ns&oc planning support statement

4. PLANNING SUPPORT STATEMENT NORTH SPROWSTON AND OLD CATTON

OUTLINE PLANNING APPLICATION

OCTOBER 2012

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CONTENTS

1 Introduction 2

2 Context 5

3 The Proposed Development 9

4 Planning and Policy Context 12

5 Site Investigations 23

6 Planning Policy Evaluation: Principle of Development 32

7 Planning Policy Evaluation: Infrastructure Requirements 37

8 Planning Policy Evaluation: Design and Impact of Development 47

9 Summary and Conclusions 59

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1. INTRODUCTION This Planning Statement has been prepared in support of an Outline Planning Application submitted to Broadland District Council (BDC) for land controlled by Beyond Green Developments (BGD), for a residential-led mixed-use development of up to 3,520 dwellings on land to the north east of Norwich between the A1151 Wroxham Road and the unclassified Buxton/Spixworth Road. For the purposes of the planning application the development is known as North Sprowston and Old Catton (NS&OC).

In summary, consent is being sought for the following development:

• Up to 3,520 dwellings; • Up to 16,800m2 of business space and up to 8,800m2 retail space distributed between a local centre with

the potential to grow to a district centre and four secondary neighbourhood centres; • Sites for two two-form entry primary schools (up to 5,000m2), plus up to a further 2,000m2 community

space including two community halls, a health centre and library; • Up to 1,000m2 of hotel development; • 82.5ha of green space including up to 20.1ha of play and recreational space and at least 31.3ha of new and

retained natural and semi-natural space, and the dedication of Beeston Park as a major new public park; • An energy centre and very-low-carbon decentralised energy network, including an energy centre of up to

1,500m2; • Associated highway infrastructure including a new east-west high street connecting the

Buxton/Spixworth and Wroxham Roads, forming a link in a potential orbital route between Broadland Business Park and Norwich Airport, and four accesses to the highway network.

The Planning Statement’s purpose is to set out the case for the proposal. It does this in the following ways:

• it summarises the context for the development of the site with reference to the Design and Access Statement;

• it summarises the public and stakeholder engagement that has taken place with reference to the Statement of Community involvement;

• it provides a description of the proposal; • it explains the planning policy context for the proposal; • it summarises the key findings of the technical work and investigations undertaken to support the

planning application;and • it explains the planning policy evaluation of the proposed development in terms of:

o the principle of development; o the infrastructure and other requirements for the development; and o the design and impact of the development.

1.1 Summary of Planning Application Submission Documents

The application documents submitted as part of the Outline Application comprise a covering letter, application form including certificates of ownership and copy of notice to owners/tenants, and the following plans and documents.

1.1.1 Plans and drawings The following plans and drawings are submitted in support of the application, both within the Design and Access Statement and as a separate A1 Plan Book:

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Drawing no. Drawing title Scale

NS&OC 101 Location Plan 1:5000 at A1

NS&OC 102 Land Ownership Plan 1:5000 at A1

NS&OC 103 Proposed Development Blocks Plan 1:5000 at A1

NS&OC 104 Proposed Key Areas Plan 1:5000 at A1

NS&OC 105 Proposed Transect Plan 1:5000 at A1

NS&OC 106 Proposed Maximum Building Heights Plan 1:5000 at A1

NS&OC 110 Proposed Street Hierarchy Plan 1:5000 at A1

NS&OC 111 Proposed Connections Plan 1:5000 at A1

NS&OC 112 Proposed Street Sections P1 & P3 1:500 at A1

NS&OC 113 Proposed Street Sections P2 & P4 1:500 at A1

NS&OC 114 Proposed Street Sections S1 & T3 1:500 at A1

NS&OC 115 Proposed Street Sections T1 & T2 1:500 at A1

NS&OC 120 Proposed Phasing Diagrams Not to scale

NS&OC 121 Proposed Phase 01 Plan 1:5000 at A1






NS&OC 130 Site Constraints Plan 1:5000 at A1

NS&OC 131 Proposed Landscape and Green Infrastructure Plan 1:5000 at A1

NS&OC 132 Proposed Recreation and Leisure Plan 1:5000 at A1

NS&OC 133 Proposed SUDs Plan 1:5000 at A1

NS&OC 134 Proposed Tree Removals Plan 1:5000 at A1

1.1.2 Statements A Design and Access Statement is submitted together with the following sixteen supporting statements:

1. Green Infrastructure Statement; 2. Statement of Community Involvement; 3. Sustainability Statement; 4. Planning Statement (this document); 5. Housing Statement; 6. Social and Economic Development Statement; 7. Safe and Inclusive Design Statement; 8. Lighting Statement;

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9. Public Transport Statement; 10. Framework Travel Plan; 11. Energy and Utilities Statement; 12. Water Statement; 13. Waste Management Statement; 14. Minerals Statement; 15. Airport Safeguarding Statement; and 16. Delivery and Management Statement.

1.1.3 Assessment reports The following Assessment reports are submitted in support of the application:

• Environmental Statement including the following chapters (with technical appendices): o Planning Policy and Land Use; o Ecology (including Report to Inform an Appropriate Assessment); o Landscape and Visual Impact; o Archaeology and Cultural Heritage; o Transport; o Air Quality; o Noise & Vibration; o Soil Conditions, Groundwater & Contamination; o Water Resources & Flood Risk; o Socioeconomic; o Cumulative Impacts; and o Residual Impacts & Conclusions.

• Transport Assessment Report; • Town Centre Uses Impact Assessment; and • Health Impact Assessment.

The proposed scope of the application documents was notified to Broadland District Council officers in July 2011 and comments were received via email; some changes to structure and scope have subsequently occurred. The Environmental Statement was subject to the normal, formal scoping exercise as set out in the ES itself. Regular meetings have been held between Beyond Green and BDC planning officers (as well as other stakeholders as required) to agree and refine the scope of technical work to support the planning application.

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2. CONTEXT

2.1 The location of the application site

Drawing NS&OC101 show the site location and boundary. The application site consists of 207 hectares of land under the ownership of a group of landowners comprising the Beeston Estate, Morley Agricultural Foundation, Alderman Norman Trust and Norfolk County Council (“the consortium”), and the Howard Family.

The site is bounded to the south by the established communities of Old Catton and Sprowston, to the east by Sprowston Manor Golf Club and to the west by Norwich Airport Industrial Estate. North of the site runs the proposed route of the Norwich Northern Distributor Road (NNDR), beyond which lies the village of Spixworth. Parts of the site fall within the four civil parishes of Sprowston, Old Catton, Beeston St Andrew, and Spixworth. The site benefits from its location on three radial routes to and from central Norwich: the A1151 Wroxham Road immediately east of the site; the B1150 North Walsham Road, which bisects it; and the unclassified Buxton/Spixworth Road to the west. Predominantly agricultural land, a significant part of the site comprises the locally designated historic parkland of Beeston Park.

2.2 Context for development

The site lies within the Old Catton, Sprowston, Rackheath and Thorpe St Andrew ‘Growth Triangle’ designated by the adopted Greater Norwich Development Partnership (GNDP) Joint Core Strategy (JCS) as a location for the development of at least 7,000 homes by 2026, rising to at least 10,000 after 2031, to help meet rising demand for housing in Norwich and Norfolk. The consortium was formed, and the scheme is proposed, with the express aim of responding to and delivering the JCS growth policy.

Following the February 2012 High Court Judgement in Heard vs Broadland parts of the JCS relating to the Growth Triangle and housing proposals in the Broadland part of the Norwich Policy Area were remitted for further consultative and Sustainability Appraisal Work. The sustainability appraisal work has been undertaken by independent consultants URS and is now complete. Following rigorous testing of three shortlisted options, the study concluded that the Old Catton, Sprowston, Rackheath and Thorpe St Andrew Growth Triangle remains the most appropriate option to accommodate major growth in the Norwich Policy Area (NPA) part of Broadland. This recommendation was agreed by Broadland, Norwich City and South Norfolk Councils and the parts of the JCS which were remitted by the High Court together with the Sustainability Appraisal have been published for public comment until early October.

Therefore, the applicants are requesting that Broadland Council do not determine this application until the outcome of the necessary further work on the JCS has been undertaken, waiving any expectation that the application will be determined within normal timeframes. This is likely to mean not until a revised draft strategy has been subjected to an Examination in Public by an independent Inspector and found ‘sound’.

Despite the current policy uncertainty, it is considered that the remitted policies for the Growth Triangle describe the most appropriate strategy to deliver growth in Broadland and Greater Norwich. The evidence base for growth to the north-east of Norwich and particularly for this site is very strong and the applicants are optimistic that when compared transparently with other alternative options, it will once again emerge as the preferred strategy. The documentation that supports this planning application provides a very strong case to demonstrate how a large part of the Growth Triangle can be delivered. On this basis, the decision has been taken to submit the planning application now to enable the Council to undertake the detailed assessment work that an application of this size will require, in order to continue the positive engagement

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with the community and stakeholders that has progressed to date, and to enable the application to be determined rapidly as soon as the policy position is once again clearly established.

A detailed explanation of the Planning Policy context for the development of the site is provided at Section 4, and an explanation of how the proposal accords with Planning Policy Section6, of this Statement.

2.3 Objectives for sustainable growth

The proposals for NS&OC, from inception to the submission of this outline application, have been formulated within the context of a set of guiding principles and objectives. Full details are contained within the DAS, but in summary the design process is “sustainability led” in that the overall aim of the scheme is to create an urban extension to Greater Norwich in which it is easy and attractive to live in environmentally sustainable ways while enjoying a high quality of life. The scheme design is founded on two sets of principles: first order design principles that are generic tenets of sustainable urbanism and describe Beyond Green’s underlying ethos; and context-sensitive design principles which are specific to this site and location.

In summary, first order design principles include:

• working at scale to shape sustainable behaviours because it is places rather than buildings that exert most influence on how we live;

• meeting housing and other social needs by responding to local evidence on the need for housing and services;

• using natural resources efficiently and responsibly; • making it easy to walk and cycle and reducing dependence on the private car through integrating

workplaces, shops and community facilities into the development alongside housing, making for a genuinely mixed-use environment; and

• integrating multifunctional green infrastructure for clean air, access to play and recreational, ecological enhancement, food production and climate change adaptation.

In summary, context sensitive design principles include:

• learning from the best of Norwich and Norfolk urbanism and applying these lessons to the challenges of contemporary sustainable design;

• enabling and supporting development across the Broadland ‘Growth Triangle’. NS&OC forms part of a bigger vision and strategy for the growth of Greater Norwich to the north east and must be alive to wider possibilities for the area in terms of strategic connections and movement corridors, mix of uses and strategic green and social infrastructure;c

• onnecting with Sprowston, Old Catton, and city and the countryside through maximising the number and extent of physical and transport connections off-site at both local and strategic levels;

• retaining what is best in the landscape and replacing what is lost with exceptional townscape. Wherever possible woodland plantations and mature trees will be retained and enhanced. Beeston Park and Red Hall Farm are superb landscape assets that will be celebrated, enhanced and opened to the public;

• protecting water resources and sensitive ecology. The proximity of the site to the Norfolk Broads and the high level of water stress in the area demand a comprehensive approach to capturing rainfall, ensuring run-off is managed onsite and protecting neighbouring communities from flooding. Species and habitats sensitive to development must be protected and enhanced where possible;

• welcoming through traffic and capturing passing trade; and • taking account of airport safeguarding constraints relating to the Public Safety Zone and aircraft noise.

Further detail on the design principles is contained in Chapter 4 of the DAS.

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2.4 Consultation

Throughout the process of preparing this planning application, engagement with a range of stakeholders and statutory consultees has taken place.

2.4.1 Community engagement The Statement of Community Engagement explains in detail the consultation process that has been undertaken. The following provides a summary.

The engagement process had four stages:

• Stage 1: key issues and opportunities (September 2009-May 2011): initial engagement to introduce Beyond Green and begin to develop a detailed understanding of the key issues and opportunities relating to NS&OC. This took the form of one-to-one meetings, briefings for local Parish Councils, a series of evening events with key specialist stakeholders and a cycle tour of Norwich with cycle interest groups and Beyond Green’s design team;

• Stage 2: community planning (June 2011-August 2011): this period saw the public launch and first events of Beyond Green’s formal community involvement programme, aiming to gather information locally and establish a series of key principles to inform the development of proposals for NS&OC. Events included three evening public exhibition and workshop events at St Cuthbert’s Church in Sprowston, public exhibitions at Sprowston Fete, Spixworth Fete and Old Catton Flower Show, a youth workshop and a 4-day programme of thematic workshops for specialist stakeholders;

• Stage 3: design review (September 2011-October 2011): following a summer working up strategies and plans, this stage of engagement provided the opportunity to review, test and further develop draft proposals for NS&OC. A series of events for community, public and specialist stakeholders included a 2-day public exhibition and workshops at Sprowston Parish Council offices, a 2-day programme of masterplanning and design workshops with specialist stakeholders, a site visit and review with the GNDP Design Review Panel, and a stakeholder forum;

• Stage 4: refinement of proposals (November 2011-July 2012): the final period for refinement of proposals, this initially constituted an internal review and consolidation of findings, followed by ongoing design and strategy refinement with regular feedback from pre-application discussions and a series of technical meetings and theme-specific workshops with specialist stakeholders.

The extensive Community Engagement Process has been central to the evolution of the proposal and has directly involved the design of the scheme in several ways, including:

• both the overall approach and key constituent elements of the green infrastructure strategy, including the designation of Beeston Park as a public park and the creation of a continuous productive landscape throughout the scheme;

• the treatment of the interface with the existing community of Sprowston at Church Lane South and in particular the allowance of future links via the Millennium Woodland;

• the proposed housing mix and particularly the emphasis on tenure diversification to create not just statutory ‘affordable’ housing but homes that a wide range of local people can afford to live in; and

• the traditional high street approach to the distribution retail and business space, creating a clear distinction with the offers of other centres in the vicinity.

2.4.2 Consultation with Relevant Technical Stakeholders A large amount of this dialogue has been associated with undertaking the technical studies which accompany this outline planning application. The organisations consulted as part of the pre-application process and preparation of this outline planning application include:

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• Norfolk County Council – Highways; • Norfolk County Council – Planning Obligations including Education; • Norfolk County Council – Drainage; • Anglian Water; • Environment Agency; • Historic Environment Service; • Natural England; • Broadland District Council Housing Department; • Broadland District Planning and Conservation Department; • Broadland District Council Leisure and Recreation; • Norwich Airport Ltd; • utility providers including EDF, BT Open Reach, National Grid; • Sport England; • Primary Care Trust; • Norfolk Wildlife Trust; and • the GNDP Green Infrastructure Group.

2.4.3 Dialogue with Town and Parish Councils There has been extensive dialogue with Sprowston Town and Old Catton and Spixworth Parish Councils throughout the process, including on matters that affect the statutory responsibilities of the Councils such as the provision and long-term management of play and recreational space. Beyond Green has also played a full part in developmental and consultative work undertaken by Sprowston Town Council in advance of the preparation of a possible future Neighbourhood Plan for the area, including altering development proposals around Church Lane South specifically to accommodate the possible aspirations of such a plan.

2.4.4 Meetings with Broadland District Council In addition to frequent ad hoc meetings on thematic technical and other issues as required, regular meetings with officers of Broadland District Council were held to review progress with the project and enable ongoing pre-application discussions from autumn 2011 until summer 2012, the period during which the application itself was being prepared.

It is intended that dialogue on the proposed development will continue with the Council and other consultees throughout the application process.

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3. THE PROPOSED DEVELOPMENT

3.1 Introduction

In response to the objectives set out above, and the findings from the consultation process described in Section 2, the NS&OC Planning Application proposes a residential led mixed use development on land to the north east of Norwich between the A1151 Wroxham Road and the unclassified Buxton/Spixworth Road for:

• up to 3,520 dwellings; • up to 16,800m2 of business space and up to 8,800m2 retail space distributed between a local centre with

the potential to grow to a district centre and four secondary neighbourhood centres; • sites for two two-form entry primary schools (up to 5,000m2), plus up to a further 2,000m2 community

space including twop community halls, a health centre and library; • up to 1,000m2 of hotel development; • 82.5ha of green space including up to 20.1ha of play and recreational space and at least 31.3ha of new and

retained natural and semi-natural space, and the dedication of Beeston Park as a major new public park; • an energy centre and very-low-carbon decentralised energy network, including an energy centre of up to

1,500m2; and • associated highway infrastructure including a new east-west high street connecting the Buxton/

Spixworth and Wroxham Roads, forming a link in a potential orbital route between Broadland Business Park and Norwich Airport, and four accesses to the highway network.

The current application is an Outline Planning Application, which reserves the details of all matters except for access for determination at a later date. This Outline Planning Application includes plans to indicate the broad parameters of the appearance, landscaping, layout and scale of the proposed development (as set out in the Design and Access Statement). Exact details of the “reserved matters” would be submitted via subsequent applications at a later date, and would be in accordance with the parameters as set out in this planning application, which it is anticipated would be secured by conditions attached to a grant of consent.

3.2 Access

The scheme will be accessed from each of the three radial routes running through or past the site, primary access points are:

• an access off the Wroxham Road opposite the current entrance to the Sprowston Manor golf course and hotel;

• diversion of the North Walsham Road to run through Main Square and then follow the current alignment of Church Lane north of the square, rejoining the current North Walsham Road at Red Hall Farm; and

• accesses off the Buxton/Spixworth Road.

