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Emerging plans at local 
and neighbourhood level 
Sarah O’Driscoll Service Manager City Planning 22nd April 2014
PAS London 
Content 
• Bristol’s statutory planning 
context 
• How we have been working with 
our Neighbourhood Forums 
• the challenges 
• the opportunities 
• Some of the lessons and learning 
to date 
22nd April 2014
Bristol –West of England Sub-region 
22nd April 2014
PAS London 
Bristol’s statutory planning context 
22nd April 2014 
Development Plan 
Bristol Local Plan 
Core Strategy 
National Planning Policy Framework 
Site Allocations & 
Development Management 
Policies 
Central Area Plan 
Neighbourhood Development Plans
PAS London 
Introducing Neighbourhood Planning to 
Bristol….local governance 
Bristol 
• is entirely ‘un-parished 
• has ‘Local Neighbourhood 
Partnerships’ of 2 to 3 
wards 
• is short on neighbourhood 
level governance structures 
22nd April 2014 
Implications…. 
• Area and Forum designation 
process required 
• Too large to be 
‘neighbourhoods’ 
• Weak on experience of 
neighbourhood elected 
representation
PAS London 
Introducing Neighbourhood Planning to 
Bristol….local governance 
Bristol 
• BUT the LPA has a history of 
active working with 
community groups on 
neighbourhood planning 
predating Localism Act 
22nd April 2014 
Implications…. 
• Ready experience of 
community engagement in: 
– Character appraisals, 
landscape appraisals, 
ecology assessments 
– Commenting on 
Planning applications 
and emerging DPDs 
– SPD preparation with 
LPA
PAS London 
Introducing Neighbourhood Planning to 
Bristol….Neighbourhood Planning Forums 
• Using existing Neighbourhood Planning Network 
• Identified 3 Front Runner Pilots 
• Provided training for established conservation area and 
planning groups on emerging Act and Regulations 
• Explored options and alternatives using ‘Choices and 
Choosing’ 
• established a cycle of open application for Neighbourhood 
planning Area and Neighbourhood Planning Forum 
designations 
22nd April 20 14
PAS London 
Introducing Neighbourhood Planning to 
Bristol….Neighbourhood Planning Forums 
Provided guidance on process and 
requirements 
• Information leaflet and process sheet 
• Guidance on how to apply 
• LPA prioritisation of support 
• How to set up a constitution 
• Standards for working together – MoA 
• How to retain a consultant – outline 
for a brief and contract process 
22nd April 20 14
Neighbourhood Planning Areas and Forums 
Designations 
5 Neighbourhood Planning 
Areas and Forums 
• July 2012 
Lockleaze and Redcliffe Way 
• May 2013 
Lawrence Weston and Old Market 
• July 2013 
KnowleWest 
22nd April 2014
PAS London 
Lockleaze 
Site allocation proposal map Issues and options map 
22nd April 2014
PAS London 
Redcliffe Way 
BCAP section Redcliffe illustration 
22nd April 2014
PAS London 
Old Market Quarter 
BCAP allocations Old Market Map 
22nd April 2014
PAS London 
Old Market Quarter 
Community vision for 
Old Market roundabout 
22nd April 2014
PAS London 
Lawrence Weston 
Site allocation Community allocations 
22nd April 2014
PAS London 
Lawrence Weston 
22nd April 2014
PAS London 
Knowle West 
Site allocation KW Regeneration Framework 
22nd April 2014
PAS London 
Timetabling….. 
NPF NPF 
22nd April 2014 
designation 
date 
Aims and 
Objectives 
Consultation 
First Draft 
NDP 
Consultation 
Revised 
Draft NDP 
Consultation 
Submission 
independent 
examination 
Examination Referendum 
anticipated 
Consultants 
appointed 
Lockleaze 
Voice 
30.7.12 April 2012 April/May 
2014 
August 2014 October / 
November 
2014 
LDA Oct 
2013 
Redcliffe 
Way 
30.7.12 February 
2013 
September 
2014 
March 2015 July 2015 September 
2015 
LDA/muf 
Jan 2013 
Old 
Market 
Quarter 
1.5.13 April 2013 October / 
November 
2013 
May / June 
2014 
July / August 
2014 
October / 
November 
2014* 
January 
2015 
Consultant 
policy 
drafting 
Lawrence 
Weston 
1.5.13 Set in 
Community 
Plan 
published 
Spring 2013 
April/May 
2014 
June / July 
2014 
August 2014 October / 
November 
2014 
January 
2015 
Planning Aid 
Knowle 
West Area 
1.7.13 Set in 
constitution, 
derived from 
work on KW 
Regeneration 
Framework 
January 2015 June 2015 September 
2015 
October / 
November 
2015* 
January* 
2016 
Due end of 
April 2014
PAS London 
Learning: 
Challenges – why not faster delivery? 
