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Waverley Borough Council Committee System - Committee Document

Meeting of the Executive held on 04/10/2004
Draft - Local Development Scheme

Local Development

Waverley Borough Council

September 2004

Introduction 2
Objectives of the Scheme 2
The guidance 3
The national and strategic context 4
The Waverley Borough Local Plan 4
The area covered by the LDF 4
Local Development Documents 4
The Proposals Map 5
Programme management 5
Statement of Community Involvement 6

The area 6
National planning policies 6
Regional Planning Guidance 7
The Surrey Structure Plan 7
The Community Strategy 7
Local community involvement 8
Joint working 8
Resources 8
Programme management and responsibilities 9
Production of unforeseen document 10
Political interaction 10
Risk Assessment 10
SEA and Sustainability Appraisal 11
Evidence base 11
Annual monitoring 12
Priorities 13
How the LDF fits together 13
Development Plan Documents 14
New Supplementary Planning Documents 16
Existing Supplementary Planning Documents 17
Tasks to be carried out post 2007 17

- 1 -


This Local Development Scheme (LDS) provides the starting point for the preparation of a Local Development Framework (LDF) the new name for a Local Plan. The Local Development Framework will replace the Local Plan, which contains a large number of policies and proposals governing the use of land and buildings in Waverley, and will comprise a number of different Local Development Documents (LDDs) instead of a large single document. It will be produced by the Spring of 2007 and will not be so detailed.

The LDS sets out the programme for the preparation of the LDF with an emphasis on the considerable degree of public involvement that is envisaged.

Preparation of the LDS is a mandatory requirement under the Planning and Compensation Act 2004.

Objectives of the Local Development Scheme

The objectives adopted for the Waverley Borough Local Development Scheme (referred to after this as the Scheme) are set out in the ODPM document ”Creating Local Development Frameworks: Consultation Draft on the Process of Preparing Local Development Frameworks”:-

It is the starting point for the community and stakeholders to find out about the LPA’s planning policies in respect of a particular place or issue, and what the status of those policies will be; and

it outlines the details of and timetable for the production of local development documents (LDDs) over a three year period”

The guidance

The Waverley Borough Local Development Scheme is being prepared in accordance with guidance in the following Government documents:

Planning Policy Statement 1 : Creating Sustainable Communities 2004

Planning Policy Statement 12 : Local Development Frameworks 2004

The Town and Country Planning (Local Development) (England) Regulations 2004; (referred to after this as the Regulations)

Local Authorities (Functions and Responsibilities)(Amendment)(No2)(England) Regulations 2004 The Planning and Compulsory Purchase Act 2004 (Commencement No 2, Transitional Provisions and Savings) Order 2004 Consultation Draft: Local Development Frameworks : Guide to Procedures and Code of Practice (2003)

Creating Local Development Frameworks : Consultation Draft on the process of preparing Local Development Frameworks (2003)

The model LDS “Hogbury District Council Local Development Scheme” (2003) (produced by GOSE.).

The Strategic Environmental Assessment Directive: Guidance for Planning Authorities. 2003

Community Involvement in Planning: the Government’s Objectives (2004)

As well as the written guidance there have also been a number of consultations with GOSE during the period of devising the Local Development Scheme.

The National and Strategic Context

The LDS will be prepared within the national and strategic context:

National Planning Policy as set out in current Planning Policy Guidance (PPGs) and emerging Planning Policy Statements (PPSs);

Regional Planning Guidance (March 2001) and the emerging Regional Spatial Strategy (now called the South East Plan) currently being prepared by the South East England Regional Assembly (SEERA);

The emerging Replacement Surrey Structure Plan.

The Waverley Borough Local Plan

The Waverley Borough Local Plan was adopted on 23rd April 2002.

This Borough wide plan will be “saved” for three years from commencement of the Act, in accordance with the transitional arrangements set out in PPS12. The Council will bring forward LDDs to replace parts of the Plan during this three-year period in accordance with this LDS. Where the Council can demonstrate that elements of the saved Plan are fully in line with LDDs, it will be possible to seek to extend the three year period.

