A Policy Review August 2010
Contents 1: Background... 1 2: Existing Policy Under Review... 2 3: North West Bicester - Policy & Plans... 3 4: North West Bicester The Eco Town... 6 5: Conclusions & Future Work... 12 6: Bibliography... 13
1: Background 1.1 Sustainability as a concept has continued to increase in popularity and dominance for well over a decade. From academic thought, to political debate and spatial policy sustainability and it s supporting eco prefix continue to flood policy documents, media material and accepted thought. (Mans 2008) 1.2 Strong political support for sustainability and supporting eco projects was particularly evident during the last Government Office (Jenkins 2008). The Eco Towns programme is just one example and was first introduced in 2007 as part of Gordon Brown s policy projections during his race for the Labour leadership. What is an Eco Town? 1.3 The term Eco Town steams from the former Labour Government s programme to build new towns. The proposed developments were designed to illustrate exemplary sustainability credentials whilst creating much needed new homes. 1.4 Initially in 2007 five Eco Towns were proposed creating an estimated 10,000 new homes each, this later doubled in 2008 to ten proposed Eco Towns (Milne 2007) and grew further in late 2008 as Birmingham City Council announced they alone planned to build 5 Eco Towns (Energy Saving Trust 2008). 1.5 Each Eco Town projected it would provide at least 5000 new homes, meet strict environmental and sustainability standards, offer excellent public transport and use a variety of renewable and green technologies. Every property within such a development would also have full access to; smart energy meters, real-time public transport information, renewable power sources and public transport and services within a short walking distance. 1.6 All new Eco Town settlements would also designate at least 40% of their total area as green space (DirectGov 2010). Existing Political Situation 1.7 The recent change in government in May 2010 has lead to increasing uncertainty in many areas of government policy. With a move towards localism, the abolishment of the Regional Development Agencies and their associated Regional Spatial and Economic Strategies comes further uncertainty. A review of the Planning System and its associated policies is currently underway making any final confirmation and or development towards a proposed Eco Towns increasingly uncertain. 1
2: Relevant Planning Policy Existing Relevant National Policy Currently Under Review 2.1 As part of the recent change in Government and review of the Planning System certain aspects of national planning policy is also currently under examination. To date the policies discussed below still stand, however, with increasing cuts to budgets, decentralised governance and an individual review of the Eco Town Scheme elements of change are inevitable. Planning Policy Statement 1: Delivering Sustainable Development (2005) 2.2 Sustainable development is the core principle underpinning planning. At the heart of sustainable development is the simple idea of ensuring a better quality of life now and for future generations. (paragraph 3) Planning Policy Statement: Planning and Climate Change - Supplement to Planning Policy Statement 1 (2007) 2.3 the planning system needs to support the delivery of the timetable for reducing carbon emissions from domestic and non-domestic buildings. The consultation document, Building a Greener Future, sets out a progressive tightening of Building Regulations to require major reductions in carbon emissions from new homes to get to zero carbon by 2016. (paragraph 8) Planning Policy Statement: Eco-towns (2008) - Supplement to Planning Policy Statement 1 2.4 Eco-towns are a specialised type of new settlement which are separate and distinct, but well linked to higher order centres. They must achieve sustainability standards significantly above equivalent levels of development in existing towns and cities. At this scale they are not expected to be entirely self- sufficient, particularly in terms of employment, however, they are expected to provide social infrastructure, such as schools, shops and have good transport links to existing higher order centres. They should demonstrate best practice in terms of sustainable development. (paragraph 2) Planning Policy Statement 22: Renewable Energy (2004) 2.5 An increased development of renewable energy resources is vital to facilitating the delivery of the Government s commitments on both climate change and renewable energy. Positive planning which facilitates renewable energy developments can contribute to all four elements of the Government s sustainable development strategy including: Social progress which recognises the needs of everyone, effective protection of the environment, prudent use of natural resources, and maintenance of high and stable levels of economic growth and employment. 2
