
In June the Conservatives gained four seats from the Lib Dems and became the largest party at MK, although the Council remained under No Overall Control.
MK had already submitted a core strategy with 15% less housing than indicated in the SE Plan. What is more much of the growth of Milton Keynes, the largest growth area in the UK, is outside its borders., into into Aylesbury Vale and Mid-Bedfordshire. This is complicated by the fact that the Mid Bed expansion was in the EE Plan RSS area and so the SE Plan could only say – ‘subject to a review of the EE Plan’.
Subsequently the removal of the South West SDA from the Aylesbury Vale Core Strategy and the non-progression of the development area into Central Bedfordshire have gutted many of the growth proposals for Milton Keynes, leaving only a reduced area of growth in MK itself.
The Central Bedfordshire Core Strategy, adopted in November 2009, refers to the potential for the growth of Milton Keynes to cross the borough boundary into their authority’s area. South East Plan policy MKAV2 makes it clear however, that any growth in this area will be tested through a review of the East of England (EoE) Plan, a revision that now seems unlikely ever to proceed. If the SE Plan were to be revoked however then the expansion could proceed – but at what scale? The outcome of the South East Plan Examination in Public recommended that Central Bedfordshire accommodate 5,600 of the 10,400 dwellings.
At the time of the May 2010 Election the East of England Plan was under review and a figure in the region of 2,100 dwellings and a Green Belt extension were to be consulted on for Central Bedfordshire.
Aylesbury Vale withdrew its Core Strategy in October 2010. No longer able to demonstrate a 5 year supply with the SE Plan reinstated in the light of the CALA II decision Aylesbury Vale is now faced with a ‘number of large opportunistic planning applications’.
MK is the first of these Core Strategies to come up for examination and naturally the Inspector has raised many concerns.
In the light of the Forest Heath Decision (Save Historic Newmarket Ltd v. Forest Heath District Council [2011] EWHC 606) she asked the council to review the adequacy of the SEA on reasonable alternatives to strategic development areas. They have now re-consulted, although they indicated to the inspector that the hung council had great difficulty on agreeing precisely what to do.
However this will not meet the requirements of the EU directive on SEA. The ‘plan or proposal’ being assessed is the strategic expansion of Milton Keynes, split between the three core-strategies. The MK consultation confines itself to within the MK boundary. In proposing less housing than required they assume it will go somewhere else, as do Central Beds and Aylesbury Vale, but where? What is the ‘reasonable alternative’ to assuming less housing – housing somewhere else – so assess that alternative.
The EU directive(1997/11/EC) is blind to LPA boundaries, it is an obligation on the UK government to implement. The UK government can either set up regional structure to implement this or require local structures of joint working – what is known in legal jargon as ‘transposition’. Even before the ‘duty to cooperate’ from the localism bill comes into force LPAs will need to ensure the directive is met by having structures that ensure cross boundary ‘plans or programmes’ are consulted on and assessed jointly. Indeed it cannot be otherwise as a matter of natural justice. If several LPAs either jointly agree on a plan and the first comes forward to examination, or fail to agree on any plan (as here) then the supporters or objectors to that plan or lack of plan need to be able to challenge it – to say that there is a reasonable alternative the LPAs have considered and rejected. Otherwise the plan – or lack of a plan – becomes taken for granted and unable to be influenced by third parties. How can this comply with the EU directive principle of ‘early consultation’ on reasonable alternatives, and able to influence outcomes. The key case here is not Forest Heath but the NI Seaport Investments case.
The inspector has also queried, in the light of the CALA II case, whether or not the MK Core Strategy is in general conformity with the SE Plan.
She has stated
In the light of the recent judgment in the Court of Appeal on the Cala Homes (South) case (http://www.bailii.org/ew/cases/EWCA/Civ/2011/639.html), the Council is requested to give further consideration to the matter.
In particular:
i) is the Council satisfied that there is no conflict between the judgment and the submitted core strategy?
ii) in the light of the judgment, does the Council wish to expand on MKC/1, setting out more detail of its case that there is general conformity with the South East Plan?
iii) following on from the above and reflecting the issue I have already raised (Inspector’s Note ID/2), does the Council wish to put forward any changes to the core strategy, or a conformity statement to be read alongside it, in order to clarify the relationship with the South East Plan and its relevant policies? This would be advisable and it will be helpful to give an early indication about how this will be addressed.
MK had argued, in effect, that a 15% reduction was still ‘in general conformity’
the reduction in the housing target is only approximately 15% across the borough … This level of reduction is not felt by the Council to be significant. The Core Strategy is therefore in general conformity with the South East Plan, having taken account of the fundamental changes that have occurred in the housing market, amongst others.
It is astonishing that they think this could wash, especially in light of the hard line taken by recent inspectors in Rossendale and Central Lancashire to downgrading of housing targets. The Inspector hadn’t even got on to the impact of ‘Planning for Growth’ as yet.
They stated that they have no choice but to:
assume development outside of the boundary of Milton Keynes will not be allocated and is currently undeliverable. A similar situation occurred recently where the Stevenage Core Strategy which was found unsound on the basis that it was reliant on cross boundary growth to meet its housing target, which was shown to be undeliverable
Even though the Stevenage Decision was in the week before the CALA II decision and is likely to be challenged by Stevenage imminently.
Mk had relied on earlier caselaw on the interpretation of the meaning of ‘general conformity’, Persimmon Homes Ltd v. Stevenage Borough Council (2006)1 WLR, stating this implied a looser rather than a tighter interpretation.
This will not wash, that case was about the flexibility of implementing a strategic plan when that strategic plan was under review. There is no such review here.
It was also an issue more about timing than principle in that that case still allowed the delivery of the strategic development in the plan period. The MK core strategy would also frustrate the delivery of the SE plan by not carrying through the strategic extensions cross border. In effect the single most important strategic growth area in the SE plan would be removed and replaced with much less development in part of one authority only.
Mk are rightly concerned about whether the pace of completions in a single development area can reasonably achieve 700 units a year. The answer surely is to extend the period of the plan in that strategic development area and have back up areas in case the 5 years supply city-wide falls short.
Overall no other case better illustrates the utter chaos post 2010 in planning for strategic growth areas. The plans for Milton Keynes have been set back 10 years and threaten to sterilise the cores strategies or local plans of three districts unless a mechanism is found to resolve them.
Like this:
Like Loading...