Proposed Submission: Gravesham Local Plan Core Strategy

Proposed Submission:Gravesham Local Plan Core StrategyDecember 2012Gravesham Borough Council

Contents1 Role of the Core Strategy ............................................................................. 31.1 Purpose of this document ....................................................................... 31.2 What is the Core Strategy? .................................................................... 31.3 How does the Core Strategy link with other policies and strategies? ..... 51.4 How was this stage reached? ................................................................. 81.5 Format of the Core Strategy ................................................................. 101.6 Sustainability Appraisal ........................................................................ 111.7 Habitats Regulations Assessment ........................................................ 112 What are the Characteristics, Challenges and Opportunities in GraveshamBorough? ....................................................................................................... 122.1 Purpose of this Section ........................................................................ 132.2 Location ................................................................................................ 132.3 Settlement pattern ................................................................................ 162.4 Population ............................................................................................ 182.5 Housing ................................................................................................ 192.6 Transport .............................................................................................. 202.7 Economy and skills ............................................................................... 212.8 Health, deprivation and crime ............................................................... 222.9 Heritage and the Built Environment ...................................................... 232.10 Climate Change .................................................................................. 242.11 Natural Environment, Sport and Recreation ....................................... 253 The Spatial Vision and Strategic Objectives for Gravesham to 2028 .......... 273.1 Spatial Vision ........................................................................................ 273.2 Strategic Objectives ............................................................................. 293.3 Key Diagram ......................................................................................... 324 Spatial Policies............................................................................................ 391

4.1 Sustainable Development .................................................................... 394.2 Scale and Distribution of Development ................................................ 414.3 Opportunity Areas in Gravesham ......................................................... 534.4 Northfleet Embankment and Swanscombe Peninsula East OpportunityArea ............................................................................................................ 574.5 Gravesend Riverside East and North East Gravesend Opportunity Area................................................................................................................... 724.6 Gravesend Town Centre Opportunity Area .......................................... 844.7 Ebbsfleet (Gravesham) Opportunity Area .......................................... 1005 Thematic Policies ...................................................................................... 1115.1 Economy, Employment and Skills ...................................................... 1115.2 Retail, Leisure and the Hierarchy of Centres ...................................... 1215.3 Culture and Tourism ........................................................................... 1325.4 Physical and Social Infrastructure ...................................................... 1385.5 Transport ............................................................................................ 1415.6 Green Infrastructure, Sport and Recreation ....................................... 1535.7 Green Infrastructure ........................................................................... 1545.8 Green Space, Sport and Recreation .................................................. 1635.9 Residential Development ................................................................... 1655.10 Housing Type and Size .................................................................... 1665.11 Housing Density ............................................................................... 1685.12 Affordable Housing ........................................................................... 1705.13 Provision of Traveller Sites ............................................................... 1735.14 Climate Change ................................................................................ 1755.15 Development and Design Principles ................................................. 1865.16 Heritage and the Historic Environment ............................................. 1912

1 Role of the Core Strategy1.1 Purpose of this document1.1.1 This document is the Council's proposed submission Core Strategypublished in accordance with Regulation 19 of the Town and CountryPlanning (Local Planning) (England) Regulations 2012. It is accompanied byproposed changes to the Local Plan First Review (1994) Proposals Map.These are shown in Appendix 1. This will now be known as a Policies Mapdue to changes in the regulations. A final Policies Map will be published whenthe Core Strategy is adopted. This Core Strategy is accompanied by aSustainability Appraisal/Strategic Environmental Assessment and a HabitatsRegulation Assessment. These documents have been placed on deposit forpublic inspection and the Core Strategy is available for representations to bemade in advance of submission to the Secretary of State and publicexamination.1.2 What is the Core Strategy?1.2.1 The Local Plan is part of the Government's planning system, introducedby the Planning and Compulsory Purchase Act 2004 (as amended). The LocalPlan will consist of a collection of local development documents includingDevelopment Plan Documents (DPDs) and Supplementary PlanningDocuments (SPDs). In Gravesham Borough, the Local Plan will consist of theCore Strategy (this document) and a Site Allocations and DevelopmentManagement DPD which is to be produced in the future. In addition, theCouncil is considering a Joint DPD in respect of Travellers and a number ofSupplementary Planning documents.1.2.2 The Council will also consider whether to develop a CommunityInfrastructure Levy (CIL) under Part 11 of the Planning Act 2008. The purposeof CIL is to ensure that the costs of providing infrastructure to support thedevelopment of an area can be funded (wholly or partly) by levying a chargeon the owners or developers of land when development takes place.3

1.2.3 When adopted, the Local Plan will replace the existing adoptedGravesham Local Plan First Review 1994. It will be used, together with theKent Minerals and Waste Local Plans, to help shape the future of the boroughand to determine individual planning applications. This Core Strategy is theoverarching strategic document and the other DPDs and SPDs will sit belowthe Core Strategy and will need to be in conformity with it. The policies in thisCore Strategy will replace a number of existing saved policies from theadopted Gravesham Local Plan First Review 1994 (see Appendix 2).Remaining saved policies from the adopted Local Plan will continue tooperate until they are replaced or revoked.1.2.4 This Core Strategy sets out the Council's long term spatial vision for theBorough. The Core Strategy covers the period from 1 April 2011 to 31 March2028. It outlines the strategic objectives for the Borough based on thecharacteristics of the area and the key issues to be addressed. It sets out adelivery strategy for achieving the objectives. It identifies the areas wheremajor change is likely to take place and allocates key sites for developmentwhich are considered key to the achievement of this strategy. It also definesareas where policies of restraint will apply and those places or characteristicsthat will be preserved and / or enhanced to ensure that the Borough's uniquesense of place and local distinctiveness remains the permanent foundationupon which our local community can grow and prosper.1.2.5 This Core Strategy sets out as far as practicable when, where and bywhom actions will be taken. This will involve the Council and other keyinterested parties in the public, private and voluntary sectors working inpartnership to achieve common goals.1.2.6 The approach set out in this Core Strategy has been developed againsta backdrop of national economic uncertainty that has and may continue toaffect investment decisions and timing of delivery of development at the locallevel. There is no certainty about the economic upturn, either in terms of whenit will come or how strong that recovery will be. Therefore it is vital thatGravesham plans for growth, but with flexibility, in order that the borough canbenefit from the economic upturn, if and when it does come. Notwithstandingthese concerns, Gravesham is in the fortunate position of having considerable4

amounts of infrastructure already in place and clarity about many of thedevelopments, which have planning permission.1.2.7 All the Local Plan documents that the Council is producing, and theirproduction timeframe, are set out in the Borough's Local DevelopmentScheme (LDS). The LDS and all the Borough's Local Plan documents can beviewed on the Council's website below:• http://www.gravesham.gov.uk/localplan1.3 How does the Core Strategy link with otherpolicies and strategies?1.3.1 The Core Strategy must be consistent with national planning policy, inparticular the National Planning Policy Framework (NPPF) and the PlanningPolicy for Traveller Sites. It must also have regard to the sustainablecommunity strategies produced by the Borough Council and Kent CountyCouncil. It should be noted that the statutory duty to prepare sustainablecommunity strategies is likely to be abolished in the future.1.3.2 The NPPF emphasises that the purpose of the planning system is toachieve sustainable development. It sets out the following three dimensions ofsustainable development: economic, social and environmental. As a result ofthis, the Core Strategy includes a specific policy on sustainable development.Each policy section also includes details of national planning policy where it isrelevant and how this has been taken into account in developing the policy.The NPPF does not change the statutory status of the development plan asthe starting point for decision making. Proposed development that accordswith an up to date Local Plan should be approved and proposed developmentthat conflicts with it should be refused unless material considerations indicateotherwise.1.3.3 The South East Plan is the Regional Spatial Strategy for the area. It isrecognised that the government intends to abolish Regional SpatialStrategies. The South East Plan identifies the part of the Borough to the northof the A2 as being within the Kent Thames Gateway sub-region, an area with5

a focus for growth and regeneration. It identifies Ebbsfleet as the location for aregional hub with a major business district in a mixed settlement with theopportunity to create a regional transport hub around the international railstation. The South East Plan strategy for Gravesham is based on makingintensive use of previously developed land within the urban areas ofGravesend and Northfleet. This is set in a context of protecting the Green Beltand other environmental assets. This reflects the long standing strategy forthe area reflected in previous Structure Plans and national documentation onthe Thames Gateway. The North Kent authorities within the Kent ThamesGateway sub-region (Gravesham, Dartford, Medway and Swale) retain theshared view that the same spatial strategy for the area should continue to bepursued.1.3.4 The vision for the development of the Kent Thameside area (the parts ofGravesham and Dartford Boroughs to the north of the A2) has been jointlyevolved since the mid 1990s on the basis of significant quantities of previouslydeveloped land and the opportunity provided by the International andDomestic Station on the High Speed 1 (HS1) railway line at Ebbsfleet.1.3.5 The Vision for Kent is the sustainable community strategy for Kentcovering the period 2012 - 2022. The Borough Council is one of the 14 localauthorities which have signed up to this with the exception of proposals for aLower Thames Crossing 1 to the east of Gravesend set out in the 'Growthwithout Gridlock' supporting document. The Vision for Kent seeks:• to grow the economy - for Kent to be 'open for business' with a growingand successful economy and jobs for all• to tackle disadvantage - for Kent to be a county of opportunity, whereaspiration rather than dependency is supported and quality of life ishigh for everyone• to put citizens in control - for power and influence to be in the hands oflocal people so they are able to take responsibility for themselves, theirfamilies and their communities.1 A Department for Transport consultation on options for a Lower Thames Crossing isexpected in mid-20136

1.3.6 The Dartford and Gravesham Sustainable Community Strategy onlycovered the period to 2011 and the Strategic Partnership which approved ithas now been dissolved. As a result, it is now of limited relevance to the CoreStrategy. A Gravesham Locality Board has since been established withresponsibility for the preparation of a new sustainable community strategy forGravesham. It will also detail how the work undertaken by partners across thelocality contributes to the delivery of the three key ambitions set out in theVision for Kent. A Gravesham Community Strategy Statement of Intent for2012 - 2022 has been produced to focus on those areas where partnershipworking will aid the delivery of the ambitions for Kent, whilst ensuring the bestpossible outcome for Gravesham's residents and businesses.1.3.7 In the interim, a Corporate Business Plan for Gravesham has beenapproved covering the period 2011 - 2015. This has the following areas offocus:• Keeping Gravesham safe;• Working to maintain a clean and green environment;• Working towards a healthy Gravesham;• Engaging and empowering communities within the borough;• Embracing and celebrating the diverse cultures within the borough;• Managing housing developments in the borough to ensure they meetthe needs of the community;• Delivering a high quality council housing service alongside fullyengaged tenants;• Working with private housing providers in the delivery of qualityhousing;• Meeting the housing needs of vulnerable people within Gravesham• Promoting healthy lifestyles amongst young people;• Raising young people's awareness of crime and anti-social behaviourissues;• Engaging and empowering young people in the delivery of services• Driving the economic development of the borough;• Ensuring a sustainable high quality built and green environment andsafeguarding our cultural heritage;7

• Working with partners to develop high quality transport infrastructure;• Ensuring a strong customer focus and delivering quality frontlineservices;• Managing the council's business; and• Working to ensure council services provide value for money and aredelivered efficiently.1.3.8 There is also a range of other strategies produced by the BoroughCouncil and other key interested parties which have influenced and informedthe policies set out in this document. These include both the adopted andemerging Core Strategies of neighbouring local authorities where the duty toco-operate introduced under the Localism Act 2011 applies. The duty to cooperatestatement gives more information on this.1.3.9 The Localism Act 2011 introduced a system of neighbourhood plans.These allow neighbourhood forums and parish councils to establish generalplanning policies for the development and use of land in a neighbourhood.Neighbourhood plans need to have regard to national planning policy,conform with the development plan for the area (i.e. the Local Plan and theMinerals and Waste Local Plans, and the South East Plan until it isabolished), and be compatible with EU obligations and human rightsrequirements. When adopted, they will form part of the development plan. Noneighbourhood plans have yet been prepared in Gravesham.1.4 How was this stage reached?1.4.1 This document has been produced following a process that began inApril 2005. It involved gathering information, analysing it and presenting theoptions for consultation with the public and other interested parties. Thevarious stages of this process are set out in the Consultation Statement whichaccompanies this document. The key milestones are also shown in a diagramin Appendix 3.8

1.4.2 The most recent public consultation took place between October andDecember 2011 2 . This was carried out for a number of reasons. TheGovernment's proposals to abolish the South East Plan meant that alternativegrowth scenarios for the Borough could be considered. It also took on boardthe availability of further evidence (including revised demographicprojections), changes to national planning policy, the need to respond tocomments made during an earlier consultation in 2010 3 and the need toconsider a longer plan period. In particular, a more critical appraisal of sitecapacities combined with a consideration of sub market viability indicated thatthe levels of high density housing envisaged in the South East Plan could notbe accommodated without departing from the South East Plan's spatialstrategy for the sub region. Key messages that have been taken on boardfrom this process are that:• the original regeneration strategy involving a concentration of newdevelopment on previously developed land within the urban area ofGravesend and Northfleet should be adhered to;• the original role of Ebbsfleet as a major mixed use developmentproviding high quality jobs should be maintained;• Gravesend Town Centre should be the main focus for new retail andother town centre types of development;• priority should be given to growing the local economy and improvingthe prospects of the local workforce given existing poor levels ofperformance;• the Borough's housing needs should be met without encroaching ontothe Green Belt; and• areas of biodiversity and landscape value together with local greenareas should be protected.1.4.3 As a result of the above consultation and evidence gathered to ascertainthe Borough's objectively assessed development requirements, this CoreStrategy sets out revised development requirements for the plan period (20112 Gravesham Growth Scenarios and Core Strategy Consultation October 20113 Gravesham Core Strategy and Development Management Policies Development PlanDocument Regulation 25 January 20109

- 2028). However in keeping with existing and past strategic approaches tothe area, it maintains an emphasis on economic development, concentratingdevelopment on previously developed land in the Gravesend/Northfleet urbanarea and continuing to promote Ebbsfleet as a mixed use development. Thisis consistent with the South East Plan spatial strategy, the National PlanningPolicy Framework, the sub-regional approach to the Kent Thames Gatewayand the plans of neighbouring local authorities. It is also consistent with theprinciple of Localism promoted by the national Government whereby top-downtargets are abolished in favour of locally developed targets. It is on this basisthat the vision, strategic objectives and policies set out in this document havebeen developed and tested through the sustainability appraisal.1.5 Format of the Core Strategy1.5.1 The first part of the Core Strategy assesses Gravesham'scharacteristics, challenges and opportunities. This is followed by the spatialvision for the Borough to 2028 and the strategic objectives to achieve thevision. A key diagram is included after the strategic objectives to show themain elements of the strategy, including a number of opportunity areas. Thereis also a table which shows which Core Strategy policies will achieve each ofthe strategic objectives. This is followed by policies relating to the location andamount of development. A number of borough-wide policies are thenincluded. All the policies will be subject to monitoring and review as set out inappendix 5 and there is a separate section on this. An infrastructure deliveryschedule has been produced which lists all known infrastructure requirementsfor the key sites and overall development in the Borough as well as otherknown infrastructure coming forward in the Core Strategy period (seeAppendix 4). As infrastructure requirements are likely to change over time,this schedule is a living document which will be periodically reviewed andupdated. It will also be the starting point from which the Council identifies itspriorities for the Community Infrastructure Levy. Whilst over time theCommunity Infrastructure Levy may provide significant contributions toinfrastructure delivery, it is intended to fill the funding gaps that remain onceexisting sources of funding have been taken into account.10

1.5.2 A glossary of technical terms is included (see Appendix 7) and footnotesprovided where further explanation or definition of terms and policy isrequired. Throughout this Core Strategy, employment floorspaces are grosswith net internal areas (NIA) unless otherwise stated (see glossary).1.6 Sustainability Appraisal1.6.1 The Core Strategy is subject to sustainability appraisal (SA). Thisinvolves identifying and evaluating a plan's impacts having regard to social,environmental and economic factors and helps to ensure that the planaccords with the principles of sustainable development. An objective ofcarrying out sustainability appraisal at each stage of the plan's development isalso to ensure that the most reasonably sustainable option is selected. TheSA is published separately as a supporting background document.1.7 Habitats Regulations Assessment1.7.1 Gravesham Borough contains sites of international importance forwildlife, i.e. a Special Protection Area, a Special Area of Conservation and aRamsar site. As a result, the Core Strategy has also been subjected to aHabitats Regulations Assessment (HRA). This considers the impacts of theplan on the international sites and ensures that the plan does not have anegative impact on them. The HRA is published separately as a supportingbackground document.11

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2 What are the Characteristics, Challengesand Opportunities in Gravesham Borough?2.1 Purpose of this Section2.1.1 This section summarises Gravesham's key characteristics and assessesthe challenges and opportunities facing the area over the lifetime of this plan.It is key to understanding the policies set out later in the document because itdescribes the context and the issues that the Core Strategy needs to address.It also provides an overview of the direction that the Core Strategy and othercomponents of the Local Plan will take in guiding the Council, the public, andother interested parties in shaping the Borough through to 2028 and beyond.2.2 Location2.2.1 Gravesham Borough is located on the south bank of the River Thamesin the north of Kent approximately 32 kilometres (20 miles) east of London. Itcovers an area of 105 square kilometres (40 square miles) and is broadlytriangular in shape. It stretches from the River Thames in the north to thecrest of the North Downs in the south. The Borough is bounded by the localauthorities of Dartford and Sevenoaks to the west, Tonbridge and Malling tothe south and Medway to the east. Thurrock lies to the north, on the oppositeside of the River Thames.2.2.2 The Borough is bisected from east to west by the A2/M2 trunk road andby the High Speed 1 railway line (Channel Tunnel Rail Link). The A2/M2provides access to Greater London and the Channel Ports as well as theM25. The High Speed 1 line links Gravesend to London St Pancras viaEbbsfleet with journey times of approximately 25 minutes. High Speed 1 alsolinks Ebbsfleet station, which lies just to the west of the Borough, to London StPancras, Paris, Lille and Brussels. There are traditional rail services runningon the North Kent and Chatham main lines from Gravesend, Northfleet,Higham, Sole Street and Meopham stations to London and other areas of13

Kent. There is also a regular passenger ferry service across the RiverThames from Gravesend to Tilbury.2.2.3 The population of the Borough was 101,700 in 2011, compared toaround 95,700 when the 2001 census was taken. This is discussed in moredetail in the Population section below. As the full 2011 census data is not yetavailable, the following sections use data from the 2001 census unlessotherwise specified.A2 Tollgate junction and HS114

Figure 1: Map of Gravesham Borough15

2.3 Settlement pattern2.3.1 Gravesend and Northfleet comprise the main urban area. They lie to thenorth of the A2 alongside the River Thames. They are the principalsettlements with the widest range of services and facilities and where about80% of the population of the borough lives (about 75,000 residents).2.3.2 Gravesend is an historic riverside town. It has a successful town centrewith a good range of shops and multiple stores, including some smalldepartment stores. However, the number of vacant units has increased as aresult of the recent economic downturn. Its main retail competition comesfrom the nearby regional shopping centre at Bluewater in Dartford and fromother sub-regional centres such as Chatham and Maidstone. The town centreis a hub for public transport provision and is also where many of theBorough's leisure, cultural and civic facilities are located 4 .2.3.3 The Gravesend and Northfleet urban area is the main location forhousing and employment in the Borough. It contains a number of local centresand a range of other services. There are public transport links to Gravesendtown centre. The employment on offer has traditionally been based on heavymanufacturing industry set alongside the River Thames where there are deepwater wharves. Many of these industries have contracted over the past fewdecades leaving behind large tracts of under-used land set at a lower levelthan the surrounding urban area due to a history of chalk quarrying. Thesesites are potentially contaminated and may be subject to the risk of tidalflooding. Parts of the urban area suffer from poor air quality as a result ofexhaust emissions from traffic and heavy industry. This has led to thedeclaration of a number of Air Quality Management Areas, e.g. one waysystem in Gravesend town centre, A2, some of the junctions on Old RoadEast/West. The realignment of the A2 was completed in December 2008resulting in air quality improvements. The declaration for particulate matterwas revoked in January 2012 whilst the declared area for Nitrogen dioxidehas been reduced in size.4 Gravesend Wider Town Centre Baseline Report October 201116

2.3.4 Outside Gravesend and Northfleet, the Borough is predominantly ruraland is where about 20% of the borough's population lives (about 20,200residents). 78% of the Borough is designated as part of the LondonMetropolitan Green Belt. 40% of the Green Belt is either a Ramsar site or partof the Kent Downs Area of Outstanding Natural Beauty. Most of the largerrural settlements are excluded from the Green Belt due to their built up naturealthough the Green Belt does wash over some of the smaller hamlets. Theeastern Green Belt boundary in Gravesham is considered to be veryimportant as the gap between Gravesend and the Medway Towns is now oneof the few barriers preventing the merging of settlements along the southernpart of the Thames Estuary and the further eastward sprawl of London.2.3.5 Whilst a significant amount of the Borough is rural, there are fewparticularly remote areas. Some of the larger rural settlements arecomparatively self-sufficient in terms of local services as they have their ownschools, GP surgeries and shops 5 , but employment in the rural area is limited.However, residents of the Borough's rural area are dependent on largertowns, such as Gravesend, the Medway towns and Sevenoaks, for access tokey services. This means that connections with the urban areas are important.2.3.6 To the south of the urban area off the A227, Istead Rise is theBorough's second largest settlement (about 3,500 residents). Whilst it doesnot contain any significant employment uses, it has a range of local services,such as a primary school, a GP surgery, a small supermarket and a postoffice. It also has a bus service to Gravesend and Sevenoaks.2.3.7 Further south along the A227, there are 2 parts to Meopham: HookGreen (about 3,000 residents) and Meopham Green (about 1,200 residents).Hook Green has a number of shops, a post office and an employment site.There is also a railway station with regular services to the Medway Towns,Bromley and London Victoria. Meopham Green has a number of employmentsites. Both Hook Green and Meopham Green have a bus service toGravesend and Sevenoaks and they share a primary school, a secondaryschool, a library and a GP surgery.5 Background information on the services and facilities available in the Borough’s settlementscan be found in the Settlement Hierarchy Technical Paper December 200917

2.3.8 Culverstone Green lies south of Meopham off the A227. It has apopulation of about 1,200. It has a few facilities including a primary school,post office and small supermarket. It has a bus service to Gravesend andSevenoaks.2.3.9 Towards the south of the Borough lies the settlement of Vigo (about2,200 residents). This has a primary school, a post office and some smallshops as well as a regular bus service to Gravesend and Sevenoaks.2.3.10 Shorne lies east of Gravesend off the A226. It has a population ofabout 1,200. It has few facilities but it does have a primary school.2.3.11 Further east along the A226 is Higham. It has approximately 2,700residents and a number of facilities including a primary school, a GP surgery,a post office and a number of small shops. It has a bus service to Gravesendand the Medway towns.2.3.12 There are also several smaller settlements scattered throughout theBorough. These vary in population size, the number and range of servicesavailable (such as primary school, village shop) and access to publictransport.2.4 Population2.4.1 The population of the Borough was 101,700 in 2011 6 , an increase ofaround 6,000 compared to the 2001 census figure. Over the past 10 years,Gravesham Borough has been an area of out-migration, i.e. more peopleleave the Borough than come here to live. However, there are more birthsthan deaths in the Borough which has led to the increase in the populationduring that time. Gravesham has a high proportion of people of black andminority ethnic origin. The Census in 2001 showed that nearly 13% of theBorough's population were of an ethnicity other than white British. Over half ofthese are of Indian origin.2.4.2 By 2028, the population of the Borough is estimated to increase toaround 104,900 residents, based on zero net migration. It is projected that6 2011 Census data18

there will be significantly more people aged over 55 and particularly thoseaged over 80, i.e. Gravesham has an ageing population. The resident laboursupply is forecast to increase by 1,600 over this period. There are anincreasing number of smaller households and by 2028 it is estimated thatthere will be an increase of over 35% in the number of one personhouseholds 7 .2.4.3 As a result of the above, over the Plan period there will be a need toprovide:• Additional new homes and jobs• Dwellings suitable for one person households• Dwellings suitable for an ageing population2.5 Housing2.5.1 There are approximately 41,500 dwellings in the Borough. In the last 5years, an average of 269 dwellings per annum have been built inGravesham 8 . There is a mix of house types - detached, semi-detached,terraced and purpose built flats. The Strategic Housing Market Update 2012indicates a particular need for 2 and 3 bedroom market housing and 1, 2 and3 bedroom affordable housing. The Strategic Housing Market Assessment2010 (SHMA) shows that the proportion of owned properties is similar to theSouth East average but the proportion of socially rented properties inGravesham is higher and privately rented properties lower.2.5.2 Gravesham has lower average house prices for all house types thanKent and the South East. Despite this, the vast majority of properties in NorthKent, including Gravesham, are unaffordable to most locally resident first timebuyers. There are differences within the Borough whereby house prices in therural area are significantly higher than in the urban area. The different housingsub markets affect the viability of development 9 .7 Demographic and Labour Supply Assessment April 20128 Gravesham Annual Monitoring Reports9 North Kent Strategic Housing Market Assessment 2009 and Affordable Housing ViabilityStudy February 201019

2.5.3 In addition to the need to provide additional homes, including thosesuitable for one person households and an ageing population identified underthe Population section above, there will be a need to provide a mix of housetypes as well as affordable housing.2.6 Transport2.6.1 As outlined earlier, Gravesham Borough has good road, rail and rivertransport links and Gravesend town centre is a hub for public transportprovision in the Borough. These transport links have received significantinvestment with resultant improvements. However, there are high levels ofout-commuting to work, particularly to Dartford and Central London. In termsof transport modes, over half of working residents travel to work by car. Thiscontributes to congestion, particularly in parts of the urban area and along theA2. Gravesend town centre also experiences congestion as a result of retailand business activities. Levels of congestion will increase as a result ofnatural growth in traffic and new development. Traffic levels contribute to poorair quality in some areas.2.6.2 The recent introduction of high speed rail services from Gravesend toLondon St Pancras and from Ebbsfleet to both London and the continentprovides the opportunity to improve these transport hubs to provide highquality interchange facilities between different types of transport.2.6.3 The River Thames is an important resource for passenger and freighttransport. The Town Pier has been refurbished and a pontoon has recentlybeen installed to allow access to visiting craft and the Gravesend-TilburyFerry. The wharves on the River Thames are important for the transport ofgoods by water. A number of these are deep water wharves which arepotentially important for the importation of minerals and the handling of othergoods.2.6.4 In view of these challenges and opportunities, there will be a need toensure that:20

• new development is mixed use and is located in areas with best accessto services and facilities which minimise the need to travel, particularlyby car;• support is given to alternatives to car based transport such asimproved bus, train, cycling, walking and river transport provision andimproved transport hubs in Gravesend town centre and at Ebbsfleet;• important deep water wharves are retained; and• out-commuting is reduced.2.7 Economy and skills2.7.1 Most of Gravesham's employment space is concentrated in theGravesend/Northfleet urban area. Outside the urban area, there are smallindustrial areas within larger villages such as Higham and Meopham, and atHoo junction. Gravesham has the smallest economy in Kent. It has undergonesignificant restructuring in recent years with a slight fall in employment. TheBorough's heavy manufacturing base, mainly located alongside the river, hasbeen hit particularly hard and other sectors, especially those that create highwage, high value jobs, have not grown fast enough to fill the gap.2.7.2 Just under half of the people living in Gravesham Borough areeconomically active. There are expected to be around 1,600 moreeconomically active people in the Borough by the end of the plan period.Gravesham Borough has relatively high unemployment compared with Kent,the South East region and nationally. Unemployment above county andregional rates has prevailed in Gravesham over the past decade. This couldbe linked to the fact that, on average, Gravesham residents of working agehave lower attainment and skills levels than other parts of the South East andnationally.2.7.3 The lack of jobs in terms of both quantity and quality results in highnumbers of the Borough's working population out-commuting to work. Whilstthere is also some in-commuting, overall there is a high net out-flow of around33% of the workforce.21