3: North West Bicester - Policy & Plans Background 3.1 North West Bicester is one of four proposed Eco Town locations. Originally 12 sites were shortlisted, however, this was later reduced to four shortly before the change in Government. 3.2 The four remaining sites are; Whitehill Bordon in Hampshire, St Austell in Cornwall, Rackheath in Norfolk and North West Bicester in Oxfordshire. Source: http://www.direct.gov.uk/en/nl1/newsroom/dg_179196 Government Reviews The Planning System 3.3 As a result of the change in Government many policies and processes are being reviewed, one of which is the Planning System. Due to the move towards increased localism, the middle regional tier of governance and its supporting economic and spatial policy has been removed. Whilst inevitably any review and changes to the Planning System will take time, 29 agencies, including the RTPI have raised concerns that this should take increasing precedence in the Governments priorities. 3.4 While many in the profession have also raised concerns that Spatial Planning needs to think beyond the local level, the Government continues to review existing national policies and spatial plans in their move towards increasingly local decentralised governance. Plans for a new open sourced planning system encouraging neighbourhoods to specify the developments they want in their areas will replace existing systems. Proposed Eco Towns 3.5 The proposed Eco Town developments are also included in the Planning System review with the Government considering rebranding the scheme as Eco-Developments or Future Towns. The rebranding is considered necessary by some in order to disassociate with the previous negative press attention. As part of the Eco Town Scheme review the governance and delivery structures of the following agencies and bodies will be considered; 3
The Homes and Communities Agency Relevant Local Authorities Connected Government Offices Natural England The Environment Agency Current Political Commitment to Eco Towns 3.6 In July 2010 funding for local developments was halved for the immediate 2010/11 budget, creating further uncertainty about the future of existing Eco Town proposals. To date there is no firm policy commitment to deliver funding for the proposed four Eco Towns, however, in July 2010 Housing Minister Grant Shapps wrote to council leaders saying the Government would continue to back genuine eco-towns saying; We will back genuine new eco-town or eco-village developments, which have broad-based local support and are genuinely environmentally sustainable. We will not impose eco-town developments (through national planning rules) on communities which do not want them. Source: http://www.oxfordmail.co.uk/news/yourtown/bicester/8272371.bicester_eco_town moving_forward_/ 3.7 In response Cherwell s (one of three Council s involved in the Bicester Eco Town bid) executive member for planning and housing Michael Gibbard confirmed that they were continuing to plan ahead with their Eco Town Scheme, with the first planning application expected to be submitted early Autumn. Gibbard s responsed to new Government thinking saying; The new Government has new, exciting ideas to reward the delivery of eco-houses and we intend that Bicester will be right at the front of the queue for that additional cash, which we want to invest in the town as a whole. Source: http://www.oxfordmail.co.uk/news/yourtown/bicester/8272371.bicester_eco_town moving_forward_/ North West Bicester s Progress to Date 3.8 Despite continued political uncertainty and impending changes to policy goals and funding sources, Eco-Bicester (Cherwell District Council s, Bicester Town Council s and Oxfordshire County Council s joint Strategic Delivery Board for North West Bicester) and P3-Eco (an independent private consortium of partners working to fund an facilitate eco developments) are continuing to work towards developing North West Bicester. 3.9 As part of the commitment to develop the new Eco Town and redevelop the existing town of Bicester the areas local councils and joint Strategic Delivery Board in partnership with P3- Eco have commissioned and have the following policies and plans as part of their funding bid and development process: 4