Church Lane will remain closed to vehicular traffic where it enters the site to the south. Junction designs for all primary accesses are shown in the Transport Assessment Report.

3.3 Use

Table 1 below shows the indicative housing mix for the scheme based upon the parameter plans. A parametric approach will allow for the precise mix of unit sizes and types to be adjusted to reflect housing need, market conditions, the precise requirements of partners such as Registered Providers, and experience from earlier phases over the 15 – 20 year delivery timescale.

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Tenure/Type All Flats (bedrooms) Houses (bedrooms)

Total 1 2 3 1 2 3 4+

Market 67.0% 3% 7.0% 2.0% 0.0% 20.0% 37.0% 31.0% 100.0%

Social Rented 28.05% 21.0% 10.0% 0.0% 0.0% 33.0% 33.0% 3.0% 100.0%

Intermediate 4.95% 20.0% 13.0% 0.0% 0.0% 50.0% 17.0% 0.0% 100.0%

Total 100.0% 8.% 9% 2% 0.0% 25.0% 35.0% 21.0% 100.0%

Table 1: Proposed Housing mix

Table 2 sets out the indicative floor areas of the proposed non-residential uses (retail, employment and community facilities etc). The non-residential uses figures are aggregated across the site, and include uses in the proposed local centre and secondary neighbourhood centres.

Use Use Class Floorspace

Commercial e.g. small business incubator units and move on accommodation

B1 Up to 16,800m2 GIA

Retail and Service e.g. shops, financial and professional services, restaurants and cafes, drinking establishments, hot food takeaways

A1 – A5 Up to 8,800m2 GIA

Hotels and guesthouses C1 Up to 2 no. and 1,000m2 GIA

Two two-form entry Primary Schools D1 Up to 5,000m2 NIA

Community Uses e.g. two community halls, library, health centre, and up to five nurseries/creches.

D1 Up to 2,000m2 NIA

Energy Centre Sui generis Up to 1,500m2

Table 2: Indicative Floor Areas for Proposed Non-Residential Uses (local centre and secondary neighbourhood centres)

3.4 Green infrastructure, landscape and ecology

The approach to green infrastructure is one of abundant and continuous green. Multifunctional green spaces (for biodiversity, play, food production and climate change adaptation) varying in size and character are located throughout the development and linked by green routes. Smaller spaces, greens and pocket parks are to be found within the development with larger parks and recreation grounds on the fringes.

A total of 82.5ha of the application area is allocated to green space providing residents and local people with spaces for everyday use as well as opening up significant areas of historic parkland which are currently closed to the public and increasing access to the countryside on land with no existing public rights of way.

The key strategic features of the green infrastructure system are:

• Beeston Park as the main public park comprising 29.5ha of parkland north and south of Beeston Hall, framed by 13.6ha plantation.

• a new landscaped edge around the southern and western boundary of Beeston Park will allow the retention of existing bat habitat and provide 1.5ha of additional public space incorporating play space, walking routes, SuDS features and forest garden;

• a park south of Red Hall Farm including 5.2ha parkland framed by 2.1ha plantation. Strong emphasis on food and farming in the wider Red Hall Farm area including allotments and intensive food growing opportunities;

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• a linear park of 2.1ha along Beeston Lane linking Red Hall and Beeston Park, serving as a formal entrance to the park and enabling the character of the lane to be retained;

• a number of green routes identified on streets within the development. Main green routes along Old North Walsham Road, Beeston Lane and alongside Beeston Park will maintain bat commuting corridors; secondary routes linking green spaces within the development will provide wildlife corridors and pleasant, legible walking routes for local people. Features of green routes include: street tree planting, green roofs, green walls, front gardens, some landscaped edge and swales;

• at least 31.3ha of new and retained natural and semi-natural space in total, including significant parkland, managed woodland, wetland and potential for forest garden;

• over 15ha of multifunctional green spaces distributed throughout the development – parks, greens, play areas, SuDS, habitat and potential for community food growing areas;

• at least 1.8ha allotments and community gardens for food production identified within the application boundary plus an additional 1.2ha allotment space provided through the extension of existing Sprowston allotments;

• three public recreation grounds totalling 12.2ha; • smaller scale green spaces associated with each dwelling including gardens, green roofs, green walls and

balconies acting as urban microspaces for food growing, climate change adaptation and biodiversity; and • a Sustainable Drainage System (SuDS) based on existing natural catchment boundaries comprising

rainwater harvesting ring, attenuation basins including a water feature in Beeston Park, green roofs and permeable paving.

3.5 Conclusion

This section has provided a summary description of the proposed development. The Character Areas Plan P-004 and Green Infrastructure Plan P-009 show the proposed layout of the various uses within the site and the Design and Access Statement provides further explanation and justification of the structure, layout and land-use distribution and the design parameters for the proposed development. These will provide the framework for future applications for detailed design to be assessed against. The next section explains the planning policy context for the determination of the planning application.

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4. PLANNING AND POLICY CONTEXT

4.1 Introduction

This section provides information about the planning system and the relevant planning policies that relate to the current planning application. The purpose of this section is to provide the background information necessary to understand the planning context for the determination of the planning application. A detailed discussion of how the proposal can be assessed in terms of these planning policies is provided in the following section.

4.1.1 About planning policy Section 38 (6) of the Planning and Compulsory Purchase Act 2004 states that "If regard is to be had to the development plan for the purposes of any determination to be made under the Planning Acts the determination must be made in accordance with the plan unless material considerations indicate otherwise". The plan led system of Development Plans has the following hierarchical structure:

• National planning policy as set out in the new National Planning policy Framework; • Regional planning policy i.e. Regional Spatial Strategies (RSSs); • Local planning policy i.e. Local Development Frameworks (LDFs) and saved policies of Local Plans.

This hierarchical structure means that national planning policy sets out the general approach and strategic planning policies, which are translated into more detailed policies at the regional and then local level. The policies at each level must be in accordance with higher level strategic policies.

In addition to national, regional and local planning policy, further guidance on the interpretation and application of policy is provided by Circulars (for national policy), and by Supplementary Planning Documents and Guidance (SPDs and SPGs) (for local policy). Nationally accepted standards relating to planning and construction, such as the Code for Sustainable Homes, Building for Life and Lifetime Homes standards, also influence planning application requirements.

4.2 Policy Context

In this instance the development plan comprises the Regional Spatial Strategy for the East of England1 (adopted May 2008) (EEP), the Joint Core Strategy for Broadland, Norwich and South Norfolk (adopted in March 2011) (JCS), and the Broadland Replacement Local Plan (2006) Saved Policies (2009).

The government has advised local planning authorities of its intention to revoke Regional Strategies shortly and that this should be a material consideration in the determination of planning applications. The EEP is still relevant at the time of the application submission.

Parts of the adopted JCS relevant to this application (policies 9 and 10) have been remitted for further sustainability appraisal (SA) work following the High Court judgement in Heard vs Broadland (see below). This means that these policies have reverted to pre-submission stage of the plan making process. At this point in time they have limited weight as material considerations in the determination of the application.

Other material considerations relevant to the application comprise the Broadland Policy Statement on Determination of Housing Developments in Advance of the Emerging Local Plan (adopted June 2012), the

1 Government Office for the East of England, (2008)The East of England Plan. TSO.

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emerging development plan, Broadland District Council's supplementary planning documents, and community infrastructure levy (CIL) for the Greater Norwich Development Partnership (GNDP) area.

The emerging development plan comprises the Growth Triangle Area Action Plan, Development Management Policies and Site Allocations which together combine to form the new Local Plan for Broadland. In addition, national standards and recent statements of the Government are important and these are referred to below.

4.3 National Policy: the National Planning Policy Framework (NPPF)

The NPPF was published in March 2012 and condenses the policies formerly contained within Planning Policy Statements, Guidance and other supporting documents. It subsequently provides important guidance relevant to the determination of this application, particularly in relation to housing, transport, design, conservation, climate change and flood risk.

The degree of weight to be placed on the NPPF is dependent upon how up to date the adopted Local Plan is. Policies in the Local Plan should not be considered out-of-date simply because they were adopted prior to the publication of the NPPF (paragraph 211). For 12 months from the day of publication of the NPPF, full weight can be given to relevant policies adopted since 2004 even if there is a limited degree of conflict with the Framework. Following this 12-month period, due weight should be given to relevant policies in existing plans according to their degree of consistency with the NPPF (paragraph 214 – 215).

The JCS for Broadland, Norwich and South Norfolk was adopted in 2011, and the saved policies of the Broadland Replacement Local Plan were adopted in 2006. Setting aside the remitted policies of the JCS following the High Court ruling as explained below, it is considered that the policies contained within these two documents are up to date. Nevertheless, the policies contained within the NPPF are material considerations which should be taken into account in the consideration of this application.

4.3.1 Sustainable Development The central theme of the NPPF is the presumption in favour of sustainable development, described as the 'golden thread' running through both plan-making and decision-taking. Paragraph 14 states that development proposals that accord with the development plan should be approved without delay. Paragraph 15 states that all plans should be based upon the presumption in favour of sustainable development, with clear policies that will guide how the presumption should be applied locally.

In addition to the overarching theme of sustainable development, the following key areas of guidance contained in the NPPF are of particular importance to the development proposed by this application.

4.3.2 Core Principles At paragraph 17 the NPPF sets out a series of core planning principles which underpin plan-making and decision-taking. Inter alia, it encourages:

• the proactive support for sustainable economic development to deliver the homes, business and industrial units, infrastructure and thriving local places;

• mixed-use developments and multiple benefits from the use of land in urban and rural areas; • high-quality design and a good quality of amenity; • transition to a low carbon future in a changing climate, taking account of flood risk, and encouraging the

use of renewable sources; and • contributions to conserving and enhancing the natural environment and reducing pollution.

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4.3.3 Housing The NPPF requires local planning authorities to positively seek opportunities to meet the development needs of their area. Paragraph 47 sets out an obligation on local planning authorities to identify a five year supply of deliverable sites previously imposed by PPS3 (until it was replaced by the policies of the NPPF) and adds the requirement to provide an additional buffer of 5%. Local planning authorities with a 'record of persistent under delivery' of housing should increase the buffer to 20%.

Paragraph 49 stipulates that relevant local plan policies for the supply of housing should not be considered up-to-date if the local planning authority cannot demonstrate a five year supply of deliverable housing sites. The latest Annual Monitoring Report for the JCS authorities of Broadland, Norwich and South Norfolk published in December 2011 confirms this as jointly within the Norwich Policy Area there is only a 3.96 year housing land supply, although it should be made clear that the applicants are not seeking to rely on or exploit a housing land supply shortfall to justify the application proposals.

4.3.4 Transport The NPPF states that the transport system should give people choice about how they travel. The pattern of new development should facilitate the use of sustainable modes of transport, create safe and secure layouts which minimise conflicts between traffic and cyclists or pedestrians, and consider the needs of people with disabilities by all modes of transport.

At paragraph 32 the NPPF states that developments that generate significant amount of movement should be supported by a Transport Assessment. In particular, development should only be prevented or refused on transport grounds where the residual cumulative impacts of development are severe.

At paragraph 38 the NPPF states that larger scale residential developments should provide a mix of uses within walking distance.

4.3.5 Design The NPPF recognises that good design is a key aspect of sustainable development. At paragraph 58 it seeks to ensure that new development optimises the potential of the site to accommodate development, create and sustain an appropriate mix of uses (including incorporation of green and other public space as part of developments) and support local facilities and transport networks; new development should respond to local character and reflect the identity of local surroundings; it should also establish a strong sense of place, using streetscapes and buildings to create safe and accessible environments.

The NPPF states at paragraph 47 that housing densities should reflect local circumstances.

At paragraph 66 the NPPF expects applicants to take into account the views of those directly affected by their proposal in developing the design of the development. Proposals that can demonstrate this should be looked upon more favourably.

4.3.6 Natural and Historic Environment The NPPF requires the planning system to contribute to and enhance the natural and local environment by protecting and enhancing valued landscapes, and helping to improve biodiversity. In order to achieve this at paragraph 112 the NPPF states that, where significant development of agricultural land is demonstrated to be necessary, local planning authorities should seek to use areas of poorer quality land in preference to that of a higher quality.

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In relation to heritage assets, the NPPF requires local planning authorities to conserve them in a manner appropriate to their significance. In doing so, the desirability of new development in making a positive contribution to local character and distinctiveness should be taken into account (paragraph 126).

4.3.7 Climate Change and Flooding The NPPF recognises the role planning has to play in reducing the impacts of climate change. At paragraph 95 it states that new development should be planned in locations and ways which reduce greenhouse gas emissions.

In terms of flood risk, new development should be planned to avoid increased vulnerability, and should be made safe without increasing flood risk elsewhere (paragraph 100).

4.4 Regional Policy: the East of England Plan (2008)

The East of England Plan (EEP) identifies Norwich as a key centre for development and change (Policy SS3). In terms of housing in Broadland District, the EEP requires at least 12,200 dwellings to be constructed in Broadland District between 2001 and 2021 under Policy H1. Policy NR1 requires provision of 33,000 net additional dwellings in the period 2001 to 2021 in the Norwich Policy Area (NPA). The NPA covers the urban area of Norwich, the first ring of villages and Wymondham. Policy H1 seeks to promote the provision of accommodation that reflects demographic, housing and social needs.

Policy E1 sets an indicative target of a net increase of 35,000 jobs in the Greater Norwich area over the period 2001 to 2021. Policy E2 seeks to ensure that Local Development Documents allocate an adequate range of sites to accommodate the targets of Policy E1.

Other policies in the EEP cover climate change and set targets for new development. The preparation of Local Planning Policy documents by the Local Authorities must be in accordance with the policies of the East of England Plan.

4.5 Local Policy: the Joint Core Strategy for Broadland, Norwich and South Norfolk (JCS)

The three local authorities of Broadland, Norwich and South Norfolk adopted a Joint Core Strategy in March 2011, to interpret the policies of the East of England Plan and provide co-ordinated strategic planning guidance for delivering growth at the local level.

4.5.1 High Court challenge On 3 May 2011, the JCS local authorities received a legal challenge to the adoption of the JCS from the chairman of "Stop Norwich Urbanisation" on the basis of three claims. On 5 July 2011 the claimant issued an amendment which deleted one of the claims. The remaining two remained unchanged and a new claim was added. The two claims of relevance to this application are as follows:

• the adequacy of the Sustainability Appraisal in meeting European and National legal requirements, particularly in relation to the choice of spatial locations for the growth and to potential alternatives to policies in the JCS; and

• the major road link to Norwich needed to service the growth in the Broadland area at the heart of the Broadland part of the JCS was not assessed at all as part of the process.

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The case was heard by Mr Justice Ouseley at the High Court on 6 and 7 December 2011 and on 24 February 2012 he gave his ruling. In essence he concluded that, regarding claim number 1, the Sustainability Appraisal / Strategic Environmental Assessment (SA/SEA) carried out did not properly explain the alternatives to the North East Growth Triangle, which became the favoured option, or examine those alternatives in the same depth. He rejected claim number 2.

In light of this judgement the status of the affected policies is reduced and the GNDP Councils were required to remit the parts of the JCS affected by the ruling to pre-submission stage. The remitted parts of the JCS are the Growth Triangle, and housing proposals in the Broadland part of the Norwich Policy Area (NPA), both of which are of relevance to the development proposed by this application.

Following the judgement, independent consultants URS were appointed by the GNDP to undertake a Sustainability Appraisal of the growth options within the Broadland part of the NPA and this work is now complete. After rigorous testing of three shortlisted options, the study concluded that the Old Catton, Sprowston, Rackheath and Thorpe St Andrew Growth Triangle remains the most appropriate option to accommodate major growth in this area. This recommendation was agreed by Broadland, Norwich City and South Norfolk Councils and the parts of the JCS which were remitted by the High Court together with the Sustainability Appraisal have been published for public comment until early October 2012.

Despite the current policy uncertainty, the NS&OC proposals have been assessed against the remitted policies. They have been confirmed as appropriate by the URS sustainability appraisal work and they remain material considerations in the determination of the application until such time as the JCS is confirmed as sound or otherwise following an Examination in Public later this year.

4.5.2 JCS Policies The site is located within the NPA which is the focus for major growth and development in the Core Strategy Area. JCS Remitted Policy 9 provides the strategy for growth. As part of this strategy 7000 new dwellings are sought via an urban extension to the North East Growth Triangle, by 2026 with scope for continued growth to 10,000 dwellings afterwards. The boundary of the Growth Triangle is indicated on Figure 1 below.

Figure 1: the Growth Triangle

NEGT Boundary (indicated by the yellow border)

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Around 30 hectares of new business park space focussed on a full range of employment uses are also proposed for allocation around the Norwich Airport area (Remitted Policy 9). This location is within 5 kilometres of the centre of NS&OC.

A Northern Distributor Road (NDR) is proposed to provide strategic access to the growth triangle shown above under Policy 6. The JCS states that the complete delivery of this urban extension is dependent on implementation of the NDR, However, it acknowledges that there is scope for partial delivery, the precise extent of which is to be assessed through an Area Action Plan (AAP) (Remitted Policy 10). The Transport chapter of the ES (Chapter 8.0) explains the access strategy for NS&OC and demonstrates that appropriate access to the site can be delivered, taking account of the timeframe and expected impacts of the NDR and other ‘background’ development.

