Sedgemoor District Council

Housing development is a major land user and contributes significantly to the quality of life and the built environment. In recent times, there has been a rapid expansion of housing development. However, the recession of the late 1980’s and early 1990’s,has changed many people’s perception of housing as a primary financial investment. This has been coupled with a change in the structure of housing supply, with more significant roles being played by Housing Associations together with public and private partnerships.

4.02

Unfortunately, new housing development is often characterised by indistinctive, standardised volume building on greenfield sites adjoining towns and villages. In consequence, there has been increasing concern as to the quality of new housing and how this contributes to the overall quality of the environment.

4.03

The commitment to sustainability as part of quality development promotes the debate as to the nature of housing provision, with respect to locally distinctive characteristics of built form and layout. Particular concerns relate to the impact of cars and parking, the use of renewable and re-cycled building materials, green design, lifetime homes, energy efficiency, safe and secure neighbourhoods, and the role of the community in planning and maintaining residential environments.

4.04

The Council is very aware of the importance of and benefits from ensuring the planning and housing functions of the authority work closely together. There is close liaison in preparing the Housing Strategy Statement and the Local Plan. The Housing Strategy will provide an up to date source of guidance on matters such as the District Council’s housing priorities including housing, need, mix and affordability.

Key Objective

To accommodate a level and type of housing to meet identified and predicted local need, including the needs of those who cannot afford access into general market housing together with those who have other special requirements, on sites which accord with development strategy and which contribute towards creating a quality built environment for all.

Housing Land Requirements

4.05

Somerset County Council adopted the revised Structure Plan in March 2000. The Structure Plan has been adopted with a housing provision for Sedgemoor of 9,200 dwellings for the period 1991 - 2011.

4.06

A considerable volume of housing in the District has already been constructed or is committed. Figure 4.1 sets out the remaining housing requirement until the year 2011,under the adopted Structure Plan requirement.

Figure 4.1 Residential Land Availability as at April 2003 (1991 - 2011)

Sedgemoor District
Structure Plan Provision Housing requirement 1991 - 2011	9,200
Completions	5,312
Land with planning permission	1,152
Land under construction	570
Total Commitments	7,034
Residual housing requirement to 2011	2,166
Possible brownfield sites (1)	1,102
Possible additional capacity resources (1)	208
Approximate rural windfall	210
Sub total	1,520
Remaining requirement	646
Non-implementation allowance (2)	267
Approximate greenfield requirement	913

Notes:

(1) Brownfield figure is based on the Sedgemoor Urban Capacity Study. It includes the brownfield sites in the Plan.

(2) The non-implementation allowance is based on 10% of existing planning permissions and other commitments/capacity.

4.07

The outstanding requirement for housing to be provided in the remaining Plan period to 2011 is 3888 at April 2003 or 486 units each year. This is slightly more than the annual rate over the last 10 years.

POLICY H60
Within the plan period 1991-2011 an additional 9,200 dwellings are proposed, an average of 460 dwellings per year. In accordance with the sequential approach to development a target of 44% for brownfield housing supply is adopted. On the basis of completions to date the rate of development for the remaining plan period is 486 dwellings per year from the sources identified in Figure 4.1.

Phasing and Monitoring of Housing Development

4.08

Planning Policy Guidance Note 3 Housing (PPG3) sets out to direct the delivery of housing through the Planning System on the basis of ‘Plan,monitor and manage’. The approach now required places priority on the use of previously developed (brownfield) land and buildings and creates an expectation that, where greenfield land is to be developed to meet housing needs, it is carefully managed. Greenfield sites are a limited resource and best use should be made of them, but it is also recognised that an over supply of greenfield sites will reduce the impetus to develop brownfield sites.

4.09

PPG3 also states that local authorities ‘should manage the release of sites over the plan period in order to control the pattern and speed of urban growth, ensure that the new infrastructure is co-ordinated with new housing development and deliver the local authority’s recycling target’ of brownfield land. In guidance on good practice the Government suggest ways in which this might be achieved through Local Plans. These are:

site released based on identified criteria;
ranking of sites for development; and
releasing sites over defined periods within a plan–phasing.

4.10

Given the circumstances in Sedgemoor featuring a relatively small number of large sites, phasing is considered to be the most suitable way forward. Phasing allows the Local Plan to map out the achievement of housing from the various sources identified. It also clarifies when sites should be prepared for development and takes into account the lead in times for infrastructure provision. Through monitoring it is also possible to follow progress and vary the phasing in the Plan if circumstances change.

4.11

The Housing Capacity Study has shown a greater potential supply of housing from brownfield sites than originally envisaged. Some of these are significant new prospects and all will make a positive contribution to regeneration in Bridgwater, Burnham-on-Sea and Highbridge. It is important to promote their development and this priority for brownfield development is recognised in the Adopted Plan Policy STR4.

4.12

Despite the increased brownfield potential, greenfield housing development remains part of the strategy in order to meet housing needs. There are a range of issues affecting the allocated site and the appropriateness for development at any given time. A phased approach envisages a clear order for development which fully accounts for the contribution of non-greenfield housing sources, recognised existing consents, their anticipated delivery, considers the likely timing of any infrastructure related to the sites and follows the priority for site selection in the Plan.

4.13

The Council recognises that large sites such as the proposed South Bridgwater site require long lead times in order to provide necessary infrastructure. It is therefore considered appropriate to allocate it and to phase it in accordance with Policy H61 and Figure 4.2. This envisages completions on the site in 2006. This site is critical to delivering the Local Plan Strategy and it is therefore appropriate to identify it as a “Strategic Site” in accordance with national guidance. As such it is appropriate to identify development beyond 2011 in order to provide the certainty required for bringing forward the necessary comprehensive package of infrastructure improvements. For these reasons such strategic sites are not expected to be affected by future changes to phasing that may result from on-going monitoring.

Figure 4.2 - Housing Development Phasing

4.14

Two phases are suggested 2000 – 2005 and 2005 – 2011.These are detailed in Figure 4.2. Progress will be monitored against the phasing and changes made if circumstances fail to deliver sites as anticipated. Policy H62 sets out the framework for monitoring progress toward meeting the housing requirement.

