Local Plan Review 2040 Chapter 3 - Theme 3

Theme 3 - Core Policies 34 to 52

Cherwell Local Plan Review 2040
Chapter 3 - Theme 3: Building Healthy and Sustainable Communities

Housing

Core Policy 34: District Wide Housing Distribution

Assessing Housing Need

3.159. The new Local Plan needs to be informed by a local housing need assessment, conducted using a ‘standard method’ in national planning guidance – unless exceptional circumstances justify an alternative approach which also reflects current and future demographic trends and market signals.

3.160. In addition to the local housing need figures any needs that cannot be met within neighbouring areas should also be taken into account in establishing the amount of housing to be planned for.

3.161. The ‘standard method’ is a formula based on nationally projected household growth for the local area and the housing affordability of the area (based on a house price and workplace earnings ratio). Some adjustment is required depending on local circumstances.

3.162. Under the standard method, Cherwell has a need for some 742 new homes per annum which would equate to 14,840 homes for the period 2020-2040. Oxford has a ‘capped’ need of 762 homes per annum.

3.163. Government guidance highlights that the standard method for assessing local housing need provides a minimum starting point in determining the number of homes needed in an area. It does not attempt to predict the impact that future government policies, changing economic circumstances or other factors might have on demographic behaviour.

3.164. It states that there will be circumstances where it is appropriate to consider whether actual housing need is higher than the standard method indicates. This includes but is not limited to situations where increases in housing need are likely to exceed past trends because of:

Growth strategies for the area that are likely to be deliverable, for example where funding is in place to promote and facilitate additional growth (e.g. Housing Deals);
Strategic infrastructure improvements that are likely to drive an increase in the homes needed locally; or
An authority agreeing to take on unmet need from neighbouring authorities, as set out in a statement of common ground.

3.165. An Oxfordshire Housing and Economic Needs Assessment (HENA, 2022) was commissioned jointly by the Council with Oxford City Council to examine these issues. The Assessment recommends that housing need be understood on the basis of the projected share of employment across the county by 2040. It then presents four different alternative scenarios for housing need distributed according to that share of employment.

Table 1 Distribution of Housing Need by Distribution of Employment in 2040
Area	Projected Percentage of Need	Scenario 1: Standard Method	Scenario 2: Census Adjusted	Scenario 3: Cambridge Econometrics Economic Baseline	Scenario 4: Economic Development Led
Oxon	100%	3,388	4,721	4,406	5,830
Cherwell	22.9%	776	1,081	1,009	1,335
Oxford	30%	1,016	1,416	1.322	1,749
South Oxon	18%	610	850	793	1,049
Vale of White Horse	16.2%	549	765	714	944
West Oxon	12.8%	434	604	564	746

3.166. The Assessment concludes that its evidence points to an overall scale of housing need above the minimum level of need arising from the Standard Method’. It states that the Standard Method underestimates housing need by not capturing demographic data post 2014, and not allowing for sufficient housing to match the level of job creation expected to 2040.

3.167. The Assessment also considers that the Economic Led scenario is overly optimistic in the present economic conditions.

3.168. Of the two middle scenarios, Cherwell and Oxford officers presently agree that Scenario 3 in the above table is most appropriate in current circumstances - a level of housing needed to support the level of workforce implied by an updated projection of economic growth for Oxfordshire.

3.169. The new projection, while accounting for the county’s strong past performance, also reflects the negative shock of the Covid-19 pandemic, the subsequent recovery, and the economic uncertainties surrounding ‘Brexit’. The Housing and Economic Needs Assessment is available to view alongside the draft plan.

Question 19: Do you have comments on the Housing and Economic Needs Assessment?

Calculating Overall Housing Need

3.170. Our current assumption is that Cherwell has need for some 1,009 homes per annum to meet its own projected needs. We also assume that Oxford has a need for some 1,322 homes per annum.

3.171. Oxford City Council published its own consultation paper on housing need in from February to March 2023. In that paper, it considered that Oxford had capacity to accommodate 457 homes per annum having regard to its administrative boundaries and constraints. This may change. But on that basis, Oxford could have an unmet need of some 865 homes per annum.

3.172. Were that unmet need to be distributed to the other districts to the same percentages as previously occurred in 2014, Cherwell would accommodate approximately 33% of the unmet need.

3.173. Overall housing need could therefore be as shown below:

Table 2: Projected Housing Need
Projected Housing Need
Cherwell’s housing need	1,009 per annum
Oxford’s housing need	1,322 per annum
Oxford’s current housing capacity	457 per annum
Oxford’s current unmet need	865 per annum
Indicative % of unmet need to Cherwell	32.8%
Unmet need potentially distributed to Cherwell	284 per annum
Housing need to be met in Cherwell	1,293 per annum
Housing need to be met in Cherwell 2020-2040	25,860

3.174. The suggested figure of 1,293 homes per annum compares to a current figure 1,362 per annum (1,142 for Cherwell’s needs plus an average of 220 per annum for Oxford over 20 years).

3.175. We will keep this under review as the Plan process continues and continue to discuss the strategic priority of housing need across Oxfordshire with our neighbouring Local Planning Authorities.

Establishing a Potential Housing Requirement

Table 3: Draft Housing Requirement
Plan Period	2020 to 2040
Draft Plan requirement	25,860

3.176. We would need to deliver 25,860 homes by 2040 to meet our own needs and make a significant contribution to Oxford’s potential unmet housing need.

3.177. But the housing requirement in a Local Plan is not necessarily the same as the housing need identified.

3.178. A Local Plan process needs to test whether housing need can be met and whether there are reasons to propose a different housing figure.

3.179. We have begun by examining our existing housing supply.

Understanding Existing Housing Supply

3.180. We already have a very significant level of housing supply. The Local Plan adopted in 2015 allocated land to meet Cherwell’s need at the time and in 2020 we adopted a Partial Review of that Plan to help meet Oxford’s needs. We have granted planning permissions for many homes and we expect others to be provided over the period to 2040.

3.181. Our last district-wide Local Plan was adopted in 2015. Housing delivery since then has generally been over Cherwell’s requirement of 1,142 homes per annum.

Housing Delivery 2015-2022

Table 4: Housing Delivery
Year	District	Banbury	Bicester	Elsewhere
2015/16	1,425	353	367	705
2016/17	1,102	408	371	323
2017/18	1,387	616	355	416
2018/19	1,489	654	437	398
2019/20	1,159	598	284	277
2020/21	1,192	443	476	273
2021/22	1,175	511	341	323

3.182. Our assessment of housing supply for the future may change but our current assessment for 2020-2040 is provided below:

Table 5: Housing Supply 2020-2040
	Housing Completions 2020-22	Deliverable Supply 20222-2040*	Developable Supply 2022-2040*	Totals
Banbury	954	2,273	1,871	5,098
Bicester	817	4,391	5,588	10,796
Heyford Park	136	643	1,103	1,882
Kidlington	109	32	0	141
Rural Areas	351	538	0	889
Partial Review Sites	0	1,090	3,310	4,400
Windfall Projection	0	1,000	0	1,000
Totals	2,367	9,967	11,872	24,206

*Appendix 3

3.183. Indicatively, this would suggest that we only need to identify a further 1,654 homes to meet the housing need identified (a need of 25,860 minus a current supply of 24,206).

3.184. However, there are a number of issues we need to consider:

Can all our existing housing supply be reliably delivered within the suggested Plan period?
Do we have larger scale developments with longer time frames for delivery?
What does this supply tell us about meeting housing needs at Kidlington?
Is there sufficient supply in the longer term to meet housing need arising from our rural areas?

3.185. North-West Bicester is our largest development site and is currently planned to provide for some 6,000 homes. We consider that about 3,000 of those homes may actually be delivered beyond 2040. We would not seek to preclude earlier delivery but need to be realistic about future delivery expectations.

3.186. This means that our existing supply falls from 24,206 to 21,206 homes by 2040.

Table 6: Existing Housing Supply 2020-2040
Existing Housing Supply 2020-2040	Remaining Draft Requirement
21,206	4,654

Assessing New Housing Supply

3.187. We have more work to do to assess housing land availability and housing potential. Work so far has suggested that the following development options may be appropriate.

Table 7: Potential Development Sites/Supply
Banbury North of Wykham Lane Withycombe Farm (conditionally approved)	600 230
Bicester South-East of Wretchwick Green South of Chesterton/North-West of A41	800 500
Kidlington North of The Moors South-East of Woodstock	300 450
Heyford Park South of Heyford Park	1,235
Rural Areas Indicative allocation	500
Total	4,615

3.188. We suggest potential policies in the area strategies that follow later in the draft Plan. At Appendix 2 we also provide summaries of the site opportunities and constraints.