Remitted Policy 10 suggests that the new community will take the form of a series of inter-related new villages or quarters and should include the following items of relevance to this scheme:

• a district centre based around an accessible "High Street", including a new library, education and health facilities, in addition to new local centres;

• new pre-school provision of up to 6 new primary schools plus a new secondary school with an early phase to open as early as possible. To concentrate early provision, the early phases of development are expected to concentrate on family housing;

• new employment allocations for local needs; • retention of existing important green spaces and significant levels of heathland re-creation; • restoring and conserving historic parkland and important woodland; • Bus Rapid Transit to the City Centre; and • a new waste recycling centre.

A number of other JCS policies are also of relevance to the determination of this application:

• Policy 1 – Addressing climate change and protecting environmental assets • Policy 2 – Promoting good design • Policy 3 – Energy and water • Policy 4 – Housing delivery • Policy 5 – The economy • Policy 6 – Access and transportation

4.6 Local Policy: Broadland Replacement Local Plan (RLP) Saved Policies

A number of RLP Saved Policies were superseded by the JCS when it was adopted in March 2011 as they generally relate to more strategic matters and matters of principle covered in the JCS. The RLP proposals map identifies most of the site as countryside where policy GS1, for the restriction of development outside the settlement limits of the Norwich fringe, applies. Under policy GS1 development will normally be restricted unless it complies with a specific allocation and/or policy in the plan.

Some important landscape and heritage features within the site are covered by the following policies:

• ENV8 – Areas of Landscape Value; • ENV10 – Historic Parklands; and • ENV14 – Setting of Listed Buildings.

In addition to the above policies there is a suite of detailed planning policies which are applicable to the consideration of proposals for the development of the site. These include the following:

• GS1 – Restriction of development outside the settlement limits of the Norwich Fringe;

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• GS3 – General Considerations relating to new developments; • GS4 – Requirement for adequate infrastructure to serve development; • ENV2 – Layout and Design of Development; • ENV3 – Landscaping of Development; • ENV5 – Management of natural features and provision of compensating features for those lost through

development; • ENV10 – Historic Parklands; • ENV14 – Setting of Listed Buildings; • HOU6 – Housing density in estate scale developments; • TRA2 – Transport Assessments for Planning Applications; • TRA3 – Travel Plans; • TRA4 – Pedestrian Movement; • TRA5 – Cycle Movement; • TRA6 – Routes used by vulnerable users; • TRA7 – Developer contributions to public transport; • TRA8 – Parking Guidelines; • TRA10 – Airport public safety zones; • TRA13 – Access to main distributor routes; • TRA14 – Highway Safety; • RL2 – Provision of additional sports and recreational facilities; and • RL7 – New residential development and the provision of outdoor recreational space.

4.7 Material Considerations

4.7.1 Broadland Policy Statement on Determination of Housing Developments Promoted in Advance of the Emerging Local Plan This Policy Statement was adopted by Broadland District Council in June 2012. It is an interim policy document which gives clarity and transparency to consideration of planning applications before the adoption of the emerging Local Plan for Broadland. It explains some of the key considerations that might be classed as "material" and applied in the determination of applications for residential development, following the High Court judgement, and in accordance with the recently published National Planning Policy Framework.

The Statement applies 9 policy principles for the assessment of new housing development specifically in the NEGT area. These principles relate inter alia to scale of development, housing land supply, community gain, affordable housing. Of significance to the principle of development of this scheme is consideration number ii) which provides the framework by which proposals for development within the NEGT will be assessed. Consideration number ii) states: “[t]he site has been "short-listed" as a potential development site (or subsequently a "preferred option") in the Emerging Local Plan, and it can be demonstrated that planning permission would not unduly prejudice the plan-making process. Where undue prejudice would occur, or in the case of sites not "short-listed" or "preferred" there would have to be clear and compelling justification for the approval of any proposal.”

Policy consideration ii) is clearly relevant to the development of the application site due to its scale and location. The applicants are, therefore, asking Broadland Council not to determine the planning application until the spread of housing numbers in the Broadland part of the Norwich Policy Area has been reappraised through the SA and remitted sections of the JCS have been amended or confirmed as appropriate.

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Despite the current policy uncertainty, it is considered that the remitted policies for the Growth Triangle describe the most appropriate strategy to deliver growth in Broadland and Greater Norwich. The evidence base for growth to the north-east of Norwich and particularly for this site is very strong and has been reconfirmed by the further Sustainability Appraisal work undertaken by URS. The applicants are optimistic that it will once again emerge as the preferred strategy following an Examination in Public later this year.

4.7.2 Emerging Local Plan The policies of the Broadland Replacement Local Plan will eventually be replaced by Broadland District Council's new Local Plan. The Joint Core Strategy for Norwich City Council, South Norfolk District Council, and Broadland District Council was adopted in 2011 and is the first of a series of documents which will eventually combine to form the Local Plan for Broadland at the local level. In addition, once adopted the Local plan will supersede the interim Policy Statement on Determination of Housing Developments Promoted in Advance of the Emerging Local Plan. The component parts of the emerging Local Plan are as follows.

4.7.3 Growth Triangle Area Action Plan (AAP) The AAP will, once adopted, set out the broad layout and relationship of different land uses within the Growth Triangle as allocated in the JCS. Preparation of this document is still at a very early stage as the Council has not yet consulted on it, and its further preparation is on hold pending the outcome of the reappraised JCS as set out above. It can therefore be attributed little if any weight at this time.

Nevertheless, any proposals or development within this area should be broadly compatible with the Council's aspirations for the Growth Triangle. In the interim, Broadland District Council has produced a Framework Plan Study and a Growth Triangle Guide. The Framework Plan Study supports the production of the AAP. It provides a spatial portrait of the area and includes a series of indicative examples of potential distributions of land uses within the Growth Triangle, as well as a set of objectives which development in the Growth Triangle should help to meet. The Growth Triangle Guide provides relevant background knowledge to enable local residents to get involved in the future consultation processes.

As it stands the Study and Guide do not form the basis for adopted planning policy. Subsequently Broadland District Council expects that developers wishing to bring forward proposals for development within the Triangle engage in early discussions with the planning authority.

In preparing the proposals, and notwithstanding the very limited weight to be ascribed to the AAP given the its stage of preparation, applicants have considered carefully against the stated objectives for the Growth Triangle the implications of a consent being granted in advance of the AAP being prepared, and have discussed these matters with Broadland DC planning officers. As it is concerned with the sustainable development of the wider area, this consideration is set out in full in the Sustainability Statement. In summary, although there would inevitably be some prejudgement of matters that could otherwise be decided through an AAP, this is very limited in scope; whilst the proposed development would deliver significant early benefits in terms of the stated objectives for the Growth Triangle and is consistent with the likely need for some or all of the application site to be allocated for development under any plausible distribution of development across the wider Growth Triangle.

4.7.4 Combined Development Management Policies and Site Allocations Broadland District Council intends to combine its Development Management Policies and Site Allocations under the Local Plan after the two documents were initially prepared and consulted on separately.

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The Council is at a relatively early stage in the preparation of the Development Management Policies. An Issues and Options consultation was carried out in December 2011 with a list of suggested policies broadly based upon the provisions of the existing Saved Policies of the Replacement Local Plan. A consultation on Shortlisted Sites for the Site Allocations was also carried out in December 2011 with a further Alternative Sites consultation carried out in summer 2012. The Site Allocations document does not propose to deal with the major growth allocated within the Growth Triangle under JCS Policy 10 and so carries no relevance to this application. The current timetable for the production of this combined document is therefore as follows:

• September 2012 – Pre-submission consultation; • Summer 2013 – Submission; • Early 2014 – Adoption.

The new Local Plan will provide a detailed set of policies that will eventually replace the Saved Policies of the Replacement Local Plan and Proposals Map. Given the relatively early stage the Council is at with its production it is considered that limited weight should be attached to its provisions in the consideration of this planning application. As a consequence, there are no emerging policies that should be taken into account in the determination of this application other than the approved supplementary planning documents mentioned below.

4.7.5 Community Infrastructure Levy (CIL) CIL is a new system of developer contributions and is intended to ensure that sufficient community infrastructure is provided to facilitate new development. JCS Policy 20 requires that community infrastructure will be provided and enhanced through CIL, when it is formally introduced.

CIL will be charged by the JCS local authorities in accordance with an adopted Charging Schedule. A Draft Charging Schedule was published by Broadland District Council for consultation between February and March 2012. The anticipated timetable for its introduction as follows:

• August 2012 – Submission; • October 2012 – Examination; • December 2012 – Adoption

The Greater Norwich area is divided into charging zones for residential development, and the application site falls within the inner zone. The draft schedule proposes the following rates:

• £115 per m2 for residential development within the inner charging zone; • £135 per m2 for development resulting in large convenience goods based stores of 2,000m2 gross or more; • £25 per m2 for all other retail and assembly and leisure development.

Until such time as CIL is introduced, JCS Policy 20 requires that all contributions should be made through Section 106 contributions. It is anticipated that CIL will be in force at the time the proposed development obtains consent.

4.7.6 Supplementary Planning Documents

Landscape Character Assessment SPD (2008) This SPD is supplementary to JCS Policy 1 – Addressing Climate Change and Protecting Environmental Assets. The SPD defines particular landscape character areas within Broadland District and identifies the extent to which proposals for development preserve or enhance landscape character.

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Parking Standards SPD (2007) This SPD is supplementary to Broadland Replacement Local Plan Saved policies TRA5 (Cycle Movement) and TRA8 (Parking Guidelines). The standards prescribe maximum parking space standards for vehicles and cycles. It also promotes good design and the efficient use of land for parking within developments.

4.7.7 National Standards The proposed development has had regard for national standards relating to planning and building construction. The relevant development plan policies specify the following standards, in part, as a requirement of proposals for development:

• Code for Sustainable Homes. The CfSH is a national standard for sustainable design and construction of new homes, operating alongside the Building Regulations. The CfSH introduces minimum environmental standards in a range of areas although JCS Policy 3 requires that new developments meet set standards in relation to energy and water.

• Building for Life. The Building for Life Standard is made up of 20 criteria providing a framework for assessing the quality of new housing and neighbourhoods and ensuring they are sustainable, attractive and fit for purpose. Schemes are assessed against four key categories, each with five questions: character; roads, parking and pedestrianisation; design and construction; and environment and community. Projects scoring over 14 points receive silver standard and those scoring over 16 points receive the gold standard. JCS Policy 2 requires that all residential development of 10 units or more are required to meet the silver standard.

• Lifetime Homes. The Lifetime Homes standard is a set of 16 design criteria that provide a model for building accessible and adaptable homes.

4.7.8 Rt Hon Greg Clarke's Statement on Planning In his Budget of 23rd March 2011, the Chancellor of Exchequer published proposals to help rebuild Britain's economy. Allied to these proposals, the Rt Hon Greg Clarke, Minister of State for Decentralisation made a Written Ministerial Statement on 23rd March 2011; "Planning for Growth". This sets out the Government's commitment to reforming the planning system so that it promotes sustainable growth and jobs.

The Statement advises that, when deciding whether to grant planning permission, local authorities should support enterprise and facilitate housing, economic and other forms of sustainable development. The government's clear expectation is that the answer to development and growth should, wherever possible, be "yes" except where this would compromise key sustainable development principles set out in national planning policy.

The Statement should therefore be given considerable weight in the determination of this application as the most up to date expression by the government of national requirements of the planning system with particular relevance to this application.

4.7.9 Neighbourhood Planning Neighbourhood Plans were introduced by the Localism Act and adopted Neighbourhood Plans form part of the adopted development plan. Sprowston Town Council has applied to be designated a Neighbourhood Area for the purposes of neighbourhood planning and as a government--designated ‘frontrunner’ council has undertaken significant preparatory consultative and developmental work in advance of preparing a Neighbourhood Plan.

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Although work to date on a neighbourhood plan for Sprowston carries limited weight given the relatively early stage in the process, regard has been given in the application proposals to the key ideas emerging through that process.

4.8 Summary

This section has explained the planning policy context for the determination of the planning application. Sections 6, 7 and 8 (Planning Policy Evaluation) provide an assessment of how the proposed development accords with the relevant planning policies and other material considerations. The next section describes the Site Investigations that have been undertaken to inform the planning application as part of the Environmental Impact Assessment process and as stand-alone technical studies.

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5. SITE INVESTIGATIONS A large number of site investigations and technical reports have been undertaken to support the proposed development at NS&OC. Some of these form part of the Environmental Impact Assessment for the project and others are provided as stand-alone documents.

5.1 Environmental Impact Assessment

An Environmental Impact Assessment (EIA) seeks to ensure that the likely effects of a development proposal on the environment are fully understood by the decision maker and taken into account in evaluating the proposal. An EIA is required to be submitted with planning applications for certain types of projects and is a legal requirement by the Town and Country Planning (Environmental Impact Assessment) Regulations 2011 ('the Regulations').

Broadland District Council (BDC) confirmed that the proposals constitute EIA Development for the purposes of the Regulations and, as such, an Environmental Statement (ES) is required, setting out the findings of the EIA. The scoping process determines the subject areas for assessment in the EIA in liaison with the Local Planning Authority and other consultees. A Scoping Report was issued on 9th September 2011 and a Scoping Opinion was received on 19th October

The scoping process concluded that the following subject areas were those that had the potential for environmental effects that could be of more than local significance and, as such should be addressed in the ES:

• Agriculture; • Air Quality; • Archaeology and Cultural Heritage; • Ecology; • Flood Risk, Drainage & Water Resources; • Landscape and Visual Impact; • Noise and Vibration; • Socio-Economic; • Soil Conditions, Groundwater and Contamination; and • Transport.

Studies and assessments were undertaken by specialist consultants to assess the likely impact of the development in relation to these topic areas. The potential environmental effects have been considered against a pre-development baseline for each of these topic areas. The potential effects are measured on the following basis:

• the extent to which they deviate from the baseline measurement; • their significance; and • the potential for avoiding or ameliorating such effects.

These mitigation measures have been identified and incorporated in the application. In summary, the key objectives of the EIA are as follows:

• to establish existing/baseline environmental conditions; • to identify, predict and assess the significance of the environmental effects of the proposed development;

and • to identify mitigation, enhancement and monitoring measures to prevent, reduce or remedy significant

adverse effects and maximise beneficial effects of the proposed development.

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The results of the EIA are presented within the Environmental Statement (ES), submitted with the Planning Application, and summarised within a separate Non-Technical Summary Report. Appropriate mitigation and enhancement measures have been recommended and the residual impacts, i.e. impacts following mitigation, assessed. It is anticipated that the mitigation measures identified will be implemented either through appropriate planning conditions or legal agreement, resulting in the proposed development not giving rise to any significantly adverse environmental effects.

5.2 Other Technical Studies

In addition to the technical studies undertaken for the purposes of the EIA, additional technical studies were prepared and have been submitted in support of the Planning Application (but were not scoped into the EIA). The following is a summary of the findings of these assessments:

5.2.1 Green Infrastructure Statement This statement addresses green infrastructure which comprises the network of green spaces within the development and beyond. It considers the functions of these spaces for play and recreation, fitness, biodiversity, beauty, climate change adaptation (including SUDs) and food to reflect the inter-connected nature of these elements at NS&OC and in the design approach taken.

The proposals are based upon green infrastructure principles established at an early stage in the project and refined through debate with stakeholders. They also take into account relevant planning policy and guidance.

A range of multifunctional green spaces varying in size and character – from gardens, green roofs and balconies to green streets, pocket parks, squares and parks – will form a continuous network through the development, creating a rich urban ecology and enabling it’s residents to be active, to grow their own food if they wish and to connect readily and frequently with the natural, living, environment.

In total, about 40% of land within the planning application boundary for NS&OC will be publicly accessible green space providing residents and local people with spaces for everyday use as well as opening up significant areas of historic parkland which are currently closed to the public and increasing access to the countryside on land with no existing public rights of way.

Three key park areas will form the basis of the green infrastructure network – a restored Beeston Park, enhanced parkland framed by semi-natural woodland south of Red Hall Farm and a smaller Linear Park along Beeston Lane which retains the existing hedge – making up over 50 ha of linked green space as a major public park for residents and local people, and the potential to form part of country park for residents from the Growth Triangle and wider area. Recreation grounds, neighbourhood parks, greens and pocket parks are distributed throughout the development and linked by greener streets with additional planting, green walls and green roofs to form a continuous green network.

Beeston Park will become a major new public park for NS&OC, part of a wider network of linked parks on the development including Red Hall Farm, and a key element in the wider sub-regional green infrastructure network. Beyond Green intends to work with the local community to design the park at detailed design stage with a starting principle of enhancing the existing character of the Park as a historic parkland and semi-natural woodland.

As such, Beeston Park, which is currently used for arable agriculture, will be restored to its former landscape of historic parkland framed by magnificent trees along its boundary, re-instating the area of parkland to the south of Beeston Lane, enhancing the quality of existing habitat and adding new features of ecological, sustainable drainage and recreational interest.

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Comprising 29.5ha of restored parkland north and south of Beeston Hall, framed by an extended woodland belt of 13.6, the park will accommodate a range of new areas for formal and informal play alongside space for picnicking, wildlife and ecological interest areas and other facilities such as a bandstand or performance space and café.

A second public park will be provided to the south of Red Hall Farm, again embracing the existing landscape to provide 5.2ha enhanced parkland framed by 2.1ha semi-natural woodland.

Linked with the centre for food and rural activity at Red Hall Farm, the park will have a strong emphasis on food and farming, with grazing of the parkland area and planting of edible fruit and nut trees within the woodland blocks. The park also provides opportunities for education and learning, with space for demonstration plots for ecology and food growing and access to nearby allotments and intensive food growing areas.

