FIVE YEARS ON HERTFORDSHIRE GUIDE TO GROWTH-2021 - JAMES HULME SUSAN PARHAM - University of Hertfordshire
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HERTFORDSHIRE GUIDE TO GROWTH–2021 FIVE YEARS ON JAMES HULME SUSAN PARHAM
ACKNOWLEDGEMENTS The research and drafting of this report were undertaken by Centre for Sustainable Communities Research Fellow, James Hulme. Dr. Susan Parham defined the research topic and brief and co-wrote and edited the final report. A planning and design team kindly provided by Paul Roberts at Turnberry Consulting to support the project provided assistance with interviews and other research tasks. Thank you to Stephanie Grey, McKenzie O’Neill and Thomas Powell for their work on the research and to Dave Gibson at Draught Associates for designing the report. To UH Press thank you to Sarah Elvins and Jane Housham for all their work in bringing this report to publication. We are very grateful to Andrés Duany, author of the original Hertfordshire Guide to Growth for his expert input which is documented in the report. We are also grateful to all those interviewed or completing questionnaires for offering their time and very useful views. A special thank you to Des Welton for all his help during the process. Many thanks also to all those who kindly supplied visual material, sources for which are noted in the body of the report. These include Turnberry Consulting, The Duchy of Cornwall, The Prince’s Foundation for Building Community, Ben Pentreath and Associates, Gascoyne Cecil, Hertfordshire County Council, First Capital Connect, David Lock and Associates, Ben McCabe/University of Hertfordshire, Look! St. Albans, Feria Urbanism and the BRE. Finally, a debt of gratitude is due to the external funder whose very kind donation made possible this research work. ISBN 978-1-909291-32-40 Copyright 2014 © University of Hertfordshire Published by the University of Hertfordshire Press Printed in Great Britain by The Charlesworth Group, Wakefield, WF2 9LP
HERTFORDSHIRE GUIDE TO GROWTH–2021 FIVE YEARS ON JAMES HULME SUSAN PARHAM
CONTENTS
1 INTRODUCTION 8 5 EXAMPLES OF GOOD PRACTICE - SUSTAINABLE URBAN DESIGN 26
1.1 Background to the research 8 5.1 Reviewing The Guide’s ‘urban village’ model 26
1.2 Aims of the research 8 5.2 Overview of good practice developments in Hertfordshire 27
1.3 Overview of the research process 9 5.3 Design work by Gascoyne Cecil Estates 27
1.4 Overview of the research methods 9 5.4 The Hertfordshire Building Code 28
5.5 Regeneration of Old Hatfield 28
2 THE PLANNING, DEVELOPMENT AND DESIGN CONTEXT 10 5.6 Birchall Garden Suburb proposal 30
2.1 National planning five years on 10 5.7 Hatfield Food ‘Retrofit’ Guide 30
2.2 The economy and growth 10 5.8 Watford – transport oriented development 31
2.3. National planning policy 10 5.9 The Natural House at the BRE Innovation Park 31
2.4 Green belt land 11
2.5 Collaborative planning 11 6 EXAMPLES OF GOOD PRACTICE - COLLABORATIVE PLANNING PROCESSES 32
2.6 Neighbourhood Planning and Neighbourhood Development Orders 11 6.1 Current status of collaborative planning 32
2.7 Community Right to Build (CRTB) 11 6.2 The Old Hatfield Charrette 33
2.8 Collaborative planning in practice since 2008 12 6.3 The Mill Green Charrette 33
2.9 Sustainability policy 12 6.4 Look! St Albans 34
2.10 Innovations in architecture and urban design – some brief examples 13 6.5 Dacorum collaborative planning workshops 35
6.6 Letchworth town debate 36
3 HERTFORDSHIRE’S GROWTH POSITION - KEY TRENDS AND PERSPECTIVES 16 6.7 Panshanger mini charrette process 37
3.1 Overview of perspectives from local authorities 16 6.8 Building Research Establishment (BRE) input on the Hertfordshire Charrette 38
3.2 Summary of local plans and housing growth in Hertfordshire 16
3.3 Local Authority trends and perspectives 17 7 EXAMPLES OF GOOD PRACTICE - SUSTAINABILITY IN THE BUILT ENVIRONMENT 39
3.4 Welwyn Hatfield 17 7.1 Hertfordshire Building Futures 39
3.5 Dacorum 19 7.2 Building Research Establishment (BRE) - GreenPrint 39
3.6 Stevenage 20
3.7 East Hertfordshire 21 8 CONCLUSIONS FROM THE RESEARCH 41
3.8 North Hertfordshire 22 8.1 Planning and housing assumptions 41
3.9 Watford 22 8.2 Cross-boundary sites and working – need for a new structure plan? 41
3.10 Broxbourne 23 8.3 Role of the Hertfordshire Infrastructure and Planning Partnership 41
3.11 Hertsmere 24 8.4 Urban and architectural design – active promotion of design solutions 42
3.12 Three Rivers 24 8.5 Active promotion of design solutions – possible role of the Hertfordshire
Infrastructure and Planning Partnership 42
4 THE INFLUENCE OF THE HERTFORDSHIRE GUIDE TO GROWTH 25 8.6 Active promotion of design solutions – Charrettes and related process 42
4.1 Settlement patterns 25
4.2 Sustainability 25 REFERENCES 43
4.3 Collaborative planning 25
LIST OF FIGURES AND TABLES LIST OF ACRONYMS
Figure 1: The transect approach as a basis for shaping urban development at Tornagrain (Source: Turnberry Consulting) ATOC – Association of Train Operating Companies
Figure 2: Tornagrain development (Source: Ben Pentreath and Associates)
BRE – Building Research Establishment
Figure 3: Queen Mother Square, Poundbury (Source: Duchy of Cornwall)
Figure 4: Knockroon town extension (Source: Image by Richard Ivey, courtesy of The Prince’s Foundation for Building Community) CABE – Commission for Architecture and the Built Environment
Figure 5: New housing, Roussillon Park, Chichester (Source: Ben Pentreath and Associates) CPRE – Campaign for the Protection of Rural England
Figure 6: New housing, Accordia, Cambridge (Source: Wikicommons)
CRTB – Community Right to Build
Table 1: Housing growth position by Local Authority area
Figure 7: Urban Village Model (Source: Hertfordshire Guide to Growth, 2008) DCLG – Department for Communities and Local Government
