Archived decisions

Contact: Antony Payne, ext 6766 email: [email protected]

1. Background

1.1 The South West Regional Assembly (SWRA) submitted the Draft Regional Spatial Strategy (RSS) for the South West 2006-2026 to Government on 24 April 2006. Consultation on behalf of the independent Panel of Inspectors will run for 12 weeks until 30 August 2006.

1.2 The County Council's main interest in the Plan relates to the proposals for South East Dorset. A report was presented for consideration last July on the emerging strategy for this sub-region. In the intervening months a strategy has been developed for the sub-region and is included in the RSS.

1.3 In its response last year the County Council resolved to inform the strategic planning authorities in Dorset (who were preparing the draft strategy on behalf of the SWRA) that:

(i) it supports the proposal to concentrate the major part of new development within existing built-up areas, but remains concerned that development within South East Dorset, particularly at the higher growth scenarios, could potentially have adverse impacts on adjoining areas of Hampshire, and seeks assurances that the scale of development eventually chosen will be accompanied by adequate and timely improvements to infrastructure; and

(ii) maintains its previously expressed concern at the possible implications of development on traffic flows between Hampshire and South East Dorset and therefore reserves its position in relation to the appropriate scale of future development pending the receipt and analysis of further technical information on the traffic implications.

2. South East Dorset Sub-Regional Strategy

2.1 The sub-regional strategy for South East Dorset can be summarised as:

(i) maximising the use of previously developed land;

(ii) realising the economic potential through job growth and a focus on the airport and university; and

(iii) development to reflect the extremely high value of the surrounding environmental assets and addressing the implications arising from the European Habitats Directive.

2.2 The sub-regional strategy makes provision for between 31,100 and 34,400 dwellings and 42,000 jobs in the Bournemouth-Poole conurbation. Although most of the dwellings will be built within existing urban areas, the Plan also proposes a number of urban extensions, including one of 600 homes to the north-west of Christchurch. It is likely that this development will be very close to the boundary with Hampshire (and the New Forest National Park) in an area that currently forms part of the South East Dorset Greenbelt. The sub-regional strategy recognises that here, as with other parts of the Greenbelt affected by proposed urban extensions, the inner edge will need to be revised to reflect the boundaries of the proposed new development.

2.3 The M3/M27/A31 that links Bournemouth and Poole with London is identified as part of the inter-regional road network. The Plan says that it will be essential to ensure that the reliability and resilience of the strategic links between the region and the rest of the UK are improved. Selective investment in the strategic transport routes and links serving the region, particularly the main links between the South West and London and the South East is needed if the objectives of the Draft RSS are to be achieved. The Plan also recognises that to be consistent with regional and national climate change policy and to tackle congestion, public transport improvements both within the sub-region and with neighbouring areas are also required. To this end demand management measures are to be progressively introduced in the Bournemouth-Poole conurbation accompanied by a `step change' in the prioritisation of public transport provision.

3. Other Issues

3.1 In addition to the sub-regional strategy for South East Dorset there are a few other areas that are of interest to the County Council:

(i) Although the M4/M5 is identified as the main highway link between the South West region and the rest of the country, the strategy identifies the M3/A303/A358/M5 as the second strategic highway. The Plan proposes that this be brought up to dual carriageway standard throughout to help stimulate economic activity.

(ii) In addition to South East Dorset, the Plan also sets out the framework for planning in Salisbury district. It says that the Local Development Document should enable a balanced growth of jobs and housing. Provision should be made for between 11,000 and 13,500 jobs in the Salisbury Travel to Work Area and an average of about 250 dwellings per annum at Salisbury over the plan period.

(iii) Earlier this year the County Council, in its response to the South West Main Line Route Utilisation Study, indicated its support for proposed track improvements on the Waterloo-Exeter railway line. The Draft South West Plan also seeks to secure enhancements on this route and proposes additional passing loops between Salisbury and Exeter as a precursor to offering an hourly service (which would also benefit passengers at Andover and Basingstoke).

(iv) The Plan does not say much about minerals and waste. There is a sustainable construction policy which will help embed a `material resources approach' into development. The Plan also proposes an increase in recycling and recovery and a commensurate move away from landfill. There are no particular issues arising for Hampshire.

(v) In terms of water resources, the Plan says that analysis by the Environment Agency has shown that overall future levels of growth can be accommodated in terms of water supply, providing measures are put in place to improve the efficiency of homes, by increasing metering and reducing leakage. Local planning authorities, through their Local Development Documents, must ensure that rates of planned development do not exceed the capacity of existing water supply and wastewater treatments systems, and do not proceed ahead of essential planned improvements to these systems. Bournemouth and West Hampshire Water covers areas of the New Forest, and also supplies Fawley power station. Much of this water comes from the Avon. Water has not been identified as a key issue in the Plan for either South East Dorset or Salisbury and there is no indication that the development proposed for Salisbury, Bournemouth and Christchurch will threaten these supplies

4. Assessment

4.1 The urban extension to Christchurch highlighted in 2.2 above may contribute to a small increase on traffic using the A35 through the New Forest to travel to South Hampshire and places further east. Its proximity to the New Forest National Park is likely to be an issue for the Park Authority, although the development can be expected to have only a small localised impact. Of greater concern to the Authority (given the stance it has taken on the sub-regional strategy for South Hampshire) is probably the impact on the National Park arising from the level of development proposed for the Bournemouth-Poole area as a whole. The County Council's main interest is the potential for an increase in car-based leisure trips. This could be mitigated by the County Council working closely with the Park Authority and transport authorities in Dorset to promote attractive public transport, walking and cycling alternatives.

