The New Plan for Milton Keynes. Growth to

The New Plan for Milton Keynes AS trateg y for Growth to 20 3 1

Milton Keynes 2031 A Long Term Sustainable Growth Strategy June 2006 Prepared by GVA Grimley LLP In association with:edaw and ATKINS

The Growth Strategy formilton Keynes Contents Executive Summary... 1 Part A:Introduction to the Project... 12 1 Introduction and Purpose ofreport... 13 2 Planning Policy Framework... 18 3 The Commitment to Achieving Sustainable Development... 19 Part B:The Story So Far Towards a Sustainable Growth Strategy for Milton Keynes... 21 4 Progress to Date... 22 5 The Emerging Directions ofgrowth... 29 6 The Peer Review Group... 32 7 Key Findings from the Phase 3 work... 33 Part C:The Proposed Vision and Core Growth Strategy for Milton Keynes... 38 8 Developing the Vision... 39 9 Strategic Objectives ofthe Proposed Growth Strategy... 44 10 Core Sustainability Principles... 47 11 Strategic Growth Policies... 52 12 SpatialPrinciples for the Main Areas ofchange... 73 13 Delivering the SpatialPrinciples... 120 Part D The Growth Strategy Implementation Plan... 142 14 The Role and Key Considerations for the Implementation Plan... 143 15 Funding and Delivery... 148 Part E:Review and Monitoring... 157 16 Review and Monitoring ofthe Growth Strategy... 158 Glossary ofterms... 162 June 2006

Technical Annex Annex 1 Annex 2 Transportation Assessment Land Budget Analysis Annex 3 Future Employment Capacity Analysis June 2006

Executive Summary Part A: Introduction to the Project 1. The proposed Growth Strategy for Milton Keynes must be extremely ambitious. It must take a town designed in the 1970 s as a unique interpretation oftown planning design and bring it up to date by creating a new sustainable future for a city that will be ofmajor regional importance in 2031. A new robust spatial planning vision is required to guide significant change and development proposed in the area. 2. This report sums up Phase 3 ofthe Growth Strategy preparation process. It draws on earlier option evaluation to create a proposed strategy that is supported by a vision,strategic objectives,growth policies,spatial principles and an implementation plan,which outlines key infrastructure requirements. 3. The report explains why change is necessary. It outlines the regional planning context indicating why Milton Keynes has been identified as one offour potential growth centres in the South East region up to 2021. This policy is taken forward in the Milton Keynes and South Midlands Sub-Regional Strategy (MKSM SRS),which indicates that over the period 2011-2031,Milton Keynes will become a city ofregional importance with a population ofover 300,000. To guide this growth,a long term sustainable vision is called for to provide a platform for a step change in the quality offacilities and investment in the City. This should reflect a continuing programme ofselective intensification and renaissance supported by upgrading ofthe public transport system. 4. This vision up to 2031 will need to tackle a number ofchallenges,chiefamongst which will be a need to base the design and environment of new development on the concepts of sustainability;to ensure that a 'two speed city is avoided through a comprehensive approach which ensures that all citizens ofthe city benefit,not just those in the areas ofgrowth and change,and the imperative to enhance,rather than detract,from the unique green character ofthe city. 5. The report defines the study area,taking the lead from the SRS,which depicts directions of growth to the west,south and east ofthe city. The alternative options for growth have consequently focussed on these areas. It goes on to set out the planning policy framework underlining the role ofthe Growth Strategy in informing the Principal Authorities on the distribution of housing growth up to 2026, in the context of their submissions to the Government on the emerging South East Plan. It will also contribute towards the preparation offuture local development documents for the Milton Keynes Growth Area. June 2006 1

6. The proposed Growth Strategy reflects a commitment by stakeholders to achieve an exemplar of a sustainable community in Milton Keynes. Key elements in the city s success have been its dynamism and its embracing of change, fuelled by the skills and ambitions of its population. The Growth Strategy represents a major opportunity to revitalise and renew the vision for the city, a vision, which, whilst supporting continued rapid expansion, should set a path to fundamentally re-orientate growth towards long term sustainability. Part B: The Story So Far Towards a Sustainable Growth Strategy for Milton Keynes 7. This section of the report summarises progress made to date in the preparation of the Growth Strategy. It describes the approach to the study, summarises the findings of the public consultation options set out in the earlier Options for Growth Report (November 2005) and summarises the comments received as a consequence of the wide ranging consultation exercise. The latter confirmed a preference for the adoption of a high urban capacity model with Option 6 (the development mainly to the east of the M1 motorway) gaining least overall support except from those living to the south-west of the city. 8. The report subsequently sets out the earlier recommendations on the emerging directions of growth which focussed upon land to the south-west of the city around Newton Longville and to the south-east of the city, in the area adjoining Wavendon, and north and east of Woburn Sands. The proposed division of housing growth between urban and peripheral development is presented with a range of between 11,000-13,000 proposed in the period 2011-2031 for the urban area. Hence between 21,000-23,000 dwellings would have to be accommodated through peripheral growth. This level of new housing combined with housing allocations assumed in the adopted Local Plan and through the Milton Keynes Council s earlier urban capacity work, provides a total number of dwellings amounting to some 68,600 dwellings over the period 2001-2031. 9. It is recognised that sustainable communities are about more than just housing; they are also about creating and improving places for people to live and work, where positive change is brought about in effective partnership with local communities. In this respect, the technical work has reinforced the need for the Growth Strategy to adopt a holistic approach, which incorporates a range of key components, which will complement and support the proposed housing growth. These centre upon the encouragement of a competitive economy and improved learning and skills, a sustainable transport system, high quality community and cultural infrastructure and, where possible, the enhancement of green infrastructure and the city s environment. 10. Additional technical work has been undertaken as part of Phase 3 of the study. A key element has been a further transport assessment which has informed the formulation of a sustainable June 2006 2

