Pre-Deposit Plan (Preferred Strategy)

7 The Preferred Strategy

Refining the Preferred Strategy

7.1 The preferred Strategy for the 2RLDP is a hybrid between 3 different options. Consequently, it is necessary to refine the strategy to identify the elements from each strategy option that will be combined to deliver a cohesive overall strategy for the plan.

Areas of Growth

7.2 The Preferred Strategy is heavily influenced by two specific strategy options that that adhere to policy considerations outlined in Future Wales, namely Option 4: Metro Investment Focus (Future Wales Policy 12 - Regional Connectivity, Policy 36 – South East Metro), and Option 5 – Town Centre First (Future Wales Policy 6 – Town Centre First).

7.3 The Metro Investment Focus requires that development be located close to sustainable transport links, primarily the major bus and rail stations across the County Borough. The rail stations within the County Borough are located on the Rhymney Valley Line, which runs up the western side of the County Borough from Caerphilly to Rhymney, and the Ebbw Vale Line that runs up the eastern side of the County Borough from Risca through to Newbridge and Crumlin. It should be noted that Blackwood is not located on a rail line and Nelson, whilst on the Cwmbargoed line, does not have passenger services. However, both have bus centres that would include them within the metro focus. In addition to these two centres, Bargoed and Caerphilly also have bus stations.

7.4 The Town Centre First Policy seeks to locate development within and close to existing towns and cities across the region. In terms of the County Borough this translates to locating development in close proximity to both the County Borough's Principal Town Centres and its Local Centres.

7.5 The Principal Town Centres and the Local Centres all have rail or major bus stations, with the exception of Bedwas which is in close proximity to Caerphilly, and, as such, both options indicate a requirement to identify new growth and development in proximity to those centres.

7.6 Normally the plan would identify strategy areas within which certain levels of growth and development would be expected. However, the linear nature of the metro stations and the distribution of the Principal and Local centres do not lend themselves to forming cohesive spatial strategy areas. Consequently the Preferred Strategy does not identify spatial strategy areas within the County Borough.

7.7 In the absence of defined spatial strategy areas the distribution of new development will be defined around the Principal and Local Centres, which are identified in the Settlement Hierarchy.

The Strategic Site

7.8 The next issue is to consider whether the strategy should identify a strategic site, i.e. a site that, because of its size, would be essential to the delivery of the strategy and any failure in delivery would undermine the delivery of the strategy. Only 1 site of significance has been submitted to the Council for consideration under the Candidate Sites process, and that is the Parc Gwernau site at Maesycwmmer. The site is comprised of 212 hectares of land to the south of the existing settlement of Maesycwmmer and is capable of accommodating approximately 2,700 dwellings with ancillary infrastructure and community facilities. The key element of the site is the provision of a new access road that will also provide a strategic highway improvement to alleviate congestion issues on the A472 through Maesycwmmer.

7.9 The Maesycwmmer site is a very large site in respect of development within the County Borough and it would be unrealistic to propose that the whole development would be delivered within the 2RLDP plan period. Consequently the site would need to be delivered across two development plan periods. This will mean that, if identified in the plan the 2RLDP will need to identify the proportion of the site that will be delivered up to 2035, with the remainder being delivered under a subsequent plan.

7.10 The question is whether the Preferred Strategy should identify a significant level of development that would constitute a strategic site, an amount that, if not delivered, would undermine the delivery of the strategy, or whether to identify a reduced level of development that would mean that the delivery of the strategy is not wholly reliant on the allocation coming forward during the plan period. The hybrid strategy includes the Strategic Site Option as part of the overall Preferred Strategy and as such the site at Maesycwmmer should be included in the 2RLDP.

7.11 The method of funding the road has significant implications in how the development is phased and progressed and, critically, what point in the development the access road is delivered in full. The first option, with the Council providing funding to deliver the road at the start of the development would enable the development to be delivered in a general north-south progression, with the benefit of the road being in place from the beginning of the development, delivering the strategic improvement from the outset.