Figure 8: Small infill redevelopment in Old Hatfield (Source: Gascoyne Cecil)
DfT – Department for Transport
Figure 9: Hertfordshire Building Code (Source: Gascoyne Cecil)
Figure 10: New infill housing development on Arm and Sword Lane , Old Hatfield (Source: Gascoyne Cecil) HIPP – Hertfordshire Infrastructure and Planning Partnership
Figure 11: Hatfield station redevelopment (Source: Hertfordshire County Council)
HPG – Hertfordshire Planning Group
Figure 12: Salisbury Square, Old Hatfield, redevelopment visualisation (Source: Gascoyne Cecil)
Figure 13: Plan of proposed Birchall Garden Suburb, Welwyn (Source: David Lock Associates) LEP – Local Enterprise Partnership
Figure 14: Food ‘retrofit’ visualisation in a new town setting (Source: illustration prepared by Ben McCabe) NPPF – National Planning Policy Framework
Figure 15: Croxley Rail Link plan (Source: Open Source image)
NDO – Neighbourhood Development Order
Figure 16: Prince’s Foundation Natural House (Source: Open Source image)
Figure 17: Old Hatfield Charrette masterplanning outcomes (Source: Gascoyne Cecil) PINS – Planning Inspectorate
Figure 18: Mill Green Charrette area visualisation (Source: Gascoyne Cecil)
RSS – Regional Spatial Strategy
Figure 19: Look! St. Albans design engagement process (Source: Look! St. Albans)
Figure 20: Dacorum collaborative planning workshops process (Source: www.feria-urbanism.eu) SEP – Strategic Economic Plan
Figure 21: Panshanger mini charrette process (Source: Centre for Sustainable Communities, University of Hertfordshire)
SPD – Supplementary Planning Document
Figure 22: Hertfordshire Charrette process (Source: Hertfordshire Guide to Growth)
Figure 23: Hertfordshire Building Futures (Source: Building Futures website) SSCI – Scottish Sustainable Communities Series
Figure 24: BRE’s GreenPrint method in Herts Guide to Growth (Source: Hertfordshire Guide to Growth) TOD – Transport Oriented Development
Figure 25: BRE Innovation Park, Watford (Source: Peter White, BRE)
7
1. INTRODUCTION
Five years ago the University of Hertfordshire and our Chancellor, Lord Salisbury, 1.2 Aims of the research =
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sustainability been approached?
sponsored the Hertfordshire Charrette, which was guided by Andrés Duany with
The research aimed to do three things:
assistance from the BRE and Turnberry Consultants, and involved a wide range of =
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stakeholders with interests in the future of the county. Unusually, the Charrette I dgZk^Zll]ZgZlZ]VkZXdbZ considerations been taken into account?
had a broad focus on placemaking across the county rather than looking from in the nearly five years since
the Hertfordshire Guide to Growth =
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at just one settlement. It offered Hertfordshire residents and professionals
was produced as a result of the retailing been considered and what
the opportunity to work directly with a design team developing sustainable Hertfordshire Charrette process; outcomes have occurred?
growth strategies.
I dXdch^YZgY^gZXi^dch[dgi]Z[jijgZ^c =
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That process produced the excellent Hertfordshire Guide to Growth (2008) which relation to the county’s development responded to these challenges?
focused on six general ‘Scenarios’ by which the county might grow in the years in the light of the ideas generated for
making Hertfordshire a better place to =
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until 2021, and an analysis of typical urban models, including a critique of the live; and been taken into account?
design of the New Town of Stevenage, and case studies, including village and
hamlet extensions. I dYgVlXdcXajh^dchdci]ZWVh^hd[ L
]ViheZX^ÒXYZh^\chigViZ\^Zh]VkZ
the findings and analysis, for any been employed to respond to the full
further work to assist in the objective range of sustainability and resilience
Since that time certain ‘structural’ things have changed. The county’s growth of making Hertfordshire a better requirements spanning economic,
targets in the form of housing allocations put forward by the East of England Plan place to live. social and environmental factors at
were abandoned, as was the Regional Spatial Strategy (RSS). The National Planning play in the county?
Policy Framework (NPPF) and the new Localism and Decentralisation Act came Specifically, in the light of the six scenarios
and the case studies set out in the VkZi]ZegdedhVah^ci]ZHertfordshire
=
into force. Yet similar issues for the county remain: how to deal sustainably with Hertfordshire Guide to Growth, the research Guide to Growth helped to guide the
pressures and requirements for growth; how to improve resilience in relation to the explored the following questions: direction of development and planning
environment, and the social and economic life of the county; and how to harness in the county at strategic, settlement
=
dl]VheaVcc^c\egVXi^XZViXdjcinVcY wide and neighbourhood level?
the benefits of development while minimising any cost to communities.
national level influenced the nature of
development in the county since 2008? >hi]ZgZXdci^cjZYhXdeZ[dgjh^c\
Against this backdrop it seemed timely to review where we have come from and charrette methods to explore and
consider directions for the future in relation to the county’s future development in address these considerations in a
holistic way at strategic level and in
the light of the ideas generated by the Hertfordshire Guide to Growth.
local and regional practice?
This intensive three-month research project has recently been completed and has
produced this report: the Hertfordshire Guide to Growth – Five Years On.