3.189. A number of questions require consideration:

Do we have the sites available to meet housing need whilst achieving sustainable development?
Do we have demonstrable exceptional circumstances for the potential release of land North of The Moors at Kidlington?
Would the suggested sites for Bicester enable continuity of supply whilst the existing North-West Bicester and Graven Hill sites are built-out?
What additional allowance do we make for the delivery of non-strategic sites in our urban areas?
Do we have sufficient contingency?
Could we ensure a steady supply of new homes over the plan period?
We are not suggesting any ring-fencing of supply for Oxford in the way that we did in the 2020 Local Plan Partial Review. Is this appropriate?
How would we deliver sufficient affordable housing that we would expect to be provided as a percentage of new market housing?

3.190. Later in this emerging Plan, we suggest the replacement of two existing Local Plan policies – those for the Canalside redevelopment area and for Higham Way at Banbury. This could result in the loss of 168 and 150 homes from our existing housing supply. We will need to replace this supply in the next, proposed version of the Local Plan.

3.191. We also later suggest that an additional 1000 homes could be provided at North-West Bicester by replacing the existing Local Plan policy. However, these are not presently expected to contribute to overall housing supply by 2040.

Core Policy 34: District Wide Housing Distribution

Cherwell will provide 25,860 homes from 2020 to 2040:

Area	Homes
Banbury	5,950
Kidlington	900
Rural Areas	1,390
Windfall Projection	1,000
Bicester	9,100
Heyford Park	3,120
Partial Review Sites	4,400

A further 4,000 homes will be provided at North-West Bicester beyond 2040.

Table 8: Current Summary of Housing Supply
Area	Completions	Existing Supply to 2040	New Supply	Totals
Banbury	954	4,144	830	5,928
Bicester	817	6,979*	1,300	9,096
Kidlington	109	32	750	891
Heyford Park	136	1,746	1,235	3,117
Rural Areas	351	538	500	1,389
Partial Review Sites	0	4,400	0	4,400
Windfall Projection	0	1,000	0	1,000
Totals	2,367	18,839	4,615	25,821

*plus 4,000 beyond 31 March 2040

3.192. We will review these emerging proposals in light of further evidence on land availability and site suitability. We are also keen to know which Parish Councils might be interested in a specific allowance for Neighbourhood Plans.

Question 20: Do you have comments on our emerging housing distribution?

Question 21: Are there are any Parish Councils seeking a specific housing requirement for Neighbourhood Plans?

Core Policy 35: Settlement Hierarchy

3.193. Our proposed Settlement Hierarchy is based on an assessment of a number of factors including population size, number and range of facilities and services, settlement characteristics, accessibility, local employment opportunities and the functional relationship with other settlements. Each defined settlement tier has a different role. We are proposing that the hierarchy has four main tiers as follows:

Main Towns
Local Service Centres
Larger Villages, and
Smaller Villages

3.194. Our strategy seeks to protect and enhance the services and facilities provided by our Main Towns, Local Service Centres and Larger Villages. It focuses new homes, jobs and community facilities at these settlements.

3.195. In defining the Settlement Hierarchy, we have taken the opportunity to review the categorisation of villages.

Core Policy 35: Settlement Hierarchy

Development will be approved in accordance with the Settlement Hierarchy and Settlement Classifications set out below:

Main Towns: Main Towns have the ability to support the most sustainable patterns of living through their current levels of facilities, services and employment opportunities. Main Towns have the greatest long-term potential for development to provide the jobs and homes to help sustain, and where appropriate, enhance their services and facilities to support viable and sustainable communities in a proportionate manner.

Local Service Centres: Local Service Centres are large villages with a level of facilities and services and local employment to provide the next best opportunities for sustainable development outside the Main Towns.

Larger Villages: Larger Villages have a more limited range of employment, services and facilities. Unplanned development will be limited to providing for local needs and to support employment, services and facilities within local communities.

Smaller Villages: Smaller Villages have a low level of services and facilities, where any development should be modest and proportionate in scale and primarily be to meet local needs.

**Settlement classifications/type of development**
The Settlement Classifications are: Classification/Settlement	Type of Development
Main Towns: Banbury, Bicester *Local Services Centres: Kidlington(), Heyford Park** Larger Villages: Adderbury, Ambrosden, Bletchingdon (part ), Bloxham, Bodicote, Deddington, Hook Norton, Kirtlington, Launton, Steeple Aston, Yarnton ()	Presumption in favour of sustainable development. Development beyond existing built limits will only be permitted on allocated sites Development at settlements within the Green Belt will be considered against National Policy.
Smaller Villages Arncott, Balscote, Begbroke (*), Bourtons, Charlton on Otmoor (GB), Chesterton, Clifton, Cottisford, Cropredy, Drayton, Epwell, Fencott (GB), Finmere, Fringford, Fritwell, Godington, Hardwick with Tusmore, Hempton, Lower Heyford, Upper Heyford, Horley, Hornton, Horton cum Studley (GB), Islip(GB), Mercott (GB), Middle Aston, Middleton Stoney, Milcombe, Milton, Mixbury, Mollington, Newton Purcell with Shelswell, Noke (GB), Oddington (GB), Shenington with Alkerton, Shipton on Cherwell (GB), Shutford, Sibford Ferris, Sibford Gower, Souldern, Swalcliffe, Tadmarton, Thrupp (GB), Wardington, Weston on the Green (part GB), Wiggington, Wroxton,	Limited infill development within existing built areas or on allocated sites. Proposals will be supported where they are: i. In keeping with local character, and ii.Proportionate in scale, and iii.Meet local housing needs, and/ or provide local employment, services and facilities
Open Countryside Those villages not included within the categories described above are considered to form part of the Open Countryside.	Development will not be appropriate unless specifically supported by other local or national planning policies.

(GB) These settlements are washed over by Green Belt.

(*) These settlements are inset to the Green Belt. (part GB) These settlements are partly in the Green Belt.

Question 22: What are your views on our settlement hierarchy proposals?

Core Policy 36: Affordable Housing

3.196. Providing truly affordable housing is one of our highest priorities. Affordable housing is defined in the NPPF as comprising housing for sale or rent, for those whose needs are not met by the market, including housing that provides a subsidised route to home ownership and/or is for essential local workers.

3.197. Our Housing Strategy (2019-2024) has identified three strategic priorities, which includes the need to increase the supply and diversity of affordable housing to ensure the right types of housing are available in the right places. It highlights that home ownership is out of reach for households on low and average incomes, with social rent being the only truly affordable housing option for many local residents.

3.198. There are a number of ways that affordable homes can be delivered. ‘First Homes’ are a specific kind of discounted market sale housing designed for first time buyers. First Homes are the government’s preferred type of discounted housing for ownership and its planning practice guidance explains that they should account for at least 25% of all affordable housing units delivered by developers through planning obligations. They must be discounted by a minimum of 30% against the market value and the discount, as a percentage of current market value, is passed on for each new occupier. Local authorities can apply a higher minimum discount of either 40% or 50% if a need can be demonstrated. The HENA analyses how first homes could be provided for and suggests that a 30% discount is reasonable, with the expectation that most First Homes will be 2-bedrooms.

3.199. The HENA analyses the need for affordable housing in terms of social/affordable rented housing and affordable home ownership. It identifies a significant need for affordable housing in Cherwell, with a need of 660 social rented/affordable rented homes per year and a further 193 homes to meet affordable home ownership needs. We therefore have to provide as many affordable homes as possible to meet this need. The Council’s interim Viability Assessment tested a range of requirements for affordable housing from 0 to 50% and for First Homes provided at 25%. It currently recommends an overall 30% affordable housing requirement on all sites on overall viability grounds.

3.200. We are currently proposing that all future developments that include 10 or more dwellings, or which would be provided on sites suitable for 10 or more dwellings, will be expected to provide at least 30% of new housing as affordable homes on site. However, with the help of this consultation and our evidence, we need to determine whether we can do more.

3.201. There were 178 net affordable housing completions during 2021/22. In recent previous years the number of affordable homes completed has been above the Council’s affordable housing target of 190 dwellings per year, for example 295 in 2020/21. From the 178 affordable homes completed there were 101 were affordable rented, 7 social rented and 70 in shared ownership. There continues to be limited delivery of social rented homes. The Council’s Housing Strategy explains how housing for social rent is the only truly affordable housing option for many people in Cherwell. The HENA does not recommend that there is a rigid policy for the split between social and affordable rented housing, although the analysis shows that both tenures of homes are likely to be required. The interim viability assessment tested a 70/30 split (affordable/social rent and affordable home ownership). We are proposing that 70% of affordable homes coming forward should be affordable/ social rented.