2.7.4 As well as contributing to the development of public transport hubs inGravesend and Ebbsfleet, high speed rail services provide an opportunity toattract more businesses into the Borough due to greater accessibility and, inturn, to create more higher quality jobs locally.2.7.5 In view of the above, there is a need to improve the local economy by:• improving the skills of the local workforce;• providing a greater number, variety and quality of jobs; and• maximising the economic regeneration potential offered by high speedrail services which now link Ebbsfleet and Gravesend town centre withLondon and Europe, by ensuring a ready supply of good quality sitesfor economic development.2.8 Health, deprivation and crime2.8.1 There are wide variations in the level of overall deprivation in theBorough. Parts of Gravesend and Northfleet are amongst the most deprivedin England. Conversely, much of the rural area is amongst the least deprivedin England. This has an impact on life expectancy which, for men living in themost deprived areas, is nearly 9 years lower than for men living in the leastdeprived areas. The difference for women is over 4 years. To help overcomethe deprivation issues experienced in Gravesham, there is a need to improvethe local economy as well as to ensure that existing communities gainbenefits as a result of the new developments in their area such as improvedaccess to better facilities and improvements to the built environment.2.8.2 Residents of Gravesham Borough experience some significant healthissues. Adult obesity and the proportion of physically active children aresignificantly worse for residents in Gravesham than the English average. Toenable residents to lead healthier lifestyles, there is a need to ensure thatthere are sufficient greenspaces and sports facilities to meet the needs of theexisting and future population but also to ensure that shops, workplaces andother facilities can be accessed on foot and by bicycle.2.8.3 The Borough's ageing population will be associated with an increase inthose who have difficulties completing household tasks and caring for22

themselves. There will also be an increase in those with a limiting long termillness. This emphasises the need to provide homes suitable for an ageingpopulation outlined above and other support facilities.2.8.4 Gravesham experiences higher levels of recorded crimes than otherparts of Kent. Levels of burglary, criminal damage, theft and violence areparticularly significant. However, overall crime levels in the Borough havefallen substantially in recent years so that levels are now closer to the Kentaverage and are below the national average. As a result, new developmentsshould be designed and laid out to minimise the risk of crime. In addition, todiscourage anti-social behaviour, there is a need to provide access to safeand attractive indoor and outdoor recreational spaces.2.9 Heritage and the Built Environment2.9.1 The Borough has a rich historic built environment, much of whichderives from its extensive maritime, military, industrial and transport history.This includes conservation areas in both the older parts of Gravesend andNorthfleet and in a number of the rural settlements. There are also a largenumber of listed buildings including several Grade I listed buildings such asCobham Hall as well as a significant number of features of local historicand/or architectural value. Gravesham also has a number of ScheduledMonuments such as New Tavern Fort, known archaeological sites and historiclandscapes, parks and gardens. The Borough's unique character is part of itsattractiveness for investment. Therefore a positive approach to the historicenvironment will be needed to ensure that the historic character anddistinctiveness of the Borough is conserved and enhanced.2.9.2 In addition to the more historic built up areas, Gravesend and Northfleethave inter war, post war and modern housing suburbs as well as industrialareas. Some of the rural settlements also contain modern housingdevelopments.2.9.3 Over the plan period the Borough will experience significant change withthe creation of new neighbourhoods along the riverfront and at Ebbsfleet andthe revitalisation of Gravesend town centre. Change elsewhere is likely to be23

small scale, involving redevelopment proposals and infilling. There is a needto ensure that all new development is of a high quality. It should improve theexisting built environment by protecting and enhancing local character andamenity and by creating new sustainable neighbourhoods with their ownsense of place and distinctiveness which enhance their surroundings.2.10 Climate Change2.10.1 Climate change is expected to lead to hotter, drier summers andwetter, warmer winters with increased storm and flood events. Similar to therest of Kent and the South East, the Borough experiences less rainfall/drierweather than other parts of the UK. On occasions, Gravesend has beenrecorded as the hottest place in the UK. The parts of the Borough alongsidethe River Thames are within areas where there is a high risk of flooding.There is also a risk of flooding along the Ebbsfleet stream and along theBorough's dry river valleys as well as more general risks of surface waterflooding during periods of heavy rainfall. Flooding and weather patterns in theBorough will be exacerbated by the effects of climate change. In recognitionof this, the Thames Estuary 2100 (TE2100) Flood Risk Management Plansets out the strategic direction for managing floods across the ThamesEstuary, and contains recommendations on what actions the EnvironmentAgency and others will need to take up to 2100. It is recognised that action isneeded to reduce the impact of human activity on the climate system,primarily through reducing greenhouse gas emissions.2.10.2 As a result of the above, there will be a need to ensure thatdevelopment is located in the most accessible locations and facilities can beaccessed by means other than car (see "Transport" section above). There willalso be a need to ensure that development is designed and located tominimise the risk of flooding and flood defence infrastructure is protected. Itwill be important to encourage water conservation and other measures whichprotect the supply and quality of water. In addition, measures will be neededto reduce the Borough's carbon footprint such as supporting low carbon andrenewable energy generation.24

2.11 Natural Environment, Sport and Recreation2.11.1 Gravesham has significant natural resources. These include sites ofinternational and national significance for wildlife such as the Thames Estuaryand Marshes as well as local wildlife sites. It also includes the Kent DownsArea of Outstanding Natural Beauty which is a nationally important landscapeas well as large areas of accessible countryside. The Borough also has anumber of public greenspaces such as Riverside Leisure Area and ShorneCountry Park, indoor sports facilities such as Cygnet Leisure Centre andMeopham Leisure Centre, and outdoor sports facilities such as outdoor tenniscourts and bowling greens at Windmill Hill Gardens. There are some issues interms of the quantity, quality and access to some greenspaces and indoorand outdoor sports facilities in the Borough.2.11.2 As a result of the above, there is a need to conserve and enhance theBorough's high quality natural environment. There is also a need to protect,enhance and make adequate provision for greenspaces and indoor andoutdoor sports facilities to meet the needs of the existing and futurepopulation of the Borough. In addition, it will be important to prevent adverseimpacts on the birds and habitats of the internationally important wildlife sites,including disturbance to birds from uncontrolled recreational intrusion on themarshes.25

Gravesend riverfront26

3 The Spatial Vision and StrategicObjectives for Gravesham to 20283.1 Spatial Vision3.1.1 By 2028, Gravesham will have reinvented and regenerated itself from anarea with heavy riverside industry to one that offers a more diverse range ofemployment and housing which respects its unique built, historic and naturalenvironment. The regeneration will have concentrated mixed usedevelopment on previously developed urban sites with access to a goodrange of services and facilities which will have minimised the need to travel.The openness of the Green Belt will have been safeguarded and maintained.3.1.2 Gravesham's economy will have grown substantially and the skills of itsworkforce will have improved. The number, quality and diversity of jobs in theBorough will have increased which will have improved employmentopportunities for residents and reduced the need to travel outside the Boroughfor employment. The majority of existing employment sites will have beensafeguarded. At the same time, residents will be benefiting from new housingthat meets their needs in terms of type, tenure and size.3.1.3 Northfleet and Gravesend's riverside will have been transformed withthe creation of new thriving residential and mixed-use neighbourhoods withaccess to the riverfront. Both existing and new neighbourhoods will havebenefited from an improved public transport network and from the provision ofnew and improved shopping and other facilities to provide for their needs.New employment sites will have been created, utilising the multimodal (i.e.accessible by river, rail and road) opportunities available in this area.Important deep water wharves will have been retained.3.1.4 A high quality new mixed use community will have been created atEbbsfleet which makes the most of its proximity to the international railwaystation, to be further developed as a transport hub. It will be well connected bypublic transport and to existing neighbourhoods and facilities at Northfleet.Ebbsfleet will have provided for the shopping and service needs of its new27

community. It will have started to provide high quality office/light industrial(B1) jobs and will continue to do so in the longer term, continuing theeconomic growth occurring in Gravesend and Northfleet and in the widerEbbsfleet development.3.1.5 Gravesend Town Centre will have built upon its strengths as acommercial centre, public transport hub and heritage riverside town toestablish itself as a dynamic and desirable place to live and work. It will havecontinued to be a focus for shopping, leisure, service provision, culture andtourism. Regeneration will have acted as a catalyst for the improvement of thetown centre's offer where the high quality design and public realm willenhance the distinctive character of the centre.3.1.6 In the rest of Gravesend and Northfleet, smaller scale housingdevelopment and redevelopment will have taken place which reflect thecharacter of the area. Neighbourhoods will have seen their local centrescontinue to provide for their local shopping needs and other facilities will havebeen retained and improved as needed.3.1.7 In the rural area, the more built up rural settlements will have continuedto experience small scale change through infill housing development. Localcentres in the villages will have continued to provide for the local shoppingneeds of rural residents and other services will have been retained andpotentially improved. Some small scale affordable housing will have beendeveloped next to existing settlements to meet local needs. The character ofthe countryside and the diverse rural landscape will have been conserved andenhanced. Proposals that promote the appropriate expansion anddiversification of the rural area economy will have been supported.3.1.8 Regeneration and development will have conserved and enhanced theBorough's rich historic built environment, landscape character and biodiversityas well as respected its distinctive local character. It will also have respondedto the challenges of climate change, by minimising the risk of flooding,protecting flood defences, encouraging water conservation, improving energyefficiency, improving air quality and encouraging the use of low carbon and28

enewable energy. It will also have reduced the opportunities for crime andembraced the opportunities provided by new technology.3.1.9 In Gravesham, opportunities to improve health and accessibility willhave been seized by the provision of better facilities for recreation, sport,walking and cycling. A Green Infrastructure network will have been created toimprove quality of life, provide benefits to wildlife, protect the landscape andimprove access for leisure and sustainable travel purposes in particular withinthe Gravesend/Northfleet urban area, from the urban area to the rural areaand along the River Thames.3.2 Strategic Objectives3.2.1 Location and Amount of Development• SO1 Concentrate development on underused, derelict and previouslydeveloped land in the urban area of Gravesend and Northfleet, inparticular former industrial sites along the Thames Riverside and inGravesend town centre, and at Ebbsfleet.• SO2 Provide a minimum of 4,600 new homes to meet the future needsof the Borough's population, to include provision of affordable homes,homes for smaller households and older people, and sites fortravellers.• SO3 Ensure that the right amount, size and type of employment sitesare available in Gravesend and Northfleet to enable the delivery of aminimum of 4,600 new jobs over the plan period, to diversify andstrengthen the local economy and reduce out commuting.3.2.2 Gravesend, Northfleet and Ebbsfleet• SO4 Support existing neighbourhoods and create a number of newresidential neighbourhoods, mixed use areas and employment areasalong the Thames Riverside at Gravesend and Northfleet whilstretaining important deep water wharves.29

• SO5 Create a mixed use community at Ebbsfleet including a subregionallysignificant office based employment hub in the longer term toprovide further jobs.• SO6 Enhance the role of Gravesend town centre as a public transporthub and as the main location for retail, leisure, culture and officeswhilst preserving and enhancing its character as a riverside heritagetown.• SO7 Enhance the Borough's public transport network to serve existingand new neighbourhoods and communities in Gravesend, Northfleetand Ebbsfleet.3.2.3 Rural Area• SO8 Safeguard and maintain the openness of the Green Belt.• SO9 Protect and enhance the diverse rural landscape including theKent Downs Area of Outstanding Natural Beauty.3.2.4 Across the Borough• SO10 Safeguard and where possible improve existing employmentsites.• SO11 Seek to retain and improve the provision of existing services andfacilities and ensure that sufficient facilities are provided to meet theneeds arising from new development.• SO12 Safeguard and where possible enhance the retail character andfunction of the Borough's town centre and local centres.• SO13 Protect and enhance the Borough's heritage assets and historicenvironment.• SO14 Ensure that all new development makes a positive contributionto the local character and distinctiveness of the Borough, minimises therisk of crime, responds to climate change, and integrates into theexisting built, historic and natural environment.• SO15 Improve opportunities for recreation, sport, walking and cycling.• SO16 Safeguard and enhance the biodiversity of the Borough.30

• SO17 Increase accessibility, reduce the need to travel, minimisecongestion and improve air quality through the improved provision oflocal public transport and the provision of local jobs and services.Cobham and Cobham Hall31

3.3 Key DiagramFigure 2: Key diagram32

Table1: Strategic Objectives and PoliciesStrategic ObjectiveSO1Concentrate development onunderused, derelict andpreviously developed land in theurban area of Gravesend andNorthfleet, in particular formerindustrial sites along the ThamesRiverside in Gravesend towncentre, and at Ebbsfleet.Key PoliciesCS01 - Sustainable DevelopmentCS02 - Scale and Distribution ofDevelopmentCS03 - Northfleet Embankment andSwanscombe Peninsula East OpportunityAreaCS04 -Gravesend Riverside East andNorth East Gravesend Opportunity AreaCS05 - Gravesend Town CentreOpportunity AreaSO2Provide a minimum of 4,600 newhomes to meet the future needsof the Borough's population, toinclude provision of affordablehomes, homes for smallerhouseholds and older people,and sites for travellers.CS06 - Ebbsfleet (Gravesham)Opportunity AreaCS01 - Sustainable DevelopmentCS02 - Scale and Distribution ofDevelopmentCS03 - Northfleet Embankment andSwanscombe Peninsula East OpportunityAreaCS04 -Gravesend Riverside East andNorth East Gravesend Opportunity AreaCS05 - Gravesend Town CentreOpportunity AreaCS06 - Ebbsfleet (Gravesham)33

Opportunity AreaCS14 - Housing Type and SizeCS16 - Affordable HousingSO3Ensure that the right amount,size and type of employmentsites are available in Gravesendand Northfleet to enable thedelivery of a minimum of 4,600new jobs over the plan period, todiversify and strengthen the localeconomy and reduce outcommuting.CS17 - Provision of Traveller SitesCS01 - Sustainable DevelopmentCS02 - Scale and Distribution ofDevelopmentCS03 - Northfleet Embankment andSwanscombe Peninsula East OpportunityAreaCS04 -Gravesend Riverside East andNorth East Gravesend Opportunity AreaCS05 - Gravesend Town CentreOpportunity AreaCS06 - Ebbsfleet (Gravesham)Opportunity AreaSO4Create a number of newresidential neighbourhoods andemployment areas along theThames Riverside at Gravesendand Northfleet whilst retainingimportant deep water wharves.CS07 - Economy, Employment and SkillsCS01 - Sustainable DevelopmentCS02 - Scale and Distribution ofDevelopmentCS03 - Northfleet Embankment andSwanscombe Peninsula East OpportunityAreaCS04 -Gravesend Riverside East and34

North East Gravesend Opportunity AreaCS05 - Gravesend Town CentreOpportunity AreaCS07 - Economy, Employment and SkillsSO5Create a mixed use communityat Ebbsfleet including a subregionallysignificant office basedemployment hub in the longerterm to provide further jobs.SO6Enhance the role of Gravesendtown centre as the main locationfor the Borough's retail, leisure,culture and offices whilstpreserving and enhancing itscharacter as a riverside heritagetown.CS11 TransportCS01 - Sustainable DevelopmentCS02 - Scale and Distribution ofDevelopmentCS06 - Ebbsfleet (Gravesham)Opportunity AreaCS07 - Economy, Employment and SkillsCS01 - Sustainable DevelopmentCS02 - Scale and Distribution ofDevelopmentCS05 - Gravesend Town CentreOpportunity AreaCS07 - Economy, Employment and SkillsCS08 - Retail, Leisure and the Hierarchyof CentresSO7Enhance the Borough's publictransport network to serveexisting and newneighbourhoods andCS09 - Culture and TourismCS01 - Sustainable DevelopmentCS03 - Northfleet Embankment andSwanscombe Peninsula East OpportunityArea35

communities in Gravesend,Northfleet and Ebbsfleet.CS04 -Gravesend Riverside East andNorth East Gravesend Opportunity AreaCS05 - Gravesend Town CentreOpportunity AreaCS06 - Ebbsfleet (Gravesham)Opportunity AreaSO8Safeguard and maintain theopenness of the Green Belt.SO9Protect and enhance the diverserural landscape including theKent Downs Area of OutstandingNatural Beauty.SO10Retain and where possibleimprove existing employmentsites.SO11Seek to retain and improve theprovision of existing services andfacilities and ensure thatsufficient facilities are providedto meet the needs arising fromnew development at the righttime and in the right placeSO12CS11 - TransportCS01 - Sustainable DevelopmentCS02 - Scale and Distribution ofDevelopmentCS01 - Sustainable DevelopmentCS12 - Green InfrastructureCS01 - Sustainable DevelopmentCS07 - Economy, Employment and Skills.CS01 - Sustainable DevelopmentCS10 - Physical and Social InfrastructureCS13 - Green Space, Sport andRecreationCS01 - Sustainable Development36

Safeguard and where possibleenhance the retail character andfunction of the Borough's TownCentre and local centres.SO13Protect and enhance theBorough's heritage assets andhistoric environment.SO14Ensure that all new developmentmakes a positive contribution tothe local character anddistinctiveness of the Borough,minimises the risk of crime,responds to climate change andintegrates into the existing built,historic and natural environment.SO15Improve opportunities forrecreation, sport, walking andcycling.SO16Safeguard and enhance thebiodiversity of the Borough.SO17Increase accessibility, minimisecongestion and improve airCS05 - Gravesend Town CentreOpportunity AreaCS08 - Retail, Leisure and the Hierarchyof CentresCS01 - Sustainable DevelopmentCS20 - Heritage and the HistoricEnvironmentCS01 - Sustainable DevelopmentCS12 - Green InfrastructureCS15 - Housing DensityCS18 - Climate ChangeCS19 - Development and DesignPrinciplesCS01 - Sustainable DevelopmentCS11 - TransportCS12 - Green InfrastructureCS13 - Green Space Sport andRecreationCS01 - Sustainable DevelopmentCS12 - Green InfrastructureCS01 - Sustainable DevelopmentCS11 - Transport37

quality through the improvedprovision of local public transportand the provision of local jobsand services.CS07 - Economy, Employment and Skills.CS08 - Retail, Leisure and the Hierarchyof CentresCS10 - Physical and Social InfrastructureSO17Increase accessibility, minimisecongestion and improve airquality through the improvedprovision of local public transportand the provision of local jobsand services.CS13 - Green Space, Sport andRecreationCS01 - Sustainable DevelopmentCS11 - TransportCS07 - Economy, Employment and Skills.CS08 - Retail, Leisure and the Hierarchyof CentresCS10 - Physical and Social InfrastructureCS13 - Green Space, Sport andRecreation38

4 Spatial Policies4.1 Sustainable Development4.1.1 The National Planning Policy Framework (NPPF) explains that thepurpose of the planning system is to contribute to the achievement ofsustainable development. This has three dimensions: economic, social andenvironment. There is a need for the planning system to perform a number ofroles under each of these as follows:• an economic role - contributing to building a strong, responsive andcompetitive economy, by ensuring that sufficient land of the right typeis available in the right places and at the right time to support growthand innovation; and by identifying and coordinating developmentrequirements, including the provision of infrastructure;• a social role - supporting strong, vibrant and healthy communities, byproviding the supply of housing required to meet the needs of presentand future generations; and by creating a high quality builtenvironment, with accessible local services that reflect the community'sneeds and support its health, social and cultural well-being; and• an environmental role - contributing to protecting and enhancing ournatural, built and historic environment; and, as part of this, helping toimprove biodiversity, use natural resources prudently, minimise wasteand pollution, and mitigate and adapt to climate change includingmoving to a low carbon economy.4.1.2 For plan making, the presumption in favour of sustainable developmentmeans that:• local planning authorities should positively seek opportunities to meetthe development needs of their area;• Local Plans should meet objectively assessed needs, with sufficientflexibility to adapt to rapid change, unless:39

• any adverse impacts of doing so would significantly and demonstrablyoutweigh the benefits, when assessed against the policies in the NPPFas a whole; or• specific policies in the NPPF indicate development should berestricted.4.1.3 The NPPF advises that the specific policies within it which indicate thatdevelopment should be restricted include those relating to: sites protectedunder the Birds and Habitats Directives and/or designated as Sites of SpecialScientific Interest; land designated as Green Belt, Local Green Space, or anArea of Outstanding Natural Beauty; designated heritage assets; andlocations at risk of flooding or coastal erosion.4.1.4 The NPPF further states that policies in Local Plans should be based onthe presumption in favour of sustainable development so that it is clear thatdevelopment which is sustainable can be approved without delay. It statesthat Local Plans should contain clear policies that will guide how thepresumption should be applied locally.4.1.5 The vision, objectives and policies in this Core Strategy seek to meetthe needs of the Borough in terms of providing homes, jobs and supportingfacilities in a sustainable way. They also seek to protect and enhance thebuilt, historic and natural environment. This is fully in accordance with thethree roles of the planning system in achieving sustainable development andthe results of the Sustainability Appraisal of this Core Strategy reflect this. Thefollowing policy reflects the importance of taking into account the principles ofsustainable development when taking decisions on future development in theBorough.Policy CS01: Sustainable Development4.1.6 Planning applications that accord with the policies in thedevelopment plan for Gravesham will be approved without delay, unlessmaterial considerations indicate otherwise.4.1.7 When considering development proposals the Council will take apositive approach that reflects the presumption in favour of sustainable40

development contained in the National Planning Policy Framework andin this Core Strategy. It will work proactively with applicants jointly tofind solutions which mean that proposals can be approved whereverpossible, and to secure development that improves the economic, socialand environmental conditions in the area.4.1.8 Where there are no policies relevant to the application or relevantpolicies are out of date at the time of making the decision then theCouncil will grant permission unless material considerations indicateotherwise – taking into account whether:• Any adverse impacts of granting permission would significantlyand demonstrably outweigh the benefits, when assessed againstthe policies in the National Planning Policy Framework taken as awhole; or• Specific policies in that Framework indicate that developmentshould be restricted.4.2 Scale and Distribution of Development4.2.1 In order to meet both current and future economic, social andenvironmental needs to achieve sustainable development in Gravesham,further development is needed within the Borough. Such development willmeet the changing housing needs of the population, support and improve thelocal economy and develop services and facilities needed to support andbenefit the existing local communities.4.2.2 Regeneration including new development can address the needs ofcommunities experiencing deprivation. New development can help provide arange of new homes for local people, improve the environment and provideadditional or improved facilities, and introduce new and potentially moreaffluent households into a deprived area.4.2.3 The distribution of development set out in this Core Strategy isconsistent with national planning policy and the current and previous regionaland sub-regional policy approach to the wider Thames Gateway and41

Gravesham 10 . It seeks to make full use of previously developed land withinGravesend and Northfleet, locate development to maximise the economicregeneration potential offered by Ebbsfleet and protect the Green Belt.4.2.4 Development must be achieved in the most sustainable settlementswhere there is access to the greatest range of facilities and services, and themost frequent public transport services. The South East Plan established theGravesend/Northfleet/Ebbsfleet areas as being the most sustainable parts ofthe Borough through its identification within the Kent Thames GatewayGrowth and Regeneration Area. These parts of the Borough comprise themain urban area. The rest of the Borough comprises the rural area. Theboundaries of the urban and the rural areas are defined on the Policies Map(see Appendix 1 for changes to the Policies Map).4.2.5 An assessment has been carried out of the facilities and servicesavailable in the Borough's settlements to identify which are moresustainable 11 . The results are reflected in the settlement hierarchy below.Table 2: Settlement HierarchyFirst Tier Settlements:Second Tier Settlements:Third Tier Settlements:Fourth Tier Settlements:Other Settlements:Gravesend/ Northfleet/ Ebbsfleet, i.e.the urban areaIstead Rise, Hook Green Meopham,HighamCulverstone Green, Meopham Green,VigoCobham, Shorne, Sole StreetHarvel, Lower Higham, Luddesdown,Lower Shorne, Shorne Ridgeway,Three Crutches4.2.6 The extent of the Green Belt in Gravesham is defined on the PoliciesMap. Its local purpose is:10 As set out within the South East Plan and its supporting evidence base11 Settlement Hierarchy Technical Paper December 200942

• to maintain the break in development between the eastern edge ofGravesend and the Medway Towns which is one of the few barrierspreventing the further eastward sprawl of London and the merging oftowns along the southern part of the Thames Estuary;• to assist in safeguarding the countryside from encroachment byrestricting the further expansion of the Borough's rural settlements, topreserve their identity and to prevent further suburbanisation; and• to assist in concentrating development on underused, derelict andpreviously developed land in the urban area of Gravesend andNorthfleet.4.2.7 The Borough has, in the past, been able to meet its developmentrequirements without the loss of Green Belt. The challenge is to establish adistribution of development that can be satisfactorily accommodated within themost sustainable settlements without undermining the Green Belt. Thesections below use the results of the technical studies to show how theBorough's future development needs can be met by development in the urbanarea and small scale development in the settlements which are inset from theGreen Belt, whilst avoiding inappropriate development in the Green Belt asset out in national policy.Housing4.2.8 This Core Strategy identifies how the Borough will meet its ownobjectively identified housing needs during the Plan period 2011 - 2028. TheCouncil is planning on the basis of zero net migration for its future housingneed and demand. This means that there is a need for at least 4,600 newdwellings (271 dwellings per annum) 12 .4.2.9 The Council has carried out a Strategic Land Availability Assessment(SLAA). This shows that at least 4,600 new dwellings can be provided withinGravesham, with the majority of development being located within the urbanarea. The main categories of supply are shown in Table 3 below.12 Gravesham Strategic Housing Market Assessment Update 201243

Table 3: Housing Land SupplyA) All sites with extant planning permission at 31 March 2012including ones subject to a legal agreement being signedB) Emerging Core Strategy Key sites without planning permissionor a resolution to grant planning permission - adjusted capacity (toavoid double counting with approvals set out in A) above)2,999772C) Specific unallocated sites which have the potential to make acontribution to housing delivery during the period (i.e. SLAA sites 387not covered by A) or B) above) 13D) Small site windfall assumption (less than 5 dwellings) for 2018to 2028330E) Completions 1 April 2011 - 31 March 2012 177Total 4,665Core Strategy Housing Requirement 4,6004.2.10 The figures show a surplus of 65 dwellings in relation to the Borough'shousing provision. This is a comparatively robust supply because a highproportion (69% of the requirement) is made up of development already built,with planning permission or a resolution to permit subject to a legalagreement. Assuming that these are built, then remaining supply (major siteallocations and other non-major sites without planning permission and a smallsite windfall allowance) exceed the total needed to meet the Borough'shousing provision by 1.4%. It should be noted that the identification of a site inthe SLAA does not give it any planning status unless it is identified as a keysite in this Core Strategy or it already has planning permission. The allocationof non-key sites will be via the Site Allocations and Development PoliciesDPD.4.2.11 The housing trajectory, located in the five year supply statement and tobe updated annually in the Authority Monitoring Report, shows that the13 The Land West of Wrotham Road site is not included44

identified supply exceeds the requirement by the greatest extent over the firstten years. During this first ten year period the Borough's supply as identifiedexceeds the cumulative requirement by 229 units (or 10%).This includesaddressing the shortfall that arises in the first two years of the plan period(2011-13).4.2.12 There are other sources of supply that the Council will take intoaccount in monitoring and managing the housing supply over the CoreStrategy period. Development from these sources will be monitored as part ofthe Authority Monitoring Report and added to the housing land supply. Theseare:• Small windfall sites in the first five years. In accordance withGovernment guidance, the supply does not include a figure for smallsites in this period beyond outstanding planning permissions. However,past trends suggest that small windfall sites are a significant contributorto housing completions and the SLAA concludes that this will continuein the future. Actual completions from small site windfalls will counttowards meeting the housing target when they occur;• Rural affordable housing developed under Policy CS16 which cannotbe counted as contributing to the housing land supply until aftercompletion; and• Additional large windfall sites. The SLAA identifies large sites fordevelopment during the Core Strategy period. However, identifying allpotential sites for development more than 10 years into the future isdifficult, particularly redevelopment sites in the urban area. Thereforeadditional large windfall sites, not in the SLAA, can be expected. In thelonger term, the SLAA will be reviewed to identify the emergence ofpotential new urban housing land.4.2.13 The distribution of housing based on the identified supply is shown inTable 3. The greatest capacity for new housing development is identified inthe four opportunity areas within the urban area, then the rest of Gravesendand Northfleet with only limited opportunities in the rural area. This isconsistent with the presumption in favour of sustainable development and astrategy that focuses development primarily in settlements with the widest45

ange of facilities. Most of the housing total for the rural area consists of eithercompletions or commitments in the form of planning permissions.4.2.14 Existing housing will make up around 90% of the housing stock in2028. As a result, it is important to safeguard and make the best use of theexisting stock. Investment is needed to ensure that existing public and privatehousing meets improving standards. The Council has been undertaking arolling programme of refurbishment and repairs of its housing stock. Wherefeasible, the Council also seeks to develop some small, under-used parcels ofland that it owns, particularly to meet older persons and specialist housingneeds. However, there are areas where a more proactive solution is neededand, for example, the redevelopment of Christianfields has resulted in thereplacement of social housing in poor condition with new social and privatesector housing. The Council will consider further estate renewal but the scale,location and timing of this will depend on factors such as the fundingavailable, the condition of the units and the needs of the community.Economy and Employment4.2.15 The size and weakness of Gravesham economy is key to the rationalefor maintaining the area's supply of employment land. Research by theInstitute for Policy Research in January 2012 listed the worst affected areasfor the number of job seekers chasing every job vacancy and Gravesham wasranked at number 10 with 12 jobseekers for every vacancy. Another measureof the economy is job density which is the ratio of jobs to the population aged16-64. The latest data from the Office of National Statistics is that theBorough's job density is much lower than the South East average of 0.80.Gravesham's job density is 0.51 compared with 0.89 for Dartford, 0.61 forSwale and 0.57 for Medway. Jobs density is defined as the number of jobs inan area divided by the resident population aged 16-64 in that area. A jobdensity of 1.0 would mean that there is one job for every resident aged 16-64even though not everybody in this age-group would be in employment oractively seeking work.4.2.16 The Economy and Employment Space Study Addendum considers theemployment space requirements up to 2031 based on a number of different46

scenarios, including zero net migration. For this scenario, the study identifiesa need for less employment space than at present as it was based onpredictions of a falling working age population in the Borough 14 . However,once migration is taken into account along with changes to retirement ageover the plan period, a re-run of the forecasts 15 suggests that the working agepopulation will increase by 1,600 by 2028. The study was based on a range ofdemographic, housing and economic scenarios that provided a demand-sideperspective. It did not take into account other market or policy factors whichmay affect the delivery of employment space in the Borough such as:objectives to encourage diversified future employment growth; and potentialoutcomes that lower employment space delivery could have on rising localunemployment and increased out-commuting.4.2.17 On the basis that Gravesham is seeking to substantially diversify andstrengthen its economy and reduce out-commuting, it is planned to create aminimum of 4,600 new B class jobs over the Plan period. This is on the basisof providing at least one new job per new dwelling which has found favourthroughout the development of the Core Strategy as a principle. It is alsoplanned to maximise the employment potential of Ebbsfleet in the longer termfor the provision of further jobs.4.2.18 Whilst the Council recognises that jobs can be delivered from a rangeof sectors, the Council's focus is to ensure that there is sufficient land for Bclass employment, which includes offices, industrial and storage anddistribution uses, and the range of job opportunities that this can provide.4.2.19 The SLAA shows that sufficient employment floorspace can beprovided within the urban area at Gravesend/Northfleet to meet the identifiedneed for at least 4,600 new jobs by 2028. It also shows that Ebbsfleet has thepotential to deliver at least 1,416 new B class jobs in Gravesham in the latterpart of the plan period, with scope for significantly more new jobs beyond theplan period. This reflects the long standing and continuing strategy for thearea of creating a regional hub for the location of a major business district in amixed settlement.14 contained in the Demographic and Labour Supply Forecasts July 201115 Demographic and Labour Supply Assessment April 201247

