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| Unitary Development
Plan - Adopted 1 March 2005 |
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Chapter 3
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GENERAL APPROACH AND STRATEGIC POLICIES
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| 3.1 |
This Chapter considers the Borough's function
in terms of London as a whole and how the strategic policies relate
to the Government's objectives set out in Strategic Guidance for London
Planning Authorities, and the emerging London Plan. The strategic
policies deal with matters of importance either because of their significance
to the wider urban area or because of their direct physical implications
for neighbouring boroughs. |
| 3.2 |
The Borough is closely interrelated with
London and neighbouring counties, particularly Surrey, both functionally
and physically in the following ways: |
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a) |
the natural and open environment, including
the River Thames, and the built environment are of national and international
significance; |
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b) |
there are 53,900 jobs (1995) in the Borough
of which 48% are taken by people travelling into the Borough; on the
other hand 59% of working residents travel to job outside the Borough; |
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c) |
the Borough is an important location for
business, particularly financial and professional services and high
technology, tourism and media industries. Although the majority of
firms are small they provide specialist services to larger firms and
therefore contribute to the World City role; |
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d) |
through providing an attractive residential
environment, cultural, entertainment and education facilities, the
Borough can attract specialist labour, (including the internationally
mobile), again contributing to the World City role; |
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e) |
the Borough's heritage supported by its
cultural, entertainment and shopping facilities is an important asset
in attracting tourists to London and helping to spread benefits of
tourism from central London; |
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f) |
the Borough is an attractive residential
area and can assist in meeting a small amount of the demand for new
housing which Government seeks to provide within urban areas; |
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g) |
the Borough's regional and metropolitan
parks, including outdoor sports provision, serve the recreational
needs of Londoners and particularly those living in areas deficient
in playing fields. It also provides open land for burials; |
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h) |
the Borough has habitats of metropolitan
importance for wildlife and there are green corridors and chains which
provide direct links for wildlife to adjoining areas; |
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i) |
the Borough is part of the wider network
of transport infrastructure including pedestrian routes, cycle routes,
railway corridors and primary roads (A316, A205). Richmond Station
is a key transport interchange. A number of recreational walks, including
the Thames Path, Capital Ring and London Loop pass through the Borough.
Green chains also provide strategic links; |
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j) |
the River Thames with its important visual,
transport, recreational and nature conservation roles dissects the
Borough; |
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k) |
there are a number of strategic viewpoints
within the Borough; |
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l) |
the Borough is an importer' of energy
and aggregates and most manufactured products; it remains an exporter'
of waste to landfill sites; |
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m) |
local residents, businesses and visitors
contribute to local and global air pollution. |
| 3.3 |
The strategic policies of the Plan below
take forward the local policy context the Mayor of London's Vision
for London and Strategic Guidance for London Planning Authorities
(RPG3). |
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STG 1 - OPPORTUNITY
FOR ALL |
| 3.4 |
The Council will seek to
ensure that the Plan promotes an adequate range of opportunities for
all residents including those with physical disabilities or hearing
or sight loss or other special needs. |
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| 3.5 |
The Council is committed to a policy of
equal opportunities in its service delivery, and in its wider role
as a planning authority in which it must take into account both geographical
opportunities and provision for different groups. In pursuance of
the policy, which also takes forward the Mayor's vision of opportunity
for all the Plan adheres to the following principles: |
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a) |
buildings, community facilities and the
wider environment should normally be conveniently accessible to all
people, not excluding those with disabilities, or with mobility problems
or with young children; |
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b) |
shop and services and small scale employment
opportunities should be provided as locally as practicable and, where
they are dependent on a larger number of customers or workers, in
areas accessible to public transport; |
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c) |
buildings and public areas should be designed
to minimise the risk to personal safety and security; |
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d) |
as far as possible a range of housing,
employment and recreational opportunities should be provided for all
groups and within different areas of the Borough; |
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e) |
provide integrated transport to ensure
that all groups have convenient and safe access to service and employment
opportunities. |
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STG 2 - THE ENVIRONMENT |
| 3.6 |
The Council will protect
and enhance the open and the built environment. In particular it will: |
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(A) |
safeguard the Borough's
green belt and metropolitan open land and protect green chains and
green corridors and other areas of open land which are important for
visual reasons, agriculture, nature conservation, biodiversity, or
sport and recreation; |
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(B) |
conserve and enhance areas
and buildings of historic or architectural interest or of special
townscape value, and ancient monuments and sites of archaeological
interest and registered parks and gardens of special historic interest; |
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(C) |
protect the character of
established residential areas, particularly from inappropriate infill
and backland development |
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(D) |
seek to ensure that developments