A linear park of 1.8ha will run along Beeston Lane, acting as a key connector between Red Hall Farm and Beeston Park and serving as a formal entrance to Beeston Park from the North Walsham Road.

The rural, hedge-lined character of Beeston Lane will be retained and integrated into the green space network, being enclosed by areas of park to the north and south and fronted by crescents of development. This will create a more formal condition to that in Beeston Park or Red Hall Farm with houses and front gardens overlooking the lane. The park will provide a new orchard or forest garden integrated with landscaped areas, space for SuDS and formal areas for play. The lane itself will form a walking, cycle, equestrian and fitness route between the two main parks and act as an entrance to Beeston Park with limited vehicular access.

Three recreation grounds distributed throughout the site will provide new residents with access to facilities within a short walk from home.

A core principle of the Beyond Green delivery model is that the promoter stays involved over the long term as master developer, land and property owner, estate and asset manager and commercial operator. Because of the nature and multi-functionality of the green spaces at NS&OC it is recognised that long term management of green infrastructure will be vital.

5.2.2 Statement of Community Involvement (SCI) The SCI provides a description of the consultation and engagement that has taken place during the preparation of the development proposals and how this has influenced the design of the submitted scheme. See Section 2.4 of this document for a summary of the consultation and engagement process.

5.2.3 Sustainability Statement This statement explains the sustainability principles behind the plans for NS&OC and summarises how these are manifested in the proposals, focusing in particular on how they work in aggregate to reduce the environmental footprint of the development. It also explains how the proposals have been considered in light of the wider plans for development in the Growth Triangle in order to present proposals that are consistent with the sustainable planning of the wider area through the proposed AAP which this planning application foreruns. It concludes that granting planning permission in advance of the preparation of the AAP would not harm the sustainable planning of the wider area and would, rather, make a strongly positive contribution to the delivery of the stated objectives for the Growth Triangle.

5.2.4 Housing Statement

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The housing statement considers housing demand and housing supply in the local area. The evidence base is drawn from a study for Beyond Green by market experts Jones Lang LaSalle which was completed in October 2011. The study looked across Greater Norwich as the basis of an appropriate housing market area and in recognition that, although the NS&OC scheme is proposed for Broadland, its rationale and impact on the housing market cannot realistically be understood in isolation. The housing statement considers that it is highly likely that in order to respond most effectively to housing need, development in the Growth Triangle will need to provide a blended response to the long-term housing market conditions prevailing in both Broadland and Norwich. In terms of the immediate vicinity of the site, the report suggests that there is significant scope for diversification of both type and tenure of housing in order to widen living opportunities in the area.

Table 5.1 shows the proposed housing mix for the development by type and bedroom size. The report explains that this reflects the applicants’ intention to meet adopted policy with regard to the provision of affordable housing. It broadly aligns with the summary of evidence of housing need (as established by the 2007 Housing Market Assessment) presented in the GNDP Infrastructure Needs Study (2009) for Broadland. It is likely that the target of 33% affordable provision will be challenging in the early stages of the development due to the up-front costs of infrastructure and non-residential development. Any departure from policy will be justified on the basis of viability and on an ‘open book’ appraisal basis subject to the provisions of a S106 agreement.

The statement explains that the applicants believe the proposed mix responds effectively to evidence of the nature of the existing Broadland and Norwich housing markets, changing demography and effective demand, and the likelihood that long term rental will grow significantly as a mainstream tenure, bolstering demand principally for smaller family homes.

The applicants intend to provide a balanced mix of tenures which ensures commercial viability, enables steady implementation of the scheme and complies with adopted policy on the provision of affordable housing. Affordable housing will be designed and provided on a ‘tenure blind’ basis so that affordable properties are indistinguishable in external appearance from those of similar typology for market sale or rental. ‘Pepper-potting’ of affordable homes will be considered at the detailed design stage provided that the typically higher management costs are acceptable to the Registered Provider.

5.2.5 Social and Economic Development Statement The statement describes the application proposals with regard to the mix of non-residential uses and how, if approved, Beyond Green will work with willing partners to promote active social and economic development as the scheme is implemented.

It explains that the basic unit of planning at NS&OC is the walkable neighbourhood. It is a key element of the strategy for the development to channel as much mixed-use activity as possible into centres which are in turn located so as to make sense in relation both to patterns of connectivity and movement within and across the area and to each other. This produces a main local centre around the Main Square which has the potential to become a future district centre; a secondary local centre acting as a ‘gateway’ from the permanent edge formed by Wroxham Road and Sprowston Manor Golf Club; completion of a radial walkable neighbourhood centred on the existing district centre around Morrisons at Old Catton; and, smaller scale neighbourhood centres based around the connection to existing parts of Sprowston at Church Lane South and Red Hall Farm. The report explains the mix of employment, retail, community, education and hotel uses at each of these five centres, where applicable.

The statement explains that in terms of employment, a guiding principle at NS&OC is ‘business in the community’; that workplaces should be fully integrated into the development so that they enhance the townspace, provide custom for shops and services are accessible and facilitate interaction between people

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around town. For this reason no separate ‘employment land’ or areas are incorporated within the development. A range of different buildings for business have been integrated within the urban form concentrated around Main Square and Wroxham Road Square. The application proposals are expected to accommodate approximately 1,000 jobs.

The Main Square will be the retail focal point, with the objective to create a traditional high street experience with a number of specialist retailers as well as services and a small town centre style supermarket. The aim is also to create a regular weekly market here. Secondary retail will be provided at Wroxham Road Square to cater for residential and business convenience needs. There are also opportunities for convenience retail at Church lane South and Old Catton. Adaptable ground floors on buildings will be provided at key locations throughout the development. The on-site management company will work with residents and major suppliers to promote a sustainable home shopping system on site.

The report explains that approximately four GPs and dentists are expected to be required to serve the development. Health facilities will be provided on or close to the Main Square (and other local/neighbourhood centres as required). Specific space, access and design needs will be addressed through detailed design.

Sites for two two-form entry primary schools will be provided on site; one just off the Main Square and the second near Old Catton. These locations mean that every home will be within walking distance of a primary school. It is expected that some pre-school facilities will be located at these schools with others located across the site in accordance with the development parameters. Secondary school provision will be made at Rackheath.

5.2.6 Safe and Inclusive Design Statement The statement explains that the achievement of safe and inclusive design is a principle integrated into the scheme from the outset.

With regard to safety and security, the strategy for NS&OC is based upon addressing the seven attributes of safer places that are set out in the ODPM/Home Office guide “Safer Places: the Planning System and Crime Prevention” (2004). The statement sets out how the seven attributes have been addressed in the application scheme.

At the current outline planning stage the focus is on creating a layout and establishing design principles that are consistent with achieving these attributes and addressing safety and security in the delivery of the proposals. If approved, secure design principles will be further integrated via the site-wide Design and Sustainability Code and development briefs.

With regard to inclusive design, the development adopts Design Council CABE’s principles of inclusive design. The topography, layout and mixed-use nature of the scheme together with the proposals for diversification of tenure mean that insofar as it possible as outline stage these principles have been addressed. The Site Wide Design and Sustainability Code to be developed prior to detailed applications, and those applications themselves, will be further required to address inclusive design at a detailed level, including the design of individual buildings and the securing of Lifetime Homes accreditations.

5.2.7 Lighting Statement The Lighting Statement specifies that the guiding principle for public lighting at NS&OC is that, as well as meeting safety and visibility standards, lighting should enhance the built form and minimise both energy use and impact on both wildlife and adjacent areas. Detailed lighting proposals will be developed at reserved matters stage.

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Four lighting zones are identified, all of which have different requirements: streets, individual buildings, open spaces and courtyard parking areas. Lighting will be co-ordinated across the site and between zones to ensure that there are no ‘bright’ spots or ‘dark’ spots.

A number of sensitive species exist on site including various tpes of bat. The potential effects of lighting on these species have been considered in the Environmental Statement. There will be a precise specification for lighting associated with or adjacent to spaces that have a critical wildlife role in the hours of darkness. These include Beeston park and its buffer, Red Hall Park and the Old north Walsham Road. This specification will be agreed with the local Authority, in consultation with relevant bodies, during the detailed design of the relevant phases of development.

During construction, work will normally occur during daylight hours and therefore it is not anticipated that there will be major artificial lighting requirements.

5.2.8 Public Transport Statement The public transport statement sets out proposals to provide public transport services to NS&OC and the vicinity through the introduction of new and improved bus services. The statement, which has been developed in consultation with local bus operators, explains that frequent, reliable and affordable bus services to and from NS&OC are essential if future residents are to be enabled to travel by sustainable modes rather than the private car. Bus services will complement efforts to minimise the need to travel by providing a mix of uses within NS&OC and to maximise the number of journeys on foot and by bike.

The statement proposes the phased introduction of bus services such that the choice and frequency of services grows in tandem with the building out of the development, with a service of at least one bus every 30 minutes from the outset rising to 13 buses per hour (more than one every five minutes) by the time the development in completed. The development would fund the pump-priming of services through developer contributions.

5.2.9 Framework Travel Plan The Framework Travel Plan explains the measures that will be implemented to ensure that everyone who travels to and from NS&OC is encouraged to use the most sustainable travel modes appropriate to their travel needs, forming sustainable travel habits from the outset. The ethos of the development is to ensure sustainable modes of travel are the easiest and most convenient way to travel resulting in a situation where choosing a sustainable mode instead of a private car is second nature, rather than a conscious effort.

The FTP audits the existing walking, cycling, public transport and car club/ share services in and around the site and the baseline travel patterns in the vicinity. It sets challenging targets for NS&OC to achieve, including a mode share target for ‘car drivers’ among residents for travel to work journeys of 50% within five years against a baseline of 63%, falling to 35% by the time the development is complete.

In addition to the laying out of NS&OC to be readily walkable and cyclable, measures proposed to help achieve modal shift include: physical support and services such as secure cycle parking and access to an on-site car club; designed preferences such as pedestrian and cyclist priority; information and education such as travel information packs and personalised travel planning; and supportive controls such as the way car parking is managed. The Travel Plan programme will be funded by the developer and actively managed by a Travel Plan Co-ordinator.

The FTP also sets out a vision for area-wide travel planning in which households around the site are offered travel planning services and support to change their travel behaviour, with the aim of working towards traffic neutrality for the development.

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5.2.10 Energy and Utilities Statement This statement identifies and assesses approaches to the delivery of sustainable energy for NS&OC. It considers energy efficiency in building design, local utility capacity, opportunities for providing energy efficiently and an initial feasibility review of the potential for renewable and low carbon energy generation. The spatial layout, plot design and building design will account for the majority of carbon emission reduction to meet the Building Regulation standards. In addition, micro generation technology will allow further carbon emission reductions over these figures where required or specified by the end user.

The report recognises that there are a number of strategic energy opportunities in the north Norwich area which NS&OC is in a position to support and these are being explored further. They include on-site power generation or potential off-site strategic power generation as part of a wider North of Norwich municipal energy strategy.

There are a number of effective technologies that could be applied on-site from micro generation including PV, solar thermal, micro fuel cells and domestic biomass through to larger installations of CHP, fuel cells and biomass power. Electrical generation technology to supply low carbon energy across the scheme is also being explored. Further energy statements will be provided with each reserved matters application that comes forward to provide clarity on the approach to delivering low carbon energy supplies.

In terms of new utility supplies to the development (electricity, gas, and telecoms) the report sets out the issues with regard to new supplies and highlights the potential for off-site reinforcement and associated budget costs and timescales to deliver.

• Initial discussions with UK Power Networks have indicated that there is currently 3MVA capacity within the local Sprowston Primary Substation to support initial development equivalent to between 1500 to 2000 homes. Energy capacity for further development (potentially 12MVA in total) would be accommodated for within UKPN’s strategic primary substation expansion planned at Hurricane Way, Norwich. Connection to this substation would come from new 11kV underground cables.

• National Grid Gas have advised that there is sufficient supply in the intermediate pressure gas main to supply the development. A point of connection has been suggested to the northwest boundary of the site preferably at the junction of Beeston Land and Buxton Road.

• Two telephone exchanges have been identified in the vicinity of the site, which could supply the proposed development; Saint Faith, located to the north of Norwich Airport, and Norwich North, located off Mile Cross Lane to the south of the development. It is anticipated that both of these exchanges will be fibre enabled by the end of 2013. The exchanges will provide Fibre to the Cabinet (FTTC) to the local area, which will increase the local broadband speeds in the vicinity of the site. FTTC could also provide an opportunity to extend the fibre network to the development, providing super-fast broadband to the site. This would need to be evaluated with BT post planning.

5.2.11 Water Statement The statement sets out the strategy for providing water services to the development. It explains that the applicants’ intention is to deliver an innovative strategy for water recycling and re-use, aiming for net water neutrality over time. However, at the time the application is made the necessary policy, commercial and technical mechanisms to enable a comprehensive strategy for water neutrality to be implemented are not yet in place. In order that a robust and compliant Outline Planning Application can be submitted, it is necessary to establish a “baseline” strategy acceptable to stakeholders which can demonstrate that the development is deliverable and, if necessary, act as a fallback option in advance of a framework for water-neutral development being established.

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The baseline strategy is a “business as usual” arrangement with the incumbent Water and Sewerage Company (WaSC), Anglian Water. This will entail securing water supply from the existing Heigham Water Treatment Works (WTW) and waste water discharge to Whitlingham Waste Water Treatment Works (WWTW). In this baseline scenario water demand reduction will also be achieved through in-home water saving devices, clear water consumption displays and construction of a Rainwater harvesting ring with water feature in Beeston Park.

The baseline strategy will be combined with the future-proofing of the development to ensure that the infrastructure and services necessary to deliver water neutrality – such as dual plumbing to all buildings – is introduced from the outset.

5.2.12 Waste and Management Statement The Waste Management Statement considers options for mitigating and managing the impacts of waste generated because of the development. It places the development plans for NS&OC within the context of regional and local waste policy as well as physical infrastructure provision. It sets out a strategy to manage the waste generated and to reduce the volumes generated.

The site has not been identified within Norfolk County Council’s Waste Core Strategy as being an allocated site for waste infrastructure, however Norfolk County Council have identified a need for an additional Household Waste Recycling Centre within their Draft Core Strategy in the growth triangle. Consideration has been given to the provision of small scale “bring to” areas within the site, if appropriate, but, with the high levels of kerbside recycling proposed, there is limited need for such facilities unless partnered with community operations such as co-operative shops to reduce and re-use packaging. Facilities such as these will be discussed further at reserved matters stage in line with BDC and NCC’s requirements and site constraints.

Waste generated through the construction process will be managed in line with the Site Waster management Plan Regulations 2008 and monitored through Key Performance Indicators, in line with NCC waste core strategy. How the waste collected from the site is managed by NCC will therefore dictate recycling and other waste rates.

Operational waste managmenet for NS&OC is primarily aligned to the waste collection requirements of Broadland District Council and the waste management and disposal requirements of Norfolk County Council. These incorporate existing behaviour managmenet strategies to eliminate or reduce the volume of waste produced and promote at-source reuse or recycling.

The report emphasises that good waste management strategies and the provision of appropriate waste infrastructure within the development will add credits to sustainable codes of practice such as the Building Research Establishments Environmental Assessment Method (BREEAM), the Code for Sustainable Homes (CfSH) and should be integrated into the development proposals at the earliest opportunity.

5.2.13 Minerals Safeguarding Statement A Minerals Safeguarding Statement has been prepared to address the fact that there are a number of Minerals Safeguarding Areas which in the view of the Minerals Planning Authority (Norfolk County Council) are sand and gravel resources which would be affected by the development. The Minerals Planning Authority would object to an outline planning application for development unless investigations had been carried out to establish whether a resource was viable for mineral extraction and this being the case, whether it could be extracted economically prior to development.

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The extent of the Minerals Safeguarding Areas was therefore precisely defined with Norfolk County Council and a programme of Borehole Investigation and Sampling was devised that was acceptable to the authority. This involved the drilling of 21 boreholes across the site in March 2012.

In overall terms the boreholes failed to establish the presence of a mineral resource viable for mineral extraction. Some boreholes did contain limited quantities of sand and gravel which may be of some use in the development. This mineral occurs in a thin seam across a number of blocks and is present close to the surface. It is also of a quality that is likely to be suitable in the development of the site. However, before being able to accurately assess the quantity and precise quality of this mineral, it will be necessary to carry out further testing and sampling within three blocks to the north west of the A1151 Wroxham Road.

5.2.14 Airport Safeguarding Statement The application site is close to Norwich International Airport. The Airport Safeguarding Statement explains how Norwich International Airport have been consulted in the preparation of the planning application and sets out how the scheme proposals comply with known safeguarding requirements.

The Safeguarding Officer has undertaken an assessment of the proposed development and has confirmed in writing that none of the proposed elevations infringe the safeguarding criteria.

In relation to the proposal to incorporate rainwater storage in the form of one or more ponds within Beeston Park, the Safeguarding Officer has confirmed that a condition should be attached to any planning permission granted to ensure that the water is as deep as possible to ensure the area it covers is minimised to prevent bird feeding opportunities; the area must be fully bird proofed and not available as a park attraction; bird proofing of the water must be maintained to a standard acceptable to Norwich Airport Ltd and at no cost to the airport; and, none of the community facilities should have roof structures that will attract nesting gulls.

The Airport Safeguarding Statement confirms that the applicants understand the Airport’s concerns regarding bird strike and would be happy to accept a planning condition requiring close work with the airport to mitigate any unacceptable risks from bird-strike, with the development bearing all reasonable costs.

