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5 Land use and development control statement
5 Land Use and Development Control Statement
5.1 Introduction
Planning Policy Guidance Note 13 (PPG13) sets out national planning policy in respect of transport. In accordance with Annex B of PPG13 the Highways Agency (HA) encourages local planning authorities (LPAs) to consider alternatives to the use of the private car in devising access to local developments. The HA will take these alternatives into account, providing they have been agreed and secured, when it assesses the scale of or need for relevant highways works.
Under the "plan led" system county councils and LPAs produce Development Plans. In the South East of England these are set in the strategic context of Regional Planning Guidance 9 (RPG 9) and in the East Midlands the Development Plans are set in the strategic context of Regional Planning Guidance 8 (RPG 8). Both RPG 9 and RPG 8 should be read in the context of the Government's 10 year plan for transport (Transport 2010) published in July 2000.
A Regional Transport Strategy prepared by the Regional Planning Body, the South East England Regional Assembly is an integral part of RPG 9, providing the regional priorities for transport investment and management across all modes to support RPG 9.
A draft Regional Transport Strategy has been prepared by the Regional Planning Body, the East Midlands Regional Assembly, and will in its final form be part of RPG 8. The Regional Transport Strategy will provide regional priorities for transport investment and management across all modes to support RPG 8.
County Councils are responsible for Structure Plans, which set the strategic framework for development within each county. District Councils produce Local Plans that set out the locations in which particular types of development should take place; an indication of the overall density of that development; together with policies that govern land use development within their area. Unitary authorities may produce a combined Unitary Development Plan for their area. County Councils also produce Mineral Plans. Developers then submit planning applications with detailed proposals for individual sites. In addition, local highway authorities prepare Local Transport Plans (LTPs) that look specifically at transport issues and set out authorities' proposals in this field over a 5-year period.
The new Planning & Compulsory Purchase Act, together with associated revised legislation and emerging guidance, changes completely the way planning is done in England. The Act has received Royal Assent and came into force in the Autumn of 2004. Among its key objectives are to create a more holistic planning framework to deliver a wider land use planning approach rather than simply guiding land use.
The new system will put Regional Spatial Strategies (RSS) on a statutory basis, abolish Structure Plans (after a transitional period) and introduce Local Development Framework (LDF) to replace Local Plans and Unitary Development Plans. LDFs will themselves be set a or 'folder' of Local Development Documents which together will guide development in the local authority's area.
The LDF will be made up of a Core Strategy (consistent with the RSS), Development Plan Documents (outlining policies within themselves), Supplementary Planning Documents (similar to current Supplementary Planning Guidance) and a Statement of Community Involvement (SCI) formally setting out the consultation and engagement processes throughout the life of the LDF. In addition it will include a Local Development Plan which sets a timetable for developing, monitoring and reviewing the LDF.
It is envisaged that Land Use and Development Control Statements from this and other RMSs could from part of the LDF and the HA will seek to discuss at the earliest stages with Local Authorities how best this can be achieved during the preparation of their LDFs.
The HA strongly encourages LAs to consult it during the drawing up of Development Plans and LTPs with the object of ensuring that the Trunk Road network is properly integrated into the planning process. This is particularly pertinent in the light of fundamental changes to the development plan system described above.
The Government's development control policy for the motorway and trunk road network is set out in DTLR Circular 04/2001. This policy dictates the need to ensure that motorways are kept safe and free flowing. The development control policy refers to the operation of existing junctions and the effects of the increased traffic movements due to the impact of development proposals.
Circular 04/2001 also deals with the capacity of the trunk road network. It says "Where the assessed traffic flows exceed the capacity of the trunk roads concerned at any time within the 15 year period (after a development is complete), the Agency will normally direct that a condition be attached to any planning permission that may be granted. The effect of the condition will be to specify the improvements which will be required both to accommodate this traffic and to ensure the safety of all road users, including pedestrians and cyclists." The Policy states that direct access to motorways will be limited to grade separated junctions from other trunk routes or major local roads, Motorway Service Areas (MSAs) and exceptionally other major transport interchanges.
