Professional Documents
Culture Documents
communities
Key elements of the spatial planning system
Milton Keynes South Midlands Health and Social Care Group exists to develop
Acknowledgements
proposals with partners towards evolving an appropriate local health and social care
infrastructure in support of the Government’s sub regional strategy to help deliver
unprecedented population growth in six key areas – Northampton and West
Northamptonshire, North Northamptonshire, Milton Keynes, Aylesbury, Bedford, and
Luton and Dunstable.
Membership comprises representatives from Social Care and Health, Health, Local
Government and Voluntary Sector organisations.
The group’s remit includes commissioning research into models of care and receipt of
research outputs, pre-consultation and consultation with key stakeholders and their
publics, producing recommendations and feeding these back before developing an
agreed planning framework for the future provision of health and social care in the
Milton Keynes South Midlands sub region.
Ben Cave Associates Ltd provide consultancy services in the following areas
Ben Cave Associates Ltd work with regional bodies, local authorities, NHS organisations,
regeneration partnerships and the voluntary and the private sectors and can be
contacted at www.caveconsult.co.uk
Published in 2004 by: Milton Keynes South Midlands Health and Social Care group
Nene House, Isebrook Hospital, Irthlingborough Road, Wellingborough, NN8 1LP
All rights reserved, including the right of reproduction in whole or in part in any form
ISBN 0-9548335-2-X
Section 4 References 30
Foreword
High levels of population growth are projected for Milton Keynes and the South
Foreword
Midlands. Between now and 2031 the population is expected to grow by 750,000
people. We will need an extra 300,000 new jobs and 370,000 new homes in an area
stretching from Corby to Northampton, Bedford, Milton Keynes and Luton. Similarly
rapid levels of development are anticipated across other major growth areas in the
south east with Ashford, the Thames Gateway, and the London-Stansted-
Cambridgeshire Corridor each seeing considerable increases in population.
Such unprecedented growth has major implications for the health and wellbeing of
both the present and the future communities.
The Office of the Deputy Prime Minister has set out an action plan for meeting these
challenges in Sustainable Communities: building for the future. The new spatial
planning system is a key mechanism for the delivery of this plan.
Health and wellbeing are central to sustainability. Strategies for sustainability are
likely to improve health and the NHS is committed to tackling the underlying
determinants of ill health and reducing social exclusion in all its forms. The NHS is
also a major landowner, employer and a procurer of goods and services. As both a
service provider and a major organisation it is absolutely imperative, therefore, that
the health and social care sector plays a full and active role in servicing this
substantial population growth over the coming years.
This summary of key elements of the planning system is designed to support all
those involved in the growth areas. This document outlines the different stages of
the planning process and identifies opportunities to get involved.
There are no instant solutions to this opportunity. Meeting today’s demands and
tomorrow’s needs requires hard work and depends on a wide and diverse range of
people becoming involved to share a single vision. This document explores the
potential for establishing common ground between these disparate stakeholders and
their different agendas.
As chairman of the MKSM health and social care subgroup overseeing the
developments, I am delighted that the regional directors of public health for the four
growth areas have joined me in signing and supporting this document.
David Sissling
Chairman, Milton Keynes, Health and Social Care Group
1
Foreword
Sue Atkinson
Regional Director of Public Health, London
Lindsey Davies
Regional Director of Public Health, East Midlands
Mike Gill
Regional Director of Public Health, South East of England
Gina Radford
Regional Director of Public Health, East of England
2
1. Introduction
Introduction
1.1 In recent years a number of changes have been proposed to the planning
system in England and Wales. Back in 2001, the Government’s Green Paper
entitled ‘Planning: Delivering a Fundamental Change’ proposed changes
which were aimed at simplifying the planning system and encouraging further
engagement with communities in the planning process. A number of these
proposed changes are now included in the Planning and Compulsory
Purchase Act 2004,1 which received Royal Assent in May 2004. The provisions
of the Act will come into force through a series of commencement orders.
The first commencement order were made towards the end of July 2004
bringing enabling powers to make subordinate legislation come into effect.
Commencement orders for other parts of the Act follow in September and
October 2004.
The Spatial Planning System: this looks at the general principles of the
planning system
• The Communities Plan,2 includes the Milton Keynes and South Midlands
(MKSM) Growth Area. This includes information on the Local Delivery
Vehicles that are proposed or could be adopted in the MKSM area.
1.4 The flow chart in Figure 1 shows the links between planning policy at the
national, regional and local level. The flow chart also contains a section on
development planning. This sets out other elements of the planning system
where the NHS can get involved, and in the case of planning obligations
(Section 106 Agreements) is already involved. Further detail on each of these
elements is set out in Section 2.
3
1.5
Introduction
Figure 2 accompanies the following sections and provides an overview of the
consultation opportunities for NHS organisations in the planning process.
1.6 The assessment process provides some checks and balances on the planning
system through a series of detailed reports that seek to present the entire
range of significant effects of development proposals to decision makers. The
preparation of these reports provides key opportunities for NHS organisations,
and other health champions, to ensure that health-related issues are identified
and addressed.
4
1.11 Health impact assessment (HIA) is not a statutory requirement but it has
Introduction
been endorsed by international policy6 and a range of national policies,
programmes and guidance.7 Recent examples include the Select Committee
on Health recommending that HIA is carried out on major planning proposals,8
and the requirement of the London Plan for Boroughs to have regard to the
health impacts of development proposals (Policy 3A.20). It is becoming part
of good practice to integrate health and social issues into other forms of
impact assessment. HIAs provide a key opportunity to address health issues
and are likely to have greater effect when they are carried out within the
plan-making framework.
