Torbay's strategic context
2.1 Torbay is the UK’s leading long-stay holiday resort.
Its three towns - Torquay, Paignton and Brixham - stretch out
around a sheltered bay on the south coast of Devon. It is one
of nine unitary authorities in the South West and one of the
eleven principal urban areas which are recognised in Regional
Planning Guidance for the South West (RPG10 - September 2001).
Torbay’s regional context is illustrated in Plan 2.
2.2 Although tourism dominates Torbay’s economy, it has
one of the nation’s leading fishing ports at Brixham and
a strategic concentration of high tech industry, mainly on the
edge of Paignton. It has a resident population of around 130,900
(2002 mid-year estimate) which rises to around 200,000 at the
height of the holiday season.
2.3 Torbay and its hinterland are inter-dependent. The South
Devon Healthcare NHS Trust, centred on Torbay, includes the neighbouring
towns of Newton Abbot, Teignmouth and Totnes. It also embraces
a large tract of South Devon, as far as Dawlish to the north-east,
Dartmoor to the north and Kingsbridge to the west.
Plan 2 - Regional Spatial Strategy Diagram
[Click to see larger image in a pop-up window]
Reproduced from Regional Guidance for the South
West (RPG10 – September 2001) with permission of the Government
Office of the South West © Crown copyright. All rights reserved.
Torbay Council. Licence No. 100022695.
2.4 The travel to work and shopping patterns between Torbay’s
towns and neighbouring settlements are complex, with significant
daily trips both into and out of Torbay. The 2001 Census shows
that 53,543 people were employed within Torbay, of which around
70% were in full-time employment and 30% were part-time.
2.5 Torbay dominates tourism in South Devon; the 51,510 bed-spaces
to be found in its hotels, guest houses, holiday centres, campsites
and other forms of holiday accommodation (1999) constitute the
basis of the tourism infrastructure for the South Devon sub-region.
Torbay is both a touring centre for this wider area and as a
result of its concentration of natural and developed attractions
and facilities, it attracts holiday makers staying outside Torbay.
2.6 In several respects, Torbay is a microcosm of the South
West, enjoying many of the South West’s natural advantages,
whilst experiencing some of the Region’s classic problems.
In particular, the following features are common to both Torbay
and the South West:-
-
Peripheral location, including:-
- long distances from the main centres of population - Bristol,
the largest city in the South West, is 100 miles away
- separation from the national dual carriageway road network
and main Plymouth - Paddington railway line. Although Torbay’s
relative proximity to connections at Newton Abbot makes accessibility
less severe than for many parts of the South West, Torbay’s
local access options are however further reduced by its peninsular
location between the sea and the River Dart estuary
-
Attractive coastal environment, with implications for:-
- potential for a high quality of life
- high tourism potential
- heavy development pressure, some of which is generated
outside the region
- severe constraints on development especially in coastal
locations and in areas affected by national landscape and
wildlife designations
- the need to clean up the sea by waste water treatment,
to enhance tourism, quality of life, wildlife protection
and good stewardship
-
Declining economy in the following sectors:-
- tourism
- fishing
- agriculture
- these problems are especially acute in coastal resorts
such as Torbay, where the primary need is for regeneration
- in spite of its affluent image Torbay has one of the worst
economic profiles in the South West
-
High levels of migration, in particular:-
- pressures for family housing and retirement homes, much
of it from outside Torbay and some from outside the region,
amounting to two thirds of household growth
- many young people leave Torbay to look for work elsewhere,
leading to a ‘top heavy’ imbalanced age structure
-
Attractive climate (high sunshine, mild winters) for:-
- working
- holidaying
- retiring
- enhancing quality of life
- encouraging inward migration
The strategic agenda
2.7 The Local Plan for Torbay cannot be prepared in isolation.
In particular it has regard to:-
-
Government and European legislation and planning guidance
-
Regional Planning Guidance, including the Regional Transport
Strategy, the Regional Development Agency’s (RDA’s)
Regional Economic Strategy and the Regional Strategy for
the South West Environment 2004-2014
-
Devon Structure Plan
-
Other local strategies
2.8 In some ways the strategic agenda is set by the above considerations,
although the distribution of development and provisions for environmental
protection and management of land are matters for the Local Plan.
Therefore it is appropriate, at the outset, to acknowledge their
relevant provisions which help to establish the strategic agenda
for the Local Plan.
2.9 Government and European legislation and planning
guidance set out the national and international framework
which influences strategic options for the Local Plan. Several
key strategic themes provide a context for the determination
of the strategy and the more detailed polices and proposals
in the Local Plan. These can be summarised as follows:-
-
The concept of sustainable development has
arisen from the realisation that human activity, including
development, is increasingly damaging the environment, e.g.
global warming, loss of wildlife species and habitats, pollution,
and the eating away of finite natural resources. The aim
of sustainable development is to meet our economic, social
and environmental needs without compromising the ability
of future generations to meet their needs. An important principle
of sustainability entails adopting a precautionary approach
towards developments whose environmental impacts are uncertain.