8
1.3 Overview of the of proposed growth – Welwyn Hatfield Stage One comprised a detailed desktop Stage Two of the research process was
research process Borough Council, East Hertfordshire study of written sources about planning, primarily comprised of interviews and
District Council, Dacorum Borough development and housing growth in evidence gathering. This included:
The research for this report has been Council and Stevenage Borough Council. Hertfordshire, also reviewing literature
undertaken by Centre for Sustainable dealing with regional and national issues 9
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Communities Research Fellow, James Interviews have also been conducted where appropriate. The focus was on the and Local Plans across Hertfordshire;
Hulme, reporting to Dr Susan Parham, with a number of landowners in the following questions:
the Centre’s Head of Urbanism, who county who are intending or may in C
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defined the research topic and brief future seek to develop landholdings for L]Vi]Vhi]Z
2. THE PLANNING, DEVELOPMENT AND DESIGN CONTEXT
2.1 National planning five years on demand remaining at 250,000 homes per The expansion of the private rented sector Framework was adopted on 26th March 2013
year based on long-term national household is a significant influence on the direction of and published on 27th March, 2012. At the
The landscape of both the UK housing market projections. housing, with as yet unknown consequences heart of the Framework is the “presumption
and planning policy for growth has changed for new home building. Currently, most in favour of sustainable development”.
considerably since the Hertfordshire Charrette took House prices for both new and previously activity in the rental sector is focused on the Simultaneously, the Regional Spatial
place in June 2008, with major impacts on both built homes had, by mid 2013, recovered to letting of previously built homes, with only Strategies (RSS) that determined housing
the direction and scale of new home delivery. their 2007 levels and continue to rise in the limited discernible appetite for build to let. growth targets nationally have been revoked,
The most influential factors on growth patterns in overheated markets of London and the South New incentives for take up of Build to Let by meaning local authorities are responsible
the intervening five years have been a depressed East. This trend is fuelled by the resurgence Government, as well as a shift in attitudes to for determining, and delivering, the scale of
national and global economy, consistently low in confidence in the London economy, with residential rental by institutional investment, growth in their own Local Plan making. These
numbers of UK housing starts, a change of an influx of foreign investment spending may promote the market for new build homes plans must however be determined “sound”
government in 2010 and subsequent revision of at the top of the market, which has led to for rent in the near future. by independent examination, ensuring the
planning policy with the intention of deregulating a cascade effect in London and the South provision of housing and other elements of
and stimulating a moribund construction industry. East diaspora, including Hertfordshire. Price 2.3 National planning policy land use are consistent with economic and
levels have brought renewed buoyancy social needs.
2.2 The economy and growth to the development sector, with housing The general election of May 2010 had been
starts calculated as six per cent greater by fought against a backdrop of global economic Detractors of the National Planning Policy
From mid 2006 the withdrawal of confidence Summer 2013 than the figure at Quarter Two recession, the collapse of the banking Framework, including the National Trust,
in the housing sector (triggered by the US sub- 2012. However, the UK housing market is sector in autumn 2008 and a depressed Campaign for the Protection of Rural England
prime mortgage crisis) saw a steep reduction in still moving cautiously, with both mortgage UK economy, particularly the construction and the Daily Telegraph newspaper, (which
credit available to house-builders and mortgage borrowing and housing starts representing sector. The new coalition government sought launched a campaign against the proposals)
borrowers. This led to a drastic fall in housing some fifty per cent of 2007 levels. Access to to stimulate housing growth as a priority, in have suggested that the streamlined rules
starts, with UK numbers over the five year period development finance also remains limited for particular through major reforms to planning offer a mandate to developers to press their
2007-2012 dropping to a quarterly average of builders of new homes. policy guidance (the Planning Policy Guidance legal right to build at scale and in rural
25,000, half that of the market’s peak in Quarter series of documents) issued by central locations where Local Authority plans are
One 2007. The total number of housing starts Despite the stimulation of the mortgage government. Proposals were released in July incomplete or out of date. Campaigners
for 2012 remained under 100,000; continuing market through the Help to Buy initiative, 2011 to reduce thousands of pages of detailed also claimed the National Planning Policy
to reflect a weak market despite government limited borrowing capacity remains the norm guidance on housing layout and density, Framework had weakened policy for the
incentives to new build on both demand and for many in the housing market, especially town centres, energy conservation, heritage, development of brownfield land first, as
supply sides. These measures include the new entrants aspiring to home ownership. ecology, flood risk, and other aspects of the well as that which supported town centres
coalition government’s New Homes Bonus (a Compounded by the undersupply of new built environment to just fifty-two pages of as the location for major retail rather than
grant aid scheme to local authorities rewarding homes, this has two major implications – the mandatory policy called the National Policy out-of-town shopping centres. Certainly, the
growth), Get Britain Building (a time limited reduction in owner occupation, a significant Planning Framework (NPPF). threat of challenges to indeterminate Local
loan scheme for developers) and most recently, driver of the new homes market, and an Plans by major developers hung over a good
Help to Buy (government backed mortgage emerging affordability crisis (especially for Faced with a sustained campaign from the proportion of local authorities some months
credit lending for buyers). This low annual first time buyers) that has propelled housing Conservative voter “heartland” revisions were after the deadline for the production of plans
supply figure contrasts sharply with a forecast and growth up the political agenda. made, before the National Planning Policy set by the Secretary of State as April 2013.
10The key innovations of the National Planning Policy 2.4 Green belt land planning, a movement that has been gaining in areas without parishes. It is the role of the
Framework are: force in the UK since the 1970s, has become Local Planning Authority to determine the
The last point, concerning green belt, is of a statutory stage in planning for growth. The legitimacy of a representative neighbourhood
The abolition of Regional Spatial Strategies and their particular relevance to Hertfordshire’s growth publication of the Localism Bill (2011) included forum proposed for any given neighbourhood.
centrally determined housing targets. plans. The politically charged professional planning reform in a raft of measures designed (www.planningportal.gov.uk)
and public debate on National Planning Policy to give local communities a stronger say in how
The preparation of Local Plans by every Local Framework saw both Secretary of State Eric they develop. Neighbourhood forums and parish councils
Authority, assessed through independent Pickles and then Planning Minister Greg Clarke can use new neighbourhood planning powers
examination. make unequivocal statements that green belt One of the main principles embedded in the to establish general planning policies for the
was protected under the new measures. There National Planning Policy Framework proposals development and use of land in a neighbourhood.