4.15

The second phase is clearly more difficult to determine absolutely. Review of the Structure Plan may have significant impact on planning for housing in the longer term and will influence review of the Local Plan and hence the content of Phase II. However, the content of Phase I is very clear and the delivery of the sites can be treated with a high level of certainty.

Residential Land Availability

POLICY H61
A phased approach to housing development is proposed in order to give priority to the development of brownfield sites and to maintain a sufficient supply of housing land throughout the plan period. Housing site proposals H4 to H21 and H46 to H59 are included in the phasing programme as set out in Figure 4.2. Two phases are proposed, 2000-2005 and 2005-2011. Development will be permitted in order to achieve the general sequence of development set out in Figure 4.2 and the annual rate of supply proposed in Policy H60.

POLICY H62
To ensure an adequate supply of housing, completions will be monitored on an annual basis including the provision of affordable housing. Progress on bringing forward significant sites (over 10 units) will also be monitored. Where such monitoring reveals that sites are coming forward at a different rate to that anticipated in Policy H60 and in Figure 4.2 adjustments will be made to the phasing strategy through the publication of Supplementary Planning Guidance. Such adjustments will have regard to the following considerations:

The need to achieve sustainable development;
The need to achieve the necessary house building rates;

The performance of windfall development;
The receipt of market intelligence;
Any other material considerations.

Control of Housing Development - Summary of Development Locations

4.16

The overall volume of housing development in the Local Plan will be controlled in accordance with Structure Plan provisions. All housing proposals will be assessed against:

Structure Plan Policies;
the provisions of the Local Plan; and
other material considerations.

Within these provisions, housing development will be restricted to the following locations:

Bridgwater and Burnham-on Sea/Highbridge Urban Areas:

i) on the sites allocated on the Proposals Map (i.e. brownfield and greenfield sites);

ii) on other appropriate (brownfield) sites within the development boundaries of urban areas, which come forward during the Plan period in accordance with general strategy and other Local Plan provisions; and

iii) conversions of redundant buildings or as part of mixed use schemes.

b) Within the development boundaries of Rural Centres and identified villages, involving suitable infill, small scale development and appropriate conversion of redundant buildings.

c) In the countryside outside the defined development boundaries of Towns, Rural Centres and Villages, housing development will be strictly controlled and normally limited to that which successfully demonstrates the need for a countryside location:

i) genuine agricultural or other appropriate local need which cannot reasonably be met in a listed settlement (Town, Rural Centre or Village);

ii) conversions to residential use where the building is appropriate to be retained and could not provide for satisfactory employment, recreation, leisure or other use compatible with a countryside location; and

iii) appropriate development for local needs housing outside, but adjoining, the development boundaries of listed settlements (Towns, Rural Centres and Villages).

Committed Housing Development

4.17

The previous adopted Local Plans for the District provided for a range of sites for housing development. The allocations that had yet to be developed or granted planning permission have been re-assessed and one is included as housing allocation Policy H55.In the case of the strategic housing allocation associated with the Northern Distributor Road, this is included as a policy commitment and is currently under construction.

Supplementary Planning Guidance for Housing Development

4.18

The Local Plan allocates a range of sites for housing development in support and interpretation of the District-wide strategy and also anticipated a significant level of “windfall”housing. The strategy for development is intended to optimise the sustainable aspects of development. There is now an increased need for all development, (and particularly housing) to explicitly address a range of issues as part of this quality agenda. The approach to this is best promoted by the preparation of design and development guidance. The purpose of such guidance is to identify those factors which should inform the approach to development. The level and detail of guidance and consultation will depend on the complexity of issues to be addressed. The essential consideration is that sites should not be released for development until appropriate design and development guidance has been prepared and adopted.

4.19

The purpose of the Policy H1 is to ensure that design objectives and responses are explicitly considered in relation to the site and its wider context. The amount and detail of guidance will vary, dependent on complexity of issues involved (and which may not necessarily be related to the size of the site). The Policy is to operate in association with Policy BE1 which provides a structured design process for addressing sustainability in development at all levels. It is recognised that the preparation of guidance should not unreasonably delay the development process and it is intended that the planning authority adopts a proactive approach and promotes partnership working with developers and landowners. The following notes provide further interpretation to this Policy:

a) allocated greenfield housing sites - the design process will lead to the preparation of a masterplan in association with extensive public consultation;

b) allocated or windfall housing sites of 10 units or more - the design process to lead to the preparation of a design brief, which may be in association with limited public consultation;

c) allocated or windfall housing sites of less that 10 units - a design brief may be required where there are complicated or sensitive issues to be addressed which may be in association with limited public consultation; and

d) masterplans or design briefs may be prepared by the Planning Authority, developers or landowners. The preference would be for a collaborative/partnership approach which it is considered is the best medium with which to address sustainability and quality in development.

POLICY H1
The Council will normally produce Supplementary Planning Guidance (SPG), in partnership or consultation with landowners, developers and other interested parties, for the following types of development site:

a) allocated greenfield sites;

b) allocated brownfield sites; and

c) significant windfall sites, where circumstances warrant the production of SPG.

SPG may address a wide range of development issues. SPG will be issued separately from the Plan, and will be a material consideration in the determination of planning applications.

Brownfield Housing Sites - Overview of Housing Provision in the Local Plan

4.20

In accordance with the Local Plan development strategy (Policy STR4), the first requirement in identifying sufficient sites to meet the housing requirement has been to maximise opportunities for brownfield development. The District Council’s Urban Capacity Study suggested that about 1316 dwellings could be accommodated on brownfield sites with a further 260 dwellings provided from other sources such as sub-division, intensification and living over the shop. This represented 43% of the residual housing requirement as at July 2001.As at April 2003 previously developed land and buildings represented 60% of the residual requirement and 50% of total allocations (Figure 4.1).

4.21

The Council recognises the varying certainties in bringing forward brownfield sites for housing. Only the most realistic sites have therefore been identified which comprise allocations with an estimated capacity of 10 units or more. Sites below 10 units are allowed for in the “windfall” figure.

4.22

At both Bridgwater and Highbridge the strategy for brownfield development will contribute to improving and enhancing the Town Centres by locating housing within easy walking and cycling distance and improving the environment of the surrounding area.

