12.1 The current approved LDP concentrated housing growth in sustainable extensions to Maldon, Heybridge and Burnham-on-Crouch in the form of Garden Suburbs and Strategic Allocations. The plan did not allocate growth in any of the District's smaller settlements but relied on existing commitments (sites with planning permission already) and windfall sites (sites which are not planned/allocated but come forward and are granted planning permission) within settlement boundaries.

12.2 This strategy was seen at the time as the one most able to successfully to deliver positive growth for the District and to ensure that the District had a continuous 5 year supply of housing. It has however caused a number of issues, which are prudent to reflect on:

• Allocating all of the housing on large sustainable extensions meant that it was only national building companies who came forward to develop these sites. This is because they have the funding and economies of scale to bring forward complex large scale developments. However, these types of sites take a long time from concept to delivery of housing on the ground and since the approval of the LDP the amount of housing being given approval and delivered is not sufficient to ensure that Maldon District has a continuous 5 year supply of housing. The 5 year supply currently stands at 3.26 years.
• This has also meant that small and medium building companies who operated in and around the District could only develop on sites outside of the large allocations. These types of sites can be delivered more quickly and help to ensure a steady supply of housing to the market. 11.2% of Maldon District`s employee jobs are in the construction industry and small and medium businesses make up 98% of all Maldon District`s business enterprises. At the present time, on smaller sites with under 10 houses being built there are only 285 homes in the district with planning permission and/or under construction. The National Building Federation estimates that for every house built 3.4 jobs are created including the extensive supply chain associated with the building industry. Therefore, a plan which encourages building on smaller sites and thus supports small and medium business would not only assist with the supply of housing but assist with economic growth.
• Though the plan had a windfall allowance in it, (i.e. the plan set out how many houses were going to be built on sites which were not allocated in the plan, there was not a policy setting out how that allowance was going to be delivered; whether there were any caveats around these types of sites coming forward, nor what the Council`s position was given that there is a finite source of available developable land within the present development boundaries. This lack of clear direction and flexibility has meant that not enough housing has been given permission to be delivered in 5 years and any windfall development was in effect being squeezed into the development boundaries. This has added to the District`s situation with regard to a lack of a 5 year supply of housing and is starting to have a detrimental effect on the character of the settlements of the District.

12.3 The Plan included settlement boundaries around most settlements. Whilst these appeared to be a way of protecting settlements, they have caused inflexibility in regard to housing coming forward. This is because settlement boundaries restrict development to within a defined settlement area. This has led to a lack of available land supply for windfall sites, which help support housing supply and this ultimately is one of the contributing factors to the District not having a 5 year supply of housing from 2021. The other negative impact of settlement boundaries is that all housing is constrained or squeezed into the settlements. This means that important green gaps, backland development and infill development have a presumption to be supported within the settlement boundary. This ultimately leads to a loss of the very unique character of some settlements, that it was an LDP objective to protect; especially the ones with larger properties and large gardens that can be subdivided. Over time, a continuation of this policy is likely to exacerbate this issue and the impact on the uniqueness of settlements will become more prevalent, as land is squeezed in them to fulfil housing demand.

• A lack of rural housing in the sustainable rural villages is failing to support transport provision and rural business improvements; this ultimately could lead to a loss of services and facilities and increased rural isolation and accessibility.
• Rural settlements have either had housing approved through the appeal system or have not grown sufficiently enough to ensure some affordable housing delivery is a tangible benefit. This could, if left unchecked, lead to an out-migration of younger people who cannot afford to live near their families, though it is hoped that the new "First Homes" may address some of this issue, the plan needs policies to accommodate this national change to policy.

12.4 At the time of the current approved LDP, national planning policy did not direct how much growth local planning authorities should place in settlements, but left the decision-making to each relevant authority. In 2019, national policy changed and acknowledged that small and medium sized sites can also make a positive contribution to wider housing delivery and offer other opportunities to local housing markets, SME builders and local supply chains. It is now stipulated by national policy that at least 10% of housing allocations will be delivered on sites which are no larger than 1.0 hectare.

12.5 The Council also has to consider the possibility that the Bradwell B Nuclear Power Station development will start to come forward during the plan period, in the event it is granted its DCO. This is a NSIP so the decision concerning it is not within the Council`s remit, but will be made by the Planning Inspectorate.

12.6 It would not be in the wider interests of the District if the Council did not give this project due consideration during the LDP Review. It needs to reflect on the possibility that it may have an impact on the District negative, neutral and positive. There may be other development needs arising from the Bradwell B project that the LDP needs to consider now, such as impacts on housing market, tourism and infrastructure. A silent LDP could be very damaging to the District leaving it vulnerable to development that the Council has very little control over. Therefore, each of the options outlined below is also accompanied by the following paragraph;

12.7 "The LDP Review will have a major infrastructure project policy included which will consider the impacts of, and plan for,a gigawatt nuclear power station, should it proceed under the NSIP process. This policy will set out in broad terms the way the Council will deal with any growth needs arising from both the construction and the operation of the power station. The policy will also set out how the Council will consider applications connected with any growth arising from a Power Station in terms of material planning considerations. This policy will lie dormant unless the power station proceeds under the NSIP process and/or any ancillary development proposals are required."