5
Figure 1 Key elements of the new planning system
Introduction Planning Policy Statement (PPSs) White Papers and
ODPM Circulars
PPSs provide concise practical Circulars give advice on Other Policy Statements
guidance on planning policies. legislation and procedures. White Papers include the
They cover both general and These often contain the Transport White Paper, the
specific aspects of planning policy. Secretary of State's views on Rural White Paper and the
the meaning and effect of new Urban White Paper. Recent
National level
There is opportunity to influence legislation. They do not Policy Statements include the
the content of PPSs when draft however provide an Communities Plan.
PPSs are published for public authoritative interpretation of
consultation. the law.
Regional Spatial Strategies (RSSs) Replace Regional Regional Economic Strategy (RES)
Planning Guidance (RPG) RESs are prepared by Regional
These are statutory documents which provide a broad Development Agencies and other
development strategy for the region. They provide a partners, and aim to set out a
spatial framework to inform the preparation of Local long term strategy for economic
Development Frameworks (LDFs), local transport plans and growth.
sub-regional strategies. RSSs have a timescale of at least
15 years, although revisions will be required periodically.
Other Regional Strategies
A number of strategies such as
Regional level
There are several opportunities to get involved in the
production of RSSs. Regional Waste Management
Strategies, Regional Mineral
The Regional Transport Strategy (RTS) is incorporated Strategies,Energy Efficiency and
within the RSS. Tourism Strategies are often
produced. In most cases these
form part of the RSS as individual
topic chapters.
Sub-Regional Strategies
Sub-Regional Strategies are only prepared where there is a
clearly recognisable 'strategic policy deficit' which cannot
be addressed adequately in the general RSS policy. For
example, these have been prepared in the Government's
identified growth areas.
Community Strategies
Local Development Frameworks (LDF's) These set out a long term vision for an area
An LDF is a portfolio of Local Development focusing on improving the quality of life.
Document (LDDs) which will deliver the
spatial planning strategy for a local planning LDFs act as the land-use and development
authority (LPA). It effectively sets out the local delivery mechanism for the objectives and
planning framework for development in the policies set out in the Community Strategy.
area. An LDF is made up of DPD's, SPD's and SCI's
(see below). At the County level, minerals and The Local Strategic Partnership (LSP), an
waste LDDs are prepared. umbrella partnership bringing together
public, private, community and voluntary
Local level
Core Strategy These include design This sets out how the LPA will
Site Specific Allocations & Policies guides and development involve the community in
Proposals Map briefs and are not statutory the preparation and revision
Generic Policies of LDDs.
Area Action Plans are prepared for areas
of change and offer considerable opportunity
to influence development in a particular area
This is the statutory part of the LDF
Development
planning
6
Figure 2 Overview of consultation opportunities
Plan/Strategy Opportunities for consultation What to look for What to offer
Regional Spatial Strategy (RSS)/ There are several formal opportunities to contribute to the RSS. These Major new development areas including new SHA’s could inform the RPB of any
Sub-Regional Strategy are (1) identification of issues stage; (2) developing options and policies; settlements will be identified and housing significant future plans for health care
(3) publication of draft RSS; and (4) Examination in Public. distribution figures will be set out. These will help provision in the Region and make known
identify where there may be a need for further the need to be involved at the earliest
There are opportunities for informal discussion with Regional Planning health care provision in the region. There may be possible stage in any new development
Body (RPB) at any stage, although it is preferable to start these prior to strategic policies relating to health care/facilities proposals.
work starting on the RSS. associated with new development.
Local Development The Statement of Community Involvement (SCI) sets out a timetable for There is an opportunity to consider any healthcare There is an opportunity to provide
Framework (LDFs) consultation. This is subject to independent examination. The key formal implications of new development proposals. information on healthcare in the area to
stages are the draft LDF stage and the examination stage. help inform the Local Planning Authority’s
7
information base.
There are also several opportunities for informal discussion with the LPA, There may also be opportunities to influence the
with the best opportunity being in the earliest stages of the LDF preparation. location of new healthcare facilities and to ensure The NHS can seek to be consulted on
that they are accessible. significant development proposals in the
It is useful to monitor the progress of relevant LDFs and to keep in regular area. Any NHS sites for disposal can be
contact with the planners responsible for the LDF preparation. The NHS may also wish to influence affordable/key promoted with the aim of getting the
worker housing provision and location. site allocated for development in the LDF.
Area Action Plans are prepared for areas of change and offer considerable
opportunity to influence development in a particular area.
Masterplanning There is considerable opportunity to influence proposals at the There is an opportunity to ensure that key public The NHS can provide provide opportunities
masterplanning stage. health and sustainability principles have been for co-location of services and community
applied. access to facilities.
Masterplanning can provide an opportunity for the community as well as
developers and the local authority to work together on a development There is an opportunity to ensure that key public NHS and community health organisations
proposal. services – including those run by or on behalf of can assist in reaching excluded or isolated
the NHS – are accessible. groups.
In most cases it will be the role of the Local Delivery Vehicle to oversee
masterplans.
Introduction
2. The Spatial Planning
System
National Level
The Spatial Planning System
2.1 At the national level, the Government publishes Planning Policy Statements
(PPSs). These provide national planning policy guidance on a range of specific
planning issues. Also at the national level, Circulars provide advice on
legislation and procedures.
2.2 PPSs provide concise practical guidance on national planning policy. Plans at
the regional and local level must conform with this national policy, and PPSs
will be taken into account when Local Planning Authorities (LPAs) determine
planning applications.
2.3 PPSs cover both general policy issues, such as the production of Local
Development Frameworks and Regional Spatial Strategies, and specific aspects
of planning policy such as housing, retail development, sport and recreation
and issues related to the countryside. Of particular interest are the following
draft PPSs:
2.4 The first of these, draft PPS1, sets out the key principles of the planning
system. The key messages are as follows:
2.5 Drafts PPS11 and PPS12 set out guidance on the two key elements of the
planning system. Further information on these and the new planning system is
set out below.