Planning plays just one part of many in advancing the principles
of sustainable development. Individuals and locally based
initiatives are at one end of the spectrum, with national
and international legislation at the other end. The three
main strands of sustainable development can be seen to relate
to each other in Figure 2, with the maximum
sustainable quality of life resulting from the overlap of
all three strands. It should be noted that more recent definitions
refer to a fourth strand, namely the need to make prudent
use of natural resources. It is accepted that there will
be times when ‘trade-offs’ between the different
strands will be necessary. The Government’s Strategy
for sustainable development for the UK, ‘A better quality
of life’ (June 1999) sets out the long-term foundation,
nation-wide, for land use planning and transport policy.
This is discussed in greater detail in paragraphs 2.26 -
2.48 with reference to each of the four aims for sustainable
development. The Regional Strategy for the South West Environment
2004-2014 ‘Our Environment: Our Future’ will
also be a vital reference point for the development of policy
in the Local Development Framework (LDF). This is an overarching
strategy, which aims to integrate more closely the protection
of facets of the built and natural environment, and promote
local environmental quality in the decision-making process.
Figure 2: Key strands of sustainable development
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-
The Government is committed to modernising the planning
system. It stresses that participation, openness
and fairness should go hand in hand with delivering a fast
and efficient planning system which delivers the certainty
that the community and business interests need. The Government
has signalled that long delays in preparing plans will
not be tolerated. Plans should be clear, succinct and easily
understood by everyone who needs to know about their policies
and development proposals. They should not be over-detailed
but limit themselves to:-
- development and use of land
- conservation and amenity
- improvement of the physical environment
- management of traffic
-
As a maritime authority and coastal resort, the
European Waste Water Directive is especially relevant
to Torbay, which is designated as a ‘sensitive area’.
The principal thrust of this Directive is that the environment
must be protected from adverse effects of sewage discharges.
The Local Plan has to address this critical area, in order
to ensure clean seas and coastlines.
-
Government Planning Policy Guidance Notes (PPGs) cover
a wide range of subjects. These will be replaced by Planning
Policy Statements (PPSs) over the next few years under the
new planning system. The Local Plan has to consider the guidance
in the PPGs and apply it in a way which is sensitive to local
concerns. In addition to PPG12 ‘Development Plans’ (1999)
the most relevant PPGs for the Torbay Local Plan are:-
PPG1 - General policy and principles
PPG3 - Housing
PPG4 - Industrial, commercial development and small firms
PPG6 - Town centres and retail development
PPG7 - The countryside: Environmental quality and economic
and social development
PPG8 - Telecommunications
PPG9 - Nature conservation
PPG10 - Planning and waste management
PPG11 - Regional planning
PPG13 - Transport
PPG14 - Development on unstable land
PPG15 - Planning and the historic environment
PPG16 - Archaeology and planning
PPG17 - Planning for open space, sport and recreation
PPG20 - Coastal planning
PPG21 - Tourism
PPG22 - Renewable energy
PPG23 - Planning and pollution control
PPG24 - Planning and noise
PPG25 - Development and flood risk
2.10 The current Regional Planning Guidance (RPG) for
the South West - RPG10 - was approved in 2001 and sets out the
regional strategic framework to 2016. In particular, it stresses
the concept of sustainability, which is described as the cornerstone
of the Region’s development plans.
2.11 Torbay is recognised in RPG10 as one of the Region’s
eleven main urban areas. It is also recognised as a sub-regional
centre, tourist resort and fishing port, and a popular destination
for inland migration. Problems of deprivation and over-dependence
on tourism require substantial economic expansion, diversification
and regeneration measures. Improved transport links, protection
of areas of environmental importance, and avoidance of coalescence
of the three towns are identified as important issues. Enhancing
Brixham’s role as a fishing port is also supported.
2.12 In summary, Policy SS16 of RPG10 states that policies
for Torbay should:-
-
recognise the need to diversify the economic base and provide
investment in appropriate strategic facilities for the development
of the tourist industry;
-
support social and economic restructuring through regeneration,
especially in town centres and at key focal points, and bring
forward high quality development land to attract inward investment;
-
reduce the adverse effects of a peripheral location by improving
transport linkages; and
-
ensure a balanced level of development with a housing provision
that is consistent with meeting the area’s economic
objectives.
2.13 When considering the draft version of the latest RPG10,
the Panel stated that the Torbay policy is “generally satisfactory
in content” and that it “acknowledges the environmental
and transport constraints that hinder the physical expansion
of the area”. The Panel also recommended the inclusion
of the A380 Kingskerswell Bypass scheme within the RPG “to
regenerate the Torbay area”.
