watford borough council 2 housing proposal sites (march 2001) 90 table 3 meeting the structure plan...
TRANSCRIPT
Watford Borough
Council
Watford
District Plan
2000
Written Statement
Adopted 3rd
December 2003
i
TABLE OF CONTENTS Page
Contents i
List of Policies iii
List of Supplementary Planning Guidance ix
Preface x
1. Introduction 1
2. Vision, Principles and Aims 5
3. Sustainable Environment 10
4. Movement 52
5. Housing 85
6. Employment 107
7. Shopping 119
8. Town Centre and Lower High Street 138
9. Leisure and Recreation 147
10. Community Services 161
11. Urban Design and Conservation 170
12. Implementation, Monitoring and Review 193
Appendix 1 Sustainability Statement 216
Appendix 2 Car and Cycle Parking Standards 227
Appendix 3 Shops 249
Appendix 4 Allotments 252
Appendix 5 Statutory Listed Buildings 253
Appendix 6 Locally Listed Buildings 258
Glossary and Abbreviations 271
Index of Policies 279
Aerial Photography by ukperspectives.com
ii
List of Maps
Map 1 Watford Context Map xii
Map 2 Landscape Character Area 49
Map 3 Area Transport Plans and Green Routes 58
Map 4 Bridleways in and around Watford Borough 65
Map 5 Cycle Routes 69
Map 6 Historic Environment Character Areas 176
Map 7 Car and Cycle Parking Zones 248
Ordnance Survey Mapping is provided by Watford Borough Council under licence from the
Ordnance Survey in order to fulfil its public function to act as a Planning Authority.
LIST OF TABLES
Table 1 Our Commitment to Achieving More Sustainable Development 7
Table 2 Housing Proposal Sites (March 2001) 90
Table 3 Meeting the Structure Plan Target (March 2001) 92
Table 4 5 Year Supply of Housing Land (March 2001) 92
Table 5 NPFA Open Space Standards 152
Table 6 Watford Historic Environment Character Zones 173
Table 7 Strategies produced by the Council 196
Table 8 Sites identified where the Council intends to prepare Planning Briefs 198
Table 9 Planning Obligations and Conditions 201
Table 10 Monitoring 211
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iv
LIST OF POLICIES
Chapter 3 – Sustainable Environment
10
Sustainable Environment Objectives 12
SE1 Making Development Sustainable 13
SE2 Mixed-Use Developments 13
SE3 Environmental Impact Assessments (EIA)
Resources – Energy
SE4 Energy Efficient Design 14
SE5 Renewable Energy 15
Resources – Minerals, Waste and Recycling
SE6 Minerals Waste and Consultation 16
SE7 Waste Storage, Recovery and Recycling in New Development 17
SE8 Re-use of Materials in New Developments 17
The Green Belt
SE9 Green Belt – New Development 18
SE10 Cemeteries, Memorial Gardens and Green Burials 19
SE11 Re-Use of Existing Buildings in the Green Belt 20
SE12 Visual Amenity of the Green Belt 20
SE13 Major Developed Sites in the Green Belt 21
SE14 Leavesden Studios Site 22
SE15 Sporting Facilities in the Green Belt 22
SE16 Public Access to the Green Belt 23
SE17 Landscape Improvement Schemes 23
SE18 Colne Valley Linear Park 23
SE19 Grand Union Canal Corridor 24
Environmental Quality
SE20 Air Quality 26
SE21 Air Quality Management Areas 26
SE22 Noise 27
SE23 Light Pollution 28
SE24 Unstable and Contaminated Land 29
SE25 Potentially Hazardous or Polluting Development 30
The Water Environment
SE26 Watercourses 32
SE27 Flood Prevention 32
SE28 Groundwater Quality 35
SE29 Utilities Infrastructure 35
SE30 Surface Water Run-off, Water Conservation and Sustainable Drainage
Systems 36
Ecology and Nature Conservation
SE31 Species Protection 38
SE32 Sites of Nature Conservation Importance 39
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SE33 Nature Conservation and Biodiversity Enhancement 40
Trees, Woodland and Hedgerows
SE34 Watling Chase Community Forest 43
SE35 Urban Forestry 43
SE36 Replacement Trees and Hedgerows 43
SE37 Protection of Trees, Woodlands and Hedgerows 44
SE38 Access to Woodlands 45
SE39 Tree and Hedgerow Provisions in New Development 45
Landscape Character Areas, Green Zones and Home Zones
SE40 Landscape Character Area Assessment 46
SE41 Green Zones 50
SE42 Home Zones 51
Chapter 4 – Movement
Sustainable Movement Objectives 55
T1 South West Hertfordshire Transportation Strategy 55
T2 Area Based Strategies 56
T3 Land Use Strategy 59
T4 Transport and New Development 59
T5 New Development and Green Travel Plans 61
Pedestrians
T6 Pedestrian Facilities 63
T7 Pedestrian Facilities in Developments 63
Bridleways
T8 Bridleways 64
Cyclists
T9 Cycling 66
T10 Cycle Parking Standards 67
Passenger Transport
T11 Passenger Transport and New Developments 70
T12 Bus Services 71
T13 Bus Priority Measures 71
T14 Town Centre Bus Interchange 72
Taxis and Private Hire Vehicles
T15 Taxi Provision 73
Railway Services
T16 Rail Use 73
T17 Croxley Rail Link 74
T18 Hertfordshire East-West Passenger Transport Links 74
T19 Canal Transport 75
Highway Network
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T20 Transport Proposals 76
Access and Servicing Facilities
T21 Access and Servicing 78
Car Parking
T22 Car Parking Standards 79
Commuted Payments
T23 Non-Residential Development 80
T24 Residential Development 81
T25 On-Street Parking Control 81
T26 Car Free Residential Development 82
T27 Car Park Location and Design 82
T28 Park and Ride 82
T29 Powered Two-Wheelers 83
T30 Lorries in Residential Areas 84
CHAPTER 5 – HOUSING
Housing Objectives 86
H1 No Loss of Housing 87
H2 Housing Need Structure Plan Requirements 88
H3 Phased Release of Housing Land 88
H4 Empty Homes 92
New Housing Development
H5 Development on Previously-Developed Land 93
H6 Town Centre Mixed-Use Development 94
H7 Primarily Residential Areas 94
H8 Residential Standards 94
H9 Back Garden Development 95
H10 Planning Agreements for Educational and Community Facilities 96
H11 Housing Mix 96
H12 Housing Density Standards 97
H13 Conversions 98
H14 Conversions: Provision of Family Sized Units 99
H15 Non-Residential Proposals in Residential Areas 99
Affordable Housing
H16 Retention of Affordable Housing 100
H17 Provision of Affordable Housing 101
H18 Affordable Housing Below Threshold 103
H19 Joint Working 103
H20 Lifetime Housing 103
H21 Housing in Multiple Occupation (HMO) Provision 104
H22 Housing for Older People (Sheltered) 105
H23 Special Needs Housing 105
H24 Travellers Accommodation 106
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CHAPTER 6 – EMPLOYMENT
Sustainable Employment Objectives 108
Employment Provision
E1 Employment Areas 111
E2 Employment Use Outside Identified Employment Areas 114
Small Business, Self-Employment and Homeworking
E3 Small Units 114
E4 Homeworking 115
Storage and Distribution
E5 Environmental Considerations 115
E6 Change of Use from Use Class B Outside Employment Areas 116
Employment Opportunities for Local Residents
E7 Local Recruitment and Training 117
E8 Facilities for Employees 117
Chapter 7 – Shopping
Shopping Objectives 123
Location of New Retail Development
S1 New Retail Development 125
S2 Retail Development Outside Identified Areas 126
S3 Retail Impact Assessment 128
S4 Shop Design, Access and Facilities 128
Non-Retail Uses in the Town Centre
S5 Non-Retail Uses in Prime Retail Frontage 129
S6 Non-Retail Uses within the Harlequin Shopping Centre 130
S7 Secondary Retail Frontage 131
S8 Other Uses 132
Local Centres
S9 Non-Retail Uses in North Watford Shopping Centre/Local Shopping
Frontages 133
S10 Shopping Policy Areas 134
S11 Use Class A3 Food and Drink 135
S12 Planning Conditions for Use Class A3 Food and Drink 135
Litter Management
S13 Litter Management 136
S14 Provision of Litter Bins 136
S15 Litter Management Strategy 136
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Chapter 8 – Town Centre and Lower High Street
Town Centre Objectives 138
TC1 Town Centre Strategy 139
TC2 Developer Contribution in the Town Centre 140
TC3 High Density Development 141
TC4 Non-Retail Uses 141
TC5 Residential Uses 142
TC6 Redevelopment Opportunities 142
Lower High Street Objective 144
LHS1 Types of Development 144
LHS2 Design/Landscaping 145
LHS3 Public Paths 145
LHS4 Residential Frontage 146
CHAPTER 9 – LEISURE AND RECREATION
Leisure Objectives 147
L1 Leisure/Cultural Strategy 148
L2 Dual Use 148
L3 Sports and Leisure Facilities 148
L4 Open Space Protection 149
L5 Playing Fields 150
L6 Provision of Additional Open Space 151
L7 Pocket Parks 152
L8 Open Space Provision in Housing Development 153
L9 Children’s Play Space 154
L10 Youth Facilities 156
L11 Maintenance of Open Spaces, Play Areas and Pocket Parks 157
L12 Allotments 157
L13 Arts, Culture and Entertainment 158
L14 Tourism and Hotels 159
L15 Guest Houses and Boarding Houses 160
Chapter 10 – Community Services
Community Services Objective 161
Community Facilities
CS1 Location of Facilities 161
CS2 Existing Facilities 161
CS3 Loss of Community Facilities 161
Access
CS4 Access to Community Facilities 162
CS5 Community Transport 163
CS6 Childcare Facilities 164
Education
CS7 New Facilities 165
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CS8 Change of Use/Redevelopment 166
Health Provision
CS9 Health Provision 167
CS10 Residential Social Care 167
CS11 Religious Meeting Places and Community Halls 168
CS12 Emergency Services 169
Chapter 11 – Urban Design and Conservation
Urban Design and Conservation Objectives 170
U1 Quality of Design 171
U2 Design and Layout of Development 171
U3 Integration of Character 172
U4 Community Safety 177
U5 Access 177
U6 Landscape Design 178
U7 Development Density 179
U8 Public Art 179
U9 Urban Conservation Strategy 180
Development Affecting Listed Buildings
U10 Setting of Listed Buildings 181
U11 Change of Use of Listed Buildings 181
U12 Alterations and Extensions to Listed Buildings 182
U13 Demolition of Listed Buildings 182
U14 Repair and Maintenance of Listed Buildings 183
U15 Buildings of Local Interest 183
Conservation Areas
U16 Conservation Areas 184
U17 Setting of Conservation Areas 184
U18 Design in Conservation Areas 185
U19 Small Scale Development in Conservation Areas 185
U20 Demolition in Conservation Areas 186
U21 Historic Parks and Gardens 186
U22 Archaeological Remains 187
U23 Civic Core 188
U24 Shopfronts 189
U25 Advertisements and Signs 189
U26 Telecommunications – Submission of Applications 189
U27 Telecommunications – Siting Considerations 190
U28 Temporary Buildings 192
Chapter 12 – Implementation, Monitoring and Review
IMR1 Identification of Sites for the Preparation of Planning Briefs 197
IMR2 Planning Obligations 200
IMR3 Enforcement 208
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IMR4 Monitoring 210
List of Supplementary Planning Guidance (SPG)
(Documents not forming part of the Plan – See Paragraph 1.16)
SPG 1 Affordable Housing (Adopted October 2002)
SPG 2 Lifetime Homes (Adopted October 2001)
SPG 3 Housing Density Standards (Adopted October 2001)
SPG 4 Privacy Guidelines (Adopted October 2001)
SPG 5 Private Gardens (Adopted October 2001)
SPG 6 Internal Space Standards (Adopted October 2001)
SPG 7 Conversions (Adopted October 2001)
SPG 8 Extensions (Adopted October 2001)
SPG 9 Sheltered Housing (Adopted October 2001)
SPG 10 Open Space Provision (Adopted October 2001)
SPG 11 Childcare Facilities (Adopted October 2001)
SPG 12 Landscape Guidelines (Adopted October 2001)
SPG 13 Accessible Environments (Adopted October 2001)
SPG 14 Designing for Community Safety (Adopted October 2001)
SPG 16 Shopfront Design Guide (Adopted October 2001)
SPG 17 Town Centre Contributions (Adopted October 2001)
SPG 18 Energy Efficiency (Adopted October 2001)
SPG 19 Noise Attenuation Guidelines (Adopted October 2001)
SPG 20 Notifiable Installations (Adopted October 2001)
SPG21 Housing in Multiple Occupation - Planning Strategy (Adopted October 2001)
SPG22 Tall Buildings (Adopted October 2001)
SPG23 Telecommunications Apparatus (Adopted October 2001)
SPG24 Flood Risk Management
SPG25 Litter and Waste Management
SPG26 Trees and Development
SPG27 Buildings of Local Interest (Adopted February 2002)
SPG 28 Watford: Historic Environment Character Statement and Guidance Note (Adopted
February 2002)
SPG 29 Cycling in Watford
xi
The Supplementary Planning Guidance is published separately from the plan and is
available on request from the Strategy Team on 01923 278276 or e-mail:
xii
PREFACE
This document and the accompanying Proposals Map comprise the Watford District Plan 2000
which covers the administrative area of Watford Borough Council.
It has been prepared under the Town and Country Planning Act 1990, the Planning
and Compensation Act 1991 and relevant regulations, and, where appropriate,
conforms with advice given in Central Government's Planning Policy Guidance
notes. Preparation involved comprehensive consultation with residents,
businesses, local interest groups and statutory consultees.
The Plan covers the period up to 2011 and seeks to establish the framework within which planning
decisions will be taken.
Key Reasons For Reviewing the Plan
This Plan reflects the current planning thinking for Watford. It has been prepared using as a base
the Watford District Local Plan 1993 and results of the issues paper consultation exercise
(Engaging the Public Stage 1 Report "Raising the Issues" - January 1999). The key reasons for
the review were:
The need to roll the Watford District Local Plan 1993 forward to 2011 in line with the
adopted Structure Plan for Hertfordshire.
Changing legislation, e.g. addressing air quality issues through the District Plan, the
Government White Paper on Integrated Transport, emergence of new planning guidance
notes, etc.
Changing local circumstances in Watford such as Single Regeneration Budget (SRB) in
West Watford.
To take on board various strategies and studies which have been prepared, e.g., the South
West Hertfordshire Transportation Study and Herts Habitat Strategy.
To address issues emerging from the implementation and monitoring of the plan.
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Scope and Role of the Plan
The Plan sets out the main considerations on which planning applications are decided and can
guide a range of other responsibilities of local government and other agencies. The Development
Plan for Watford consists of the Structure Plan, the Waste Plan, the Minerals Plan (all prepared by
the County Council), and the Local (or District) Plan for Watford.
The scope of the District Plan is confined by law to policies and proposals for the development and
use of land, the conservation of the natural beauty and amenity of land, the improvement of the
physical environment and the management of traffic. Local authorities are also required to take into
account social, economic and environmental considerations in preparing the plan.
The District Plan has an important role in delivering the Council's corporate priorities, including:
Having shared aspirations and goals
Improving quality of life, equity, and social cohesion
Regeneration and reducing unemployment
Reducing congestion and improving transport links
Better government for older people
Accessible shops and local facilities
Protecting the environment and local facilities
Facilitating new development whilst securing a balance between homes, jobs and services
Protecting residential amenity and promoting affordable housing
Linking traffic and land use
Maintaining a mix of employment uses
Promoting sustainability and the implementation of Local Agenda 21 (LA21)
Deriving benefits for traffic schemes, public art, and Town Centre enhancement scheme, etc.,
through the negotiation of Section 106 agreements
Reducing the fear and incidence of crime
It is, of course, important that all the Council's strategies and plans work together with a common
purpose, and there is also a need to ensure that the plan addresses land use issues raised by
other Council policy documents such as the sustainable economic regeneration strategy. This Plan
has been developed in close consultation with other sections of the Council.
CHAPTER 1: INTRODUCTION
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OVERVIEW OF WATFORD BOROUGH
1.1 Watford Borough was granted a Royal Charter in 1922. Traditionally a market town, it has
developed into an attractive sub-regional shopping centre and important centre for cultural and
recreational facilities. Watford has a catchment area population of approximately 500,000 within
a travel time of 20 minutes from the town centre (CACI Ltd 2001).
Location
1.2 Situated in the South West of Hertfordshire, Watford (see Context Plan, Map 1) has several
locational advantages due to its excellent communication links. The M1 motorway, with
direct links to the town centre, and the London to Glasgow railway pass through the
Borough. London Euston can be reached in 20 minutes, while the nearby M25 motorway
has enhanced road access to the major airports at Heathrow, Gatwick, Stansted and Luton.
Watford has major A-road links to adjoining areas and is also connected to the
underground rail network with the Metropolitan Line terminus adjacent to Cassiobury Park.
A branch line railway serves St. Albans Abbey. During the period of this Plan, it is
anticipated that the Croxley Rail Link currently safeguarded for future development will
reopen to connect Central London and Watford Junction by the Metropolitan Line.
Population
1.3 Watford Borough has a population of 80,500 (revised 2001 ONS Mid-Year Estimate) and
covers an area of 2,142 hectares (8.3 sq. miles). The 2001 Census figures show that 14%
of the population are from minority ethnic groups. 58% of the total population are under the
age of 40 and 24% are under the age of 20 (Mid-Year Estimate). This will have implications
for the type and number of dwellings provided to accommodate the existing population and
the provision of and access to, other services such as health, education and leisure
facilities.
The Economy and Employment
1.4 Watford is a major town in the region. It was traditionally a centre for the printing industry
and now boasts the headquarters of a number of nationally known firms. Unemployment
figures are well below Great Britain's average. However there are pockets of deprivation,
characterised by a high concentration of minority ethnic groups, single parent families, low
income households and a high incidence of long term health problems.
3
Character of the Area
1.5 The Borough of Watford is predominantly urban in nature. However, almost 20% of the
Borough forms part of the Metropolitan Green Belt which encloses much of, but does not
wholly surround, the built-up area. The Colne Valley Linear Park, the Gade Valley and
Cassiobury Park, which extends almost into the centre of Watford, provide the main open
space and nature resources in Watford. The range of shopping facilities provided in the
Harlequin Centre, High Street and Lower High Street dominate the centre of Watford, with
residential and industrial areas of varying age and type surrounding the town centre. The
historical character of the town is maintained by the designation of Conservation Areas and
many buildings of local importance.
Planning Framework
National Policy
1.6 The Plan has been prepared within the strategic, national and regional guidance provided
by the Office of the Deputy Prime Minister and other specific circulars and planning policy
guidance notes, which set out the Government’s policies on various aspects of planning.
Regional Guidance
1.7 Regional Planning Guidance for the South East (published March 2001) has a vision of
encouraging economic success throughout the region, ensuring a higher quality of
environment with management of natural resources, opportunity and equity for the region’s
population, and a more sustainable pattern of development. The focus is on enabling
urban renaissance, promoting regeneration and renewal, concentrating development in
urban areas, promoting a prosperous and multi-purpose countryside and promoting wider
choice in travel options, thereby reducing reliance on the private car.
County Policy
1.8 The Structure Plan for Hertfordshire was adopted in April 1998 and it covers the period
1991-2011.
1.9 Key Aspects of the Structure Plan in relation to Watford are:
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Maintenance of the green belt (Structure Plan Policy 5)
Comprehensive Settlement Appraisals (Structure Plan Policy 3)
Provision of 4,700 additional dwellings in Watford between 1991 and 2011 (Structure Plan
Policy 9)
The enhancement of the vitality and viability of Watford Town Centre (Structure Plan Policy
16)
Policy and guidance on business and commerce, transport, environmental assets,
recreation and leisure
Enabling activities and development to be carried out consistently with the principles of
sustainable development (Policy 1).
Purpose of the Plan
1.10 The purpose of this Plan is to:
Provide a detailed policy framework to protect and enhance Watford’s environment, to meet
the development needs of its community and to reconcile potential conflicts between land
uses in the public interest in accordance with sustainability principles.
Encourage and guide development to the right locations, encourage economic growth and
vitality and to prevent development which is not environmentally, socially and economically
sustainable.
Reflect the planning and land use aspirations of the people of Watford, to present policies
of relevance to all and not to discriminate against any section of the community.
Interpret the policies of the Hertfordshire Structure Plan to meet local circumstances
Provide a firm basis for rational and consistent decisions for determining planning
applications.
Using the Plan
1.11 The District Plan must be in conformity with the County Council’s Structure Plan, Waste
and Minerals Plan. Together they form the Development Plan for Watford.
1.12 Where the development plan contains relevant policies, Section 54A of the Town and
Country Planning Act 1990 requires that an application for planning permission shall be
determined in accordance with the plan, unless other material considerations indicate
otherwise. Conversely, applications that are not in accordance with relevant policies in the
plan should not be allowed unless other material considerations justify granting a planning
permission.
5
1.13 The District Plan comprises this document, referred to as the Written Statement, and the
Proposals Map.
1.14 The Written Statement is divided into chapters consisting of the Plan’s Vision, Principles
and Aims and ten topic chapters on Environment, Transport, Employment, Housing,
Shopping, Town Centre and Lower High Street, Leisure, Community Services, Urban
Design and Conservation, and Implementation, Monitoring and Review. There are six
Appendices, which set out the Sustainability Statement, Car and Cycle Parking Standards,
the Prime Retail Frontage and Local Shopping Frontages, Allotments, Statutorily Listed
Buildings and Locally Listed Buildings.
1.15 The Vision, Principles and Aims Chapter provides a policy context. It sets out a Vision for
Watford against which the Plan has been prepared. The Plan has also been prepared
against a set of Sustainability Principles, which along with the Vision are reflected
throughout the Plan.
1.16 Topic chapters contain individual objectives, detailed policies against which to judge
planning applications and reasoned justification. Policies are identified by being individually
numbered and printed in bold. In addition certain parts of the Plan refer to Supplementary
Planning Guidance. Supplementary Planning Guidance is published separately from the
Written Statement and does not form part of the Plan. It supplements the Plan’s policies
and proposals and is a material consideration in dealing with planning applications. The
Council will, wherever necessary, carry out public consultation on new Supplementary
Planning Guidance so as to enhance its planning status, and, if necessary, make related
formal alterations to the adopted Plan.
1.17 The Proposals Map shows the area covered by the Plan and specific areas relating to
certain policies (e.g. it identifies land in the green belt and primarily residential areas).
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CHAPTER 2: VISION, PRINCIPLES AND AIMS
A VISION FOR WATFORD
2.1 The Council wants to see Watford as a town where people thrive because:
There is a wealth of opportunity for employment, leisure and cultural opportunities and an
attractive residential environment.
Streets and public places are smart, clean and safe.
It is a sustainable, healthy and environmentally friendly community.
High quality, value for money public services are delivered in a fair and equal way to all
sections of the community.
There is a strong sense of community spirit and civic pride, based on valuing the
contribution of all individuals and communities.
Citizens are able to express their views and influence decisions about the future of the
town.
2.2 It is a vision that will take many years to achieve and one which requires the support of
local residents, businesses, community groups and the dedication of the Council and other
public bodies and partners to carry it through. This Plan has been written within the context
of the Council’s framework for action and will make a significant contribution towards
achieving the Council’s vision and meeting the aspirations of the residents and the wider
community.
2.3 The Plan sets out the Council’s planning policies which together seek to promote and steer
development in Watford in a way which will achieve the vision and balance the needs of the
town, its residents and the wider community that it serves. The Plan will act as a catalyst
for change, a guide to developers and a means by which to control inappropriate
development.
2.4 The Plan will be based upon the following vision, where
the town’s greatest resource, its people and their needs are put first
the most important issue we face is to achieve a balance between social, economic and
environmental issues
everyone lives in a safe, healthy and pleasing environment
everyone has the choice and opportunity to develop skills, find suitable employment and
contribute to the Watford economy
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the use of the car is not a necessity, but people can choose to walk, cycle or take
passenger transport to work, to school and to get daily shopping and other essential
services
access to the town centre, leisure facilities within the town and open areas surrounding it is
made an easy and preferred choice by passenger transport or by walking or cycling
the town’s open spaces are protected and their ability to support and protect wildlife,
provide essential amenity areas and recreation is enhanced, and open spaces are linked
by landscaped corridors, free from cars
people with disabilities can participate fully in community life and experience to their full
potential the benefits of living and working in or visiting Watford
people can move freely through the town centre to browse, shop, eat out, meet friends, feel
secure and relaxed, enjoy the townscape, discuss public street-art and experience
enjoyable leisure times
enhanced, protected and well-designed urban spaces within the town which are humanised
by landscaping become public spaces that are well used and valued by people
good design is seen as the key to a successful and pleasing environment for Watford.
the people of Watford find it easier to take pride in their town and be proud of their
contribution towards protecting and enhancing their environment for themselves and future
generations and so enjoy a high quality of life
people feel safe.
Achieving the Vision
2.5 The Plan has a network of aims, objectives and policies:
Aims set out in general terms what the Plan is seeking to achieve. They are often on-going or
achieved progressively over long periods and are, therefore, likely to be carried forward into
subsequent plans.
Objectives translate aims into specific topics (such as for housing or shopping), provide clearer
goals for this plan period and form the structure from which detailed policies emerge.
Objectives both within and across topic areas are often inter-related.
Policies provide detailed criteria against which development proposals are to be determined.
Proposals will usually be judged against more than one policy. Successive planning
8
decisions in accordance with relevant policies combine to realise objectives and so
contribute towards meeting the Plan’s aims.
Monitoring Objectives and policies will be monitored throughout the plan period. It is essential
that they:
* remain responsive to local circumstances;
* are reflective of the planning wishes of local people and businesses;
* encompass relevant and current Government planning advice;
* are robust against challenge;
* and can best achieve the Plan’s aims and vision.
Sustainability Principles
2.6 This vision is based on the principle of Sustainable Development defined as “development
which meets present needs without compromising the ability of future generations to
achieve their needs and aspirations” (the Brundtland definition).
2.7 The understanding of sustainability has been expanded into the broad “UK Indicators of
Sustainable Development”. The DETR summarises these into the following key points:
A healthy economy should be maintained to promote quality of life while at the same time
protecting human health and the environment, in the UK and overseas, with all participants
in all sectors paying the full social and environmental costs of their decisions;
Non-renewable resources should be used optimally;
Renewable resources should be used sustainably;
Damage to the carrying capacity of the environment and the risk to human health and
biodiversity from the effects of economic activity should be minimised.
2.8 To realise this vision, sustainable development, based on this definition, must underpin the
whole plan. All policies, implementation and review are considered within the framework of
sustainable development. Working with other agencies the Council will seek to encourage
a more sustainable pattern of development.
2.9 Within this framework the Council outlines the following priorities-
Table 1: Our Commitment to Achieving More Sustainable Development
The Council will ensure that all new developments regardless of size should play their part in
seeking
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to use land efficiently
to minimise energy demands
to reduce the need for transport movements and, where possible, incorporate technologies to
limit the direct or indirect causes of greenhouse gas emissions
to reduce the overall need for private commuter car journeys by making full use of locations
which encourage walking or cycling and the use of passenger transport
to locate in areas where single journeys can serve several functions or through appropriate
mixed land use development schemes
to encourage in principle development schemes which seek to incorporate renewable energy
generating technologies (e.g. utilising solar energy) and efficient building design /orientation
wherever possible to use renewable resources and recycled materials in construction
to ensure that uses which are likely to cause pollution directly or indirectly are carefully
considered in the development control process
to protect existing open areas, enhance their use, provide a benefit to wildlife and appearance
and, wherever possible, to provide additional spaces, particularly in association with
developments that may increase recreational and open space demands
ensure that open spaces are easily accessible by all people and are safe environments for
play and recreation
PLAN AIMS
2.10 The Plan’s aims are:
Sustainability
All development must be carried out in line with the sustainability aims set out in
Policy 1 of the Hertfordshire Structure Plan Review 1991-2011. The following
encapsulate those aims:
To promote regeneration, social inclusion and sustainable patterns of development by
ensuring that all development is carried out in ways which minimise any adverse impact on
the environment and local community.
To enable people to live life to the full without placing unnecessary demands on the
environment or on energy resources, by seeking a gradual change in land use patterns and
in behaviour.
10
Natural Environment
To encourage a high quality environment, to protect and enhance the natural environment,
wildlife and vegetation and their contribution to visual and wider environmental amenity and
preserve the Green Belt and areas of open space.
Built Environment
To enhance the Built Environment through careful control of development, improvements to
townscape and landscape, protection of historic buildings and areas and the
encouragement of development that delivers sustainable objectives
Integrated Transport
To develop and implement a transportation strategy with the County Council to meet the
transport needs of the town, its residents and the wider community that it serves in a
sustainable manner which reduces the need to travel and encourages travel by means
other than the private car.
Housing
To adequately meet local housing needs including the need for affordable and lifetime
housing whilst ensuring that there is not an overall over-supply of housing.
Local Economy
To create the right conditions in which business can thrive and prosper by revitalising and
broadening the local economy,
Shopping
To ensure the continued viability and vitality of established shopping centres and the multi-
functional role of Watford Town Centre based around shopping.
Crime Prevention
To promote land use and urban design measures to enhance security, make crime more
difficult to commit and to increase the detection of potential offenders.
Community Need, Social Equity and Participation
To make adequate appropriate provision for development to meet local community needs
and to enhance quality of life.
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Design Principles
To ensure the quality and longevity of development by supporting and encouraging the
principles of good sustainable design.
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CHAPTER 3: SUSTAINABLE ENVIRONMENT
3.1 The environment in which we live is one of our greatest assets. It is a major contributor to
our quality of life, to health, to the well being of communities and to sustaining life itself.
Both complex and vulnerable, it is made up of a combination of natural and built
components dominated by the activities of people. Our activities today shape our local
environment, help determine quality of life, often hold the balance for survival of wildlife
habitats and in many instances have far reaching consequences for the global environment
as a whole.
3.2 The principles and methods agreed at international level, including the Rio “Earth Summit”
and Local Agenda 21 agreements, rely upon people at local level to use their influence to
prevent further deterioration. In order to maintain and improve quality of life for both future
generations and ourselves and to respect the needs of wildlife and the delicate natural
systems which support them we must take full responsibility for the environment and the
consequences of our actions.
3.3 Every development proposal, no matter how small or seemingly insignificant, must take
responsibility for its effect on the environment and so aim towards minimising its impact.
When submitting planning applications, developers must demonstrate that the proposals
will not harm natural assets and resources, or show that measures taken before, during
and after development can mitigate these effects. They should also demonstrate how such
development would lead to a more sustainable local environment – see requirement for
sustainability statement (Policy SE1).
3.4 People should be given the choice and encouraged to live near their place of work, near
schools and places which provide for daily services or needs, or be able to travel to them
by passenger transport or by walking and cycling in safe and pleasant surroundings. Our
environment should be shaped responsibly around the needs of people and the challenge
which environmental conservation brings instead of around the needs of the car or
demands for short-term development gain.
SUSTAINABLE ENVIRONMENT OBJECTIVES
3.5 (1) To ensure that development proposals use sustainable principles and elements,
which minimise their environmental impact and ensure lasting benefits.
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(2) To regenerate existing brownfield sites in support of urban renaissance within
Watford, making the Borough a more pleasant and convenient place to live.
(3) To reduce reliance on the private car by locating development within easy reach of
pedestrians, improving passenger transport and promoting mixed use.
(4) To ensure that Environmental Impact Assessment is carried out on large, locally
significant and sensitive sites so that a properly informed decision can be made
regarding development proposals.
(5) To support design and initiatives which conserve energy and promote use of local
and renewable sources.
(6) To secure the protection of important environmental assets, as defined in the
Hertfordshire County Structure Plan (1991 – 2011), from development which would
cause loss, damage or irreversible change to those characteristics which define
their special quality.
(7) To encourage energy efficient and environmentally sensitive lifestyles.
(8) To encourage a reduction in the production of waste materials, and promote their
reuse and recycling, or where this is not possible, ensure their safe disposal.
(9) To protect and enhance the character of the green belt, and to encourage access to
and the enjoyment of green belt land.
(10) To promote the environmental enhancement of Watford’s wildlife corridors and
where appropriate their recreational enhancement, such as within the Colne Valley
Linear Park and Grand Union Canal Corridor.
(11) To minimise pollution and to ensure any form of pollution, air, noise, light or water
is limited to levels that are not detrimental to the quality of life and do not damage
Watford’s natural systems.
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(12) To ensure that new developments are considered against their potential for ground
instability, land contamination, hazardous and/ or polluting impact.
(13) To ensure development takes full account of the need to protect and, where
possible, enhance water resources including measures to minimise flood risk.
(14) To promote the conservation and sustainable management of biological diversity,
including protected species and sites of nature conservation importance, so that
the quality of Watford’s natural environment is maintained and enhanced.
(15) To promote the protection and enhancement of Watford’s resource of trees,
woodlands and hedgerows.
(16) To ensure that development proposals take account of the particular
characteristics of their local landscape (with reference to the Landscape Character
Area Assessment).
(17) To promote the concept and implementation of Home Zones and Green Zones.
MAKING DEVELOPMENT SUSTAINABLE
3.6 SE1 Making Development Sustainable
All development proposals (except ‘householder’ development) should submit a statement
demonstrating the extent to which sustainability principles have been incorporated into the
location, design, construction and future use of their proposals. The statement should be
guided by the criteria set out in the sustainability checklist in Appendix 1.
Development will not be permitted unless it is demonstrated that sustainable development
principles are satisfied through compliance with the policies of this Local Plan and
Government statements of planning policy.
The Council will encourage all future developments to be on brownfield (i.e.
previously developed) sites.
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3.7 The Council recognises the fundamental role which this Plan plays in contributing to the
aim of making development in Watford more sustainable. Encouragement will be given to
proposals which bring about environmental or community benefits. Elements of
sustainability principles may be incorporated into design including orientation for energy
conservation; retention of natural, cultural and historic features; encouragement of non-
motorised travel modes; avoidance of pollution; conservation of water resources; and
promotion of wildlife habitats and ecological gain.
3.8 Applicants will be required to submit a statement to demonstrate how sustainability
principles have been incorporated into their proposals. These statements should be guided
by the Sustainability Checklist (Appendix 1) which sets out specific sustainability criteria
and the Plan policies which address these. Advice should be sought from the local planning
authority on the range of criteria covered and in what detail.
3.9 SE2 MIXED-USE DEVELOPMENTS
The Council will encourage mixed-use developments where they will be beneficial
through their associated environmental benefits. Especially in instances where they
will reduce the need to travel and car dependency, and promote urban regeneration
and social cohesion.
3.10 Mixed-use developments, which combine homes, community facilities and employment,
help to reduce the need to travel greater distances for work or services, bringing vitality and
diversity to an area. Appropriate mixed-use developments are more sustainable than
developments consisting of a single use and can help to create viable, economically
healthy urban centres.
3.11 SE3 ENVIRONMENTAL IMPACT ASSESSMENTS (EIA)
In accordance with the Town and Country Planning (Environmental Impact
Assessment) (England and Wales) Regulations 1999 and DETR Circular 2/99
(Environmental Impact Assessment), the Council will require Environmental Impact
Assessments (EIA) for transport (see Policy T4: Transport and New Development)
and development projects that will potentially have a significant impact on the area’s
environment. This includes impacts on natural, built and historic features of
importance and on public health. This requirement is mandatory for development
proposals included in Schedule 1 of the above Regulations.
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In cases where EIA is not mandatory (i.e. those set out in Schedule 2 of the
Regulations), the Council would normally expect EIA to be carried out for the
following types of development:
a) For major projects of more than local importance which are likely to have significant
environmental effects by reason of their size or scale.
b) For projects in particularly sensitive locations, including Sites of Special Scientific Interest, Local
Nature Reserves, Registered Historic Parks, Conservation Areas, Scheduled Ancient Monuments
and Listed Buildings of Grades I and II, and canal and river corridors.
c) For projects with particularly complex and potentially harmful effects on the natural environment
or public health.
3.12 Environmental Impact Assessment (EIA) involves the collection of information about the
likely environmental effects of a large or potentially harmful development so that a properly
informed decision can be made. The Town and Country Planning (Environmental Impact
Assessment) (England and Wales) Regulations 1999, specify projects for which an EIA is
mandatory, those where the EIA is ruled out, and where a case-by-case judgement must
be made as to whether an EIA is required. If necessary, the Council will consult with
appropriate expert organisations where there is doubt as to whether an EIA is required.
Government guidance is provided by Circular 2/99 (Environmental Impact Assessment).
3.13 Where required, an EIA must accompany an outline or detailed planning application. It
must not be dealt with under reserved matters.
RESOURCES - ENERGY
3.14 SE4 Energy Efficient Design
The Council will, in principle, support initiatives to conserve energy and to utilise
local energy sources by:
a) Encouragement of energy conservation in building design, minimising the energy
needs of buildings, e.g. through the use of materials to limit heat loss, efficient
internal layout making use of heat transfer and natural lighting or combined heat and
power (see SPG 18: Energy Efficiency);
b) Seeking energy efficient site layouts (e.g. building orientation to make full use of
south facing rooms: ‘passive solar design’);
c) Inclusion of landscaping schemes which contribute to energy conservation and
enhancement of micro-climates (e.g. shielding from prevailing winds, allowing
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filtration of natural light) whilst respecting the landscape character of the
surrounding area.
3.15 Energy demand can be significantly reduced through more efficient use. It is estimated that
by using cost-effective energy efficiency methods and technology, up to one-fifth of the UK
energy bill could be saved. The Council will encourage development proposals which
incorporate energy efficient technologies and methods including, but not limited by, those
identified in SPG 18: Energy Efficiency.
3.16 SE5 Renewable Energy
Proposals for the development of renewable energy sources will be supported in
principle, having regard to the:
a) visual impact and in particular impact on the Green Belt;
b) level of traffic generation;
c) level of pollution emissions;
d) impact on features or areas of ecological, architectural, landscape or
conservation importance;
e) impact on adjoining properties and land holdings;
f) Hertfordshire County Council guidance and Planning Policy Guidance Note 22.
The Council will seek to identify suitable sites for renewable energy during the life of
this Plan.
3.17 The development of renewable sources of energy brings opportunities for increased
diversity and security of power supply, and the reduction of ‘greenhouse gas’ emissions
which contribute to climate change. Renewable energy sources include harnessing solar,
wind, sewage and farm slurry, plant crop conversion and the digestion of waste (biomass).
3.18 The UK government is committed to securing 10% of electricity demand from renewable
sources by 2010. The East of England regional target is 14% by 2010. The Council
supports this 14% target, recognising that renewable energy projects tend to be much
smaller in power output than conventional sources so are more likely to be subject to local
planning consent. There will be support in principle for proposals which are economically
sound, environmentally acceptable (including pollution, traffic and visual impact), and in
accordance with local policies and PPG 22: Renewable Energy.
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3.19 The Eastern Region Renewable Energy Planning Study (ETSU 1997) identifies suitable
opportunities for renewable energy projects in Hertfordshire as including active and passive
solar (including photovoltaic cell energy); digestion of waste (biomass); short crop rotation
coppice and forestry; straw and other minor sources.
RESOURCES- MINERALS, WASTE AND RECYCLING
3.20 SE6 MINERALS AND WASTE CONSULTATION
When consulted by the Hertfordshire County on issues relating to minerals and
waste management, and development applications related to such matters, the
Council will have regard to factors including:
a) likely traffic generation and site access;
b) residential amenity; and
c) impact on open space and wildlife habitat.
Developments which would be likely to prejudice the extraction of known mineral
supplies will not be permitted.
3.21 Under the Planning and Compensation Act 1991, this local plan may not contain policies in
respect of minerals or waste disposal. Such matters are dealt with by the County under the
Hertfordshire Minerals Local Plan 1991-2006 and the Hertfordshire Waste Local Plan 1995-
2005. However, the Council may be consulted on matters such as site access.
3.22 The Hertfordshire Waste Local Plan encourages the minimisation, reuse, recycling and use
of waste as a fuel as preferable approaches to disposal. It regards the transportation to
landfill as a last resort and endorses the proximity principle whereby waste should be dealt
with as near as possible to its source. The Hertfordshire Waste Local Plan forms part of
the Development Plan for Watford and will be used when considering planning applications.
3.23 The Council is committed to the retention, or where necessary the replacement, of existing
waste and recycling facilities, in line with Policy 18 of the Hertfordshire Waste Local Plan.
The Council Depot at Wiggenhall Road is proposed for residential use – Housing Proposal
Site 25, Table 2. Redevelopment of this site will only be allowed once the existing waste
and recycling facilities have been relocated to an appropriate site nearby within the
Borough and are fully operational.
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3.24 SE7 Waste Storage, Recovery and Recycling in New
Development
IN CONSIDERING ALL DEVELOPMENT PROPOSALS WHICH ARE LIKELY TO
GENERATE WASTE, THE COUNCIL WILL HAVE REGARD TO THE EXTENT TO
WHICH ON-SITE PROVISION IS MADE FOR WASTE COLLECTION, SOURCE
SEPARATION, RECOVERY AND RECYCLING FACILITIES.
For developments likely to generate significant waste, the Council will have regard to
existing local facilities, Policy 11 of the Hertfordshire Waste Local Plan and SPG 25 –
Litter and Waste Management. Where appropriate the Council will consult with the
Hertfordshire County Development Unit and may grant permission subject to
conditions or seek to enter into a planning obligation with the developer to provide
facilities.
3.25 Sufficient provision for the waste storage, recovery and recycling within the site should be
made for all developments. Separate storage areas for waste and recyclables should be
enclosed and easily accessed for collection purposes. Planning permission will not be
granted where inadequate storage or access would be liable to result in temporary storage
of materials outside the property boundary or at risk to public health.
3.26 SE8 Re-use of Materials in New Developments
The Council will encourage the appropriate re-use of clean excavated material from
construction projects, including from the proposed development itself, as
preparation for development, land restoration or site landscaping. In the
construction phase, reclaimed and recycled aggregates and building products
should be used where possible within buildings and other structures in place of
natural aggregates or previously unused materials.
In considering non-‘householder’ applications for development, conversions and
refurbishment, the Council will require applicants to demonstrate the degree to which
waste minimisation principles have been reflected in the proposal, in accordance with
Policy SE1 and the sustainability checklist set out at Appendix 1.
3.27 The Council wishes to encourage development that takes recycling, use of environmentally
sensitive building materials, waste minimisation and careful use of resources into
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consideration (see Policies U1 and U2). Particular encouragement will be given to
proposals that help to conserve natural resources through the use of recycled materials.
3.28 The submission of a sustainability statement in accordance with Policy SE1 is intended to
help applicants to demonstrate the ways in which they have considered waste minimisation
principles in their proposals. Some examples of waste minimisation practice are already given in
Appendix 1, but applicants may also wish to consider including measures in their proposals to:
Minimise, re-use, reclaim and recycle waste generated by the development
Optimise the use of recycled construction materials
Minimise the pollution potential of waste and dispose of unavoidable waste in a way that
minimises any adverse environmental effects within the context of sustainable development
Ensure that adequate space is available to facilitate waste recycling through separation,
storage, handling, bulking and collection of waste generated within the development and the
property.
THE GREEN BELT
3.29 SE9 Green Belt – New Development
Within the Green Belt, identified on the Proposals Map, planning permission will not
be given, except in very special circumstances as detailed in PPG2, for new
buildings for purposes other than:
a) agriculture and forestry;
b) essential facilities for outdoor sport and recreation, cemeteries and for other
uses of land which preserve the openness of the Green Belt and which do not
conflict with the purposes of including land within it;
c) the limited extension or alteration of an existing dwelling which does not result
in a disproportionate addition over and above the size of the original building;
d) the replacement of an existing dwelling where the new dwelling is not
materially larger than the one it replaces;
e) limited infill or redevelopment of major sites identified by, and in accordance
with, Policy SE13 of this Plan.
3.30 The Green Belt around Watford has proved very successful in containing development,
helping preserve the character of Watford, preventing its merger with adjoining towns,
assisting urban regeneration and safeguarding adjoining countryside and green spaces.
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The permanence and protection of the Green Belt remains an essential feature of this Plan.
No alteration to the Green Belt boundary is proposed by this Plan nor is it required to
accommodate any future development needs. The urban nature of the Borough of Watford
means that the protection of its surrounding Green Belt land is of particular importance.
The Council will seek to protect Green Belt land for the benefit of all in accordance with
PPG 2: Green Belt, the Hertfordshire Structure Plan Review 1991-2011 and other relevant
policies within this Plan.