5.2 The Impact of Development on the M1 Junction 1 to 19 and M10
The stretch of M1 motorway covered by Junctions 1 to 19 runs through 3 London Borough's, 4 different Counties and 14 separate Districts. Each of these administrative areas, (and others that are close by but do not directly accommodate part of the M1) are subject to continuing land use change and development pressures which in many instances will impact upon the future use and operation of the M1 motorway.
In order, therefore, to promote an efficient transport system it is necessary to fully integrate transport and land use planning. This approach will contribute to delivering sustainable solutions and will reflect the Governments latest strategic policy aim.
One of the key areas that form the framework for the development of a Route Management Strategy (RMS) is the relationship with 'Development Plans' namely, Regional Planning Guidance (RPG), Unitary Development Plans in the London Boroughs, County Structure Plans and District or borough wide Local Plans. The eventual route objectives, which set out the future role and aims for the route, will be informed and influenced (in part) by a thorough examination and consideration of these plans, and the inherent implications of their output. It is likely that this will result in a future relationship with the development plan process. This is particularly pertinent in light of fundamental changes to the development plan system. First outlined in the Government Planning Green Paper, "Planning: Delivering a Fundamental Change" in December 2001 the present system of structure plans, local plans and unitary development plans was replaced with a new single level of plan known as a Local Development Framework12. The context for this plan will continue to be set by Regional Planning Guidance or by their future successor, the Regional Spatial Strategy. RPG 9 (South East) and RPG 8 (East Midlands) cover the length of the M1 from Junction 1 to 19.
5.2.1 Development Proposals - Study methodology
In order to promote an efficient transport system it is necessary to fully integrate transport and land use planning. This approach will contribute to delivering sustainable solutions and will reflect the Governments latest strategic policy aim.
One of the key areas that form the framework for the development of a RMS is the relationship with 'Development Plans'. However, with the introduction of the new Planning and Compulsory Purchase Act (2004), which has now received Royal Assent, these development plans will be reformed.
The provisions of the Act will come into force at different stages at the discretion of the SOS, through the issuing of commencement orders. The provisions for reforming development plans came into force in autumn 2004, with the remaining sections following over the next 12 months. For development plans, the reforms will change the development plan making process. In England, Regional Planning Guidance will be replaced by Regional Spatial Strategies. Local Plans will be replaced by Local Development Schemes; comprising Local Development Documents and Development Plan Documents. Reforms to major infrastructure projects, planning contributions, compulsory purchases and local development orders are also included within the Act.
For this RMS however, current Regional Planning Guidance (RPG), Unitary Development Plans, County Structure Plans and District or Borough wide Local Plans are still applicable and the eventual route objectives, which set out the future role and aims for the route, will be informed and influenced (in part) by a thorough examination and consideration of these plans, and the inherent implications of their output.
To assemble a schedule of key data from extant and emerging development plans, all available documents have been collected from the appropriate local authorities including some that are close by but do not directly accommodate part of the M1. In view of the recent changes to the planning process, it has been assumed that as the strategy progresses, close liaison with these authorities will facilitate a more up to date analysis and ensure that any other committed or proposed developments, not appearing as planned allocations, are equally taken into account.
The analysis of these plans has identified potential land use developments that might affect the future performance of the M1. Those developments deemed as having a particularly significant impact upon future use and performance of the road have been highlighted as "key development sites" and are discussed in Section 5.2.2.
5.2.2 Development Proposals - Findings
In general terms it is clear that the M1 passes through or close by a number of large urban conurbations, each of which will be the subject of an ongoing continued growth over the next 10 years. This will continue to put pressure on those parts of the motorway network that service these centres. In addition there are a number of site specific development proposals for residential, employment, and /or leisure use which in themselves, by virtue of their size and location, are likely to have a significant impact upon the future characteristics of the M1 and it's junctions.