2.14 The Government has made it clear that in future, RPG
will be the forum to debate the Region’s housing figures
and determine these for the Region as a whole, whilst the Structure
and Local Plans will have the task of distributing that growth.
However, under the new planning system Structure Plans will be
abolished, placing greater onus on Local Plans / Local Development
Frameworks to allocate housing land to meet the need for additional
housing. The County will retain an advisory role in this process.
As part of this new system, work is underway to prepare a Regional
Spatial Strategy (RSS) which will replace RPG10, to cover the
period to 2020.
2.15 The Devon Structure Plan First Review was adopted
in February 1999 and sets the strategic framework for this Local
Plan. Following Torbay’s achievement of unitary status
in April 1998, it has been one of four authorities charged with
progressing the Devon Structure Plan. The emerging Structure
Plan for 2001-2016 is expected to be adopted in Summer/Autumn
2004, i.e. after the adoption of the Local Plan.
2.16 The Structure Plan First Review sets out some important
strategic principles and development provision. In the first
instance, the RPG10 dwelling target for Devon - 99,000 dwellings
over the 20 years from 1991 to 2011 - was not accepted and following
extensive debate at the Examination in Public in September/October
1997, this was reduced, primarily based on environmental constraints,
particularly in South Devon.
2.17 The constrained housing provision for Devon in the
adopted Structure Plan is about 75,800 dwellings compared with
the RPG target of 83,000 dwellings over the reduced period of
1995-2011. Torbay’s total is set at 6,200 dwellings. The
Structure Plan’s employment provision is for about 755
hectares in Devon, with the Torbay total at 70 hectares. It also
includes prestige sites in the Exeter and Plymouth areas and
in Torbay.
2.18 The strategic planning framework in the Structure
Plan, as illustrated by Plan 3, includes the following principles:-
-
accommodating the bulk of new development in the main urban
areas, including Torbay - also a corridor extending from
north of Newton Abbot through Torquay to Paignton has been
defined as one of the four main areas of economic activity
in Devon
-
minimising the development of greenfield sites, with an
emphasis on brownfield development
-
providing adequate infrastructure as an essential requirement
of new development
-
enhancing distinctive landscapes and townscapes and strongly
protecting nationally designated areas, e.g. AONB, SSSIs,
National Nature Reserves; County and Local Wildlife sites
and important geological sites; also protecting AGLV and
coast
-
urban regeneration and conservation are key themes
-
policies to conserve energy, water and land resources and
reduce air and noise pollution
-
sustainable public transport, including land use/transport
integration, increase use of railways, park and ride and
a limited number of highway schemes, including the A380 Kingskerswell
Bypass and improvements in the Torbay Ring Road
-
development of Brixham as a fishing port
-
protection of the main tourist areas in coastal resorts
and provision of appropriate new accommodation facilities
-
two new communities, within the Plymouth and Exeter areas
of influence
Plan 3: Devon Strategy Diagram
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Source: Devon County Council.
Devon Structure Plan First Review - 1995 to 2011.
Explanatory Memorandum (July 1999).
Other local strategies
2.19 Since the granting of unitary status in April 1998,
the Council has embarked on a range of new strategies, both statutory
and discretionary. Many of these have land use implications for
which the Local Plan has to both provide a strategic lead and
also take on board, in order to facilitate the Council’s
corporate aspirations.
Issues the Local Plan has to address
2.20 The Local Plan has to address the various problems
and challenges faced by Torbay in the context of the strategic
agenda outlined in paragraphs 2.7 - 2.19. The principal issues
are:-
-
The Big Picture
The community needs to determine what sort of place it wishes
Torbay to become and the Local Plan has a key role in setting
a framework for this to happen. Torbay has the opportunity
to play its part as one of the principal urban areas in the
South West and go for selected development; or it could opt
for a more passive position with minimal growth or ‘managed
retreat’. The danger of the latter course of action
is that, whilst it may appeal to those who oppose change
and to some environmentalists, failure to meet the area’s
social and economic needs and Structure Plan provision means
that a number of peripheral sites could be vulnerable to
development on appeal. The unplanned, appeal-led growth would
be less likely to generate the resources which could accrue
if the Council, through the Local Plan, set out its strategy
in a clear way and laid the foundation for UK, European and
private sector funding.
In reality, zero outward growth is not a realistic option,
despite recent emphasis on brownfield development. The choice
is between plan-led or appeal-led development.
-
Respecting Environmental Limits
Another key issue is deciding how to allow for development
to meet Torbay’s needs without causing an unacceptable
impact. Has Torbay reached the limit of its ‘natural’ boundaries?
Clearly the sea is an absolute constraint, with the exception
perhaps of limited land reclamation. But what of the land
area? The countryside between the Dart estuary and the coast
is an Area of Outstanding Natural Beauty (AONB), a nationally
important designation which the Local Plan cannot change.