4.23

The detailed development requirements for these brownfield sites within the Towns will generally be a matter to be determined at the planning application stage, in accordance with the policies of the Local Plan. It is important that the development of these sites is accompanied by measures to improve the network of pedestrian and cycle routes and open space provision in accordance with other Local Plan objectives.

Objectives for Residential Development

4.24

For housing sites allocated in the Local Plan, Supplementary Planning Guidance will provide objectives for general and specific issues related to the design of the site. For non-allocated (or windfall sites) Policy H2 and Policy H3 below provide general objectives which housing proposals will be required to meet.

POLICY H2
Within the development boundaries of Bridgwater and Burnham-on-Sea and Highbridge, residential development will be permitted, provided it meets the following criteria:

a) it would not involve the loss of land of recreational and/or amenity value, or of townscape importance;

b) it would not harm the character or amenity of an adjoining residential area, or be harmed by that area;

c) the site can be satisfactorily accessed, contains sufficient space for circulation; and

d) (subject to Policy E9) it would not lead to the loss of established or allocated employment land.

POLICY H3
Within the development boundary of a Rural Centre or Village, residential development (comprising infilling, conversion, or small scale development or redevelopment) will be permitted, provided it meets the following criteria:

a) it would not involve the loss of, or harm to open spaces which contribute to village character, or land of recreational or amenity value;

b) it would be compatible in scale, density and layout with the size and form of the village;

c) its design (massing, proportions, materials, detailing and landscaping) would be sympathetic with the vernacular character of the village and locality;

d) the site can be satisfactorily accessed, and contains sufficient space for circulation and any required parking;

e) it would not harm the character or amenity of any adjoining residential property; and

f) (subject to Policy E9) it would not lead to the loss of established or allocated employment land.

Land Allocated for Housing Development

4.25

The sites identified for housing development comprise the interpretation of the Local Plan Housing Strategy. They are presented as:

a) Brownfield Housing Development: Bridgwater; Burnham-on-Sea/Highbridge; and other sites.

b) Greenfield Housing Development

4.26

Appendix 4.1 sets out a range of criteria which are relevant to the development of the sites. These criteria cannot be regarded as exhaustive but to comprise the basis of a Design Brief or Masterplan. In certain circumstances, additional development issues will be required to be addressed, particularly relating to transport infrastructure. The dwelling capacity indicated is based on information currently available, the actual number of dwellings may be higher or lower.

Brownfield Housing Development: Bridgwater

The following “brownfield”sites are identified for housing development:

44-50 Friarn Street, Bridgwater

4.27

This site adjoins the Priory housing site. It is situated on the corner of Friarn Street and Silver Street and offers the opportunity for further enhancement to the residential area.

PROPOSAL H4
44-50 Friarn Street, Bridgwater (as defined on the Proposals Map) (Link to Map 1a West) is allocated for housing.

The Cornmill, Bridgwater Docks

4.28

The Cornmill at Bridgwater Docks is the sole remaining large industrial use within the dockside housing complex adjoining the Bridgwater and Taunton Canal. Development of the site could provide a further exciting contribution to the residential environment of this area.

PROPOSAL H5
The Cornmill, Bridgwater Docks, Bridgwater (as defined on the Proposals Map) (Link to Map 1a West) is allocated for housing.

42-44 St John’s Street and adjoining land, Bridgwater

4.29

Redevelopment of a former light industrial site provides an opportunity to reinforce the residential function of this area with attractive terraced housing.

PROPOSAL H6
42-44 St John’s Street and land adjoining, Bridgwater (as defined on the Proposals Map) (Link to Map 1a East) is allocated for housing.

Land on east side of Taunton Road, Bridgwater

4.30

Development of this site will reinforce the gateway to Bridgwater and add a range of accommodation.

PROPOSAL H7
Land on east side of Taunton Road, Bridgwater (as defined on the Proposals Map) (Link to Map 1 Central) is allocated for housing.

Mount Street, (SWEB Depot), Bridgwater

4.31

Subject to the relocation of the operations on this site, this location provides an excellent opportunity to provide a range of higher density town centre housing. Mount Street is very varied in character and the required Design Brief will be a challenge to address a satisfactory design response.

PROPOSAL H8
Mount Street (SWEB Depot) Bridgwater (as defined on the Proposals Map) (Link to Map 1a West) is allocated for housing.

Land at Horsepond, Bridgwater

4.32

This site, with good pedestrian links to the town centre, will provide for high density housing in an historic part of the town.

PROPOSAL H9
Land at Horsepond, Bridgwater (as defined on the Proposals Map) (Link to Map 1a West) is allocated for housing.

Monmouth Trading Estate, Bridgwater

4.33

The existing buildings and site to the immediate west of Monmouth Street will provide for new build and conversion for housing with good pedestrian links to the Town Centre and St John Street facilities.

PROPOSAL H11
Monmouth Trading Estate, Bridgwater (as defined on the Proposals Map) (Link to Map 1a Central) is allocated for housing.

Land east of Colley Lane, Bridgwater

4.34

This site comprises part of the surplus car park to the existing industrial operation.

PROPOSAL H12
Land east of Colley Lane, Bridgwater (as defined on the Proposals Map) (Link to Map 1a East) is allocated for housing.

Land to rear of 87-97 Bath Road, Bridgwater

4.35

This small site will contribute to the residential function of this location.

PROPOSAL H14
Land to rear of 87-97 Bath Road, Bridgwater (as defined on the Proposals Map) (Link to Map 1a East) is allocated for housing.

Land east of Bristol Road, Bridgwater

4.36

This site, to the south of the playing fields and west of the Cattle Market is a significant site within the urban area to contribute to housing requirements.

PROPOSAL H15
Land east of Bristol Road, Bridgwater (as defined on the Proposals Map) (Link to Map 1 Central) is allocated for housing

Land at Old Taunton Road Industrial Estate, Bridgwater

4.37

This site is well located in terms of accessibility to the Town Centre. Access for maintenance will need to be retained to the existing flood defence structure to the River Parrett and to Hamp Brook.

PROPOSAL H47
Land at Old Taunton Road Industrial Estate, Bridgwater (as defined on the Proposals Map) (Link to Map 1a Central) (Link to Map 1 Central) is allocated for housing.

MOT Garage, All Saints Terrace, Bridgwater

4.38

Development of this site will complement the residential development proposed on the adjoining site to the south (Proposal H12). Access and transportation requirements will be subject of a traffic assessment. A Contaminated Land Assessment will be required before development commences.

