Bath Local Plan

The City Of Bath

2. Context

GEOGRAPHICAL CONSTRAINTS AND THE INFLUENCE OF THE REGION

2.01 The Local Plan policies are limited to the administrative area of the City. However, the City Council should consider how it liaises with neighbouring District Councils to ensure harmony and consistency and also secure development outside of Bath to relieve the pressure in the City.

2.02 The policies and proposals of the Local Plan clearly have to reflect the regional role that Bath enjoys. This includes a number of aspects:-

i) The Travel-to-Work Area (TTWA) is defined by the Department of Employment and covers much of Wansdyke District. In fact, workers come into Bath from a much wider area : from Bristol, North and West Wiltshire, and Northavon. Conversely, the region provides housing for the workers of Bath;

ii) The shopping centre attracts visitors from an even greater area, and a catchment population of around 300,000 has been estimated. Because of this, the City has a wide range of shops, some of a very specialist nature. The City also acts as a centre for financial and professional services;

iii) New roads - those under construction and those proposed by the Department of Transport and County Authorities - may have an effect on the journey to work patterns and other behavioural patterns.

2.03 The extent of the region cuts across other county and district boundaries. Structure and Local Plans prepared for Counties and Districts within the region have policies and proposals which may have little relationship with Bath. These may not meet the needs of the City or may create other problems which will have to be addressed.

REGIONAL PLANNING GUIDANCE FOR THE SOUTH WEST

2.04 The Government is committed to a 'plan-led' system of land use planning, and all local authorities must take account of Regional Planning Guidance.

2.05 Regional Planning Guidance for the South West (RPG10) produced in July 1994, has to be taken into account, alongside national Planning Policy Guidance Notes (PPGs), Circulars and other Government policies and statements, and reflected within the policies and proposals of the Local Plan.

2.06 RPG10 outlines the fact that Bath's architectural and environmental qualities are renowned, and draws attention to the City's designation as a World Heritage Site. It states that in planning for the future development of the City, the aim should be to balance the need for economic prosperity with the protection of the City's environmental qualities, both within the built-up areas and in the surrounding countryside.

2.07 RPG10 also states that careful economic use of land already identified for development, as well as regeneration and enhancement within the urban area, is essential if the needs of the existing and future population are to be met, and the attractiveness of the City is to be protected and enhanced.

2.08 Development plans should also encourage inward investment to combat the decline of key industries, and the City's rail links should also provide an important focus for new development, although not at the expense of Green Belt policies.

2.09 With regard to traffic congestion, RPG10 suggests that policies should seek to ensure that new development forms part of the solution rather than just the problem. Particular care will be needed in policies relating to car parking provision.

2.10 Finally, RPG10 points out that the environmental qualities and setting of the City of Bath are likely to preclude any major development or redevelopment. Where Bath-related development is to be accommodated outside the City itself, policies should take account of the transport policies set out elsewhere in the Guidance.

AVON COUNTY STRUCTURE PLAN

2.11 The original Avon County Structure Plan, which covered the period 1981-1991 was approved by the Secretary of State for the Environment in 1985. Policies relating to employment, housing and transport were amended to cover the period up to 1996 by the First Alteration approved in 1988. Retailing, countryside and minerals policies were amended by the Second Alteration, approved in 1989. The 'time-frame' of the Structure Plan has now been extended to the year 2001 by the Third Alteration which, in accordance with new procedures for the preparation of Structure Plans, was adopted by the County Council in July 1994. This Third Alteration supersedes the changes made by the First Alteration, and also amends some of the policies relating to recreation, the built environment and the countryside. A Statement of General Conformity in respect of the Bath Local Plan was issued by the County Council on 5th July 1994.

2.12 The Bath Local Plan therefore is to be considered in the context of the Avon County Structure Plan, incorporating the Second and Third Alterations. All reference throughout the Local Plan will be to the Structure Plan as amended by the Second and Third Alterations, unless otherwise stated.

2.13 In the Structure Plan, Bath is recognised as an important regional centre for work, shopping and a variety or private and public functions for the wider area of Wiltshire and Avon, and proposes that this role is maintained. The Structure Plan also acknowledges that new development, particularly housing, is limited by the form and character of the City.

