In the previous chapter the anticipated changes in the level of population and the number of households were discussed.  Whilst the number of people in the City may vary, the amount of land available for them does not.  This chapter addresses the issues involved in trying to ensure that in accommodating current needs, the limited amount of land is used in such a way as not to prejudice the needs of future generations.  In achieving this aim, the Plan needs to make the best use of other key resources such as energy and the inherited service and social infrastructure of the City.

The 1990 White Paper on the Environment, 'This Common Inheritance: Britain's Environmental Strategy', presented guidelines towards a comprehensive review of every aspect of national policy.  Its commitments have since been supplemented by those arising from the 1992 Rio Earth Summit.  'Sustainable Development: The UK Strategy' (1994) sets out what is being done in the UK to achieve 'sustainable development', which is defined as "development that meets the needs of the present without compromising the ability of future generations to meet their own needs".

Local planning authorities have a key part to play in helping to achieve this vision, and many, including Sunderland, are preparing their own 'Local Agenda 21', following up locally the commitments made at Rio.  Authorities have a particular responsibility to ensure that development plans are drawn up in such a way as to take environmental considerations comprehensively and consistently into account.  Environmental improvement can thus be plan-led, individual development decisions being taken against an overall strategic framework that reflects environmental priorities (PPG12 (Development Plans), paras. 6.1, 6.14).  Patterns of development therefore should be sought which use land effectively (but without resorting to "town cramming" (see Glossary)), which reduce the need to travel by car, and which give encouragement to walking, cycling and the use of public transport.

On a local level, broad guidance on the environment was provided by the Tyne and Wear Structure Plan.  Its Strategy for the environment had two main elements:-

• the need to limit the spread of the built-up area;
• the need to improve the quality of the environment within this area.

To make the most sustainable use of resources, the spatial strategy aims to concentrate new development within the built-up area, allowing for extensions only where this is considered to be the best means of achieving other Plan objectives.  Developments should be located and designed to make full use of existing/proposed service and social infrastructure.  Full use should also be made of vacant and derelict land (See also para. 9.16).  Developers should contribute fairly to the cost of new infrastructure or the replacement of valued features which their proposals would destroy.

Energy use can give rise to 'greenhouse' gases and other emissions harmful to the atmosphere.  The spatial strategy can assist in reducing air pollution from motor vehicles by limiting the need to travel; other emissions could be reduced as a result of national policies promoting non-fossil fuel sources.  The planning system can assist in limiting adverse effects through reducing the need for energy, by:

• locating new development to minimise the need for car travel;
• encouraging walking, cycling and the use of public transport;
• influencing the layout and design of buildings, to maximise passive solar gain whilst minimising the effect of chill winds;
• encouraging the use of energy-saving technology such as solar panels and combined heat and power schemes.

The environment in all its aspects is important to the quality of life for City residents and can affect other planning issues.  An improved and well-conserved environment goes hand in hand with making strategies for regeneration a success, helping attract inward investment.  The former Environment Secretary, John Gummer, stated (in a countryside context but of more general application), "Sustainable development is not unrestrained development by another name.  Nor is it about unbending protectionism.  The challenge of sustainable development is to accommodate the development we need, while being confident that we shall hand on a countryside in good order to future generations."  'Sustainability' considerations are therefore incorporated into many of the more specific policies of the Plan.  Allied to this concept is the 'precautionary principle', which requires that particular care should be taken when assessing changes which may be difficult or impossible to undo (See STix).  The environmental appraisal of the Plan indicates a measure of success in attaining sustainability (See Chapter 17).

‘Sustainable Development: the UK Strategy’ (1994) asserts five principles for giving effect to sustainable development through the land-use planning system:

• promoting attractive and convenient urban areas, in which people will want to live and work;
• encouraging new development in locations that are likely to minimise energy consumption;
• encouraging the regeneration of urban land and buildings, and the restoration to use for development or open space of derelict and contaminated land;
• integrating the development which is necessary to sustain the rural economy with the protection of the countryside for its landscape, wildlife, agricultural, forestry, recreational and natural resource value;
• promoting an understanding of sustainable development among all those who have an interest in the development process.