PROPOSAL H49
MOT Garage, All Saints Terrace, Bridgwater (as defined on the Proposals Map) (Link to Map 1a East) is allocated for housing.

The Old Armoury, Blake Street, Bridgwater

4.39

This building is identified in the Townscape Heritage Initiative as having potential for mixed uses including residential. It is well located to the Town Centre. The building adjoins Durleigh Brook and redevelopment should be in conjunction with enhancement to this watercourse and improved pedestrian access to St Mary Street.

PROPOSAL H50
The Old Armoury, Blake Street, Bridgwater (as defined on the Proposals Map) (Link to Map 1a Central) is allocated for housing.

Wesleyan Chapel, King Street, Bridgwater

4.40

This site comprises the Wesleyan Chapel and adjoining former school rooms .It is identified in the Townscape Heritage Initiative for repair and restoration. Preservation of the interior of the chapel and greater public access is to be encouraged. It is therefore suitable for mixed uses with an element of residential development within the school rooms (also refer to Policy SH5).

PROPOSAL H51
Wesleyan Chapel, King Street, Bridgwater (as defined on the Proposals Map) (Link to Map 1a Central) is allocated for housing.

Land at Wembdon Road, Bridgwater

4.41

The current occupiers are seeking to consolidate their operations on a new site that will allow future expansion. The existing site is situated within an existing residential area and retention for employment use is not considered to be appropriate in this location when the site becomes vacant. Whilst a substantial part of the site will be made available toward the end of the plan period, relocation from the more recent industrial buildings may well not take place until beyond 2011.Therefore whilst the entire site is allocated, the assumed yield from the site to 2011 is approximately 200 units representing 5 hectares of the entire site. It is considered appropriate to include the adjoining land to the east currently used for small scale employment uses and car sales. This would be expected to be developed as part of the later phase.

4.42

Access will be from the Northern Distributor Road and a contaminated land assessment will be required before development commences.

PROPOSAL H52
Land at Wembdon Road, Bridgwater (as defined on the proposals Map) (Link to Map 1 Central) is allocated for housing.

Brownfield Housing Development: Burnham-on-Sea and Highbridge

The following “brownfield”sites are identified for housing development.

Radio Station, Highbridge

4.43

The Radio Station, Highbridge is declared surplus to requirements. A comprehensive development and design brief will be required for the site.

4.44

The site lies within 250 metres of a gassing landfill site at Rosewood Farm which may need to be considered as part of site development and building design.

PROPOSAL H16
Radio Station, Highbridge is allocated for housing development (as defined on the Proposals Map) (Link to Map 2 East).

Land west of Newtown Road and adjoining Boat Yard, Highbridge.

4.45

This site forms a large redevelopment opportunity close to the centre of Highbridge. The boatyard site offers the opportunity for a riverside development that incorporates marine facilities. Access will be from Newtown Road.

4.46

Provision is to be made for a cycle link from the adjoining Apex Park to the south side of the River Brue. This link would not only provide improved access to Burnham-on-Sea, but would also form part of a wider recreational cycle path along the coast.

4.47

The site adjoins the Bridgwater Bay National Nature Reserve and consultation with English Nature will be required.

PROPOSAL H17
Land west of Newtown Road, and adjoining Boat Yard, Highbridge (as defined on the Proposals Map) (Link to Map 2 West) is allocated for housing.

Land at Springfield Road, Highbridge

4.48

This site is currently occupied by the Woodbury and Haines furniture factory. This is to be relocated to the Walrow Industrial Estate. It offers an opportunity to locate housing close to the Town Centre and to significantly improve the existing environmental quality of the area. Land to the north of Springfield Road comprises a gateway into Highbridge and an opportunity to provide an appropriate urban edge.

PROPOSAL H46
Land at Springfield Road, Highbridge is allocated for housing (as defined on the Proposals Map) (Link to Map 2 East) (Link to Map 2b).

Land at Highbridge Market, Highbridge

4.49

This site is located within the Town Centre and development of the site will require the relocation of the existing livestock market. It is a prominent location and comprehensive development will positively contribute to the regeneration of the Highbridge Town Centre. There is also an opportunity to enhance the setting of the Grade II listed Highbridge Hotel that adjoins the site.

PROPOSAL H60
Land at Highbridge Market, Highbridge (as defined on the Proposals Map) (Link to Map 2b) is allocated for housing.

Greenfield Housing Development

4.50

In addition to allocations for brownfield housing sites, the housing target requires the development of greenfield sites for about 913 dwellings. (see Figure 4.1). The sequential strategy for the location of new development has been fundamental to the identification of an appropriate greenfield housing strategy. This is a strategy that would be applied irrespective of the housing land requirement.

Bridgwater

4.51

In this strategy Bridgwater is the first location to be considered for the release of greenfield housing sites. It is the principle location for employment, shopping and other services. The Structure Plan Strategy envisages growth to be focused on those locations that offer the best opportunities to reduce dependency on the private car. It is therefore consistent with this policy to concentrate any additional greenfield development close to Bridgwater in a location that offers opportunities to promote walking, cycling and the use of public transport.

4.52

As at April 2003,there were 1,152 dwellings committed with planning permission. A significant number of these are associated with the Northern Distributor Road and will be substantially developed during the first phase of the Plan (Figure 4.2).Planning consent has been granted for the entire site and 200 dwellings have been completed with a further 314 under construction.

4.53

The previous Bridgwater Area Local Plan allocated land at south Bridgwater for a comprehensive residential development. Following the publication of the revised PPG3 this allocation has been re-assessed. This sustainability appraisal has confirmed that this site is the most sustainable location for a comprehensive urban expansion. Development of the site will provide for a range of community benefits including provision of a replacement school for Somerset Bridge, public open space and a country park, and contributions to identified transportation infrastructure that will significantly improve access from the south into Bridgwater and provide for enhanced public transport. The site is well located to existing and planned employment opportunities and adjoins the principal public transport corridor between Taunton and Bridgwater.

