment in which to operate and visitors an attractive environment in which to shop. The Cheshire Retail Study Update identified an immediate need for a new supermarket in the town and there is the opportunity for this to act as a catalyst for town centre improvements. It is vital that this investment in further convenience floorspace takes place within the town centre to support its regeneration and future vitality and viability.

5.58 The Station Quarter Urban Extension offers the opportunity to deliver 1000 high quality new homes in a sustainable location within walking distance of the town centre and key services and facilities. Development of the site can also facilitate improvements to the railway station and potentially increase public access between the station and the town centre by public transport, cycle and walking. In Winsford, the regeneration of the waterfront, making better use of the Flashes as a recreational resource and addressing the decline of the town centre continue to be priorities which have been incorporated within the policies of the draft Winsford Neighbourhood Plan. Public access to the Flashes in the form of new open space, leisure routes for pedestrians and cyclists and play facilities will be significantly increased.  Delivery of the site also offers the potential for a new local centre and integration with existing communities by providing physical linkages and shared facilities. The site is also identified as a potential housing allocation in the emerging Winsford Neighbourhood Development Plan.

5.59 Winsford Industrial Estate employs approximately 3,000 people in over 120 businesses operating in a range of sectors including logistics and warehousing, automotive, pharmaceuticals, chemicals, energy, environmental technology and professional services. The industrial estate is designated a Business Improvement District. The 'Employment Land Study' identifies that there is a good balance of land/sites in Winsford to meet office and industrial needs. It suggests that to meet employment needs during the Plan period, there is a need for an additional 35ha of employment land allocations. The policy recognises the need to protect these successful sites, and allows for further expansion to meet the additional employment land need. The expansion of Woodford Park Industrial Estate will be assessed through the Neighbourhood Plan or the Local Plan (Part Two) Land Allocations and Detailed Policies Plan.

5.60 Winsford has been identified specifically through the outcomes of the 'West Cheshire Strategic Flood Risk Assessment' (SFRA) as an area that is both at risk of flooding and part of a waterfront regeneration programme.  An Area Flood Risk Assessment (AFRA) for the Waterfront has been prepared. In addition to guidance provided within national policy and the West Cheshire SFRA, the AFRA should be used to provide a strategic and holistic approach to managing the flood risk on sites along the Flashes, River Weaver and Weaver Navigation. 

STRAT 7 Middlewich

Explanation

5.61 Middlewich falls within Cheshire East but its built up area is tightly enclosed to the east, west and north by the borough boundary with Cheshire West and Chester. Land which lies within Cheshire West and Chester adjoining the built up extent of Middlewich could accommodate development consistent with the town's sustainable development.

5.62 Cheshire East Council’s Draft Local Plan (December 2012) identified Middlewich as a key service centre. Some future development may be justified on land within Cheshire West and Chester.  The policy therefore provides a reciprocal policy in Cheshire West and Chester's Local Plan. It builds upon ongoing close and effective cross-boundary working between the two councils, including through the Weaver Valley Regeneration Board, established to drive forward the regeneration and sustainable growth of the mid-Cheshire towns of Northwich, Winsford and Middlewich.

5.63 The development envisaged could include both housing and employment-related uses.

5.64 The A54 between M6 Junction 18 and Winsford suffers from peak-time congestion and therefore, in exploring opportunities for longer-term sustainable growth within and around the mid-Cheshire towns, improvements to this route will need to be investigated.  Any longer-term development opportunities would be considered and tested through the next full iteration of the Council’s Local Plan. This policy provides a clear commitment to ongoing positive co-operation between the two councils in planning for this area.

STRAT 8 Rural area

Explanation

5.65 The borough has an extensive rural area with numerous settlements ranging from market towns to small hamlets. The network of distinct rural settlements and the countryside in between contributes heavily to the attractiveness of the borough as a whole. Many rural residents find employment in towns and cities both within Cheshire West and beyond. Issues identified by the Council include the rural population ageing faster than in the urban areas and rural housing being relatively unaffordable.

