Transport Infrastructure in South East Dorset
Development Contributions
CONSULTATIVE DRAFT
Interim Planning Guidance
Summer 2008
Developer Contributions towards Transport Infrastructure in South East Dorset
Consultative Draft of the Interim Planning Guidance
CONTENTS
1. Purpose 3
2. Introduction 4
3. National Policy Background 5
4. Local Policy Context 6
5. Issues and Constraints in South East Dorset 7
6. Delivering the Strategy 9
7. Scope 10
8. Planning Contributions: Methodology 11
9. Impact on development viability 16
10. Transport strategy and priorities for investment 16
11. Governance arrangements and decisions on prioritisation of spending 17
12. Payment of the Contribution 18
13. Monitoring of the Contribution 19
14. Contacts 19
APPENDIX A 22
National Policy Background 22
APPENDIX B 24
Regional, Strategic and Local Policy Background 24
APPENDIX C 26
List of general transport prerequisites for which contributions will be targeted 26
APPENDIX D 30
Detailed Calculations 30
Preface
This draft document has been published by Dorset County Council, on behalf Bournemouth, Christchurch, East Dorset and Poole planning authorities. It has been prepared for the purposes of public consultation. The period of consultation is from xxxx 2008 until xxxx 2008.
1. Purpose
1.1 This document has been jointly prepared by Dorset County Council, Bournemouth Borough Council, Borough of Poole Council, Christchurch Borough Council and East Dorset District Council in consultation with the Highways Agency and other strategic transport network authorities. It provides guidance on the level of financial contributions that will be sought from developers in South East Dorset towards implementing the transport strategies set out in both the Local Transport and Development Plan documents. These contributions will be used towards mitigating the individual and cumulative transport impacts of development proposals.
1.2 It summarises the policy background and need for contributions to transport infrastructure in South East Dorset, before setting out how the policies are intended to be implemented.
1.3 This guidance note therefore establishes a clear formula for calculating a standard charge in respect of certain transport infrastructure requirements. This will allow the local authorities to plan the necessary mitigation
The guidance:
Ø Sets out the overall scope of the tariffs
Ø identifies the mitigation measures required to accommodate the new development , and
Ø establishes a reasonable level of contribution towards mitigation in the form of a standard charge.
In setting a system of local tariffs the process must be transparent and provide clear and consistent guidance to developers. This approach is supported by PPS12, Circular 05/05, Community Infrastructure Levy guidance and other best practice advice.
1.4 Following this consultation, but prior to the adoption of Development or Supplementary Planning Documents, this guidance establishes the Highway and the Planning Authorities’ position on the collection of developer contributions for transport infrastructure.
1.5 All the developer contributions collected towards transport infrastructure secured through this guidance will only be spent improving transportation in South East Dorset. The strategy’s detail will inevitably change over time to reflect the prevailing transport situation both locally and nationally. Changes in government policy, environmental constraints, scheme design issues, the development of the SED Multi model traffic model, external funding streams, and other circumstances beyond the Council’s control may mean that alternative solutions will need to be found to meet the objectives of the strategy. These alternative solutions will still conform to the central aim of the Transportation Strategy – to improve transportation for all users throughout the area
2. Introduction
2.1 New development can have a very positive effect on an area, providing new homes, jobs and economic prosperity. However new development can place additional pressures on resources and infrastructure such as schools, community and leisure facilities, transport infrastructure and health services. The provision of infrastructure including a wide range of physical and social infrastructure and facilities to support new development is an essential objective of the development plan process. Government policy statements recognise that where existing infrastructure is inadequate to meet the needs of new development, it is reasonable to expect developers to contribute towards the financing of new or improved infrastructure directly related to those needs[1].
2.2 A good quality transport system is essential to support the local economy and the quality of life for the community of SE Dorset. It must however be developed sensitively to protect and enhance the very special quality of the natural environment in which it is set and which is an extremely important and internationally recognised asset.