3.202. Housing proposals (for residential use type C3) will need to provide affordable housing where they meet the thresholds in the Policy. Where the number of dwellings proposed falls below the relevant threshold, or the number of dwellings is not specified, the Council will consider whether sites reasonably have capacity to provide the number of dwellings that would trigger the requirement to provide affordable housing. The purpose of this is to ensure that the policy requirement is not being avoided through inappropriate planning such as ineffective or inefficient use of land or a mix of dwellings that does not reflect other housing policies or local needs.

3.203. We are proposing that affordable housing be met on site unless off-site provision or an appropriate financial contribution in lieu can be robustly justified and the agreed approach contributes to the objective of creating mixed and balanced communities.

3.204. We will support proposals for community self-build or custom-build affordable housing particularly where it will result in suitable empty properties being brought into residential use.

3.205. There are requirements set out in the Partial Review policies (PR2, PR6 to PR9) for affordable housing, mix, house type and size. There is a separate mechanism (part of the Councils Housing Strategy) in place for ensuring that any affordable homes will be provided as part of the Cherwell contribution to unmet need for Oxford. It is proposed that at least 50 % of any additional unmet housing for Oxford being provided within this plan will be affordable homes.

Core Policy 36: Affordable Housing

All proposed developments that include 10 or more dwellings (gross), or which would be provided on sites suitable for 10 or more dwellings (gross), will be expected to provide at least 30% of new housing as affordable homes on site.

First homes should make up 25% of all homes on sites and should have a discount of 30%. The majority of first homes should be 2 bedroom.

Affordable housing is expected to be met on site unless there are exceptional circumstances and where off-site provision or an appropriate financial contribution in lieu can be robustly justified.

Where this policy would result in a requirement that part of an affordable home should be provided, a financial contribution of equivalent value will be required for that part only. Otherwise, financial contributions in lieu of on-site provision will only be acceptable in exceptional circumstances. All qualifying developments will be expected to provide 70% of the affordable housing as affordable/social rented dwellings and 30% as other forms of affordable homes. It is expected that these requirements will be met without the use of social housing grant or other grants.

Question 23: What are your views on our suggested policy for affordable housing?

Question 24: Would you support maximising the delivery of affordable housing, and in particular the delivery of more social rented housing, if sacrifices were made in respect of other requirements?

Core Policy 37: Housing Mix

3.206. Another of our Housing Strategy priorities is to improve the quality and sustainability of our homes, building thriving, healthy and inclusive communities and enhancing opportunities for people to access suitable homes and to have housing choices.

3.207. This Local Plan aims, not only to increase the supply of housing, but to encourage an appropriate mix to enable households to more easily find and move to housing they can afford and that better suits their circumstances. The housing mix needs to enable movement through the market from one house type to another as the needs of households change. This movement frees up housing that might otherwise be unavailable. There is a need to provide a mix of housing that reflects the needs of an ageing population, a growth in smaller households, and that meets the requirements of families.

3.208. The Housing and Economic Needs Assessment (2022) examines the mix of homes that are needed by tenure and identifies the following mix:

Table 9: Mix of housing by size and type
Type	One Bedroom	Two Bedrooms	Three Bedrooms	Four + Bedrooms
Social/Affordable Rented	35-40%	25-30%	20-25%	10-15%
Affordable Home Ownership	20-25%	40-45%	25-30%	5-10%
Market Housing	5-10%	35-40%	35-40%	15-20%

3.209. The evidence shows that more people are working from home than has historically been the case and this trend is expected to continue despite the impacts of Covid 19 reducing. It is important we enable people to work from home and to set up businesses in their homes, as this will help to reduce costs and reduce the need for travelling. The Council will therefore encourage live/work units to be provided in new developments forming part of the dwelling mix. Live/work units can help to create vibrant communities. The employment uses provided in these units will need to be ancillary to the residential use and have regard to residential amenity.

3.210. Providing for a mix of homes and helping to increase affordability could also include building modular homes, which are homes where sections are constructed at a factory and transported to the development site rather than being constructed on site.

Core Policy 37: Housing Mix

New residential development will be expected to provide a mix of homes to meet current and expected future requirements in the interests of meeting housing need and creating socially mixed, vibrant and inclusive communities. This should be in accordance with the Council’s current evidence unless an alternative approach can be demonstrated to be more appropriate through the Housing Register or where proven to be necessary due to viability constraints agreed through ‘open book’ scrutiny.

Information provided by developers on local market conditions and the characteristics of development sites will also be considered.

The Council will encourage live/work units in new developments to help create vibrant communities.

Where appropriate, the provision of alternative building techniques including modular homes will be encouraged.

Core Policy 38: Specialist Housing

3.211. The need to provide housing for older people is critical. People are living longer and the proportion of older people in the population is increasing. The evidence in the HENA shows a significant increase in people in older age groups and a significant need for all types of specialist housing for older people.

3.212. ‘Extra care’ housing, in particular, will be important in meeting the housing needs of an older population across all tenures. Extra care housing comprises self-contained accommodation for older and disabled people, which facilitates healthy, independent living for longer, by providing a range of support facilities on the premises and 24-hour care services. It can help people live longer in their own homes either securely alone or with partners or friends. It meets a need between traditional sheltered housing and residential care and can be purpose-built or adapted accommodation. People have their own front doors but also have the opportunity to benefit from communal facilities. Extra care can also contribute to achieving more social cohesion by providing an opportunity for community living and a better mix of housing within residential areas.

3.213. Our Housing Strategy identifies that 14.1% of Cherwell residents have a long-term limiting health issue or disability and 22% of households in Cherwell include someone with a long term health issue or disability. There is a need for a diverse range of supported housing including for people with learning disabilities, with physical disabilities and for vulnerable young people, including young parents. There is also scope for technology to be provided in new homes to enable individuals of varying ability and older people to live more independently.

Core Policy 38: Specialist Housing

Housing sites will be expected to provide extra care dwellings (C3 use class) as part of the overall mix. The proportion of extra care housing units is to be agreed with the Council based on the nature of the site and proposals in question and having full regard to the evidence of need for these units.

Should it be agreed with the Council that extra care housing would not be desirable in a particular location, an equivalent amount of alternative specialist housing (use class C3) for older people will be required. Elsewhere, opportunities for the provision of extra care, specialist housing for older and/or disabled people and those with mental health needs and other supported housing for those with specific living needs will be encouraged in suitable locations close to services and facilities.

We will support residential care homes (C2 uses classes) and developments which provide for a mix of use classes C3 and C2 where the appropriate infrastructure is provided.

Core Policy 39: Residential Space Standards

Accessible and Adaptable Housing

3.214. There is a focus on supporting older people and those with a disability to live more independently at home. Supporting healthy independent living for longer can help to reduce preventable burdens of poor health, and the costs to health and social services. Providing more housing options for older people can free up homes that are under occupied.

3.215. Given the ageing population and the identified levels of disabilities amongst the population it will be essential for new housing to be built to accessibility standards to help people to maintain independence for longer. The HENA indicates that there will be an increasing demand in the future for specialist housing to meet the needs of the elderly and those with physical or learning disabilities and recommends that 10% of homes could meet M4(3) standards.

3.216. Category 1 requirements are mandatory within the Building Regulations and are classed as a visitable dwelling. Reasonable provision should be made for people to gain access to and use the dwelling and its facilities. A Category 2 dwelling is classed as accessible and adaptable and is optional in the Building Regulations. Provision must be sufficient to meet the needs of occupants with differing needs including some older and disabled people and to allow adaptation of the dwelling to meet the changing needs of the occupant over time. A Category 3 dwelling is classed as for a wheelchair user and is optional in the Building Regulations.

3.217. We are very keen to support people to live independently therefore such developments should be located in places where there is an opportunity to access services and facilities so that people feel less isolated and part of a community.

3.218. The most suitable locations are those closest to the centres of our main urban areas, although there may be other locations that are appropriate, such as within some of our larger villages. Housing schemes for older people and for people with disabilities should be located on sites within convenient reach of shops, community facilities and frequent public transport services. We will have regard to the overall need for this type of development and the use class that is proposed when considering planning applications.

Internal residential space

3.219. The quality of buildings and places, and how they integrate with the natural environment, have been shown to affect how people interact with them. Good quality development can create environments that promote wellbeing and happiness, as well as provide functional, well-built places.

3.220. Internal space within new dwellings is an important factor in creating homes that support a high quality of life and allow households to meet their current needs whilst also being flexible enough to accommodate changes in their circumstances.

3.221. The government has set out appropriate nationally described space standards for new developments. These space standards are predicated on the number of bedrooms and the number of people each new dwelling is intended to accommodate.