12.8 By placing the prospect of the Power Station into a major infrastructure project policy, it also enables the Council to be prepared if any other major infrastructure project comes forward in the District.

12.9 The Council is therefore asking for consideration to be given to the following housing growth options;

12.10OPTION 1 - Retain the option in the LDP approved in 2017 - focus growth in the settlements of Maldon/Heybridge and Burnham on Crouch

This option would continue the principles set out in the present approved LDP 2017 with most of the growth being allocated in Maldon/Heybridge and Burnham on Crouch, these are the main towns of the District. This could ensure the economies of scale necessary to generate a wide range of community facilities in these areas, a supported public transport network, business and employment opportunities and a supported retail offer. The only alteration would be encompassing national planning policy changes with regard to 10% of any housing allocation should be on smaller sites.

This scenario is characterised by the following;

• Urban extensions on greenfield sites adjacent to the main towns;
• 10% of the District`s housing allocation on smaller sites would also be directed to Maldon/Heybridge and Burnham on Crouch;
• Promotion of new employment opportunities in the main towns;
• Continuation of the policy of having settlement boundaries;
• Development restricted in the other settlements to sites within the settlement boundaries;
• Development in the countryside restricted to that which supports the local economy and tourism.

12.11 OPTION 2 - A strong focus on the towns and larger sustainable villages

This option would focus the majority of growth on the two towns in the District, Maldon/Heybridge and Burnham on Crouch and the larger sustainable villages. The larger sustainable villages in the context of this option will most likely be the top three/four/five (yet to be determined) large villages as set out in the settlement hierarchy with a good range of services and facilities and connectivity. This would ensure the economies of scale necessary to generate a wide range of community facilities, a supported public transport network, business and employment opportunities and a supported retail offer that could not only support their own populations but also spread benefits to their surrounding rural communities. It could also increase opportunities for small, medium building enterprises to develop housing in the District.

This scenario would be characterised by the following;

• Urban extensions on greenfield sites;
• 10% of the District's housing allocation being directed to the other sustainable large villages in the settlement pattern;
• A windfall policy for housing for the towns and large villages;
• A windfall policy for housing for the medium and small villages;
• Most affordable housing would be provided in the towns and with 'exceptions sites' being supported in the larger sustainable villages other large, medium and small villages, subject to identified need;
• Promotion of new employment opportunities in the towns and large villages;
• Increased new housing and business development in the more sustainable settlements (i.e. those with sufficient services and facilities to support themselves and surrounding smaller villages) sufficient to support their own role and meet the needs of smaller villages;
• Development in the countryside restricted to that which supports the local economy, including tourism.

12.12 OPTION 3 - Growth generally focused on the towns Maldon/Heybridge and Burnham on Crouch and all the large villages of the Settlement Hierarchy

This option would focus on the most sustainable settlements within the District, with the allocated growth going in the towns Maldon/Heybridge and Burnham on Crouch and the large villages. The amount of growth will be proportioned out with the housing allocated being proportional to the number of houses already in each settlement.

This scenario would ensure the economies of scale necessary to generate a wide range of community facilities, a supported public transport network, business and employment opportunities and a supported retail offer for anticipated population growth.

The scenario would be characterised by the following;

• Urban extensions of greenfield sites;
• 10% of the District's housing allocation being directed to the medium villages;
• There will be a windfall policy for the towns and large villages;
• There will be a windfall policy for the medium and small villages;
• Most affordable housing would be provided in the towns and large villages with 'exceptions sites' being supported in the medium and small villages;
• Promotion of new employment opportunities in the towns and large villages;
• Increased new housing and business development in the more sustainable villages (i.e. those with sufficient services and facilities to support themselves and surrounding smaller villages) sufficient to support their own role and meet the needs of the smaller villages;
• Development in the countryside restricted to that which supports the local economy, including tourism.

12.13 OPTION 4 - Pepper pot growth throughout the Settlement Hierarchy (Spread the growth across all the sustainable settlements in the District)

All growth will be pepper potted across the towns, large, medium and small villages this would include major and minor site allocations. This means that all settlements would get some growth and it would be based on a percentage proportion of the number of homes in each settlement, so larger settlements will receive more growth.