NW Bicester Eco-Town Concept Study. Halcrow June 2009 NW Bicester Eco-Town Concept Study - Transport Technical Notes. Halcrow June 2009 NW Bicester Eco-Town Concept Study - Viability Assessment. Halcrow June 2009 NW Bicester Eco-Town Public Transport Corridor Study. Halcrow June 2009 Making North West Bicester a Reality. Cherwell District Council July 2009 North West Bicester Eco Town - Outline Bid for Start up Growth Funding. Cherwell District Council October 2009 Eco Bicester One Shared Vision. Bicester Vision August 2010 Potential Future Studies and Reports 3.10 Although the Council s involved have clearly invested a significant amount of time and money in commissioning the above concept studies, viability reports and bid submissions the overall lack of site specific energy detail still remains. While the reports outline in great detail the transport improvements necessary to assist the developments success and the economic viability of such proposals the lack of energy specific detail is still evident. Little of the narrative from any of the above documents is dedicated to site-specific proposals for alternative/renewable energy sources, environmentally friendly building techniques or renewable energy/sustainable community led initiatives. While the documents support eco initiatives, building designs and sources of renewable energy they fail to mention where such projects will be located within the proposed area of development, and how/if they will gain planning approval. 3.11 While a detailed list of potential sources of alternative/renewable energy sources is included as part of the Concept Study little consideration to potentially suitable sites for the technology is given or displayed. This supports the future recommendation of a detailed Area Action Plan or Master Plans detailing site-specific recommendations that accompany existing option reports. 5
4: North West Bicester The Eco Town Location 4.1 The proposed Eco Town development at North West Bicester aims to reposition the existing town by creating a whole new place. The repositioned North West Bicester aims to be an exemplary eco development that is less than 1.5km from the existing Bicester Town. Source: http://www.cherwell.gov.uk/media/pdf/p/1/nwbiceco.pdf 4.2 Bicester is a large market town in central Oxfordshire located between London and Birmingham and Cambridge and Oxford, it is also close to both Banbury and Milton Keynes. 6
Source: http://www.visitnorthoxfordshire.com/site/location-map 4.3 Since 1950 the town has grown substantially with an estimated population in excess of 30,000 people. However, projected growth estimates that this figure will increase to in excess of 40,000 people by 2026 (Bicester Vision 2010). With sustained population growth, an poor social and physical infrastructures, high levels of out commuting, road congestion and inadequate local facilities future development is key to resolving such existing problems. 4.4 The suitable identified eco site was first chosen in 2008 and consists of 800 acres of agricultural land adjacent to the existing town of Bicester. Source: http://www.cherwell.gov.uk/media/image/8/6/north-west-bicester21.jpg 4.5 The sites boundaries lie between the village of Bucknell to the north, Banbury Road (B4100) to the east, Howes Lane and Lords land (B4095) to the south and Middleton Stoney Road (B4030) to the west. 7
The Vision 4.6 The North West Bicester Vision is to create a sustainable place where people choose to live, work and spend their spare time. Creating a new low carbon community who are reliant on jobs based around a green technology cluster in a settlement that emphasises energy efficiency, zero carbon and environmental sustainability. 4.7 The aim is for this development to be by and for the very people that will live there, as existing homes are modified and new homes are built to exacting eco standards, creating the lowest carbon community possible. 4.8 Planned development across the new eco town includes; at South West Bicester 1,500 new homes, a health village, sports areas, employment land (including a hotel), a new secondary school, a community hall, and a new perimeter road (all with approved planning permission) at Gavray Drive 500 new homes, a new primary school, designated open space and a country wildlife site (all with approved planning permission) the 50 million redevelopment of the existing town centre including a new Sainsburys supermarket, new retail areas, a cinema, a library, a new civic building, a new business park (including 60,000 m2 of b1 employment space and a hotel) and (all with approved planning permission but subject to improvements at M40 Jct 9) Use of Energy on Site 4.9 Potential renewable energy schemes proposed for the site to meet the demanding Zero Carbon development outlined in the Concept Study Sustainability Strategy include using: a biomass heat source, using the surrounding woodland as potential supply the lands useful low grade heat supply the areas usable wind speed and frequency 8