The evidence based assessment of housing land is a large amount of uncertainty in Hertfordshire was the devolution of planning decision-making These are described legally as neighbourhood
provision within the Local Plan. as to the position in relation to green belt land, to a local level, involving local people. In line with development plans. In an important change
where a large proportion of the available land this principle, several novel statutory mechanisms to the planning system, communities can
Plans will have to be compliant with the National for development is currently thus designated. were introduced that grant local development use neighbourhood planning to permit the
Planning Policy Framework and be realistic and powers; most notably the Neighbourhood Plan, development they want to see – in full or
deliverable in both housing targets and sites, in order Hertfordshire’s location close to London, Neighbourhood Development Orders and the in outline – without the need for planning
to be found sound. with quick commuter rail links at the heart Community Right to Build. applications. These are called Neighbourhood
of the acutely undersupplied South East Development Orders. (www.planningportal.gov.uk)
Local authorities have a duty to cooperate with housing market makes it both a focal point Consistent with these initiatives, local authorities
neighbouring authorities on cross boundary planning and test bed for the coalition’s attempts to have a duty to involve local people in the Proposed neighbourhood development plans or
as geography, travel to work areas and prevalent stimulate growth. Interview findings seem preparation of Local Development Documents. A Orders need to gain the approval of a majority of
housing markets require. to suggest that differences exist between consideration in the soundness of local plans is voters of the neighbourhood to come into force. If
parliamentary policy direction and the views the early and thorough consultation with local proposals pass the referendum, the Local Planning
Local authorities without up to date Local Plans of the electorate and council leaders in this, a people. This gives further weight to the principle Authority is under a legal duty to bring them into
will have no mechanism to refuse development traditionally Conservative led area. Throughout of collaborative planning; both first principles and force (www.planningportal.gov.uk). They must
proposals. this research, planners have pointed to the the development of specific sites. however be in line with the National Planning
abolition of centrally established housing Policy Framework, be compliant with the Local
Neighbourhood Plans, which must be compliant with targets and perceived uncertainty on issues Plan and be compatible with EU obligations and
the Local Plan, can be written as supplementary such as green belt as factors leading to 2.6 Neighbourhood Planning human rights. The point of compliance means
planning guidance for communities who want uncertainty, and delay, in the county’s growth and Neighbourhood Development that NDPs cannot be used as a mechanism to
to implement specific amenity or aesthetic plans. Orders (NDOs) inhibit development or growth determined in the
improvements (e.g. neighbourhood facilities, locally local plan.
owned housing or design guidance). 2.5 Collaborative planning Neighbourhood planning can be taken forward
by two types of body - town and parish councils 2.7 Community Right to Build (CRTB)
There is a general presumption against inappropriate Since 2008, the emergence of several or neighbourhood forums. Neighbourhood
development of Green Belt land, unless very special new statutory instruments suggests that forums are community groups that are designated Even without a Neighbourhood Plan, a
circumstances can be demonstrated. government ordinance for collaborative to take forward neighbourhood planning Community Right to Build is a type of
11Neighbourhood Development Order that Communities In Planning that promoted good partnership of a landowner-promoter with was established in 2006. The yardstick for
allows certain community organisations to collaborative planning practice throughout an experienced practitioner in the field. The delivery of low energy homes was the Code
bring forward smaller-scale development England. The supporting groups who bid to offer period in question for this research has been for Sustainable Homes, which established
on a specific site, without the need for collaborative planning advice were Planning one of both financial restriction for developers a stepped scale of performance levels from
planning permission. This gives communities Aid, Locality, the Campaign for the Protection of and planning uncertainty, so collaborative one to six, which could be adopted as targets
the freedom to develop small-scale housing Rural England (CPRE) and the Prince’s Foundation planning practice has been focused on much by developers and local authorities. Code
schemes and other facilities that they want. for Building Community (PFBC). Using written longer-term timeframes; notable examples Level 6 represented a house with a “Zero
(www.torridge.gov.uk) guidance, advice portals (telephone, email and include Tornagrain, a new community in North Carbon” footprint, to be achieved through a
social media) and live demonstration projects East Scotland promoted by the Moray Estates. A combination of excellent thermal insulation
Community right to build orders are subject with local communities, the scheme successfully Charrette approach was initiated by the Estates for all fabric elements and on-site renewable
to a limited number of exclusions, such introduced the new neighbourhood planning in February 2007, and successfully led by Duany energy provision.
as proposals needing to fall below certain mechanisms, as well as the National Planning Plater Zyberk. At the other end of the country,
thresholds so that an Environmental Impact Policy Framework to a broad range of new the Ashfield Estate in Hampshire has used Adoption of higher levels of the Code has,
Assessment is not required. Proposals are participants in community planning activities. collaborative planning to propose a new urban during a period of innovation, been either
subject to testing by an independent person extension to Romsey, employing the Prince’s the decision of individual developers
and a community referendum (Planning Portal. In Scotland, government’s active support for Foundation for Building Community and using its or included as a condition of planning
April 2013). collaborative planning came through the Scottish Enquiry by Design methodology. permission at the discretion of local
Sustainable Communities Initiative (SSCI). authorities. Additionally, certain funding
The emergence of these instruments posits the Launched in 2008 the Scottish Sustainable It is salutary that Hertfordshire has become a regimes have stipulated a Code requirement,
kind of local control and fine grain assessment Communities Initiative aimed to raise standards centre for good collaborative planning practice in particular the mandatory adoption of
of sites that would facilitate many of the design and promote skills in sustainable housing led since the Charrette of 2008. Combining factors Code Level 3 by builders of affordable
interventions (particularly infill sites) explored developments, and to reward exemplars of of large housing growth pressures and a scarcity housing funded or part funded through
through the Hertfordshire Guide To Growth. community development. Of particular note was of suitable sites has prompted the adoption the Government’s Homes and Communities
Additionally, their adoption as policy and the Scottish Sustainable Communities Initiative of Charrette or similar processes in several Agency. To date, achievement of the upper
promotion by national government has led to Charrette Series, a month-long programme boroughs. Worthy of mention, too, is the Code performance levels (4-6) has been
a groundswell of new collaborative planning in which the firms Duany Plater Zyberk (DPZ) relatively high level of knowledge on planning generally confined to largely experimental
initiatives that are themselves a validation of and Turnberry, combining design and planning issues in the local population, further stimulating or one-off high value homes, while the
the Charrette approach. disciplines, conducted Charrettes on three sites an active debate on growth. All these factors technologies needed to achieve these levels
across Scotland. The series, which took place in have led to an ongoing programme of Charrette continue to develop for mainstream markets.
