supporting planning statement - …€¦ · herefordshire council’s ... designed in accordance...

SRF 021

SUPPORTING PLANNING STATEMENT

In respect of

OUTLINE APPLICATION

FOR A CARE VILLAGE ON

LAND AT PARADISE GREEN, MARDEN

On behalf of

NORTH OAK HOMES

Ref: RCA041o

Date: July 2016

Supporting Planning Statement July 2016 Paradise Green, Marden North Oak Homes

RCA Regeneration Limited © RCAA041o 2

CONTENTS PAGE(S)

EXECUTIVE SUMMARY ........................................................................................... 3

1.0 INTRODUCTION ........................................................................................ 4

2.0 SITE DESCRIPTION.................................................................................... 6

3.0 PROPOSED DEVELOPMENT ......................................................................... 8

4.0 THE DEVELOPMENT PLAN AND OTHR MATERIAL CONSIDERATIONS ................10

Herefordshire Council’s Core Strategy: .............................................................10

Material Considerations: .................................................................................14

National Planning Policy Framework: ................................................................14

Local Housing Market Assessment, 2012, update November 2013: ......................20

Annual Monitoring Reports:.............................................................................21

Housing Land Supply: ....................................................................................21

5.0 PLANNING ANALYSIS AND JUSTIFICATION ..................................................25

6.0 CONCLUSIONS .........................................................................................38

Appendices

Date: Thursday, 21 July 2016

Author:

CL

Version:

V3

Checked:

SG



EXECUTIVE SUMMARY

This planning statement is submitted in support of an outline application on land at

Paradise Green, Marden, Herefordshire. The application is for the development of a care

village comprising 54 residential dwellings for the over 55s and a care home of up to 40

bed spaces plus staff accommodation and communal facilities such as a restaurant,

lounges and gardens.

The indicative layout seeks to provide a balance between the need to make efficient use

of the land whilst taking into account the prevailing development pattern of the

settlement.

The proposals are aligned to the Council’s Older People’s Housing Strategy as well as the

policies of the adopted Core Strategy. The application is located immediately adjacent to

the existing built form of Marden, which is identified within the Core Strategy as a

sustainable settlement for residential growth. When appraised against the National

Planning Policy Framework, the proposals positively contribute to the three interrelated

roles of sustainable development. The proposals deliver numerous social benefits,

including the provision of much needed appropriate housing for an ageing population.

The application site is within close proximity to a number of key day to day services

located within Marden. The development will provide an economic benefit by providing

jobs in the construction sector and increased patronage of the existing services within

Marden, as well as the creation of jobs for staff working within the care village. From an

environmental perspective, the application site is unconstrained by any specific

designation including those contained within footnote 9 to paragraph 14 of the

Framework. Accordingly, residential development pressures are reduced upon more

significant designations elsewhere in the County. There is a social benefit of providing a

supportive ‘community’ environment for active and frail elderly as well as those with

dementia. Walking routes, shared gardens, allotments and communal facilities will

encourage social cohesion and the formation of networks. Such benefits weigh in favour

of the proposal and it is considered that the proposals constitute sustainable

development which, in accordance with the Framework’s ministerial foreword, it is

respectfully requested that permission is granted.



1.0 INTRODUCTION

1.1 This planning statement supports an outline application for the development of a

care village on land at Paradise Green, Marden (hereafter ‘the application site’)

with all matters reserved except for access. This application is submitted on

behalf of North Oak Homes (the applicant) by RCA Regeneration Ltd (the agent).

1.2 This planning application has been compiled in accordance with Herefordshire

Council’s validation requirements1 and should be read in conjunction with the

following submitted documentation;

Architectural Drawings

Design and Access Statement

Phase 1 Habitat Survey

Flood Risk Assessment

Transport Statement

Archaeological Desk Based Assessment

1.3 Under section 62 of the Town and Country Planning Act 1990, as amended by

section 6 of the Growth and Infrastructure Act 2013, it is considered that the

information submitted with this planning application is sufficient to allow

determination.

1.4 This statement identifies the key planning issues and opportunities in relation to

the site and identifies the supporting factors to justify the proposed

development.

1.5 This statement sets out the detailed approach that has been taken for this

application and summarises the main findings of the supporting material. It is

set out as follows:-

Site Description

1

https://www.herefordshire.gov.uk/media/5482034/planningapplicationsrequirementsdocument__june_2008.pdf,

accessed 07 July 2014

https://www.herefordshire.gov.uk/media/5482034/planningapplicationsrequirementsdocument__june_2008.pdf



Proposed Development

The Development Plan and Material Considerations

Planning Analysis and Justification

Conclusions



2.0 SITE DESCRIPTION

2.1 The application site measures 6ha in area and is located to the south western

aspect of Marden. The C1124 runs along the northern border of the application

site with existing residential properties on the opposite side of the road.

Immediately east, south and west of the site are further agricultural fields with a

small scattering of residential properties to the west and south of the site.

2.2 The site is located within close proximity to a number of listed buildings. Church

House, a grade II listed building is situated to the west of the site. However,

there are no long distance views to the site from Church House. The School

House (Grade II listed) is located approximately 220m to the south of the site

and also has no views of the application site. The site does not form part of the

setting of any listed building

2.3 The site is currently accessed at the site’s south western corner. A public right of

way is located approximately 85m (MR24) to the south of the site running from

east to west. There is also an additional public right of way located 255m

(MR26) to the east of the site running from north to south.

2.4 The site slopes by approximately 4 metres from east to west. The site is

bounded on all sides by an existing hedgerow interspersed with a few existing

trees. An existing ditch course runs on the site side of the hedgerow along the

eastern boundary.

2.5 At the more strategic level, the settlement of Marden is served by a number of

key facilities. The village includes:

Village Hall

Local Shop (including a Post Office)

Primary School

Public House (including a restaurant)

Church



Public Transport Provision

2.6 The settlement of Marden is situated approximately 4 miles from the city centre

of Hereford, which has been identified by Herefordshire Council as a key growth

point. Hereford provides a further higher order range of services, including

health provision, large-scale retail facilities and further education opportunities.

