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Strategy Principles

The spatial strategy for the District to 2018 and beyond flows from the identified vision and objectives, with the key emphasis being on the positive management of change.  Government guidance in Planning Policy Statement 1 (PPS1) ‘Delivering Sustainable Development’ states that, in preparing spatial plans, planning authorities should:

“Consider the needs and problems of the communities in their areas and how they interact, and relate them to the use and development of land.  They should deal not only with what can be built where and in what circumstances, but should set out also how social, economic and environmental objectives will be achieved through plan policies.”

The strategy proposed for Horsham District has an essential role to play in achieving the appropriate balance between protection and improving the quality of life for all, including ensuring that necessary change and development is sustainable in the interests of future generations.  We are committed as a priority to protecting and enhancing the quality of the natural and built environment of the District; the strategy has to accommodate change but, in so doing, the emphasis is on respecting the distinctive local character wherever possible.  We shall, therefore, continue to encourage local communities to highlight the features or elements of character most important to them through Village or Parish Design Statements (and Neighbourhood Character Assessments in the town) and to set these within the context of accommodating change where necessary through Parish Plans/Rural Town Action Plans and the Horsham Town Neighbourhood Appraisal.

The strategy is based on the application of positive policies on issues such as design, conservation and provision of public space in order to maintain and improve the local environment and also to help mitigate any effects of declining environmental quality in some locations.  We will continue to provide a high level of protection for our most valued landscapes and townscapes, particularly those with local or national designations such as Conservation Areas and Areas of Outstanding Natural Beauty.

Within the context of the sustainable development principles, in providing for the necessary new development within the District the strategy is based on giving priority to locating new homes, jobs, facilities and services within Horsham town and where appropriate, the smaller towns and villages, particularly through the re-use of previously-developed land.  The capacity of these built-up areas to accommodate additional development has been assessed in the Urban Housing Potential Study 2004-2018 but will be kept under review.  There is still a need, however, for additional development on greenfield sites and the strategy concentrates most of this development into two large scale, mixed use ‘urban extensions’, to the west of Crawley and the west of Horsham.

Land west of Crawley is identified in recognition of the need to support economic growth in the Crawley/Gatwick area and to provide for Crawley’s internally generated growth.  The development of an appropriately sited new neighbourhood will maintain the local development pattern whilst meeting the social and economic needs of people wishing to live and/or work in this area.  There are, however, significant constraints to development in the area west of Crawley and the strategy seeks to explore fully the impact of development both now and in the longer term, in order to be able to define the most appropriate localities and phasing of development.  A new neighbourhood will need careful masterplanning and may take some time to commence but, given the joint commitment with Crawley Borough Council to proceed, the strategy assumes a total of up to 2,500 homes and appropriate employment provision, will be feasible in the period to 2018.  Work will be undertaken as a priority on the Joint Area Action Plan for Land West and North-West of Crawley to bring forward the land necessary for the intended development.  The development is intended to provide for the needs of Crawley as an expanding community, with the emphasis placed on the development being in the most suitable location relative to the location of employment (at Gatwick and the major employment areas in Crawley) and facilities or services within Crawley.  It is not intended, therefore, to seek to replace any of this proposed development by additional housing or employment provision elsewhere within Horsham District, were the full scale of development not to be achieved for whatever reason within the period to 2018.

The development of the land west of Horsham represents the best means of planning comprehensively for the needs of the town and the wider area.  The area cannot be satisfactorily developed in a piecemeal or partial way if the necessary infrastructure and community facilities are to be provided in a proper manner.  The strategy is, therefore, based on taking a comprehensive view of this area and planning for the programmed release of all the land within the identified area over the period to 2018; 2,000 homes will be provided in this period.  The contribution from this development towards meeting the identified affordable housing needs is a key element of the strategy.  The scale of proposed development west of Horsham up to 2018 is a reflection of the relationship between the physical characteristics of the area involved and the need for specific infrastructure, including community facilities, as an integral part of the development process.  It is also appropriate as the most sustainable development option which best addresses the housing requirements of the District.  It is neither necessary nor appropriate at this stage to look beyond this provision to other less desirable locations for any significant level of development.

A further element of the strategy is, however, the limited release of smaller scale sites to meet identified local needs or enable the continued evolution of local communities.  Such development needs to be clearly justified and should not undermine the essential form, setting and character of the settlements concerned, either indirectly or by the potential cumulative impact.  The scale of this development will be limited both on a local basis and overall within the District.  Whilst much of the development appropriate to meet local needs can be identified in advance and the strategy assumes that this will be the case, it is considered appropriate for the strategy to incorporate some flexibility to respond to changing local circumstances, including where the opportunity arises to achieve substantial environmental enhancement.  The potential for an improved interchange at Pulborough Station with redevelopment of land in the vicinity is one possible such case.

The strategy recognises that some people in the District are unable to afford to meet their housing needs through the private housing market and require the provision of alternative, affordable forms of housing.  The principle involved is that it is necessary to have a package of measures in place, including a requirement for a realistic proportion of new development to be provided as affordable housing, which will meet the needs of households in the District in the most cost-effective way.

In employment terms the strategy also focuses additional development on existing towns in order to promote sustainable patterns of development and, where appropriate, to make better use of previously-developed land.  New provision will be included in the comprehensive planning of the large scale developments west of Crawley and west of Horsham.  The strategy also allows for employment or leisure provision as part of the regeneration and restoration proposals for the former Shoreham Cement Works and for the re-use of land at the Warnham and Wealden Brickworks site.  

The strategy supports the provision of community facilities, services and infrastructure to meet the District’s needs; where appropriate, contributions from landowners and developers will be sought.  The strategy seeks to maintain and facilitate the improvement of existing facilities wherever appropriate and to seek new provision to meet needs where possible.  It is recognised that, in some cases, such as in relation to acute healthcare provision, the responsibility and basis for action lies beyond the direct influence of this strategy;  however, in other cases, such as with regard to education, we can facilitate provision and follow up opportunities which arise to meet needs.  The strategy is not based on working in isolation but rather drawing together partners and facilitating joined up working.

The strategy encourages a more diverse rural economy whilst seeking to ensure that the scale of development and level of activity is compatible with a countryside location.  The strategy also seeks to ensure that the specific needs of the elderly, young people, minority and hard to reach groups, and those with special needs are given particular attention in meeting the needs of communities.

The strategy seeks to support and enhance the role of Horsham Town centre and the other town or village centres within the District.  It is not considered to be appropriate to support further ‘out of town’ comparison shopping;  Horsham town is well catered for at present and any further comparison goods shopping ‘out of town’ would undermine the vitality and viability of the town centre. There are no specific strategy provisions for new retailing at this stage but the position, particularly in relation to convenience retailing, will be kept under review and there may be some scope for change in line with the delivery of the west of Horsham development.  The strategy does, however, aim to enhance the ‘evening economy’ of the town as appropriate in keeping with the character of the centre.

The strategy supports the need to minimise the effects of growth in travel by private car through providing for choice in modes of transport wherever possible in the District.  It is recognised that the needs within the rural parts of the District will remain different from the more urban areas where alternative modes of transport are either available or can reasonably be enhanced.  As a general principle, however, the encouragement of new development that is located and designed to reduce average journey lengths is viewed as an essential requirement, together with the promotion and support of investment that aims to achieve a rebalancing of the transport system in favour of non-car modes.  The strategy also envisages pursuing the introduction of demand management techniques through, for example, such mechanisms as parking policy, to ensure that town and village centre parking, both on-street and off-street, concentrates on the needs of residents, shoppers and visitors rather than commuters.  The strategy envisages supporting this approach with a further park and ride site to serve the western approach route into Horsham town;  the timing of such a provision as part of the west of Horsham development will be subject to further consideration.

