ED.1.3Stratford-on-Avon District Core StrategyNew Proposals ConsultationAUGUST / SEPTEMBER 2013

Contents1. Introduction12. What you have told us so far23. What the technical evidence is telling us44. Proposed Development Strategy65. Stratford-upon-Avon Canal Quarter Regeneration Zone andNew Employment Sites9Consultation Questions 1 to 6146. New Settlement at Gaydon/Lighthorne HeathConsultation Questions 7 and 81518The period for responses to this consultation is from Thursday 1 August to 5pm onFriday 13 September 2013.Comments can be made online or by completing and returning the Comment Form,available at Please note that, in addition to anycomments received after the deadline, comments made on wider aspects of the CoreStrategy rather than on those not specifically related to the consultation questions, maynot be considered.If you have any queries regarding this consultation, please contact the Planning PolicyTeam on 01789 260865 or email [email protected] Copies of thisconsultation document and the accompanying Statement of Consultation which gives fulldetails of this consultation are available on the Council’s website or from the District Council offices:Stratford-on-Avon District Council,Elizabeth House,Church Street,Stratford-upon-Avon,Warwickshire,CV37 6HXIf you find the text difficult to read we can supply it in a format better suited toyour needs, please contact Planning Policy on 01789 260865 or at the aboveaddress.Image Credits:Front Cover Top: Corstorphine and Wright and Mcgregor SmithFront Cover Bottom: Broadway MalyanPage 10: Corstorphine and Wright and Mcgregor SmithPage 16: Broadway MalyanDocument mapping:

1.IntroductionStratford-on-Avon District Council is consulting on specific new proposals in its emergingCore Strategy: regeneration of the ‘Canal Quarter’ along with new employment sites inStratford-upon-Avon, and a new settlement at Gaydon/Lighthorne Heath. These newproposals have originated from the need to increase the District housing requirement forthe period 2008 to 2028 from 8,000 homes to 9,500 homes.What is the Core Strategy?The Core Strategy is the name of the new planning document that will replace thecurrent Local Plan that the Council adopted in 2006. The Core Strategy sets out what theCouncil believes to be the most appropriate and sustainable way for meeting thedevelopment challenges facing our District and communities to 2028 and includesplanning policies on housing, employment, the Green Belt and countryside; affordablehousing; good design; historic environment; and energy & water efficiency. The Councilwill use the Core Strategy when deciding whether to approve planning applications fordevelopment across the District.How can you have your say?The Council has consulted the public on the Core Strategy before, most recently inSpring 2012. The purpose of this new consultation is to invite comments on specific newproposals that were not included in the previous consultations. Comments can be madeonline, emailed or posted to the Planning Policy Team at Stratford-on-Avon DistrictCouncil. Comments received will be publically available to view.What happens next?The Council will consider comments received and use them to finalise the Core Strategyfor ‘submission’ to the Secretary of State for public examination in 2014. Later this yearthe submission version will be placed ‘on deposit’ for 6 weeks. This will be anopportunity for everyone to comment on the ‘soundness’ of the Core Strategy prior topublic examination by an independent planning inspector. This will check whether theCore Strategy is ‘fit for purpose’, has been prepared properly and represents the mostappropriate and sustainable way of meeting the development challenges facingStratford-on-Avon District.How does the Core Strategy relate to neighbourhood planning?Neighbourhood plans are an opportunity for communities to provide additionaldevelopment to meet their identified needs if they so wish. The Core Strategy sets thestrategic planning framework for neighbourhood plans which must be prepared inaccordance with it. Whilst the Core Strategy plans for Stratford-on-Avon District as awhole, neighbourhood plans provide further detail for particular towns, parishes orgroups of parishes.How does the Core Strategy deal with strategic planning issues?The Core Strategy also deals with strategic cross boundary planning issues identified byliaising with nearby local authorities. This process is often referred to as the Duty to Cooperate. Cross boundary issues relate not just to housing and employment markets andcommuting patterns, but also include environmental and landscape issues (part of theDistrict is within the Cotswolds Area of Outstanding Natural Beauty) and drainage issues.Core Strategy - New Proposals Consultation1August/September 2013