the solar potential the waste products generated by the community for energy generation and exploiting the PaasivHaus design incorporating high levels of insulation, exploiting the suns orientation and including water saving design techniques. 4.10 For North West Bicester to have the strongest potential of successfully using a reliable and secure alternative fuel source the settlement should use a District Heating System where from a Central Heating Centre a combination of technologies can be used to maintain a reliable alternative energy source. Source: Bicester Eco Town Concept Study Halcrow June 2009 4.11 The retrofitting of existing domestic properties, in addition to adhering to strict new environmental standards for all new built properties and the planned installation of energy monitoring equipment across all homes should also assist in reducing existing domestic energy use. Offering information about energy saving techniques, supplying low energy alternative technology (ie light bulbs, smart monitors etc) and implementing community energy generation schemes such as the above suggested small scale renewables and district heating schemes should all help to reduce the communities energy costs and carbon footprint. Transport 4.12 In keeping with the overall eco vision the development will encourage walking and cycling as the first choice for travel. The overall aim of promoting walking and cycling across the town is to improve health, reduce carbon emissions and improve the overall quality of the environment. 9
4.13 Current sustainable transport solutions for North West Bicester include: 4.14 Source: Bicester Eco Town Concept Study Halcrow June 2009 high containment of trips within the eco-town enhanced bus service from the eco-town into and around Bicester shuttle bus service from the eco-town to the station; additional bus priority measures increased frequency and improved train services from Bicester Station street plans to discourage car movement travel awareness plans (individualised travel plans etc) discounted bus services real time information and high quality walk and cycle links to town. The Site s Environment 4.15 Once again the provision of an environmental infrastructure is core to the eco town concept. The Council s involved in the development of North West Bicester are mindful that biodiversity and habitat creation are vital to the overall master planning of the site. After working with Chris Baines (an Environmental Consultant) plans now designate up to 40% of the total site areas will be designated open space. A network of open spaces will be connected by river corridors and existing wider countryside, whilst also creating networks for walking and cycling supporting the reduced need for private cars and public transport. Further work is also needed to explore in detail opportunities for new wetland areas. Eco Housing 4.16 All newly built housing across North West Bicester is designated to meet existing environmental standards they will be zero carbon and achieve at least Building for Life Silver Standard, level 4 of Code for Sustainable Homes. Where possible materials will be sourced locally and the appropriate level of technology built into homes to support the necessary smart energy monitoring and reduction methods currently available. High-speed broadband networks will facilitate detailed home energy monitoring and home working. 10
Supporting a Sustainable Economy 4.17 Due to existing levels of outwards commuters travelling to and from work it is important that future developments at North West Bicester offer a range of local employment opportunities. Previously accepted and now abolished Regional Economic Policy highlighted Bicester as a significant location for future employment growth within the Oxford to Cambridge Arc. Such sustained employment growth should come from increases in Science and Technology businesses through exploiting innovation and spin out from academic research. 4.18 An existing Employment Strategy Concept Study highlights how North West Bicester could create; a centre for innovation capitalising on the location within a well renown sub region a sub regional service centre capitalising on the areas existing strengths in Science and Technology capitalise further on the specialised construction of environmentally sensitive structures, new technologies and materials needed to meet standards outlines in PPS s. become a potential hub for new technologies that make materials from recycled waste explore further the possibility of community supported agriculture and bio fuel production Relationship to Existing Local Policy Documents 4.19 The North West Bicester proposed Eco Town development sits along side existing local planning policy. In particular the proposed development aligns well with the South East Plan, the Cherwell Sustainability Community Strategy and the Cherwell Local Development Framework, with the latter explicitly including the development through out its policy documents. 