2.7 The main C1124 highway known as Paradise Green runs along the northern

edge of the site with a mixture of single and two storey dwellings located on the

far side of the road.

2.8 The application site is served by bus stops situated to the north of the site within

a few minutes walking distance. Bus service 426 runs through the village, linking

it Hereford, Bodenham and Leominster. The bus service runs throughout the

day on Monday to Saturday at approximately hourly intervals.

2.9 Further detail on transport links is included in the Transport Statement which

accompanies this application.



3.0 PROPOSED DEVELOPMENT

3.1 The application is proposing the development of a care village comprising 54

residential dwellings (36no. 2 bed cottages, 6no. 1 bed bungalows, and 12no. 2

bed bungalows) for the over 55s and a care home of up to 40 bed spaces plus

staff accommodation and communal facilities such as a restaurant, lounges and

gardens. Although the application is submitted in outline, the accompanying

indicative layout plan demonstrates a deliverable scheme containing a mix of

unit types and tenures. 35% of the C3 residential element will be affordable.

The final mix can be agreed with the Council in due course.

3.2 The accompanying indicative layout shows how the site could be developed.

More detailed information on the proposed (indicative) scheme design can be

found within the Design and Access Statement which has been submitted as part

of this application.

3.3 The site is currently accessed via the south-west corner. A new access will be

constructed to serve the site located in the north-west corner which will be

designed in accordance with Herefordshire county highways engineers

requirements and specifications.

3.4 The proposals will provide a good range and mix of units designed in a similar

manner that creates a spacious and attractive campus style environment and

reflects the urban grain of the existing settlement, whilst also incorporating large

areas of open space and green corridors to allow the scheme to blend out into

the countryside.

3.5 The proposed development will seek to achieve Passivhaus certification.

Passivhaus seeks to achieve optimum internal comfort for the lowest energy

consumption. Final methods of construction will be dependent on the sites

developer.



3.6 More detail on potential sustainable construction methods and how the proposed

development could meet the Passivhaus standards is set out within the Design

and Access Statement.

3.7 The proposals also include the provision of personalised care and support

services which will help to meet the needs of each resident. This would

potentially entail occasional domestic assistance. There is also the opportunity to

provide care and support services to the wider community.

3.8 The care home is an important component of the development as it offers all

residents the opportunity to stay in the village and in their community if their

health reaches a stage where they need such care.

3.9 A range of care services will be available to meet the different care needs of the

residents. These care services will be provided by registered general nurses to

ensure the standard of care is achieved at a high standard.

3.10 Residents will have access to staff offering medical, personal and mobility

assistance 24 hours a day.

3.11 It is proposed that personal care packages will be available to residents, and a

requirement for this, along with the age restriction for new residents can be

formalised in the Section 106 Agreement that will be prepared in partnership

with the Council in due course.

3.12 The location of the site is ideal, in that it is situated with rural views but also is

positioned on the edge of one the largest villages within the Hereford Housing

Market Area.



4.0 THE DEVELOPMENT PLAN AND OTHR MATERIAL CONSIDERATIONS

4.1 Section 38(6) of the Planning and Compulsory Purchase Act 2004 states that the

determination of planning application must be made in accordance with the

development plan unless material considerations indicate otherwise. For the

purposes of this application, the development plan comprises of Herefordshire

Council’s Core Strategy (Adopted 2015).

Herefordshire Core Strategy:

4.2 The Core Strategy (CS) was adopted by Herefordshire Council in October 2015

and replaced a number of saved policies of Herefordshire Council’s Unitary

Development Plan (adopted March 2007

4.3 Of significant relevance to the application site are the following policies from the

adopted Core Strategy;

SS1 Presumption in Favour of Sustainable Development Plan: “Where

there are no policies relevant to the application or relevant policies are

out of date at the time of making the decision then the council will grant

permission unless material considerations indicate other – taking into

account whether; a) Any adverse impact of granting permission would

significantly and demonstrably outweigh the benefits, when assessed

against the policies in national policy taken as a whole: or b) specific

elements of national policy indicate that development should be

restricted.”

SS2 Delivering New Homes: The Core Strategy identifies a minimum level

of housing provision of 16,500 dwellings across the plan period (2011-

2031). This policy sets out the number of strategic locations that will be

the focus for new development, of which 5,300 new homes are to be

delivered in rural settlements.



SS3 Ensuring Sufficient Housing Land Delivery: This policy sets out the

Council’s objective to maintain a housing land supply to ensure the

housing target is met.

SS4 Movement and Transportation: This requires new developments to be

designed to minimise the impacts on the transport network allowing for

the safe operation of the network. Development Proposals “should be

accessible by and facilitate a genuine choice of modes of travel including

walking, cycling and public transport.”

SS6 Environmental Quality and Local Distinctiveness: This policy seeks to

ensure development proposals respect and preserve environmental

assets, including settlement pattern, landscape, biodiversity and heritage

assets particularly in areas with specific environmental designations.

SS7 Addressing Climate Change: Development proposals will be required

to incorporate measures that mitigate their impact on climate change.

This policy identifies a number of strategic measures and considerations

that would be sought on an individual site basis.

RA1 Rural Housing Distribution: This policy identifies that a minimum of

5,300 new dwellings will be provided across the rural settlements to meet

Herefordshire’s housing need. Herefordshire Council’s administrative

boundary is divided into 7 different housing market areas to acknowledge

that each housing market area has different housing needs. This

identifies an approximate level of housing growth that will be delivered in

each separate housing market area (HMA). For clarities sake the

application site, and Marden falls within the Hereford HMA which is

expected to contribute 6,500 new dwellings (with each sustainable

settlement having an 18% housing growth target). Within the

accompanying text for policy RA1 paragraph 4.8.16 states “Residential

development will be located within or adjacent to the main built up

area(s) of the settlement.”