• What has held up the 
process to date: 
– for Neighbourhood 
22nd April 2014 
Forums 
– For LPAs 
• Understanding the task 
• Getting community involvement 
• Identifying the skills required 
• Accessing finance 
• Appointing consultants 
• energy 
• Access to resources 
• Existing DPD priorities 
• Existing commitments 
• Managing finances and legislative 
processes
PAS London 
Learning: 
Challenges – why not faster delivery? 
- Joint LPA and Forum 
issues: 
• No urban area is a ‘clean 
sheet’ 
• Ensuring common 
understanding ….. 
22nd April 2014 
• History of Council projects and 
promises 
• Existing regeneration projects 
• Aspirations that go beyond the 
NPF remit 
• Significant Council land 
ownership – highways, long 
leases, Housing Revenue Account 
• Conflicting approaches to 
engagement 
• ‘project ‘ownership’ and delivery 
issues
PAS London 
Learning: 
Challenges – why not faster delivery? 
• Clarity on plan content 
• Ensuring community 
engagement 
22nd April 2014 
• What is a land use plan ‘policy’ 
• What is a space ‘management’ 
issue 
• What is ‘policy’ vs ‘design guide’ 
• What is an acceptable allocation 
• What is a deliverable allocation 
• Does the community really 
understand? 
• Significant changes to the plan 
need another consultation….
PAS London 
Learning: 
Challenges - how might it work if… 
• There is no extant / up to 
date statutory Plan 
• Where the NDP has got 
ahead of the Local Plan 
preparation 
• Where Statutory Local Plan 
in place 
• Where the local authority 
is the major land owner 
22nd April 2014 
In each case…. 
• What is the added value 
that a Neighbourhood 
Development Plan can offer 
• How can the NPF 
• contribute to the existing 
processes 
• use the process to their 
advantage 
• What does the local 
authority need to accept / 
initiate
PAS London 
Learning: 
Opportunities…. 
• for flexibility of response – no 
standard way to prepare a 
Neighbourhood Development 
Plan 
• for new ways of partnership 
working with communities 
• For greater corporate working 
with a neighbourhood focus 
on delivery 
22nd April 2014 
• There is 
– no standard response 
– no standard approach 
– no standard solution
PAS London 
Sustainability Appraisal – what and when 
• What 
– Scoping 
– Direction 
– Engagement with statutory 
22nd April 2014 
bodies 
• When 
• Depends on form of 
Neighbourhood Plan 
• Extent of un tested 
proposals 
• Extent of consistency with 
Local Plan 
• Need confirmed content to 
work with…..
PAS London 
Basic Conditions – what and when 
• What 
– NPPF compliant 
– Local Plan strategic policy 
22nd April 2014 
general conformity 
– Statement of consultation 
• When 
• Early check with LPA on 
objectives and aspirations 
• Contribution to content of 
Basic Conditions statements 
from early days 
• Active support and 
engagement with LPA on 
product….. 
• Need confirmed content to 
work with…..
PAS London 
Needs 
Resources, resources, resources 
• Funding and finance 
• Skills base 
• People 
• Organisation 
• Project Management 
• Enthusiasm 
• ……. and the right delivery mechanisms 
22nd April 2014
PAS London 
Conclusions 
• Governance structures are 
an issue 
• No urban context is a clean 
sheet 
• It has to be voluntary…! 
• Flexibility is the key……. 
• Increasing delivery of 
development is the 
target….. 