4.54

It is considered appropriate to allocate the south Bridgwater site as a strategic site given that it is critical to delivering the strategy of the Local Plan. It is phased for the second half of the plan period in accordance with Policy H61. Completions will continue beyond the end of the plan period. The full extent of the strategic site is identified on the proposals map but only part is specifically allocated for development in this plan. Any future development beyond the identified allocation will be subject to discussion as part of a future replacement plan.

Burnham-on-Sea/Highbridge

4.55

As identified in the sequential strategy, Burnham-on-Sea and Highbridge offer the next most sustainable location for new development in Sedgemoor. However, given the allocation of additional brownfield sites and consequential reduced requirement for greenfield sites, it is not considered necessary to identify any further allocations in this location.

4.56

In line with the plans sequential approach to allocation of greenfield sites, only one small site is identified outside of Bridgwater. This site is at Cossington and includes the redevelopment of land within the development boundary. It is specifically associated with the improvement of community facilities.

Greenfield Housing Sites

4.57

The following proposal therefore comprises the greenfield housing strategy:

Land at South Bridgwater (Link to Map 1)

4.58

This site is located adjoining the south edge of the Bridgwater urban area. The site is approximately 47 hectares located in two areas Dawes Farm (Link to Map 1) to the east and Willstock Farm (Link to Map 1) to the west. The land between the two areas is allocated as a country park (Proposal CNE18) (Link to Map 1 Central). The site is allocated for up to 1,460 dwellings through this plan and will be monitored through the ‘Plan,Monitor and Manage’ approach in order to ensure that the Structure Plan housing requirement is not significantly exceeded. An additional 14 hectares of land to the west is identified within the development boundary on the proposals map and will only be developed should there be a need identified through future plan reviews.

4.59

This site is important in ensuring the delivery of the transportation strategy of south Bridgwater and it is therefore appropriate to identify it as a “Strategic Site” in accordance with national guidance. The Council recognise that large sites such as this will require long lead times in order to provide necessary infrastructure. It is therefore considered appropriate to allocate the site and to phase it in accordance with Policy H61 and Figure 4.2. As a strategic site this envisages completions by mid 2006 and continuing beyond the Plan period. Detailed phasing and infrastructure requirements will be set out in the approved Supplementary Planning Guidance. The detailed delivery of this transport strategy will also be set out in the Supplementary Planning Guidance. It is essential that as a strategic site development is treated comprehensively and a high level of cooperation between all stakeholders will be essential. The Local Planning Authority will therefore ensure that in determining any planning applications the full site is considered comprehensively.

4.60

Principal access will be from the Huntworth roundabout with secondary access from the existing showground roundabout. Access to the Willstock area will be via the Stockmoor Link (Proposal TM2(s)) (Link to Map 1 Central) with additional public transport access from either Wills Road or Rhode Lane. A comprehensive package of infrastructure will be provided as part of this development. This includes contributions towards a range of community benefits including provision of a replacement school for Somerset Bridge (Proposal PCS18), public open space including the country park, significant contributions to the transport strategy for south Bridgwater. Critical components that will need to be delivered in partnership with public funding include Proposal TM2(b) (Link to Map 1 Central) that will improve access from the south, provision of a park and ride site (Proposal TM2(h)) (Link to Map 1 Central), enhanced public transport and a comprehensive network of cycle and pedestrian routes.

PROPOSAL H55
Land at south Bridgwater (as defined on the proposals map) (Link to Map 1 Central) is allocated as a single strategic site for comprehensive residential development.

Land at Trivetts Farm, Cossington

4.61

The site (1.2 hectare) includes a number of semi-derelict farm buildings and the existing village hall. Development of the site will require improvements or the replacement of the village hall and provision of additional parking.

PROPOSAL H59
Land at Trivetts Farm, Cossington (as defined on the Proposals Map) (Link to Map 21) is allocated for housing development.

Housing Densities

4.62

The issue of housing density has always been an important factor in determining the overall character of development in the District’s Towns and Villages. Government guidance requires consideration of density to ensure the general design of development is in sympathy with its locality, so contributing towards overall urban design objectives.

4.63

It is accepted that the Local Plan cannot be over-prescriptive for housing density, as this is only one aspect of the design of development. However, a key sustainability objective for making the most effective use of land for housing development in urban areas will require, in some circumstances, increases in densities. This is particularly where development is closely related to areas well served by existing or potential public transport or is well accessible to facilities (thus reducing the need to travel) or promotes other requirements. In all circumstances density should inform, and be an outcome of design, which should take account of these objectives and issues which comprise local context. Because there can be no predetermined approach to determining the appropriate densities for all housing development situations in the Local Plan, the approach is to address density either as part of:

a) the preparation of Supplementary Planning Guidance for allocated brownfield and green-field sites; and/or

b) the statement of design response required for non-allocated development sites (Policy BE1); and/or

c) other policy considerations where density is a particular issue.

Policies to Specifically Address Housing Densities

4.64

The following policies for density controls will be applied to promote the quality of good design in new development or to interpret sustainability objectives:

Allocated Brownfield Housing Sites

POLICY H27
Development on “brownfield”sites will be developed at densities which reflect the adjoining locality or may be increased in any of the following circumstances:

a) proximity to Town Centres;

b) to provide for special local needs such as small units for single people, the elderly or disabled;

c) proximity to existing or potential improvements to public transport; and

d) ensuring scope for on site provision of open space; together with a presumption in favour of reducing on site car parking provision.

This policy carries a presumption in favour of increased residential densities for development of urban sites but is also intended to recognise the varieties of site locations and contexts which will inform different design responses.

Allocated Greenfield Housing Sites

4.65

The development of each allocated greenfield site will require particular considerations to address a range of issues (which will be tackled through the preparation of Supplementary Planning Guidance). Density will be an important issue in expressing the physical structure of the development, its relationship to its context and the design of the wider urban area.

4.66

This approach is to provide further interpretation to Policy BE1 whereby a major initiative of the Local Plan is to require all development to provide justification for design responses to a site. There will be particular emphasis on the preparation of guidance for new greenfield housing development not only because of the sensitivity of location to open countryside, but also to ensure that an explicit range of objectives are addressed to optimise sustainability. Particular emphasis will be required to address:

a) concept and structure;

b) linkages to adjoining areas and facilities to promote walking, cycling and use of public transport;

c) building forms and objectives; and

d) provision for open space networks.