RA2 Housing in Settlements Outside Hereford and the Market Towns: The

rural housing strategy consists of two tiers. The first identifies a list of

settlements which shall be the main focus for proportionate housing

growth, with the second tier suitable for proportionate housing growth, to

a less extent than the first tier. This policy identifies that the settlement

of Marden is a tier one settlement that will be the main focus for

proportionate housing development.

H1 Affordable Housing – Thresholds and targets: Where development

proposals are for more than 10 dwellings, the proposals must include for

an element of affordable housing. The Hereford HMA area has a target of

35% of all dwellings being affordable.

H3 Ensuring an Appropriate Range and Mix of Housing: Development

proposals should “provide a range and mix of housing units which can

contribute to the creation of balanced and inclusive communities.” This

policy identifies that the “latest Local Housing Market Assessment will

provide evidence of the need for an appropriate mix and range of housing

types and sizes.” However at this juncture, as part of the reasoned

justification associated with this policy, para 5.1.18 states “The Local

Housing Market Assessment 2013 (LHMA) recommends that planning

policies are not overly prescriptive with regards to requiring a specific

mix”. The policy seeks to ensure that residential developments provide

“housing capable of meeting the specific needs of the elderly population

by: - providing specialist accommodation for older people in suitable

locations; - ensuring that non-specialist new housing is built to take

account of the changing needs of an ageing population; - ensuring that

developments contain a range of house types, including where

appropriate, bungalow accommodation”.

OS1 Requirement for Open Space, Sports and Recreational Facilities:

Residential developments will be required to provide an appropriate

amount of public open space as part of the development proposals.



MT1 Traffic Management, Highway Safety and Promoting Active Travel:

This policy sets out 6 criteria that development proposals should include

and demonstrate as part of the application process. Where proposals

include traffic measures “they should be designed in a way which

respects the character of the surrounding area including its landscape

character.”

LD1 Landscape and Townscape: This policy identifies four criteria that

development proposals should demonstrate they have influenced. In

particular the proposals should demonstrate that the landscape has

influenced the design, scale and nature of the proposals. Retaining soft

landscaping features, such as trees where they are important to amenity

will be sought. Where retention of these features is not achievable,

replacement trees and new planting to support green infrastructure will

be sought.

LD2 Biodiversity and Geodiversity: Development proposals are required

under this policy to preserve, enhance and restore biodiversity and

geodiversity assets.

LD3 Green Infrastructure: Development proposals should protect, manage

and plan for the provision of new and existing green infrastructure.

SD1 Sustainable Design and Energy Efficiency: This policy prescribes 9

criteria that development proposals should demonstrate they align to.

ID1 Infrastructure Delivery: Development proposals will need to include

enhancements to the existing services and facilities to off-set the impact

of the development proposals. This will be delivered through CIL

contributions or section 106 agreements in accordance with the planning

obligations SPD.



Material Considerations:

National Planning Policy Framework:

4.4 The National Planning Policy Framework (hereafter ‘the NPPF’) was published

in March 2012 and supersedes the suite of Planning Policy Statements and

Guidance that previously existed. The NPPF is of particular relevance to the

proposals set out within this application and accordingly the following

paragraphs highlight the salient sections.

4.5 The ministerial foreword to the Framework (by the Rt Hon Greg Clark MP) states

that “Development that is sustainable should go ahead, without delay – a

presumption in favour of sustainable development that is the basis for every

plan, and every decision”.

4.6 Paragraph 49 of The Framework states “Housing applications should be

considered in the context of the presumption in favour of sustainable

development. Relevant policies for the supply of housing should not be

considered up-to-date if the local planning authority cannot demonstrate a five-

year supply of deliverable housing sites”.

4.7 In turning to paragraph 14 which outlines the presumption in favour of

sustainable development, it states that for decision taking “In particular where

the development plan is … silent or relevant policies are out of date, granting

permission unless: any adverse impacts of doing so would significantly and

demonstrably outweigh the benefits, when assessed against the policies in this

Framework as a whole; or specific policies in this Framework indicate

development should be restricted”.

4.8 Furthermore paragraph 17 prescribes the Government’s 12 core planning

principles. It is considered that the following points are of most significance for

this application;



“planning should…not simply be about scrutiny, but instead be a creative

exercise in finding ways to enhance and improve the places in which

people live their lives”

“proactively drive and support sustainable economic development to

deliver the homes…that the country needs. Every effort should be made

objectively to identify and then meet the housing, business and other

development needs of an area, and respond positively to wider

opportunities for growth”

“always seek to secure high quality design and a good standard of amenity

for all existing and future occupants of land and buildings”

“take account of different roles and characters of different

areas…recognising the intrinsic character and beauty of the countryside

and supporting thriving rural communities within it”

“development should prefer land of lesser environmental value, where

consistent with other policies in this Framework”

“actively manage patterns of growth to make the fullest possible use of

public transport, walking and cycling, and focus significant development in

locations which are or can be made sustainable”.

“take account of and support local strategies to improve health, social and

cultural wellbeing for all, and deliver sufficient community and cultural

facilities and services to meet local needs.”

4.9 In terms of access and transport, the NPPF highlights that “The transport system

needs to be balanced in favour of sustainable transport modes, giving people a

real choice about how they travel. However, the Government recognises that

different policies and measures will be required in different communities and

opportunities maximise sustainable transport solutions will vary from urban to

rural areas” (paragraph 29). This indicates the importance of sustainable

transport opportunities in achieving the wider principles of sustainable

development. However it acknowledges that this may not always be possible,

particularly within a rural setting.



4.10 Paragraph 47 states that “To boost significantly the supply of housing, local

planning authorities should…identify and update annually a supply of specific

deliverable sites sufficient to provide five years’ worth of housing against their

housing requirement with an additional buffer of 5%...to ensure choice and

competition in the market for land. Where there has been a record of persistent

under delivery of housing, local planning authorities should increase the buffer to

20%...to provide a realistic prospect of achieving the planned supply and to

ensure choice and competition in the market for land”.