enhance their surroundings, and do not impair important views or skylines. |
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| 3.7 |
The Council places a high priority on
the protection and enhancement of the natural and built environment
at its present high level of quality without compromising its future
and its wider local, national and global context. This means that
the Borough can remain an attractive area for people to live, work
and enjoy their heritage and leisure time. Nature conservation is
being promoted through the designation of nature conservation areas,
green chains and corridors and statutory nature reserves, and opportunities
will be taken to create new habitats. The Thames, its islands, and
its banks are vital elements in the Borough's environment and it is
important that this area of metropolitan open land is protected and
conserved. Metropolitan open land, green chains and corridors are
linked across borough boundaries (see Map 1)
to enhance their strategic function in south west London. |
| 3.8 |
The Borough's built environment will be
protected and enhanced through the operation of the planning system
including the designation of conservation areas and the Thames Policy
Area. All developments are expected to pay careful regard to their
surroundings and their impact on all aspects of the environment. The
Council is committed to conserving and enhancing the biodiversity
and natural heritage of the Borough for the benefit of future generations. |
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STG 3 - CONSERVATION
OF RESOURCES AND POLLUTION |
| 3.9 |
The Council will ensure
that development is consistent with the need to conserve energy, resources,
including water and materials, and to reduce pollution. In accordance
with this principle the Council will require the provision of non-residential
development at the most local level to reduce the need to travel.
Major trip generating developments must be within town centres or
at other locations that are highly accessible by foot, cycle and by
public transport. |
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| 3.10 |
The Plan's overall strategy seeks to achieve
the efficient long term use of resources. In implementing this policy
the Council will adopt a sequential approach to development based
on the following principles. |
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In considering whether new building is necessary:
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- Retain and, where appropriate, refurbish existing buildings,
rather than re-develop them.
- Maximise the use of existing facilities through management
initiatives, such as dual use.
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If new building is necessary:
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- Minimise the use of greenfield and open land for development
and seek to maintain the natural vegetation, especially trees,
to help facilitate natural regulation of the ecosystem.
- Provide facilities and services at the most local level possible
to reduce the need to travel. Where it is not practicable to provide
facilities within walking distance, they should be within town
centres, which are accessible by public transport and where several
tasks can be accommodated in one trip.
- Maximise the use of town centre sites (and sites within walking
distance) through the provision of more intensive developments
including high density housing within and near to town centres
when this is environmentally appropriate.
- On appropriate sites provide for a mix or combination of uses,
which again has the potential to reduce the need to travel.
- Promote developments which maximise the effective use of resources
including water and energy, and assist in reducing potential impact
on the environment in terms of pollution, water and waste.
- Provide improved facilities for walking, cycling and public
transport and limiting commuter car parking.
- Encourage the use of local labour to reduce unnecessary car
commuting, such as through creche provision and secure cycle parking.
- Seek environmental gain to compensate for any environmental
cost of development.
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More generally the Plan will:
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- Protect local facilities to avoid the need for unnecessary
journeys.
- Increase travel choice to reduce dependency on the private car
and encouraging more energy efficient forms of transport.
- Provide a network of recycling facilities throughout the Borough
and within major development schemes.
- Seek to reduce the consumption of mineral and aggregates.
- Resist developments that will result in unacceptable levels
of air, noise and water pollution.
- Encourage the use of clean/renewable energy.
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This policy reflects the Mayor's Vision
for London, and the Government's objectives to encourage a pattern
of land use which minimises harm to the environment and reduces the
need to travel especially by car and to seek to improve air quality,
to reduce waste, pollution and the use of energy, and to encourage
recycling. |
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STG 4 - TOWN AND LOCAL
CENTRES AND RETAILING |
| 3.11 |
The Council will seek to
maintain and reinforce the vitality and viability of existing centres
defined in the Borough's town centre hierarchy (see Map
1). Major new developments which generate a substantial amount
of travel will be encouraged to locate in the major centre of Richmond
and the district centres, where consolidation and improvement of the
centres are sought. Where no suitable town centre sites, or buildings
suitable for conversion are available, edge-of-centre-proposals, and
only then, out-of-centre proposals will be considered. Out-of- centre
proposals will not normally be permitted. |
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| 3.12 |
Richmond town centre is defined under
the Greater London Authority's (GLA) classification as a major centre
having an extensive local catchment area with a wide range of comparison
and convenience goods shopping as well as being a cultural centre
for the Borough. The four district centres (Twickenham, Teddington,
East Sheen and Whitton) have a range of shops selling mainly convenience
goods and providing services. Day-to-day needs are met by local centres
and in some areas by isolated groups of shops. Together these three
layers comprise the Borough's town centre hierarchy. Town centres
are preferred locations for new, major trip-generating development,
because in general, there is a choice of different forms of transport
available, including accessibility for visitors on foot. They also
provide shopping facilities and other services to residents. The Council
will apply the following principles when considering development in
town centres: |
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- Major generators of travel, including shopping, employment,
leisure, cultural and entertainment facilities will be required
to locate in Richmond town centre and the district centres.