4.2 The proposal to dual the whole of the M3/A303/A358/M5 may contribute to traffic levels on those parts of the M3 and A303 in Hampshire which might need to be taken into account when investment requirements or management measures are considered, particularly for the more congested M3.

4.3 While the M3/M27/A31 is listed in the inter-regional road network, it is considered that the A34 should also be included in the list, as this provides an important link to the West Midlands.

4.4 The level of growth proposed in the Plan for Salisbury does not give rise to any particular issues impacting on Hampshire.

4.5 In its response to last year's draft sub-regional strategy the County Council indicted that it supported the policy approach proposed for South East Dorset but expressed concern about the scale of development and whether it would be accompanied by adequate and timely improvements to infrastructure. The amount of housebuilding proposed in the RSS for South East Dorset (1,550-1,720 per annum) is very similar to that put forward in last year's draft strategy. SWRA has produced an Implementation Plan to accompany the RSS that goes some way to address the concern raised last year by the County Council regarding the provision of timely infrastructure. However, unlike the South East Plan, there appears to be no conditionality attached to the provision of timely critical infrastructure required to support development or a recognition of the substantial contribution required from Central Government to help fund it. Without such a condition there is more likelihood that development will take place without a guarantee that all the necessary infrastructure will be in place.

4.6 The Draft Plan contains very little in the way of proposals for investment in road infrastructure to support major new development. Essentially, the proposals for investment in strategic roads is limited to the M4/M5 (management measures) and A303/A358 (dual carriageway standard) corridors. While there is limited investment proposed in some of the sub-regional study areas, these are essentially for urban improvements and for links to/from the strategic network. This focus on the two strategic routes is despite an identified "serious infrastructure deficit in many parts of the region".

4.7 The general approach to transport is investment in walking, cycling and passenger transport and to rely on demand management measures, although the precise form to be used is often unspecified. There is also a desire to reduce the need to travel through the "creative planning of new development".

4.8 The South East Dorset sub-region includes only two road-based infrastructure projects, a link road between the A338 and Bournemouth Airport (although even this is qualified by "further work required") and A31 to Poole corridor improvements. It is understood that the link road route is subject to a number of environmental designations and may be difficult to deliver. Nevertheless, the inclusion of the scheme in the Plan is to be welcomed, because of the potential to relieve traffic pressures in the Avon Valley.

4.9 The package of proposed transport investment for the sub-region is set out on page 85 of the Draft Plan and, reflecting the overall approach, focuses on alternatives to the car and demand management (although, in this case, specified as transferring road space and parking controls). While a sustainable approach to meeting travel demand is welcome in its own right, it is difficult to see how this can effectively meet the full development requirements of the Plan without targeted supporting investment in road infrastructure.

4.10 From a Hampshire perspective, there is a concern that road infrastructure within the region in general, and the sub-region in particular, may become under increasing pressure, thereby potentially forcing additional traffic to make longer distance journeys into the South East region and into Hampshire. Given the location of the South East Dorset sub-region, many of these trips would be into or through the New Forest National Park.

4.11 The Draft Plan recognises the importance of the inter-regional road network, which includes M3/M27/A31 London-Bournemouth/Poole (page 115). These routes together with the A34, A338 and a number of other routes in Hampshire are also included in the Regional Freight Map (page 124). There is no discussion in the Plan on the impact of development proposals on any of these routes or on the potential need for improvements to them.. While the Plan would not be expected to address these matters directly, it is surprising that there is no reference to the issue.

4.12 It is recommended that these concerns be highlighted in the response to the consultation.

4.13 The previously expressed concern about lack of technical information to assess the transport impacts of proposed development in South East Dorset remains, and it is recommended that this is reiterated.

5. Next Steps

5.1 The next steps for the South West RSS are the same as for the South East RSS, albeit a few months later. The closing date for consultation responses is 30 August 2006. The Examination in Public is scheduled to be held in spring 2007 with the Panel Report due to be published in the middle of next year. The Secretary of State will then consult on proposed modifications with the revised RSS expected to be issued early in 2008.

6. Impact Assessments

6.1 The Plan contains a policy that the needs of all groups in society will be taken into account when planning the development of communities in the South West to ensure that all members of society are able to benefit from growing prosperity and improving quality of life. Local authorities are also required to conduct Equality Impact Assessments of policies in their Local Development Documents and to take steps to mitigate negative effects.

7. Conclusion

7.1 The Draft RSS for the South West 2006-2026 should be supported in general. Representations should, however, be made proposing that the Plan:

(i) includes a policy to state that major new development proposals are conditional on the timely provision of necessary infrastructure; and

(ii) highlights concerns about the lack of specific proposals for transport infrastructure.

Recommendation

That the Examination in Public Panel for the Draft Regional Spatial Strategy for the South West be advised that Hampshire County Council:

(i) Whilst broadly supporting the overall strategy, especially with regard to proposals for South East Dorset, believes that the Plan should be strengthened by the inclusion of a policy that makes major development proposals conditional upon the timely provision of necessary infrastructure and gives recognition to the substantial funding support required from Central Government.

(ii) Is concerned that the general approach towards accommodating future travel demands, including that arising from major development, appears to rely almost exclusively on non-car modes of transport and on unspecified demand management measures.

(iii) Considers that the Plan, or the Implementation Plan, should incorporate a detailed list of critical transport infrastructure requirements, which is required to properly assess the implications of proposed major development.

(iv) Reiterates the concerns previously expressed to strategic planning authorities in Dorset about the possible implications of development on traffic flows within Hampshire, and therefore reserves its position in relation to the appropriate scale of future development in South East Dorset, pending receipt and analysis of further technical information.

(v) Proposes that the A34 (via the A31/M27/M3) should be included in the Inter-Regional Road Network, as a key link between South East Dorset and the West Midlands.

976Rpt/AP