2.What you have told us so farContextA substantial amount of housing development has taken place in the District in recentdecades with the overall number of dwellings increasing by 52% between 1981 and2011. Much of this has been concentrated in the larger settlements such as Stratfordupon-Avon (increased by 58%), Wellesbourne (increased by 74%), Bidford (increasedby 86%) and Shipston (increased by just over 100%). At the same time, the historicand natural environment of the District is very highly valued and contributes significantlyto the identity and character of the area. There is widespread concern that additionalsignificant growth would fundamentally and irrevocably alter the character of ourexisting towns and villages.Public ConsultationThe plan-making process is not a one-off event; rather it involves a number of stages ofconsultation as the Council moves from a range of options to its preferred plan. In‘honing-down’ the most appropriate strategy for distributing development, communitiesand stakeholders across Stratford-on-Avon District have had a number of previousopportunities to have their say. Comments received from each consultation have beenused to inform the content of subsequent draft documents.Issues and Options Consultation (May 2007)In May 2007, the Council consulted the public on the Issuesand Options, which sought opinions on various differentapproaches to distribution of development from highlyconcentrated to wide dispersal. The feedback showed thatthere was a clear preference for a wide dispersal of futurehousing development across most settlements in theDistrict, with 41% of respondents giving this option as theirfirst choice. The situation was less clear cut for employmentdevelopment, with a concentration on the larger settlementsin the District gaining similar support to a more dispersedapproach.Draft Core Strategy Consultation (October 2008)Following the Issues and Options Consultation, the Councilpublished a Draft Core Strategy based on a strategy ofdispersal and the requirements of the Draft West MidlandsRegional Spatial Strategy Revision (RSS) (now revoked) for5,600 homes and 68 hectares of employment land. Thisstrategy proposed some development in most towns andvillages, with a particular focus on the larger ruralsettlements as a way of ensuring the effective provision ofpublic services and commercial facilities. There was generalsupport for this approach, but it was dependent on thespecific amount of development then proposed for eachsettlement.Core Strategy - New Proposals Consultation2August/September 2013

Housing Growth Scenarios Consultation (Summer 2009)Following publication of the Draft Core Strategy, work on the RSS by the RegionalAssembly indicated that the housing requirement for Stratford-on-Avon District mayneed to increase. As such, the Council consulted the public on how best to deal with anyincrease. Using the base requirement of 5,600, this consultation considered the optionsof dispersal, urban extensions and a new settlement against the three scenarios of 7,500homes (an increase of 1,900 homes); 10,100 homes (an increase of 4,500 homes); and15,000 homes (an increase of 9,400 homes). The feedback showed that, in all scenarios,the approach favoured in over half of all responses was that a new settlement would bethe most appropriate way for dealing with an increase in the housing requirement.Directions for Stratford-on-Avon District Consultation (February 2010)Following the Independent Examination of the RSS, it was recommended by the Panel ofInspectors that Stratford-on-Avon District’s housing requirement should be increased to7,500 homes to 2021, and then by a further 2,500-3,000 to 2026. To meet this newrequirement, the Council proposed to amend the distribution set out in the First DraftCore Strategy by: providing an additional 800 homes in Stratford-upon-Avon itself,given its status as by far the largest, most accessible town in the District with the mostservices and jobs; a further allowance of 950 homes to be provided in the moresustainable villages known as Local Service Villages (LSVs); and allowing scope for amodest amount of housing development on large rural brownfield sites based onmeeting local need and/or associated with other uses on the site.This approach was contrary to the results of the publicconsultation held in 2009 which gave a clear preference thatany significant increase in housing should be accommodatedby a new settlement. This was because whilst theIndependent Panel acknowledged that a new settlementmay be required to accommodate the additionaldevelopment after 2021, it concluded that 7,500 homescould be accommodated satisfactorily in Stratford-on-AvonDistrict without the need for a new settlement. Legally, theCore Strategy had to conform to the RSS so the views oflocal residents were outweighed by the imposition of topdown planning. Responses to the consultation showed thatthere was still support for the dispersed approach, althoughconcern was raised as to the prospect of a large-scale urbanextension to Stratford-upon-Avon town.Core Strategy - New Proposals Consultation3August/September 2013