5.2.15 Delivery and Management Statement The Delivery and Management Statement describes the proposed approach to delivery and on-going management at NS&OC encompassing:

• Beyond Green’s long term economic model and the ‘master developer’ role it intends to play in the delivery of the development, including procurement of construction and other delivery partners;

• detailed design and reserved matters, including design coding; • phasing of development, including construction strategy; • developer contributions; • ongoing ‘estate’ management, including adoption land; and, • community governance and involvement.

The Delivery and management Statement describes the intended process that is envisaged with confidence within the early years of development. However, NS&OC is a long term project and the process will undoubtedly evolve and change as the development grows.

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6. PLANNING POLICY EVALUATION: PRINCIPLE OF DEVELOPMENT

6.1 Introduction

Section 4 provided background information on the planning system and an explanation of the planning policy context for the determination of the planning application. This section provides a detailed discussion of how the proposal can be assessed in terms of these planning policies, taking into consideration the evidence from the assessments described in the previous section. It provides an assessment of the principle of the proposed development of up to 3,520 dwellings and justification for the location of NS&OC between the A1151 Wroxham Road and the unclassified Buxton/Spixworth Road.

6.2 Assessment of the principle of development

The principle of the development of up to 3,520 dwellings at NS&OC is assessed in terms of strategic planning policies, which determine the amount and location of new development.

6.2.1 Strategic Policies The proposal is in accordance with the policies of the adopted East of England Plan (EEP) which provides over-arching planning policy context for the proposal. EEP Policy NR1 (Norwich Key Centre for Development and Change) requires the provision of 33,000 net additional dwellings in the Norwich Policy Area (NPA) in the period 2001-2021. (EEP Policy H1 confirms these are minimum targets to be achieved).

The provision of this growth was to be facilitated by joint or coordinated Local Development Documents prepared by Norwich, South Norfolk and Broadland. The requirements of this policy have been realised by the preparation of the Joint Core Strategy by these three Planning Authorities, identifying the distribution of the housing to be allocated to specific settlements. Section 4 explained that the parts of the Joint Core Strategy relating to the Growth Triangle and housing proposals in the Broadland part of the NPA have now been remitted. Therefore, policies 9 and 10 of the JCS are no longer adopted and hold the weight of pre-submission policies. The proposals have nevertheless been assessed against these policies on the basis that they are still material considerations in the determination of the application unless such time as the JCS is confirmed as sound or otherwise following an Examination in Public later this year.

Furthermore, the applicants consider that despite the policy uncertainty, the remitted policies for the Growth Triangle describe the most appropriate strategy to deliver growth in Broadland and Greater Norwich. The evidence base for growth to the northeast of Norwich and particularly for this site is very strong and the applicants are optimistic that when compared transparently with other alternative options, it will once again emerge as the preferred strategy.

Remitted JCS Policy 9 states that to meet the requirements of the EEP, it will be necessary to identify new allocation sites to deliver a minimum of 21,000 dwellings in the NPA, of which at least 7,000 dwellings are to be provided in the North East Growth Triangle to 2026 continuing to grow to around 10000 dwellings eventually.

Remitted JCS Policy 10 states that development in the ‘Growth Triangle’ “will deliver an urban extension extending on both sides of the Northern Distributor Road… The structure of the local geography suggests that this new community will take the form of a series of inter-related new villages or quarters and will include at least 7,000 dwellings (rising to a total of at least 10,000 dwellings after 2026”.

Therefore, the provision of 3,520 houses within the ‘Growth Triangle’ is in accordance with the strategic policies of the East of England Plan and the Joint Core Strategy (remitted policies).

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6.2.2 Material Considerations The following material considerations provide support for the principle of approving the development in advance of the Growth Triangle AAP:

• the National Planning Policy Framework (sustainable development and five year housing land supply); • Ministerial Statement: Planning for Growth; • GNDP evidence base including Topic Paper on Homes and Housing, August 2010.

Presumption in favour of sustainable development The National Planning Policy Framework, and the Ministerial Statement: Planning for Growth require Local Planning Authorities to approve proposal that accord with an up-to-date development plan without delay and to assume a presumption in favour of sustainable development and to approve applications where plans are absent, out of date, silent or indeterminate, unless the adverse impacts of allowing development would significantly and demonstrably outweigh the benefits. The documents advise decision makers to approach decision-taking in a positive way to foster the delivery of sustainable development and to seek to approve applications for sustainable development where possible. It is the applicants’ intention that the proposals will pass the first of the NPPF paragraph 14 tests – being in accordance with the development plan – if and when the proposed submission text of the GNDP Joint Core Strategy is found sound and subsequently adopted.

Section 8.10 explains how the proposal is in accordance with key sustainable development principles set out in the NPPF. Section 5 explains how the impacts of the proposal have been assessed and mitigated via an Environmental Impact Assessment, demonstrating that adverse impacts do not outweigh the benefits of the proposal. Therefore, in accordance with the most recent Government guidance, the proposal should be considered favourably.

Five year housing land supply NPPF paragraph 49 provides further national planning policy support for the principle of the development. It requires LPAs to consider housing applications in the context of the presumption in favour of sustainable development. Relevant policies for the supply of housing should not be considered up-to-date if the local planning authority cannot demonstrate a five-year supply of deliverable housing sites. The applicants do not seek to rely on a housing land supply shortfall in seeking planning consent but rather recognise the role that a scheme of this scale and nature can play in contributing to a reliable pipeline of housing land.

The JCS housing figures, as set by the East of England Plan, are presented on the basis of:

• "Norwich Policy Area" (NPA): covering Norwich City and those parts of Broadland and South Norfolk that relate to the City; and

• "Rural Area": covering the rural areas of Broadland and South Norfolk.

The application site is within the Norwich Policy Area, and the 5 year housing land supply figure judgement is made on this basis.

The GNDP have confirmed that the Norwich Policy Area is not currently able to demonstrate the required 5 year land supply. The latest 5 Year Housing Land Supply Document appended to the Annual Monitoring Report 2010/2011 prepared by the GNDP indicates that there is only a 3.28 year supply in the NPA.

The development of the application site would contribute towards meeting Broadland District Council's 5 year housing land supply as it can be demonstrated that the site is "deliverable" as defined by the three tests set out in the NPPF (paragraph 47 sub text note 11). The site is:

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• immediately available: it is in the ownership of landowners promoting the site who are willing to release the land for development;

• suitable for development: it is located close to and within relatively easy walking and cycling distance of services, facilities, and employment areas and would contribute to the creation of a sustainable, mixed community which will incorporate additional new services, facilities and employment opportunities; and

• achievable: there is a particular demand for this type of serviced site where there are few constraints to delivering the infrastructure required to facilitate its development. Therefore, subject to obtaining planning permission, the site would begin to deliver housing within the next three years, with a projected start date on site of Q4 2014-15.

Paragraph 47 of the NPPF states that, in addition to a rolling five-year supply of specific, deliverable sites, LPAs should include an additional allowance of at least 5% to ensure choice and competition in the market for land. Where there has been a “record of persistent under delivery” of housing, local planning authorities should increase the buffer to 20% to provide a realistic prospect of achieving planned supply. In Broadland, 2,744 units have been delivered 2001 to 2010 against an RSS requirement of 5,652 units, which represents 49% of target provision, suggesting that Broadland is an area in which this additional buffer might reasonably be required. .

Therefore, in accordance with NPPF paragraph 49, and notwithstanding the compliance of the application with the adopted and emerging development plan, the LPA should consider the planning application for housing favourably in order to assist the achievement of at least a rolling five year housing land supply plus a 20% buffer.

In addition, the GNDP Topic Paper on Homes and Housing, August 2010 outlined a range of evidence supporting the housing targets in the submitted Joint Core Strategy and confirms that they remain valid following the revocation of the East of England Plan.

Broadland District Council Framework Plan Study September 2011 Broadland District Council has produced a Framework Plan Study to support the production of the Growth Triangle Area Action Plan. The study provides a spatial portrait of the Growth Triangle area, explains the different components of growth and articulates the findings of a site analysis of the Growth Triangle. Although the Growth Triangle and NPA parts of Broadland within the JCS have been remitted due to procedural flaws in the Sustainability Appraisal process, the Framework Plan study findings are nevertheless still considered relevant. This is particularly so now that the Sustainability Appraisal for the Broadland part of the NPA undertaken by URS consultants following the High Court ruling of 24 February 2012 supports growth focussed in the North East as set out within the remitted policies of the JCS.

The Framework Plan Study confirms at paragraphs 5.16 to 5.21 that the application site constitutes one of three broad locations within which, given constraints to development elsewhere in the Triangle including ancient woodland and the line of the NNDR, the necessary scale of development can be focused:

“In particular it becomes apparent that there are three core areas with medium or high development potential, two inside the proposed route of the NNDR and one outside….The second of the areas inside the NNDR lies to the north of Sprowston and Old Catton between Wroxham Road and Norwich International Airport. The principle constraint within this area is the presence of Grade II agricultural land and potential loss of recreational land that might result from development in this area. To an extent landscape value is also an issue. However, the site is also very well located. The site straddles three major radial routes, which are also core bus routes and is adjacent to the Sprowston Park and Ride.”

Figure 2 below is a plan extracted from the Framework Plan Study document showing the development potential of land within the Growth Triangle.

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Figure 2 Development Potential of land within the Growth Triangle

The Plan shows that the majority of the application site falls within an area of ‘Moderate Development Potential’ with remaining areas having ‘Negligible Development Potential’. Drawing NS&OC 103, Proposed Development Blocks Plan, reflects the definitions on this plan by placing all but four development blocks north of Beeston Lane within the Moderate Development Potential Area. Other areas of the application site which are within the ‘Negligible Development Potential’ area are proposed as green spaces, parks and recreation space.

The chief reason why the land of Moderate Development Potential is designated as such rather than as of High Potential is that it contains a large area of Grade II Best-and-Most-Versatile Agricultural Land. The Agricultural Land Baseline Study (submitted with the Environmental Statement) and the Green Infrastructure Statement explain how measures will be taken to maximise the recovery and reuse of valuable soils including through measures such as use in on-site food growing, landscaping and private gardens and through redistribution to nearby land of lower soil quality.

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The Sustainability Statement that accompanies the planning application explains at Part B how the application scheme performs against the objectives for the Growth Triangle as set out in the Council’s Growth Triangle Guide (June 2011,p5). It demonstrates that the scheme would have a limited impact on the discretion of the AAP to decide how and where the stated objectives of development in the Growth Triangle are met. Granting planning permission in advance of the preparation of the AAP would not harm the sustainable planning of the wider area and would, rather, make a strongly positive contribution to the delivery of the stated objectives for the Triangle.

6.3 Conclusion

Section 38(6) of the Planning and Compulsory Purchase Act 2004 states that planning applications should be determined in accordance with the development plan unless material considerations indicate otherwise. The development plan comprises the East of England Plan, The Joint Core Strategy for Broadland, Norwich and South Norfolk and Broadland Replacement Local Plan Saved Policies.

Parts of the adopted JCS relevant to this application have been remitted following the High Court judgement in Heard vs Broadland.. These policies therefore have limited weight as material considerations in the determination of the application. Despite the current policy uncertainty, it is considered that the remitted policies for the Growth Triangle describe the most appropriate strategy to deliver growth in Broadland and Greater Norwich and the scheme has therefore been assessed against these policies.

The proposals have been developed as a result of a rigorous and consultative approach to design and planning that has engaged the local community and key stakeholders. The NS&OC proposals will deliver an attractive and environmentally sustainable urban extension to Greater Norwich in accordance with NPPF policy and the policy aspirations set out in the JCS (including remitted policies). It is considered that the proposals represent an appropriate development in this location.

The applicants have asked Broadland Council not to determine the application until the spread of housing numbers in the Broadland part of the Norwich Policy Area has been reappraised through the Sustainability Appraisal and remitted sections of the JCS have been amended or confirmed as appropriate. This is in order to ensure that determination of the planning permission will not unduly prejudice the plan-making process.

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7. PLANNING POLICY EVALUATION: INFRASTRUCTURE REQUIREMENTS

7.1 Introduction

The previous section addressed the planning policy matters of the principle and location of a development of 3,520 dwellings on land at North Sprowston and Old Catton between the A1151 Wroxham Road and the unclassified Buxton/Spixworth Road. This section explains how the proposed design accords with planning policy in relation to the infrastructure and other requirements for a development of 3,520 dwellings.

A description of the relevant planning policy context for assessing the details of the proposed development was provided at Section 4. As explained at Section5, the majority of the technical evidence that underpins the planning application has been prepared as part of the Environmental Impact Assessment process. This evidence is provided as Appendices to the Environmental Statement (ES), which has been submitted in support of the planning application.

7.2 Planning Policy Requirements

As explained in the previous section, Joint Core Strategy (JCS) remitted Policy 9 provides the policy context for the principle of development of 3,520 dwellings on the application site. JCS remitted Policy 10 provides further detail about the requirements for 7,000 new homes in the Growth Triangle in terms of design and infrastructure as follows:

• a district centre based around an accessible ‘high street’ and including a new library, education and health facilities. This may be provided by building on the proposed centre at Blue Boar Lane or by the creation of a second district centre elsewhere in the Growth Triangle;

• new Local Centres; • new pre-school provision and 6 primary schools plus a new secondary school; • new employment allocations including expansion of Rackheath employment area; • retention of existing important greenspaces and significant levels of heathland re-creation. Building

design including for example, appropriate use of ‘green roofs’ will help provide linkage between greenspaces;

• restoring and conserving historic parkland and important woodland; • Bus Rapid Transit to the city centre, possibly via Salhouse Road and Gurney Road and a choice of direct

cycle routes to the centre; • permeability and community integration across the Northern Distributor Road and with existing

communities; and • a new household waste recycling centre.

JCS remitted Policy 10 also sets out the additional general infrastructure requirements for all major growth areas as follows:

• a high level of self-containment through the provision of services to support the new development while integrating well with neighbouring communities;

• Sustainable Drainage Systems (SuDS), on site or nearby renewable energy generation, and water saving technologies;

• new or expanded education provision, local retail and other services, community, police and recreational facilities, small-scale employment opportunities and primary healthcare facilities;

• high quality telecommunications and adequate energy supply and sewerage infrastructure; and • ongoing commitment to support community development in major strategic growth locations until the

development is completed.

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JCS Policy 20 sets out general infrastructure requirements for all sustainable development proposals as follows:

• appropriate transport infrastructure including the implementation of NATS and the construction of the NDR and improved public transport;

• affordable or supported housing; • social infrastructure, including education, healthcare, police and emergency services, community

facilities; • local and renewable energy generation; • water conservation measures; • sustainable drainage systems (SuDS); • strategic sewers; • open space and green infrastructure, including habitat creation, pedestrian and cycle links, allotments,

recreation facilities, parks, trees, hedgerows, woodland and landscaping; • utilities, including waste management/ recycling/composting facilities; • street furniture and public art; and • ongoing commitment to support community development in strategic growth areas.

Sections 7.3 to 7.7 provide a summary of how the proposed development meets all the above specific policy requirements for infrastructure, which are discussed in more detail under the following topic headings:

• transport; • utilities (including renewable energy); • green infrastructure (including open space and ecology); • community/social infrastructure; and • implementation of infrastructure.

7.3 Transport

The design of the new transport infrastructure has been thoroughly considered with regards to minimising the impact of the development on the existing highway network. This includes measures to encourage reduced car usage, and the provision of sufficient infrastructure to ensure the highway network can accommodate additional traffic requirements.

JCS remitted Policy 10 requires Bus Rapid Transit to the city centre, possibly via Salhouse Road and Gurney Road and a choice of direct cycle routes to the centre.

The following JCS policies also make reference to the requirements for improving bus, cycle and walking networks and the implementation of the Norwich Area Transport Strategy (NATS) including construction of the Northern Distributor Road (NDR):

• Policy 6: Access and Transportation; • Policy 9 (remitted): Strategy for Growth in the Norwich Area; and • Policy 20: Implementation.

The requirement for Bus Rapid Transit to the city centre via Salhouse Road and Gurney Road will not be delivered via the application site as it is not located on these routes into the city centre. Nevertheless, all areas of the development will be located within 400 metres of bus stops providing access to bus services into Norwich with a minimum 20 minute frequency and a 10 minute frequency from the proposed local centre. The Public Transport Statement sets out the proposed bus strategy for the site. There will also be new and improved cycle and pedestrian routes through the site and connecting to Old Catton, Sprowston and further afield.

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7.4 Utilities

7.4.1 Household Waste Recycling Centre The NS&OC site is not designated within Norfolk County Council’s Waste Core Strategy as a location for a waste management facility, however remitted policy 9 of the JCS mentions a new household waste recycling centre (HWRC) to be provided within the Growth Triangle.

There are 19 household waste recycling centres (HWRC’s) throughout Norfolk, three of which are located in or around the Broadland district. The nearest HWRC to the proposed development is Mile Cross in Norwich approximately 5km away. In addition to the HWRC’s there are around 130 recycling sites across Broadland, located in most parishes and at main supermarkets. The nearest recycling site to the proposed development is the Tesco supermarket in Sprowston. The recycling banks complement the council’s refuse and recycling scheme by providing extra capacity and allowing additional materials to be recycled, including glass bottles and textiles.