2.8 Collaborative planning in March 2010, considered growth strategies and type engagements across the county. Some of
practice since 2008 proposed urban design solutions for Ladyfield these feature as case studies later in this report. In general, the dialogue on energy
(Dumfries), Lochgelly (Fife), and Grandhome performance for new homes continues
Concurrent with the issue of the National (Aberdeen). 2.9 Sustainability policy to centre on debate about the validity of
Planning Policy Framework for consultation, the Zero Carbon target. Relying on a high
the coalition government announced a As well as government supported initiatives, The energy performance of new homes in degree of technological dependency, zero
Department for Communities and Local the private sector has also actively promoted England and Wales has been under scrutiny since carbon homes will remain expensive to both
Government funded scheme Supporting collaborative planning, usually through the the timeline towards Zero Carbon Homes 2016 build and run, despite savings in energy
12consumption. The legal framework for energy market areas. The cautious state of the
performance is Part L of the building regulations housing market has meant few new large
and is next due to be upgraded in 2014. The schemes have been proposed and still fewer
debate is now shifting to the efficacy of a developed beyond the drawing board.
“fabric first” approach to building, improving The recession also dealt a significant blow
the thermal envelope of buildings to the highest to attempts to promote design quality. In
possible standard. Meanwhile, policy changes in particular the scaling back and merger of the Figure 1: The transect approach as a basis for shaping urban development at Tornagrain (Source: Turnberry Consulting)
the energy generation sector such as widespread Commission for Architecture and the Built
adoption of wind power and the re-emergence Environment (CABE) with the Design Council
of nuclear sources are intended to decarbonise meant that very little new national guidance
the supply chain for domestic heating and on urban design has been forthcoming.
lighting.
Whilst this is consistent with the coalition
At the scale of the neighbourhood or town, government’s localism agenda and the
the retraction of town centre and brownfield strictures of the National Planning Policy
planning policies at the national level leaves Framework, further promotion of the new
decision making about land use planning to urban design and urbanist models that had
local authorities. Early evidence suggests gained such strong ground since the Urban
that this will be a move backward for low Task Force report of 1998 seems unlikely in
carbon policies focused on housing density the foreseeable future. While examples of
and sustainable transport. Unfortunately, local good current practice do exist, they remain Figure 2: Tornagrain development (Source: Ben Pentreath and Associates)
authorities will be obliged to consider more the exception rather than the rule, and in
peripheral housing sites brought forward for the absence of any strong forum for debate,
development by the private sector as easier and opportunities for sharing valuable lessons Tornagrain, Inverness-Nairn corridor
cheaper to develop than more central, previously are likely to be lost.
developed land. The implication for Hertfordshire The Moray Estates scheme for nearly 5000 homes in a new community is an established
of this relaxation of the environmental policy The scope of this report does not permit a component of the A96 (Inverness-Nairn) Corridor Growth Strategy. It is the largest new
framework is considered later in the report. critique of poor urban design practice since development planned by Duany Plater Zyberk to a “transect” based settlement pattern (see
2008 although examples are plentiful. illustration above) and urbanist principles of mixed use, walkable neighbourhoods and
However, it is worth referring to some attractive architecture.
2.10 Innovations in architecture recently built developments or schemes
and urban design – some brief in planning that demonstrate good UK A decision notice on the outline application is expected to be issued shortly and, based on
examples urban and architectural practice that is this timetable, the scheme is now in a detailed design phase, anticipating an application
consistent with the settlement models for the first homes in 2014, once developer commitment is in place. In addition to housing
Planning and designing for construction of and design characteristics promoted in proposals, Moray Estates are advancing a detailed infrastructure scheme. Coordinating all
course continued through the downturn, albeit the Hertfordshire Guide to Growth. Some aspects of funding and planning timetables, Moray anticipate being on site in the fourth
at a reduced rate and focused on high value examples are offered below. quarter of 2014.
13Figure 3: Queen Mother Square, Poundbury (Source: Duchy of Cornwall) Figure 4: Knockroon town extension (Source: Image by Richard Ivey, courtesy of The Prince’s Foundation for Building Community) Poundbury, Dorchester Knockroon, East Ayrshire The Duchy of Cornwall has continued to develop Poundbury, Dorchester’s urban extension, to An urban extension to the East Ayrshire town of Cumnock was proposed as part of a masterplan by Leon Krier. When completed Poundbury will have 2250 homes, a population the revival of the Dumfries House Estate in East Ayrshire. Zero C and Hope Homes of around 4500-5000 and around 2500-3000 people working there. With the establishment of have been the lead developers of an urban extension that will eventually see the distinct neighbourhood centres, walkable and pedestrian friendly street patterns, and a mix of uses completion of 700 homes in distinct neighbourhoods. The first phase has been and housing tenures, Poundbury arguably represents the most consistent urbanist development brought to market and contains a range of house types designed in a Scottish in the United Kingdom. The scheme has now reached a mature phase with the building of the vernacular style. South West Quadrant and the advanced status of the new retail and commercial centrepiece of the development, Queen Mother Square. 14
Figure 5: New housing, Roussillon Park, Chichester (Source: Ben Pentreath and Associates) Figure 6: New housing at Accordia, Cambridge (Source: Wikicommons)
Roussillon Park, Chichester Accordia - Cambridge
An infill development of contemporary urbanism by Zero C developments, Roussillon Accordia is an infill scheme on previously developed land in Cambridge, built between 2003-
Park utilises a former military brownfield site close to the centre of Chichester. 2010 by Countryside Properties to a brief by Cambridge City Council. The development includes
Designed around traditional street patterns, including garden squares, the scheme 378 dwellings (of which 166 are flats and 212 are houses); of these 30% are affordable housing.
incorporates a range of houses and flats in a complementary architecture updating The site also accommodates new build offices, although not integrated with the homes. The
the city’s Georgian character for contemporary living. Urban design features include developers appointed Feilden Clegg Bradley as main architects of Phase 1 with other elements
active street frontages, hidden car parking, home zones, pedestrian safe streets and by Maccreanor Lavington and Alison Brooks Architects. Although the design of phases differs,
the retention of mature planting to enhance gardens and green spaces. the scheme has a consistent urban character, with active street frontages, a predominance
of terraced housing configurations, and the employment of a consistent palette of materials,
principally local brick facings. Small gardens or roof terraces for each house are supplemented
by larger areas of shared green space.