Draft Core Strategy Consultation (February 2012)Following publication of the 2010 Core Strategy, and in thecontext of its Localism Agenda, the new CoalitionGovernment introduced fundamental changes to theplanning system including the publication of the NationalPlanning Policy Framework (NPPF), the abolition of regionalplanning and the introduction of a new tier ofneighbourhood planning. In response, the Council took amore ‘local approach’ to policy making by introducing AreaProfiles which include a number of local policy principles andcommunity aspirations whilst, at the same time, balancingthe need to plan strategically to meet the overall needs ofthe District. The Council also looked afresh at the Districthousing requirement and concluded that a figure of 8,000was more appropriate for the period 2008 to 2028.Consultation responses showed that there was still supportfor the dispersed approach although, again, this was subjectto the specific amount of development proposed for eachsettlement.3.What the technical evidence is telling usIn addition to listening to the views of communities and stakeholders, the Core Strategymust also be based on an analysis of the technical evidence. Having a plan that is notbased on a thorough analysis of robust evidence means it is unlikely to be found ‘sound’or fit for purpose at examination. If this were to happen, the Council would have to goback to the drawing board and start again, meaning the District would be without a planfor some years. The full technical evidence is available to view The findings of the following studies are of particularrelevance to this consultation.Employment Land Study (August 2011)This study found that employment growth within Stratford-on-Avon District over the 20year plan period 2008-2028, is unlikely to match the levels achieved over the previousdecade. However, over the longer-term, the District is considered to be relatively wellpositioned, lying within one of the most economically dynamic parts of the WestMidlands located on the M40 corridor that connects London and Birmingham. It benefitsfrom a high quality of life and environment, a strong skills base and high levels ofeconomic participation. It is entrepreneurial, with higher than average business startups, relatively strong business survival rates and self-employment almost twice regionaland national averages. As such, it can be expected to be more economically resilientthat many other Districts. The study concluded that provision should be made for 25-30hectares (net) of new employment land over the plan period and recommended that theCore Strategy should recognise that the Gaydon Proving Ground represents a strategicemployment site of regional and national significance.Core Strategy - New Proposals Consultation4August/September 2013

Housing Provision Options Study – Update (January 2013)Based on demographic assumptions about fertility, mortality, life expectancy, migration,and household size, and as appropriate, economic assumptions about rates ofemployment, this study provided the Council with a number of projections of futurehousehold estimates. The study found that natural change accounted for some 2,500households, but that with migration added the District could be expected to grow bybetween approximately 9,000 (11%) and 13,000 (20%) households between 2008 and2028. However, in terms of the number of residents in employment, the projectionssuggested growth of between approximately 4% and 9%, with a decrease of around 1%compared with current levels under one scenario.Review of Housing Requirements (March 2013)This review sought to determine an appropriate level of newhousing for Stratford-on-Avon District to 2028. It confirmedthat because of an ageing population and decreasinghousehold size, even if there was no additional growth inpopulation due to migration, natural change would result ina need for 2,500 homes between 2008 and 2028. In takingaccount of migration, and based on past trends, it foundthat it would be sensible to adopt a figure of around 1,000persons per annum as a robust assumption for medium tolong term projections. The study advised that significantlyincreasing housing growth above 10,000 dwellings couldrisk further unbalancing the population of the District byattracting a high proportion of retired in-migrants and outcommuters.The extent to which the number of new homes should increase is influenced byeconomic factors. However, the review concluded that there is no direct relationship,particularly in a District such as Stratford-on-Avon, which faces a particular demand forhousing for older persons. New jobs do not necessarily have to be filled by in-migrants,given alternative sources such as lower local unemployment, later retirement andincreased activity rates, including amongst the elderly/recently retired, as well asimproved skills and training. As such, the review recommended a housing requirementfigure of 9,500 to 10,000 net additional dwellings. This would be sufficient to maintainand slightly grow the current number of employed residents over the period to 2028 andthus be consistent with the Council’s Business and Enterprise Strategy.Assessment of Large Scale Development Options (Spring 2013)This assessment comprised three distinct yet inter-related pieces of work. Firstly, theCouncil undertook an initial strategic assessment of broad locations for potential largescale development, and concluded that there were 6 broad locations across the Districtwithin which it may be suitable, subject to further assessment, to accommodate largescale development of at least 2,500 homes. Secondly, the Council issued a ‘call for sites’for suggestions for large-scale development from landowners and developers. Over 30submissions were received, although many were not of a size large enough to beconsidered large-scale. Finally, a further study considered the suitability, viability andachievability of shortlisted suggestions, including considering the infrastructureimplications and costs of any such development.Core Strategy - New Proposals Consultation5August/September 2013

