RAF Halton SPD
4. Delivery strategy
4.1 Overview
This section of the SPD sets out the intended approach to the phased delivery of infrastructure and the overall redevelopment of the site. It goes on to also consider the council's preferred approach to the submission and content of planning applications.
Policy D-HAL003 provides for the redevelopment of the site coming forward in the latter part of the VALP plan period, with development envisaged to come forward between 2025 and 2033. Since the VALP was adopted, the closure of the RAF Halton base has been postponed to 2027. The policy states that further details about phasing and implementation will be set out in the masterplan SPD for the site. The policy also states, in the 'implementation approach' section, that "Proposals for development within the RAF Halton Strategic Site Allocation will be expected to demonstrate that they deliver a comprehensive redevelopment of this site".
The Council's delivery objectives for the SPD are:
- To secure a comprehensive approach to the redevelopment of the site, in line with Policy D- HAL003
- To secure the delivery of requisite infrastructure within appropriate timescales
- To ensure that the phasing of the redevelopment of the site, maintains the openness of the Green Belt.
4.2 Phasing Strategy
As a previously developed site in the Green Belt, there are challenges to agreeing a phasing approach for this strategic allocation. Unlike a greenfield site, the redevelopment of RAF Halton will require a range of measures to be taken before new development can commence, including the decommissioning of utilities, demolition phasing, remediation to address localised contamination, and installation of new utilities. The timing of these measures, together with the delivery of new infrastructure will only be established following detailed designs through a planning application and full knowledge of the local circumstances might be at the time of development commencing.
Notwithstanding the above caveat, Policy D-HAL003 states that details about phasing and implementation will be set out in the SPD. The overall principles for the delivery of infrastructure at RAF Halton is for it to be provided in a timely and effective way to meet the needs of the community and to ensure that the impact of the development is reduced/mitigated against. The indicative phasing plan at Figure xx and the phasing strategy for the site, seek to provide some certainty for the following key matters:
- The co-ordination of the provision of key infrastructure elements with the delivery of homes: specifically relating to highway work; transport and connectivity; delivery of the community hall, local centre, school, open space, tree planting (and delivery of the tree lined avenues) and any re-provision of sports and recreation facilities. See Figure xx, Indicative Phasing Plan and the Infrastructure Requirements Table xx
- Ensure SANG mitigation is in place prior to the occupation of housing and commitment to deliver it in perpetuity (80 years).
- Land swaps: the landscape strategy utilises a land swap approach to consolidate development areas and create green corridors within the development. The Council wishes to ensure the co-ordination of land swaps to ensure that, as far as possible, the openness of the site within the Green Belt is maintained throughout the build-out period and the delivery of Green Infrastructure keeps pace with increasing built form and density across the site.
- The approach to the phasing and delivery of infrastructure across the site in the event that it comes forward through more than one planning application and developer. In such cases, the Council will expect to use a condition or planning obligation to link together different planning applications in order to secure the delivery of infrastructure serving the whole site.
4.3 Infrastructure Requirements
As explained above, the delivery of infrastructure at RAF Halton is to be provided in a timely and effective way to ensure that the impact of the development is reduced/mitigated against. In terms of the mechanisms for securing the timely and comprehensive delivery of infrastructure the Council's preferred approach is for there to be a single planning application and accompanying S106 legal agreement to cover the whole of the strategic allocation. However, where development comes forward through a number of planning application and S106 agreements, submitted by different developers, those planning applications will need to have regard to this SPD in demonstrating:
- that policy compliant development can still be achieved;
- how the separate developments will accept their share of the costs;
- how the approach will provide certainty over the delivery of full package of the necessary infrastructure while overcoming issues of phasing; and
- how delivery will be achieved.
As a previously developed site in the Green Belt, the strategic allocation benefits from a number of items of existing infrastructure especially the existing sports facilities which are to be retained as part of a long term strategy for sport and recreation for the use of new and existing residents.
Requirements for new infrastructure provision are set out in Policy D-HAL003 and include:
- Junction improvements onto the B4009 Upper Icknield Way
- Provision for public transport into Wendover and to surrounding areas
Establishment and safeguarding for a network of cycling and walking links to and from Aylesbury and to the wider area.