2.6 PPSs are prepared when a new topic/policy area is considered to require policy
guidance. There are two main opportunities to influence the content of PPSs:
the first is when they are at draft stage – the ODPM will usually put them out
for consultation for a few months before issuing the definitive PPS. The
second opportunity for influencing the content of a PPS is when it is revised.
8
The Spatial Planning System
They are revised as and when necessary. One of the subtleties of the planning
system is the way in which evolving versions of a PPS gradually acquire weight
as it is issued in draft form, adopted and then revised.
2.7 Circulars: ODPM Circulars provide advice on legislation and procedures, often
setting out the Secretary of State’s views on the meaning and effect of new
legislation. Circulars are prepared covering a range of topics, such as planning
obligations, planning and access for disabled people, procedures on planning
inquiries into major infrastructure projects, guidance on planning appeals etc.
There is often opportunity to influence the content of Circulars when drafts
Circulars are published for consultation.
2.8 White Papers and Policy Statements complete the picture of planning
guidance at the national level. White Papers published in recent years include
the Transport White Paper and the Rural and Urban White Papers. Policy
statements include the Sustainable Communities Plan.2 Further detail on this,
with special reference to the MKSM area, is included in
Section 3.
Regional Level
Regional spatial strategies
2.10 The RSS provides a spatial framework to inform the preparation of local
development documents, local transport plans and regional and sub-regional
strategies and programmes that have a bearing on land-use activities. The RSS
provides the framework for the regional sustainable development framework
(RSDF) and the regional cultural, economic and housing strategies. Other
strategies linking to the RSS include air quality strategies and waste
management strategies.
2.11 RSSs cover a period of at least 15 years, although they will be reviewed as and
when necessary. They are prepared by Regional Planning Bodies (RPBs). The
policies of RSSs have considerable weight and form part of the development
plan, meaning that planning applications will have to be determined in
accordance with the RSS and its policies.
2.12 The aim of RSSs is to focus on regional issues and priorities and whilst they
can be locationally specific, they should not be site specific, as this level of
detail is a matter for the local planning level. Typically a RSS will cover broad
issues which apply to the whole region and will usually also cover specific
topics such as housing, the economy and the natural and built environment.
9
The housing chapter will typically set out housing provision targets for each of
The Spatial Planning System
the districts within the region and is likely to contain broad policies on relevant
housing issues including affordable housing issues. Under the current system
housing distribution targets by district are set out in the County Council’s
Structure Plan. Likely to be of most concern to the NHS are any large scale
development areas that may be proposed in the RSS which will have an
impact on healthcare requirements. Policies relating to the provision of
community facilities and affordable housing may also be of interest.
2.13 RSSs include a Regional Transport Strategy (RTS). The transport policies set out
in the RTS need to reflect and support the aims of the spatial strategy, the aim
being to deliver more sustainable travel patterns and to identify locations for
housing, commercial development and essential services in areas of high
public transport accessibility. This is important when considering the location
of new services such as healthcare services as accessibility to all should be a
key determinant in any decision on the location of such a facility.
2.14 As RSSs are introduced through the new planning system, there will be a
transitional period, before all regions have an approved RSS in place. The
transitional arrangements allow for Structure Plans, which are currently
produced by County Councils to be ‘saved’ for a period of three years from
the commencement of the Planning Bill or from the adoption of the structure
plan, whichever is later, although in certain circumstances policies can be
‘saved’ for longer.
2.15 There are several opportunities for involvement in the RSS production /
revision process. Annex D of Draft PPS11: Regional Planning identifies the
Department of Health, through Strategic Health Authorities, as a consultee for
proposals which are likely to have significant health infrastructure provisions.
The draft PPS does not identify specifically what this includes although it is
likely, for example, to include a major new housing development or new
settlement. Such demographic changes will have implications regarding the
need for healthcare provision in the region. RSSs give SHAs the opportunity to
think over the long term about changing models of care and the need for
health care or shared facilities.
2.16 However, it is important that Strategic Health Authorities do not rely on being
‘automatically’ consulted in this way, and it is advisable for them to be aware
of the stages at which there are likely to be opportunities to contribute to RSS
production by monitoring the relevant RSSs. The SHA can do this by making
regular contact with a member of the RSS/Planning team at the Regional
Planning Body (RPB) or by checking on the relevant website. The Government
Office for the region should also be able to assist in giving out the relevant
contact details. It is also useful to make contact with the relevant person at
the RPB in advance of formal consultation periods so that any particular
issues/future plans can be discussed to ensure that they are taken into account
in any draft guidance that is produced. This sort of discussion can also be
important in ensuring that the RPB gains an understanding of how the SHA
work and what they would like to see included in the regional guidance. It
also provides an opportunity for the SHA to understand more about the work
10
The Spatial Planning System
of the RPB and to ensure that they are aware of how they can get involved at
the formal consultation stages.
2.17 The key stages in the production of a RSS are set out below. This also sets out
the more formal opportunities for consultation in the process, although, as
discussed above, informal discussions with the RPB can be held at any time.
11
2.21 Stage 4 – The Examination-in-Public
The Spatial Planning System
This potentially provides further opportunity for public consultation, as invited
members of the community/stakeholders have an opportunity to make their
case to an independent panel. If the SHA considered that it was appropriate
to be involved at this stage then discussion with the RPB would be helpful in
securing the opportunity to participate at the examination. The Panel Report,
which sets out the Panel’s findings from the examination, is usually completed
within two months of the end of the examination. Following this, proposed
changes to the draft RSS may be published, and there may be opportunity for
further consultation at this stage. This will depend on the extent of any
proposed changes.
2.22 Stages 3 and 4 of the process, up to the issue of the final RSS are likely to
take around 16.5 months.