- Uses which serve the local community should be concentrated
in the smaller centres.
- Development should have easy access to all forms of public transport
and main pedestrian and cycle networks and where practicable improve
overall accessibility through establishment of new links.
- Higher density developments, small housing units and the use
of vacant space above shops will be encouraged, provided that
an acceptable level of residential amenity is provided for occupiers.
- High quality design which reflects the individual characteristics
of town centres and the provision of public art will be encouraged.
- Developments which enhance the evening economy will be encouraged
subject to residential amenity and to the overall balance of uses
in the town centre.
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| 3.13 |
Mixed use areas based on town and local
centres are defined on the Proposals Map. These indicate the extent
of related business activity, however they are not intended as town
centre boundaries and development proposals for specific uses should
adhere to appropriate locational policies. Developments which incorporate
a mix of uses will reduce the need to travel. They can also add to
the vitality and attractiveness of an area and assist in creating
a safe and secure environment. |
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STG 5 - MIXED USE DEVELOPMENT |
| 3.14 |
The Council will seek to
concentrate uses which serve the local community or attract visitors
in areas of mixed use shown on the proposals map. Within these areas
proposals will be expected to maintain or enhance the mix of uses;
mixed use developments will be sought on appropriate sites. Outside
mixed use areas, mixed use schemes will generally be encouraged. |
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| 3.15 |
The strategy of the Plan is based on maintaining
the existing diversity of uses with the aims of reducing the need
to travel and maintaining and enhancing local communities through
the provision of opportunities at the most local level practicable.
This approach means that the existing mix of uses should generally
be maintained and that new schemes should include a mix of uses, particularly
in the mixed use areas, subject to them not leading to the loss of
existing uses protected by the policies of the Plan, particularly
employment uses. |
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STG 6 - HOUSING |
| 3.16 |
To meet the Borough's share
of the additional dwellings needed in London, the Council will seek
to ensure that the minimum strategic dwelling requirement for an increase
of 4550 dwellings in the Borough between 1 January 1992 and 31 December
2006 is met, and to exceed this requirement where this can be achieved
in accordance with the Plan's other objectives and in particular the
need to maintain and enhance the environment. All proposals for new
housing development should take into account the need to use land
efficiently, including and take account of the provisions of the environmental
policies in the Plan. Housing provision is expected to include a range
of housing to meet the needs of all types of households. The Council
expects that over the Plan period, at least 40% of all new units will
be permanent affordable housing. |
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| 3.17 |
LPAC's Housing Capacity Study 1998/9 confirms
that the strategic dwelling requirement of 4550 dwellings over the
15 year period to 2006 can be met. Actual completions between 1 January
1992 and 31 December 2001 totalled 3300 units. The Borough collaborated
with LPAC officers in a rigorous exercise to identify capacity for
the 1997-2016 period, which has been agreed as 4860 units of conventional
capacity. This figure includes sites identified in the Plan, an allowance
for large windfall sites, and estimates for small sites and conversions.
Within this expected housing capacity, consideration will be given
to the range of housing, and its relationship with the wider issues
of sustainability, economic buoyancy, the labour market and Care in
the Community. The Council recognises the need for dwellings of a
variety of sizes, types, tenures and costs throughout the Borough
to meet the requirement of all types of households, including those
with special requirements such as the elderly, key workers, single
persons, the less mobile and those with low incomes and the homeless.
Due to the Borough's substantial need for permanent affordable housing,
which has been confirmed in a study and a survey carried out in 1999
and 2000, the Council will expect 40% of all new residential units
developed within the Plan period to be permanent affordable housing.
