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HOW TO READ THIS DOCUMENT
The Scottish Borders Structure Plan was approved by Scottish Ministers in
September 2002. In June 2006 the Scottish Borders Council agreed to prepare an
Alteration to the Plan focused on housing policies. This recognised the policy
requirements of the approved Structure Plan, and the increase in population and
household projections and progress on the Waverley railway line since then.
This Structure Plan Alteration is structured as follows:Chapter 1: Development Strategy is presented as the original chapter with a series
of update boxes where appropriate.
Chapter 4: Housing is presented as a full replacement for the originally approved
chapter.
Chapter 7: Implementation & Monitoring is presented as the original chapter with
a series of update boxes where appropriate.
The Structure Plan Alteration is supported by a Report of Survey, and also by an
Environmental Report as required by the Environmental Assessment (Scotland) Act
2005.
CHAPTER 1 THE DEVELOPMENT STRATEGY
Introduction
1.1
This document is the Final Written Statement of the Scottish Borders
Structure Plan. It has been submitted to the First Minister for approval. The Plan has
been prepared following a Consultative Draft stage, carried out in late 1998 and early
1999. A separate Publicity and Consultation statement describes the consultative
process. Many elements of the Draft Plan have been incorporated into this final
version taking account of the comments received and the focus of the strategy is
sharper, reflecting the stage which the Plan has now reached. Account has also
been taken of the impact of a number of significant events including: the preparation
of the Economic Development Strategy; the positive outcome of the feasibility study
into the re-opening of the Waverley rail line; the study into the impact of the farming
crisis and Agenda 2000; and the influence of a dynamic economy and property
market in Edinburgh.
Update: This Structure Plan Alteration on housing policy is being prepared. The
Alteration is in accord with policies H1 and H1A of the approved Structure Plan.
The Importance of the Structure Plan
1.2
The Structure Plan and the Local Plans together form the Development Plan
for the Scottish Borders. The Structure Plan sets out the strategic policy framework
and the Local Plans supply the site specific detail and more local policies and
proposals.
The Development Plan should provide:
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a strategy to guide the location of development for 10 to 15 years
firm guidance on the future use of land and pattern of development for the first
5 years of the plan
the incentive of identified opportunities for development and redevelopment
policies and proposals that provide a sound basis for development control
ways to conserve and enhance the urban and rural environment and protect
the diversity of the natural and cultural heritage
priorities for implementation.
Update: The Structure Plan Alteration incorporates the latest guidance relating to
the Development Plan horizon for housing development as set out in the Scottish
Planning Policy 3 ‘Planning for Housing’.
1.3
The Development Plan therefore provides the basis for decisions on planning
applications. It is also important for other reasons, in particular:
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in helping to provide some measure of certainty for the public, landowners
and developers as to the future pattern of development and use of land
in safeguarding land for development or infrastructure
in providing a mechanism with statutory force for the local authority to put
forward its aims and aspirations as they relate to land use and development.
Government advice also highlights the important contribution that Development
Plans can make in moving towards achieving sustainable development. They are
identified as forming important bridges between the broad aims of sustainable
development and decisions on the use of land and buildings.
1.4
The Structure Plan provides an important link between national policy and
guidance on the one hand and the site specific land allocations and policies of Local
Plans and the context for development control on the other. This Plan has been
prepared in accordance with the Government’s National Planning Policy Guidelines
(NPPGs), which are referred to where relevant in the topic chapters. In turn, national
policy is increasingly being guided by European Community legislation, particularly in
the form of EC Directives and in the planning context, by the European Spatial
Development Perspective. The European Union also continues to provide an
important source of funding under its various objectives and programmes.
Update: The Structure Plan Alteration is informed by Scottish Planning Policy
includes particular reference to SPP3 ‘Planning for Housing’ and SPP15 ‘Rural
Development’ which have been produced by the Scottish Government Executive
since the preparation of the original Structure Plan.
1.5
Although the Structure Plan is primarily concerned with strategic land use and
transportation issues, its provisions have social and economic as well as
environmental impacts. It is therefore a key component of the New Ways Community
Plan. At the same time it has links with many other Council plans.
1.6
Finally, the Structure Plan recognises the cross border links with adjoining
regions which are a major influence on the development strategy. The influence of
Edinburgh is particularly significant although Berwick-upon-Tweed, Newcastle and
Carlisle are also important to the Eastern and Southern Borders. The Scottish
Borders and Dumfries and Galloway together form the unit known as ‘South of
Scotland’ for the purpose of European funding support.
Trends and Opportunities
1.7
The economy of the Scottish Borders has, over a long period and particularly
since the 1980s, been experiencing the effects of structural employment change.
Reliance on agriculture, textiles and more recently electronics has meant that job
losses in these sectors have caused significant social and economic difficulties for
the affected communities. Whilst the Scottish Borders as a whole has historically had
low rates of unemployment by national standards, the rates have converged since
the mid-1990s as the UK rates have fallen due to employment growth. Furthermore,
concealed within the average figure for the Scottish Borders are particular skill
shortages and significant and persistent pockets of unemployment in specific
locations.
1.8
The Scottish Borders Gross Domestic Product (GDP) remains below the
Scottish, UK and European averages and allied to this is an average weekly
earnings structure that places the Scottish Borders some 20% below the UK
average. This is largely due to the over-dependence on agriculture and
manufacturing and the under-representation of the service sector.
1.9
Travel to work data suggests a considerable dependence on Edinburgh and
the Lothians for jobs, particularly by residents living in the northern part of the
Scottish Borders. Proximity to the capital does, however, offer opportunities for the
future. There are also flows into and across the region for work.
1.10 The most significant trend likely to affect employment in the Scottish Borders
is the projected growth of jobs in Edinburgh-the development of the south-east
wedge of the city is particularly relevant in terms of proximity. The indications are
that labour supply will have to be drawn from a wide area and that housing provision
for employees may not be able to be accommodated within the city. It is therefore
likely that the Scottish Borders will be able to take advantage of Edinburgh job
opportunities in terms of accommodating development pressure for housing and
employment. In this way the Scottish Borders could successfully play its part in a
regional strategy for south east Scotland which spreads the location of jobs as well
as commuter housing.
1.11 Allied to the predicted employment growth in Edinburgh are opportunities to
diversify the local economy and strengthen indigenous firms as well as attracting
new employers. The Economic Development Strategy aims to manage change in
ways that will create a vibrant and competitive local economy.
1.12 The population of the Scottish Borders has been increasing since reaching
its lowest level in the early 1970s. Between 1981 and 1991 the population increased
by around 4,200 or 4.3% and, since 1991, more slowly - from 104,100 in 1991 to
106,400 in 1999. The general pattern of population growth since the early 1970's has
been sustained by net in-migration which offsets the net natural decrease, i.e. deaths
exceeding births.
Update: The 2001 Census shows a population of 106800 in the Scottish Borders,
an increase of 3% since 1991.
1.13 In comparison with the Scottish average, the population structure of the
Scottish Borders is weighted towards the older age groups and this pattern is
anticipated to continue. The proportion of the population over retirement age was
22% in 1999 and this is projected to rise to 25% by 2011. The changing age
structure of the population is particularly influenced by the age structure of the
migration flows, with more young people moving out.
Update: The 2004-based General Register Office for Scotland projections show
that between 2004 and 2024, population is expected to increase by 15% from
109,000 to 126,000. The proportion of population over 64 years of age is to rise
from 22% to 26%.
1.14 In line with Scottish and UK trends, the level of household growth (+4,400)
between 1999 and 2011 is projected to be far greater than the population growth
(+730). The increase in the number of households stems principally from the national
trends associated with reducing household size. These trends include increasing
numbers of single person households, people living longer and household break-up
as a result, for example, of increasing rates of divorce.
Update: Household growth in the Scottish Borders is projected by the General
Register Office for Scotland. The number of households is projected to increase
by 11,100 (23%) up to 60,000 between 2004 and 2024. This compares to the
projected population growth over the same period of 16,300 (15%).
1.15 Population and household projections generated by the Government are
based on a continuation of past trends. In the case of the Scottish Borders these
trends are pointing towards a slowing of the growth rate over time, mainly due to
reduced net in-migration. The trend reflects a number of factors including the
reduction in employment and the availability of alternative locations for commuter
housing in the Lothians and Fife. The Structure Plan Development Strategy seeks to
slow these trends and, over time, to reverse them.
Update: Migration is an important factor within the Scottish Borders. Between
2001 and 2006 the total net in-migration has been estimated by the General
Register Office for Scotland at 4700.
The New Ways Community Plan
1.14 The Structure Plan will play an important role in implementing the New Ways
Community Plan. The Community Plan aims to link social, economic and
environmental action to enhance the quality of life: all underpinned by the principles
of sustainable development. The Economic Development Strategy focuses on four
interconnected themes: getting people to their full potential; thriving organisations; a
connected place; and vibrant communities. The community planning process,
supported by the three corporate policy pillars of economic, environmental and social
and health strategies, is helping to drive a change in perceptions about the Scottish
Borders, both within and outwith the region. This, coupled with the opportunities
offered by the growth in Edinburgh employment, a Scottish Borders railway link and
the expansion of local university and health facilities, offers the real prospect of
increasing employment and population.