3.31 It is noted that engineering and other operations within the Town and Country Planning
(General Permitted Development) Orders, including the consolidated general development
orders, as they apply to essential canal and river management and operations, will not be
affected by this provision.
3.32 SE10 Cemeteries, Memorial Gardens and Green Burials
Cemeteries and memorial gardens with essential small-scale ancillary buildings are
considered appropriate in the Green Belt. Proposals should:
a) take advantage of natural contours;
b) ensure landscaping screens any memorials or structures from long distance
views;
c) incorporate suitable parking provision and landscaping to ensure that vehicles
are parked in off-road locations;
d) comply with the County Council’s policy for traffic on rural roads;
e) not compromise the visual amenity and the openness of the Green Belt; and
f) not adversely affect the environment, specifically local surface and groundwater
resources.
The Council will seek to identify a site for a new cemetery. The Council will also
support sustainable woodland and green burial schemes.
3.33 Watford’s current burial capacity is due to run out by 2005. Whilst no site for a new
cemetery has yet been identified, the Council intends to actively seek to identify a suitable
site in consultation with those concerned. Any proposal will need to have regard to a
number of constraints to safeguard the environment. The Council recognises the
environmental benefits of ‘green burials’ and will support suitable proposals either as part of
a proposed cemetery or as a separate facility. Crematoria are not considered to be the
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same as cemeteries due to their different environmental impact and do not enjoy the same
presumption that they may be located in the Green Belt.
3.34 SE11 Re-Use of Existing Buildings in the Green Belt
The re-use of existing buildings in the Green Belt will be permitted provided that:
a) the use of the buildings or associated land does not have a materially greater
impact than the present or (if vacant) last use on the openness of the Green Belt
or the purposes of including land in it;
b) the buildings are of permanent and substantial construction and are capable of
conversion without major or complete reconstruction;
c) the form, bulk and general design of the buildings after conversion are in keeping
with their surroundings;
d) the redevelopment of the site does not give rise, either directly or cumulatively
(with other developments in the area), to transport, amenity, landscape or
environmental impacts that harm the objectives of green belt designation.
3.33 3.35 PPG2 provides clear criteria for where re-use of buildings in the Green Belt is appropriate. Within the urban context of Watford, the Council places particular value on the maintenance of green belt openness, sustainability
factors and facilitating suitable recreational use.
3.36 SE12 VISUAL AMENITY OF THE GREEN BELT
The Council will protect the visual amenities of the Green Belt by not permitting
development within, or conspicuous from, the Green Belt which might be visually
detrimental by reason of its siting, materials or design.
3.37 As the Green Belt is well established, opportunities must be found to enhance the character
of the Green Belt. In addition to its strategic role in containing development, the Green Belt
also provides a valuable open landscape within the Borough. It is therefore important that
the open character and visual amenities of the Green Belt are protected from harmful
development, whether within the Green Belt, or adjacent to it, but potentially equally
damaging.
3.38 All proposals for development within the Green Belt should also have regard to the other
relevant policies of this Plan, including those relating to landscape (Policies SE17 and
SE40), transport (Policy T4), and nature conservation (Policies SE31, SE32 and SE33).
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3.39 SE13 Major Developed Sites in the Green Belt
The following sites have been identified as Major Developed Sites on the Proposals
Map:
i) the Grove Water Treatment Works
ii) the Leavesden Studio Site (see also Policy SE14)
In accordance with Annex C of PPG 2 (Green Belts) there may be limited infilling of
these sites to secure jobs and prosperity without prejudicing the Green Belt. Such
infilling should:
a) have no greater impact on the purposes of including land in the Green Belt than
the existing development;
b) not exceed the height of the existing buildings; and
c) not lead to a major increase in the developed portion of the site.
These sites may offer the opportunity for redevelopment which lead to
environmental improvement without adding to their impact on the openness of the
Green Belt. In accordance with Annex C of PPG 2, such redevelopment should:
a) have no greater impact than the existing development on the openness of the
Green Belt, and the purposes of including land within it, and where possible have
less;
b) contribute to the achievement of Green Belt land use objectives;
c) not exceed the height of the existing buildings; and
d) not occupy a larger area of the site than the existing buildings.
Such redevelopment would require a site brief in accordance with PPG 2 and the
policies of this Plan.
3.40 PPG 2 permits the identification of ‘major developed sites’ within the Green Belt, such as
water and sewage treatment works, civil airfields, and education establishments. Two such
sites have been identified within Watford’s Green Belt; the Leavesden Studios Site and the
Grove Water Treatment Works, on the basis of their size, the scale of existing
development, and other criteria as suggested by PPG 2. These sites are mostly in
continuing use and it is anticipated that the need for some development will continue.
Infilling or redevelopment which meet the criteria summarised above and fully described in
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Annex 2 of PPG 2, may be appropriate. These sites remain subject to the Green Belt
policies and other specific policies of this Plan.
3.41 SE14 Leavesden Studios Site
The Leavesden Studios (former Aerodrome) site as designated on the Proposals Map
will remain in the Green Belt. Redevelopment will conform to the criteria in PPG2 C4
(a), (b) and (c). C4(d) should be interpreted to indicate that redevelopment will not
exceed 32 hectares as stated in condition 4 of the outline permission.
3.42 The Leavesden former Aerodrome site includes film studios, housing, offices, sports and
playing fields and access roads. The site is predominantly within Three Rivers authority.
Developers (MEPC UK Ltd) which acquired the site in 1999, do not intend to implement the full
1995 outline planning permission. A revised master plan envisages a landscaped business park
and redevelopment of the film studios.
3.43 This site is a Major Developed Site in the Green Belt as referred to by PPG2: Green Belt
and subject to Policy SE13: Major Developed Sites in the Green Belt.
3.44 SE15 SPORTING FACILITIES IN THE GREEN BELT
The Council will in principle permit development proposals which are essentially required to
enable existing facilities for outdoor sport and recreation within the Green Belt to be
upgraded to meet modern requirements. The Council recognises that the resulting
extension or redevelopment may be over and above the size of the original building.
The Council will expect all development proposals
a) to reflect the special nature of the Green Belt (see Policies SE11 and SE12)
b) to be of high design quality (see Policies U1, U2, U3 and U4)
c) not to give rise, either directly or cumulatively (with other developments in the
area) to transport, amenity, landscape or environmental impacts that harm the
objectives of Green Belt designation.
3.45 The existing sports facilities in the Green Belt include the Fullerian Rugby Club and Watford
Rugby Club. Both clubs have outdated clubhouses that need modernising. The
modernisation of the clubhouses will enable both clubs to continue to fulfil the needs of
modern day sports such as providing for women, children and the elderly within a local and
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regional context. The modernisation will also enable the clubhouses to provide up to date
access arrangements to enable those with mobility impairment to have access to the
building and participate in the sport.
3.46 SE16 PUBLIC ACCESS TO THE GREEN BELT
The Council will encourage greater public access and use of land within the Green
Belt for informal and, where appropriate, formal leisure uses, and promote the use of
non-motorised routes (inclusive of mobility vehicle access) (see Policies T6, T7 and
T9).
3.47 The Colne Valley Linear Park and the Grand Union Canal Corridor are locations where
public access for leisure is particularly appropriate (see Policies SE18 and SE19).
3.48 SE17 Landscape Improvement Schemes
The Council will encourage landscape improvement schemes and restoration
projects in landscape development areas identified on the Proposals Map.
3.49 Two areas of the Green Belt are identified on the Proposals Map as landscape
development areas - land off Hempstead Road/Russell Lane and land between North
Western Avenue and the M1 motorway. The landscape quality of these areas has been
eroded and/or is likely to be vulnerable to change or pressures affecting their landscape
quality and appearance. Designation as landscape development area compliments the aim
to retain these sites as permanently open Green Belt by promoting landscape renewal,
improvement and the creation of new landscapes. Landscape enhancement will be sought
wherever possible through voluntary agreements in the form of land management practices
and where appropriate direct action in conjunction with the County Council and other
relevant organisations.
3.50 SE18 COLNE VALLEY LINEAR PARK
The Council will seek to improve the Colne Valley Linear Park, as identified on the
Proposals Map, and its use and enjoyment by the public by:
a) establishing or improving continuous paths for non-motorised movement,
inclusive of mobility vehicles. Such routes should enhance wildlife corridors and
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links both within the park and from adjoining areas as part of appropriate
development and redevelopment proposals within or adjacent to the park;
b) protecting the character and visual amenities of the park by preventing intrusive
developments by reason of their siting, design, detail to landscaping, materials or
use from both within or adjacent to the park;
c) seeking ways to protect and improve the water environment and diversity of
wildlife (see Policies SE26, SE27, SE28, SE29 and SE30);
d) promoting greater public awareness and use of the park;
e) encouraging consultation and partnerships and preparation of the Colne Valley
Strategy which will form Supplementary Planning Guidance; and
f) any proposed illumination should be in accordance with Policy SE23: Light
Pollution.
3.51 The Colne River Valley Strategy is currently being prepared to replace the 1980 strategy.
The document will include elements of design guidance and environmental management.
3.52 The Council recognises the regional and local importance of enhancing a highly urbanised
section of the Colne through consultation and partnership with communities and relevant
agencies. Enhancement proposals should be consistent with the Environment Agency
LEAP document .
3.53 The Watford area of the park is a mix of open spaces, which are partly in the Green Belt
and built areas. The aim of the strategy is to improve the access and environment. The
park’s importance is in providing formal and informal recreational facilities, promoting
wildlife conservation, achieving environmental improvements and providing non-vehicular
transport routes. Priority remains in establishing continuous footpath and wildlife corridor
links.
3.54 SE19 GRAND UNION CANAL CORRIDOR
The Council has adopted a study of the Grand Union Canal. The study will form
Supplementary Planning Guidance to this Plan, and as such development within the
area identified on the Proposals Map, should be consistent with its
recommendations.
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3.55 The Grand Union Canal: Abbots Langley to Rickmansworth Corridor Study Area is
identified on the Proposals Map. A study of the Grand Union Canal has been prepared,
with the aim of promoting and enhancing the image of the canal corridor and its environs as
a valuable environmental, recreational and tourism resource. The study is based on wildlife
and landscape conservation and enhancement, promotion of public access, public art,
tourism, information improvements and potential for low intensity uses. In particular,
pedestrian and cycle routes and opportunities for water related activities are detailed in the
study. Canal development should also be in accordance with PPG 25: Development and
Flood Risk (Paragraph 37), and other policies of this plan.
3.56 Implications from the Study for development within the Grand Union Canal Corridor
Area are summarised as follows:
Canal regeneration: The inherent character of the canal should be maintained when
development is undertaken.
Landscape Improvements: environmental enhancements of land adjacent to the canal,
including habitat improvement, edge planting, and development in conjunction with public
footpath and cycleways should be encouraged.
Signage: co-ordination of signage is required along the canal length, both within watford
and between adjacent local authorities. Directional signage to the towing paths should be
provided at bridges that cross the canal. Interpretation boards should be located at bridges
and the towing path, to provide information on the history and importance of that part of the
canal and surrounding features. Any development of walkways within the corridor area
should provide signage to link the canal to the walkways.
Access: Improved access is required to the canal, particularly to maximise links to
recreational areas.
Community events: Canal-based events at major recreation nodes (e.g. Cassiobury Park)
and canal trips linking sites within watford would be beneficial.
Visitor Facilities: Adequate refreshment facilities alongside or near the canal are necessary.
Seating of an appropriate design is required at regular intervals along the canal corridor,
particularly within Cassiobury Park. Seating is not appropriate at some locations, for
example in the vicinity of Cassio Bridge Lock, where gathering at the lock should be
discouraged.
Moorings: Unauthorised residential moorings (e.g. at Cassiobury Park) should be
dissuaded through the use of techniques such as planting vegetation on the opposite side
of the canal to the towpath (offside).
Public art initiatives: Development along the canal should promote the linear sculpture
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network, with Cassiobury Park as a key focus for public art and for visitor participation.
Local walks and heritage trails: The development of local walks and heritage trails should
be promoted, particularly along the cassiobury park, grove mill lane conservation area and
the grove lengths of the canal corridor. The marketing of walks from local places of interest
and pubs along or near the canal should be undertaken.
Cycling: The development of cycle routes along the canal should be encouraged, having
regard to safety, maintenance and environmental design issues.
Site specific guidance: The study provides site-specific guidance along the canal corridor.
Of relevance to watford is guidance relating to Cassiobury Park and two bridges, the grove,
and hunton bridge/ leavesden studios. Matters raised in this guidance are included in the
bullet points above.
3.57 The Study will be used as a material planning consideration in assessing development
proposals along the canal corridor. In addition, the use of the canal for freight or passenger
transport purposes or recreational use will be supported in principle (see Policy T19).
ENVIRONMENTAL QUALITY
3.58 SE20 Air Quality
In determining planning applications it will be important to consider the impact of a
development in terms of the effects on air quality caused by both the operational
characteristics of the development (industrial, commercial and domestic) and the
traffic generated by it. The Council will have regard to the potential effects of a
development on local air quality when determining planning applications.
3.59 In considering the impact of a proposed development on air quality, the Council will liaise
with the pollution control authorities (the local Environmental Health and Licensing Service
or Environment Agency). The Council may require the submission of information and
modelling to indicate the potential impact of atmospheric emissions, or the effect on
background pollution concentrations. This should particularly be the case where a
development is proposed in, or close to, an Air Quality Management Area (AQMA). Where
local air quality is identified as being a risk to health, and the potential problem is incapable
of being overcome by a condition or planning obligation, then this may be cause for refusal
of planning permission.
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3.60 SE21 Air Quality Management Areas
Any development within areas designated as air quality management areas in
Watford must have regard to guidelines for ensuring air quality is maintained at
acceptable concentrations as set out in the national air quality strategy. In addition,
where developments are close to AQMAs, and a significant increase in road traffic is
predicted, similar regard to air quality concentrations must be had.
3.61 Major developments can have an effect on air quality. Road related development as well
as some types of industry can both increase emissions. The Environment Act 1995 places
a duty on local authorities to review and assess air quality in their districts. Those areas
that are expected to exceed national guidelines in the year 2005 will be deemed Air Quality
Management Areas (AQMAs) and a strategy will need to be devised by the Council to
reduce pollution concentrations accordingly.
3.62 The Council completed its initial assessment of air quality across the Borough in 2001.
This identified six areas where the objectives laid down in the Air Quality Regulations 2000
could, on occasion, be exceeded, as follows:
- Close to the M1
- Close to the A41
- Close to the A4008 (Pinner Road)
- Close to the A4178 (Cassio Road/Wiggenhall Road)
- Close to the A411 (Hempstead Road)
- Close to the A412 (Rickmansworth Road)
In each case, the pollutants of concern were nitrogen dioxide and ‘PM10’ particles (small
particles of dust). Both are traffic-related pollutants. As no significant public exposure was
identified in any of these areas, no Air Quality Management Areas were declared.
However, the areas remain of concern.
3.63 The Council is currently repeating the Review and Assessment process. Early indications
are that nitrogen dioxide and ‘PM10’ particles may again be problems in areas close to
some of the Borough’s busiest roads.
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3.64 Air Quality is an issue of sustainability, identified as a key element in the reduction of health
risks from environmental pollution and hazards, also impacting on the built and natural
environment. Its improvement is a major factor in the Quality of Life received by Watford’s
population. Air Quality is being monitored at a number of sites across the Borough
including at the Town Hall.
3.65 SE22 Noise
3.55 In accordance with PPG 24: Planning and Noise, the Council will
seek to ensure the separation of noise sensitive uses (such as schools, hospitals and
residential uses) noise-generating development or from areas where there are future
potential sources of noise. In exceptional cases where separation can not be
achieved, the Council may impose conditions or obligations to mitigate the effect of
noise nuisance by reduction at the source, design and layout, or by limiting times of
operation.
3.66 Noise can have a significant effect on the environment and the quality of life enjoyed by
individuals and communities. The Council will seek to restrict proposals which contribute to
excessive noise generation, and ensure that noise-sensitive developments are separated from
major sources of noise. This will be achieved in accordance with PPG 24: Planning and Noise
and the Council’s SPG 19: Noise Attenuation Guidelines. These guidelines will be a material
consideration in the determination of planning applications.
3.67 SE23 Light Pollution
In order to minimise light pollution, full details will be required where external
lighting is likely to be required as part of a development. External lighting scheme
proposals, including floodlighting, will only be approved where it can be
demonstrated that:
a) the scheme proposed is the minimum needed for security and/or operational
purposes;
b) it minimises the potential pollution from glare and light spillage;
c) there would be no adverse impact on residential amenity;
d) there would be no adverse impact on the character or openness of the Green
Belt;
e) it would not adversely affect ecological interests;
f) there would be no dazzling or distraction of users of roads and waterways; and
g) it complies with Policies U1, U2, U3, U4 and U5.
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The Council may grant permission subject to conditions minimising the impact of
external lighting on the safety and amenity of surrounding areas. These may include
better technology, controlling the times of operation, or the design of landscaping.
3.68 Floodlit buildings can add interest to towns and lighting can improve security and
community safety. Recreational and leisure facilities, such as sports playing facilities, may
require floodlighting and this can optimise their use and viability. However, light spill from
such installations can result in what is termed ‘light pollution’. Adjoining residential
properties can be adversely affected through night time disturbance. Appearance of
multiple masts and columns may erode visual amenity. Lit facilities may also have a
detrimental effect on wildlife, disturbing nocturnal mammals and insects and impairing the
navigational ability of birds. The Institute of Lighting Engineers publishes guidance notes
and standards for Reduction of Light Pollution.
3.69 SE24 Unstable and Contaminated Land
The Council expects applicants for planning permission to disclose information
regarding the possible contamination or instability of a site. Where it is only
suspected that the site may be contaminated, or where there is evidence that there is
only slight contamination, the Council will impose a condition on any planning
permission granted to require a site investigation and assessment prior to
development. Where it is known or strongly suspected that the site is significantly
contaminated, the Council will require a risk-based site assessment and, if
necessary, proposals for remedial works prior to determining an application for
planning permission. Where decontamination or maintenance cannot be guaranteed
to have no adverse effect, permission for development on contaminated land will be
refused. Where a site investigation reveals contamination which represents
unacceptable risk to any receptor, applicants will be required to submit proposals for
the safe development of the site, including appropriate risk management options and
the maintenance of pollution prevention measures.
The Council should also be satisfied that measures have been taken to ensure that
the proposed development will not lead to land instability during works or following
completion in accordance with PPG14: Development on Unstable Land.
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The Council may consult with appropriate organisations in order to properly assess
the information provided by applicants, and will have regard to expert advice offered
when determining applications for development.
3.70 The potential for ground instability or contamination will be considered in relation to all new
developments. Both past and present uses of land can create problems of land
contamination, which is particularly associated with historic waste disposal, industrial
activities and sewerage treatments. This plan cannot define areas where specific
consideration of instability or contamination will be required, because local ground
conditions can vary considerably and evidence of contamination is sometimes only found
on close examination of the site. However, applicants should take into account previous
uses on the land or adjacent land when considering whether contamination might be
present.
3.71 Applicants should also seek expert advice on the possibility of instability affecting their
proposals, particularly in areas close to natural or artificial steep slopes, landfill sites and on
certain soil types (e.g., highly shrinkable clays and some river valley deposits). The Council
should be satisfied that any proposal will not contribute to land instability. Contamination
may also limit the type of development that can take place. Applicants should consult the
Contaminated Land Officer within the Council’s Environment, Health and Licensing
Department who will advise on specific requirements appropriate to the site.
3.72 The possible or potential effects of land contamination and instability on health and the
environment (including water supplies and resources) must be fully taken into account
when considering development proposals. Wherever possible and practical, sites which
are known or found to be contaminated shall be reclaimed by removal or treatment, or the
source of contamination contained, and the site brought into safe and beneficial use.
3.73 When considering development applications where there is potential for contaminated land,
the Council will have regard to the Environmental Protection Act 1990 (Part 11A), the
Contaminated Land Regulations 2000, PPG 23 (Planning and Pollution Control) and DETR
Circular 2/2000. Under the ‘polluter pays’ principle the costs of carrying out any remediation
works are likely to fall on those responsible for the contamination, or those with a capital
interest in the land, although the responsibility for remediation will be established on a case
by case basis in accordance with the Council’s Statutory Contaminated Land Strategy and
the relevant legislation.
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3.74 It should be noted that the Council also has responsibilities for managing contaminated
land outside the planning process, pursuant to the above legislation and statutory
guidance. For example, the Council has a duty to identify contaminated land within the
Borough, and to produce and implement a Contaminated Land Strategy, which outlines
how this identification of contaminated land will be addressed. It is the Council’s intention
that contamination issues within the Borough will be appropriately addressed through both
the planning and non-planning functions.
3.75 SE25 Potentially Hazardous or Polluting Development
Proposals for potentially hazardous or polluting development will only be permitted
where the Council is satisfied that there will be no risk to public health or the
environment and no significant adverse effects on the general amenity resulting
from release to water air or land, or from noise, dust, vibration, heat or light.
Proposals should be accompanied by an EIA (refer to Policy SE3: Environmental
Impact Assessments).
The Council will also have regard to the following criteria when determining planning
applications:
a) Need for development in connection with existing industrial or waste
management facilities in order to meet statutory environmental standards and
objectives.
b) Wider economic and social need for the proposed development.
c) The feasibility of securing pollution and nuisance controls during the lifetime of
the use, and restoration of the land so that it is capable of an acceptable and safe
after-use.
d) The ability to locate the proposed use at a significant distance from houses and
other pollution-sensitive land uses. The Council will take into account existing
land uses and areas designated in the Plan for these pollution-sensitive uses.
a) 3.76PPG23: Planning and Pollution Control and DETR Circular 11/92:
Planning Controls for Hazardous Substances, states that it is the role of planning to
regulate land uses and that potential pollution risks are the responsibility of the
relevant licensing Authority. However, it is recognised that local planning authorities
have an important role to play by:
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a) regulating the location of development and the control of operations in order to avoid or
minimise adverse effects on the use of land and the environment;
b) controlling other development in proximity to potential sources of pollution;
c) determining substances under the Planning (Hazardous Substances) Act 1990 and
associated Regulations, which places specific controls over the storage and use of
hazardous substances; and
d) ensuring that inappropriate development does not take place on contaminated land.
3.77 NOTE: NOTIFIABLE INSTALLATIONS
Certain pipelines are designated as notifiable installations by virtue of the quantities of
hazardous substances stored, used or transported.
3.78 In accordance with the Planning (Hazardous Substances) Regulations 1992, Regulations
7-12 of the Control of Industrial Major Accident Hazards Regulations 1984 (as amended),
the Notification of Installations Handling Hazardous Substances Regulations 1982 the
Council will consult the Health and Safety Executive about any proposed notifiable
installation and about any proposed developments in the vicinity of existing notifiable
installations. The consultation distances are specified in SPG 20: Notifiable Installations.
THE WATER ENVIRONMENT
3.79 SE26 Watercourses
The Council will support in principle initiatives which protect and enhance
watercourses, river corridors, floodplains, water meadows and open water areas.
Where possible, through stewardship schemes, land adjacent to rivers, natural
watercourses and edge treatments will be appropriately landscaped and restored.
Development proposals should not detract from public access to river corridors,
leisure use of water features, wildlife habitat corridor linkages and biodiversity
objectives. The Council will resist proposals to culvert, encroach, or divert
watercourses. Where feasible, the Council will require an appropriately-sized ‘buffer
zone’ to be provided for any development adjacent to a watercourse.
3.80 Watford Borough’s main watercourses are the River Colne, River Gade, Grand Union
Canal and their tributaries.
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3.81 SE27 Flood Prevention
The susceptibility of land to flooding is a material planning consideration. In
accordance with PPG 25: Development and Flood Risk and SPG24: Flood Risk
Management, the Council will resist any development which has potential to
contribute to flood risk and have an adverse impact on river channel instability or
damage to wildlife habitats. Built development in the functional flood plain, where
excess water flows or is stored at times of flood, should be “wholly exceptional” and
limited to essential infrastructure that has to be there. The extent of the floodplain is
either defined by the Environment Agency (and shown in SPG 24: Flood Risk
Management) or, where there is insufficient flood risk information, the onus will be
on the applicant to carry out a satisfactory flood risk assessment to establish the
extent of the functional flood plain.
Applications likely to require particular consideration of flood risk issues include
those for development:
a) shown on an indicative flood plain map prepared by the Environment Agency;
b) within or adjacent to any watercourse, particularly where there may be potential
for flash flooding;
c) adjacent to or including any flood bank or other flood control structure;
d) situated in an area where the Agency has indicated that there may be drainage
problems;
e) likely to involve the culvert or diversion of any watercourse;
f) of such a size or nature relative to the receiving watercourse/ drainage system
that there could be a significant increase in surface water run-off from the area,
including the cumulative effect of smaller developments; or
g) which, due to a change of use or otherwise, would increase the number of people
at risk within the flood plain.
Applicants pursuing a development proposal identified by the Environment Agency
to be within an area of flood risk should first consult with the Agency on the potential
risks to their development, the likely effects of their proposals on others, and on
whether mitigation would be likely to be effective and acceptable. A flood-risk
assessment should be carried out. This may require detailed hydrological and
hydraulic investigations to determine the risks at particular sites, and to inform the
process of detailed design and the selection of mitigation measures.
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In considering development proposals, the Council will take into account matters
including:
a) advice from the Environment Agency as the lead agency on this matter, and other
agencies as appropriate;
b) the sequential test in allocating priority or permitting sites for development (see
PPG 25 and SPG 24: Flood Risk Management);
c) the potential for restoration of functions to flood plains to contribute to more
sustainable flood management, as well as amenity landscape and biodiversity
objectives (see Policies SE33: Nature Conservation and Biodiversity and SE30:
Surface Run-off and Sustainable Drainage systems);
d) consideration of flood risk and its management needs applied on a whole
catchment basis, and not restricted to flood plains;
e) any flood defences or mitigation works to be met by the developer;
f) the extent to which the applicant has demonstrated that they have applied the
guidance contained with in Appendix E of PPG 25 on Sustainable Drainage
systems.
The Council will use conditions and planning obligations where appropriate to
minimise potential for flood risk. The Council will apply the precautionary principle
to the issue of flood risk in planning decisions (see Paragraphs 12.4 – 12.6:
Precautionary Principle).
3.82 On both a national and global scale damage from flooding is greater than from any other
natural disaster. Changes in river hydrology due to human activity, changes in land
management and the increase in development in areas of risk have contributed to
worsening flooding both in frequency and scale. Further, climate change has introduced a
degree of uncertainty in the potential for escalation of this problem. The Council will seek to
ensure that flood risk will be properly taken into account in the planning of developments to
reduce the risk of flooding and the damage which floods cause.
3.83 In accordance with policies in the Hertfordshire Minerals Local Plan (1991-2006) and
SPG24: Flood Risk Management, there is a presumption against development in the flood
plain. Development in the functional flood plain should be wholly exceptional, and
consistent with broader sustainability objectives.
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3.84 SPG 24: Flood Risk Management will incorporate mapping of Areas of Local Flood Risk
(following Environment Agency advice), and application of the ‘sequential test’ to such
areas. Subsequent modelling information will be used to provide detail of the:
a) Functional Flood Plain- where water flows and is held at times of flood;
b) Identification of sites where restoration of functions to flood plains could contribute to
more sustainable flood management, as well as amenity landscape and biodiversity
objectives.
3.85 The Council will liase with the Environment Agency, which is the lead authority on this matter,
to ensure the community receives precise and up-to-date advice.
3.86 In cases where other material considerations outweigh the risk of flooding and point to a
proposed development being permitted, any necessary and appropriate flood defences or
flood mitigation works should normally be fully funded by the developer and at no public
expense. In such cases, planning obligations would only be appropriate where agreement
is reached on the provision of that contribution between the Council, the Environment
Agency and other relevant authorities. Where no agreement is reached, the application
should be refused in accordance with the precautionary principle.
3.87 SE28 Groundwater Quality
Development that would be likely to pollute the aquifer or unduly affect the water
table will not be granted permission. Where there may be a risk to groundwater
quality, flow or volume, the Council will apply the criteria outlined in the Environment
Agency publication ‘Policy and Practice for the Protection of Groundwater’ (and
subsequent guidance), PPG 12: Development Plans (5-288), and other relevant
legislation and policies of this Plan.
3.88 The Borough is underlain with a highly permeable aquifer which is the main drinking water
resource for the area. This valuable resource is highly susceptible to urban pollutants,
particularly near the River Colne. The EC Groundwater Directive (1980) and the Water
Resources Act 1991 provide the key legal restriction on groundwater pollution, the
application of which extends generally outside the remit of land use and development
planning. However, PPG 12: Development Plans highlights the important role local
authorities play in the protection of aquifer and water table resources in the context of
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development proposals. Council will be guided by the advice of the Environment Agency on
this matter.
3.89 SE29 Utilities Infrastructure
The Council will only permit development proposals where the water supply,
sewerage system and associated utilities infrastructure has sufficient capacity and
design to meet the anticipated increase in demand.
The development of new utility infrastructure including an extension to facilities and
works, will be permitted if:
a) the proposal is an environmentally acceptable way of achieving the purpose of
development;
b) the amenity of nearby occupiers is not harmed;
c) measures to ameliorate detrimental environmental impact of development are
incorporated in the proposal;
d) proposals demonstrate the clear separation of foul water sewer and surface
water, which is agreed following consultation with the relevant drainage authority
(see Policy SE30: Surface Water and Sustainable Drainage systems) ;
e) connections to the public sewerage system do not pose an unacceptable threat
of surcharge, flooding and pollution; and
f) any non-mains sewerage systems comply with Circular 3/99 and Policy SE28
(Groundwater Quality).
The Council may use planning conditions to ensure that necessary utility
improvements or the provision of new utilities infrastructure has been undertaken
prior to commencement of the proposed activity on the development site.
3.90 Thames Water Utilities Ltd is responsible for sewerage and associated utility infrastructure.
PPG 12: Development Plans requires that local authorities consider both the requirements
of the utilities for land to enable them to meet the demands that will be placed upon them
and the environmental effects of such additional uses. It is noted that failure to separate
surface water drainage from foul water is the major cause of sewer flooding.
3.91 Note: Thames Water Utilities Ltd require development to take account of the following:
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a) Trees and shrubs should not be planted over the route of sewers (See Policies SE35 to
SE40 and SPG 26: Trees and Development);
b) 24 hour vehicular access is required to all pedestrian areas to undertake emergency
works. Access to the sewerage infrastructure must not be impeded by street furniture;
c) Grease traps are to be installed in all catering establishments and regularly cleaned and
maintained.
3.92 Circular 3/99 (Non-Mains Sewerage Systems) indicates that the first presumption for
sewerage proposals must be to provide a system of foul drainage discharging into a public
sewer. If a developer can satisfy the Council that connection to the public sewer is not cost
effective and/or practical, the Council may consider the use of non-mains sewerage
systems that involve secondary or tertiary treatment. The Council will only consider the use
of septic tanks if the above options can be clearly demonstrated to be unfeasible.
Paragraph 6 of Annex A to Circular 3/99 outlines the factors that the Council will take into
account when considering a proposal for non-mains drainage. Such discharges must also
comply with other policies of this Plan, in particular, Policy SE28 (Groundwater Quality).
3.93 SE30 Surface Water Run-off, Water Conservation and
Sustainable Drainage Systems
When assessing proposals for development, the Council will have regard to
sustainable drainage and water conservation practices.
Applicants for development will be expected to show that they have had regard to
water conservation and sustainable drainage systems in the design for their
proposals. This may include:
a) minimising external hard surfaces and giving preference to permeable surfaces;
b) channelling run-off over absorbent ground and design of specific features
including watercourses and holding ponds. Alterations to ground levels should
not aim to increase the rate of drainage or be likely to pollute the water
environment;
c) water storage and recycling of run-off (e.g. WC operation, irrigation and car
washing), particularly for uses which are likely to generate high water demand;
d) for major developments, on-site or near site reed bed treatment of grey water.
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The Council will work closely with the Environment Agency (EA), Thames Water
Utilities Ltd (sewerage services), Three Valleys Water Plc (water services), British
Waterways (Grand Union Canal) and prospective developers and landowners to
encourage the use of Sustainable Drainage Systems (SuDS).
Development proposals which incorporate SuDS and designs which improve the
amenity and biodiversity in urban areas will be particularly encouraged. (See Policy
SE33: Nature Conservation and Biodiversity). The Council will encourage the use of
suitably designed water storage and recycling facilities, particularly for uses which
are likely to generate high water demand.
3.94 All built development tends to extend the area of impermeable ground, from which water
runs off rather than percolating into the ground. This can increase both the total flow and
the peak flow of run-off from built-up areas, resulting in increased flows downstream and
thus increasing the risk of flooding. Replacing vegetated areas by roofs, roads and paved
areas notably contributes to run-off.
3.95 Many existing urban drainage systems are damaging to the environment and are not,
therefore sustainable in the long term. SuDS are physical structures which enable surface-
water run-off to be controlled and treated as near to the source as possible, using the
natural processes of sedimentation, filtration, absorption and biological degradation. They
focus decisions about drainage design, construction and maintenance on the quality of the
receiving environment and people.
3.96 Techniques which ‘fit’ to most urban contexts include:
(a) preventative measures - good design including rain-water recycling (e.g.
waterbutts);
(b) permeable conveyance systems - including underground filter drains and
surfacewater swales; and
(c) “end of pipe” systems- including filter strips and retention ponds.
3.97 Design should also recognise the relationship between groundwater and surface water (see
Policy SE28: Groundwater Quality).
Ecology and Nature Conservation
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3.98 The protection, enhancement and appreciation of the natural elements of our environment
are central to the Plan’s objectives and aim of achieving sustainable development.
Diversity of wildlife both within and adjacent to the built environment adds to our quality of
life, provides a valuable environmental education resource and helps to ensure the well
being of our locally native wildlife.
3.99 SE31 Species Protection
Planning permission will not be granted for development which could have an
adverse impact on badgers or species protected by Schedules 1, 5, and 8 of the
Wildlife and Countryside Act 1981, as amended, and the Habitats Regulations 1994,
unless it can be clearly demonstrated that there are reasons for the proposal which
outweigh the need to maintain the unaltered and undisturbed habitat of the affected
species.
Where proposed development could have an adverse effect on such species, the
submission of an Environmental Impact Assessment will be required with the
application. Where such development is permitted, the Council will seek to ensure
that any necessary measures are taken to:
a) facilitate the survival of the species;
b) minimise disturbance;
c) provide adequate alternative habitats to sustain at least the current levels of
population; and
d) resist breaking a habitat corridor which would lead to fragmentation of the
wildlife population base.
Such measures must be within the control of the developer and subsequent site
owners and operators, unless a formal agreement for management of the
conservation features of the site has been made with an appropriate body.
3.100 The Wildlife and Countryside Act 1981 and Habitats Regulations 1994 specify protection for
certain species of flora and fauna including the local species of bats, great crested newts,
water voles and otters. Badgers are protected under the Badgers Act 1992. Further, the EC
Directive on the Conservation of Natural Habitats and of Wild Fauna and Flora (Directive
92/43/EEC) requires UK Government Protection in accordance with articles 12-16. This
Council will consult with English Nature at an early stage where there is potential for
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development proposals to affect protected species. Landowners and developers are
encouraged to seek early advice from English Nature when considering any development
proposal which may impact upon protected species.
3.101 The policies of this section aim to prevent damaging developments and provide certainty to
developers, as far as possible. Where such proposals can be justified, the approach will be
to minimise harm and replace or recreate as appropriate, through the use of planning
conditions and obligations.
3.102 SE32 Sites of Nature Conservation Importance
a) National Sites: Proposals for development in or likely to affect Sites of Special
Scientific Interest (SSSI) will be subject to special scrutiny. Where such
development may have an adverse effect, directly or indirectly on the SSSI it will
not be permitted unless the need for the development clearly outweighs the nature
conservation value of the site itself and the national policy to safeguard the
national network of such sites.
b) Local Sites: Proposals for development likely to have an adverse effect on a Local
Nature Reserve (LNR), County Wildlife Site, Regionally Important Geological/
Geomorphological Site (RIGS), Wildlife Corridors, River Corridors (including
banks) and Urban Forestry Site, as shown on the Proposals Map (or through
subsequent designation and recognition), will not be approved unless the need for
the proposal clearly outweighs the need to safeguard the substantive nature
conservation value of the site.
Where such development or land use change is permitted which would damage the
nature conservation value of the site or feature, such damage should be kept to a
minimum. Where appropriate, the authority will impose conditions and/ or planning
obligations to mitigate or compensate for any harm caused.
3.103 Watford Borough does not contain a SSSI. However, there are two sites with this
national designation adjacent to the Borough boundary in Three Rivers District. These
are Whippendell Woods (managed by Watford Borough Council) and Croxley Common
Moor, which require special scrutiny when nearby developments are proposed.
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3.104 The Countryside and Rights of Way Act 2000 gives local authorities the power to acquire,
declare and manage Local Nature Reserves in consultation with English Nature. The
Council has designated the following areas as Local Nature Reserves;
- Lairage Land (4.7 ha), West Watford
- Harebreaks Wood (5.4 ha), North Watford
- Land within Cassiobury Park (14 ha).
A further 12 ha of Cassiobury Park, outside of the LNR, is under conservation management
to increase biodiversity. The Council is also in the process of designating the following
areas, which have English Nature’s approval, as LNRs;
- Alban Wood
- Garston Park
- Paddock Road.
3.105 These LNRs offer an accessible habitat and an educational resource. English Nature
recommends a minimum level of 1 LNR per 1000 of population. The Council will support
work with local groups, residents and English Nature for further site designation during the
life of this Plan. The Colne River Valley (see Policy SE18: Colne Valley Linear Park) and
other county wildlife sites, are key examples of sites suitable for potential LNRs.
3.106 PPG 9: Nature Conservation (Paragraph 24) states that “plans should not only be
concerned with designated areas but also with other land of conservation value”. Further,
“urban sites for nature conservation have an enhanced local importance as a consequence
of the relative lack of wildlife sites in built-up areas” (Paragraph 14). County Wildlife Sites
[also referred to as Sites of Importance for Nature Conservation (SINCs)] are identified on
the Proposals Map. These sites are of substantive importance for nature conservation as
they have been shown to satisfy criteria which recognises key habitat and species in the
HBRC/ HMWT 1998 ‘Habitat Survey for Watford Borough’, also referred to as the ‘Phase
One’ survey. Enhanced detail of Wildlife Sites, Wildlife Corridors (important green linkages
or ‘wedges’ between key habitat sites), Urban Forestry Sites, Ecological Alert Sites, and
amenity greens, and the identification of Urban Survey Sites, is provided by the ‘Habitat
Survey for Watford’ (also referred to as the ’Phase Two’ survey). The Phase Two survey
also includes techniques for creating and enhancing habitats, and guidance for new
development which will support urban wildlife. Both documents are a material
consideration in the determination of development proposals and will be used as non-
statutory guidance.
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3.107 Protection and management of Sites of Nature Conservation Importance may be achieved
through the mechanisms outlined in Policy SE33: Nature Conservation and Biodiversity
Enhancement.
3.108 SE33 Nature Conservation and Biodiversity Enhancement
Where the effects of a proposed development are unclear or uncertain, or where
there may be significant adverse impact on nature conservation interests, the
Council will require applicants to provide comprehensive information before
determining the application. This may require the submission of an Environmental
Impact Assessment (See Policy SE3: Environmental Impact Assessments).
The Council will encourage the positive management and enhancement of all sites of
nature conservation interest (See Policy SE32: Sites of Nature Conservation
Importance), and may, where appropriate, seek to enter into a management
agreement with landowners, operator or suitable body. Such management of
conservation features may be secured as part of the development control process
through planning conditions and/or obligations. The Council may also apply to the
Secretary of State for an ‘Article 4 direction’ where the presence of ecological
features exists.
SPG12: Landscape Guidelines recognises that new development can produce
opportunities for the establishment of wildlife corridors or ‘green wedges’ of local
habitat value, and urban wildlife gardens.
3.109 The Council recognises the educational and wider community benefits associated with
nature conservation and will seek to realise opportunities for habitat creation, retention and
sensitive management, particularly within urban areas. Where possible, appropriate forms
and levels of access to nature conservation sites will be encouraged. Where appropriate,
sites will be designated as statutory sites or recognised through the Plan and supporting
surveys as of local habitat value. Wildlife corridors connecting areas of habitat value will
similarly be identified, provided with interpretive material, managed and enhanced.
3.110 The Council will consult with English Nature, the Hertfordshire Biological Records Centre
(HBRC) and other appropriate bodies to seek to improve the Borough’s ecology and
habitat resource. The Hertfordshire Biological Records Centre (HBRC) is the primary
source of information and advice on the ecology of the Borough. When considering
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applications that may affect sites or species of nature conservation interest, the Council will
consult with the HBRC. Developers and landowners are also advised to contact the HBRC
at the earliest opportunity to establish whether their proposals are likely to have implications
for nature conservation, and for guidance on appropriate management techniques. In
addition, the Environment Agency has consenting powers under the Land Drainage Act for
land within eight metres of a watercourse. The Agency is required to take into account
conservation matters as part of this process. The Council will treat the Agency’s position
on conservation matters and whether it will grant consent as a material consideration when
determining a planning application.
3.111 Guidance will be provided through the Hertfordshire Biodiversity Action Plan. In accordance
with PPG9: Nature Conservation, the UK indicator species and local context will be
incorporated into the Watford Local Biodiversity Action Plan (LBAP). The LBAP will include
elements of a Nature Conservation Strategy, Phase One and Two Habitat Studies, local
studies of key indicator species and that of an Urban Forestry Strategy which will form
Supplementary Planning Guidance to this Plan.
TREES, WOODLANDS AND HEDGEROWS
3.112 Trees, woodlands and hedgerows have a very important role in the environment and their
loss through development should be avoided or mitigated. Trees and woodlands in towns
can make a significant environmental contribution without the need to occupy substantial
areas of land. They provide valuable wildlife habitats, can soften the visual appearance of
developments, and help reduce atmospheric pollution and the transmission of noise, greatly
adding to the character and attractiveness of an area. This resource must be retained,
protected and enhanced.
3.113 It is important that consideration is given to the retention of trees and other landscape
features throughout the development process. The ODPM publication “Tree Preservation
Orders: A Guide to the Law and Good Practice” sets out the relevant national policy advice
and advises local authorities on good practice. The Council will prepare Supplementary
Planning Guidance on Trees.
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3.114 SE34 WATLING CHASE COMMUNITY FOREST
Within the defined area of the Watling Chase Community Forest, as shown on the
Proposals Map, development proposals should contribute to the objectives of the
Forest Plan.
3.115 The Watling Chase Community Forest is located on the Eastern fringe of the Borough,
adjoining Hertsmere District Council. It is a multi-purpose forest combining the sustainable
production of timber with wildlife conservation and environmental enhancements. The
Forest Plan, approved by the Department of the Environment in 1995 and reviewed in
2001, is a material consideration in the determination of development proposals. Any
development should therefore respect the forest setting. The Council will work with the
relevant authorities to achieve the objectives of the Forest Plan.
3.116 SE35 URBAN FORESTRY
The Council will seek to promote the development of pockets of urban woodland
within the Borough, especially within the designated Green Zones and Green Wedge
(as shown on the Proposals Map), through the preparation and implementation of a
strategy for Urban Forestry, encouraging urban forestry style planting through
development briefs and planning obligations.
3.117 Watford’s predominantly urban environment can be enhanced through the encouragement
of urban woodland with trees and woodland being readily incorporated into the existing
fabric of the built environment. This need not be on a large scale but, for example, can
include tree cover in parks, school grounds, some roadside verges and car parks. The
Council will particularly encourage tree planting within the Green Wedge as shown on the
Proposals Map. The Green Wedge initiative will link in with an Urban Forestry strategy,
which will help to secure additional tree cover and promote public awareness of woodland
areas, supporting the Watling Chase Community Forest.
3.118 SE36 Replacement Trees and Hedgerows
The Council will discourage the loss of trees, especially within Green Zone areas. If
the retention of existing trees is not appropriate, the Council will require (through
condition and/or planning obligations) replacement through planting of an
equivalent and appropriate type, within the landscape scheme for the site or in
exceptional cases elsewhere within the Borough. It will be a requirement that such
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additional planting is maintained, ensuring that any tree which should fail within a 5
year period from the date of planting and/or subsequent replanting be replaced.
Any hedgerows removed to enable development to take place must also be replaced
by planting of an equivalent and appropriate type.
3.119 Trees and hedgerows fulfil a very important role within urban environments such as
Watford. As well as contributing to amenity, they also contribute to atmospheric
improvements, either through the absorption of traffic particulates, or, to a much lesser
degree, through carbon dioxide (CO2) fixing. The Council will therefore seek the protection
of existing trees and hedgerows, or, where necessary, their replacement.