153. HERTFORDSHIRE’S GROWTH POSITION - KEY TRENDS AND PERSPECTIVES
3.1 Overview of perspectives 3.2 Summary of local plans up statements about future growth, housing numbers means that these
from local authorities and housing growth in clear evidence that growth will continue findings must be viewed as tentative.
at the same rate as that proposed in However, it is possible to identify some
Hertfordshire
In this section we review findings from the revoked Regional Spatial Strategy emergent patterns as follows:
interviews with nine local authorities in of the East of England Plan is as yet
In this section we provide a summary of incomplete (see Table 1). Since the =
djh^c\Xdbb^ibZciheZgnZVg^c
Hertfordshire (one authority declined to take
the status and content of Local Plans in Regional Spatial Strategy figures used adopted Local Plans match or even
part in the research) and present conclusions
Hertfordshire, which is based on all available by the Hertfordshire Guide To Growth exceed Regional Spatial Strategy
about the influence of the Guide for Growth in
data at September 2013. With several of the were for a period ending in 2021, and targets;
relation to settlement patterns, sustainability,
Hertfordshire Local Plans undetermined or the emerging plans run up to ten years
collaborative planning and Hertfordshire’s
in the examination process, the most up-to- later, the most straightforward way to I ]ZgZ^hXZgiV^cind[YZa^kZgnVXgdhh
Strategic Growth Position as of late 2013.
date projection of housing numbers within compare the two is through averaging a the South and West of the county;
the forthcoming plan period has been used figure for homes built per annum.
As discussed in Section 2, the national
from each Local Authority. Where a range I]ZgZ^hXdch^YZgVWaZjcXZgiV^cin^c
deadline for the submission of Local Plans
exists, the upper figure has been adopted. Of course, it is acknowledged that housing the centre and north of the county,
for inspection was set by the Secretary of
State for Planning at March 2013. In terms of is only one aspect of growth, and can only and the North East corner;
process, independent planning inspectors The planning changes reflected in the be provided in the context of employment,
must look at all local plan documents that National Planning Policy Framework services, transport infrastructure, JgWVcY^hig^Xih!\ZcZgVaan!]VkZbdgZ
local authorities in England prepare for an highlighted in the previous section of this education and health provision. advanced plans than rural ones;
examination: the examination is the last stage report appear to have had a significant
of the process for producing a local plan impact on the preparation of growth However, as with the Hertfordshire B
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(www.planningportal.gov.uk). The Planning strategies across Hertfordshire. With the Guide to Growth, the construction of rely on the resolution of cross
Inspectorate (PINS) is the body responsible revocation of Regional Spatial Strategy new homes is a natural focal point for boundary dialogue;
for examination of Local Plans, and maintains housing targets in the East of England Plan, analysis, with household projections
a national database of Plan progress – at each Local Authority has had to determine for South East England vastly outpacing B
VcnhigViZ\^Xh^iZhXVccdiWZ
September 2013 half of the planning its own evidence base for growth over a predicted supply. Satisfying the demand adopted without cross boundary
authorities in England had an adopted Local defined period. for residential development will be the working;
Plan, although of these, only fifty-one had focus of construction in a recovering
entered the examination process under the The emergence of the National Planning market, and new homes must therefore 8jggZci[dgZXVhihh]dlVc
new National Planning Policy Framework. Policy Framework has also prompted the be the dominant signifier in any analysis undersupply of c250 homes per
need for Local Plans to be prepared for of Hertfordshire’s growth performance. year across the county over the plan
In Hertfordshire, the percentage matches the each Planning Authority – to date, three period, compared to the projections of
national average with five out of ten planning Hertfordshire districts have adopted plans, The data needs to be viewed in the the revoked Regional Spatial Strategy.
authorities having a Local Plan. Of these, one is submitted for examination, one context of half of Hertfordshire’s districts
three Local Plans are approved, one is in the is in public consultation and five are at having indeterminate Local Plans. The
process of examination and one more has different stages of drafting. While each of fact that the authorities without Local
been withdrawn pending review. the ten planning authorities have drawn Plans are those with the highest posited
16Table 1: Housing growth position by Local Authority area 3.3 Local Authority trends and
perspectives
As a note to the table, the numbers highlighted in green indicate that an Authority’s housing projection per annum exceeds the previous Regional Spatial
Strategy target, while those highlighted in red indicate that the new figure of houses per annum will be lower than that set by the (now abandoned) It is worth noting to introduce this subsection
Regional Spatial Strategy. Please also note that the period covered by the RSS goes only until 2021 while individual Authority targets variously stretch to that all Hertfordshire planning authorities were
different end dates including 2026. One Authority noted that this could make comparing the figures misleading unless this was clearly emphasised. approached for comment, but particular priority
was given to those authorities with large housing
Authority CS Status Relevant public Housing Target Plan Length To Year Homes built RSS Target 2001- Projected growth projections in the former Regional Spatial
document (years) p/a 2021 housing Strategy. Respondents were either planning
units p/a officers or planning portfolio holders (elected
Broxbourne Withdrawn 2011 after LDF Pre-Submission 3840 at 15 2026 256 5600 280 members) or both. All Hertfordshire planning
receiving recommendations CS submission authorities were approached but not all chose to
of Inspector’s examination participate in the research; with nine doing so.
At the request of the majority of contributors,
Dacorum Found sound at pre Draft CS 2010 10750 15 2031 430 12000 600
submission, submitted
remarks have been anonymised. The high
22/6/13 growth authorities are considered first, rather
than the largest authorities in terms of spatiality
East Herts Projected date of issue for Draft District Plan, Pt 10-17,000 20 2031 850 12000 600
public consultation, end 1, preferred strategy pending housing or population.