22nd April 2014
PAS London 
Sarah O’Driscoll 
Service Manager City Planning 
sarah.odriscoll@bristol.gov.uk 
http://www.bristol.gov.uk/page/planning-and-building-regulations/neighbourhood-planning- 
22nd April 2014 
bristol

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Bristol CC Neighbourhood Planning presentation

  • 1. Emerging plans at local and neighbourhood level Sarah O’Driscoll Service Manager City Planning 22nd April 2014
  • 2. PAS London Content • Bristol’s statutory planning context • How we have been working with our Neighbourhood Forums • the challenges • the opportunities • Some of the lessons and learning to date 22nd April 2014
  • 3. Bristol –West of England Sub-region 22nd April 2014
  • 4. PAS London Bristol’s statutory planning context 22nd April 2014 Development Plan Bristol Local Plan Core Strategy National Planning Policy Framework Site Allocations & Development Management Policies Central Area Plan Neighbourhood Development Plans
  • 5. PAS London Introducing Neighbourhood Planning to Bristol….local governance Bristol • is entirely ‘un-parished • has ‘Local Neighbourhood Partnerships’ of 2 to 3 wards • is short on neighbourhood level governance structures 22nd April 2014 Implications…. • Area and Forum designation process required • Too large to be ‘neighbourhoods’ • Weak on experience of neighbourhood elected representation
  • 6. PAS London Introducing Neighbourhood Planning to Bristol….local governance Bristol • BUT the LPA has a history of active working with community groups on neighbourhood planning predating Localism Act 22nd April 2014 Implications…. • Ready experience of community engagement in: – Character appraisals, landscape appraisals, ecology assessments – Commenting on Planning applications and emerging DPDs – SPD preparation with LPA
  • 7. PAS London Introducing Neighbourhood Planning to Bristol….Neighbourhood Planning Forums • Using existing Neighbourhood Planning Network • Identified 3 Front Runner Pilots • Provided training for established conservation area and planning groups on emerging Act and Regulations • Explored options and alternatives using ‘Choices and Choosing’ • established a cycle of open application for Neighbourhood planning Area and Neighbourhood Planning Forum designations 22nd April 20 14
  • 8. PAS London Introducing Neighbourhood Planning to Bristol….Neighbourhood Planning Forums Provided guidance on process and requirements • Information leaflet and process sheet • Guidance on how to apply • LPA prioritisation of support • How to set up a constitution • Standards for working together – MoA • How to retain a consultant – outline for a brief and contract process 22nd April 20 14
  • 9. Neighbourhood Planning Areas and Forums Designations 5 Neighbourhood Planning Areas and Forums • July 2012 Lockleaze and Redcliffe Way • May 2013 Lawrence Weston and Old Market • July 2013 KnowleWest 22nd April 2014
  • 10. PAS London Lockleaze Site allocation proposal map Issues and options map 22nd April 2014
  • 11. PAS London Redcliffe Way BCAP section Redcliffe illustration 22nd April 2014
  • 12. PAS London Old Market Quarter BCAP allocations Old Market Map 22nd April 2014
  • 13. PAS London Old Market Quarter Community vision for Old Market roundabout 22nd April 2014
  • 14. PAS London Lawrence Weston Site allocation Community allocations 22nd April 2014
  • 15. PAS London Lawrence Weston 22nd April 2014
  • 16. PAS London Knowle West Site allocation KW Regeneration Framework 22nd April 2014
  • 17. PAS London Timetabling….. NPF NPF 22nd April 2014 designation date Aims and Objectives Consultation First Draft NDP Consultation Revised Draft NDP Consultation Submission independent examination Examination Referendum anticipated Consultants appointed Lockleaze Voice 30.7.12 April 2012 April/May 2014 August 2014 October / November 2014 LDA Oct 2013 Redcliffe Way 30.7.12 February 2013 September 2014 March 2015 July 2015 September 2015 LDA/muf Jan 2013 Old Market Quarter 1.5.13 April 2013 October / November 2013 May / June 2014 July / August 2014 October / November 2014* January 2015 Consultant policy drafting Lawrence Weston 1.5.13 Set in Community Plan published Spring 2013 April/May 2014 June / July 2014 August 2014 October / November 2014 January 2015 Planning Aid Knowle West Area 1.7.13 Set in constitution, derived from work on KW Regeneration Framework January 2015 June 2015 September 2015 October / November 2015* January* 2016 Due end of April 2014
  • 18. PAS London Learning: Challenges – why not faster delivery? • What has held up the process to date: – for Neighbourhood 22nd April 2014 Forums – For LPAs • Understanding the task • Getting community involvement • Identifying the skills required • Accessing finance • Appointing consultants • energy • Access to resources • Existing DPD priorities • Existing commitments • Managing finances and legislative processes
  • 19. PAS London Learning: Challenges – why not faster delivery? - Joint LPA and Forum issues: • No urban area is a ‘clean sheet’ • Ensuring common understanding ….. 22nd April 2014 • History of Council projects and promises • Existing regeneration projects • Aspirations that go beyond the NPF remit • Significant Council land ownership – highways, long leases, Housing Revenue Account • Conflicting approaches to engagement • ‘project ‘ownership’ and delivery issues
  • 20. PAS London Learning: Challenges – why not faster delivery? • Clarity on plan content • Ensuring community engagement 22nd April 2014 • What is a land use plan ‘policy’ • What is a space ‘management’ issue • What is ‘policy’ vs ‘design guide’ • What is an acceptable allocation • What is a deliverable allocation • Does the community really understand? • Significant changes to the plan need another consultation….