3.120 Exceptional cases may occur where the planting of replacement tree cover is not suitable
for a development due to area, landscaping or other similar constraints. Where this is the
case a suitable alternative site will be sought where tree cover will be beneficial, for
example as part of an Urban Forestry Strategy.
3.121 SE37 Protection of Trees, Woodlands and Hedgerows
The Council will seek the retention of trees, woodland and hedgerows through the
use of planning obligations or planning conditions. In the case of trees which
contribute significantly to the amenity of the area the Council will make Tree
Preservation Orders, ensuring that they are not felled, or pruned to the detriment of
the environment and ensure their replacement should felling become necessary.
Wherever appropriate, new planting with locally native species within development
sites, along site boundaries and highway frontages as part of development
proposals will be required.
3.122 The Council places a high priority on protecting trees, woodlands and hedgerows and
adding to the existing stock to secure continuity for future generations. Trees subject to
Tree Preservation Orders (TPOs) are protected by law requiring the consent of the Council
before potentially harmful works can be carried out on them. During the period of this Plan
the Council will seek to protect trees within the Green Zones and Green Wedge by the use
of TPOs. In Conservation Areas, the law requires that works to trees over a certain size
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can only be carried out after the Council has been notified in order for them to consider
applying a TPO.
3.123 In accordance with Hertfordshire’s Woodland Strategy, new tree planting of locally native
species will be required as part of development proposals, particularly in the Watling Chase
Community Forest (see Proposals Map and Policy SE34), in the Green Wedge (see
Proposals Map and Policy SE35) and where appropriate in landscaping schemes (see
Policy U6 and SPG12: Landscape Guidelines).
3.124 Locally native species are those found naturally occurring in the Watford region, and which
have not been introduced from other areas. These include broadleaved species.
3.125 The Hedgerows Regulations 1997, are intended to protect those hedgerows defined as
being important and the removal of some hedges in the countryside will require permission
from the Council. In cases where hedgerows are removed without permission the Council
will investigate and will prosecute offenders.
3.126 As part of the Council’s Local Biodiversity Action Plan and Quality of Life Baseline Report
(see Paragraph 12.39) a survey to ascertain the extent and quantity of the Borough’s tree
stock and hedgerows will be carried out as resources permit.
3.127 SE38 ACCESS TO WOODLANDS
The Council will encourage provision for appropriate public access to new and
existing woodlands and forests in the Borough and adjoining areas.
3.128 The Council recognises the importance of community access to wildlife, woodland and
recreational sites. In order for the resource to be valued and preserved, the Council will
consult with other authorities including English Nature so that this is achieved in an
ecologically sensitive manner.
3.129 SE39 Tree and Hedgerow Provision in New Development
Development proposals must show consideration to the retention and protection of
trees and hedgerows throughout the development process. Consideration must be
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shown to Hertfordshire Structure Plan guidance on design to ensure the healthy,
long-term growth of retained tree cover and new planting. On sites containing trees
and hedgerows the Council will expect a planning application to be accompanied by
a tree and hedgerow survey providing the following information:
a) the location of all trees, hedgerows and shrub planting, including those on
adjoining land, where the root or branch systems may be affected by the
proposals;
b) species, heights, trunk girth, crown spread of each existing individual tree or
group of trees and hedges;
c) age, condition, vigour and amenity value of the existing trees;
d) a clear indication of which trees/hedges are to be removed, those to be retained
and those proposed; and
e) where appropriate a plan for the protection of trees, hedgerows and shrubs
throughout the construction of the development in accordance with advice
contained in the British Standard Institute code of practice “Trees in relation to
Construction” (BS5837:1991) or any amendment thereafter.
Adequate protection should be provided to trunks, root systems and limbs
throughout the period of construction.
3.130 The design must consider the future growth needs of the roots and crowns of trees and
hedgerows. Sufficient space must be provided between trees and hedgerows and
buildings, roads/footpaths and parking areas to enable the implementation of the
development to take place without affecting the existing and proposed landscape features.
It must be ensured that health is not endangered by water deprivation.
LANDSCAPE CHARACTER AREAS, GREEN ZONES AND
HOME ZONES.
3.131 SE40 LANDSCAPE CHARACTER AREA ASSESSMENT
Development proposals should take account of the particular characteristics of the
landscape regions and Landscape Character Areas in which they are located. The
effect of the setting, siting, design and external appearance of development on the
character and quality of the landscape will be a consideration in planning
applications.
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The Council will seek the retention, management and reinstatement of typical
landscape features and where possible, encourage removal or measures to lessen
the impact of structures or other features detrimental to the character or quality of
the landscape within the Borough. More detailed guidance of the areas will be
provided as Supplementary Planning Guidance. The Council will work with the
Landscape Unit of Hertfordshire County Council, its neighbouring authorities and
other organisations and community groups to refine the boundary and/or description
of each area, and to preserve, enhance or restore the character of each of these as
defined by the Hertfordshire Landscape Strategy Volumes 1 and 2.
Landscape Regions within Watford Borough are:
- The Central River Valleys (Region 5)
- The South Hertfordshire Plateau (Region 6)
Landscape Character Areas (see Map 1A) within Watford Borough are:
Croxley Moor (Area 5)
Bedmond Plateau (Area 9);
Lower Gade Valley (Area 11);
Bushey Hill Pastures (Area 14);
Ver/Colne River Valley (Area 17);
Bricket Wood (Area 18).
It is the Council’s intention to work in partnership with the County Council so that
more refined Landscape Character work is carried out to cover the Urban areas
excluded from the Volume 2 study.
3.132 Landscape Character Area assessment attempts to provide a more holistic and
comprehensive consideration of land use planning in contrast to isolated special or
restrictive landscape designation. The initial assessment emerged from the Countryside
Agency and English Nature’s work on “Natural Areas”, based on the combination of soil
types, ecological zones and land use patterns. Watford Borough forms part of the London
Basin. This was further defined by Hertfordshire County Environmental Information Service
(based on land form, topography, soil types, vegetation and habitats) Volume 1 study into
Region 5: The Central River Valleys and Region 6: The South Hertfordshire Plateau.
Pursuant to the Hertfordshire Structure Plan, landscape at this regional scale should be
taken into account.
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3.133 The Hertfordshire Landscape Strategy Volume 2: Landscape Evaluation and Guidelines for
Southern Hertfordshire provides a more fine-grained characterisation defining six
Landscape Character Areas affecting the green corridors in Watford. The approach is a
recognition that change and development in the country’s landscape is steeped in a history
of working with natural constraints, and that planning for sustainable development needs to
take account of this. The classification outlines landscape boundaries for the purposes of:
a) advising on development control and policy development for future development
plans; and
b) providing a framework for other landscape planning, regulation and management.
3.134 SPG26: Landscape Character Areas provides detail of each of the listed character areas.
The Council will work in partnership with the County Council and other organisations for
further refining of defined areas and future description of Watford’s urban areas.
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Map 2 – Landscape Character Areas
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3.135 SE41 Green Zones
The Council will seek to designate further Green Zones in consultation with
residents, businesses, the Police and Hertfordshire County Council.
Within identified Green Zones, the Council will seek appropriate measures to
improve road safety, personal safety and facilities for pedestrians, cyclists,
passenger transport users and safe routes to schools.
The Council may impose conditions or obligations to achieve an enhanced
environment including:
a) improvement of air quality (see Policy SE20: Air Quality);
b) creation of pocket parks/ play areas/ open space/ youth facilities (see Policies
L7-L10);
c) introducing public art (see Policy U8: Public Art);
d) providing the use of safer routes and access for non-motorised travel (see
Policies T6-T7: Pedestrian facilities, and Policies T9-T10: Cycling);
e) a safer means of highway access and use of appropriate measures to reduce
the volume of through vehicular traffic;
f) improved passenger transport provision (service and facilities).
3.136 A Green Zone is described as a residential neighbourhood which is targeted to become a
safer, cleaner and more attractive place to live. The street scene will no longer be
dominated by motor vehicles. Local residents are involved in the process by helping to
identify current concerns and then being partners in the development of any solutions.
3.137 The Central Area Green Zone covers the area of central Watford bounded by the
West Coast main railway Line, St Albans Road and the town centre. It includes Watford
Junction Station, Central Primary School, Watford Police station, Queens Roads shopping
centre and adjacent residential and business areas.
3.138 Oxhey Village Green Zone covers the area bounded by Chalk Hill, Attenborough
Fields, the allotments and the West Coast main railway line. It includes Oxhey Village, Oxhey
Green, Watford Heath, Wilcott Avenue, Elm Avenue and Oxhey Avenue.
3.139 The concept of West Watford being designated as a Green Zone is being explored.
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3.140 Aspirations for the Green Zones include:
safer roads with reduced dominance of the car;
improved facilities for pedestrians, cyclists and passenger transport users;
safer routes to school;
improved personal safety;
a more attractive environment;
improved air quality and reduced noise;
maintaining the local economy; and
involvement of the whole community in the process.
3.141 SE42 Home Zones
Within identified Home Zones the Council, in conjunction with the Hertfordshire
County Council, will seek to introduce 20 mph speed limits and related traffic
calming measures including road closures to ensure that priority is given to the use
of the residential street as a place to play, chat, sit, walk and cycle.
3.142 Home Zones are described as “people friendly” residential areas where cars take second
place to pedestrians, and especially children. Within the Home Zone, priority is given to
walking, cycling, chatting, sitting, playing and where cars can travel slowly and safely.
Residential streets can provide for all of these activities, but the growth in the speed and
volume of traffic can reduce and eliminate them. Home Zones seek to restore the full range
of activities to residential streets. Benefits of home zones include improved quality of life,
safety, health and sustainability. The Council, County Council and the police will work with
residents, businesses and other partners to identify residential streets which by their nature
is deemed suitable for designation as a Home Zone.
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CHAPTER 4: MOVEMENT
PLANNING FOR SUSTAINABLE MOVEMENT
4.1 An efficient and equitable transport system is essential for economic prosperity, to maintain
and improve the quality of life and to minimise the effect of movements on the environment.
A town’s way of life centred on the use of car travel is inefficient and environmentally
unsustainable. Everyday car use for trips to work, taking and collecting children from
school, shopping, leisure activities or acquiring daily services congests roads, creates
pollution, generates noise and visual intrusion, and adds significantly to emissions of
carbon dioxide into the atmosphere which contribute to global warming and reduces quality
of life.
4.2 The economic potential of Watford cannot be achieved if wealth-generating uses are
hindered by inefficient transport and high costs imposed by congestion and delay. The
transportation strategy for the area (South West Hertfordshire Transportation Study -
SWHTS) adopted by Watford Borough Council recognises the need to make efficient use of
the road and rail system, accommodating expected growth in transport need by means
other than the car, namely passenger transport, cycling and walking and encouraging a
reduction in car use. The Council is aware that an accessible and equitable transport
system which can lead to a reduction in the overall need to travel can only be achieved by
improving co-ordination between the complex network of transport facilities, meeting the
accessibility needs of all and improving links between transport and land use planning.
Implementation of the SWHTS will be an essential element for achieving this objective. The
strategy is a key part of the County’s proposals for the Hertfordshire Local Transport Plan
2001-2006.
4.3 Land use planning and transport planning policies must work together to enable
development to be served in the most efficient and effective ways, to tackle problems of
congestion and to safeguard the environment. The location and nature of new
development can affect the amount and method of travel. The layout and designs of new
development can also affect the choice of transport mode used to access each site.
4.4 This Plan is primarily concerned with the development and use of land and it is through this
and the Council’s influence with the County Council, which is responsible for most transport
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planning, and other agencies such as the Highways Agency, that it aims to influence
transport patterns and to reduce the need to travel.
4.5 Such a change away from the emphasis on car use and towards a reduction in the need to
travel through changing land use patterns, improvements in passenger transport and
cycling and walking facilities, traffic management schemes and a change in people’s
attitudes to car use will take a long time to achieve but is essential to the future prosperity
and well-being of the town, in ensuring equality of access for everyone and in helping to
safeguard the environment for future generations.
4.6 Without alternative effective means of travel and reduced dependence on the car,
businesses and residents in Watford could be placed at an economic disadvantage.
4.7 The success of the transport strategy will be judged on its ability to enable Watford’s
economy to prosper, its minimal effect on the environment, its ability to maintain and
improve levels of personal freedom and access for everyone and its contribution to safety.
The car will obviously continue to play an important role in personal transport, but within the
town it can no longer be catered for as the main mode of travel. Its use must be carefully
linked with other travel modes via transport interchange points enabling opportunity for
change between car, bus, train, foot and cycle. New development should be located so as
to reduce the need to travel or be within easy reach of interchange points. New
development must look towards encouraging greater use of non-car modes of travel. The
potential of the Grand Union Canal for the carriage of freight will not be overlooked.
4.8 Essential to encouraging less car use and an improvement in travel opportunities for non-
car users will be an improvement in passenger transport and cycling and walking facilities;
greater attention will be given to their needs when considering new development proposals.
4.9 The Council will also encourage a safe and high quality environment for road, rail and canal
corridors not only for an improved quality of life, and enhanced image of Watford to
travellers and visitors, but also for the benefit of wildlife and in reducing environmental
impact. This will be particularly important where any corridor is to be upgraded or altered
such as the proposed Croxley Rail Link.
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Integrated Transport White Paper
4.10 The Government's White Paper on Integrated Transport, which was published in July 1998,
sets out the Government’s aim of achieving an integrated transport system. The
Government hopes to achieve a sustainable transport system which will support policies for
increased employment and a stronger economy and which will help increase prosperity and
combat social exclusion. Environmental concerns such as global warming and pollution are
also key driving forces behind the White Paper, which plans to address global warming
through reduced CO2 emissions and pollution, particularly in residential areas.
Local Transport Plan
4.11 The cornerstone of the implementation of Government policy on integrated transport
planning is the Local Transport Plan. This is drawn up by the County Council in consultation
with Districts and other organisations. The Hertfordshire Local Transport Plan represents a
comprehensive and balanced approach to implementing Government policy at County
level, and it sets out proposals for delivering integrated transport over a five year period. It
covers the co-ordination and improvement of all forms of transport and sets out proposals
for the future and the implementation of specific measures.
South West Hertfordshire Transportation Study
4.12 The South West Hertfordshire Transportation Study was commissioned by Hertfordshire
County, Hertsmere Borough, Three Rivers District and Watford Borough Councils in
October 1994. The Study area includes all the Borough of Watford. This study has been
endorsed by, and is being implemented by Watford Borough Council and the other
partnership authorities. The objectives for the study are as follows:
improve the quality of life in areas where people live, work, and play by addressing
environmental issues relating to transportation;
assist in maintaining the vitality and viability of the commercial centres of South West
Hertfordshire;
promote and develop a transport system in conjunction with land use patterns which
provides for the movement of people and goods necessary for the economic and social
well-being of South West Hertfordshire’s residents; and
allow a proper assessment to be made of the impact of any future development
proposals and address future movement demands.
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4.13 The study aims to reverse movement problems raised by consultees within the study area.
These problems are as follows:
the consultees perceive traffic congestion to be a major problem and there is no
indication of any alleviation of this;
car parking and the problems caused by car parking is a significant local issue; and
the general perceptions towards passenger transport services are negative and that
these services do not provide a comparable alternative to the private car.
The Local Transport Plan and the SWHTS are supported by the Council and are reflected
throughout the land use and transport policies and objectives within this Plan.
SUSTAINABLE MOVEMENT OBJECTIVES
4.14 (1) To promote environmentally sustainable movement and to seek ways to reduce
the overall need to travel by integrating land use planning and transportation
planning.
(2) To seek to improve, in conjunction with all relevant agencies, the environmental
quality of transport corridors and increase their safety for all users.
(3) To meet the accessibility needs of all in a safe and sustainable manner.
(4) To improve co-ordination between the complex network of transport providers
and facilities.
(5) To accommodate the expected growth in transport need by means other than the
car, namely passenger transport, cycling and walking and to encourage the
minimal use of cars as a means of transport.
(6) To tackle congestion by influencing demand, integrating services, improving
access, developing interchanges, improving neighbourhoods, developing
partnerships, increasing awareness, maximising resources and supporting travel
choice.
4.15 T1 South West Hertfordshire Transportation Strategy
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The Council supports the proposals set out in the South West Hertfordshire Transportation
Strategy and these will be a material consideration in the determination of development
proposals.
4.16 Watford Borough Council is fully committed and working closely with Hertfordshire County
Council, Three Rivers District Council and Hertsmere Borough Council towards the
implementation of the South West Hertfordshire Transportation Strategy. Funding for
South West Hertfordshire Package was first awarded in 1996/97 with DETR having
contributed £4.1 million to date. The package is based around a combination of local
transport plans and area-wide strategies. The Highways Agency will be consulted on any
proposed development close to the trunk road network.
4.17 Within the Borough of Watford some of the key proposals are:
a) Park & Ride services to Watford town centre (although some sites are outside the
Borough boundary)
b) Watford Junction Interchange improvements
c) Travel Wise Initiatives
d) Croxley Rail Link
e) Improvement to passenger transport services
f) Leavesden Transport Plan
g) North Watford Transport Plan
h) Oxhey Transport Plan
i) West Watford Transport Plan
j) Green Route Proposals
k) Green Zones
l) Lower High Street/Oxhey Corridor
4.18 These proposals will not be implemented in isolation, but will be reviewed in the context of
the Transport White Paper and the Transport Act 2000. The success of the strategy also
has implications for the development of housing, a viable economy and competitive town
centre retailing. It is important, therefore, that policies that contribute to these aims
incorporate the key objectives of the strategy.
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4.19 T2 Area Based Strategies
Within the overall South West Hertfordshire Transportation Strategy, the Council will seek
the development and implementation of area-based integrated transport strategies in
association with the County Council and other agencies. The strategies will be a material
consideration in the determination of planning applications.
4.20 The Council is currently involved in developing area-based strategies for North Watford,
Leavesden, West Watford and Oxhey (see Map 3 – Area-Based Strategies). The Council
will work in partnership with residents, businesses, the County Council and the Highways
Agency to develop and implement area-based strategies. The Council will seek to ensure
their delivery through a range of means including direct provision, partnership funding and
Development Control. The Council will ensure that area based strategies are taken into
consideration when deciding planning applications and may enter into legal agreements
and/or impose planning conditions to ensure long term benefits are achieved.
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Map3. Area Transport Plans and Green Routes
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4.21 T3 Land Use Strategy
In considering proposals for development, preference will be given to those sites
located within reasonable walking distance of existing passenger transport services.
A reasonable walking distance is considered to be within 800 metres of a train
station, or 400 metres of a bus stop (except in the town centre where the distance is
200 metres from a bus stop). Where a site does not meet these criteria, the
developer should demonstrate the sustainability of the proposed development,
including measures to be taken to improve accessibility by non-car modes of travel.
4.22 When considering the passenger transport accessibility of development sites, the size,
location (relative to existing passenger transport) and density of development will be
important factors. Applications for social/community facilities, or affordable housing should
pay special regard to transport provision. The physical layout of sites should, wherever
possible, promote the use of passenger transport services and cycling over private car use
(see Policy T11).
4.23 T4 Transport and New Development
All development proposals, including re-development and changes of use, will be
considered against the amount, type and timings of transport movement likely to be
generated and the effect thereof on the local highway, passenger transport systems,
footpaths, bridleways, greenways and cycle routes and on the environment.
Where developments will have significant transport implications, transport assessments
should be prepared and submitted.
Development will be refused where:
a) the scheme would cause or add significantly to road congestion especially at
peak travel times;
b) the scheme would cause or add to safety problems for road users and non-
motorised road users including pedestrians, cyclists and horse-riders;
c) the traffic or parking generated by the development would adversely affect the
quality of the surrounding environment;
d) there would be inadequate passenger transport provision and/or inadequate
facilities for cyclists and pedestrians (see Policies T5 to T16) and no prospect of
providing new ones;
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e) there would be inadequate provision for the transport needs of people with
wheelchairs, children and mobility disabilities (see Policy CS4 and Appendix 2).
4.24 An essential function of the Plan is controlling the amount and type of transport movement
generated by new developments, which would otherwise add to existing road congestion.
4.25 All development proposals will be assessed for their transportation impacts. Government
guidance (PPG 13: Transport) requires a transport assessment to be prepared and
submitted where the development will have significant transport implications. For small
schemes, the transport assessment should simply outline the transport aspects of the
application. The Council will require major development schemes (see Glossary for
definition) to produce a transport assessment to illustrate accessibility to the site by all
modes and the likely modal split of journeys. The assessment should also include details of
proposed measures to improve access by passenger transport, walking and cycling (to
support modal split targets, as set out in the LTP and updated annually), to reduce the need
for parking associated with the proposal and to mitigate transport impacts. Where
proposals do not include a range of measures to improve access to the site by non-car
modes, the transport assessment should include an illustration of the potential modal split
to the site if such measures were included. In addition the developer must demonstrate
that the passenger transport accessibility of the development has been assessed.
4.26 Development proposals will need to be carefully considered in terms of the level of car
parking provision. A reduction in car use could be encouraged through a limitation of car
parking facilities. Where a development enables substantial access by non-car modes of
travel then the amount of car parking should be reduced. However, this alone may not
ensure a reduction in car use and so developments will need to fund traffic management
schemes and where close to residential areas, resident parking schemes to significantly
reduce displacement parking on street. Parking and traffic management schemes in the
form of controlled parking zones or similar and traffic calming measures may be required
within the development where the local circumstances or national guidelines indicate this to
be appropriate. Additional contributions towards bus service enhancement schemes (such
as bus priority measures) or train service enhancement and the provision of associated
infrastructure (e.g. bus stops) may also be required.
4.27 Hertfordshire County Council as the highway and transport authority will be consulted on
most development proposals and in making recommendations will consider the effect on
highway capacity, road safety, environmental impact, road hierarchy, parking provision and
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accessibility by all modes of transport. Unacceptable proposals will be recommended for
refusal unless, as part of the development proposal, sufficient highway and/or other
transport improvements can be secured which are considered to provide an adequate
balance in highway transport terms.
4.28 T5 New Development and Green Travel Plans
All planning applications for development likely to have significant transport
implications should be accompanied by a ‘Green Travel Plan’. The Council will
require the developers/occupiers to enter into legal agreements and/or may impose
conditions on a planning permission to ensure that the benefits of such a plan are
maintained in the long-term.
4.29 Green Travel Plans are an important consideration in planning policy as established
by several documents including PPG 13 (2001), Regional Planning Guidance (RPG) 9
for the South East, Hertfordshire County Council Structure Plan (1998), Hertfordshire
County Council Local Transport Plan (2001) and County Council guidance on Green
Travel Plans. Additionally, the initiative has been developed in consultation with
businesses.
4.30 Green Travel Plans provide the framework for an organisation to optimise its use of
transport through the development and promotion of wider choice in travel modes and travel
substitution. They are applicable in managing travel movement associated with existing patterns
of development, as well as supporting new development proposals. They can assist the
process of introducing new measures, whether voluntary or through regulation or charging.
They provide opportunities to inform individuals and organisations of measures that help widen
the choices available to them in meeting travel need.
4.31 The objectives and purposes of Green Travel Plans reflect the Council’s sustainable
transport objectives through implementation. Green Travel Plans aim to achieve reductions
in car usage and a subsequent transfer to passenger transport modes. Green Travel Plans
also aim to create a less hostile environment for pedestrians and cyclists, and to ensure
that transport movements take into account sustainable environmental implications.
Additionally they can reduce levels of congestion and car parking.
4.32 The Local Transport Plan is designed to discourage the avoidable use of the private car as
a method of transport by increasing the effectiveness of passenger transport and other
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modes of transport. Green Travel Plans aim to complement the maximum parking
standards by introducing incentives for passenger transport use and therefore reduce the
demand for car parking at a particular development. As a means of implementing the
Council's aim for reducing reliance on the private car, the Council will require a Green
Travel Plan:
for all major developments (an office or B1 development of 1500 sq. m. gross floor area
or any development of similar trip generation) comprising employment, shopping,
leisure (including hotels with conference facilities) and services;
for smaller developments of the above land uses where there would be significant traffic
generation and where traffic reduction initiatives already occur;
for new and expanded school facilities which will be accompanied by a school travel
plan to promote safe walking and cycling, restraining parking and car access and
providing cycling facilities; and/or
where it would help address particular traffic problems.
4.33 Regional Planning Guidance for the South East (RPG 9 – March 2001), through Policy T2,
asks local planning authorities to establish travel awareness strategies designed to
encourage changes in travel habits. Accordingly, the Council will encourage the
development of Green Travel Plans for all major travel generating developments.
4.34 The Hertfordshire Local Transport Plan promotes a partnership approach with businesses
towards Green Travel Plans so that they become part of the planning process for new
developments. 25 companies in Hertfordshire are involved through Hertfordshire’s
Business Travel Wise initiative. It is targeting reduced car usage at new developments and
covered 25% of the County’s workforce by 2001.
4.35 To ensure that the developer operates the agreed Green Travel Plan and to ensure long
term benefits are maintained, the Council may impose conditions on planning permission or
enter into a legal agreement with the developer relating to the extent and use of on site
parking, and measures which would encourage the use of forms of travel by other means
than the private car.
Pedestrians
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Improvements/Use
4.36 Walking accounts for a significant number of journeys, particularly for the young, elderly
and those without access to a car, and is increasing in popularity as a leisure activity.
Watford has an extensive system of footways consisting of public footpaths, canal
towpaths, pavements alongside carriageways, routes through parks, over common land
4.37 and in town centre pedestrianised areas. However, improvements are needed to
encourage greater use, to improve the cleanliness, safety and security of routes,
particularly at night, to enable use by everyone, including people with disabilities, and to
link into and service existing and new developments.
4.37 T6 Pedestrian Facilities
The Council is committed to maintaining and improving pedestrian facilities and
encouraging their greater use by all members of the community for everyday journeys and
use by:
a) seeking to secure wherever possible practical improvements in facilities for safe and
convenient movement of pedestrians, including people with disabilities (see Policy
CS4). Where appropriate stiles should be replaced with gaps or with plain or kissing
gates to BS5709:2001.
b) supporting the County Council, in association with relevant organisations, in its aims to
have all public footpaths and bridleways fully signposted, recorded on the Definitive
Map and statement, open and available for use by the public in accordance with the
Countryside Agency’s target.
4.38 T7 Pedestrian Facilities In Developments
The Council will require new development proposals, including redevelopments and
changes of use, to provide safe pedestrian access and contributions to improving
pedestrian routes to the development site (see SPG 14: Designing for Community Safety).
Footpaths provided as part of development schemes will need to be adequately landscaped
(see Policy U6, SPG 12: Landscape Guidelines and SPG 14: Designing for Community
Safety)
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4.39 A key aim of the Plan is to reduce the need for private car journeys in Watford. The ability
of people to walk conveniently to and from developments in a pleasant and safe
environment can help achieve this. Therefore all development proposals will be considered
against the pedestrian facilities, links and routes which can be achieved as part of the
development proposal. Creation of new pedestrian routes will be encouraged and links to
existing pedestrian facilities and the safe and unhindered movement of pedestrians on the
site should be maximised.
4.40 Planning obligations to secure pedestrian links and improvement of facilities outside the
development site will be sought where opportunities exist to encourage potentially large
numbers of pedestrian movements or enable pedestrians to access the development site.
A reduction in the required number of car parking spaces for a development could assist in
offsetting any costs incurred in meeting the requirement of the planning obligation in
respect of pedestrian facilities.
Walking Strategy
4.41 The Council will prepare a Walking Strategy to encourage walking as a mode of transport
and to improve the pedestrian environment. The Strategy will be used as supplementary
guidance to the Plan.
Bridleways
4.42 T8 Bridleways
The Council supports the provisions of bridleways in appropriate locations, including part of
the London Orbital Bridleroute (H25) in the south-west part of the Borough.
4.43 Watford has two short bridleways (shown on the definitive map and statement) which
although of limited value to horse riders do provide useful pedestrian links. There are
limited practical opportunities for the provision of new bridleways in Watford but wherever
possible and appropriate the Council will seek their provision. Cyclists are permitted to use
bridleways. The Council will consider the provision of bridleways in some instances as part
of the proposed cycle network. The bridleways in and around the Borough and the route of
H25 are illustrated on Map 4 – Bridleways in and around Watford.
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Map 4 – Bridleways
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Cyclists
4.44 This section of the Plan is to be read in conjunction with the Council’s Cycling Strategy.
4.45 Cycling is the cheapest, most healthy and environmentally friendly method of transport. This
is especially the case for short and medium length journeys. In the South West Hertfordshire
area, 75% of all weekday journeys are less than 5 miles in length. This is easily within cycling
distance. The Council will seek to encourage cycling within the town so that all road journeys
within the town are capable of being made safely, legally and conveniently by cycling.
4.46 T9 Cycling
The Council has adopted a Cycling Strategy and is strongly committed to encouraging the
use of bicycles by:
a) developing a safe and direct network of high quality routes that link the main
urban areas within South West Hertfordshire. The network will be modified
where necessary using traffic calming, restraint and cycle specific facilities to
enable safe and convenient access to destinations;
b) ensuring that all new developments or modifications to existing sites take into
account the needs of cyclists, including access to and within the site where
appropriate;
c) assessing the feasibility of and implementing new cycle routes or measures
which link to the Town Centre Cycle Route or National Route No 6 (The Colne
Valley Cycle Route and the Ebury Way);
d) ensuring that new developments or modifications to existing sites provide cycle
storage and welfare facilities for employees and visitors; and
e) seeking to promote cycle safety by means of cyclist and driver education through
publicity material and training courses.
The Council will seek to enter into a planning agreement with developers to secure
contributions towards the improvement of the cycle network and/or facilities for
cyclists, as referred to above.
Shower and Changing Facilities (Non-residential)
4.47 New non-residential development over 1500 sq. m. gross floor area, will be required to
provide adequate shower and changing facilities to enable those who have cycled or
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walked to the development to change in privacy. Shower and changing facilities should be
provided at a rate of 1 locker per 5 persons and 1 shower cubicle per 25 persons. Where a
lower level of provision, based on fewer personnel, is proposed an assessment will be
made on the individual merits of the development.
4.48 T10 Cycle Parking Standards
The Council will expect all new developments to make provision for cyclists. In
considering planning applications the Council will expect the cycle parking
standards set out in Appendix 2 to be adhered to.
The Council will expect all new developments and conversions to provide a conveniently located,
secure, waterproof bicycle storage area either on a unit-by-unit basis or, where this is not
appropriate, communally.
4.49 More people may be encouraged to cycle if they had better storage facilities and the
Council will therefore encourage the provision of such facilities in all new development.
Modern flats are often not big enough, and the need to carry the bicycles up the stairs does
not encourage bicycle ownership. The Council will expect provision to be made in
accordance with the secured parking storage standards set out in Appendix 2. It is
important to note that these are minimum standards and greater provision will be required
in areas with good cycling facilities.
Future Cycling Proposals
4.50 The Council’s Cycling Strategy Group, formed in 1995 works in conjunction with local
cyclists and groups to identify future proposals and to promote cycling.
4.51 The Group has developed the Council’s Cycling Strategy, which provides a clear and
coherent framework for delivering an improved cycle route network and facilities.
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4.52 The map of proposed future cycle routes (Map 5) has been developed from evaluations of
proposals in accordance with the criteria set out in Paragraph 4.23 and in the Strategy.
The proposed routes shown on this map are indicative, representing the preferred travel
corridor. Implementation of these routes will not commence until detailed examination and
full consultation of the options has taken place, in particular with those parties most
affected by the proposals. Map 5 is also included in the Council’s Cycling Strategy and in
SPG 29 – Cycling in Watford. The version of the map within the SPG will be updated on a
regular basis, reflecting the changes as routes are implemented. Map 5 will form the basis
of the justification for the requirement to provide a cycle route or to contribute to the
construction of one. Reference should be made to the most up-to-date version included in
SPG 29.
4.53 The Council also wishes to see dedicated secure cycle parking at all passenger transport
interchanges and large developments.
Safe Routes
4.54 A key objective of the Cycling Strategy is to develop a network of cycle routes that link
residential areas to schools. The Council is working closely with Hertfordshire County
Council on a series of initiatives at a number of schools in the Borough, ensuring that cross
boundary links are coherent.
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Map 5: Cycle Routes
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PASSENGER TRANSPORT
4.55 Passenger transport is an essential means of travel for most members of the community
and, along with cycling and walking, can provide the main elements of an environmentally
sustainable transport system in Watford. Both local and long distance services play an
important role in reducing the level of car dependence within the Borough. The Council will
promote passenger transport as a viable alternative to the private car, in partnership with
the County Council and local and long distance bus and train operators, as detailed in the
County Council's Passenger Transport Policies (1997).
4.56 T11 Passenger Transport and New Developments
Planning applications for major developments proposed within the Borough will be
expected to include explicit measures to encourage the use of passenger transport
to access the site.
The Council may seek to enter into planning agreements with the developer to
provide improved passenger transport facilities and/or services in order to increase
the relative attractiveness of passenger transport over the private car for trips to and
from developments.
All developments should ensure that direct, safe and convenient pedestrian access
to passenger transport services is provided and that the internal layout of the
development does not unduly favour access to the buildings by private car over
passenger transport.
4.57 Recognising the cumulative effect of many small developments on traffic levels within the
Borough, the Council will usually require developers to contribute towards the provision of
passenger transport services and facilities, as part of Section 106 agreements, (any
contribution by the developer in terms of revenue support is expected to be for a limited
time in the short term only and with a maximum cost). Major developments will also be
expected to include passenger transport measures within any Green Travel Plan (see
Policy T5).
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4.58 Moreover, the Council is aware that a mind-set towards private car use needs to be
overcome. The Council will expect any new development or redevelopment to incorporate
direct and convenient access to passenger transport services as an integral part of the
design process. Individual site layouts should maximise the general conveniences and
attractiveness of passenger transport as an alternative to the private car, for instance, by
situating car parking relatively distant from entrances to buildings, in comparison to
passenger transport stops (see Policies T3 and T27)
4.59 T12 Bus Services
The Council, in conjunction with the County Council, will seek to encourage the provision and
maintenance of bus services which are responsive to local needs and which provide
adequately for the local travel needs of everyone. Good passenger transport interchange
facilities will be sought in the Town Centre, and at Watford Junction, Watford High Street
Station and other railway stations.
4.60 In seeking to implement Policy T12, the Council will regularly consult with the County
Council, service operators and users to:
a) find ways in which to make it easier for people with disabilities to use passenger
transport (e.g. the provision of ‘kneeling buses’ and low-floor buses);
b) where appropriate and subject to available resources, provide subsidies and support for
community transport initiatives (e.g. see Policy CS5) and continue to operate a
concessionary fares scheme;
c) encourage the County Council to provide bus priority and traffic management measures
to improve bus access and operation;
d) whenever possible and appropriate, secure improved and additional bus stop facilities
and new long term bus services as part of development proposals;
e) encourage the use of environmentally friendly buses;
f) encourage the provision of tailored services to serve the leisure and entertainment
facilities in the town centre, including for example, night buses; and
g) support the provision of publicity for passenger transport services to destinations within
and outside of the Borough.
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4.61 T13 BUS PRIORITY MEASURES
The Council, in conjunction with the County Council and Bus Operators, will develop
and implement a range of bus priority measures to improve the reliability and
efficiency of bus services
4.62 The Green Route concept is central to improving passenger transport in Watford. It is
essentially a partnership between the highway authority and bus operators to improve
passenger transport provision on important passenger transport corridors.
4.63 The St. Albans Road Green Route forms the first phase of the Watford Green Routes.
Eventually the Green Route will extend between Garston and Bushey Arches via St Albans
Road, Clarendon Road, the Town Centre and Lower High Street as shown on Map 3.
4.64 T14 Town Centre Bus Interchange
The Council has proposed a site, identified on the Proposals Map, for a Town Centre
bus interchange, as part of a mixed-use development (see RA1 on the Proposal
Map). The Council will work in partnership with residents, business, bus operators,
the County Council, the landowners and other stakeholders to seek the
implementation of the proposal. The Council will prepare a planning brief for the site
that will have full regard to the views and requirements of all relevant interested
parties and, in particular, the technical and operational requirements of the
telephone exchange and communications infrastructure.
4.65 At present, bus services serve the Town Centre from a variety of stops along High Street ,
Market Street, Clarendon Road, Beechen Grove and Exchange Road, with stops serving
bus routes in opposite directions often located far away from each other. The establishment
of a Town Centre Bus Interchange that all local bus services could use would improve
passenger understanding of the local bus network.
4.66 Any new bus interchange should be accessible to all users, with direct and convenient
pedestrian access to the rest of the Town Centre, including the Harlequin and Charter
Place shopping areas, especially in comparison with existing car-parking facilities.
4.67 It is recognised that for operational reasons any redevelopment of the site will need to
retain the existing Telephone Exchange building. In addition it is also recognised that, as
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part of any redevelopment scheme, an area of land of equivalent size to the existing
Telephone Exchange car park will be required by BT Plc within the site for both its
continuing operational and emergency restoration requirements. The precise siting, use
and ownership of this land will be agreed with BT Plc as part of the detailed planning brief
and subsequently through any legal agreements. In seeking the successful implementation
of the scheme, the Council will consider the use of compulsory purchase powers for
assembling land whilst meeting both the operational and emergency restoration
requirements of the Telephone Exchange.
taxis and Private Hire Vehicles
4.68 T15 Taxi Provision
The Council will support the provision of formal taxi ranks both on the public highway and
on private land as part of new development or redevelopment. Such provision will be
particularly sought as part of development schemes where the public have regular
recourse, such as in major leisure or retail section provision.
4.69 Taxis and private hire vehicles form an important part of passenger transport
provision particularly for people who do not have access to a car and for whom bus
or train services are unsuitable. As part of the Council’s adopted sustainable
transportation strategy, the Council will seek to facilitate access to licensed taxi
services by improving facilities in the Borough where appropriate.
Railway Services
4.70 Watford is served by a number of inter-city, London outer-suburban and local rail services.
The development and full use of station interchange facilities between trains and buses,
taxis, cycles, pedestrians and cars will be sought at all railway stations. This may include
the provision of park and ride, and parkway facilities to serve Watford Junction Station: the
Council aims to maximise the attractiveness of Watford Junction as a regional hub.
4.71 T16 Rail Use
The Council, through consultations with the County Council, Shadow Strategic Rail
Authority, Network Rail, the Train Operating Companies, Transport for London and all other
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relevant agencies will seek to encourage, maintain and improve a rail network which is
responsive to the local and long distance travel needs of everyone by:
a) assisting in the implementation of the Croxley Rail Link (as identified on the
Proposals Map and extending out of the plan area to link with the Metropolitan
underground line at Croxley Green) and, where appropriate, securing developer
contributions towards the scheme;
b) encouraging the improvement and introduction of transport interchange points at
all rail stations in the Borough, particularly at Watford Junction, and at a new
station at Ascot Road as part of the Croxley Rail Link (shown on the Proposals
Map);
c) encouraging in principle development proposals which seek to make full use of
rail services and which through developer contributions enable service
improvements;
d) encouraging in principle the use of rail for heavy goods transport;
e) encouraging the provision of international rail services at Watford Junction
Station.
4.72 T17 Croxley Rail Link
The Council supports the Croxley Rail Link, as identified on the Proposals Map, as a
Key Transport Proposal (see Policy T20 Transport Proposals) subject to the outcome
of any Environmental Impact Assessment undertaken in accordance with Policy SE3
– Environmental Impact Assessment.
4.73 The Croxley Rail Link is a joint proposal by London Underground, Hertfordshire County
Council, Watford Borough Council, Three Rivers District Council and Network Rail, and is a
key element of the South West Hertfordshire Transportation Study. The Scheme links the
Metropolitan Line of London Underground with the Network Rail Croxley Green Branch line
(service on the latter is presently suspended and a replacement bus service operates
instead).
4.74 The link would enable Metropolitan Line trains to run directly from Baker Street to Watford
Junction and new services to operate between Amersham, Chesham and Rickmansworth
and Watford Junction. The project involves the upgrading of existing stations at Watford
High Street and Watford West, and a new station at Ascot Road (providing bus, train, car,
cycle and pedestrian interchange). The Ascot Road station would replace the existing
Watford (Metropolitan Line) station.
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4.75 T18 HERTFORDSHIRE EAST-WEST PASSENGER
TRANSPORT LINKS
The Council supports the need to address the issue of east-west travel within
Hertfordshire.
The Council will work with the County Council, other local authorities and the
University of Hertfordshire on the improvement of passenger transport links between
the north-south railway lines, as well as town centres, in Hertfordshire. The Council
supports the investigation of a range of options, including a mix of different modes,
rather than any one system.
4.76 Extensive consultation has taken place over the Central Hertfordshire Passenger Transit
System scheme. The preferred way forward was found to be a combination of
improvements to the Abbey Line to improve service frequencies and passenger facilities,
and high quality bus links to Watford Town Centre and Hatfield from each end of the line.
This new emphasis on the integration of existing modes of transport to improve links
between the north-south railway lines, and the towns situated on them, is reflected in the
new title of the scheme.
4.77 The Council will need to be satisfied that any proposed scheme will take account of:
the impact of the Town Centre and Town Centre Enhancement Scheme;
road space and junctions;
the scale of any traffic management measures elsewhere on the network; and
the impact on the Abbey Branch Line.
4.78 T19 Canal Transport
The Council will support any proposal for the use of the Grand Union Canal for freight or
passenger transport purposes or recreational use, provided the landscape and amenity
value of the Grand Union Canal Corridor identified on the Proposals Map will not be
threatened (see Policy SE19 and Policy SE26).
4.79 The Grand Union Canal passes through the northern and western part of the Town, its
present importance being mainly that of a recreational facility which forms a valuable
component of the overall landscape and amenity character of the Grand Union Canal
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Corridor. The Council recognises the value and potential of the canal network for both
freight and passenger transport and, in principle, supports its use for such purposes.
HIGHWAY NETWORK
4.80 Roads must be designed to cater for the different levels and type of transport that they are
expected to carry and their character developed to suit their purpose. Traffic, particularly
4.81 heavy goods vehicles, should be concentrated on main roads which avoid residential areas
and are designed to carry large volumes of through traffic. Local distributor roads need to
be developed to give greater priority to buses, pedestrians and cyclists. Residential roads
should be made safer environments for pedestrians, and in some instances, horse riders.
Here, cars should be given less dominance, be forced to travel at slow speeds and only
allowed for access purposes. In this regard, the Council will seek improvements to the
highway network through highway improvements, new roads and traffic management
schemes on the basis of:
a) facilitating the intended use and function of individual roads and road networks, and
discouraging inappropriate road schemes which lead to the overloading of other
unsuitable roads;
b) achieving substantial environmental benefits;
c) reducing road collision;
d) improving facilities for buses, cyclists and pedestrians and, where appropriate, horse
riders;
e) enabling or encouraging a reduction in the overall need to travel;
f) improving the environmental quality of existing transport corridors; and
g) introducing 20mph zones where appropriate.
4.81 T20 Transport Proposals
Hertfordshire County Council proposes the following transport schemes:
a) Croxley Rail Link
b) Cardiff Road Link
c) Watford Junction Interchange Improvement
d) HGV and Bus only Link between Tolpits Lane and Caxton Way.
The anticipated land take of these schemes is shown on the Proposals Map as
safeguarded areas
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4.82 Transport proposals for Hertfordshire are set out in the County Council’s Local Transport
Plan, which has been developed in partnership with the district councils. It covers a five
year programme of schemes promoted by the County Council in its role as highway
authority and includes, where possible, schemes promoted by other organisations including
motorways and trunk roads and rail schemes. The Local Transport Plan will be reviewed
every five years for the period from April 2001.
4.83 The Local Transport Plan includes the following capital schemes for Watford.
a) Croxley Rail Link.
The Croxley Rail Link involves linking London Underground’s Metropolitan Line with the
Network Rail branch at Croxley in order that underground trains can run between Baker
Street and the centre of Watford. The scheme will also include the upgrade of stations at
Watford West and Watford High Street and a new station at Ascot Road. The scheme will
be project managed by Network Rail and supported in conjunction with London
Underground Ltd., Watford Borough Council, Three Rivers District Council and
Hertfordshire County Council.
b) Cardiff Road Link
This road scheme will improve access for economic regeneration purposes in West
Watford. The Link Road will cross the redevelopment site joining Wiggenhall Road to the
rear of Watford General Hospital. The scheme will also provide improved access to
Watford Stadium and reduce rat running and congestion in residential streets in West
Watford.
c) Watford Junction Interchange – Colonial Way Link
Major changes are proposed to Watford Junction Station to provide improved access and
interchange facilities. These may include the provision of additional platforms and
redesigned passenger transport interchanges at the front and rear of the station. An
access road connection to the new interchange at the rear of the station is also proposed.
The new road will begin at Colonial Way, connecting with a new junction to provide a new
access to the station and ending at St Albans Road.
d) Tolpits Lane and Ascot Road HGV and Bus Link
Herfordshire County Council have proposed an HGV and Bus Link to connect Tolpits Lane
and Ascot Road through the Croxley Industrial Estate. The scheme is intended to take
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HGVs off residential roads in West Watford and enable better bus connections to the
industrial estate.
Abandoned Routes
4.84 For the sake of clarity the West Watford Relief Road and the Wiggenhall Road Link
proposals are abandoned and are no longer safeguarded routes. The proposals to relieve
congestion on Pinner Road have also been abandoned as the environmental and financial
costs outweigh the limited economic benefits of the scheme. The removal of safeguarding
does not imply any downgrading of safety or traffic considerations.
Access and Servicing Facilities
4.85 Adequate access and servicing facilities are essential for the efficient use of land and to
prevent traffic congestion, increased collision risk and detriment to the environment.
4.86 T21 Access and Servicing
All development proposals including redevelopments, changes of use or extensions to
existing developments should include adequate provision for access/egress and servicing
arrangements to meet the necessary safety and capacity requirements. The Council will also
seek to ensure that the needs for access and service arrangements are taken into account
fully in the design of all public and private highway improvement schemes.
The Council will normally require redevelopment schemes within the Town Centre to provide
rear servicing facilities so as to avoid access via the High Street.
4.87 In all developments, either new, redevelopment or change of use, the main impact of
vehicular movement is in the immediate vicinity of site. i.e., at the access/egress points.
Suitability of access/egress arrangements is a key consideration in determining a
development proposal. An access can be refused due to poor design/visibility or
inadequate capacity.
4.88 The Town Centre Enhancement Scheme introduced access restrictions on parts of the
High Street in order to create a pedestrian dominated environment (with facilities for
cycling). Redevelopment should provide rear access to ensure that added pressure is not
put on the limited on-street servicing provided, and also to help reduce the number of
motorised vehicles on the High Street.
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CAR PARKING
Car Parking Strategy
4.89 The Council has an integrated parking strategy, which operates on the recognition that
simply lowering car parking standards without putting in place other measures will not be
sustainable. The South West Hertfordshire Transportation Study suggests that the car
parking strategy should aim for a sensitive application of parking policy such that the
primary function(s) of each area is provided for, whilst seeking to manage demand for
available parking and road space at busy times.
4.90 The SWHTS proposes that the parking strategy should seek to:
hold off street parking provision at today's level and manage demand by pricing and the
development of park and ride;
reduce the availability of on-street parking space in residential areas, both for long and
short term parking, particularly in respect to visitors to Watford;
provide residents’ parking schemes in areas around the town centre, which will enable
residents and their visitors to park locally to their home at all times; and
review parking standards downwards for new developments in the older urban areas
and close to important passenger transport nodes; and develop park and ride facilities
outside of the town centre to contribute to a reduction in local traffic demand at peak
times in the central area.
4.91 The four components of the car parking strategy are:
a) Lower parking standards for new developments
b) Review of public car parking charges
c) Controlled Parking Zone (CPZ) and Special Parking Area
d) Park and Ride.
4.92 T22 Car Parking Standards
All development will be expected to comply with the parking standards set out in
Appendix 2. On-site parking will not be permitted in excess of the maximum
appropriate for the zone in which the site is located. Non-residential development
will be expected to provide sufficient on-site parking to meet operational needs and
the needs of disabled motorists.
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4.93 The level and location of car parking provided in a development can encourage or
discourage users of the development to travel to and from the site by means other than the
car. The car parking standards are set out in Appendix 2. The standards are based on
maximum demand-based parking as set out in Structure Plan Policy 25: Car Parking, and
reduced as appropriate in accordance with the principle set out in Hertfordshire County
Council Car Parking Supplementary Planning Guidance: Parking in New Development
(December 2000).
4.94 The use of inappropriately high trip rates in parking accumulation calculations to try to
justify additional parking will be challenged. Trip rates used for sensitivity tests of access
arrangements are not generally appropriate for parking demand calculations.
Commuted Payments
4.95 Commuted parking payments are to be replaced by accessibility charges: the charges will
relate to the traffic impact of the new development, by applying a fixed charge per space to
residual on-site car parking (spaces allowed on site after restraint has been applied). The
proceeds will then be directed in most cases to stated LTP accessibility objectives
(passenger transport, walking and cycling) relating to the development. This should reduce
payments for town-centre developments but increase them for permitted out-of-centre sites.
4.96 T23 Non-Residential Development
All major non-residential development should be in locations with the potential for good
access by means of travel other than the private car to reduce the demand for more car-
based travel.
4.97 The car parking standards for non-residential development (retail and commercial) are
based on the principle of zonal restraint set out in Appendix 2 of this plan and will be the
starting point for progressive reductions in on-site provision. The amount of restraint to be
applied is linked to passenger transport accessibility and the location of retail and
employment facilities.
4.98 The Council’s aim is to reduce the level of car parking for developments as far as possible
especially in locations that are well served by passenger transport such as the Town
Centre, close to railway stations and bus interchange points (Zone 1). This reduction in car
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parking provision should be taken to encourage people to use modes of travel other than
the car.
4.99 The Borough has been zoned to reflect different levels of car accessibility (see
Appendix 2, Map 7). Standards are set for all forms of new development irrespective
of their locations within Watford. The amount of parking and parking restriction
applied would depend on the zone that each development is located. The standards
also apply to extensions. In deciding if the proposed development will generate
additional parking, the Council will take into consideration the number of employees
and the level of transport activity generated by the employees.
4.100 T24 Residential Development
Planning permission will only be granted for residential use where the full parking
needs generated can be met on site, and off the public highway unless the site is in a
suitable Town Centre site or other location with good access to passenger transport.
4.101 The residential standards set out in Appendix 2 are maximum standards and are subject to
restraint using the zonal method. Significantly lower levels of parking provision may be
acceptable where demand for parking is likely to be less and any tendency for overspill on-
street is or can be controlled e.g. high density housing in town centres or near rail stations,
housing over shops, or if the development is to bring into use derelict or empty properties.
Developments will be deemed to have good access to transport if they are within walking
distance of existing passenger transport services, i.e. located within 400 metres of a bus
stop (except in the town centre where the distance is 200 metres), or within 800 metres of a
train station or interchange. Nevertheless, unless circumstances such as these apply,
residential development will generally be expected to accommodate all parking demand on
site. Where such development is proposed within an existing Controlled Parking Zone, the
Council will remove the rights of future occupiers to receive permits for on-street parking
wherever insufficient off-street parking is proposed.
4.102 Lower residential standards are set out in Appendix 2 for types of development where
demand is likely to be less than for family housing e.g. housing for elderly people and
houses in multiple occupation.
4.103 T25 On-Street Parking Control
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The Council will introduce parking control measures and residents’ priority parking
schemes on appropriate streets in residential areas as resources permit.
4.104 watford borough council operates residents’ and business permit schemes to control on-
street car parking in central watford. The 13 controlled parking zones (cpzs) aim to restrain
on-street car parking in the older residential and commercial areas of watford where
dwellings have no off-street provision such as private car parking spaces, driveways or
garages. In addition, visitor parking is controlled by permits and/or parking meters. A
separate scheme, known as matchday parking, is in operation to control on-street parking
around the football stadium in vicarage road. This prevents spectators parking their cars in
residential streets around the stadium, with the aim of reducing congestion before and after
matches and keeping roads clear for emergency vehicles.
4.105 T26 Car Free Residential Development
Car free residential development will be considered in suitable locations which are highly
accessible by passenger transport, close to amenities and services, subject to the provision
of satisfactory site covenants, on-street parking controls and measures to control displaced
parking in adjacent areas.
4.106 The Council recognises the potential for occupiers of car free development to own cars and
create a nuisance by parking in other residential areas. To this end, the Council will seek to
ensure that on-site covenant and planning obligations are binding on occupiers of the
residential dwellings as well as the developers. Occupiers of such dwellings will not be
entitled to residents’ on-street parking permits.
4.107 T27 Car Park Location and Design.
All new car parking should be designed, located and landscaped so as to have a minimal
impact on the quality of the local environment and to give priority of access to the
development by people arriving and leaving by passenger transport, on foot or on cycle.
4.108 Car parking schemes should discourage employee commuter travel by private car. Where
new parking is provided for public use, it should be to suitable standards for operation and
safety, for example, as advised by the ‘secured by design’ scheme. The County Council
has prepared Supplementary Planning Guidance on “Guidelines on Dimensions and Layout
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of Car Parking Spaces” which will be a material consideration in the determination of
planning applications providing car parking spaces.
4.109 T28 Park and Ride
The Council recognises the need for park and ride as part of the integrated approach
to tackling congestion and will endeavour to explore opportunities for park and ride
facilities in or around Watford.
4.110 Preparatory work on the South West Hertfordshire Transportation Strategy (1996) identified
excessive congestion in the area as a result of inadequate passenger transport services
and excessive usage of private cars. Further to the demonstration that the operation of a
park and ride scheme would attract a modal transfer of up to 19% away from private car
journeys, the resulting South West Hertfordshire Transportation Study (1996) included a
proposal for bus-based park and ride into Watford town centre, with a number of potential
sites identified within the study area, located close to motorways and motorway
connections. A review of the 1996 South West Hertfordshire Transportation Strategy is
underway, which will update the work in respect of park and ride, and seek to identify
appropriate sites.
4.111 In the meantime, the Council continues to acknowledge the transport and congestion
reduction benefits that a park and ride scheme can bring, and park and ride remains a part
of the Council’s wider parking strategy, as set out in Paragraph 4.91. Any proposed scheme
will be considered alongside a broader plan to restrict car parking in the town centre to
1996 levels, as set out in the South West Hertfordshire Transportation Strategy, or to any
superseded figure to be incorporated in the review of the strategy. From 2003, the Council
will work in partnership with adjoining authorities, land owners, the County Council, the
Highways Agency, businesses and residents to realise these benefits, in the context of the
review of the South West Hertfordshire Transportation Strategy.
4.112 T29 Powered Two-Wheelers
The Council will encourage the provision of adequate parking facilities for powered two-wheelers in
major development.
The Council will work with the County Council and other partners to:
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a) encourage the safe use of powered two wheelers through education and training;
and
b) ensure the needs of powered two-wheeler users and powered carts for people
with disabilities is taken into consideration in the design and implementation of
all transport schemes.
4.113 The term "powered two-wheelers" incorporates a wide range of vehicles from the smallest
moped to the largest high-performance motorcycle. At the smaller end of this range,
powered two-wheelers can help to deliver environmental improvements if they substitute for
single-occupancy car use. Motor cycles, scooters and mopeds also have a significant part
to play in reducing traffic growth and easing congestion in towns and cities. The powered
two-wheeler is an economical means of transport with lower environmental impacts which
can add to existing travel options. It can reduce journey times, it is space efficient and it
could have a major part to play in providing convenient and efficient personal mobility in
towns such as Watford. However, these benefits will not be realised if the transfer is from
walking, cycling or passenger transport. The design and management of movements on the
public highway should take into consideration the different requirements of powered two-
wheelers for safe travel when formulating transport schemes. The Council will not
encourage motorcycles in bus lanes, cycle lanes, advanced stop lines or vehicle-restricted
areas.
4.114 T30 Lorries in Residential Areas
The Council will seek local bans and restrictions on the movement of lorries along
residential roads, especially at night-time and weekends.
4.115 Local lorry controls should be developed, particularly for roads which have a significant
residential content and which suffer from particularly heavy flows at present. Regard will
be paid to the access needs of local firms, and the enforceability of any restrictions, as
well as to the severity of the present intrusion and the availability of (and effect upon)
alternative routes. Measures could include restrictions on vehicle size for specified roads
or areas, and for certain time periods. The Council recognises the need for the effective
enforcement of any lorry bans in the Borough.
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CHAPTER 5: HOUSING
PLANNING FOR HOUSING NEEDS
5.1 In seeking to meet the basic housing requirements of everyone in Watford, it is essential to
plan for a sufficient quantity and for appropriate types of housing in the Borough. It is also
important that economic development is not frustrated by a lack of houses for those wishing
to take up new job opportunities. Whilst attempting to meet housing need in Watford, the
Council will seek to improve the quality of life in the Borough by ensuring that the right
balance of land uses is achieved so that it does not become a dormitory town, forcing
people to travel for jobs and leisure.
MAIN HOUSING ISSUES
5.2 There is a basic housing need arising simply from the natural increase in the population
and rates of household formation. Overall population is likely to show a marginal growth
over the Plan period, but the number of households are expected to increase significantly.
In 2001, the total number of households in the Borough stood at 33,352; this represents an
increase of some 3,897 households, or 13% since 1991. Sufficient housing land will need
to be provided to meet anticipated housing requirements. The Hertfordshire Structure Plan
has identified a housing need in Watford for 4,700 dwelling units to be built between 1991
and 2011.
5.3 The average size of households in the Borough has also been decreasing in recent years
reflecting changing social factors such as increased rates of divorce and co-habitation,
demand from young people wishing to live separately from parents and a tendency for
people to live longer. However, in view of the fact that the housing stock in Watford is
predominantly 3-bedroom family accommodation, a general household size/dwelling size
mismatch has resulted. A mix of dwellings in future housing developments will need to be
provided in order to redress the current stock imbalance, and to ensure wider choice in
types of accommodation to meet the full range of housing need.
5.4 There is an increasing demand for specialist housing; the elderly continue to seek purpose-
built sheltered accommodation and the Health Authority’s Regional Strategy of “Care in the
Community” is necessitating the provision of accommodation to cater for people with mental
or physical disabilities no longer living in institutions. The needs of people with mobility
disabilities are becoming increasingly recognised. These will need to be reflected through
the provision of housing built to lifetime housing standards. A shortage of
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affordable housing accommodation has been identified by a recent assessment of housing
needs in the Borough. The Council will expect new residential developments to help meet
the shortfall.
HOUSING OBJECTIVES
5.5 (1) To ensure that the housing provided meets the needs of the population in respect of
location, size, type, affordability and accessibility, whilst achieving the aims of
sustainability and preserving the quality and character of the environment.
(2) To make adequate provision for development to meet housing needs during the
Plan period and to maintain a 5 year supply of housing land at all times.
(3) To secure the provision of an adequate range of accommodation in terms of the
size and type of dwellings to achieve mixed and balanced communities.
(4) To integrate housing and other land uses and activities to achieve increased accessibility,
reducing the need to travel by car through the promotion of cycling, walking and
passenger transport; the Council will seek, where appropriate, financial contribution
towards traffic calming and environmental improvements and sustainable transport
facilities (see Paragraph 4.26 and Policy T4).
(5) To ensure that housing is of a high standard, makes efficient use of land and that
the quality of the residential environment is maintained.
(6) Wherever appropriate, to encourage the provision of acceptable small housing units
for elderly people (see Policies H20 and H22), people with special needs (see Policy
H23), single people and couples without children particularly in locations with good
access to passenger transport, shops and community facilities.
(7) To ensure that all housing schemes contribute to the provision of housing for
people with mobility housing needs and consider a contribution towards affordable
housing provision.
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(8) To ensure that new residential development does not place increased pressure on
existing school places.
(9) To ensure that at least 80% of future housing development is accommodated on
brownfield/previously developed land, including the restoration for use of empty
housing and premises above shops (see Policy SE1).
(10) To encourage the recycling of waste and the provision of suitable waste, recycling
and composting facilities in residential developments (see Policy SE7).
5.6 H1 No Loss of Housing
Proposals that result in the overall loss of residential accommodation will be refused
unless exceptional circumstances exist. Where alternative accommodation is
provided this should be on a ‘like for like’ basis, reflecting the existing balance,
allowing for no loss of family accommodation unless there are exceptional
circumstances.
5.7 The Council considers the retention and improvement of existing residential
accommodation to be of the utmost importance and will only in exceptional circumstances
allow its loss. Examples of exceptional circumstances may include the loss of dwellings in
an area of poor residential amenity; or, the provision of small scale guest houses where this
(cumulatively with housing conversions and change of use to Housing in Multiple
Occupation) does not exceed the 10% conversion threshold limit set in Policy H13 (see
also Policy L15); or to provide open space, a community facility or other use acceptable in
a residential area where there is an identified need. Housing demand within Watford is high
whilst housing development opportunities are limited. An essential part of the housing
strategy is to ensure that existing housing and its character is retained so as not to create
additional development pressure. Redevelopment proposals for derelict land that was
previously in residential use should provide a major element of housing.
5.18 “Like for like” basis refers to the replacement on site of lost housing with dwellings of the
same type (e.g. flat, house) and size (e.g. 3-bedroom, 4-bedroom, etc.). The provision of
anything less than like for like in terms of accommodation, or provision off-site, would only
be considered in exceptional circumstances.
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5.9 H2 HOUSING NEED STRUCTURE PLAN REQUIREMENTS
The Council will ensure that adequate housing provision is made available to meet
the housing needs of all people in Watford by:
allocating sufficient housing land to provide for the 4,700 dwellings identified for
Watford between 1991 and 2011 in the Structure Plan (see Tables 2 and 3 and the
Proposals Map),
ensuring a minimum 5-year supply of housing land is available at all times (see
Tables 2 and 4).
5.10 The Structure Plan for Hertfordshire provides for a net increase of 4,700 dwellings in
Watford between 1991 and 2011. Between 1991 and March 2001, 3,148 dwellings were
completed leaving 1,552 dwellings remaining over the period (i.e. an average of 155 per
annum). It is anticipated that this target is adequately met (see Table 3) by the sites
identified in Table 2 which includes an allowance for unidentified small sites agreed with the
County Council and House Builders Federation in the Joint Housing Land Availability Study
(1998-2003).
5.11 The Council will ensure that a five years’ supply of housing land is always available. Table
4 calculates Watford’s 5-year supply showing some 5.5 years of housing is land available
as at March 2001.
5.12 The housing needs of people who may have been excluded from the housing market must
be met by ensuring the provision of an appropriate housing mix in terms of size and tenure,
as well as accessibility to services and passenger transport facilities. This would ensure
that the needs of the whole community are catered for, including the needs of the elderly,
those on low incomes and people with mobility disabilities who are unable to find suitable
adapted dwellings to suit their needs.
5.13 H3 Phased Release of Housing Land
In order to prevent the over-supply of housing within the early stages of this Plan,
any windfall sites for 10 or more residential units on sites of over 0.2 Ha in size (i.e.
sites not listed in Table 2) will not be permitted before 1 April 2006*. Exceptions may
be allowed where sustainable and efficient use is made of previously-developed
land, and where proposals meet at least one of the following criteria and accord with
all other relevant policies in this Plan.
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a) Development to meet identified local housing need, such as a major element of
affordable housing (providing significantly more than the 30% contribution
sought on allocated sites);
b) Development comprising the re-use or conversion of a vacant building or the
creation of flats above shops, particularly in the Town Centre;
c) Development which forms part of a sustainable mixed-use development close to
or incorporating passenger transport services or facilities;
d) Development as part of a package which secures improved local community
services and facilities;
e) Development required to maintain an adequate five year supply of housing land
(redressing any shortfall that may occur should any of the allocated sites in Table
H1r not materialise: see Paragraph 5.16 regarding the monitoring and review of
housing proposal sites).
* The Joint Housing Land Availability Study (1998-2003) shows that there are sufficient
sites identified that are suitable for housing development to at least 2004. These figures
have been updated to March 2001, identifying sufficient sites to 2006.
5.14 Watford is a tightly enclosed urban area with relatively few open spaces and competing
claims for different land uses, resulting in considerable development pressure for new
housing. Aims of protecting the Green Belt, key open spaces and land for other uses,
including the transport and community facilities necessary to ensure sustainable
development, should not be compromised by the over-supply of housing. Therefore, strict
long-term land husbandry for housing is required in order to safeguard land to meet future
housing needs(i.e. beyond 2011). These issues are expected to be addressed by the
Hertfordshire County Council Structure Plan Review.
5.23
5.15 The amount of housing land available for development will vary from year to year. The
Council has allocated housing proposal sites in Table 2 as part of a ‘Plan, Monitor and
Manage’ approach, controlling the pattern of development by phasing it over the lifetime of
the Plan, rather than allowing a housing over-supply to create rapid and non-sustainable
urban expansion. Policy H3 does not intend to arbitrarily restrict development, but to help
ensure that any windfall sites meet the Plan’s objectives in providing sustainable
development.
5.16 An essential element of this phasing policy will be the annual review of Table 2 allocations
based upon continual monitoring of the housing situation in terms of completions, existing
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commitments and available land. This should ensure a continued supply of housing land to
meet the existing and future locally generated housing needs.
5.17 The “minimum density” values given in Table 2 below are simply a starting point to
determine the number of dwellings that can be accommodated on the individual sites –
hence giving the “minimum capacities”. These are in line with density advice in Planning
Policy Guidance Note 3 (PPG3) and are based upon accessibility to passenger transport
and local centres. Accurate measurements of net developable area have not been
calculated for the individual sites. The area figures given are estimates of net developable
area, in line with the definition in PPG3, that do not take into account possible site
constraints which may affect the dwelling capacities on each site. Identified site constraints
will be taken into consideration in the determination of planning applications, along with
other Plan policies and other material planning considerations.
5.18 It should be noted that Table 2 includes some sites with planning permission at 31 March
2001, and that the minimum capacity figures given for these sites do not necessarily reflect
the details of the planning permission. Instead, the Council has applied the same minimum
density standards to all the listed housing proposal sites, in the interests of consistency and
accordance with PPG3 advice, and to ensure that a policy context for the development of
these sites to meet local housing needs remains in place in the event of the current
consents expiring.
Table 2: Housing Proposal Sites (March 2001)
Site
No Name
Area
(Ha) Net
Minimum
Density
(units per
ha net)1
Minimum
Capacity
Target
Affordable
Housing 2
ST
ATUS
(AS AT
MARCH
2001)
2 Watford Fields Pumping
Station
1.01 50 51 15
3 1-22 Bromet Close 1 30 30 9
5 103-111 Queens Avenue 0.32 50 16 S106
1 Minimum densities in accordance with Policy H12: Housing Density Standards. See Paragraph 5.17.
2 Target affordable housing contribution of 30% on developments of 25 or more dwellings or 1 Ha or more – see Policy H17: Provision
of Affordable Housing.
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Site
No Name
Area
(Ha) Net
Minimum
Density
(units per
ha net)1
Minimum
Capacity
Target
Affordable
Housing 2
ST
ATUS
(AS AT
MARCH
2001)
7 111 Langley Road 0.47 30 14
8 R/O 285-289 Sheepcot
Lane
0.3 30 9
9 201 & Adj High Street 0.20 50 10 U/C
12 Lady's Close 0.05 50 3
14 Metropolitan Station
Approach
7 30 210 63
15 Abattoir Site (part)
Vicarage Road
0.85 30 26 8
16 Rounton, Nascot Wood
Road
1.6 30 48 14
17 59-63 Langley Road & 1
Langwood Gardens
0.43 30 13
18 North Orbital Road 2.54 30 76 23
19 Watford College Annex,
Gammons Lane
0.51 50 26 8
20 790-794 St. Albans Road 0.22 30 7
21 R/O Red Lion Garage,
Vicarage Road
0.12 30 4
24 Cassio College 4.5 30 135 41 PB
25 Council Depot Site (refer
to Paragraph 3.29ga)
1.8 50 90 27
26 Site bordering Hertsmere
and Railway
0.77 50 38 11
27 139-143 Rickmansworth
Road
0.42 50 21
28 Adjacent to Leveret Close 0.27 30 8
29 Site opposite Reeds 2.6 30 78 23
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Site
No Name
Area
(Ha) Net
Minimum
Density
(units per
ha net)1
Minimum
Capacity
Target
Affordable
Housing 2
ST
ATUS
(AS AT
MARCH
2001)
Orphanage
30 112-114 Langley Road 0.16 30 5 U/C
TOTAL 918 242
Notes on Table 2:
S106 Approved by Committee. S106 agreement pending
U/C Under Construction
PB Approved Planning Brief
Table 3: Meeting the Structure Plan Target (March 2001)
1 STRUCTURE PLAN REQUIREMENT (1991-2011) 4700
2 TOTAL COMPLETIONS (1991- 2001) 3148
3 Provision to be met in Plan Period (i.e.1 - 2) 1552
4a Housing Proposal Sites (2001-2011) (Total from Table H1r) 918
4b Windfall Sites1 465
4c Small Windfall Sites2 285
5 Total Capacity 4a+4b+4c 1943
6 ESTIMATE SURPLUS CAPACITY TO
2011 (5-3) 116
Table 4: 5 Year Supply Of Housing Land (March 2001)
1. Structure Plan Requirement (1991-2011) 4,700
2. Total Completions (1991 - 2001) 3,148
3. Provision to be met in Plan period (i.e. 1-2) 1,552
1 Large windfall sites are sites of 10 dwellings or more. Figure calculated as 10 years at an annual average rate of 46.5 units/annum,
based on past trends in the development of large windfall sites.
2 Small windfall sites are sites of less than 10 dwellings. Figure calculated as 3 years at 28 units/annum and 7 years at 29 units/annum.
The annual figure has been adjusted according to trends in the development of small sites taken from the Joint Housing Land
Availability Study 1998-2003.
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4a. Rate per annum (i.e. 3/10) 155
4b. Total units over 5 years (4a x 5) 775
5. Capacity Available within 5 years (private)
a. Sites over 10 units 719
b. Allowance for small sites (i.e. 28 p.a.) 140
c. Total capacity available within 5 years (5a+5b) 859
6. Number of years private sector supply (5c/4a) 5.5 years*
* Figures based on Joint Housing Land Availability Study (1998 – 2003). These figures have been updated
to March 2001.
5.19 H4 Empty Homes
The Council will encourage the re-use of unoccupied dwellings through its Empty
Homes Strategy.
5.20 A key element of the Council’s approach to meeting its housing need is to seek the most
efficient use of the town’s existing housing stock. An Empty Homes Strategy has been
prepared to explain how the Council can help bring vacant dwellings back into use. Advice
on repairs and maintenance and on letting is available, and the Council also provides links
to Housing Associations or to other parties interested in the sale of empty homes. Empty
homes may also qualify for grant aid.
5.21 Apart from the waste of useable space, homes lying empty can create negative
environmental impacts on neighbouring properties. Empty homes can attract pests,
dumping, vandalism and crime, which require action by neighbours, police and local
authorities and cost the taxpayer. In cases where incentives fail to bring empty homes
back into use, the Council may apply its various enforcement powers, including, where
appropriate, the use of Compulsory Purchase Orders with a view to resale. Where a
property has been vacant for a long period of time and there is evidence to show that there
is no real prospect of bringing it into use, the Council may use its discretion in applying
relevant policies (see reference to car parking provision, Paragraph 4.101 and Policy T24).
NEW HOUSING DEVELOPMENT
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5.22 H5 Development on Previously-Developed Land
The Council will apply a sequential approach when considering applications for
residential development in Watford. Previously-developed sites will be considered
for development as a first priority over greenfield sites or public open space. The
Council will seek to ensure that at least 80% of all residential development is
accommodated on previously-developed land (see also Policy SE1).
5.23 Due to the predominantly urban nature of Watford, the majority of all new development will
take place on previously-developed or ‘brownfield’ land (see Glossary for full definition).
Government guidance on housing requires that at least 60% of all future development
should be accommodated on previously-developed land. Policy H5, in accordance with
Housing Objective 9 and with Policies SE1 and SE9 to SE13 (The Green Belt), will ensure
that least 80% of future housing development is accommodated on previously-developed
land in support of sustainability principles. Planned regeneration of previously-developed
land will play a major role in the provision of land to meet housing need up to and beyond
2011. Monitoring of this policy is dealt with in Chapter 12: Implementation, Monitoring and
Review.
5.24 H6 Town Centre Mixed-Use Development
The Council will encourage the provision of residential units, including affordable
housing, as part of mixed-use developments/redevelopments, or as flats above
shops, in all Town Centre locations (see Policies SE2 and TC5).
5.25 This policy seeks to promote residential accommodation, particularly for smaller non-car-
owning households, to bring new life into the Town Centre, redressing the current
imbalance of land uses in accordance with the aims of sustainability (see Policy SE2). All
major developments within the Town Centre (see Inset Proposals Map) should, where
appropriate, include a significant proportion of residential use. The Council will also
encourage, where appropriate, the conversion of vacant space above shops and vacant
commercial buildings to residential use. In line with PPG 3: Housing (March 2000), the
Council will give priority to employment-generating uses such as shopping and leisure at
ground floor level while seeking residential uses on upper storeys.
5.26 H7 Primarily Residential Areas
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Within primarily residential areas (as indicated on the Proposals Map), proposals for
residential purposes will be acceptable in principle provided they do not result in:
a) an overall loss of residential accommodation (see Policy H1);
b) a significant over-supply of housing within the plan period (see Policy H3);
c) a detrimental loss of open space (see Policy L4 and areas deficient in open
space identified on the Proposals Map);
d) a loss of a necessary community facility;
e) loss of necessary off-street car parking;
f) harm to nearby living conditions or the character of the area (see Policy U3).
5.27 The general standard of residential development in Watford is good and this has been
largely due to the operation of the development control process in conjunction with building
regulation control and the take-up of Improvement Grants. Primarily Residential Areas are
those parts of the Proposals Map not covered by site-specific policies.
5.28 H8 Residential Standards
A high standard of design and layout will be required in new residential
developments, conversions, redevelopment for residential purposes and extensions
to existing dwellings. All residential development will be considered against the
criteria in Policies U1, U2, U3, U4, U5, U7 and T4 and in relevant SPG. In interpreting
this policy, particular regard will be given to SPGs 2 to 9 (Lifetime Homes and
Residential Design Guidelines), SPG13: Accessible Environments, SPG14: Designing
for Community Safety and Appendix 2 Car Parking Standards. Proposals will also be
considered against the Council’s Design Guide.
5.29 In seeking to create a quality residential environment based upon sustainable development
principles, it will be necessary to ensure that housing is built to a high standard of design
and amenity and that it integrates harmoniously with its surroundings, offering a high quality
of life. Mitigating measures should be incorporated to ensure any damage or harm to the
natural environment is kept to a minimum. Careful consideration will also need to be given
to the siting of housing in order to reduce the need to travel.
5.30 H9 Back Garden Development
Planning permission for back garden development will only be granted where:
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(i) a proper means of access which is convenient and safe for pedestrians, non-
motorised and motorised highway users is provided, which keeps to a minimum
any visual impact within the street scene; and
(ii) the proposal complies with the criteria listed in Policy H8 (Residential
Standards) and Policies U1, U2, U3 and U4.
5.31 Homes with large back gardens are not uncommon in Watford’s more suburban areas. In
assessing such proposals particular regard will be given to means of access, design and
layout, development density, integration with the character of the local area, security, traffic
generation and general effects on nearby residential amenities.
5.32 Shared access (or ‘Tandem’ development), where the new development shares an
access with an existing house at the front, will usually be unacceptable. With careful
planning it may be possible to integrate new development with existing development
through the assembly of a number of existing rear or side gardens.
5.33 Where appropriate, conditions may be applied to planning permissions to remove permitted
development rights to carry out future extensions, and to prevent future sub-division of the
property into smaller units.
5.34 H10 Planning Agreements for Educational and Community
Facilities
Where a proposed residential development is likely to create an increased demand
for school places or other social or community facilities, developers may be required
to enter into a planning agreement with the council and, where appropriate, the
county council, to help meet the extra costs incurred as a direct result of the
development. This is to ensure acceptable educational, social and community
facilities are maintained.
5.35 Schools in Watford are already under pressure in terms of pupil capacity. New housing
development is likely to increase the number of children in the Borough, and has the
potential to place a greater demand for pupil places on local schools. Other community
facilities such as doctors’ surgeries, libraries, sports, youth and childcare facilities are also
put under pressure through an increasing local population. To help alleviate these
100
problems, new residential developments may be required to make a contribution, through
planning agreements, towards the provision of additional school places and/or other
community facilities (as mentioned above) to cope with increased demand.
5.36 All residential development, including conversions, has the potential to create demand for
school places and community facilities. The Council will take into account the type, size
and tenure of the proposed development when deciding whether a contribution should be
sought. Hertfordshire County Council will assess the impact of the proposed development
to determine the need and the appropriate level of contribution.
5.37 H11 Housing Mix
All proposals for residential developments (including conversions and
redevelopments) will be considered in the context of the local area’s need for a
variety of different types, tenures and sizes of accommodation. A variety of housing
types and sizes should be developed on all sites paying particular attention to the
Council’s Housing Needs Assessments. Housing as part of mixed-use
developments will be encouraged, including flats above shops.
5.38 Many residential areas in the Borough comprise an imbalance of dwelling stock, with three
bedroom homes predominating. The lack of a variety or mix of dwelling types and sizes
can often mean that individuals, couples or families wanting to transfer to more appropriate
accommodation as household circumstances change, have to move away from a familiar
locality. In all future residential developments the Council will seek to ensure a mix of
dwelling types and sizes is provided to help to redress any imbalance, and to work towards
achieving the formation of a dynamic, balanced community within an area in line with the
Council’s Housing Needs Assessment. The Housing Needs Assessment will be updated
on a periodic basis.
5.39 H12 Housing Density Standards
The Council recognises that housing density will vary depending on the type of units
(i.e. flats or houses and their number of bedrooms), mix and location, and will take
this into consideration when assessing a development for the following standards:
for sites greater than 0.05 hectares (500 sq. m.), development below 30 dwellings
or 120 habitable rooms per hectare net will not be permitted.
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The density of permitted development will be subject to the accessibility of the
site by passenger transport, and dependent on proposals meeting other criteria
of this plan and Supplementary Planning Guidance (SPG).
Higher density developments (over 50 units per hectare net) will be encouraged
in suitable locations in the Town Centre and close to passenger transport
facilities and corridors.
5.40 Given the small amount of developable land available within Watford, inefficient low density
use of land can no longer be sustained. Lower density developments would also be less
able to sustain local services or passenger transport, ultimately adding to social exclusion
and associated problems. If Watford is to meet its housing needs along with a balanced
mix of other land uses to service its inhabitants without sprawling out into the green belt,
development must be at higher densities. The Council will encourage more efficient use of
land with higher density developments (as set out in the policy above) using innovative site
layouts and high standards of urban design paying particular attention to context. In
achieving higher densities, careful consideration must also be given to residential amenity,
particularly daylight and sunlight, overlooking, quality amenity space and to overall quality
of life for residents. The Council will also encourage the creation of open spaces,
especially in areas of high density (see Policies L6 to L8).
5.41 Government guidance in PPG3: Housing (March 2000), recommends increased density of
development at and around places with good passenger transport accessibility, such as
town, district and local centres, and the avoidance of densities below 30 dwellings per
hectare net everywhere else to prevent sprawl. In Watford, in accordance with Policy T3,
proximity to passenger transport facilities and corridors will be defined as within 800 metres
of a railway station or 400 metres of a bus stop (except in the town centre, where the
distance is 200 metres of a bus stop).
5.42 H13 Conversions
Proposals to sub-divide existing dwellings, including the creation of housing in
multiple occupation (HMO) or the conversion of non-residential buildings to
dwellings will be acceptable in principle provided they are in accordance with Policy
H11 and:
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a) do not result in more than 10% of the existing residential frontage in a street
block consisting of a mix of conversions, HMO or guest houses;
b) do not affect the residential frontage in a street block so as to unacceptably
alter the character of that street block or the immediate neighbourhood;
c) car parking associated with the scheme is provided on-site or nearby in off-
street facilities so as not to add to congestion, cause problems of highway
safety or adversely affect the quality of the surrounding environment (see
Policies T22 and T24); and adequate amenity space and facilities for refuse
storage are provided;
d) do not harm any wild species protected under the provisions stated in Policy
SE31, along with the features of their habitat upon which they depend.
5.43 Conversions should only be allowed where they will not harm overall housing mix or the
character of an established residential area. Although conversions may add more one or
two bedroom dwellings to the stock they should not be allowed to do so at the cost of larger
dwellings which are often harder to replace. Similarly, conversions in terms of the numbers
of dwelling converted should not be allowed so as to alter the character of established
residential streets which are still largely used for family occupation. The level of existing
conversions considered to be acceptable will depend on the house type involved and the
character of the residential area. 10% of the residential frontage of a street block will be the
maximum permissible for any combination of conversions or changes of use to HMO or
guest houses, but some streets may be well below this figure. Each case will need to be
considered on its individual merits and how it will impact on the locality.
5.44 The term “residential frontage in the street block” will normally relate to individual street
blocks, defined as a group of properties situated on two sides of a street extending between
two road junctions or side streets (excluding limited width pedestrian alleyways). However,
where the street block is of limited length, a number of street blocks or the street as a whole
will be taken into consideration, having regard to its overall character and layout. A
“residential frontage” includes the total length of the ground floor frontage of all built
property in residential use. In calculating the level of existing conversions, HMO or guest
houses, it will be the number of properties within the frontage, rather than the geometric
length of such properties within the frontage, that will be taken into account. For the
purposes of this calculation, purpose-built residential flats within a defined frontage will not
be considered as existing conversions.
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5.45 H14 Conversions: Provision of Family Sized Units
In planning applications for conversions of properties with 150 sq. m. or more of
floor area, at least one unit should comprise three bedrooms or more. This unit
should have direct access to a garden space at ground level.
5.46 It is essential that the best use is made of the Borough’s housing stock. To ensure that the
number of family sized units is not lowered and that the dwelling mix of an area is
maintained, it is important to secure some level of provision of larger, three bedroomed
units when conversions take place.
5.47 H15 Non-Residential Proposals in Residential Areas
Proposals for non-residential uses (including extensions and proposals which would
result in an intensification of an existing non-residential use) within primarily
residential areas, as indicated on the Proposals Map, will be assessed having regard
to:
a) the need to retain existing residential accommodation (see Policy H1), open
space (see Policy L4), community facilities, local shopping facilities or off-street
car parking spaces/garages; and
b) any detrimental effect on the character or appearance of the area and/or any
adverse effect on residential amenity by reason of noise, dust, smell, traffic
generation, on-street parking or general disturbance.
5.48 It is important to maintain and improve the quality of the environment in residential areas.
In seeking to achieve this, it is necessary to control inappropriate non-residential activities
which would be harmful to the residential environment and local amenity. Acceptable uses
may include those which accord with sustainable development objectives - for example,
small scale uses which provide jobs or services close to the community they serve, thereby
reducing the need to travel. The provision of small scale employment uses, local shopping
facilities, community facilities or open space (particularly in deficient areas as identified on
the Proposals Map) are considered acceptable in principle in residential areas provided
they can be successfully integrated into the residential environment.
Affordable Housing
5.49 Affordable housing can be defined as:
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“housing provided for people who are unable to resolve their housing needs in the local
private sector market because of the relationship between housing costs and incomes.”
5.50 The types of affordable housing which comply with the definition above are as follows:
- units for rent
- shared ownership with grant
- shared equity, where land value is retained to provide housing for sale at below market
levels and where control of the ‘equity discount’ can be retained in perpetuity.
5.51 Circular 6/98 – Planning and Affordable Housing includes ‘low-cost market housing’ within
its definition of affordable housing i.e., housing sold at or below the lower quartile of
prevailing market values, providing the proposed sale price is affordable to households in
housing need. However, due to the prevailing housing market conditions in the Borough of
Watford, it is clear that there is a need for affordable housing at below ‘low cost’ market
prices as these are still too high to be affordable. A discount off the market price would still
not bring the cost within reach of those in housing need.
5.52 H16 Retention of Affordable Housing
Developments involving a loss of affordable housing will not be permitted.
5.53 The Council believes that the high demand for affordable housing and the difficulty in
obtaining it means that it is imperative that, once obtained, affordable housing provision is
protected. Accordingly, Policy H16 will not permit development involving the overall loss of
affordable housing units.
5.54 H17 Provision of Affordable Housing
Subject to the physical circumstances of the site, and the prevailing and anticipated
market conditions, all new housing developments consisting of 25 or more dwellings
or on sites over 1ha are expected to provide a proportion (at a minimum of 30%) of
affordable housing for perpetuity as an integrated element of the development in
accordance with the Council’s latest Housing Needs Assessment.
Phasing of a development so that the component sites are smaller than the threshold
above does not prevent the Local Authority seeking a contribution: in the instances
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of phasing, the site will be considered as a whole for the purposes of affordable
housing.
Affordable housing means dwellings provided by, or managed through, a registered
social landlord (RSL). The affordable housing will be secured for both initial and
subsequent occupiers, either through the initial involvement of a RSL or through a
planning obligation, under Section 106 of the Town and Country Planning Act 1990,
restricting occupation.
5.55 Circular 6/98 states that, if there is evidence of local need, the Council can seek to
negotiate with developers for the inclusion of affordable housing throughout the Plan area
as a material planning consideration. In this regard, the Council has undertaken a detailed
assessment of local housing need in order to inform housing policies. A Borough-wide
household survey was carried out in 2001 to assess the number of households in need,
levels of affordability and the size and tenure type of housing required. In addition it
identified an overall affordable housing target to be achieved over the five-year period to
2006 (see Paragraph 5.56).
5.56 The Watford Housing Needs Survey 2001 identified that there is a high demand for
affordable homes with approximately 1,870 housing units required by 2006, which equates
to 374 units per annum. This figure does not include need that can be met by re-lets of
existing affordable housing stock. The severe shortage of affordable housing can be
related to a number of factors including increased rates of household formation, Right to
Buy (sales of Council stock), high land values, and a decrease in public expenditure on
housing without a commensurate increase in resources for Registered Social Landlords.
These factors, along with relatively high house prices and rents in the Borough, have
prevented many people from gaining access into the housing market. In order to increase
access to affordable housing the Council will seek to assist Registered Social Landlords in
providing additional units through new build and renovation of existing properties.
5.57 In addition to the affordable housing units above, the Watford Housing Needs Survey 2001
identified an additional need for the provision of 100 unsubsidised low cost market housing
units to address the requirements of households earning in excess of £30,000 p.a and only
just able to access the market for new units.
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5.58 Monitoring of housing developments over recent years has shown that the sites coming
forward are becoming smaller in size, with lower numbers of dwelling units being proposed.
The lack of suitably large development sites within the Borough, together with the level of
identified need, justifies the threshold set out in Policy H17 of 25 dwellings or 1 Ha.
5.59 The Council recognises, however, that such needs, both in terms of quantity and type, as
well as site and market conditions, are likely to differ in each site location and may also vary
over the Local Plan period. The Council is committed to constantly monitoring the sizes and
capacities of housing development sites along with the total completions of affordable
dwellings, and will accordingly review this site threshold. The Council also recognises that
the proportion of affordable housing should be negotiated, and will take full account of the
current circumstances of each site when it comes forward for development. The
‘proportion’ of affordable housing which the Council is seeking on suitable sites, as
specified in Policy H17, will be at least 30%. This proportion may vary depending on the
physical circumstances of the site, and the prevailing and anticipated market conditions and
will be subject to review.
5.60 The Watford Housing Needs Survey 2001, carried out as part of the Council’s Housing
Needs Assessment, documents the need for affordable housing in Watford. It will be
reviewed and updated as necessary. In addition, the Annual Monitoring Statement will
provide updates on the completions of affordable housing dwellings.
5.61 SPG1: Affordable Housing will be used in the interpretation of Policy H17. It provides
further detailed guidance on the application of the policy, including for example, the detail
about the dwelling sizes and proportions required.
5.62 H18 Affordable Housing Below Threshold
The Council will encourage the provision of affordable housing on sites below the
threshold.
5.63 The definition of the threshold in Policy H17 does not preclude developers from providing
affordable housing on sites which are below that threshold. The Government encourages
developers to consider such provision where they think it feasible and appropriate.
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5.64 H19 Joint Working
Watford Borough Council will, in principle, work in partnership with surrounding local
authorities and other social housing providers to meet affordable housing needs.
5.65 Watford’s housing needs and market extends beyond the Borough boundary, adding an
extra complexity to the provision of affordable housing. In response to this, the Housing
Committees of Watford and Three Rivers Councils have agreed in principle, through the
Housing and Regeneration Initiative (HARI), to jointly fund affordable housing
developments.
5.66 HARI is a partnership between Three Rivers and Watford Councils and the Registered
Social Landlords with homes in the area, and it has prepared an Affordable Housing
Strategy which will be used for ensuring the provision of affordable housing once planning
contribution has been secured. Joint working may assist in meeting the affordable housing
needs of both Councils.
5.67 H20 Lifetime Housing
All new build housing (including within major redevelopments) should be designed
to ‘Lifetime Homes Standards’ wherever physically achievable, particularly on the
ground floor. The 16 design criteria that ensure dwellings are accessible, flexible
and adaptable are documented in SPG 2: Lifetime Homes.