The area covered by the Local Development Framework

The area covered by the Local Development Framework will be the whole Borough of Waverley.

Local Development Documents (LDD)s

Regulation 8 of the Regulations requires that all the Local Development Documents (LDDs) to be included in the Local Development Framework must be listed in the Scheme. This has been done in the form of three schedules:

Schedule A: Development Plan Documents (DPDs).

Schedule B: Supplementary Planning Documents (SPD).

Schedule C: The existing Supplementary Planning Guidance relating to the Waverley Borough Local Plan 2002.

Diagram A shows the structure of the Scheme.

The Proposals Map

Since the Local Plan is to be saved, i.e. retained for three years, the Proposals Map will be the current one until the Local Development Framework is adopted. However, individual amendments will be published to accompany documents as they are produced. The intention for the final new Map is to change the format to make it easier to identify sites. The exact approach will emerge during the process of producing the Plan.

Programme management

Table 1 sets out the timetable for these schedules and shows how the tasks are spread out to enable best use of resources. The documents are in proposed priority order. The intention is to split production of the different documents so that there is more than one Examination (a new name for the Public Inquiry). This will avoid a situation where the whole plan comes together at once and puts extreme pressure on the production team and the Inspectorate.

The individual pages in Annexe A on the different documents explain the timetables in more detail.

Annual monitoring report

The Council is required to monitor annually how effective the policies and proposals are in meeting the vision and the Core Strategy DPD. The report will be published in mid December each year.

The Council will assess:

whether it is meeting the targets set out in the LDDs and if not, the reasons why;

what impact LDD policies are having on other targets set at national, regional or local level;

whether any policies need to be replaced to meet sustainable development objectives;

what action needs to be taken if policies need to be replaced.

Statement of Community Involvement

The intention is to integrate the SCI with the work on consultation for the Council as a whole, covering both the planning requirement, and the wider corporate strategy. The reasoning behind this is that both strands of work are functionally related. It could also remove duplication.


This statement explains and justifies the approach set out in the Local Development Scheme. In addition it explains how resources and the evidence base will be managed across the programme.
The area

Waverley Borough is 133 square miles in area and is the largest District in Surrey. Two thirds of the area lies in the Green Belt and three quarters is in the AONB. It is a largely rural Borough but has four urban settlements, Farnham, Godalming, Haslemere and Cranleigh. It has a total population of some 115,600 (2001).

National Planning Policies

The government is gradually replacing the current 25 Planning Policy Guidance Notes (PPGs) with Planning Policy Statements (PPSs). These Planning Policy Statements (PPSs) differ from PPGs in that they set out national planning policies which will frame locally focussed policies and proposals to be included in LDFs. It will not therefore be necessary for LDFs to restate national planning policy. LDFs will set out how these policies will be applied at the local level.

Regional Planning Guidance and Regional Spatial Strategies

The current Regional Planning Guidance for the South East was published in March 2001. This Guidance covers the period up to 2016 and is to be replaced by a Regional Spatial Strategy (RSS) now called the South East Plan which is currently being prepared by SEERA. The Council will continue to liase fully with SEERA as it develops the RSS and in particular as it considers the housing allocations, economic strategy and the roles of the main settlements and the countryside.

The Surrey Structure Plan

The current Surrey Structure Plan was approved in 1994 and covers the period up to 2006. The Deposit Replacement Structure Plan was published in December 2002 and was the subject of an Examination In Public in November/ December 2003. The Panel’s Report has now been received. When adopted, the Replacement Structure Plan will cover the period up to 2016. This Plan will be saved in accordance with the transitional arrangements in PPG12 for a period of 3 years until it is replaced by the RSS.