2013 assessment
Hertsmere Adopted Jan 2013 CS January 2013 3990 15 2027 266 5000 250 3.4 Welwyn Hatfield
North Herts Housing Options Housing Options 10,700 20 2031 535 6,200* or 15,800** 310/790
consultation Feb 2013 Paper 2013 Welwyn Hatfield District Council officers and
City and District St Pre-submission Consultation Dec 4,250 at 17 2028 250 7,200 360*** members participated in the Hertfordshire
Albans 2010 consultation Charrette. In consequence the Authority are
Stevenage LP issued for consultation A Plan for Stevenage 5,300 20 2031 265 6,400* or 320/800 familiar with both the subsequent Guide and
June 2013 2013 16000** collaborative planning principles.
Three Rivers Adopted October 2011 Adopted CS 17/10/11 4,500+ 15 2026 180 4000 200
Watford Adopted January 2013 LP1 - CS 6,500 25 2031 260 5200 260 For Welwyn Hatfield District Council, the
Welwyn Hatfield Emerging CS under review Emerging CS 7,200 18 2029 400 10000 500 National Planning Policy Framework represents a
November 2012 significant change in the policy landscape since
Total projected houses per year across county CS 3812 Total Regional 4160**** the production of the Guide, and this seriously
Spatial Strategy affects the Guide’s capacity to meaningfully
influence both planning policy and growth
* excluding potential extension of 9,600 homes N of Stevenage (in North Herts)
** including potential extension of 9,600 homes N of Stevenage (in North Herts) strategy in Hertfordshire. The abolition of the
***In Mar 2013, St Albans confirmed its commitment to target of 360 homes built per annum, until the determination of its CS Regional Spatial Strategy and the withdrawal
****North Stevenage proposed extension included once. This scheme is not currently regarded as deliverable by the Planning Inspectorate
+note that individual authority target refers to the period between 2001-2026 whereas the period covered by the RSS goes only until 2021. of statutory housing targets for the county has
17impeded growth plans within the county and be to what extent the Authority can meet may be uninformed about or hostile to planning for the significant amount of new housing
introduced elements of confusion for planners, that objectively assessed need given the issues. However, Charrettes should have a high proposed for Welwyn Hatfield District Council.
elected members and consequently the wider infrastructure requirements and the impact upon degree of specificity and contain deliverable Integrated, mixed-use solutions are desirable
community. The principal issues affecting the green belt. proposals both in terms of site ownership and but a trend towards rising employment
Welwyn Hatfield District Council are also economic viability. Examples cited within Welwyn densities in Welwyn Hatfield is compromising
applicable to other authorities, especially those At Examination by the Planning Inspectorate, the Hatfield include the High View collaborative the viability of these because of the onerous
with a wide choice of potential growth sites. identification of growth sites that do not meet planning initiative (employing Urban Initiatives). parking requirements of incoming tenants.
The issues affecting both Welwyn Hatfield deliverability requirements would cause the local This reached a consensus on key regeneration Current expectations of households mean
District Council and other authorities are set plan to be found unsound. Where sites have targets which will be taken forward subject to planning new homes without car parking
out here in summary. many stakeholders and land owners, the level finding necessary funding. spaces is also unrealistic at present, though
of complex co-operation required to make them the Authority anticipates the rising cost of
In the preparation of local plans, local authorities developable is not realistic in terms of available Influence of the Guide to Growth in Welwyn motoring will be a more effective limitation of
have to anticipate the potential both for plans resource. As a result sites such as this cannot be Hatfield car ownership and use in the long term.
being found unsound at the Examination stage counted in housing site proposals or forecasts.
if certain criteria are not met, as well as legal In relation to Hatfield Town Centre, however, the For the reasons above, several of the Guide’s Positively, Welwyn Hatfield District Council
challenges from third parties to the validity of area was in multiple ownership which meant for design proposals are thought to be unfeasible recognise the value added to housing
growth proposals. development to take place the council had to within the Welwyn Hatfield District Council area. developments by design quality and a
apply for a compulsory purchase order and As well as allocating greenfield sites, brownfield reference to local vernacular, but that design
Without a housing allocation target from the then use that Order to acquire the various and greyfield retrofit is Council policy, and retrofit standards are able to be met where values
Regional Spatial Strategy, local authorities need interests, which is what they have been doing of former council housing estates, originally justify them.
to determine an objectively assessed number and indeed Stage 1 of the redevelopment is planned at low densities, was an identified
based on projected local demand as well as nearing completion. target of the Guide. In practice this may be It is impossible for Welwyn Hatfield District
wider economic drivers. Facing significant compromised by the exercise of Right to Buy on a Council to support significant housing
problems with land supply, Welwyn Hatfield The Duty to Co-operate is a key criterion at small number of homes on each site, making site growth without using the green belt. Central
District Council, along with other local authorities Examination of draft Local Plans. As a result, assembly very difficult. government perorations on protecting
nationally, are projecting lower numbers the Local Authority needs to demonstrate that green belt land have put the Borough in a
(anticipating the testing of deliverability) than it has referred to neighbouring authorities in The viability of any infill scheme will depend difficult position and made it hard to consult
the previous Regional Spatial Strategy figures establishing growth plans. It is fair to say that the upon the extent of the infrastructure to be meaningfully on the Local Plan, since residents
– approximately 7200 in contrast to an Office government clearly sees the Duty to Cooperate provided. In relation to sites of between 1200- can object on the basis of this principle.