4.2.20 The distribution and amount of land to provide additional employmentfloorspace and jobs is shown in Table 6. The greatest capacity for newemployment development is identified in the four opportunity areas within theurban area, then the rest of Gravesend and Northfleet and with no newemployment development identified in the rural settlements. This is consistentwith the presumption in favour of sustainable development and focusingdevelopment primarily on settlements with the widest range of facilities.4.2.21 This table excludes jobs generated from non-B Class employment useclasses, such as the retail development, but this is estimated to equate toapproximately 1,400 additional jobs.4.2.22 The rural economy of the Borough has traditionally been dependent onagriculture, and to a lesser extent forestry, but has increasingly diversified asthe agricultural industry has changed in response to modern requirements.This has resulted in the re-use of existing buildings and the development ofnew enterprises that do not necessarily relate to traditional farm uses. TheGreen Belt designation has protected the long term potential of best and mostversatile agricultural land and conserved soil resources and this will continue.At the same time, the support for rural diversification needs to recognise thenature of the business and its potential traffic generation and other impacts.Retail Development4.2.23 The Retail Study Update 2012 identifies the future retail needs of theBorough as set out in Table 4 below (see glossary for explanation ofterminology). It does not take into account the commitments at Ebbsfleet,Northfleet Embankment West and Canal Basin because of the uncertainty ofscale and timing of delivery. The Study Update concludes that future retailneeds should be met primarily in Gravesend town centre, with a smallallowance to meet localised needs elsewhere in the Borough.48

Table 4: Summary of quantitative retail need2028 Sq.mComparison goods - net sq.m 16,660Comparison goods - gross sq.m 22,210Convenience goods - net sq.m 1,620Convenience goods - gross sq.m 2,180Total - net sq.m 18,280Total - gross sq.m 24,390Source: Retail and Commercial Leisure Background PaperGravesend Town Centre49

Development DistributionTable 5: Distribution of residential developmentNorthfleet Embankment &Swanscombe Peninsula EastOpportunity AreaGravesend Riverside East &North East GravesendOpportunity AreaGravesend Town CentreOpportunity AreaEbbsfleet (Gravesham)Opportunity Area2011 -20132013 -20182018 -2023202 3-2028Total2011 -2028-2 81 382 567 1,0280 205 375 200 78066 456 322 29 873105 250 250 67 672Rest of Borough 207 502 88 53 850Borough wide projectedcompletions of currentlypermitted schemes of 4 or lessdwellingsBorough wide small sitewindfalls (assumption)33 99 0 0 1320 0 165 165 330Total 409 1,593 1,582 1,081 4,665In table 5 above, the rest of the Borough (row 5) information is split as follows:• 43 dwellings in the rural area• 807 in the urban areaIn addition, small sites with permission (row 6) is distributed with 28 in therural area, 70 in the urban area and 34 in the Opportunity Areas50

Table6: Distribution of B Class employment developmentB classEmploymentFloorspace sq.mAnticipatedEmploymentGeneratingApprox.JobNumbers**(NIA unlessotherwisestated)**Uses**Northfleet Embankmentand SwanscombeB1a, B1c, B2,114,000Peninsula EastB82,269Opportunity Area*Gravesend Riverside EastB1a, B1c, B2,& North East Gravesend 20,500B8Opportunity Area548Gravesend Town CentreOpportunity Area5,000 B1a, 401Ebbsfleet (Gravesham)Opportunity Area17,000 B1a 1,416Rest of Borough* 4,300 B1a, B1c 240Total 160,800 4,874*Excludes floorspace figure for LaFarge Bulk Aggregates Import Terminal,Northfleet** Based on Core Strategy Opportunity Area Policies only as shown in CoreStrategy. Excludes jobs generated from non-B Class employment use classesPolicy CS02: Scale and Distribution of Development4.2.24 The development strategy for the Borough is to retain andimprove the existing stock of housing and suitable employment landand to make provision for the Borough’s objectively assessed need forat least 4,600 new dwellings and 4,600 new jobs during the plan period.51

4.2.25 Development will be distributed throughout the Borough asfollows*:• Approximately 3,387 new dwellings and 4,634 new B class jobswill be provided in the opportunity areas in the urban area. Thesecomprise: Northfleet Embankment and Swanscombe PeninsulaEast ; Gravesend Riverside East and North East Gravesend;Ebbsfleet (Gravesham) and Gravesend Town Centre;• Approximately 877 new dwellings and 240 new B class jobs willbe provided in the rest of the urban area including the provisionof an enterprise centre comprising offices and light industrialunits on greenfield land South of Coldharbour Road; and• Approximately 71 new dwellings will be provided in the rural area.4.2.26 The strategy focuses development in the urban area as asustainable location for development. This will be achieved by:• Promoting regeneration by prioritising the redevelopment andrecycling of underused, derelict and previously developed land inthe urban area. This will be principally through redevelopment offormer industrial sites in the opportunity areas of NorthfleetEmbankment and Swanscombe Peninsula East, and GravesendRiverside East and North East Gravesend to create newresidential neighbourhoods and employment areas;• The continued development of a new sustainable mixed usecommunity in the Ebbsfleet (Gravesham) opportunity area, whichwill include the provision of high quality employment floorspace;• Revitalising the Gravesend town centre opportunity area as afocal point for retail, leisure, cultural and tourism facilities andsmall scale office provision to serve the needs of the Boroughwhilst preserving and enhancing its character as a riversideheritage town; and• Bringing forward a range of suitable sites in other parts of theurban area for residential and employment development.52

4.2.27 In the rural area, the extent of the Green Belt, as defined on thePolicies Map, will be maintained and protected from inappropriatedevelopment. Small scale development will be allowed within those ruralsettlements which are inset from the Green Belt and defined on thePolicies Map. Development which supports the maintenance anddiversification of the rural economy will be supported provided it iscompatible with national policies for protecting the Green Belt.*Figures exclude small site windfalls for dwellings which are assumed tototal 330 new dwellings in years 2018-20284.3 Opportunity Areas in GraveshamIntroduction4.3.1 Four opportunity areas in the urban area are identified in this CoreStrategy. The identification of these gives the Core Strategy resilience andflexibility whilst showing where most change within the Borough will occurover the plan period. Within the opportunity areas are a number of key siteswhich are strategic site allocations. The key sites have the capacity to delivernew housing, employment and retail development to meet most of theBorough's needs over the plan period. Both the opportunity areas and the keysites are shown on the Policies Map. The opportunity areas are also shownon the Key Diagram. The key sites are accompanied by schematic planswhich provide an indication of the key principles to be applied to each site inaccordance with the policy. These schematic plans are located after theopportunity area policies.4.3.2 The concept of opportunity areas has been developed by the Council toestablish a broad framework within which development can take place and anoverall vision can be realised. The opportunity areas together form asignificant regeneration area in the Thames Gateway, extending along thewhole of the urban riverside and its hinterland and occupying almost a third ofthe built up area of Gravesham.53

4.3.3 This Core Strategy aims to transform and revitalise previouslydeveloped land, strengthen the vitality and vibrancy of Gravesend as theBorough's principal town centre and create modern, integrated, accessibleand sustainable communities which meet the full range of people's needs andaspirations.4.3.4 Within this area opportunities have been recognised, not only for thedevelopment of nine key sites during the plan period, but also for themaintenance, improvement and development of adjoining sites as part of acomprehensive approach, which will benefit both existing and newcommunities. The concept of opportunity goes further, recognising thedevelopment potential of Swanscombe Peninsula and Ebbsfleet, which willcarry the regeneration process beyond the plan period and beyond theboundaries of Gravesham as part of a longer term, sub-regional vision.4.3.5 Whilst the opportunity areas have characteristics which are specific tothem, they have a number of issues in common. The section below isincluded to avoid repetition in the opportunity area policies. It should be notedthat other Core Strategy policies also apply. All policies in the DevelopmentPlan should be taken into account in the consideration of developmentproposals.Common issues4.3.6 The proposed developments on the key sites are of a scale that they willhave a significant impact on their localities. They will need to be carefullyplanned and phased to ensure that they are well integrated with and maximisebenefits for the existing communities as well as providing for the needs of newcommunities. In some cases, development will result in the provision of newservices such as schools and open space which will benefit existing and newcommunities. In other cases, transport infrastructure will be required toprovide links between new and existing communities, e.g. bus services,footpaths. Policies CS10, CS11, CS12 and CS13 on Physical and SocialInfrastructure, Transport, Green Infrastructure and Green Space, Sport andRecreation will apply.54

4.3.7 The opportunity areas all lie within areas where there is a potential riskof flooding which is a major constraint on the type and form of developmentthat can be accommodated. Policy CS18 on Climate Change sets out therelevant requirements for developments in areas at risk of flooding and therequirements in relation to surface water run-off and Sustainable DrainageSystems (SUDs).4.3.8 On all the key sites, the scale of development will be such thatdevelopments should take the opportunity to deliver carbon reduction,renewable energy and water efficiency measures in accordance with PolicyCS18 on Climate Change.4.3.9 The opportunity areas all contain heritage interest including listedbuildings, conservation areas, and scheduled monuments. These are referredto where relevant in the background text to the policies. It is important that thedevelopment of the key sites ensures that the heritage features arepreserved, or enhanced and interpreted in accordance with Policy CS20 onHeritage and the Historic Environment will apply.4.3.10 Three of the opportunity areas are located alongside the River Thamesand there are specific issues which apply to them. Within these areas, therewill be a need to:• Maintain, improve and replace tidal flood defences in line with theevolving Thames Estuary 2100 plan (see Policy CS18 on ClimateChange);• Facilitate the creation of a high quality, dedicated pedestrian and cyclelink alongside the River Thames, as part of the proposed ThamesEstuary Path, or, where this is not possible due to the nature ofriverside activity, as close as possible to it (see Policy CS12 on GreenInfrastructure and Policy CS11 on Transport); and• Safeguard wharves, except where this would be detrimental toachieving the key regeneration objectives of the key sites (see PolicyCS07 on Economy, Employment and Skills, and CS11 on Transport).55

Figure 3: Opportunity areas within Gravesham56

4.4 Northfleet Embankment and Swanscombe Peninsula East Opportunity AreaFigure 4: Northfleet Embankment and Swanscombe Peninsula East Opportunity Area57

4.4.1 The Northfleet Embankment and Swanscombe Peninsula EastOpportunity Area lies on the Thames waterfront and extends around 4kilometres from the boundary with Dartford Borough in the west to theGravesend Town Centre Opportunity Area in the east. Much of the area ischaracterised by its industrial past, with deep chalk workings that oncesupported the local cement industry creating abrupt changes in level anddividing the older settlements on higher ground from the river below. Theriverside quarries once accommodated a variety of heavy industrial uses butthese have largely disappeared, leaving an area that is environmentallydegraded and with many vacant or under-used sites. There are clearopportunities in this location to make more efficient use of the land, facilitateriver-related activity, accommodate new development and secureenvironmental improvement as part of the wider regeneration of the area.Figure 4 above shows the main sub-areas comprising this Opportunity Area.4.4.2 Most of this opportunity area (with the exception of sub-areas 1.6 and1.9) is within the Northfleet Industrial Air Quality Management Area which wasdeclared because of high levels of particulate matter, i.e. dust, arising fromuncontrolled emissions from industrial processes. The closure of theNorthfleet Cement works has removed a major source of dust, but currentactivities and the open nature of some of the area mean that it remains apotential issue. It will be important to take account of air quality in bringingforward any development of the area and a key objective will be to securecontinued improvements to air quality through the redevelopment andenvironmental improvement of sites.4.4.3 Swanscombe Peninsula East Undeveloped Area (sub-area 1.1) is alarge area of land that projects northwards into a bend of the River Thameson the boundary between the boroughs of Dartford and Gravesham. It ismainly low lying and comprises a mixture of residual marsh used foragriculture/grazing and raised ground. The development potential is likely tobe constrained by:• Access - the Gravesham side of the peninsula is only served by asingle junction onto the A226 at Galley Hill Road, a private access road58

on its eastern periphery, and the unmade Lower Road private lane tothe south;• Ground conditions - the northern part of the peninsula has been raisedusing Cement Kiln Dust and the southern part in Gravesham is formermarsh;• Proximity to existing industrial uses - the eastern side of the peninsulain Gravesham is occupied by heavy and port related industries thatmay impede development nearby;• Biodiversity - although not subject to any designation, the marshes andmudflats provide important habitats and the biodiversity interest wouldneed to be taken into consideration;• Utilities - the Gravesham part of the peninsula is crossed by highvoltage power lines forming part of the National Grid;• Navigation - the northern part of the peninsula is affected bynavigational sight line, radar and telecommunication constraints; and• Railways - the High Speed 1 (HS1) railway line effectively severs thesouthern part of the marsh before going into tunnel and passing underthe River Thames.4.4.4 The Council considers that there is development potential atSwanscombe Peninsula. However, the constraints and the absence of anydefinitive proposals showing how they could be overcome suggest that anydevelopment in this area is only likely to be deliverable in the longer term. Asa result, any development should come forward using a comprehensivemasterplan approach that has regard to proposals for the Dartford part of thepeninsula, development phasing and the possible need for a new highway linkto relieve the existing A226 and improve accessibility to the peninsula. Thepresumption is that any development in this sub-area is most likely tocomprise industrial/commercial uses together with greenspace to protect thebiodiversity of the area. Residential development is not ruled out as part of amixed use development of the site but would need to overcome theconstraints and provide a sustainable form of development that integrates wellwith the adjoining urban areas.59

4.4.5 Swanscombe Peninsula East Riverside Industrial Area (sub-area1.2) comprises mainly industrial and port-related uses that sit behind theexisting tidal flood defences. Access to this area is from the junction with theA226 at Galley Hill Road and a narrow privately maintained road. It isanticipated that this area will remain in active employment uses over the planperiod. The expansion of industrial and port related employment in this areawill be supported.4.4.6 Grove Road and Lower Ebbsfleet Area (sub-area 1.3) consists of anumber of separate sites that have regeneration potential. These may berealised during or beyond the plan period depending on the aspirations of thelandowners and the viability of development. Viability is likely to be influencedby the relative success of the Ebbsfleet development to the south. Thedevelopment potential of this area is likely to be further constrained by:• Ground conditions - the area has been actively used for industrialpurposes for over 200 years and is likely to be subject tocontamination;• Heritage and archaeology - the area around Robin's Creek (outflow ofthe Ebbsfleet into the Thames) was the site of a medieval watermilllater converted to grind cement in the 1790s, Portland cement waslater invented here and Aspdin's Kiln (Scheduled Monument) and otherfeatures of heritage interest are likely to remain; and• Existing uses - development of sites on a piecemeal basis is likely tobe constrained by the proximity of existing poor neighbours or the needto retain/decant existing uses (including the local football ground).4.4.7 Part of this sub-area has the potential for residentially-led regenerationto complement the proposal to extend the existing residential development insub-area 1.4 (see below) and this is identified as a Key Site. Initial estimatessuggest that this area could deliver up to 200 new homes. Such developmentwould be expected to: improve and enhance Robin's Creek and the Ebbsfleetstream; improve the greening of this area; and reduce the heavy commercialtraffic and parking on Grove Road.60

4.4.8 The Council supports the creation of a new navigable harbour forrecreational purposes at Robin's Creek as this has the potential to create ahigh quality development, add value to other developments in the vicinity andcontribute to the re-establishment of Northfleet as an historic riversidesettlement. This would be subject to ensuring that the drainage functions ofthe Creek and its biodiversity interest are not adversely affected and thatthere is no potential conflict between recreational boats and commercialshipping on the river, and other proposals in the Opportunity Area.4.4.9 Old Northfleet Residential Extension (sub-area 1.4) comprises anarea of previously developed land extending northwards from The Hive localcentre down College Road to the River Thames. A separate spur of land,divided from the main area by a cutting that carries the access road to theformer cement works site from Thames Way (A226), extends northwards fromthe existing residential area down the former alignment of Lawn Road.4.4.10 This area is identified as a Key Site. The Council's approach to thisarea is that residential development will be supported as it forms a logicalextension to the existing established community of Northfleet and will reconnectit with the River Thames. This will include an extension to the Hivelocal centre and facilities to support the development. There is a resolution togrant planning permission for such use.4.4.11 Northfleet Cement Works Regeneration Area (sub-area 1.5)consists of the remainder of the former Lafarge cement works site and lies ata lower level than the adjoining residential community on the banks of theRiver Thames. Access to the site is primarily via a road tunnel from the A226Thames Way that passes through Vineyard Pit. A rail connection to the NorthKent Line has also been recently reinstated via Church Path Pit, a connectedsite to the south, which has the potential to be extended to sub-areas 1.7(Kimberly Clark) and 1.8 (Northfleet Embankment East) in due course. Thereis also good deep water access via the existing Wharf 42.4.4.12 This area is identified as a Key Site. There is a resolution to grantplanning permission for approximately 39,000 square metres employmentfloorspace (NIA) for business, industrial and storage and distribution uses61

under use classes B1, B2 and B8. In conjunction with this, listed buildingconsent has also been given for the dismantling, relocation and reassembly ofthe Grade II listed Bevan's War Memorial. The other Grade II listed building inthe vicinity of the site is the Northfleet Lower Lighthouse located at theeastern end of Wharf 42. The lighthouse is expected to remain in its presentposition and retain its industrial setting.4.4.13 A planning permission also exists for the use of part of the site as aBulk Aggregates Import Terminal, whilst a major cement importing facility hasbeen created through the conversion of the former cement works coal store.In the short term, much of the site will be used for the importation and onwardtranshipment of Crossrail spoil. In the longer term, it is anticipated that theemployment development will come forward.4.4.14 Old Northfleet Residential Area (sub-area 1.6) comprises a series ofresidential neighbourhoods and the local centres at The Hill and The Hive.The area around The Hill forms part of a conservation area. The area aroundThe Hive was rebuilt during the 1960s, along with Huggins College and WallisPark. As a result, the area lost much of its distinctive character as an historicriverside industrial town associated with the early development of the cementindustry. The loss of residential and other development to the northern end ofCollege Road, along with the impounding of Robin's Creek in the 1980s bythe creation of a new flood defence, effectively completed the severance ofthis community from the River Thames.4.4.15 Although linked together by the line of the B2175 Northfleet HighStreet, the different parts of Old Northfleet are separated by deep chalkworkings that make the area quite disjointed. Whilst there is a limited range offacilities in this location to serve the local community, it suffers from highlevels of deprivation and would benefit from a co-ordinated approach toimprovement. A recent award of Big Lottery Funding provides an opportunityto draw the community together and establish local priorities for investment.4.4.16 The Council supports the improvement of the local centres to meet theneeds of the local community. It will also require new development to be wellintegrated with the existing residential neighbourhoods. This includes62

improving connectivity with the Ebbsfleet development to the south and publicaccess to the River Thames and Robin's Creek to the north.4.4.17 Kimberly Clark site (sub-area 1.7) comprises a flat area of land set ata low level adjoining the River Thames. It is separated from the NorthfleetCement Works Regeneration Area to the west by the chalk spine of GranbyRoad. The site is currently occupied by the Kimberly Clark tissue mill andassociated buildings. The deep water wharf is used for the import of rawmaterials used in tissue manufacture and the transhipment of other goods.4.4.18 It is anticipated that this use will continue beyond the plan period andthe Council will support its continued operation and expansion. The Councilwill also support the extension of a heavy rail connection with the Lafarge site(in sub-area 1.5) to allow Kimberly Clark and the Northfleet Embankment EastRegeneration Area access to the North Kent and High Speed railway lines.4.4.19 Northfleet Embankment East Regeneration Area (sub-area 1.8)comprises a relatively flat area of land set at a low level adjoining the RiverThames lying to the north of a tall chalk cliff face. Road access to this area isprimarily via Rosherville Way and Thames Way under a chalk spine carryingthe B2175 London Road. Whilst much of the site is currently cleared andempty, the area has a long industrial past and was last occupied by the formerNorthfleet Power Station and AEI Cable Works (TT Electronics). STEMAAggregates continue to operate from Red Lion Wharf in the north western partof the area, taking advantage of the deep water jetty that once served thepower station. The Council supports the principle of mixed-use developmentin this sub-area and hence its identification as a Key Site.4.4.20 There is an extant planning permission, granted on appeal, for a34,000 square metre (NIA) distribution warehouse facility on land west ofRosherville Way and south of Crete Hall Road. It is understood that this willbe implemented in due course.4.4.21 Planning permission has also recently been granted to raise land onthe former AEI Cable Works site and part of the former Power Station site.This will take it out of the flood risk zone. The Homes and CommunitiesAgency is developing a masterplan for this site to promote its development for63

a multi-modal industrial and warehousing facility based on the heavy railconnection mentioned above and the availability of deep water wharfage. Thesite is expected to deliver a significant volume of jobs and therefore lowdensity job development in warehousing and distribution uses will not besuitable. This is likely to have implications for the operation of STEMAAggregates at Red Lion Wharf but it is anticipated that this constraint could beovercome as the design, mix and layout of the site evolves. Should this notprove possible, priority will be given to the comprehensive regeneration of thesub-area over the aggregates use, as to do otherwise, would prejudice thedelivery of the Core Strategy and effectively sterilise much of this importantsite (see Policy CS07 on Economy, Employment and Skills, and CS11 onTransport)).4.4.22 The eastern part of the sub-area is expected to accommodateresidential development reinforcing the existing Rosherville North andLansdowne Square Residential Area (sub-area 1.9). A buffer zone comprisingopen space, landscaping and office/light industrial employment or otherappropriate uses will be required between this and the multi-modal industrialand warehousing facility to the west.4.4.23 The north eastern part of the site is within the Lansdowne Squareconservation area which includes the former Art Deco AEI office block. This islikely to form part of the residential component of the redevelopment of thesite and any proposals will need to protect and enhance its setting. The GradeII listed Rosherville Quay Walls, steps, drawdock and World War II minewatching post lie within sub-area 1.9 to the east. The Council would seek therestoration of Rosherville pier with links to new public open space as part ofthe development of this site.-4.4.24 The Council supports the principle of development likely to comeforward as a result of the existing planning permissions and the emergingmasterplan. Current estimates are that this could comprise around 240 newdwellings and approximately 75,000 square metres (NIA) of B1, B2 and B8employment floorspace. This area is identified as a Key Site.64

4.4.25 Existing Rosherville North and Lansdowne Square ResidentialArea (sub-area 1.9) consists mainly of an existing residential area that sits ona chalk spine above the River Thames and the former quarries to the east andwest. Lansdowne Square is a conservation area and the southern part of thesub-area lies within the The Overcliffe conservation area. The listedRosherville pier is referred to under sub-area 1.8 above.4.4.26 It is unlikely that this area will be subject to substantial change over theplan period. However, adjoining development should be designed to improveconnectivity and access to the riverside so that existing residents benefit fromimprovements to community facilities to be provided.4.4.27 Imperial Business Estate (sub-area 1.10) mainly comprises anexisting 1980s industrial estate. It is a busy employment area that isanticipated to remain in-situ over the plan period. A small undeveloped areaadjacent to the western end of the former Clifton Marine Parade, the WhiteHouse offices and Imperial Wharf complete the site. Except for possiblerounding-off of employment uses, it is not anticipated that this sub-area will besubject to substantial change over the plan period.Policy CS03: Northfleet Embankment and SwanscombePeninsula East Opportunity Area4.4.28 The Northfleet Embankment and Swanscombe Peninsula EastOpportunity Area is a substantial opportunity for major riversideregeneration in Gravesham. Development will bring significant benefitsto existing adjoining residential communities and the borough as awhole through the delivery of new housing and jobs whilst achievingenvironmental improvement, especially in air quality, and a highstandard of design.4.4.29 Any future proposals for the Swanscombe Peninsula EastUndeveloped Area will be subject to a comprehensive masterplanapproach which deals with the issues of flood risk, access, groundconditions, proximity to existing industrial uses, air quality, biodiversity,utilities, navigation and the presence of the HS1 railway line.65

4.4.30 The Swanscombe Peninsula East Riverside Industrial Area,Kimberly Clark Site and Imperial Business Estate will be retained inemployment use. The Council will support proposals which expand andsupport their operation.4.4.31 The Council will support the regeneration for residential andemployment uses of the Grove Road and Lower Ebbsfleet Area takinginto account the ground conditions and existing uses.4.4.32 Development of the Key Sites will lead to the provision ofapproximately 970 dwellings and 114,000 (NIA) sq.m employmentfloorspace providing around 2,269new jobs. Development on the KeySites will be in accordance with the principles set out below.Land East of Grove Road and Robins Creek Key Site (within sub-area1.3)4.4.33 This will provide a residentially led mixed use development withthe potential to create approximately 200 dwellings. Such developmentwill be expected to: improve and enhance Robin’s Creek and theEbbsfleet stream; improve greenspace; and reduce heavy commercialtraffic and parking on Grove Road.Old Northfleet Residential Extension Key Site (sub-area 1.4)4.4.34 This will provide a residential development of approximately 530dwellings, open space, an extension and improvements to the Hive localcentre and provision of community facilities.Northfleet Cement Works Regeneration Area Key Site (sub-area 1.5)4.4.35 This will provide an employment development of approximately39,000 (NIA) sq.m new employment floorspace comprising business,industrial, and storage and distribution facilities (use classes B1, B2 andB8) and a Bulk Aggregates Import Terminal providing around 1,330 newjobs. Such development will be required to satisfactorily relocateBevan’s War Memorial.66

Northfleet Embankment East Regeneration Area Key Site (sub-area 1.8)4.4.36 This will provide an employment led development ofapproximately 75,000 sq.m new employment floorspace including amajor multimodal industrial and warehousing development (use classesB1, B2 and B8) to provide around 935 new jobs. It will also provideapproximately 240 dwellings at the eastern end of the site which willreinforce the existing adjacent residential areas. A buffer zonecomprising open space, landscaping and business development (useclass B1) will be required between the residential development and theindustrial and warehousing development. Such development shouldseek to restore Rosherville Pier and maintain an east-west route forpublic transport and general traffic accessing the Imperial Business andRetail Estate and Gravesend town centre.Northfleet Embankment67

Figure 5: Key site 1.3 Land East of Grove Road and Robins Creekschematic plan68

Figure 6: Key site 1.4 Old Northfleet Residential Extension schematicplan69

Figure 7: Key site 1.5 Northfleet Cement Works Regeneration Areaschematic plan70

Figure 8: Key site 1.8 Northfleet Embankment East Regeneration Area schematic plan71

4.5 Gravesend Riverside East and North East Gravesend Opportunity AreaFigure 9: Gravesend Riverside East and North East Gravesend Opportunity Area72

4.5.1 The Gravesend Riverside East and North East GravesendOpportunity Area lies immediately to the east of Gravesend town centre,extending around 1.8 kilometres along the waterfront to the boundary of theurban area with the Metropolitan Green Belt. Included within this area is landto the south of the North Kent Railway line, surrounding the GravesendWastewater Treatment Works, and north of existing residential developmentat Northcourt Estate and Dalefield Way. To the east, still south of the railway,lies the remainder of the Westcourt Marshes and Great Clane Lane Marshes.Part of this area is included within the South Thames Estuary Site of SpecialScientific Interest (SSSI) and the Thames Estuary and Marshes Ramsar Sitewhich means that it is of significant biodiversity value.4.5.2 A number of existing uses constrain the type and form of developmentlikely to be acceptable in this Opportunity Area. These include the GravesendWastewater Treatment Works, the Metropolitan Police Training Centre andthe Canal Road Gasholders. There are also a number of existing uses whichdemand a waterfront location because of the types of activity undertaken.These include the Denton Wharf (Port of London Authority), Denton Slipways(Ship Repairs) and Clubbs Wharf (Marine Dredged Aggregates).Notwithstanding these constraints, this area provides opportunities to continuethe successful regeneration of the Canal Basin, make more efficient use ofthe land, facilitate river-related activity, accommodate new development andsecure environmental improvement as part of the wider regeneration of thearea.4.5.3 Figure 9 above shows the main sub-areas comprising this OpportunityArea.4.5.4 Due to the severance effect of the railway and the Thames and MedwayCanal, the area to the east of the Canal Basin and north of the railway isserved almost entirely from the Ordnance Road junction which links to theGravesend town centre one-way system. This is a major constraint on whatdevelopment and uses can be accommodated on the riverside because of thehighway capacity, particularly at the junction, and any potential adverseenvironmental impacts of increased traffic on air quality. At North EastGravesend, capacity constraints at the junction of Dering Way and the Lion73