Sub-regional strategies
2.23 Sub-Regional Strategies are only prepared where there is a clearly recognisable
‘strategic policy deficit’ which cannot be addressed adequately in the general
RSS policy. For example, in areas where there are particular issues, such as in
areas which are in particular need of regeneration or where there is
considerable new growth planned, such as the MKSM area. Sub-Regional
Strategies will have an important role to play in setting the policy context for
the area. The process for producing Sub-Regional Strategies is similar to that
for producing RSSs and there will be similar opportunities for the SHA to get
involved if necessary. Through monitoring of progress with RSSs, the SHA
would be aware of any Sub-Regional Strategies that are likely to be produced
and could initially make contact with the RPB to find out more and to get
relevant contact details for those specifically involved in the Sub-Regional
Strategy of interest.
2.24 At both the regional and sub-regional level the RPB may appoint consultants
to undertake various studies/technical work to inform the strategy. Depending
on the nature of these studies there may be opportunities for consultation,
although it is most likely that the consultants will contact those interested
parties that they require information from directly.
Local Level
Local Development Frameworks
12
The Spatial Planning System
i) The development plan sets out the statutory planning policy context: it is
made up of the RSS and the development plan documents (DPDs). The main
purpose of development plans is to provide certainty and predictability to the
planning system and they are the starting point in considering the merits of
planning applications. The key elements of the DPDs are as follows:
• The Core Strategy, which sets out the key elements of the planning
framework for the area, including the strategic objective, the spatial
strategy and core policies. This would set out an indication of broad
locations for housing, employment and other strategic development needs.
All other parts of the DPD must be in conformity with the core strategy.
The timescale for this core development plan document is at least 10 years
from the date of adoption.
• Site Specific Allocations of Land, which are set out where appropriate.
• Area Action Plans. These are prepared where necessary and provide a
planning framework for areas where significant change or conservation is
needed. They focus on implementation.
• The Proposals Map. This identifies areas of protection and locations for
particular proposals. It will need to be revised as new development plan
documents are prepared.
ii) Supplementary planning documents (SPDs) also form part of the LDF, but do
not form part of the statutory development plan. SPDs will include design
guides and development briefs. However, these are still subject to community
involvement.
iii) Generic Development Control Policies will also be included in the LDF, and
will set out criteria against which development will be considered when
planning applications are submitted.
2.26 There are a number of opportunities to get involved in the LDF development
process. The LPA is required to produce a Statement of Community
Involvement (SCI) which sets out how they will involve the community in the
preparation and revision of LDDs and in significant development control
decisions. This is useful in providing an indication of the opportunities for
consultation and also the likely timescale for this consultation. The SCI will
also set out those organisations that the LPA will consult both formally and
informally during the consultation stages. Draft PPS12: Local Development
Frameworks9 sets out a list of bodies who the authority should consider
consulting, and this includes the Department of Health through the relevant
SHA and, where appropriate, Primary Care Trust. The SCI is subject to
independent examination, and there is opportunity for public involvement at
this stage.
2.27 LPAs also produce a scheme, known as a Local Development Scheme (LDS)
which sets out their three year programme providing an indication of the
timetable for preparing each LDD and the key milestones. This LDS, along with
the SCI is helpful in setting out a programme of when there is opportunity to
get involved in the LDF production. However, as at the regional level, it would
be useful for the NHS to identify a contact in the planning department at the
relevant LPA and to keep in contact with them. This will not only ensure that
the NHS does not miss out on opportunities for consultation but will establish
13
useful links. Should the planners require specific information on healthcare
The Spatial Planning System
facilities or other health issues, they will have a contact at the NHS.
Process
2.28 As described above, a key element of the LDF is the statutory Development
Plan Document (DPD). There are four key stages in the preparation of DPDs
which are set out below along with the opportunities for possible NHS
involvement. It is very often most appropriate to get involved in the
production process as early as possible, as this provides the greatest
opportunity to influence the content of the documents. NHS involvement in
the plan making process should not be confined to the formal consultation
opportunities, but informal discussions with the LPA can be held at any time.
However, it is likely to be most appropriate to meet with the LPA before they
start work on the LDF or in the very early stages of plan production. At this
stage there would be opportunity for the NHS to make known any key issues
such as the need to plan for new healthcare facilities in the authority area, co-
location of facilities and services and issues affecting the public’s health. This
would also provide an opportunity to promote any NHS sites for disposal and
to get them allocated for development.
2.30 Draft PPS12 does not specify what is meant by the term ‘social characteristics’
although it is likely that this will include information such as that related to
the index of deprivation of different parts of the area. It would be useful for
the NHS to offer any relevant information on health and patterns of health
care in the area as this will again assist in creating links between the planners
and the NHS and in ensuring that the plan is based on up to date relevant
information.
2.31 There are no formal opportunities for consultation at this stage, but the LPAs
(or in areas where there is a County Council, the County) will need to collect a
certain amount of relevant information and there may be an opportunity for
the Health Authority to provide information to the LPA to assist them in the
preparation of their information base. Monitoring the progress of relevant
LDFs, in a particular area of interest will ensure that the SHA can contact the
LPA at the appropriate stage and can therefore arrange to meet with them
14
The Spatial Planning System
once this stage of work is underway in order to have an input into the
preparation of the information base.
2.33 If the NHS has been successful in holding discussions with the LPA and getting
involved at previous stages then it is likely that those issues that the NHS
wished to see addressed should be included in the draft at this stage.
Following this consultation period, the development plan document will be
prepared and submitted for independent examination. The consultation at this
stage will assist in identifying issues to be explored at the independent
examination. At this stage it is likely that the NHS will be seeking to make
representations relating to any new healthcare facilities in the area, or to raise
any issues associated with healthcare facilities that will be required as a result
of new development that is proposed. There could be issues associated with
the disposal of old NHS sites, or much broader issues relating to the need for
affordable housing in the area, such as the location, or the numbers of
affordable houses.