3.222. They are mandatory for all new homes developed under permitted development rights. This is in recognition of the fact that many have fallen below these standards in the past and created inappropriately sized homes. To be consistent with this approach we are proposing that all new dwellings, including newly formed dwellings through conversion, conform with nationally described space standards. The requirement to meet these space standards will ensure that all new housing provides good room sizes and levels of storage to provide a decent standard of living, enable people to live in their homes for longer and to maximise the occupancy of affordable homes.

3.223. Separate Regulations apply to sleeping accommodation floor areas in licenced Homes in Multiple Ownership (HMOs).

External residential space

3.224. Outdoor amenity space can make an important contribution to improving the quality of life and well-being of residents, supporting and enhancing local biodiversity, moderating temperature, and assisting with flood prevention. Connecting with the natural environment has been further shown to lower stress, blood pressure and heart rate, whilst improving psychological wellbeing and inclusivity and encouraging physical activity with lifelong benefits.

3.225. Gardens provide a semi-natural habitat supporting a range of species and corridors for movement of wildlife through the local environment. Garden plants and trees help cool the air, combating high temperatures in summer and providing shelter and insulation in winter, thus helping to reduce heat stress and energy consumption. Vegetation and trees intercept intense rain, slowing runoff and so reducing the pressure on urban drains. Unlike hard surfaces, the soil in gardens naturally absorbs rainwater, helping to mitigate fluvial and surface water flooding, and builds community resilience to climate change.

3.226. We are proposing that external amenity space should be sufficient to accommodate:

A table and chairs suitable for the size of dwelling;
Where relevant, provision of a garden shed for general storage (including bicycles if cycle storage is not provided elsewhere);
Space for refuse and recycling bins;
An area to dry washing;
Circulation space, and
An area for children to play in.

3.227. External residential space does not include car parking or turning areas. Suitable arrangements for access to refuse and recycling bins should be made to prevent bins being transported through dwellings and for scooter storage and charging facilities.

3.228. One-bedroom dwellings would not be expected to provide space for children to play due to the lower likelihood of children occupying these units. Dwellings with more than one bedroom would need to take space for children to play into account.

3.229. Where it is appropriate and viable to do so, flatted developments will need to provide high-quality shared amenity areas on-site to meet the needs of residents, including play space for children, in addition to private amenity space and cycle storage.

Core Policy 39: Residential Space Standards

Internal Residential Space

All new dwellings will achieve compliance with the nationally described space standards (or any successor standards/policy) as a minimum.

External Residential Space

New residential dwellings will be expected to have direct access to an area of private and/or communal amenity space. The form of amenity space will be dependent on the form of housing and could be provided as a private garden, roof garden, communal garden, courtyard balcony, or ground-level patio with defensible space from public access. The amount of outdoor amenity space should be appropriate to the size of the property and designed to allow effective and practical use of and level access to the space by residents.

Core Policy 40: Self-Build and Custom-Build Housing

3.230. Self and custom-build is the process by which an individual or association builds housing for their own use, either by undertaking the whole process themselves or by commissioning architects or builders to assist.

3.231. The Self-Build and Custom Housebuilding Act 2015 places a duty on local councils in England to keep a register of people who are interested in self-build or custom-build projects in their area. This register helps the Council understand the level of demand for self-build and custom-build plots in the district. During 2020/21 there were 35 self-build affordable housing completions in the district that took place at the Graven Hill site.

3.232. We are keen to encourage further provision of self and custom build housing in appropriate locations to aid in housing delivery, assist with affordability and to allow for innovative design solutions particularly where they support equality opportunity. We will monitor the demand for this type of housing and where possible will assist in the delivery of sites. Development proposals that involve the creation of low-cost or affordable housing, for instance via Registered Social Landlords or community groups, would be particularly supported as these would provide additional opportunities to meet the demands for affordable homes in the district.

Core Policy 40: Self-Build and Custom-Build Housing

Proposals for custom and self-build housing will be approved in suitable, sustainable locations subject to compliance with other relevant policies of this plan.

The Council will require all housing developments of 100 or more dwellings to include 5% of the residential plots to be serviced and made available for self-build which can include the partial completion for self-finish. This will be reviewed through the Council’s Monitoring Report considering the need shown on the register.

Plots must be made available and marketed for an appropriate time (to be agreed with the local planning authority through the granting of planning permission for the site). If, following this marketing these plots have not sold, and sufficient evidence is provided that there is not likely to be market interest in the plot(s), the applicant will be able to develop the land for further market housing.

Core Policy 41: Sub-Division of Dwellings and
Homes in Multiple Ownership

3.233. With high house prices and the significant need for affordable homes in the district, the conversion of existing housing to flats or maisonettes makes a relatively small but important contribution to the housing stock and meeting housing needs. However, sub-division can have negative impacts on amenity due to the increased occupancy that normally results from sub-division. The design and/or location of some residential areas within our urban areas has meant that houses in these areas have attracted higher levels of sub-division leading to concerns about parking and traffic congestion and loss of local character. It is also important the living conditions of residents of Home in Multiple Ownership (HMO) is satisfactory.

3.234. Subdivision of a building, including any part it, used as a dwelling house for use as two or more separate dwelling houses constitutes development and planning permission is required. However, planning permission is not required when converting from a dwelling house or flat to an HMO property, which is a small-shared house of up to six unrelated individuals.

Core Policy 41: Sub-Division of Dwellings and Homes in Multiple Ownership

Proposals for the conversion of existing dwellings to provide two or more self-contained units of accommodation or to a large HMO will be permitted provided that they would be unlikely to cause demonstrable harm to the amenities and privacy of neighbouring properties.

The Council will expect proposals to comply with parking standards. When considering proposals, the Council will have regard to the sites location in relation to the town centre and public transport provision, and the existing street parking conditions in the locality.

Development Policy 4: Residential Caravans

3.235. A caravan may be required for a temporary period for example to house a key worker or a family member while they construct or renovate their own house. In such cases, provided there are no overriding planning objections on highway, amenity or servicing grounds, a planning consent may be granted on a temporary basis and will only be granted on the understanding that alternative permanent accommodation is sought. Planning permissions may not automatically be renewed at the end of the specified time-period.

Development Policy 4: Residential Caravans

Planning permission will be granted for residential caravans to be located for a temporary period within the curtilage of a house or in close association with an existing land use provided that:

i. The proposal does not cause demonstrable harm to the amenities of adjacent residents, or the character and appearance of the surrounding area;

ii. The proposal can provide a safe and convenient access, and

iii. It is the intention of the applicant to seek alternative permanent accommodation prior to the expiration of the temporary consent.

Core Policy 42: Travelling Communities

3.236. We are required to plan for different groups in the community including for travellers. In August 2015, the Government published its amended Planning Policy for Traveller Sites (PPTS) with its overarching aim to ensure fair and equal treatment for Travellers (gypsies and travellers, travelling showpeople, boat dwellers). It emphasised the need for local authorities to use evidence to plan positively and manage development for these groups. Gypsies, Travellers and travelling show people are entitled to specific types of accommodation that allow them to continue with their traditional and nomadic way of life.

3.237. The 2015 National Planning Policy for Traveller Sites requires Local Planning Authorities, in producing their Local Plan, to identify a 5-year supply of deliverable sites. In 2016 the Government also published draft guidance to local housing authorities on the periodical review of housing needs for boat dwellers and caravans.

3.238. The Cherwell Local Plan (2015) Policy BSC 6: Travelling Communities provides a sequential and criteria-based approach for considering planning applications and sets out targets for the provision of pitches and plots. The targets in the policy are to provide 19 (net) additional pitches to meet the needs of Gypsies and Travellers from 2012 to 2031 and 24 (net) additional plots for Travelling Showpeople from 2012 to 2031. The Council’s 2022 AMR shows that as at 31 March 2022, the total supply of Gypsy and Traveller pitches was 65, which is a net gain of 8 pitches since 1 April 2017, however there are no pending planning applications.

3.239. The most up to date assessment of need is the 2017 Gypsy, Traveller and Travelling Showpeople Accommodation Assessment (GTAA). A new study is being completed and will be published along-side our proposed Submission Plan next year which will set out the Council’s confirmed Policy approach, including the updated identified need for the plan period up to 2040. This will also include information about the needs of boat dwellers.

3.240. We think it is important that sites have access to services, facilities and potential sources of employment, promoting inclusive communities but which will not be out of scale with nearby settled communities. The distances set are considered a reasonable walking/cycling distance and limit the distance needed to travel by private car if this is necessary.

Core Policy 42: Travelling Communities

Sites for Gypsies and Travellers should be within 3km road distance of the built-up limits of our Main Towns, Local Service Centres or Larger Villages. Other locations will only be considered in exceptional circumstances. Locations within the Cotswolds Area of Outstanding Natural Beauty or the Oxfordshire Green Belt are unlikely to be considered acceptable.