5.68 Since October 1999 all new housing development has had to comply with the minimum
standards set out in Part M of the Building Regulations, so that private homes are built with
level entrances and other improvements such as wider doorways. This will improve at least
‘visitability’ standards which ensure ease of access for all. The concept of ‘Lifetime Homes’
has been developed largely through research carried out by the Joseph Rowntree
Foundation. Lifetime Homes Standards are about adaptability and flexibility. These go
beyond the Part M standards to ensure that if or when the need arises to adapt a property,
for example, to cater for wheelchair use, this can be carried out rapidly, cheaply and with
the minimum of effort or interference. They do not constitute “special needs housing”, but
are designed to physical spatial standards to allow for this possible eventuality.
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5.69 The need for accessible housing, documented in the Housing Needs Assessment, is
expected to rise with increased life expectancy. The Council will therefore require all
housing units with suitable site characteristics to be built to a basic accessible standard in
accordance with Policy H20 and the design principles set out in SPG 2. This represents
the Council’s long-term interest in meeting the changing housing needs of its community.
5.70 H21 Housing in Multiple Occupation (HMO) Provision
The Council will, in principle, give favourable consideration to the provision of HMO
provided that they meet the Council’s adopted standards and are not detrimental to
the amenity of adjoining and nearby residents.
5.71 Housing in Multiple Occupation (HMO) refers to a house or flat where the residents do not
live together as a single household but may share certain facilities, such as bathrooms and
kitchens, while still maintaining a degree of independent living. This type of use falls
outside Use Class C3 (Dwelling houses) of the Use Classes Order which relates to single
household dwellings. As such, all changes of use to HMO will require planning permission.
SPG 21: Housing in Multiple Occupation Planning Strategy details the relevant planning
standards to be applied.
5.72 HMO of an adequate standard, as detailed in SPG21: HMO Planning Strategy and the
Council’s adopted “Standards for Houses in Multiple Occupation” (Sept 2000), can make a
valuable contribution towards the provision of housing in the Borough, especially in terms of
smaller housing and affordable housing needs. The Council will encourage the retention of
good quality HMO, ensuring that they are registered through the Environmental Health
HMO Registration Scheme as well as acquiring planning consent. An information brochure
about HMO can be obtained from the Council’s One Stop Shop.
5.73 H22 Housing for Older People (Sheltered)
The Council will encourage the development of elderly people’s accommodation on
sites located close to shops, services or passenger transport. The type and size of
proposals will be considered having regard to SPG 9: Sheltered Housing.
5.74 Elderly persons continue to constitute a greater proportion of the population as people live
longer. Although the rate of growth of the 60+ age group is expected to stabilise, the
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numbers of 80 + year olds in Watford are projected to increase significantly creating a
continuing need for purpose-built elderly person units.
5.75 In general a good range and dispersal of sites should be encouraged for development so
that elderly people can remain in or close to established communities and maintain family
and community links. SPG 9: Sheltered Housing sets out the standards to be achieved in
sheltered accommodation.
5.76 H23 Special Needs Housing
Proposals for accommodation to meet special housing needs (falling outside Use
Classes C1 and C3) will be determined having regard to the Council’s SPG 9:
Sheltered Housing and SPG 6: Internal Space Standards. Where family
accommodation is provided, a family room must be provided for children’s play and
for parents to meet if no other communal lounge is provided. Accommodation for
the warden, if one is to be resident on the site, should be provided in compliance
with Policy H8: Residential Standards.
5.77 Although there is no legal definition, special needs accommodation is generally described
as sheltered accommodation for vulnerable groups in the community. This includes
temporary accommodation, e.g. for homeless families and victims of violence, and/or
longer term or permanent accommodation, e.g. for people with learning difficulties, mental
health problems, autism and some extreme physical disabilities. Although some
accommodation is intended to be temporary while occupants find more permanent
accommodation, the length of time spent here can be as long as a year. It is important
therefore that the standards of accommodation are adequate to meet the needs of people
who are likely to live in special needs accommodation for prolonged periods.
5.78 H24 Travellers Accommodation
Proposals for the use of a site for gypsy or travelling showpeople accommodation
will be considered against the following criteria:
evidence demonstrating need for the site;
safe access to major road network;
access to shops, education and health services;
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no adverse impact on the environment and local residential amenity;
site suitability – including a supply of essential services such as water,
sewerage and drainage, and waste disposal, and;
not located within the Green Belt or other protected areas.
5.79 Travellers comprise a range of groups of people including gypsies, travelling showpeople
and people who choose travelling as a way of life. Gypsies are defined in Section 16 of the
Caravan Sites Act 1968 as “persons of nomadic habit of life, whatever their race or origin”.
5.80 Local authorities no longer have a statutory duty to provide gypsy sites (Circular 1/94 on
‘Gypsy Sites and Planning’). They should, however, have regard to the accommodation
needs of gypsies and travellers in carrying out their Housing Needs Assessments (PPG3,
2000). Circular 1/94 also states that ‘as a rule it will not be appropriate to make provision
for gypsy sites in areas of open land where development is severely restricted, for example
Areas of Outstanding Natural Beauty, Sites of Special Scientific Interest and other
protected areas’. It goes on to state that ‘gypsy sites are not regarded as being among
those uses of land which are normally appropriate in Green Belts. Green Belt land should
not therefore be allocated for gypsy sites in development plans.’
5.81 A gypsy site at Tolpits Lane and a site for travelling showpeoples' winter quarters off North
Orbital Road exist within the Borough.
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CHAPTER 6: EMPLOYMENT
PLANNING FOR SUSTAINABLE EMPLOYMENT
6.1 A balanced and sustainable economy to meet the needs of local people is essential for the
continued well being of the town, to help provide the means by which to raise overall quality
of life, and the resources to carry out environmental improvements.
6.2 Watford is a major centre for employment within Hertfordshire, providing jobs for
approximately 54,000 people. It was traditionally a centre for the printing and brewing
industries. As these old industries declined new ones became established and Watford is
now known as a regional shopping centre, as well as having a strong base in banking,
financial services and information technology. More recently the local economy is
beginning to see the emergence of new opportunities, particularly around developments in
the film, leisure and tourist industries.
6.3 The unemployment rate in the Borough has fallen steadily from 11.4% (February 1993) to
approximately 1.8% (March 2003). The level of unemployment is slightly higher than for the
County as a whole, but lower than Great Britain. It is essential to maintain this low level of
unemployment. To ensure that a healthy economy can be maintained, it is necessary to
encourage diversification of the economic base, in the longer term. This will widen the
range of opportunities available and reduce the dependence on individual industries,
therefore increasing stability and employment choice.
6.4 Although the District Plan is primarily concerned with land use, the Council will support
other agencies such as the Watford Regeneration Economic Forum and the Town Centre
Business Forum through joint initiatives to widen employment opportunities. The Council
will also ensure that sufficient land is available to allow further growth and development.
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SUSTAINABLE EMPLOYMENT OBJECTIVES
6.5 (1) Encourage economic development which is compatible with the environment, and
meets the employment needs of local people
(2) Protect and make best use of existing employment sites and buildings to meet the
current and future employment needs of the Borough, whilst not generating
demands for new housing that will exceed the Council’s housing allocation (see
Policies H2 and H3).
(3) Ensure continued sustainable economic development by encouraging mixed use
development and reducing the need to travel.
(4) Support and encourage through partnership, the implementation of measures
which assist the sustainable regeneration of the local economy, including support
for growth sectors and new technology.
(5) Maintain diversity and vitality, encouraging ‘start-up’ enterprises and protecting
small firms which are necessary for the effective functioning of the local economy,
or which provide important services to local residents.
(6) Support, in principle, homeworking and the provision of accommodation for small
firms.
(7) Improve job opportunities for local residents, especially those who are
disadvantaged in the labour market, and encourage a good quality working
environment with suitable facilities for workers.
(8) Support other agencies through joint initiatives to widen employment
opportunities.
(9) Encourage the recycling of commercial waste and the provision of sustainable
waste and recycling facilities within employment developments (see Policies SE7
and SE8).
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SUSTAINABLE ECONOMIC DEVELOPMENT STRATEGY
6.6 Watford Borough Council is committed to meeting local employment needs and has a key
role to play in facilitating local economic development. The Council’s Sustainable
Economic Strategy is prepared annually. The overall vision for the Strategy is to create a
diverse local economy, in the context of the global economy, in which the local community
is empowered, by providing opportunities to gain access to good quality jobs and training,
while taking into account the needs of our environment and future generations. In
particular, the Strategy aims to assist those people who have traditionally been
discriminated against in the labour market, such as women, minority ethnic groups, people
with disabilities, young people and those who have been made redundant.
6.7 The Council’s Sustainable Economic Strategy reflects the Hertfordshire Countywide
Economic Development Strategy, which provides a vision for the future development of
Hertfordshire’s economy. The Council’s Strategy aims to develop the long term
competitiveness of the knowledge based economy in a sustainable environment, by
recognising and maximising the strengths and opportunities presented with the County.
The policies in this Plan support the aims of both the Hertfordshire Countywide Economic
Development Strategy and the Watford Sustainable Economic Strategy and will be taken
into account when deciding planning applications for employment use.
SUSTAINABLE ECONOMIC REGENERATION
6.8 Economic regeneration depends upon co-ordinated action by a range of agencies. The
Council will seek to develop partnerships with a wide range of partners, from the public and
voluntary sectors, to secure comprehensive and sustainable regeneration in Watford.
Whilst land use planning and the policies set out in the Plan will be an important component
of this, they need to be supported by other initiatives. In particular, the Council will seek in
partnership with others to:
a) create a positive attitude to those businesses who wish to apply for permission to
redevelop their sites as part of investment plans to improve efficiency, cut waste or
improve/clean up industrial emissions;
b) encourage the development of vacant and under used-land and buildings, and
investigate the opportunities for residential development on sites not allocated for that
use, as part of regeneration and mixed-use development projects;
c) identify locations for business use which are easily accessible by local residents,
especially by walking, cycling and passenger transport services;
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d) ensure that the right information is in place in terms of sites and premises availability;
e) secure employment opportunities for local residents (as set out in Policy E7) through
education, training and careers advice;
f) attract and assist new economic sectors;
g) bring forward new investment opportunities; and
h) offer business advice services and access to teleworking and other support services.
6.9 It is important that such services are co-ordinated and are easy to access, particularly by those
in most need, so that these opportunities can be targeted to address local problems. In
addition there is a need to enhance the local environment and ensure that a range of
complementary services and facilities are available in order to attract investment.
6.10 The Council has prepared a strategy for the regeneration of West Watford, an area with
Single Regeneration Budget funding (identified on the Proposal Map as Special Policy Area
1 (SPA1)). The strategy will be taken into consideration when considering planning
applications or development proposals. In particular, the Council will seek redevelopment
that will provide an opportunity to create and enhance a balanced mix of traditional and
higher-grade employment opportunities for local people, especially in the Cardiff Road
employment area.
EMPLOYMENT PROVISION
6.11 It is necessary to ensure that a balance is maintained between employment and other land
requirements, encouraging the availability of sufficient land to achieve full employment
whilst preventing damage to the environment through the over-provision of jobs creating
additional demand from outside the Borough for housing and other facilities.
6.12 Research was commissioned in 1995,3 as part of the review of the Structure Plan, to
assess employment floorspace and land needs in the County over the period to 2011 and
beyond. Using a range of forecasting techniques, the research concluded that there was
sufficient employment land and floorspace to meet needs during the Plan period for Use
Class B1 and B2. However it suggested that additional allocations are required for Use
Class B8 Floorspace (approx. 58,000 sq. m.).
3 Hertfordshire County & District Councils - Long Term Employment Land Needs. A Report by Pieda Plc Sept
1995
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6.13 In 1999, the County Council commissioned a report to assess how far the County’s stock of
employment space is qualitatively well-suited to meet the property needs of business and
the employment needs of the community. The report (Employment Space Needs in
Hertfordshire – August 1999) identified that there is high demand and limited supply,
especially for modern high-quality office space in Watford, while substantial amounts of
older, lower quality space remain vacant. The study identified that there may be potential
for more urban business park development, using vacant and under-used land in the
Imperial Way Employment Area.
6.14 The Council will carry out joint monitoring and periodic forecasting of trends with the County
Council as set out in Policy 14 of the Structure Plan (adopted April 1998) to ensure that
there is an adequate and balanced supply of employment floorspace within the Borough. In
addition the Council will identify in its annual monitoring reports any existing employment
provision which is no longer required to meet future employment and business needs. Such
sites may be brought forward as part of a regeneration package for an area to be used for
housing (subject to Policy H2) or mixed use.
6.15 Land which is allocated for employment use is identified on the Proposals Map. While the
Council has decided that there are adequate opportunities in the existing employment
areas to meet needs in quantitative terms, an extension is proposed to Employment Area 4
(Fishers/Wiggenhall Road). The extension utilises the land that was previously safeguarded
for the West Watford Relief Road.
6.16 At present most of the identified employment areas are within easy walking and cycling
distances of residential areas, or are comparatively well served by passenger transport.
Where current provision is less satisfactory, for example, Watford Business Park and
Cardiff Road, further improvements will be made to reduce the need to travel by car within
the Borough.
6.17 E1 EMPLOYMENT AREAS
The Council will seek to protect employment land as identified on the Proposals
Map:
1. Watford Business Park
2. Cardiff Road
3. Imperial Way/Colonial Way
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4. Fishers/Wiggenhall Road4
5. St Albans Road
(a) North of Railway Line
(b) South of Railway Line (Including Station Road North)
6. North Watford
(a) Odhams
(b) Greycaine
(c) Sandown
7. Central Area
(a) Clarendon Road/Station Road South
(b) Upton Road
Proposals for research and development (Use Class B1b), light industry (Use Class
B1c), general industry (Use Class B2) and storage and distribution (Use Class B8)
would be acceptable, in principle, in identified Employment Areas 1 – 6.
Proposals for primary office use (Use Class B1a) will be acceptable in principle in
identified Employment Areas 7a and 7b, the Town Centre (see Polices TC1 and TC4)
and Lower High Street Policy Area (see Policy LHS1). Within Employment Areas 1-6,
planning permission for office use (Use Class B1a) will be granted where the location
has good access and is close to passenger transport facilities and there are no
significant detrimental effects on surrounding amenities.
The alteration, extension, change of use or redevelopment for Use Class B8 (storage
and distribution) will be acceptable, in principle, within the defined employment
areas provided that:
a) there is good vehicle access, including access from the site to trunk routes;
b) the proposed development does not give rise to unacceptable levels of traffic,
noise or pollution; or
c) it lies within the Lower High Street Policy Area (as identified on the Proposals
Map).
Exceptionally, land within the defined employment areas may be released for the
purposes of regeneration, in the form of either housing or mixed-use development,
4 Proposed extension to Employment Area 4. Land previously safeguarded for West Watford Relief Road.
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where it is demonstrated (with reference to the Council’s monitoring reports) that the
site is no longer required to meet future employment and business needs.
Planning permission will not otherwise be granted for any uses outside the B Use
Classes unless these are ancillary to existing or proposed employment uses, and of
a scale and nature that complements the uses.
6.18 For the purposes of this Plan, and in accordance with the Structure Plan, employment
generating uses are defined as those uses which fall within Part B of the Use Classes
Order (1987, as amended):
B1 uses are those offices not within Use Class A2, research and development and light
industry;
B2 uses are general industrial; and
B8 uses are described as wholesale warehouse and distribution centres.
6.19 Watford has clearly defined employment areas which are maintained in this Plan. The
identification of employment areas was based on Structure Plan criteria and the need to
retain employment land in locations accessible by passenger transport or close to
residential areas. It is essential that such land is retained for industrial and business uses
(Use Class B) in order to ensure that sufficient land remains to meet local employment
needs and can be accessed by means other than car travel.
6.20 Existing employment sites can have a noticeable impact on the local environment in terms
of traffic generation and general disturbance. The Council will seek to ensure that office
use, which is a high traffic generator, is located within the identified employment areas.
Development outside the designated areas will be guided by considerations set out in
Policy E2.
6.21 Employment Areas 5a & 5b have been identified as a Key Development Site. The primary
designation remains employment use. Schemes that will enable the development of the
Watford Junction Transport Interchange Improvement will be encouraged. A development
brief will be prepared for the area in consultation with Network Rail and members of the
public (see Paragraphs 12.16 – 12.18 and Table 8).
6.22 The Council recognises that certain non-employment uses are required in employment
areas and, indeed, encourages the provision of facilities for employees. Policy E1 makes
provision for such ancillary uses, one of which is crèche facilities: to ensure that
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employment opportunities are available to those who have childcare responsibilities, the
Council will encourage the provision of workplace nurseries. Therefore small workplace
nurseries, and those which are ancillary to employment uses, will usually be acceptable
where they comply with Policies E1, E2 and CS6. As a special case, such ancillary
nurseries could include free standing nurseries which could serve to meet the childcare
needs of a number of small employment uses which individually could not fund their own
workplace childcare facility. Policy E8 further addresses the issue of workplace childcare
facilities.
6.23 The Council will periodically carry out studies to monitor supply and demand trends in
employment space needs, to determine what types and quantities of existing employment
provision will no longer be required for employment purposes, and so may be released for
other needs. In carrying out this study both the qualitative as well as quantitative issues will
be taken into consideration.
6.24 E2 EMPLOYMENT USE OUTSIDE IDENTIFIED EMPLOYMENT
AREAS
Outside the identified employment areas planning permission for employment use
(especially primary office use) will only be granted where;
a) the site is already in employment use (subject to Policy E6);
b) it is ancillary to, or provides additional accommodation for an existing business
in the area;
c) the location has good access and is close to passenger transport facilities;
d) there are no significant detrimental effects on residential amenities; and
e) in the case of a proposal for the expansion of existing employment generating
activities, it is in accordance with the other policies of the Plan.
6.25 Not all employment development within the Borough is located in employment areas.
Employment uses are also found on scattered sites, and these fulfil an important role in the
local economy, as well as, in some cases, providing sustainable employment opportunities
close to residential areas. Such sites are generally protected (see Policy E6), and new
sites may be permitted provided that various sustainability and amenity criteria are
satisfied. The Council will avoid the creation of inappropriate non-conforming uses.
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SMALL BUSINESS, SELF-EMPLOYMENT AND HOMEWORKING
6.26 E3 SMALL UNITS
The Council will encourage the provision of small industrial and business units,
subject to compliance with Policy E2, and will not permit development which
involves a net loss of small units.
6.27 Small businesses play a significant role in the local economy. They provide a diverse
range of employment opportunities and potential for future growth. The Council will
therefore encourage the provision of small units. However, small businesses are often
located in primarily residential areas, so it is essential to ensure that they do not reduce the
environmental quality in the surrounding area (see Policy H15).
6.28 E4 HOMEWORKING
Proposals for homeworking will be permitted provided that they do not result in the
loss of residential accommodation (see Policy H1) and would not have an adverse
impact on adjacent properties in terms of noise, movements and general disturbance
(see Policy H15).
6.29 Homeworking (the use of a portion of existing residential premises for commercial
purposes) will be supported in principle where the use is ancillary to the residential use and
is carried out by the residential occupiers, their partners and associates and where the
whole of the accommodation continues to be used for primarily residential purposes.
Homeworking decreases traffic generation with a consequent reduction in pollution and a
saving of energy and resources.
6.30 Where the use is not considered to be ancillary, planning permission will only be granted
for a limited period only, in order that the Council may retain the power to require the use to
cease should nuisance be caused. A planning condition stating that the commercial
accommodation shall not be used other than by the residential occupiers, partners and
associates will be imposed. The Council may also impose a condition limiting the
commercial use to a single stipulated use, in order that the character of the use permitted
shall not change without its prior and express consent. The Council may consider making
the permission personal to a named person or persons, where it feels these safeguards to
be necessary.
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6.31 E5 ENVIRONMENTAL CONSIDERATIONS
In considering all planning applications for Use Class B and all other employment-
generating activities particular regard will be paid to the following criteria:
a) the compatibility of the proposal with the transport policies set out in this Plan,
the Hertfordshire Structure Plan Review 1991-2011 and the Local Transport Plan;
b) the adequacy of any proposed vehicle access and the likely impact of any
associated traffic generation on the local road network and the environment of
the locality;
c) the adequacy within the site of space for the circulation, parking, manoeuvring
and loading and unloading of commercial vehicles;
d) the impact on the local environment in terms of noise, vibration, smell, fumes,
smoke, soot, ash, dust, grit, light pollution and general disturbance;
e) the impact on foul and surface water drainage facilities; and
f) the quality of the design and its impact on the street scene and the general
character of the area.
6.32 In addition to meeting the locational requirements set out in this Plan all employment
generating proposals must be built to a high standard of design (including landscaping),
have adequate servicing and manoeuvring space, and appropriate levels of car parking
(see Policies U1, U2, U3, U4, U5, U6 and U7 and Appendix 2). The Council will also have
regard to the environmental impact of any proposals and will seek to ensure that proposals
do not, individually or cumulatively, have an adverse impact on the local environment or
infrastructure. In particular, the Council will seek to minimise the level of car traffic
generated and will explore opportunities to promote alternative modes of transport to
private vehicles.
6.33 E6 CHANGE OF USE FROM USE CLASS B OUTSIDE
EMPLOYMENT AREAS
Permission will only be given for the change of use or redevelopment of employment
sites, outside employment areas and the Town Centre, where:
a) the property is vacant and there is evidence to show that there is no real
prospect of using the building or land in the medium term for employment use;
b) the proposal will not be detrimental to the continuing use of adjoining
employment uses, especially B2 uses;
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c) the proposal achieves sustainability objectives, for example, mixed-use
development, housing close to passenger transport nodes, or the provision of
additional dwellings as part of planned regeneration;
d) the existing use has an adverse impact on the surrounding area; and
e) in the case of B8 uses, the Council considers that the existing vehicle access is
unsatisfactory, and the use to be displaced cannot operate without
unacceptable detriment to amenity.
6.34 Existing employment sites can have a noticeable impact on the local environment in terms
of traffic generation and general disturbance. Where existing employment sites have an
adverse impact on the local environment, their redevelopment for housing or other
environmentally acceptable uses will be encouraged.
6.35 Surplus employment land and buildings are expected to make a significant contribution in
achieving the overall dwelling requirement for Watford (Hertfordshire Structure Plan 1991-
2011). However, due care is needed to balance the need for more dwellings and job
creation. The Council, whilst seeking to meet its housing provision target, will also ensure
that good quality employment land capable of the full range of B1/B2 use is protected.
“Medium Term” is defined as between 5 - 10 years.
EMPLOYMENT OPPORTUNITIES FOR LOCAL RESIDENTS
6.36 E7 LOCAL RECRUITMENT AND TRAINING
The Council will seek to enter into agreements with major employers (see Glossary
for definition) moving into new developments or seeking planning permission to
expand, to facilitate fair and effective programmes of local recruitment and training.
6.37 To ensure that further developments for employment uses help to achieve the objective of
reducing unemployment, it is important to particularly encourage those businesses which
provide jobs that are compatible with the skills of the local workforce. Where this cannot be
achieved, the Council will seek developer contributions, in accordance with the advice in
Circular 1/97, towards providing adequate training for the local labour force to meet the
demand created by the new use. In exceptional cases, whereby the developer is not able to
recruit or provide training for the local labour force, the Council would accept financial
contributions towards the training of an unskilled labour force.
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6.38 The Council, under the auspices of the Housing Regeneration Initiative (HARI), is involved
in setting up a local labour in construction scheme and would expect developers to make
use of local labour.
6.39 E8 FACILITIES FOR EMPLOYEES
When dealing with employment generating schemes, the Council will have regard to the
provision being made to meet the childcare needs of employees. In connection with
schemes which will generate significant levels of new employment, it will seek as a
matter of priority, either that specific childcare facilities be included within the
development, or that support be given for an increase in the level of childcare
provision elsewhere. The Council may also seek to provide other facilities for those
working in areas with significant concentrations of employment, both through its
own activities and by encouraging the activities of others. Where necessary it will
seek to enter into agreements to these ends.
6.40 The availability of general facilities and services (for example convenience shops,
passenger transport, post offices or sitting-out areas – see Policy L7 (Pocket Parks) is as
necessary for those working in Watford as for residents. The needs of those working in the
Borough will therefore be borne in mind by the Council in its operation of its general
policies. As well as protecting existing facilities and services, the Council will seek the
provision of facilities considered lacking. The personal security of employees will also be
an important consideration.
6.41 The provision of childcare is considered vital in order that the limited number of childcare
spaces provided within the Borough does not prevent those with childcare responsibilities
who wish or need to find employment from doing so. The provision of childcare can also be
beneficial to employers by helping them to attract and retain staff, to reduce absenteeism,
to overcome skill shortages and to improve the image of the company. As part of the
economic development responsibilities, the Council encourages employers in the Borough
to make provision for the childcare needs of their existing or potential employees. This
encouragement is complemented by the Council seeking childcare provision when dealing
with proposals for larger employment-generating development. Where schemes are large
enough, the Council will wish a properly designed nursery with adequate play facilities to be
included in the development itself (see SPG11: Childcare Facilities). Provision made in
other ways by, say, the creation of an off-site nursery, by support for the expansion of
existing facilities or by setting up of a childcare allowance scheme may also be considered
appropriate. In general however, the Council will seek an increase in the total number of
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childcare places, and will particularly welcome schemes producing childcare places over
and above the likely need from employees who will work in the development itself.
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CHAPTER 7: SHOPPING
MAJOR SUB-REGIONAL SHOPPING CENTRE
7.1 Watford is a major sub-regional shopping centre which consists of the Town Centre (see
Proposals Map Inset), the Lower High Street Retail Parks Area (contained within the Lower
High Street Policy Area identified on the Proposals Map) and the other Centres listed in the
retail hierarchy (Paragraphs 7.2 to 7.7). The Town Centre attracts people from a wide area
including London, St. Albans, Hemel Hempstead, Harpenden and beyond.
Shopping Hierarchy
7.2 The major sub-regional shopping centre is part of an overall shopping hierarchy within
Watford. Watford provides for the catchment area’s daily and weekly shopping needs. The
Centre’s location, accessibility by passenger transport and car, and its range of uses help
to reduce overall car use and the need to travel by providing multi-purpose trips.
7.3 The Town Centre remains the main focus for shopping, offering a wide range of consumer,
durable and convenience goods from modern and traditional shops in pleasant, largely
pedestrianised, surroundings. The vitality of the Town Centre, supported by a range of
other uses, adds greatly to its shopping attractiveness. The Centre provides 125,418 sq. m.
(1.35 million sq. ft.) of gross retail floorspace. Approximately 50% of this space is managed
floorspace located in the Harlequin Shopping Centre.
7.4 North Watford Shopping Centre, identified on the Proposals Map, is the next largest
shopping centre which serves more local shopping needs and also contains some durable
goods and specialist shops. The Centre comprises approximately 17,094 sq. m. (184,000
sq. ft.) of gross retail floorspace.
7.5 Further down the shopping hierarchy are local, smaller shopping facilities which are
distributed throughout the Borough and identified as Shopping Frontages on the Proposals
Map and in Appendix 3. These provide mainly convenience retail goods and services
which meet the day-to-day needs of local residents particularly without the use of a car.
They also help to create communities by providing a local focus and assist in reducing the
overall need to travel. These shopping facilities provide approximately 19,045 sq. m.
(205,000 sq. ft.) of gross retail floorspace
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7.6 Last on the hierarchy are individual shop premises in or close to residential areas providing
convenience goods essentially to meet local daily needs.
7.7 In addition, the contribution to Watford’s retail offer from out-of-centre food and non-food
retail warehouses is also acknowledged. This includes out-of-centre, which consists of
major retail warehouse developments and Tesco Extra at Lower High Street plus Asda and
Sainsbury’s at the Dome Roundabout and the retail park in St. Albans Road. These
developments total 81,000 sq. m. (870,000 sq. ft.).
RETAIL STUDY
7.8 In accordance with Government guidance (PPG6-Town Centres and Retail Developments),
Watford Borough Council commissioned a Retail Study (October 2001) to:
1) provide an up-to-date factual assessment of retail developments and trends including
data on the quality, quantity and convenience of retailing in Watford;
2) forecast retail demand and how the retail sector is likely to want to respond to demand
over the Plan period by reference to location; and
3) identify, if there is unmet demand, a range of suitable sites which could meet that
demand, with particular attention to their accessibility by a choice of means of transport
7.9 The findings of the Retail Study help inform the future of shopping in the Borough and in
particular the Town Centre. The Retail Study adopted a robust approach to the analysis of
retailing in Watford. The findings of the report will be used to assess proposals that may
come forward over the Plan period and/or in working up Supplementary Planning Guidance
for specific sites. The key findings of the Study are:
Watford is a major sub regional centre and is the principal shopping centre for the North
Thames and surrounding Home Counties area with a catchment of 510,923 people
(based on a twenty minute drive-time in 2000)
The catchment profile is characterised by a fairly young, economically active, affluent and
highly mobile resident population with high spending power
The total retail offer in Watford consists of approximately 243,000 sq. m. (2.61 million sq.
ft.). The Town Centre is the largest single constituent providing 125,418 sq. m. (1.35
million sq. ft.) of retail floorspace of which the Harlequin Centre accounts for
approximately 50%
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The Town has a good mix of retail uses although the provision of non- retail uses in the
Town Centre is above the national average and there is a need to diversify particularly
towards quality merchandise and family orientated leisure
In terms of retail performance, one recognised source of information (Experian Goad
Retail Centre Rankings 2002) currently ranks Watford as the 28th most vital and viable of
the UK retail centres. This indicates continued consumer and investment confidence in
Watford Town Centre as a retail destination
A survey of 1,911 residents within a defined catchment area highlights Watford’s market
share for convenience, bulky and non-bulky comparison shopping, demonstrating the
wide range and quality of goods already on offer within the Borough and the general
satisfaction of residents with the retail provision
Demand for retail space in Watford remains strong with a low number of vacancies in the
prime retail area and this is reflected in considerable recent increases in prime rents
There appears to be a relatively high demand for retail space from retailers particularly in
the Town Centre for comparison goods
Retail consumer expenditure is expected to increase significantly over the next ten years
and it will be important for Watford to plan for this growth by widening the provision of
convenience and comparison shopping in the face of growing competition from other
centres
7.10 The Retail Study has identified that, on the basis of forecast expenditure growth in the
Borough, an additional requirement in the region of 20,391 sq. m. (220,000 sq. ft.) of net
retail floorspace across all types of retailing should be planned for up to 2011. This figure
is based on the following assumptions:
That there is no significant inflow of expenditure from beyond the catchment area defined
for the purpose of the Watford Retail Capacity Assessment (April 2002).
That there is no substantive evidence of a significant level of overtrading in Watford Town
Centre at the date of the Watford Retail Capacity Assessment (April 2002).
That the increase in population in the catchment area and the growth of retail expenditure
in that area is broadly in line with the forecasts contained in the Watford Retail Capacity
Assessment (April 2002).
That the efficiency of floorspace in Watford Town Centre will improve at the rate of
approximately 1.5% per annum during the remainder of the plan period.
7.11 As a consequence the figure will need to be monitored and reviewed in light of any new
information. The figure will be used to guide the assessment of retail proposals in
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quantitative terms. The Council will also consider the qualitative need for new development
in line with Government advice. The Study recommends a phased approach to provision
and a sequential approach to the selection of preferred sites to meet future needs (see
Paragraph 7.17).
A comprehensive Town Centre Strategy should be formulated to examine the most
suitable and sustainable location(s) to accommodate the forecast additional floorspace.
This will include assessment of the impact of additional retail floorspace upon traffic and
transport infrastructure within and adjoining the Town Centre
There should be restrictions in the short term (to 2006) on additional retail warehousing
development in edge-of-centre and out-of-centre locations to provide a period of
consolidation (see Policy LHS1).
Applications for additional Class A3 (Food and Drink) Uses in The Parade area should be
resisted as there is now an excessive concentration which is becoming detrimental to the
overall retail offer and character of this area.
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OBJECTIVES
7.12 (1) To maintain and enhance the Town Centre’s retail character, its vitality and viability
and to complement its shopping provision with appropriate developments in the
Lower High Street Policy Area (identified on the Proposals Map).
(2) To maintain and enhance the role of all identified shopping facilities in meeting a
range of shopping needs and thereby helping to reduce the overall need to travel.
(3) To ensure that all new retail development locates in the most appropriate location
defined by the shopping hierarchy in terms of its nature and size so as to enhance
that shopping facility’s ability to meet appropriate shopping needs.
(4) To concentrate retail development in identified shopping centres in preference to
out-of-centre and out-of-town locations in order to protect the vitality and viability
of existing centres and help reduce the overall need to travel.
(5) To ensure that everyone in Watford has easy access to local shopping services
that provide for daily shopping needs.
(6) To maintain and enhance the character and environmental quality of all shopping
centres and identified shopping frontages through new developments and direct
action.
(7) To encourage the recycling of commercial waste and the provision of sustainable
waste and recycling facilities within retail developments (see Policy SE7 and SPG
25 Litter and Waste Management).
LOCATION OF NEW RETAIL DEVELOPMENT
7.13 Major new shopping developments should essentially be located in the Town Centre to take
advantage of its location and accessibility, so helping to reduce the overall need to travel
and to add to its vitality and viability. New retail warehouses and other retail developments
not appropriate or able to locate in the Town Centre, should locate in the Lower High Street
Policy Area (identified on the Proposals Map) to support and
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complement the Town Centre. Such development will be considered against Policy LHS1
and the Retail Strategy set out in Paragraph 7.17. Development in the Lower High Street
area can be seen as complementary where it does not adversely affect the vitality and
viability of the Town Centre and where it encourages linked trips with the Town Centre
thereby reducing the need to travel. Development will also be considered against the
sequential approach (Paragraph 7.23) and other criteria for assessing impact on the Town
Centre (Policy S2).
7.14 Smaller scale retail development should locate in North Watford Shopping Centre and
where serving local daily shopping needs in local shopping frontages. Individual small
shops may be acceptable in or close to residential areas which are not adequately served
by existing shopping facilities. Outside the Town Centre new retail development should be
of a scale and nature appropriate to enhance the character of the centre or area and its
shopping function defined in the shopping hierarchy.
7.15 Recent national trends in retailing have been towards out-of-centre retail units such as retail
warehouses and supermarkets having large floorspace requirements which cannot be met
within traditional town centres. Concern with this form of retailing is that it can promote
inequality of access for non-car users catering largely for car borne shoppers, and
encourage additional travel adding to congestion, pollution and global warming. Also, such
developments often compete locally with other essential land use needs like industry and
housing, often yielding higher land values. The individual and cumulative effect of out-of-
centre developments could also have a detrimental effect on the vitality and viability of the
Town Centre and other established shopping facilities, which cater more efficiently for
everyone’s shopping needs. Such proposals will need to be carefully considered in terms of
their likely impact (Policy S2).
7.16 the retail study has identified that, on the basis of forecast expenditure growth in the
borough, an additional requirement in the region of 20,391 sq. M. (220,000 sq. Ft.) Of net
retail floorspace across all types of retailing should be planned for up to 2011. This figure
is based on a number of assumptions and will need to be monitored and reviewed in light of
any new information. The figure will be used to guide the assessment of retail proposals in
quantitative terms. The council will also consider the qualitative need for new development
in line with government advice.
7.17 The Council’s strategy to deliver this floorspace is outlined below:
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Short term consolidation (potentially up to 2006) – gradual and incremental improvements
to the retail offer in the Town Centre with small-scale extensions, refurbishment and
redevelopment within the defined Town Centre. In addition, there should be restrictions on
additional retail warehousing developments in out-of-centre locations to provide a period of
consolidation after years of development and to provide sufficient time for vacant units to
find established occupiers and effectively absorb a proportion of the unmet bulky goods
expenditure. During this short-term period, there needs to be a proactive strategy to
assemble Town Centre sites for development delivery.
Medium term (potentially 2006 to 2011) (Delivery of Town Centre sites to maintain current
status) – development of regeneration sites within the defined Town Centre to
accommodate the additional net retail floorspace requirement.
7.18 In order to implement the above strategy, three Town Centre sites have been identified as
Key Development Sites to accommodate all of the additional net retail floorspace
requirement identified in Paragraph 7.16. These sites are identified on the Proposals Map:
RA1 – Exchange Road Site
RA4 – Clements site (including Palace Theatre Scenery Store)
RA8 – Charter Place
Table 8 indicates that these sites are suitable for a range of uses, including retail, and that
planning briefs will be prepared for each.
7.19 If these identified Town Centre sites are deemed unimplementable within the lifetime of the
Plan then the other identified mixed use Key Development Sites located outside the defined
Town Centre may be deemed appropriate for retail development to meet the requirement
subject to an assessment as part of the sequential test (see Policy S2). The Strategy does
not preclude the consideration of other potential opportunities or sites which may emerge
and which are appropriately located in order to meet the future needs of the Town Centre.
The development of any such sites will be seen as a contribution, and not as additional to,
the proposed planned floorspace set out in Paragraph 7.17.
7.20 S1 NEW RETAIL DEVELOPMENT
Retail development will be acceptable in principle in the Town Centre (identified on
the Proposals Map), where the development adds to the retail character, vitality and
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viability of the Town Centre and contributes towards its environmental enhancement.
Retail warehouse developments may be acceptable in principle in the Lower High Street
Policy Area (identified on the Proposals Map) in accordance with Policy LHS1. Applications
for new retail warehouse developments will be considered against the Retail Strategy set
out in Paragraph 7.17.
Other retail developments will be acceptable in principle in North Watford Shopping Centre,
Secondary Retail Frontages outside the Town Centre, and Local Shopping Frontages
identified on the Proposals Map and in Appendix 3, provided they are of an appropriate
nature and scale.
Elsewhere the principle of retail development proposals will be determined by Policy
S2.
7.21 Retail warehouses are defined as large single-level stores specialising in the sale of major
household goods and bulky D.I.Y. items and may also include cash and carry warehouses
and retail warehouse clubs. Conditions restricting the types of goods sold will normally be
applied to any permissions for edge-of-centre and out-of-centre retail warehousing where
such development would be likely to affect the vitality and viability of the Town Centre or
other shopping centre set out in the Shopping Hierarchy of the Plan. Such restrictions
would normally apply to the sale of footwear, clothing or food or other goods which are
more appropriately sold from that centre.
7.22 S2 RETAIL DEVELOPMENT OUTSIDE IDENTIFIED AREAS
Retail development will only be considered acceptable outside areas identified for that
purpose if the applicant has established that there is a need for the development, and that
there are no suitable and viable sites likely to become available within a reasonable period
of time firstly within, or secondly at the edge of, the existing town or local shopping centre
which can satisfactorily accommodate the development.
Where the above has been established, permission will only be granted for developments
on an out-of-town site provided they would
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a) neither on their own or in conjunction with other similar developments and
associated facilities, unduly affect the vitality and viability of any nearby town or
local centre, including the evening economy;
b) play a role which complements the role of the Town Centre and is consistent with
the results of any comprehensive settlement appraisal and/or any Town Centre
Strategy formulated in accordance with the advice in PPG6;
c) not prejudice the approved Town Centre Development scheme/strategy which is
essential for the regeneration of the Town Centre and the maintenance or
restoration of its vitality and viability;
d) contribute to an overall pattern of provision which is well related to the
distribution of the resident population, so as to minimise the need to travel and
reduce reliance on the car;
e) assist where appropriate the aims of urban regeneration and renewal;
f) be easily and safely accessible by a choice of means of transport, including
passenger transport, and by cyclists, pedestrians and people with disabilities;
g) not cause significant harm to residential amenity; and
h) not conflict with other relevant policies of this Plan.
In assessing the impact of proposed developments on the Town Centre, the Council
will also have regard to the following criteria:
Diversity of uses
Retailer representation and intentions to change representation
Shopping rents
Proportion of vacant street level property
Commercial yields in non-domestic property
Pedestrian flows
Accessibility
Customer views and behaviour
Perception of safety and occurrence of crime
State of the Town Centre/environmental quality.
7.23 The location of new retail development including retail warehousing will need to be in
accordance with the “sequential approach” as set out in PPG6 (Town Centres and Retail
Development). This means that first preference should be for Town Centre sites, followed
by edge-of-centre sites, district and local centres and only then out-of-centre sites in
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locations that are accessible by passenger transport. Proposals which would be located in
an edge-of-centre or out-of-centre location and are not in accordance with the Local Plan
strategy will also be required to demonstrate the need for additional facilities. The
sequential approach will also be applied to developments for leisure and entertainment
uses (including restaurants, pubs and cinemas) which can harm the vitality of the “evening
economy”. There is a need to ensure that retail or leisure developments do not lead to a
loss of existing or proposed housing sites or designated employment land. There is also a
need to ensure that the viability or vitality of existing centres is not undermined and that
regard is paid to traffic, car parking and design considerations.
7.24 S3 RETAIL IMPACT ASSESSMENT
A retail impact assessment will be expected as part of any retail proposal outside an
identified shopping area where the vitality and viability of any identified shopping
area is likely to be undermined as a whole.
7.25 Consistent with Government advice, retail impact assessments will be expected to be
submitted as part of planning applications for retail developments outside identified
shopping areas, where the Council considers the impact of the proposal alone or
cumulatively with other existing and proposed retail uses, is likely to have a harmful effect
on the vitality and viability of identified shopping areas. Normally, proposals under 2,000
sq. m. of floorspace will not be expected to provide an assessment unless they need to be
considered as part of a cumulative impact. In such cases, proposals between 1,000 and
2,000 sq. m. of floorspace may require an assessment.
7.26 S4 SHOP DESIGN, ACCESS AND FACILITIES
The needs of shoppers with young children and people with disabilities should be
provided for in the design of new shop fronts and in the design and layout of
external space and parking in new shopping developments. The Council will also
encourage appropriate provision in shopping proposals to cater for the needs of
people with disabilities in terms of internal access, use of all facilities and, where
appropriate, the provision of special public toilets, baby changing and feeding
facilities and shopping crèches (see Policies U1, U2, U3, U4, U5 and U24 and SPG11:
Childcare Facilities, SPG13: Accessible Environments, SPG16: Shopfront Design
Guide).
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7.27 The Council is keen to see better design in the whole shop front and will encourage
retailers to take into account the needs of all people who may wish to use their shops.
Some facilities may be required under the Building Regulations (e.g. toilet facilities for
people with disabilities) and so it is in developers’ interests to take these into account at the
building design stage.
7.28 The Council’s SPG 11: Childcare Facilities, SPG 13: Accessible Environments and SPG
16: Shopfront Design Guide and Policies U1, U2, U3, U4, U5 and U24 will be taken into
consideration when dealing with planning applications.
7.29 The character and environmental quality of shopping facilities adds greatly to their
attractiveness to shoppers and, therefore, its competitiveness. New development should
contribute to improving environmental quality as well as shopping range.
NON-RETAIL USES IN THE TOWN CENTRE
7.30 One of Watford Town Centre’s main strengths and key to its success as a vital and viable
regional shopping centre is its extensive provision of comparison goods retailing facilities.
It is essential to maintain the Town Centre’s vitality and viability as a whole by protecting a
shopping core whilst at the same time allowing appropriate opportunities for complementary
and supporting non-retail uses.
7.31 S5 Non-Retail Uses in Prime Retail Frontage
Within Prime Retail Frontage (as identified on the Proposals Map), uses outside Use
Classes A1, A2 or A3 will not be allowed at ground floor premises.
Use Classes A2 and A3 on ground floor level will only be permitted if:
a) it will not detrimentally undermine the retail character, function or effectiveness
of that part of the prime retail frontage
b) a use appropriate to the Town Centre utilises above ground floor premises.
The Council will normally seek to retain at least 80% of the measured linear frontage
of eleven shop fronts, being five either side of the application, in retail use (i.e. Use
Class A1). In addition, the Council will normally only allow a maximum of two non-
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Class A1 uses adjacent and three such uses in eleven, being five either side of the
application. When considering all proposals, the Council will take into account the
length of time the premises have been vacant and the vacant building’s impact on
the attractiveness of the Town Centre.
7.32 This approach, to achieve the correct balance between non-retail and retail uses in the
Prime Retail Frontage so as not to unnecessarily perpetuate vacant buildings from being re-
occupied, will help maintain the overall attractiveness and success of the Town Centre. In
all the above tests existing planning commitments will be taken into account. All
permissions will be time limited to three years so as not to allow historic commitments to
inhibit otherwise acceptable uses. Also, where appropriate, a condition may be imposed to
require a shop window display. In assessing the length of time the premises have been
vacant, each case will need to be treated on its merits having regard to the particular
location, the impact on the surrounding area and marketing strategy employed. Where such
evidence demonstrates no real prospect of using the unit for retail a relaxation of Policy S5
may be contemplated in relation to non-retail uses in the Prime Retail Frontage.