2.35 The LPA will prepare a summary of the representations made on the DPD and
where representations include proposals for alternative site allocations, these will
be published by the LPA and representations invited on these. In exceptional
circumstances the LPA will propose changes to the document prior to
examination. It is helpful for clarity at this stage if representations that are
objecting to parts of the DPD specify the changes that are being sought.
15
Local Strategic Partnerships and
The Spatial Planning System
Community Strategies
2.37 A Local Strategic Partnership (LSP) is a single umbrella body that brings
together organisations from the public, private, community and voluntary
sectors. It is a non-statutory, non-executive organisation. It operates at a level
that enables strategic decisions to be taken, whilst allowing action to be taken
at the community level. LSPs are aligned with local authority boundaries. The
aim of these partnerships is to bring together key organisations in order to
identify the top priorities and needs of communities.
2.38 Local authorities in England and Wales have a duty under the Local
Government Act 2000 to prepare community strategies. Preparation and
implementation of a Community Strategy for an area is a key task of the LSP.
This will involve identifying and delivering the most important things that need
to be done in an area, keeping track of progress, and keeping the Strategy up
to date. The sorts of issues covered by a Community Strategy include crime,
jobs, education, health and housing. Community Strategies should set out a
long term vision for an area focusing on improving the quality of life in the
area. It should contain economic, social and environmental objectives to
ensure that the vision contributes to sustainable development objectives.
2.39 There are key linkages between Community Strategies and Local Development
Frameworks (LDFs). LDFs should express, in land-use planning terms those
elements of the Community Strategy that relate to the development and use
of land. The core policies in the LDF will also have to take into consideration
other policies that are relevant to the Community Strategy, including
education, health, waste, biodiversity and environmental protection.
2.40 A study undertaken by Entec for ODPM identified a number of benefits from
creating more effective relationships between LDFs and Community
Strategies.12 These include establishing a joined up and integrated approach to
community planning, and providing an opportunity to potentially resolve
conflicts between community aspirations and national and regional policy
objectives by engaging with a wide range of stakeholders.
Development Planning
Planning Applications
16
Masterplanning
At the regional level the landowner/developer of a large site with potential for
development will seek to ensure that the Regional Spatial Strategy (RSS)
contains broad policies that would enable such development to take place.
Whilst the RSS will not identify specific sites for development, it will identify
broad locations that may be suitable for development, within which the Local
Development Framework (LDF) will identify specific sites. The
landowner/developer will make representations to the RSS at the various
consultation stages, perhaps objecting to policies that would not be helpful to
development of the site and promoting the broad area within which the site
falls as being suitable for development.
At the local level the landowner/developer will seek to ensure that the site is
allocated for development in the LDF. It is likely that they will hold early
discussions with the LPA about the site and will make representations
supporting allocation of the site at the formal consultation stages. They may
also make representations opposing the allocation of ‘competing’ sites. In the
case of housing development, the RSS will have set the target housing provision
for each district. At the local level, the LPA is required to meet this target
through allocating sufficient housing in the LDF.
An Urban Capacity Study undertaken by the LPA will identify suitable sites
within the urban area or other suitable brownfield sites, in accordance with the
Government’s policy of developing sustainable brownfield sites ahead of
greenfield sites. If the identified brownfield sites which are considered to be
17
suitable for development do not make up the housing target, then greenfield
The Spatial Planning System
sites will be allocated.
Planning Obligations
2.44 Under the current system, there are requirements for planning obligations to
meet a series of ‘tests’ as follows:
• to be
necessary;
• to be
relevant to planning;
• to be
directly related to the proposed development;
• to be
fairly and reasonably related in scale and kind to the proposed
development; and
• to be reasonable in all other respects.
2.46 Proposed changes to the planning obligations system have been put forward
by the Government in its consultation paper.13 As part of these proposals, the
Government is proposing a two-pronged approach:
18
The Spatial Planning System
• the Government is proposing to revise policy on planning obligations, and
• new legislation is proposed to enable an optional planning charge, which
could be used as an alternative to negotiated planning obligations.
2.47 The new policy would encourage LPAs to set out formulae in their plans
(LDDs) to calculate the scale of contributions and would introduce an optional
planning charge. Also proposed is the option of encouraging voluntary
pooling of planning obligation contributions where this is the most
appropriate way of meeting the needs of a development. Should these
proposals go ahead, then SHAs should ensure that they influence LDDs and
any formulae that they include relating to planning obligation contributions.
2.48 The introduction of an optional charge would mean that the developer could
choose to pay a fixed charge rather than a conventional negotiated planning
obligation. This would clearly have implications for developer contributions to
local healthcare facilities, and if these proposals were to go ahead it would be
vital for the NHS to get involved with the LPA in setting these charges.
19
3. Delivering the
Communities Plan in MKSM
The Communities Plan
Delivering the Communities Plan in MKSM
3.1 The Communities Plan ‘Sustainable Communities: Building for the Future’
identifies four growth areas as follows:2
3.2 A series of studies have been undertaken to inform the development potential
within each of these areas. In the MKSM area, regional and local partners
have identified scope for an additional 44,000 homes in the area above
current commitments to 2016.
3.4 The sustainable communities document identifies the potential for growth in
this area to 2031 of up to 300,000 jobs and 370,000 homes and as generally
set out in the MKSM Study. Figure 3 identifies the potential development
areas up to 2021, along with the number of houses and jobs proposed at
each location).
3.5 Following on from the main MKSM study, individual growth area studies were
commissioned to look in more detail at potential growth areas based on each
of the above settlements and to assess the practicality of the preferred growth
scenarios set out in the main report. It is the recommendations set out in
these studies that is currently being incorporated in the first draft of RPG14
and the revised RPG9.