7.12 The second option, with the funding for the road being solely derived from the development, would mean that a significant proportion of the development would need to be delivered before the necessary capital is generated from the scheme to deliver the road in its entirety. In this option it is likely that development would commence at both the northern and southern ends of the proposed development and development would progress from both ends and meet in the centre of the site at the end of the development. This would have particular implications for the provision of the road as it would be unlikely to be delivered until the latter stages of the development, possibly beyond the plan period for the 2RLDP. It would also mean that the additional traffic generated by the development would need to be accommodated on the existing transport network, placing additional strain on the existing network, which would require improvements to be made to the strategic highway network.

7.13 Identifying the Maesycwmmer site as a Strategic Site would enable the 2RLDP to identify a significantly greater level of development on the site than if the site were included as a normal allocation. The provision of a greater level of development means that more of the community and infrastructure benefit will be delivered during the plan period, benefitting the existing and new residents of Maesycwmmer earlier in the development.

7.14 On balance the best approach for the site is to deliver as much of the development as is reasonable during the plan period. This scenario provides the maximum benefit from the site during the plan period, contributing significantly towards the delivery of the dwelling requirement as well as providing infrastructure and an improvement to the strategic highway network that will assist with bus movements through Maesycwmmer. Therefore the 2RLDP will allocate the Maesycwmmer site as a Strategic Site to deliver approximately 1,200 dwellings (out of a total of approximately 2,700 dwellings) during the plan period. In addition the site will be identified in the Preferred Strategy as a Strategic Site.

Key Land Use Issues

7.15 Chapter 3 sets out the key land use issues that the 2RLDP will need to address in order for the plan to be successful. The Policies that follow reflect the main strategic issues that are facing the County Borough and provide the overarching policy framework for addressing them.

7.16 The issue of climate change and its implications are a key consideration for any development plan and mitigating for climate change effects as well as reducing emissions contributing toward climate change are fundamental elements in any development strategy.

7.17 Decarbonisation, as a measure to tackle the contributors towards global warming and to mitigate against its effects, is a key strand in Welsh Government policy on development. The generation of energy from renewable and zero carbon sources is an essential part of delivering decarbonisation. Future Wales requires Council's to be proactive in delivering renewable energy generation and identifies Pre-Assessed Areas throughout Wales where large scale wind energy is, in principle, acceptable and where the principle of landscape change is accepted. On a more local scale the Council will support and encourage appropriate schemes for renewable energy generation and will also work together with energy providers to deliver appropriate schemes. To reflect this the Preferred Strategy includes a policy to support the delivery of renewable energy.

7.18 The delivery of Sustainable Development is a duty on all local authorities throughout Wales. Sustainable development and the creation of sustainable places promotes active and healthy lifestyles and contributes significantly to well-being. Delivery of sustainable development is underpinned by placemaking, and the plan will be underpinned by sound placemaking principles.

7.19 The requirements for Councils to deliver both the biodiversity duty and the duty to deliver sustainable development means that green and blue infrastructure is an important consideration in any development proposals and must be a fundamental element of their design. The Council must maintain and enhance green and blue infrastructure in their decisions and the 2RLDP will need to ensure that green and blue infrastructure enhancement is at the very heart of the plan. Consequently the Preferred Strategy sets out an overarching policy under which detailed policies will be introduced through the Deposit 2RLDP to deliver the Council's duties. Developers will, therefore, need to show that opportunities for green and blue infrastructure have been maximised as part of any development proposals.