POLICY H28
Housing densities on allocated greenfield sites will be determined by the concept and structure of development to be addressed as part of Supplementary Planning Guidance, prepared where possible in partnership with developers, landowners and local Councils. It will normally fall within the range of 30 to 50 dwellings/ha. net, with potentially greater densities at places along good quality public transport corridors. Individual site densities will be determined through Supplementary Planning Guidance, which will take account of the concept and structure of the development and the views of interested parties.

Dwelling Mixes

4.67

Whilst the Local Plan sets out a strategy for the housing requirement for the District, it is also an important objective for this to be achieved in a way which provides for a good range of housing accommodation. With some housing developments there is a tendency to focus on accommodation within a part of the market. A good range and proportion of housing types will provide for a wide choice, help to interpret a structure to a development and contribute towards a varied physical environment thus promoting other quality aims. It is recognised that these objectives can only be addressed for larger housing developments where there is sufficient commercial flexibility. Policy H30 below therefore provides a basis for practical interpretation.

4.68

The most appropriate way to tackle this issue will be as part of Supplementary Planning Guidance which addresses the structure and density treatments for sites. The approach should be for the different densities to be expressed by the mix of housing types.

POLICY H29
The Council encourages the provision of housing types, sizes and tenures which are currently under provided, such as for single-person households, elderly people and those with disabilities or other special needs. Except on very small sites, allocated or windfall housing sites will be expected to provide an appropriate range of dwelling sizes, including 1 and 2 bedroom dwellings. This may be the subject of Supplementary Planning Guidance.

Affordable Housing

4.69

Government guidance encourages Local Planning Authorities to include policies on the provision of affordable housing in Local Plans.
This is both through seeking affordable housing as part of large scale housing schemes and as exceptions to normal policies of restraint in rural areas.

4.70

The Council maintains an up to date Housing Needs Survey the results of which will be used to determine the requirement for affordable housing. The results of the 2003 Survey Update will guide the requirement for affordable housing until 2006. Levels of need determined by future surveys will be reflected in appropriate planning guidance of Local Development Documents in accordance with the legislative requirements at the time.

4.71

The level of need for affordable housing in Sedgemoor has now been assessed at over 600 units per year to 2006. This is a level of need that cannot be met through the normal development process. Furthermore, the objective of establishing ‘balanced communities’ mitigates against excessively high concentrations of affordable homes in any one development. For this reason the Council aims to achieve 35% overall affordable housing delivery from the total number of units developed on qualifying sites, in accordance with the advice in Sedgemoor Housing Needs Survey Update 2003.

4.72

For the purpose of this Local Plan affordable housing is defined as encompassing both low-cost market and subsidised housing (irrespective of tenure, ownership – whether exclusive or shared – or financial agreements) that will be available to people who cannot afford to rent or buy houses generally available on the open market. Low-cost market housing would have to be affordable to purchase by households with an average income for the area. Affordable housing might take the form of housing or flats made available at a subsidised rent, shared equity properties or shared ownership schemes and other forms. These should remain affordable to subsequent occupiers. It includes social housing used to provide accommodation in accordance with the objectives of a Registered Social Landlord. It also includes rural local need housing.

4.73

Registered Social Landlords are Housing Associations and other landlords registered with the Housing Corporation. They are required to have publicly available policies and procedures for allocating tenancies. These should be open and fair and based on housing need.

4.74

There is specific government guidance on the minimum size of site on which affordable housing can be sought. The Plan adopts the threshold suggested for settlements of 3,000 population and above. For smaller settlements the guidance allows the setting of lower thresholds where exceptional local constraints can be demonstrated. These constraints in Sedgemoor include the very limited opportunities for sites of 25 dwellings and above to come forward in the rural settlements.

4.75

The Sedgemoor Housing Needs Survey provides the basis for the assessment of affordable housing need in any development. The requirement for affordable housing will be determined through negotiation taking account of this assessment and other legitimate planning requirements affecting the development.

4.76

Affordable housing will be sought as a proportion of housing on allocated and windfall sites which meet the criteria set out in Policy H30.The proportion will be individually assessed as stated above taking account of the level of need determined in the Council’s Housing Need Study and any detailed local study where relevant. The very high levels of need are explained above which underpin the Council’s aim that 35% overall of units on qualifying sites should be affordable. The targets for affordable housing provision is approximately 880 units.

POLICY H30
On suitable allocated and windfall housing sites, new residential development will be required to provide an element of affordable housing, as defined in the Plan. Based on demonstrated needs, the district-wide target for the overall amount of affordable housing to be provided in Sedgemoor during the remaining Plan period (2004-2011) is 880 units. That represents about 35 % of the total amount of housing to be built on allocated sites above this threshold. The amount and type of affordable housing will be sought and negotiated on a site by site basis, on sites above the following threshold sizes:

a) at Bridgwater, Burnham-on-Sea & Highbridge, Cheddar and North Petherton – in developments of 25 or more dwellings or residential sites of 1 ha. or more (or which forms part of an area 1 ha. or more which is capable of development);

b) in other settlements – in developments of 15 or more dwellings or residential sites of 0.5 ha. or more (or which forms part of an area of 0.5 ha. or more which is capable of development).

In all cases, the following additional criteria will help determine a site’s suitability for affordable housing:

i) the proximity of local services and facilities, including access to public transport;

ii) any particular costs of developing the site; and

iii) whether the provision of affordable housing would prejudice the achievement of other planning objectives in its development.

The Council will also have regard to the need to achieve a successful housing development. Wherever possible, suitable sites should incorporate a mix of types of affordable housing.

Indicative affordable housing targets for individual allocated sites are included in Figure 4.3.