4.11 In building upon the delivery of new homes, the NPPF states that “local planning

authorities should…plan for a mix of housing based on current and future

demographic trends, market trends and the needs of different groups within the

community (such as, but not limited to, families with children, older people)”

(Paragraph 50).

4.12 Paragraph 55 is also of relevance to the application in stating that “To promote

sustainable development in rural areas, housing be located where it will enhance

or maintain the vitality of rural communities. For example, where there are

groups of smaller settlements, development in one village may support services

in a village nearby”.

4.13 Paragraph 58 states that “Planning policies and decisions should aim to ensure

that developments…optimise the potential of the site to accommodate

development, create and sustain an appropriate mix of uses (including

incorporation of green spaces as part of developments) and support local

facilities and transport networks; respond to local character and history, and

reflect the identity of local surroundings and materials, while not preventing or

discouraging appropriate innovation…”.

4.14 In terms of design paragraph 60 states “Planning policies and decisions should

not attempt to impose architectural styles or particular tastes and they should

not stifle innovation, originality or initiative through unsubstantiated

requirements to conform to certain development forms or styles”.



4.15 Subsection 2 of paragraph 70 states that in determining applications, Local

Planning Authorities should “Guard against the unnecessary loss of valued

facilities and services, particularly where this would reduce the community’s

ability to meet its day-to-day needs”.

4.16 In terms of a development’s potential impact upon the landscape, paragraph

113 states that “Local planning authorities should set criteria based policies

against which proposals for any development on or affecting protected wildlife or

geodiversity sites or landscape areas will be judged. Distinctions should be

made between the hierarchy of international, national and locally designated

sites, so that protection is commensurate with their status and gives appropriate

weight to their importance and the contribution that they make to wider

ecological networks”.

4.17 In regard to engaging in pre-application discussions paragraph 188 “Early

engagement has significant potential to improve the efficiency and effectiveness

of the planning application system for all parties. Good quality pre-application

discussion enables better coordination between public and private resources and

improved outcomes for the community”.

4.18 Alongside the content of national policy, the evidence base to the adopted Core

Strategy is also considered a key material consideration for the determination of

this application.

Marden Neighbourhood Plan:

4.19 The Neighbourhood Plan has been prepared by Marden Parish Council and the

Neighbourhood Area was designated on 14 October 2013. The Neighbourhood

Area follows the Marden parish boundary.

4.20 The Plan was submitted to Herefordshire Council on 11 November 2015. The

Plan was sent out to consultation between the 24 November 2015 and 12

January 2016.



4.21 In February 2016 an independent examiner was appointed by Herefordshire

Council to undertake the examination of the Marden NDP.

4.22 The examiner’s report concluded that subject to minor modifications, the plan

met the basic conditions set out in the legislation and should proceed to a

Neighbourhood Planning referendum.

4.23 Due to the Council’s housing land supply position, the policies for the supply of

housing within the NDP are considered out of date and should be afforded no

weight in the decision making process.

4.24 The following policies of the Marden NDP are relevant to these proposals:

Policy M1- – Scale and Type of New Housing Development in Marden

village: In order to retain the rural character of Marden village over the

plan period, proposals for new housing development will only be

permitted within the Settlement Boundary or on allocated sites.

It is accepted that the site is located outside of the settlement boundary

for Marden. However, as Herefordshire Council are unable to demonstrate

a 5 year housing land supply, housing supply policies contained within

the Core Strategy are out of date. Notwithstanding this, the site is

located within close proximity to existing services and is located in a

sustainable location.

Policy M4- General Design Principles: This policy sets out criteria where

new housing development within the Parish will be considered. The policy

states that; “Marden Parish is a rural area with a special character.

Development will be considered which would make a positive contribution

to that character and be of good design and quality.”

The Design and Access statement outlines the design concept for the

proposals. Although submitted in outline, the proposed scheme would

incorporate an open campus style arrangement that would make a



positive contribution to the character of Marden whilst also providing

much needed homes for an aging population.

Policy M5- Ensuring an appropriate range of tenures, types and sizes of

houses: All proposals for new housing development will have to

demonstrate how they contribute to maintaining a mix of tenures, types

and size of dwelling in the parish in accordance with the housing needs of

the Parish. Sites including affordable housing and low cost market

housing should integrate with open market housing across a site.

Development that leads to concentrations of different types and tenures

of homes in separate groups on a site will not be permitted.

Policy M11- Landscape Character: All development proposals will have to

show regard to the distinctive landscape character of the Herefordshire

Lowlands Character Area by: (a) Outside the Marden settlement

boundary, retaining the development form of scattered hamlets and

farmsteads within the wide setting of the area (b) Using appropriate local

building materials (c) Retaining existing field patterns and boundaries,

including low hedgerows and tree cover (d) Protecting and enhancing

areas of woodland (e) Encouraging country stewardship and similar

schemes to enhance the biodiversity and natural and historic

environments.

An LVIA has been produced which concludes that the site has a low

significant landscape sensitivity and a medium significant reducing to low

significant visual sensitivity with the implementation of the proposed

mitigation measures.

Policy M12- Flood Risk and Surface Water Run‐off: All development should

be located within Flood Zone 1 (Low Risk) and accord with National

Planning Policy Guidance (NPPG) and Herefordshire Council’s Core

Strategy (Policy SD3 ‐ Sustainable Water Management). Where

development is deemed acceptable within Flood Zones 2 and 3 (in

accordance with the Sequential Test) we would expect proposals to



demonstrate that they are safe and will not increase flood risk to third

parties, with flood‐risk betterment provided where possible.

The proposed site sits within a flood zone 1

Local Housing Market Assessment, 2012, update November 2013:

4.25 The above document forms a central basis of the Core Strategy insofar as it

seeks to identify the objectively assessed housing need for Herefordshire. The

update report follows the premise contained within the emerging Core Strategy

in that it examines housing needs of each of the Housing Market Areas (HMA).