1.15 The role of the Structure Plan in fostering this climate of change is to promote
a development strategy which promotes sustainability principles, has the best
chance of long lasting success and which recognises and builds on the unique
character of the Scottish Borders and its individual communities. The preferred
development strategy is set out in the next section.
The Development Strategy
1.16
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The Development Strategy is in four parts:
Principal Aim of the Structure Plan
Key Elements of the Strategy
Founding Principles
Area Strategies.
The four parts are complementary and therefore need to be read together to give a
complete picture of the strategy. The Key Diagram (rear cover) illustrates the main
aspects of the strategy and complements the text.
Principal Aim of the Structure Plan
1.17 The Structure Plan represents one of the first opportunities in the Scottish
Borders for the principles of 'sustainability' to be incorporated into a key policy
document. There are many different definitions of sustainability - or sustainable
development - but one of the most commonly used definitions is:
“Sustainable development is development which meets the needs of the present
without compromising the ability of future generations to meet their own needs”.
Brundtland Commission, 1987
1.18 Sustainability is not just about environmental issues; rather it is an approach
which aims to integrate economic, social and environmental considerations in the
pursuit of global environmental goals. In doing so, it has the potential to enhance the
quality of life locally as well as the quality of the environment. It is also a powerful
tool to address the Government's objectives to achieve social inclusion and greater
equality of opportunity. With its emphasis on quality of life, the promotion of
sustainability can play an important role in enhancing the image of the Scottish
Borders to investors and visitors.
1.19 Given the range of issues that sustainability must necessarily address, it is
clear that progress will depend on the combined efforts of existing and future
partnerships, a common co-ordinated approach and the integration of policy on a
broad front. The New Ways Community Planning process will be an important
mechanism to achieve such an approach. The Council’s approach to sustainability is
embodied in its Corporate Plan, encompassing the Economic Strategy New Ways,
Social and Health Strategy and Environmental Strategy.
1.20 The Structure Plan as the Council's strategic land use document can play a
vital part in addressing many aspects of sustainability. In particular, it can guide
development to the most sustainable locations. Such locations should, as far as
possible:
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take account of the views of the community
offer a choice of transport modes and minimise the need to travel
complement other land uses
avoid unacceptable environmental impacts
make the best use of resources such as land and infrastructure.
1.21 It is recognised that neither the Scottish Borders as a whole, nor individual
communities, can become completely self-sufficient. However, moving in the
directions just described could make a major contribution towards the reduction of
the Borders’ dependence on jobs, services and facilities outwith the area and thus
help to achieve more sustainable communities. At the present time it is
acknowledged that communities such as West Linton, Peebles, Newcastleton, Stow,
Lauder, Eyemouth and Duns look outwith the area for certain services and facilities.
The degree of dependence upon Edinburgh, Carlisle and Berwick-upon-Tweed could
be reduced, and the level of interdependence between Scottish Borders towns could
be increased, as the Scottish Borders develops and grows.
1.22
The principal aim of the Structure Plan is therefore:
PRINCIPAL AIM
To encourage growth which supports the development of a sustainable Scottish
Borders community and within it, the development of individual sustainable
communities which:
• Have access to:
- a range of permanent, quality jobs
- educational and health facilities and resources
- a range of shops and services
- a choice of methods of transport including cycling and walking opportunities
- leisure, recreational and cultural facilities
- a range of multi-use green space, and
• Benefit from:
- enjoyment of the Borders’ countryside, rivers, woodlands and coast
- high quality natural and cultural heritage assets
- vibrant and distinctive towns and villages
- new development which makes best use of resources, is well integrated with its
surroundings, and is of a high quality, environmentally sensitive design
- a high quality, safe and healthy environment, and
• Have the strength and capacity to:
- engage in meaningful partnership with others
- participate in decisions which affect them
- contribute to improving their own environment
- allow equality of opportunity for all to get involved.
Key Elements of the Strategy
1.23 Achieving the Principal Aim means focussing on four 'key elements':
Sustainable Growth; Development Hubs; Managing Change; and
Environmental Quality, each of which is described below. The key elements
provide clear strategic direction and justification of the approach being followed.
Sustainable Growth
1.24 The need to provide the right conditions for economic prosperity is a key
priority of the Council. The aim is to continue to strive to create jobs locally, whilst
also enabling Scottish Borders communities to take advantage of job opportunities
outside the region, particularly in Edinburgh. This forms part of an ongoing process
of restructuring the economy and managing change as set out in the Joint Economic
Development Strategy. Opportunities for the Scottish Borders could include the
further development of high technology industries, offices, tourism and forestry.
1.25 The Structure Plan can play its part by setting out a clear locational strategy
complemented by policies to protect and enhance environmental quality. It provides
for a range and choice of land for housing, business and industry, in locations served
by excellent transport links and infrastructure. These locations are most likely to be
found in the Central Borders which is best placed to capitalise on the reinstatement
of the former Waverley railway line. The improved accessibility offered by a rail link
would also provide many direct and indirect benefits contributing to sustainable
economic growth. These benefits include the stimulation of population growth which
itself contributes to economic prosperity through the generation of spending power.
Development Hubs
1.26 The second key element of the strategy is closely related to the first 'Sustainable Growth' - because it promotes a pattern of development aimed at
creating a critical mass of population and households in the locations which have the
greatest potential to give long term benefit to the whole of the Scottish Borders.
Increasing the region's population in areas where spending on services and facilities
is most likely to take place locally, offers the best chance of achieving self-sustaining
growth. In turn, this can have a beneficial effect on the potential viability of
businesses. The integration of land use and development can also be most
successfully achieved when development is located to maximise the opportunities for
walking and cycling and to take advantage of buses and existing and future railways.
1.27 Although the region does not have a 'centre' in the form of a single large town,
it does contain a concentration of towns in the Central Borders connected by
relatively frequent bus routes and accessible to the proposed line of the railway. This
area contains 60% of the population of the Scottish Borders and the majority of its
job opportunities; receives the greatest number of business location enquiries; and is
centrally located for much of the Scottish Borders. While these towns are individually
distinctive, they also act as an interdependent network, or ‘hub’ with the potential to
provide a broad range of jobs, services and facilities. Substantial development in any
one of the hub towns has the potential to benefit the others.
1.28 At the same time, given the geographical scale and diversity of the Scottish
Borders, there are two other hubs, centred on the Eyemouth/Duns area to the east
and Peebles to the west. They provide important centres for their respective
hinterlands and their roles as employment and service providers could be enhanced.
There are different issues to be addressed in each case. Eyemouth has benefited
from substantial investment through the provision of infrastructure and serviced
employment land. The town lies adjacent to the A1 corridor and has easy access to
the East Coast mainline railway station at Berwick-upon-Tweed. Duns is
Berwickshire's main administrative centre for government, education and health
services. In contrast, Peebles benefits from its proximity to Edinburgh, but this
creates pressure for commuter housing and the need for complementary
employment opportunities.
1.29 The strategy is therefore to promote a 'Primary Hub' in the Central Borders,
an Eastern Hub and a Western Hub. The focus for the Eastern Hub will be
Eyemouth, reflecting its strategic transport location, but opportunities for
development will also be sought in Duns. The Western Hub will centre on Peebles
with the focus for most new development lying to the east of the town (see Diagram
1). The preferred area for growth in the Scottish Borders will be the 'Primary Hub',
embracing the six main Central Borders towns of Galashiels, Melrose, Kelso,
Jedburgh, Hawick and Selkirk. Additional housing, retail and employment-generating
development will be focussed in the Primary Hub and to a lesser degree in the
Eastern and Western Hubs. Demand for housing within the Primary Hub is initially
most likely to arise within the Galashiels-Melrose-St. Boswells corridor because it
already has a concentration of services and facilities on which to build and it is most
accessible to the proposed first phase of the Borders rail link. Opportunities for
growth and development, particularly employment generating development, will be
encouraged throughout the Primary Hub. The Eastern and Western Hubs concept
recognises the size and diversity of the Scottish Borders and provides a mechanism
to address development pressures which will arise outwith the Primary Hub.
Update: Following the allocation of land within the Finalised Local Plan to meet
the Structure Plan Allowances, the Council now considers that the potential for
additional development in the Galashiels-Melrose-St Boswells corridor primary
core hub has limitations. Therefore, it is anticipated that further allowances
brought forward by the Structure Plan Alteration will require to focus on a range of
towns across the Primary Hub Central hub area.
The Western hub, particularly at Peebles, has been subject to significant
development pressure that will require to be distributed over a wider area within
the hub. In addition, a landscape capacity study undertaken by the Council
provides the context for the future development of Peebles.
1.30 The successful implementation of the strategy will mean a presumption
against substantial development outwith the hubs. A modest scale of development
can still be accommodated, provided that the scale is appropriate to the locality and
that it does not prejudice the overall thrust of the strategy. The strategy is to guide
development as far as possible towards the development hubs and to be readily
accessible to the strategic public transport network. The strategy also recognises the
needs and opportunities within rural areas and supports an appropriate scale of
development.
1.31 The strategy will provide for a growth in households in the Scottish Borders
that exceeds the level estimated to arise from the continuation of past trends. This
additional growth is broadly consistent with the anticipated effects of a Borders
railway. A fast, frequent and integrated transport system, incorporating a
Borders rail link, is considered to be key to the successful longterm
implementation of the strategy. The increase in pressure for development due to
the railway, and consequent implications for land use, are likely to extend beyond the
period of this Structure Plan. Without the railway, it will be more difficult to guide
development to the Central Borders where it would have greatest benefit for the
region as a whole and where it can best contribute towards a sustainable settlement
strategy for south east Scotland.