20
• they have the ability to raise large scale long term funding, with dedicated
3.7 Figure 4 on page 26 is a schedule of the growth areas. This sets out the broad
locations for growth, details of the LDVs, the relevant Local Development
Framework (LDF) and provides details of key contacts at the regional and local
level). The following Local Delivery Vehicles (LDVs) are proposed/have been set
up in the MKSM area:
3.8 The LDVs are described in more detail below. This information is correct at the
time of going to press but some arrangements are currently being negotiated
and may be subject to change.
3.10 The main source of finance for an UDC is grant aid from central Government
which is supplemented by European Regional Development Funds and receipts
from the sales of land and capital assets.
3.11 UDCs are tasked with bringing land and buildings into effective use,
encouraging the development of existing and new industry and commerce,
creating an attractive environment and ensuring that housing and community
facilities are available to ensure that people want to live and work in the area.
3.12 UDCs can have varying powers including certain planning powers. UDCs
may also:
• acquire, hold, manage, reclaim and dispose of land and other property;
• carry out building and other operations;
• seek to ensure the provision of water, electricity, gas, sewerage and
other services;
• carry on any business or undertaking for the purposes of regenerating its
area; and
• generally do anything necessary or expedient for this purpose.
3.13 UDCs are not intended to be long term bodies, and in the past have generally
had a lifespan of up to ten years. UDC boundaries can be the same as local
authority boundaries, but this is not always the case.
21
Urban Development Area (UDA)
Delivering the Communities Plan in MKSM
3.14 UDAs are designated under the Leasehold Reform, Housing and Urban
Development Area Act 1993. In the case of the Milton Keynes UDA, English
Partnerships would become the local planning authority for all major planning
applications. A Committee of English Partnerships (the Milton Keynes
Partnership Committee) will be established to oversee development in this
area and the wider development of the town. The local planning authority will
retain planning powers for the rest of Milton Keynes and other, non-strategic,
planning applications. The Milton Keynes Partnership Committee will have an
independent identity and appropriate delegations from English Partnerships’
main board, dedicated staffing and resources, local partner involvement,
planning powers for major applications in the UDA and the benefit of English
Partnership’s existing procedural and regulatory framework and expertise. It is
proposed that the UDA should continue to exist at least until 2016.
3.15 The Milton Keynes Partnership Committee will oversee development across
Milton Keynes but will only have planning powers within the UDA. It is
proposed to be made up of 10 members including two independent private
sector appointees (with appropriate property, infrastructure, economic and
planning/design backgrounds), two English Partnerships Board members, three
Milton Keynes Council members (including two from the majority party and
one from the opposition party), and three Local Strategic Partnership members.
3.16 English Partnerships is legally comprised of the commission for New Towns
(CNT) and the Urban Regeneration Area (URA). The UDA is designated under
the powers of the URA.
3.18 An LLP has a balance between local democratic accountability and formal
delivery powers, with a strategic approach. Other advantages of an LLP are
that there are some tax advantages and it has the ability to bring together
various separate bodies and their powers. However, a number of possible
disadvantages have been identified, including that as a new legal body certain
aspects have been untested in the courts, the basic profit motive behind
having an LLP is potentially conflicting with local authorities primary focus, the
lack of track record may cause some concerns and the exist strategies from
the LLP may be complicated.
3.19 ‘Delivery 2031’, the LLP will draw up a full business plan, identify funding and
deliver agreed strategic schemes in support of the Growth Area. These
22
Delivering the Communities Plan in MKSM
schemes will range from education, health, housing, employment,
transportation, wider economic and community development.
3.21 URCs are experts in their local areas, and along with the local authority, local
employers, amenity groups, community representatives and the RDA they
should play a key role in co-ordinating investment plans from both the public
and private sectors and attracting new investment through the promotion and
regeneration of their areas.
3.22 Specifically, English Partnerships helps the URCs to deliver their strategic
priorities by participating in joint venture agreements and making acquisitions
for development schemes and the relocation of current occupiers, acting as a
catalyst for regeneration projects and encouraging private sector investment.
In 1999/2000 three pilot URCs were proposed, following the
recommendations set out in the Urban Task Force Report.
23
Figure 3 Potential development areas up to 2021
24
Figure 4 Schedule of Growth Areas
Growth area Broad locations for growth Potential to 2021 Associated infrastructure Local Delivery Vehicles Local Development Key contacts
Framework
new dwellings net new jobs
Luton, Dunstable, Existing Planning 20,554 11,562 Transport Proposed Urban Proposals for a Joint Local East of England Regional
Houghton Regis applications, Local Plan Development Corporation Development Framework Assembly (EERA);
allocations, urban Committed core Translink (UDC) is to be agreed which will be prepared for the Alan Moore Head of
intensification route with several extensions between Hertfordshire whole of the growth area. Planning & Transportation
(primarily into the northern County Council , North Herts T 01284 729447
Up to 2016 - focus on sites and west of West District Council, Luton Date for deposit daft of the E alan.moore@eera.gov.uk
capacity and maximising Dunstable. Borough Council, Local Development
potential Bedfordshire County Council Document will be early 2005 East of England
Development of east and and South Bedfordshire Development Agency (EEDA)
Up to 2016 - 2 releases in north Luton bypasses and District Council T 01223 713900
West Dunstable Dunstable north bypass (from E knowledge@eeda.org.uk
A505 east of Luton via a new Each of the local authorities
After 2016 - main releases M1 junction and west to the would be represented on the Government Office for the
north of the LDHR A5 north of Dunstable) proposed UDC board, along East of England
conurbation with English Partnerships, John Dowie
Widening of M1 up to and other partners Director of Planning &
Up to 2006 there is an Junction 13 Transport
25
existing supply of around The proposed UDC would T 01223 372 723
5,000 dwellings Provision of new station at have development control
Luton Parkway (adjacent to powers to deal with strategic Luton Borough Council
north of conurbation) planning applications, the Planning Department
strategic applications be T 01582 546 329