The Community Strategy and other Strategies

The Waverley Community Strategy was launched in June 2003. A number of land use issues have arisen and these will be addressed in the Local Development Framework. It is intended to synchronise public consultation on review work for the Community Strategy and the Local Development Framework, where possible. It is likely that this will mean involvement by the Assistant Chief Executive, who led the Community Strategy. Other Waverley strategies include:

The Corporate Plan, incorporating:

Community Safety Strategy
Cultural Strategy
Cycling Strategy
Economic Opportunities Strategy
Financial Strategy
Housing Strategy
Leisure Strategy
Local agenda 21 programmes

External strategies studies and Plans that will have an impact are:-

The Surrey Community Strategy
The Surrey Countryside Strategy
The Surrey Heritage Strategy
The Surrey Minerals And Waste Local Plan
The Surrey Local Transport Plan will have a key effect on development patterns.
Car parking Strategy for Surrey 2003
Health Trust Strategies
Surrey County Council Education strategies
The Blackwater Valley Study

Local community involvement

This will include activities promoting and encouraging Parish Plans and Design Statements etc: as well as consultation through the Statement of Community Involvement. Some of the outputs may not be pure planning issues and so the land use impacts will need to be extracted.

Joint working

An informal officer group has been set up called the West Surrey Group, comprised of Guildford, Waverley, Surrey Heath and Woking. Its purpose is to share good practice and ideas about the Local Development Framework process. The group will not operate formally to produce joint documents, but will collaborate on documents which have common themes such as the Statement of Community Involvement.

There will be scope for continued joint working with the Blackwater Valley Network and with Surrey Districts. There may be opportunities for sharing the evidence base on issues such as retailing, and for using information from Surrey County Council.

Resources % of time

Development Control and Policy Manager 10%

Policy and Special Projects Manager 60%

Policy and Projects Officer 70%

Principal Planning Officer 70%

Principal Planning Officer 70%

Policy and Information Officer (part time) 40%

Planning Technician 90%

Technical Assistant 80%

The members of the Policy Section are versatile and four hold a senior position. Four of the team have had facilitator training. The use of consultants is being considered as it is recognised that the task load is weighty.

The Wonersh Village Design Statement is being produced by the Parish Council and the Farnham Conservation Area Appraisal is being prepared in partnership with various organisations in the town. Work by other organisations such as the Health Check teams and Surrey County Council will be invaluable. This input from organisations will enable the production of a greater amount of planning guidance, than could be achieved by the Council alone.

Programme management and responsibilities

The intention is to seek three Examinations to spread the workload across the three year period. The dates chosen will rely on the availability of the Inspectors, but the dates are flexible.

The key contacts are:-

The Assistant Chief Executive

Development Control and Policy Manager

Policy and Special Projects Manager

Progress on the Local Development Framework will become a standard item on the Planning and Development Management Team agenda and milestones will be reported to the Borough Council Chief Officers Group.

Production of Unforeseen Documents

The need may arise for the production of a document that was not foreseen in the LDS 2004. Should this happen, the Council will consult GOSE to explain the need for the document and to obtain formal agreement for a review of the LDS. The Council will start the early stages of evidence gathering and community involvement (in accordance with the Statement of Community Involvement) ready to move to Regulation 17 stage on public consultation, as soon as the LDS review is agreed.

Political Interaction

Members will be involved at all stages throughout the preparation of the LDF. This will include both formal and informal arrangements and would entail working alongside town and parish councils. An opportunity to develop more innovative and participatory role for councillors is being recognised and explored.

Risk Assessment

Capacity of the Planning Inspectorate (PINS): This is out of our hands, but we have given them early warning of our intentions to have two examinations, so as to spread the workload.

Soundness of DPDs: We will minimise this risk by working closely with GOSE throughout the process.

Legal challenge: We will minimise this by ensuring that DPDs are “sound” and founded on a robust evidence base and well audited stakeholder and community systems.

Programme slippage: We have built some capacity into the later part of the programme to allow for slippage. (See the Gantt timetable)

Undelivered expectations: Different client groups will have expectations about the process and/or outputs that may not be delivered. Our clarity of communications will be critical.

Strategic Environmental Assessment (SEA) and Sustainability Appraisal (SA)

The requirements of the SEA Directive have been linked with regulations covering SA. From this flows the need for the process of LDD preparation to:

identify strategic alternatives;
collect baseline information; predict significant environmental effects more thoroughly;
secure greater consultations with the public and environmental authorities;
address and monitor the significant environmental effects of the plan;

As part of the process the Council must:

prepare an environmental report on the significant affects of options and the draft plan;
carry out consultation on the draft plan and accompanying environmental report;
take into account the environmental report and the results of consultation in decision making;
provide information when the plan is adopted and show how the results of the SEA have been taken into account.