Roundabout will also need to be considered as well as impacts upon thewider highway network. The Borough Council retains the aspiration for a roadbridge to be provided to link the areas to the north and south of the railway asit could bring environmental and public transport benefits. However, this isunlikely to occur during the plan period.4.5.5 The Opportunity Area is in close proximity to the Thames Estuary andMarshes Special Protection Area (SPA) and Ramsar site to the east which areof international biodiversity importance, particularly for birds. Recent evidencesuggests that there has been a decline in bird populations in theinternationally significant Special Protection Areas (SPA) and Ramsar sitesthat make up the North Kent marshes (Thames Estuary and MarshesSPA/Ramsar Site, Medway Estuary and Marshes SPA/Ramsar Site, and TheSwale SPA/Ramsar Site) Ramsar/Special Protection Area sites. There iscurrently insufficient evidence to adequately assess the cause of this declinealthough interim findings indicate that recreational activity causes disturbanceto birds and that more development will lead to an increase in disturbance.Further work is being carried out by the North Kent Environmental PlanningGroup (NKEPG) in relation to this matter and, in the meantime, aprecautionary approach to development will be applied. This means thatdevelopers may need to provide or contribute to mitigation measures will beexpected to provide sufficient alternatives for the recreation needs arisingfrom their developments and implement other measures, which may includeprovision of alternative greenspace, contributions to visitor controlmechanisms and/or management of the SPAs, to ensure that detrimentalimpacts on the integrity of the SPAs/Ramsar sites are avoided.4.5.6 There are important links for walkers and cyclists that connectGravesend town centre with the North Kent Marshes beyond Mark Lane.These include the Saxon Shore Way long distance path and the NationalCycle Route 1 (NCR 1). These routes are currently of poor quality in a numberof places but still very well used and the Council supports their upgrading aspart of the Green Infrastructure and transport network. Policies CS11 onTransport and CS12 on Green Infrastructure are also relevant.74

4.5.7 Considerable progress has been made in restoring and upgrading theThames and Medway Canal as a contribution to the Green Infrastructurenetwork. The section between the Canal Basin and Mark Lane has beeninfilled and the Council is seeking the reinstatement of this part of the canalwhere this is shown to be feasible. Where cost precludes reinstatement at thetime development takes place, the design will be required to facilitate futurereinstatement.4.5.8 Canal Basin Regeneration Area (sub-area 2.1) comprises the CanalBasin itself and the area lying north of the gasholders as far east as theDenton Slipways site. The Canal Basin has been restored as part of the firstphase of redevelopment of the area and is in active use as a boating marina.This complements the recreational function of the Riverside Leisure Area tothe west and is the type of marine related use that the Borough Council wouldwish to see expand.4.5.9 To the north and east of the Canal Basin lies an area that is currently ingeneral employment use. The buildings are mainly old and in poor condition,with much of the land used for open storage. It has long been recognised thatthis area has potential for regeneration and it is shown as a Key Site. TheCouncil's approach to this area is that mixed use regeneration will continue tobe supported that complements the development which has already takenplace to the south of the Canal Basin. This will comprise a mix of residentialand business uses that have regard to the constraints imposed by its locationin a flood risk area and the proximity of gasholders at Canal Road. A range ofshops and services to serve the development and the existing residential areato the south should be included. There is a resolution to grant planningpermission for such use.4.5.10 The Canal Basin along with the locks, swing bridge and otherassociated features are Grade II listed. There are thought to be significantburied archaeological remains associated with the canal, early railway,previous industrial uses and Albion Baths. It is also thought that there is a wargrave containing the remains of Flight Sergeant Eric Williams from a WorldWar Two crash site around Albion Parade. These features will need to beinvestigated and the heritage interest preserved and interpreted. The Canal75

Basin was a maritime hub and, as such, is within the Gravesend RiversideConservation Area. Any proposals will need to preserve and / or enhance thecharacter or appearance of the conservation area.4.5.11 Canal Road Industrial Site and Canal Road Gasholders (sub-area2.2) comprises an area of land immediately south of the Canal BasinRegeneration Area. It is primarily in employment use. The presence of thegasholders is a major constraint on the potential redevelopment of the area asthey have health and safety implications. It is understood that these are likelyto remain in-situ over the plan period.4.5.12 The Council considers that this area is likely to remain in activeemployment use over the plan period and the presence of the gasholderswould largely preclude the introduction of residentially-led mixed useregeneration.4.5.13 Riverside Industrial Area East of Canal Basin and MetropolitanPolice Site (sub-area 2.3) comprises an extensive tract of riverside landextending 1,300 metres east of the Canal Basin Regeneration Area alongWharf Road and to the east of Mark Lane, north of the alignment of the formerThames and Medway Canal. It is currently well occupied by a range ofbusiness and other uses.4.5.14 Denton Slipways is a significant river-related facility which should beretained as it provides a range of services supporting water-borne transportand business on the wider River Thames. The Metropolitan Police TrainingCentre at Mark Lane and the Port of London's Denton Wharf also providefacilities that are strategically important. Clubb's Wharf is also considered tobe an important facility for the importation of marine dredged aggregates.4.5.15 The Council's approach is that the current role of the area shouldcontinue over the plan period and support will be given to proposals thatimprove the environment of the area. Strategic uses will be given protectionfrom the encroachment of sensitive uses that may impede their operation.4.5.16 It is understood that the Port of London Authority is currentlyconsidering the possibility of creating a Centre of Marine Excellence based onDenton Wharf and adjoining land. This could help to deliver further river-76

elated services and diversify the local economy in the marine sector. TheCouncil supports the expansion of such marine related employment uses thatmake active use of the waterfront between Denton Slipways and DentonWharf.4.5.17 Norfolk Road Industrial Area (sub-area 2.4) comprises the area lyingsouth of the alignment of the former Thames and Medway Canal extendingfrom the Canal Road Industrial Site and the Canal Road Gasholders site 450metres to the east to Mark Lane. It is currently well occupied by a range ofbusiness uses.4.5.18 The Council's approach to this area is that its current role shouldcontinue over the plan period as it is an important component of existingemployment land supply. Proposals to improve the environment of the areawill be supported.4.5.19 The first rural section of the former Thames and Medway Canal(sub-area 2.5) comprises a restored section of waterway lying immediatelynorth of the North Kent Railway to the east of Mark Lane. The depth ofchannel has recently been increased as part of a publicly funded project and apumping system installed to maintain water levels.4.5.20 Whilst this part of the canal is not navigable, it is important for thecontribution it makes towards the Green Infrastructure network. The northerntow-path carries the vehicular access to the Metropolitan Police TrainingCentre and the route is well used as part of the public rights of way networkand National Cycle Route 1. This part of the canal has been designated as aLocal Wildlife Site.4.5.21 The Council considers that the canal should be maintained in itscurrent form and progressively restored as resources permit. Proposals thatresult in its loss will be resisted given the biodiversity, amenity and localheritage value of the feature.4.5.22 North East Gravesend Regeneration Area (sub-area 2.6) comprisesall the land lying south of the North Kent Railway and north of Dalefield Wayand Dering Way. A proposed extension to the residential area south ofDalefield Way is also included within this sub-area.77

4.5.23 This sub-area includes the Gravesend Wastewater Treatment Workswhich causes some odour issues. Parts of the sub-area are also subject tonoise pollution from the shooting range to the east of the Metropolitan PoliceTraining Centre. This means that the location and type of development in thisarea will need to have regard to odour nuisance and noise pollution. This subareaalso includes a former landfill site. This is likely to be subject tocontamination which would make it unsuitable for built development withoutsignificant remediation.4.5.24 This sub-area abuts the Site of Special Scientific Interest (SSSI) andthe Ramsar site which are important for their nature conservation interest. Asoutlined above, it will be imperative that developers address and mitigate anydetrimental impacts on biodiversity.4.5.25 Whilst some commercial development has occurred at the LionBusiness Park immediately south of the Wastewater Treatment Works, thishas yet to be completed. Other sites to the east and west have been allocatedfor employment use in the past and a number benefit from extant planningpermissions or resolutions to grant planning permission. These sites areallocated for employment use as they are important to the future delivery ofjobs in accordance with the strategy. Therefore, they are shown as part of theKey Site.4.5.26 There is a resolution to grant planning permission for residential use onland to the east of the existing residential area at Dalefield Way. This willmake an important contribution to housing land supply over the plan periodand is also shown as part of the Key Site.4.5.27 Both the employment and residential components will be expected tomeet the open space needs of workers and residents on-site and incorporatesuitable boundary treatments to reduce the risk of recreational pressure onthe adjacent protected sites of nature conservation value.4.5.28 Great Clane Lane Marshes and Westcourt Marshes (sub-area 2.7)comprises an area of largely undeveloped marshland lying between theGreen Belt boundary and the North East Gravesend Regeneration Area.Westcourt Marshes is part of the South Thames Estuary and Marshes SSSI78

and the biodiversity value of this area has been damaged by past operations.Some of the sub-area (including a ditch extending southwards along theboundary of sub-area 2.6) also forms part of the Thames Estuary andMarshes Ramsar site.4.5.29 The proposals for residential and industrial development at the easternend of Dalefield Way in the North East Gravesend Regeneration Area,including the restoration of the damaged part of Westcourt Marshes SSSI to amore favourable condition, are supported.4.5.30 The evolving Thames Estuary 2100 Flood Risk Management Plan (seealso Policy CS18 Climate Change) includes the proposal for a new northsouthflood defence across the marshes to the north east of Gravesend. Thealignment and form of this are not yet known. Given this and the significantbiodiversity value of the area, the Council's approach is that this area shouldremain undeveloped over the plan period.Policy CS04: Gravesend Riverside East and North EastGravesend Opportunity Area4.5.31 The Gravesend Riverside East and North East GravesendOpportunity Area will be the subject riverside regenerationcomplemented by additional development to the south of the railwaywhich improve the poor urban environment and make the most efficientuse of vacant, derelict and underused land in the area. This willcomprise a mix of uses including new housing, jobs and supportingdevelopment.4.5.32 Development of the Key Sites will provide up to 780 dwellings andapproximately 20,500 (NIA) sq.m employment floorspace which willgenerate around 548 jobs. Development on the key sites will be inaccordance with the following quantities:4.5.33 The Canal Basin Regeneration Area Key Site (sub-area 2.1) willprovide a mixed use development of up to 650 dwellings, up to 1,850sq.m of mixed use commercial floorspace (use classes A1-A5, D1 andD2) and up to 5,500 sq.m employment floorspace (use class B1a and79

B1c) with the latter providing around 138 new jobs. The employmentuses will be located in the southern part of the site to minimise thehealth and safety impacts which arise from the proximity of the gasholders.4.5.34 The mix of commercial uses in the Canal Basin Regeneration AreaKey Site will include shops, financial and professional services, foodand drink related uses as well as non-residential institutions (such asday nursery or medical centre) and leisure (such as a health club orgym). These uses will be provided to serve the resident and daytimepopulation of the development and will generally be focussed in a localcentre.4.5.35 The North East Gravesend Regeneration Area Key Site (sub-area2.6) is made up of a number of areas which will provide up to 130dwellings and up to 17,573 sq.m employment floorspace (use classesB1, B2 and B8) providing around 410 new jobs.4.5.36 The Canal Road Industrial Site, Canal Road Gasholders, RiversideIndustrial Area East of Canal Basin, Metropolitan Police Site and NorfolkRoad Industrial Area will be retained in employment use. The Councilwill support proposals which improve their operation and the quality oftheir environment.4.5.37 Great Clane Lane Marshes and Westcourt Marshes will remainundeveloped. Proposals which restore the Site of Special ScientificInterest to a more favourable condition will be supported.4.5.38 The Council will support proposals that retain and increasemarine related activity making active use of the River Thames. This willinclude support for recreational boating activity within the Canal BasinRegeneration Area and the expansion of marine related employmentuses between Denton Wharf and Denton Slipways.4.5.39 Proposals that have the potential to prejudice the operation of theGravesend Wastewater Treatment Works or the strategic securityrelated functions of the Metropolitan Police Training Centre, through theintroduction of uses that are sensitive to the activities on these sites,80

will not be accepted unless it can be shown that any adverse impact canbe fully mitigated.4.5.40 Improvements will be sought to the Saxon Shore Way andNational Cycle Route 1.4.5.41 The alignment of the former Thames and Medway Canal will beprotected from development, with the objective of delivering a highquality multi-purpose Green Infrastructure link between the Canal Basinand Mark Lane that secures the reinstatement of the canal where it isviable to do so.Riverside East81

Figure 10: Key site 2.1 Canal Basin Regeneration Area schematic plan82

Figure 11: Key site 2.6 North East Gravesend Regeneration Areaschematic plan83

4.6 Gravesend Town Centre Opportunity AreaFigure12: Gravesend Town Centre Opportunity Area84

4.6.1 The Gravesend Town Centre Opportunity Area lies in a central urbanlocation on the River Thames waterfront, directly opposite Tilbury on theEssex shore. Occupying an area of ground that rises towards Windmill Hill tothe south, it is an historic town intimately connected with the nation's maritimepast and the development of its overseas trade. For centuries, it has acted asthe river gateway to the Port of London as well as being the central focus forthe wider borough. It is without doubt a very special place and one with greatpotential.4.6.2 The vision for the Gravesend Town Centre Opportunity Area is that, bythe end of the plan period, it will have built upon its strengths as a commercialcentre and heritage riverside town to establish itself as a dynamic anddesirable place to live and work and be a focus for shopping, leisure, serviceprovision, culture and tourism. Regeneration will have acted as a catalyst forthe improvement of the town centre's offer where high quality design andpublic realm will enhance the distinctive character of the centre.4.6.3 Underlying principles of the planning system are that sustainabledevelopment should be promoted, the town centre's competitiveness shouldbe improved and its local character should be preserved. The key featuresthat make our town centre distinctive and special are:• It is an important historic riverside town on one of the world's greatrivers that retains much of its architectural and heritage interest;• It is a compact town that is built largely to a human scale;• It is a traditional town with a mix of retail, service and residential uses;• It is a well-connected town with good and improving transport links andgood public car parking provision; and• It is a safe, clean and well-managed town and an attractive place tolive, work and visit.4.6.4 However, there are also issues to resolve:• Town centres need to constantly reinvent themselves if they are toremain relevant to the people who use them and to keep the mix ofuses up-to-date and vibrant. This means that provision has to be madefor modern retail, services and employment uses in terms of quantity,85

quality and range of supply whilst also accommodating new dwellingsso more people can live there;• As the opportunity area has significant heritage interest, its forminfluences where new units designed to meet modern commercialneeds can be located;• Competition from other centres and opportunities to buy goods andservices over the internet has changed the way in which people shop.As a result, some of the retail offer of the town centre has becomedated, although the demand for modern retail units of a larger size tomeet the requirements of multiple retailers remains;• Commercial leisure provision within the Gravesend Town CentreOpportunity Area has declined over time, following trends seennationally in this sector;• The cultural offer of the opportunity area is limited and this reduces itsattractiveness as a heritage riverside town and place to visit;• Whilst the environment of the town centre has been significantlyupgraded over the past 20 years, further environmental improvementswill be needed to ensure it remains a good place to live, work and visitand competes well with other centres;• Some parts of the opportunity area are dominated by traffic resulting innoise and poor air quality with the one-way system being declared anAir Quality Management Area. The existing one-way system also hasan adverse impact in that it divides the core town centre from theriverside and badly affects one of our finest heritage assets - HarmerStreet;• The River Thames is one of our most important assets but the towncentre fails to make the most of the advantages it brings - it hasbecome increasingly disconnected from the river over time and somenew developments have tended to block important views; and• Whilst the opportunity area includes the Riverside Leisure Area, it isrecognised that open space provision elsewhere is constrained byurban form and available space but making it more pleasant andadaptable to climate change through additional greening would bebeneficial.86

4.6.5 The Gravesend Town Centre Opportunity Area not only includes thecore of the town centre (sub-area 3.1) itself but adjoining areas that functiontogether with it.4.6.6 As noted above, the Gravesend Town Centre Opportunity Area benefitsfrom good public car parking provision and these are distributed around theOpportunity Area. Some of these car parks are short stay, used mainly byshoppers and visitors. Others are long stay, used by people who work in thearea and by those who commute by train to work. There are also car parksassociated with the retail stores to the west of the town centre. The overallprovision of public car parking in this area is currently being reviewed and theresults will inform the future provision and distribution strategy to ensure anappropriate level of long and short stay parking is maintained. This carparking strategy will also be informed by the need to: reduce the adversetownscape impact of open car parking; make more efficient use of the land;manage traffic flows; and improve air quality.4.6.7 The Council recognises the importance of the public realm and the builtenvironment in this Opportunity Area, particularly in the core of the towncentre (sub-area 3.1). Some areas would benefit from public realm andenvironmental enhancements, e.g. Milton Road as an eastern gateway to thetown, yards to the rear of Queen Street, areas to the rear of Harmer Street.Therefore, the Council will support environmental enhancements whereopportunities arise, especially when new development comes forward. This isin accordance with Policy CS19 on Development and Design Principles.4.6.8 This section sets out the approach that the Council will take towards thefuture development of the sub-areas comprised in this Opportunity Area. Itshould be read in conjunction with Policy CS08 on Retail, Leisure and theHierarchy of Centres. Also of relevance are Policies CS07 on Economy,Employment and Skills, and CS09 on Culture and Tourism.4.6.9 For the purposes of consistency, it should be noted that sub-area 3.1(Town Centre) under this policy coincides with the boundaries of the TownCentre under Policy CS08.87

4.6.10 The Sub-Areas which comprise the Gravesend Town CentreOpportunity Area are shown in Figure 12 above.Town Centre (sub-area 3.1)4.6.11 The Town Centre sub-area comprises the main commercial part of thetown centre. It is relatively compact and has the main concentration of retail,leisure, cultural, tourist, civic and service facilities in the Borough. Thisincludes shops, banks, restaurants, bars, the Towncentric visitor andinformation centre, Gravesham Community Hospital, The Woodville, and theCouncil's offices. These serve the whole Borough. It also acts as a transporthub for both conventional and high speed train services as well as buses (seeTransport section).4.6.12 The town's main shopping area is centred around the St George'sCentre, Thamesgate Centre and the pedestrianised part of New Road. Theunits are mainly occupied by multiple retailers selling comparison goods (e.g.clothing, games and toys, books and stationery, jewellery). Conveniencegoods are available from Tesco, Farmfoods and a number of retailers whichsell both convenience and comparison goods, such as Marks and Spencer.There are a number of areas close to the main shopping area which consist ofmore independent shops, estate agents, banks, building societies, restaurantsand pubs. These include: High Street; the indoor Borough Market; QueenStreet; King Street; Windmill Street; Stone Street; Manor Road; ParrockStreet; New Road (West); The Overcliffe; Darnley Road; and Barrack Row.4.6.13 This sub-area wholly contains the defined Primary Shopping Area onthe Policies Map (see Policy CS08 Retail, Leisure and the Hierarchy ofCentres). The retail function of the area will be supported and enhanced.There is an identified need for more and better quality comparison goodsretail floorspace in the Borough. Larger sized modern units are required tomeet the needs of multiple retailers. There is also a need for better qualityconvenience goods retail floorspace in the Borough to improve competitionand consumer choice 16 . In accordance with the sequential approach set out in16 Retail and Commercial Leisure Study December 200988

Policy CS08, the Primary Shopping Area is the preferred location for newretail development. However, given the townscape character and the scale ofdevelopment anticipated, it is unlikely that all of the Borough's retail need canbe accommodated in the existing Primary Shopping Area. For this reason, asite has been allocated for development adjacent to the Primary ShoppingArea to enable future retail need to be met. Details of the key site are in thesection below on the Heritage Quarter.4.6.14 The Town Centre sub-area has an important role in providing for anevening economy to serve the Borough. It is the first priority for the location ofleisure, entertainment, culture and tourism development under Policy CS08and support for the provision of cultural and tourism facilities are given inPolicy CS09. There is scope for new restaurants, cafes, a cinema and hotelsin the town centre, some of which could be accommodated on the HeritageQuarter key site (see below). There may also be potential for provision to bemade on sites to the South of the Town Centre (sub-area 3.3) and details aregiven under the relevant sections. The Council will support proposals whichretain and enhance the evening economy and provide improved leisure,entertainment, cultural and tourism facilities.4.6.15 Given the Borough's ageing population and the increasing number ofresidents locating in and around the town centre over the plan period, therewill be an increasing need for supporting local services. As the town centre isa transport hub with good public transport accessibility, it is a good location forsuch uses, as shown by the success of the Gravesham Gateway as a centralservice hub. The Council will support the retention or enhancement ofservices through Policy CS10 Physical and Social Infrastructure.4.6.16 The Council supports improved public transport provision, includingenhancements to the transport hub at the Gravesend rail station to providehigh quality interchange facilities between bus, rail, walking and cycling (seePolicy CS11 Transport). Planning permission has been granted for anintegrated public transport interchange at Garrick Street/Barrack Rowimmediately adjoining the railway station as well as a multi-storey car park.The one-way system has already been partly diverted. A further diversionwould be required to take it away from Clive Road and create a new89

Rathmore Road link between Stone Street and Darnley Road. In the eventthat this scheme is not fully implemented, the Council would still require theprovision of a public transport interchange in this location. Subject to theprovisions of the car parking strategy referred to above, it would also supportthe provision of offices at this location.4.6.17 There are some larger scale office buildings located in this sub-area.Joynes House and the Civic Centre provide office employment. The Councilwould wish to see these maintained in office use over the plan period as theyare part of the established Gravesend town centre office market and thiswould accord with the need to protect existing employment floorspace (seePolicy CS07 Economy, Employment and Skills). In addition, there may beopportunities to provide new office floorspace in the town centre forbusinesses wishing to locate there to exploit the potential offered by HS1.These are referred to where relevant.4.6.18 The eastern part of the Town Centre sub-area has significant heritageinterest. Much of this is within one of a number of Conservation Areas,centred around High Street, King Street and Windmill Street. There are also anumber of listed buildings including the Grade II* listed Old Town Hall and StGeorge's Church. Policy CS20 Heritage and the Historic Environment willapply.4.6.19 There are few open spaces in the sub-area. Provision has recentlybeen improved by the enlargement and refurbishment of the square in front ofthe Civic Centre, now known as Community Square, as a result of changes tothe one-way system.4.6.20 A particular feature of the town centre is its public alleys, particularly tothe east and west of High Street. These provide important pedestrian links,e.g. between Queen Street, High Street and St George's Centre. There arealso other important routes for pedestrians in the town centre, e.g. New RoadWest provides a pedestrian link to Asda superstore and Imperial Retail Park(in sub-area 3.2). It will be important to improve pedestrian connections wherethe opportunities arise, especially between new development, the historic90

High Street and the riverside as well as areas to the east and west of the towncentre.4.6.21 Lord Street is used as a temporary long stay car park. Whilst this site iswithin the town centre boundary, its future is most sensibly considered withParrock Street car park which is outside the town centre within sub-area 3.3.This is discussed further below.4.6.22 Apart from the Heritage Quarter key site below and the possible officeswhich may come forward as a result of development of the public transportinterchange, there are a number of other sites which may be developed in thissub-area during the plan period. These are:• former Cinema site on King Street which has the potential for retailunits, offices and residential on the upper floors• former Gala Bingo site on New Road West which has planningpermission for retail/commercial uses on the ground floor with officesand residential uses on the upper floors4.6.23 Ground floor premises in the rest of this sub-area are likely to continuewith their existing retail, commercial and service functions over the planperiod. The upper floors are currently a mix of offices and residential uses.Both are important to maintain a mix of development in the town centre,provide employment and add to the life and vibrancy of the area. The Councilwill support the continued provision of such uses and changes of use where asatisfactory living environment can be provided.Heritage Quarter4.6.24 Heritage Quarter West lies to the north of St George's Centre which ispart of the town's main shopping area. It comprises a family centre, WestStreet open air car park, part of St George's Centre car park and theBlockbuster store. Heritage Quarter East lies to the north of the BoroughMarket. It consists of the open air Horn Yard and Market Square car parks.Given the clear opportunities to make more efficient use of these under-usedareas, improve townscape character and improve links to the river, HighStreet and surrounding areas, both are identified as a Key Site.91

4.6.25 As explained in Policy CS08, whilst new retail development will bedirected to the existing primary shopping area, there are insufficient sitesavailable within the Primary Shopping Area to accommodate the total need forretail development over the Plan period. This Heritage Quarter key site,located adjacent to the primary Shopping Area, is the Council's sequentiallypreferred location for new larger scale retail provision.4.6.26 Heritage Quarter West would function as a logical extension to StGeorge's Centre and be located relatively close to the proposed publictransport interchange. It is anticipated that it could accommodate around7,340 sq.m m (NIA) retail floorspace. This could be entirely comparison retailfloorspace or it may include a convenience retail floorspace element. HeritageQuarter East could provide complementary uses such as restaurants and barswhich help improve the town's evening economy and a hotel to improvetourist provision. The key site could also accommodate residentialdevelopment, especially Heritage Quarter East, and make provision for officeuses. It would need to make provision for public car parking to replace thatlost as a result of development.4.6.27 It will be important that proposals for the Heritage Quarter key site areappropriate to context; fully integrate with the existing townscape; preservekey views to and from the river; improve the public realm; and enhance thesetting of the key heritage assets including the Grade II* listed St George'sChurch in accordance with policies CS18 and CS19. It is also important thatdevelopment improves pedestrian connections with the historic High Streetand the riverside and Imperial Retail Park and Asda superstore to the west.There will be a requirement for this development to improve the open space atSt Andrews Gardens (within sub-area 3.4) for existing and new residents andvisitors as well as improve Market Square and the open space around StGeorge's Church.West of Town Centre (sub-area 3.2)4.6.28 This sub-area is bisected by Thames Way. To the north lies ImperialRetail Park which provides retail warehouse type facilities and to the southwest lies the Asda superstore. These are located in a former chalk quarry and92

there is a steep cliff face between Asda and The Overcliffe but an escalatorprovides a pedestrian link between the two. To the south east of Thames Wayis the Wickes DIY store which sits at a higher level from it. Wickes isaccessed from Stuart Road and this road also includes a number ofresidential properties. The number of large retail stores in this sub-areameans that large areas are used for associated car parking. To the east ofStuart Road lies the redundant M block, part of the former hospital on the site.There is also a small area of residential properties to the south of TheOvercliffe.4.6.29 There are opportunities to make more efficient use of under-used sitesin this sub-area which would also improve townscape character, e.g. theredevelopment of the Wickes site. There are also opportunities to improvelinks between Asda/Imperial Retail Park and the town centre, e.g. theprovision of further decked parking at Asda could create a link to TheOvercliffe. The Council will support such proposals. It is likely that the M Blocksite will be redeveloped for residential use during the plan period and thisshould include active uses on the ground floor to help create a morepedestrian friendly route to Imperial Retail Park. The existing residential areasare likely to remain over the plan period.South of Town Centre (sub-area 3.3)4.6.30 There are a number of larger scale office buildings located in this subarea.The former Police Station on Windmill Street is vacant. The Councilconsiders that this site is suitable for a range of town centre uses including asignificant component of residential development. Active commercial usesshould occupy the ground floor to complement The Woodville to the north andexisting business uses on the east side of Windmill Street. The site currentlyhas an outstanding planning permission for redevelopment to provideresidential uses on the upper floors and shops / financial and professionalservices / business / non-residential institutions (use classes A1/A2/B1/D1) onthe ground floor. Cygnet House is also vacant, and its planning permission forconversion to a hotel has now expired. The Council would also support theprovision of replacement offices on this site. Given that it is an unsympathetic93

uilding in the Upper Windmill Street Conservation Area, preference would befor redevelopment of the site.4.6.31 The Lord Street/Parrock Street sites are used as car parks. There is aplanning permission for the Lord Street car park site, involving the provision ofresidential development, live-work units and commercial/communityfloorspace at ground floor level along the street frontages. The sites may offerscope for mixed use development but their future will depend on the outcomeof work being carried out on public car parking provision. Lord Street is withinthe defined town centre and Parrock Street is just outside it and neither site iswithin the Primary Shopping Area. It may be possible to accommodateadditional retail / leisure / hotel / office uses and/or residential development onone or both of the sites but the sequential approaches to these uses outlinedin Policies CS07 and CS08 will be applied.4.6.32 Outside these development sites, there is a mixture of predominantlycommercial uses which are likely to remain over the plan period. The shopson the east side of Parrock Street are peripheral to the town centre and theirfuture role will be considered if the Lord Street/Parrock Street sites comeforward for regeneration.East of Town Centre and Riverside (sub-area 3.4)4.6.33 This sub-area is centred around Thames Riverside, Harmer Street andMilton Road. It is largely residential though there are pockets of land inemployment use and some ground floor retail uses. There are some openspaces and a number of piers along the Riverside.4.6.34 The Thames Riverside in this location significantly contributes toGravesend's role as a riverside heritage town. The Town Pier has beenrefurbished and a pontoon has recently been installed to allow access tovisiting craft and the Gravesend-Tilbury Ferry. The Saxon Shore Way andWealdway long distance walking routes both start at the Town Pier whilstNational Cycle Route 1 runs along this part of West Street. There are alsoopen spaces (see further details below). The Council will seek to improvepublic access to the riverside. It will also require proposals to maintain and94

enhance riverside character and views in accordance with Policy CS19Development and Design Principles.4.6.35 Harmer Street and Berkley Crescent were historically a mixed use areawith retail and business premises on the ground floor with residential above.This has changed over time. It suffers from a poor environment due to itslocation on the one way system and the resulting poor air quality anddisturbance from traffic. The Council will support the provision of offices andfinancial and professional services in this area. It will also allow theconversion of upper floors to residential use where a satisfactory livingenvironment can be provided.4.6.36 Milton Road consists of a number of retail and restaurant uses atground floor level. The retail units are peripheral to the town centre and thisarea is considered to perform a local centre function serving the residents ofthis and surrounding areas. The Council supports this role for the area andwill take this forward as a new proposed local centre in the Site Allocationsand Development Management Policies DPD.4.6.37 This sub-area has significant heritage interest. Much of it is within oneof a number of a Conservation Areas. There are also a significant number oflisted buildings, particularly along Harmer Street, Berkley Crescent and theClocktower which are distinctive historic features of Gravesend's townscape.New Tavern Fort and Milton Chantry within the Riverside Leisure Area andGravesend Blockhouse along the riverfront are Scheduled Monuments. PolicyCS20 Heritage and the Historic Environment will apply.4.6.38 This sub-area includes some areas of open space. The RiversideLeisure area lies in the east of the sub-area. It is a large open space whichforms an important part of the Green Infrastructure network as it serves boththe local area and the wider Borough, with many leisure events held in thislocation. The area has recently benefitted from some improvements but theremay be further opportunities, especially linked to the Canal BasinRegeneration Area key site to the east. St Andrews Gardens alongside theriver is an important area of open space close to the town centre. It is notcurrently meeting its full recreational potential. Lower St Andrews Gardens95

has more potential as the upper gardens are limited due to the slopes. TheCouncil will seek to improve the recreational potential of both these areas andpolicies CS12 on Green Infrastructure and CS13 on Green Space, Sport andRecreation are also relevant.4.6.39 There are a number of larger scale office buildings located in this subarea.The Port of London Authority offices and associated land around RoyalTerrace Pier form part of the river-related employment in the Borough. ThePost Office and Department for Work and Pensions buildings on The Grove tothe south of Milton Road also provide employment. There are also somesmaller employment sites interspersed with residential uses to the north andsouth of Milton Road, including Milton Road Business Park and Bentley StreetIndustrial Estate. These serve the needs of smaller scale businesses requiringa central location, although the type and scale of these activities isconstrained by their proximity to residential areas and local road access. Thestrategy for employment sites is to protect employment floorspace unless it istruly redundant for modern needs, support the refurbishment and upgrading ofexisting premises and facilitate the expansion of river-related employment(see policy CS07 Economy, Employment and Skills).4.6.40 The remainder of the area is largely residential. This includes a mix ofmodern flatted developments alongside the river, terraced houses to the northand south of Milton Road and around Royal Terrace Pier, and some post warflatted development to the west of Harmer Street. These areas are likely toremain in residential use over the plan period. It is likely that the CliftonSlipways/West Street pier site will be redeveloped for residential use.Policy CS05: Gravesend Town Centre Opportunity Area4.6.41 The Gravesend Town Centre Opportunity Area will be theprincipal focus for town centre related economic and social activity inthe Borough. This will be achieved by consolidating the existing retailarea, encouraging a mix of employment and residential uses, improvingits role as a transport hub by the creation of a public transportinterchange, promoting an evening economy through giving support to96

the provision of leisure uses and taking full advantage of its heritageand riverside setting.4.6.42 Development of the Heritage Quarter Key Site will provide a highquality, mixed use development of around 327 dwellings, 255 sq.m officefloorspace (B1a), and around 8,533 sq.m (NIA) of commercial floorspace(7,340 sq.m retail floorspace (primarily A1 comparison floorspace), up to1,591 sq.m food and drink floorspace (use classes A3, A4 and A5), andan hotel) which will provide around 473 new jobs. It will reconnect thetown centre with the River Thames, High Street and surrounding areasand reinforce Gravesend’s character as a riverside heritage town.Replacement public car parking and improvements to the open space atSt Andrews Gardens will be provided as well as a replacement StGeorges Church Hall.4.6.43 Within the Opportunity Area, the Council will:• Seek to improve pedestrian access between the town centre, theRiver Thames and surrounding areas and reduce the physicalbarriers created by the one-way system;• Manage traffic accessing and passing through the area throughits approach towards the provision and distribution of public carparks;• Support the provision of an integrated transport interchange atGarrick Street/Barrack Row;• Support and enhance retail, leisure, entertainment, cultural andtourism provision in accordance with the sequential approach;• Support the provision of new offices in accordance with thesequential approach, in particular where they have good accessto the proposed integrated transport interchange;• Support the provision of new residential development where asatisfactory living environment can be achieved;• Support the redevelopment of under-used sites where this makesmore efficient use of the sites and improves townscape character;and97