7.20 Employment is the principal issue that the 2RLDP will need to address to deliver the Preferred Strategy, which is based upon the County Borough achieving a growth in population and, in particular, economic population, to be in a position to deliver the CCR targets of delivering 3.7% growth in jobs (amounting 25,000 new jobs in the region). To do this the 2RLDP will need to identify land for employment development that will assist in addressing the economic pressures that have arisen from the impacts of Covid-19, Brexit and natural changes in the economy which are predicted to adversely impact on the County Borough's largest employment sector, namely manufacturing. In addition the 2RLDP will also seek to expand and enhance the town centre and visitor offer to assist in generating economic growth for the County Borough.

7.21 Tourism makes an important contribution to the local economy, and there is significant investment planned to enhance the tourist offer in the County Borough. Regeneration activities are focussing on the enhancement of tourism generally, along with widening and encouraging tourist related activities and the development of visitor accommodation. A key element in delivering an improved visitor offer is increasing accessibility through sustainable transport, including metro improvements and local active improvements which link tourist assets together.

7.22 It is essential that the 2RLDP makes provision for sufficient housing, of the appropriate type, size and affordability, and in the right places to enable the County Borough to attract and sustain the level of population growth that will support and deliver the economic aspirations of the plan.

7.23 The 2RLDP must make provision for sufficient residential land to meet the future needs of communities for both market and affordable housing. The Preferred Strategy supports a housing requirement of 6,750 dwellings over the plan period, or 450 dwellings per annum, based on the CCR Working age population growth scenario. This is a dwelling led scenario, which would support growth in the working age population at a level that would accord with the economic growth aspirations of the Cardiff Capital Region and would require a level of housing that is realistic but ambitious in respect of past trends, reinforcing Caerphilly County Borough's position within a National Growth Area in Future Wales and assisting in the delivery of affordable housing. The Population and Housing Growth Options Paper provides a more detailed assessment of the scenarios considered and the justification for the preferred growth option.

7.24 As required by the Development Plans Manual (Edition 3), an allowance of 10% has been added to the housing requirement to allow for choice and flexibility, as there may be unforeseen circumstances that affect the delivery of housing allocations. This flexibility allowance may be subject to change in the Deposit 2RLDP following the allocation of sites in accordance with the Preferred Strategy.

7.25 The provision of 7,425 new dwellings will be delivered by a number of components of the Housing Land Supply, as set out within Table 3 below. Detailed information on how each of the components has been derived can be found in the Housing Land Supply and Affordable Housing Target Evidence Base Paper.

Table 3: Housing Requirement Calculation

7.26 The Deposit 2RLDP will include a housing trajectory, which will set out the anticipated housing delivery rates over the plan period. This will form the basis for the future monitoring of the delivery of the components of housing supply against targets.

7.27 The Council aims to ensure that everyone in the County Borough has access to a good quality home that meets their housing requirements and the provision of a range of housing that is affordable to the local population is vital in achieving this. A shortfall of affordable housing is a significant issue facing residents in the County Borough. Indeed, the 2018 Local Housing Market Assessment (LHMA) indicates that there is a shortfall of 282 affordable units per annum for the five-year period 2018-2023.

7.28 The target of at least 1,360 affordable dwellings reflects the number of units that it is expected can be delivered across the County Borough through the use of planning obligations and conditions. The components that contribute to the affordable housing target are summarised in Table 4 below. Further details can be found in the Housing Land Supply and Affordable Housing Target Evidence Base Paper.

Table 4: Affordable Housing Target Contribution

7.29 A policy setting out site size thresholds and area specific targets based on a robust assessment of viability will be included within the Deposit 2RLDP following the completion of an update to the Affordable Housing Viability Assessment. The Deposit 2RLDP will also be supported by an updated LHMA, reflecting recent changes to the LHMA methodology.

7.30 A move towards sustainable modes of transport is essential in tackling the issues of climate change, congestion and air quality issues. In order to maximise these opportunities all development proposals will need to demonstrate that the sustainable transport hierarchy has been adhered to.