2.14 The County Council has restricted the allocation of residential development in the City in order to safeguard its unique character, and the Structure Plan considers that the supply of housing cannot go beyond the level already committed or that which may become available within the built-up area. It also recognises that the supply of housing land in Bath is finite, that some of the few remaining sites will be difficult to develop, and that it will be difficult to meet the City's housing needs.

2.15 Following the Examination in Public in 1985, the Approval Letter of the Approved Written Statement of the Structure Plan stated:-

"The need to maintain both the existing built environmental quality and the setting of the City of Bath has influenced the Secretary of State for the Environment in approving the Structure Plan. He has recognised that the supply of land for development is finite and the character of the City must be supreme".

2.16 The widespread general recognition of the unique historical, architectural and environmental position of Bath and the desire to continue to protect the historic architectural fabric of the City continues to be acknowledged in the Structure Plan.

WESTERN WILTSHIRE STRUCTURE PLAN

2.17 This covers West Wiltshire District and much of North Wiltshire District. It was originally approved in 1981, and the First and Second Alterations were approved in 1990 and 1993 respectively. It is to be replaced by a Structure Plan for the whole of Wiltshire, and the first Consultation Draft was published in April 1995.

LOCAL PLANS

WANSDYKE ENVIRONS OF BATH LOCAL PLAN (adopted 1990)

2.18 This plan, in conjunction with the Bath Local Plan, determines the inner boundary of the Green Belt around Bath. It also safeguards the character of the surrounding parishes and the City's landscape setting. It is intended to be replaced by the proposed Wansdyke Local Plan, a district-wide Plan, the first Consultation Draft of which was published in December 1994. The 'deposit' version of this plan was published for public consultation in November 1995.

2.19 WEST WILTSHIRE DISTRICT PLAN (Adopted March 1996).

MINERAL WORKINGS IN AVON LOCAL PLAN (Adopted July 1993).

2.20 This plan includes policies regarding the Bath Stone quarries at Combe Down, and reserves of Fullers Earth at Odd Down.

2.21 WILTSHIRE MINERALS LOCAL PLAN (Consultation Draft September 1994).

POPULATION CHANGES

2.22 The population of Bath has been stable at around 80,000 since 1951, and little change is expected during the lifetime of this Local Plan. Analysis of the 1991 Census does however reveal that important changes to the age structure of the population took place during the 1980's, and further changes are expected during the current decade.

i) The number of pre-school children rose during the 1980's but is expected to be stable in the 1990's.

ii) The recent decline in the number of school children is expected to be replaced by an increase of around 10% in the decade to 2001, whilst the number of young adults (18-24, excluding students) is forecast to fall by about a quarter. It is expected that this will affect the number of new households that are formed, but any reduction will be short-lived.

iii) It is believed that the proportion of the population in the main working age bands (25-59) has increased by 5% in the last five years, but this rise is not expected to continue. The 1980's reduction in the average age of the workforce will be reversed.

iv) The steady post-war rise in the number of pensioners living in the City appears to have come to an end - for this decade at least. In 1991, pensioners constituted 23% of the City's population, but it is projected that this proportion will fall to 21% by 2001. It is likely that this will still be above the national average - currently 19%. At the start of the next millenium, although there will be fewer resident pensioners, more of them will be aged over 80.

THE PREPARATION OF THE BATH LOCAL PLAN

2.23 i) The Bath Local Plan has been prepared by Bath City Council as a Statutory Local Plan in accordance with the Town and Country Planning Act 1990, as amended by the Planning and Compensation Act 1991. The Plan guides development in the City of Bath up to 2001. It outlines the Council's policies for the use of land and related matters and includes an explanation of how these policies were reached.

ii) In addition, the Plan encourages appropriate development on specific sites, outlines where the Council intends to prepare more detailed guidance in the form of development briefs, and helps to co-ordinate public and private investment decisions.

iii) In June 1990, the City Council approved the Bath City Plan, which covers the period to 1996. To review the Plan, an Issues Report was published in July 1990. Comments following a wide circulation of the Report were taken into account by the Council when it considered the publication of the Draft City Plan Review in July 1991.

iv) The Plan was then classified as a 'saved non-compliant' plan under the Town and Country Planning (Development Plan) Regulations 1991, which came into force on the 10th February 1992. In place of the Review, and in light of the new legislation, a Replacement Plan was prepared, closely based on the Draft City Plan Review. The Draft Replacement Bath City Plan was published for pre-Deposit Consultation in June 1992, following approval by the Policy Committee, which then superseded the Draft City Plan Review of July 1991.