Provision of 50% green infrastructure, including green corridors, to link to other new development areas and wider countryside (see also Chilterns Beechwoods SAC below)
- Provision of land, buildings and car parking for a 2FE combined primary school with 60 place pre-school, including playing field provision
- Provision of land, buildings and car parking for a new local centre, including community hall
Chilterns Beechwoods SAC
Since the VALP was adopted, a Mitigation Strategy1 has been published (November 2022) to avoid adverse public access and disturbance impacts from development on the integrity of the Chilterns Beechwoods SAC at Ashridge Commons and Woods Site of Special Scientific Interest (SSSI). The mitigation strategy specifies Bucks SANG and SAMM requirements specifically and the Statement of Common Ground reached between each LPA.
The Strategy includes a Strategic Access Management and Monitoring Strategy (SAMMS) intended to manage and avoid impacts at their source and to educate those visiting the Chilterns Beechwoods SAC at Ashridge Commons and Woods SSSI. The provision of at least 1,000 new homes at RAF Halton is expected to lead to an increase in the population residing within the 12.6 kilometre Chilterns Beechwoods Special Area of Conservation Zone of Influence.
To mitigate the potential recreational disturbance from this population to the Chilterns Beechwoods Special Area of Conservation a twin mitigation package is required. It is anticipated that this will take the form of:
- A financial contribution for each net new home within the Zone of Influence towards a Strategic Access Management and Monitoring Strategy (SAMM). This strategy will be set out in a guidance document.
- Provision of a Suitable Alternative Natural Green Space (SANG) either on-site as part of the 50% Green Infrastructure provision or off-site as part of a strategic SANG to meet the needs of the allocation. This will be delivered at 8ha/1000 population and meet the Buckinghamshire SANG Guidance criteria.
The delivery and the in-perpetuity maintenance of the SANG can satisfy and should be agreed with Natural England. The aim of this green space is to provide a good quality and accessible recreational space capable of reducing the need for the new population to visit the Chilterns Beechwoods Special Area of Conservation. Perpetuity in this context is taken as at least 80 years. At the time of the planning application, visitor surveys must be undertaken to inform the Appropriate Assessment and ensure sufficient SANG is provided.
Both of these mitigation measures will be considered as part of the determination of planning applications submitted to the council for this allocation affecting the Zone of Influence.
Figure 13: Proposed SANG
Viability and Deliverability
Key to a successful development will be the delivery of a high quality and sustainable place in which to live, including the provision of appropriate infrastructure at the right time. Co-ordination between the Council, landowners / developers and key stakeholders will be important to achieve this. Given the long timescale for delivery of RAF Halton, due to the base not being vacated until after 2027, it may be appropriate to reconsider the viability of proposals at later stages. This may mean that the level and / or timing of affordable housing provision required or the timing of provision of elements of infrastructure as set out in this Supplementary Planning Document may need to be revisited.
Where landowners / developers wish to consider scheme viability, which is likely to be when planning applications are submitted, the Council will require an independently assessed open book approach to be taken so that the outcomes and implications of viability testing at application stage can be carefully evaluated by the Council in light of the aspirations and requirements set out in this Supplementary Planning Document.
The following table sets out the infrastructure requirements and the trigger points that should be used to determine when they should be delivered.