On 5 February 2003, the Deputy Prime Minister launched the Communities Plan (Sustainable Communities: Building the future) which set out a long-term programme of action for delivering sustainable communities in both urban and rural areas by tackling housing supply issues in the South East, low demand in other parts of the country, and the quality of open spaces. The Plan aims to accelerate the provision of housing particularly affordable ones.
The Plan proposes three growth areas within the East of England at Milton Keynes-South Midlands, Thames Gateway and London-Stansted-Cambridge-Peterborough Corridor. The first of these growth areas have the prospect for significant impact on the M1 corridor.
The paragraphs below outline the nature and extent of identified key development sites / areas, which it is considered should be the subject of more detailed review.
(i) Milton Keynes and South Midlands (MKSM) Sub-Regional Strategy
To establish the possible extent and location of future growth a sub-regional study was proposed by RPG9 for Milton Keynes and South Midlands (MKSM) area. The final report of the MKSM study was published in September 2002. This concluded that the study area has considerable potential for growth over the next 30 years.
The MKSM Sub-Regional Strategy has been prepared in response to the Government's request to the three Regional Planning Bodies whose areas cover parts of the sub-region to develop proposed Alterations to Regional Planning Guidance for the following:
- The East of England (RSS14 in preparation);
- East Midlands (RPG8); and
- South East (RPG9).
The levels of housing & economic growth seen as realistic in the MKSM Sub-Regional Strategy over the 30 year period to 2031 are:
- Bedfordshire & Luton - up to 97,000 dwellings & 53,000 jobs;
- Milton Keynes & Aylesbury Vale - up to 62,000 dwellings & 99,000 jobs; and
- Northamptonshire - up to 167,000 dwellings & 141,000 jobs.
Transport improvements included M1widening and junction improvements from 6A to 13.
In the shorter-term, local development plans reveal a considerable grouping of major development proposals around Junctions 10 and 10A, which will have an inevitable impact upon the future use and operation of this part of the motorway. These include:
At its southern most end the M1 directly serves north-west London with land around Junctions 1 to 3 almost entirely developed. Whilst such areas will be the subject of incremental growth year on year, this will be well dispersed and it is likely that within this part of the conurbation it will only be the larger proposals for redevelopment and regeneration that will give rise to significant alterations in the demands placed upon the motorway. Three such areas that are considered worthy of note include the redevelopment of Wembley stadium and its environs for leisure and commercial uses, the continued expansion and development of the Park Royal Industrial Estate [Key site B], and the Cricklewood and Brent Cross mixed use redevelopment area. (see Figure 5.1).
The Cricklewood, West Hendon and Brent Cross Regeneration plan suggests that eventual regeneration could create 5,000 housing units and 5,000 new jobs, with the potential for more jobs resulting from the Masterplan exercise and Commercial Market Testing. Plans include associated retail and leisure uses, and new transport systems including accesses to the M1, a new rail station and a rapid transport system. Provision for an enhanced rail freight transfer depot at Crinklewood for use by business in London and the South East has also been allocated.
Figure 5.1: [Key Site A] Cricklewood, West Hendon & Brent Cross Regeneration Area
Moving north, in close proximity to Junction 4 is the Centennial Park, Elstree development area [Key site C] which is one of English Partnerships Strategic Sites and comprises a 27 ha employment site adjoining the A41 which has planning consent for 75,000sqm of class B employment uses.
Junction 5 of the M1 serves south Watford which, as a centre is planning only incremental growth to meet structure plan targets [Key site D]. However within the District boundary at Junction 6 / 6A is the Leavesdon Aerodrome / Studios site, Figure 5.2.
In 2001, MEPC submitted two planning applications for the redevelopment of the former Leavesden Aerodrome and some adjoining land as a new film studio and related media park, for companies in the telecom, media and technology sectors. One of the applications was to develop a maximum of 121,500 sq m of new commercial and film studio floor space with associated leisure uses, some residential development and access improvements including a direct connection to the A41. This application was amended in January 2002 to modify the means of access to and from the Park, to re-position the playing fields and pitches and to introduce detailed phasing arrangements. This application was refused by both Three Rivers District Council and Watford Council.