Sustainable Development Principles

The proposed spatial vision and objectives have full regard to the need to achieve sustainable development in the context of this District.  We believe that it is important to establish the policy basis against which the use and development of land within the District will be measured.  The process for measuring change against these policy principles will involve examination on both an individual and cumulative basis in order to further environmental well-being.  We have not been challenged in general terms on the need to achieve sustainable development within the District or on the key principles of the approach.  We have explored alternatives as far as possible, including the implications of not controlling development within the built-up areas or the countryside to the extent proposed and applying different policy ‘tools’ to the protection of the townscape and landscape character of the District.  We believe that the approach of minimising any adverse effects of change or development and seeking positive enhancement wherever possible, coupled with efforts to continue improving the quality of new development, is the appropriate way forward (supplemented by the more specific articulation of particular development control policies in the General Development Control Policies Development Plan Document).  The following core policies are therefore at the heart of this Core Strategy:

The countryside, villages and towns of Horsham District are very attractive and varied in character.  32 separate landscape character areas have been identified in the District, from those situated in the South Downs to those in river valleys and the Low and High Weald.  The differing character of the 32 more detailed character areas has resulted from differences in a range of features including field and settlement patterns, biodiversity, soils, tranquillity, cultural heritage and local building materials.  It is important that these different character areas of the District are conserved and enhanced, but this must be integrated with the need to accommodate change in order to address social or economic objectives and meet the needs of communities.  In so doing it is, however, necessary to ensure that not only is harm to the environment minimised but that opportunities are taken to bring about improvements, where possible.  This applies whether the initiative for change is brought about through land management decisions or new development.  It is also important to be aware of the broader implications of gradual change through the cumulative effects on character, particularly in terms of the impact on more small-scale or local features.  Consideration of the townscape character of settlements will include aspects of the historic and built environment and will be informed by broad-based studies of historic character (such as Historic Landscape Characterisation) as well as by Conservation Area appraisals and Village or Parish Design Statements (and the Horsham Town Character Assessments).  The maintenance of the settlement pattern is a key objective and it is particularly important to maintain the ‘strategic gaps’ between Horsham and Crawley, and Horsham and Southwater.  Similarly, the conservation and enhancement of the designated Areas of Outstanding Natural Beauty will be actively supported, particularly as defined in the adopted AONB Management Plans.  Biodiversity within the District is also a major consideration, not only in terms of protection but also in exploring opportunities to achieve biodiversity objectives as set out in the Horsham District Biodiversity Action Plan.  The intention will be to deliver net environmental gain through such mechanisms as planning obligations and through influencing land management practices to deliver biodiversity targets.

The quality of the environment around us, from air quality to waste and flooding, all impact on our standard of living.  In general, the quality of the environment of the District is very good and it is important that it is maintained and enhanced for future generations.  Sustainable natural resource management within the District means ensuring greater efficiency in our use of natural resources, the reduction of pollution and waste, and ensuring that features of importance are protected and enhanced, including landscape, townscape and biodiversity as set out in Policy CP 1.  It will be important to promote appropriate natural resource management by everyone within the District, not least because of the growing threat posed by climate change.  Climate change is potentially a key driver of change and, whilst a much wider issue in terms of reducing emissions of greenhouse gases, mitigation can be addressed through appropriate policies at the local level.

Development certainly has the potential to harm the environment; both directly, for example, through the release of pollutants from a factory into the surrounding environment; or indirectly, for example, through the need for electricity which requires the burning of fossil fuels offsite.  We will therefore work to ensure that development does not lead to the pollution of the environment, or adversely affect the environment by increasing the risk of flooding.  Development can increase the area of impermeable land which can exacerbate the probability and impact of flooding.  We will therefore require incorporation of Sustainable Drainage Systems and water retention methods in developments unless there are practical or environmental reasons for not doing so.  We will also seek to minimise the more indirect effects of development on the environment by encouraging renewable energy technologies including passive solar design, solar water heating and photovoltaics, to be incorporated into developments and encouraging buildings to incorporate sustainable construction technologies, including water and energy conservation techniques.  We will also seek to minimise the production of waste by requiring recycling facilities to be incorporated into developments with a particular emphasis on integrating waste management facilities for the strategic development locations.

Energy conservation and the generation of energy from renewable sources can help to reduce the need to rely on fossil fuels and nuclear energy.  In addition to requiring the incorporation of high standards of energy efficiency in all development, we will encourage the development of renewable energy in appropriate locations within the District.  The scope is relatively limited because of the potential impact of development on the landscape, particularly in the Areas of Outstanding Natural Beauty, but there may be scope for generating energy through various crops (biomass) within the District.  Any such development will need to be located and designed to minimise adverse impacts on landscape, wildlife and amenity and will need to take account of the proximity of any biomass combustion plant to the fuel source and the adequacy of the local transport network.

Good design is a key element in sustainable development.  We will, therefore, promote a high standard of urban design, architecture and landscape design.  We will seek to ensure that development in the District enhances and protects the local distinctiveness and quality of life, including in design, landscaping (both within a scheme and regarding any impact on the surrounding landscape), and in ensuring that social and environmental dimensions are being considered alongside visual and functional concerns.  We will encourage proposals that are designed to assist vitality and a definable ‘sense of place’ within communities.

Any development no matter how small can have an impact on an area.  Developing an understanding of the characteristics of that area and the context of a development should always form part of the work undertaken before submitting a proposal for consideration and can help ensure that it makes a positive contribution to the local identity of the District.  Overall, we want to ensure that new development enhances and complements local character, landscape and open spaces, and to increase awareness of the practical measures that can be taken to plan quality and sustainability into a development.  It is important also to recognise adequately the ability of design to provide appropriate environmental mitigation.  We will support this approach through the preparation of development briefs or design guides, particularly for the strategic development locations but also for other development sites where appropriate.

Development Strategy

a) Background

The proposed development strategy stems from the identified vision and objectives, particularly in that the strategy needs to translate the development requirements of regional planning policy, as expressed partly through the adopted West Sussex Structure Plan 2001-2016 and partly through the evolving South East Plan, into proposals which will bring forward the necessary land for development within the period to 2018.  This Core Strategy identifies the principles involved in the strategic land allocations but otherwise only indicates the broad locations for development, which are then outlined in more detail in the Site Specific Allocations of Land development plan document.  The more detailed provisions for the two strategic land allocations will be set out in the proposed Joint Area Action Plan for West and North West of Crawley and the Development Brief for West of Horsham

The adopted Structure Plan indicates (Policy NE1) that provision should be made in Horsham District for 9,335 dwellings and 190,000 square metres of employment floorspace in the period 2001-2016. This amounts to an annual average rate of house building in the District of some 620 homes.  Given that this provision is part of a county total of 2,890 homes each year over this period and that the South East England Regional Assembly in the South East Plan has agreed a similar rate for West Sussex (2,900 p.a.) between 2006 and 2026, it is appropriate, at this stage, to ‘roll forward’ the annual provision for the District to cover the further two years in the period to 2018.  This would result in the need to provide a further 1,240 homes in addition to that specified in the Structure Plan, giving an overall figure of 10,575 new homes required within the District in the period to 2018.  Clearly, the requirement may change once the South East Plan process is complete but it is considered appropriate to plan for at least this level of provision within the District and to review the situation as necessary once the South East Plan has been finally approved.

In relation to housing development it is important to recognise that a proportion of the total requirement has already been identified since the start of the period (2001).  This comprises the dwellings built within the District by mid-2004 and those sites with planning permission or endorsed by the Council for release (in the former Local Plan and/or the subsequent Position Statement).  These categories account for some 3,205 dwellings by 31st March 2004 (the last date for which comprehensive information is currently available; data to 31st March 2005 will be published shortly).  Deducting this provision from the total requirement to 2018 leaves 7,370 dwellings still to be identified from 1st April 2004.