This study concluded that large-scale development at Long Marston, Gaydon/LighthorneHeath and southeast Stratford-upon-Avon all perform well in terms of their availability,their relatively unconstrained nature and their potential viability, having regard to theiridentified infrastructure requirements.Strategic Transport Assessment (June 2013)This study focused on the options for a new settlement at Gaydon/Lighthorne Heath andan urban extension at southeast Stratford-upon-Avon, possibly linked to some additionaldevelopment at Long Marston. The urban extension is considered reliant on the provisionof an eastern relief road via a new bridge crossing of the River Avon at Tiddington. It isnot possible to mitigate the traffic impacts of a substantial development south ofStratford-upon-Avon without providing the relief road or something similar. The onlysignificant highway infrastructure required to support the option of a new settlement atGaydon/Lighthorne Heath is the provision of a northbound slip road at M40 J12. Theassessment identified impacts on Warwick/Leamington but the modelling presented aworst case scenario. Further testing is being undertaken to take account of the newsettlement’s ability to draw traffic from south Warwick/Leamington and to assess thepotential for mitigation, including a park and ride service. The further testing will alsomore fully investigate the impacts of traffic in neighbouring villages. The initial workpredicts that such impacts would be relatively small in comparison to those caused bythe increased traffic on the M40 and in Warwick/Leamington.Sustainability Appraisal (June 2013)A key aspect of the plan-making process is to assessoptions against a range of social, economic andenvironmental criteria in order to understand the impacts ofa development, and to help mitigate any negative effects.This is known as a sustainability appraisal. It is an ongoingand iterative process and a key component of the planningsystem that seeks to deliver sustainable development.Proposals that are found to have generally negativeconsequences should be avoided. The existing and newstrategic allocations have been appraised and been found tohave generally positive outcomes.4.Proposed Development StrategyProposed StrategyBased on the previous consultation stages and the findings of the technical evidence, theCouncil is proposing the following distribution of development in the Core Strategy asproviding an effective and sustainable way of meeting the significant increase in housingrequirement to 9,500. You can view the full Intended Submission Version of the CoreStrategy at Strategy - New Proposals Consultation6August/September 2013

HousingThe following figures show how the 9,500 homes are proposed to be distributed acrossStratford-on-Avon District in the period 2008 to 2028. They include homes already builtand with planning permission (as of March 2013). An allowance has also been made for‘windfalls’ of 625 homes. Windfalls are those unidentified sites that get planningpermission such as conversions and changes of use.xxxxxMain Town of Stratford-upon-Avon (approximately2,550 homes)8 Main Rural Centres (approximately 1,875 homes)45 Local Service Villages (approximately 1,800homes)Large Rural Brownfield Sites (approximately 785homes)New Settlement at Gaydon/Lighthorne Heath(approximately 1,900 homes with a further 2,900after 2028)EmploymentThe Core Strategy is not just about housing; additional employment land must also beprovided to meet the economic needs of the District to 2028. Moreover, there also needsto be a relationship between the location of new homes and new jobs to help reducecommuting and sustain and enhance our communities. The following distribution ofemployment land is also proposed:xxxx14 hectares of additional employment land and 15hectares of relocated employment land atStratford-upon-Avon18 hectares as part of the new settlement atGaydon/Lighthorne Heath19 hectares on the north-eastern edge of Redditchto meet the specific employment needs of Redditch14 hectares at the Main Rural Centres of Alcesterand SouthamStrategic AllocationsTo deliver the above distribution strategy, the Council is proposing to allocate thefollowing strategic locations for development in the Core Strategy. The existingproposals have been consulted on previously. The purpose of this consultation is to seekcomments on the new proposals only, and the Council is not inviting comments on othermatters raised by this document or in the Core Strategy at this stage.Existing Proposalsxxxx19 hectares of employment land at Winyates Green and Gorcott Hill, to the northeast of Redditch300 homes north of Allimore Lane, to the west of Alcester11 hectares of employment land north of Arden Road, Alcester200 homes, employment and sports uses west of Banbury Road, to the south ofSouthamCore Strategy - New Proposals Consultation7August/September 2013