• Support existing retail, commercial and service functions on theground floors and the provision of offices and residential uses onupper floors subject to achieving a satisfactory livingenvironment.Gravesend Town Centre98

Figure 13: Key site 3.1 Heritage Quarter schematic plan99

4.7 Ebbsfleet (Gravesham) Opportunity AreaFigure 14: Ebbsfleet (Gravesham) Opportunity Area100

4.7.1 The Ebbsfleet (Gravesham) Opportunity Area lies immediately east ofthe boundary with Dartford Borough and Ebbsfleet International railwaystation, south of the North Kent railway line and west of Springhead Road.This area has previously been the subject of mineral working and theSpringhead area as farmland. The sub-area is partly occupied by the HighSpeed 1 (HS1) railway line and an extensive network of highways includingthe A226 (Thames Way) and A2260 (Ebbsfleet Gateway), as well as a smallpart of one of the station car parks. The valley floor is largely flat and low lyingbut rises to the east and south where both industrial and residentialdevelopment has already taken place at Springhead Enterprise Park andSpringhead Park (Springhead Quarter). The Northfleet Wastewater TreatmentWorks and the Blue Lake (a water-filled quarry) occupy central locations tothe south of Thames Way. Figure 14 above shows the main sub-areascomprising this Opportunity Area.Northfleet Rise Quarter and Springhead Quarter (sub-areas 4.1 and 4.2)4.7.2 The immediate area around the Ebbsfleet International railway station inboth Dartford and Gravesham Boroughs has long been identified as thelocation for a major business district in a mixed settlement with the opportunityto create a regional transport hub around the international rail station. Thejobs potential of the site was a major reason for the Government selecting thelocation as the preferred option for an intermediate station on the thenChannel Tunnel Rail Link in 1994 (now High Speed 1).4.7.3 Outline planning permission was granted by both Gravesham andDartford Boroughs in 2002 for a comprehensive mixed use public transportoriented development across the Ebbsfleet Valley. This split the site into fourlinked quarters - two in Dartford (Station Quarter North and Station QuarterSouth) and two in Gravesham (Northfleet Rise and Springhead). WithinGravesham, up to 1,064 dwellings and up to 125,000 sq.m gross businessemployment floorspace plus supporting uses was granted planningpermission. Although the planning permissions are flexible, the vision hasbeen for a high density office employment driven, mixed use developmentwhich is public transport oriented and has supporting infrastructure to meet101

the needs of the resident and daytime population, making the most of itsproximity to the international railway station.4.7.4 Quarter Master Plans have been approved across the site to reflect theabove approach. Detailed plans have also been approved for much ofSpringhead Quarter, where the emphasis has been on providing residentialdevelopment. 206 dwellings had been completed by the end of March 2011. Arecent Committee resolution to approve changes to the planning permissionmeans that Springhead Quarter is likely to be a more residentially leddevelopment whilst Northfleet Rise Quarter is likely to be a more employmentled development. For this reason, whilst policy CS06 does include up to 186dwellings at Northfleet Rise Quarter, this is not counted within the HousingLand Supply table (table 3) which accompanies policy CS02. Despiteinternational rail services having operated from 2007 and domestic railservices from 2009, no commercial development has occurred to date. Thisperiod has coincided with the economic recession and the emergence ofcompeting developments at Stratford in East London. However, the vision forthe site in both Dartford and Gravesham remains the same.4.7.5 Springhead Quarter and Northfleet Rise Quarter are shown as KeySites capable of accommodating the levels of development set out in the2002 outline planning permission with the development mix for each Quarterreflecting the recent resolution to approve changes to the planningpermission. Discussions with the developer indicate that the delivery of thisdevelopment is likely to be over a longer time-span than was originallyenvisaged and this is reflected in the policy.4.7.6 The Council will require the provision of measures to ensure that apublic transport oriented development is delivered in accordance with thevision. This will include the provision of bus services, footpath and cycle linksto connect the different Quarters, to provide easy access to the station and toprovide wider access to the surrounding area. As part of this, the developerwill be expected to provide a bridge link between Springhead Quarter and theEbbsfleet Station access road.102

4.7.7 To further encourage a high proportion of trips by sustainable meansand discourage the need to travel by private car, the Council supports thedevelopment of a transport hub at Ebbsfleet to provide high qualityinterchange facilities between bus, rail, walking and cycling. It also supportsthe provision of a dedicated pedestrian and cycle link between Ebbsfleet andNorthfleet stations. Further details are set out under Policy CS11 Transport.4.7.8 The planning permissions identify a number of transport schemes thatthe full development would require in both Gravesham and DartfordBoroughs. The precise form of these will depend on the actual development,phasing and the cumulative implications of proposals for other sites that feedoff the same transport system.4.7.9 There are a number of car parks which serve Ebbsfleet station. Theseare mainly located in Dartford Borough. As a result of a developmentagreement with the Government, the developer has the right to build on thecar parks serving Ebbsfleet station provided that any spaces that aredisplaced are replaced in a suitable location or form. Therefore, provision willneed to be made for replacement car parking within the Ebbsfleetdevelopment site.4.7.10 Northfleet sidings, adjoining Northfleet railway station in Northfleet RiseQuarter, have been reinstated. These restore the connection between theNorth Kent Line and the Northfleet Cement Works Regeneration Area key site(sub-area 1.5).4.7.11 The proximity of the key sites to the Northfleet Wastewater TreatmentWorks (sub-area 4.3) and the high speed railway line mean that they could besubject to odour and noise pollution. As a result, the location and type ofdevelopment will need to have regard to these constraints. Less sensitivebuffer uses such as employment may need to be located between residentialdevelopment and the sources of the pollution to mitigate the impacts. A highvoltage power line also runs along the southern part of Springhead Quarterand the layout of development will also need to have regard to this.4.7.12 The Ebbsfleet stream runs along the western part of the two quarters.Both the stream and the surrounding reedbeds and slopes have biodiversity103

interest and are part of the Ebbsfleet Marshes Local Wildlife Site. A publicright of way runs along much of it. The Council will require the improvementand management of the Ebbsfleet stream corridor as part of widergreenspace and Green Infrastructure provision within the new development.4.7.13 Part of the Ebbsfleet Neolithic Site Scheduled Monument is withinNorthfleet Rise Quarter. Both quarters are also areas of archaeological searchwhich reflect that it is the site of a former Roman settlement. The Council willrequire the preservation and interpretation of the site's heritage assets inaccordance with Policy CS20 Heritage and the Historic Environment.4.7.14 Northfleet Wastewater Treatment Works (sub-area 4.3) lies to thewest of the Springhead Enterprise Park and south of Blue Lake. The plant hasbeen recently upgraded to increase capacity and to meet European legalrequirements. It is anticipated that this use will remain over the plan period.The Council recognises that it is a potential source of odour pollution anddevelopment proposals will need to reflect this.4.7.15 Springhead Enterprise Park (sub-area 4.4) lies to the west ofSpringhead Road and south of Thames Way, immediately adjacent to the newresidential development at Springhead Park (Springhead Quarter) and theNorthfleet Wastewater Treatment Works. It is a well-established employmentlocation consisting of a range of light and general industrial and warehouseunits of different sizes. It has good levels of occupation although some of thelarger units are more difficult to let. The Council considers that this area islikely to remain in employment use over the plan period. Proposals that resultin improvements to the site and its employment carrying potential within thesame range of uses will be supported.4.7.16 Blue Lake (sub-area 4.5) is a deep water filled quarry lying to thenorth of Thames Way. The site is currently fenced to prevent unauthorisedaccess due to the dangers associated with such workings but is used by alocal fishing club. Water is abstracted from the lake to serve the KimberlyClark tissue mill in the Swanscombe and Northfleet Riverside OpportunityArea. It is understood that no other abstraction takes place other than tomaintain levels and to prevent flooding. The site is part of the Ebbsfleet104

Marshes Local Wildlife Site which means that it has some nature conservationvalue. However, it is understood that there is a degree of saline intrusion dueto the proximity of the area to the River Thames.4.7.17 The Council considers that Blue Lake will remain in its current use overthe plan period. It would support proposals that better integrate the lake withthe Northfleet Rise Quarter Key Site, secure environmental improvements andimprove its biodiversity value whilst not prejudicing public safety and theabstraction of water for industrial purposes. It may be possible to increase useof the area for leisure purposes or introduce floating uses such as offices orhotel facilities. This would bring the area into active use and provide anincome stream for its future maintenance and improvement.Policy CS06: Ebbsfleet (Gravesham) Opportunity Area4.7.18 The Ebbsfleet (Gravesham) Opportunity Area is a substantialopportunity for a high quality, sustainable, mixed use development inline with the longstanding strategy to create a major business district atEbbsfleet within Dartford as well as Gravesham. Development will bringsignificant benefits to the borough and surrounding communitiesthrough the delivery of new housing, high quality jobs and supportingfacilities centred around and well linked to the Ebbsfleet Stationtransport hub.4.7.19 Development of the Key Sites will lead to the provision of:• approximately 672 dwellings being provided during the planperiod (in addition to the 206 dwellings which were already built at31 March 2011);• up to 106,250 sq.m (NIA) business employment floorspace (useclasses B1a, B1b and B1c) with a minimum of 17,000 sq.mbusiness employment floorspace being provided during the planperiod providing around 1,400 new jobs;• up to 2,810 sq.m retail floorspace (use class A1); and• other supporting facilities, leisure/entertainment floorspace (useclass D2), hotels and restaurants.105

4.7.20 Development of the Key Sites will be in accordance with theprinciples set out below.4.7.21 The Springhead Quarter Key Site will provide a residentially ledmixed use development with the potential to create up to 672 dwellings(in addition to the 206 dwellings which were already built at 31 March2011), a minimum of 17,000 sq.m business employment floorspace (useclasses B1a, B1b and B1c) and up to 750 sq.m retail floorspace (useclass A1).4.7.22 The Northfleet Rise Quarter Key Site will provide an employmentled mixed use development with the potential to create up to 85,000sq.m business employment floorspace in a high density businessdistrict (use classes B1a, B1b and B1c), up to 186 dwellings, up to 2,060sq.m retail floorspace (use class A1); as well as leisure/entertainmentfloorspace (use class D2); and hotels and restaurants.4.7.23 Retailing will be provided to meet the needs of the resident anddaytime population and should safeguard the role of Gravesend towncentre as the primary retail centre.4.7.24 Facilities will be provided to support development of theSpringhead Quarter and Northfleet Rise Quarter Key Sites and will beaccessible to both existing and future communities. These will includethe provision of educational, health, social care, sports and communityfacilities, open space to meet a variety of needs and recycling and wastetransfer facilities. These will be provided in accordance with the phasingschedule set out in the Infrastructure Delivery Schedule.4.7.25 Development will be designed to be public transport oriented toencourage a high proportion of trips by sustainable means anddiscourage the need to travel by private car. This will be achieved by theprovision of frequent bus services and a high quality network of publiclyaccessible footpath and cycle links between the Springhead Quarter KeySite, Northfleet Rise Quarter Key Site and the Dartford Quarters of thedevelopment, Ebbsfleet Station and Northfleet. This will include theprovision of a bridge over the Ebbsfleet stream to provide a pedestrian,106

cycle and road link between the Springhead Quarter Key Site andEbbsfleet Station access road.4.7.26 The Council will support the creation of an enhanced transporthub at Ebbsfleet Station (in the Dartford Borough Council area)providing high quality interchange facilities between bus, rail, walkingand cycling and the provision of high quality dedicated pedestrian andcycle links between Ebbsfleet and Northfleet stations.4.7.27 Provision will be made for replacement car parking to serveEbbsfleet Station if any is displaced by development.4.7.28 The layout of development and mix of uses will have regard torailway noise from HS1 and odour from Northfleet WastewaterTreatment Works. Employment or other buffer uses may be requiredbetween new residential development and this infrastructure to mitigatethe impact of noise and odour.4.7.29 A network of multi-functional, accessible greenspace will beprovided forming part of the wider Green Infrastructure network to meetthe needs of the resident and daytime population and to enhancebiodiversity. This will include the improvement and management of theEbbsfleet stream corridor.4.7.30 The Springhead Enterprise Park will be retained in employmentuse. The Council will support proposals which increase its employmentpotential and make it more responsive to the market.4.7.31 The Council will support proposals for Blue Lake that betterintegrate it with the Northfleet Rise Quarter Key Site, secureenvironmental improvements, increase its nature conservation valueand introduce more beneficial uses where these are compatible with theneed to maintain its water abstraction functions and public safety.107

Figure 15: Key site 4.1 Northfleet Rise Quarter schematic plan108

Figure 16: Key site 4.2 Springhead Quarter schematic plan109

Ebbsfleet110

5 Thematic Policies5.1 In addition to the spatial policies in section 4, there are also a number ofthematic issues which need to be addressed through borough-wide policies inorder to implement the vision and spatial objectives. As well as providing thelong term policy framework for the Borough, they will support the delivery ofdevelopment and corporate actions, and they will guide the content of otherpolicies in the Local Plan such as the Site Allocations and DevelopmentManagement Policies DPD.5.2 The thematic policies and the spatial policies are complementary so it isimportant that the policy framework is read as a whole.5.1 Economy, Employment and Skills5.1.1 Gravesham's local economy is one of the smallest in Kent. The loss ofemployment in the lower skilled traditional sectors coupled with limited growthin the higher skilled, professional and office based sectors to replace this loss,together with a lack of well located, modern premises and a generally poorlyskilled workforce, have constrained local economic growth. This has resultedin a low number of jobs per head of population with significant numbers ofpeople having to travel outside the Borough for employment.5.1.2 Opportunities exist to capitalise on the strengths of the area to improveits economic position. These include: taking advantage of investment in HighSpeed Rail connections and the associated development of Ebbsfleet;proximity to the A2/M25 trunk roads; the opportunities afforded by newtechnology; the availability of previously developed sites to accommodate newemployment; and the borough's riverside location and heritage.5.1.3 The approach set out below has been developed against a backdrop ofnational economic uncertainty that has the potential to affect investmentdecisions and timing of delivery of jobs at the local level. Given there is nocertainty about the economic upturn, either in terms of when it will come orhow strong that recovery will be, the Council's economic strategy will enablethe borough to benefit from the economic upturn when it does come.111

5.1.4 In recognition of the above factors, the Council aims to• make Gravesham a place where enterprise can thrive in a sustainableand responsible way;• build on its strengths to increase economic diversity so that the localeconomy is more adaptable and resilient to change; and• facilitate the provision of education and skills training to enable localpeople to prosper by taking advantage of the employment opportunitiesthat arise.5.1.5 Whilst the Council recognises that jobs can be delivered from a range ofsectors, the Council's focus is to ensure that there is sufficient land for B classemployment, which includes offices, industrial and storage and distributionuses, and the range of job opportunities that this can provide. For clarity "Bclass employment" is that in use classes:• B1(a) Offices,• B1b Research and Development,• B1c Light Industrial• B2 General Industrial; and• B8 Warehouse & Distribution5.1.6 It will seek to achieve this by making provision for a minimum 4,600 newFull Time Equivalent (FTE) jobs in B class employment by:• providing for a generous supply of employment sites, to allow marketchoice and to enable the regeneration of identified sites to appropriateuses;• ensuring a range of provision for all employment sectors, to allow firmsto start-up, grow and adapt to change;• supporting office development at Ebbsfleet and in Gravesend TownCentre, to expand activity in an under-represented sector;• supporting the expansion of commercial use of the riverside, where itdoes not conflict with other stated regeneration objectives;• protecting existing employment sites, unless they are truly redundantfor modern needs or identified elsewhere in this strategy asregeneration opportunities;112

• supporting improvements in information technology, to increasecompetiveness and flexible working practices; and• supporting proposals that enable local residents to improve anddiversify their skills and qualifications.5.1.7 The jobs target is broadly based on a ratio of 1 FTE job per newdwelling over the plan period. Further detail on how this figure has beenderived is set out in the Economy, Employment and Skills Background Paper.It should be noted that the policy approach set out below focuses primarily onthe approach to B class employment uses whilst not disregarding theimportant contribution from other sectors such as retail and hotels. TheCouncil's approach towards meeting retail and commercial leisure, cultural,and tourism needs (which also have the potential to generate employment,along with other land uses) can be found in policies CS08 and CS09.5.1.8 The National Planning Policy Framework (NPPF) requires that the localplanning authority set out a clear economic vision and strategy for their areato encourage sustainable economic growth. Priority areas should be identifiedfor economic regeneration with sufficient sites available for local and inwardinvestment to match the strategy. Policies should also be flexible enough toaccommodate needs that have not been anticipated over the Plan period.5.1.9 The NPPF also states as a general principle that local planningauthorities should avoid the long term protection of sites allocated foremployment use where there is no reasonable prospect of a site being usedfor that purpose. In addition, it advises that planning applications for changesof use from commercial buildings (currently under the B use classes) toresidential use and any associated development should normally be approvedwhere there is an identified need for additional housing in that area, providedthat there are not strong economic reasons why such development would beinappropriate. The weak economy and the need to take a precautionaryprinciple to employment land release, e.g. new employment should beprovided before existing employment land is considered for release to otheruses, provide the strong economic reasons for the Council's approach in thispolicy.113

5.1.10 The context within which Gravesham's approach towards theeconomy, employment and skills has been developed is the South East Planand the designation of the borough north of the A2 as part of Kent ThamesGateway. This envisaged the creation of a new sub-regional employment hubat Ebbsfleet that would allow for the development of a high density mixed useoffice based scheme delivering more than 20,000 jobs in Dartford andGravesham.5.1.11 Whilst the Council supports this, no employment floorspace has yetbeen delivered and it is only likely to come forward post 2021. The policyapproach set out below is therefore based on the assumption that Ebbsfleetwill come forward as a high density office employment driven, mixed useddevelopment, acting as a key economic driver across North Kent but that thiswill be slower than originally anticipated.5.1.12 This context, coupled with the uncertain economic conditionsnationally, underline the need to diversify and reinforce the local economy. Itis important that the Council is not overly reliant on one development to driveforward jobs and prosperity and its response is sufficiently flexible toaccommodate a range of contingencies.5.1.13 To address these factors and the need to off-set loss of existing supplyat identified regeneration sites, the Council has planned initially for agenerous level of supply of employment land. The monitoring framework willguide the subsequent release of land if it is later found to be surplus, suitablefor alternative uses, and has the ability to contribute toward the delivery ofsustainable forms of other development needed in the area.5.1.14 Table 6 sets out in broad terms, the distribution of new employmentfloorspace and number of jobs to be delivered over the plan period. CSpolicies 3 - 6 set the detailed policy requirements in respect of each of theOpportunity Areas.5.1.15 The Economy and Employment Space Study (2009) looked atopportunities for growth and identified a high potential to grow employment inthe construction and hotels/catering sectors, subject to the Ebbsfleetdevelopment coming on stream. Prospects were described as moderate for:114

marine-related industries; distribution; advanced manufacturing/engineering;media and telecommunications; and retail/leisure. It also identifiedopportunities for growing the Gravesend Town Centre office market based onimproved rail accessibility and developing a role related to creative, mediaand design activity. A site at Coldharbour Road was identified as a particularopportunity to bring forward an Enterprise Centre meeting the needs ofexpanding small and medium sized firms and the provision of incubationspace for small business start-ups well located relative to the main roadnetwork.5.1.16 The Council proposes to capitalise on these opportunities for localeconomic growth and diversification by:• the creation and expansion of office based employment at NorthfleetRise and Springhead Quarter within the Ebbsfleet (Gravesham)Opportunity Area (sub-areas 4.1 and 4.2) and Gravesend Town Centre(sub-area 3.1);• new employment opportunities delivered as part of the mixed usedevelopment of Northfleet Embankment (see Northfleet Cement WorksRegeneration Area key site sub-area 1.5), Canal Basin RegenerationArea key site (sub-area 2.1) and North East Gravesend RegenerationArea key site (sub-area 2.6); and• proposals for larger scale warehousing and multi-modal logisticsfacilities at Northfleet Embankment East Regeneration Area key site(sub-area 1.8); support for the expansion of commercial use of theriverside and associated marine activities; and by seekingimprovements to information technology.5.1.17 Aside from the sites identified for the delivery of new jobs set out in thepolicy, the potential exists for further development at Swanscombe PeninsulaEast (see also sub-area 1.1 above). However, this is likely to be a longer termoption requiring significant improvements to infrastructure and joint workingwith key stakeholders (including Dartford Borough Council) in order to developa coherent masterplan approach.115

Protection of existing employment sites5.1.18 As a result of the inherent weakness of the Gravesham local economyand the need to expand it to support choice, diversity and sustainablelifestyles, the Council considers it is important to protect existing employmentsites, unless they are truly redundant to modern needs or have been identifiedthrough this Core Strategy as suitable for regeneration to alternative uses.5.1.19 The Economy and Employment Space Study (2009) examined in detailexisting and potential employment land supply in the borough, taking intoaccount the quality and accessibility of the various sites. This found that muchof the stock comprises older premises with many poorly located. The lack ofsupply of good quality modern premises in the right places was seen as afactor in affecting levels of demand. However, the stock makes an importantcontribution to meeting local needs and little scope to release for sites forredevelopment was identified.5.1.20 The future of existing employment sites and the potential for flexibilityin terms of the types of jobs they might accommodate will be considered inmore detail through the Site Allocations and Development ManagementPolicies DPD. In the interim, a criteria based approach using market testingwill be applied to assess whether sites should be released to alternative uses.5.1.21 A similar approach is adopted to marine related uses, such ascommercial wharves and land-side support infrastructure, given the potentialfor such sites to be lost to higher value uses taking advantage of attractiveriverside locations. Policy CS 11 on Transport also applies where wharves aresafeguarded in order to protect the movement of freight and other goods bywater. Exceptions to this approach are allowed under policy where sites havespecifically been identified to support other regeneration objectives.Rural Area5.1.22 There are few major employment sites within the rural area and supplywithin or adjacent to the rural settlements, tends to be dominated by smallsites. However, such sites do facilitate sustainable lifestyles by providingopportunities for people to live and work locally and they also help to support116

the delivery of local services. As identified in the Economy and EmploymentSpace Study, 2009, interest in new employment space in the rural area is lowand opportunities are constrained by the Green Belt. Therefore, it is notproposed to allocate additional land for such uses. Any future demand foremployment space will be met through the retention and refurbishment ofexisting employment space and supporting the appropriate conversion of ruralbuildings in suitable locations to employment use. This includes culture andtourism uses (see Policy CS09) and the creation of live-work units wherethere is a reasonable proportion of work space. In assessing proposals,regard will be given to the sensitivity of the location and the impact on theopenness of the Green Belt.Offices5.1.23 The Council's approach to locating office employment is influenced by:• existing planning permissions and the desire to bring forwardsustainable mixed use developments, reducing the need to travel towork;• the identification of Ebbsfleet as a future sub-regional office location,with the potential to reduce out-commuting and to make more efficientuse of the rail network by encouraging reverse-commuting; and• recognition of the potential of Gravesend Town Centre as an officelocation, based on High Speed Rail and improved connectivity withLondon.5.1.24 The inclusion of office floorspace as part of the mixed use developmentof key sites included in the Opportunity Areas as set out in Table 6 above willtherefore continue to be supported.5.1.25 The location of proposals for new office development will be subject toa sequential test. In line with national policy, Gravesend Town Centre (asdefined on Figure 17 in Policy CS08) will be the sequentially preferredlocation for new office development.5.1.26 If suitable sites are not available in the Town Centre, the sequentiallypreferred location will be accessible sites that are on the edge of the Town117

Centre, along with those areas within 500 metres walking distance ofGravesend Railway Station and Ebbsfleet Station, before out of centrelocations will be considered. Ebbsfleet Station is supported as a sequentiallypreferable location after Gravesend Town Centre to reflect its sub-regionalimportance as an office location with a public transport hub.5.1.27 Proposals for new office development which lie outside the TownCentre and are not identified elsewhere in this Core Strategy, which exceed2,500 sq.m floorspace, will be subject to such an impact assessment in linewith national policy.Skills5.1.28 For local residents to take advantage of employment opportunities thatarise, it is important that they are equipped with the necessary skills.Conversely, it is important that economic growth is not constrained by the lackof a suitably skilled labour force. Recent investment in educational facilities inGravesham provide a foundation for the delivery of skills training and it isanticipated that further planned investment will result in the upgrading of anumber of other school premises. Therefore, the Council will continue tosupport the upgrading of educational and training facilities and will seek thedelivery of training initiatives through agreement with the developers of keysites (see Infrastructure Delivery Schedule in Appendix 4).Policy CS07: Economy, Employment and Skills5.1.29 In conjunction with the private sector and its regenerationpartners, the Council will seek to secure the delivery of a minimum 4,600new full-time equivalent (FTE) jobs in B class employment over the CoreStrategy period focusing on the provision of new employmentdevelopment as follows:• a major new B1 / office employment centre as part of a widermixed use sustainable development of Ebbsfleet;118