The Coastal Preservation Area, which protects the coastline
north of Torquay and into Teignbridge, recognises a unique
asset which we need to hand on to future generations.
Torbay’s importance for biodiversity is reflected
in the range of sites protected by national and local designations,
including SSSIs and County Wildlife Sites. In addition, Torbay
contains habitats of protected species, including cirl buntings,
which extend beyond designated sites. Where development affecting
areas of biodiversity is unavoidable, any adverse effect
on the nature conservation interest must be minimised. Ideally,
policies should encourage the enhancement of the natural
environment.
What of the remaining countryside? Most of it is locally
designated as an Area of Great Landscape Value (AGLV) and
it has been reviewed as part of the Local Plan preparation.
Whilst the Plan recommends, on the basis of this review,
that most of the AGLV remains and some additional areas of
countryside are included as AGLV for the first time, a few
small peripheral areas are identified as areas where urban
development could be accommodated without causing an unacceptable
impact.
It is equally important to consider the scope for development
within the urban areas; this has been done through the Urban
Housing Potential Study and a similar process has been undertaken
to identify sites for employment areas, schools, retailing
and other developments which are necessary for Torbay’s
future. However, it is also vital to protect and enhance
urban amenities and not over-concentrate new development
in urban areas to the extent that town cramming occurs. The
importance of urban green spaces should be recognised in
terms of their contribution to the quality of life for urban
dwellers.
-
Enhancing quality of life
If the Local Plan does not set a framework for enhancing
the quality of life for everyone who lives, works and visits
Torbay, the Plan will have failed. In particular, the Local
Plan needs to address:-
- the provision of decent housing ‘across the board’,
including sites for the provision of sufficient levels of
affordable housing in line with the proven high-level of
housing need in the Bay, including an appropriate range of
housing to attract the business community and inward investment.
As a community, Torbay has a wide expectation of housing
needs, which need to be met;
- the need to secure full employment, including permanent,
full-time jobs which will lead to a real increase in prosperity
for Torbay’s residents. The views of Torbay’s
residents, as expressed through the 1,000 strong Viewpoint
panel, show extreme pessimism about employment opportunities
in Torbay. In particular, they feel that job opportunities
for young people are limited and that there are not enough
permanent jobs in Torbay. They overwhelmingly agree with
the Council’s aim to improve and broaden the economic
base of the area. This encompasses a thriving tourism industry,
diversification into an environmentally friendly manufacturing
and business/research sector, a strong retail sector and
strategic improvements to the port at Brixham;
- the need for adequate facilities in health, education,
sport, leisure, recreation, culture and community sectors;
- the need to recognise the wider determinants of health
and well-being including economic factors, lifestyle, environment,
crime and disorder, accident reduction and road safety;
- the need to clean up the sea and reduce air pollution,
traffic intrusion and danger, especially in residential areas;
and
- the need to ensure that the town centres and other focal
points are safe, attractive and vibrant.
-
Improving accessibility and ease of movement
- whilst congestion levels in Torbay are quite low in relation
to many large urban areas and other more prosperous parts
of Britain, such as the South East, there are concerns that
need to be addressed, as well as real opportunities for the
introduction of sustainable transport solutions
- a key issue is how to plan in such a way that firstly,
people will not have to travel as much and secondly, when
they do travel, walking, cycling and other alternatives to
the car will come more naturally to them. Most of Torbay’s
trips are local and the solutions will therefore involve
travel plans, cycleways, footpaths and local safety schemes,
much of which is addressed in greater detail in the Local
Transport Plan (2000)
- however, some schemes may be needed which involve a greater
investment in infrastructure. The role of the rail network
needs to be considered and the main road bottlenecks, such
as the Kingskerswell Corridor, Western Corridor and Coast
Route, need to be assessed holistically. Some of the review
work has already been carried out and more is in the pipeline.
In particular, we need to know whether existing bottlenecks
are - or should be - brakes to new development on congestion
and safety grounds. Improving access to and within town centres
and focal points, especially for pedestrians, is another
key issue for the Local Plan to address.
The Local Plan Strategy
2.21 The strategic aim of the Local Plan is ambitious -
it is to provide for sustainable development that meets people’s
needs without harming the environment. It also sets out a resource
management framework for Torbay which sits within and reflects
appropriate European, national, regional and structure plan policy.
2.22 In essence, this means that the strategy should be
capable of delivering the development that Torbay needs, in order
to ensure that existing and future residents have access to satisfactory
housing, employment, shopping, leisure and other community facilities;
that its statutory obligations in relation to education, transportation
and waste disposal are satisfactorily discharged; and that other
essential aspects of quality of life, such as outdoor recreation
and health care are not unduly hindered by the planning process.