x150 homes west of Coventry Road, to the north of SouthamNew ProposalsxxCanal Quarter housing-led mixed-use regeneration at Mason’s Road, Timothy’sBridge Road, Wharf Road, and Western Road, Stratford-upon-Avon (700 homesand 3 hectares of B1 employment land) and 29 hectares of employment land ontwo sites on the A46 corridor at Stratford-upon-AvonNew settlement at Gaydon/Lighthorne Heath (4,800 homes (1,900 to 2028) and18 hectares of employment land)Justification for the New ProposalsThe justification for the new proposals is fourfold:xxxxFirstly, as a result of the decision to further increase the District housingrequirement from 8,000 to 9,500 to meet identified housing need in full;Secondly, further technical work has concluded that any significant increase inthe housing requirement could not be met sustainably by a dispersal approach;Thirdly, community support for the concept of a new settlement should theDistrict housing requirement need to be increased; and,Finally, a desire to make best use of brownfield land in existing settlements asopposed to greenfield extensions for housing development.Benefits of Large-scale DevelopmentLarge scale development is an effective and sustainable way of meeting the challenges ofdelivering high-levels of housing growth. Whilst any development will of coursetransform the landscape of the specific area in which it is built, it will provide for a rangeof new community, employment and leisure services and at the same time can take thepressure off other areas, helping to retain their special character and qualities. An addedbenefit is that, because of their scale, the infrastructure necessary to serve a newsettlement can be more easily planned and delivered in a phased manner, helping toensure that the new settlement is a sustainable community.Alternative OptionsThe two proposals that form the basis of this consultation have been selected because,in the Council’s view and based on the technical work undertaken, they contribute to themost sustainable and appropriate approach to meeting the development challengesfacing Stratford-on-Avon District. If these two new proposals are not included in theCore Strategy, alternative sites will need to be identified to meet the increased housingrequirement of 9,500 to 2028. However, in reaching its decision to include the two newproposals, the Council has already considered, and found to be less appropriate, anumber of alternative options for large-scale development.Core Strategy - New Proposals Consultation8August/September 2013

5.Stratford-upon-Avon Canal QuarterRegeneration Zone and New Employment SitesThe ProposalRegeneration of the existing industrial and commercialareas at Mason’s Road, Timothy’s Bridge Road, WharfRoad and Western Road to create a new housing-led,mixed-use ‘canal quarter’ for Stratford-upon-Avon (seeMaps 1 and 2). To facilitate this development, provisionneeds to be made for existing businesses to relocate totwo new employment areas on the A46 corridor on theedge of town: south of Alcester Road (west of Wildmoorroundabout) (see Maps 1 and 3) and east of BirminghamRoad (north of A46 at Bishopton), the latter of whichwould be removed from the Green Belt (see Maps 1 and4). These new sites will provide opportunities for a mix ofexisting and new businesses to develop in the town inorder to support the local economy and provide jobs. Oncethe existing businesses have been relocated, the formerindustrial and commercial areas would be redeveloped fora mix of new uses, including housing, offices and openspace.Looking southeast towards the rearof Masons Road industrial areaLooking southeast towardsBirmingham RoadBackgroundAlthough a new proposal in terms of the Core Strategy,the desire for the regeneration of this ageing part ofStratford-upon-Avon has had wide support for a numberof years. It was first identified by the Council in theStratford-upon-Avon Urban Design Framework SPD and isseen as an opportunity to improve and enhance the publicrealm in an important central location, maximising itsprime canal side features. Regeneration would alsoimprove the quality of life of nearby residents and thosealong the Birmingham Road by significantly reducing theamount of (heavy) goods vehicles travelling to and fromthe site. This proposal is also being promoted in theemerging Stratford-upon-Avon Neighbourhood Plan. Findout more about the Stratford-upon-Avon NeighbourhoodPlan at king northeast across the ‘Southof Alcester Road’ site towards theWildmoor roundaboutTechnical EvidenceThe Employment Land Study identified scope for certainindustrial and commercial areas which have becomeoutworn (such as the Western Road area and land offMasons Road) to be considered for mixed use purposes,including residential. This study also recommended that inorder to attract new businesses and investment in theDistrict, an additional 5-10 hectares of land should beCore Strategy - New Proposals Consultation9Looking southeast across the site‘East of Birmingham Road’August/September 2013