• office, industrial and warehousing facilities on Key Sites in theSwanscombe Peninsula and Northfleet Embankment OpportunityArea;• office development in Gravesend Town Centre as well as retail,culture and leisure (see policy CS05);• office, industrial and warehousing development on Key Sites inthe Gravesend Riverside East and North East GravesendOpportunity Area; and• office and light industrial development in the form of an enterprisecentre/incubation space on greenfield land South of ColdharbourRoad, Northfleet.5.1.30 Proposed office development will be directed in the first instanceto Gravesend Town Centre, and then to edge of centre locations,including sites within 500 metres walking distance of GravesendRailway Station and Ebbsfleet Station, in accordance with the NPPFsequential test. Only if suitable sites are unavailable in these locations,will consideration be given to out of centre locations.5.1.31 Proposals for office development exceeding 2,500 sq.mfloorspace which lie outside Gravesend Town Centre and are notidentified elsewhere in this Core Strategy, will be subject to an impactassessment in line with the NPPF.5.1.32 The Council will work with its partners to examine the potential ofSwanscombe Peninsula East to deliver additional employment-ledmixed use development subject to a comprehensive masterplanapproach.5.1.33 In considering development proposals, particular support will begiven to schemes incorporating small and flexible industrial and/oroffice workspaces of high quality intended to support the start-up andexpansion of small and medium sized enterprises. The Council will alsosupport the refurbishment and upgrading of existing industrial andcommercial premises and improvements in information and119

communications technology to facilitate more flexible working practicesand the changing economic needs of the Borough.5.1.34 Development resulting in the loss of B class employmentfloorspace will not be supported unless otherwise allowed for bypolicies set out in the Core Strategy or where:• the proposal will deliver at least an equivalent number of new jobson-site or elsewhere within the borough; or• the existing premises are no longer suited for employmentpurposes or are incapable of being made suitable at reasonablecost and it has been shown that there is no demand for themthrough an appropriate marketing exercise carried out inaccordance with Council guidance (appendix 6); or• the existing premises have an unacceptable environmental impacton the area within which they are situated and this is incapable ofreasonable mitigation or the environmental benefit that wouldarise for the existing use stopping would outweigh the potentialloss in employment.5.1.35 Development proposals facilitating the expansion of river-relatedemployment will be supported, particularly where these involve the useof the river for transport and/or provide specialist training or otherfacilities intended to support the continued use of the River Thames as amajor commercial waterway.5.1.36 The loss of existing commercial wharves and other land-sidesupporting infrastructure will not be supported unless it can be shownthat they are:• no longer suited for marine related employment purposes or areincapable of being made so at reasonable cost; and• it has been shown that there is no demand for them through anappropriate marketing exercise carried out in accordance withCouncil guidance (appendix 6).120

5.1.37 Exceptions will be made to this policy where sites have beenspecifically identified to support other regeneration objectives and theseare incompatible with the marine activity.5.1.38 The Council will support proposals that promote the appropriateexpansion and diversification of the rural area economy. Support will begiven to the conversion of rural buildings to employment use/live-workunits where it does not adversely affect the openness of the Green Beltand is consistent with AONB policy.5.1.39 The Council will work with its regeneration partners to enhanceopportunities for all local people to access the greater range of higherskilled jobs that will arise as a result of the policies above. Support willbe given to upgrading educational and training facilities and majordevelopment projects will be expected to contribute (either directly orthrough other agencies) towards the delivery of skills training, thepromotion of apprenticeships and work placements.5.2 Retail, Leisure and the Hierarchy of Centres5.2.1 A central component of sustainable development is the definition andreinforcement of a network and hierarchy of centres where people can accessshops and a range of other uses often found in town centres by all types oftransport. This means that all residents can have good access to shops andservices, and make choices about how they travel, given the opportunities towalk, cycle or use public transport instead of the private car.5.2.2 In conformity with the National Planning Policy Framework (NPPF),main town centre uses are defined as: retail development (includingwarehouse clubs and factory outlet centres); leisure, entertainment facilitiesand the more intensive sport and recreation uses (including cinemas,restaurants, drive-through restaurants, bars and pubs; night-clubs, casinos,health and fitness centres, indoor bowling centres, and bingo halls); offices;and arts, culture and tourism development (including theatres, museums,galleries and concert halls, hotels and conference facilities).121

5.2.3 This policy sets out the approach the Council will adopt in relation to themain town centre uses, except office development which is addressedseparately under policy CS07 on Economy, Employment and Skills, and arts,culture and tourism development under policy CS09 on Culture and Tourism.5.2.4 The NPPF states that planning policies should be positive and promotea competitive town centre lying at the heart of the local community. The needfor retail, leisure, office and other main town centre uses over the plan periodshould be met in full and should not be compromised by limited siteavailability. Below the town centre, the advice is to plan for the managementand growth of a resilient network and hierarchy of local centres. The NPPFrequires that a sequential test be applied. Large developments are required toundertake an impact assessment and the NPPF instructs local planningauthorities to refuse planning applications that fail to satisfy the sequential testor are likely to have a significant adverse impact on one or more of the abovefactors.The hierarchy and role of centres in Gravesham5.2.5 In Gravesham, priority will be given to Gravesend Town Centre as thepreferred location for new retail, leisure, entertainment facilities, and the moreintensive sport and recreation uses. The focus on Gravesend Town Centre isset in the context of the sub-regional hierarchy of centres contained in theSouth East Plan (2009). This establishes the role of Chatham (also a centrefor significant change) and Maidstone as Primary Regional Centres.Gravesend and Dartford are Secondary Regional Centres. Bluewater istreated separately as a specialist comparison Regional Shopping Centre,located out-of-centre and not forming part of the hierarchy of traditional towncentres. This status is confirmed in the Dartford Core Strategy 2011.5.2.6 The South East Plan reflects the existing outline planning permission forEbbsfleet, in allowing for the creation of new local centres, at SpringheadQuarter and Northfleet Rise in Gravesham, which provides supporting retail,leisure and service functions to meet the needs of the resident and daytimepopulation. It remains unclear what form or scale this will ultimately takebecause the retail element will be subject to impact assessment. On-going122

discussions with Dartford Borough Council and the developers will be neededto ensure that these new centre are delivered in a form compatible with bothauthorities' Core Strategy policies and retail capacity, and will depend on thescale and nature of the development that actually occurs.5.2.7 The Council's approach to the planning of Gravesend Town CentreOpportunity Area to ensure it develops as a multi-functional heritage riversidetown. In support of this the Council has defined the extent of the Town Centreas shown on Figure 17 below. Within the Town Centre, in line with therecommendations of the Gravesham Retail Study Update (2012) the Councilwill seek to improve its comparison retail offer as part of the mix of uses,focusing in particular on providing new larger scale units (250 - 500 sq.m)suitable to accommodate national multiple retailers of fashion goods. This isseen as part of a wider strategic approach that also supports thediversification of uses in the town centre; enhancing its cultural/leisure andservice functions; strengthening the independent retail sector, ascomplementary to the offer of national multiples; and improving consumerchoice in the offer of convenience goods.Local Centres5.2.8 Under Gravesend Town Centre, a network of local centres provide retailshops and services such as post offices, petrol stations and public houses,which enable local communities to meet their everyday needs. In somelocations, such as the smaller villages, a lone shop may be the only facility forpeople to meet their day-to-day retail needs. It is important that these centresand lone village shops are protected and their role and function are retainedand enhanced as opportunities arise so that they continue to maintain theirability to perform this function. Proposals for new development will thereforebe encouraged which are appropriate to the centre's size and the localcatchment area and where they safeguard the retail character and function ofthe centre. Over the Plan period the network of local centres will change.Development of the key sites will create a need for new and expanded localcentres to meet the everyday needs of the new residents and the daytimepopulation in these areas.123

5.2.9 The local centres are identified on the Policies Map. These centres andtheir boundaries will be reviewed through the Site Allocations andDevelopment Management Policies DPD.The scale of retail and leisure development to be accommodated5.2.10 The likely scale and form of retail and leisure development that mayneed to be accommodated over the Local Plan period has been consideredthrough the: Gravesham Retail and Commercial Leisure Study (2009);Gravesham Retail and Commercial Leisure Study Addendum (2010); andGravesham Retail Study Update (2012). These retail floorspace projectionshave been further modified to ensure consistency of approach with planneddevelopment in the adjoining areas of Dartford and Medway 17 .Table 5: Summary of quantitative retail need2028 Sq.mComparison goods - net sq.m 16,660Comparison goods - gross sq.m 22,210Convenience goods - net sq.m 1,620Convenience goods -gross sq.m 2,180Total - net sq.m 18,280Total - gross sq.m 24,390Source: Retail and Commercial Leisure Background Paper5.2.11 These figures should not be taken as imposing a ceiling on themaximum amount of retail floorspace that can be built. The planning systemdoes not exist to constrain growth, competition or consumer choice, rather topromote sustainable development through the application of the NPPFsequential approach and impact testing. The actual phasing and delivery ofretail floorspace will therefore be subject to market demand and detailed17 Retail and Commercial Leisure Background Paper124

justification at the time of application, where qualitative as well as quantitativefactors may be material considerations.5.2.12 In accordance with the recommendations of the Gravesham RetailStudy Update (2012), no separate allowance is made for retail warehousetype development. Such proposals will be assessed on a case-by-case basis,with the presumption that comparison retail should be accommodated in linewith general policy unless it can be demonstrated that it is not possible to sellthe intended range of goods in a normal 'High Street' format. Where the caseis made for retail in the 'warehouse' format and no sequentially preferable siteis available in accordance with the policy set out below, the Council'spreferred option is that such development should be directed to the ImperialRetail Park or sites immediately adjoining where linked trips to the town centrecan be facilitated.5.2.13 Whilst the Gravesham Retail and Commercial Leisure Study (2009)also considers the potential for attracting new commercial leisuredevelopment, the lack of an industry standard approach to identify futureneeds makes it difficult to recommend levels or forms of provision. Growth inleisure expenditure over the plan period may mean that there is scope for newfacilities such as a new cinema; new branded/family restaurants and cafes, inlarge well located modern units; and new health and fitness facilities.5.2.14 However, the existing outline planning permissions for Ebbsfleet as awhole, not just within Gravesham, and Eastern Quarry include over 40,000gross sq.m commercial leisure floorspace and this has the potential tocompete directly with any new facilities provided in Gravesend Town Centre.Whilst the proposals for Heritage Quarter may include provision forbranded/family type restaurants, the absence of current market interest incinema or other commercial leisure provision precludes the allocation of sitesfor such uses at this stage (See also policy CS09 Culture and Tourism).125

Sequential Test and Impact Assessment5.2.15 The Council requires main town centre uses to be located in theBorough's town and local centres in a form and scale appropriate to theposition of the centres in the hierarchy and their character.5.2.16 Within Gravesend Town Centre, the Council has defined a PrimaryShopping Area (PSA) as shown on Figure 17, on the basis of where retaildevelopment is currently concentrated. The Primary Shopping Area asdefined is the area where retail development is concentrated (generallycomprising the primary and those secondary frontages which are adjoiningand closely related to the primary shopping frontage). The primary andsecondary frontages will be defined in the Site Allocations and DevelopmentManagement Policies DPD.5.2.17 In order to strengthen the vitality and viability of the Town Centre andmaintain its role in the sub-region, the Council will direct new retaildevelopment to the Primary Shopping Area, as its' sequentially preferredlocation for such uses, and then sites on the edge of the Primary ShoppingArea. If suitable sites are unavailable in these locations or the Borough's othercentres, out of centre locations will be considered.5.2.18 Where a case is made for retail in the 'warehouse' format and nosequentially preferable site is available, the Council's preferred option is thatsuch development should be directed to the Imperial Retail Park or sitesimmediately adjoining where linked trips to the town centre can be facilitated.5.2.19 Proposals for any of the main Town Centre uses on sites which lieoutside the Town Centre, as shown on Figure 17, and are not identifiedelsewhere in this Core Strategy, which exceed 2,500 sq.m floorspace, will besubject to such an impact assessment in line with national policy.Indicative distribution of new retail development5.2.20 Whilst the Primary Shopping Area is the Council's sequentiallypreferable location for new retail development, it is recognised that there areinsufficient sites available within the Primary Shopping Area to accommodate126

the total need for retail development over the Plan period. The HeritageQuarter key site, located adjacent to the Primary Shopping Area, is theCouncil's sequentially preferred location for new larger scale retail provision.This site enables the Council to meet the need for new retail floorspace whichis well connected to the existing St George's Centre, the Thamesgate Centreand New Road. The comparison retail element will be focused on HeritageQuarter West and a mix of retail and other uses (including branded/familyrestaurants) in Heritage Quarter East.5.2.21 Further allowances are made in Table 7 below for retail development tobe accommodated within the town centre on sites with existing planningpermission or other sites suitable for such uses. These include the LordStreet/Parrock Street open air car park sites. Lord Street car park lies in theTown Centre and Parrock Street lies on the edge of centre, in terms of theCouncil's sequential approach.5.2.22 The remaining identified capacity for retail development includes othersites with planning permission in opportunity areas outside the town centre,where it is intended to create or expand existing local centres. The figuresused are based on assumptions regarding the comparison/conveniencegoods mix and the ratio of retail to other permitted uses. Further informationon this is contained in the Retail and Commercial Leisure Background Paper.5.2.23 It should be noted that the figures in Table 7 below are indicative andare intended to show that sufficient sites are available to meet identified retailneeds in full over the plan period and that this is not compromised by limitedsite availability.127

Table 7: Guideline distribution of retail development to meet fullquantitative need over Core Strategy periodConvenienceGoodsComparisonGoodsnet sq.m net sq.mGravesend Town Centre OpportunityArea- 15,900Ebbsfleet Valley Opportunity Area 1,690 1,120Northfleet Embankment andSwanscombe Peninsula East400 -Opportunity AreaGravesend Riverside East and NorthEast Gravesend Opportunity Area300 -Total 2,390 17,020Combined Total 19,4105.2.24 As a result of the uncertainty regarding future requirements for leisure,entertainment facilities and the more intensive sport and recreation usesrequiring a town centre site, no strategic site allocations have been included inthis Core Strategy but, if identified, it will be considered in subsequent DPDs.128

Figure 17: Gravesend Town Centre Plan129

Policy CS08: Retail, Leisure and the Hierarchy of Centres5.2.25 The Council will seek to reinforce a sustainable network andhierarchy of centres by maintaining the sub-regional role of GravesendTown Centre; protecting and enhancing existing local centres, as shownon the Policies Map, and creating additional local centres to meet localretail needs generated by new development on key sites. In support ofthis the Council will:• a) apply a sequential approach to the location of main town centreuses;• b) require an impact assessment of larger retail and leisuredevelopment;• c) support development of a scale and type appropriate to theposition of the centres in the hierarchy and their character;• d) safeguard the retail character and function of existing and newcentres by resisting development that would adversely affect theirvitality and viability, and protect lone village shops; and• e) encourage the provision of a mix of units includingopportunities for small shops and independent traders in allcentres.Gravesend Town Centre*5.2.26 Gravesend Town Centre will be maintained as the highest ordercentre within the borough and retail, leisure, entertainment facilities andthe more intensive sport and recreation uses will, unless otherwiseallowed for under this policy, be directed as follows:• The Primary Shopping Area as shown on the Policies Map will bethe sequentially preferred location for new retail developmentfollowed by edge-of-centre sites and then out-of-centre sites;• The area within the Town Centre (inclusive of the PrimaryShopping Area) as shown on the Policies Map will be thesequentially preferred location for leisure, entertainment facilities130

and the more intensive sport and recreation uses, followed byedge-of-centre sites and then out-of-centre sites.5.2.27 Proposals for retail development (around 7,340 sq.m (NIA) retailfloorspace (primarily A1 comparison floorspace) and up to 1,591 sq.mfood and drink floorspace (use classes A3, A4 and A5)), outside theprimary shopping area will be supported at the Heritage Quarter key sitewhere it can be demonstrated that the need cannot be met in theexisting Primary Shopping area and there are good / clear pedestrianlinks to the existing primary shopping area to facilitate circulationbetween New Road, the areas east and west of the High Street, and theriverfront.5.2.28 Where a case has been made for large format retail/commercialleisure development and no suitable sites can be identified following theapplication of the sequential approach set out above, the BoroughCouncil will support development in the West of Town Centre sub-area(3.2) as its preferred out-of-centre location for such development.New and expansion of existing local centres5.2.29 Proposals for new local centres and the expansion of existingcentres listed will be supported where they are of a scale and formdesigned to meet local needs arising from associated planned newdevelopment:• Springhead Quarter Key Site, Ebbsfleet• Northfleet Rise Quarter Key Site, Ebbsfleet• Old Northfleet Residential Extension Key Site (as extension to TheHive Local Centre)• Northfleet Embankment East Regeneration Area Key Site• Canal Basin Regeneration Area Key Site131

Impact testing5.2.30 Retail proposals outside the Primary Shopping Area, exceeding2,500 sq.m floorspace, will be subject to an impact assessment inaccordance with national policy.5.2.31 Proposals for leisure, entertainment facilities and the moreintensive sport and recreation uses outside the Town Centre, exceeding2,500 sq.m floorspace, will be subject to an impact assessment inaccordance with national policy.* The Town Centre Plan (Figure 17 above) defines the Primary ShoppingArea and the Town Centre boundary on the basis of the current usesand commercial activity. In applying this policy, the following definitionswill apply:Edge-of-Centre: For retail purposes, a location that is well connectedand up to 300 metres walking distance of the Primary Shopping Areaand, for leisure, entertainment facilities and the more intensive sportand recreation uses, a location within 300 metres walking distance ofthe Town Centre boundary.Out-of-Centre: A location which is not in or on the edge of a centre butnot outside the urban area.5.3 Culture and Tourism5.3.1 Cultural facilities provide for the pursuit of leisure, recreation, sport, artsand music activities and include a range of uses that add greater diversity tothe cultural scene. Tourism facilities fulfil a similar role and are intended toattract both day trippers and staying tourists to the Borough. Cultural andtourism facilities include museums, theatres, cinemas, restaurants, historicsites, parks and tourist accommodation (e.g. hotels, bed and breakfastaccommodation). Such facilities are important to the health and wellbeing ofthe Borough's residents and visitors. They also make a significant contributionto the local economy.132

5.3.2 Culture should therefore be seen as wide-ranging and cuts across avariety of other policies set out in this Local Plan. This policy focuses primarilyon aspects relating to arts, cultural and tourism development. Leisure,entertainment and the more intensive sport and recreation uses are dealt withseparately under policy CS08 on Retail, Leisure and the Hierarchy of Centres.Green Infrastructure is dealt with under policy CS12 and Greenspace, Sportand Recreation under policy CS13. Heritage and the Historic Environment aredealt with under policy CS20.5.3.3 Whilst Gravesham has many cultural connections (including thoserelating to the iconic figures of Charles Dickens and Pocahontas) it is themulti-cultural nature of the local community that serves to distinguish it frommany of the surrounding towns. Around 10% of the population hasconnections with India (predominantly the Punjab) and this is reflectedthroughout the life of the borough and in particular by the recent constructionof the new Siri Guru Nanak Darbar Gurdwara - one of the largest Sikhtemples in Europe. However, these connections with India are far older asGravesend was one of the centres of operation of the East India Company,with its ships sailing from here during the 18 th and 19 th centuries.5.3.4 In terms of the physical environment, Gravesham has a number ofcultural and tourism assets upon which activity in this area can be developed.These include:-• Heritage, e.g. Gads Hill Place (home of Charles Dickens and proposedlocation for a new visitor centre), the Chantry Heritage Centre, CobhamHall and Park;• Defence Heritage, e.g. Gravesend Blockhouse, New Tavern Fort,Shornemead Fort, and the Woodlands Park Cold War Bunker;• River, e.g. Town Pier (oldest cast iron pleasure pier in the world) withits recently constructed pontoon to allow visiting boats, including forleisure trips, and operation of the Gravesend -Tilbury Passenger Ferry• Rural recreation, e.g. the Saxon Shore Way and Wealdway longdistance paths, Thames and Medway Canal, Shorne Woods CountryPark, Jeskyns Community Woodland, and Cyclopark;133

• Entertainment, e.g. The Woodville, recently improved to allow theshowing of films thereby reintroducing cinema into Gravesend;• Tourism, e.g. the award winning Towncentric tourist and informationcentre, close to St George's Parish Church, Gravesend and the burialplace of Princess Pocahontas.5.3.5 The Borough further benefits from having a unique setting on theThames Riverside as well as access to the scenic countryside and historicvillages of the Kent Downs. Easy access facilitated by high speed trainservices and the close proximity of Ebbsfleet International Station also has thepotential to increase the number of visitors to the Borough.5.3.6 The National Planning Policy Framework (NPPF) recognises theimportance of cultural well-being to providing strong, vibrant and healthycommunities. It also states that people's quality of life can be positivelyimproved by improving the conditions in which people take leisure. The NPPFrequires the planning system to deliver sufficient community and culturalfacilities and services to meet local needs. It also seeks to support sustainablerural tourism that benefits rural businesses, communities and visitors, andwhich respects the character of the countryside. This includes support for theprovision and expansion of tourist and visitor facilities in appropriate locationswhere needed.5.3.7 The NPPF includes arts, culture and tourism development (includingtheatres, museums, galleries and concert halls, hotels and conferencefacilities) amongst main town centre uses. A sequential approach should beapplied to such development, giving priority in the first instance to town centrelocations before edge-of-centre and then out-of-centre sites.5.3.8 The Council seeks to increase the contribution of tourism to the localeconomy and to encourage a vibrant environment within which the arts,culture and the Borough's heritage can flourish 18 . This is reflected in theTourism Strategy for Gravesham. This Strategy recognises the need topromote the Borough's qualities, assets and visitor attractions. It also seeks tomaximise opportunities for expanding the visitor economy as a result of18 Gravesham Borough Council Corporate Business Plan 2011-2015134

egeneration and growth in the area. It further seeks an improvement in thequality and an expansion of visitor accommodation in the Borough through:• new hotel development with proximity to the town centre and riversideor close to the A2;• encouraging new bed and breakfast start-ups; and• investigating the expansion of other forms of visitor accommodation.5.3.9 The Tourism Strategy indicates the potential for cruise liner provision tohelp bring visitors into the Borough and this is supported through policy CS11Transport.5.3.10 Furthermore, the Council's draft Cultural Strategy 2008 sets out to:• ensure an appropriate range and distribution of high quality cultural andleisure facilities across the Borough; and• make the area more attractive to incomers and also as a touristdestination.5.3.11 The evidence suggests that there is scope for new branded/familyrestaurants and cafes and a new cinema, either a small multiplex or anarthouse/independent cinema, in Gravesend town centre and at Ebbsfleet 19 . Italso suggests that there is a case for providing a combined GraveshamMuseum and Visitor Centre, ideally in the heart of Gravesend town centre 20 .Studies also indicate that Gravesham could experience a significant increasein demand for hotel accommodation. This could be met by new 3 or 4 starhotels at Ebbsfleet and by new budget and 3 star hotels in Gravesend,particularly in the town centre and close to the A2/arterial routes 21 .5.3.12 Clearly there are opportunities to improve Gravesham's cultural andtourism offer but the lack of specific deliverable projects makes it difficult to bemore definitive at the current time. The installation of new projectionequipment at The Woodville and art house type cinema showings at the OldTown Hall assist in meeting demand for cinema in Gravesham whilst anyneed for branded/family restaurants is dealt with under policy CS08. The19 Retail and Commercial Leisure Study 200920 A Museum for Gravesham – Feasibility Study 201021 Gravesend Hotel Market Fact File 2011 and Kent Thameside Hotel Futures Study 2007135

value of a museum facility to the town is recognised but what form it mighttake, its focus, and how it might be delivered and run has not beendetermined.5.3.13 Hotels are also a difficult issue in that whilst they are classified as a'main town centre use', their location is often dictated by their function and themarket they are designed to serve. The Ebbsfleet planning permission(GR/1996/0035) allows for hotel development as part of the mix whilst outlineplanning permission has also been granted (GR/2011/0398) for a 60 bed hoteladjacent to the A2 at Coldharbour Road, Northfleet. Notwithstanding this, theCouncil would still wish to see the town centre as a focus for new visitoraccommodation in line with national policy and to support its role as anexpanded business centre and tourist destination. The potential to includehotel accommodation as part of the Heritage Quarter development has beenidentified under policy CS05 Gravesend Town Centre Opportunity Area.5.3.14 The policy set out below seeks to protect existing cultural and tourismfacilities and to enable the provision of new and enhanced facilities to servethe needs of the Borough's residents and visitors and to maximiseopportunities from an expanding visitor economy. It also recognises the valueof multi-culturalism in the Gravesham context and the importance ofsupporting the cultural needs of different sections of the local community.Whilst Gravesend town centre and the local centres are the sequentiallypreferred location for arts, culture and tourism development, new smallerscale facilities will also be supported in other locations where they relate tothe location or meet immediate local needs and will not have unacceptableimpacts, for example in terms of residential amenity and traffic generation.5.3.15 Other policies in the Core Strategy, in particular Policies CS12 GreenInfrastructure, CS13 Green Space, Sport and Recreation and CS20 Heritageand the Historic Environment, seek to protect and enhance the Borough'simportant assets which make it attractive to residents and visitors.136

Policy CS09: Culture and Tourism5.3.16 The Council will seek to maximise opportunities for expansion inculture and tourism activity derived from its heritage and greeninfrastructure assets, its diversity as a multi-cultural community andfrom regeneration and growth in the area. , This will include support forgreater use of the river; capitalizing on the benefits of high speed trainservices; the appeal of Gravesend as a heritage riverside town; and thedevelopment of Ebbsfleet as a new business district and transport hub.In particular, the Council will:• seek to protect and support improvements to existing cultural andtourist facilities;• subject to the application of the sequential approach set outbelow, support the provision of new cultural and tourist facilitiesappropriate to their location and accessibility; and• support proposals that are designed to meet the diverse needs ofGravesham as a multi-cultural community; and• support sustainable rural tourism and leisure developments thatbenefit rural businesses, communities and visitors where it doesnot adversely affect the function of the Green Belt and isconsistent with AONB policy.5.3.17 Unless otherwise justified on the basis of a locational connection,functional justification or a requirement to meet smaller scale localneeds, proposals involving arts, culture and tourism development willbe directed in the first instance to Gravesend Town Centre as thesequentially preferred location for such development in advance ofedge-of-centre and then out-of-centre sites*.5.3.18 * For the purposes of applying this policy, Gravesend TownCentre is represented by the Town Centre on Figure 17: Town CentrePlan and on the Policies Map. Edge-of-centre is defined as a locationthat is well connected and up to 300 metres walking distance of theTown Centre boundary. Out-of-Centre is defined as a location that is notin or on the edge-of-centre but not outside the urban area137

5.4 Physical and Social Infrastructure5.4.1 It is important that sufficient infrastructure is provided to meet the needsof existing and new residents, employees and businesses within the Borough.Facilities such as GP surgeries, schools and libraries play an important role inproviding for the health, welfare, social, educational and spiritual needs of thecommunity. Such facilities can add vibrancy to communities, provide a focusfor activities, foster community spirit and contribute to the quality of life formany residents. They can also provide an essential service to communities.The loss of such facilities can have adverse consequences in terms ofaccessibility to services locally, and can lead to unsustainable travel patterns.It is also important to address existing deficiencies in services. At the sametime, planning for infrastructure is being carried out when there areuncertainties over future service delivery models and future funding decisionsby national government.5.4.2 This section specifically deals with physical and social infrastructure.The policy requirements in relation to Green Infrastructure and Green Space,Sport and Recreation are dealt with under Core Policies CS12 and CS13.5.4.3 Gravesham Borough has benefited from significant investment ininfrastructure in recent years. It has a relatively new police station andcommunity hospital as well as a walk-in health centre. Four of its eightsecondary schools received Building Schools for the Future funding whichmeant that their premises could be refurbished or rebuilt. North West KentCollege was redeveloped to provide better facilities. Implementation of theFastrack Bus Rapid Transport System began and aims to provide a highquality, attractive public transport system linking major existing and newdevelopments. Residents, employees and businesses also now benefit fromthe introduction of High Speed 1 train services from Gravesend to London andfrom Ebbsfleet to London and the continent. This front-loading ofinfrastructure has provided capacity for growth in the area.5.4.4 The provision of infrastructure is recognised as an important part of newdevelopment in the National Planning Policy Framework (NPPF). It requireslocal planning authorities to work with other authorities and providers to138

assess the quality and capacity of infrastructure for transport, water supply,wastewater and its treatment, energy (including heat), telecommunications,utilities, waste, health, social care, education, flood risk and coastal changemanagement, and its ability to meet forecast demands. It states that LocalPlans should identify priority areas for infrastructure provision and should planpositively for the infrastructure required. This needs to be realistic, taking intoaccount development costs and viability.5.4.5 The Council has identified requirements for infrastructure over the planperiod to support the delivery of the Core Strategy. This has been achieved byengaging with service providers and consulting their plans where relevant,e.g. NHS West Kent Estates Strategy and Strategic Service DevelopmentPlan 2010, and the Draft Commissioning Plan for Education Provision in Kent2012. An Infrastructure Delivery Schedule has been produced which sets outthese requirements. It shows how infrastructure will be funded, who willprovide the infrastructure and when it will be provided. It is a 'living' documentwhich will be kept under review and updated when new information becomesavailable. Enhancing capacity at the A2 Ebbsfleet junction is essential to thedelivery of development at Ebbsfleet and Eastern Quarry, developmentswhich will take place across both Gravesham and Dartford Boroughs and notexplicitly as a result of development in Gravesham. A range of otherinfrastructure such as primary schools and health facilities will also berequired to ensure that new and existing developments are properlyintegrated and that new residents will have access to essential services.5.4.6 The Council has previously identified the need for more burial space inthe Borough, possibly through the provision of a new site 22 . This CoreStrategy does not identify a site for this but the Council will work with serviceproviders to find a suitable site for potential allocation in the Site Allocationsand Development Management Policies DPD, taking into account the policiesin this Core Strategy.22 Future Requirements in Relation to Cremation and Burial Facilities Draft Report December2009139