New Infrastructure requirements and trigger points/indicative delivery timescale
Item
Requirement
Policy
Delivery timescale/ trigger point
Delivery Lead
Mechaism
Highways
Junction improvements onto the B4009 Upper Icknield Way
D-HAL003 c
Short term
Council
S278
Public Transport
Provision for public transport into Wendover and to surrounding areas
D-HAL003d
Short term
Council
S106
Walking and cycling
Establishment and safeguarding for a network of cycling and walking links to and from Aylesbury and to the wider area
D-HAL003e
Medium term
Council
S106
Green infrastructure
Delivery of the tree lined avenue and green infrastructure across the site and arrangements for ongoing maintenance and management
D-HAL003f
Short/medium and longer term
Developer
S106
ANGST compliant GI
Provision and management of 50% ANGST compliant GI across the site
D-HAL003 f
Throughout the development period
Developer
S106
SANG compliant GI
Provision prior to occupation of housing and maintenance in perpetuity (80 yrs) of 50% GI to Accessible Natural Green Space Standard. May be provided on or off-site
SAMMS
Short term/ throughout the development
Developer
SAMMS mitigation
SAMM contributions
Provision of financial contributions per dwelling to contribute to the strategic management and long term maintenance
SAMMS Council policy
Short term
Developer
SAMMS mitigation
Education
Provision of land, buildings and car parking for a 2FE combined primary school with 60 place pre-school, including playing field provision
D-HAL003g
Medium term: Site transfer at the point when admissions into reception from within the development reaches 15 pupils (estimated to be on occupation of the 350th home or four years from commencement whichever is the earlier)2
Council
S106
Retail and community facilities
Provision of land, buildings and car parking for a new local centre, including community hall
D-HAL003h
Medium term
Developer
S106
Existing sports facilities
Retain existing sports facilities within the strategic allocation, as part of a long term strategy for sport and recreation service new and existing residents
D-HAL003 j
In line with disposal strategy for the base
Developer
S106/ stewardship arrangements
Note: Indicative Delivery Timescales, reflecting the planned date of closure of RAF Halton, within the years of commencement of development
- Short = 0-3 years
- Medium = 4 to 7 years
- Long = 8 years onwards
Apportionment
The Council's preference is for a single planning application to come forward for the site, through which a S106 agreement would be put in place to ensure the comprehensive and timely delivery of the required infrastructure.
However, should the site come forward through multiple planning applications from multiple developers, then it will be necessary for those planning applications to be able to demonstrate that:
- A policy compliant development can be delivered
- The separate developers/ developments will accept their respective share of infrastructure delivery costs
- The full package of the necessary infrastructure will still be delivered at the right time and in the right place
In the case of multiple applications, an apportionment mechanism will be required to ensure the delivery of infrastructure. The proposed approach to apportionment and its methodology should be agreed between the council and the developers at as early a stage in the development of the strategic site as possible. The delivery of the infrastructure set out in this SPD will be informed by an infrastructure agreement between the individual developers/landowners. The infrastructure framework will be endorsed by the Council and will set out the agreed apportionment of financial and in-kind contributions. The details in the infrastructure agreement will be legally secured through the S 106 agreement and planning conditions for each individual application.
4.4 Sustainability Requirements
The climate change and other environmental impacts of the development at RAF Halton are to be minimised by incorporating high levels of sustainable design and construction techniques including the re-use of existing built structures to maximise the existing embodied carbon on site, and encouraging walking, cycling and the use of public transport in accordance with the council's planning policies in the Vale of Aylesbury Local Plan.
The Implementation Approach section of Policy D-HAL003 expects proposals for development within the RAF Halton Strategic Site Allocation to demonstrate how they deliver a comprehensive redevelopment of this site and positively contribute to the achievement of the SPD and the Aylesbury Garden Town principles as set out in Policy D1, Delivering Aylesbury Garden Town. Policy D1 (j) states "New garden communities should be designed to be resilient places that allow for changing demographics, future growth and the impacts of climate change by anticipating opportunities for technological change including renewable energy measures and 5G."
VALP Policy C3, Renewable Energy, asks all development schemes to seek greater efficiency in their use of natural resources including minimising energy use, improving water usage efficiencies, and the promotion of waste minimisation and recycling. The policy requires a feasibility assessment for district heating and cooling technologies for this strategic site. Where the feasibility assessment demonstrates that decentralised energy systems are deliverable and viable, then the Council will encourage the use of such systems as part of the development. Due to the Aylesbury Vale area being in an area of water stress, the development could assist in reducing the water stress by delivering a higher level of water efficiency than that requires under the Building Regulations. The RAF Halton site redevelopment will entail the adaptation and reuse of older buildings, notably the listed Groves and Henderson Barracks; the adaptation of such buildings should deliver improvements to energy and water efficiency while respecting and enhancing their significance as listed buildings.
4.5 The Planning Application Process and Expectations
The Council's preference is for a single outline application or hybrid application including a detailed Phase 1 proposal. This Supplementary Planning Document does, however, acknowledge that multiple outline and/or full planning applications for individual land parcels may be made. In the case of outline applications, these will be followed by reserved matters applications.