2.23 It is of equal importance that the strategy should
ensure that the most valuable aspects of Torbay’s environment,
such as the sea, the coastline, the areas of highest quality
landscape and bio-diversity, and the most attractive and historic
parts of our towns and villages, should be conserved and protected
from inappropriate and harmful development. At the same time,
the strategy should seek to enhance all areas, but perhaps especially
those which are run down and in danger of becoming eyesores.
In addition, it should support those ‘flagship’ areas
which are the key focal points of our community, where enhancement
could lead to significant environmental, economic and community
benefits for everyone.
2.24 Inevitably, conflicts will arise in a community such
as Torbay, with its wide range of needs and potential community
agendas and opportunities, set in an extremely attractive environment,
in which almost all outward growth will affect at least one environmental
designation. The strategy, therefore, in addition to meeting
legitimate development needs and conserving the environment,
should set a framework where potential conflicts are minimised.
This should provide a framework of certainty in which investment
decisions and the proper development and management of land and
resources can take place without undue hindrance.
2.25 In providing a sustainable land use framework, the
strategy is based on the following principles, based on the Government’s ‘Sustainability
Counts’ Policy Statement (November 1998), which is reinforced
by the ‘A better quality of life’ policy statement
(June 1999):-
-
maintenance of high and stable levels of economic growth
and employment
-
social progress which recognises the needs of everyone
-
effective protection of the environment
-
prudent use of natural resources
Maintenance of high and stable levels of economic
growth and employment
2.26 There is an urgent need to respond to Torbay’s
serious economic problems. The Local Plan therefore makes provision
for a wide range or employment sites throughout Torbay. Where
possible, small business areas and employment sites are identified
in urban areas.
2.27 However, it is necessary to identify some greenfield
land within Torquay and Paignton for employment; the area in
Paignton has been reduced from the area included in the Local
Plan Consultation Draft (July 1996), following the AGLV review
and, as a result, the Local Plan employment land provision falls
short of the Structure Plan provision (70 hectares) by around
7.9 hectares (1999 figures). The reduced provision includes an
allocation for a prestige business park to attract inward investment.
2.28 Provision for new tourism facilities to strengthen
Torbay’s key industry is considered to be essential. The
Local Plan proposes regeneration of Torquay and Brixham waterfront
and harbourside areas. The tourism facilities proposed at Beacon
Quay have now been completed and land is identified for the expansion
of Paignton Zoo at Paignton. It is also vital to secure the protection
of the ‘shop window’ holiday areas from uses which
could undermine Torbay’s pre-eminence as a tourist resort.
However, it is not intended to perpetuate an over-supply of holiday
accommodation, particularly where this is sub-standard. To avoid
this, the Principal Holiday Accommodation Areas have been reduced
in size following a review of their extent, function and character.
2.29 There is a need to improve road and rail access to
the national route network, including overcoming the congestion
bottleneck through Kingskerswell, to the north-west of Torquay.
The Local Plan also sets a framework for improving access within
Torbay through a combination of integrated transport measures
and the careful planning of land uses in relation to transport.
Sustainable transport includes the need to encourage realistic
alternatives to the car, and to increase safety and reduce environmental
impact of existing and proposed transport links.
Social progress which recognises the needs
of everyone
2.30 Social inclusion is vital and it is therefore important
for the Local Plan to address the needs of all sections of the
community. In particular, the needs of vulnerable sections, including
the young, the elderly, the unemployed and those requiring affordable
housing have to be addressed. Significant under-provision of
the overall housing allocation will push up the value of development
land and make the delivery of affordable housing more difficult.
2.31 Affordable housing proposals are included in the Local
Plan. It is important to ensure a wide distribution of affordable
housing which is fully integrated into the urban scene. The strategy
makes provision for this and includes a significant proportion
of the new stock in the inner urban areas, although it is accepted
that some greenfield development will make an important contribution,
provided it is well-related to public transport, schools and
other community facilities.
2.32 It is important to ensure the development of mixed
communities, with the appropriate provision of social as well
as physical infrastructure. Policies to ensure appropriate developer
contributions for schools and other facilities are included in
the Plan. Community facilities should be viewed as an integral
part of the Local Plan and not as ‘add ons’ to be
considered at a later date.
2.33 Social and economic regeneration is critical to the
resort’s well being. It includes major educational projects,
town centre enhancement, and small business areas. The Council
is seeking to set a policy framework for meeting social and economic
needs in Torbay through initiatives such as Safer Communities
Torbay and the Community Safety Strategy. The Groundwork Trust,
in partnership with the Council, works closely with local communities
on projects to improve their social and physical environment.
Effective protection of the environment
2.34 Torbay’s environment is universally regarded
as being of the highest quality. Its magnificent coastal setting
is unique and it is protected by several environmental designations.