Evidence base

The following studies will be undertaken:

Baseline environmental information based on an update of the Waverley Environment Audit;

Up-to-date housing needs assessment

Local Urban Capacity Study

Assessment of need for open space and audit of existing facilities.

Annual monitoring

In accordance with Regulation 48, the Annual Report will include the following information:

the title of all documents is in the LDS

the title and stage reached by the LDD

if production is behind on a LDD the reason for this. This may include staff changes/illness which could impact significantly on the very tight timetable;

any LDDs that have been adopted;

any DPD policies that are not being implemented and the reasons

whether a LDD is being replaced

preparation of a trajectory of forecast future housing supply against strategic housing requirements.

the number of dwellings to be built for any other period;

the outcome of the existing policies in the Adopted Local Plan

loss/gain of employment land.

loss/gain of open space.

monitoring outputs and outcomes of DPDs and SPDs

The output of the monitoring reports will feed into the preparation of the 2007 LDS. The reports will assist in the identification of core policies that are not fully effective and additional SPDs that need to be produced.


The priorities are:

the Statement of Community Involvement

the Core Strategy

the Housing Land Allocations

The SCI has priority because it sets the approach for consultation on all the other Documents. The Core Strategy determines the overall spatial strategy and policy base for the Local Development Framework. The housing allocations are required by government as a major element in the plan.

How the Local Development Framework fits together See Schedules A,B and C

The Adopted Local Plan

Under the Regulations the Adopted Local Plan will be saved for three years until July 2007, whilst development plan documents are put in place to replace it. As each development plan document is adopted, the policies and proposals in the adopted local plan will be withdrawn.

The Statement of Community Involvement

The Statement sets out how the Council will engender involvement by the community, in the production of all local development documents and in planning applications. The SCI has top priority, so work has commenced on engaging the Local Strategic partnership, stakeholders and the wider community, to find out how they wish to be involved in the process for preparing each type of document.

This will enable formal submission for examination of the Statement of Community Involvement to take place in February 2005 following early scrutiny. Regulations 17, 25 and 26 need to be complied with.

Development Plan Documents (Schedule A)

The Core Strategy Development Plan Document DPD

The Core Strategy will set out the key strategic elements for the planning framework for the area. It will comprise a sustainable vision and strategic objectives for the area, along with a spatial strategy, a number of core policies and a monitoring and implementations framework. It will be kept up to date and will last for a 15 year period from the date of adoption of this DPD. It will identify areas rather than specific sites, where major change should take place to address development, transport and infrastructure needs. It will be prepared in conformity with RPG/RSS and will have regard to the Waverley and Surrey Community Strategies and the saved Structure Plan, in so far as they are compatible with RPG/RSS. It is a priority because all other documents must be in conformity with the Core Strategy.

It will include a key diagram showing this broad spatial locations of development, Area Action Plans, key transportation elements and links with neighbouring authorities.

Housing DPD

The Housing DPD will identify, in conformity with the Core Strategy and with regard to evidence in the Urban Capacity Study, sufficient sites on the Proposals Map to provide for at least 5 years supply from the adoption of this DPD. Together with identified sites, (windfalls), the Housing DPD will demonstrate a total of 10 years supply from the date of adoption. The Housing DPD will also contain policies to address evidence of housing need, for example affordable housing. Those polices will replace affordable housing policies H5 and H6 in the Adopted Local Plan, and Policy H7 on Special Needs Housing. It will also include an assessment of the needs of Waverley-based gypsies and travellers, levels of occupancy within existing sites and their capacity for further intensification.

Industrial and Commercial Land DPD

Sustainable economic growth will be an essential ingredient of the Local Development Framework. Whilst the Council recognises the need to continue to foster the development of small and medium sized enterprises, which make up the backbone of Waverley ‘s economy, it is also recognised that the stock of land suitable for employment purposes is limited. The Council has a consistent policy towards safeguarding suitably located employment land and in pursuance of this, will carry out a study to identify the capacity of key and secondary employment sites. Existing industrial and commercial sites which are not suitable for employment will be assessed for other uses such as housing.