7.31 Llwybr Newydd, the new Wales Transport Strategy 2021, sets an ambitious target of 45% of all trips to be made by sustainable modes by 2045. To get anywhere near achieving this modal shift target it is essential that development plans include ambitious policies addressing this issue. Currently, however, there is a lack of readily available information to inform where we are currently and how far we are down the road to modal shift change. Consequently the Preferred Strategy does not include a specific County Borough based target, rather it seeks deliver change in accordance with the national targets.

7.32 Improvements to the transport system, both for sustainable modes and in respect of the existing highway infrastructure, are required in order to enable the Preferred Strategy's proposed levels of growth to be delivered. Whilst the strategy focusses on sustainable transport and seeks to locate development close to transport and service centres, improvements in transport infrastructure will be required to ensure accessibility. In some cases this will include improvements to the existing highway network as sustainable transport uses the highway network as well as dedicated routes for bus and active travel purposes. Consequently the Preferred Strategy seeks to improve transport infrastructure where it will increase accessibility and facilitate sustainable transport.

7.33 As part of actions to improve the transport infrastructure, it is essential the 2RLDP maximises the opportunities to repurpose former rail lines for transport related developments, including developing them for passenger transport purposes. Consequently it is important to protect former rail routes from development that could prejudice their future transport use. In addition to this the Council continues to support the reinstatement of passenger services to 2 of its former rail lines and will seek to promote these through the Metro Plus programme.

7.34 The Council fully supports any proposals the promote the development of the South East Wales Metro. In addition, the Council will also support proposals that make the existing transport network more resilient and more efficient for sustainable transport. It is acknowledged that transport improvements and new transport routes can take a significant period of time to come to fruition and, as such it is essential that the Council protects strategic transport improvement routes from in appropriate development that could prejudice their future use for transport purposes.

7.35 The establishment of a road hierarchy will facilitate the efficient use of the highways network by ensuring that traffic is channelled onto the most appropriate routes in order to maintain appropriate environmental, amenity and safety conditions. Maintaining an efficient and safe highway network will assist public transport services in the form of buses, maintaining their frequency and ensuring that they run to schedule.

7.36 The Preferred Strategy seeks to locate development in close proximity to the main sustainable transport nodes and service centres in the County Borough. Retailing is a fundamental element of the functions that the main service centres perform and as such the retail hierarchy for the County Borough will strongly influence where growth is located in the County Borough. In addition Future Wales identifies that major retail and public sector development should be located within the main centres as the first consideration. Consequently it is important that the retail functions of the main centres are protected from inappropriate development, whilst allowing flexibility in order for the centres to continue to thrive.

7.37 It is a requirement that the Council takes account of the needs of the Gypsy and Traveller community in preparing their development plans. The Council is required to prepare a Gypsy and Traveller Accommodation Assessment (GTAA) which will inform that process. Unfortunately it was not possible to complete the Council's GTAA in time for the Pre-Deposit consultation, so the Preferred Strategy includes a commitment to accommodate gypsy and traveller needs identified through the GTAA.

7.38 It is a statutory requirement for the Council to maintain a 10-year land bank of permitted minerals reserves throughout the plan period. To do this the Council will protect existing reserves from inappropriate development and ensure sufficient reserves have been permitted to provide the 25-years' worth of permitted reserves that would ensure the 10-year land bank at the end of the plan period. In addition to this the Council will encourage the use and re-use of secondary aggregates as far as possible.

7.39 The provision for waste management infrastructure is made at a sub-regional level and, as such, the Preferred Strategy does not make provision for waste infrastructure. However, it is important that the Preferred Strategy includes overarching policies that facilitate the delivery of the elements of the hierarchy.

7.40 The Preferred Strategy Key Diagram is set out below. It should be noted that the Key Diagram is an indicative plan and that it shows the specific allocations set out within the Preferred Strategy in the context of the County Borough. The diagram is not to a specific scale or based upon an OS Map Base. Consequently the allocations identified on it are indicative and do not specific sites or routes.

Figure 5 - Preferred Strategy Key Diagram