Utility defined by using the ODPM
standard major applications Dunstable Town Council
Improvements to electricity definition. The UDC will also T 01582 513 000
supply and water supply have powers to enforce
networks Compulsory Purchase Orders Bedfordshire County Council
Sandra Bailey Development
Community The proposed time-scale of Control Team Leader
the UDC is 10 years, with a T 01234 228 633
Indoor sports facility, possible review process after delivery
Centre of Vocational
Excellence, primary care,
schools provision, playing
fields
Figure 4 Schedule of Growth Areas
Growth area Broad locations for growth Potential to 2021 Associated infrastructure Local Delivery Vehicles Local Development Key contacts
Framework
new dwellings net new jobs
Milton Keynes Local Plan allocations, 35,100 35,000 Transport English Partnerships (EP) will Work will commence 2004 on Government Office for the
redevelopment in Central (to 2016) (to 2016) authorise major development Local Development South East
Milton Keynes, and other Development of a new, high and planning applications Framework T 01483 882 255
infilling quality public transit system within the designated area of
Major improvements to J13 the Urban Development Area Date for deposit daft of the South East England Regional
Up to 2016 development in and 14 of M1 (and widening (UDA) Local Development Assembly (SEERA)
addition to Local Plan between Junction 14 and 10) Document will be early 2005 T 01483 555 200
allocations should be Restoration of east-west rail The establishment of the
directed to those areas of route between Oxford and Milton Keynes Partnership South East England
the city where there is Bletchley and a southern Committee (MKPC) a Development Agency
existing infrastructure bypass Committee of English T 01483 484 200
Partnerships will oversee
Approximately 15,500 of Utilities development within the UDA Milton Keynes Council
these new dwellings have and the wider area David Hackworth,
existing planning Electricity, water and other Head of Planning and
permission or will come services will need to be Milton Keynes Partnership Transport
forward on windfall sites. expanded Committee members will T 01908 691 691
In total approximately include the local authority,
26
27,000 of these dwellings Community the Local Strategic Partnership
will come forward through and private sector
existing supply, leaving a New district hospital,
requirement of 8,000 on affordable housing, schools, MKPC and the UDA are
new sites open space proposed to exist until 2016
Figure 4 Schedule of Growth Areas
Growth area Broad locations for growth Potential to 2021 Associated infrastructure Local Delivery Vehicles Local Development Key contacts
Framework
new dwellings net new jobs
Aylesbury Mostly within or adjacent 10,600 12,600 Transport Proposed 2 tier system which Preparatory work has begun Government Office for the
to Aylesbury town centre, (to 2016) will include a wider Aylesbury on the Local Development South East
urban intensification Aylesbury Committed bus priority Vale ‘Vision 2031’ forum and a Framework proposed T 01483 882 255
Urban Area measures with further smaller delivery body Adoption Date is 2007
Beyond 2016, faster rate of corridors Aylesbury Vale ‘Delivery 2031’ South East England Regional
growth expected 13,900 the later will be a Limited Date for deposit daft of the Assembly (SEERA)
(to 2016) in Southern distributor route Liability Partnership (LLP) Local Development T 01483 555 200
The growth figure is 2,900 the Aylesbury between A41 and A418 Document will be early 2005
dwellings over and above Vale Delivery 2031 board will South East England
the number of dwellings Implement- Utilities consist of Aylesbury Vale Development Agency
provided for in the ation Area District Council, Bucks County T 01483 484 200
Aylesbury Vale Local Plan (excluding Improvements to electricity Council, SEEDA, English
2,500 dwellings supply network and sewage Partnerships, Aylesbury Vale Aylesbury Vale District
related to the treatment works Primary Care trust and Council
MK Urban Area Commercial, Environmental, Martin Dalby Plans Team
Community Community representatives, Leader
and Bucks Economic Forward Plans
27
Extension to Stoke Partnership T 01296 585 435
Mandeville Hospital, primary
Figure 4 Schedule of Growth Areas
Growth area Broad locations for growth Potential to 2021 Associated infrastructure Local Delivery Vehicles Local Development Key contacts
Framework
new dwellings net new jobs
Northampton, Up to 2011 - Urban capacity Northampton 27,600 Transport Proposed local partnership Local Development Government Office for the
Corby, Kettering sites, major greenfield sites 29,400 (2001 – 2021) would bring Corby, Kettering, Document (LDD) is East Midlands
and at Whitehills, Grange Park in Capacity improvements to Wellingborough and East progressing with West T 0115 971 9971
Wellingborough and Upton 40,000 in Corby/ Northampton the M1 and A43 dualling Northamptonshire together Northamptonshire
Kettering/ (within district East Midlands Regional
Growth around Moulton Wellingborough boundary A14 improvements The Local Authorities, the A joint Local Development Assembly (EMRA)
(NE of Northampton) only) Urban Regeneration Company Framework (LDF) is under T 01664 502 563
44,400 Bus priority and park and (URC) Catalyst Corby and consideration
In the longer term (up to (2001 – 2021) ride facilities English Partnerships are East Midlands Development
2031) growth could be in Corby/ proposed to form the Agency
focused on the Wootton/ Kettering/ New rail service and station partnership Richard Harrington
Houghtons area (S Wellingborough for Corby Head of Regeneration and
Northampton) or Daventry, Development
Brackley and Towcester Utilities E richardh@emd.gov.uk
28
of Wellingborough East
Community
Kettering - Thorpe Malsor
extension, West of Burton Town centre redevelopment,
Latimer and Barton new schools, expanded
Seagrave hospital capacity
Figure 4 Schedule of Growth Areas
Growth area Broad locations for growth Potential to 2021 Associated infrastructure Local Delivery Vehicles Local Development Key contacts
Framework
new dwellings net new jobs
Bedford Development to focus on 19,000 10,000 –14,000 Transport Currently in consultation with Background work has East of England Regional
the urban area of Bedford ODPM on proposed Local commenced on the Local Assembly (EERA)
and to the south west of A421 Dualling - Kempston Delivery Vehicles. No timescale Development Framework, no
the town in the northern Bypass to M1 has been set. timescale has been set. East of England
part of the Marston Vale Development Agency (EEDA)
Bedford Western Bypass
Under preferred growth Government Office for the
scenario to 2021 sufficient M1 Junction 13 improvement East of England
land is already allocated/
committed at Bidenham, A428-A6 Link Road Bedford Borough Council
Kempston, Bromham, Planning Service
Wooton and Elstow New A6 Dualling (Elstow to A421) T 01234 221 732
Settlement E planning@bedford.gov.uk
Park and Ride/Parkway
2021-2031 major new Facilities at Biddenham,
greenfield expansion North Bromham and Elstow
would be required in the
Marston Vale Town Centre
29
initiatives/measures required
Community
Up to 30% affordable
housing required.