of National Statistics growth forecast of around mechanism as replacing the previous strategic 1500 dwellings, current thinking suggests that
16,000. The position that the Authority is in at plans. It also clearly results in tensions when it is probably not economically sustainable to Environmental, Social and Economic
present is that it is currently undertaking work one authority is looking to another to meet develop smaller sites if significant infrastructure Sustainability in Welwyn Hatfield
to define their objectively assessed housing its housing needs and does result in complex to support a sustainable community is required
need. This, of course, takes into account the discussions and negotiations. e.g. shops and schools. On environmental sustainability, the rising
wider housing market and the impact of the performance standards of building regulations
needs which are potentially unmet from other Charrettes or collaborative planning exercises Urban Extensions are therefore the most likely of have been more significant than local
neighbouring authorities. The challenge will are valuable tools in engaging the public who the Guide’s settlement patterns to be put forward initiatives and will surpass them in terms of
18influence over time. Assessment tools are as tools for consistent planning. Future work landowners or developers. It is therefore Charrettes or collaborative planning processes
useful but standards and examples of good of this type would also benefit from being difficult for the Authority to unilaterally are valued by the Authority as both planning
practice (from elsewhere) are more useful in more accessible to a wider audience and promote best practice in urbanism. However, and communication tools. With the Core
planning terms. broader social mix. tools like the Guide to Growth offer a useful Strategy at a satisfactory stage of development,
lexicon, especially for planners and members Dacorum is in a position to consult on proposed
On wider social and economic sustainability, Finally, for Hertfordshire to plan for who are not trained urban designers. development sites in a meaningful way. The
consistency and viability are key to success. sustainable growth, a cross-authority first stage of an engagement programme
Welwyn Hatfield District Council offered the approach is needed. The former County Whilst the National Planning Policy with local residents took place in Spring and
example of the Hatfield Community Initiative Structure Plans were offered here as a Framework stipulates a requirement to Summer of 2013 led by the Strategic Planning
which was an effective force representing suitable template for a regional model. cooperate, this is not so simple in practice – Team and Feria Urbanism backed by councillors
the new residents of the aerospace site Some cross boundary working has been neighbouring local planning authorities will (see Case Study – West Hemel). Charrettes
through having paid staff as well as voluntary embarked upon with the re-emergence have their own priorities. have therefore been adopted by the Authority
contributions by residents. Another example of the Hertfordshire Heads of Planning as a very useful tool, with the view that it
is the recent community growing and market Group (HIPP), which has the ability to The premise of the Dacorum Core Strategy is is important to take people on the design
garden initiative in central Welwyn Garden City, overcome partisanship and project a broader the promotion of successful growth through journey, not impose top down views and ideals
which has been a great success, initiated by the countywide strategy. an identifiable community area (with shops, upon them. More often than not, people will
council with volunteer support. schools and pubs) where a community can understand the need for development and
3.5 Dacorum set down its roots and grow, so the principle use such events as an occasion to influence
Conclusions and recommendations from of the urban village is attractive. Delivery development in a positive manner.
Welwyn Hatfield Dacorum Borough Council has a draft is, however, subject to the right sites being
Core Strategy which was submitted brought forward, and the Authority does not Influence of the Guide to Growth in Dacorum
The Hertfordshire Charrette and Guide to Growth for Examination in Summer 2013. The have a free hand.
have their value in promoting positive change requirements of the National Planning Policy In practical terms, infrastructure delivery
and increasing awareness of councillors and the Framework have been interpreted in the Notwithstanding this constraint, the recent and costs are the determining factor in site
public on planning issues. Further initiatives of preparation of the Core Strategy. Core Strategy Sustainable Development selection and therefore development patterns
this type are welcome, brought forward on a site- Strategy includes design principles and – all of the easy sites in the Borough have
by-site basis. (We note that this view is offered None of the officers currently involved in plan provides links to the Hertfordshire Building already been utilised. Most straightforward
support by the success of the Charrettes led preparation participated in the Hertfordshire Futures Guide and the Chilterns Design brownfield sites have been developed in
by Gascoyne Cecil Estates, within the Borough Charrette. However, design guidance of Guide. An accompanying urban design Dacorum, and contamination issues make this
boundaries). this type is seen as a welcome tool in plan guide is also important and the Guide to a very expensive option. New Town and Garden
preparation, as well as good practice in Growth fills this gap. Guidance such as the City models are excellent in their mix of uses
The buy-in of landowners is key and the viability collaborative planning. At the same time, the Chilterns Design Guide can outline suitable and community orientation, but stand-alone
of settlement plans can only be ensured by large Authority saw itself as an assessor of design development without stipulating any “new garden communities” are not practicable
single land ownerships maintained into the long briefs or plans rather than able to define good particular architectural style. In the view of given the Borough’s lack of suitable sites. The
term. Tempering growth ideas with a recognition practice in urban design themselves. This is officers, good design will be appreciative of only feasible settlement patterns are therefore
of constraints and economic realities would make mainly because of the ways in which sites surrounding styles and vernacular but can designated extensions to existing towns, and
both Charrettes and Design Guides more effective are proposed for selection by private sector still respond in a modern way. the Core Strategy focuses on these.
19As well as endorsing the principle of design The premise of the Guide correctly assumes Consistent with interviews held with National Product declining in real terms over the
guidance, Dacorum has tried to implement growth and assumes that the Local other Hertfordshire planning officers, the course of the Plan period. Critically, the current
policy towards public transport orientated Planning Authority can define where it Borough’s planning issues and concerns can settlement pattern of small to medium sized
growth, despite the habitual reliance on goes. Unfortunately without another New be summarised as: towns (below 60,000 population) means that
the private car by most homeowners. Town movement, while the urban principles the opportunity for more urban lifestyles and
Rail oriented development, such as the underpinning such guidance are good, they 6 h]dgi[Vaad[hj^iVWaZ]djh^c\aVcY better facilities will be lost.
new Aylesbury Vale Parkway Station (in carry little practical weight. countywide;
Buckinghamshire) and associated surrounding GZYjXi^dcd[]djh^c\cjbWZghegZhZciZY The Stevenage Core Strategy
housing, is an exemplar to be aspired to in 3.6 Stevenage by borough councils and district councils
this respect but difficult to deliver. in Local Plans; Stevenage’s Core Strategy was issued for
When interviewed, representatives from ;V^ajgZdgV\ZhijgVaVeegdVX]idi]Z consultation in June 2013. Stevenage can fulfil
Environmental, social and economic Stevenage Borough Council advocated “Duty to Cooperate” between borough its housing needs to 2031 (as defined by the
sustainability in Dacorum the type of large scale spatial planning councils and district councils; National Planning Policy Framework) within
approaches represented by the Guide. >chj[ÒX^ZciXgdhhXdjcinhigViZ\^X the current town boundaries. This is because
Hertfordshire Building Futures is viewed as an Such initiatives, that attempted to consider thinking; the town currently experiences net outward
excellent resource as it includes sustainable the county as a whole, crossing political You can also read