Throughout the Prime Retail Frontage, a double fronted shop will be counted as two units
for the purposes of Policy S5.
7.33 Charter Place is managed and has a controlled environment. It also incorporates an indoor
market. Ensuring that the Centre has a good mix of uses will be a priority for the Council
and this will be taken into consideration in the interpretation of Policy S5.
7.34 Appropriate non-retail uses. Those non-retail uses considered appropriate to Prime
Retail Frontages will normally be :-
a) financial and professional services, (Use Class A2) e.g. bank, estate agent,
employment agency, betting office, building society, advice bureau; and
b) food and drink, (Use Class A3) e.g. restaurant, public house, cafe, wine bar, hot
food take away (subject to Policy S11).
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7.35 S6 Non-Retail Uses Within the Harlequin Shopping Centre
Within the Harlequin Shopping Centre (including units with direct access to High
Street and Queens Road) planning permission will not be granted for uses outside
Use Classes A1, A2 or A3.
Permission will only be granted for Use Class A2 and A3 if the total number of units
in non-Use Class A1 uses, excluding the food court, will not exceed 10% of the total
number of units.
7.36 The uniqueness of the Harlequin Shopping Centre, in terms of both shopping provision and
adding to the attractiveness of the Town Centre, is recognised. It is different in that it is a
managed centre within a controlled environment. It is considered that this uniqueness of
providing specifically for shops be retained.
7.37 S7 Secondary Retail Frontage
Within the Secondary Retail Frontages (as identified on the Proposals Map and listed in Paragraph
7.38) the Council will seek to retain the general retail character of the frontage while permitting an
adequate number of non-retail units. Suitable non-retail uses include banks, building societies, job
centres, small service offices, advice centres, restaurants, community uses, entertainment and
cultural uses which are appropriate to a Town Centre.
In judging the acceptability of non-retail uses in these frontages the Council will have
particular regard to the following:
a) the existing proportion of non-retail units.
within Secondary Retail Frontage a) (The Parade, North of Exchange Road
Flyover) non-retail use should be limited to 50% of the total number of units.
The number of A3 units should not exceed one third of the units in the
frontage.
within Secondary Retail Frontages b) – e) and h), non-retail uses will normally
be limited to a maximum of one-third. The number of A3 uses should not
exceed 25% of the total units in the frontage.
within the Secondary Retail Frontages f) and g), non-retail use should be
limited to 40% of the total number of units. The number of A3 uses should not
exceed 25% of the total units in the frontage.
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gaps of more than two retail uses in any frontage should be avoided.
b) the number of similar uses in and around the area and their immediate impact;
c) the compatibility of the use with a shopping frontage; and
d) the impact on the physical environment and whether the use would adversely
affect the appearance of the frontage.
7.38 The Secondary Retail Frontage is identified as that part of the Town Centre which is not
within the Prime Retail Frontage and the Harlequin Shopping Centre. In calculating the
number of non-retail units the Secondary Retail Frontage will be sub-divided as follows:
a) The Parade, North of Exchange Road Flyover
b) Market Street
c) Queens Road
d) King Street
e) High Street (South of King Street /Queens Road)
f) Queens Road Broadway *
g) Western section of Market Street *
h) Clarendon Road (within the Town Centre boundary)
The areas marked with asterisks are not within the Town Centre, but have similar retail
characteristics. Throughout the Secondary Retail Frontage, a double fronted shop will be
counted as two units for the purposes of Policy S7.
7.39 The Council’s policy of revitalising the Pond Area of the High Street has been very successful.
The area has seen an increase in A3 type uses. A review of A3 uses in Watford shows that
between January 1994 and August 1999, 39 permissions were granted for change of use to
A3 within this area. This has led to a concentration of uses, and its associated problems,
especially its effect on the retail function and impact on residential amenity, could
potentially have community safety implications. Policy S7 ensures that, in the current
situation, no further A3 uses will be permitted in this area.
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7.40 S8 Other Uses
Other uses wishing to locate in the Town Centre will be assessed on their appropriateness
to the character of that part of the Town Centre, subject to residential amenity, highway and
traffic considerations and having regard to Policies S5 and S6 in particular.
LOCAL CENTRES
7.41 The function of local centres and parades is largely to meet the day to day needs of local
residents and they are particularly valuable for elderly people, people with disabilities and
the less mobile. It is important, therefore, to ensure that local shopping facilities remain
easily accessible to local residents, especially those who do not live close to the Town
Centre. Those local centres and parades which the Council wishes to maintain are set out
in Appendix 3.
7.42 S9 Non-Retail Uses In North Watford Shopping Centre/Local
Shopping Frontages
Within North Watford Shopping Centre and Local Shopping Frontages (listed in
Appendix 3), planning permission for non-retail uses will only be granted where:
a) the centre or frontage has an adequate range of key local shops (as defined in
Paragraph 7.45) and that the loss of a shop would not seriously diminish local
shopping facilities, and
b) the proportion of non-retail units does not exceed 40% of the total number of
units within an identified parade, except where vacancy rates are 10% of units or
more, in which case further appropriate non-retail uses may be allowed up to a
maximum of 50% of units, and
c) not more than two non-retail uses are adjacent, and
d) there is no significant harmful impact on the physical environment or the
appearance of the frontage, and
e) there would be a satisfactory relationship with the uses on the upper floors and
adequate access thereto, and the use would not adversely affect neighbouring
occupiers.
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7.43 In North Watford Shopping Centre and Local Shopping Frontages the loss of local
convenience shops could undermine their function within the shopping hierarchy (see
Paragraphs 7.2 to 7.7). Town and Country Planning legislation, however, provides no
power to prevent a shop selling convenience goods to change to another shop use selling
non-convenience goods (for instance antique furniture). However, within such shopping
areas demand does exist for convenience goods and so sufficient shop premises should be
retained in order to meet this demand if not already catered for once opportunities arise. An
antique shop may do little to support the intended function say of a local shopping frontage,
but it does provide a potential resource for a future convenience goods store if it becomes
vacant and retained in Use Class A1. In view of the limited size of local centres, it is
essential to retain retail uses or essential services in these centres. Consequently, only
appropriate non-retail uses as set out in Policy S5 or those which provide an essential local
service will be allowed. However, to help ensure that service uses do not over-dominate a
local shopping parade, the Council will assess the effect of the proposal on the vitality and
viability of the shopping area. For the purposes of this policy a double fronted shop
frontage will be counted as two units.
7.44 The North Watford Shopping Centre provides a good mix of retail and service offer, which
caters for a predominantly local market. It does, however, have a relatively high vacancy
rate for units. The Council will therefore prepare a strategy that considers opportunities to
enhance the role of this important centre, via the promotion of vacant units to encourage
local start-up businesses seeking accommodation to create a more specialist market to
complement the multiple retailer dominated Town Centre.
7.45 Key Local Shops include those shops selling convenience goods, dry cleaners and
launderettes. Convenience goods are defined as goods such as food (bread, milk,
greengrocer, dairy and general grocery products), newspapers, dispensing chemists, post
offices and drinks which tend to be purchased regularly and for which convenience of
purchase is important.
7.46 The Council will take into account the number of Key Local Shops provided within the
Centre or frontage and, where Key Local Shops are under-represented, the ability of the
non-retail use to either directly or indirectly attract an increase in such provision. The loss
of a Key Local Shop, which is necessary to fulfil or maintain the function of the shopping
area, will normally be refused.
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7.47 S10 Shopping Policy Areas
Within Shopping Policy Areas, the Council will seek to retain isolated shops listed in
Appendix 3. Therefore, the Council will not permit changes of use from retail to non-retail
except in exceptional circumstances.
Where an isolated shop has been vacant for over a year, the Council will normally permit
appropriate alternative uses. In considering applications for such uses, particular regard will
be paid to the possible effects on the amenity of the adjoining residential properties.
7.48 Shopping Policy Areas comprise those areas which are more than 400 metres from a
designated protected Local Shopping Centre and where a need to retain certain local shops
has been identified. In these areas additional local shops will be encouraged in suitable
locations. The need varies from area to area, depending on the number of people affected
and the walking distances to a designated Local Shopping Centre. The list of shops
protected by this policy takes account of these variations. Shops protected include both
small parades of shops and scattered ‘corner’ shops. The Council’s aim is to ensure that,
as far as possible, residents have a range of Key Local Shops within 400 metres of their
homes. A laundrette should therefore be regarded as a retail use for the purposes of this
policy because it has been identified as a Key Local Shop.
7.49 Where a loss of retail is allowed, the most appropriate alternative uses would be those
compatible within residential areas, for example residential and community uses.
7.50 S11 Use Class A3 Food and Drink
Proposals for a general A3 use (i.e. all uses within Use Class A3) will be refused where this
will result in the creation of unacceptably high levels of traffic/pedestrian generation, car
parking problems, a reduction in highway safety in surrounding areas or where there will be
an adverse effect on the amenities of residential occupiers or community safety.
In these circumstances, subject to other policies, the Council will give consideration
to granting permission for a specific use within Use Class A3, provided that
conditions can be imposed which would overcome any potential harm.
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7.51 Elements which may be considered as having an adverse effect on residential quality
includes noise, fumes, impact of traffic, litter and deterioration in the environmental qualities
which may arise from the change of use or redevelopment. The attraction of large numbers
of people and their subsequent safe dispersal when premises close must be considered in
terms of community safety.
7.52 S12 Planning Conditions for Use Class A3 Food And Drink
Where permission is granted for Use Class A3 Food and Drink uses, or for an extension of
such use, conditions appropriate to the permitted use will be imposed
relating to hours of opening, noise, emission of fumes, the disposal of refuse and restricting
the sale of hot food to be consumed off the premises.
7.53 Certain Use Class A3 (Food and Drink) uses such as restaurants, take-aways and pubs,
even though considered appropriate to shopping areas, may conflict with other uses
particularly when close to residential properties in terms of, for example, noise and fumes.
These problems are exacerbated with often late hours of operation and, in Local Shopping
Frontages, by through-traffic and parking problems.
7.54 Normal Conditions. The following conditions will normally be imposed on approvals for
Use Class A3 uses:
a) hours of use restriction to 1.00 a.m. or 12-midnight on Sundays and Public Holidays for
premises in the Town Centre; to 12 midnight or 11.30 p.m. on Sundays and Public
Holidays in North Watford Shopping Centre and Local Shopping Frontages; and 11.00
p.m. on all days in all other locations.
These time constraints may be more restrictive or less restrictive depending on the
likelihood of disturbance to nearby resident populations.
b) a requirement for soundproofing and other environmental controls as necessary.
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7.55 S13 Litter Management
The Council will require appropriate development in the Town Centre to contribute
towards, or take on direct responsibility for, the management of litter and street
washing outside their frontages.
7.56 S14 Provision of Litter Bins
Where appropriate, Use Class A3 development will contribute towards the provision
of new or replacement bins in the vicinity of the premises in conjunction with the
Council’s Town Services Strategy.
7.57 S15 Litter Management Strategy
Applications for planning permission for Class A3 Hot Food take-away use should be
accompanied by a Litter Management Strategy. The Council will seek to enter into a
legal agreement with applicants to ensure implementation of the agreed strategy.
7.58 Whilst the Council recognises the benefits of having A3 uses, the problems caused by litter
is of growing concern. Between January 1994 and August 1999, 87 change of use
applications to A3 uses were permitted. The Council wishes to reduce the amount of litter
on the streets of Watford and will expect a Litter Management Strategy to be submitted as
part of the planning application.
7.59 The principal elements of the strategy should include the potential type of litter to be
generated and what measures the operator intends to take to ensure that the streets
nearby are free of litter generated by the A3 use. In order to ensure the implementation of
the strategy, the Council will enter into a legal agreement with the operator. These
measures may include the operator ensuring that take-away packaging and materials are
identifiable so that they can be traced back to the originator.
7.60 Further guidance for litter management is contained within SPG 25: Litter and Waste
Management. The Council will expect these standards to be taken into account in
preparing and implementing any litter management strategy.
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CHAPTER 8: TOWN CENTRE AND LOWER HIGH
STREET
PLANNING AN ENHANCED TOWN CENTRE
8.1 Watford Town Centre is a popular, vibrant shopping centre: a centre for finance, services,
leisure, cultural and entertainment activities. It is also the home of many people, a central
point for passenger transport movements and an historical centre with examples of high
quality townscape and building design. The Town Centre is the focal point of Watford, one
of its main attractions to visitors and a significant contributor to the quality of life. The Town
Centre is also a major employer and main stay of the local economy.
8.2 The Town Centre fulfils a number of roles and has a mixture of uses, which adds to its
character and vitality. Shopping is the main use and the Centre’s primary function, which
should be maintained, but its other functions supported by and supporting shopping traders,
are also important to the Town Centre’s well being and future prosperity.
8.3 As a centre for all modes of passenger transport, the Town Centre, with its mix of uses, can
assist in reducing the need to travel by encouraging multi-purpose trips and in the reduction
of car use by offering the best alternatives to car travel. Also by encouraging more
residents to live in and adjacent to the Town Centre more people are encouraged to walk,
cycle and use passenger transport.
8.4 A clear strategy must be developed to ensure that the Town Centre’s range of uses
complement each other, do not give rise to unnecessary conflicts of use and do not
prejudice its overall character, vitality and viability.
OBJECTIVES
8.5 (1) To enhance the role of the Town Centre in terms of maintaining and improving its
shopping status, its position as a transport and multi-purpose centre and contributor to
quality of life.
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(2) To develop a clear strategy for the Town Centre, encouraging a diversification of uses
around the central shopping core and to achieve environmental improvements and
regeneration.
8.6 TC1 Town Centre Strategy
In order to ensure the continued vitality and viability of the Town Centre, the Council,
in conjunction with other stakeholders in the Town Centre, will prepare a Town
Centre Strategy which will provide a framework for the future management and
development of the Town Centre, the Lower High Street and Civic Core. The Strategy
will be taken into consideration when determining planning applications.
8.7 The Town Centre Strategy will form the basis of Council co-ordinated investment in the
Town Centre and the making of planning decisions. The strategy will:-
a) seek to develop planning policies contained within this Plan so as to identify specific
areas where particular uses appropriate to the Town Centre or mix of uses will be
encouraged and, where appropriate, restricted. This will include bringing forward Key
Development Sites identified within the Town Centre for retail and other mix uses (see
also Retail Strategy in Paragraph 7.17). Regard will be given to relevant planning
standards contained within this Plan and best practice from other parts of the UK.
Appropriate Town Centre uses include retail, office, leisure and residential;
b) seek a complementary relationship between the Lower High Street and the Town
Centre particularly in terms of retailing and other activities and accessibility between the
two areas;
c) incorporate and seek to extend the Town Centre Enhancement Scheme currently being
implemented and to secure other environmental and physical amenity improvements;
d) incorporate relevant parts of the Council’s Urban Conservation Strategy (see Policy
U9), Strategy for Public Art (Policy U8), South West Hertfordshire Transportation Study
(Policy T1), Leisure/Cultural Strategy (Policy L1), Arts, Culture and Entertainment
(Policy L13), Walking Strategy (Paragraph 4.41) and Cycling Strategy (Paragraph 4.51).
e) recognise the contribution of activities taking place in the Town Centre 'after dark' and
take measures such as the provision of public toilet facilities to ensure that they do not
detract from the amenities of the nearby residential areas;
f) focus on being accessible at all times to all people of the community especially by
passenger transport services and ensure that the Town Centre is easy to reach as well
as move around within;
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g) set out plans for the regeneration of key sites within the Town Centre, Lower High
Street and Civic Core;
h) consider community safety (including enhancement of the CCTV system);and
i) consider cleansing and maintenance.
8.8 The Town Centre has a variety of pubs, night-clubs and other entertainment facilities, this
ensures that the Town Centre is much used after dark especially at weekends. However,
adequate measures must be put in place to ensure that Town Centre "life after dark"
activities do not give rise to anti social behaviour and do not reduce the amenity of
adjoining residential areas. Other uses, catering for all age groups, which can contribute to
and enhance "life after dark" activities, should be encouraged such as cinemas, leisure
uses, cultural activities and also more residents in and around the Town Centre.
8.9 It is also important that fear of crime does not deter people from using the Town Centre,
and to this end the Council will work with the Police and others to ensure that safety issues
are tackled as part of the Strategy.
8.10 The Council is committed to introducing a Town Centre Management Model in order to
promote the vitality and viability of the Town Centre. The Model will ensure the effective
management and maintenance of the Town Centre and will be supported with a Town
Centre Action Plan. A Town Centre Partnership has recently been established to help
shape both the Management Model and the overall Town Centre Strategy. Every
organisation with an interest in the Town will have an opportunity to be represented on the
Partnership. These include Town Centre businesses, the local Chamber of Commerce,
community groups, public authorities, transport providers and the Police.
8.11 The Strategy is intended to be published as future Supplementary Planning Guidance and
will be given the opportunity for full public consultation.
8.12 TC2 Developer Contribution in the Town Centre
All developments in the Town Centre will be determined having regard to the
objectives of the Town Centre Strategy and, where appropriate, developer
contributions will be sought in accordance with Section 106 of the Town and Country
Planning Act 1990 and Circular 1/97, especially for environmental enhancement
schemes and passenger transport needs.
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8.13 The Council recognises that it may not be appropriate to seek a contribution from some
development e.g. housing proposals above shops. However, in considering all
applications, the eligibility for contributions towards the improvements of the Town Centre
will be assessed on the basis of the criteria set out in SPG 17: Town Centre Contributions.
Such improvements include physical works, public art and landscaping, which will benefit
the Town Centre by making it more attractive to visitors and investors. They can also
include improvements to passenger transport services, such as late night bus services. The
precise levels of contribution will be as set out in SPG 17 – Town Centre Contributions.
8.14 TC3 High Density Development
In order to make full and effective use of land, to help reduce the need to travel and
to support passenger transport facilities, the Council will encourage in principle high
density developments and reduced car parking provision in the Town Centre,
particularly for development schemes which include housing. Development
proposals which do not make effective use of a Town Centre site in terms of density
and/or car parking provision will be refused. In addition, Policies H12 and U7 will be
applied.
8.15 The efficient use of the limited land resource within Watford Borough is a consistent theme
within this Plan, reflected in Policies H12 – Housing Density Standards and U7 –
Development Density, as well as in Policy TC3. Higher density development is therefore
encouraged, both for its efficient use of land, and its positive impact on passenger transport
use and facilities. This approach is even more important in areas such as the Town Centre,
where pressures on land are highest, and facilities most accessible.
8.16 TC4 Non Retail Uses
Planning permission will be given to non-retail uses in the Town Centre, including
cultural and entertainment activities, if they are appropriate to that area and comply
with Policies S5 to S8.
8.17 Appropriate Uses Non-retail uses appropriate to a Town Centre could include Use
Classes A2 (Financial and Professional Services), A3 (Food and Drink), B1 (Business), C1
(Hotels and Hostels), C3 (Dwelling houses), D1 (Non-residential institutions such as art
galleries, crèches, medical facilities) and D2 (Assembly and Leisure) uses.
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8.18 TC5 Residential Uses
The Council will expect in principle the provision of additional residential units in the
Town Centre, particularly for single people and couples without children where a
satisfactory residential standard of amenity can be achieved. The loss of residential
properties within the Town Centre will normally be resisted. The Council will
encourage the retention and development of flats above shops (see Policy H11). All
major development schemes in the Town Centre will be required to include an
element of residential accommodation where appropriate.
8.19 The retention and provision of residential accommodation, whether through conversion or
new build, as part of mixed-use developments or flats above shops, will assist in bringing
life back to the Town Centre and contributing towards urban renaissance. The Council will
encourage the provision of residential accommodation as part of all new major
redevelopment schemes in the Town Centre. By it’s very nature, the Town Centre is likely
to be more suitable for single people and couples without children. However, larger units
may be appropriate in some circumstances.
8.20 TC6 Redevelopment Opportunities
The Council will work in partnership with residents, private developers, businesses,
retail and leisure communities to bring forward suitable sites within the Town Centre
for redevelopment.
8.21 Three sites have been identified in the Town Centre as presenting opportunities for
development. These Key Development Sites are RA1 (Exchange Road Site), RA4
(Clements site and adjoining land) and RA8 (Charter Place). In accordance with Policy
IMR1 (in the Implementation, Monitoring and Review chapter), the Council intends to
prepare planning briefs for these sites to guide development that will enhance the role of
the Town Centre and encourage a diversification of uses in accordance with the Town
Centre Strategy.
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LOWER HIGH STREET POLICY AREA
Planning for opportunities in Lower High Street
8.22 The Lower High Street Policy Area, identified on the Proposals Map, has attracted a variety
of uses which would normally have expected to locate in the Town Centre but for which
development opportunities did not exist. The Council has promoted such uses in this
locality because of its proximity to the Town Centre, where existing facilities would be
complemented and because of the areas excellent road links. The area includes a mix of
uses including large retail warehouses, residential and business uses.
8.23 Opportunities for further development should continue to attract, in principle, a range of
retail warehousing, leisure, commercial and residential uses to support and complement
existing Town Centre facilities. Applications for new retail developments will be considered
against the Retail Strategy set out in Paragraph 7.17. Ways to improve bus, cycle and
pedestrian links between the Town Centre, Lower High Street, Watford High Street, Bushey
and Oxhey Stations should be sought as part of any new development or redevelopment
scheme. The Council would also require developer contribution towards the implementation
of the South West Hertfordshire Transportation Study, environmental improvements and
improvements to passenger transport, including the provision of bus stops.
8.24 The Lower High Street Policy Area links the two open space arms of the Colne Valley
Linear Park (see Proposals Map). Development proposals in the Lower High Street Policy
Area will need to be sympathetic to the character and objectives of the Linear Park and to
include links of open space, footpaths and cycle paths wherever possible and good quality
landscaping.
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OBJECTIVE
8.25 To encourage uses in the Lower High Street Policy Area that complement and
support the Town Centre and to seek ways to enhance links between the two areas.
8.26 LHS1 Types of Development
Development proposals in the Lower High Street Policy Area, identified on the
Proposals Map, will be acceptable in principle:
a) where, in the case of retail developments, the proposal cannot be accommodated
within or is inappropriate to be located within the Town Centre and will
complement existing retail facilities in the Town Centre, although no additional
retail warehouse development will be permitted during the first years of the plan
period, until 2006;
b) for leisure uses;
c) for small Use Class B1 and other small scale industrial or business uses;
d) for residential uses where an acceptable standard of residential amenity can be
achieved; and
e) for appropriate mixed land use developments.
In assessing development proposals, the Council will encourage land uses that are
not dominant within the Lower High Street.
8.27 The Council will seek to achieve a balanced mix of land uses in the Lower High Street.
There is concern that this area has become dominated by retail warehousing developments
in recent years. These developments now account for approximately 50% of all
developments (by site area) in the Lower High Street area and have had some negative
impacts, particularly in terms of car borne traffic and its effect on residential amenities. Any
additional retail warehouse development could also impact on the vitality and viability of the
Town Centre. The Council will, therefore, encourage other land uses listed in Policy LHS1
and refuse in the short-term (until 2006) applications for additional retail warehouse
developments in the Lower High Street area. It is part of the Retail Strategy to allow a
period of consolidation and review, and direct additional retail investments into the Town
Centre (see Paragraph 7.17).
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8.28 LHS2 Design/Landscaping
The design and landscaping of development proposals in the Lower High Street
Policy Area (see Proposals Map) will be considered against Policies SE1, U1, U2, U3,
U4, U5 and U6, having particular regard to the impact of the development on the
Colne Valley Linear Park (also identified on the Proposals Map).
A high standard of building and landscape design will be required in all
developments in the Lower High Street Policy Area in view of the proximity of the
area to the Colne Valley Linear Park. Opportunities to extend landscaped areas from
the Linear Park into the Lower High Street Policy Area along cycle/pedestrian routes
or for amenity or nature conservation reasons will be sought wherever appropriate
(see Policy SE18).
8.29 The Colne Valley Linear Park provides valuable open spaces within and adjoining
Watford’s built up areas, with an emphasis on recreation, wildlife conservation, improved
access, and environmental improvements. The proximity of the Park provides an
opportunity for linkages with the Lower High Street area, to improve its environmental
quality and accessibility, but, equally, the impact of the Lower High Street on the Colne
Valley Linear Park must be minimised. To ensure this, a high standard of design will be
expected in any development proposals, in both landscaping and architectural terms.
8.30 LHS3 Public Paths
The Lower High Street Policy Area (identified on the Proposals Map) is expected to
contain essential pedestrian and cycle links between itself and the Town Centre and
itself and the two parts of the Colne Valley Linear Park (also identified on the
Proposals Map). All development proposals in the Lower High Street Policy Area will
therefore be expected to realise the full potential that the proposal will or could make
in providing new, or linking to existing or proposed, pedestrian and/or cycle routes
(see also Policy SE18). This potential will be assessed taking into account the type
and scale of development and individual site circumstances.
8.31 One of the key functions of the Colne Valley Linear Park is to improve accessibility and
provide non-vehicular transport routes (see Policy SE18 – Colne Valley Linear Park). The
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proximity of the Park to the Lower High Street provides a valuable opportunity for improved
linkages and facilities, particularly in respect of pedestrian and cycle routes.
8.32 LHS4 Residential Frontage
New residential properties will be sought in all developments fronting Lower High
Street (as identified on the Proposals Map).
8.33 Residential Frontage: The Lower High Street frontage between the Town Centre and the
M1 Link (A4008), identified on the Proposals Map, contains a mix of uses including
residential properties. The Council wishes to maintain a residential frontage character
along this part of Lower High Street and to introduce additional dwellings as part of
redevelopment schemes.
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CHAPTER 9: LEISURE AND RECREATION
9.1 Leisure includes all activities which people pursue outside work and domestic
commitments, such as sports, recreation, walking, cycling and riding for pleasure,
entertainment, cultural interest, shopping, travel, and tourism, and therefore is important in
determining the quality of people's lives and health.
9.2 The Council is a direct provider of some leisure facilities. It also plays a facilitating role and
this Plan seeks to ensure that there is sufficient land made available to meet local leisure
needs. The Council’s role is complemented by private and voluntary sector provision of
leisure facilities.
9.3 To improve choice and opportunity for leisure, it is important that a range of facilities is
open to all groups within the Community. In addition facilities should be situated so that
they are easily accessible by passenger transport, or are within easy walking distance.
LEISURE OBJECTIVES
9.4 (1) To support the provision and development of a range of high quality and
accessible leisure opportunities throughout the Borough.
(2)To ensure a more equitable provision and distribution of open spaces accessible to
all.
(3) To ensure the retention of allotment land for horticultural purposes or other uses
compatible with its status as open space. Such uses include wildlife areas, leisure
gardens and orchards.
(4) To encourage and promote the arts, culture and entertainment uses within the
Borough.
(5) To encourage tourism and related facilities in suitable locations.
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9.5 L1 LEISURE/CULTURAL STRATEGY
The Council will support the development of leisure facilities where deficiencies and
opportunities are identified by the Leisure/Cultural Strategy subject to other policies of this
Plan.
9.6 In order to maintain standards of sports and recreation provision in the Borough, it is
essential to retain and develop existing facilities and encourage further provision,
particularly where there is a deficiency. (See Policy TC1 and Policy LHS1).
9.7 The Council has prepared a Cultural Strategy to replace the former Leisure Strategy, which
will assess present and future leisure needs. The Strategy identifies leisure opportunities to
be investigated in consultation with all relevant agencies and groups. As facilities are
provided by a number of agencies, both public and private, it is important that an overall
framework exists to allow deficiencies to be identified and rectified.
9.8 L2 DUAL USE
The Council will seek to retain and optimise the use of existing facilities in the Borough, and
in co-operation with the relevant agencies, will encourage in principle dual use and joint
provision of educational and other sports facilities.
9.9 Dual use of sports facilities can help to expand the range of ‘uses’ and ‘opportunities’, to
relieve shortages and inadequate provision by allowing regular use of facilities by the wider
community, for example, the use of school swimming pools and playing fields and pitches
(with different pitch markings overlaid onto a single playing surface) out of school hours and
in school holidays, by the general public.
9.10 Joint provision is mainly concerned with sponsorship and alternative funding. Given the
difficulties in providing new facilities, it is essential that maximum benefit is obtained from
existing facilities, and therefore, further schemes for dual use and joint provision will be
encouraged to ‘foster a cooperation between activities and users’.
9.11 L3 SPORTS AND LEISURE FACILITIES
Sports and leisure facilities will need to be located in accessible positions. Medium
or high intensity uses should preferably be located in the Town Centre or Lower
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High Street Policy Area, identified on the Proposals Map, or be easily accessible by
passenger transport.
9.12 Sport is active, though not necessarily competitive, physical recreation. Outdoor provision
in Watford includes a wide range of facilities such as playing fields, golf courses and tennis
courts. More intensive facilities typically are multi-use games areas (MUGAs), indoor or
outdoor with synthetic or other surfaces, accommodating tennis, football, netball and
basketball etc. Watford has a shortfall of indoor facilities with regard to Sport England
standards and access to facilities for a non-car user is poor. Based on the standards of
Sport England there is an overall shortage of provision (particularly for cricket, rugby, bowls
and tennis), compounded by poor distribution throughout the Borough. Major indoor sports
and leisure facilities are provided at the Woodside Leisure Centre, Bill Everett Centre and
the YMCA. Other facilities include a number of gyms and swimming pools.
9.13 The intensity of usage is an important consideration when reviewing local provision.
High Intensity Sport and Leisure Uses:
Require a substantial building (or buildings) on an urban scale. There is frequent activity
involving a large number of people [e.g. theatres, cinemas, bowling alleys, hotels*, skating
rings, night clubs, sports centres and swimming pools].
Note: Hotels* do not necessarily include a leisure/ recreation development.
Medium Intensity Sport and Leisure Uses:
Type A: Require relatively small buildings where there is continuous or intermittent activity
by relatively large numbers of people [e.g. neighbourhood meeting hall, small scale
covered sports facility].
Type B: Require large areas of open land with few buildings but in continuous or
intermittent use by relatively large numbers of people [e.g. golf courses, motor and
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motorcycle sports, sports pitches (athletics), clay pigeon shooting, riding stables, water
sports].
9.14 L4 OPEN SPACE PROTECTION
Other than in exceptional circumstances, permission will not be given for a change
of use from private or public open space to any other use.
9.15 Open space is an essential part of the environment for meeting recreational needs,
providing wildlife habitats and maintaining a pleasant and attractive townscape. Areas of
open space also separate communities, provide distinguishable breaks in areas of different
characters and help shape the urban form of Watford. Open spaces can take many forms
from small local parks and spaces such as sitting out areas, children’s playgrounds and
nature conservation areas to linear spaces like paths, towpaths and waterway corridors;
and district or regional parks and spaces such as woodlands and heathlands included in
the Green Belt. Open spaces over 0.8 hectares in size are identified on the Proposals Map
as open space, or are within the Green Belt. Cassiobury Park is listed on the national
Register of Historic Parks and Gardens, and will require consultation with the Garden
History Society and English Heritage (See Policy U21: Historic Parks).
9.16 L5 PLAYING FIELDS
The Council will prevent the loss of facilities or access to resources which are
important in terms of sports development in accordance with the Town and Country
Planning (General Development Procedure) Order 1995, PPG17: Sport and
Recreation, and other relevant guidance and policies of this plan.
Should redevelopment be unavoidable, an equivalent (or better) replacement facility should
be provided in a suitable location in terms of quality, quantity and accessibility, unless it can
be proved that the facility is genuinely redundant and there is no demand for a replacement
based on a thorough local assessment.
9.17 The protection of playing fields is a material consideration. Any development proposal
which may affect the provision of playing fields should be considered in accordance with
the Town and Country Planning (General Development Procedure) Order 1995, PPG17:
Sport and Recreation, DETR Circular 09/98, Sport England Planning Policies for Sport,
other policies in this plan and any subsequent guidance.
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9.18 A ‘playing field’ means the whole site which encompasses at least one playing pitch. A
‘playing pitch’ is a delineated area which, together with any run-off area, is of 0.4 hectares
or more, and which is used for association football, American football, rugby, cricket,
hockey, lacrosse, rounders, baseball, softball, Australian Rules football, Gaelic football,
shinty, hurling, polo or cycle polo.
9.19 Playing fields ‘are a scarce resource, which once lost to other forms of development can
rarely be replaced.’ Playing fields in character can be grassed, hard or synthetic surfaces.
Action which is likely to result in the change of use of any playing field will require
consultation with Sport England and may require referral to the Secretary of State.
9.20 When a school is closed, consideration may be given to the disposal or change of use of
the playing fields provided for it, only where Sport England and the Secretary of State are
satisfied that the existing or potential needs of local primary schools and community use
have been taken fully into account.
9.21 Sport England (formerly the English Sports Council) must be consulted on all applications
for development which involve playing fields which are, or were in the last five years in use.
This could include parkland, open space for informal recreation, land leased to sports clubs
and fields used by schools, colleges and other educational establishments. Where Sport
England have objected to a planning application, either because of existing or resulting
deficiency in local provision of playing fields for the wider community, or where alternative
provision proposed would not be equivalent in terms of quantity, quality or accessibility, but
the planning authority still proposes to grant permission, the Secretary of State must be
notified and may intervene.
9.22 L6 Provision of Additional Open Space
The Council will seek to provide additional open space to meet local standards. In particular
opportunity will be taken:
a) to create new open spaces where development is likely to give rise to additional
demand;
b) to use windfall sites in areas of open space deficiency, as defined on the
Proposals Map;
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c) to encourage dual use of existing and new facilities;
d) to create synthetic pitches in appropriate locations;
e) to achieve improvement in provision through the use of conditions and planning
obligations; and
f) to create nature conservation habitats.
9.23 In order to meet the National Playing Fields Association Open Space Standards, Watford
requires an additional 2.7-17.9 hectares for outdoor sport, 30 hectares for sports pitches,
4.2-19.4 hectares for children’s playing space, and 22 hectares for general use, as shown by the
following table.
Table 5: NPFA Open Space Standards
NPFA Standard For
Watford
Watford’s Actual
Provision
Difference
Outdoor sport 121.8 ha to 137.0 ha 119.1 ha (*) -2.7 ha to 17.9 ha
Sport Pitches 91.3 ha 61.3 ha -30.0 ha
Children’s Play 45.7 ha to 60.9 ha 41.5 ha -4.2 ha to -19.4 ha
General 182.6 ha 160.6 ha -22.0 ha
(*) Total figure is exaggerated as it includes parts of areas which are not suitable for
outdoor sport (e.g. steep sloping areas between outdoor sport areas at Woodside).
9.24 The distribution, quality and accessibility of open space is of equal importance as overall
supply when assessing open space provision. Areas deficient in accessible open space
have been identified as those further than 400 metres (1/4 mile) from open spaces within or
outside the Borough, or those within 400 metres (1/4 mile) but where access is across a
main road/or railway. Such areas are identified on the Proposals Map. Often, the high
density of development in these areas, the lack of available space and the cost of land
inhibit any comprehensive improvement in the situation. However, the Council will seek to
rectify deficiency of open space as windfall sites become available. It is proposed that land
at Cherry Tree Walk is to become public open space.
9.25 L7 POCKET PARKS
All sites for development and redevelopment, greater than 0.2 ha in size within the Central
Ward and areas deficient in open space (as shown on the Proposals Map), will be required
to develop a pocket park within or adjacent to the site. Pocket parks will also be a
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requirement for housing developments as part of open space and play space provisions.
(See Policies L8 - L11)
9.25 A pocket park is a small area of open space and greenery (minimum 30 sq. m.) within a
development, that caters for employees, visitors and members of the public wishing to
socialise outside. It should provide seating and refuse bins in all cases, and children’s play
facilities if within a residential area. As with all open space, it should be seen from a public
highway and not located in the corner of a site or behind buildings. A maintenance
agreement will be required (see Policy L11). Minimum area and design standards for
pocket parks are set out in SPG 10: Open Space Provision.
9.27 L8 OPEN SPACE PROVISION IN HOUSING DEVELOPMENT
All new-build housing developments, regardless of size, will be required to provide
for sufficient open space as part of the development at a ratio of a least 2.8 hectares
(7 acres) of open space for every 1,000 persons unless there is sufficient provision
within the locality to meet the additional demand likely to be created by the new
development.
The open space will normally be a coherent unit and laid out so that it is suitable for recreation and
landscaped in accordance with Policy U6: Landscape Design and SPG 12: Landscape
Guidelines.
Where the site area is over 0.2 hectares or 10 dwellings commuted payments will only be
acceptable in exceptional circumstances. In developments where site area is less than 0.2
ha, or in acceptable high density schemes where sufficient open space cannot be provided
within the development, commuted payments will be required for the provision or
improvement of nearby open space or sport and recreation facilities, based on the formula
of 2.8 hectares per 1,000 population.
9.28 Circular 1/97: Planning Obligations states that it is reasonable to expect developers to
pay for, or contribute towards infrastructure which would not have been necessary but
for their development. The majority of housing developments in the Borough during the
life of this plan will involve less than 400 dwellings, but will cumulatively result in a
significant increase in demand for open space. In this context, Council considers it
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appropriate to secure open space provision on-site, or through commuted sums for off-
site new provision or improvement of existing open space.
9.29 Watford has both specific and general recreational open space deficiencies. Very few
opportunities exist to rectify this situation, while development pressures for new housing,
tendencies towards higher densities, infilling and residential conversions and sub-divisions
add to these deficiencies. Watford has set a desired overall open space standard of 2.8
hectares (7 acres) per 1,000 population. This is for development control purposes in terms
of assessing the amount of open space required as part of new housing developments.
This standard represents open space in general and includes outdoor recreational open
space and other essential forms of open space and reflects Watford’s local circumstances.
This recognises the National Playing Fields Association (NPFA) standard of 2.4 hectares (6
acres) per 1,000 population as a minimum standard that excludes some forms of open
space. (See SPG 10: Open Space Provision).
9.30 New housing development increases demand on existing facilities and exacerbates the
existing problem of under-provision of public open space and children’s play facilities.
Therefore, to help achieve and maintain a high quality of life and sustainable development,
it is essential that further provision of open space and children’s play areas forms part of all
new family housing developments. Open space, including children’s play areas and
pocket parks which are part of the overall open space allocation, should be provided to
meet general recreational needs. This will also provide a range of other public needs, such
as public amenity space and wildlife conservation, and will contribute to the character of the
area. Open space should be provided in new housing developments at a minimum
standard of 2.8 hectares (7 acres) per 1,000 people, or generally, 2.8 hectares (7 acres)
per 380 dwellings. Open space should be overlooked by dwellings and seen from the
public highway and not be in the corner of the site or behind buildings. Where
developments are too small to secure usable open space (i.e. less than 0.2 ha), it is
reasonable that they should make a contribution to overall open space provision in the form
of commuted payments, as cumulative small developments create a significant demand for
public open space. (See SPG 10: Open Space Provision for the operation of Policies L8-
L11 and the calculation of commuted payments.) In sheltered housing schemes greater
emphasis should be placed on the quality and design of the landscaping of the open space
provided, rather than the size of the area.
9.31 L9 Children’s Play Space
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The Council will refuse applications involving the loss of children’s play space and will seek
to rectify deficiency of children’s play facilities and upgrade existing facilities wherever
possible.
New housing developments involving family sized accommodation (i.e. 2 bed or more) will
be required to make provision for children’s play facilities unless suitable play facilities
already exist within 200 metres, with the potential to cope with the increased demand.
Commuted payments towards future provision or upgrading will only be accepted in
exceptional circumstances or where sites are less than 0.2 hectares. The Council
considers it appropriate to secure open space provision on-
site, or through commuted sums for off-site new provision or improvement of existing
facilities nearby to the development site, in accordance with Paragraph 9.35 and SPG 10:
Open Space Provision.
9.32 Sufficient play areas are essential for both child development and recreation. Currently in the
Borough, facilities include play areas, paddling pools, adventure playgrounds, play
leadership schemes and under-fives clubs.
9.33 The National Children’s Play and Research Unit recommends that children’s play spaces
be provided within 400 metres (1/4 mile) of the home for children over 5 years and within
200 metres (1/8 mile) for children under 5 years, without having to cross a main road. There
is an overall shortfall of children’s play facilities in the Borough, particularly in the older
residential areas and the Town Centre. This is often compounded by a lack of public open
space. The Plan is seeking to alleviate this shortage by the provision of new play areas
and the upgrading of existing sites.
9.34 Open areas and play facilities in which children can safely play close to their homes are
essential. All housing developments should therefore seek to directly meet their need or
potential need for children’s play within the development, unless nearby facilities clearly
exist. Categories of play space, including those identified by the NPFA (LAPS, LEAPS,
and NEAPS) are defined as follows:
Pocket parks with play facilities will be required for developments between 10-14
dwellings or over 0.2 ha, and as a bare minimum where normal provision is not
possible.
LAPS (Local Areas for Play) are areas of at least 100 sq. m. of unsupervised open
space specifically designated for young children for play activities close to where they
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live. They will be sought as part of the general open space provision for developments
of 15 or more dwellings, required in Policy L8.
LEAPS (Local Equipped Areas for Play) are areas of at least 400 sq. m. of
unsupervised play area equipped for children. They should be created in new housing
schemes wherever possible.
NEAPS (Neighbourhood Equipped Areas for Play) are areas of at least 1,000 sq. m. of
unsupervised site servicing a substantial residential area, equipped mainly for older
children but with opportunities for play for younger children.
‘Rough’ or ‘wild’ areas with some bushes and trees, where children, mainly pre-teen,
can play without formal equipment or supervision.
The Council recognises that LAPs and LEAPs may not always be possible (e.g. due to the
size of a development site) but the development will still create a need, and a contribution
towards provision will be sought. The commuted payments will not however always be able
to provide a LAP or LEAP particularly in areas where the prospect of Council provision is
remote and in such cases direct provision will always be sought.
9.35 L10 YOUTH FACILITIES
The Council will actively encourage the provision of youth facilities, such as youth
shelters, in appropriate locations throughout the Borough, in conjunction with young
people, residents, the Police and other stakeholders. In addition, any facility should
have some built in mechanism that will allow future generations to gain ownership of
the facilities.
9.35 Young people need facilities or places where they can meet to chat or just ‘hang out’.
‘Hanging out’ is part of the natural process of growing up. It is an intermediate stage
between the comfort and protection of the home environment and the complete
independence of adult life. It is important to cater for this need. If young people don’t have
a place of their own to go to, it may increase the risk of minor damage that ‘hanging out’ in
places not intended for them results in, and create a spiral of anti-social behaviour. The
key to the success of youth facilities is often the involvement of youth in developing the
project, ensuring something that they want is provided, rather than something we may think
they want. This helps youths gain ‘ownership’ of the facilities. Harebreaks Adventure
Playground Youth Shelter, and the proposed fencing off of Chestnut Walk in Leggatts Way
creates a safe, close to home open play area for children. The nearby creation of
Harebreaks Wood Nature Reserve through voluntary cleanups is an example of current
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activities in progress. These benefit young people in Watford through their involvement to
create a sense of ownership, and in addressing their needs.
9.36 Currently there is a gap in the local leisure facilities for people in their adolescent years.
This problem is magnified by the lack of free alternatives that are open for casual use.
Appropriate facilities can provide for the need for young people to socialise and become
integrated into the community. An example of such a facility is a youth shelter, which is a
structure designed to provide for the social needs of youths. It is basically a sheltered
place to sit and talk which could incorporate or be associated with sports facilities, such as
basketball hoops/courts, or football goals/pitches with security lighting and litter bins. The
roof provides shelter from the elements, but most shelters are open on all sides enabling
all around visibility, providing natural policing and safety for users. More information on Youth
Shelters can be obtained from ‘Youth Shelters and Sports Systems- A good practice guide’
produced by Thames Valley Police, or from the Crime Prevention Officer at Watford Police
Station.
9.38 L11 MAINTENANCE OF OPEN SPACES, PLAY AREAS AND
POCKET PARKS
Where an open space, play area or pocket park is provided by the developer, and not
adopted by the Council, the developer will be required to enter into a planning
obligation to ensure its subsequent maintenance. Where such an area is adopted by
the Council at the request of the developer but is considered to be principally of
benefit to the development itself rather than the wider public, the Council will require
the payment of a commuted sum for its maintenance.
9.39 It is essential that adequate maintenance arrangements are made for open space. Without
maintenance arrangements, it is possible that open space will become neglected, resulting
in under use or redundancy.
9.40 L12 ALLOTMENTS
The Council will protect existing public and private allotments (those within open
areas of 0.8 hectares or more in size and not within the Green Belt are identified on
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the Proposals Map) and will ensure equivalent replacement where affected by
development proposals.