5.66 The Plan aims to support thriving rural communities whilst protecting the intrinsic character and beauty of the countryside. Delivery of new development in particular housing, will be directed to the most sustainable locations in the rural area identified as key service centres. The level of housing development in a key service centre reflects the range of services, facilities, constraints and opportunities for further development of the settlement (see 'Key Service Centres Background Paper'). Where a key service centre is constrained by Green Belt the level of development reflects the ability of the settlement to accommodate new development without Green Belt release. The housing targets and policies for key and local service centres are not intended to constrain any infill (the filling of a small gap, up to two dwellings, in an otherwise built up frontage in a recognised settlement) or redevelopment opportunities. The approach of the Plan to development in the rural area aims to strike a balance between allowing for the managed growth of rural towns and key settlements whilst taking account of the overall Plan strategy to concentrate most new development in the borough's four urban areas.

5.67 Beyond the key service centres in the remainder of the rural area there are many smaller settlements, many of them washed over by Green Belt, which have a lower level of services and access to public transport but could acceptably accommodate some small-scale development.  These settlements act as local service centres and will be identified through the Local Plan (Part Two) Land Allocations and Detailed Policies Plan. The Plan does not intend to impose levels of development on these local service centres as it is considered that the local community is best placed to understand the needs of its communities in terms of supporting local services or meeting a specific housing need through neighbourhood plans and other mechanism including Community Right to Build Orders and rural exception housing. It is not the intention of the policy to allow development in unsustainable locations therefore for a settlement to be identified as a local service centre there will need to be an adequate level of existing services and some access to public transport.

5.68 The Policy makes provision for at least 4,200 dwellings in the rural area, of which 2,300 will be in the key service centres.  Housing completions and commitments as at 1 April 2014 are as follows:

5.69 Completions and commitments for the whole of the rural area amount to 4,175 dwellings, therefore there is only a very limited amount of additional housing to be provided.  The Council anticipates a housing capacity of 682 dwellings from small sites and a further potential capacity identified through the SHLAA of 404 dwellings which will mean there will be little if any need for additional allocations to be made in the rural area.

5.70 Development in rural settlements, particularly extensions to the built form of a settlement, should be of a scale and design that respects the character and rural setting of a settlement.  Communities, through neighbourhood plans and Village Design Statements, will be encouraged to identify those features that contribute to character.

5.71 To help support the rural economy and sustainable communities the retention and development of local services and community facilities, such as village halls and public houses will be supported.

5.72 The 'Rural Workspace Study' (BE Group 2009) identified a lack of available industrial units across the rural area and small scale workshops. The 'Employment Land Study Update' identifies a limited amount of land remaining for employment development in the rural area for local office/industrial use, primarily at Chowley Oak, Tattenhall and Hampton Heath, Malpas. It proposes there is a need for an additional 10ha of employment land to 2030. The policy therefore allows for the small scale expansion of existing employment sites within or on the edge of key service centres that is of a complimentary scale and type consistent with the character of the rural location. These sites will be identified through the Local Plan (Part Two) Land Allocations and Detailed Policies Plan or through neighbourhood plans.

STRAT 9 Green Belt and countryside

Explanation

5.73 The rural area of Cheshire West and Chester and the high quality of its landscape and environment is recognised as a key asset and is highly valued by the borough’s residents The quality of the environment enables Cheshire West and Chester to attract a highly skilled workforce, businesses and visitors. The policy restricts new development to that which requires a rural location.  The Council will identify settlement boundaries for the four urban areas, key service centres and local service centres through the Local Plan (Part Two) Land Allocations and Detailed Policies Plan.  Where there is a need to accommodate development on the edge of a settlement then the boundary will be drawn to reflect this.  Land beyond these settlement boundaries will be classed as countryside and subject to the requirements of Policy STRAT 9.  Until the Local Plan (Part Two) Land Allocations and Detailed Policies Plan has been adopted the retained policies in the Chester District Local Plan, Ellesmere Port and Neston Local Plan and Vale Royal Local Plan relating to settlement boundaries and development beyond the existing built form of settlements will continue to operate.