Utilities
Sources:
Luton, Dunstable, Houghton Growth Area Assessment, Final Report, May 2003, Roger Tym & Partners, Halcrow, and Three Dragons
Milton Keynes and Aylesbury Growth Area Assessment, Final Report, May 2003, Roger Tym & Partners, Halcrow, and Three Dragons
Northampton and Corby/Kettering/Wellingborough Growth Area Assessment, Final Stage 2 Report, May 2003, DTZ Pieda Consulting and Faber Maunsell
Bedford Growth Area Assessment, Final Report, May 2003, Entec UK Ltd, Faber Maunsell and Bone Wells Associates
MKSM Sub-Regional Strategy Public Examination Panel Briefing on Housing and Employment Matters, March 2004, EERA, EMRA and SEERA.
4. References
References
1. HM Government of Great Britain. Planning and Compulsory Purchase Act. 2004.
www.hmso.gov.uk/acts/acts2004/20040005.htm
2. Office of the Deputy Prime Minister. Sustainable communities: building for the future. 2003. available
at www.odpm.gov.uk/stellent/groups/odpm_communities/documents/page/odpm_comm_ 023261.hcsp
3. Prime Minister and Minister for the Cabinet Office. Modernising Government. Cm 4310. 1999.
available at www.archive.official-documents.co.uk/document/cm43/4310/4310.htm
4. European Union. Directive 2001/42/EC of the European Parliament and of the Council on the
assessment of the effects of certain plans and programmes on the environment. 2001.
available at http://europa.eu.int/comm/environment/eia/full-legal-text/0142_en.pdf
5. Office of the Deputy Prime Minister. The strategic environmental assessment directive: guidance
for planning authorities. Practical guidance on applying European Directive 2001/42/EC 'on the
assessment of the effects of certain plans and programmes on the environment' to land use and
spatial plans in England. 2003. available at www.odpm.gov.uk/stellent/groups/odpm_control/
documents/contentservertemplate/odpm_index.hcst?n=4136&l=2
6. European Commission. Fourth report on the integration of health protection requirements in
community policies. V/99/408-EN. 1999. Brussels.
7. Taylor, L. and Blair-Stevens, C. Introducing health impact assessment (HIA): informing the decison-
making process. 2002. London, Health Development Agency. available at www.hda-online.org.uk
8. Select Committee. Health. Third report. 2004. United Kingdom Parliament.
available at www.parliament.the-stationery-office.co.uk
9. Office of the Deputy Prime Minister. Planning Policy Statement 1: creating sustainable
communities. Consultation paper. 2004. available at www.odpm.gov.uk
10. Office of the Deputy Prime Minister. Consultation paper on draft Planning Policy Statement 11:
Regional Planning. Consultation paper. 2003. available at www.odpm.gov.uk
11. Office of the Deputy Prime Minister. Draft Planning Policy Statement 12: Local Development
Frameworks. Consultation paper. 2003. available at www.odpm.gov.uk
12. Entec UK Ltd. The relationship between Community Strategies and Local Development
Frameworks. 2003. Office of the Deputy Prime Minister. available at www.odpm.gov.uk
13. Office of the Deputy Prime Minister. Contributing to sustainable communities – a new approach
to planning obligations. 2003. available at www.odpm.gov.uk
30
The health and social care sector must play a full and long-term and identify the land-use implications of
active role across the growth areas identified in the changing patterns of care and of projected changes
Sustainable Communities Plan. in the size and profile of populations.
• The health and social care sector needs to engage
This is part of a suite of materials funded by the ODPM with colleagues in the planning system, bringing
to promote flexible and effective partnership working. their expertise to the dialogue about sustainability
The other materials are available on www.mksm.nhs.uk and contributing to ensuring the quality of
and include regeneration and new development from early
conceptual stages through to service provision.
- a spatial planning checklist • The assessment and appraisal processes provide key
- what works? a structured review of evidence linking opportunities for addressing health-related issues.
urban and rural development with health change Health impact assessment should be carried out
- planning for access – how to integrate accessibility within the plan-making process.
into masterplans • The health and social care sector should play a full
part, with others, in ensuring that all its stakeholders
Key messages are engaged in the planning process and able to
• Spatial planning brings together all policies that have contribute meaningfully at each stage.
a bearing on development and the use of land. This • All those with an interest in health and sustainability
includes providing for physical and will want to ensure that: green spaces, public
social infrastructures. transport and community facilities are high quality,
• NHS organisations can promote sustainability through easily available and well located; services are
their own policies on waste, transport, investment in provided seamlessly across communities; and green
staff and capital and purchase of goods and services. spaces and the built environment are designed with
• The health and social care sector needs to look to the accessibility in mind.
‘The Spatial Planning Checklist provides a sound basis ‘This is a worthwhile and valuable document, in
for taking a more holistic and integrated approach which many key messages and actions have linkages
to planning’ to the Countryside Agency’s own remit.’
Jane Hamilton, Milton Keynes Partnership Countryside Agency