Where allotments become surplus to demand, other forms of public open space or
facilities for the wider community which maintain the openness of the site, will be
preferred before other land uses are considered.
9.41 Allotments are a valuable outdoor recreational facility for local residents. They are often
located in areas where garden sizes are limited. In built up areas, allotments benefit people
other than tenants because they provide an open area- a ‘breathing space’ in otherwise
urbanised surroundings. Such sites complement the layout and development of the locality
and form part of its established character. Council will oppose change of use unless there
is clear evidence of continued lack of demand for the allotments concerned.
9.42 Allotments can play a vital role in the revitalisation of communities. They have an important
wildlife, recreational and health function and are important open spaces, although they are
not included as part of the NPFA standards provision as they are allocated to individual
people. Appendix 4 contains a list of allotments in Watford. In addition, allotments forming
part of open areas of 0.8 hectares or more and not within the Green Belt are identified on
the Proposals Map. Although there are 13 statutory allotments serving the Watford
population their distribution is poor with a particular shortage in the high density residential
areas of North and Central Watford. As the opportunity to provide new sites will be very
limited it is important to retain existing sites where a demand exists. Opportunities for
vacant land to be used for allotments will be explored where demand exists.
9.43 The Council has produced an Allotment Strategy, containing proposals for the production of
conservation plans for all the allotment sites. It will integrate biodiversity protection and
enhancement measures, with horticultural activities, and promotes the following objectives:
Greater uptake of allotment plots
The availability of organic plots
Maintenance and enhancement of biodiversity uses e.g. urban woodland, community
orchards.
Protection of wildlife heritage to increase the town’s biodiversity over the next ten years
by active conservation management of allotment sites.
Wider community involvement.
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The policies in this plan are intended to complement the Allotment Strategy.
9.44 L13 ARTS, CULTURE AND ENTERTAINMENT
The Council will in principle seek to protect cultural and entertainment facilities in
the Borough and will encourage all agencies to retain and improve the amount, range
and quality of these facilities.
Cultural and entertainment facilities will be encouraged in the town centre and lower
high street policy areas.
The council will prepare a cultural strategy to look at ways of encouraging a wider
range of facilities in both the town centre and neighbourhood areas.
9.45 Entertainment, the arts and cultural pursuits cover a wide range of leisure activities.
Present facilities in Watford include a multi screen cinema, bowling alley, museum, theatre,
arts centre, bingo hall, concert hall and several nightclubs. In addition a varied programme
of events are held at a number of smaller locations in the Borough. Public consultation has
identified a need for further entertainment and cultural facilities in Watford. It is intended to
produce a Cultural Strategy to identify what specific uses would be of benefit, how these
might be implemented and how grassroots activities may be encouraged and supported.
9.46 L14 TOURISM AND HOTELS
The Council will in principle encourage tourism and related facilities in Watford, in
accordance with PPG 21: Tourism and other policies of this Plan. Development proposals
for hotels will only be acceptable where there is no overall loss of permanent residential
accommodation in accordance with Policy H1, and where the development would be
located close to passenger transport facilities to reduce the need to travel by private car.
RA2 on the Proposals Map has been designated for mixed-use developments where hotel
and leisure uses would be acceptable in principle.
9.47 Tourism is Hertfordshire’s fastest growing sector, providing a range of jobs and community
benefits. The East of England Tourist Board (EETB) (1996) estimated the value of tourism
to Watford at over £42.6 million generated by 114,000 staying trips, and 1.67 million day
visits. Including multiplier expenditure, this tourism-related expenditure was estimated to
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have created 1,029 full-time job equivalents (rising to nearly 1,500 if part-time and seasonal
jobs are included). Opportunities arising for the development of tourism will in principle be
supported, for example, improving interconnections between the Town Centre and the
Grand Union Canal (See Policy SE19).
9.48 In Watford there is a demand for short stay and particularly business accommodation due
to its excellent location. A site suitable in principle for hotel development (as part of a
mixed-use proposal) has been identified on the Lower High Street (RA2 on the Proposals
Map). Proposals arising from the Grand Union Canal (See Policy SE19), Colne Valley
Linear Park (See Policy SE18) and Watling Chase Community Forest (See Policy SE34)
may also create a need for tourist accommodation in suitable locations. The need for
protecting the greenbelt and encouraging greater use of passenger transport will be
important considerations in encouraging sustainable or ‘green’ tourism (See Policy SE1:
Making Development Sustainable).
9.49 L15 GUEST HOUSES AND BOARDING HOUSES
Change of use to guesthouses and boarding houses providing short term, temporary
accommodation will only be permitted subject to other policies of this Plan.
9.50 The Council will monitor demand and provision for bed and breakfast accommodation
including guesthouses and boarding houses. These should have no more than 10
bedrooms and if it is within a residential area will be subject to the 10% threshold set out in
Policy H13 (see Paragraph 5.43 and Policy H1). Any property providing accommodation to
persons without another permanent residence has a duty to become licensed (See Policy
H21).
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CHAPTER 10: COMMUNITY SERVICES
10.1 Community Services encompass a wide range of facilities from health, education and
emergency services to local facilities such as churches and community centres. There are
numerous agencies providing such services, including the County Council, South West
Hertfordshire Health Authority, individual schools, voluntary organisations and Watford
Borough Council. Whilst the Council is not directly responsible for all of these facilities, it
supports their retention. Some services are essential to the community’s well being while
others, through social and sporting activities, add greatly to quality of life. The needs of
community service providers for land and premises, and the accessibility of services to the
communities they serve, will be taken into account when considering development
proposals.
COMMUNITY SERVICES OBJECTIVE
10.2 To support the provision of a range of high standard, accessible community
facilities, suitably designed and located to meet community needs.
COMMUNITY FACILITIES
10.3 CS1 Location of Facilities
The Council will seek to ensure that the local needs for the development of
community facilities are met in such a way that facilities are well located, with
respect to their users, without causing significant loss of amenity to nearby
occupiers, or conflicting with other policies in the Plan.
10.4 CS2 Existing Facilities
The Council will encourage the retention and full use of existing community facilities
and, where possible, maximise dual use of educational and leisure facilities for
community activities.
10.5 CS3 Loss of Community Facilities
The Council will not permit development resulting in the loss or downgrading of
existing community facilities unless:
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a) demand for such a facility is no longer sufficient to warrant its retention in its
existing use, or as an alternative community facility; or
b) appropriate alternative accommodation is provided with comparable access to
passenger transport.
10.6 The Council encourages links between various service providers to maximise the use of
facilities and benefits to the community. Community centres are being identified as
resource centres and provide training opportunities, support for voluntary organisations and
health and advice services. The SRB scheme in West Watford is implementing Westfield
School’s community schooling policy. This brings together the school and the community it
serves, with a commitment to raising the standards of achievement of all learners
throughout the community, and encourages the local community to make full use of the
activities and facilities on the site. The Council will also encourage links between the
provision of health and leisure services.
10.7 Where community facilities need to be rationalised, it is expected that the community’s
need for services is met with alternative provision in accessible locations. The type of
alternative provision will largely depend on the nature of the service provided. Local
shopping areas and the Town Centre may be suitable locations for community facilities
(see Policy CS11).
10.8 Public houses often provide a function as a Community Facility in residential areas. The
Council will seek to protect these and will not allow any loss unless there is evidence
provided that reasonable effort has been made to retain the use of the building as a pub.
ACCESS
10.9 CS4 Access to Community Facilities
The Council will ensure access to community facilities for people with disabilities,
young children and the elderly, in terms of the external layout of new development
and proposals including extensions, conversions, temporary buildings and changes
of use.
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The Council will ensure the upgrading of existing community facilities and buildings
to meet accessibility needs (see Policy L3: Sports and Leisure Facilities and Policy
U1: Quality of Design).
10.10 A disabled person is anyone with a physical or mental impairment which has a substantial
and long term adverse effect upon their ability to carry out normal day-to-day activities as
defined by the Disability and Discrimination Act 1995. This act requires all businesses and
organisations which provide a service, offer facilities or supply goods to the public, whether
paid or for free, to ensure access to people with disabilities.
10.11 The Council is committed to securing a more accessible environment for everyone. Access
needs must be catered for in all developments, particularly those open to, or frequently
visited by members of the public, such as community facilities. Whilst Building Regulations
can ensure access to new buildings or those being altered, the external layout of new
development including the relationship between buildings, car parks, nearby bus stops and
public access points must be considered. As well as being accessible to people with
disabilities, community facilities should incorporate adequate toilet and washroom facilities
to meet their needs and provide adequate toilet/changing/feeding and crèche facilities for
people with young children. (See SPG 11: Childcare Facilities and SPG 13:Accessible
Environments.)
10.12 CS5 Community Transport
The Council will promote and support the provision of Community Transport facilities, in
partnership with other local councils, the County Council, and local voluntary organisations.
10.13 A new area based community transport scheme is developing as a result of the work of
Three Rivers, Hertsmere and Watford Community Volunteer Schemes. The project will
seek to co-ordinate and strengthen voluntary transport provision for rural residents of the
Districts. Funds for Watford will be provided by the County Council, Watford Borough
Council and from the Volunteers’ time working with the established Community Transport
scheme already operating in the Borough. The voluntary organisations in the local
partnership recognise the role of Watford as the major centre for social, leisure, retail and
health services and facilities.
10.14 The West Herts Community Transport Steering Group has prepared a development plan
for the three-year scheme. A partnership involving Community Volunteer Services (CVS),
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Three Rivers and Watford Community Transport schemes, Watford Racial Equality Council
and Mencap will see the use of four minibuses being co-ordinated. Several other Voluntary
Organisations with, and requiring transport, have indicated that they are interested in
joining the wider scheme.
10.15 CS6 Childcare Facilities
Proposals for crèches and nurseries will be permitted where they will have no adverse
impact on the character of the surrounding area in terms of appearance, noise, traffic
generation and general disturbance, and accord with the relevant policies of this Plan.
In the case of proposals for day nurseries in residential properties in primarily residential
areas, the following criteria must also be satisfied:
i) one unit must be retained in residential use and the property must revert to residential
use upon cessation of the nursery use (the Council will use conditions to ensure this
and may make planning permission personal to the user);
ii) there must be easy access to passenger transport; and
iii) car parking must be provided in accordance with the standards at Appendix 1B of the
Plan, as well as ‘drop-off’ facilities.
10.16 The Council recognises the importance of adequate provision of childcare facilities
particularly for parents who wish to shop or take up employment opportunities, and will
therefore encourage the following types of proposals:
- large development schemes which offer services, facilities or employment to people
with young children;
- drop-in crèches in the town centre, North Watford shopping centre and local shopping
frontages; and
- ancillary day nursery facilities in places of work for employees with children.
The Council has proposed Supplementary Planning Guidance (SPG) in the form of SPG11:
Childcare Facilities, to provide more detailed guidance on provision of the facilities
addressed in Policy CS6.
10.17 The SRB project has identified a clear lack of good quality affordable childcare in West
Watford which is to be addressed by the provision of a nursery/crèche within the One Stop
Shop at Westfield School. The Watford Borough Early Years Development and Childcare
Partnership has also carried out a needs audit to co-ordinate public service provision.
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10.18 Moreover, the National Childcare Strategy may increase demand for privately operated
nurseries, crèches and playgroups through increased investment in childcare as part of
welfare reforms. Concerns over noise and traffic generation in residential areas will be
carefully assessed, taking into consideration Government policy in ‘Circular Letter: Pre-
School Education’ (March 29 1996) and the potential for staggered playtimes and arrival
and departure times. Applicants are also advised to contact the County Council’s
Education Department for advice on setting up and running a crèche or nursery.
Education
10.19 CS7 New Facilities
Development for education and training needs will be supported subject to the other
policies of this Plan. Wherever possible, new facilities will be located with particular regard
to the aims of reducing travel need and car usage and encouraging walking, cycling and the
use of passenger transport.
10.20 Development control relating to schools is controlled either by the County Council or Watford
Borough Council depending on the scale and nature of development, and whether the
schools are under the control of the County Council or whether they are foundation or
voluntary aided schools. Watford Borough Council will continue to liaise with the County
Council as part of its review and monitoring process, in order to assess future land
requirements.
10.21 The Council recognises that changes occur in local needs for training and education and a
range of new facilities may be required. Watford Borough Council’s Community Economic
Development Strategy suggests suitable locations for Information Technology (IT) training
and skills development.
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10.22 New housing developments create additional demands for primary and secondary
education. Where there is a shortage of local school places to meet demands, developers
of family accommodation (2 or more bedrooms) will be required to contribute, under
Section 106 of the Town and Country Planning Act 1990, to the provision of new schools
(see Policy H10).
10.23 CS8 Change of Use/Redevelopment
When considering proposals for the change of use or redevelopment of school
buildings or other educational sites no longer required for their original purpose the
Council will:
a) encourage, in principle, the development of community facilities;
b) seek provision of replacement community facilities within the development
where there is a demonstrable need for them and where they cannot be
relocated satisfactorily elsewhere in the vicinity; and
c) in relation to open areas and sports facilities, take into account Policies L2,
L3, L5 and L6.
10.24 Any future restructuring of school service provision could result in some existing school
sites and buildings becoming surplus to requirements. The loss of school buildings and
land could, however, have a detrimental impact upon a wide range of activities associated
with schools. For example, schools often provide meeting facilities for clubs and
organisations and they provide important recreational opportunities through the provision of
open areas and sports facilities. As a consequence, they often act as centres of
community activity. The Council considers it important to protect this role and will enter into
planning obligations with developers under Section 106 of the Town and Country Planning
Act 1990 as amended, to secure the provision of community facilities including, for
example, primary schools, meeting halls and health facilities, as needed.
10.25 Cassio College has been identified as a site that may become surplus to the requirements
of West Herts College. A planning brief has been approved to provide a planning policy
framework for future redevelopment of the site. This is available as Supplementary
Planning Guidance.
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HEALTH PROVISION
10.26 CS9 Health Provision
The Council will assist all health care providers to make provision for local health
care facilities. Development proposals, providing health care facilities, will be
acceptable in principle:
a) on existing sites or adjacent to existing premises providing health care or social
services;
b) in other locations in close proximity to existing community facilities or local
shopping facilities, which are easily accessible by passenger transport; or
c) within the Town Centre, according to Policies S5 – S8.
10.27 Health care services are provided at various points of service delivery, for example at
Watford General Hospital, health clinics, general practitioner surgeries, drop-in clinics in the
town centre or directly in the community. It is essential that sufficient land and premises
are made available and retained to meet the health care needs of the community.
10.28 CS10 RESIDENTIAL SOCIAL CARE
The Council will support the provision of residential care homes where there is a
local need, providing;
a) proposals are appropriately designed and located, particularly for those with
poor mobility, close to local community facilities and shops, and easily
accessible by passenger transport; and
b) they do not produce an over concentration of care facilities that would be
detrimental to the character of the area; and
c) they are consistent with Policies H13: Conversions, H22: Housing for Older
People (Sheltered) and H23: Special Needs Housing.
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10.29 The Council recognises that there is likely to be a growth in the number of elderly residents
living in the Borough. Changing standards in the level of care may require extensions or
adaptations to existing buildings or residential properties. Community care legislation aims
to ensure people remain in their own homes for as long as possible, and Policy H20
requires new development and conversions to be designed to lifetime homes standards
wherever physically possible (see SPG2: Lifetime Homes).
10.30 In addition, ‘Care in the Community’ aims to disperse care homes for people with physical
and/or mental disabilities into the wider community. Residential accommodation is
increasingly provided in the form of smaller groups of homes as well as smaller
accommodation units and should emulate ordinary residential provision as much as
possible. See Policy H22 and Policy H23 relating to special needs housing and Policy H13
on conversions.
10.31 CS11 RELIGIOUS MEETING PLACES AND COMMUNITY
HALLS
Religious meeting places and community halls will be permitted:
a) in residential areas, provided the development does not have an unacceptable
effect on the amenity of nearby residents, in terms of the criteria contained in
Policy H15;
b) in local shopping centres, in line with Policies S5-S9;
c) where in the case of facilities serving the wider community, they are accessible
by passenger transport; and
d) where they meet the car parking standard for the area (see Policy T22: Car
Parking Standards and Appendix 2).
10.32 Religious meeting places and community halls need to be located in areas which are easily
accessible by the local communities which they serve, especially by passenger transport.
Such uses can, however, create a nuisance when located close to housing because of
unsociable hours of operation or through traffic, car parking and noise generation.
10.33 It is important to recognise that for many people or groups of people, a religious meeting
place often represents more than freedom to worship but forms an integral part of the social
fabric of the community. Premises may not only be places for prayer or worship but also
for education, festivals and ceremonies, social and recreational occasions. It is therefore
essential to understand the nature and frequency of religious activities likely to be carried
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out, as these will determine the likely effect on the amenity of nearby residents and the
highway. Local shopping centres may be acceptable locations for community meeting
places particularly if serving local groups in areas identified as deficient in community
facilities or groups with special access requirements. Such locations should be easily
accessed by passenger transport, cycling and walking.
10.34 Proposals for an Islamic Community Centre in Tolpits Lane for social, community and
recreational purposes are identified on the Proposals Map.
10.35 CS12 Emergency Services
The land and locational requirements of emergency services such as fire and
ambulance services will be taken into account when considering development
proposals. Essential services must locate outside areas at risk from flooding (see
Policy SE27: Flood Prevention and PPG 25:Development and Flood Risk). The
Council will assist the County Council and other providers of emergency services, in
identifying and protecting sites as necessary.
10.36 It is important that the land use needs of the emergency services continue to be met in the
Borough. To this end, the Council will assist the County Council and other emergency
service providers in identifying alternative sites should the need arise during the plan
period.
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CHAPTER 11: URBAN DESIGN AND
CONSERVATION
11.1 The built environment is an important factor in the quality of life both now and in the future.
It is therefore important to ensure that all new development (refer to glossary for definition)
incorporates the principles of sustainable development and good design. Unsympathetic
and unsustainable development should not form part of the urban fabric. In cases where
strong short term benefits are presented, the need to meet best practice principles of
sustainability and good design should not be compromised. In achieving the goals of
sustainable development and good design the integration of elements such as the context
of the area, the character of the proposed development, the quality of the
landscape/townscape proposal and energy and waste minimisation is essential.
11.2 The historic buildings that remain in Watford are an irreplaceable record that contributes to
our understanding of both the past and the present. Their presence enhances the local
scene and sustains a sense of local distinctiveness. Watford has a number of old and
important buildings and structures whose presence, character and setting are essential
parts of our heritage. Preservation of non-listed buildings and conservation areas play an
important role in the overall quality of the environment. The preservation and enhancement
of our cultural heritage is particularly important within the context of sustainable
development, allowing future generations to experience and enjoy the riches and variety of
their environment.
Urban Design and Conservation
Objectives
11.3 (1) To promote a high standard of development that integrates principles of best
practice sustainability and good design.
(2) To ensure that new development makes a positive contribution to the character of
the area, including the landscape and townscape character.
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(3) To preserve and enhance Watford’s historic environment.
(4) To improve the safety of the built environment.
(5) To promote the incorporation of public art in all prominent public development
locations and spaces.
11.4 U1 Quality of Design
All new development should represent high quality design and should be in keeping
with the Council’s objectives of sustainable development and ensuring community
safety:
a) The Council will seek high quality design in all new development to enhance the
quality of the built environment of the town (see Policies U2 and U3);
b) The Council will expect new development to incorporate the principles of
sustainable development and to demonstrate that the design principles of energy
efficiency and waste minimisation have been considered (see Policy SE4: Energy
Efficient Design; Policy SE5: Renewable Energy and Policy SE6 Waste Storage,
Recovery and Recycling in New Development);
c) The Council will seek to ensure that new development is accessible to all
elements of the community, including the elderly, people with disabilities and
people with young children (SPG 13: Accessible Environments);
d) The Council will seek to ensure that new developments incorporate Community
Safety measures to discourage crime and anti-social behaviour (SPG14:
Designing for Community Safety).
11.5 Good design practice in all new developments is essential to ensure a continual
improvement of our environment. Elements of good design, if adequately incorporated, can
assist in helping a new development integrate and enhance an area and add to quality of
life. Further design advice is contained in the Council’s Supplementary Planning Guidance
and the Design Guide published separately.
11.6 U2 Design and Layout of Development
The Council will seek to ensure that all new development achieves a high standard of
design and layout. All development proposals should:
a) seek to integrate with the local character of the area (see Policy U3: Integration of
Character);
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b) provide satisfactory levels of sunlighting, daylighting, privacy and outlook, both
to the development and to existing adjoining buildings and uses (in particular see
SPG 4: Privacy Guidelines and SPG 8 Extensions);
c) seek to enhance the overall quality and character of the area through the size,
shape, position and detailing of spaces created within or around the new
buildings;
d) ensure that adequate space and consideration has been given within the design
and layout to accommodate utility and access aspects and allow opportunities
for recycling, as well as bin storage (see also Policy SE5);
e) where possible, seek to retain and refurbish existing buildings, and, where new-
build is involved, the new buildings should be designed with the objective of a
long life for the building: the building should be capable of adaptation for a use
other than its original one (see Paragraph 11.3 and Policy SE1: Making
Development Sustainable. Further information will be available in a Design Guide
to be published separately);
f) to minimise light pollution generated by the development (see Policy SE23: Light
Pollution); and
g) ensure that the layout of development promotes walking, cycling and the use of
passenger transport over private car transport to access the site (see Policy T7:
Pedestrian Facilities in Developments and Policy T11: Passenger Transport and
New Development).
11.7 In interpreting parts b) and f) of Policy U2, the Council will have regard to the Building
Research Establishment’s “Site Layout Planning for Daylight and Sunlight; A Guide to
Good Practice” and “Guidance Notes for the Reduction of Light Pollution”, produced by the
Institute of Lighting Engineers.
11.8 U3 Integration of Character
All new development should be based on an understanding of the local
characteristics of the surrounding area. In particular the following:
a) height, size, massing and scale of the buildings, including roof pitch (see SPG22:
Tall Buildings);
b) the use of materials, textures, finishes and colours in buildings and hard
landscaping;
c) the site layout, topography, building orientation and relationship with the nearby
or adjoining spaces, buildings and building lines;
d) size and scale of window and door openings;
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e) the impact on the streetscene, waterways and character of the surrounding area;
and
f) consistency with important elements identified by the Character of the Area
Study available from the Council (Map 6 shows the Historic Character Zones and
Table 6 sets out the summary description of the zones) and by Landscape
Character Area Assessments (see Policy SE40: Landscape Character Area
Assessments).
11.9 The Character of the Area Study identifies the key elements that contribute to the character
of individual areas throughout the Borough. Further guidance has been produced to enable
the early identification of significant historic and archaeological issues which may arise from
proposed development and to help in determining appropriate mitigation to offset any
adverse effects if the development is permitted – see SPG 28: Historic Environment
Character Statement and Guidance Note. It is expected that all new development will
reflect, and be consistent with, the findings of this study. The Streetscene Manual, to be
prepared by the Council and published separately, will provide guidance on the design and
location for street furniture and utilities. The manual will be aimed at assisting public
utilities companies and highway engineers to design high quality residential space for all,
including those with disabilities.
11.10 Each new development has a significant effect on the appearance and character of the
area. The existing character of the area is therefore an important consideration in any
design. New development should respect the surrounding setting. They should not seek to
mimic traditional designs or styles but be sympathetic to their design principles. The
Council, in principle, welcomes innovation in design where it contributes to the character of
the area. It is the intention of the Council in conjunction with the County, to produce an
integrated character statement, which will combine historic, ecological and landscape
elements.
Table 6 WATFORD HISTORIC ENVIRONMENT CHARACTER ZONES:
SUMMARY DESCRIPTIONS
No. WARD DESCRIPTIONS
1 Central Surviving medieval urban topography and the majority of surviving
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medieval buildings
2 Central Potential for medieval archaeology; contains buildings from 16th to 19th
century
3 Central/
Vicarage
Victorian and Edwardian housing
4 Meriden Inter-war housing estate
5 Stanborough Housing 1920-1950; cemetery; stanborough park; moderate
archaeological potential of open spaces
6 Stanborough Stanborough; post-war housing; site of leggatts manor
7 Stanborough Garston; housing
8 Stanborough Kingswood estate; inter-war housing
9 Meriden Meriden; mostly post-war housing
10 Tudor Tudor; 1930’s semis
11 Tudor Tudor; post-war housing
12 Nascot Nascot; housing
13 Callowland Callowland; edwardian terraces; beulah baptist chapel and works on cecil
street
14 Central Some late victorian and edwardian, st johns road and trade union hall,
union and labour club
15 Nascot Nascot; mostly post-war housing, with some victorian along nascot wood
road
16 Park Park; post-war housing; school grounds and sports ground has
archaeological potential
17 Nascot Nascot; post-war housing and school
18 Park Gade valley; undisturbed areas have high archaeological potential; canal
and associated features
19 Park Cassiobury park; very high archaeological potential; listed parkland
20 Holywell Holywell n. And part of park; inter-war housing; sun printing works;
rembrandt house, wemco factory
21 Holywell Holywell; post 1950’s housing (east) and industrial estate (west)
22 Holywell Riverside; undisturbed river valley with archaeological potential; leats and
sluices for mill
23 Vicarage Colne valley; industrial estate; power station, undisturbed areas have
archaeological potential
24 Vicarage/
Oxhey
Colne valley; undisturbed areas have high archaeological potential
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25 Central/oxhey Oxhey park; colne valley and railway
26 Holywell Kgv playing fields – colne valley pre-historic archaeology
27 Woodside Leavesden plateau; some archaeological potential of undisturbed areas
28 Woodside Leavesden plateau; some archaeological potential of undisturbed areas
29 Woodside Woodside; public open space – some archaeological potential
30 Woodside Woodside; post-war housing
31 Meriden Gade valley open space; high archaeological potential
32 Tudor Colne valley open area; high archaeological potential
33 Tudor Colne valley open area, former gravel pit
34 Meriden Colne valley open area, high archaeological potential
35 Central Colne valley; pillboxes
36 Holywell Holywell; edwardian and inter-war housing – open character from rec.
Ground and allotments
37 Vicarage Vicarage north; late victorian to 1950’s housing; 1850’s cemetery; red lion
ph and stable block
38 Oxhey Watford heath conservation area
39 Oxhey Oxhey: dominated by inter-war housing, with some later victorian and
edwardian. Site of silk mill.
40 Oxhey Victorian oxhey; parish b marker; villiers road, capel road, paddock road
41 Oxhey Attenborough fields; medieval ridge and furrow; open space
42 Central Estcourt conservation area
43 Central Modern industrial and housing; pillboxes; college; railway
44 Central 19th century inner industrial zone; turnpike posts, gasworks; pillboxes
45 Central/
Vicarage
Hospital/union workhouse; football ground; victorian housing
46 Nascot Nascot conservation area
47 Leggatts/tudor Mostly post-war housing; harebreaks estate are 1920’s; w. Herts college,
munition factory; odhams printers
48 Nascot Nascot; victorian and edwardian housing
49 Park Edwardian and inter-war housing; site of cassiobury park manor
50 Park Civic centre
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Map 6 Historic Character Zones
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11.11 U4 Community Safety
All new development should be designed to provide safety and security to the
environment, and reduce the opportunities and fear of crime and anti-social
behaviour. Particular attention should be given to:
a) ensuring that public areas are overlooked by buildings;
b) increasing natural surveillance in public areas at different times of day through
the promotion of mixed uses;
c) ensuring that main entrances are visible from the street or other public places;
d) ensuring that the streets and paths are well and appropriately lit;
e) ensuring that buildings, landscaping and planting do not create dark or secluded
areas; and
f) creating clear boundaries between public and private areas.
11.12 In interpreting the above policy, the Council will have regard to the current Secured by
Design document and Hertfordshire Constabulary’s Designing Out Crime, Designing In
Community Safety document (available from the Crime Prevention Office at Watford Police
Station) and SPG 14: Designing for Community Safety.
11.13 U5 Access
Development proposals relating to residential development and buildings open to
the public, or used for employment or educational purposes, should provide suitable
access and facilities for people with disabilities. Where barriers are required (e.g. to
discourage motorcycles or animals), the provisions of BS5709:2001 Specifications
for Gaps, Gates or Stiles, should be followed where relevant.
11.14 The Council will ensure that the needs of people with all types of mobility difficulties,
both physical and sensory, are taken into account when considering the design of
development proposals and extensions to buildings. The Town and Country
Planning Act 1990 required planning authorities to draw developers’ attention to the
provisions of The Chronically Sick and Disabled Persons Act 1970. The latter Act
states that buildings open to the public should be accessible to disabled people and
have suitable toilet and parking facilities.
11.15 The British Standard for disabled access BS.5810 is a voluntary code of practice which
sets out the minimum standards with which access provision should comply. Following
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changes in access design, the British Standards Institution are reviewing this standard.
Developers are encouraged to design to higher standards than currently set down. Part M
of the Building Regulations 1992 “Access and Facilities for Disabled People” sets out
requirements for new public buildings. The 1999 edition of Part M extends the regulations
to cover residential properties, and also includes development involving the change of use
or alteration of such buildings.
11.16 Proposals must meet all relevant requirements, taking into account advice given in the
Council’s Supplementary Planning Guidance (SPG 2: Lifetime Homes and SPG13:
Accessible Environments) and other policies in this Plan.
11.17 U6 Landscape Design
All development proposals, where appropriate, including change of use are required
to submit a landscape scheme as an integral part of the development proposal.
The landscape scheme should:
a) seek to minimise the impact of the proposed development on the environment
and the surrounding area by considering and integrating the local ecological
processes and ensure no net loss of biodiversity (see Policy SE31: Species
Protection, Policy SE32: Sites of Nature Conservation Importance and Policy
SE33: Nature Conservation and Biodiversity Enhancement);
b) respect the existing character of the area;
c) address the retention of existing landscape elements;
d) include any new planting proposed;
e) use locally native species of plants and trees; and
f) include an implementation timetable and effective maintenance plan.
The Council will monitor and enforce such schemes as necessary. Further
landscape guidance is published separately as Supplementary Planning Guidance
(SPG 12).
11.18 The visual and environmental impact of a development or redevelopment can be greatly
reduced by effective landscaping. Consequently, landscape elements should be an
integral part of most development. Exceptions to this will be considered in cases where the
development site has no land fronting any part of the public realm, or where only minor
internal and external changes are proposed (such as small extensions, new windows, or
additional plant). Most advertisement applications, householder development proposals
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affecting the rear of properties and alterations to shopfronts will also be regarded as
exceptions to the policy. In preparing a landscape plan, it is essential that contextual
factors are assessed, protection of existing quality is promoted and good practice in landscape
design and aftercare is adhered to. The proposed landscape scheme should also be
sensitive to existing ecological processes functioning within the ecosystem and seek to
minimise the impact the development may have on the local environment.
11.19 U7 Development Density
In development schemes, full and effective use should be made of urban land. Higher
density development with reduced car parking will be encouraged in areas close to services
and with high accessibility by non car modes of transport. Higher density development will
be assessed in accordance with Policies U1, U2, U3, U4, U5, T24, L9 and H12.
11.20 Watford is a tightly constrained urban area with high development pressure. It is therefore
important to ensure that full and effective use of land occurs. Higher density development,
if carried out in a sensitive manner, can achieve this and add to the diversity, vibrancy and
the character of an area. In addition, higher density development can help pursue the aims
of sustainable development and assist in reducing the need to travel. Higher density
development will not be allowed to occur if it compromises existing open space,
significantly detracts from the existing character of the area or if it results in an
unacceptable environment for occupiers. In addition, the Council will seek creative design
solutions, such as underground car parking in areas where there are existing car parking
problems.
11.21 U8 Public Art
The Council will encourage the provision of art work as part of development
schemes, having regard to the use and character of the area. Such artwork should
be visually prominent from the public realm.
Where public art cannot be provided on site, a contribution to assist in the provision
of public art in the vicinity will be encouraged.
11.22 Watford Borough Council is committed to improving the quality of the environment by the
promotion of public art. This brings aesthetic benefits to public places, encourages civic
and community pride and benefits local artists. Public Art can help to improve cultural
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identity and the image of an area or town. It also contributes to environmental and
economic regeneration.
11.23 The definition of public art extends beyond sculptures and can include the innovative use of
different materials and media. Examples of artworks could include:
Murals
Decorative brickwork
Stained or etched glass
Tiling and mosaics on walls and floors
Metalwork such as railings and gates
Special lighting and other street furniture
Water features and gardens.
11.24 One method that the Council will use to secure artwork provision is by application of the
Arts Council ‘Percent for Art’ scheme, which proposes that a proportion of the capital
budget for any building development is set aside for providing new works of art. Whilst 1%
of the capital budget is the usual figure, the Council will offer a flexible approach to the
appropriate percentage to be used in order to facilitate the provision of artwork that
enhances the public realm. The scheme will be implemented as part of the Development
Control process and policies incorporated into planning briefs, so that maximum value can
be gained from public art. Artists should be involved early in the design process. The
Council will also apply this principle to its own development work.
11.25 U9 URBAN CONSERVATION STRATEGY
The Council will update and reassess the contents of its Urban Conservation
Strategy periodically to ensure the preservation and enhancement of the historic
environment.
11.26 The Council has prepared an Urban Conservation Strategy to aid the preservation and
enhancement of the historic environment. The Strategy contains:-
a brief history of Watford.
information and photographic records of Watford’s Statutory Listed Buildings
(designated as being of special architectural or historic interest).
information and assessments of Watford’s Conservation Areas at Grove Mill and St
Mary’s Churchyard and the recently designated Conservation Areas:
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part of Central Ward in the vicinity of St. John’s Church, Estcourt Conservation
Area;
the area around Langley Road, Church Road and Bedford Street in Nascot ;
area around Watford Heath;
the Central Core including part of The Parade/High Street area; and
“The Square” area in Vicarage ward..
a register of buildings at risk.
a character of the area study for Watford.
a list of buildings of local importance.
extensive Urban Survey – Archaeology – Hertfordshire C.C.
11.27 The Strategy forms Supplementary Planning Guidance and the Council will seek to
implement initiatives from the Strategy through the control of development and direct action
as resources permit. Subject to consultation, more detailed policies for conservation areas
will also be produced as Supplementary Planning Guidance.
DEVELOPMENT AFFECTING LISTED BUILDINGS
11.28 U10 Setting of Listed Buildings
In considering proposals for development, the Council will pay special attention to
the desirability of preserving the setting and character of listed buildings.
Development which would materially harm the setting and character of a Listed
Building is unlikely to be granted planning permission.
11.29 The setting or space around a building makes an important contribution to its appearance
and character. Development affecting the setting needs should be designed with particular
care and sensitivity and e.g. in accordance with Planning Policy Guidance 15: Planning and
the Historic Environment
11.30 U11 CHANGE IN USE OF LISTED BUILDINGS
Change of use of a Listed Building will be resisted if its special historic or
architectural features, both internal and external, will be adversely affected.
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11.31 In considering change of use applications, the Council will also have regard to the
economic viability of a development scheme and its effect on the long term maintenance
and preservation of a Listed Building. The Listed Buildings are documented in Appendix 4.
11.32 U12 ALTERATIONS AND EXTENSIONS TO LISTED BUILDINGS
Alterations and extensions to Listed Buildings will be resisted where they are
detrimental to the special historic or architectural character.
11.33 Proposals to change the use, alter or extend a Listed Building require the submission of
detailed planning and listed building consent applications. Although the best use for a
Listed Building is usually its original use, the Council recognises it may be necessary in
exceptional circumstances to allow an appropriate change of use in order to secure the
future of the building. Alterations and extensions may be required in conjunction with the
change of use. Specialist recording and archiving will be requested prior to development.
11.34 U13 DEMOLITION OF LISTED BUILDINGS
Very exceptional circumstances will be required to demonstrate justification for the
demolition of a Listed Building.
11.35 Listed Buildings are assets for future generations to experience and enjoy. Only in
very exceptional circumstances and where all alternatives have been explored,
would demolition be allowed. Such criteria are detailed in PPG15: Planning and the
Historic Environment, Paragraph 3.5 and Paragraphs 3.16 to 3.19. Where demolition
is proposed, the Council will require the submission of a statement assessing the
historic, architectural and archaeological importance of the structure prior to the
determination of the application. The Council will also require the submission of a
simultaneous planning application for any replacement building or proposed work.
11.36 Where appropriate, the Council may require historic materials and/or components arising
from demolitions or other works to historic buildings, to be set aside and reincorporated in
alteration works to the building, or disposed of to a bona fide architectural salvage firm.
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11.36 Where there is sufficient architectural or historic interest for doing so, the Council will
require the investigation and recording of the construction, design and other features present,
prior to demolition, and which are exposed during the demolition of Listed Buildings. This
recording work will be carried out in accordance with a written scheme agreed in advance
with the Council and a full report of the results of the work will be submitted.
11.38 Where demolition of a Listed Building is permitted, the Council will seek to ensure that the
impact of any permitted demolition works on archaeological remains will be assessed and
measures taken to ensure that such remains are not disturbed prior to appropriate
archaeological investigation.
11.39 U14 REPAIR AND MAINTENANCE OF LISTED BUILDINGS
The Council will serve Urgent Works and Repairs Notices where reasonable steps to
repair and preserve a Listed Building are not being taken.
11.40 There is no specific duty on owners of Listed Buildings to keep their buildings in a good
state of repair, although it is usually in their interest to do so. The Planning (Listed
Buildings and Conservation Areas) Act 1990 allows local authorities to carry out urgent or
emergency works to unoccupied parts of Listed Buildings, after giving notice to the owner,
and recover costs from them. Also a Repairs Notice may be served on owners of occupied
Listed Buildings, requesting measures to be taken to restore the building to its condition at
the time of listing.
11.41 U15 BUILDINGS OF LOCAL INTEREST
Proposals for development affecting the appearance, character or setting of
Buildings of Local Interest should ensure that due regard is paid to safeguarding the
relevant features of the building and its setting. Proposals that involved the
demolition of the building are unlikely to be approved.
11.42 The list of buildings considered to be of local importance documented in Appendix 6 is also
contained within the Urban Conservation Strategy. The list will be reviewed periodically.
Such buildings are important to the local street scene and unsympathetic alterations may
be detrimental to the local amenity. Detailed guidance is set out in SPG 27: Buildings of
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Local Interest. Where demolition of a Locally Listed Building is proposed, the Council will
require the submission of a statement assessing the historic, architectural and
archaeological importance of the structure, prior to the determination of the application. In
addition, where there is sufficient architectural or historic interest for doing so, the Council
will require the investigation and recording of the construction, design and other features
which are present, prior to demolition, and which are exposed during the demolition of
Locally Listed Buildings. This recording work will be carried out in accordance with a
written scheme agreed in advance with the Council and a full report of the results of the
work will be submitted.
11.43 U16 CONSERVATION AREAS
The Council will designate or modify Conservation Areas as appropriate and will
operate detailed policies, including those set out in this Plan, in order to preserve or
enhance the special character and appearance of the area.
11.44 The Government requires local authorities to identify Areas of Special Architectural or
Historic Interest, the character and appearance of which it is desirable to preserve or
enhance. As part of the Urban Conservation Strategy, the boundaries of Conservation
Areas have been reviewed and new Conservation Areas have been designated (see Policy
U8). Conservation Areas have existed for St Mary’s Churchyard since 1977 and Grove Mill
Lane since 1973 and are identified on the Proposals Map. New Conservation Areas were
designated on 22 January 2001 and are identified on the Proposals Map; these include:
part of Nascot Ward (extended 28 November 2001);
Watford Heath;
The Parade and Hempstead Road Central Core;
Vicarage Road Cemetery and ‘The Square’ area; and
part of Central Ward in the vicinity of St John’s Church, Estcourt Conservation Area.
The areas designated were subject to public consultation as part of the 1st Deposit Draft
consultation process. The quality of such areas depends on much more than the quality of
individual buildings. Important factors may include the historic layout of property
boundaries, a particular mix of uses, characteristic materials, scaling and detailing of
contemporary buildings, street furniture and surfaces, vistas along streets and spaces
between buildings.
11.45 Planning control in Conservation Areas is more stringent than elsewhere. For example,
permission is required for the removal of any tree and permitted development rights are
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also more restricted. The Council may, in appropriate cases, seek Article 4 Directions to
remove permitted development rights within any Conservation Area in order to meet its
particular special architectural or historic interest. Article 4 Directions would only be used
following consultation with residents, occupiers and owners of properties within a
Conservation Area.
11.46 U17 SETTING OF CONSERVATION AREAS
Development which adversely affects the setting of a Conservation Area will be
resisted.
11.47 Development adjacent to a Conservation Area may have a significant impact on the
appearance or character of an area. Activities may be considered inappropriate, for
example, by disrupting important views or generating excess traffic. Detailed applications
and drawings must therefore be submitted to assess the appropriateness of development.
11.48 U18 DESIGN IN CONSERVATION AREAS
Development within a Conservation Area will be resisted if considered inappropriate
in terms of scale, setting, massing, siting, and detailed appearance in relation to
surrounding buildings and the Conservation Area as a whole.
11.49 U19 Small Scale Development in Conservation Areas
Planning permission will be resisted for small scale development which could lead to
a number of similar applications, the cumulative effect of which would be detrimental
to the character and appearance of the area.
11.50 High standards of design are expected in all Conservation Areas whether for new or
replacement buildings, extensions, alterations or small scale development requiring
planning permission, which may have a detrimental cumulative effect. To ensure the
preservation or enhancement of conservation areas the re-use of materials removed
through demolition or alteration is encouraged, as well as the use of appropriate new
materials sympathetic to existing surrounding buildings. In general, traditional materials
and craftsmanship will be needed to harmonise new development with the existing
buildings and proposals involving new materials and innovative techniques will especially
need to demonstrate a positive contribution to the enhancement of the area. In order to
properly consider the effect of new developments on the character and appearance of
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Conservation Areas and whether preservation or enhancement in the particular instance
can be achieved.
11.51 Detailed applications and drawings must therefore be submitted for all developments in, or
adjacent to Conservation Areas. Proposals must show the relationship of the scheme to its
surroundings both in plan and elevation and where necessary, in section. Accurate surveys
of adjoining buildings will be required to show such features as roof ridges and eaves
heights, proportions and glazing of windows etc. Drawings should be to an appropriate
scale (not less than 1:100).
11.52 U20 DEMOLITION IN CONSERVATION AREAS
Demolition of buildings or structures that are not statutory listed, but are within a
Conservation Area, will only be permitted where;
a) its removal or replacement would preserve or enhance the character and
appearance of the area, OR
b) it is beyond economic repair.
11.53 The Council supports the advice in PPG 15 that “the general presumption should be in
favour of retaining buildings which make a positive contribution to the character or
appearance of a conservation area”. As such, consent for demolition will not be given
unless there are acceptable and detailed plans for redevelopment which would enhance
the character and appearance of the area. To ensure that a site does not remain vacant
and become an eyesore for any significant length of time after demolition, the Council will
require the simultaneous submission of applications for planning consent and Conservation
Area consent. Where appropriate the Council will impose a condition on any Conservation
Area consent or will expect the owner to enter into a planning obligation, for development to
be completed within an agreed time from the grant of Conservation Area consent.
11.54 U21 Historic Parks and Gardens
Historic Parks and Gardens are important environmental assets and will be protected
by:
a) refusal of proposals for development that would adversely affect its special
character and appearance, or which would detract from its setting;
b) encouragement for the conservation of their landscape and architectural
features; and
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c) where development is permitted, the use of planning conditions and/or legal
agreements requiring an appropriate programme of maintenance and restoration
work, based on comprehensive historical research.
11.55 Both unregistered, important historic parks and gardens and those included in the Register of
Parks and Gardens of Special Historic Interest in England, which is maintained by English
Heritage, will be afforded protection. Cassiobury Park has been assessed as a Grade II Historic
Park and its extent is shown on the Proposals Map. Historic Parks and Gardens are mentioned in
PPG 15 which notes that the grading of parks and gardens is independent of the grading of any
Listed Building within the area.
11.56 In considering development proposals that may affect Historic Parks and Gardens,
the Council will have particular regard to the need to safeguard the appearance,
character or setting of the park or garden and will not permit development that will
have an adverse impact. Where development is permitted, the Council will expect
the owner to enter into a legal agreement to safeguard the landscape through a
programme of management and restoration. Applications for development affecting
a park or garden will be required to be accompanied by an environmental
assessment and a survey of its historic interest. The Council may seek independent
advice where proposals warrant specialist expertise.
11.57 Designation of a park or garden as historic can be made for both existing and new spaces.
Advice can be sought from the Council. Advice on Registered Parks and Gardens may be
obtained from English Heritage and also from The Garden History Society (Station House,
Church Lane, Wickwar, Glos GL12 7NB) and the Hertfordshire Gardens Trust, c/o
Gorhambury, St. Albans, Herts AL3 6AH.