allocated at Stratford-upon-Avon for Class B1 uses, withspecific provision made in the form of a business park.The study indicated that the preferable location for thiswould be close to the A46 and the Stratford ParkwayStation.Sustainability AppraisalThe sustainability appraisal found that, on balance, thenew employment sites would have a neutral or slightlypositive impact. Likely negative effects in respect ofcharacter, car use and the countryside would be balancedby positive effects in respect of natural resources,reduction in pollution and economic growth. In respect ofthe regeneration zone, the appraisal found that onbalance, effects were positive. Thus, taken as a whole, theregeneration of the canal quarter and new employmentlocations is considered to represent a sustainable form ofdevelopment for Stratford-upon-Avon.Principle of DevelopmentThe purpose of the Core Strategy is to establish theprinciple of the development. More detailed requirementswill be set by a Masterplan to be adopted by the Councilfollowing further public consultation. This approach woulddovetail neatly with any specific requirements identified inthe Stratford-upon-Avon Neighbourhood Plan.Core Strategy - New Proposals Consultation10Above and Below: Indicativesketches of how the CanalQuarter Regeneration Zone couldlook (subject to inclusion in theCore Strategy and theMasterplanning process)August/September 2013

ToM40A46(T )040A3To -inyn leHe r den-ASUA.3Stratford Parkway Stationand Park and Ride!BishoptonToAlc es terA4 6 (T)BirminghamRoaCloptondSUA.1SUA.2Alc es te!r Ro adStratfordRailwayStationShotteryh amEvesStratford-uponAvonTown CentreRoa dToBidford-on-Avo nB4 39Map 1: Location of Stratford-upon-Avon SitesSUA.1, 2 and 3 SiteBoundariesTrunk RoadA-RoadGreen BeltRailway Line! Railway StationRiver AvonBuilt-up AreaStratford-upon-Avon Canal00.51:25,00012Kilometres Crown Copyright and database right 2013. Ordnance Survey 100019520.Core Strategy - New Proposals Consultation11 Produced by the WCC Corporate GIS TeamAugust/September 2013

Map 2: Canal Quarter Regeneration ZoneTimA3400B riy 'so th o a dRMaybirdRetail Parkdg eSUA.1St ratfoMasonsRoaAlc es te rRord -upon-Avon C anWh arf RoadalWeste rn RoaddSupermarketad!!A4 35Stratford-upon-AvonRailway StationScale for Map 21:7,0000100Stratford-upon-AvonTown Centre200MetresMap 3: South of Alcester Road Employment SiteMap 4: East of Birmingham Road Employment SiteT6(A4A4 6( T)SUA.2)40A3To Str-upo atfordn- AvTowon Ce nntre0SUA.36A4Stratford-upon-Avon ProposalsSUA.1/SUA.2/SUA.3Scale for Maps 3 and 41:10,000100200300400500Metres Crown Copyright and database right 2013.Ordnance Survey 100019520. 6A4Aerial Photography: GeoPerspectives 2006Core Strategy - New Proposals Consultation12)(TfordtratTo S n- Avone-upo C e ntrnTow0August/September 2013(T )

Core Strategy RequirementsIt is proposed that the Core Strategy will set out certain policy requirements in respectof this proposal. These are shown below.Proposal SUA.1: Canal Quarter Regeneration ZoneWhere it is to bedeliveredCanal Quarter, incorporating land at Western Road, WharfRoad, Timothy’s Bridge Road and Masons RoadApprox. 20 hectares (gross)Housing – approx. 700 dwellingsClass B1(a/b) employment uses on a minimum of 3hectaresLinear park alongside canalPhase 3 (2018/19 – 2022/23) and Phase 4 (2023/24 –2027/28)Private sector, Canal & River TrustProduce a Masterplan to establish a comprehensiveapproach to the whole areaEnvironmental enhancements to the canal corridorPedestrian and cycle links through the area and withadjacent parts of the townTraffic management measuresEnsure implementation of the Steam Railway Centre is notprejudicedxxWhat is to be deliveredxxx

Stratford-on-Avon District Council is consulting on specific new proposals in its emerging Core Strategy: regeneration of the ‘Canal Quarter’ along with new employment sites in Stratford-upon-Avon, and a new settlement at Gaydon/Lighthorne Heath. These new proposals have originated from