Update: The revised strategy for housing development is based on the need to
satisfy housing land shortfalls and requirements within each of the housing market
areas. The Structure Plan Alteration has used the General Register Office for
Scotland’s household projections as the basis for identifying future housing land
requirements. These projections do not differentiate between a Scottish Borders
with a Waverley rail line or without it.
Managing Change
1.32 The Scottish Borders faces difficult and challenging problems arising from the
loss of jobs in key industries in the Borders - farming and manufacturing, especially
textiles - together with the associated changes in the distribution of population
resulting in a decline in some areas. Changes in shopping patterns nationally have
contributed to economic difficulties for traders and new roles for town centres.
Changes in subsidy arrangements for the farming industry point to falls in output and
profit and consequent implications for the viability of farms and associated
businesses involved in agricultural engineering and supplies.
1.33 Although the solution to long term structural change in employment patterns is
inevitably affected by national economic trends, regeneration strategies at the
local level can do much to promote confidence and improve the chances of
encouraging investment. Regeneration initiatives require a combination of social,
economic and environmental measures and a partnership approach. The Council
and its partners have already made a significant commitment to investing in
necessary infrastructure as well as maximising the use of spare infrastructure
capacity. The main role of the Structure Plan is to set out a clear vision, as
summarised in the first two key elements of the Strategy, bringing together the
necessary environmental, economic and social components as they affect
development and land use. More specifically, the Structure Plan can help enable
environmental improvement, protect and enhance town centres and provide for high
quality sites for housing and industry. In the case of the farming industry, the
Structure Plan can encourage appropriate forms of diversification.
Environmental Quality
1.34 This element of the strategy is about conserving and enhancing the existing
natural, cultural and historic environment (i.e. built environment, archaeological
remains, historic monuments etc.). The Scottish Borders’ environmental heritage is
important, not only as a valuable resource - both in its own right and in maintaining
the local distinctiveness of communities - but also in providing direct and indirect jobs
and helping create the right conditions for investment. Protecting this heritage is
therefore a key role for the Structure Plan. This does not mean ‘no development’,
rather it is about giving the highest level of protection to the most important assets,
aiming to achieve no net loss of biodiversity and managing change in ways that
minimise environmental impact, integrate development with natural processes and
create community benefits.
Founding Principles
1.35 The key elements of the strategy are the basis for two three 'founding
principles' setting out the criteria which underpin the Structure Plan. These principles
are intended to give force to the Principal Aim of the Plan and to guide the other
topic-based policies. They will be treated as “material considerations” in the
determination of planning applications.
1.36 Principle S1 is the overarching principle related to sustainability which both
protects the environment and drives forward the movement towards sustainable
communities. The acquisition and maintenance of adequate baseline data on the
environment and biodiversity, as part of the Local Biodiversity Action Plan process, is
fundamental to the Council's ability to plan and integrate development in a
sustainable way.
1.37 Principle S2 focuses on the development strategy, providing a growth target
and a locational strategy for development, guided by the Plan's Principal Aim. The
12% target for household growth represents a figure some 2% higher than the
Government's projection but is considered to be an achievable goal based on the
findings of the rail study and - dependant on its implementation – is in line with the
key elements of the strategy. The strategy for sustainable growth is focussed on the
Primary Hub and to a lesser extent the Eastern and Western Hubs as described
earlier. The scale of development regarded as 'substantial' will depend on the local
context. In general terms, development both within and outwith the hubs, will be
guided to the strategic public transport network as defined by bus frequencies.
Update: The Structure Plan Alteration uses the General Register Office for
Scotland’s household projections, with appropriate flexibility, as the basis for
future household growth.
1.38 Progressing the implementation of the areas identified in Principle S2 for
substantial new development will be taken forward by investigative studies and the
Local Plan process as necessary. Accommodating the required growth within the
Primary Hub may require consideration of new villages or satellite development as
complements or alternatives to settlement expansion. Such developments will offer
greatest benefits to the Scottish Borders where they are located to take advantage of
a future rail link and in particular where they are accessible to the first phase of the
railway. As indicated in Principle S2, final decisions on longer term locations for
development (anticipated to be beyond the Structure Plan period) will be guided by
progress on the railway.
Update: The Structure Plan Alteration identifies a substantial village extension at
Newtown St Boswells. However, it is not anticipated that further new villages or
satellite development will be required until beyond 2018. In the meantime the
Council will consider suitable proposals for such developments for implementation
from 2019 onwards particularly within the Central and Northern Housing Market
Areas.
PRINCIPLE S1
Environmental Impact
Proposals for substantial development will be assessed against relevant
sustainability criteria with the aim of minimising harmful environmental impacts
and moving towards sustainable development.
Update: Note Principle S2 in the original Structure Plan has been deleted.
Original Principle S3 has been renumbered to Principle S2 and point (iv) and (v)
have been deleted.
PRINCIPLE S2
Development Strategy
The locational strategy will be based on the following criteria:
(i) Development to be guided to existing towns and villages or to planned
locations where readily accessible to the principal public transport corridors and
hubs
(ii) The principal focus for development to be the primary hub (Central Borders)
(iii) The secondary foci for development to be the Eastern and Western hubs of:
• Peebles (the Peebles/Innerleithen/Central Borders axis)
• Eyemouth (the Eyemouth/Duns/Berwick-upon-Tweed triangle)
(iv) Upgrading and improvement of major road corridors, in particular the A7 and
the A68
(v) Support for a Borders rail link, following the former Waverley line, between
Edinburgh and the Central Borders but extending in future south to Carlisle
(vi) Substantial new development to be discouraged in locations which:
• are outwith the primary hub, or
• are considered would lead to a significant increase in car commuting, or
• would be unlikely to gain benefit from a future railway
(vii) Careful control of the location and design of housing in the countryside
(viii) Regeneration to be focussed on town centres, and areas experiencing
economic difficulties and/or population decline, particularly Hawick
(ix) Support for the development of vacant, derelict and brownfield sites in
settlements, where this presents a realistic alternative to greenfield development
and where it can be achieved without inappropriate town or village 'cramming'.
Area Strategies
1.39 The final part of the Development Strategy recognises the diversity that exists
within the Scottish Borders and the need for policies and actions to meet the specific
requirements of particular areas. Four distinct areas have been identified and their
main characteristics and strategic approaches are summarised below. These areas
are the Central, Eastern, Northern and Southern Borders (see Diagram 2).
Update: Following the allocation of land within the Finalised Local Plan to meet
the Structure Plan Allowances, the Council now considers that the potential for
additional development in the Galashiels-Melrose-St Boswells corridor primary
core hub has limitations. Therefore, it is anticipated that further allowances
brought forward by the Structure Plan Alteration will require to focus on a range of
towns across the Primary Hub Central hub area.
The Western hub, particularly at Peebles, has been subject to significant
development pressure that will require to be distributed over a wider area within
the hub. In addition, a landscape capacity study undertaken by the Council
provides the context for the future development of Peebles.
The Central Borders
1.40
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The Central Borders:
is characterised by a concentration of large settlements connected by good
transport
networks. This area contains 60% of the Scottish Borders population and
includes the towns of Galashiels, Selkirk, Hawick, Jedburgh, Kelso and
Melrose
provides the principal opportunity for the scale of development necessary to
meet the key element of the strategy relating to the development of a Scottish
Borders primary hub. Development to fulfil this key element of the strategy will
be encouraged in settlements and at planned locations accessible to the
area’s preferred transport corridors. Substantial new development will be
supported initially in the Galashiels/ Melrose/St. Boswells corridor (see
Principle S3)
is the preferred location for any new villages or satellite developments which
may be required to provide the necessary scale of development. A
substantial village extension at Newtown St Boswells has been identified.
has a substantial housing requirement to reflect the level of growth contained
within the Development Strategy
contains a concentration of strategic employment sites, including ‘single user’,
and opportunities for specialist ‘centres of excellence’ linked to the University
and the hospital
provides regeneration opportunities in Hawick and Selkirk
offers cultural and heritage tourism opportunities.
The Northern Borders
1.41
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The Northern Borders:
is characterised by its physical proximity to Edinburgh and consequent
pressures for housing within easy car commuting distance of the capital
provides a focus for development centred on the Peebles/Innerleithen/ Central
Borders axis
has a key role for Peebles as the focus of the Western hub for the Scottish
Borders in terms of jobs and service provision
has a housing requirement reflecting the need for restraint in the North
Tweeddale and North Ettrick & Lauderdale Housing Market areas (see
Diagram 13, page 108)
contains a strategic employment site at Cavalry Park, Peebles
offers recreational and tourism opportunities linked to the Edinburgh market.
The Eastern Borders
1.42
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The Eastern Borders:
is characterised by a few key small towns and many smaller settlements and
building groups connected by a fine-grained pattern of roads. It is also
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important for its proximity to Berwick-upon-Tweed and key north-south
transport links by road and rail
provides a focus for development centred on the Eyemouth/Duns/Berwickupon-Tweed triangle
has a key role for Eyemouth as the focus of the Eastern hub for the Scottish
Borders in terms of jobs and service provision to utilise spare infrastructure
capacity
has a continuing role for Duns as the administrative centre
has a housing requirement to serve the needs of the Berwickshire Housing
Market Area
contains a strategic employment site at Gunsgreen, Eyemouth
provides regeneration opportunities in Eyemouth
has the long-term potential for improved local rail commuter services
offers particular challenges for the diversification of the farming and fishing
industries
offers tourism opportunities, particularly linked to the coast.