The Council will generally resist the loss of housing to other uses,
and any reduction in housing units. |
| 3.18 |
New residential development must ensure
that land is used efficiently, including the provisions of the environmental
policies of the Plan, whilst respecting the quality, character and
amenity of the area. The prevailing nature of established neighbourhoods
should be maintained. The Council will encourage relatively higher
density development in town centres and areas within walking distance
of town centres or otherwise well served by public transport, subject
to compatibility with established character. |
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STG 7 - PUBLIC OPEN
SPACE |
| 3.19 |
The Council will retain
and promote the creation of a hierarchy of public open spaces, providing
regional parks and open spaces, metropolitan open spaces, district
parks, local parks and open spaces. |
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| 3.20 |
Many of the Borough's parks and open spaces
are of metropolitan importance in providing opportunities for recreation
(see paragraph 5.3 and Table
1 in Chapter 5 for the context of the public open space hierarchy).
Areas of public open space will be safeguarded and where practical
opportunities will be taken to improve both the provision and quality
of open space and associated recreational facilities. Opportunities
will also be taken to improve the value of public open space for walkers
and wildlife. The major areas of public open space have a London-wide
function. |
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STG 8 - EMPLOYMENT |
| 3.21 |
The loss of employment
sites will generally be resisted. New development for business, industrial
or storage and distribution use will be permitted subject to other
policies of the Plan. |
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| 3.22 |
It is important that employment sites
are retained to provide a range of employment opportunities within
the Borough in order to maintain opportunities for people who wish
to work locally, now or in the future. The Council will seek to retain
the existing dispersed pattern of employment opportunities with main
concentrations of employment in town centres and other locations that
are accessible by public transport. These will provide opportunities
for people living in parts of London where unemployment is higher
and personal mobility relatively low. |
| 3.23 |
The employment policies of the Plan are
essential to all the elements of the Mayor's Vision for London. The
development of a specialist economy makes an important contribution
to the London economy as a whole. The policies take forward Strategic
Guidance objectives in relation to promoting London as a World City,
maintaining and enhancing the competitiveness of business, and encouraging
a pattern of land use which minimises harm to the environment and
reduces the need to travel especially by car. The approach balances
the need for growth of the local economy with the consolidation principle
(see paragraphs 2.9-2.10) applicable
in west London to ensure that labour and transport capacity are not
exceeded. |
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STG 9 - RECREATION,
CULTURE AND ENTERTAINMENT |
| 3.24 |
The Council will resist
the loss of sites in leisure, recreational, cultural, entertainment
or community use and will encourage new provision in suitable accessible
locations. |
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| 3.25 |
Where practicable new facilities should
be within walking distance of people's homes. More specialised facilities
should be conveniently accessible by public transport. Many facilities
are of London-wide importance and therefore contribute to the strategic
vision in relation to quality of life and establishing a strong economy. |
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STG 10 - TOURISM |
| 3.26 |
The Council will seek to
maximise visitor satisfaction while protecting the interests of residents
and the environmental character of the Borough. |
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| 3.27 |
The Council recognises the value of tourism
both to the local and London economy and will encourage the provision
of accommodation to enable visitors to stay longer and spend more.
However, it is anxious that any adverse effects it may have on residents,
traffic and the character of the Borough are kept to a minimum. Strategic
Guidance recognises tourism as one of London's growth sectors and
that it is vital to the future success of London's economy. |
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STG 11 - TRANSPORT |
| 3.28 |
The Council will seek to
reduce congestion and pollution through promoting a choice of means
of travel including, low emission motor vehicles, walking, cycling
and public transport and river transport. |
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| 3.29 |
In implementing this policy the Council
will seek: |
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- To provide choice of alternative modes of transport
- To promote walking and cycling.
- To improve road safety for all.
- To press for new and improved bus, tube and intermediate mode
rail services.
- To lobby for the development of new orbital rail services in
south west London.
- To reduce the impact of traffic in residential areas and streets
unsuitable for through traffic.
- To give priority to pedestrians in district and local shopping
centres.
- To locate major developments on sites well served by public
transport.
- To manage car parking in areas where commuter parking is prevalent
- To control heavy goods vehicle movements to minimise their harmful
and intrusive effects.
- To continue to liaise with neighbouring local authorities, London-wide
bodies, the Department of Transport, Transport for London, the
Strategic Rail Authority and the transport operators to secure
innovative and effective improvements in pursuit of its transport
policies.
- To improve interchange facilities at railway stations and other
public transport interchanges including those with river transport
services.