The Structure Plan gives priority to locating new houses and jobs within towns and villages; particularly through the re-use of previously-developed land.  It is expected that local planning authorities will define built-up area boundaries for towns and villages and will assess the capacity of these built-up areas to accommodate additional development.  These studies should consider the potential of underused, vacant and derelict sites and the scope for re-using existing buildings for housing.  However, the Structure Plan indicates that no matter how efficiently previously-developed land is used, greenfield land will be required to meet the development needs identified.

The approach of the Structure Plan is that most of the new development should be concentrated in a relatively small number of large-scale, mixed-use, mixed-density developments (Strategic Locations).  Two such locations are identified within Horsham District:

• west of Crawley
• west and/or south-west of Horsham

It is for the District Council to determine the precise areas of land to be allocated in each case and to examine the issues involved in bringing the land forward for development.

The Structure Plan indicates that additional small scale greenfield development may be required to meet local needs, either in terms of limited extensions to the main towns in passenger transport corridors or to assist in the gradual growth and evolution of rural communities.  The intention is that the size of any such small scale extensions to a town or village should relate to the size of the existing settlement and meet local needs identified through joint working with the local community.

In relation to employment development, the Structure Plan indicates that some development is already planned for through land allocations or planning permissions granted, such as at Southwater, and that the provision of some of the new employment floorspace should be in the Strategic Locations.  However, it does also seek to ensure that a range of types and sizes of sites and premises are provided to meet different needs, and that most existing employment areas are retained and renewed to provide improved employment accommodation.

The evolving South East Plan indicates that, within the region as a whole, over the 2006-2026 period, at least 60% of additional housing should be on previously-developed land and through conversions of existing buildings.  Local development documents are expected to contribute to this regional target by encouraging housing development on previously developed land, having regard to local circumstances.  The South East Plan also states that new housing to meet the District requirements - whether on previously developed land or on greenfield land - should be in sustainable locations which have the necessary infrastructure, services and community provision or where this provision is planned.  In rural areas, it is indicated that some housing development will be needed in order to meet identified social or economic needs.  With regard to sustainable economic development, the South East Plan expects the allocation of employment land to provide a range of sites and premises to meet the needs of new business start-ups, growing businesses and inward investors based on a series of criteria, including locations that minimise commuting and where the maximum use of public transport can be made.

b) Development Strategy for Horsham District

In interpreting both the Structure Plan strategy and the evolving South East Plan in development proposals at the local level, it is important to be clear on the main principles involved.  These can be summarised as:

• provision for development over a 10 year period from adoption, based on rolling forward to 31st March 2018 the District's annual average housebuilding rate for 2001-2016 (620 homes per annum);
• emphasis on the re-use of suitable previously-developed land (including the re-use or conversion of existing buildings) for housing;
• provision for the westward expansion of Crawley in the form of a new neighbourhood of up to 2,500 homes, and appropriate employment provision, by 2018, in order specifically to meet the internally generated  growth needs of Crawley;
• concentration of other new development within Horsham District in or immediately adjoining Horsham town, including the land south of Broadbridge Heath (2,000 homes by 2018);
• provision for a limited number of small-scale development opportunities on the edge of some of the smaller towns and villages of the District where there are local needs to be addressed and in order to supplement continued evolution of communities through infilling and redevelopment within the existing built-up areas;
• no provision before 2018 for any further large scale development at Billingshurst but recognition that this position may need to be reviewed in the future, particularly with regard to the need to relocate businesses and redevelop some of the existing industrial areas as part of a comprehensive planning strategy;
• no provision before 2018 for any further large scale development at Southwater but recognition that this position may need to be reviewed in the light of the approval of the South East Plan and any requirements stemming from the final regional/sub-regional strategy to accommodate additional development in the District;
• a clear intention to proceed on the basis of a plan, monitor and manage approach so that there is sufficient focus on delivering the necessary development requirements and putting in place mechanisms to respond to the results of monitoring.  This is coupled with an acknowledgement of the potential need for an early review of the Core Strategy once the South East Plan has been finalised.

The strategy for the District is based on the premise that new development at appropriate locations within the District is inevitable but that it will be a priority to ensure that any such development takes full account of local character and circumstances.  Development must be of a high quality, whatever it is for and wherever it is located, with the least harm caused and the most benefits to the environment and the local community secured.  The strategy assumes a balanced approach towards the redevelopment of existing industrial/ commercial buildings or sites for residential purposes and their retention and improvement to provide better employment and accommodation in an enhanced environment.

Our approach towards meeting the development requirements stems from a number of studies, including the Urban Housing Potential Study 2004-2018, the Settlement Sustainability and Greenfield Site Allocations Study and the Employment Land Review.  It follows the sequential approach promoted by Government policy and articulated in regional planning policy and in the adopted Structure Plan.  In essence, the approach involves:

• the definition of built-up area boundaries;
• the assessment of housing potential on previously developed land within these built-up area areas;
• the examination of the approach towards the two Strategic Locations ('urban extensions') and the scope for development in each case; and
• the identification of appropriate smaller scale allocations to address local needs.

In each case we have explored alternatives to this development strategy, particularly in the light of the extensive consultation process undertaken and the responses to both the Issues and Options Consultation Document and the Preferred Options Core Strategy.  The key provisions in each case, and their justification in strategy terms, are set out below; the more detailed location and site specific requirements for the non-strategic proposals are set out in the Site Specific Allocations of Land development plan document.

i)  Built-up Area Boundaries

The definition of built-up area boundaries for towns and villages in the District is a long-standing policy tool which is used to identify the areas within which development is accepted in principle, including infilling, redevelopment and conversion.  They do not necessarily include all existing 'developed' areas but they include any land allocated to meet the development requirements identified.  Land outside a defined built-up area is considered to be in the countryside, where development is strictly controlled.  The definition of appropriate 'built-up areas' with specific boundaries enables a clear and identifiable policy distinction related to the form and structure of settlements, which can then be used to assess the continuing potential for development on previously developed land within these settlements.  The process for definition is based on examination of the role of settlements and how they function,  rather than their size, and is related to access to facilities and services, such as employment, a primary school, general shop, health facilities, community hall and a reasonable level of public transport.  In the context of the circumstances applying within this District, a judgement needs to be made as to the extent to which it is appropriate to define a built-up area in principle, and the 'Settlement Sustainability' studies have been instrumental in this process.  The more detailed issue of the physical extent of boundaries in order to ensure that they are logical, consistent and reflect planning policy intentions is then a secondary exercise (which is explained in detail in the Site Specific Allocations of Land document).

The following settlements are considered appropriate to have a defined built-up area; they are identified in two categories as a reflection of their relative position in a 'settlement sustainability hierarchy' by virtue of their ability potentially to accommodate differing levels of additional development:

The priority will be to locate the appropriate form of new development within these built-up area areas as defined by their specific boundaries.  Policy CP5 indicates that appropriate development within these areas will be permitted, including infilling, redevelopment and conversion, provided that the impact on the character of the area and the environment, resources and assets of the District is acceptable and, in the case of Category 2 settlements, the development addresses specific local needs.  The consideration of what comprises relevant local needs, as set out in the policy, will be informed by the results of Parish Plans/Rural Town Action Plans and local housing need surveys.

The approach indicated has been explored in some detail in the study on ‘Settlement Sustainability and Greenfield Site Allocations in the Horsham Local Development Framework’ undertaken for the Council by Land Use Consultants, the results of which are set out in their report, published as a background paper.  The study concludes that the Settlement Sustainability Hierarchy serves the required purpose and there is no compelling reason to re-categorise any of the settlements, although it should be stressed that development in Category 2 Settlements should be strongly justified by both need and sustainability criteria.  It is therefore considered that the hierarchy and categorisation indicated provides a straightforward and robust policy approach.

ii) Previously Developed Land

The emphasis of regional planning policy, and the adopted Structure Plan, is on contributing to the regional/county housing provisions by encouraging housing development on previously developed land, having regard to local circumstances.  Local planning authorities are expected to carry out and keep up to date Urban Housing Potential Studies.