The following criteria will be considered in assessing the suitability of sites:

i. Access to GP and other health services;

ii. Access to schools;

iii. Avoiding areas at risk of flooding;

iv. Access to the highway network;

v. The potential for significant noise and other disturbance;

vi. The potential for harm to the historic and natural environment;

vii. The ability to provide a satisfactory living environment;

viii. The need to make efficient and effective use of land;

ix. Deliverability, including whether utilities can be provided cost effectively and without significant impact;

x. The existing level of local provision, and

xi. The availability of alternatives to applicants.

Question 25: Do you agree with our approach for assessing the suitability of sites for travelling communities?

Core Policy 43: Protection and Enhancement of the Landscape

Landscape

3.241. Cherwell enjoys a varied and distinctive local landscape character that is greatly valued by the community. A small part of the Cotswolds National Landscape (AONB) is within the north-west of the district. We will use the policies in the Cotswolds AONB Management Plan to assess any development proposals within the designated area.

3.242. The character of the Cherwell landscape is formed by many different factors including landform, drainage, geology, farming practices, land uses, ecology, settlement patterns and forms of enclosure. It is important that those features that positively add to the local character are protected wherever possible.

3.243. Cherwell falls within three areas of Natural England’s National Character Areas, which it uses to define a specific combination of landscape, geodiversity, biodiversity, history, culture and economic activity in the area. These are:

NCA 95 Northamptonshire Uplands
NCA 107 Cotswolds
NCA 108 Upper Thames Clay Vales

3.244. The Oxfordshire Wildlife and Landscape Study (OWLS) defines 19 landscape character types across Cherwell. It identifies the ‘forces for change’ in a particular location and includes landscape/biodiversity strategies that set guidelines for how developments can contribute towards landscape character. Further landscape sensitivity character assessments have been undertaken to inform this Local Plan. Further landscape character assessments will also be prepared to inform our final plan.

3.245. We also recognise that local landscape features are important elements of our local landscape character and identity. Insensitive development can cause harm to the character and setting of such features and the surrounding countryside. Such important features include Muswell Hill, Crouch Hill, Madmarston Hill, the River Cherwell and Otmoor. Many form landmarks valued by our local communities.

3.246. Other key landforms and landscape features identified, particularly around Banbury and Bicester are:

The open and agricultural setting and identity of the outlying villages surrounding Banbury and Bicester, many with locally distinctive historic cores;
Ironstone ridges and valleys;
Medieval ridge and furrow;
The historic villages and parkland of Hanwell and Wroxton;
Broughton Castle and Grade II Registered Park;
Crouch Hill, an important landmark overlooking Banbury and the surrounding area;
The landscape to the east of the M40 motorway at Banbury which retains a distinct historic pattern;
Salt Way and other ancient routeway and their setting;
The Sor Brook Valley;
The setting of the Oxford Canal and River Cherwell corridor;
Specific features at Bicester noted for their value include those showing notable ‘time depth’ including Former RAF Bicester, Wretchwick deserted medieval village, Bignell Park and the Roman roads;
Graven Hill and Blackthorn Hill that contrast with the relatively flat surrounding landform;
The River Ray floodplains, and
Cropredy Bridge Historic Battlefield.

3.247. Inward investment into the district should not come at the expense of the valued landscapes that make the district a pleasurable place to live and work. We recognise the need for landscape enhancement and that innovative changes to landscapes are sometimes required in order to reinforce aspects that make areas special. Development proposals should demonstrate how they represent a sensitive and contextual response to the landscape to ensure they respond positively to landscape areas and features.

3.248. Many of our settlements are located within or adjacent to landscapes valued by their local communities. There is therefore particular significance placed on the fringe areas of these settlements to ensure a sensitive transition is achieved between built environments and the open countryside. Development proposals set in close proximity to these fringe areas will need to give special regard to their impact on landscape character of nearby rural areas. Greater emphasis in terms of visual impact will be placed on proposals that would extend the boundaries of a settlement into the open countryside.

3.249. Development proposals will be expected to justify any loss of woodlands, trees, hedges, ponds, walls and any other features that are important to the character of local landscapes as a result of their ecological, historic or amenity value. Retention of these features should be prioritised, and any harm should be minimised and appropriately mitigated against.

3.250. Our most up to date landscape evidence and design guidance will be used to assess development proposals in terms of design and appearance to ensure that the type of development, scale and design enhance their immediate and wider setting with the landscape. Innovative design proposals using contemporary construction techniques and architectural styles will be assessed in terms of how they complement the landscapes in which they are located.

3.251. When considering the effect on landscape character, development proposals should not be viewed in isolation. The introduction of numerous clusters of built forms across a landscape can change the way the landscape is perceived and enjoyed. We will consider the cumulative impacts of developments on the landscape when considering development proposals to assess if the combined impact would cause excessive harm to the landscape and, therefore, be regarded as unacceptable.

Core Policy 43: Protection and Enhancement of the Landscape

Development proposals will be expected to preserve the character and appearance of the landscape through the restoration, management and enhancement of existing areas, features or habitats and where appropriate the creation of new ones, including the planting of woodlands, trees and hedgerows.

Development will be expected to respect and enhance local landscape character, securing appropriate mitigation where damage to local landscape character cannot be avoided. Proposals will not be permitted if they would:

i. Cause an unacceptable visual intrusion into the open countryside;

ii. Be inconsistent with local character;

iii. Introduce disturbances to areas with a high level of tranquillity;

iv. Cause coalescence between settlements;

v. Harm the setting of natural and built landmark features, or

vi. Reduce the historic significance of the landscapes.

All major developments proposals must be supported by a Landscape and Visual Impact Assessment. Smaller development proposals may also require an assessment to be submitted if deemed appropriate, having regard to the type, scale, location and design of the proposed development.

In determining development proposals within or adjacent to the Cotswolds National Landscape, great weight will be given to conserving and enhancing the area’s scenic beauty and landscape qualities, including its wildlife and heritage.

The Cotswolds AONB Management Plan will be used as supplementary guidance in decision making relevant to the National Landscape.

Development proposals within the National Landscape will only be permitted if they are small scale, sustainably located and designed, and would not conflict with the aim of conserving and enhancing the scenic beauty of the area.

Core Policy 44: The Oxford Green Belt

Green Belt

3.252. Part of the district falls within the Oxford Green Belt. The fundamental aim of Green Belt policy is to prevent urban sprawl by keeping land permanently open; with the most important attribute of Green Belts being their openness.

Core Policy 44: The Oxford Green Belt

The Oxford Green Belt boundaries within Cherwell District will be maintained in order to:

i. Preserve the special character and landscape setting of Oxford;

ii. Check the growth of Oxford and prevent ribbon development and urban sprawl;

iii. Prevent the coalescence of settlements;

iv. Assist in safeguarding the countryside from encroachment, and

v. Assist in urban regeneration, by encouraging the recycling of derelict and other urban land.

Development proposals within the Green Belt will be assessed in accordance with current government policy and other relevant Development Plan policies.

Core Policy 45: Settlement Gaps

3.253. Each of our towns and villages has its own separate identity. It is important that development on areas of open land between them is avoided where this would lead to coalescence. Some gaps are more vulnerable than others and some rural communities may feel particularly threatened where they are in close proximity to urban areas. An example might be between Banbury and Bodicote. In addition, there are villages that are separated by small stretches of open land that should be preserved to maintain the villages’ identity. An example of this might include the gap between Sibford Ferris and Sibford Gower.

Core Policy 45: Settlement Gaps

Development proposals will need to demonstrate that the settlements character is retained, and physical and visual separation is maintained between settlements.

Development proposals, will only be permitted where:

i. The physical and visual separation between the two separate settlements is not diminished;

ii. Cumulatively, with other existing or proposed development, it does not compromise the physical and visual separation between settlements, and

iii. It does not lead to a loss of environmental or historical assets that individually or collectively contribute towards their local identity.

Core Policy 46: Achieving Well-Designed Places

Design

3.254. Our places are at the heart of everything we do, whether for work, shop, for leisure and recreation, to visit and for living. It is therefore essential we support high quality and healthy places that are accessible and inclusively designed for people at different stages of life and with different abilities, including, children, young people, adults, families and the elderly. All new development should contribute to the creation or enhancement of well-designed and well-built places that are inclusive and benefit people and communities through all aspects of their life.

3.255. The National Design Guide, first published by government in 2019, addresses the question of how we recognise well-designed places, by outlining and illustrating the Government’s priorities in the form of ten characteristics that are shown by Figure 3.

3.256. We are committed to securing exemplary standards of design across the district that contribute positively to vibrant, sustainable, safe and attractive places for our communities, whether in an urban or rural setting.