The other application is identical to the pervious one as amended except that it proposes to phase the development as follows:
- Phase 1 53,500 sq m offices and film studios
- Phase 2 38,000 sq m offices and amenity buildings
- Phase 3 30,000 sq m offices.
Both Councils have resolved to approve this application subject to the prior completion of a S106 Planning Agreement. Negotiations covering the content of the Agreement are currently taking place.
Although not identified as a Key site, it is worth noting proposals for the development of Watford Junction railway station as a major transport interchange. The station is envisaged as a regional hub with interchange facilities between trains and buses, taxis, cycles, pedestrians and cars. In the long term this may include the development of park and ride and park way stations. Much of this strategic thinking and planning is in anticipation of a new link into Crossrail Line One and an eventual link into the cross channel Eurostar network.
Figure 5.2: [Key Site E] Leavesdon Studios: A Site Overview (left) and Plans developed by MEPC (right)
Junction 7 and the M10 serving St Albans will be impacted by the continued growth of St Albans. The town, the fourth largest settlement in the County, lies just a few miles away from London's northern fringe on the junction of a number of strategic transport routes, including the M25, the A414 and the St Pancras railway line. As such it is developing as a key commuter settlement, offering a high quality urban environment in a rural location. [Key site F]
Similarly at Junction 8, Hemel Hempstead will continue to grow incrementally alongside it's two site specific development areas at Three Cherry Trees Lane [Key site G] and Two waters and Aspley [Key site H]. Together these sites comprise over 30 ha of land to accommodate new industrial and employment uses together with over 1000 new homes.
Regional Planning Guidance for the South East (RPG9, March 2001) identifies the general area of Milton Keynes and the South Midlands as one of the four potential major growth areas in the South East. In July 2003 a draft report of the Milton Keynes and South Midlands (MKSM) Sub-Regional Strategy was published for consultation. It concluded that the study area has considerable potential for sustainable growth over the next 30 years that will be of benefit both locally and nationally.
Wigmore Employment Area [Key site I]
Within the Luton Local Plan a 40 ha employment site including light industrial, office warehousing and airport related uses with a possible new access arrangement tunnelled under the exiting airport has been allocated. The Wigmore employment area was established through policy EMP3 in the Borough of Luton Local Plan 1997, as a fundamental means of meeting Luton's employment needs. The site continues to represent an opportunity to modernise Luton's economic base and to accommodate development arising from the continued growth of London Luton Airport.
Butterfield Area [Key site J]
Butterfield is a 41 ha site north east of Luton. The Borough Council has agreed that planning permission should be granted, but it is subject to a legal agreement, which has not been finalised. Uses for the site include the combination of University Campus, innovative centre and technology village - which can benefit from close relation to the University and viceversa, an Hotel, a Park & Ride facility & extension to the Vale Cemetery.
Stockwood Area (Luton Town Football Club) [Key site K]
The Stockwood area consists of some 22 hectares of land lying on Luton Borough Councils boundary. It is made up of two parcels of farmland separated by Newlands Road. Within the Borough boundary the land forms the last accessible, large scale site not yet allocated for development.
Luton Town Football Club needs to be relocated within a new stadium, and it is considered that the Stockwood area is a suitable location for this facility. Other sporting facilities for which there is an identified need may also be appropriate for this area. Development of the site is constrained however, by the topography of the land and proposals for widening the M1, which require part of the site to be safeguarded for such purposes.
Luton Airport [Key site L]
The publication of the Department for Transport White Paper "The Future of Air Transport", December 2003, is intended to provide a strategic framework for the development of air travel in the United Kingdom over the next 30 years. The future growth for London Luton Airport has been reviewed within this document.
Luton currently handles about 7 million passengers per annum (mppa), and is expected to grow steadily towards its current planning limit of 10mppa. Forecasts suggest that there would be sufficient demand to justify expansion of Luton to full potential of a single runway, and carry up to 30mppa up to the 2030 period, which the government supports.