We initially undertook a study of the housing potential on previously developed land, which was published, for consultation, in support of the Issues and Options consultation document.  The study was undertaken in partnership with The Home Builders Federation, local planning agents, and the Council's Housing Services Department and had a base date of 30th June 2003.  As a result of the consultation, a number of concerns were raised over some of the sites identified and some new sites were suggested.  An updated position was, therefore, included in the Urban Housing Potential Study 2003-2016, published as a Background Document to the Preferred Options documents.  The Urban Housing Potential Study has been further updated to include the period to 31st March 2018 and this has led to a revised assessment of the level of development likely to take place on previously developed land over this period.  In summary, the expectation is now that some 2,740 dwellings are expected to be provided on previously developed land between 2004 and 2018 of which 1,290 homes are to be provided on identified large sites (indicated in the Site Specific Allocations of Land document) and 1,450 homes are anticipated from as yet unidentified 'windfall' sites.  The details of these assessments are set out in the Urban Housing Potential Study 2004-2018.  In the light of the Study’s findings, it is possible to conclude that, over the whole period from 2001-2018, 45% of the housing provision will be expected to be completed on previously developed land.

We are confident that this analysis represents a robust and defensible assessment of the potential development on previously developed land within the District over the period to 2018.  The assessment assumes a proactive approach towards appropriate redevelopment opportunities, whilst taking into account issues relating to the character of local areas.  In particular we will use the available powers to assemble land for redevelopment and to facilitate relocation of existing businesses where the opportunity for redevelopment arises.  We believe that there will be other opportunities which we have not yet been able to identify specifically at this stage and which will contribute to the provision of housing development on previously developed land or compensate for any sites not coming forward as anticipated.  Some of these additional sites are in the early stages of discussion but it is not appropriate as yet to identify or quantify the contribution they might make.  This position reinforces the need for continuous monitoring of the housing provision arising from redevelopment of previously developed land (including re-use or conversions of existing buildings) with the potential need to adjust the timing of the release of greenfield allocations in the light of the results of the monitoring.

There is not generally any fundamental dispute over the emphasis on redeveloping previously developed land as a priority.  The area of dispute is largely around the assessment of the likely contribution from this source, and particularly the specific sites identified in the Urban Housing Potential Study, with a questioning of the extent to which this might require additional land releases.  We are confident that the level of development indicated is realistic and achievable; it would undermine the strategy to identify a greater proportion of greenfield land release at this stage and it must remain a fundamental principle to maximise the potential delivery of housing on previously developed land.

In this context two alternative approaches to maximise development on previously developed land have also been considered; the redevelopment of previously developed land in more isolated rural locations; and the comprehensive relocation of existing business uses within built-up areas with the wholesale redevelopment of that land for new homes.

It is certainly possible that redevelopment of previously developed land need not be restricted to that within built-up area areas only.  As a result the redevelopment of rural buildings and land could potentially 'count' towards meeting this target.  There are a large number of potential rural 'brownfield' sites in the District which include, for example, redundant pig farms and nurseries and sites occupied by business uses that are inappropriate in a rural location (even though some of these types of sites would not meet the Government's definition of previously developed land).  Taken together, if they were all, or even a reasonable proportion of these sites, considered for redevelopment then there would be the potential for a significant level of residential development in the countryside.  Such development would, however be contrary to the locational strategy for new development in the District, which seeks to provide new homes in the most sustainable locations.  Development outside the proposed built-up area boundaries would be isolated from services and facilities, which would increase reliance on the private car for transport, contrary to Government policy.  The cumulative impact of such redevelopments could also have a significant impact on the character and appearance of the countryside in this District. 

The other alternative approach that has been considered is the comprehensive relocation of existing business uses that are in sustainable locations within the built-up area boundaries.  Although the wholesale redevelopment of such sites for residential use would appear to be in accordance with the development strategy for sustainable development, it could in fact in the majority of cases lead to an equally unsustainable locational strategy as that suggested by the first alternative approach.  Sustainable development encompasses social and economic considerations as well as environmental issues.  It is important, therefore, that there is a mix of uses within built-up areas to allow the opportunity of living close to areas of work to minimise the need to use the private car.  This approach would also require the development of greenfield land in less sustainable locations, for the relocation of employment use.  These two alternative approaches, other than in very specific local circumstances, are therefore considered to be less appropriate than the approach set out in the paragraphs above and in Policy CP5.

iii)  Strategic Locations

It is intended that the majority of new greenfield development before 2018 will be provided in two large-scale, mixed-use, mixed density developments, called Strategic Locations, on land west of Crawley and west of Horsham.  This strategy sets out the principles of development applying in both locations and describes the approach in each case to meeting the development requirements.  More detailed plans will be prepared in due course for each Strategic Location (in the case of land west of Crawley through a Joint Area Action Plan with Crawley Borough Council) which will provide further explanation of the areas involved for development, including the precise locations for development; the mix of uses and their distribution within the development; the scale and quality of new development; and the requirements for new infrastructure and services.  The more detailed proposals will prioritise the development objectives and will include details of the intended development programme in order to address these objectives. 

West of Crawley

The adopted Structure Plan identifies the principle of development west of Crawley in an area to the north of the A264 within a broad area of search including land both to the north and south of the railway line.  It envisages that the location could accommodate 2,500 homes by 2016, including subsidised housing, together with other uses and high quality employment land.  The development is justified as being close to Gatwick and major employment areas in Crawley, and supporting economic growth in the north east of the County.  The Structure Plan also recognises that development in this location may be delayed or prevented, in whole or in part, due to the need to safeguard land for a possible second runway at Gatwick Airport.  It is indicated that the precise amount and location of development will need to be finalised following further detailed assessment work once the position regarding the possible second runway becomes clearer. 

There is little doubt that the position regarding development to the west of Crawley within Horsham District is complex.  We have sought to explore the issues carefully and to consult on possible ways forward.  The proposal set out in the Preferred Options documents for development on land north of Ifield West raised significant concerns and it is clear that we need to re-evaluate these specific proposals.  It is also clear that the development of land west of Crawley will have an important role to play in the Gatwick Area Sub-Region and in meeting the needs of Crawley for growth and expansion.  We have therefore concluded that, whilst we are not yet in a position to identify a specific area or areas of land for the necessary development, we will continue as a matter of urgency to work with Crawley Borough Council and the stakeholders involved in the area west of Crawley to address the issues positively and bring forward an appropriate form of development as soon as realistically practical.  This strategy consequently identifies an area of study within which proposals will be finalised, through the programmed Joint Area Action Plan for West and North West of Crawley. The principles involved in this approach can be summarised as:

• provision for the development by 2018 of 2,500 homes and other uses to be made following the early completion of joint studies which will be progressed as a priority;
• clear recognition that the development within this area is aimed at meeting the internally generated growth needs of Crawley and that this provision is not interchangeable with sites or locations elsewhere within Horsham District;
• the new development should be integrated with the physical and social infrastructure of Crawley, and with the landscape;
• the development should take place on a 'neighbourhood' principle with the provision of a mix of uses which are likely to include shops, employment, a primary school, a library service, doctors’ surgery, public open space, local transport infrastructure as well as housing, including affordable homes;
• the impact of the new development on the Strategic Gap between Horsham and Crawley should be kept to a minimum;
• the development will need to take into account the implications of relocating any existing uses and the amenities of existing residents within the area;
• sufficient transport infrastructure should be provided to meet the needs of the new development whilst maximising the opportunities for sustainable travel, including reducing the dependency on the car by providing access to local facilities and services, providing high quality passenger transport links, such as Fastway to Crawley and ensuring safe, alternative and convenient pedestrian and cycle routes between the development and Crawley and to the countryside;
• the opportunity to provide new employment floorspace, beyond that required in a neighbourhood centre;
• the development should seek to minimise any increase in levels of traffic through the existing neighbourhoods of Crawley and where possible, relieve pressure on the existing road network;
• the development should provide a mix of housing types and sizes including the provision of up to 40% affordable housing, with at least 25% social rented to meet local needs;
• the western edge of the new development should provide a firm boundary which can be defended against further development;
• the development of any relief or link road would need to be met, in part, on land away from the development area;
• new development should protect and, where possible, enhance the setting of Ifield Village Conservation Area and avoid areas of flood risk and aircraft noise contours of 60dBA Leq or more (either as existing or as indicated in relation to the alignment of the potential second runway and 'safeguarded' area);
• the development should be based on maximising the opportunities for the use of sustainable construction methods.