4.26 Table 6.5 of the report identifies that there is an affordable housing need of 417

units within the Hereford HMA (2012-2017). Furthermore, the report states that

there is a requirement for 5,440 additional open market residential units over

the plan period.

4.27 Notwithstanding the above area specific comments, the LHMA also examines

County wide housing issues. The 2013 iteration of the LHMA notes that there is

an affordable housing need within Herefordshire of 3,457 dwellings between

2012 – 2017 (equating to 690+ affordable dwellings per annum). Instead of

seeking to address this substantial housing need, the evidence base document

merely seeks to rely on the role of the private rented sector, in conjunction with

Local Housing Allowance, to meet the affordable housing needs of Herefordshire.

It is important to note that the Framework itself does not recognise the private

rented sector as a form of affordable housing.

4.28 Despite the Council’s substantial reliance upon the private rented sector, the

LHMA notes that “there is limited information available on the size of or

conditions in the private rented sector” (paragraph 14.22). In any event the

paragraph also notes that “the Council has limited control over the size or

market dynamics within the private rented sector”.



Annual Monitoring Reports:

4.29 As previously identified, there is a significant housing need across Herefordshire,

both for open market and affordable housing. The table below illustrates the

level of both open market and affordable housing delivery in recent years.

Monitoring

Period

Open Market

Housing

Delivery

Housing

Requirement

Affordable

Housing

Delivery

2008 - 2009 689 600

(UDP Housing

Requirement)

208

2009 - 2010 547 600

UDP Housing

Requirement

185

2010 – 2011 547 600

UDP Housing

Requirement

136

2011 – 2012 341 600

Adopted Core

Strategy

‘Stepped’

Trajectory

52

2012 - 2013 202 600

Adopted Core

Strategy

‘Stepped’

Trajectory

32

Housing Land Supply:

4.30 As part of the Council’s Core Strategy EiP, the Inspector requested further

information in respect of the Council’s housing land supply position. The Council

produced a document in March 2015, these provided 4 different calculations of

their supply based on the appropriate housing trajectory. Paragraph 47 of the



Inspector’s report highlighted that the Council can demonstrate a 5.24 year

supply at the point of adoption. This figure is based on the fact that the Council’s

housing land supply position will be calculated against a stepped housing

trajectory.

4.31 Notwithstanding the above, it is noted within the Council’s 5 year housing land

supply calculation (October 2014), they are reliant upon 425 homes being

delivered at Barons Cross, Leominster. It is considered that such a site is

unlikely to proceed in the short-term for a number of factors. Firstly it should be

noted that the site at Barons Cross has been subject to a number of planning

applications as detailed below;

LPA Ref: 050968/O – Site for the erection of 425 dwellings, community

building, vehicular access, foul water pumping station and associated

works.

LPA Ref: 070858/RM – The erection of 425 dwellings and the associated

infrastructure, parking and landscaping.

LPA Ref: 100122/RM – Erection of 425 dwellings, community building,

vehicular access foul pumping station, association works. (Reserved

matters application)(landscaping only)

LPA Ref: 120887/O – Proposed extension of time to Reference Numbers

DCNC2005/0917/O, DCNC2007/09170/RM and DMNC100122/RM – site

for the erection of a maximum of 425 new dwellings, a community

centre vehicular access and associated works.

4.32 The final application detailed above is yet to be determined despite being

validated on 21st March 2012 and a target determination date of 16th May 2012.

Despite the above proposal being subject to a detailed planning history,

particularly during periods of positive economic growth, the site has failed to

come forward for development. In this respect it is considered highly unlikely

that this scheme will be delivered within 5 years as the Council currently



anticipate. Furthermore no financial viability testing has been undertaken of this

site to examine the impacts of the required infrastructure provision. This further

raises uncertainty regarding its deliverability.

4.33 The table below provides an analysis of the 5 year housing land supply position;

incorporating the EiP Inspector’s figures. However, unlike the EiP Inspector, the

following figures remove Barons Cross from the list of sites considered

deliverable by the Local Planning Authority:

A Core Strategy 2011 – 2031: 16500

B Core Strategy requirement: 1800 – Using indicative trajectories: 1/4/2011 –

1/4/2014 600 dpa

C Homes Completed (net): 873 – Net reduction includes demolitions and

conversions 1/4/2011 – 31/3/2014

D Requirement for next five years: 4000 – using trajectories 15/16 – 600 pa (1yr) 16/17 – 19/20 – 850 pa (4yrs)

E Plus Residual Shortfall: 927 (over next five years as per PPG)

F Plus 20% buffer: 985 added after shortfall

G Total Requirement: 5912

H Annualised requirement: 1182

I Total Deliverable dwellings 5766 (6201 – 425)



J Housing Supply: 4.88 years

4.34 The Council have recently submitted their proof of evidence to an appeal

(APP/W1850/W/15/3051153) in which they accept they can only demonstrate

3.63 years worth of housing land supply (para 4.14).

4.35 Based on the above, it is considered that there is a real risk that the Local

Planning Authority is still unable to demonstrate a 5 year housing land supply;

as required by paragraph 47 of the NPPF.



5.0 PLANNING ANALYSIS AND JUSTIFICATION

5.1 As identified, the adopted Core Strategy highlights Marden as a rural settlement

of growth. Accordingly, it is expected that the settlement will accommodate an

18% increase upon the existing number of households within the Parish.

Herefordshire Council’s Rural Housing Background Paper identifies that there is

approximate 484 dwellings within the village of Marden. Accordingly, in applying

the 18% growth figure, the settlement is anticipated to accommodate at least 87

dwellings during the plan period.

5.2 As of April 2014 there has been 25 completions. Furthermore, the Council has

resolved to grant planning permission for a scheme for up to 90 dwellings on

land at New House Farm, Marden. As has been previously stated, the Council are

unable to demonstrate a 5 Year Housing Land Supply, therefore, policies for the

supply of housing are now out of date. Notwithstanding this, the NPPF seeks to

boost significantly the supply of housing (including affordable housing). The

Local Planning Authority has been considerably short in achieving its affordable

housing its affordable housing need.