As the principle road to and from Luton airport, the M1 could see an increase in vehicle flows as the airport grows, which the White Paper states could contribute 'to pressures on the road network, beyond 2015, depending on the rate of build up'.
The consultation paper "The Future Development of Air Transport in the United Kingdom: South East" included two options for a replacement runway at Luton. One of these options involved moving the runway to NNE-SSW alignment and extending it. The other option which was put forward was for a replacement full-length runway to the south of the existing runway and on the same alignment, with the latter to be used as a taxi runway. The White paper concluded that there was little argument for re-aligning the runway and has therefore not supported it. There is a stronger case in favour of the later option and this is however, not a favoured option by the operator. Instead the operator would rather extend the existing runway and taxiway.
The White Paper has concluded that the Government supports the growth of Luton up to the maximum use of a single full-length runway based broadly on the current alignment, on condition that the overall environment impacts of such development will be carefully controlled and adequate mitigation.
The Bedfordshire structure plan provides for Luton Airport to develop to a capacity of 10 million passengers per annum (mppa) by 2010 from a 2000 throughput of 6mppa. The airport does not feature prominently in the economic appraisal of the final eight options for providing increased capacity in the South East region, however, the report states that:
"By 2030, the runway options would require measures to deal with pressure on the M1between Junctions 9 and 13 caused by a combination of airport-related and other motorwaytraffic growth."
Translink [Key site M] - A proposed 12km guided busway between Dunstable and Luton airport via Luton town centre and railway station, and possibly the new football club park and ride to mitigate against the impact of the stadium and developments to be served by the East Luton Corridor - see below.
East Luton Corridor and Vauxhall site (see Figure 5.3) - served by a dualling of the A505 from Junction 10A to Princess Roundabout to enhance access to Butterfield. Also there is a proposed link into the proposed A5-M1 link i.e. Luton Northern bypass and East Circular North.
Figure 5.3: [Key Site N] Planned Development in the Luton Area13
Whilst Junction 11 will also inevitably feel some of the pressure both from the above and from the growth of Luton and Dunstable it is not until Junction 13 is reached that the next site specific major development area is brought into focus. This Junction will be needed to serve the planned new settlement at Elstow Garden Village (on the former site of Elstow Storage Depot) Figure 5.4.
Figure 5.4: [Key Si
te P] An Artist's Impression of Elstow Garden Village
This new settlement will comprise at least 4500 new homes, wrapped around the retained Wilstead Industrial Estate. It also forms part of the strategic A421 corridor [Key site O] which seeks to accommodate a total of 11,000 new homes (including Elstow Garden Village) together with industrial and commercial development, linking the Cranfield Development Area [Key site Q] for High Tech business and class B uses to Bedford and the M1 at Junction 13.
Junction 14 serves the Regional Centre of Milton Keynes [Key site R]. The strategic importance of Milton Keynes leapt in February 2003 with the announcement by the Deputy Prime Minister that (as provisionally identified in RPG 9), it had been earmarked as one of four "regional growth areas", the cornerstone of the Governments "Sustainable Communities" programme14. "Sustainable Communities: building for the future"15 lays out a growth plan that will see Milton Keynes share £164 million (with Ashford and London-Stansted- Cambridge16) for "site assembly and remediation of brownfield land, delivery mechanisms, additional affordable housing and essential local infrastructure". It is anticipated that the investment will contribute towards the potential for growth of 300,000 jobs and 370,000 new homes in the area by 2031. While Milton Keynes is the focus for this development, a number of other urban centres in the South Midlands are also included. Most critically for this study among their number are Northampton and Luton. Full details of these proposals will be included in revised and updated RPG/RSS for the area, to be finalised in 2004. In the shorter term the relocation of Wimbledon football club to Milton Keynes in 2004 should be noted. However, above and beyond the early stages of this planning application, it remains unclear as to whether the existing pattern of match day traffic will change. Although there are no other significant site specific development proposals worthy of independent note, Milton Keynes continues to experience an above average rate of incremental growth. This includes the provision of 20,000 new homes for the City between 2001 and 2011 and some 80ha of land allocated for warehousing and distribution development.