2.3 Current Government planning and housing policies will propose to introduce over 48,000 new dwellings in the Bournemouth and Poole HMA during the 20 years to 2026, placing new challenges on all the Authorities to effectively manage the increased traffic demand.
2.4 Developer contributions or planning obligations are intended to ensure that developers make appropriate provision for any losses, or supply additional facilities and services that are required as a result of the development. They are also intended to bring a development in line with the objectives of sustainable development as prescribed in relevant local, regional or national planning policies.
2.5 The Government has stated that development itself should make a greater contribution to the infrastructure costs faced by local communities[2] and where development creates the need for infrastructure, such development should legitimately make a contribution towards its provision
2.6 At present planning obligations are typically negotiated only on large developments. Only 14% of planning applications nationally lead to planning obligations from housing[3] development. However smaller developments also have a cumulative burden on infrastructure, yet there is no consistent way to ensure funding from such development is secured to offset this impact.
2.7 The Government wishes to see an approach rolled out so that all developments contribute a fair share towards future infrastructure[4]
2.8 This guidance sets out the level of financial contributions which will be sought from applications for new development for transport related infrastructure where the development generates a need for new or improved transportation infrastructure and / or facilities. It will be used as part of the development management process to inform planning decisions by Bournemouth, Christchurch, Dorset, East Dorset and Poole Councils, in the areas annotated as South East Dorset on Map X,. It will also form part of the emerging Local Development Frameworks (LDF) until replaced by the adoption of Supplementary Planning Document’s (SPD) or other local development plans covering the subject of transport infrastructure.
Map X graphic
3. National Policy Background
3.1 Current Government guidance in the form of Circular 05/2005 ‘Planning Obligations’ advises that the adequacy of transport infrastructure is an important consideration in the granting of planning permission, and that transport improvements which are necessary in order for a development to take place can be made the subject of planning obligations, provided that the improvements are “relevant to planning, necessary to make the proposed development acceptable in planning terms[5], directly related to the proposed development, fairly and reasonably related in scale and kind to the proposed development, and reasonable in all other respects”.[6]
3.2 Thus planning obligations can be used to “make acceptable development which would otherwise be unacceptable in planning terms.” The circular specifically encourages[7] the application of a formulaic approach and the pooling of financial contributions in order to provide the necessary infrastructure to deal with the cumulative impacts of a number of developments in a given area to restore facilities to a quality equivalent to that existing before the development.[8]
3.3 Further guidance on the use of planning obligations and conditions is also contained in a number of Planning Policy Statements and Guidance. Links to relevant documents are set out in Appendix A
3.4 The Government is now proposing further changes to the planning system and developer contributions through the Planning Reform Bill 2007 and PPS12. These propose the introduction of a Community Infrastructure Levy (CIL). This will enable local authorities to apply a levy to all new developments (residential and commercial) in their area, with the option to supplement the Community Infrastructure Levy (CIL) with a negotiated agreement, which may be required for site specific matters.
3.5 The CIL would be based on a costed assessment of the infrastructure requirements arising specifically out of the development contemplated by the development plan for an area, taking account of land values and potential uplifts. Standard charges would be set, which may vary from area to area and according to the nature of development proposed.
3.6 The Government is encouraging local Authorities to develop guidance for developers on the type and level of planning obligations that should be sought from new development based upon these principles.
3.7 Whilst the Government remains committed to a plan-led system, local authorities are being encouraged to introduce guidance ahead of any legislative changes[9] to secure the appropriate agreements with developers to provide new community infrastructure and give as much guidance as possible to developers and landowners about the levels of contributions that will be required.
This interim guidance will provide a basis for negotiating such contributions in advance of the introduction of further legislation.
4. Local Policy Context
4.1 The adopted Regional Planning Guidance (RPG10), September 2001 (Policy IM1) and Bournemouth, Dorset and Poole Structure Plan (CSP28) July 2000 (Implementation Policy E), set out a strategic context for seeking planning obligations. These policies have been taken forward in more detail by Dorset’s Local Planning Authorities in their adopted Local Plans.