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| 3.30 |
The Council considers that further provision
for orbital and radial travel in south west London should be achieved
through a strategy based on new and improved public transport provision
rather than major road expansion. The approach is consistent with
the objectives of the Road Traffic Reduction Act 1997 and of Strategic
Guidance to facilitate the development of transport systems which
are efficient and safe, and which contribute to the achievement of
competitiveness, regeneration and urban quality. |
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STG 12 - AIR TRANSPORT |
| 3.31 |
The Council will oppose
further developments likely to lead to an expansion in services or
an increase in flights to and from Heathrow Airport, or any increase
in commercial or private helicopter activity over the Borough. It
will seek a ban on night flights. |
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| 3.32 |
The Council is concerned that any increase
in flights over the Borough will lead to increased noise and, in the
case of Heathrow, additional traffic within the Borough and increased
threat to safety of residents. In addition to their environmental
impact the Council recognises that airports can have a powerful effect
on the type and level of economic activity and urbanisation and this
must be a major consideration in their siting and expansion. It would
be bad planning to encourage more airport activity in a heavily populated
'overheated' area such as west London where it would put large numbers
of people at increased risk of a major accident and exacerbate development
pressures, transport congestion and labour shortages whilst perpetuating
the east/west imbalance in London. The Council supports the development
of regional airports. Within the South East it considers that there
would be regional planning benefits in catering for expected growth
in airport activity in less buoyant parts of the region and that all
alternatives should be thoroughly investigated to this end. The Council
is opposed to the development and use of further supersonic aircraft
because of their excessive noise nuisance. Although Heathrow Airport
is outside the administrative boundaries of the Borough, the Council
will oppose further developments likely to lead to an increase in
flights or services. The air transport policies of the Plan will only
be relevant where there is a need for planning permission, or where
the Council is consulted on land use, or environmental conditions. |
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STG 13 - LIAISON |
| 3.33 |
The Council will continue
to liaise with neighbouring local authorities and London-wide bodies,
the Department of Transport, Transport for London, and the transport
operators to secure innovative and effective improvements in pursuit
of its transport policies. |
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| 3.34 |
Many things which happen outside the Borough
boundary have significant effects on the Borough, such as proposals
on the opposite river bank, developments which add excessive traffic
to the Borough's roads, growth in nearby shopping centres, and changes
in aircraft movement. When the Council is consulted on planning applications
and local plans, or given other opportunities to make representations,
it will assess proposals in relation to their achievement of the Plan
objectives. Equally plans and proposals in the Borough may have an
impact on adjoining areas and the Council will consult other authorities
on these matters. |
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STG 14 - MONITORING
AND REVIEW |
| 3.35 |
The Council will review
the policies and proposals of this Plan and amend them where necessary. |
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| 3.36 |
The Plan is intended to guide development
and land use change over the next ten years or so, and most proposals
in it can reasonably be expected to start within ten years of the
adoption of the Plan. So that the Council has an up to date Plan,
the Council will bring the policies and proposals of the Plan into
line with new government and regional strategies and planning advice,
take into account any new planning guidance to be issued by the Greater
London Authority and Mayor of London; and will regularly monitor changes
which are occurring in the Borough and surrounding areas, and also
the effectiveness of the Plan in achieving its objectives. In the
light of monitoring, the Plan will be amended as and when necessary,
subject to consultation as statutorily required. A set of targets
is given below. |
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UDP performance targets
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Appearance and design
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No loss of listed buildings/buildings of
townscape merit |
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Overall structure
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50% of sites in mixed-use areas are redeveloped
for mixed uses (STG5). |
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90% of net increase in retail provision
in Richmond and district centres (TC2) |
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85% of employment floorspace is created
in Richmond and district centres (EMP2) |
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Opportunity for all
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40% of new housing units are affordable
housing (HSG6) |
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10% of homes built to wheelchair standards
(HSG8) |
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Maintain level of local shopping facilities
(TC 7) |
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Housing
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1992-2006 housing target of 4550 is achieved
(agreed in RPG 3)/ 1997-2016 housing target of 4860 is achieved (agreed
with GLA) (STG6/HSG1) |
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95% of new housing on previously developed
land (STG3) |
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25% of new units are small (HSG11) |
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Employment
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Net increase of 150 per annum in firms
registering for VAT in the borough |
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1% net growth in business and industrial
floorspace per annum |
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Town and local centres
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Maintain proportion of retail uses in key
frontages at existing levels (TC5/6) |
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No loss of basic convenience facilities
in smaller centres |
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Nature conservation and open spaces
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No development contrary to Metropolitan
Open Land, Green Belt or Other Open Land of Townscape Importance policy
(ENV 1,2,3)
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Implementation
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10% proposal sites developed each year
Plan is operational |
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Less than 5% departures of total applications |
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Protection of community facilities
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No net loss in floorspace of community
facilities |
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