5.3 It is considered important to note the affordable housing delivery of

Herefordshire Council in recent years. The Council’s LHMA notes an annual

affordable housing need of in excess of 690 dwellings between 2012 – 2017. As

highlighted within the Council’s Annual Monitoring Reports, the Local Planning

Authority is considerably short of achieving this housing need. Indeed between

2011 and 2013 the Local Planning Authority only delivered 84 affordable homes

across the County.

5.4 The above is considered highly pertinent in the determination of this application.

The fact that the proposed development is making a positive contribution to the

delivery of affordable housing, in line with the Core Strategy policy requirement,

is considered a significant material consideration. This is particularly so when

analysed against the content of the Inspector’s Report into a proposed

residential development in the nearby authority of Wychavon District Council

(appeal references: APP/H1840/A/13/2199085 and APP/H1840/A/13/2199426).

The Inspector stated that “The SHMA indisputably records that affordability is at



crisis point. Without adequate provision of affordable housing, these acute

housing needs will be incapable of being met. In terms of the NPPF’s

requirement to create and inclusive and mixed communities in paragraph 50,

this is a disaster of catastrophic proportions. Needless to say these socially

disadvantaged people are unrepresented at the Inquiry, and require the

objectivity of the planning appeal to acquire a voice and for that to be heard.

Addressing the needs of the homeless and over-crowded families and children in

the District is surely an imperative of any civilized planning system.”

5.5 Indeed, the above appeal decisions have been echoed within a more recent

appeal decision (APP/H1840/W/A5/3003157, decision date 02 December 2015).

In that case the Inspector allowed the development to proceed and stated that

“In summary, notwithstanding the identified policy conflict and its effect on the

character and appearance of the area and on the outlook of neighbouring

residents, I find that in the circumstances of this case these important

considerations are outweighed by the matters that weigh in favour of the appeal

development, particularly the delivery of affordable housing”.

5.6 The above appeal decisions are considered highly significant for this proposal

particularly when viewed against the Council’s continued poor performance in

the delivery of affordable housing.

5.7 Notwithstanding the high risk of the Council not having a 5 year housing land

supply the planning application is fully aligned to the social role of sustainable

development. It will deliver new homes in line with the Council’s housing growth

strategy but also importantly, it will positively contribute to rectifying the

Council’s poor supply of affordable housing.

5.8 In connection with the above, it is noted that the social role of sustainable

development incorporates providing good access to key services. To this end, it

is noted that the settlement of Marden has been identified as a sustainable

settlement for growth by virtue of the services present. Linked to this, the table

below identifies the services present within the village and their proximity to the

application site.



Service Approximate Distance from

application site

Local Shop 400 metres

Primary School 650 metres

Public House 525 metres

Public transport connections 570 metres

Church 400 metres

Village Hall/community centre 400 metres

Post Office 900 metres

5.9 The above distances should be viewed against guidance produced by the

Chartered Institute of Highways and Transportation2

Town Centre

facilities (m)

Commuting /

School (m)

Elsewhere (m)

Desirable 200 500 400

Acceptable 400 1000 800

Preferred

maximum

800 2000 1200

5.10 What the preceding tables demonstrate is that the application site is within the

preferred maximum distance for all town centre facilities (shop, public house,

public transport connections) as well as only just exceeding the desirable

2 ‘Guidelines for Providing for Journeys on Foot’, the Institution of Highways and Transportation, 2000, p52



distance for access to school. As such, it is considered that the site is within a

highly sustainable location. Future ‘active elderly’ occupiers of the site will be

able to access such key services by alternative means other than private

motorised transport; in accordance with Core Strategy policy SS7 (points 1, 2

and 3) and paragraphs 17 (penultimate point), 29 and 30 of the NPPF.

5.11 Alongside the above, Marden is well served by a frequent bus service to

Hereford, a settlement identified within the Core Strategy as major area of

growth, as well as further afield. As identified, the bus services are in close

proximity to the site and therefore provide suitable access options to the larger

urban areas of Hereford and Leominster. This is also important for staffing and

ensuring the care village can attract appropriately qualified support workers,

nursing staff and managers.

5.12 To facilitate extra care development land which is not regarded as an optimum

option for general market housing should instead be considered for development

such as those being proposed in order to meet the pressing and as yet unmet

need of the aging population.

5.13 Although the proposal is submitted in outline format, it is recognised that the

design and layout of the proposal can also contribute to a developments

compliance with the social role of sustainable development. Core Strategy policy

SD1 prescribes a series of bullet-points associated with the design of a scheme.

While the application is accompanied by a Design and Access Statement, the

following table details how the relevant design considerations have been

incorporated within the indicative layout.

Subsection to

policy SD1

Application’s Response

i – efficient use of

land – taking into

local context and site

This density is in alignment with policy SD1.



characteristics

ii – New buildings

should maintain local

distinctiveness,

incorporating local

architectural

detailing

The exact final design of the dwellings including the

materials used in their construction are subject to

agreement with the Council at a reserved matter stage.

iii – safeguard

residential amenity

for existing and

proposed residents

The scheme will be set back from the properties opposite

(facing) the site and will be partly screened by the

existing hedgerow. The scheme will incorporate a

significant amount of public open space for existing and

proposed residents.

iv – ensure new

developments do not

contribute to adverse

impacts from noise,

light, air pollution,

land instability or

ground water

pollution

The application site is not within an Air Quality

Management Area (AQMA). The proposals would not

result in an adverse impact on the air quality as this is

solely for a residential development. In turning to the

light pollution, the installation of lighting is a reserved

matter but would be subject to further discussions at a

reserved matter stage. Although the site has a gently

sloping topography, this is not to the extent where land

instability is a consideration as part of this application.