3.257. We also recognise that innovation and sustainability can provide the foundation to creating healthy and sustainable places. We will therefore promote exemplar architectural innovation in appropriate locations, for example, within our strategic site allocations.

3.258. Buildings are an important component of places and proposals for development. However good design also involves careful attention to other important components of our places. These can include:

The context and setting of proposed places and buildings;
The existing and proposed hard and soft landscape;
Technical infrastructure, such as transport, utilities, and drainage, and
Social infrastructure that supports social, commercial, and leisure activities.

3.259. A well-designed place is therefore unlikely to be achieved by just focusing on the appearance, materials and detailing of buildings. It comes about through making the right choices at all levels, including the layout, the form and scale of buildings, their appearance, landscape, materials, their detailing, and supporting infrastructure.

3.260. Where appropriate, proposals should have regard to specific design advice contained in supplementary planning guidance covering the district. The Cherwell Residential Design Guide SPD, Oxfordshire Historic Landscape Appraisal, Landscape Assessments, Conservation Area Appraisals and Cotswolds National Landscape guidance documents are all key tools for interpreting local distinctiveness and informing high design quality.

Ten characteristics are Context, identity, built form, movement, nature, public spaces, uses, homes and buildings, resources and lifespan. Fore more detail please contact us

Figure 3: The ten characteristics of well-designed places (National Design Guide)
(Context, identity, built form, movement, nature, public spaces, uses, homes and buildings, resources and lifespan).

3.261. Masterplans are an important tool used by designers to set out the strategy for a new development and to demonstrate that the general layout, scale and other aspects of the design are based on good urban design principles. The Cherwell Residential Design Guide SPD sets out the principles of good design that must be demonstrated through the preparation of a masterplan as part of applications for major development and development of allocated sites. These, and other masterplans, should be produced in partnership with Cherwell District Council, the community and other stakeholders. For smaller developments, proposals need only be supported by a design and access statement which should provide a detailed design assessment proportionate to the scheme proposed.

Residential Extensions

3.262. The quality of both the urban and rural environments can very often be adversely affected by residential extensions. Insensitive designs and styles, together with the use of discordant materials, often detract from traditional street scenes within which modern developments may have otherwise been sympathetically introduced. The Council, in dealing with planning applications for house extensions, will therefore pay particular regard to details of scale, design and materials so as to ensure that the character of an area is maintained.

Public Realm

3.263. Investing in the quality of the public realm and the space between buildings is as important as investing in the quality of new buildings, all of which together, create the places in which we live, work, visit and enjoy. Design should always be inclusive, and the design of the public realm and outdoor spaces should cater for all potential users.

3.264. Good quality landscaping is a fundamental part of successful outdoor spaces. It is essential that landscape schemes/designs evolve alongside the architectural designs to ensure that there is a strong relationship between buildings and spaces. Trees and plants are important elements of any landscape scheme as they provide visual interest, add colour, shape and texture that help to frame outside spaces and make them more attractive. The careful choice of hard surface materials can have a big impact on the success and overall quality of outdoor spaces. In selecting materials for hard surfacing, thought should be given to their durability, compatibility with the local context, and relationship with the overall design vision. It is also important to consider practical issues of any landscape scheme, such as lifespan and climate resilience, it is important that the benefits are long term, and how maintenance requirements will be managed over time.

Public Art

3.265. Public art is an excellent way to add interest, create a sense of place and provide a focal point. The Council will work with developers to bring about the incorporation of public art into schemes where this is important to establish or reinforce a sense of place and identity. Public art should not be seen as an embellishment of a scheme or appear as an add-on or afterthought. Rather, it should be part of design considerations from the start and integrated into the overall design concept. Opportunities to reflect local culture and heritage should also be explored.

Secure by Design

3.266. High quality design means creating places that are safe for all, and where crime and disorder, including terrorism, and the fear of crime, do not undermine the quality of life or community cohesion and resilience. New developments should be designed to meet the principles and physical security standards of the Secure by Design scheme. Secure by Design is proven to reduce crime and anti-social behaviour and provides a well-established approach for designing safer developments to minimise opportunities for criminal and anti-social behaviour, and for creating spaces that reduce the fear of crime for everyone.

20 Minute Neighbourhoods

3.267. The 20-minute neighbourhood is about creating attractive, interesting, safe, walkable environments in which people of all ages and levels of fitness are happy to travel actively for short distances from home to the destinations that they visit and the services they need to use day to day, such as for shopping, school, community and healthcare facilities, places of work, green spaces, and more. These places need to be easily accessible on foot, by cycle or by public transport, and accessible to everyone, whatever their budget or physical ability, without having to use a car. This is partly why the strategy set out within this plan focuses development to the most sustainable and accessible places and where there are maximum opportunities for delivering enhancements, especially by using sustainable modes of transport. The 20-minute neighbourhood idea is also about strengthening local economies by keeping jobs and money local and thus facilitating local food production, to help create jobs and the supply affordable and healthy food, more locally for all. Features of a 20 minute neighbourhood: Diverse and affordable homes well connected paths streets, schools, good green spaces, local food production, keeping jobs and money local, community health and wellbeing, place for all ages Figure 4: 20 Minute Neighbourhoods

The Circular Economy

3.268. In addition to the 20-minute neighbourhood concept, the Local Plan also supports a ‘circular economy’ principle, that aims to keep resources in use as long as possible, extracting maximum value from them, minimising waste and promoting resource efficiency. This approach helps to minimise the use of new materials, and we will therefore encourage circular economy principles to be taken into account throughout the design process. These principles are:

Building in layers – ensuring that different parts of the building are accessible and can be maintained and replaced where necessary;
Designing out waste – ensuring that waste reduction is planned in from project inception to completion, including consideration of standardised components, modular build and re-use of secondary products and materials;
Designing for longevity;
Designing for adaptability or flexibility;
Designing for disassembly, and
Using systems, elements or materials that can be re-used and recycled.

Core Policy 46: Achieving Well Designed Places

All new development will be expected to complement and enhance its surroundings through sensitive siting, layout and high-quality design. Poorly designed developments will not be permitted. New development proposals should:

i. Be designed to deliver high quality, safe, attractive, durable and healthy places for living and working;

ii. Be designed to improve the quality, function, and appearance of its locality;

iii. Deliver buildings, places and public spaces that can adapt to changing social, technological, economic and environmental conditions, including resilience to the effects of climate change;

iv. Support the efficient use of land and infrastructure, through appropriate land uses, mix and densities;

v. Adopt the principles of 20 Minute Neighbourhoods where appropriate;

vi. Contribute positively to an area’s character and identity by creating or reinforcing local distinctiveness and respecting local topography and landscape features, including skylines, valley floors, significant trees, historic boundaries, landmarks, features or views, in particular within designated landscapes, within the Cherwell Valley and within Conservation Areas and their setting;

vii. Respect the traditional pattern of routes, spaces, blocks, plots, enclosures and the form, scale and massing of buildings. Development should be designed to integrate with existing streets and public spaces, and buildings configured to create clearly defined active public frontages;

viii. Reflect or, in a contemporary design response, re-interpret local distinctiveness, including elements of construction, elevational detailing, windows and doors, building and surfacing materials, mass, scale and colour palette;

ix. Promote permeable, accessible and easily understandable places by creating spaces that connect with each other, are easy to move through actively and sustainably, and have recognisable landmark features;

x. Demonstrate a holistic approach to the design of the public realm to create high-quality and multi-functional streets and places that promotes pedestrian movement and integrates different modes of transport, parking and servicing. The principles set out in The Manual for Streets should be followed;

xi. Consider the amenity of both existing and future development, including matters of privacy, outlook, natural lighting, ventilation, and indoor and outdoor space;

xii. Limit the impact of light pollution from artificial light on local amenity, intrinsically dark landscapes and nature conservation;

xiii. Be compatible with up to date urban design principles, including Building for Life, and achieve Secured by Design accreditation consider sustainable design and layout at the outset, where building orientation and the impact of microclimate can be considered within the layout Incorporate energy efficient design and sustainable construction techniques, whilst ensuring that the aesthetic implications of green technology are appropriate to the context (also refer to the climate change policies set out within this plan);

xiv. Integrate and enhance green infrastructure and incorporate biodiversity enhancement features where possible (see Core Policy 11: Protection and Enhancement of Biodiversity and the Natural Environment and Core Policy 15: Green Infrastructure). Well-designed landscape schemes should be an integral part of development proposals to support improvements to biodiversity, the micro-climate, and air pollution and provide attractive places that improve people’s health and sense of vitality;

xv. Use locally sourced sustainable materials where possible;

xvi. Demonstrate high quality, inclusive and sustainable design with the provision of a safe, pleasant, convenient and interesting environment where the quality of the public realm is enhanced and the likelihood of crime and fear of crime is reduced, and

xvii. Not harm the use or enjoyment of land and buildings nearby including living conditions in residential properties.

The design of all new development will need to be informed by an analysis of the context, together with an explanation and justification of the principles that have informed the design rationale. This should be demonstrated in the Design and Access Statement that accompanies the planning application.

The Council will require design to be addressed in the pre-application process on major developments and in connection with all heritage sites. For major sites/strategic sites and complex developments, masterplans and Design Codes will need to be prepared in conjunction with the Council and local stakeholders to ensure appropriate character and high-quality design is delivered throughout. Design Codes will usually be prepared between outline and reserved matters stage to set out design principles for the development of the site. The level of prescription will vary according to the nature of the site.

Core Policy 47: Active Travel – Walking and Cycling

Active Travel

3.269. Prioritising active travel infrastructure, including connections between town centres, villages and to transport hubs is vital to reducing emissions from transport, especially the private car. Reducing dependence on the private car will help the creation of a net-zero carbon transport network, and help tackle traffic congestion.

3.270. To increase uptake in active travel modes, specifically walking and cycling, we will give greater priority to walkers, cyclists, and public transport within our road space. We will also seek improvements to our public realm making our places more attractive for walking and cycling. Our objective of creating public spaces and green routes that are open and accessible to all help will also play a role in encouraging active travel.

3.271. The IDP (2022) outlines the planned improvement works to the district’s transport network, including walking and cycling routes. Oxfordshire County Council’s Active Travel Strategy supports the LTCP in its vision to create an inclusive and safe net-zero transport system, with a focus on active travel modes.

3.272. Additional guidance on encouraging walking and cycling is provided in Cherwell’s Residential Design Guide SPD. The design criteria for accommodating pedestrians and cyclists are detailed in Oxfordshire’s Walking and Cycling Design and Street Design guides.

Core Policy 47: Active Travel – Walking and Cycling

The Council will support the delivery of public realm improvements and infrastructure designed to create attractive places that make walking and cycling a safer, healthier, and more attractive as a travel choice.

New development and infrastructure proposals should:

i. Promote walking and cycling by ensuring proposals give greater priority to pedestrians and cyclists in the use of road space and provide for filtered permeability;

ii. Deliver an improved environment for pedestrians and cyclists appropriate to the scale and nature of the proposal. Provision should be inclusive and address disabilities and particular mobility needs;

iii. Ensure that existing pedestrian and cycling routes and public rights of way are retained as continuous linear features and improved where appropriate;

iv. Identify key pedestrian and cycling routes and their destinations and assess existing and predicted active travel movements to, through and from the site. They should provide safe, direct, and attractive routes that accommodate these movements and will be encouraged to support additional active travel movements;

v. Reduce road danger from other transport modes;

vi. Be expected to enable and contribute towards improvements and delivery of local and strategic active travel routes and links as identified in the Bicester, Banbury Kidlington and Heyford Park Area Strategies and associated IDP and LCWIPS, and

vii. Ensure provision of cycle parking and active travel in line with Oxfordshire County Council latest guidance.

Core Policy 48: Public Rights of Way (PROW)

3.273. Cherwell benefits from many hundreds of miles of Public Rights of Way (PROW). They are a valuable resource for local people to support healthy and active lifestyles and they form an important component of our strategy for sustainable transport. PROW are protected in law. Oxfordshire County Council is responsible for managing and maintaining this extensive network alongside local councils and land-managers. It prepares an Oxfordshire Rights of Way Management Plan, and a Public Rights of Way Improvement Plan.

3.274. We will expect new development to contribute towards mitigation measures for any part of the PROW network negatively impacted by development proposals.

Core Policy 48: Public Rights of Way

Public rights of way will be protected and enhanced to ensure access to public rights of way and the connectivity of these networks.

Any development that will result in the loss of a Public Rights of Way or significant reduction in amenity or connectivity will not be permitted. In exceptional cases, development that negatively affects a public right of way may be permitted where it is essential that an alternative route is provided or where an altered public right of way provides better access for users or more connections to wider networks. Any changes to public rights of way requires a separate legal process.

Core Policy 49: Health Facilities

Health

3.275. The provision of health services in the district is overseen by the Buckinghamshire, Oxfordshire and Berkshire West Integrated Care System (BOB ICS), which has recently been formed to replace the Oxfordshire Clinical Commissioning Group (OCCG). It works in partnership with others across the health and care system to plan and deliver joined up health and care services, and to improve the lives of people who live and work in their area.

3.276. A Health and Wellbeing Board for Oxfordshire also exists to ensure effective joint working and cooperation throughout the system. The strategic focus of Oxfordshire’s Joint Health and Wellbeing Strategy 2018-2023 is to:

Prevent avoidable illnesses;
Reduce need for treatment, and
Lower the impact of illness by supporting independence and delaying the need for care.

3.277. As part of their work the Health and Wellbeing Board regularly produce a Joint Strategic Needs Assessment (JSNA) a study looking at current and future health, care and wellbeing needs of residents. The JSNA (2021) is a snapshot of local health circumstance, priority and need that can be directly applied to inform vision statements, healthy place-shaping and prioritise healthy urban design features to ensure developments are supportive of public health and the Local Plan Vison.

3.278. To ensure that development promotes and contributes to a healthy living environment, proposals should consider health outcomes as early as possible, including at the vision document and pre-application stage. All major development proposals will be required to undertake a Health Impact Assessment (HIA) to maximise the opportunities for promoting healthy lifestyles within new development in accordance with Core Policy 50. HIAs should be prepared following the methodology set out in the Oxfordshire HIA toolkit.

3.279. We will continue to work closely with healthcare providers, partners and the NHS across its delivery bodies to:

Ensure the provision of additional and reconfigured health and social care facilities;
Identify the anticipated primary care needs of local communities;
Identify the capacity needs of local communities, and
Meet the healthcare requirements of local communities.

3.280. Our last local plan identified a need for more GP provision in Bicester and some progress has been made in securing expanded facilities for the growing town. We do, however, recognise that further additional provision is required.

3.281. Primary care facilities for Banbury, the Kidlington area, and the rural areas more generally are also at or nearing capacity and this Plan seeks to address these capacity issues by supporting new health facilities in appropriate locations.

Core Policy 49: Health Facilities

The Council will support the provision, extension and co-location of health facilities in sustainable locations.

Facilities should:

i. Be designed to accommodate a range of health-related services through multifunctional and adaptable facilities;

ii. Be accessible by walking, cycling and public transport, and

iii. Be informed by discussion with relevant health providers to ensure facilities meet the identified health needs of the communities they are intended to serve.

Core Policy 50: Creating Healthy Communities

3.282. Evidence suggests that only 10% of our health and well-being is determined by access to health care. The rest is largely influenced by our lifestyle, behaviours and interaction with urban and green and blue environments, which in turn influences our social, mental and physical health and wellbeing.

3.283. We know planning influences health, but do we really appreciate just how much? Cancer, mental health and dementia are things we will all experience directly or indirectly in our lives, and when they happen, there isn’t anything we wouldn’t give to have prevented it. The Local Plan, the policies it contains and the influence it has on planning will have more power to prevent these conditions than the NHS will ever be able to treat, and yet we often don’t communicate it, and the opportunities to prevent them, and the often-disproportionate distribution to our most vulnerable members of society are lessened as a consequence.

3.284. We therefore consider that significant benefits for local people can be achieved by adopting the principles of Healthy Place Shaping as we plan for housing, infrastructure and the economy together with planning for our residents’ health and well-being.

3.285. The principles of healthy place shaping are based on the following three concepts:

Shaping the built environment, green spaces and infrastructure at a local level to improve health and well-being;
Working with local people and local organisations, schools etc to engage them in planning and enjoying the health benefits of places, facilities and services through ‘community activation’, and
Re-shaping health, well-being and care services and the infrastructure which supports them to achieve health benefits, including health services, social care, leisure and recreation services, and community facilities.

Core Policy 50: Creating Healthy Communities

The Council will support and promote developments that aim to reduce health inequalities, promote healthier lifestyles and improve the health and well-being of our existing and new communities more generally by requiring all major developments to:

i. Include health and wellbeing as a key section in Vision Documents and pre-application discussions and outline planning applications, communicating how the project supports the delivery of local health objectives, priorities and needs (as detailed in the JSNA);

ii. Be supported by an appropriate and proportionate Health Impact Assessment;

iii. Contribute towards shaping healthy communities by demonstrating that they adhere to the following principles to deliver high-quality sustainable places:

a. Address the projected health and wellbeing needs of an area, including addressing health inequalities and avoiding and mitigating any adverse health and sustainability impacts;

b. Design in opportunities for people to be more active e.g. street layout and public realm to encourage walking and cycling as modes of transport, open spaces/green spaces for play and recreation, sports and leisure;

c. Enable good mental wellbeing through reducing social isolation and loneliness by encouraging social community infrastructure and opportunities for people to meet and connect with one another;

d. Enable access to green spaces and connection with nature to promote physical and mental health and wellbeing and to deliver multiple benefits for people, place and the environment;

e. Provide diversity in the residential offer that improves accessibility, affordability and promotes inter-generational connectivity and lifetime neighbourhoods, and

f. Make it easier for people to make healthier food choices by promoting access to fresh, healthy and locally sourced food, for example by providing opportunities for food growing.

Core Policy 51: Providing Supporting Infrastructure and Services

Services and Facilities

3.286. Our proposed Spatial Strategy aims to focus development in the most accessible parts of the district thus helping to ensure that development is well served by public transport links and the necessary physical, social and green infrastructure.

3.287. Our approach to infrastructure planning will seek to identify the infrastructure required to meet growth, and support site allocations. We will ensure delivery by:

Working with partners, including central Government, and other local authorities, to provide physical, community and green infrastructure;
Identifying infrastructure needs and costs, phasing of infrastructure delivery, funding sources and responsibilities for delivery;
Updating our Developer Contributions SPD, and
Ensuring that development proposals demonstrate that infrastructure requirements can be met including the provision of transport, education, health, social and community facilities.

3.288. The Area Strategies provide details about our key infrastructure requirements.

Core Policy 51: Providing Supporting Infrastructure and Services

All new development will be required to provide for the necessary on-site and, where appropriate, off-site infrastructure requirements arising from development proposals. Infrastructure requirements will be delivered directly by developers and/or through an appropriate financial contribution prior to, or in conjunction with, new development.

Where infrastructure will serve more than one site, developers will be expected to collaborate to ensure the satisfactory delivery of the shared supporting infrastructure. In ensuring the timely delivery of infrastructure requirements, development proposals must demonstrate that full regard has been paid to the Infrastructure Delivery Plan and all other relevant policies of this plan.

If infrastructure requirements could render a development unviable, proposals should be supported by an independent viability assessment on terms agreed by the relevant parties including the Council and County Council, and funded by the developer. This will involve an open book approach. Where viability constraints are demonstrated by evidence the Council will:

i. Prioritise developer contributions having regard to the detailed requirements set out in the Infrastructure Delivery Plan and/or

ii. Use an appropriate mechanism to defer part of the developer contributions requirement to a later date, or

iii. As a last resort, refuse planning permission if the development would be unsustainable without inclusion of the unfunded infrastructure requirements, taking into account reasonable contributions from elsewhere, including CIL.

The Council’s Delivering Infrastructure Strategy will include a CIL Charging Schedule and a Developer Contributions Supplementary Planning Document that will provide more detail about its approach to securing developer contributions and how it will balance infrastructure funding through CIL and Section 106 agreements. Upon adoption of the CIL Charging Schedule, CIL will be used to pool developer contributions towards a wide range of new and improved infrastructure necessary to deliver new development.

Where not funded by CIL, infrastructure and services, including maintenance of the infrastructure, should be delivered directly by the developer through the development management process.

Infrastructure and services will be sought through the negotiation of planning obligations, levy, undertaking and/or other agreement as secured through the planning permission, to mitigate the direct impacts of development and secure its implementation.

Core Policy 52: Meeting Education Needs

3.289. The provision of new or extended primary and secondary education together with early years, tertiary and lifelong learning provision will be required during the plan period to meet the needs of our growing population.

3.290. We will support the growth plans of schools across the district and we recognise the important role that viable schools have to play in maintaining and contributing to community cohesion.

3.291. Oxfordshire County Council, as the Local Education Authority, has a statutory duty to ensure that there are enough school places to meet demand across the district.

3.292. We will work with the County Council and others to provide nursery, primary and secondary schools, further and higher education facilities, community learning facilities, special schools, free schools and other educational facilities. This will include appropriate provision for the strategic site allocations set out in this plan.

3.293. Our support for education may include seeking the provision of new schools, contributions towards these facilities, or contributions towards expanding existing facilities. Our previous adopted Local Plan identified a need for a new secondary school at Banbury and a site to the south of the Longford Park development has been proposed. Oxfordshire County Council has advised that this school is still required, therefore we will continue to safeguard this land.

3.294. We will seek to ensure that new and extended schools are built to the highest sustainable construction standards. New facilities should also be designed to be flexible enough to accommodate the future changing needs of users and the communities they serve. Where appropriate, the use of school and college buildings and land after hours, will be encouraged to support learning across the wider community and community use of education facilities, for example sport and recreation facilities, will be supported.

3.295. Any new school buildings not identified within this plan should be located in sustainable locations on the edge or within the built-up limits of settlements.

3.296. The district has historically had a relatively low education and skills base. We will therefore encourage development that will diversify and develop the skills base of the district in the future. This will include the requirement for developers to produce and implement Community Employment Plans when developing major sites.

3.297. The Council’s Developer Contributions SPD provides further details on how developer contributions for education facilities will be sought.

Core Policy 52: Meeting Education Needs

The Council, in partnership with Oxfordshire County Council and others, will ensure the provision of pre-school, school, community learning, and other facilities that provide for the education needs, and skills development, of our communities. New educational buildings should be located in sustainable locations and built to net zero standards as required by Core Policy 4. Wherever possible, schools should be located within close proximity to other services and facilities to create community hubs.

Education facilities should be designed to:

i. Achieve a high degree of environmental efficiency to minimise running costs;

ii. Provide a safe, secure and pleasant learning environment;

iii. Be located to promote sustainable and active modes of travel, and

iv. Be designed to enable future expansion, if required.

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Theme 3 - Core Policies 34 to 52

Cherwell Local Plan Review 2040 Chapter 3 - Theme 3: Building Healthy and Sustainable Communities

Housing

Core Policy 34: District Wide Housing Distribution

Assessing Housing Need

Calculating Overall Housing Need

Establishing a Potential Housing Requirement

Understanding Existing Housing Supply

Housing Delivery 2015-2022

Assessing New Housing Supply

Core Policy 34: District Wide Housing Distribution

Core Policy 35: Settlement Hierarchy

Core Policy 35: Settlement Hierarchy

Core Policy 36: Affordable Housing

Core Policy 36: Affordable Housing

Core Policy 37: Housing Mix

Core Policy 37: Housing Mix

Core Policy 38: Specialist Housing

Core Policy 38: Specialist Housing

Core Policy 39: Residential Space Standards

Accessible and Adaptable Housing

Internal residential space

External residential space

Core Policy 39: Residential Space Standards

Internal Residential Space

External Residential Space

Core Policy 40: Self-Build and Custom-Build Housing

Core Policy 40: Self-Build and Custom-Build Housing

Core Policy 41: Sub-Division of Dwellings and Homes in Multiple Ownership

Core Policy 41: Sub-Division of Dwellings and Homes in Multiple Ownership

Development Policy 4: Residential Caravans

Development Policy 4: Residential Caravans

Core Policy 42: Travelling Communities

Core Policy 42: Travelling Communities

Core Policy 43: Protection and Enhancement of the Landscape

Landscape

Core Policy 43: Protection and Enhancement of the Landscape

Core Policy 44: The Oxford Green Belt

Green Belt

Core Policy 44: The Oxford Green Belt

Core Policy 45: Settlement Gaps

Core Policy 45: Settlement Gaps

Core Policy 46: Achieving Well-Designed Places

Design

Residential Extensions

Public Realm

Public Art

Secure by Design

20 Minute Neighbourhoods

The Circular Economy

Core Policy 46: Achieving Well Designed Places

Core Policy 47: Active Travel – Walking and Cycling

Active Travel

Core Policy 47: Active Travel – Walking and Cycling

Core Policy 48: Public Rights of Way (PROW)

Core Policy 48: Public Rights of Way

Core Policy 49: Health Facilities

Health

Core Policy 49: Health Facilities

Core Policy 50: Creating Healthy Communities

Core Policy 50: Creating Healthy Communities

Core Policy 51: Providing Supporting Infrastructure and Services

Services and Facilities

Core Policy 51: Providing Supporting Infrastructure and Services

Core Policy 52: Meeting Education Needs

Core Policy 52: Meeting Education Needs

Cherwell Local Plan Review 2040
Chapter 3 - Theme 3: Building Healthy and Sustainable Communities

Core Policy 41: Sub-Division of Dwellings and
Homes in Multiple Ownership