It is considered that this approach represents the most realistic and robust means of addressing the issues involved whilst securing the delivery of the necessary development at the earliest opportunity.  It will enable full evaluation of the concerns and site specific alternatives which have been put forward in response to our proposals to date.  The alternative is either to identify a specific area of land without the full analysis necessary to justify it as a 'sound' proposal, or to delay the appropriate further studies pending the outcome of wider sub-regional studies and debates.  Neither of these alternative approaches is considered acceptable if the established objectives for development in this area adjoining Crawley are to be achieved.  The principle of development on land west of Crawley has been agreed through the Structure Plan process and no alternatives exist within Horsham District  which would secure the sustainable urban extension of the dynamic community of Crawley. 

West of Horsham

Land west and/or south west of Horsham is identified by the adopted Structure Plan as a Strategic Location for development.  We have considered the way forward in this area very carefully, including in the light of the Structure Plan Examination in Public Panel's conclusions that the assessment of this location should have regard to the possibility that there could be further needs beyond that initially indicated in this area, which this Council would need to consider.  Through the studies and consultations undertaken we have focused on two main areas of land:  between Tanbridge House School/Hills Farm Lane, the A24 and the railway; and land to the south of Broadbridge Heath, between the A264, the A24 and the River Arun.  This overall area has been examined either for a combination of uses, including a potential location for the higher education campus for the University of Sussex, or for a phased development extending beyond 2016.  It has always been considered that a comprehensive, long-term approach towards the future of this whole area west of Horsham is essential.  The results of all the studies undertaken have confirmed that this is the most appropriate way forward.  In the context of the need to 'masterplan' this whole area and the development requirements within the District to 2018, we have concluded that this area west of Horsham should be brought forward for development in accordance with the following principles:

• provision for the development by 2018 of 2,000 homes and other uses, contained within the area defined as being the limit of development;
• the development to be progressed through comprehensive masterplanning prepared with the involvement of stakeholders and the community,
• the development should be integrated with Horsham and Broadbridge Heath whilst taking account of their separate identities and should reflect the needs of the communities in terms of facilities and services;
• the impact of new development on the existing transport network should be minimised - development will require a new grade separated junction south of the existing Farthings Hill junction to be provided.  In order to relieve congestion, particularly at the Farthings Hill junction, local traffic will need to be separated from through traffic using the A24 by way of a new link road, from the A264 south of its junction with the A281 to the proposed new junction on the A24, which will also join the existing A264 at Broadbridge Heath close to the entrance to the Tesco superstore/Leisure Centre;
• the current western part of the A264 Broadbridge Heath bypass will be closed or downgraded in order to help integrate the new development with the existing community;
• development should maximise the opportunities for sustainable travel, including reducing the dependency on the car by providing suitable access to local facilities and services, providing high quality passenger transport links from the outset, enabling the opportunity for a new park and ride facility, and ensuring safe, attractive and convenient pedestrian and cycle routes between the development and local facilities;
• development should not have a negative impact on the existing local infrastructure, services and facilities - it should provide sufficient high quality community services and facilities to serve the development and should take full account of identified leisure requirements, including enhancement to the Leisure Centre facilities and the potential for specific provision to meet the needs of both Broadbridge Heath and Horsham Football Clubs;
• development should ensure that there is a good supply of affordable and other housing to meet local needs (40% affordable, with at least 25% social rented);
• the opportunities provided by the comprehensive approach to the development of this area should be maximised to enhance the environment, including the quality of open spaces and links to the countryside beyond (including to Denne Hill and the River Arun as a key part of the setting of the town), and enhancements to habitats and the local landscape generally;
• the opportunities within the development for employment and business uses should be utilised to sustain and broaden the economic base; and
• the development should incorporate sustainable development principles and  sustainable construction methods, including taking advantage of any changes in technology over the development period.

It is considered that this approach represents the most justifiable and sustainable means of addressing development within this area.  It will provide the necessary comprehensive approach from the outset and will enable the development period to be contained so as to avoid prolonged disruption during the construction stages.  The alternative 'strategic' approach would be to spread development either over a wider area in the broad location west of Horsham or over a longer time period, with the development requirements being made up elsewhere in the District.  The first alternative option is not considered appropriate on the basis that the only other strategic alternative in this area would involve the redevelopment of Rookwood Golf Course, which is not acceptable for the reasons explained in the Background Paper 'Land West of Horsham: Strategic Development'.  Similarly, the alternative of delaying development within the west of Horsham area and meeting the development requirements elsewhere in the District would not accord with national, regional and Structure Plan policies because it would not be as sustainable and would not meet the intended sequential approach to development.  The potential role of further development at Billingshurst and Southwater has been examined but it has been concluded that they should not be considered as strategic locations for development at this stage, given the opportunities which exist for a sustainable 'urban extension' at the main town of Horsham.  Smaller scale development at all of these locations would not produce the form of comprehensive, sustainable development appropriate to meet national and strategic planning principles or the spatial objectives of this Core Strategy.  The same considerations would apply to a number of smaller scale developments within the other smaller towns and villages of the District.

The need for a comprehensive approach to development in the identified area west of Horsham/south of Broadbridge Heath is reinforced by the overall infrastructure requirements.  This is demonstrated best by the fact that a new junction on the A24 is required for any development in this area; it has particular technical requirements and implications leading to a pattern of development in the area.  The full explanation and the other masterplanning considerations will be set out in the detailed Development Brief to be prepared for the specific planning of the west of Horsham area.  It should also be clear that it is not anticipated that the long term boundaries to development in this area as indicated (the railway line south-west of Horsham and the River Arun and its floodplain south of Broadbridge Heath) will be breached.  Similarly, it is considered that the existing A281 and A264 roads provide a firm boundary to development to the west of Broadbridge Heath and it is not proposed to include any of this land to the west of the village, which would be remote from the village centre, either in the current proposals or for potential future growth of the community beyond the plan period.

iv)  Smaller Scale 'Greenfield' Sites

The adopted Structure Plan allows for limited provision to be made for the small-scale gradual growth of villages and small towns spread over the plan period which will assist the evolution of rural committees by meeting identified needs for housing and economic activity and supporting local facilities and services.  Similarly the evolving South East Plan recognises that in rural areas some housing development will be needed to meet identified social or economic needs.  It indicates that local planning authorities should positively plan for limited small scale affordable housing, business and service developments in villages to meet defined local needs and protect or extend key local services.  The principle embodied in the Core Strategy reflects this philosophy by enabling limited development where appropriate opportunities exist in a way which meets local needs but does not undermine fundamentally the qualities which make them or their countryside setting unique and special.

This approach is not driven so much by overall housing requirements, although the appropriate local development will contribute to the broader requirements, but equally should not be at a level where it would undermine the development strategy with the emphasis on previously developed land and the Strategic Locations.  It is much more about appropriate local opportunities to address particular needs and to make efficient use of land within or adjoining particular settlements in order to help support local services and facilities.  The identified small scale greenfield sites (set out in detail in the Site Specific Allocations of Land document) also need to be viewed in the context of the opportunities for redevelopment of previously developed land within other settlements, which themselves will contribute to gradual growth and evolution of these settlements. 