5.4.7 Development viability modelling work has been carried out for thevarious housing markets in Gravesham 23 . This shows that there aredevelopment viability issues in the areas of the Borough proposed fordevelopment, particularly regeneration sites in the Gravesend / Northfleeturban area. The viability of development largely depends on: the amount ofremedial work which needs to be carried out; the density of development; andthe amount of affordable housing sought. Development viability will be takeninto account when setting out the infrastructure required from newdevelopments.5.4.8 Section 106 of the Town and Country Planning Act 1990 allows localauthorities to enter into a legally binding agreement, or planning obligation,with a person with an interest in the land in order to make a developmentacceptable before planning permission is granted. These agreements areincreasingly used to support the provision of services and infrastructure wheredevelopments create additional demands for infrastructure, such astransportation, education, health and affordable housing (see policy CS16 foraffordable housing requirements). They must be:• necessary to make the development acceptable in planning terms;• directly related to the development; and• fairly and reasonably related in scale and kind to the development.5.4.9 The Government has introduced regulations which allow local planningauthorities to charge developers a Community Infrastructure Levy (CIL). Thisis a standard, locally set charge which is intended to provide infrastructure tosupport the development of an area. Its purpose is to provide greatertransparency and certainty to developers about the amount of money they willbe expected to contribute. There will still be a role for planning obligations tobe used for site specific mitigation measures.5.4.10 The Council's strategy is to seek the retention of existing facilitieswherever possible. It will also work in partnership with infrastructure providersto address existing deficits in provision. This may be achieved through makingbetter use of existing facilities. To ensure that infrastructure is provided to23 Affordable Housing Viability Study February 2010140

meet the needs arising from new development, the Council will requiredevelopers to provide or make contributions towards the timely provision ofinfrastructure taking into account the viability of development. This will beachieved through consultation with service providers and negotiations withdevelopers on a site by site basis. It will also be achieved through theintroduction of CIL.Policy CS10: Physical and Social Infrastructure5.4.11 Support will be given to proposals and activities that protect,retain or enhance existing physical and social infrastructure, or lead tothe provision of additional infrastructure that improves community wellbeing.Where there is the threat of loss of existing infrastructure,consideration will be given to whether sufficient alternative provision isavailable.5.4.12 Where new development leads to the need for new or improvedphysical or social infrastructure, developers will be required to provideor contribute towards this subject to viability considerations. Suchinfrastructure will be put in place in a timely manner to support newdevelopment. All new development should make the most efficient useof new and existing infrastructure.5.5 Transport5.5.1 Transport policy is a means to of achieving the overall regeneration anddevelopment objectives set out in the Core Strategy and the delivery of asustainable pattern and form of development that assists in combating climatechange. The challenge is to meet the additional transport requirements as aresult of new development in the Borough and to address existing transportissues whilst remaining an attractive and accessible place to live, work andvisit and to do business. Despite this, it is recognised that as a result ofnatural growth in traffic and new development congestion will increase 24 .24 Kent Thameside Development of the Transport Strategy – Technical Summary Report(Final Draft) October 2008141

5.5.2 The National Planning Policy Framework (NPPF) requires local planningauthorities to support a pattern of development which facilitates the use ofsustainable modes of transport, i.e. public transport, walking and cycling.Developments that generate significant movement should be located wherethe need to travel will be minimised and the use of sustainable transportmodes can be maximised. Such proposals should be supported by aTransport Assessment and a Travel Plan. The NPPF further advises localplanning authorities to identify and protect sites and routes which could becritical in developing infrastructure to widen transport choice.5.5.3 Policy CS02 on the Distribution of Development sets out the broadlocation of future development in the Borough over the plan period. The CoreStrategy seeks to:• locate new mixed use development in areas with best access toservices and facilities which minimise the need to travel, particularly bycar;• improve the local economy to reduce the need for out-commuting. Thiscan also have an impact on air quality;• support and where possible provide alternatives to help support amodal shift away from car based transport, e.g. improve publictransport including bus, train, cycling and walking provision, and theincreased use of water based transport; and• ameliorate the implications of additional traffic for air quality.5.5.4 Policy CS10 relating to Physical and Social Infrastructure sets out thegeneral approach to infrastructure and outlines the requirement fordevelopment to provide or contribute towards infrastructure to meet the needsarising from new development. The Infrastructure Delivery Schedule sets outthe requirements for infrastructure over the plan period to support the deliveryof the Core Strategy including transport schemes where known.5.5.5 In Gravesham, Kent County Council is the transport authority and theHighways Agency is responsible for the A2/M2 trunk road. The LocalTransport Plan for Kent 2011-16 sets out Kent County Council's Strategy andImplementation Plans for local transport investment. This document was142

informed by the draft Kent Thameside Transport Strategy Technical SummaryReport 2008. It should be noted that it was produced at a time whenGravesham was planning to meet the South East Plan growth scenario ratherthan its own housing and employment needs as is now proposed.5.5.6 The Urban Baseline Study prepared for Gravesham Borough Council in2010 evaluated opportunities and constraints at Gravesend and Northfleetriverside, Gravesend town centre, Ebbsfleet and Northfleet. In terms ofaccess, it found that:• Gravesend and Northfleet riverside is a major asset but the riversidewalk is currently discontinuous and there is poor accessibility at somekey access points;• Ebbsfleet station surroundings have low legibility and poor spatialaccessibility;• Ebbsfleet and Gravesend are well connected by Fastrack and trainsbut the route has poor environmental quality for pedestrians andcyclists;• Northfleet station has close proximity to Ebbsfleet station but iscurrently hidden from the main roads;• the routes from Northfleet towards Ebbsfleet station are dominated byvehicular traffic and have poor legibility, environmental conditions andaccessibility; and• the routes towards the riverside are hindered by large industrial blockswith inactive frontages.5.5.7 The above documents are referred to where relevant in the sectionsbelow.Transport Hubs5.5.8 The Council considers that Gravesend town centre provides an existingtransport hub of Borough-wide significance. It is the main destination / originfor bus services operating in the Borough, has conventional and high speedtrain services to London, a taxi rank and it provides car parking for thosewishing to access the shops and services in the town centre. Currently, bus143

services serve different locations in the town centre and some stops arepoorly related to the railway station. There are plans for an integratedtransport interchange at Garrick Street/Barrack Row which would involve theprovision of a bus interchange immediately adjoining the railway station. Thisis supported through Policy CS05 on Gravesend Town Centre.5.5.9 The South East Plan identifies Ebbsfleet as having the opportunity tocreate a new transport hub of regional significance based around theinternational rail station and its associated development. This hub could bedeveloped by giving priority to measures that increase the level ofaccessibility by public transport, walking and cycling and to the developmentof high quality interchange facilities between all modes of transport.Walking and Cycling5.5.10 It is important to ensure that walking and cycling is the first choice oftransport for people for short journeys in the Borough for functional (e.g. work,school) and leisure purposes as they are the most sustainable forms oftransport. This helps to reduce congestion and improve air quality. It alsomakes a significant contribution to the health and wellbeing of the Borough'sresidents, workers and visitors.5.5.11 Policy CS12 on Green Infrastructure seeks to create, protect andenhance a multifunctional linked network of green spaces, footpaths, cycleroutes and wildlife stepping stones and corridors, i.e. a green grid. Thenetwork will seek to improve access within the urban area, from the urbanarea to the rural area and along the River Thames for leisure and sustainabletravel purposes. This includes support for a Thames Estuary Path for walkersand cyclists.5.5.12 There is an aspiration for a dedicated pedestrian link betweenNorthfleet and Ebbsfleet stations to allow connections to be made betweentraditional rail services and high speed and international rail services 25 as wellas existing and proposed communities. The Urban Baseline Studyrecommends the provision of pedestrian-oriented and active urban25 Local Transport Plan for Kent 2011-16 and Kent Route Utilisation Strategy 2010144

connections between these stations. The Council supports this as it wouldhave the additional benefit of providing improved links between existingcommunities at Northfleet and the new communities at Ebbsfleet. It wouldalso enhance the Ebbsfleet transport hub.5.5.13 Opportunities will be taken to improve walking and cycling facilities andnetworks throughout the Borough. These should aim to provide access to theGravesend town centre and Ebbsfleet transport hubs and to other facilitiessuch as local centres, parks and schools. Where appropriate, developmentswill be expected to make appropriate provision towards these.Bus, Train and Coach Transport5.5.14 There is a frequent and extensive bus network serving the urban area.The developing Fastrack Bus Rapid Transport System forms part of this. Itprovides a high quality attractive public transport linking Gravesend towncentre with Ebbsfleet, Bluewater, Darent Valley Hospital and Dartford. Thebus service in the rural area is less extensive though there are regularservices along the A226 towards the Medway Towns and the A227 towardsBorough Green and Sevenoaks. Limited development in the rural area isunlikely to provide a catalyst for improved bus services serving this part of theBorough.5.5.15 The Council seeks to facilitate and encourage further use of publictransport. Therefore it will work with Kent County Council, other partners andtransport operators to enhance the bus network. This will include maintainingsegregation lanes and bus priority measures for Fastrack and other busservices. The Council will also require developers of the key sites to providelinks to the bus network, including the provision of routes through the siteswhere appropriate. The requirements are outlined in the Opportunity Areapolicies.5.5.16 There are good train links to London from five stations on twotraditional lines in the Borough. Services from Gravesend have recently beenimproved by the introduction of high speed train services which use the high145

speed line. There are also direct links to the continent from nearby EbbsfleetInternational Station.5.5.17 The Kent Route Utilisation Strategy (2010) produced by Network Railsets out future plans for the railway network in the Borough. This indicatesthat there is heavy loading on peak hour trains to London as a result ofcommuter demand in Kent. Further investment is committed with aremodelled station at Gravesend and platform extensions at Gravesend andNorthfleet stations to accommodate 12-car trains by 2014.5.5.18 Crossrail is a cross-London rail connection. In 2017, this will giveaccess from Heathrow and Maidenhead in the west to Abbey Wood (whichlies on the traditional railway line between Gravesend and London) in theeast. There is the possibility of the future extension of Crossrail from AbbeyWood to Gravesend to help address future peak capacity issues. The PoliciesMap shows the land which is safeguarded for this, including facilities at HooJunction.5.5.19 The Council will support proposals to improve train services andfacilities in the Borough, including the extension of Crossrail to Gravesend.5.5.20 There is a significant level of commuting to London by coach from theBorough, although these services are vulnerable to traffic congestionparticularly in London. The coaches currently use routes which go through theurban and rural areas and this coach network reduces the need for carjourneys.Freight and River Transport5.5.21 The Freight Action Plan for Kent 2012-16 indicates that Kent CountyCouncil supports the expansion of the rail freight industry and particularly thetransfer of freight from road to rail. It also supports the transfer of freight fromroad to waterways. Transportation of freight by water and rail has a number ofadvantages over transportation of freight by road including reducing carbon,noise pollution and congestion. The reinstatement of the rail freight sidings atNorthfleet and heavy rail connection from the North Kent line into theNorthfleet Cement Works Regeneration Area (see section on Northfleet146

Embankment and Swanscombe Peninsula East Opportunity Area) indicatesthat there are opportunities for providing multi-modal alternatives to roadtransport for the movement of freight in the Borough. The Borough Councilsupports the transfer of freight from roads to waterways and railways.5.5.22 Gravesham's location on the River Thames means that river transporthas historically been important. There are a number of deep water wharveson the riverside at Gravesend and Northfleet. The emerging Kent Mineralsand Waste Development Plan proposes that a number of strategic wharves inGravesham are safeguarded, protecting them from development which couldprejudice their future use for minerals importation. There are also a number ofsmaller wharves in the Borough. The safeguarding of wharves is supported bythe Borough Council in general terms to enable river freight handling and toreduce dependence on road and rail freight transport. However, the BoroughCouncil considers that a more flexible approach to Red Lion Wharf is requiredto enable the key regeneration objectives for Northfleet Embankment EastRegeneration Area to be achieved. The policy on Northfleet Embankment andSwanscombe Peninsula East Opportunity Area gives priority to theregeneration of Northfleet Embankment East Regeneration Area over theexisting use.5.5.23 Gravesend's Town Pier has been restored and a pontoon has recentlybeen installed. The regular passenger ferry service across the river fromGravesend to Tilbury now operates from the new pontoon. It is recognisedthat there may be opportunities to further develop river based transport toprovide longer distance passenger services to the Docklands and centralLondon and to provide greater opportunities for leisure trips. The Council willsupport such proposals.5.5.24 The Council's Tourism Strategy (2009) indicates that there is potentialfor cruise liner provision on the Gravesham stretch of the Thames to helpbring visitors into the area which would further improve the local economy.The Council will support provision for cruise liners in the Borough.147

Road Transport5.5.25 The Borough has benefitted from recent investment in a number ofroad schemes. This includes the realignment and widening of the A2 to 4lanes, the opening of the Ebbsfleet A2 junction and link road, and changes tothe one way system in Gravesend Town Centre as the first phase ofimplementing the integrated transport interchange. Despite this, parts of theBorough experience traffic congestion particularly during morning and eveningpeak period as a result of commuter based traffic. This is especially the casein the urban area and along the A2. Gravesend town centre experiencescongestion on weekdays and on Saturdays associated with retail and otherbusiness activities 26 . The resulting exhaust emissions have led to poor airquality in some areas which has led to the declaration of a number of AirQuality Management Areas, e.g. one way system in Gravesend town centre,A2, some of the junctions on Old Road East/West.5.5.26 The County Council is planning to expand its Urban TrafficManagement and Control system to cover Gravesend town centre. This willhelp to maximise the efficiency of the local highway network and createsmoother traffic flows. It should reduce traffic pollution in the relevant AirQuality Management Areas but this may be balanced by traffic growth.5.5.27 The Highways Agency has concerns about the impact of developmentin the Borough and Dartford on the strategic road network and how anyimpacts will be mitigated. The Borough Council will work jointly with theHighways Agency, Kent County Council, Dartford Borough Council and allother relevant parties to ensure that the transport needs arising from newdevelopment in the Borough are met (see Policy CS10 Physical and SocialInfrastructure) and that the most efficient use is made of the existing highwaynetwork, e.g. through management measures and the introduction ofinformation systems.5.5.28 The Dartford Crossing is one of the UK's most important strategicconnections but its capacity is considerably overloaded for large periods for26 Kent Thameside Development of the Transport Strategy – Technical Summary Report(Final Draft) October 2008148

the day. A study carried out on behalf of the Department for Transport hasidentified three longer term options to provide additional capacity and furtherwork is being carried out on these. Kent County Council makes it clear thatthey support the option of a new Lower Thames Crossing to the East ofGravesend 27 . Gravesham Borough Council does not support a Lower ThamesCrossing in Gravesham and has resolved that such an alignment is notacceptable on environmental grounds. Until such time as there is asafeguarded route, it is not possible for the Core Strategy to take any accountof the implications of additional capacity.5.5.29 The Council recognises the constraints to the development ofGravesend Riverside East and North East Gravesend Opportunity Area andresulting impacts on air quality caused by the capacities of the junctions at theOrdnance Road/Milton Road and Dering Way/Lion Roundabout. It retains theaspiration for a road bridge to be provided over the Thames and MedwayCanal and North Kent railway line to link the areas to the north and south ofthe railway but this is unlikely to happen during the plan period.Impact of Development on the Transport Network5.5.30 A Kent Thameside multi-modal transport model has been used toassess the impact of development proposed in Dartford and Gravesham. Themodel runs have shown that, even when a number of committed and fundedtransport schemes are taken into account, and despite generally good publictransport provision, the level of development planned in the Boroughs wouldsignificantly affect the operation of the highway network. In response, apackage of strategic transport infrastructure improvements at key locationswas identified to enable the development to be realised whilst maintaining anacceptable level of performance across the transport network - the StrategicTransport Investment Programme (STIP). These are listed in the LocalTransport Plan and are subject to regular review.5.5.31 Additional technical work using the development quantities proposed inthis plan and the adopted Dartford Core Strategy to 2028 have shown that27 Local Transport Plan for Kent 2011-2016149

trips on the highway network will increase significantly, as will usage of thepublic transport network 28 . The STIP schemes noted above make acontribution towards reducing junction capacity issues but there are also anumber of other junctions in the urban area that will potentially haveproblems. Some of these may be addressed as a result of development.Some will be so constrained by built development that a major scheme will notbe possible. Other junctions will require schemes to be developed. Trafficmanagement measures, including Urban Traffic Management and Control, willhelp maximise the use of the highway network.5.5.32 The following have been identified:• The additional technical work suggests that work may be required atthe Tollgate A2 junction (A227);• Public transport provision will be enhanced by the planned integratedtransport interchange at Garrick Street/Barrack Row and works toNorthfleet and Gravesend railway stations (see above);• So far as possible, Fastrack and other bus services will need buspriority measures to ensure they can offer a fast and reliable servicedespite traffic congestion;• There may need to be changes to existing bus routes or new ones mayneed to be developed to serve the key sites and existing urban area toencourage residents and employees to change from using the privatecar to using public transport, e.g. A227 Wrotham Road corridor inGravesend;• Walking and cycling networks need to be expanded and made morecoherent; and• The location and amount of car parking in Gravesend Town Centre,taking account of proposed developed, will be examined andoptimised. Policy CS05 sets out the overall objectives for Town Centreparking.5.5.33 The Infrastructure Delivery Schedule contains the current list of andstatus of identified schemes. Flows on the transport network will need to be28 Kent Thameside Development of the Transport Strategy – Technical Summary Report(Final Draft) October 2008150

monitored and schemes modified or developed as circumstances evolve asdevelopment occurs.Transport Assessments, Travel Plans and Car Parking5.5.34 Transport Assessments describe the overall impact of developmentson the local transport network, and consider their accessibility by all modes oftransport, taking into account any highway or sustainable accessimprovements that developers propose to implement. The contents of aTransport Assessment will depend on the size, nature and location of adevelopment and the requirements of the Highways Agency (A2 trunk road)and Kent County Council (Transport Authority).5.5.35 Travel Plans are aimed at promoting sustainable transport options forsites and reducing car dependence and single car occupancy. They canreduce reliance on the private car by promoting the opportunities for travellingto and from sites by public transport, walking or cycling and by offering newopportunities to reduce car use, for example through the establishment of carsharing services or car clubs.5.5.36 The Council will require applicable new developments to prepare andadopt Transport Assessments and Travel Plans using Kent County Council'sguidance "Transport Assessments and Travel Plans, October 2008." It willalso require developments to take into account current car parking standards.These will be refined taking into account the availability of alternative meansof transport and accessibility to services and facilities.5.5.37 Currently, the Council uses the Kent Vehicle Parking Standards whichit adopted in July 2006 as Supplementary Guidance. This recognises that thecontrol of parking at new developments is one way of promoting moresustainable forms of transport. It also recognises that parking takes up a largeamount of space and has a direct influence on the efficiency of land use, thedensity of development achieved and its cost. The Parking Standardsdocument states that the parking provision determined for a developmentshould follow an assessment of the travel options by all types of transport thatare already available or that can be provided.151

5.5.38 Increased traffic as a result of new development can have a significantimpact on air quality and on amenity. There is guidance on how developersshould assess air quality and mitigate air quality impacts arising as a result oftheir development proposals 29 . The Council will use this guidance to considerwhen planning applications will require an air quality assessment.Policy CS11: Transport5.5.39 New developments should mitigate their impact on the highwayand public transport networks as required. As appropriate, transportassessments and travel plans should be provided and implemented toensure the delivery of travel choice and sustainable opportunities fortravel. Transport assessment work is required to be undertaken inaccordance with national and local policy guidance, and to identifydetailed highway and public transport network requirements andmanagement arising from the development.5.5.40 Sufficient parking in new development will be provided inaccordance with adopted parking standards which will reflect theavailability of alternative means of transport and accessibility toservices and facilities.5.5.41 The Council will support proposals which improve publictransport provision and facilities in the Borough. In particular, it will:• seek to maintain segregation lanes for Fastrack and existing buspriority measures elsewhere;• require key sites to include provision for buses;• support the development of transport hubs at Gravesend TownCentre and Ebbsfleet (in Dartford Borough Council area) toprovide high quality interchange facilities between bus, rail,walking and cycling; and• Ensure an adequate supply of public car parking.29 Kent and Medway Air Quality Partnership Air Quality and Planning Technical GuidanceJuly 2011152

5.5.42 The Council will seek improvements to walking and cyclingfacilities and networks in the Borough including through provision innew development as appropriate. These should provide improvedaccess to Gravesend Town Centre and Ebbsfleet and to other servicesand facilities in the Borough. In particular, the Council will seek theprovision of high quality, dedicated pedestrian and cycle links betweenNorthfleet and Ebbsfleet stations and along the River Thames, as part ofthe proposed Thames Estuary Path.5.5.43 Land required for the possible future extension of Crossrail issafeguarded on the Policies Map and proposals that would prejudicethis would be refused.5.5.44 The Council will support proposals which improve the efficiencyof freight transport and provide opportunities for alternatives to roadtransport where possible. The Council will safeguard wharves, as shownon the Policies Map, except where this would be detrimental toachieving the key regeneration objectives of the key sites on theriverside.5.5.45 The Council will support proposals which facilitate the use of theRiver Thames for passenger transport and enable cruise liners to visitthe Borough.5.6 Green Infrastructure, Sport and Recreation5.6.1 Green infrastructure is defined by the National Planning PolicyFramework as a network of multi-functional green space, urban and rural,which is capable of delivering a wide range of environmental and quality of lifebenefits for local communities. Green infrastructure, sport and recreationfacilities enrich the quality of life for residents and visitors in the Borough.They have a vital role to play in encouraging and enabling active and healthylifestyles. Green infrastructure is also important for protecting and increasingbiodiversity, protecting the landscape and providing improved access forleisure and sustainable travel purposes.5.6.2 The NPPF seeks to:153

• protect existing open space, sport and recreational land and buildingsand ensure that developments include green space;• protect and enhance public rights of way and access;• conserve and achieve a net gain in biodiversity, including planning forbiodiversity at a landscape-scale and identifying local ecologicalnetworks;• protect and enhance public rights of way and access; and• conserve the landscape and scenic beauty of Areas of OutstandingNatural Beauty as well as protect and enhance valued landscapes.5.6.3 It states that Local Plans should contain a clear strategy for enhancingthe natural environment and supporting Nature Improvement Areas. It furtheroutlines that policies should distinguish between the hierarchy of sites so thatprotection reflects their status and importance.5.7 Green Infrastructure5.7.1 This section addresses Gravesham's multi-functional green spacenetwork and its Green Grid, together with wider biodiversity and landscaperesources which are considered to form the green infrastructure network ofthe Borough.Green Spaces5.7.2 Gravesham Borough has a number of strategic green spaces and someof these have come about as a result of previous major investments in theBorough, e.g. Jeskyns Community Woodland, and the Cyclopark. TheBorough also has a number of more local green spaces such as Windmill Hilland Northfleet Urban Country Park. All green spaces contribute towards thegreen infrastructure network. Further information on levels of provision andour approach towards them is given in the Green Space, Sport andRecreation section below.154

Green Grid5.7.3 There has been a long term aspiration to develop a linked network ofopen spaces and routes across the Borough, joining with a wider networkbeyond the Borough's boundaries. This is known as the Green Grid. Thefocus of the Green Grid in Gravesham is on building a network that:• Links green spaces to create green continuity, including ecologicalcontinuity, wherever possible;• Improves access within the urban area, from the urban area to the ruralarea and along the River Thames for leisure and sustainable travelpurposes; and• Creates safe and attractive routes for walkers, cyclists and mobilityimpairedpeople.5.7.4 The network includes: public highways, public rights of way and cycleroutes, with their associated verges and planting; waterways with theirassociated bank-sides and verges; railway and road embankments; andgreen roofs and walls. Ultimately, the Green Grid aims to become a well-used,safe and attractive network of green links carrying a variety of non-vehicularpaths and ecological corridors through the urban area, and connecting up withlocal and long distance riverside and countryside trails.5.7.5 There is a long standing desire to develop a Thames Estuary Path toprovide a continuous route for walkers and cyclists from the Thames Barrier inLondon to the Isle of Sheppey in Kent 30 which the Council supports. NaturalEngland is also implementing a Coastal Access Scheme which seeks tocreate and improve pedestrian access along the coast. Work has started onthis scheme in Kent. The Urban Baseline Study recognises the importance ofproviding open access to the riverside in new developments and creating acontinuous riverwalk from Canal Basin to Swanscombe Peninsula. This issupported through both the Green Infrastructure and Transport policies.5.7.6 There is also an aspiration for a dedicated pedestrian link betweenNorthfleet and Ebbsfleet stations. If implemented, such a link would provide30 Thames Estuary Path Survey 2008155

part of the Green Infrastructure network but is considered in more detail underPolicy CS11 Transport.Biodiversity5.7.7 Gravesham Borough has a significant biodiversity resource. Thisincludes:• Sites of international and national significance for wildlife, e.g. ThamesEstuary and Marshes Special Protection Area and Ramsar Site, NorthDowns Woodlands Special Area of Conservation, and Cobham WoodsSite of Special Scientific Interest. Internationally significant sites are alldesignated as Sites of Special Scientific Interest and so are protectedby national legislation;• Species protected by European and/or national legislation, e.g. bats,great crested newts;• Local wildlife sites which are important for the conservation of wildlife atthe county level, e.g. Ebbsfleet Marshes, Court Wood Shorne; and• Roadside nature reserves, e.g. A226 Gravesend Road, Chalk;• Priority habitats and species identified in the UK Biodiversity ActionPlan, e.g. native woodland including ancient woodland, lowlandcalcareous (chalk) grassland.5.7.8 Some previously developed sites in the urban area have highbiodiversity value. The green space and green grid networks together withother areas such as school grounds and private gardens also have a role inproviding and connecting habitats.5.7.9 Recent evidence suggests that there has been a decline in birdpopulations in the internationally significant Special Protection Areas (SPA)and Ramsar sites that make up the North Kent marshes (Thames Estuary andMarshes SPA/Ramsar Site, Medway Estuary and Marshes SPA/Ramsar Site,and The Swale SPA/Ramsar Site) Ramsar/Special Protection Area sites.There is currently insufficient evidence to adequately assess the cause of thisdecline although interim findings indicate that recreational activity causesdisturbance to birds and that more development will lead to an increase in156

disturbance. Further work is being carried out by the North KentEnvironmental Planning Group (NKEPG) in relation to this matter and, in themeantime, a precautionary approach to development will be applied. Thismeans that developers may need to provide or contribute to mitigationmeasures will be expected to provide sufficient alternatives for the recreationneeds arising from their developments and implement other measures, whichmay include provision of alternative greenspace, contributions to visitorcontrol mechanisms and/or management of the SPAs, to ensure thatdetrimental impacts on the integrity of the SPAs/Ramsar sites are avoided.5.7.10 The Greater Thames Marshes has recently been declared a NatureImprovement Area (NIA). This recognises that it has a unique yet fracturedlandscape and significant biodiversity importance but that the biodiversity is indecline and struggling to compete with increasing pressures. The NIA seeksto protect and enhance this valuable habitat and increase numbers ofendangered species and protect existing flora and fauna. In Gravesham, theNIA includes the River Thames and much of the marshland to the east ofGravesend.5.7.11 Local Nature Partnerships have recently been set up to help localareas to manage the natural environment as a system and to embed its valuein local decisions for the benefit of nature, people and the economy. LocalNature Partnerships have recently been approved for Kent and ThamesGateway.5.7.12 The strategy is to ensure that there is no net loss of biodiversity in theBorough and to take every opportunity to improve biodiversity. Existing sitesof biodiversity value will be protected according to their importance. Inaddition, development will be expected to be designed, laid out andconstructed in a manner which protects habitats and important species andalso includes features to enhance biodiversity. Biodiversity Opportunity Areashave been identified across Kent and the wider South East which incorporateareas of the greatest biodiversity value. In Gravesham, these comprise: NorthKent Marshes; Thames-side Green Corridors; and Medway Gap and NorthKent Downs. These areas give opportunities for the restoration or creation ofnew priority habitats and will be the focus for improvement where157

opportunities arise, for example through the Local Nature Partnerships andthe Nature Improvement Area.Landscape5.7.13 Gravesham has a diverse rural landscape, from the marshes aroundthe Thames in the north; arable farmlands to the south and east ofGravesend; and downs and woodland in the south. Part of the nationallyimportant landscape of the Kent Downs Area of Outstanding Natural Beauty(AONB) is located on the eastern side of the Borough and it extends fromShorne south to Vigo. It is designated because of its scarp slope and dryvalleys which often retain a downland character and its woodlands are alsohighly valued. Great weight should be given to protecting the landscape andnatural beauty of the AONB. The Kent Downs AONB Management Plan hasbeen adopted by the Borough Council. It sets out clear aims, policies andactions for the conservation, management and enhancement of the AONB to2014 and a longer term vision.5.7.14 A Landscape Character Assessment for the urban fringes and ruralarea of Gravesham has been produced. This sets out 11 local landscapecharacter areas. For each area, there is an assessment of condition andsensitivity and guidelines for appropriate actions to protect and enhance thelandscape. In addition, it contains generic guidelines for different types oflandscape and development. This will be used to inform future decisions onproposals affecting the urban fringes and rural area.5.7.15 Greening the Gateway Kent and Medway has produced a number oflandscape studies called Cluster Studies which seek to identify areas thatcould be enhanced for the benefit of communities while at the same timeincreasing and protecting natural habitats and wildlife. Those in Graveshamcover:• Ebbsfleet Valley and A2 Corridor• Thames and Medway Canal• Shorne to Shore158