The proposals will only produce temporary minimal

adverse impacts during the construction phase.

v – remediate

contaminated land

Given the application site’s previous agricultural land use

the site is not considered to be constrained by

contaminated land.

vi – preserve

distinctive features

The application site does not contain any existing



on existing buildings buildings.

vii – utilise

sustainability

measures in the

layout and detailed

design of the scheme

The orientation of the dwellings provides surveillance

over the public open space located within the site. The

orientation of the dwellings allows for the ingress of light

to the dwellings. Notwithstanding this, the final design

and layout of the site is a reserved matter.

ix – create safe and

accessible

environments that

minimise

opportunities for

crime

The “shared space” streets and lanes are well overlooked

with the maximum amount of active building frontage to

enhance the sense of security for people using it.

Allotments and communal gardens will be also be

created.

5.14 While the preceding paragraphs have demonstrated how the proposed

development would fully comply with salient policies of the Core Strategy and

NPPF in respect of its contribution to the social role of sustainable

development; it is noted that there are further contributions to sustainable

development that will derive from the proposal.

5.15 As the application proposal is for a care village, the scheme will provide

substantial economic benefits. In the first instance, the development of the

proposed residential properties will provide a direct employment benefit

through the creation of new jobs in the construction sector as well as other

linked professions. A briefing paper produced by the Home Builders

Federation (30th October 2012) states that for “Every £1 spent on housing

puts £3 back into the economy – and with almost 90% of building materials

made in the UK, the impact will be felt immediately in communities across the

country. Each home built creates 1.5 full-time direct jobs and we estimate that

at least twice that number of jobs is created in the supply chain”.

Approximately 30 jobs could be created in relation to the proposal.



5.16 Further economic benefit will be experienced by the local community. As

identified there are a number of key day to day services present within

Marden. The development will provide increased population and local

expenditure within the Parish, assisting the viability of existing businesses and

services. Accordingly the proposal accords with paragraph 28 of the NPPF.

5.17 Furthermore, the proposed development will deliver funding to the Local

Authority through the receipt of New Homes Bonus. This can be used to

improve and enhance the provision of community facilities and the capacity for

social locally.

5.18 The proposed development will also create a large number of jobs in relation

to the care provided on site.

5.19 Alongside the positive contributions to the social and economic roles of

sustainable development, it is important to note the contribution to the

environmental role.

5.20 Firstly, as previously identified, residents of the application site would not be

reliant upon private motorised transport in order to access services. Such an

approach supports the transition to a low carbon future and a reduction in

greenhouse gas emissions, in accordance with paragraph 30 of the NPPF and

Core Strategy policy SS7. There will also be biodiversity gain from planting

orchard and improving hedgerow as well as incorporating a SUDs pond.

5.21 As already highlighted, the NPPF outlines a distinction between international,

national and local environmental designations. This is on the basis that

protection and mitigation should be commensurate with the importance of the

designation. The application site is not washed over by any form of

environmental designation. Accordingly, the site is afforded the least level of

protection and the development would help contribute to one of the

Government’s core planning principles in that it involves development of “land of

less environmental value”.



5.22 Notwithstanding the above, and on a more strategic level, Herefordshire does

contain a number of environmentally sensitive designations, including both the

Malvern Hills AONB and Wye Valley AONB. By delivering new homes in

sustainable settlements such as Marden, which is not washed over by any

environmental designations, then development pressures are reduced in more

environmentally sensitive locations.

Housing need for an ageing demographic

5.23 The need for developments such as that being proposed has been made

succinctly in a report by the Joseph Rowntree Foundation in which it states that;

“The (aging demographic trend) is expected to continue as the average lifespan

continues to increase. At the same time the concept of old age is being

redefined, with more people seeing retirement as a rewarding and active part of

life. Housing need can no longer simply be equated with a need for care and

support as this fails to recognise the preferences of older people.

The number of residential care and nursing homes available to older people

unable to remain in their existing home is diminishing because of rising costs

resulting from labour market regulation, wage inflation and new care standards.

Between 1996 and 2001, 50,000 care home places were lost for older, ill and

disabled people in all sectors.

In the past, some older people have experienced housing arrangements that

they would not have chosen. Often older people who need care live in unsuitable

housing; services may not be available for older people who want to be cared for

at home. Traditional models of sheltered and very sheltered housing are being

replaced by new models which can better meet the diverse needs of older

people.”

5.24 The Housing Strategy for England (2011) identified that 60% of projected

household growth to 2033 is from households aged 65 and over. Older people

are therefore a major driver in the housing market, not just in relation to



specialist housing but also general needs housing that is suitable for and

attractive to older households.

5.25 In terms of increases in the number and proportion of older people in the UK

population, the population aged 65 and over has grown by 47% since mid-1974

to make up nearly 18% of the total population in mid-2014 while the number of

people aged 75 and over has increased by 89% over the period and now makes

up 8% of the population (ONS Aging of the population, 2015).

5.26 The benefits of freeing up ‘under-occupied’ housing stock currently inhabited by

older residents could be wide reaching. Beyond the health and social care boons

resulting from older people relocating to specialist accommodation; a domino

effect of availability could be initiated for all rungs of the housing ladder. Larger

accommodation could be freed up for families, who would in turn vacate

property for younger buyers looking to move into their first owned homes.

Herefordshire Context

5.27 The population of over 65s in Herefordshire will increase by up to 41% up to

2030, with the population of over 85s to increase by 90% over the same period.

In addition to this, the number of people with disabilities and dementia will

increase as the population is living into older age.

5.28 Over the next 10 years the County’s population is projected to exceed both the

regional and national average.

5.29 The Local Housing Market Assessment (2011) has identified the need for 16,500

new homes in the county by 2031. In addition, the survey found that 12% of

older households (50+) intend to move in the next 5 years and a further 15%

are not sure of their moving intentions. Older households will make up a

substantial proportion of projected household growth over the next 20 years and

it is vital that a significant proportion of these homes must be suitable for, and

able to adapt to, the changing needs of Herefordshire’s ageing population.