Development Control Policies DPD

In accordance with PPS12 Local Development Frameworks, a number of development control policies will be included in the Local Development Framework, against which the detail of specific development proposals can be considered. These will have regard to issues such as amenity, design and environmental impact. Annexe B includes a list of policies from the Waverley Borough Local Plan 2002. This schedule sets out those policies which it is proposed to save beyond 2007 and the policies to be replaced, deleted or merged.

Planning Obligations and Community Infrastructure DPD

Section 106 agreements under the Town and Country Planning Act 1990 give an opportunity for the Council to enable the provision of much needed infrastructure, environmental improvements and community facilities, some of which may have been identified in the Community Strategy, first published by the Council in June 2003 and subject to current review.

Hindhead AAP

The Council is committed to carrying out a SPG for the future of Hindhead, in the light of the major changes that will occur because of the A3 tunnel and its effect on Hindhead. This intention has now been overtaken by the new Local Development Framework approach. In view of the negotiations with owners and developers that will be needed and the opportunities for enhancement, it is proposed to produce an AAP which will seek to foster the benefits of the area once the through traffic has been removed and to improve its environmental quality. It may involve working in parallel with East Hants District Council or any proposed DPD it may have for Grayshott.

Farnham Town Centre AAP

It is intended to deal with Farnham, as an Area Action Plan, because it is a sensitive urban area subject to change and considerable traffic problems. The issues are complex and require proper scrutiny as a DPD. Also it is felt that policies need the full force of development plan status to support the Council in negotiations with developers.

Dunsfold Aerodrome AAP

The purpose of the AAP is to address redevelopment opportunities on the site in a co-ordinated and comprehensive manner and to provide development proposals which make full use of economic and social benefits and safeguard the ecological, environmental and infrastructure resources.

Sport and Leisure DPD

The recent application for David Lloyd Leisure Ltd and the Farnham Rugby Union Football Club and a recent request from the Wey and Arun Canal Trust have raised many issues about the need for leisure facilities in the Borough. A Leisure DPD would replace Policies LT6, LT7 and LT8 in the Waverley Borough Local Plan 2002, and would seek to deal with the need for and identification of sites in a proactive way within a framework based on sustainable objectives.

New Supplementary Planning Documents Schedule B

Parking Management Plan SPD

A Parking Management Plans is required to implement the County Car Parking strategy at the local level. The first stage is the definition of parking zones (already agreed with the County Council). The PMP will focus on the four main centres, providing area-wide packages of measures to address identified problems and pressures. The PMP will contain interim strategies, pending the production of more detailed town centre strategies, (such as the Farnham AAP). The PMP will be a corporate document, that will combine land use planning and car parking management issues.

Waverley Cycling Plan SPD

In 1997, Waverley Borough Council adopted its first Cycling Plan. It has also established a Cycling Forum to bring together interested parties. The Council has, in conjunction with the Cycling Forum, produced a draft Cycling Plan. This will be subject to public consultation and will be a SPD. The Cycling Plan contains a number of objectives, attached to which are specific actions, many of which have a timescale for completion. It is envisaged that the Cycle Forum will monitor these, and make appropriate revisions to the Plan, by removing actions that have been completed and bringing forward new actions.

Conservation Area Appraisals for Farnham and Bramley SPD

The conservation area appraisals are being carried out on a partnership basis with local organisations and will be a SPD.

Existing SPGs - Schedule C

Schedule C of the Scheme sets out the existing SPGs. These will be saved and incorporated into the Local Development Framework. The Extensions SPD will be the subject of further public consultation.

A sustainability appraisal and strategic environmental assessment will be carried out on all the saved SPGs.

Tasks to be carried out post 2007

Godalming, Haslemere and Cranleigh AAPs

The Council will carry out Area Action Plans for Godalming, Haslemere and Cranleigh. This work will be brought forward as resources become available.

Ockford Ridge SPD

This study would involve a comprehensive appraisal of the Ockford Ridge area of Godalming, looking at housing, community facilities, social conditions and enhancement.