07/00934/MKPCO OUTLINE PERMISSION FOR RESIDENTIAL DEVELOPMENT OF UP TO 1600 DWELLINGS (35.55 HECTARES), UP TO 3

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1 07/00934/MKPCO AND 07/00936/MKPCO OUTLINE PERMISSION FOR RESIDENTIAL DEVELOPMENT OF UP TO 1600 DWELLINGS (35.55 HECTARES), UP TO 3.14 HECTARES OF MIXED USES (CLASS A1, A2, A3, A4, A5, C3 AND D1 USES INCLUDING LOCAL CENTRE AND PRIMARY SCHOOL), UP TO HECTARES OF PUBLIC OPEN SPACE (INCLUDING PLAY AREAS), UP TO 3.24 HECTARES OF BALANCING PONDS, UP TO 4.93 HECTARES OF PRIMARY INFRASTRUCTURE (INCLUDING DISTRIBUTOR ROAD AND ACCESS JUNCTIONS AND UP TO 0.37 HECTARES OF WATER COURSE AND MAINTENANCE STRIP AT Land At Glebe Farm, South of A421, Newport Road OUTLINE PERMISSION FOR RESIDENTIAL DEVELOPMENT OF APPROX 840 DWELLINGS (18.67 HECTARES), UP TO 2.84 HECTARES OF MIXED USES (CLASS A1, A2, A3, A4, A5, C3 AND D1 USES INCLUDING LOCAL CENTRE AND PRIMARY SCHOOL), UP TO 8.06 HECTARES PUBLIC OPEN SPACE (INCLUDING PLAY AREAS), UP TO 2.21 HECTARES OF BALANCING PONDS (INCLUDING MARINA), UP TO 5.89 HECTARES OF PRIMARY INFRASTRUCTURE (INCLUDING DISTRIBUTOR ROAD AND ACCESS JUNCTIONS), UP TO 3.86 HECTARES OF WOODLAND, UP TO 1.75 HECTARES OF WATERCOURSE AND MAINTENANCE STRIPS, UP TO 6.79 HECTARES OF COMMERCIAL USES (CLASS B1, B2 AND B8 USES), UP TO 2.88 HECTARES FOR INTERIM PARK AND RIDE AND UP TO 1.96 HECTARES FOR A CANAL ROUTE. AT Land At Eagle Farm,, South And North of A421, Wavendon FOR Gallagher Estates Ltd & Taylor Woodrow Developments Ltd BACKGROUND Members will recall at the Development Control Committee on the 23rd August and 13th December 2006 that it resolved that the committees functions under part 3 of the constitution be amended to include approval of the Councils formal response to consultations by Milton Keynes partnership. This report is brought before members to agree a formal response on the consultation at Glebe Farm (07/0934/MKPCO) and Eagle Farm (07/0936/MKPCO) within the strategic reserve.

2 INTRODUCTION Glebe Farm The Glebe Farm, Wavendon site covers an area of approximately 61.62ha on the eastern outskirts of Milton Keynes. The application area excludes Glebe Farm, The Gables and the depot, which adjoin the site on the north side of Newport Road and Lower End Road. The application area is divided into two parcels. The larger area is set on very gently undulant low-lying ground in the valley of the Broughton Brook, rising gradually south-eastwards from the Kingston Round-about, located in the north-west corner of the site, to the highest point at the Newport Road/Lower End Road Junction. The A421 lies to the north, the golf course to the east, Lower End Road to the south and Newport Road to the west. This site is agricultural land, with a mixture of arable, turf and pasture fields. The smaller southern parcel lies on the lower slopes of the Wavendon ridge and is bordered by Stockwell Lane to the west, Newport Road to the northeast, by pasture land to the east and by private gardens to the south. This part of the site is occupied by pasture fields and slopes gently. There are a range of land uses in the vicinity of the application area. Immediately adjoining the site are agricultural buildings at Glebe Farm and an HGV depot to the south, with Wavendon golf course on the eastern side and opposite the site to the south. Further to the south and east is Wavendon village. To the west lies a small area of agricultural land and beyond, the modern housing, employment and retail developments of Wavendon Gate, Brinklow and Kingston Estates, linked to the site by the Kingston Roundabout at the north-western corner of the site. The land to the north of the A421 is currently agricultural, but is allocated in the Milton Keynes Local Plan for large footprint employment development known as Nova Park as part of the Eastern Expansion Area and will in due course be linked with the Glebe Farm site. Planning permission has been granted for the Nova Park development. Glebe Farm The Glebe Farm application is located adjacent to the M1 and straddles either side of the A421. The western boundary is defined by two hedgerows which run perpendicular from the A421, north to the M1 and south to Lower End Road, which forms its southern boundary. Comprising hectares of rural land. Fen Farm, to the west of the site and north of the A421, consists mostly of low lying pasture and has been earmarked for Large Footprint Employment under the Milton Keynes Eastern Expansion Area Development Framework.

3 Beyond Lower End Road to the south, the land is characterised by a semirural environment, including Wavendon Lodge, several clusters of farm buildings and Wavendon House School. Rural landholdings and a Golf Course between the A421 and Lower End Road frame the site's southwestern edge. The golf course is subject to a further application. PROPOSAL The applications are in outline with all matters, other than the means of access reserved for subsequent approval. Glebe Farm Glebe Farm application proposes residential and associated development on approximately ha of land south of the A421 and north of Lower End Road, near Wavendon. The development proposals include a predominately residential neighbourhood, with ha of residential accommodation, to be developed at an average net density of 45 dwellings per ha. This would provide approximately 1,600 new homes. Residential development will comprise a broad range of different house types, sizes and tenure with 30% affordable housing being proposed both rented and shared ownership housing. The proposal includes 3.14 ha of mixed use development at key nodes, associated with public transport stops and higher residential densities. This would include a mix of A1/A2/A3 retail, a primary school and community facilities as well as further residential. The development proposals include provision of ha public open space (or local parks).open space area will also include Local Play Areas (LEAPs) and Play areas for younger children (LAPs) within the detailed design of public open spaces and the residential streetscape. The application includes a number of Development Framework Plans for which approval is sought including Built Form and Massing and Movement and Public Transport. This Development Framework has been prepared by the developers, and has no formal status and the Council has not been involved in its preparation. The Development Framework Plan- Built Form and Massing shows that along the A421 corridor the development will be predominantly three storeys. Within mixed use areas built form will contain development of up to three storeys, accommodating a number of different uses within individual buildings. Elsewhere in the development, the predominant storey height will be two storeys, interspersed with three storeys in appropriate. The Development Framework Plan- Transport and Infrastructure identifies two key infrastructure elements; the public transport route and primary streets that connect through the key areas of the new neighbourhood; and the principal

4 access points into the proposed development, from the A421 and Lower End Road. Glebe Farm is proposed as a public transport based development. A new bus service would be taken through the site with bus stops sited at key intersections and next to the primary school in the Village Centre. The proposal involves a mix of residential, mixed-use opportunities, leisure, open space and associated uses. This comprises:- Residential ha Mixed Use 3.14 ha Public Open Space (Including Play Areas) ha Balancing Ponds 3.24 ha Primary Infrastructure 4.93 ha Watercourse + Main Strip 0.37 ha TOTAL ha Eagle Farm The Eagle Farm site comprises a total area of ha. Excluding an area of 5.89 ha for the construction of the primary infrastructure, the development proposals again illustrate a predominately residential neighbourhood, with ha of residential accommodation, to be developed at an average net residential density of 45 dwellings per ha. This will provide approximately 840 new homes. Residential development will comprise a broad range of different house types, sizes and tenure in order to provide for the range of housing needs in the area, with 30% affordable housing being provided to include both rented and shared ownership housing. Other uses will include a mix of A1/A2/A3 retail, a primary school, and community facilities and B1 employment. The development proposals include provision of 8.06 ha public open space (or local parks) Open spaces area will also include Local Play Areas (LEAPs) Play areas for younger children (LAPs) will be included both within the detailed design of public open spaces and the residential streetscape. The Development Framework - Built Form and Massing indicates a mix of two to four storey buildings. Development Framework- Transport and Infrastructure indicates a public transport route through the site; the principal junctions and access points into the proposed development and a reserved site for Park and Ride. It is also proposed to have connections from the EEA infrastructure through the Nova Park development, connecting the principal access from an A421 Roundabout and connection between the Eagle Farm North and South sites. It is proposed to have a bridge between the sites to allow for safe segregation of pedestrian and cycle movements and the potential for public transport. The proposals therefore involve a mix of residential, mixed-use opportunities, leisure, open space and associated uses. This comprises:-

5 Residential ha Mixed use (including primary school) 2.84 ha Public Open Space (including play areas) 8.06 ha Balancing Ponds 2.21 ha Primary Infrastructure 5.89 ha Woodland 3.86 ha Watercourses & Maintenance Strips 1.75 ha Commercial 6.79 ha Interim Park and Ride 2.88 ha Canal 1.96 ha TOTAL ha Both applications have an Environmental Statement (ES) and a full Transport Assessment covering the likely significant environmental impacts of the proposed development and appropriate mitigation measures. The ES makes an examination of the full range of environmental effects, mitigation measures and provides a summary of the environmental issues. The ES also includes a Non-Technical Summary; a Flood Risk Assessment; a Transportation Assessment and a Sustainability Assessment. The Wavendon Gateway Development Framework In tandem with the preparation of this ES the developers have commissioned Halcrow Consulting, to prepare a comprehensive Development Framework for the entire Wavendon Gateway area including the SRAs at Eagle Farm and Glebe Farm Wavendon and the golf course site. The concept for the development framework developed a number of key objectives. These include: A dedicated public transport route through the development, with key public facilities and higher density housing located along it; The creation of an integrated residential community for Glebe Farm and Eagle Farm; The inclusion of a protected canal corridor; The creation of a strong landscape and open space structure to develop the `forest' city and linear park concepts The creation of a high quality gateway/entrance to Milton Keynes along the A421. The WGDF provides a broad summary of the principal land uses. Land Use Budget Hectares Residential 60 Employment 4 Mixed Use Community Reserve Local Centre 2 Mixed Use Gateway 7

6 Parks, Play Areas and Playing Fields 18 Schools 4 Community Reserve 1 Allotments 2 J14 Park and Ride 2 Other uses 49 Total 150 CONSULTATION MKC have been consulted on the application and in order to provide a coordinated response on this significant application, the consultee response is being brought forward for members to agree. POLICY National Policy PPS1: Creating Sustainable Communities (February 2005); PPS3: Housing (November 2006); PPG4: Industrial and Commercial Development and Small Firms (November 1992); PPS6: Planning for Town Centres (March 2005) PPS7: Sustainable Development in Rural Areas (August 2004); PPS9: Biodiversity and Geological Conservation (August 2005); PPS11: Regional Spatial Strategies (September 2004) PPS12: Local Development Frameworks (November 2004); PPG13: Transport (March 2001); PPG15: Planning and the Historic Environment (September 1994); PPG16: Archaeology and Planning (November 1990); PPG17: Open space, Sport and Recreation (July 2002); PPS22: Renewable Energy (September 2004); PPS23: Planning and Pollution Control (November 2004); PPG24: Planning and Noise (September 1994); PPS25: Development and Flood Risk (December 2006). Regional Policy RPG9, the Milton Keynes and South Midlands Sub Regional Strategy and the Milton Keynes Local Plan adopted in December Regional Planning Guidance for the South East - RPG9 Milton Keynes and South Midlands Sub Regional Strategy (MKSMSRS) Locations for development should be established through the Milton Keynes Local Plan, and in appropriate Local Development Documents (LDDs) on the basis of areas of search around the western, southern and eastern edges of the urban area. A draft Regional Spatial Strategy (the South East Plan) was published in March 2006 and was the subject of examination from November 2006 to

7 March The Panel's Report following the examination was published in August The Secretary of State's response, in the form of Proposed Changes to the Plan, is expected in late 2007 / early Milton Keynes Local Plan adopted in December 2005 Relevant Policies EA1 and EA2 Expansion Areas Policy EA4 Land north of the A421 and East of Fen Farm is identified as SR1, a Strategic Reserve Area (SRA). Policy EA4A identifies the planning application sites Glebe Farm, south of A421, Wavendon as SRA SR2 and Eagle Farm, south of A421, Wavendon as SRA SR3 S1 General Principles identifies the general principles relating to the scale and distribution of development. S3 City Expansion Areas identifies the broad location of the expansion areas including the EEA: S4 Phasing of the City Expansion Areas, which provides guidance on the phasing of the expansion areas in line with new and enhanced public transport infrastructure; S10 Open Countryside defines all land outside the development boundaries as Open Countryside. CONSIDERATIONS The main issue in relation to the applications is in relation to the principle of development and compliance with policy, although the applications go into detail in terms of producing a Development Framework, which allocates land, densities and highway infrastructure, it was considered important at this stage to assess the development against the principles of the `Development Plan' without going into detail. Development Plan comments are outlined below: These comments are made in response to the Planning Statements for both applications. They relate to matters of strategic policy and the principle of permitting development on these Strategic Reserve Areas in the context of the current Development Plan. The Development Plan The Development Plan for Milton Keynes consists of the Regional Spatial Strategy and Development Plan Documents prepared by the Council (including minerals and waste DPDs). It includes the adopted MK Local Plan, which has been `saved' until December 2008 and allocates land to meet the housing target for Milton Keynes until at least 2011.

8 The Business Plan produced by Milton Keynes Partnership does not form part of the Development Plan. It is an important tool in delivering the growth of Milton Keynes, but it has not been prepared according to the relevant Town and Country Planning Regulations. Regional and Sub-Regional Spatial Strategy RPG9 (March 2001) is the approved Regional Spatial Strategy for the South East. RPG9 was partially altered in 2005 to include the Milton Keynes and South Midlands Sub Regional Strategy (MKSM SRS), rolling forward the spatial planning framework for the development of MK (and the surrounding sub-region) to A draft Regional Spatial Strategy (the South East Plan) was published in March 2006 and was the subject of examination from November 2006 to March The Panel's Report following the examination was published in August The Secretary of State's response, in the form of Proposed Changes to the Plan, is expected in late 2007 / early Policies MKAV1 & MKAV3 in the MKSM SRS set the policy framework for the future development of the city. The SRS states that a Local Development Document (LDD) will be required to establish details of the directions of growth beyond those established through the MK Local Plan. The draft South East Plan repeats this and also states that growth of the city beyond the MKC boundary should be addressed through joint LDDs. The SRS and the draft South East Plan are virtually identical in their statements regarding Milton Keynes, except that the draft South East Plan rolls forward the spatial strategy another 5 years to As well as setting housing figures, the two documents set out a broad spatial strategy for accommodating future growth in MK. The Adopted MK Local Plan The Milton Keynes Local Plan was adopted in December 2005 and sets the development strategy for the Borough to Policies S1, S10, EA1, EA4 and EA4A of the Local Plan are the most relevant to these applications (although all relevant policies within the Plan will apply). The Local Plan does not allocate the application sites for housing development but identifies them as Strategic Reserve Areas (SR1, SR2 & SR3) which means that there is currently a presumption against residential development. NB Land south of Newport Road, included within the Glebe Farm application (07/00934) is not within an SRA. Sites SR2 & SR3 are identified as being in the open countryside and outside of the limits of development of the city, with a presumption against any development that is unrelated to agriculture, forestry or countryside recreation.

9 Policy EA4 states that site SR1 would be considered for development to meet unforeseen needs before Policy EA4A states that sites SR2 and SR3 are considered to have potential for development after The policies state that all 3 sites will only be considered for development through a review or alteration to the Local Plan. Should any or all of the sites be allocated for development, Policies EA1 and EA2 require the approval by the Council of a comprehensive development framework for the area before planning permission is granted. Eastern Expansion Area Development Framework The Eastern Expansion Area Development Framework was adopted in October It sets out a framework for the whole of the Eastern Expansion Area, which includes Eagle Farm North (site SR1). The Framework identifies some potential uses for SR1 including a crematorium and interim park and ride site. Recent discussions concerning the Eastern Expansion Area suggest that there may be a need to accommodate a lorry park, consistent with Local Plan Policy E13 (iii). Milton Keynes Core Strategy Once adopted, the Core Strategy will replace key strategic policies in the Local Plan. The Core Strategy Preferred Options document has been published for consultation, ending on 8 November It is currently forecast that the Core Strategy will be adopted in March 2009; a timetable that has been approved by the Government Office. A key part of the evidence base for the Core Strategy is the MK Growth Strategy published in summer The Growth Strategy has no statutory planning status but has been used to develop the spatial strategy for the Borough in the Core Strategy. The Growth Strategy did not take development of the Strategic Reserve Areas as a commitment but reviewed their suitability for development as part of a longer term growth strategy. The Core Strategy Preferred Options document identifies an area south east of the current city boundary as a broad direction for future growth. The South East Plan Panel has recommended that this area should be identified as a Strategic Development Area (SDA) in the South East Plan, but this is yet to be confirmed through the South East Plan process. The SDA extends beyond the MKC area into Bedfordshire. The scale of the SDA recommended by the Panel is significantly greater than proposed in the Growth Strategy and supported by the Council (10,400 rather than 7,500 dwellings). The Council has commissioned a strategic level study

10 to assess the implications of the Panel's housing figures for both the SE and SW SDAs proposed for the city. The study is jointly commissioned by the Council, Milton Keynes Partnership and adjoining authorities (Aylesbury Vale and Mid Bedfordshire District Councils, and Bedfordshire and Buckinghamshire County Councils). The study should be completed by early 2008 so that it can inform the response of the local authorities and third parties to the Proposed Changes to the South East Plan. As well as considering the implications of the Panel's recommendation about the scale of the SE SDA, the local authorities will also need to consider the implications of the Panel's recommendations on other matters for the planning of the SDAs: * Increased job targets and the provision of additional employment land within the SDAs, together with the potential loss of reallocation of employment land within the city * The importance of integrating strategic locations for development with the delivery of key infrastructure such as East West Rail The development of the Core Strategy is at an early stage and it is therefore considered that limited weight should be attached to it at this point. Development in the Strategic Reserve Areas in advance of the statutory planmaking process is considered to be premature. Housing Delivery The supporting documentation with the applications is very limited in setting out the argument for releasing the Strategic Reserve Areas ahead of the statutory plan-making process. The case is based on the need to address a shortfall in housing supply highlighted in the MK Annual Monitoring Report (para of the planning statement). The applicant is correct to state that Local Authorities are required to identify and maintain a rolling 5-year supply of deliverable land for housing. The MKSM SRS sets out the requirement for the delivery of housing in MK in the period from The MKC Annual Monitoring Report (December 2006) details a current under provision in the delivery of housing against the requirement set out in the MKSM SRS. MKC made representations to the South East Plan Examination in Public (EiP) stating that the MKSM target of 3,000 completions per year is unachievable in the short term, given that completions have averaged 1,230 over the last 5 years. The South East Plan Panel agreed that the phasing of the housing targets for MK should be revised, reducing the annual rate for the period by 500 dwellings per year (3,000 to 2,500), with a compensatory increase in the following 5 year period, (from 2,200 to 2,700 dwellings per year).

11 The Panel also recommended that housing development could start in the SE SDA in the period ; they propose 600 completions, which would be towards the end of the period, i.e. around The Council considers that there is a sufficient lead-in time for this to be achieved without requiring the early release of any of the Strategic Reserve Areas in advance of the statutory plan-making process and a comprehensive development framework for the wider SDA area. The MKC housing trajectory shows that there is at least a 5 year supply of developable land in the Borough. The Council intends to publish a Strategic Housing Land Availability Assessment in December 2007, in line with government advice. This will show that there are sufficient sites available with planning permission to meet the housing requirement for MK to 2011 and beyond. MKC and MKP have also set up an officer-level Joint Housing Delivery Team to monitor and improve the rate at which new housing is delivered. Annual housing completions have increased since the JHDT was established but are still below the annual requirement set out in MKSM SRS. The Annual Monitoring Report also details that there are sufficient valid planning permissions for up to 10,000 dwellings in Milton Keynes (as of April 2006). In this context, releasing additional land for development is considered unlikely to have a significant influence on housing completion rates. PPS1 and PPS3 set out the requirement to identify a 5 year supply of deliverable housing sites. The Local Plan not only shows the capacity of sites to 2011, but it also shows that some allocated sites have considerable capacity to help meet housing targets in the period Further information is set out in the Core Strategy: Preferred Options document. CONCLUSION There is an up-to-date Development Plan framework for MK and the applicant has not provided sufficient evidence to justify setting aside the provisions of the Local Plan. The Local Plan does not allocate the application sites for housing development but identifies them as Strategic Reserve Areas. Sites SR2 and SR3 are also identified as being in the open countryside outside the limits of development of the city. This means there is a presumption against development. Land south of Newport Road, included within the Glebe Farm application (07/00934), is not within an SRA. The Council has clearly set out in the Local Plan how land within the Strategic Reserve Areas could come forward for development. The Local Development Scheme and the emerging Core Strategy set out a clear and agreed timetable for the future review of the MK Local Development Framework to deliver the growth of Milton Keynes to 2026 and beyond.

12 Allowing the Strategic Reserve Areas and a non-identified site to be developed in advance of the statutory plan-making process and prior to the production and approval of a development framework for the wider area would produce a piecemeal and unplanned development and prejudice the ability of the Council and neighbouring authorities to plan this area comprehensively. These applications should therefore be refused. RECOMMENDATION It is recommended that members agree with officers fundamental concerns regarding the proposal and MKP be advised that MKC formally objects to the proposal on grounds that the applications are contrary to development plan policy. Should the Partnership be minded to recommend approval of the application(s), they would need to be advertised as departures to the Local Plan. The Council would also wish to provide further comments detailing the requirements for an appropriate mix of uses on the site, issues relating to transport, community and other infrastructure, and the delivery of affordable housing and other sustainability principles. Report author / case officer Jackie Fox Contact details jackie.fox@milton-keynes.gov.uk

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