In addition, sustainable development needs to take into account the consequences of private motorised transport for urban air quality and energy use; to this end, the Council seeks to promote benign modes of transport (such as walking and cycling) and to reduce the overall need for travel (Policy T1).

Government guidance advises that the capacity of existing infrastructure and the need for additional facilities should be taken into account in all development plans, also that likely infrastructure limitations can influence the pattern of new development (PPG12, paras. 5.22, 5.23).

In order to minimise the need for major new public investments, maximum use is to be made of service and social infrastructure such as roads, schools, sewerage and drainage systems.  Where possible, new development will be located so as to take advantage of spare capacity in these systems or of proposals of the UDP, e.g. new roads.  This not only has financial implications in terms of reducing capital costs, but also has the effect of limiting the spread of the urban area as new developments will therefore be closely located to the service network.  Because this will result in a more compact urban form, the need for travel should be minimised (See PPG13).  The re-use of vacant and derelict land, especially within urban areas, can also contribute to making the best use of resources.

Where sites not allocated in the Plan are proposed for development, they will be assessed in terms of their location relative to existing and planned infrastructure, existing and projected traffic patterns, and in terms of the extent to which they would enable derelict or vacant land to be re-used.  Where the development proposed would generally accord with the Plan but objections remain, the scheme's ability to meet the provisions of this policy will be given special weight.

The policy aims to cover matters which, while necessary in practical or planning terms for a proposed development to proceed, cannot be dealt with by way of planning conditions.  Problems may arise:

• when development is proposed where the necessary infrastructure or community facilities are not available; or
• where development would result in the loss of an amenity already on the site the consequences of which would be unacceptable (for example, an area of nature conservation interest ought not to be destroyed without some alternative provision being made). 

New developments can result in a greater burden being placed upon existing local authority facilities.  Hence the City Council may seek to enter into a planning obligation (see Glossary) with the developer to ensure that suitable provision or replacement is made.

Examples of necessary infrastructure or community facilities include:

• transport infrastructure, including highways, car parking and facilities to assist public transport, pedestrians and cyclists (T14);
• social, recreational and other community facilities (including schools);
• open space and access to countryside;
• community woodland;
• measures to protect or enhance the natural or built environment.

This list represents those needs identified by the City Council and which generally fall within current Government guidance (DoE Circular 1/97).  It is not exhaustive and the Council may wish to add to it in the light of new guidance or other changes in circumstances.  Other policies of the Plan indicate that developer contributions may be requested, rather than required, for items not on this list, e.g. public art (see B20).  In respect of recreational facilities other than amenity open space it is anticipated that most planning obligations would relate to developer contributions to existing or proposed off-site buildings and pitches, as it is preferable to concentrate such provision in key locations where advantage can be taken of communal facilities such as changing rooms.

The aim of planning obligations is to assist in securing the best use of land and a properly planned environment.  Circular 1/97 sets out the limits to the use of obligations to achieve planning objectives.  It is likely to be held reasonable if what is sought or offered:

• is needed from a practical point of view to enable the development to go ahead, e.g. the provision of adequate access or car parking (this may involve a financial payment towards the cost of such work);
• is necessary from a planning point of view and is so directly related to the proposed development and to the use of the land thereafter, that the development ought not to be permitted without it, e.g. open space related to the development or other community provision the need for which arises from the development;
• is designed in mixed developments to secure an acceptable balance of uses;
• offsets the loss of or impact on any amenity or resource present on the site or nearby prior to development.

Government policy (PPG12 paras. 6.10-6.16, PPG13) encourages patterns of development which enable the wise use of energy so as to reduce harmful emissions to the atmosphere (see also Policy R2).  As part of this overall approach, the Council will encourage the adoption of energy efficiency measures where practicable.  These include passive design measures such as the careful layout and grouping of buildings within new developments, to maximise solar gain and minimise wind chill.  The City Council will encourage developers to apply the advice in Development Control Guidance in new developments, particularly for housing, offices and industrial schemes.  Energy-saving technologies such as solar panels will also be encouraged, though in developing schemes particular care should be taken in Conservation Areas and other sensitive locations where visual appearance may outweigh energy saving considerations.