It is for the Area Action Plan to determine the optimal location for a new HWRC within the Growth Triangle, and if it is decided that one should be located on or adjacent to the application site then this can be facilitated in due course. In the meantime, consideration has been given to the provision of small scale “bring to” areas within the site, if appropriate, but, with the high levels of kerbside recycling proposed, there is limited need for such facilities unless partnered with community operations such as co-operative shops to reduce and re-use packaging. Facilities such as these will be discussed further at reserved matters stage in line with BDC and NCC’s requirements and site constraints.

7.4.2 Sustainable Drainage Systems and Water Saving Technologies JCS policy 3 requires that all housing is water efficient and that new housing development must reach Code of Sustainable Homes level 4 for water from adoption of the plan and that developments of over 500 units must reach code level 6 by 2015. JCS remitted Policy 10, requires that water saving technologies are incorporated within the scheme together with Sustainable Urban Drainage Systems (SUDS). The Water Statement explains how the development will aim for water neutrality, allowing the higher standards of Code levels 5 and 6 to be obtained, with a baseline approach which will allow the necessary water use reductions to be achieved through a combination of water-saving devices and rainwater harvesting. The Flood Risk Assessment contained within the Environmental Statement explains how a range of attenuation and infiltration areas have been incorporated into the scheme to achieve a comprehensive sustainable urban drainage system.

7.4.3 Gas, Electricity and Telecommunications High quality telecommunications and adequate energy supply can be provided in accordance with JCS remitted policy 10. The Energy and Utilities statement explains that there is sufficient gas supply to connect to at the north west boundary of the site. Electricity capacity currently exists for between 1500 and 2000 dwellings and further capacity can be accommodated within the strategic primary substation expansion planned at Hurricane Way Norwich. Telecommunications can be provided to the development from two existing exchanges within the vicinity of the site. It is envisaged that these will both be fibre enabled by the end of 2013.

7.4.4 Renewable Energy

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JCS Policy 3 requires that all development proposals of a minimum of 10 dwellings or 1000 sqm of non residential floorspace will be required to include sources of decentralised and renewable or low carbon energy providing at least 10% of the schemes expected energy requirements and that they should demonstrate whether or not there is viable and practicable scope for exceeding that minimum percentage provision. In addition schemes over 500 units should demonstrate that the scheme has seized opportunities to make the most of any available local economies of scale to maximise provision of energy from these sources. JCS Policy 20 requires local and renewable energy generation for all sustainable development proposals.

NS&OC will provide at least 10% of the scheme’s expected energy requirements through sources of decentralised and renewable or low carbon energy. The Energy and Utilities Statement explains that there are a number of effective technologies that could be applied on-site at NS&OC from micro generation including PV, solar thermal, micro fuel cells and domestic biomass through to larger installations of CHP, fuel cells and biomass power. Electrical generation technology to supply low carbon energy across the scheme is also being explored. Further energy statements will be provided with each reserved matters application that comes forward to provide clarity on the approach to delivering low carbon utilities and to demonstrate whether or not it is viable to exceed the minimum of 10% provision in accordance with policies 3 and 20.

7.5 Green Infrastructure

NS&OC provides around 82.5ha of new publicly accessible open space, making up about 40% of the total area of the site. The development of the strategy for accessible open space has had regard to two sets of quantitative standards:

• those set out in the adopted Broadland Recreational Open Space SPD for play and recreation, which essentially write into policy the Fields in Trust ‘six acre standard’ of 2.4ha of play and recreational space per 1,000 people; and

• those set out in the GNDP Infrastructure Needs Study (2009), Table 10-2. Although not adopted policy, this Study informed preparation of the GNDP JCS and Local Investment Plan and Programme (LIPP) and takes a different approach, proposing standards for a wider set of open space typologies but also recognising the multifunctional potential of some spaces. It therefore proposes a net overall figure of 6.39ha per 1,000 people incorporating a number of standalone and multifunctional typologies.

These two standards are not easily reconciled (see Table 9-1), particularly given that they use different assumptions about the population arisings from development (equating to 2.38 persons per dwelling on the Broadland SPD methodology and 2.13 persons per dwelling on the GNDP INS methodology). The latter approach is arguably more in tune with Beyond Green’s green infrastructure principles and better suited to the complexity of the open space needs to a development of the scale and type of NS&OC; whereas the former is adopted policy and the six-acre standard is a widely accepted rule-of-thumb for recreational provision. However, it should be noted that on either methodology the overall quantity of green space provided – and the flexibility to designate many spaces for different uses at detailed design stage to optimise the mix across the development – significantly exceeds the level required. On the more wide-ranging INS methodology, the overall requirement is for around 48 ha; NS&OC provides over 82ha.

Type Play Outdoor sport

Natural & semi-

Parks & gardens

Informal amenity

Allotments &

Total

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natural open space

space community gardens

Requirement per 1,000 population – Broadland Recreational Open Space SPD

0.8ha 1.6ha n/a n/a n/a n/a 2.4ha

Requirement per 1,000 population – GNDP INS 2009

0.36ha of which 0.17ha standalone


3.74ha 1.13ha 0.22ha 0.16ha 6.39ha

Policy requirement at NS&OC (GNDP INS methodology)



27.98ha 8.45ha 1.65ha 1.20ha 47.80ha

Provision proposed at NS&OC

A minimum of 2.69ha

12.16ha of recreation grounds plus integrated sports provision

At least 31.3ha

An amount significantly greater than 8.45ha

An amount significantly greater than 1.65ha

At least 1.8ha plus provision of 1.2ha for extension of existing Sprowston allotments

Around 82.51ha

Table 3: Provision of publicly accessible open space at NS&OC

JCS remitted policy 9 requires that development within the Growth Triangle should include the retention of existing important green spaces and significant levels of heathland recreation together with the restoration of historic parkland and important woodland. JCS Policies 1 and 10 (remitted) require that the development contributes to providing a multi-functional green infrastructure network, including provision of areas of open space, wildlife resources and links between them, both off site and as an integral part of the development, and enhanced public access to the countryside.

The Green Infrastructure Statement explains that Beeston Park which is currently used for arable agriculture will be restored to its former landscape of historic parkland framed by magnificent trees along its boundary and extended woodland areas. It will also incorporate a mosaic of habitats including grass heath and will be open to public access. Enhanced parkland and retention of semi-natural woodland is proposed south of Red Hall Farm and Beeston Lane Park will integrate the existing rural hedge lined character of the lane into the green space network. These three linked park areas make up over 50ha of linked green space available for public use. The proposals are therefore in accordance with JCS policies 1, 9 and 10.

The Green Infrastructure Statement also explains that the proposals include green roofs which will help provide linkages between greenspaces in accordance with JCS remitted Policy 9.

7.6 Community / Social Infrastructure

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7.6.1 Education The Social and Economic Statement explains that sites for two two-form entry primary schools will be provided at NS&OC in accessible locations just off the Main Square and in the Western part of the scheme near Old Catton. This will enable every home to be within walking distance of a primary school. It is expected that pre-school facilities will be co-located with these schools (on-site or adjacent) and other pre-school facilities will be distributed across the development. A need for a total of five nursery/pre school facilities has been identified. A new secondary school will be located within the Growth Triangle at Rackheath and bus services will be provided to transport pupils there. The proposals are therefore in accordance with JCS remitted policies 9 and 10 and policy 20 in terms of ensuring new or expanded education provision.

7.6.2 Health infrastructure The Social and Economic Statement also explains the other community facilities that will be incorporated within the development. These include space for GP and dentists on or close to the Main Square (and any other local/neighbourhood centres as required).

7.6.3 Retail infrastructure The Main Square will be the retail focal point, with a number of specialist retailers as well as services and a small town centre style supermarket. The aim is also to create a regular weekly market here. Secondary retail will be provided at Wroxham Road Square and there are opportunities for convenience retail at Church Lane South and Old Catton. Adaptable ground floors on buildings will be provided at key locations throughout the development. The on-site management company will work with residents and major suppliers to promote a sustainable home shopping system on site.

7.6.4 Employment Infrastructure No separate ‘employment land’ or areas are incorporated within the development. The aim is instead to provide business opportunities within the community. A range of different buildings for business have therefore been integrated within the urban form concentrated around Main Square and Wroxham Road Square. Specific space, access and design needs for each of the above uses will be addressed at the reserved matters stage.

7.6.5 Community Buildings Stakeholder and public consultation revealed a widespread desire for better community hall spaces. Provision is therefore made for two community halls within the development and a library. It is likely that a community hall would be accommodated on the Main Square. A second community hall would be located at Church Lane South where accessibility to existing Sprowston residents is greatest. A library, internet and information centre is proposed within the ‘enterprise hub’ on the Main Square. Specific space, access and design needs for these uses will be addressed at the reserved matters stage.

The proposal therefore provides suitable community infrastructure to meet the needs of the development and are therefore in accordance with JCS remitted Policy 10. This requires education provision, local retail and other services, community facilities, local employment opportunities and primary healthcare to be provided for within the development.

7.6.6 Crime

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JCS Policy 7 and Policy ENV 2 of the Broadland District Local Plan (Replacement) 2006 require that regard should be given to crime prevention within the design of new developments. The Safe and Inclusive Design Statement explains that the achievement of safety and security by design is a principle integrated into the scheme from the outset. The strategy for NS&OC is based upon addressing the seven attributes of safer places that are set out in the ODPM/Home Office guide “Safer Places: the Planning System and Crime Prevention” (2004). At the outline application stage the focus is on creating a layout and establishing design principles that are consistent with achieving these attributes and addressing safety and security in the delivery of the proposals. If approved, secure design principles will be further integrated via the site-wide Design and Sustainability Code and development briefs. The proposal is therefore in accordance with Policy ENV2.

7.6.7 Housing mix and tenure JCS Policy 4 requires new development to contribute to the mix of housing required to provide balanced communities and meet the needs of the area, as set out in the most up to date study of housing need and/or Housing Market Assessment. The Housing Statement explains that it is the applicants’ intention to meet adopted policy with regard to the provision of affordable housing. The proposed mix broadly aligns with the summary of evidence of housing need (as established by the 2007 Housing Market Assessment) presented in the GNDP Infrastructure Needs Study (2009) for Broadland. It is likely that the target of 33% affordable provision will be challenging in the early stages of the development due to the up-front costs of infrastructure and non-residential development. Any departure from policy will be justified on the basis of viability and on an ‘open book’ appraisal basis subject to the provisions of a S106 agreement.

The proposed development seeks to provide for a mix of dwelling types and sizes across the site. Negotiations are ongoing with the Council's housing officer to determine the amount of affordable housing to be provided and the tenure split. These discussions will be concluded prior to the scheme's determination. The exact mix and size of the residential units will be determined at the Reserved Matters stage as part of the detailed proposals.

The Scheme is flexible enough to incorporate provision of single storey dwellings if they are required. It is intended that the affordable housing will be pepper potted in groups across the proposed development in order to draw a balance between effective management and integration of the affordable housing stock.

7.7 Implementation

JCS Policy 20 states that a co-ordinated approach will be taken to the timely provision and ongoing maintenance of infrastructure, services and facilities to support development. Tables 4-6 below set out the infrastructure specifically required by JCS Policies 10 and 20 and a summary of how the proposed development accommodates these requirements.

Infrastructure Requirements Infrastructure Proposed

A district centre based around an accessible high Street including a new library, education and health facilities,

Main Square located at the intersection of the primary east-west street through the development and the realigned North Walsham Road. To be Local Centre with potential to become a district centre through future designation. Provision for new library on the square and health facilities on or close to the Square. Primary school to be located next to Main Square.

New local centres A secondary Local Centre including shops, small business units and community facilities to be located to the west closest to Wroxham Road.

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Neighbourhood centres to be based around the connection to existing parts of Sprowston at Church lane South and at Red Hall Farm.

Education provision Two new two-form primary schools, nursery provision. Secondary provision to be met within the Growth Triangle at Rackheath.

New employment allocations for local needs

Workplaces to be fully integrated into the development so that they enhance the townscape, provide custom for shops and services, are accessible and facilitate interaction between people around town. For this reason no separate ‘employment land’ or areas are incorporated within the development. A range of different buildings for business have been integrated within the urban form concentrated around Main Square and Wroxham Road Square.

Retention of existing important green spaces and significant levels of heathland recreation.

82.5ha of new publicly accessible open space, making up about 40% of the total area of the site. Beeston Park to be restored and to incorporate a mosaic of habitats including grass heath. Enhanced parkland and retention of semi-natural woodland south of Red Hall Farm. Beeston Lane Park will integrate the existing rural hedge lined character of the lane into the green space network.

Restoring and conserving historic parkland and important woodland

As above, restoration of Beeston Park and enhanced parkland at Red Hall Farm.

A new waste recycling centre within Growth Triangle

Not to be provided on this site at the present time. However, consideration has been given to the provision of small scale “bring to” areas within the site. Facilities such as these will be discussed further at reserved matters stage in line with BDC and NCC’s requirements and site constraints.

Table 4: Infrastructure Requirements of JCS remitted Policy 10 for Growth Triangle


A high level of self containment through the provision of services to support the new development while integrating well with neighbouring communities.

Main Square Local Centre providing supermarket, shopping,services, office space, small-scale employment and community services for new and existing residents including potential libarary. Wroxham Road Square providing office based employment, local convenience retailand services. Primary schools and nursery provision to be made on site.

Extensive open and recreational space for new and existing residents.

Sustainable Drainage Systems (SuDS), on site or nearby renewable energy generation, and water saving technologies.

Scheme incorporates SuDS.

At least 10% of energy provided through renewable sources.

Code for Sustainable Homes Level 4 or better for water

New or expanded education provision, local retail and other services, community, police and recreational facilities, small-scale employment opportunities and primary healthcare facilities.

Education provision – Two – two form entry primary schools including pre-school provision, additional nursery/ pre school provision throughout site;

Local Centres providing floor space for retail, small-scale employment and community facilities

Recreation space including play areas and sports pitches

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Financial contributions for services and facilities where required.

High quality telecommunications and adequate energy supply and sewerage infrastructure.

Provision of utility infrastructure on site with financial contributions for upgrades off-site where necessary.

Table 5: Infrastructure Requirements of JCS remitted Policy 10 for Major Growth Locations


Appropriate transport infrastructure including the implementation of NATS and the construction of the NDR and improved public transport.

Four highway accesses. New and improved, frequent bus services. A permeable, connected street network conducive to walking and cycling and with connections to walking and cycling routes off site.

Appropriate highways mitigation to be secured through S106/S278 agreements.

Substiantial CIL contributions which will contribute to the funding of infrastructure to serve the development of the area

Affordable or supported housing Up to 33% affordable housing provision subject to viability

Social infrastructure, including education, healthcare, police and emergency services,

Education provision – Two two-form entry primary schools including pre-school provision, additional nursery/ pre-school provision throughout site; Financial contributions for services and facilities where required.

Community facilities. Main Square Local Centre including D1 community hall, second community hall at Church Lane South; A library, internet and information centre is proposed within the ‘enterprise hub’ on the Main Square.

Local and renewable energy generation.

At least 10% of energy provided through renewable sources

Water conservation measures. Rainwater harvesting measures and water-saving devices to be incorporated, with future-proofing to allow site-wide water recycling and use of non-potable water supplies.

Sustainable drainage systems (SuDS).

Scheme incorporates SuDS.

Strategic sewers. Financial contributions towards upgrades off-site. Provision of sewers on-site

Open space and green infrastructure, including habitat creation, pedestrian and cycle links, allotments, recreation facilities, parks, trees, hedgerows, woodland and landscaping.

82.5ha of new publicly accessible open space, making up about 40% of the total area of the site. Beeston Park to be restored and to incorporate a mosaic of habitats including grass heath. Enhanced parkland and retention of semi-natural woodland south of Red Hall Farm. Beeston Lane Park will integrate the existing rural hedge lined character of the lane into the green space network.

Pedestrian and cycle routes on and off site.

Other Utilities, including waste management/recycling/ composting facilities

To be finalised at detailed design stage.

Street furniture To be finalised at detailed design stage.

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Public art To be finalised at detailed design stage.

Table 6: Infrastructure Requirements of Policy 20 for Sustainable Development

7.8 Conclusion

This section has demonstrated how the proposed development is in accordance with planning policy in relation to the provision of the necessary infrastructure and other requirements for a development of up to 3,520 dwellings. The next section provides a policy assessment of the design and impact of the proposed development.

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8. PLANNING POLICY EVALUATION: DESIGN AND IMPACT OF DEVELOPMENT

8.1 Introduction

In terms of planning policy, Section 6 assessed the principle of the proposed development, and Section 7 described the infrastructure required for a development of 3,520 dwellings. This section assesses how the proposal meets the requirements of planning policies relating to design requirements and addressing the impacts of development. These planning policies are addressed under the following topic headings:

• layout; • buildings; • highways; • ecology; • landscape; • heritage; • residential amenity; • economy; and • meeting NPPF sustainable development principles.

As explained at Section 5, the majority of the technical evidence that underpins the planning application was prepared as part of the Environmental Impact Assessment process. This evidence is provided as an Appendix to the Environmental Statement, which has been submitted in support of the planning application. The preparation of the scheme has been an iterative process linked to both the Environmental Impact Appraisal process and community consultation. The EIA process has considered the significant impacts of the development and this section of the Planning Statement provides more detailed information about how the design of the scheme has responded to these impacts.

As this is an outline planning application, the assessment of design and layout issues can only be undertaken at a broad strategic level on the basis of the submitted plans at this stage. The submission of later reserved matters applications for the detailed design and layout within each development phase will allow opportunity for detailed evaluation of proposals against the design principles set out in the plans, parameters and DAS as and when schemes are submitted.