5.30 Currently the over 60s in the County of Herefordshire make up 27% of the total

population. Furthermore, the total number of over 60s in Marden make up 32%

of the overall population3. This is a significant amount when considered against

the national context.

5.31 The Herefordshire Older People’s Housing Strategy and Pathway states that;

“There is a major shortage and lack of choice in the county of general needs

housing suitable for older people that will encourage them to move from larger 3

and 4 bedroom family homes.” (Page 15)

“There is a major mismatch in the current supply of specialist housing against

what is needed. Most existing retirement housing is for rent whereas most older

households own their own homes and wish to continue to do so. There is a very

limited amount of retirement housing for sale for older people to move to.”

(Page 16)

5.32 Importantly, the document concludes that;

“investing in housing suitable for an ageing population and services to

support independence in older age makes economic sense, supports people to

plan for ageing better and enables more older people to live independently,

where they choose with quality of life and dignity.” (Page 20)

5.33 The Older People’s Household Survey suggests that there is a need for a range

of alternative accommodation and tenure, including shared ownership that meet

the needs of older people.

3

http://www.neighbourhood.statistics.gov.uk/dissemination/LeadTableView.do?a=7&b=11126308&c=Marden&

d=16&e=61&g=6386205&i=1001x1003x1032x1004&m=0&r=1&s=1468314441758&enc=1&dsFamilyId=254

5



5.34 The Council’s report “A study of Housing and Support need for Older People in

Herefordshire” (2012) focuses on the objectively assessed and support needs for

older people in Herefordshire.

5.35 The report stated that there will be a growing need and demand from older

people, especially owner occupiers, for a range of accessible housing types.

5.36 The report also provided a number of recommendations relevant to the proposed

development:

Recommendation 2:

Herefordshire Council needs to work with social and private developers to

rebalance the general needs housing market to ensure an adequate supply and

wider housing choice for the ageing population by:

Recognising the level of home ownership (nearly 80%) and equity in

the older people’s market, as shown in the 50+ household survey

carried out for this study, and the potential to use new housing

developments suitable for older people as a driver to rebalance the

housing market

Developing non-specialist general needs two and three bedroom

houses, flats and bungalows for rent and sale that meet lifetime homes

standards, across all areas of the county in line with the LHMA and the

Local Housing Requirements Study. These will be of equal benefit to

older people, people or families with disabilities and young families

Encouraging mixed developments to balance the market, meet the

needs of older people and create genuine lifetime communities



Market the new housing opportunities to older people across all

tenures to encourage people who are under occupying to free up family

housing through the development of housing for older people

Consider the development of a charged for ‘Home Moving’ service to

support older people who might wish to move but who are daunted by

the practicalities of moving

Consider the needs of older people within development briefs for

Section 106 commitments and the provision of other forms of cross

subsidy

Ensure that new flats in particular are “future proofed” to take account

of the changing population. For example, examine the potential to

enhance standards by ensuring that all new flatted blocks have, as a

minimum, stairwells that are capable of being adapted to take a stair

lift.

5.37 The consequences of an ageing population can be multifaceted. Improvements

in medicine and extending and improving the quality of life accentuates the need

for both care and expectations of independence and social activity in retirement

age. This can therefore place great pressure on the social and health care

systems.

5.38 Research into the scale, extent and impact of loneliness and isolation has found

that there is an economic and social cost of loneliness and isolation is beginning

to be revealed to both local healthcare providers and local communities4.

5.39 The damage to health caused by loneliness and isolation puts significant

pressure on local health care services and has associated costs. Furthermore,

lonely people are more likely to visit their GP, have a higher use of medication

4 Ford, Howard, McKay, 2014, research into the scale, extent and impact of loneliness and isolation in the Cotswolds.



ad increased factors for long term care. In addition, lonely people are more

likely to undergo early admission into residential or nursing care5.

5.40 This proposed care village offers an exciting opportunity for Marden and the

wider County to create bespoke homes for the active elderly through to those

requiring significant nursing care and support.

5.41 Arranged within a campus style environment, the care village has shared

communal facilities at its heart which complement those already available in

Marden. The village is well-linked to Hereford and will allow new staff and

relatives to travel sustainably.

5.42 Such accommodation has been identified as being in short supply within the

County and improvements in such provision have wider ramifications for the

availability of larger family housing.

5 Loneliness and nursing home admission among rural older adults.

Russell, Daniel W.; Cutrona, Carolyn E.; de la Mora, Arlene; Wallace, Robert B.

Psychology and Aging, Vol 12(4), Dec 1997, 574-589.



6.0 CONCLUSIONS

6.1 This planning statement supports an outline planning for the development of a

care village on land off Paradise Green, Marden. These proposals positively

respond to the need to provide much needed homes for an older people in

sustainable locations across the County.

6.2 The proposal is fully aligned to the Council’s housing growth strategy with

Herefordshire Council which supports housing growth to Marden. There is a

significant as yet unmet need for appropriate housing for older people within

Herefordshire which stems from a historic undersupply of such properties.

Accordingly, this proposal will make a positive contribution to addressing this

housing need. The development will also bring forward economic benefits

through the creation of jobs and supporting existing services within the village.

The site is situated within a highly accessible location with key services being

within close proximity. To that end, the development will reduce reliance upon

private motorised transport. The indicative layout will promote social cohesion

and assist with the creation of a community. The proposed development will also

include the opportunity for biodiversity gain from the creation of a new orchard,

hedgerow, SUDs Ponds and allotments. As a result it is considered that the

application proposal is fully aligned to both the salient policies of the adopted

Core Strategy and the three interrelated roles of sustainable development as

defined by the NPPF.

6.3 As the Council cannot demonstrate a five year supply of housing land, the

housing supply policies within the adopted Core Strategy are out of date.

6.4 It is considered that the scheme positively responds to the requirements of the

National Planning Policy Framework and constitutes sustainable development. As

such, in accordance with the ministerial foreword, should be approved without

delay.

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