  • 21. PAS London Learning: Challenges - how might it work if… • There is no extant / up to date statutory Plan • Where the NDP has got ahead of the Local Plan preparation • Where Statutory Local Plan in place • Where the local authority is the major land owner 22nd April 2014 In each case…. • What is the added value that a Neighbourhood Development Plan can offer • How can the NPF • contribute to the existing processes • use the process to their advantage • What does the local authority need to accept / initiate
  • 22. PAS London Learning: Opportunities…. • for flexibility of response – no standard way to prepare a Neighbourhood Development Plan • for new ways of partnership working with communities • For greater corporate working with a neighbourhood focus on delivery 22nd April 2014 • There is – no standard response – no standard approach – no standard solution
  • 23. PAS London Sustainability Appraisal – what and when • What – Scoping – Direction – Engagement with statutory 22nd April 2014 bodies • When • Depends on form of Neighbourhood Plan • Extent of un tested proposals • Extent of consistency with Local Plan • Need confirmed content to work with…..
  • 24. PAS London Basic Conditions – what and when • What – NPPF compliant – Local Plan strategic policy 22nd April 2014 general conformity – Statement of consultation • When • Early check with LPA on objectives and aspirations • Contribution to content of Basic Conditions statements from early days • Active support and engagement with LPA on product….. • Need confirmed content to work with…..
  • 25. PAS London Needs Resources, resources, resources • Funding and finance • Skills base • People • Organisation • Project Management • Enthusiasm • ……. and the right delivery mechanisms 22nd April 2014
  • 26. PAS London Conclusions • Governance structures are an issue • No urban context is a clean sheet • It has to be voluntary…! • Flexibility is the key……. • Increasing delivery of development is the target….. 22nd April 2014
  • 27. PAS London Sarah O’Driscoll Service Manager City Planning sarah.odriscoll@bristol.gov.uk http://www.bristol.gov.uk/page/planning-and-building-regulations/neighbourhood-planning- 22nd April 2014 bristol

Editor's Notes

  1. Potential for joint / cross WoE planning document for Duty to co-operate housing allocations… spatial response on eg flood management and employment opportunities
  2. Pre LDF adopted Local Plan with limited number of extant policies… Adopted Core Strategy June 2012 Site Allocations and Development Management DPD – adoption due summer 2014 Emerging Bristol Central Area based DPD – adoption likely early 2015 Potential for joint / cross WoE planning document for Duty to co-operate housing allocations… spatial response on eg flood management and employment opportunities
  3. Initiated post Core Strategy adoption Proposals expanding on sites identified in SA & DM DPD challenges for the community working up proposals for sites with ongoing regeneration commitments from Council role of Council as landowner engaging with the wider community
  4. Initiated post Core Strategy adoption Timing has allowed this Front runner to influence text Proposals will providing specific detail for release of land alongside Redcliffe Way from highway use in negotiation with BCC Key site allocation elsewhere as redesignation of the boundary to widen – intention not at this stage to plan for this wider area but needed in order to conform with regs challenges for the community Bringing ‘urban village’ concept to the area in front of St Mary Redcliffe and Temple Church – grade 1 listed Incorporating key sites into aspirations working up proposals for sites in BCC ownership with prior development proposals in train role of Council as landowner engaging with the wider community – who is the wider community….
  5. Initiation post Core Strategy adoption Boundaries reflect community concern to address separation from the core of the city and opportunities to link to the enterprise zone to the south Issues arising some clash which we are working through with the OMQNDF Re designation of employment land – issues of general conformity Re designations as green space on strategic sites Detailed aspiration for development of sites – where no deliverability assessment – And no confidence as yet that the proposals are acceptable to the immediate community
  6. Initiation post Core Strategy adoption Boundaries reflect community concern to address separation from the core of the city and opportunities to link to the enterprise zone to the south Issues arising some clash which we are working through with the OMQNDF Re designation of employment land – issues of general conformity Re designations as green space on strategic sites Detailed aspiration for development of sites – where no deliverability assessment – And no confidence as yet that the proposals are acceptable to the immediate community
  7. Post Core Strategy Post Site Allocations main consultation processes – but were clearly engaged in the Publication stage on a small number of detailed sites Progressing forward steadily with site allocations for small sites Detailed work with the Council as landowner on main key development site Influencing the balance of uses on the site ( retail, residential, community use) Enabling specific identification of portion of the site for community use Engaging on policy development Understanding the scope to influence policy – …….