8.2 Layout

JCS Policies 2 and 10 require that major growth, such as at NS&OC, will be master-planned as attractive, well-serviced, integrated, mixed use development of the highest possible standards, well related to existing development, and creating a strong sense of place. Local people should be given the opportunity to shape development. JCS Policy 1 requires development to be located and designed to address climate change. LP Policy ENV2 requires a high standard of layout and design.

A Design and Access Statement has been prepared to accompany this planning application, which provides description and illustration of the design details of the proposed Scheme and how this evolved from an analysis of site context, technical constraints and opportunities, and the involvement of the community. The Design and Access Statement explains how NS&OC incorporates a clear and well connected layout, offering a variety of experience and character, while maintaining an overall coherence.

8.3 Buildings

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JCS Policy 1 requires development to be designed to use resources efficiently, minimise greenhouse gas emissions and be adapted to a changing climate and more extreme weather. JCS Policy 3 requires that new housing development must reach Code for Sustainable Homes Level 4 for water.

The Code for Sustainable Homes provides a national standard for sustainable design and construction of new homes. Homes developed at NS&OC will achieve a rating of Level 4 or better, or compliance with the Building Regulations, whichever is the more demanding at the time, and is expected that the credits achieved for total carbon emissions will be significantly better than Level 4. Non-residential buildings will be expected to achieve a rating of BREEAM ‘Excellent’ or better on the relevant or equivalent assessment methodology.

See Section 5 regarding how the proposed development also meets JCS Policy 3's requirement for at least 10% of the scheme’s expected energy requirements to be provided through sources of decentralised and renewable or low carbon energy.

8.3.1 Building for Life As explained in section 4.7, the Building for Life standard is made up of 20 criteria providing a framework for assessing the quality of new housing and neighbourhoods and ensuring they are sustainable, attractive and fit for purpose. Projects scoring over 14 points receive silver standard and those scoring over 16 receive the gold standard. Building for Life Assessments will be sought for NS&OC at detailed application stage.

8.3.2 Lifetime Homes As also explained in section 4.7, Lifetime Homes provide 16 design criteria that can be universally applied to new homes at minimal cost to support the changing needs of individuals and families at different stages of life. Lifetime Homes are discussed in the Housing Statement.

8.4 Highways Impact

LP Policies TRA 2 and TRA14 and Structure Plan Policy T2 require the submission of a transport assessment demonstrating the measures proposed to deal with the travel consequences of the development and require that development should not endanger highway safety or prejudice the satisfactory functioning of the local highway network.

The Transport Assessment explains that NS&OC is a sustainable urban extension based on overarching principles that include:

• prioritising the needs of pedestrians, cyclists and public transport users; • structuring development around mixed-use walkable neighbourhoods to reduce the need to travel; • treating pedestrian, cycle and vehicle movement as an opportunity to support a viable mix of uses rather

than a problem to be routed away from primary shopping and commercial areas; • seeing streets as social places that encourage optional activities as well as facilitating necessary activities; • seeing that sophisticated transport and traffic modelling should be able to challenge assumptions on

traffic growth and properly reflect the impact of good urbanism, sustainable movement strategies and travel plans on modal split.

These principles will be supported by a Framework Travel Plan (see below) and Construction Traffic Management Plan. Beyond Green will work with Broadland, Norfolk County Council and Norwich City Council to explore the implementation of Area Wide Travel Planning through either the GNDP Area Action Plan or the NATS to reduce the number of existing and future vehicle trips on the network.

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With regard to the overall development strategy, the Assessment finds that:

• The proposed development will provide the necessary infrastructure to encourage more sustainable travel modes, particularly pedestrian, cycle and public transport. The future residents of the development will benefit from the internal pedestrian and cycle network that will provide safe and direct connections to employment, retail, education, community, leisure and recreational uses within the development boundary.

• The development will provide improved cycle and pedestrian links to local retail, community and education facilities in the adjacent neighbourhoods, and in the longer term work with the local parishes and Norwich City Council to provide an improved cycle corridor along the North Walsham Road to Norwich Town Centre. This will improve the attractiveness of cycling to work for existing residents along these routes and the future residents of NS & OC.

• The future demand for bus services for future residents will be accommodated by the proposed Public Transport Strategy without any adverse impact on existing services. The proposed bus strategy will deliver early access to public transport for new residents with the implementation of two principal services, one half hourly service along North Walsham Road, and the other half hourly service along Wroxham Road. The frequency and penetration of these services will increase as the development is rolled out across all phases. The proposed Public Transport Strategy will also deliver improved frequency and capacity for existing/future residents living alongside the two core bus route corridors identified in NATS, namely North Walsham Road and Wroxham Road.

• The proposed new pedestrian, cycle and vehicular accesses onto the local transport routes can accommodate all trips in and out of the development without any significant adverse impacts on the forecasted traffic on the radial routes. The development can be serviced by emergency, refuse and other service vehicles without any significant adverse impacts on the future residents and existing/future residents living alongside the routes utilized by the service vehicles to access the development.

• The proposed street hierarchy and internal layout will provide safe and convenient routes within the development boundary. This will provide safe environment for all transport users within the development boundary. The implementation of lower speed limits on the radial routes and a 20mph speed within the development will improve road safety for all transport users, particularly pedestrian and cyclists.

• Though the construction impacts are not significant, a Construction Traffic Management Plan will be implemented to manage, reduce and monitor construction traffic during all phase of the development. A construction camp and staff car park will be located in the south east corner of the development, just north of the existing Sprowston Park and Ride. All construction traffic will enter the site from a construction access on Wroxham Road. The access will be managed to reduce any impacts on peak traffic flows on the Wroxham Road.

With regard to highways impacts, the Assessment finds that

• The completed development has no significant adverse impacts on the local highway network for all road users in 2017 before the NNDR is constructed, except for the North Walsham Road/A1042 junction. This is a temporary impact on the North Walsham Road/A1042 roundabout before the NNDR is constructed. It is unlikely that physical mitigation to improve highway capacity is possible at this location. However the implementation of the Framework Travel Plan; including Area Wide Travel Planning for adjacent communities that share the same radial routes as the development; and Work Place Travel Planning for the Airport Industrial Area could provide the mitigation to reduce the residual traffic impacts at this location to an acceptable level.

• Construction of the internal network will reduce the level of impacts identified at other junctions, particularly at the Wroxham Road/Church Road junction, the North Walsham Road/White Woman Lane junction and the North Walsham Road/Barkers Lane junction in 2017.

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• The completed development has negligible impacts on the local highway network for all road users in 2032 on the assumption that the NNDR will be constructed after 2017, except for the following junctions; Salhouse Rd/Mousehold Lane/Heartsease Lane/Gurney Road; North Walsham Road/White Woman Lane; Spixworth Road/White Woman Lane; Blue Boar Roundabout; North Walsham Road/A1042 Roundabout; and Wroxham Road/A1042. The level of impacts at these junctions is not severe, and the proposed implementation of AWTP measures would reduce these impacts further.

On the basis of the above and with targeted mitigation, it is considered that the transport impacts of the development can be accommodated on the surrounding highway and public transport networks.

8.4.1 Travel Plan LP Policy TRA 3 requires that proposals for major development are accompanied by submission of a Travel Plan. A Framework Travel Plan (FTP) has been prepared which details the measures that will be implemented at NS&OC to ensure that everyone who travels to and from the development are encouraged to use the most sustainable travel modes appropriate to their travel needs.

Ambitious targets have been set for mode shift away from the private car as well as walking and cycling mode share targets. In addition to the travel plan for NS&OC, Beyond Green Developments will be extending the travel plan initiatives through an area-wide travel plan that extends to surrounding residential areas to stimulate travel behaviour change across a wider area. The aim is to offset the increase in car trips that will arise due to the new development, whilst sharing the benefits of the new infrastructure with the neighbouring communities.

8.4.2 Pedestrian and Cycle Movement LP Policies TRA4 and TRA5 require that suitable provision be made within new developments for pedestrians including those with disabilities and cyclists to link with local services including public transport outside the site. LP Policy TRA 5 also requires that secure parking be provided for cycles.

Section 6 of the DAS explains at that the development will incorporate the following measures to prioritise the needs of pedestrians and cyclists:

• establishing a site wide 20mph speed limit to make it easier for pedestrians to cross streets at any point. Speeds will be kept low through design rather than enforcement, using features such as short lengths of street between junctions, narrow carriageways, on street parking, limiting forward visibility and the use of shared space on some tertiary streets;

• providing wide pavements that are kept free of clutter to create a pleasant walking environment and provide plenty of space for wheelchairs and pushchairs;

• providing dedicated cycle lanes on primary streets to create safe conditions for cycling despite higher traffic volumes on those streets. Cycle lanes will be a minimum of 2m wide (minimum 1.5m wide when on carriageway) to allow for easy overtaking and to accommodate cargo bikes;

• raising the carriageway to foot path and cycle lane level at side road junctions and giving pedestrians and cyclists clear priority at junctions;

• using a range of controlled and uncontrolled crossing points to provide regular opportunities for wheelchair users and the blind or visually impaired to cross;

• allowing less confident cyclists to avoid turning right with traffic when using the junction of the east-west route with North Walsham Road; and

• using modal filtering at appropriate locations on tertiary streets to restrict through movement of motor vehicles without compromising permeability for pedestrians and cyclists.

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Beyond Green will work with Broadland District Council, Norfolk County Council and Norwich City Council to explore opportunities to improve the quality and safety of cycle routes in proximity to the site which can link the development to the city centre as well as orbital routes around the city.. In the short term this is likely to include measures such as signage and priority improvements to existing pedestrian and cycle crossings to maximise use of existing Pedalways and neighbourhood routes. In the medium – long term Beyond Green will seek the introduction of dedicated cycle infrastructure on the North Walsham Road and the removal of barriers such as the one way system on Magdalen Street to create a direct cycle route from NS&OC to the city centre.

The vast majority of homes will be within 400m of a bus stop and none will be more than 600m from a bus stop. Cycle parking will be incorporated within the development. Detailed location of bus stops and cycle parking will be determined at the detailed design stage. The proposals are therefore considered to comply fully with policies TRA4 and TRA5.

8.4.3 Car Parking LP Policy TRA 8 requires the provision of parking to reflect the use, location and accessibility by non car modes as determined in the transport assessment for the development. In new developments parking and manoeuvring space will be provided in accordance with the Council’s parking guidelines which augment the nationally applicable advice in PPG13 (now superseded by the NPPF). The Council’s parking SPD sets out a range of parking standards based upon dwelling size, but also notes that variations on these standards are permitted “where it can be demonstrated proximity to facilities or particularly good public transport alternatives make normal levels of parking unnecessary.”

Reflecting this context and based on the mix of housing proposed the parking strategy at NS&OC is to provide an average of 1.5 parking spaces per dwelling (excluding visitor parking) and then establish a robust system for managed parking restraint in order to allow parking ratios to be reduced over time in accordance with sustainable travel objectives and outcomes.

The parking ratios are shown at Appendix A, table A7 of the DAS. If Broadland Council’s parking standards are strictly applied then additional car parking would be required, as explained in chapter 6 of the DAS. However, the NPPF has deleted the requirement for maximum parking standards that was set out in PPG13 at the time the local plan policy and parking SPD was adopted. Instead it specifies that in setting local standards, Local Planning Authorities should take into account the accessibility of the development, the type and mix of uses, the availability of and opportunities for public transport, local car ownership levels and the overall need to reduce the use of high-emission vehicles.

There is sufficient capacity within the scheme for additional parking spaces to be accommodated if necessary but given the extent of off-plot residential provision and the very high likelihood that commuting inflows of workers will be outweighed by commuting outflows of residents it is proposed that the final quantum, length of stay and charges for visitor and commercial parking be established during detailed design. The mix of uses at NS&OC and the proposed establishment of a car club mean that strict application of the SPD parking standards for individual uses is likely to result in an overprovision of parking, compromising efforts to encourage visitors as well as residents to travel by sustainable modes. It is therefore considered that the proposed parking strategy is in accordance with up to date planning policy contained within the NPPF and is appropriate to the proposed type, mix and use of development at NS&OC.

8.5 Ecology

LP Policy ENV 5 seeks, where appropriate, the protection of natural or semi-natural features such as trees, woodland, hedgerows, heathlands, rivers, streams, lakes and ponds and other areas rich in wildlife, LP Policy

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ENV 6 relates to the consideration of the effects of development on local nature reserves, sites of special scientific interest or national nature reserves. LP Policy ENV 7 relates to the consideration of effects upon Areas of Local Nature Conservation Importance including County Wildlife Sites and Ancient Woodlands identified by English Nature.

The "Ecology" Chapter of the Environmental Statement considers the potential impacts of the proposed development on the ecology of the development site and surrounding area, and identifies appropriate mitigation and enhancement measures.

The assessment identifies the following Valued Ecological Receptors (VERs):

• internationally designated sites: the Broads Ramsar Site, the Broads SPA, Broadland SAC, River Wensum SAC, Norfolk Valley Fens SAC, Breydon Water Ramsar Site; and Breydon Water SPA;

• nationally designated sites: Crostwick Marsh SSSI, the Broads National Park and Mousehold Heath Local Nature Reserve;

• non statutory District Wildlife Sites; and • habitats: arable fields, amenity grassland, broad-leaved semi-natural woodland, parkland with scattered

trees, improved grassland, hedgerows and ponds.

The Masterplan Process considered ecology throughout by taking the provision of integral, multifunctional green infrastructure as one of its primary objectives so that ecological conservation and enhancement could as far as feasible be integral to rather than mitigation for the main development. Thus areas of public greenspace, including areas of semi-natural planting, the SUDs network that will create a series of linked wetland habitats, and the planting screen with attenuation ponds are all potential beneficial enhancements that are key components of the scheme. Additional mitigation has then been considered where necessary such that the assessment demonstrates that there are no unacceptable effects on these receptors.

There are several UK Biodiversity Action Plan (BAP) priority habitats on site including Hedgerows, Lowland Dry Acid Grassland, Lowland Mixed Deciduous Woodland, Open Mosaic Habitats on Previously Developed Land, Ponds, Reedbeds, Wet Woodland and Wood Pasture and Parkland. Overall, it is considered that the development will result in a Moderate Negative impacts on hedgerows even with off-site mitigation, but for other habitats it is considered that the net effect will be positive owing to the provision of new habitat areas in conjunction with some off-site mitigation.

During construction, the Ecology Chapter recommends mitigation to minimise the impacts of working practices, including pollution prevention measures to protect watercourses and soil; measures to minimise inadvertent disturbance of any bat roosts and nesting birds via noise, vibration and lighting (such as the sensitive siting of work compounds, use of noise-suppressed machinery, and staff training) and works near to trees to being undertaken in such a way as to prevent root compaction, root severance, and impact damage.

Lighting is considered to be a key operational impact on bats. Artificial lights will deter bats from using commuting routes and foraging areas with potential knock-on effects at the population level. Inappropriate lighting along green routes will deter the sensitive bats from using them with consequent impacts on foraging and commuting. Key routes for commuting bats include the greener streets within the project and corridors of darker habitat and utilising existing areas such as the Millenium Woodland and the allotments between North Walsham Road and the Park and Ride site with a green link through the project area to Beeston Park. Buffer zones along the Beeston Park woodlands and within the Park itself, as well proposed green routes for commuting bats, will be kept dark through the use of low intensity lights, low lamp holders and baffles. With these measures as integral components of the scheme it is considered that the impact of lights on bats will not affect the movement of bats across the landscape along commuting routes.

Overall, it is considered that the proposed development does not have an overall adverse impact on the ecology of the site and surrounding area, so it is in accordance with LP Policies ENV5, 6, and 7.

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8.5.1 Tree Survey A Tree Survey has been carried out over the whole site in accordance with BS537:2005. The survey gives a quality and value grade to the trees in accordance with BS537;2005:

• R – removal priority; • A – high retention priority; • B – moderate retention priority; • C – low retention priority.

The tree survey revealed a total of 605 items of vegetation (390 individual trees, 128 groups of trees, 76 hedges and 11 woodlands). Of these, 136 trees/groups/woodlands were identified as retention category ‘A’, 319 trees/group/hedges were identified as retention category ‘B’, 123 trees/groups/hedges were identified as retention category ‘C’ and 27 trees/groups were identified as retention category ‘R’. The report recommends some tree pruning works for reasons of public safety and to ensure the long-term health of the trees, as detailed at Appendix 1 of the Tree Survey.

The survey identifies that there are many trees on site, particularly many of the individual Oak specimens that are reaching over maturity and are close to becoming veteran trees. Ecologically, these trees are important as they provide habitats for a huge array of invertebrates, especially those that are associated with dead and decaying wood. From a safety point of view veteran trees could potentially pose a risk. However, with the correct management such as restricting access or diverting paths or roads away from these trees, they can be left to slowly decline without the need for radical remedial work. These trees also form important landscape features with not only ecological value, but also cultural value. Therefore the report recommends that every effort should be made to retain and incorporate these trees into the final design.

In addition, the report states that the numerous hedgerows and woodlands within this site are also likely to have significant ecological value, and due to how well they have been managed over the years, they also provide excellent landscape features. As such, every effort should be made to retain and incorporate them into the final design.

The species and age diversity of existing trees on site is considered excellent by the survey; however is it possible that some trees may require removal to facilitate development on site. As such, the report recommends careful consideration must be given to designating areas to be replanted during the initial design phase to ensure continued tree cover.