The proposed provision for small scale 'greenfield' allocations has been established from consultations and studies undertaken, including in response to representations received at both the Issues and Options and Preferred Options stages.  Details of the site assessment process are set out in the Site Specific Allocations of Land document.  The principle is that development has not been proposed in areas where it is considered that the local infrastructure and facilities would be unable to cope with the additional strain that would be placed upon them by new development.  Similarly, development is not proposed, even in relatively sustainable locations, where it is considered that the environmental impact is too great or that the scale of development would be too extensive in relation to the size of the existing settlement.  Parish Plans and Village or Parish Design Statements have been used as a basis for consideration of needs or opportunities wherever possible.  It is, however, clear from the representations received, principally on behalf of landowners or prospective developers, that the definition of appropriate small scale 'greenfield' allocations and the exclusion of many suggested additions/ alternatives is a key area which could be the subject of considerable debate.  The inclusion or exclusion of sites may be a fine dividing line in some cases but the principle embodied in this Core Strategy is that the onus must be on the proposers to demonstrate how their schemes would meet the policy objectives and address local needs or help support local facilities and services, without undermining the overall strategy.  The support of local communities, particularly through their locally elected or nominated representatives, will be particularly important in this respect.  Our conclusion from the studies and consultations undertaken is that specific sites within the following settlements, as identified in the Site Specific Allocations of Land document, should be allocated for limited development:

Some sites elsewhere may be capable of being brought forward purely to meet local identified affordable housing needs, under the terms of the 'exceptions' policy set out in the General Development Control Policies document.

Core Policies for Housing Provision

In the light of the principles of the development strategy set out above we consider that the following core policies represent the appropriate basis for applying the spatial strategy in terms of residential development.

*Includes redevelopment on previously-developed land.  A total of 1985 homes on previously developed land had been built or already permitted/ agreed for release as at 31st March 2004.

The proposed delivery of this housing provision is indicated in the Annex to this Core Strategy on the basis of the actual and projected housebuilding rates and in the form of a housing trajectory.  This indicates that the expected provision from development within the District, excluding the land west of Crawley which is dealt with separately because of its different basis, is above the annualised strategic allocation until very late in the plan period.  The position will be kept under review and annual monitoring reports will provide updates to the trajectory to demonstrate progress towards meeting housing targets.

v) Employment Provision

The spatial strategy is based on the need to sustain and enhance the District's economic performance.  The Council's Economic Development Strategy 2005-2008 recognises that it is important to the District's economy to retain companies already in the District.  These objectives are dependent, in part, on protecting or enhancing existing employment land and sites and allowing some new employment development to meet the changing and future needs of businesses.  The policy approach also takes into account the pressure that is placed on the local economy because of the influence of Gatwick Airport and London.

The West Sussex Structure Plan 2001-2016 indicates that the District is expected to accommodate 190,000 square metres of new employment floorspace, including existing commitments, by 2016.  Allowing for a similar projection of development to 2018, the expected provision could be as much as 215,000 square metres, including existing ‘commitments’ where planning permission has been granted and where sites or buildings are under construction.  The Structure Plan's intention is that this total would include provision within the two Strategic Locations.  A proportion of the employment allocation for the west of Crawley area could be located within Crawley Borough.  Full details of the employment provisions at the Strategic Locations will be included in the detailed masterplans for these areas, including the Joint Area Action Plan for West and North West of Crawley.  It is too early at this stage to identify precisely where or in what form the employment development will be provided.  It is expected to include a variety of forms of employment sites and premises, which in the case of land adjoining Crawley could include the development of land to the north of Crawley.  In addition to the provision within the Strategic Locations, new floorspace development within defined built-up areas, or exceptionally outside these areas where specific rural economy or environmental enhancement objectives can be met, may be considered appropriate. Provision is made for the expansion and enhancement of Chichester College Brinsbury Campus as a Centre of Rural Excellence. Employment development may be included as part of the regeneration and restoration package for the Shoreham Cement Works site (along with leisure uses) and also in the reuse of land at the Warnham and Wealden Brickworks site.  The provision of appropriate, well-located additional employment floorspace is essential to ensuring the District's future economic wellbeing.  We are committed to ensuring that, where appropriate, local businesses have the opportunity to expand or relocate within the District.  We will also seek to protect and enhance the District's most sustainable and valued 'industrial' areas through their identification as Employment Protection Zones (EPZ) and the application of appropriate policies within the areas, particularly in terms of a sequential approach towards any redevelopment proposals. 

The consultation process has not identified any substantive alternatives to this approach towards employment provision.  The business sector has made helpful contributions to the consideration of the issues involved but there is concern that the policy approach will need to be flexible enough to respond to changing circumstances in the local economy.  We therefore consider that the following core policy (Policy CP10) represents the appropriate basis for applying the spatial strategy in terms of employment provision.

'Employment floorspace' refers to offices, industrial uses, warehousing and other commercial uses within Classes B1 (Business), B2 (General Industrial) and B8 (Storage and Distribution) of the Use Classes Order 2005.  Although other uses, such as retailing and leisure, also provide employment opportunities, they are not included within the definition.  Similarly, although home working will be facilitated and encouraged, it is not included as part of the specific provision intended.  It is important to recognise that the overall provision indicated is a yardstick and is not prescriptive or inflexible; the sources of provision may have other justification, such as meeting the needs of the Crawley/Gatwick area in the case of the strategic location west of Crawley or contributing to the regeneration of the Coastal Area in the case of Shoreham Cement Works.  Floorspace provision will be kept under review through the annual monitoring process and more or less floorspace may be necessary during the period to 2018 in order to maintain a balance between employment and resident working population.  New employment provision will also need to take account of the environmental objectives set out in this Core Strategy.

c)  Meeting the Needs of Local Communities and Business

The basic sustainable development principles of controlling and managing the demand for development so that the quality of life can be improved, both now and in the future, by meeting social and economic needs without causing unacceptable damage to the environment, underpin our approach towards planning the future of our District.  Meeting the local needs of communities means bringing affordable homes, jobs, facilities and services within close reach and supporting existing facilities and services. 

Within the provision made for new homes in the District (Policy CP4), it is essential that the development should provide for a mix of housing sizes, types and tenures to meet the varied needs of our communities.  The Housing Supply/Demand Analysis undertaken in 2003 shows that there is a shortfall in 1-bed properties in most of the District and a significant demand for 2-bed homes in much of the District.  Development schemes of all sizes should address positively this need for smaller homes.  Priority should also be given to the provision of affordable housing, including housing for key workers.  On the basis of the studies undertaken, we will expect developments to include an appropriate proportion of subsidised housing to meet the needs of local people who are not able to compete in the general housing market.  The 2003 Housing Needs Assessment was undertaken, on behalf of the Council, by David Couttie Associates.  The affordable housing requirements have been derived from this robust analysis of housing need across the District.  The study demonstrated a potential overall need of some 7,000 dwellings by 2011.  It is clearly not possible to meet the assessed need in full, especially in terms of the overall scale of development requirements in the District and the limitations of the planning system in delivering new affordable housing in relation to the locational and funding considerations.  Nevertheless, it is vital to attempt to meet needs as far as possible and to establish a realistic target that can be achieved to deliver as many new affordable dwellings as possible.  The Housing Needs Assessment report recommended 40% subsidised affordable homes be negotiated on sites coming forward over the plan period and that consideration be given to the adoption of a threshold of 15 housing units or 0.5 hectare.  We propose to adopt this approach and also to seek a lower threshold of 5 units (0.16 hectare) in villages of less than 3,000 population as a reflection of the limited opportunities for, and desirability of, anything other than small scale development in these locations.

We recognise the need for flexibility in our approach to the policy requirements but equally we must acknowledge that we will need to be innovative if we are to secure the delivery of the required level of affordable housing.  We will place the emphasis on the developer to deliver; where possible, the obligation will be placed on the developer to provide built affordable units on-site, to be completed against first occupation within a set timescale.  However, in the light of the study undertaken for the Council by Adams Integra 'Assessment of Development Viability and Impact of Affordable Housing Policy' (June 2005) we will view the 40% provision as a 'baseline' or target on the basis that developers will need to demonstrate why the particular targets could not be met if that were the case.  The study concludes that a 40% policy target should be sustainable and help to deliver an increased proportion of affordable homes compared with current levels.   It is noted that where sites are not burdened with abnormal costs or very high value competing uses, the 40% should be deliverable.  In cases where such abnormal costs or particular localised circumstances indicate to our satisfaction that the viability of a site is jeopardised we will negotiate an appropriate provision based on open discussions with developers. 