2.35 The Area of Outstanding Natural Beauty (AONB) is a
nationally designated policy which now has equal status to National
Parks in terms of landscape value. Apart from a small area on
the fringe of Brixham, much of which has been built on several
decades ago, the strategy is to ensure its protection. It is
also important to ensure that new development outside the AONB
should not adversely impact on the AONB, and this is perhaps
of particular importance in relation to the Dart Valley, to the
west of Torbay.
2.36 Berry Head is protected under European legislation
because of its unique grassland community. It is part of the
candidate South Hams Special Area of Conservation (SAC), a designation
made under the EU Habitat Directive 92/43 intended to conserve
natural habitats, fauna and flora, in particular the Greater
Horseshoe Bat. Prior to designation, sites will be known as “sites
of community importance” and should be treated as designated
SACS. Berry Head to Sharkham Point is also a Site of Special
Scientific Interest (SSSI).
2.37 Berry Head is also of recognised national importance,
being a designated National Nature Reserve (NNR).
2.38 The Coastal Protection Area (CPA) is a locally designated
policy, but there is increasing recognition that Torbay’s
coastline is a unique asset; the strategy protects the undeveloped
sections from development; the converse to this is make provision
for waterfront and tourism developments within the urban area.
2.39 The remainder of the countryside is affected by local
landscape protection policies, primarily Areas of Great Landscape
Value (AGLV). This has recently been reviewed and overall AGLV
coverage is now greater as a result of the review. AGLV is not
a policy which necessarily excludes all forms of development,
and the strategy seeks to afford some of these areas additional
protection for two reasons:-
-
the valley system, which includes Cockington Country Park,
is seen as a vital green lung within Torbay and has its own
unique environment, which merits strict protection from development
which is not specifically geared to enhancing the attractions
of the park
-
Occombe Heritage Farm, with its SSSI and coastward extension
to Preston Park, is another important green lung, with potential
for increased public access
2.40 The desirability of keeping open areas between the
main towns and villages, for townscape reasons and to reinforce
their separate identities, is the basis for the Countryside Zone
designation; however, it should be stressed that the Countryside
Zone is not a statutory green belt and opportunities may well
arise where some parts of this designation could be developed
without sacrificing the overall strategic thrust of the Countryside
Zone.
2.41 It is not seen as desirable to allow residential development
to the west of the Ring Road; the Great Parks development was
planned for at a time when Stage 3 of the Ring Road was generally
accepted as a realistic alternative to the current, substandard
road, and a scheme was in the TPP (now Local Transport Plan).
The solutions to the problems of the Kings Ash Road section of
the Ring Road are now subject to further analysis and debate;
however, the basic principle remains that congestion in the area
needs to be addressed, especially on Kings Ash Hill. In addition,
the impact of a major highway on safety and the environment within
the local community also needs to be addressed. Residential development
would certainly be resisted on all other sections to the west
of the Ring Road, such as in the vicinity of Galmpton.
2.42 Torbay’s urban areas also contain environments
which merit protection for a number of reasons:-
-
the vast majority of the population live in the urban areas
- the urban areas are their living, working, educational,
shopping and leisure environments; urban amenities, involving
open spaces and facilities, need to be safeguarded, although
it is clearly recognised that there is some development potential
and a balance has to be struck
-
certain parts of the urban environment have an intrinsic
quality, based on townscape, wildlife, (including protected
sites and species) recreational or amenity considerations,
and which is worthy of protection for its own sake
2.43 The strategy aims to locate as much development on
previously used or ‘brownfield’ land within the urban
areas as is practicably possible, without causing environmental
problems through over-development or town cramming. The windfall
potential, based on the Urban Housing Potential Study together
with larger urban sites identified as Local Plan housing proposals,
has enabled around 65% of Torbay’s housing provision for
the Plan period to be implemented on previously used sites. This
is in excess of the Government’s target of 60% and the
South West regional target of 50%.
Prudent use of natural resources
2.44 One of the greatest natural resources in and around
Torbay - if not the greatest - is the sea. Society’s tolerance
concerning use of the sea as a repository for untreated waste
is running out. Moreover, it is vital that Torbay’s success
as a holiday resort - and hence success for a huge section of
its economy - is not hampered by a polluted sea and dirty beaches.
There are also significant public health issues at stake. A key
element in Torbay’s strategy is the new combined waste
water treatment works, which is intended to ensure that the current
system of untreated waste being discharged into the sea becomes
history well within the Plan period.
2.45 The strategy of meeting Torbay’s needs for employment,
shopping and other facilities within the Council’s area
and, where possible, close to housing areas, will reduce the
need to travel and thereby reduce the consumption of fuel for,
and pollution from, transport.
2.46 The strategy also aims to encourage a modal shift
from the current high level of dependence on the private car
to alternative forms of transport. This again will reduce fuel
consumption and pollution if the strategy is successful.
2.47 Torbay has important terrestrial resources; attractive
coastal and inland countryside which is a major factor in drawing
people to the resort; important wildlife resources - Torbay is
one of the most diverse parts of the country according to English
Nature; and high quality agricultural land. Torbay also contains
internationally important geology and archaeology. The strategy
aims to protect these areas from development and seeks their
enhancement where possible. Planning agreements may be appropriate
to achieve nature conservation objectives.
Difficult choices
2.48 In addressing the diverse aspects of sustainable development
described above, difficult choices have to be made. Whilst the
Local Plan generally constrains development in relation to demand
on environmental grounds, there are two main exceptions on social
and economic grounds:-
-
the provision for affordable housing is in line with the
recommendation of the housing needs survey and it is essential
to ensure that market pressures do not divert the Plan off
course; conversely overall housing provision in the Structure
and Local Plan is constrained at around 17% below the demographically
implied provision; and
-
the provision of employment land, which at 62.10 hectares
is about 11% below the Structure Plan requirement.
The Local Plan objectives
2.49 Arising from the strategy, a set of objectives has
emerged. These are useful in providing a basis for the environmental
appraisal of the Local Plan, which has been prepared alongside
the formulation of the Local Plan policies and proposals.
2.50 These Local Plan objectives are set out in Figure
3:-
Figure 3: Strategic statement, aims and objectives
of the Local Plan
STRATEGIC STATEMENT
The Local Plan aims to achieve sustainable development that
meets the housing, social and economic needs of everyone whilst
respecting and protecting the rural, urban, marine and global
environment. In this context the Local Plan seeks to provide
a framework for a constrained level of growth within the context
of sustainability set out in the Devon Structure Plan, Regional
Planning Guidance and Government policy advice.
AIM 1: CONSERVATION OF THE ENVIRONMENT
To ensure that the high quality and diversity of Torbay’s
urban, rural and marine environment is conserved and enhanced
for the benefit of existing and future generations.
Objectives:-
1. To secure a sustainable environment for
the benefit of existing and future generations.
2. To protect areas of significant wildlife
and landscape value from pressure arising from built development,
visitors or other sources.
3. To protect the best and most versatile agricultural
land and encourage appropriate forms of diversification in the
use of lower quality agricultural land, where this would not
adversely affect its wildlife value, including the retention
of an agriculturally viable urban fringe.
4. To retain the separate identities of the
Bay’s main towns and villages and contain as much new development
as possible within the existing urban areas.
5. To conserve and enhance areas and buildings
of architectural and historic interest.
6. To restore unused, degraded and derelict
land to beneficial use.
7. To ensure that new development makes a positive
contribution to its surroundings and in particular to respect
and enhance natural features where possible.
8. To limit urban growth to what is necessary
to meet the needs of Torbay and in particular to ensure that
no new major residential development is permitted to the west
of the Ring Road.
9. To conserve, manage and enhance the natural
features, wildlife and habitats of the terrestrial and marine
environment for the benefit of current and future generations.
AIM 2: MEETING THE AREA’S HOUSING NEEDS
To provide for an appropriate range of housing to meet the needs
of residents.
Objectives:-
1. To offer everyone the opportunity of a decent
home and promote social cohesion, well-being and self-dependence
by providing a choice of house types, densities and locations.
2. To maximise the re-use of previously developed
land and buildings and encourage the retention of older housing
stock, as part of a sequential approach of land development to
assist regeneration, minimise greenfield development and help
reduce the need to travel.
3. To ensure the provision of affordable housing
including starter homes, social housing and other specialised
accommodation to meet the requirements of residents, including
those who would not be provided for by the open market.
4. To require a high standard of design and
layout, which provides safe and secure accommodation and meets
the requirements of vulnerable groups.
5. To protect residential amenity by resisting
inappropriate development in residential areas.
6. To ensure the provision of appropriate levels
of open space and the provision of social and physical infrastructure.
AIM 3: IMPROVING ECONOMIC PROSPERITY
To provide the land use framework in which economic prosperity
and the employment prospects of the workforce can be developed
and improved.
Objectives:-
1. To provide an appropriate level of employment
land in accordance with the Structure Plan.
2. To provide for the economic diversification
of the local economy from an over-reliance of tourism to include
office and commercial development, new technology businesses
and appropriately sited business parks, in addition to sites
for light industry.
3. To ensure that the maximum potential is
secured from designated employment land and to safeguard both
existing and proposed employment land and buildings from other
uses.
4. To provide for the future of the tourism
industry, sustaining the essential base of the tourism infrastructure
and ensuring adequate protection of existing hotel stock and
other forms of holiday accommodation from change to inappropriate
uses, especially within the main ‘shop window’ areas.
5. To allow for the loss of holiday accommodation
in premises which are no longer viable or practicable for continued
holiday use, and which are inappropriately located, and to support
appropriate changes of use of such accommodation.
6. To sustain and enhance the three town centres
as the dominant shopping centres and commercial focal points
by a range of improvements to their retail role and services
and by ensuring they are not undermined by new shopping provision
elsewhere.
7. To support the needs of the fishing industry,
in a sustainable manner.
8. To secure satisfactory infrastructure and
good road access to serve existing and proposed employment sites.
9. To provide a framework to optimise the benefit
from regional assistance and other grants.
10. To recognise the contribution that a high
quality natural environment makes to the economy of Torbay, including
the agricultural and environmental value of the urban fringe.
AIM 4: IMPROVING THE QUALITY OF LIFE AND LEVELS OF SERVICE
To ensure that everyone, including disadvantaged and minority
groups, living and working in Torbay in addition to visitors,
has access to a range of services and facilities which will improve
the quality of life.
Objectives:-
1. To ensure adequate education, health, social,
religious and other community facilities to meet the needs of
Torbay’s population.
2. To encourage provision of facilities for
people with special needs, particularly the elderly, the disabled,
single parent families, ‘care in the community’ groups
and other special needs groups.
3. To ensure that the impact of new development
does not prejudice the amenities of adjoining residents.
4. To identify a range of initiatives and procedures
which can be used to implement the ‘Designing Out Crime’ concept,
to secure crime prevention.
5. To secure adequate leisure and recreation
facilities to serve the needs of Torbay’s population and
improve access to the countryside and areas of high quality environment.
6. To improve the quality of Torbay’s
beaches and coastal zones, including (where appropriate) securing
better access and providing for competing demands for water sports
in a safe environment.
AIM 5: A SAFE AND CONVENIENT TRANSPORT SYSTEM
To secure an integrated transport system which encourages the
safe and convenient movement of people and goods and reduces
the dependence on motor vehicles.
Objectives:-
1. To improve accessibility, for all sectors
of the community and visitors to Torbay, to goods, services and
employment, particularly the town centres and other focal points,
including safe routes for access to and from the countryside
around Torbay.
2. To reduce the environmental impact of travelling
to an acceptable level, whilst maintaining adequate accessibility
and mobility.
3. To secure improved integration between transport
and land use.
4. To ensure that new development does not
cause unacceptable congestion.
5. To support public transport, and to seek
integration with the private car through schemes such as park
and ride.
6. To ensure the satisfactory provision of
off-street parking space especially in town centres and key holiday
areas.
7. To maintain and improve the existing highway
network to provide the maximum efficiency of use whilst reducing
congestion, accidents and environmental impact.
8. To encourage cycling and walking, through
the provision of attractive networks of footpaths and cycle routes
and the reduction of conflicts with motor vehicles.
9. To ensure movement of freight is adequately
controlled and suitable provision made so that penetration of
lorries and commercial vehicles into residential areas, pedestrian
zones and focal points can be achieved without unacceptable environmental
consequences.
10. To improve conditions for pedestrians in
residential areas, town centres and other concentrations of pedestrian
activity.
11. To seek to reduce pollution from vehicles in pursuit
of Aim 6.
AIM 6: ENERGY CONSERVATION AND GLOBAL WARMING
To promote the conservation of energy and the reduction of levels
of pollution as a commitment towards reducing global warming.
Objectives:-
1. To encourage development in locations which
reduce the need for car journeys and the distance driven, or
which permit the choice of more energy efficient public transport,
cycling or walking, as alternatives to the private car.
2. To encourage development which:-
(i) makes full and effective use of land in urban areas;
(ii) is well related to the public transport network;
(iii) attracts trips to town centres and other nodal points,
and;
(iv) minimises car use for journeys to work, school and other
local facilities.
3. To encourage:-
(i) control of the location of further town centre parking;
(ii) appropriate inter-change facilities between major public
transport networks; and
(iii) facilities to assist walking and cycling.
1. To encourage the conservation of energy
and natural resources in the design and construction of buildings.
Recognition should also be given to the benefit of retaining
older buildings which represent a considerable investment of
resources as well as preserving the character of Torbay.
AIM 7: PROVISION OF A SATISFACTORY INFRASTRUCTURE
To ensure the provision of a satisfactory and sustainable infrastructure
to serve the development needs of Torbay and to reduce terrestrial
and marine pollution to an acceptable level.
Objectives:-
1. To establish a framework which allows for
developer contributions to ensure the provision of adequate physical
infrastructure, including off-site works to serve the expected
increase in population and commercial and industrial development.
2. In the event of shortfalls in water supply,
sewerage and sewage treatment, to phase development to allow
proper time to ensure that the provision of these utilities can
be managed and/or augmented in a satisfactory manner.
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