Figure 4.3 Affordable Housing Potential Yield

	Site	Site Area (ha)	Total Dwellings	Affordable Yield
H5	The Cornmill, Bridgwater Docks Bridgwater	0.7	80	28
H11	Monmouth Trading Estate, Bridgwater	0.3	40	14
H12	Land to the east of Colley Lane, Bridgwater	0.7	35	12
H7	Land on the east side of Taunton Road, Bridgwater	1.1	45	16
H15	Land east of Bristol Road, Bridgwater	1.5	50	17
H47	Old Taunton Road Industrial Estate, Bridgwater	1.3	65	23
H52	Land at Wembdon Road, Bridgwater	6.5	200	70
H16	Radio Station, Highbridge	3.6	120	42
H17	Land west of Newton Road and Boatyard, Clyce Road, Highbridge	3.3	120	42
H46	Land at Springfield Road, Highbridge	4.5	180	62
H60	Land at Highbridge Market, Highbridge	1.5	50	17
H55	Land at Dawes Farm and Willstock Farm, Bridgwater	63	1450	507
H59	Land at Trivetts Farm, Cossington	1.2	16	6
Total			2451	856

Rural Housing for Local Needs

4.77

There has been a number of rural low cost exception schemes based on the policies of previous Local Plans. The Council recognises the difficulties which some local people face in being able to find affordable housing accommodation in their native parish.

4.78

The Local Plan cannot propose allocations which seek to restrict the occupancy or tenure of future dwellings since these are not matters which can be secured by planning conditions. The District Council may, however, give sympathetic consideration to individual development proposals meeting special local needs on sites outside existing settlements. Such an approach would conform with planning policy guidance which advises Local Authorities, exceptionally, to consider the release of small sites within or adjoining existing settlements which would not otherwise be allocated for housing.

4.79

The guidance makes it clear that such sites shall not normally be identified in Local Plans and will not be counted as contributing towards the Plan’s provision for general housing demand. However, when the Plan is reviewed, the contribution which affordable housing has made will be included in the calculation of the housing need which remains to be met.

4.80

In practice any proposal which satisfies the requirements of this policy is likely to involve an organisation such as a housing association or village trust capable of operating a suitable lettings policy. This will ensure that the benefits of low cost provision pass not only to the initial occupants but also to subsequent occupants. Appropriate Section 106 Planning Obligation Agreements will be sought to ensure retention of accommodation for local needs. Proposals to construct dwellings for sale on the open market offering a discounted initial purchase price only will not be acceptable.

4.81

The Council will require evidence of a genuine local need within the settlement concerned although the Council is prepared to extend the definition of local to include adjoining parishes. Categories of need will be expected to be those households unable to compete in the existing local housing market. These will normally be in the following categories listed in priority order:

a) have lived in the parish concerned for the previous five years; and

b) have a strong local connection with the parish concerned. Consideration will be given to:

i) family association in the parish who have lived in the parish for the previous three years;

ii) any past periods of residence in the parish; and

iii) whether any member of the household has permanent employment in the parish.

c) have lived in an adjoining parish for the previous five years; and

d) have a strong local connection with an adjoining parish as set out in b) above.

The Council will work with parishes and affordable housing providers to ensure consistent parameters are applied to parish housing needs surveys. Such parameters are likely to include a clear definition of catchment areas and client groups and a standardised survey approach which can be related to the District Wide Housing Needs Survey.

POLICY H31
In exceptional circumstances limited residential development on sites which would not otherwise be released for this purpose may be permitted provided it can be demonstrated that:

a) it meets a proven need for affordable housing for local people;

b) management of the scheme will ensure that the dwellings continue to meet such proven needs for initial and subsequent occupiers;

c) the site is within or immediately adjoining the development boundary of a Rural Centre/Village;

d) there is no significant adverse affect on the character of the existing settlement or surrounding countryside nor harm to the water environment; and

e) the site is close to public transport routes and has reasonable access to local services by foot and cycle.

4.85

In more recent years people who are not traditional gypsies have taken up a nomadic lifestyle. As a response to the planning issues associated with this lifestyle, it is proposed to apply the same policy to such travellers as to gypsies.

POLICY H34
Small-scale sites to meet genuine needs for gypsies and other travelling people will be permitted subject to the following factors:

a) the site is located within a reasonable distance of local services (such as shops, schools and public transport);

b) the adequacy of vehicular access from the public highway, provision for parking and turning on site;

c) no adverse impact upon the appearance of the countryside and environment generally;

d) appropriate landscaping proposals to enhance the established character of the countryside; and

e) the likely impact on the amenity of local residents with regard to the potential for noise and other disturbance, from the movement of vehicles to and from the site, the stationing of vehicles on the site, and on the site business activities.

Sites will not be permitted in the Quantock Hills and Mendip Hills Areas of Outstanding Natural Beauty, Sites of Special Scientific Interest or other nationally designated sites.

Agricultural or Forestry Workers’ Dwellings

4.86

Planning policies towards development in the countryside are well established in Planning Policy Guidance Note 7 (1997) (PPG 7). This stressed the need for Local Plans to balance the need for environmental quality and economic and social development. National policy is to strictly control new house building in the countryside. Given the extensive rural nature of the District, it is recognised that there may be circumstances in which an established agricultural enterprise may justify the presence of a worker for its effective operation. The essence of policy is that proposals for isolated new houses require a special justification. This is to protect the landscape quality of the countryside from the harmful intrusion of unnecessary development. The circumstances in which such agricultural or forestry workers’ dwellings may be justifiable is addressed in PPG7, which forms the basis of Local Plan policy. The approach therefore is firstly to set out the criteria to be met for testing or justifying the need (Policy H35),and secondly, for acceptable circumstances to provide policy control over the physical impact, scale, design, siting and setting of the dwelling (Policy H36).

Justification of Need

4.87

If planning permission is granted for a dwelling for an agricultural or forestry worker on a holding in the countryside, the dwelling may, in appropriate circumstances be tied by legal agreement to the adjacent farm buildings or to the agricultural land of the unit, to prevent it being sold separately without further application to the Council.

4.88

An important interpretation of this policy is that the “essential need” for the agricultural worker’s dwelling is determined by the needs of the enterprise at the holding. It is not the personal preferences or circumstances of the applicant, the owner or manager of the enterprise or the worker for whom the dwelling is intended. If the need is therefore established, Policy H36 below will also be applied to provide appropriate control over the physical aspects and impact of the new dwelling.

POLICY H35
Proposals for the construction of a permanent dwelling for an agricultural or forestry worker in the countryside, outside the defined limits of Towns, Rural Centres and Villages, will only be permitted where all the following circumstances are met:

a) there is clearly established existing functional need and financial justification for a dwelling for a key worker to live on the holding;

b) no other housing accommodation is readily available to meet the demand;

c) the necessary accommodation cannot be provided by the conversion of an existing building on the holding;

d) the need for accommodation on the holding is for a full-time worker or one who is primarily employed in agriculture,

and does not relate to a part-time requirement;

e) the unit and the agricultural activity concerned have been established for at least three years, have been profitable for at least one of those years, is currently financially sound and have a clear prospect of remaining economically viable; and

f) there is no history (within the last five years) on the subject agricultural holding of dwellings with an agricultural tie being sold for occupation by persons that do not qualify for such occupation.