Commuted payments will normally only be accepted where there are exceptional reasons preventing the provision of affordable housing on an identified site or where the Council and the developer are satisfied that there is greater need in another part of the District which can be better met by provision on an alternative site.  This may particularly apply in relation to the smaller schemes in the villages where it may be preferable to accept an 'off-site' contribution, in order to avoid issues relating to the relevant proportions in small schemes.  The commuted sum should be sufficient to secure the equivalent in terms of number, type, size and tenure of affordable housing units on an alternative site as would have been provided on-site.  We are also committed to continuing to encourage 'rural exception' sites to come forward in order to meet identified housing needs for local communities; these sites may be appropriate for the use of commuted payments in rural areas.

We consider that Policy CP12 below represents the appropriate basis for securing the necessary affordable housing provision in the District and that it also provides the necessary certainty to landowners, developers and local communities on the Council's requirements.  Further details of the proposed approach to affordable housing will be included in a Supplementary Planning Document, which will be published separately.

There is clearly a need to ensure that new development does not make services and facilities worse for people elsewhere.  We therefore support the provision of the physical and social infrastructure required to meet the needs of residents and businesses and particularly the principle of new development being required to ensure that the necessary infrastructure and services are in place at the right time.  As a result, the development of sites for residential and employment use will be expected to contribute towards infrastructure and community facilities that have been, or will be, established as being necessary to accommodate development.  We will draw on the results of consultation and of community involvement, particularly with regard to the provisions of Parish Plans, Rural Town Action Plans and the Horsham Town Neighbourhood Appraisal, in establishing the position.  Where there are specific provisions for particular locations or sites these are set out in the relevant policy in the Site Specific Allocations of Land document or in the more detailed 'masterplans' for the two Strategic Locations.  In all other cases, particularly for 'windfall' sites, there is a requirement for contributions towards community facilities, including local community needs (e.g. village halls), leisure/open space, library, fire service, social services and health facilities, where development places an additional strain on existing facilities.  New development will also be expected to fund any necessary new and/or enhanced infrastructure requirements, including contributions towards promoting more sustainable transport choices aimed at reducing the need to travel by car.

The economic and social needs of people who live and work in the countryside are also recognised and change must be accommodated.  This objective must, however, be weighed against the need to protect and, where possible, enhance the countryside's essential character.  The necessary approach, therefore, partly means limiting the further pressures for development within the countryside, and partly finding new ways of ensuring the on-going management of countryside to ensure that it delivers the quality of life that people require.  We recognise the need for the continuing development and implementation of a rural strategy within the countryside and rural parts of the District.  It would not be appropriate just to allow any form of 'rural diversification' to proceed largely uninhibited or, equally, to be very restrictive to the extent of resisting all proposals involving development within the countryside.  Neither extreme of approach would give the balance which is considered appropriate in order to respond to needs brought about by changing circumstances, whilst protecting the character of rural areas.  We believe that an approach which encourages sustainable economic well-being, delivered in a way that also achieves environmental gain, is the appropriate way forward. 

We therefore consider that Policies CP13, 14, 15, 16 and 17 below represent the appropriate basis for addressing the needs of local communities and businesses, in addition to the provision for affordable housing (set out in Policy CP12).

Affordable housing comprises that with a subsidy to enable the price or rent to be substantially lower than the prevailing market prices or rents in the District and where mechanisms exist to ensure the housing remains affordable for those who cannot compete in the existing housing market.  The target is to provide 25% of the total as social rented properties with other forms, including shared ownership and sub-market rent, comprising the rest of the affordable housing (15%).  Affordable housing should be provided as built units on-site in conjunction with Registered Social Landlords; in exceptional circumstances where there are overriding site constraints, where site specific issues inhibit the provision of affordable housing, or where provision can be better met on an alternative site in the District, off-site contributions may be accepted as an alternative.  Proposals for employment provision or other commercial uses, as well as specific operations such as nursing homes or large educational establishments, will be encouraged to make appropriate contributions towards affordable housing needs, particularly for key workers.  Retirement and sheltered housing will also need to address affordable housing needs, either on part of the site involved or through commuted payments for use in alternative locations.   Further advice on the provision of commuted payment and the mechanisms for the delivery of affordable housing will be included in a Supplementary Planning Document. It is a fundamental principle that all new development, whether large or small, contributes to demands on existing infrastructure, community facilities and public services.  Developers will therefore be required to demonstrate that there is adequate capacity both on and off site to serve the development and that it would not lead to problems for existing users.  In some cases this may make it necessary for developers to carry out appropriate studies to ascertain whether the proposed development would lead to overloading of existing infrastructure, facilities or services.  Where there is a capacity problem developers will be expected to fund or to contribute towards the necessary improvements or new provision to serve needs arising from their development.  Development should not take place faster than the provision of infrastructure which its occupiers will need, thereby placing a strain on existing facilities and services.  Development will only be permitted when agreement has been reached between the relevant parties on the total funding and programmed implementation of required on-site and off-site improvements. New and improved services and facilities for the communities in the District will be required and they should be planned for and suitable land provided for them in accessible locations.  These should preferably be within defined built-up area areas but exceptionally may be located outside such areas where it is the only practicable option and where a suitable site well related to the existing settlement exists.

It is equally important to protect community facilities and services that play an important role in the social infrastructure of the area.  Prospective applicants are advised to consider the qualitative, quantitative and accessibility requirements, including the possibility of a financial viability test, at the earliest stage of any proposals for alternative use of sites and premises.  As a minimum it will be necessary to demonstrate that continued use as a community facility or service is no longer feasible having regards to appropriate marketing, the demand for the use of the site or premises, its usability and the identification of potential future occupiers. The principal purpose regarding the rural economy of the District is to ensure sustainable economic growth and to meet the social needs of people who live and work in rural areas.  We are seeking to balance the development necessary to sustain and ensure future economic diversity and prosperity whilst maintaining the continued protection of the countryside's environment and character.  It is also considered essential that the District's countryside is not blighted by economically unviable employment based development.  Whilst farming provides just over 2% of the total employment and is relatively small in economic terms it does continue to perform an important role, particularly in helping to maintain the District's landscape character.  Allowing farmers the ability (in terms of planning permission) to diversify for the benefit of the agricultural holding plays an important part in continuing their role of landscape management.  The objective will be to see positive benefits from any appropriate diversification or development.  The priority will, however, continue to be to minimise the amount and scale of new building in the countryside, compatible with the aim of sustainable rural economic development.  We will seek to prepare further guidance in order to assist with the implementation of this core policy by indicating the means to assess rural economic or social needs and how development might contribute to the rural economy.  Communities will only be sustainable if they are fully inclusive and deliver the necessary standards of services.  It is important that development should contribute towards meeting the needs of all sections of the community and help to encourage social cohesion.  We will therefore seek to ensure that opportunities are taken to address identified needs and that the services which promote and support health and well-being are accessible and effective, having regard to the circumstances of the people for whom they are provided. The provision of specific Gypsy and Traveller sites will be undertaken through the preparation of a separate development plan document as soon as practicable.  In the meantime, and in order to meet any future or unexpected need beyond that assessed, any proposals for sites will need to satisfy a number of criteria set out in the relevant policies in the General Development Control Policies document to ensure that they are appropriately located to meet the needs of Gypsies and Travellers whilst minimising impact on the environment.

d) Vitality and Viability of Existing Centres

The maintenance and enhancement of the role of the town and village centres within the District, as a focus for activities which give them their distinct character, is fundamental to the achievement of sustainable development in the District.  The emphasis in the past has tended to be on shopping facilities but it is clear that the centres are much more than merely a collection of shops; they also perform a valuable role in meeting the needs of local communities and visitors.  The need for diversity and the ability to offer a range of choice in an attractive environment is key, with the approach towards retailing being a significant element of this.