The scenario would be characterised by the following;

• Housing allocations in all towns, large, medium and small villages in the hierarchy, spreading the visual burden of growth across the settlements of the District.
• It may lead to an inability to provide essential infrastructure because of a lack of economies of scale and inevitably more smaller sites being brought forward.
• It would provide a quality of choice of sites across the District in different settlements which could support small, medium construction firms.
• There could be a decline in the amount of affordable housing coming forward because of smaller sites being allocated.
• May help support the sustainability of smaller settlements and encourage business and growth in those places.
• There will be a windfall policy for sites coming forward that are not allocated during the plan period.

12.14 OPTION 5 - Create a new satellite settlement or large urban extension bolted onto one of the towns, larger villages and/or settlement adjacent to the District boundary

The satellite settlement or large urban extension would accommodate all allocated growth excepting 10% and a 20% buffer. This would ensure the economies of scale necessary to generate a wide range of community facilities, a supported public transport network, business and employment opportunities. The 10% and 20% buffer of growth would be allocated to the remaining towns and large villages.

The option would be characterised by the following;

• Urban extensions on greenfield sites in the new satellite settlement;
• 10% and the 20% buffer of the District's housing allocation being directed to the other towns and large villages, this will allow housing to come forward whilst the strategic allocations are preparing their applications and starts on site;
• A windfall policy for the towns and large villages;
• A windfall policy for housing for the medium and small villages;
• Most affordable housing would be provided in the satellite settlement or urban extension with 'exceptions sites' being supported in the other large, medium and small villages;
• Promotion of new employment opportunities in the towns and large villages if appropriate in the satellite settlement or urban extension;
• Increased new housing and business development in the more sustainable villages (i.e. those with sufficient services and facilities to support themselves and surrounding smaller villages) sufficient to support their own role and meet the needs of the smaller villages;
• Development in the countryside restricted to that which supports the local economy, including tourism.

12.15Option 6 - Focus growth in the north of the District to link into the service and facilities available in Tiptree, Witham and Maldon/Heybridge.

This option would focus major allocations in the settlements in the north of the District. These settlements have a relationship with the settlements of Tiptree and Witham which lie outside of the District, and Maldon/Heybridge in the District and residents can also access the railway connections at Hatfield Peverel and Witham and the strategic road connection of the A12. Residents of the District look to these settlements for the majority of their higher-order services and facilities. Maldon/Heybridge is not included in this scenario for strategic growth allocations because of the amount of growth it has previously received, the amount of existing commitments it already has but are still to come forward and the lag in infrastructure coming forward in the town. Maldon/Heybridge requires a period of time in order for planned infrastructure to be delivered and existing commitments to be built out without additional pressure from new strategic growth.

10% of allocated growth on smaller sites would be in the remaining large villages and Towns.

This option is characterised by the following;

• Urban extensions on greenfield sites in and adjacent to the settlements in the North of the District, and those that border the District in Braintree and Chelmsford.
• 10% of the District's housing allocation being directed to the remaining large villages and Towns.
• A windfall policy for the towns and remaining large villages
• A windfall policy for the medium and small villages
• Most affordable housing would be provided in the northern settlements of the District with 'exceptions sites' being supported in the medium and small villages;
• Promotion of new employment opportunities in the towns and if possible in the northern settlements of the District;
• Increased new housing and business development in the more sustainable villages (i.e. those with sufficient services and facilities to support themselves and surrounding smaller villages) sufficient to support their own role and meet the needs of the smaller villages;
• Development in the countryside restricted to that which supports the local economy, including tourism.

12.16 OPTION 7 - Focus growth along the rail line to Althorne, North Fambridge and Southminster

This option would focus major allocations to Althorne, North Fambridge and Southminster because they have railway stations with a connection to London. Sites making up the 10% of housing allocations to be delivered on sites no larger than 1.0 hectare will be directed to Maldon/Heybridge, Burnham-on-Crouch and the remaining large villages. Though Burnham-on-Crouch has a railway station it is not included in this scenario for strategic growth because of the amount of growth in both allocations and windfall development it has previously received and the lag in infrastructure coming forward in the town. Burnham-on-Crouch requires a period of time in order for planned infrastructure to be delivered without additional pressure from new strategic growth.

This option is characterised by the following;

• Urban extensions on greenfield sites in and adjacent to Althorne, North Fambridge and Southminster;
• 10% of the District's housing allocation being directed to the District's towns and large villages (including Burnham on Crouch);
• A windfall policy for the towns and remaining large villages
• A windfall policy for the medium and small villages
• Most affordable housing would be provided in Althorne, North Fambridge and Southminster with 'exceptions sites' being supported in the medium and small villages;
• Promotion of new employment opportunities in the towns;
• Increased new housing and business development in the more sustainable villages (i.e. those with sufficient services and facilities to support themselves and surrounding smaller villages) sufficient to support their own role and meet the needs of the smaller villages;
• Development in the countryside restricted to that which supports the local economy, including tourism.

Please Note

12.17 All options outlined are reliant on the fact that there will be sufficient land in the areas summarised for delivery of the strategic growth target.

Issues and Options Consultation Questionnaire