The Southern Borders
1.43
•
•
•
•
•
The Southern Borders:
is characterised by its relative remoteness, the absence of any major
settlements, long lines of communication, and by hill sheep farming and
forestry; looks to Central Borders, Peebles and Carlisle for services and
facilities
has a modest housing requirement to meet the needs of the rural
communities
offers particular challenges for the diversification of the farming industry
provides forestry development opportunities
offers outdoor recreational and tourism opportunities.
CHAPTER 4 HOUSING
Introduction
4.1
The Structure Plan Alteration provides the framework for the release of new
housing land allocations to meet land supply requirements over plan period and
beyond. Housing is the most significant land use within the Development Plan. This
reflects the need to accommodate the growth in households arising from the
increase in projected population and the continued reduction in household size.
4.2
It is anticipated by the General Register Office for Scotland that by 2024 the
population in the Scottish Borders will increase to 126,000 (15% increase from
2004), and that the number of households will increase to 60,000 (23% increase
from 2004).
4.3
Scottish Planning Policy on homes requires The Scottish Government
provides guidance on meeting housing land requirements in Scottish Planning Policy
3 ‘Planning for Housing’. The guidance focuses on the creation of quality residential
environments in sustainable locations; allocation of a generous supply of land to
meet identified housing requirements; , guiding development to the right places, and
the identification in strategic development plans provision of housing land to meet
requirements up to year 12 and a broad indication of the scale and location of
housing land up to year 20; and for 12 to, preferably, 20 years, ensuring the
continued provision of a 5 year effective housing land supply.
4.4
The Structure Plan also provides the development context for the Council’s
Local Housing Strategy whose broad objectives include the provision of good quality
affordable housing to meet the needs of local communities. It seeks to achieve this
by addressing the supply and access to housing, housing quality, and social and
economic disadvantage.
Housing Market Areas
4.5
The Structure Plan Alteration considers housing requirement by using the
concept of housing market areas. These are areas within which a high proportion of
households would seek to relocate when moving house. The Council has undertaken
research into the areas of influence of housing market areas, including selfcontainment. This has resulted in the reduction of housing market areas in the Plan
from 7 to 4. The four housing market areas used within the Alteration are- Central,
Northern, Berwickshire and Southern (see Diagram 1).
Diagram 1: Revised Housing Market Areas
Housing Land Requirement
4.6
The Structure Plan Alteration uses the method set out in Planning Advice
Note 38 on ‘Housing Land’ as the basis for determining the future requirement for
houses within the Scottish Borders.
4.6
Using projections from the General Register Office for Scotland the Council
estimates that there will be an increase in the number of households totalling 6696
11160 between 2006 and 2018 2026. This has been further refined to take into
account vacancies, second homes and demolitions. This leads to an increase to
6958 11597 additional households (see Table 1).
Table 1: Household Change 2006-20182026
2006
2018
Change 2006 - 2018
Households
50110 56806
6696
Empty Properties
3270
3448
178
NA
84
84
Demolitions
Baseline
Household
Requirement
All figures in house units
53380 60338
6958
source: Scottish Borders Council/General Register Office for Scotland
4.7
The overall projected change in households, known as the baseline housing
land requirement, has been allocated to each of the housing market areas in line
with existing household levels (see Table 2).
Table 2: Baseline Housing Land Requirement 2006-20182026
Housing Market Area
Baseline Requirement 2006 - 2018
Central
4245
Berwickshire
1252
Northern
1322
Southern
139
Scottish Borders Total
6958
All figures in house units
source: Scottish Borders Council/General Register Office for Scotland
The Baseline Housing Land Requirement has been further adjusted to provide
4.8
flexibility. This is in accordance with Scottish Planning Policy to provide for a range
and choice of sites. Flexibility is important in that it allows the Plan to take into
account a number of factors related to affordable housing, geographic dispersal, and
second homes.
4.9
The Development Plan provides land for all housing sectors, including the
public and private sectors. Therefore it is essential to make adequate provision that
can meet the requirement across sectors. An affordable housing needs assessment
was undertaken by the Council in 2006. The survey concluded that over the following
5 years an annual average of 301 affordable houses would be required to meet
housing needs. Whilst the General Register Office projections take both public and
private sector household formation substantially into account, they do not include
‘hidden households’. In addition, there are significant issues related to the availability
of national funding from Scottish Government’s Housing and Regeneration
directorate to meet affordable housing need.
4.10 The Scottish Borders is a dispersed and diverse area where it is not possible
to predict precisely where future pressure will arise. This emphasises the need to
provide for a range and choice of sites through the Development Plan. A further
factor is the presence of second and holiday homes that are a significant element
within the Borders. Taking the above into account, and to ensure a continued 5 year
effective housing land supply, the Structure Plan Alteration incorporates a flexibility
factor of 20%.
4.11 The housing requirement of 6958 11597 rises to 8350 13916 once 20%
flexibility has been incorporated (see Table 3).
Table 3: Overall Housing Land Requirement
Housing Market Area Overall Requirement 2006 - 2018
Central
5094
Berwickshire
1503
Northern
1587
Southern
167
Scottish Borders
8350
All figures in house units
source: Scottish Borders Council/General Register Office for Scotland
4.12 A supply of land is already available within the Scottish Borders. This is
monitored by the annual Housing Land Audit undertaken by the Council in
discussion with Homes for Scotland, Scottish Government’s Housing and
Regeneration directorate, Housing Associations and key infrastructure providers.
The latest audit in 2006 showed that the effective housing land supply (5 year
effective and potentially effective) was 5643 house units. It should be acknowledged
that small sites are taken into account in that all those with planning approval are
included within the annual Housing Land Audit as effective. Windfall sites do provide
some additional potential flexibility, although they will be considered as part of the
annual Housing Land Audit undertaken by the Council.
4.13 The housing land shortfall is the residual from the subtraction of the effective
land supply from the projected household change (incorporating an element for
flexibility).
4.14 The household change projections have been divided into two periods from
2006-2018, and 2019-2026. Table 4 shows the housing land shortfall by housing
market area up to 2018, and the projected requirement from 2019- 2026. Therefore,
following approval of the Structure Plan Alteration in 2008, there will be a 10 year
land supply for inclusion with the amendment to the Local Plan. This will ensure that
at the end of the 5 year Local Plan period there will be a 5 year land supply in place.
Table 4: Housing Land Shortfall and Requirement
Housing
Land
Shortfall
2006 2018
Housing
Land
Requirement
2019 – 2026
5094
Effective
and
Potentially
Effective
Housing
Land
Supply
2006
3269
1825
3396
2504
1503
1437
66
1002
Northern
2645
1587
871
716
1058
Southern
278
167
66
101
111
13916
8350
5643
2707
5567
Overall
Housing
Land
Requirement
2006 – 2026
Overall
Housing
Land
Requirement
2006 - 2018
(delete
column)
8489
Berwickshire
Housing
Market Area
Central
Total
source: Scottish Borders Council/General Register Office for Scotland
(delete
column)
note: figures are subject to rounding
4.15 An indicator of future land requirements is also provided by recent
development rates. Table 5 below shows the number of completions 2002-2006.
over the past 5 years.
Table 5: Housing Completions in the Scottish Borders 2002-2006
Housing Market Area
Settlement
Completions 2002-2006
Central
Clovenfords
Earlston
Galashiels
Hawick
Jedburgh
Kelso
Newtown SB
Selkirk
St Boswells
Melrose
Rest of Central HMA
59
45
232
83
33
208
4
37
105
130
311
Central HMA Total
1247
Duns
Eyemouth
Greenlaw
Reston
Coldstream
Rest of Berwickshire HMA
44
46
16
12
109
196
Berwickshire HMA Total
423
Innerleithen
Lauder
Peebles
Stow
Walkerburn
West Linton
Cardrona
Rest of Northern HMA
145
88
99
15
5
19
221
191
Northern HMA Total
783
Newcastleton
Rest of Southern HMA
1
10
Southern HMS Total
11
Berwickshire
Northern
Southern
Scottish Borders Total
2464
4.16 Over these the past 5 years the annual average number of houses developed
has been over 490.
4.17 The Council has undertaken research into the landscape capacity for future
development, and this has been further informed by information relating to the
infrastructure capacities of education, water and waste water, transportation,
flooding, and natural and built heritage designations. In addition, the Council has
undertaken an urban capacity study of the main settlements that shows that in
general there is a limited capacity for brownfield development.
4.18 The proposed housing land allowances for the period 2006-2018 are set out
in Table 6 below. They meet the identified shortfalls in full in each of the housing
market areas. The housing market area allowances are based on the housing land
shortfall and requirements (rounded to the nearest 100). The Local Plan Amendment
should provide housing land allocations to meet the allowances for 2006-2018. The
allocations will be adjusted to take account any substantive additions to the 2006
housing land audit supply brought about by amendments to the Finalised Local Plan
agreed by the Council for adoption in March 2008, or by a significant increase in the
development capacity of sites from a planning permission.
4.19 Therefore, the approach to the identification of future opportunities (or
allowances) recognises the benefits of focusing development across a wider range
of settlements. Accordingly opportunities are identified at:•
Newtown St Boswells taking forward the requirements of the Structure and
Local Plan
•
Galashiels where the substantial existing land supply, limited short term
opportunities and educational constraints suggest relatively limited
opportunities
•
Earlston taking advantage of the substantial brownfield opportunity provided
by the development of a new high school
•
Hawick and Jedburgh in recognition of the increased demand becoming
apparent across a wider area of the Borders, and the capacity for future
development within these towns
•
Selkirk, where there are infrastructure constraints is a limitation pending a
decision on a bypass by Transport Scotland
•
Kelso, but in the longer term only, recognising the current substantial supply
available within the town
•
No substantial allowances are provided for Melrose recognising the limited
landscape capacity of the town
•
Only limited allowances are made in the short term in Berwickshire in view of
the effective housing land supply. However, there will be significant brownfield
opportunities at Earlston, Duns (both former high school sites), and at Reston
(former mart) that will provide additional flexibility in housing land provision. A
base level provision of 100 units in the period 2006 - 2018 is provided in the
‘Rest of the Berwickshire’ area
•
Educational capacity is a significant issue within the Northern Housing Market
Area at both primary and secondary levels. In addition, landscape capacity is
modest. The proposed allowances therefore seek to provide opportunities
across the area to provide growth opportunities down the Tweed valley.
•
The Southern Housing Market Area is essentially a remoter rural area where
the most significant settlement is Newcastleton where it is proposed to
provide a substantial portion of the required allowances.
Table 6: Housing Land Allowances
Housing Market Area
Settlement
Effective and
Potential
Housing
Land Supply
2006
Structure
Plan
Allowances
2006-2018
Central
Clovenfords
Earlston
Galashiels
Hawick
Jedburgh
Kelso
Newtown SB
Selkirk
Rest of Central HMA
64
22
690
348
214
466
80
195
1190
3269
0
250*
100
200
100
0
900*
50
200
1800
246
207
16
102
20
846
*
*
50
50
*
100+
1437
200*+
1000**
111
127
306
43
284
871
200
100
250
100
50
700
1100**
Southern Subtotal
17
49
66
50
50
100
100**
Scottish Borders Total
5643
2800
5600
Central Subtotal
Berwickshire
Duns
Eyemouth
Greenlaw
Coldstream
Reston
Rest of Berwickshire
HMA
Berwickshire Subtotal
Northern
Innerleithen
Lauder
Peebles
Walkerburn
Rest of Northern HMA
Northern Subtotal
Southern
Newcastleton
Rest of Southern HMA
Structure Plan
Longer Term
Allowances
2019-2016
(Subject to
Review)
(Delete column)
3400**
* Opportunities for major redevelopment identified.
** Allowances for distribution following further consideration of proposals for potential new or expanded settlements.
+ A base level provision of 100 units in the period 2006 - 2018 is provided in the ‘Rest of Berwickshire’ area.
POLICY H1
Housing Land Shortfall 2006-2018
The Local Plan will identify and allocate sites to meet the Structure Plan
allowances for 2006-2018 set out in Table 6.
4.21 Longer term allowances are expressed by housing market area to provide an
indicative view of the future housing requirement, subject to review by the future
Strategic Development Plan.
4.20 The Council will also consider proposals for the development of substantive
settlement extensions or new settlements that will assist in meeting the sustainability
provisions of the plan. The longer term allowances in the Central and Northern
Housing Market Areas include substantial provision in the ‘rest of’ the housing
market area that could be met in large part by substantive settlement extensions or
new settlements. In exceptional circumstances the Council will consider meeting
these allowances across the council area as a whole.
POLICY H2
Longer Term Housing Allowances 2019-2026
The Local Plan may identify land for potential future development to meet the
longer term Structure Plan allowances set out in Table 6. The longer term
allowances will be reviewed as part of the Strategic Development Plan for
Edinburgh and the South of Scotland.
4.21 In the consideration of sites for housing a range of criteria will be used to
ensure that the Development Strategy is successfully implemented.
POLICY H2
Housing Land Allocation and Development
Sites for housing will require to meet the key sustainability and design
requirements of the Council. The following criteria will be used:
(i) energy efficiency in terms of location, aspect and orientation
(ii) accessibility to public transport, and in particular the strategic public transport
network
(iii) the re-use of vacant, derelict, previously developed or contaminated
'brownfield' sites no longer required for employment purposes
(iv) the avoidance of flooding
(v) the non-sterilisation of mineral deposits
(vi) the impact on biodiversity
(vii) the impact on the man-made environment including archaeology
(viii) the capacity of the landscape to absorb development
(ix) accessibility to services and facilities by foot, cycle or public transport
(x) the relationship to business, industrial and other employment generating uses
(xi) the capacity of individual settlements to absorb development or to overcome
constraints efficiently particular in relation to thresholds of water, sewerage, and
education capacity
(xii) the scope for more productive use of under-utilised town centre property
(xiii) the need to retain open space within settlements to prevent town or village
'cramming'
(xiv) relevant socio-economic factors, such as employment, shopping, leisure and
recreational facilities, health and social support systems
(xv) the impact upon the natural environment including air quality, soil quality and
the water environment
(xvi) meeting housing need and demand close to where it arises
4.24 The Council will seek to ensure that there is a five year housing land supply at
all times. However, although the allowances meet the housing requirement in full, it
is anticipated that demand for housing will outstrip supply within the Northern
Housing Market area due to its proximity to Edinburgh. To deal with this potentially
unsustainable eventuality the allowances for the Northern Housing Market Area
should not be exceeded even if a 5 year effective housing land supply is not
available. The intention is to promote sustainable development, and to ensure that
demand is directed to those areas further south within the Borders that can
accommodate development in line with the Development Plan strategy.
POLICY H3
Five Year Land Supply
The Council will aim to ensure the continued provision of a 5 year effective
housing land supply in each Housing Market Area through the allocation of sites
to meet Structure Plan allowances for 2006-2018. This will be monitored through
the annual Housing Land Audit. Where there is less than a 5 year effective supply
in any Housing Market Area, sites may be brought forward from those which the
Local Plan may identify in that Housing Market Area for potential future
development. If necessary, the Council will consider the need for interim policy
guidance to meet the requirements of the Structure Plan Strategy. In the Northern
Housing Market Area additional land will not be brought forward in excess of the
Structure Plan allowances for the period 2006-2018.
4.22 The Plan supports the development of infill and brownfield sites which meet
sustainability objectives where they are no longer required for employment purposes.
Significant brownfield opportunities will be able to contribute towards meeting
structure plan allowances.
4.23 Higher density development, particularly in proximity to town centres, is
encouraged. However, there is a need to carefully consider both environmental and
infrastructure consequences. There should be a clear intention to enhance the form
and quality of the urban environment, with care taken to avoid overdevelopment.
However, the potential for higher density development particularly in proximity to
town centres should be promoted.
4.24 New housing in built-up areas must take account of sustainable flood
management issues and not impact on the floodplain’s capacity to hold water or
make flooding worse elsewhere. It must also take account of sustainable urban
drainage systems, sustainable waste management and energy conservation
principles.
POLICY H4
Brownfield Development
The development of brownfield sites for housing development is supported where
the site is no longer required for any employment use and where it will enhance
the form and quality of the urban environment. Such development should include
appropriate energy conservation and sustainability measures, sustainable
drainage and must not lead to an adverse impact on floodplain capacity and the
water environment.
Housing in the Countryside
4.25 Scottish Planning Policy SPP3 on ‘Planning for Housing’ and SPP15 on ‘Rural
Development’ acknowledges the role of development plans in maintaining the
viability of rural communities through supportive policies for new housing in the
countryside. The Structure Plan strategy recognises that in rural Scottish Borders the
development of small scale housing can to help sustain local communities socially
and economically. Those who are disadvantaged are particularly affected by the loss
of community services and facilities. A positive approach to sustain their future
viability is therefore required.
4.26 Throughout the countryside it is essential that new development is particularly
sensitive to its surroundings, including landscape and built form. It is important that
overdevelopment of an existing building or building group is avoided. Development
should also meet sustainable construction requirements particularly in relation to
energy efficient design and, where possible, be well connected to the public
transport network.
4.27 The use of existing resources in the form of derelict or dilapidated dwellings or
substantial agricultural or other buildings for conversion or rebuilding for residential
use is a potential source of new development that will assist in the regeneration of
the countryside.
POLICY H5
Housing in the Countryside: Conversion and Rebuilding
The conversion of existing buildings to residential use, and the rebuilding of
dwellings in the countryside outwith settlements identified in the Local Plan, will
normally be supported. Proposals must fit the character of the surrounding area
and meet sustainable construction requirements particularly in relation to energy
efficient design.
4.28 The encouragement of development in the countryside to support existing
communities will be supported by the addition of sensitive development to existing
groups of dwellings. Such development should be responsive to the built form and
character of the surrounding area. Overdevelopment of a building group that could
have an adverse effect on its character must be avoided.
POLICY H6
Housing in the Countryside: Building Groups
Proposals for new housing in the countryside outwith settlements identified in the
Local Plan but associated with existing building groups will be supported where
they fit the character of the adjacent group and the surrounding area, avoid
overdevelopment and meet sustainable construction requirements particularly in
relation to energy efficient design and connection to the public transport network.
4.29 Isolated housing development proposals are generally discouraged unless the
specific locational and economic need for the house can be clearly substantiated.
Where there is an economic case for a proposal it must also demonstrate that the
site is well located and designed with a low environmental impact, and that there is
no other appropriate alternative.
POLICY H7
Housing in the Countryside: Isolated Housing
Proposals for housing in the countryside outwith settlements identified in the Local
Plan, and unrelated to building groups, will not be supported unless its location is
essential for the needs of an agricultural business, or other business use that
requires a specific rural location. All such development must be on well located
and designed sites with a low environmental impact. Proposals must meet
sustainable construction requirements particularly in relation to energy efficient
design and connection to the public transport network.
Affordable and Special Needs Housing
4.30 The Government encourages the private sector to play the principal role in
meeting housing requirements. It is, however, important that Scottish Government’s
Housing and Regeneration directorate and in turn the Registered Social Landlords
(Housing Associations) are provided with adequate resources to provide affordable
and special needs housing. The Council has set out its approach to affordable
housing through the publication of supplementary planning guidance. This includes
the appropriate mechanisms such as section 75 agreements.
4.31 Affordable housing, as included within the Council’s supplementary planning
guidance, covers a range of tenures including social rented, shared ownership,
shared equity, subsidised and unsubsidised low cost home ownership and private
below market rent.
4.32 The Council will seek to secure affordable and special needs housing within
new housing developments by agreement with private developers, the Scottish
Government’s Housing and Regeneration directorate and Registered Social
Landlords in areas of need identified by the Local Housing Strategy as informed by a
housing needs and demand assessment. It is important that where possible
affordable housing remains affordable for successive as well as initial occupants.
POLICY H8
Affordable and Special Needs Housing
The Council will seek to secure affordable and special needs housing within new
housing developments by agreement with private developers, the Scottish
Government’s Housing and Regeneration directorate and Registered Social
Landlords in areas of need identified through the Local Housing Strategy. This will
be further detailed through the Local Plan and supplementary planning guidance.
Such housing should where possible be secured for successive as well as initial
occupants.
4.33 The provision of affordable housing is a Council priority. In certain
circumstances it is appropriate to consider the provision of affordable housing in
locations adjoining existing settlements where there are no other planned
opportunities. Such proposals should be for affordable housing only, and have the
support of the Scottish Government’s Housing and Regeneration directorate and the
Council’s Local Housing Strategy. They should also be acceptable in terms of
potential environmental impact. All such development must be on well located and
designed sites with a low environmental impact. Proposals must meet sustainable
construction requirements particularly in relation to energy efficient design and
connection to the public transport network.
POLICY H9
Affordable and Special Needs Housing: Exceptions
The Council will give consideration to proposals solely for affordable and special
needs housing to meet need identified by the Local Housing Strategy in locations
adjoining settlements where housing development would not normally be
permitted. Such proposals should be secured to meet the needs of for successive
as well as initial occupants, and meet sustainable construction requirements
particularly in relation to energy efficient design and connection to the public
transport network.
CHAPTER 7 IMPLEMENTATION & MONITORING
Introduction
7.1
The publication of this Plan is only the first stage in a sustained programme to
ensure that the strategy and policies are successfully implemented. The strategy is
one of change and growth, offering a number of opportunities for development and
investment. The Structure Plan will be implemented primarily by the private sector
through applications for development. However, the Council and its partners will
have an important role to play in helping create the right conditions for investment, in
particular assisting in funding support for infrastructure and services.
Local Plan Review
7.2
The Local Plan is the main mechanism through which the strategic policies of
the Structure Plan are taken forward to a detailed level to further inform and facilitate
the implementation process. This includes the allocation of sites for development
and guidance for all the towns and villages in the Scottish Borders. The Local Plan
Review will also develop the Area Strategies for Central, Northern, Eastern and
Southern Borders.
Update: The Council intends to produce adopt a Local Plan Amendment to take
forward the housing land allowances identified in the Structure Plan Alteration.
The draft Local Plan Amendment was will be produced in 2008.
7.3
In terms of geographical priorities for Local Plan preparation, the following are
the key considerations which will drive the process:
Areas identified for growth in the Structure Plan
• the Primary Hub in the Central Borders comprising the towns of Galashiels,
Melrose, Kelso, Jedburgh, Hawick and Selkirk
• an area for substantial development within the Galashiels- Melrose-St
Boswells corridor
• the Eastern hub focussed on Eyemouth - opportunities for development to be
found in the Eyemouth/Duns/Berwick-upon-Tweed triangle
• the Western development hub focussed on Peebles - opportunities for
development to be found in the Peebles/ Innerleithen/Central Borders axis
• no substantial development is planned in the Eastern or Western hubs within
the Structure Plan period (2001-2011) but opportunities for longer term growth
will be considered, dependent upon progress on railway services
Update: Following the allocation of land within the Finalised Local Plan to meet
the Structure Plan Allowances, the Council now considers that the potential for
additional development in the Galashiels-Melrose-St Boswells corridor primary
core hub has limitations. Therefore, it is anticipated that further allowances
brought forward by the Structure Plan Alteration will require to focus on a range of
towns across the Primary Hub Central hub area.
Priority areas for regeneration
• the Council's current approved priorities for area regeneration and investment
are the communities of Hawick, Selkirk, Innerleithen/Walkerburn,
Eyemouth/East Berwickshire and Coldstream.
• current additional priorities for town centre enhancement comprise Galashiels,
as a possible future priority area for regeneration, and Kelso, reflecting recent
retail and industrial investment.
Availability of a 5 year housing land supply
• Government policy guidance requires the availability of a 5 year supply of
housing land at all times. The table below indicates that there is currently a 5
year housing land supply in all housing market areas except the Central
Borders which includes Galashiels, Selkirk and Melrose. The supply is also
close to 5 years in the North Tweeddale Housing Market Area. Interim policy
guidance is therefore needed to bridge the gap until the availability of new
local plan guidance.
Update: The Housing Land Audit for 2006, agreed with consultees, shows that
there is a five year housing land supply in all housing market areas. The Structure
Plan Alteration is the key mechanism to ensure the continued availability of a 5
year land supply. Thereafter, a Local Plan Amendment will be prepared. However,
if necessary, the Council will consider the need for interim policy guidance to meet
the requirements of the Structure Plan Strategy.
Table 7.1 Effective Housing Land Supply (in years)
Housing Market Area
Approximate Years Supply
Berwickshire
6.6
Central Borders
4.3
North Roxburgh
18.2
South Roxburgh
10.2
South Tweeddale
6.7
North Tweeddale
5.3
North Ettrick & Lauderdale
15.0
Source : Scottish Borders Council. Figures are as at 1999, based on the housing land requirement compared with
the effective housing land supply (see Table 4.6).
Update: The 2006 Housing Land Audit showed the following effective land supply
(no of years:- Berwickshire (14.9) Central Borders (5.3) North Roxburgh (20.0)
South Roxburgh (14.4) South Tweeddale (8.0) North Tweeddale (8.3) North
Ettrick & Lauderdale (31.1)
POLICY P1
Substantial Development Area
Land for substantial development to meet the housing land requirement for the
Central Borders Housing Market Area will be identified within the GalashielsMelrose- St Boswells corridor as part of the Local Plan Review.
Update: Following the allocation of land within the Finalised Local Plan to meet
the Structure Plan Allowances, the Council now considers that the potential for
additional development in the Galashiels-Melrose-St Boswells corridor primary
core hub has limitations. Therefore, it is anticipated that further allowances
brought forward by the Structure Plan Alteration will require to focus on a range of
towns across the Primary Hub Central hub area.
The Western hub, particularly at Peebles, has been subject to significant
development pressure that will require to be distributed over a wider area within
the hub. In addition, a landscape capacity study undertaken by the Council
provides the context for the future development of Peebles.
POLICY P2
Interim Housing Policy Guidance
The Council will consider the need to bring forward interim policy guidance in
order to ensure the continued appropriate provision of a 5 year effective housing
land supply.
Update: Note that Policy P2 has been reworded in the Structure Plan Alteration
7.4
Table 7.2 7.1 at the end of the chapter lists the key tasks arising from the
Structure Plan which must be implemented through the Local Plan.
Consistent Decision Making
7.5
The control of development through decisions on planning applications is one
of the most important implementation mechanisms for the Structure Plan. Successful
implementation of the strategy requires the Council to help provide certainty for
developers, investors and the public by making consistent decisions that are in
accordance with the approved strategy. Furthermore, because the strategy to
refocus commuter demand and to create a critical mass of population in the Central
Borders is a long term approach, so decision making too must be consistent over a
long period of time.
7.6
Decision making in line with the approved strategy means giving particular
support to development proposals in the areas for planned growth as outlined in
paragraph 7.3. The level of demand at any point in time is finite; therefore, ensuring
that development goes to the areas planned for growth may also require
development restraint elsewhere. in the Northern Borders. Here, the approach is to
reduce the growth in housing completions and to guide demand southwards. This
requirement for restraint will apply particularly to the North Tweeddale Housing
Market Area where there will be strict control of windfall development and housing in
the countryside proposals.
Update: The Structure Plan Alteration proposes that the Northern Borders
Housing Market Area is an area of restraint. (see Policy H4)
POLICY P3
Development outwith the Development Hubs
There will be a presumption against substantial development outwith the planned
Development Hubs. Development proposals may only be supported outwith the
hubs where the scale is appropriate to the locality and provided that the overall
strategy is not prejudiced.
7.7
Decisions on planning applications will also influence resource allocation
decisions in areas such as education, leisure and transport.
Promoting Demand
7.8
To achieve the scale of growth envisaged and in the locations required by the
strategy will require a range of conditions to be in place that will help maintain
and stimulate demand for building, construction and investment. These
conditions include:
• a range and choice of housing sites
• availability of a range of good quality jobs
• a high quality built and natural environment incorporating green space and
opportunities for access to the countryside
• high quality public services including good schools and health services
• attractive town centres and varied shopping opportunities
• a range and choice of indoor and outdoor leisure and recreational facilities
• excellent transport links incorporating a choice of modes of travel
• high quality information and communications technology
7.9
Providing these facilities to the standard required will have considerable
resource implications for the public sector and will need commitment, creativity and
drive by private sector investors. Achieving these measures will therefore require a
significant and sustained effort on the part of both public and private agencies,
working in partnership wherever possible.
Transport and the Railway
7.10 The availability of fast and frequent transport links is a crucial element in
implementing the strategy and will be promoted through the Local Transport Strategy
process. Action will be needed to improve all modes of transport with the aim of
improving accessibility within the Scottish Borders and to locations outwith the
region. The restoration of the Borders railway, complemented by improvements to
strategic roads as set out in Policies I2, I8 and I9 are vital to promoting the image of
the Scottish Borders as a ‘connected place’, one of the main themes in the Economic
Development Strategy. Bus and cycle links within and between the development
hubs as well as good quality road links are also important in helping to endorse the
hub concept and to increase the ease of accessibility of jobs, services and facilities
to residents and visitors. Local transport improvements are costly however and
securing them will place significant demands on the Council’s resources.
7.11 The Borders rail link, the first phase of which will link Edinburgh and the
Central Borders, offers the potential for faster and more convenient journeys than
can be achieved by car. This will play a particularly important role in changing
perceptions about the accessibility of the Central Borders and will thus help shift the
focus of commuter demand southwards. It is considered that without the railway it
will be far more difficult to achieve this shift in perception. Progress on the restoration
of the Borders railway will therefore be monitored and if necessary an Alteration to
the Structure Plan will be promoted incorporating a review of future growth patterns.
Update: The Waverley Railway Line now has parliamentary approval and the Act
is now in place. Transport Scotland has been charged with implementing the
scheme. It is anticipated that work will start on site in 2011 with completion around
the end of 2013 services will operate from 2011.
Fit with the Edinburgh and South East Scotland Strategic Development Plan
Lothians Structure Plan
7.12 It is important that the strategies of adjoining Structure Plan areas are
complementary and nowhere is this more important than with the emerging strategy
of the Edinburgh and Lothians Structure Plan. The Edinburgh and Lothians Structure
Plan Review began in 2000 with the publication of a number of options to
accommodate the anticipated growth in demand in Edinburgh (described in
paragraph 1.10).
Update: The Planning etc (Scotland) Act 2006 states that tThe city region around
Edinburgh will form the basis for a new Strategic Development Plan. The Scottish
Borders will is proposed by the Scottish Government to form part of the strategic
planning area.
7.13 In order to assist the implementation of the Scottish Borders Structure Plan
strategy, it will be important that the Edinburgh and Lothians Structure Plan
promotes the option of accommodating growth beyond the Lothians as part of an
integrated long term strategy for the south east of Scotland. A rail link to the Scottish
Borders which, in the longer term, should link south to Carlisle should form part of
this strategy together with improved strategic road links. In the short term, the
Edinburgh and Lothians Structure Plan can also play a complementary role in
accommodating the mobile housing demand which is currently creating commuter
housing pressure in the Northern Borders. The strategic aim is to shift commuter
demand southwards and to provide a rail link between Edinburgh and the Central
Borders and further south.
7.12 The Scottish Borders has the potential to assist the Lothian authorities in
providing an adequate range and choice of housing land that will support the
projected growth in the job market in Edinburgh. The approach also provides the
opportunity to disperse the pressure for employment growth outwith the capital. This
strategic approach for a sustainable pattern of growth in south east Scotland crosses
existing Structure Plan boundaries and will therefore require appropriate support
from the Scottish Government Executive.
Resources
7.13 The foregoing section has highlighted the public spending consequences of
implementing the Structure Plan strategy. At a time of increased resource constraints
for the Council and its public sector partners, there is a particular need to make the
optimum use of all available resources. Ways in which this can be assisted are
through:
• maintaining a continuing close dialogue between the different service
departments of the Council and with external partners. This will help ensure
effective corporate working by the Council and compatibility between the
strategies of the Council’s key partners and the Structure Plan
• prioritising spending decisions by the Council and its partners in ways that
support the locations planned for growth and development. This will affect
projects relating to area regeneration, environmental enhancement, transport,
schools, leisure and recreation
• providing assistance ‘in kind’ to potential developers to help them realise their
proposals, for example, the preparation of development briefs
• making use of Section 75 agreements wherever feasible and in accordance
with legislative guidance, to draw in developer contributions that will ensure
high quality development. The areas which could potentially be included in
agreements include restoration of the Borders railway and associated
infrastructure; other transport infrastructure; water and sewerage
infrastructure improvements - including offsite provision; environmental
•
enhancement - including biodiversity; educational, sporting and recreational
provision; affordable housing
drawing in funds from the European Union under its various programmes, in
particular funds under ‘Objective 2’ which must contribute to the South of
Scotland Programme. The lottery is also an important source of project
funding. All these external sources do however normally require match
funding from the public sector as well as adequate staff resources to manage
and monitor the programmes.
7.14 There have been concerns in the recent past about the levels of Government
funding given to local authorities, although it is acknowledged that this is being
addressed. Local Government in the Scottish Borders does not have the same
opportunities as its counterparts in the Central Belt to attract private sector funds.
Furthermore, at local government re-organisation in 1996, the Scottish Borders
started from a low budget base. Consequently, even if the measures set out in
paragraph 7.13 7.15 are successfully put into place, existing levels of Government
funding¹ may have to be supplemented to implement the measures necessary to
stimulate demand and to accommodate the long term increase in population planned
by the Structure Plan.
1 Central Government currency funds over 80% of the Council’s total budget.
Monitoring
7.15 Whilst the Structure Plan has a notional timescale of 10 years from 20012011, the strategy for growth set out in the plan clearly has a much longer time frame
stretching ahead 20 to 30 years and more. At the same time a number of changes
and events will occur in the shorter term that may affect the strategy and necessitate
an Alteration to the Plan. These include:
• changes in housing land supply and demand
• progress on the Scottish Borders railway
• new Government guidance
• changes in the corporate direction of the Council and the New Ways
Community Plan
• changes in key Council strategies such as the Waste Management Strategy
• changes in the strategies and spending plans of key partners and
stakeholders, in particular, Scottish Water
• resource availability including Government and European funding
• review by Scottish Natural Heritage of environmental designations and the
establishment of Conservation Objectives for wildlife sites
• capability of the local construction industry to meet demand.
7.16 Research and information activity by the Council and its partners will also be
important in monitoring the performance of the Plan and in signalling where an
alteration to the strategy may be necessary. Of particular importance in monitoring
activity are:
• the annual housing land audit incorporating a review of house completion
rates
• research into Housing Market Area boundaries
•
•
•
•
•
•
•
•
•
•
•
•
•
•
outputs from Scottish Borders Housing Needs Assessment
employment land and property audits
annual Vacant and Derelict Land Survey
retail survey work, including vacancy rates and other indicators of town centre
vitality and viability
minerals research, including identification of locations where deposits should
be safeguarded, and local market area information
outputs from the implementation of the Contaminated Land Regime
outputs from the Flood Appraisal Group
preparation of a revised Indicative Forestry Strategy
outcome of the investigation into the extension of the Pentlands Regional
Park into the Scottish Borders
development of high quality environmental information resources
including biological records
development of the Scottish Borders Landscape Character Assessment
outputs from the Sports Facilities Planning Model
implications of the reviews of Conservation Areas and Listed Buildings.
7.17 Monitoring the performance of the Structure Plan requires the systematic
collection of information on indicators which measure progress towards meeting the
Principal Aim and Founding Principles of the plan. Information gained from the
foregoing monitoring process will provide baseline data, whilst indicators being
developed for the New Ways Community Plan will provide more general information
on quality of life issues. Indicators specific to the Structure Plan should be developed
as part of a monitoring framework.
POLICY P4
Performance Monitoring
The Council will undertake a systematic monitoring programme for the Structure
Plan incorporating a regular reporting framework and the development of
performance indicators.
Table 7.1 7.2 Local Plan Checklist
Task
Chapter
Heading
Para/Policy
reference in
Structure Plan
1.38 Principle
S3
Main
Partner(s)
(see key)
CP
Identify site(s) for substantial
development in the GalashielsMelrose-St Boswells corridor
(see Policy P1)
Development
Strategy
Develop Area based strategies
(Central, Northern, Eastern and
Southern Borders)
Development
Strategy
1.39 - 1.43
CP
Develop detailed land use
proposals for enhancement of the
natural and built
environment and heritage
interpretation in town centres,
priority areas for regeneration
and ‘gateway’ towns
Development
Strategy /
Economic
Development
1.39 - 1.43
3.29 (E14)
3.35 - 36
(E19)
3.41
CP
Develop detailed policies and
proposals to support the
implementation of the Local
Biodiversity Action Plan
Environment
1.32 - 34
1.36
Principle S1
SNH
Review Conservation Area
boundaries incorporating
conservation area appraisals
Environment
2.28
HS
Evaluate site options for a new or
upgraded sawmill
Economic
Development
3.12 (E3)
SEB, F
Define areas of search for opencast
coal and related minerals in more
detail
Assess quality and quantity of
employment sites including scope
for reallocation to other uses
Identify sites to meet employment
land supply requirements
Economic
Development
3.24
Economic
Development
3.30
SEB
Economic
Development
3.30 (E12)
SEB, SW,
SEPA
Identify opportunities for single user
industrial and business
development and business parks
Identify sites to meet housing land
requirements
Economic
Development
3.31 (E15)
SEB
Housing
4.14 (H1)
SHBA, SH,
SW, SEPA
Identify affordable and special
needs housing requirements using
findings of Scottish Borders
Housing
4.32 (H8)
SH
Housing Needs Assessment
Determine need for new or
upgraded education and health
services as a consequence of
planned housing provision
Undertake audit of community
services and facilities as a
prerequisite to identifying land use
requirements
Determine the need for new or
improved sports facilities using the
Facilities Planning Model
Identify opportunities for cultural
enhancement
Community
Service
5.11 (C2)
H, HW, BC
Community
Service
5.4 (C1)
CP
Community
Service
5.20 (C4,. C6)
SS
Community
Service
5.14 (C3)
Identify the core access network
incorporating existing and planned
provision in accordance with the
Access Strategy and the Local
Cycle Strategy
Identify routes of proposed railway
and road proposals which have a
realistic prospect of being
implemented
Identify potential for alternative uses
of former railway lines that are
unlikely to be reopened for transport
purposes
Establish priorities for
improvements of transport
interchanges and the scope for
multi-modal facilities
As a pre-requisite to identifying
sites for development
• undertake threshold analysis
on water and sewage
capacities
• review available data on
flood risk
• review available data on
contaminated land
Identify sites for waste management
facilities
Community
Service /
Infrastructure
5.26 (C3)
6.12 (I5)
Infrastructure
6.8 (I3)
6.18 (I8)
6.18 (I9)
Infrastructure
6.8 (I3)
SBTB,
SNH
Infrastructure
6.11 (I4)
SEB
Infrastructure
6.26 (I12)
6.31-32 (I15)
6.36 (I18)
SW, SEPA
Infrastructure
6.35 (I17)
SEPA
Develop detailed policies and
proposals for the siting and design
of telecommunications installations
and the improvement of facilities
Infrastructure
6.49
SEB
SBTB,
SNH
Note: Those elements relating to the provision of housing land in the Local Plan
Checklist have been superceded by the Structure Plan Alteration. See revised Policy
S1.
KEY
New Ways Community Planning Partners/Stakeholders (CP):
SEB - Scottish Enterprise Borders
SNH - Scottish Natural Heritage
SH - Scottish Homes
H - (Health body): - NHS Borders
LBP - Lothian and Borders Police
SBTB - Scottish Borders Tourist Board
HW - Heriot-Watt University
BC - Borders College
SW - Scottish Water
SEPA - Scottish Environment Protection Agency
SHBA - Scottish House-Builders Association
HS - Historic Scotland
SS - sportscotland
F - Forestry bodies : Forestry Authority, Forest Enterprise
Partnerships of particular relevance to the Structure Plan include:
Local Biodiversity Action Plan
Scottish Borderpaths
Tweed Forum
Southern Uplands Partnership
Farming and Wildlife Advisory Group (FWAG)
Scottish Borders Environment Partnership
APPENDIX HI (Superceded by Tables 1 - 3 in chapter 4 on Housing)
Baseline Housing Requirement by Housing Market Area – 1999-2011
[The submitted Appendix H1 is deleted]
APPENDIX H1 H2 (see policies H6, H7, H8)
Update: This appendix has been updated to conform to Finalised Local Plan and
Supplementary Planning Guidance
New Housing in the Scottish Borders Countryside
Criteria to be considered in assessing proposals for:
Conversion of non-residential buildings to residential use (see POLICY H6).
The following criteria will apply:
•
•
•
•
•
•
•
•
no adverse effect on the viability of a farming unit or conflict with the operation
of a working farm
satisfactory access and other road requirements
satisfactory public or private water supply and drainage facilities
the building is structurally sound, in a reasonable state of repair, and capable
of conversion without substantial rebuilding. Where it appears that a building
may not be capable of conversion a structural survey will be required
the building can be converted without significant alterations to its external
appearance which would detract from its character and attractiveness
the building makes a positive contribution to the landscape and has no
adverse effect on countryside amenity or nature conservation
no adverse impact on ancient monuments or archaeological sites
appropriate siting, design and materials in accordance with the relevant Local
Plan policies. In the case of buildings previously converted into residential
use, their demolition and reuse of the site will not be permitted. Exceptions
maybe allowed where the site is to return to agricultural use.
Rebuilding of existing dwellings (see POLICY H6).
The following criteria will apply:
• no adverse effect on the viability of a farming unit or conflict with the operation
of a working farm
• satisfactory access and other road requirements
• satisfactory public or private water supply and drainage facilities
• no adverse effect on countryside amenity, landscape or nature conservation
• no adverse impact on ancient monuments, archaeological sites, or on garden
or designed landscapes in the Inventory of Gardens and Designed
Landscapes in Scotland
• appropriate siting, design and materials in accordance with the relevant Local
Plan policies
• the safeguarding of known mineral resources from sterilisation unless this is
acceptable following an assessment of the environmental implications
• there is substantial evidence of residential use on site. Substantial evidence
would require that the walls of the former residential property are substantially
intact: the roof, or roof shape is distinguishable; and the remains of any
cultivated garden and its boundary features are identifiable. In the case of
former mansion houses in established policy/parkland settings, substantial
evidence of residential use may not be required provided that:
• sufficient documentary evidence exists concerning the siting and form of the
earlier building
• the siting and design of new building reflects and respects the historical
building pattern
• the character of the landscape setting and the extent of new building should
not exceed the original.
New Housing associated with building groups (see POLICY H7).
The following criteria will apply:
•
•
•
•
•
•
•
•
no adverse effect on the viability of a farming unit or conflict with the operation
of a working farm
satisfactory access and other road requirements, where it is considered that
upgrading these requirements would result in a negative affect on the rural
character of the area further new housing will not be permitted
satisfactory public or private water supply and drainage facilities
no adverse effect on countryside amenity, landscape or nature conservation
no adverse impact on ancient monuments, archaeological sites, or on garden
or designed landscapes in the Inventory of Gardens and Designed
Landscapes in Scotland
appropriate siting, design and materials in accordance with the relevant Local
Plan policies
the safeguarding of known mineral resources from sterilisation unless this is
acceptable following an assessment of the environmental implications
any consents will not exceed 100% of the existing number of housing units
within the building group.
New Housing within an Anchor Point
The following criteria will apply:
• the site sits within the Southern Housing Market Area and is recognised as a
“dispersed community”
• any consents will not exceed 100% of the existing number of housing units
within the dispersed group
• the scale and siting of any new housing should reflect and respect the existing
character of the dispersed community
• no adverse effect on the viability of a farming unit or conflict with the operation
of a working farm
• satisfactory access and other road requirements
• satisfactory public or private water supply and drainage facilities
• no adverse effect on countryside amenity, landscape or nature conservation
• no adverse impact on ancient monuments, archaeological sites, or on garden
or designed landscapes in the Inventory of Gardens and Designed
Landscapes in Scotland
• appropriate siting, design and materials in accordance with the relevant Local
Plan policies
• the safeguarding of known mineral resources from sterilisation unless this is
acceptable following an assessment of the environmental implications.
Isolated Housing in the Countryside (see POLICY H8)
The following criteria will apply:
• the house can be shown by the developer to be essential at that location for
the needs of agriculture or other business use currently occupying or requiring
an appropriate rural location. These would include businesses that would
cause
• disturbance or loss in amenity if located within an existing settlement or
building group and businesses that would result in a clear social or
environmental benefit to
•
•
•
•
the area, including the retention or provision of employment and the provision
of affordable or local needs housing
where permission is sought for a house related to a business, a business plan
supported by referees or independent business adjudication will be required
no appropriate site exists within a building group
no suitable house or other building capable of conversion exists for the
residential use.
All applications for new houses will be tested against an analysis of:
• the presence or otherwise of a group. The existence of a group will be
identified by a sense of place which will be contributed to by natural
boundaries such as water courses, trees or enclosing landform or manmade
boundaries such as existing buildings, roads, plantations or means of
enclosure. Normally a group will consist of residential buildings comprising at
least three dwelling units including existing buildings capable of conversion to
residential use
• the suitability of that group to absorb new development
• where the threshold would be reached only by the conversion of existing
buildings, no new building should be permitted until the conversion had been
completed.
[Modifications to Key Diagram:
Delete 2019-26 housing requirements for each HMA
Show Waverley Line to Tweedbank as ‘proposed rail services’ and from Tweedbank
southwards as ‘possible railway services’.]