v) The Draft Replacement Local Plan was approved for deposit by the City Council in November 1992 for a period of formal consultation between 25th January and 8th March 1993. Following this, an extensive series of amendments were agreed by the Policy Committee on 15th November 1993. These were advertised between 17th November and 15th December 1993. These 'Advertised Amendments' were then commended to the Inspector for his consideration as part of the Public Local Inquiry.

vi) A Public Local Inquiry was held into the Draft Replacement Local Plan, between 15th March and 8th July 1994. During the Inquiry, further 'Proposed Amendments' to the Local Plan were put forward by the City Council through a Local Plan Newsletter. This was regularly updated throughout the Inquiry, culminating in 'Newsletter 6' which was issued on the final day of the Inquiry.

vii) The Inspector's Report on objections made at the Local Inquiry was received by the City Council on 17th February 1995. The Council's response to the Inspector's Report was considered by the Special Joint Meeting of the Planning Control and Policy Committees on 3rd July and ratified by Full Council on 18th July 1995.

viii) The 'Statement of Decisions in response to the Inspector's Report' and 'Proposed Modifications to the Local Plan' were placed on deposit for public consultation between 4th September and 16th October 1995. Following this period, all representations were considered in a report presented to the meeting of the Special Joint Planning Control and Policy Committees on 30th November 1995, when it was agreed that 'further' modifications be proposed to the Local Plan.

ix) The 'Further Proposed Modifications' were placed on deposit between 8th December 1995 and 19th January 1996. Following consideration of representations received, the further modifications were approved as proposed, by the meeting of the Special Joint Planning Control and Policy Committees on 31st January 1996, and ratified by Full Council on 6th February 1996.

x) On 8th February 1996, the City Council issued the ‘Intention to Adopt’ the Bath Local Plan; but on 5th March 1996, the Council received a Direction letter from the Government Office for the South West on behalf of the Secretary of State for the Environment, directing the City Council under Section 43(4) of the Town and Country Planning Act 1990 not to adopt the Bath Local Plan on 7th March 1996 as was originally intended.

xi) Directed Modifications were put forward by the City Council in response to this Direction, which were approved by the Planning Control Committee on 13th March 1996, and the Policy Committee on 14th March 1996. The Bath Local Plan (as Directed) Pre-Adoption March 1996 was also approved for Development Control purposes on 13th and 14th March 1996 respectively.

On 1st April 1996 Bath City Council, Wansdyke District Council and Avon County Council ceased to exist. The area previously administered by the City Council, together with the former Wansdyke District now comprises the new Unitary Authority of Bath and North East Somerset. This new Council has taken over the functions of the Bath and Wansdyke Councils together with those of Avon County Council, and is therefore now both the Local Planning Authority and Highway Authority for the City.

Bath and North East Somerset Council adopted this Plan on 20th June 1996 and it now forms part of the statutory Development Plan for the new Authority. The Plan was, however, progressed through all the formal procedures outlined above by the former City Council, and it has been considered appropriate to retain the text which was the subject of public consultation and examination, including references to the "City Council". These references will serve as a reminder that the Policies are applicable only within the City of Bath, but it should be understood that in most instances the "Council" referred to is that of Bath and North East Somerset.

xii) The Directed Modifications were placed on deposit for public consultation between 21st March - 3rd May 1996, and all representations received were considered in a report to the Planning, Transportation and Environment Committee on 9th May 1996.

xiii) On 12th June 1996, a letter was received by the Council from the Government Office for the South West, on behalf of the Secretary of State for the Environment, stating that the Bath Local Plan was now in accordance with the Direction. The Direction dated 5th March 1996 was therefore lifted.

xiv) On 20th June 1996, the Council issued its Notice of Adoption of the Bath Local Plan.

xv) In providing the detailed framework for the control of development and use of land, local plans need to be in general conformity with the Structure Plan, and to:

a) Set out the Council’s policies for the control of development; and

b) Make proposals for the development and use of land, and to allocate land for specific purposes.

xvi) The former Avon County Council has confirmed that the Bath Local Plan is in general conformity with the Structure Plan.