5.74 The policy seeks to support farming and forestry operations as well as rural diversification that is sensitive to its rural location.  The Council will encourage the re-use of rural buildings particularly for economic purposes such as rural offices or tourism accommodation.  There are many existing rural businesses who may seek to expand their premises and sensitive expansion schemes will be supported.  Additional guidance on the types of development permitted in the countryside will be provided in  of the Local Plan (Part Two) Land Allocations and Detailed Policies Plan.

5.75 Forty-two percent of the borough is classified as Green Belt with Chester, Ellesmere Port and Northwich either encompassed or adjoining the Green Belt. The key service centres of Cuddington and Sandiway, Frodsham, Helsby and Neston and Parkgate are inset within the Green Belt although there are a large number of the smaller rural settlements that are washed over by Green Belt. There are a  number of smaller settlements and employment sites that are currently inset in the Green Belt and this position will be reassessed in the Local Plan (Part Two) Land Allocations and Detailed Policies Plan. The extent of Green Belt in Cheshire West and Chester is shown on the Key Diagram and any changes have been identified through changes to the Policies Map in Appendix B ‘Changes to Policies Map’.

5.76 National planning policy allows for amendments to Green Belt boundaries through Local Plans in exceptional circumstances.  A key focus of the Plan’s strategy is to channel the majority of new development towards the main urban areas. In order to meet future development needs to 2030 and to promote sustainable patterns of development, it has been identified that only in the case of Chester are there exceptional circumstances to amend the Green Belt boundary.

5.77 In line with national planning policy, inappropriate development is by definition, harmful to the Green Belt and should not be allowed except in very special circumstances. The construction of new buildings within the Green Belt is considered inappropriate, however exceptions to this are identified in the National Planning Policy Framework. Exceptions allow for the following development, providing they preserve the openness of land and purposes of including it within the Green Belt;

• Buildings for agriculture/forestry
• Outdoor sport and recreation
• Replacement buildings
• Limited infilling in villages
• Limited affordable housing for local community needs
• Limited infilling or partial redevelopment of previously developed land
• Mineral development
• Engineering operations
• Local transport infrastructure
• Re-use of buildings that are of a permanent and substantial construction
• Development brought forward under a Community Right to Build Order.

5.78 Across the borough there are a number of large operations that are identified as Major Developed Sites in the Green Belt including the Countess of Chester Health Park, Urenco Capenhurst, Marley Tile Works, Delamere and Chester Zoo. The NPPF no longer uses this term but sets out that limited infilling or the partial or complete redevelopment of all brownfield land (excluding temporary buildings) can be considered appropriate where there is no greater impact on the openness.  Policies relating to Major Developed Sites will be reviewed through the Local Plan (Part Two) Land Allocations and Detailed Policies Plan.

STRAT 10 Transport and accessibility

Explanation

5.79 The Cheshire West and Chester Local Transport Plan sets out the integrated transport strategy for the borough.  It includes the Council's objectives, policies and priorities for transport, and the Local Plan is a key tool in helping to achieve these.  The Local Transport Plan identifies a number of priority goals and objectives for transport, many of which form key objectives for the Local Plan. 

5.80 The Local Plan will play an important role in delivering and promoting sustainable travel choices and encouraging journeys to be made in more sustainable ways wherever possible, recognising that transport choices will vary between our rural and urban areas.  The policies in the Plan directs development to accessible places that can benefit from existing transport networks, services and facilities, helping to reduce the need for travel.  Reducing travel distances and encouraging walking and cycling will also promote healthy communities and help to reduce transport congestion and emissions.

5.81 The Council has guidance on thresholds for travel plans, transport assessments and transport statements. Transport assessments will be required in all developments that generate significant amounts of movement.  In the case of smaller scale developments for which a transport assessment is not required, it may be necessary to produce a transport statement alongside a planning application.  Information on when assessments will be required and what they should contain can be found in the Department for Transport document 'Guidance on Transport Assessment' (2007).

5.82 Where new development generates the need for enhancements to the local transport network, planning obligations will be sought to fund the necessary works.  Larger scale infrastructure which is identified as being required through the Council's Infrastructure Delivery Plan may be funded through the Community Infrastructure Levy (CIL).

5.83 Developments should ensure that footpaths and cycle ways are included as an integral part of the design.  Safe and convenient routes should be provided which link between main buildings and the surrounding local area and facilities.  Measures to ensure safety of pedestrians include crossings, lighting and good overlooking of footways.

5.84 Requirements for parking in relation to new development are set out in the Council's parking standards.  These standards are currently applied across the whole of the borough, with the exception of the urban area of Chester, where the Supplementary Planning Guidance document 'Parking Provision within Developments in Chester' is applied. The Council will prepare a single supplementary planning document for the borough which brings together the requirements for different areas, in due course.

5.85 The Cycling Strategy sets out the Council's plans and proposals to make cycling easier, cheaper, safer, attractive and more convenient over the next 15 years.  It sets out standards for cycle parking in new developments. An aim of the strategy is to ensure that all new development and housing that is built close to our existing cycle networks is linked to the network, and that new buildings have suitable cycle facilities. In line with actions set out in the Council’s Cycling Strategy, planning obligations and conditions will be used to extend and improve access to local cycle and pedestrian networks and to make sure that new developments possess a high standard of facilities for cyclists.

5.86 Disused transport corridors will be safeguarded for future transport use, including rail and other guided public transport, busway, cycleway, footway or an all-purpose road.  In the interim, recreational and other uses may be allowed provided they do not preclude eventual re-use for transport purposes. This policy applies to sites of former railway stations, sidings etc, as well as to the alignment of the line. Such areas can provide essential space for interchanges, car parking, or other facilities associated with the new transport route. To cope with the anticipated growth in rail freight, former railway land alongside operational rail lines may be needed to accommodate new sidings and transshipment facilities.

5.87 As part of the background work on the Local Plan, transport modelling and assessments have been undertaken to help predict the potential impact of proposed development on the transport network.  This work will help to identify where additional infrastructure will be required, and is feeding into broader transport studies, such as Chester Transport Strategy.  The Infrastructure Delivery Plan will include a list of required transport interventions which will be subject to periodic review.

5.88 The policy identifies a number of transport schemes that will be brought forward by the Council. The Chester Transport Strategy will include a multi-modal and integrated package of schemes to improve accessibility to the city centre.  A new bus interchange at Gorse Stacks is identified on the Policies Map. The Transport Strategy will support improvements to park and ride facilities around the city. A longer term project is the Chester Western Relief Road, the route of which is safeguarded. Discussions are ongoing with bodies in North East Wales as to how this scheme could fit into wider proposals to improve access around Broughton in Flintshire through a Hawarden Airport Eastern Link Road.

5.89 The New Bridge Road / A5117 link road, as shown on the Policies Map, will significantly improve access and enable employment to come forward for development. This will help to deliver the aspirations set out in Policy ‘STRAT 4 Ellesmere Port’ in terms of delivering substantial economic growth in the Ellesmere Port area.

5.90 Funding for major transport schemes will come from a variety of sources including developer contributions/CIL and, for major schemes, the Cheshire and Warrington Local Enterprise Partnership (LEP).  A Cheshire and Warrington Local Transport Body (LTB) has been established to assess and prioritise major schemes for the sub region, to provide a basis for prioritising and allocating devolved Department for Transport major transport scheme funding.

5.91 Improving connectivity between West Cheshire and surrounding areas is a goal of the LTP.  Cheshire West and Chester has strong links with neighbouring areas, in particular Liverpool, Wirral, Manchester, North East Wales and Cheshire East.  Links to Manchester and Liverpool Airports, Port of Liverpool and major rail gateways such as Crewe and Chester stations are very important to the borough.  There are a number of planned or proposed schemes to improve transport linkages in the wider area that are either out of the borough or beyond the control of the Council that have the potential to directly benefit people who live, work, and visit the borough, and as such will be supported:

• M53 motorway and M56 improvements
• A54 – M6 corridor
• A55 / A483 improvements
• North East Wales Area Based Transport Strategy and A55 / A494 corridor improvements
• Improved rail access to Manchester Airport
• Reinstatement of the Halton Curve for passenger services
• Northern Hub rail improvements
• Crewe – Holyhead Electrification
• Electrification of Chester – Warrington/Manchester railway line
• Electrification of Wrexham – Bidston railway line
• Re-doubling  of the Wrexham – Chester railway line
• Re-opening of Sandbach to Northwich line to passenger traffic including re-opening Middlewich Station.

5.92 As currently proposed, the line of High Speed 2 (HS2) passes through the borough.  HS2 could have significant benefits for the sub region in terms of improved linkages to London and beyond, both directly and through freeing up capacity on the West Coast Main Line.  Potential benefits for the borough could include the opportunity to create better rail links to Manchester airport.

5.93 More locally, funding has been secured through the Government’s Local Sustainable Transport Fund for the ‘Connect to Jobs’ scheme.  This is a package of measures aimed at improving access to key travel to work corridors where there are both existing and future job opportunities. By making best use of existing rail, bus and cycle networks and improving access to these through a package of interventions, the aim is to encourage a reduction in car dependency and a more sustainable approach to journeys to work and training opportunities. This will have the added advantage of benefiting our visitor economy.

5.94 The key travel to work corridors covered by the scheme are:

• the Chester – Ellesmere Port – Wirral – Merseyside corridor (to include the Wirral Merseyrail line).
• links between Chester and Ellesmere Port and the Deeside Enterprise Zone in Flintshire.

STRAT 11 Infrastructure

Explanation

5.95 Cheshire West and Chester Council supports investment in new infrastructure, be that at a strategic level which serves the whole of the borough and beyond or at a local level serving our communities. It adopts a positive approach towards the provision of new infrastructure facilities and services which may be required to deal with planned future growth as well as the development of alternative delivery methods, changing expectations and technologies; and recognises that in some instances this will require collaborative  cross boundary working to deliver improvements.

5.96 The protection and enhancement of existing facilities also has an important role to play particularly in rural areas where the loss of, its post offices, schools, pubs, village shops etc or failure to invest in improved facilities and new technologies such as high speed broadband can have a direct impact upon the quality of life of residents.

5.97 To assist with the delivery of infrastructure improvements the Council aims to ensure that new development provides for the infrastructure, facilities, amenities and other planning benefits which are necessary to support and serve it, and to mitigate any direct loss or impact to the local area which may result from the development.

5.98 Such contributions will be secured through a variety of means, including by planning conditions and section 106 legal agreements, in particular those requiring local mitigation based on a direct impact. Such provision will normally be expected to be provided by the developer through on-site works or the design of the development, but on occasion it may be necessary for developers to contribute to off-site works either directly or in the form of a financial contribution. Appropriate planning conditions may be used to secure the delivery of any infrastructure requirements in a timely manner.

5.99 Contributions may also be secured by means of a Community Infrastructure Levy (CIL) which the Council is proposing to introduce, where contributions from a number of developments may be pooled to address a cumulative impact. Whilst it is intended that the cost and burden of new infrastructure in the borough will be shared by all new developments in proportion to their scale, CIL will be set at a level which recognises the difference in economic viability of different types of development and in different locations to avoid prejudicing future development across the borough.

5.100 A list of infrastructure projects will be identified in the Council's Infrastructure Delivery Plan and projects prioritised to ensure the delivery of critical infrastructure in the first instance ie that which would be required by regulation without which development would not be possible, usually to ensure adequate provision of essential utilities, facilities, water management and safe access for the development. The Infrastructure Delivery Plan will be updated on a regular basis and provide the mechanism by which infrastructure requirements and their relative priority are identified by Cheshire West and Chester Council in association with local communities and delivery partners.

5.101 The definition of infrastructure, facilities and services is wide ranging and listed below is an indication of the type of uses covered. This list is not intended to be exhaustive, and will not all be delivered through CIL: