Greater Cambridge Local Plan Preferred Options

OBJECT

The Greater Cambridge City Deal recognised the relationship between housing and economic growth, and that the shortage of available and affordable housing within Greater Cambridge has an impact on house prices, commuting patterns, and recruitment and retention of employees. The Cambridgeshire and Peterborough Devolution Deal committed to delivering substantial economic growth and to double economic output during the next 25 years. The 2018 Cambridgeshire and Peterborough Independent Economic Review (CPIER) identified that recent employment growth has been faster than anticipated, and the aim of doubling economic output in the area by 2040 was realistic. It was suggested in CPIER that economic growth could be achieved by attracting knowledge-intensive businesses that would not locate elsewhere in the UK, by delivering new housing, and by prioritising infrastructure projects. The National Infrastructure Commission, the Cambridge and Peterborough Combined Authority and the Greater Cambridge Greater Peterborough Enterprise Partnership acknowledge and support the economic growth potential of the Greater Cambridge area, and consider that there is a need to substantially increase housing delivery in order to support that economic growth and address the significant housing affordability issues that exist. At present there is an imbalance between rates of economic growth and housing delivery in Greater Cambridge.

All these factors support a significantly higher number of homes than are proposed in the preferred ‘medium plus’ growth option of Policy S/JH. It is considered that the ‘medium plus’ growth option makes insufficient upward adjustments to the housing requirement (from Section Id.2a of the Planning Practice Guidance) to take into account growth strategies, strategic infrastructure improvements and housing affordability in Greater Cambridgeshire. The ‘medium plus’ growth option also does not reflect the anticipated growth aspirations of the Oxford to Cambridge Arc Spatial Framework, or that the economic success of Greater Cambridge is of national significance.

It is suggested that the emerging GCLP should have selected the higher growth level option to support economic growth, address housing affordability, and reduce in-commuting. The higher growth level option will require infrastructure funding, but there are existing transport improvements already planned for Greater Cambridge and further investment in infrastructure (e.g. water and electricity) will need to be secured as part of the Oxford to Cambridge Arc.

Requested Change

It is requested that housing and jobs requirements in Policy S/JH are based on delivering the higher growth level option.

OBJECT

Shelford Investments is promoting land off Cabbage Moor in Great Shelford for residential development, and in representations has requested that the site is allocated in emerging GCLP. These representations to Policy S/DS are focussed on the preferred development strategy for the rural southern cluster, and specifically the decision to allocate a very limited amount of development to the more sustainable villages close to Cambridge such as Great Shelford and the decision to not release additional land from the Green Belt.

The overall development strategy is very reliant on the delivery of an extensions to an existing new settlement (Cambourne West + an additional 1,950 dwellings at Cambourne), planned new settlements (Northstowe, Waterbeach and Bourn Airfield) and new communities on the edge of Cambridge (North East Cambridge and Cambridge East). It is acknowledged that the principle of development at most of these strategic sites is already established through adopted development plan documents; the additional dwellings at Cambourne is proposed through emerging GCLP and associated with East West Rail. However, it is considered that there are a number of risks associated with the preferred development strategy, which relate to housing delivery rates and whether these can be increased at some new settlements, the relocation of existing uses from some sites, and the delivery of affordable housing.

The most recent housing trajectory for Greater Cambridge (published April 2021) already predict high average annual housing delivery rates for the new settlements; Northstowe and Waterbeach are predicted to deliver 250 dwellings per annum, and Cambourne West and Bourn Airfield are predicted to deliver a combined total of 300 dwellings per annum. Cambourne has historically delivered approximately 230 dwellings per annum. Hampton (in Peterborough) has historically delivered 259 dwellings per annum. Cranbrook (in East Devon) which has the highest annual delivery rate of current new settlements is delivering at 295 dwellings per annum). The Inspector for the Huntingdonshire Local Plan recommended that the combined housing delivery rates Alconbury Weald (the former Alconbury Airfield and Grange Farm) should be no higher than 300 dwellings per annum, and for St Neots East (Loves Farm and Wintringham Park) should be no higher than 200 dwellings per annum. The predicted average housing delivery rates at Northstowe, Waterbeach and Cambourne West/Bourn Airfield already appear to be at levels comparable to or higher than other new settlements elsewhere. It is likely that current predicted delivery rates are already optimistic, but there is no credible evidence that faster housing delivery rates can be achieved at Northstowe or Waterbeach. It is noted that Cambourne, Hampton and Cranbrook all had multiple housebuilders on site at the same time and delivered affordable and market housing in conjunction with one another. It is requested that predicted housing delivery rates for the new settlements take into account the above comments, and the assumption that faster housing delivery rates can be achieved at Northstowe and Waterbeach should be deleted from the development strategy.

North East Cambridge and Cambridge East are allocated in both Local Plans as strategic sites. It is acknowledged that these sites involve the re-use of previously developed land. However, the redevelopment of these sites is complex and involves the relocation of the existing uses; the relocation of a sewage treatment works and existing businesses in the case of North East Cambridge, and the relocation of airport related uses and businesses in the case of Cambridge East. It is considered that the delivery of development at these sites will need to be realistic, taking into account all of the challenges that need to be overcome prior to the commencement of development. It is requested that realistic assumptions about delivery are applied for North East Cambridge and Cambridge East.

It is noted that most of the new settlements will deliver less affordable housing than the normal policy requirement of 40%, mainly because of the need for these developments to also deliver significant levels of new transport and community infrastructure in initial phases. The affordable housing contributions are as follows: 20% at Northstowe, 30% at Waterbeach, 30% at Cambridge East (Wing), 30% at Cambourne West and 40% at Bourn Airfield, although all are subject to a review mechanism that could result in adjustments to the level of affordable housing. The proportion of affordable housing that will be provided from the developments at North East Cambridge and Cambridge East are unknown at this stage, but because of the costs associated with the relocation of existing uses and the delivery of new transport infrastructure it is very unlikely that 40% affordable housing will be provided at least in the initial phases. It is clear that the existing and planned new settlements and new communities in the edge of Cambridge are not and will not provide enough affordable housing, which should be a concern in an area such as Greater Cambridge which has significant housing affordability issues. It is requested that, in order to address the under-delivery of affordable housing from Northstowe, Waterbeach, Cambourne West, North East Cambridge and Cambridge East, the development strategy should allocate additional sites that are capable of providing policy compliant levels of affordable housing including small and medium sites in the villages.

The promoted development by Shelford Investments off Cabbage Moor in Great Shelford is located within the Green Belt, and in these representations it is requested that the site is released to accommodate housing and affordable housing with reference to Chapter 13 of the NPPF.

Paragraph 140 of the NPPF allows Green Belt boundaries to be altered through the plan-making process provided exceptional circumstances exist, and those exceptional circumstances should be based on evidence and justified. It is considered that exceptional circumstances exist to release land from the Green Belt, which are related to the significant need for housing and affordable housing in Greater Cambridge and the need to support economic growth. The exceptional circumstances to release land from the Green Belt applies to all parts of Cambridge covered by this designation, and it is proposed that other land in Great Shelford/Stapleford and within the Rural Southern Cluster is released from the Green Belt for these reasons. The land off Cabbage Moor and Great Shelford generally are very well related to Addenbrooke’s Hospital, Royal Papworth Hospital, Cambridge Biomedical Campus, and other employment opportunities within and on the edge of Cambridge. Great Shelford and neighbouring Trumpington contains a very good range of services and facilities and is accessible by sustainable modes of transport, and there is an identified need for affordable housing in Great Shelford would not be met by the emerging GCLP.

Paragraph 141 requires plan-making authorities to examine all other reasonable options to meet identified development needs before considering whether exceptional circumstances exist to justify changes to Green Belt boundaries i.e. make as much use of previously developed land, increase the density of development, and consider whether development needs could be accommodated in neighbouring areas. In the case of Cambridge increasing densities and reusing previously developed land is not straightforward and may be inappropriate because of heritage assets and the difficulty of finding alternative sites for existing uses. The adopted Local Plans for Cambridge and South Cambridgeshire already identified previously developed land opportunities, and the emerging GCLP seeks to do them same. As such, previously developed land opportunities that are deliverable have already been identified within and on the edge of Cambridge.

Paragraph 142 requires any review of Green Belt boundaries to consider the need to promote sustainable patterns of development, and that where the release of land from the Green Belt is necessary that priority is given to previously developed land or sites that are well-served by public transport. It is acknowledged in emerging GCLP and the associated Sustainability Appraisal that the edge of Cambridge is a sustainable location because of its close proximity to employment and the opportunity to travel by non-car modes of transport. The land off Cabbage Moor is well served by public transport (bus and rail) and is well connected with existing cycle routes, and there are future public transport improvements proposed in the surrounding area. Therefore, the release of the land off Cabbage Moor from the Green Belt would be consistent with the approach in national policy to give priority to those Green Belt sites that are well served by public transport.

As set out in representations to Section 2.5: Rural Southern Cluster and the HELAA Site Assessments (for Site Ref. 40529), the land off Cabbage Moor in Great Shelford makes a limited contribution to openness and the purposes for including land within the Green Belt, and does not contribute towards the wider landscape of Cambridge or Great Shelford, and should be released from the Green Belt in emerging GCLP.

There are three other paragraphs in the NPPF that suggest additional allocations should be made in Great Shelford and the Rural Southern Cluster. Paragraph 105 seeks to ensure that development is located where the need to travel will be minimised and the use of sustainable transport modes can be maximised, but acknowledges that the opportunities will be different in urban and rural areas. Paragraph 79 seeks to promote sustainable development in rural areas by locating housing where it will enhance or maintain the vitality of rural communities and enable villages to grow and thrive. Paragraph 62 expects the size, type, and tenure of housing needs of the community to be assessed and reflected in planning policies, including for example those with an affordable housing need, students, renters, and self-builders.

Great Shelford contains a good range of services and facilities, reflecting its status as a Rural Centre. For example it contains a variety of convenience stores, a post office, library, primary schools, health services including doctors and dentist, banks, public houses, and restaurants. There are additional services and facilities located in Trumpington. The promoted development by Shelford Investments would support the existing services and facilities. Great Shelford contains a railway station. The proposed Cambridge South Station would be located to the west of Cambridge Biomedical Campus. Shelford Road is on a bus and cycle route. Trumpington Park & Ride and the Cambridgeshire Guided Busway are within close proximity of the site. The Cambridge South East Transport project by the Greater Cambridge Partnership includes a stop at Great Shelford and at Cambridge Biomedical Campus. Therefore, the promoted development by Shelford Investments at land off Cabbage Moor is accessible by a range of sustainable modes of transport, and it would be consistent with national policy to direct additional development to this site.

South Cambridgeshire District Council's 'Housing Statistical Information Leaflet' (December 2019) identified a need for 47 affordable dwellings in Great Shelford for those with a local connection to the village, and an identified need in Stapleford for 28 affordable dwellings – see https://www.scambs.gov.uk/media/18316/affordable-housing-housing-statistical-information-leaflet-december-2019.pdf. The identified need for Great Shelford would not be met without an additional allocation. It is noted that a Stapleford and Great Shelford Neighbourhood Plan Area was designated in 2016, and it appears that there has been some evidence gathering since then but a draft plan has not yet been published. Rural housing exception schemes are typically very small and are reliant on a landowner willing to offer land up at existing use value. As a Rural Centre and one of the more sustainable settlements in South Cambridgeshire, Great Shelford should seek to accommodate district-wide affordable housing needs and not just those local needs arising in the village and the immediate surrounding area. The promoted development by Shelford Investments would include housing and affordable housing to meet local needs of the village.

For all these reasons, small scale housing allocations should be made in the more sustainable villages in the Rural Southern Cluster and on the edge of Cambridge including at Great Shelford, because it is accessible by sustainable modes of transport, there is a need to support the existing services and facilities within the villages, and there is an identified need for affordable housing in the villages which would not be met via other means.

Requested Change

The following changes are requested to Policy S/DS: Development Strategy:

It is requested that predicted housing delivery rates for the new settlements take into account the evidence from similar development elsewhere.

It is requested that the assumptions about faster housing delivery rates for Northstowe and Waterbeach are deleted from the development strategy.

It is requested that realistic assumptions about delivery are applied for North East Cambridge and Cambridge East.

It is requested that additional sites that are capable of providing policy compliant levels of affordable housing are identified in the development strategy, including small and medium sites in the villages, in order to address the under-delivery of affordable housing from Northstowe, Waterbeach, Cambourne West, North East Cambridge and Cambridge East.

It is requested that small scale housing allocations should be made in the more sustainable villages in the rural area on the edge of Cambridge including Great Shelford, because it is accessible by sustainable modes of transport, there is a need to support the existing services and facilities within the village, and there is an identified need for affordable housing in the village.

As requested in Shelford Investment’s representations to Section 2.5 Rural Southern Cluster, the land off Cabbage Moor in Great Shelford should be released from the Green Belt and allocated in emerging GCLP for residential development.

OBJECT

Shelford Investments does not object to the principle of settlement boundaries being defined around villages. However, the existing defined settlement boundaries for most villages in South Cambridgeshire have remained largely unchanged since the Local Plan 2004. The settlement boundaries were adjusted in some cases to take into account allocations at some villages through the Site Specific Allocations DPD 2010 and the South Cambridgeshire Local Plan 2018. In Great Shelford and Stapleford, heritage assets, protected village amenity areas, important countryside frontage designations restrict development opportunities within the settlement boundary, and the Green Belt restricts development outside the settlement boundary. It is very likely most development opportunities that did exist within Great Shelford have been taken up by now, and any that do remain would be for one or two dwellings only that are not required to provide affordable housing.

The Councils have not undertaken an assessment of the capacity land within the existing settlement boundaries of villages to accommodate additional development. It is likely that such an assessment would demonstrate that the capacity is limited.

It is acknowledged that the emerging GCLP has identified a preferred allocation site in Stapleford, which is proposed to be released from the Green Belt. It is considered that the emerging GCLP should seek to allocate additional suitable sites on the edge of existing sustainable villages and to adjust the settlement boundary to accommodate those allocations. The site promoted by Shelford Investments at land off Cabbage Moor in Great Shelford is suitable and available for housing, and should be allocated for development.

Requested Change

It is requested that a capacity assessment is undertaken of all villages in South Cambridgeshire to determine which potential housing sites might be deliverable or developable during the plan period to 2041 and the number of dwellings that might be delivered from each of those sites.

If the capacity assessment identifies no suitable sites to meet identified affordable housing needs it is requested that additional allocations are made on the edge of those villages to deliver sufficient housing to meet those affordable housing needs.

Section 2.5: Rural Southern Cluster / Policy S/RSC: Village Allocations in the Rural Southern Cluster

OBJECT

It is considered that the growth of the more sustainable villages must be part of the development strategy for emerging GCLP, and particularly those villages that contain a very good range of services and facilities, are accessible by a range of modes of transport, and where there is an identified need for affordable housing for those with a local connection to the village. Great Shelford falls within this category.

Paragraph 79 of the NPPF seeks to promote sustainable development in rural areas and acknowledges that housing can enhance or maintain the vitality of rural communities and support local services. The promoted development at land off Cabbage Moor in Great Shelford would support the existing services and facilities in the village, including the convenience stores, post office, library, banks, public houses and restaurants, bus, and rail services.

Paragraph 69 acknowledges the role that small and medium sized sites can make towards meeting the housing requirements, and that such sites are often built-out relatively quickly. Small and medium sized sites typically only require limited new physical infrastructure and amendments to the access arrangements. The housing monitoring data from Cambridge and South Cambridgeshire confirms that small and medium sites are delivered quickly i.e. within two to three years. It is considered that small and medium sized sites make a significant contribution towards the short term housing land supply and the five year housing land supply position in Greater Cambridgeshire. It is requested that small sized sites such as land off Cabbage Moor in Great Shelford are allocated to meet the requirement for a mix of sites including those that are easily deliverable.

Paragraph 104 of the NPPF expects transport issues to be considered at the earliest stages of plan-making. Those issues include opportunities created by existing or proposed transport infrastructure in terms of the scale, location and density of development, and opportunities to promote walking, cycling and public transport use. Great Shelford contains a railway station. The proposed Cambridge South Station would be located to the west of Cambridge Biomedical Campus. Shelford Road is on a bus and cycle route. Trumpington Park & Ride and the Cambridgeshire Guided Busway are within close proximity of the site off Cabbage Moor. The Cambridge South East Transport project by the Greater Cambridge Partnership includes a stop at Great Shelford and at Cambridge Biomedical Campus. Great Shelford and the land off Cabbage Moor are sustainable locations in transport terms, and additional development in this location would be consistent with Paragraph 104.

Paragraph 62 of the NPPF expects the size, type, and tenure of housing needs of the community to be assessed and reflected in planning policies, including for example those with an affordable housing need, students, renters, and self-builders. South Cambridgeshire District Council's 'Housing Statistical Information Leaflet' (December 2019) identified a need for 47 affordable dwellings in Great Shelford for those with a local connection to the village, and 21 affordable dwellings in Stapleford. This identified need would not be met without allocations in the village. The promoted development by Shelford Investments at land off Cabbage Moor in Great Shelford would include housing and affordable housing to meet local needs of the village, and there would be a policy requirement to include a proportion of self/custom build housing plots.

For all these reasons, additional small scale housing allocations should be made in the more sustainable villages within the Rural Southern Cluster, including Great Shelford, because it is accessible by sustainable modes of transport, it is well related to employment opportunities, there is a need to support the existing services and facilities within the village, and there is an identified need for affordable housing in the villages which would not be met via other means. The affordable housing needs for Great Shelford would not be met by the preferred allocation in Stapleford identified in emerging GCLP.

Shelford Investments representations to the assessment of the land off Cabbage Moor in Great Shelford site in the HELAA (Site Ref. 40529) comment on the potential constraints identified with the promoted development and explain how those constraints would be addressed. In summary, there is an existing vehicular access to the site from Cabbage Moor. There are limited views of the site from the surrounding area because of the existing landscaping at the site boundary. The site makes a limited contribution to the purposes for including land within the Green Belt.

Requested Change

It is requested that the development strategy for the Rural Southern Cluster includes an additional residential allocation at land off Cabbage Moor in Great Shelford, as promoted by Shelford Investments, with the following policy requirements:

• Site Area of 1.81 Ha
• Capacity for approx. 70 dwellings, including affordable housing and self/custom build plots
• Retain and enhance existing trees and hedgerows at site boundary
• Provide open space and green infrastructure
• Upgrade existing vehicular access on Cabbage Moor and at junction on to Shelford Road

COMMENT

Policy I/ST: Sustainable Transport and Connectivity set out how the transport impacts of development should be managed, and how new development should be connected to the transport network. An aim of the policy is to reduce transport emissions. The preferred development strategy seeks to co-locate housing close to jobs, services, and facilities in order to reduce the need to travel and support travel by walking, cycling and public transport. This approach is consistent with Paragraphs 104 and 105 of the NPPF and is supported. However, it is considered of the aim of Policy I/ST will only be fully implemented if all available opportunities to direct development to sustainable locations are taken, including additional development being directed to Great Shelford.

The promoted development by Shelford Investments in Great Shelford is accessible by walking, cycling and public transport to the services and facilities within the village and in nearby Trumpington, and to the employment opportunities at Cambridge Biomedical Campus and within Cambridge. Great Shelford Station, the proposed Cambridge South Station, Trumpington Park & Ride, Cambridgeshire Guided Busway, the proposed Cambridge South East project, and existing bus services along Shelford Road are all available within close proximity of the promoted development off Cabbage Moor and realistic alternatives to the car are available. Therefore, additional development at Great Shelford would be consistent with the aims of Policy I/ST.

Requested Change

It is requested that the promoted development by Shelford Investments at land off Cabbage Moor in Great Shelford is allocated for residential development, in order to support the aims of Policy I/ST e.g. reduce transport emissions, reduce the need to travel, and encourage the use of sustainable modes of transport.

Sustainability Appraisal

A key aim of the Sustainability Appraisal process is to make a plan more sustainable. It tests the social, economic, and environmental impacts of various plan options, to help choose the most sustainable options. It also seeks to determine the extent to which the principles of sustainable development are integrated into the plan and its policies.

It is considered by Shelford Investments that the Sustainability Appraisal has not sought to make emerging GCLP more sustainable, and in respect of villages it appears that the assessment against sustainability objectives is not robust because it does not critically review the evidence provided by the Councils. For example, some villages have good access by sustainable modes of transport and contain a good range of services and facilities, there is an identified need for affordable housing in most villages which is ignored in the assessment process, and there is limited capacity within existing settlement boundaries for villages to accommodate additional development.

The sustainability objectives that are relevant to Shelford Investments representations are: SA1 Housing; and, SA2 Access to Services and Facilities.

Shelford Investments representations and requested amendment to the assessment of policy options in the Sustainability Appraisal are as follows:

• Table 5.4: Policy S/DS: Development Strategy: A ‘significant positive effect/uncertain’ score is identified in the assessment for the housing sustainability objective (SA1). However, as set out in Shelford Investments representations to Policy S/DS, there are no housing allocations made in most villages, including Great Shelford, and as such the identified needs for affordable housing in the villages would not be met by the preferred development strategy. South Cambridgeshire District Council's 'Housing Statistical Information Leaflet' (December 2019) identified affordable housing needs for those with a local connection in all villages – see https://www.scambs.gov.uk/media/18316/affordable-housing-housing-statistical-information-leaflet-december-2019.pdf. That information is not reflected in the assessment contained in Table 5.4. The identified need for 47 affordable dwellings in Great Shelford will not be met by the preferred development strategy, which must be a negative outcome for the housing related sustainability objective. Shelford Investments has requested that land off Cabbage Moor in Great Shelford is allocated for housing and affordable housing to deliver positive housing related sustainability outcomes.

• Table 5.6: Policy S/SB: Settlement Boundaries. A ‘mixed significant positive and minor negative effect’ score is identified for the housing sustainability objective (SA1). As set out in Shelford Investments representations to Policy S/SB the settlement boundaries at most villages have remained largely unchanged since 2004 and there has been no assessment of capacity within settlement boundaries to accommodate additional development. The assessment in Table 5.6 does not consider whether any capacity exists within the settlement boundaries to accommodate the identified needs for affordable housing. Great Shelford is an example where there are no opportunities within the boundary to accommodate major developments that would require affordable housing i.e. 10 or more dwellings, and the Green Belt restricts development outside the settlement boundary. As set out above there is an identified need for 47 affordable dwellings in Great Shelford. It must be a negative outcome for the housing related sustainability objective if affordable housing needs of villages, including Great Shelford, will not be met by the currently defined settlement boundaries.

• Table 5.20: Policy S/RSC: Village Allocations in the Rural Southern Cluster: A ‘mixed significant positive and minor negative effect’ score is identified for the housing sustainability objective (SA1). A ‘mixed significant negative and minor positive effect / uncertain’ score is identified for access to services and facilities objective (SA2). As set out above there is an identified need for 47 affordable dwellings in Great Shelford, and it must be a negative outcome for the housing related sustainability objective if affordable housing needs of villages, including Great Shelford, will not be met by the development strategy or the strategy for rural southern cluster. Great Shelford contains a good range of services and facilities, including a variety of convenience stores, a post office, library, primary schools, health services including doctors and dentist, banks, public houses, and restaurants. There are additional services and facilities located in Trumpington. Great Shelford Station, the proposed Cambridge South Station, Trumpington Park & Ride, Cambridgeshire Guided Busway, the proposed Cambridge South East project, and existing bus services along Shelford Road are all available within or close to Great Shelford. The accessibility to services and facilities is excellent for Great Shelford and for land off Cabbage Moor, but this is not reflected in the assessment for this sustainability related objective, and additional development in this location would improve the sustainability outcomes and support the existing services and facilities.

It is requested that land off Cabbage Moor in Great Shelford is allocated in emerging GCLP to deliver better and more positive sustainability outcomes compared with the preferred development strategy.