Horsham town centre is identified by the evolving South East Plan as part of a network of strategic town centres within the region which will be the focus for larger scale development.  It performs a sub-regional centre role.  The District's larger village centres (Billingshurst, Henfield, Pulborough, Southwater, Steyning  and Storrington) each have different issues relating to their role and function but are a focus for the local community and the wider area in a variety of ways.  They clearly perform at a different level in the hierarchy and network of centres than Horsham town centre.  We have sought to understand the respective roles of the town and village centres by specific studies and through engagement with the local communities on their Parish Plans/Rural Town Action Plans/Horsham Town Neighbourhood Appraisal.  With regard to retailing, we have commissioned studies to understand better their performance and the key trends affecting them.  The 'Retail Health Check' report prepared in February 2003 has informed the position and has been updated so far as Horsham town is concerned by 'The Horsham Retail Health Check Update', July 2005.

The principal conclusion is that Horsham town centre is a vital and viable town centre providing a good range and choice of facilities but with scope for continued improvement, particularly in terms of management to minimise the loss of trade to other destinations.  It is acknowledged that Horsham town centre could not compete with larger centres elsewhere in the sub-region on retail floorspace grounds and that it must reinforce its own identity to ensure it becomes a destination in its own right.  There is minimal, if any, need for additional convenience retail floorspace in the plan period, although some additional provision may be justified as part of the west of Horsham development, but there is an existing and future need for additional comparison floorspace, if suitable opportunities can be found within the town centre.  The strategy in terms of retailing is based on taking a positive but cautious approach to the District's centres, particularly in the short term, monitoring their performance and the potential needs which might arise over time rather than putting forward specific development proposals at this stage.

It is important to recognise that a range of policies or strategies, including transport, economic and community strategies, will impact on the achievement of the economic, environmental and social vitality of the District's town and village centres.  We will ensure that there is a co-ordinated approach and that the quality of the centres is supported and enhanced.  With regard to retailing, in both Horsham town centre and the larger village centres, we consider it fundamental that their retail vitality and viability is not undermined.  Therefore we will resist any proposals which may potentially damage or undermine the retail use of these centres.  More detailed policies, both to permit additional retail accommodation where appropriate and to protect existing centres with the balance of uses within them, are included in the General Development Control Policies document. 

e) Tourism and Cultural Facilities

Tourism is an important source of local employment and also often provides the means of conserving the heritage and enriching the quality of life.  There are opportunities to improve the tourism 'product' of the District through appropriate management and promotional initiatives; equally it will be important to encourage the retention of existing facilities and new development which meets the objective of facilitating sustainable tourism and economic growth within the District.  We believe that it is appropriate to take a proactive stance to encourage tourism within the District whilst at the same time avoiding major new tourism development which could conflict with the objectives to protect the character of the District.

Within this overall philosophy, the approach towards the encouragement of tourism will vary across the District according to the characteristics of the different parts of the area.  Within Horsham town, there is scope to enhance the attraction through measures which reinforce the local distinctiveness and through the encouragement of additional hotel accommodation, either within the town or as part of the comprehensive development of the land west of Horsham.  The balance of uses within the town centre is particularly important and, in this context, we will strive to ensure the retention of the Kings Head Hotel as a key facility, with the appropriate size of accommodation to ensure the continuation of a viable enterprise.  In the smaller towns and villages we will work with the local communities to explore the means to enhance facilities, including in strengthening links with their rural hinterland, provided that any new development which might be involved does not have an adverse impact on their historic character. In the rural areas we will support initiatives which seek to develop the tourism opportunities associated with rural diversification, provided that are of a scale and type appropriate to their location.  It will, however, need to be clear that within the Areas of Outstanding Natural Beauty any tourism development will also need to conserve and enhance their natural beauty and so may need more critical assessment.  In all cases where tourism development is involved consideration will be given to the means to increase access by sustainable transport modes.

f) Managing Travel Demand and Widening Choice of Transport

The spatial objective for transport reflects the need to secure sustainable development that reduces reliance on the private car.  We need to put forward an agenda that provides for the integration of land use planning and transport policies with the aim of managing increasing travel demand in an effective and sustainable manner, whilst enhancing choice and responding to the needs of residents, employees, visitors and the need to enhance the economic vitality of the District.  This has meant, and will continue to mean making some difficult decisions about priorities within the District and in Horsham town in particular.  The Horsham District Community Partnership through its Community Strategy process, has identified the need for joined up thinking, with a start being made on creating transport strategies which encompass all services, including buses, taxis and trains.  We recognise the need for action in a number of respects and are happy to support the County Council in pursuing the objectives of the West Sussex Transport Plan and the Horsham Area Transport Plan.  We have commissioned specific research to review the current parking strategy within Horsham town centre, including the role of park and ride.  We will consider further the recommendations made by the study (Horsham Town Park and Ride Study, July 2005), particularly in terms of parking demand management in the short term, and we will continue to pursue the specific aim of implementing further park and ride provision, initially as part of the West of Horsham development, as well as planning for the implications of the decriminalisation of parking enforcement (Local Authority Parking Enforcement) in 2006.  We also consider it important that, as far as possible, new development is located in such a way as to enhance travel choice and facilitate access to the most sustainable modes of travel, such as public transport, walking or cycling, or at least contribute to their improvement.

It is acknowledged that transport policies and provisions generate considerable interest and a wide range of views on the appropriate way forward, particularly in the context of the circumstances within this District.  Opposition is largely focused on the interpretation of the specified objective through specific measures, such as car parking policy, or the lack of new initiatives/funding in particular locations.  However, there is also behind these reactions an inherent resistance to some of the principles involved.  It will be important to continue the dialogue on these issues in order to ensure that there is a 'rebalancing' of the local transport network based on a package of measures.  We believe, however, taking account of Government advice and policies as well as the necessary objectives in the local context, it is right to focus attention on more sustainable forms of transport and to pursue appropriate policies to manage demand.

It is recognised that Horsham is a predominantly rural District where the private car remains in many cases the most practical and economic means of travel.  However, this should not mean that widening the choice available, where possible, should not be a key aim of this Core Strategy.  The policy reflects the need to provide an integrated transport network that makes best use of all forms of transport and increases accessibility to non-car modes of transport, thus reducing congestion and pollution, and protecting the environment.  Development will only be permitted provided it is, as far as possible, close to existing transport nodes, particularly public transport interchanges, and with convenient pedestrian and cycle links.  Where development cannot be located near existing public transport networks, particularly where it is intended to meet other identified local needs, provision will be sought to enable the development to be served by more than one means of transport.  Contributions from development will be sought to improve public transport, perhaps in the form of community transport initiatives, or other local links, particularly those identified by communities in Parish Plans/Rural Town Action Plans.

We will continue to implement a parking regime in Horsham town centre that manages parking demand, supplemented by positive measures to reduce the demand for parking.  We will monitor parking demand and retain options for future consideration, including implementing further park and ride sites around the town, if the demand significantly increases, as part of a comprehensive strategy for the future.  Within the plan period to 2018 we will pursue the implementation of a park and ride site as part of the west of Horsham development, both to help manage parking in the town and to contribute to the achievement of a fast and efficient bus service for residents and visitors from this direction into the town centre and to the railway station.

Improvements to the strategic road network, particularly on the A24 between Horsham and Capel and between Ashington and Southwater, and to the passenger transport network, are supported.  All improvements should take full account of the Strategy’s environmental objectives and the need to mitigate any harmful environmental effects.

Key Diagram

The broad strategy for the District is illustrated in diagrammatic format in the Key Diagram at the back of this document.