11.58 The Council will treat the presence of the Historic Park as a material consideration in
dealing with any proposals which affect the site and, in association with other bodies, will
seek to promote the appropriate management of the site.
11.59 U22 Archaeological Remains
The Council will ensure the preservation in situ of important archaeological remains,
whether scheduled or unscheduled, and their setting and will refuse consent for any
development which is likely to adversely affect them.
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The Council will require the submission of the results of an archaeological field
evaluation before a planning application is determined for any development which is
considered likely to have an adverse affect on important archaeological remains.
Where the Council considers that archaeological remains do not merit preservation
in situ then the Council will seek an appropriate programme of archaeological
investigation, recording and publication of the results. This will be achieved either by
agreement or by attaching appropriate conditions to the planning permission. Where
appropriate, the Council will seek to secure the enhancement of archaeological
remains.
Every effort will be made to ensure that these sites, and any finds recovered from
them, are made available for public viewing.
11.60 Watford’s archaeological potential has been assessed by the County Council and is
presented in the Extensive Urban Survey Document, which forms part of the Urban
Conservation Strategy (Policy U9). The Extensive Urban Survey sets out, in summary
form, what is known of the archaeological and historical development of Watford and
provides an assessment of the priorities for the management of the archaeological
resources of the town. In conjunction with Hertfordshire County Council, Watford Borough
Council has prepared an SPG which seeks to define character areas for urban
conservation and sets out management priorities for each area – see SPG 28: Historic
Environment Character Statement and Guidance Note, Map 6 showing the Historic
Environment Character Zones and Table 6, which sets out the summary description of the
zones. In addition to these sources of information concerning archaeology in Watford,
reference should be made to the Sites and Monuments Register (SMR) maintained by
Hertfordshire County Council. This contains a detailed record of the known archaeological
sites in Watford (and the County). The County Planning Archaeologist should be consulted
by all those considering development proposals which may have an impact on the
archaeological resources of the town.
11.61 Early appraisal is the key to minimising the impact of development on an archaeological
site. The Council may require proposals to be modified or may refuse to grant planning
permission where assessment indicates the existence of important remains. PPG 16
‘Archaeology and Planning’ stresses that preservation in situ is nearly always to be
preferred to preservation by recording; developers will be required to have regard to this
advice in formulating their proposals.
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11.62 U23 CIVIC CORE
The Council will encourage the protection and enhancement of the Civic Core Area.
11.63 The area around the Town Hall and Library is an important civic space which provides a
gateway to the Town Centre from the North. The area contains many buildings of civic
importance, many of which have local architectural and historic interest, but there is scope
for improvement. Improvements should define a high quality public space and reinforce a
strong relationship between buildings and their civic function. This area should aim to
balance and complement the retail part of the Town Centre. The Civic Core area is defined
on the Proposals Map.
11.64 The Cultural Strategy, produced by the Council, identifies part of the Civic Core area as
being suitable for the development of new cultural facilities. The Council intends to prepare
a planning brief, as set out in Policy IMR1.
11.65 U24 SHOPFRONTS
The Council will require a high standard of appearance of all shopfronts and
associated awnings, roller shutter grilles and signs. New shopfronts should be in
keeping with the character of the upper part of the building and relate well to
adjoining frontages. Traditional signs and fascias should be preserved wherever
possible.
11.66 A well designed shopfront adds greatly to the attractiveness of a shopping area. Particular
attention must be given to the proportion of fascias and their lettering, and the size and
shape of glazed and solid areas. The nature of grilles and shutters is important for night
time safety. SPG 16: Shopfront Design Guide should be consulted.
11.67 U25 ADVERTISEMENTS AND SIGNS
The Council will consider all applications for the display of advertisements, and
decide on appropriate action with regard to existing advertisements, on the basis of
their effect on local amenity and public safety in terms of the:
a) character and appearance of the building or locality of display;
b) advertisement size, location, design, illumination or colour;
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c) likely effect on traffic safety, including pedestrian safety and convenience; and
d) environmental benefits of display.
Where advertisement consent is granted for special reasons, such as to screen an area of
land, consent may be granted for a period of less than 5 years.
11.68 U26 TELECOMMUNICATIONS -– SUBMISSION OF
APPLICATIONS.
The Council will, in principle, support the growth of new and existing
telecommunications development, subject to other policies in the Plan. When
submitting applications for prior approval or planning permission, applicants
should:
a) demonstrate the need for the service on a given site;
b) engage in pre-application discussions;
c) submit rollout plans; and
d) provide a statement for each site indicating its location, the height of the
antennae, the frequency and modulation characteristics, and details of power
outputs.
11.69 Applicants for telecommunications development should submit detailed information to
enable the Council to give full consideration to the issues in accordance with SPG23.
11.70 U27 Telecommunications – Siting Considerations
In considering the siting of new equipment, the Council will adopt a precautionary
approach (as outlined in PPG 8) and will have regard to the effect on the locality,
Landscape Character Areas (see Policy SE40) and amenity of the area.
Telecommunication related development will be resisted where:
a) siting and appearance will have a detrimental effect on the locality and the
amenity area;
b) siting and appearance would have a detrimental effect on sensitive locations
such as green belt and wildlife areas, the Colne Valley Linear Park or areas or
buildings of historic interest;
c) equipment would be out of scale or out of character with the building on which it
is to be erected;
d) only means of access to the site is by a footpath or bridleway;
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e) the applicant fails to submit a certificate of conformity to demonstrate that the
proposed installation will comply with the requirements of the ICNIRP
(International Commission on Non-Ionizing Radiation Protection) guidelines at all
times (or other subsequent advice) in terms of limiting exposure to
electromagnetic fields; or
f) where a mobile phone base station is added to an existing mast or site, the
operator should submit a certificate of conformity to demonstrate that the
cumulative exposure will comply with the requirements of the ICNIRP guidelines
at all times (or other subsequent advice) in terms of limiting exposure to
electromagnetic fields.
The above criteria will be applied, having regard to the technical and operational
constraints of telecommunications development, the need for the proposed
development and the benefit that the proposed development would bring to the area.
The Council will encourage operators to provide the local authority with alternative
design solutions which minimise any impact on the environment.
Telecommunications apparatus should be sited in line with PPG8, Paragraphs 7.4-81
inclusive and Annex 1 Paragraphs 12-14 inclusive, SPG 23 (Telecommunications
Apparatus) and other relevant plan policies. Telecommunication related development
wherever reasonably possible should share masts and sites and erect antennae on
existing sites and structures, such as electricity pylons.
Applications relating to alternative sites must be justified. Applications that do not
demonstrate that alternative locations and potential to share facilities have been
investigated, will not be considered favourably. The Council will encourage licensed
mobile telecom operators (currently Hutchinson 3G, Orange, O2, T-Mobile and
Vodafone) to discuss their rollout plans for the area with the Local Planning
Authority on an annual basis.
11.71 Telecommunications are becoming an increasingly essential and beneficial element of our
local community and in the national economy. Technical advance in telecommunications is
enabling people to work, shop, gain access to services and be entertained from home, thus
reducing the need to travel. It also helps to increase accessibility to services and reduce
social exclusion. Government advice in PPG8 ‘Telecommunications’, advises that Local
Planning Authorities should respond positively to telecommunications proposals, especially
where the proposed location is constrained by technical considerations. Local Authorities
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should not question the need for the service, nor prevent competition between different
operators. Many proposals are permitted development under the current regulations and
therefore do not require planning permission. For example, the Town and Country Planning
(General Permitted Development) Order 1995, currently permits a maximum of one satellite
dish per dwelling house without the need for planning permission, other than in
Conservation Areas and subject to size and precise location on the building. However, for
certain types of apparatus, the operators must apply to the Local Planning Authority for a
determination as to whether their prior approval of the details of the siting and appearance
is required.
11.72 In developing a telecommunication network it is important to create a balance between
addressing public concerns and the protection of amenity, and the demand for transmission
coverage, subject to technical and operational requirements. The sharing of facilities
wherever possible will be encouraged to achieve this balance. A Register of Existing
Telecommunication Transmitter Apparatus is held by the Council and updated on a regular
basis. Telecom equipment should be located on the existing sites (identified on the
register) where these are capable of accommodating additional operators and where the
additional equipment would have a limited impact on the character of the surrounding area.
11.73 The final report of the Independent Expert Group on Mobile Phones (the Stewart Report)
found that the balance of evidence showed that there was no conclusive evidence to link
electromagnetic fields to health problems. However, the report recommended that a
precautionary approach be adopted on a number of principles, including a requirement that
installations comply with the guidelines issued by the ICNIRP and NRPB (National
Radiological Protection Board) on exposure to electromagnetic fields. The Government
accepted this recommendation of the Stewart Report as a ‘Precautionary Principle’ and has
been adopted in PPG8. The Council will need to be satisfied that an installation has been
assessed prior to planning permission or prior approval being considered.
11.74 U28 TEMPORARY BUILDINGS
The Council will consider the erection of temporary buildings against the same
relevant policies as permanent buildings of a similar use. The removal of the
temporary building will require the reinstatement of any surfaces, landscaping or
other pre-existing features or facilities.
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11.75 In certain circumstances, a temporary building will be required instead of a permanent one.
The Council will, however, have to be satisfied of the need for a temporary building and will
not renew such planning permission if the initial reasons for the building are considered no
longer to apply or if the original permission has not been implemented.
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CHAPTER 12: IMPLEMENTATION,
MONITORING, AND REVIEW
12.1 This chapter sets out clearly how the aims and objectives contained within the Plan’s
policies and proposals are to be implemented by the Council, the means by which their
implementation is to be monitored and recorded, and the criteria for reviewing the successful
implementation of the policies and proposals.
Implementation
Social Equity and Social Inclusion
12.2 Watford Borough Council is committed to the pursuit of equality of opportunity, and policies
in this Plan have been formulated with this objective in mind. All sections of the community
will be taken into account when applying the Plan’s policies. Watford’s community has
significant numbers of people from minority ethnic backgrounds, people with disabilities,
people on low incomes, single parent families, elderly people and other minority groups.
Wherever relevant to the Local Plan, the needs and aspirations of such groups must be
incorporated.
Human Rights Act
12.3 The Human Rights Act 1998 came into force on 2 October 2000 and requires local
authorities to act in a way which is compatible with the Act. This is particularly relevant to
the planning functions carried out by this Council. Watford Borough Council has, and will,
continue to consider this legislation when devising planning policies and when making
decisions on individual planning applications. The Council believes that this District Plan is
compatible with the Human Rights Act 1998.
Precautionary Principle
12.4 The Precautionary Principle approach was first formulated in the World Charter for Nature
adopted by the United Nations General Assembly in 1982. The Precautionary Principle
was subsequently included in other international agreements, most notably in
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the Rio Declaration during the UN Conference on Environment and Development in 1992,
Principle 15. The Principle basically demands that action be taken to prevent environmental
damage even if there is uncertainty regarding its causes and possible extent, on the
grounds that it is better to be roughly right in due time, bearing in mind the consequences
of being very wrong, than to be precisely right too late.
12.5 The Precautionary Principle approach is being increasingly applied in many areas that
affect the planning process. Most recently it featured in the Stewart Report on
Telecommunications. Other areas where the Principle is being applied are the wildlife
conservation arena and the management of floodplains. The Precautionary Principle
approach does have various guises and many people have sought to offer guidance for its
use. Some of these include:
a) the potential risks of alternative courses of action should be assessed when applying
the precautionary principle: situations should not be seen as a dichotomy between
action and inaction;
b) outcomes of the decision should be closely monitored, with the information being fed
into frequent reviews of the decision; and
c) scientific evidence should be closely monitored, and decisions should be frequently
reviewed in this light.
12.6 The Council will use the Precautionary Principle approach in:
i) floodplain management, as advised in PPG 25: Development and Flood Risk, and as
outlined in Policy SE27: Flood Prevention and SPG 24: Flood Risk Management; and
ii) the area of Telecommunications Apparatus as laid out in Policies U26 and U27 and
SPG 23: Telecommunications Apparatus, following the guidance in PPG 8:
Telecommunications.
Plan led development
12.7 The implementation of the Plan’s policies and proposals will be achieved through the
following mechanisms:
a. development by private organisations and individuals;
b. through planning obligations, imposition of planning conditions, agreement or other
relevant legislation;
c. investment by public utility operators and service providers; and
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d. direct investment by Watford Borough Council and Hertfordshire County Council, and
co-ordination of private developer contributions for initiatives, such as affordable
housing provision, children’s play facilities and public art.
12.8 The Council expects that the majority of development proposals will come forward from the
private sector. Consequently, the main way in which the Council will seek to achieve the
Plan’s implementation will be through its development control powers to grant or refuse
planning permission for development. The Council will determine development proposals
in accordance with the policies contained in this Plan, unless other material considerations
indicate otherwise.
12.9 The Council will seek co-ordination between programmes of other agencies and will
encourage investment in the Borough to meet the needs of the community and help
achieve the aims and objectives of this Plan. The Plan will provide the framework for the
Council’s land use related proposals and investment decisions, and will expect other
agencies’ land use policies and proposals to be led by the Plan.
12.10 The Council will continue to explore avenues of support funding through sources such as
the Government’s Single Regeneration Budget, National Lottery Funds or The European
Commission. Increasingly success will depend on the development of ongoing partnerships
between the public, private and voluntary sectors and local residents and businesses. It
should be noted, however, that this Plan runs until 2011 and that some of the proposals will
need to be phased over the period of the Plan. There will inevitably be conflicting views and
priorities which will affect the implementation of some projects. However, the District Plan is
primarily dealing with land use policies and so some of these issues and conflicts cannot be
dealt with through this process.
Strategies
12.11 Watford is essentially a compact urban area with areas of established land uses and key
open spaces. In order for the Town to become a more sustainable community, to achieve
the Plan’s vision, to accommodate necessary growth and to be positively responsive to
changing demands, the existing urban area needs to undergo long-term planned
remodelling. The Plan aims seek to translate a remodelled vision for Watford into clear
balanced geographical strategies. Such strategies will be achievable through gradual
changes in the built environment and land use patterns. Essential features will
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be a gradual reduction in the reliance or need for car travel, higher development densities
at key passenger transport locations, protection of key land use areas and an enhanced
role for the Town Centre.
12.12 Throughout the Council, departments are preparing various strategies, as listed in Table 7.
Those adopted have been taken into account in preparing this plan. Existing and future
strategies will be used to supplement the Plan’s policies.
Table 7 Strategies produced by the Council
STRATEGY PROGRESS CONTACT
Housing Strategy Regularly reviewed Housing
Empty Homes Strategy In progress Housing
Sustainable Economic Development
Strategy Yearly review Quality of Life Team
Walking Strategy In progress Planning &
Transportation
Cycling Strategy Expected Adoption June
2001
Planning &
Transportation
Urban Conservation Strategy In progress Planning &
Transportation
South West Hertfordshire Transport
Strategy Completed
Hertfordshire County
Council
Local Agenda 21 Strategy Published August 2000
(adopted 29/6/00) Quality of Life Team
Town Centre Strategy In progress
Quality of Life Team/
Planning &
Transportation
Public Art
Leisure Strategy
Policy produced
Adopted
Arts & Culture Team
Leisure
Cultural Strategy
In progress.
Expected Adoption 2002.
Replaces Leisure Strategy
Leisure
Nature Conservation Strategies
(Biodiversity Action Plan, Colne Valley In progress Planning
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STRATEGY PROGRESS CONTACT
Study)
Regeneration Strategy for West Watford
Ongoing programme
Partnership &
Community
Engagement
Allotment Strategy In progress Town Services
12.13 The Plan’s role is to ensure that, where appropriate its policies are implemented through
development control and are a fundamental consideration in all the Council’s other
activities. The Plan is therefore one of the mechanisms by which strategies, such as the
Sustainable Economic Development Strategy, can be achieved.
12.14 The strategies in themselves are inadequate to deal with Watford’s needs and problems.
Change can occur through partnerships with local people and businesses and through
empowering the community.
12.15 The strategies should recognise the importance of Watford as a sub-regional centre for
shopping and leisure, and the value of its location in the transport network to businesses,
commuters and residents
PLANNING BRIEFS
12.16 IMR1 IDENTIFICATION OF SITES FOR THE PREPARATION OF
PLANNING BRIEFS
The Council will seek ways to ensure that key sites are developed for the right type
of uses and a range of industrial, commercial and residential accommodation is
available within the Borough. Consequently, the Council will prepare planning briefs
for major sites and where appropriate will aim to secure a mix of uses, facilities and
economic initiatives.
12.17 The preparation of planning briefs is intended to aid the development process on
major sites, by making clear, in advance, the main elements which the Council will
seek from a satisfactory development scheme. A brief will set out how the Council
considers that its policies apply to the site in question, thus enabling intending
developers to gauge accurately the development potential of the site. A planning
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brief can also serve the function of encouraging the satisfactory redevelopment of
underused land and
buildings. The briefs will, in general, be the subject of full and proper public
consultation.
12.18 The Council intends to prepare planning briefs for the Key Development Sites (RA)
(see Table 8) identified on the Proposals Map. It should be noted that all of the key
development sites and RA1 in particular have some archaeological potential and that
Hertfordshire County Council will be specifically consulted on that aspect of the
briefs. Some of the RA sites also contain Listed Buildings and Buildings of Local
Interest, and regard will need to be given to policies contained in Chapter 11 (Urban
Design & Conservation). The Council intends to prepare Planning Policy Statements
for the Housing Sites (see Table 2).
12.19 Whilst Table 8 below gives an indication of the types of possible uses, it is the
Planning Briefs which will define the specific uses of a site. Community uses will be
acceptable, in principle, on all sites. The Council intends to prepare Planning Briefs
in partnership with all key stakeholders, including occupiers and land owners, which
will determine the precise nature and level of redevelopment for all RA sites.
Table 8 Sites identified where the Council intends to prepare Planning Briefs
Key Development Site Number
Location Existing Use Possible Uses
RA1
Exchange Road Site
Mixed uses including Telephone Exchange
Mixed use development to include:
Bus and taxi interchange Business Retail Housing Leisure BT telephone exchange and other BT Plc operational/ emergency requirements
RA2 Gas Works Lower High Street *
Gas Works Mixed use development to include:
Leisure Hotel Retail warehouse
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Key Development Site Number
Location Existing Use Possible Uses
Residential
RA3 Land adjacent to Watford Business Park
Abandoned County
Transport Scheme
(identified R1 West
Watford relief road.
In the District Local
Plan 1993)
Housing Open space Community uses
RA4 Clements site including Palace Theatre Scenery Store
Mostly retail Mixed use development to include:
Retail, Housing, Leisure, Offices, Community Use
RA5 Watford Springs Former Leisure
Centre Mixed use development to include:
Retail, Housing, Leisure, Offices, Community Use
RA6 Employment Area
5A and 5B Employment area Schemes which will enable
the redevelopment of Watford Junction Transport hub will be encouraged. (see Paragraph 6.21)
RA7 Civic Core (area defined in the Cultural Strategy)
Mixed uses, including Town Hall, library, surgery, Public House, car parking, swimming pool
Mixed uses, to include; Town Hall, Cultural uses, e.g. library, museum. Leisure uses, e.g. swimming pool. Residential, car parking and offices
RA8 Charter Place Retail, Market Retail (including a market), Leisure
Planning Conditions and Obligations
12.20 The guidance for the use of conditions of planning permissions is similar to that of planning
obligations detailed in Paragraph 12.22 below. Thus, the use of planning conditions within
development control is strictly regulated and every application will be taken on its own
merit. Relevant and reasonable conditions will be attached to permissions, where
necessary, regulating the form and use of the development approved.
12.21 Some developments can result in social, environmental and infrastructure costs. Such
costs should not involve additional expenditure by the public sector or a burden on the
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existing community. Certain policies in this plan may specify instances where planning
obligations or conditions may be appropriate to overcome problems, which would otherwise
justify refusal of planning permission.
12.22 PPG 1: General Policy and Principles and Circular 1/97: Planning Obligations, provide
guidance on the use of planning obligations and conditions on planning permissions. The
guiding principle is that they should only be used where there is a clear land use planning
justification for doing so, and where planning permission would otherwise have to be
refused. In accordance with the above guidance, planning obligations should only be
sought where they meet the following tests:
a) necessary;
b) relevant to planning;
c) directly related to the proposed development;
d) fairly and reasonably related in scale and kind to the proposed development; and
e) reasonable in all other respects.
12.23 IMR 2 Planning Obligations
In accordance with the terms of Section 106 of the Town and Country Planning Act
1990, Circular 1/97 (Planning Obligations) and Structure Plan Policy 2, the Council
may require developers to enter into a planning obligation to provide environmental
works, infrastructure, community facilities and services that directly relate in scale
and kind to a proposed development.
Where appropriate, the Council will consult with the County Council, other service
providers and regulatory authorities to establish the precise needs related to a
proposed development.
12.24 The Council will therefore enter into Section 106 agreements with the developer and other
stakeholders to ensure that new developments do not place an additional burden on the
existing community. Contributions will be in direct relation to the nature and scale of the
proposed development, its effect on the character of the area and its likely impact on local
infrastructure, facilities and services. In most instances, the Council will be seeking
contributions to be provided on site due to the urban nature of Watford. Provision on-site is
especially important when the particular local area is already lacking the facility the Council
is asking the developer to contribute towards. Where appropriate, off-site services and
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facilities may be required. Contributions could be used for implementing existing
strategies, the provision of additional services or facilities related to the scheme.
12.25 Developers can enter into unilateral undertakings when initially submitting a planning
application, but they are more usually offered by developers when an application goes to
Appeal. When giving evidence at appeal inquiries or hearings, the Council can also suggest
conditions to be imposed if the Inspector is minded to allow the appeal.
12.26 The type of contribution or provision that may be sought by the Council is outlined in Table
9, and includes both planning obligations and conditions as appropriate. This list is not
exhaustive, as it is an indication of what the Council is seeking to achieve. Therefore each
planning application will be dealt with on its own merit.
Table 9 Planning Obligations and Conditions
Policy Ref
Name of Policy *Development Type / Additional Comments
Planning Tool
SE7 Waste Storage, Recovery & Recycling in New Development
For developments likely to generate significant waste, the Council may wish to enter into a planning obligation with the developer to provide waste facilities, or grant permission subject to conditions
Details in Policy 11 of the Herts Waste Local Plan. Consultation with the Herts County Development Unit. Conditions/Obligation
SE20r Air Quality To mitigate potential impact Where local air quality is identified as being a risk to health and the potential problem is incapable of being overcome by a condition or planning obligation then this may be a cause for refusal of planning permission.
Conditions/Obligation
SE22 Noise To mitigate potential impact – seek to separate noise sensitive uses and noise generating uses. In exceptional cases where separation can not be achieved, the Council may impose conditions or obligations to mitigate the effect of noise nuisance by reduction at source, design and layout or
Conditions/Obligation
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Policy Ref
Name of Policy *Development Type / Additional Comments
Planning Tool
by limiting times of operation
SE23 Light Pollution To mitigate potential impact
The Council may grant permission subject to conditions minimising the impact of external lighting on the safety and amenity of surrounding areas.
Conditions
SE24 Unstable & Contaminated Land
Where it is suspected that a site may be contaminated, or where there is evidence that there is only slight contamination, the Council is likely to impose a condition on any planning permission granted to require a site investigation and assessment prior to development.
Conditions
SE27 Flood Prevention Presumption against development on flood-plain. Development “wholly exceptional”, limited to essential infrastructure Council will use conditions and planning obligations where appropriate to minimise potential for flood risk. In considering development proposals, the Council will take into account matters including ‘any flood defences or mitigation work to be met by the developer’
Obligations and/or Conditions
SE29 Utilities Infrastructure
The Council may use planning conditions to ensure necessary utility improvements or new utilities infrastructure has been undertaken prior to commencement of the proposed activity on the development site. The Council will only permit development proposals where the water supply, sewerage system and associated utilities infrastructure has sufficient capacity and design to meet the anticipated increase in demand.
Conditions
SE31 Species Protection
Measures to safeguard protected species and for targeted ecological enhancement. If proposals can be justified, the approach will be to minimise harm and replace or recreate as appropriate, through the use of planning conditions and obligations
Obligations and/or Conditions
SE32 Sites of Nature Conservation Importance
To mitigate or compensate for potential harm Where such development or land use changes is permitted which would
Obligations and/or Conditions
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Policy Ref
Name of Policy *Development Type / Additional Comments
Planning Tool
damage the nature conservation value of the site or feature, such damage should be kept to a minimum. Where appropriate, the authority will impose conditions and/or planning obligations to mitigate or compensate for any harm caused.
SE33 Nature Conservation and Biodiversity Enhancement
The positive management and enhancement of conservation features Management of conservation features may be secured as part of the development control process through planning conditions and/or obligations.
Obligations and/or Conditions
SE34 Watling Chase Community Forest
Where appropriate within the WCCF area, the Council will seek contributions for its enhancement
OBLIGATION
SE35 Urban Forestry Encourage urban Woodland including Trees in the Green Wedge, through a strategy for Urban Forestry, encouraging urban forestry style planting through development briefs and planning obligations.
Obligations
SE36 Replacement Trees
If the retention of existing trees is not appropriate, the Council will require replacement through conditions and/or planning obligations When a tree is lost due to development must be replaced on site. Replacement trees which fail within a five year period must be replaced
Obligations and/or Conditions
SE37 Protection of Trees, Woodlands and Hedgerows
Retention with aim of protection of trees, woodland and hedgerows through the use of planning obligations or planning conditions
Obligations and/or Conditions
SE41 Green Zones The Council may impose conditions or obligations to achieve an enhanced environment… air quality, parks, public art, safer routes, passenger transport
Refers to various other policies – Conditions/Obligation
T4 Transport & New Development
Highway Improvements, contributions to bus/train service enhancement schemes
Obligations and/or Conditions
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Policy Ref
Name of Policy *Development Type / Additional Comments
Planning Tool
T5 New Development and Green Travel Plans
The Council will require developer/occupiers to enter into a legal agreement or may impose planning conditions on planning permission to ensure long-term benefits are maintained – expected to submit & operate Green Travel Plans
Conditions/Obligation
T7 Pedestrian Facilities In Developments
The Council will require contributions to improve pedestrian routes for new developments. Planning obligations to secure pedestrian links and improvement of facilities outside the development site will be sought to encourage pedestrians. A reduction in the required number of car parking spaces could assist in offsetting any costs incurred in meeting the requirement of the planning obligation in respect of pedestrian facilities.
Obligations and/or Conditions
T9
Cycling
The Council will seek to enter into planning agreements to secure contributions towards the improvement of the cycle network and/or facilities for cyclists
Obligations
T11 Passenger Transport and New Development
The Council may seek to enter into planning agreements with the developer to provide improved passenger transport facilities and services, as part of Section 106 agreements.
Use of S106 to deliver
T16 Rail Use Encourage, maintain & improve travel needs by encouraging in principle development proposals which seek to make full use of rail services and which through developer contributions enable service improvements
Use of S106 to deliver
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Policy Ref
Name of Policy *Development Type / Additional Comments
Planning Tool
H10 Planning Agreements for Educational and Community Facilities
Where a proposed residential development is likely to create an increased demand for school places or other social/community facilities, developers may be required to enter into a planning agreement with the Council… to help meet the extra costs incurred as a direct result of the development.
S106 for contribution and/or direct provision Decision of appropriate level of contribution made by Hertfordshire County Council
H17 Provision of Affordable Housing
Residential Affordable housing and/or land. On site preferred, off site option; commuted payment (exceptions) Required for 25 units or more or over 1Ha. All new housing developments consisting of 25 or more dwellings… are expected to provide a proportion of affordable housing for perpetuity as an integrated element of the development
Obligations
E7 Local Recruitment and Training
Major employers moving into new developments or seeking planning permission to expand will be required to enter into agreements with the Council to facilitate fair and effective programmes of local recruitment and training.
Obligation
E8 Facilities for Employees
When dealing with employment generating schemes, the Council will have regard to the provision being made to meet the childcare needs of employees. … either specific childcare facilities must be included within the development, or support be given for an increase in the level of childcare provision elsewhere
Obligation
S13 Litter Management
Town Centre Development. Litter Management/ Street Washing, required where appropriate. Direct provision/commuted payment
Obligations and/or Conditions
S14 Provision of Litter Bins
All Class A3 Development Litter bins, required for all development. Direct provision/commuted payment required.
Obligations and/or Conditions
S15 Litter Management Strategy
Takeaway uses Litter Management Strategy, relates to all development. Direct provision/commuted payment required.
Conditions
TC2 Developer Contribution
All town centre schemes Contribution towards enhancement
Obligations and/or conditions
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Policy Ref
Name of Policy *Development Type / Additional Comments
Planning Tool
projects. Required in line with SPG17. Commuted payment contribution. All development in the Town Centre will be determined having regard to the objectives of the Town Centre Strategy and where appropriate developer contributions will be sought especially for environmental enhancement schemes and passenger transport schemes
L6 Provision of Additional Open Space
Achieve improvement in provision of open space through the use of conditions and planning obligations
Conditions/Obligation
L7 Pocket Parks Residential Pocket parks, relates to min 30 sq. m. On site or off site contribution required. Maintenance agreement required
Obligations and/or Conditions
L8 Open Space Provision in Housing Development
New residential Public open space development. Commuted payments for provision of improvement of open space based on formula of 2.8 hectares per 1,000 population. All new build housing is required to provide for sufficient open space. Small sites/high density schemes commuted payments required for the provision or improvement of nearby open space
S106 for off-site and Conditions for on-site provision
L9 Open Space Provision in Housing Development
New housing developments involving family sized accommodation will be required to make provision for children’s play facilities unless they already exist within 200m
Obligation In accordance with paragraph 9.34 and SPG10: Open Space Provision
L11 Maintenance of Open Space, Play Areas and Pocket Parks
ALL Open space, play area and pocket park maintenance, relates to standard length of time, 10-15 years. On and off site. Commuted payments in exceptional circumstances only. N.B. if the landowner wishes to hand the land over to the Council. Developer will be required to enter into a planning obligation with regard to maintenance of open spaces, play areas and pocket parks provided.
Obligations
CS8 Change of Use/ Redevelopment
Change of use of school buildings – the Council will enter into planning obligations with developers under
Obligations
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Policy Ref
Name of Policy *Development Type / Additional Comments
Planning Tool
Section 106 to secure the provision of community facilities including, primary schools, meeting halls, and health facilities as needed.
U4 Community Safety The Council may require developers to enter into a legal agreement to ensure that adequate security measures are provided for commercial and large developments
Obligation
U8 Public Art Provide public art, required on completion of scheme. Agree to either spend 1% of project value on incorporating art features or contribute 1% of value to Council’s programme.
Condition for on site facilities. S106 only used if the provision is off-site
U20 Demolition in Conservation Areas
The council will impose a condition on any conservation area consent or will expect the owner to enter into a planning obligation, for development to be completed within an agreed time from the grant of conservation area consent.
Conditions/Obligation
U21 Historic Parks and Gardens
Where development is permitted, the use of planning conditions and/or legal agreements requiring an appropriate programme of maintenance and restoration work, based on comprehensive historical research.
Obligations and/or conditions
IMR2 Planning Obligations
The Council may require developers to enter into a planning obligation to provide environmental works, infrastructure, community facilities and services that directly relate in scale and kind to a proposed development.
Obligation The Council will consult with County Council, other service providers and regulatory authorities to establish the precise needs related to a proposed development.
12.27 The contributions agreed under Section 106 Agreements will not usually be paid until the
developers, who have obtained planning permission, are ready to start their development
and other works. As planning permission is valid for 5 years and developers do not always
start their schemes immediately, there can be a delay in seeing the community benefits
arising from such agreements. Also, some payments are small contributions towards the
provision of facilities such as children’s play spaces and public open space. Spending of
these payments will depend upon suitable sites being found and appropriate schemes
designed and built. Section 106 funds are held in separate accounts and are rigorously
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audited. They are monitored and reported regularly to Council and therefore are available
for public Inspection. Full reporting back to the developers is undertaken to show how and
where their contributions have been used.
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Enforcement
12.28 IMR 3 Enforcement
The Planning Acts enable the Council, as local planning authority, to take
appropriate enforcement action against unauthorised development or changes of
use, and other contraventions of planning control, when and where it deems it
expedient and in the public interest. In doing this, it will particularly take into
account the policies and intentions of the Plan, along with amenity and visual
amenity considerations, as well as the need to ensure that the Council’s policies are
implemented in a reasonable and consistent manner.
The Council aims, wherever possible, to settle contraventions of planning control
through negotiation and agreement, without the need to resort to formal enforcement
action.
The Council may use its powers under Section 215 of the Town and Country
Planning Act 1990, to require the proper maintenance of land where its condition
adversely affects the amenity of adjoining areas.
12.29 The Planning Acts enable the Council to take enforcement action within the Borough,
where necessary and in the public interest. This action will be considered where
development is commenced without planning permission, where conditions of a planning
permission are not complied with or where other breaches of planning control have
occurred. Typically, enforcement action concerns unauthorised changes of use and
unauthorised alterations to Listed Buildings and buildings in Conservation Areas. Action
may be taken to secure the removal of unauthorised and inappropriate advertisements, for
the protection of threatened trees which are the subject of Tree Preservation Orders, and to
clear untidy land which adversely affects the amenity and/or visual amenity of surrounding
areas.
12.30 It is important to ensure that contravention of planning control does not take place, as this
undermines the successful implementation of Council planning policies. The Council will
consider enforcement action whenever it is expedient to do so. It will seek to do this
consistently and fairly, bearing in mind considerations of equality of access to the planning
system and equality of opportunity, the policies and intent of the District Plan, and relevant
government advice
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12.31 In line with the Council’s strategy for planning enforcement (approved in 1998), the local
planning authority will aim to settle contravention of planning control through conciliation,
negotiation and agreement, with the need to resort to formal enforcement action only in
exceptional cases. The Council will look at all cases individually and assess the
appropriate form of action to take. It should be acknowledged that, in some instances, it
may not be appropriate or in the public interest to take formal enforcement action, where
unauthorised development or other breaches of planning control do not cause
demonstrable harm to those with an acknowledged interest, and where such development
accords with the policies of the Plan.
12.32 An additional power stems from Section 215 of the Town and Country Planning Act 1990,
which gives the Council as local planning authority the power to serve notice on private
landowners. Such notice may require that steps be taken to remedy the condition of the
land and failure to comply with the notice can lead to prosecution.
Monitoring
12.33 Watford has had a statutory adopted district-wide local plan since May 1981. There were
statutory adopted amendments to this in February 1985. A review was undertaken in 1993
and this led to the adoption of the current plan in 1996. The Watford District Plan (2000) is
the latest in a continuing process stretching over more than twenty years of policy
formulation, monitoring, updating, review and public consultation to ensure that policies
remain responsive and reflective of local circumstances, encompass relevant Government
advice, are robust and can best achieve the Plan’s aims.
12.34 The importance of monitoring is recognised in the Town and Country Planning Act 1990,
which places a duty on the local planning authority to keep under review, matters affecting
the planning and development of their area and to carry out surveys where necessary. The
legislation gives a general indication of what is to be monitored e.g. physical and economic
characteristics of the area (including land uses), population information or the transport
system, and encourages consultation with neighbouring authorities in doing so. The
principal guidance of Local Plans (PPG12 – Development
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Plans) re-emphasises the Government’s commitment to a planning system, which is plan-
led and stresses the importance of up-to-date plans.
12.35 Also, in 2000, the revised PPG3 – Housing sets out a new policy direction for the delivery
of housing through the planning system based upon the ‘plan, monitor and manage’
approach and requires effective monitoring to underpin “the strategy of maintaining an
adequate supply of land and buildings for housing and to enable its managed release”
(PPG3). The Council, therefore, supports in principle the plan, monitor and manage
approach, which involves planning now to ensure provision of housing is sufficient to meet
the demand in the future.
12.36 IMR 4 Monitoring
The Council will monitor and review the effectiveness of policies in this plan in the
light of:
a. trends and patterns of population change, economic activity, impacts on the
environment from development, physical conditions in the Borough and
surrounding areas; and
b. changes to Government planning policy, regional planning guidance and
Hertfordshire Structure Plan
The Council will seek to ensure that this Plan is kept up to date, and will respond to
changing circumstances and new issues through:-
a. supplementary planning guidance to provide detailed advice on specific issues;
b. informal policy reviews;
c. limited alterations to the Plan; and
d. a formal review of the whole Plan.
12.37 In order to assist in establishing the effectiveness of policies and decisions, the Council will
continue to monitor development trends within Watford and its surroundings, together with
changes in population, economic and social trends influencing the shape of the future
development. It will be monitoring information, which relates to the effectiveness of its
policies and decisions, and the influence of various external factors, including, for example,
new Government advice or legislation, advice and guidance from the regional and strategic
planning bodies. Thus, for example, in housing terms, the Council will seek to ensure that
key trends in housing need and supply, such as the
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number of households on Council waiting lists and the number of houses built, are
monitored through a comprehensive and consistent process. The management of
additional housing provision will be undertaken through the development plan process
12.38 An Annual Monitoring Report will be produced and reported to Council to fulfil the
commitment to monitor and review the contents of the Plan. The report will be based on the
most recent information available and the results of recent survey and monitoring work. It
may also examine, selectively, major subject areas with the intention of initiating any
alterations required to the Plan. Any changes to the Plan will be made in full consultation
with the local community.
12.39 Where feasible, appropriate targets and benchmarks will be set in order to help assess the
success of policies. Full use of performance indicators, including sustainability indicators,
will be made following the advice in the monitoring section (Page 27) of the Hertfordshire
County Council Structure Plan. Whilst these indicators may not reflect the exact situation,
and in most cases will be subject to many influences over which the council has no control,
they do, however, provide a ‘barometer’ of how the Borough is changing and whether
planning and other policies are having their desired effect. An illustration of type of
indicators, benchmarks and targets to be used is given in the following Table 10.
Table 10 Monitoring
Aim Appropriate Targets / What to
monitor HOW TO MONITOR
Sustainability To promote regeneration, social inclusion, and sustainable patterns of development by ensuring that all development is carried out in ways which minimise any adverse impact on the environment and local community. To enable people to live life to the full without placing unnecessary demands on the environment or on energy resources, by seeking a gradual change in land use patterns and in behaviour.
Effectiveness of sustainability checklist
Use of other relevant indicators as set out below
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Aim Appropriate Targets / What to
monitor HOW TO MONITOR
Natural Environment To encourage a high quality environment, to protect and enhance the natural environment, wildlife and vegetation and their contribution to visual and wider environmental amenity, and to preserve the Green Belt and areas of open space.
Land use change
Flood plain management
Development of previously developed sites
Volume of waste material per head of population
Incidents of pollution,
Consumption of potable water
Number of tree preservation orders made
Number of Local Nature Reserves
Up to date biodiversity plan
Surveys
Monitoring planning applications
Measuring waste production
Tonnes of recycled material collected
BUILT ENVIRONMENT To enhance the built environment through careful control of development, improvements to townscape and landscape, protection of historic buildings and areas, and the encouragement of development that delivers sustainable objectives.
Target
Re-use of previously developed land for all land use types
80% re-use of previously developed land for housing
Monitoring
Development on previously developed sites
Planning applications on previously developed sites
Integrated Transport To develop and implement a transportation strategy with the County Council to best meet the transportation needs for all people in Watford.
Car parking spaces in new development by category
Length of new cycle routes and bus routes proposed and implemented
Use of cycle routes
Number of green travel plans submitted as part of a planning application,
Amount of planning gain contributions for SWHTS.
HCC will provide detailed monitoring in the County Council’s LTP document
Housing To adequately meet local housing needs including the need for affordable and lifetime housing whilst ensuring that there is not an overall over-supply of housing.
Targets
Keep 5 year supply of building land
80% of housing development on previously developed sites
All developments above the defined threshold to have an affordable housing element in
Ensure there is a 5 year supply of building land
Monitor housing planning applications and proposals
Have an up to date housing needs survey
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Aim Appropriate Targets / What to
monitor HOW TO MONITOR
the proposals
Monitoring
Housing supply and demand
Numbers of dwellings provided in plan area
Population changes
Housing built on previously developed land
Number of households on Council waiting lists
Location of housing in relation to other services
Housing size and mix and balance, including conversion levels and the number of HMOs
Numbers of affordable dwellings provided
Windfall sites – numbers of dwellings provided
Housing needs of people of Watford and surroundings
Quality of design
DENSITY OF DEVELOPMENT
School capacities
Accessibility to passenger transport services for new development
CAR PARKING PROVISION
Have an Urban Capacity Study
Monitor number of units proposed and school place provision in the area
LOCAL ECONOMY To create the right conditions in which business can thrive and prosper by revitalising and broadening the local economy.
Employment floorspace trends
Land supply for employment uses (in relation to need)
Type of development occurring in employment areas
Local labour supply including unemployment numbers
Regular surveys of employment areas
HCC detailed monitoring of employment topics
Monitoring unemployment and employment levels
SHOPPING To ensure the continued viability and vitality of established shopping centres and the multi-functional role of Watford Town Centre based around shopping.
Monitor shopping planning applications
Town Centre Health Checks
Floorspace forecasts and related assumptions, e.g., improvements in floorspace efficiency
Effectiveness of Town Centre Strategy and related developer
Town health checks
Retail surveys
Retail impact statements by developers
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Aim Appropriate Targets / What to
monitor HOW TO MONITOR
contributions CRIME PREVENTION To promote land use and urban design measures to enhance security, make crime more difficult to commit and to increase the detection of potential offenders.
Target
Reduction of “no go” areas Monitoring
The number of perceived “no go” areas as identified by Community Safety Audit and as a result of the built environment
Survey of perceived no go areas
Have an up to date Community Safety Audit
Community Need, Social Equality and Participation To make adequate appropriate provision for development to meet local community needs and to enhance quality of life.
Use Quality of Life indicators and targets
Have Up to date information on assessments of local, community needs
DESIGN PRINCIPLES To ensure the quality and longevity of development by supporting and encouraging good sustainable design, including the incorporation of public art in all prominent public development, locations, and spaces.
Quality of design in planning applications
Promote an Urban Design Award scheme Provide guidance on what is considered good design
Buildings at risk Through Urban conservation strategy
12.40 These performance indicators, including sustainability indicators, targets and benchmarks
will be developed in partnership with other agencies and progress on them will be included
in the Annual Monitoring Report produced by this department. This information is also used
and reported on by other Council departments and other external agencies for monitoring
purposes, for example in the document “Quality of Life in Watford”.
Sustainability Appraisal
12.41 A Sustainability Appraisal has been carried out on the Plan and is published in a separate
document.
12.42 The purpose of the appraisal is to provide an explicit evaluation of the sustainability
implications likely to be brought about by the Plan’s policies and proposals. It demonstrates
how environmental, economical, and social issues have been taken into account in
formulating the Plan.
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12.43 Further sustainability appraisals will be carried out on the Plan (or any suggested
amendments to it) as part of the monitoring/updating process, as necessary.
Review
12.44 It is important here to distinguish between monitoring and review. Monitoring is a
continuous process for the collection of information and statistical data on actual or
impending changes within the Borough. The conclusions drawn from the monitoring
process are subsequently used in an alteration or review of the Plan. The latter is a process
whereby the Council actually makes a revision to the strategy, policies and proposals
contained in the Local Plan. It is not a continuous process but is undertaken as and when
monitoring or other circumstances indicate that the Plan needs changing.
12.45 Local Plan policies and proposals will be kept under review with the benefit of an up-to-date
monitoring system. Thus, the results of monitoring will be analysed, and the trends and
patterns established from this will influence decisions about whether policies and proposals
should be changed or remain unaltered. Revisions to policies and proposals will be brought
forward, as appropriate, for consultation, before being adopted as part of the Plan. A full
review of the Plan will be undertaken at least 5 years after its adoption. It is the intention of
the Council to carry out an early review as soon as the Structure Plan is adopted, to roll
forward the Plan to 2016.
12.46 The Council is committed to engaging the public when carrying out its statutory duty of
reviewing the District Plan. This public consultation focuses on the land use and related
transportation implications of the needs and aspirations of residents, community groups
and both public and private sector organisations. The Council continually seeks to improve
the processes and outcomes of community involvement in local planning, through enabling
different organisations and interests to engage in dialogue together as advocated by the
Hertfordshire County Council Structure Plan – Policy 3: Comprehensive Settlement
Appraisals. It is hoped that this approach will result in a better understanding of the needs,
problems, resources and aspirations of various interested parties, thereby facilitating a
shared vision of what the District Plan should seek to achieve.
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Watford District Plan 2000
December 2003
Produced by Town Planning: Strategy
Watford Borough Council, Town Hall, Watford, WD17 3EX
website: www.watford.gov.uk
e-mail: [email protected]
tel: 01923 278280