4.2 These Plans are now being replaced by documents prepared under the new planning system introduced by the Planning and Compulsory Purchase Act 2004. The South West Regional Spatial Strategy (RSS), now recognises the cumulative effect of development on the need for infrastructure, services and the need for joint working to address financial contributions and other funding streams to deliver key infrastructure[10] It provides the context for Dorset’s Local Planning Authorities to prepare Local Development Framework documents. These documents will include policies which seek to ensure that adequate future provision is made for this necessary infrastructure and facilities.
4.3 Core Strategies are likely to be the first documents within the Local Development Frameworks. Core strategies will establish a spatial vision and objectives for each District for the period 2006-2026, as well as headline policies to deliver them. These are at an early stage of production, but a review of existing plans and strategies, early community engagement and the Sustainability Appraisal all point towards environment, affordable housing, the economy, accessibility and transportation being key issues in shaping South East Dorset over the next 20 years.
4.4 Dorset has two Local Transport Plans which are the implementation plans for the transport strategies. The current South East Dorset Local Transport Plan (LTP2), published in March 2006 contains an Integrated Transport Strategy (ITS) for, South East Dorset.
4.5 The ITS was developed following extensive consultation and a comprehensive review of transport needs and facilities in the area and extensive consultation.
The vision for South East Dorset set out in the LTP2 is for:
- More reliable journey times within the conurbation;
- Improved journey times between the Port, Bournemouth Airport, Town Centres, industrial areas and the national road network;
- A reduction in the number of people killed or seriously injured on the roads;
- An improved quality of life for those who don’t have access to a private car;
- Increased public satisfaction with roads and footpaths;
- Transport solutions which improve economic performance;
- More sustainable transport and sensible use of the car.
Relevant links to these documents can be found in Appendix B
5. Issues and Constraints in South East Dorset
5.1 South East Dorset, focused on Bournemouth, Poole and Christchurch and the southern part of East Dorset district, is one of the South Coast's major urban centres. It is a key economic driver in the South West region and has a vital role in the Sustainable Communities agenda.
5.2 With a population of 450,000, it is the second largest urban area in the South West. It has a broad-based economy, with significant sectors specialising in tourism, education, financial services, high tech and marine industries, retailing and leisure entertainment.
5.3 Connectivity to London and the South East is adequate, but links to the north and the Bristol area are extremely poor quality. Its setting in internationally recognized quality countryside and coastal environment makes it unique for a conurbation of its size. It is a place that attracts people to live, learn, work, relax and retire. It has seen significant growth over many years, principally through the in-migration of both people and companies substantially from London and the South East.
The strategic transportation network shown on Fig XX comprises:
- The primary route[11] network (including the A31 trunk road) ;
- Bournemouth Airport,
- The Port of Poole,
- The Weymouth-Waterloo electrified railway line
The strategic transportation network Fig XX
5.4 Growth levels for South East Dorset as set out in RSS are among the highest for any major urban area in the South West. This is set against a context of limited opportunities for the outward expansion of the conurbation and a supporting transport infrastructure that is already strained.
5.5 The area suffers problems of peak period congestion throughout the highway network, particularly on its main east-west routes. As an example the main A35 between the three town centres of Poole, Bournemouth and Christchurch carries heavy volumes of traffic with over 30,000 vehicles per day at the Poole/Bournemouth boundary and 43,000 per day on the section through Christchurch. Other sections of roads carry over 50,000 vehicles per day. With the absence of high capacity links, congestion in the area is not confined to the traditional peak hours and has spread to other times of the day.
5.6 To accommodate planned development it is essential that investment in transport and other infrastructure is made to accompany the estimated growth in travel demand. A strategy to address the transport issues is set principally in the Local Transport Plan and takes into account the fact that further development across the area will invariably add further pressure and demands on the transport infrastructure. Without suitable mitigation and infrastructure improvements there is a real danger that: