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 Alteration was approved by Scottish Ministers in June 2009. 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: • • • • • • 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: • • • 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 • • • • 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: • • • • • 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 areawithin 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, potentially 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 • • • • • • • • 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 • • • • • • 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 • 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 • • • • • • • • • 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 2004-2008 2002-2006 Housing Market Area Settlement Central Borders Clovenfords Earlston Galashiels Hawick Jedburgh Kelso Newtown St Boswells Selkirk St Boswells Melrose Rest of Central HMA 31 10 223 110 63 257 11 63 136 111 412 Central HMA Total 1427 Duns Eyemouth Greenlaw Reston Coldstream Rest of Berwickshire HMA 92 142 14 5 92 281 Berwickshire HMA Total 626 Innerleithen Lauder Peebles Stow Walkerburn West Linton Cardrona Rest of Northern HMA 75 124 81 15 12 17 159 151 Northern HMA Total 634 Newcastleton Rest of Southern HMA 3 11 Southern HMA Total 14 Berwickshire Northern Southern Scottish Borders Total Completions 2004-2008 2701 4.16 Over these the past 5 years the annual average number of houses developed has been over 540 490. 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, including a need for a future by-pass 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 longer term housing requirements 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 South East Scotland 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 H3 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 H4 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, higher density development, particularly in proximity to town centres, is encouraged. 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 H5 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 H6 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 H7 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 H8 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 H9 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 H10 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 2008 Housing Land Audit showed the following effective land supply (no of years): - Berwickshire (11.2) Central Borders (6.5) Northern (6.6) Southern (5.9) 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. 7.12 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 ‘committed rail services’ and from Tweedbank southwards as ‘potential proposed railway services’.]
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