  8. Community working together with the Council as Land owner on marketing brief for the site and the influence of policy on enabling what the community needs Have produced a Community Plan – setting the broader context produced business case for community centre Worked with BCC officers to refresh the Housing Needs study for the community
  9. Pre-existing Core Strategy Site Allocations in place Earlier engagement of community group that has largely morphed to form the KWANDF in Prep of KWRF – BCC product with significant community consultation and engagement – non statutory Commenting on and influencing the SA&DM DPD Yet to bring forward draft Aims and objectives etc But – good progress with organisational structure – Draft Communications Strategy and MoU almost signed so very hopeful on this one
  10. Challenges Taking the ‘build up from the roots/local community’ patchwork approach ie no Local Plan or no site allocations • leaving areas without detail – weaker policy base for longer….less control over timing of delivery and ‘drawbacks’ of lack of definition for sites that do come forward.. • less predictability over resource implications for council • potential for conflicting directions within the community • challenges over delivery of regeneration proposals where these coming forward independently of the NPF • decision making processes with regard NPF and to allocation of finance o who what where – no Parish Governance o definition of neighbourhoods
  11. Challenges Taking the ‘build up from the roots/local community’ patchwork approach ie no Local Plan or no site allocations • leaving areas without detail – weaker policy base for longer….less control over timing of delivery and ‘drawbacks’ of lack of definition for sites that do come forward.. • less predictability over resource implications for council • potential for conflicting directions within the community • challenges over delivery of regeneration proposals where these coming forward independently of the NPF • decision making processes with regard NPF and to allocation of finance o who what where – no Parish Governance o definition of neighbourhoods
  12. Challenges Taking the ‘build up from the roots/local community’ patchwork approach ie no Local Plan or no site allocations • leaving areas without detail – weaker policy base for longer….less control over timing of delivery and ‘drawbacks’ of lack of definition for sites that do come forward.. • less predictability over resource implications for council • potential for conflicting directions within the community • challenges over delivery of regeneration proposals where these coming forward independently of the NPF • decision making processes with regard NPF and to allocation of finance o who what where – no Parish Governance o definition of neighbourhoods
  13. Challenges Taking the ‘build up from the roots/local community’ patchwork approach ie no Local Plan or no site allocations • leaving areas without detail – weaker policy base for longer….less control over timing of delivery and ‘drawbacks’ of lack of definition for sites that do come forward.. • less predictability over resource implications for council • potential for conflicting directions within the community • challenges over delivery of regeneration proposals where these coming forward independently of the NPF • decision making processes with regard NPF and to allocation of finance o who what where – no Parish Governance o definition of neighbourhoods
  14. Bristol examples of opportunity response: Lockleaze - Advisory Board of Ward Members and Officers and NPF key members and advisors Redcliffe Way – Delivery Board of Senior Service Directors, NPF representative Members and key stakeholder (church) Lawrence Weston – Neighbourhood Partnership support and engagement, independent facilitator (HB), Planning Aid support, BCC Landowner engagement + working together without an overarching structure with BCC Old Market Quarter – Draft plan consulted on, Independent planning advice, Link officer support and engagement throughout Knowle West – effective structure and leadership from pre-engagement and experience with BCC
  15. Pre-existing Core Strategy Site Allocations in place Earlier engagement of community group that has largely morphed to form the KWANDF in Prep of KWRF – BCC product with significant community consultation and engagement – non statutory Commenting on and influencing the SA&DM DPD Yet to bring forward draft Aims and objectives etc But – good progress with organisational structure – Draft Communications Strategy and MoU almost signed so very hopeful on this one
  16. Pre-existing Core Strategy Site Allocations in place Earlier engagement of community group that has largely morphed to form the KWANDF in Prep of KWRF – BCC product with significant community consultation and engagement – non statutory Commenting on and influencing the SA&DM DPD Yet to bring forward draft Aims and objectives etc But – good progress with organisational structure – Draft Communications Strategy and MoU almost signed so very hopeful on this one
  17. To make a critical difference in potential for engagement and progress….. For the NPF, regardless of experience, but critical for early start up - access to additional funding for Urban areas recognised – but one off and difficulty in enabling effective expenditure, resourcing additional staff in period of restructuring and reduction of resources and voluntary severance ….. funding dependant on NPAs coming forward
  18. Governance structures are an issue for both the non-parished community and the LPA No urban context is a clean sheet most likely areas for urban planning already engaged in regeneration – the NP preparation process could stall existing projects – and risk implications on delivery It has to be voluntary…! can’t be mandatory on the local community, We must provide the opportunity but we can’t force responsibility on communities - The community has really got to want to do this –