Junctions 15, 15A and 16 south of Northampton are the subject of a number of significant site specific development proposals and also form part of the "regional growth area" defined by the Deputy Prime Minister and discussed above. RPG8 for the East Midlands provides the immediate policy framework for this growth. The guidance states that Northampton's role and function, as a major population and employment centre should be fostered by new transport infrastructure and facilities to support its anticipated future rate of growth.
Grange Park at Junction 15 [Key site S] is a mixed use development site accommodating some 1500 new homes on 40 ha and 30 ha of industrial and commercial uses. Being so close to Junction 15 extensive remodelling here has already taken place.
Swan Valley manufacturing and business park, served by Junctions 15A and 16 (see Figure 5.5), extends to some 84ha with the potential to accommodate 2million square feet of office, manufacturing, warehouse and business support space. Milton Ham adjacent, also has 10 ha allocated for class B1 uses that currently has planning applications for class B8 uses thereon.
Faber Maunsell has submitted a proposed development to the HA relating to the Swan Valley & Pineham Developments. The proposal has analysed the slip roads at the Junction 15A and highlighted the northbound on-slip is below design standard. The forecast design year flow the M1 mainline in the PM peak is towards the upper limit for a three lane motorway and the addition of a significant flow of traffic on the on-slip will cause interference and a possible safety hazard.
Figure 5.5: [Key Site T] A Master Plan for Swan Valley, M1 Junction 15A
Finally at Junction 18 sits the Daventry International Rail Freight Terminal (DIRFT) and logistics park (see Figure 5.6). This facility, with a rail terminal, has planning consent for 371,000 sq metres of manufacturing and distribution development all accessed via Junction 18. Located on the West Coast Main Line railway line as part of the Trans European Combined Transport Network, the site currently runs at around 68 percent occupancy, with 118,000 sq metres available. Further to the existing site, proposals exist for a sizeable extension to the facility. The proposals envisage the extension of the current DIRFT Logistics Park on 54 hectares (133 acres) of land adjacent to the existing complex. The application seeks approval for some 180,741 sq metres of warehouse distribution and manufacturing floorspace, most of which will benefit from the ability to take direct rail connection from the existing International Railport. If approved, the scheme will also necessitate minor local highway infrastructure works to the A428 and the demolition of 6 residences.
The land in question is located to the west of the existing DIRFT Logistics Park and is bounded by the West Coast Main Line railway in the south, the A5(T) to the east and the District and County boundaries of Daventry and Northamptonshire to the north and west. The application follows close on the heels of the commencement of construction of a Midlands Regional Distribution Hub for the Royal Mail. This facility is being built adjacent to the M1 motorway on the zone known as DIRFT East and is scheduled for occupation in the late summer of 2003.
Figure 5.6: [Key Site U] The Daventry International Rail Freight Terminal Adjacent to M1 Junction 18
The development of the Royal Mail unit means that two thirds of the first phase of DIRFT Logistics Park is now committed. The whole project is expected to be complete by 2006.
5.3 Land Use and Development Framework for the M1 Junction 1 to 19 and M10
The land use and development control framework overleaf provides a concise summary of HA policy with respect to the development issues described in Section 5.2.
| Route Section | Strategy Elements | HA Response to Planning Applications | HA Response to Reviews of Development Plans and Local Transport Plans |
|---|---|---|---|
| Whole Route |
|
|
|
- See Planning Green Paper (2001): "Planning: delivering a fundamental change", ODPM, for further details of this process. back [12]
- Sourced from the Luton and Dunstable Local Transport Plan [N] insert full reference here back [13]
- Also see Milton Keynes And South Midlands South Midlands Study, September 2002 back [14]
- ODPM (2003) "Sustainable Communities: building for the future" back [15]
- The forth growth area, Thames Gateway is subject of a separate £436 million, allocation. back [16]