In the case of multiple applications / developers, it will be necessary for the developers to demonstrate how they will deliver comprehensive development of the site (as required by VALP Policy D-HAL003). A co-ordinated approach from all developers will be required, and this will need to be evidenced in their submissions.
The Council's expectation is that applicants should undertake pre-application engagement with the local community and relevant statutory and non-statutory consultees before submitting their applications.
This Supplementary Planning Document, along with the Vale of Aylesbury Local Plan, and other Supplementary Planning Documents adopted by the Council creates a strategic framework against which an application will be determined. It is a requirement that an application is accompanied by a suite of accompanying documents and information in accordance with national and local planning policy. The information to be submitted is as set out in the following list. This list is not a definitive list and should individual applications be submitted not all will need to provide all the information set out; it will depend upon the size and scale of the proposal and any pre-application discussions with the Council.
- Plans and drawings
- Design and Access Statement
- Planning Statement
- Transport Assessment and Travel Plans
- Flood Risk Assessment and Drainage Statement
- Landscape Visual Impact Assessment
- Arboricultural Survey & Landscaping
- Biodiversity Report
- Archaeology and Heritage Assessment
- Air Quality Assessment
- Noise Assessment
- Environmental Statement Screening and/or Scoping (with potential Environmental Statement subject to Screening)
- S106 Heads of Terms
- Infrastructure Delivery Statement
Governance and Engagement Expectations
In line with Policy D1 (i), planning applications for the site should set out how public areas and community assets will be maintained in the long term, and, where appropriate, how the community can be involved in the governance of these assets. In particular, this is likely to consider the existing sports pitches and Nuffield Pavilion, as well as the new school, local centre and community facilities where these are provided within the site.
Halton Parish Council has expressed its vision for the future use and management of the sports fields and open green spaces on the strategic allocation. The Parish Council would like to preserve a sustainable sports field complex which will both enhance the 'larger' Halton P arish as well as offering sports facilities for hire to the wider community. To that end the Parish Council, through the site disposal process, would like to acquire the existing playing fields together with the Nuffield Pavilion, to ensure that, in the long term, these facilities would be owned and operated by and for the benefit of the local community.
The landowner will make the decision as to the approach to long term stewardship of the site's assets.
However, early engagement between the DIO/future landowner, their preferred developers and the Parish Council and local community will provide opportunities for all parties to share ideas and suggestions as to how the community assets can be delivered and secured for future generations to ensure a long-lasting legacy.
The delivery of 50% green infrastructure to Accessible Natural Green Space Standard within the allocation. The green infrastructure being provided must have a long-term management and maintenance strategy and be agreed by the council. A mechanism must be secured to manage the green infrastructure in perpetuity. The management and maintenance strategy shall set out details of the owner, the responsible body and how the strategy can be implemented by contractors.
Subsequent Design Stages and Expectations
An outline planning application will need to be accompanied by a Design and Access Statement that will set out how the application relates to the overall Supplementary Planning Document Masterplan. An application will need to provide parameter plans, proposed character areas, typologies and illustrative layouts which will demonstrate how the Supplementary Planning Document design objectives can be delivered within the scheme.
The council will consider if design codes are appropriate at the pre-application stage.
Delivery, Monitoring and Review
The Council will monitor the significant effects of the SPD. The Council is required to produce a Monitoring Report at least yearly to monitor the implementation of the Local Development Scheme (LDS) and the extent to which policies in the Local Plan are being achieved. The Monitoring Report will report on the effectiveness of policies within the VALP and other relevant policy and guidance documents including this SPD.
The test of the effectiveness of the policy D-HAL003 and the design and placemaking considerations in this document will be whether the sustainable development of the site has been achieved in accordance with the Council's policy aspirations and the vision and objectives. The Council will monitor the stages in the development process including the obtaining of planning permission, construction of the approved development and subsequent occupation. This information will be fed into the Annual Monitoring Report. If there is evidence that the development is failing to meet the objectives, it will be reported together with an explanation and proposed remedial steps.