4.20 The South East Plan, adopted in May 2009 was the regions framework for development, now abolished after Government reform. It previously identified Bicester as an area for growth within the sub region and encourages the town to maximise its proximity to Oxford and Cambridge whilst improving local transport networks. 4.21 The Cherwell Sustainability Community Strategy Our District, Our Future adopted in November 2009 also addresses the same development for Bicester as the planned Eco Town development. It highlights too the lack of community facilities, level of outward commuting and need to redevelop the town centre. 4.22 The Cherwell Local Development Framework assumes the North West Bicester site as an eco town as given. If planning applications are received for North West Bicester before the Core Strategy is formally adopted an Area Action Plan will be developed to confirm the sites development and infrastructure requirements. 11
5: Conclusions 5.1 North West Bicester has a clear and detailed Eco Town proposal. However, many of the details are still currently at concept level with further site-specific master planning necessary to reveal the areas full development potential. 5.2 Despite existing political uncertainty the relevant local authorities and supporting agencies are still currently committed to North West Bicester. Future challenges will involve securing funding and private investment, with out which any progress here will be impossible. 5.3 During the completion of this case study during a four-week period in August 2010, policies, funding and governance structures changed. The availability of relevant policy documents, local authority reports and press statements also changed frequently and although a variety of area specific information was available its site-specific detail was often sparse. Interestingly many documents also contradict each other as different consultancy teams often complete reports for different audiences and purposes. 5.4 A significant amount of time and money has obviously been invested to date in North West Bicester s Plans. Further site-specific detail is needed in addition to private sector interest and realistic development proposals suitable for planning approval. North West Bicester like many will be waiting to see the results from the Governments current reviews as many unanswered questions remain. Will the Government still fund the Eco Town Scheme? What will be the future level of policy commitment to assist the development of Eco Towns? Will the Eco Town concept still exist or will it be rebranded? How will new towns be planned in the future? What will localism do to existing planning systems and policy? 12
6: Bibliography North West Bicester Eco-Town Concept Study. Halcrow June 2009 North West Bicester Eco-Town Concept Study - Transport Technical Notes. Halcrow June 2009 North West Bicester Eco-Town Concept Study - Viability Assessment. Halcrow June 2009 North West Bicester Eco-Town Public Transport Corridor Study. Halcrow June 2009 Making North West Bicester a Reality. Cherwell District Council July 2009 North West Bicester Eco Town - Outline Bid for Start up Growth Funding. Cherwell District Council October 2009 Eco Bicester - One Shared Vision. Bicester Vision August 2010 The Conservative Manifesto May 2010 Planning Policy Statement 1: Delivering Sustainable Development. Department for Communities and Local Government (2005) Planning Policy Statement: Planning and Climate Change - Supplement to Planning Policy Statement 1. Department for Communities and Local Government (2007) Planning Policy Statement: Eco-towns - Supplement to Planning Policy Statement 1 Department for Communities and Local Government (2008) Planning Policy Statement 22: Renewable Energy. Department for Communities and Local Government (2004) Websites http://www.rtpi.org.uk/item/3937/23/5/3 accessed between 1st August and 30 th August 2010 http://www.rtpi.org.uk/news_and_media/press_releases/ accessed between 1st August and 30 th August 2010 http://www.planningportal.gov.uk/england/professionals/policy/new accessed between 1st August and 30 th August 2010 http://www.planningportal.gov.uk/england/professionals/policy/policydocuments/englandppg pps/ accessed between 1st August and 30 th August 2010 http://news.bbc.co.uk/1/hi/uk_politics/8504050.stm accessed between 1st August and 30 th August 2010 13
http://www.oxfordmail.co.uk/news/yourtown/bicester/8272371.bicester_eco_town moving _forward_/ accessed between 1st August and 30 th August 2010 http://www.p3eco.com/intro.html accessed between 1st August and 30 th August 2010 http://www.cherwell.gov.uk/index.cfm?articleid=3890 accessed between 1st August and 30 th August 2010 http://www.cpreoxon.org.uk/campaigns/planning/housing/bicester_eco- Town_Concept_Study_-_Feb_2009_(_a3_low_res).pdf accessed between 1st August and 30 th August 2010 14