Overall, the scheme provides for the retention of as many trees as feasible, with 17 out of 339 trees and groups of trees within the site being identified for removal to facilitate the proposed designs. This includes 1 Category A tree, 15 Category B trees and 1 Category C tree; none of the trees identified for removal are believed to be veteran. In addition, arboricultural mitigation and enhancement are proposed including the use of retained trees in key locations as public realm focal points, extensive street tree planting incorporating a minimum of 1,500 new trees across the site, and planting of new parkland trees in Beeston Park and Red Hall Farm which will be allowed to develop open growth forms.

8.6 Landscape Impact

LP Policy ENV 8 defines areas of landscape value which are considered to be those areas of special scenic quality or importance in the landscape and seeks to protect these. LP Policy ENV 9 protects important green spaces within settlements and policy ENV 10 promotes the restoration and maintenance of historic parkland landscapes and historic gardens. LP Policy GS3 states that development will not be permitted where there are unacceptable effects in terms of landscape or the open countryside where it would damage the rural or countryside character.

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The Landscape and Visual Impact Chapter of the ES assesses the local landscape and townscape in and around the proposal site so as to ascertain the potential landscape and visual impacts of the proposed development.

With regard to landscape impacts, the LVIA finds that the main part of the application site is currently in use for arable cultivation with a strong network of hedgerows and blocks of trees. The Scheme proposes to retain and enhance many of the existing landscape features within the site, and provide new contemporary landscapes to help create overall benefit to the landscape.

The most sensitive receptor is the Parish Church of St Mary and St Margaret. This is to reflect its national importance as a Grade I listed structure. However, the impact on this is Negligible as it is currently well screened from the application site and in addition an area of green open space is proposed where Church Lane enters the site. High sensitive receptors include the locally designated Historic Parkland, Areas of Landscape Value and the Grade II listings. The effect of the proposed development on these receptors is generally insignificant apart from Oak Lodge Farm which although the impact is considered Moderate/Minor, the change of character will be Slight Adverse reducing to Neutral.

One of the most significant landscape impacts is that on hedgerows. This is considered to be Moderate Adverse reducing to Slight Adverse and over time to Neutral. The design team has taken a conscious decision that where the hedges are of less visual or ecological importance that they will be removed where they do not fit into the constraints of the evolving design. However, to balance this, a new green infrastructure will be developed throughout the proposed development and the hedgerows will be replaced with a network of green infrastructure that is, whilst different, not less valuable. There will be a large beneficial impact to Beeston Park and Red Hall parkland for the benefit of the community at large.

With regard to visual impacts, the undulating nature of the local landscape and the frequent occurrence of hedgerows, trees and woodland, mean that the visual envelope of the proposed development is constrained to views in close proximity to edge of the site.

The visual receptors with the highest sensitivity are viewers with a proprietary interest, for example householders and people using Public Rights of Way when there is an expectation that they are interested in their surroundings. Most of the distant householders will not be significantly impacted by the proposals. Most of the magnitude of effects expected will be Negligible or at worst Minor. The nearby households abutting the site are essentially in three locations. The St Mary's Grove area of Wroxham Road is considered to have an insignificant impact as an expansion of the existing cemetery is proposed the immediate north of these properties. The area to the north of White Woman Lane which lies between North Walsham Road and Buxton Road is separated from development by playing fields. It is considered that the impacts will not be significant. The area of West Acre Drive between Buxton Lane and Quaker Lane will be separated from the development to the north by larger private and communal gardens which will help mitigate the character of change. It is anticipated that the views from these properties will have a Moderate significance of impact with at worst a Slight Adverse, reducing to Neutral character of change.

The other High sensitivity receptor is viewers from PRoW. There are few in the area although Church Lane is considered here as it is used by walkers. The impact of views from distant PRoWs is considered insignificant. The route of Church Lane will be maintained and there will be open space with a green route on the northwards journey. The impact on this High sensitivity receptor is considered insignificant on most of the PRoW's and Major/Moderate significance of impact with Slight Adverse reducing to Neutral residual effect. Indeed it is arguable that the residual effect may be slightly beneficial as the open space accessible to people will increase.

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Therefore, it is considered that the proposed development will be sensitively integrated into its rural surroundings in terms of siting, design and the provision of a high standard of landscaping, in accordance with LP Policies ENV 8, 9, 10 and GS3.

8.7 Archaeology and Heritage Impact

LP Policy ENV17 relates to the protection of scheduled ancient monuments and nationally important archaeological sites. Policy ENV18 seeks to ensure the proper evaluation and recording of archaeological remains where there is no over-riding case for preservation and where possible, their preservation in situ.

An Archaeological Assessment has been undertaken in accordance with the requirements of the NPPF to assess the likely significant effects of the proposed development on archaeological remains. It is based on an Archaeological Desk Based Assessment, and is described in the "Archaeology" Chapter of the ES.

It is considered that, overall, the archaeological potential of the proposed development area would appear to be slightly lower than that of other locations on the periphery of Norwich. The proposed development area contains no Scheduled sites or other known sites of considerable archaeological significance and there is no clear evidence to suggest that settlement foci of medieval or earlier date once lay within its bounds. There are however a number of locations where the presence of archaeologically significant remains has been demonstrated. These features mainly consist of cropmarks.

Mitigation for the archaeology on the site includes a programme of archaeological works; initially by geophysical survey and evaluation by trial trenching, possibly followed by targeted open area excavation. It is considered that a strategy of ‘preservation by record’ of any significant archaeological remains identified through the evaluation will adequately mitigate the likely impacts of the proposals.

Therefore, following the implementation of appropriate mitigation measures, the assessment confirms that the development will not have a significant archaeological impact. Therefore, the proposal is in accordance with the requirements of the NPPF, and LP Policies ENV17 and 18.

8.8 Residential Amenity Impacts

LP Policy GS3 requires that new development does not have a significantly adverse impact on the amenity of nearby residents. Other LP policies relating to impact on residential amenity include LP Policy TRA10 which seeks to prevent a significant increase in the number of people living or congregating within the airport public safety zone or interference with the safe operation of the airport.

The Design and Access statement explains how the proposals have been informed by an extensive process of community and stakeholder consultation to ensure that local people’s views and concerns are addressed as part of the design process. The layout has been designed to ensure that it is context sensitive and integrates sensitively with existing areas of Old Catton and Sprowston. Detailed design considerations for individual buildings will be considered at the reserved matters application stage. It is not considered that there will be any adverse impacts upon neighbour amenity as a result of the proposals.

8.8.1 Airport Public Safety Zone An Airport Safeguarding Statement that has been prepared to accompany the planning application and how the scheme proposals comply with known safeguarding requirements. Norwich International Airport has been consulted during the preparation of the planning application. The Airport’s Safeguarding Officer has undertaken an assessment of the proposed development and has confirmed in writing that none of the proposed elevations infringe the safeguarding criteria.

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Therefore, the proposed development will not have an unacceptable adverse effect on residential amenity of nearby residents and so is in accordance with LP Policies GS3 and TRA10.

8.9 Economy

The Social and Economic Development Statement explains that the application proposals are expected to accommodate approximately 1,000 jobs. A guiding principle at NS&OC is ‘business in the community’; that workplaces should be fully integrated into the development so that they enhance the townspace, provide custom for shops and services are accessible and facilitate interaction between people around town.

8.9.1 Local Centre A Town Centre Uses Assessment has been carried out which demonstrates that the proposed Local and Neighbourhood Centres would not put at risk the spatial planning strategy for the Greater Norwich area and the strategy for the local network of centres. The scale, nature and function of the proposed centres is such that they will not result in adjacent centres moving down the hierarchy of centres and in turn, therefore, are unlikely to affect potential future public or private sector investment in the adjacent district and local centres. It is considered that the proposed development will have a neutral impact upon the centre hierarchy within the Greater Norwich Sub region, providing for the needs of the new development itself and the area immediately surrounding it. It will not adversely impact on other centres within the area such as Old Catton Village Centre but will place additional homes within walking distance of the centre which will increase its catchment. It therefore accords with the NPPF, saved Policy SHO 2 and SHO4 of the Broadland Local Plan and policies 10 and 19 of the Joint Core Strategy.

8.10 Meeting NPPF sustainable development principles

NPPF paragraph 17 sets out 12 sustainable planning principles that should underpin both plan-making and decision taking. Table 7 illustrates how NS&OC fully meets these principles.

NPPF Principle How addressed by NS&OC

1. Be genuinely plan led, empowering local people, with succinct local and neighbourhood plans setting out a positive vision for the future of the area. Plans should be up to date and based upon joint-working and co-operation.

NS&OC has evolved through an extensive programme of community consultation which has directly influenced the proposals as explained at section 4. It has involved close co-operation with the local planning authority and key stakeholders in order to achieve a scheme which is in accordance with GNDP policy and other NPPF principles.

2. Be a creative exercise in finding ways to enhance and improve places in which people live their lives

The DAS explains the design rationale behind the development of the high quality design of the scheme. Section 3 of the Planning Statement summarises its objectives for sustainable development. The scheme aims to work at scale to shape sustainable behaviours because it is places rather than buildings that exert most influence on how we live.

3. Proactively drive and support sustainable economic development to deliver the homes and business, infrastructure and thriving local places that the country needs. Every effort should be made objectively to identify and then meet the housing, business and

The application proposals are expected to accommodate approximately 1,000 jobs. The proposals will deliver 3,520 new homes to meet local needs as identified by JCS policy 9.

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other development needs of an area.

4. Seek to secure high quality design and good standard of amenity for all existing and future occupants of land and buildings

The DAS explains how the proposals provide a sustainable framework for achieving a high standard of design. Detailed design matters can be addressed at the reserved matters stage within the context of the framework to provide an attractive new environment for living, working and recreation.

5. Take account of the different roles and character of different areas, promoting the vitality of our main urban areas, protecting the Green Belts around them, recognising the intrinsic character and beauty of the countryside and supporting thriving local communities within it.

The proposals have been based upon careful consideration of the existing context of the area and have sought to incorporate and enhance existing areas of landscape as explained in the Green infrastructure Statement. Additional homes to be placed within walking distance of Old Catton village centre to enhance its catchment.

6. Support the transition to a low carbon future in a changing climate, taking full account of flood risk and coastal change, and encourage the reuse of existing resources and encourage the use of renewable resources (for example by the development of renewable energy).

Provision of at least 10% of the scheme’s expected energy requirements through sources of decentralised and renewable or low carbon energy. Likely to include PV, solar thermal, micro fuel cells and domestic biomass through to larger installations of CHP, fuel cells and biomass power. Electrical generation technology to supply low carbon energy across the scheme is also being explored (see 9.17)

7. Contribute to conserving and enhancing the natural environment and reducing pollution. Allocations of land for development should prefer land of lesser environmental value, where consistent with other policies in the Framework.

Broadland Council’s Framework Plan Study September 2011 confirms that the application site constitutes one of three broad locations within which, given constraints to development elsewhere in the Growth Triangle including ancient woodland and the line of the NNDR, the necessary scale of development can be focused; Beeston Park and existing ancient woodland areas within the site will be conserved and enhanced.

8. Encourage the effective use of land by reusing land that has been previously developed provided that it is not of high environmental value.

There is a need to allocate greenfield land within the Broadland part of the Norwich Policy Area to meet the housing requirement identified in Policy 9 of the JCS. The Agricultural Land Loss Assessment and the Green Infrastructure Statement explain how measures will be taken to maximise the recovery and reuse of valuable soils including through use in landscaping and private gardens and through redistribution to neighbouring land of lower soil quality.

9. Promote mixed use developments and encourage multiple benefits from the use of land in urban and rural areas, recognising that some open land can perform many functions (such as wildlife, recreation, flood risk mitigation, carbon storage, or food production)

NS&OC is a truly mixed use scheme which seeks to fully integrate living and working space. A guiding principle at NS&OC is ‘business in the community’; that workplaces should be fully integrated into the development so that they enhance the townspace, provide custom for shops and services are accessible and facilitate interaction between people around town.

10. Conserve heritage assets in a manner appropriate to their significance, so that they can be enjoyed for their contribution to the

Historic Beeston Park to be conserved and enhanced. No Scheduled sites or other known sites of considerable archaeological significance are located within the site. An appropriate scheme of archaeological

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quality of life of this and future generations. mitigation to be implemented as necessary.

11. Actively manage patterns of growth to make the fullest possible use of public transport, walking and cycling and focus significant development in locations which are or can be made sustainable.

The scheme has been designed to integrate workplaces, shops and community facilities as explained within the DAS. Ambitious targets have been set for mode shift away from the private car as well as walking and cycling mode share targets. The travel plan will be extended beyond the site boundary. A range of measures will be introduced to prioritise the needs of cyclists and pedestrians. The site is also located within the NPA in close proximity to jobs and services within Norwich City Centre.

Take account of and support local strategies to improve health, social and cultural wellbeing for all, and deliver sufficient community and cultural facilities and services to meet local needs.

NS&OC will provide two two-form entry primary schools, five nursery/preschool facilities and bus services to a new secondary school at Rackheath. Space for GP and dentists on or close to the Main Square (and any other local/ neighbourhood centres as required). Main retail provision at Main Square and secondary provision at Wroxham Road Square. Convenience retail at Church Lane South and Old Catton. Employment opportunities to be integrated throughout the site. Two community halls and a library.

Table 7: NS&OC and NPPF sustainable development principles

8.11 Conclusion

This section has demonstrated that the proposed development's design and its impact is in accordance with planning policy. As this is an Outline Planning Application, there will be a need for further assessment of detailed design issues as reserved matters applications are submitted for approval. However, this application establishes the broad design principles for the site through the development of the Scheme, Parameter Plans and detail contained within the DAS. These design principles and parameters demonstrate that the scheme design satisfactorily addresses the potential impacts of the development in accordance with relevant planning policy.

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9. SUMMARY AND CONCLUSION This Planning Statement has been prepared in support of an Outline Planning Application submitted to Broadland District Council on behalf of the applicants, Beyond Green Developments for a residential led mixed use development on land at NS&OC. In summary, consent is being sought for the following development:

• up to 3,520 dwellings; • up to 16,800m2 of business space and up to 8,800m2 retail space distributed between a local centre with

the potential to grow to a district centre and four secondary neighbourhood centres; • sites for two two-form entry primary schools (up to 5,000m2), plus up to a further 2,000m2 community

space including twop community halls, a health centre and library; • up to 1,000m2 of hotel development; • 82.5ha of green space including up to 20.1ha of play and recreational space and at least 31.3ha of new and

retained natural and semi-natural space, and the dedication of Beeston Park as a major new public park; • an energy centre and very-low-carbon decentralised energy network, including an energy centre of up to

1,500m2; and • associated highway infrastructure including a new east-west high street connecting the Buxton/Spixworth

and Wroxham Roads, forming a link in a potential orbital route between Broadland Business Park and Norwich Airport, and four accesses to the highway network.

Section 38(6) of the Planning and Compulsory Purchase Act 2004 states that planning applications should be determined in accordance with the development plan unless material considerations indicate otherwise. The development plan comprises the East of England Plan, The Joint Core Strategy for Broadland, Norwich and South Norfolk and Broadland Replacement Local Plan Saved Policies.

Parts of the adopted JCS relevant to this application have been remitted for further sustainability appraisal work following the High Court judgement in Heard vs Broadland. These policies therefore have limited weight as material considerations in the determination of the application. Despite the current policy uncertainty, it is considered that the remitted policies for the Growth Triangle describe the most appropriate strategy to deliver growth in Broadland and Greater Norwich and the scheme has therefore been assessed against these policies.

The proposals have been developed as a result of a rigorous and consultative approach to design and planning that has engaged the local community and key stakeholders. The NS&OC proposals will deliver an attractive and environmentally sustainable urban extension to Greater Norwich in accordance with NPPF policy and the policy aspirations set out in the JCS (including remitted policies). It is considered that the proposals represent an appropriate development in this location.

The applicants have asked Broadland Council not to determine the application until the spread of housing numbers in the Broadland part of the Norwich Policy Area has been reappraised through the Sustainability Appraisal and remitted sections of the JCS have been amended or confirmed as appropriate. This is in order to ensure that determination of the planning permission will not unduly prejudice the plan-making process.

Although the application will precede the AAP for the Growth Triangle it is considered that the proposals will not harm the sustainable planning of the wider area and, if approved, will make a strongly positive contribution to the delivery of the stated objectives for the Growth Triangle.

The proposed development is in accordance with planning policy in relation to the provision of the necessary infrastructure and other requirements for a development of up to 3520 dwellings in relation to transport, utilities (including renewable energy), green infrastructure (including open space and ecology) and community / social infrastructure.

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The design and impact of the proposed development is in accordance with planning policy in relation to layout, buildings, highways, ecology, landscape, heritage and residential amenity. The Design and Access Statement demonstrates the high quality of the scheme and demonstrates how NS&OC meets its development objectives.

The site's development offers considerable benefits to the local community, including the provision of market and affordable housing, significant amounts of open space and infrastructure. The Environmental Impact Assessment has ensured the impacts of the development have been identified and mitigated where necessary and the existing environment enhanced where possible.

The scheme and the technical work underpinning it, including the Environment Statement demonstrates that development of up to 3,520 homes and associated uses at NS&OC would fulfil the objectives of sustainable development fully in accordance with the NPPF and the benefits of permitting the scheme would significantly and demonstrably outweigh any residual adverse impacts.

ns&oc planning support statement

Documents

planning policy evaluation

planning policy context

following development

planning applicationand

proposed development

impact of development

mixeduse development

principle of development