transportation strategy, which incorporates a balance of measures aimed at, in particular, enhancing significantly the quality of public transport in the city. Key transport projects are identified in Section 11 as part of the Strategic Growth Policies and also in the Implementation Plan (Section 15). In addition, supplementary technical analysis has been carried out with respect to the Growth Strategy land use budget and future employment capacity of the city. The recent Peer Group Review and additional stakeholder consultation are also referenced, with the outcomes reported separately to Milton Keynes Partnership Committee. Part C: The Proposed Vision and Core Growth Strategy for Milton Keynes 11. Part C of the report sets out the proposed core Growth Strategy for the City. It underlines the important point that the strategy is not simply about land use, but must help shape the city in all respects towards its visionary goal. This will be a challenging task effective community and stakeholder engagement aimed at achieving consensus will be critical if the strategy is to be successful. Spatial Vision 12. A Spatial Vision for Milton Keynes in 2031 is presented. This draws on the requirements of the MKSM SRS and the Milton Keynes Community Strategy. It pictures an ambitious future, balancing the needs and aspirations of today s communities, with the changes in lifestyles necessary to ensure a more sustainable future for the city in the long term. A range of factors is identified that will influence the potential to achieve the vision, including the imperatives of gaining long term political support; securing significant private sector investment, supported by complementary public sector funding and interventions; and the need to put in place effective delivery mechanisms to ensure the early provision of strategic infrastructure is in step with growth. Strategic Objectives 13. The Spatial Vision is supported by a set of strategic objectives, which reflect regional/subregional planning guidance and the results of earlier technical work and the outcomes of consultation. Core Sustainability Principles 14. Section 10 of the report highlights a group of Core Sustainability Principles, which have been taken into account in drawing up the proposed Growth Strategy. These principles are categorised under five broad aims as follows: - June 2006 3

Moving to a low carbon economy; Increasing resource efficiency; Enhancing environmental assets; Enhancing quality of life; and Ensuring economic sustainability. Strategic Growth Policies 15. The Strategic Growth Policies form the component parts of the core Growth Strategy. The Consultants recommended proposals are outlined below. The adoption of the Milton Keynes Local Plan housing figures, plus the development potential of the identified Expansion Areas. The provision of up to 13,000 houses in the urban area over the period 2011-2031. The delivery of some 7-8,000 houses in a Growth Area to the South East of Milton Keynes, which using the higher figure, splits roughly 4,800 in the city and 3,200 in Mid-Bedfordshire District over the period 2016-2021. The provision of two phases of growth in a Growth Area to the South West of Milton Keynes in Aylesbury Vale District, the first phase amounting to around 7,500 dwellings over the period 2021-26 and the second, also containing around 7,500 houses (2026 to 2031). 16. Stakeholder consultation as part of the Phase 3 work has crystallised the concerns of the Principal Authorities over the direction of the strategy. These concerns centre upon, firstly, Milton Keynes Council s concerns that the proposed level of urban housing may prove undeliverable and, secondly, Buckinghamshire County Council and Aylesbury Vale District Council s views that large scale growth to the south-west of the city may prove unacceptable because of the impact on existing communities and on areas of landscape value. 17. These concerns have raised the prospect of the potential need for a strategic reserve in circumstances where elements of the Growth Strategy are not capable of being implemented. In practice, if the local planning authorities wish to adopt this approach, then this will be a matter that can be addressed through their local development framework process. However, June 2006 4

notwithstanding stakeholder views, the consultants remain of the view that the technical work to date confirms the proposed Growth Strategy as both a viable and deliverable solution. The remainder of the report therefore sets out the proposed strategy in further detail, incorporating a set of underlying spatial principles to guide development. 18. The proposed scale and phasing of growth in Milton Keynes up to 2031 is set out in the following table: Table 1: Scale and Phasing of Milton Keynes Growth per 5 year Period split by reference to development on urban and peripheral sites Subject 2001-06 2006-11 2011-16 2016-21 2021-26 2026-31 Total: 2001-2031 Milton Keynes 7,900 15,000 11,000 11,000 11,500 12,200 68,600 Annual Average Rate of Housing Provision Housing provided within the existing urban area (including previously developed and allocated sites) Peripheral (greenfield) housing growth Source:Milton Keynes Council/Consultant 1,580 3,000 2,200 2,200 2,300 2,440 2,290 1,000 1,100 1,500 3,000 4,000 4,500 15,100 6,900 13,900 9,500 8,000 7,500 7,700 53,500 19. The report goes on to explain the role and scale of urban regeneration necessary in the urban Areas of Change to accommodate approximately 13,000 dwellings and related neighbourhood facilities. Similarly, the locations of the two proposed urban extensions are defined, namely: - The area south-east of Milton Keynes (Growth Areas 1) broadly defined by land in close proximity to Wavendon, Woburn Sands and Aspley Guise (area approximately 385 hectares/951 acres); and The area south-west of Milton Keynes (Growth Areas 2 and 3) broadly defined by land surrounding the village of Newton Longville (area approximately 875 hectares/2,161 acres). 20. The land use budget methodology is explained and the scale of key facilities identified in relation to the three separate phases of peripheral growth. Each of these areas will require new neighbourhood and local centres to meet a range of community, cultural and employment requirements, commensurate with their anticipated populations. 21. The sustainable urban extensions should be carefully programmed so as to complement, and not undermine, the contribution of development and regeneration within the urban area. The table above reflects a reasonable view on the scale and phasing of development which allows for an appropriate policy framework and delivery mechanisms to be put in place to deliver the scale of urban housing identified through the urban potential analysis. Hence a large June 2006 5

proportion of housing up to 2021 will be delivered on greenfield sites, with an increasing proportion of urban housing being brought forward post 2021 up to 2031. Throughout the plan period, however, peripheral and urban development will have to be implemented in tandem, supported by the provision of appropriate strategic infrastructure. 22. Table 11.5 in the main report sets out the distribution and phasing of housing over the period 2011 to 2031 by location. Over the period 2011 to 2016 development would be largely confined to the areas identified for expansion in the adopted local plan. Over the subsequent 5 year period (2016-2021) new housing would be largely accommodated in the new South East Growth Area (which falls within Milton Keynes city boundary and partly in Mid- Bedfordshire district) with growth over the next 5 year period (2021-2026) taking place largely in the South West Growth Area 1. The outstanding housing requirement from 2026 to 2031 would be accommodated within the South West Growth Area 2. Both of the South West Growth Areas fall within Aylesbury Vale District. Over the period 2016-2031, the level of housing provided through the process of urban regeneration will be increased to a maximum of 4,500 dwellings over the period 2026-2031. 23. Other key growth policies include the following: Linking Urban and Greenfield Development The need to explore the potential for peripheral greenfield development to subsidise urban regeneration through Section 106 and linked development agreements. Environment The need to enhance existing green infrastructure and reflect the quality of this provision in the urban extensions and areas of change. Long Term Development Boundaries The report identifies the need to define enduring boundaries to proposed development and suggests a set of criteria that could assist in this process. Reference is also made to the requirement for the local plan making authorities to consider policy mechanisms such as designation of Green Belt or strategic gap policies to allay some of the fears of local residents about the impact of development and potential future growth. Strategic Reserves Given the proximity of 4 of the 5 Local Plan Strategic Reserves in the vicinity of the proposed South East Growth Area, it is recommended that these are incorporated into this proposal, an approach which would enable effective use to be made of strategic infrastructure and which would provide a logical extension to development in the Eastern Expansion Area. Economy The Growth Strategy provides for a match between jobs and housing provision as required by the MKSM SRS but, equally, would not prejudice the provision of additional jobs in the city if growing economic demand supported such a policy approach. June 2006 6

Employment locations Highly accessible strategic employment location allocations are put forward in the proposed Growth Areas linked to new public transport systems to reduce the need for travel. These follow the lead of the Local Plan and will provide high quality employment sites for knowledge based industries and replace less viable employment allocations, which could be better used for alternative development. Sustainable Transport The establishment of an effective system of public transport is central to implementation of the proposed Growth Strategy. The report identifies a series of key elements in a sustainable transport strategy based around the following elements: - - Efficient access to the new development areas; - Better public transport including new bus services in the east, west and north-south corridors; - New park and ride facilities; - Support for East-West rail which is of sub-regional importance as well as a rail link to CMK; - Further adoption of demand management measures, including the provision of travel plans and increased parking charges; - Additional strategic highway improvements, including widening of the M1 and improvements to junctions 13 and 14, as well as dualling of part of the A421. Social,Community and Cultural Facilities These should include the following: - - The provision of a number of new primary and secondary schools to accommodate the envisaged increase in school numbers as set out in the main report. - A well-educated, skilled and entrepreneurial workforce should underpin the continued growth and economic success of the city. In this context, the proposed Growth Strategy strongly supports the case made in relation to the Universities of Milton Keynes project, which is campaigning for a new campus-based university in the city as crucial to its future growth. In addition, the need to meet the growing demand for health sector staff is also highlighted (including the provision of a nurses training college). - The approach to delivery of healthcare is changing with a move towards devolved services in community hub centres based around local primary care services. June 2006 7