Physical Control of New Agricultural Workers’ Dwellings

4.89

If the need is established for a new agricultural worker’s dwelling by the test of Policy H35, careful consideration will also be needed to ensure that the physical impact is acceptable to the location. Experience demonstrates that in dealing with new dwellings to meet this need and it is appropriate for size limits on new dwellings. There can be a tendency for proposals to be larger than necessary for the living requirement, having an excessive impact in the countryside. If disposed of (with the agricultural tie) large houses tend to be beyond the financial means of potential purchasers. It is accepted however, that the first dwelling on a holding is likely to require an element of office space and facilities for outside workers (utility/shower space), its size may be larger than normal. As a guideline the maximum floorspace (measured externally and excluding any integral or detached garages) of the first or only dwelling on a holding should not exceed 200sqm or 150sqm for the second or any subsequent such dwelling; the floorspace of any integral garages should not exceed 40sqm. This will be operated in addition to objectives to control other physical impacts of such dwellings.

POLICY H36
Proposals for agricultural workers’ dwellings that are justified (in terms of Policy H35) will be permitted where all the following circumstances are met:

a) the new building is sited within sight and sound of the existing farm buildings;

b) the new dwelling employs the style, design, massing and materials which

reflect the established building tradition of the locality; and

c) the new dwelling is subject to conditions removing permitted development rights under the General Permitted Development Order to extend the dwelling or to incorporate garage space into living accommodation.

Temporary Agricultural Dwellings

4.90

Temporary accommodation will normally be in the form of a caravan, portable cabin, or other temporary structure. If permission is granted it will normally be for 3 years and subject to an agricultural occupancy condition. Successive permissions will not normally be granted.

POLICY H37
In cases where an agricultural need for a dwelling has not been established but where an applicant is intending to create a new agricultural enterprise, permission may be granted for temporary accommodation. The applicant will need to demonstrate in addition to point a) of Policy H36 and points a), b), c), d) of Policy H35:

a) clear evidence of a firm intention and ability to develop the enterprise concerned; and

b) clear evidence the proposed enterprise has been planned on a sound financial basis which may require the submission of a business plan.

Agricultural Occupancy Conditions

4.91

In order to resist the potential for further pressures for housing development in the country-side, PPG7 also provides for agricultural occupancy conditions to be applied to new and any existing dwellings on the unit which are under the control of the applicant.

i) New Agricultural Workers’ Dwellings

POLICY H38
In granting planning permission for a new agricultural worker’s dwelling, an agricultural occupancy condition will be applied to all permissions for new (permanent or temporary) agricultural workers’ dwellings.

ii) Existing Agricultural Workers’ Dwellings

POLICY H39
In granting planning permission for a new agricultural workers’ dwelling, an agricultural occupancy condition will be imposed on existing dwellings on the holding which:

a) are under the control of the applicant; and

b) do not have occupancy conditions and need at the time of the application to be used in connection with the farm.

iii) Removal of Agricultural Occupancy Conditions

POLICY H40
Agricultural occupancy conditions will not be removed unless it can be demonstrated that there is no longer a continuing need for the dwelling for agriculture. To demonstrate this the applicant will be expected to show that the property has been marketed in an appropriate manner which should include all the following:

a) through one or more agricultural agent(s);

b) with an acknowledgement of the occupancy condition in the sale details;

c) targeted at people who could be expected to comply with the condition;

d) the asking price should reflect the discount attributable to the limited market appeal for this type of property; and

e) the marketing should be for a reasonable period of time (e.g. between 12-18 months).

Conversions of Existing Buildings to Residential Use

4.92

Whilst the best use for a building is usually that for which it was originally intended, there are many circumstances in which conversion to residential use will be acceptable in principle and contribute towards the Plan’s housing requirements. In certain circumstances, conversions can be supported within urban areas. It can help maximise the use of existing building stock, provide historical linkages of building traditions and variety of housing accommodation, and be part of design solutions for the development of brownfield sites. In other situations, appropriate conversions of part of existing buildings can contribute towards attractive mixed use schemes and contribute towards other Plan objectives such as the vitality of Town Centres.

4.93

Whilst there is a need for all conversions to be carried out in a sympathetic manner and with respect for the architectural integrity of the building, the greatest areas of policy concern relate to proposals for residential conversions in the countryside. Here special considerations need to be applied in accordance with PPG7. The policies for the conversion of buildings in the countryside are set out in the Countryside and Natural Environment Chapter (Policy CNE3). In all cases it is important that conversion to residential use should not prejudice employment opportunities (Policy E4).

Replacement Dwellings in the Countryside

4.94

Particular care needs to be exercised in assessing replacement proposals for existing dwellings in the countryside to ensure that the design response is sufficiently sensitive to the context and character of the particular countryside location.

POLICY H41
The demolition and replacement of an existing dwelling in the countryside which has been occupied in recent years and not become abandoned will not be permitted unless the proposal:

a) is similar in form and massing compared to the original building and impact on its surroundings;

b) does not increase the number of dwelling units on site; and

c) is of a design which is sympathetic in scale, materials and architectural details to the established building tradition of the locality.

Residential Curtilages

4.95

The extension of gardens to existing dwellings is an issue which has on various occasions created environmental concerns and policy guidance is required.

4.96

Most proposals for garden curtilage extensions are uncontroversial and present no significant policy or landscape issues. However, three potential areas of concern can arise relating to proposals to extend garden curtilages into adjoining agricultural land:

a) the impact on the landscape, as the land loses its rural character;

b) the possibility of creating a new development plot; and

c) the visual impact on the edges of settlements where garden extensions may protrude incongruously beyond established physical development boundaries.

There is little doubt that the “manicured” appear-ance of a domestic garden (with the attendant domestic paraphernalia of fencing, sheds, greenhouses, washing lines etc) is entirely distinct in character from the agricultural land or countryside beyond. These landscape