5.7.16 In its Thames Gateway Delivery Plan in 2007, the Governmentcommitted to a Parklands programme. This aimed to regenerate and developurban and rural open spaces which are connected together to create anaccessible and coherent landscape. The Cluster Studies influenced thefunding received under this programme. This funding led to the creation orenhancement of a number of parks and green spaces in North Kent. InGravesham, this included Cyclopark, the restoration of part of the Thamesand Medway Canal and the enhancement of the Riverside Leisure Area. TheShorne to Shore Cluster Study is more recent and covers the countryside tothe east of Gravesend as far as the built up area of Medway. It seeks toprotect vulnerable areas and enhance biodiversity, while also offeringopportunities to increase access to the countryside, boost the local economyand raise the profile of the area.5.7.17 In addition significant investment has been made in terms of accessiblegreen infrastructure in and around Cobham via the Cobham AshenbankManagement Scheme, a new visitor centre at Shorne Wood Country Park;Jeskyns Community Woodland and Ranscombe Farm, which is primarily inMedway.5.7.18 Landscape features such as trees and hedgerows within the urbanarea are also important as they help to raise the quality of the environmentand the quality of people's lives, as well as providing stepping stones andhabitats for wildlife. Therefore, it is important that such landscape featureswithin the urban area are retained and enhanced.5.7.19 The Council's strategy is to conserve and enhance the landscapecharacter and valued landscapes of the Borough, giving greatest weight toprotecting the Kent Downs Area of Outstanding Natural Beauty. Proposalsaffecting the urban fringe and rural area will be expected to take into accountlandscape character. All developments will be expected to protect andenhance landscape features as part of Gravesham's green infrastructurenetwork.159

Green Infrastructure Network5.7.20 The strategic green infrastructure network for the Borough is identifiedon Figure 18 below. This shows: existing and proposed long distance walkingand cycling routes; movement corridors; and biodiversity opportunity areas.The latter includes: major green spaces, e.g. Shorne Wood Country Park,Jeskyns; strategic green grid corridors, e.g. Cyclopark; and most of the KentDowns AONB nationally important landscape falling within GraveshamBorough.5.7.21 It should be noted that all green spaces, the Green Grid, biodiversityresources, and landscape features contribute towards the Borough's greeninfrastructure network. The strategy is to protect and enhance this network.Shorne Marshes160

Figure 18: Strategic Green Infrastructure Network161

Policy CS12: Green Infrastructure5.7.22 A multifunctional linked network of green spaces, footpaths, cycleroutes and wildlife stepping stones and corridors will be created,protected, enhanced and maintained. The network will improve accesswithin the urban area, from the urban area to the rural area and alongthe River Thames. The key parts of the network are identified on Figure18: Strategic Green Infrastructure Network.5.7.23 Sites designated for their biodiversity value will be protected, withthe highest level of protection given to internationally designatedSpecial Protection Areas, Special Areas of Conservation and Ramsarsites, followed by nationally designated Sites of Special ScientificInterest, followed by Local Wildlife Sites and then by other areas of morelocal importance for biodiversity.5.7.24 There will be no net loss of biodiversity in the Borough, andopportunities to enhance, restore, re-create and maintain habitats will besought, in particular within the Biodiversity Opportunity Areas shown onthe Strategic Green Infrastructure Network map and within newdevelopment.5.7.25 Where a negative impact on protected or priority habitats/speciescannot be avoided on development sites and where the importance ofthe development is considered to outweigh the biodiversity impact,compensatory provision will be required either elsewhere on the site oroff-site, including measures for ongoing maintenance.5.7.26 The overall landscape character and valued landscapes will beconserved, restored and enhanced. The greatest weight will be given toprotecting the landscape and natural beauty of the Kent Downs Area ofOutstanding Natural Beauty. Proposals will take account of the KentDowns Area of Outstanding Natural Beauty Management Plan, theGravesham Landscape Character Assessment, and the Shorne to ShoreCluster Study where relevant.162

5.8 Green Space, Sport and Recreation5.8.1 This section addresses provision and standards for green space, indoorand outdoor sport and recreation provision in the Borough.5.8.2 In Gravesham, green spaces include parks, green corridors, naturalgreenspace and children's play areas. Facilities such Woodlands Park andCamer Country Park provide opportunities for informal recreation. Graveshamalso has a range of formal indoor and outdoor sports facilities. CascadesLeisure Centre in Gravesend and Cygnet Leisure Centre in Northfleet providea range of facilities including swimming pools, sports halls and health andfitness facilities. Meopham has a fitness and tennis centre. There are alsosports pitches, golf courses, bowling greens and a number of other sportsfacilities provided by the public and private sector which provide theBorough's residents and workers with the opportunity to take part in sport.These are also available to visitors and residents from neighbouring areas.Some playing pitches have a dual function and also provide green space, e.g.Culverstone Recreation Ground.5.8.3 A study of Gravesham's Open Space, Sport and Recreation facilitieshas been completed 31 . This found that the overall amount of all types of greenspace in the Borough is sufficient for the needs of the existing population.However, the provision of green space and access to it varies across theBorough. For example, there are issues with the provision of children's playareas, natural greenspace and allotments in much of the urban area and withaccess to parks in East Gravesend. It found that improvements to the qualityof all types of green space are required.5.8.4 In terms of playing pitches, the study found that the overall amount ofplaying pitch land in the Borough is sufficient to meet the needs of the existingpopulation. However, whilst there is an overall surplus of adult footballpitches, there are shortfalls of junior football pitches and mini-soccer pitches(significant shortfall). Qualitative improvements are needed, particularly interms of changing room facilities and disabled access at various sites. There31 Gravesham PPG17 – Open Space, Sport and Recreation Study 2010163

are issues of access to and/or capacity of playing pitches. This is particularlyan issue for mini-soccer pitches in Northfleet, East Gravesend and the ruralarea and for cricket, junior football and rugby pitches in much of the urbanarea.5.8.5 The study found that there are sufficient quantities of some sportsfacilities to meet the needs of the current population, e.g. swimming pools,sports halls. However, more health and fitness facilities are needed to meetthe needs of the existing population. There is a need for some qualitativeimprovements to some facilities, e.g. multi-use games areas, indoor tenniscourts. There are issues of access to and/or capacity of sports facilities insome locations, for example health and fitness facilities in Central and SouthGravesend and outdoor tennis courts in much of Gravesend and Northfleet.5.8.6 There is a clear need to address existing deficiencies identified in theGravesham Open Space, Sport and Recreation Study as well as needsarising from new development. The natural growth in the Borough'spopulation over the plan period, the Council's priority to encourage people toincrease their level of physical activity and the ageing population will affect theamounts and types of playing pitches and sports facilities needed in theBorough in the future. The Council will work to address these needs throughsetting standards and considering site allocations in the Site Allocations andDevelopment Management Policies Development Plan Document. TheCouncil's strategy is to: protect existing green space, playing pitch and othersports facilities; address existing deficiencies; and make provision to meetfuture demands.Policy CS13: Green Space, Sport and Recreation5.8.7 The Borough Council will seek to make adequate provision for andto protect and enhance the quantity, quality and accessibility of greenspace, playing pitches and other sports facilities, in accordance with thefindings of the Gravesham Open Space, Sport and Recreation Study.5.8.8 A set of consistent green space, playing pitch and sports provisionstandards will be established which will apply to all new development.164

Provision should be made on-site. However, where this is not possiblebecause of the site size, location or other specified circumstances,alternative provision or the enhancement of existing facilities will berequired off-site. In all cases, provision will include arrangements for theongoing maintenance of the space.5.9 Residential Development5.9.1 Housing is about much more than ensuring everyone has a roof overtheir head. A safe and secure place to call home gives people a strongfoundation for every aspect of their lives. Historically, the vast majority ofpeople have aspired to owning their own home and rising prosperity andeasily available finance in the previous decade helped many people onto thehousing ladder.5.9.2 In recent years the housing market has experienced significantchallenges as a result of turbulence in financial markets. This has resulted inhouse prices falling, fewer mortgage products, people having financialdifficulties and a difficult business environment with a reduction in the numberof houses being built. Despite this, the underlying long term trends remain,with clear housing demands from potential first time buyers, growing familiesand the elderly.5.9.3 The National Planning Policy Framework (NPPF) requires local planningauthorities to ensure that their local plan meets the full needs for market andaffordable housing in their area, including identifying key sites which arecritical to the delivery of the housing strategy over the plan period. Thisincludes a mix of housing based upon current and future demographic trends,market trends and the needs of different groups in the community such asfamilies with children, older people and people with a disability. It alsoincludes identifying the size, type, tenure and range of housing that is requiredin particular locations and setting policies for meeting affordable housingneed.5.9.4 In rural areas, the NPPF requires planning authorities to plan housingdevelopment to reflect local needs, particularly for affordable housing,165

including through rural exception sites where appropriate. Rural exceptionsites are defined as small sites used for affordable housing in perpetuitywhere sites would not normally be used for housing. The NPPF further statesthat the construction of buildings in the Green Belt is inappropriate but it doesmake an exception for limited infilling in villages and for limited affordablehousing for local community needs under policies in the local plan.5.10 Housing Type and Size5.10.1 Different households require different types and sizes of housing. It isimportant that the Core Strategy plans for the provision of an appropriatechoice and mix of housing across the Borough in order to create balancedand sustainable communities. Widening housing choice broadens the appealof an area and assists in meeting the needs of existing residents as well asattracting new residents to the Borough. Ensuring that new housing takesaccount of local need and existing provision is essential.5.10.2 The Strategic Housing Market Assessment (SHMA) found that in bothaffordable and market housing, there is both overcrowding and underoccupation.It states that many households will be unable to move to moresuitable housing either because of affordability or lack of supply. The CoreStrategy seeks to ensure that an adequate amount of new housing to meetlocal housing needs (policy CS02) and affordable housing (policy CS16) isprovided to cater for future needs. However, the size and type of housingprovided is also important.5.10.3 The SHMA Update indicates that there is a need for a mix of housesizes for both market and affordable housing. For market housing, it shows asignificant need for 3 bedroom (47%) and 2 bedroom (31%) properties. Foraffordable housing, which comprises social and intermediate housing, itshows that the greatest need is for 1 bedroom properties (37%) but it alsoshows significant needs for 2 bedrooms (32%) and 3 bedroom (28%)properties.5.10.4 Whilst new housing can provide different sizes of units, the existinghousing stock also has a significant role to play in ensuring that a mix of166

housing is provided. The SHMA recommends that the conversion of familyhomes (taken to be homes with 2 or more bedrooms) into smaller units shouldbe restricted so that new families have more choice within the market and, bydoing so, will improve the flow of smaller homes onto the market that theyvacate.5.10.5 There will be a growth in the older population in the Borough over theplan period. This will be associated with an increase in the numbers of thosewho have difficulties completing household tasks and self-care activities.There will also be an increase in those with a limiting long term illness. As aresult, the SHMA recommends that the building of market housing particularlysuited to the needs of older households and other special needs groupsshould be encouraged. This includes meeting lifetime homes designstandards and requiring some housing to be built to wheelchair standard. Italso includes encouraging the provision of specialist and extra care housing. Itis important that housing to meet the needs of older people is provided inaccessible locations close to services. It could also help to meet the futurerequirement for family homes as a result of older households downsizing.5.10.6 As a result of the above, the Council's strategy is to plan for a mix ofhouse sizes and types that will be appropriate to the differing needs of thecommunity. It will protect existing family sized housing (2 and 3 bedroomhomes) to ensure that a sufficient number of larger units are maintained. TheCouncil will also seek to ensure that more homes are built which are designedto meet the longer term needs of older and disabled people as well as supportthe provision of specialist housing to meet such needs.5.10.7 The Council supports the provision of housing to meet therequirements of people in special need of help or supervision, whereconventional housing may not be suitable. It is important, nevertheless, thatthe concentration of residential institutional accommodation should becontrolled to ensure that the properties themselves are suitable, and that theintensification of use in residential areas will not change the character of thearea, nor involve a loss of amenity to residents because of the potential noiseand disturbance it could create (including the impacts from service traffic)outside normal working hours. The Site Allocations and Development167

Management Policies DPD will include policies relating to residentialinstitutional accommodation.Policy CS14: Housing Type and Size5.10.8 The Council will protect the mix of housing in the existinghousing stock and will resist the conversion of family sized residentialunits to smaller properties.5.10.9 The Council will expect new housing development to provide arange of dwelling types and sizes taking into account the existingcharacter of the area and evidence of local need to create sustainableand balanced communities.5.10.10 The Council will seek the provision of an increased proportion ofhousing designed to the lifetime homes standard with some housing tobe built to wheelchair standard to meet the needs of older people andpeople with disabilities.5.10.11 Sheltered housing and extra care housing for people withspecial needs will be supported on suitable sites in areas close to arange of services that provide for the needs of future occupants.5.11 Housing Density5.11.1 The demand for additional homes by 2028, the finite amount ofpreviously developed land and the competing demand for uses put increasingpressure on land and require innovative approaches to help deliver highquality housing. Density can affect the development value and the AffordableHousing Viability Study (2010) considered a range of densities.5.11.2 The density of housing can have an impact on local character anddistinctiveness. The Council wishes to ensure that land is used efficiently butthis needs to be balanced with delivering the right type of housing to meet theneeds of the whole community in the right location.5.11.3 It is important that the densities sought do not adversely affect thequality and character of an area and the general well-being of residents. The168

appropriate density will be design-led and will have regard to the accessibilityof each site. Therefore appropriate densities will vary across the borough. Aminimum density of 40 dwellings per hectare will be sought in the urban area.Higher densities will be sought in the Gravesend Town Centre and EbbsfleetOpportunity Areas as they are transport hubs with good access to publictransport. Lower density housing may be more appropriate in the rural area.Density is measured by the number of dwellings per hectare.5.11.4 High density does not always mean high rise development, and highdensity schemes can provide good quality attractive housing, including familyprovision through a range of built forms.Policy CS15: Housing Density5.11.5 Sites will be developed at a variety of densities, depending ontheir location and accessibility to public transport. The form and densityof housing will vary across the larger sites, in response to accessibilityand other characteristics of each part of the site. Variations in densityacross a site should be used to develop different character areas.5.11.6 All new housing will be developed at a density that is consistentwith achieving good design and does not compromise the distinctivecharacter of the area in which it is situated. Subject to this overridingconsideration:• Within the urban area, new residential development will beexpected to achieve a minimum density of 40 dwellings perhectare. In suitable locations close to the transport hubs ofGravesend Town Centre and Ebbsfleet higher densities will beencouraged;• In the rural area, new residential development will be expected toachieve a minimum density of 30 dwellings per hectare.5.11.7 Development proposals that fail to make efficient use of land forhousing, having regard to the character and location of the area, may berefused planning permission.169

5.12 Affordable Housing5.12.1 Affordable housing is defined as housing with sale prices or rent levelswhich are set substantially lower than the prevailing market price or rent, sothat it will be accessible to local people in priority housing need, whoseincomes are insufficient to enable them to afford housing on the open market.It includes social rented, affordable rented and intermediate housing (seeglossary for definitions). Affordable housing should remain at an affordableprice for future eligible households.5.12.2 The SHMA update indicates that Gravesham has a significant need foraffordable housing (52%). The Council needs to be realistic when setting itstargets about what can be delivered. Given this, different affordable housingtargets for the different Gravesham sub-markets were tested in the AffordableHousing Viability Study. This recommended that the Council should introduceseparate targets for the proportion of affordable housing to be included inhousing developments, based on the differing residual land values of urbanand rural sites. It considered a 30% target for the urban area and a 35%target for the rural area to be appropriate for achieving the maximum deliveryof affordable housing.5.12.3 The Study also concluded that a smaller threshold for the delivery ofaffordable housing in the rural area would be justified as a substantial majorityof all new dwellings would be developed on sites of less than five dwellings.Consequently, the Council has decided to retain what was then the nationalthreshold of 15 dwellings or more or on sites of 0.5 hectares or more in theurban area and a locally derived threshold of 3 dwellings or more or on sitesof 0.1 hectare or more within the rural area. The Council will seek anaffordable housing mix of 70% affordable and social rented and 30%intermediate. It represents a balance between the desire to maximise theprovision of affordable and social rented accommodation for those in greatestneed, with the desire for balanced communities and recognition of viabilityconsiderations.5.12.4 Affordable housing will be provided on-site unless both the Council andthe applicant agree that it would be preferable for provision to be made on an170

alternative site or a financial contribution be made for development to takeplace elsewhere.5.12.5 The SHMA indicates that whilst rural areas are typically wealthier thanurban areas, they will still contain many households who still face acutehousing needs. This is best addressed through local housing needs surveys.Rural Housing Needs Surveys are being undertaken in the Borough on an ongoingbasis to identify the specific affordable housing needs of the ruralparishes and settlements. It is recognised that it might not be possible to fullydeliver the scale of affordable housing identified in these surveys in the ruralsettlements which are inset from the Green Belt. Consequently, some of thelocal need for affordable housing might need to be met within the Green Belt.The NPPF states that limited affordable housing for local community needsunder policies set out in the Local Plan is not inappropriate in the Green Belt.Cross subsidy or other mechanisms to deliver market housing in the GreenBelt will not be acceptable under this policy.5.12.6 It is not appropriate to quantify a particular number of dwellings that willbe considered to be "limited" for affordable housing in the Green Belt as thiswill primarily depend on the level of local community need identified togetherwith the following:• The size and character of the built up area of the individual settlementconcerned, and its position in the settlement hierarchy;• The fact that this will be a solely affordable housing site may also limitthe size of the site to ensure mixed communities and this may meanthat the development of 2 or more sites might be preferable to onelarge site; and• The type of affordable housing being proposed, such as extra-care,where the viability of a scheme may depend upon its scale.5.12.7 It is considered that affordable housing in the Green Belt should beprovided in a sustainable location. The accessibility of the site to services andfacilities and the position of the settlement in the settlement hierarchy will beused to assess this, whilst recognising that the level of local community needis normally considered at a parish level. Consideration will also be given to the171

impact of proposals on the built and natural environment under policies CS19Development and Design Principles and CS12 Green Infrastructure.5.12.8 Proposals for affordable housing development in the Green Belt willneed to ensure that they are restricted to households who are either currentresidents of the parish or have an existing family or employment connection.Policy CS16: Affordable Housing5.12.9 The provision of affordable housing will be required on all newprivate housing developments of: 15 dwellings or more or on sites of 0.5hectares or more in the urban area; and 3 units or more or on sites of 0.1hectares or more in the rural area.5.12.10 The amount of affordable housing to be provided by privatehousing development sites above the threshold will be 30% in the urbanarea and 35% in the rural area.5.12.11 The Council will seek an affordable housing mix of 70%affordable rented and social rented accommodation and 30%intermediate housing.5.12.12 Development will be subject to site viability and the mix of unitsnecessary to meet local needs and achieve a successful sustainable andsocially inclusive development.5.12.13 In the Green Belt, limited affordable housing in a sustainablelocation for a proven and justified local community need will besupported. Such units once constructed will be occupied by people witha proven local community connection. This includes affordable ruralworkers dwellings. In all cases, permissions granted under this policywill be restricted to those uses in perpetuity.172

5.13 Provision of Traveller Sites5.13.1 The Council is responsible for assessing the housing needs of andallocating land to meet the needs of all sections of the local communityincluding Gypsies, Travellers and Travelling Showpeople. This policy sets outa fair and effective approach to addressing the accommodation needs of thissection of the community and provides a basis for determining planningapplications on unallocated sites.5.13.2 For the purposes of this policy, Gypsies, Travellers and TravellingShowpeople will be referred to as Travellers. It is recognised that the needs ofGypsies and Travellers and Travelling Showpeople vary. The policy will applyto those members of the Travelling community who meet the definitions setout in Annex A of the "Planning Policy for Traveller Sites" (March 2012).5.13.3 National policy recognises that Travellers have the same rights andresponsibilities as other citizens and supports their traditional travelling way oflife. It requires needs assessments to be carried out to establish unmet needand requires sites to be provided to address this. In addressing site provision,sites should be sustainably located. The location should be appropriate forresidential use and provide access to local services and facilities to promotesocial inclusion. New sites are inappropriate in the Green Belt and should notbe permitted in areas with high risk of flooding, i.e. flood zone 3. Where unmetneed is being addressed, proposals that do not accord with planning policiescan be refused.5.13.4 In January 2012 there were 8 Gypsy and Traveller sites in the Boroughproviding pitches for 25 households. There is a publicly owned site at Denton,Gravesend, which has 8 pitches. The remaining 7 sites are a mix of pitcheswith permanent and temporary planning permission. There are currently notransit sites or plots for Travelling Showpeople in the Borough. There are anunknown number of Gypsies and Travellers accommodated in houses.173

5.13.5 Gravesham's current evidence base 32 identifies a need to provide anadditional 15 pitches in the Borough during the period 2006 - 2011. This needhas been partially addressed through the provision of 8 new pitches on a newsite at Springhead Road Northfleet. No need has been identified for plots forTravelling Showpeople during this period.5.13.6 The Council is updating its assessment of need for the Plan periodusing a common methodology with adjoining local authorities. The revisedtarget will be included in a future Development Plan Document (DPD). Thisassessment of need is expected to be completed in 2013. Updated needsassessments will be carried out on a regular basis over the Plan period.5.13.7 In line with national policy, the Council proposes to work withneighbouring planning authorities to allocate sufficient sites to meet the needsidentified in the updated assessment. This will widen opportunities andprovide flexibility for new site provision. It will also assist in focusing transitsite provision in areas of greatest need. Either the Council will work with itsneighbours to produce a joint Traveller DPD or Traveller site allocations and acriteria-based policy will be included within Gravesham's Site Allocations andDevelopment Management Policies Development Plan Document (DPD).5.13.8 The Council will safeguard the supply of permanent Traveller sites.Opportunities to expand and or increase the density of existing permanentsites within the urban area will be investigated. If necessary, the Council willseek to make provision for new sites within the urban area and ruralsettlements inset from the Green Belt.5.13.9 In advance of the DPD and the new Traveller AccommodationAssessment, planning applications for windfall sites will be considered againstthe provisions of the National Planning Policy Framework and the "PlanningPolicy for Traveller Sites".32 North Kent Gypsy and Traveller Accommodation Assessment 2006 and North and WestKent Travelling Showpersons Accommodation 2007174

Policy CS17: Provision of Traveller Sites5.13.10 The Council will seek to meet the housing needs of Travellers inthe Borough by:• Safeguarding traveller sites with permanent planning permissionfor their current use unless it can be demonstrated that they areno longer needed to meet identified need;• Working with neighbouring planning authorities to identifysufficient sites for Travellers to meet the need identified in themost up to date needs assessment;• Investigating opportunities to extend existing permanent siteswithin the urban area; and• Supporting new sites within the urban area and rural settlementsinset from the Green Belt which accord with policies in this planin particular those relating to Development and Design Principles,Climate Change, Green Infrastructure, and Heritage and theHistoric Environment.5.14 Climate ChangeIntroduction5.14.1 Climate change is expected to lead to hotter, drier summers andwetter, warmer winters with increased storm and flood events. Human activityhas the potential to have a profound impact on both the scale and rate of thatchange. The NPPF recognises the role that planning can have in supportingthe transition to a low carbon future in a changing climate, taking full accountof flood risk and coastal change, and by encouraging the reuse of existingresources and the use of renewable resources. As a result, it requires LocalPlans to take account of climate change over the longer term, includingfactors such as flood risk, coastal change and water supply.5.14.2 The Council has signed up to the Nottingham Declaration which is avoluntary pledge by local authorities to recognise and address climate changeas a key priority. It is a public commitment to lead and encourage others at a175

local level and it recognises the social, economic and environmental benefitsof action against climate change. It commits signatory authorities to developan action plan on mitigating the causes of climate change and on adapting tothe effects of climate change. This is going to be replaced with Climate Local,a mechanism by which councils can express commitments to climate changeboth locally and nationally, as well as seek support for climate changeobjectives.5.14.3 In view of its commitment to the Nottingham Declaration, the Council'sCorporate Plan includes a pledge to work with partners to mitigate and adaptto the effects of climate change on the Borough and pro-actively reduce theimpact the council and its operations, its residents and its businesses have onclimate change.5.14.4 The following sections address the climate change issues of: flood risk;sustainable drainage; water demand management; carbon reduction; andcoastal zone management. These are areas of expected change because oftechnological advancements and further research. Changes to nationalstandards are also occurring in some cases. The Council is seeking toachieve an effective and deliverable approach to these issues in light of thesechanges.Flood Risk5.14.5 Parts of the Borough are at risk from flooding. The main concern is therisk of tidal flooding from North Sea storm surges which would affect the RiverThames. Most of the areas alongside the river have a high standard ofprotection by defences. However, a risk of flooding still exists in these areasbecause of the possibility of defence failure or over-topping during extremeevents. The risk posed by flooding from other sources (fluvial, pluvial, surfacewater and groundwater) also needs to be taken into account.5.14.6 The NPPF states that inappropriate development in areas at risk offlooding should be avoided by directing development away from areas athighest risk, but where development is necessary, making it safe withoutincreasing flood risk elsewhere. It advises that Local Plans should be176

supported by a Strategic Flood Risk Assessment and should take account ofadvice from the Environment Agency.5.14.7 In light of the above, the NPPF requires the application of a sequentialtest which steers new development to areas with the lowest probability offlooding. It recognises that it may not be possible for development to belocated in zones with a lower probability of flooding if it is to meet widersustainability objectives. In such cases, it allows an exception test to beapplied. For the exception test to be passed, it must be demonstrated that:• the development provides wider sustainability benefits to thecommunity that outweigh flood risk; and• the development will be safe for its lifetime taking account of thevulnerability of its users, without increasing flood risk elsewhere, and,where possible, will reduce flood risk overall.5.14.8 The NPPF further states that land that is required for current and futureflood management should be safeguarded from development. It also advisesLocal Plans to use opportunities offered by new development to reduce thecauses and impacts of flooding.5.14.9 The Thames Estuary 2100 (TE2100) project aims to develop a longterm tidal flood risk management plan for London and the Thames Estuary.The proposed TE2100 Flood Risk Management Plan shows that there areunlikely to be major changes to the existing system of defences over the planperiod. However, it is likely that there will be changes in the longer term. Allthe options include a new flood defence to the north east of Gravesend andsome of the options include a new Thames flood barrier, either at LongReach, Dartford, or between Gravesend and Tilbury. This needs to be takeninto account in the Council's approach.5.14.10 A Strategic Flood Risk Assessment (SFRA) was carried out for KentThameside (Dartford and Gravesham Boroughs) in 2005 and updated in2009. This showed the different zones of flood risk in the Borough, particularlyfor potential development sites, to inform the application of the sequential andexceptions tests. It also made a series of recommendations including:177

• New developments should ensure, through appropriate mitigationmeasures, that flood damage is limited in order to remove the risk ofloss of life;• New developments should be "future proofed" against uncertainty andlocal flood risk assessments will help address this;• When the opportunity arises, flood gates should be replaced with soliddefences and the provision of new gates to enable access to theforeshore should be discouraged; and• New developments should provide and maintain flood managementinfrastructure.5.14.11 Most of the Borough's Opportunity Areas, and the key sites withinthem, are in areas at risk of tidal flooding along the River Thames. Theseareas have been identified for development required in order to achieve thelong-standing strategy of regenerating Gravesham by the concentration ofdevelopment on previously developed land. As a result, some sites identifiedalong the Thames Riverside do not comply with the sequential approach.Therefore, these will need to meet the exceptions test set out in the NPPFwhich means that they will need design solutions that provide a safeenvironment for those living and working there. Other sites which comeforward in the Borough will need to meet the sequential test. In order toassess whether the sequential and exceptions tests are met, proposals fordevelopment in flood risk areas will need to be accompanied by a Flood RiskAssessment and a Flood Risk Management Plan.5.14.12 Given the risk of tidal flooding in Gravesham, the future changeswhich may come about as a result of the TE2100 project and therecommendations of the SFRA, the Council will seek to prioritise themaintenance, improvement or replacement of flood defence infrastructureover other land uses.Sustainable Drainage and Surface Water Run-Off5.14.13 Whilst waste water capacity is primarily an infrastructure issue,climate change will have an impact on the waste water system due toincreased winter rainfall and storm events. This means that combined sewers178

and other surface water drainage will have to deal with increased flows.Therefore, it is important that such impacts are mitigated through theintroduction of Sustainable Drainage Systems (SUDS). These are solutionsthat manage surface water and groundwater sustainably; they seek to mimicnatural drainage systems and retain water on or near to the site. In addition toreducing flood risk, SUDS have a number of other benefits such as enhancingwater quality, providing a sympathetic environmental setting for developmentand providing a wildlife habitat.5.14.14 The Kent Thameside Water Cycle Study recommends that for largersites, or where there will be several developments in one area, a SUDS"management train" (a series of progressively larger-scale practices tomanage run-off) approach should be adopted. Subsequent to the above studybeing undertaken, a new system was introduced under the Flood and WaterManagement Act 2010. This effectively prioritises SUDS over conventionaldrainage designs.5.14.15 The practical application of the new system under the 2010 Act hasyet to be determined. Therefore, the Council's approach is to ensure thatsurface water run-off from new development has no greater adverse impactthan the existing use and to support SUDS as the preferred drainage solutionwhere it is feasible to do so.Water Demand Management5.14.16 Gravesham is one of the driest areas in the South East, a regionwhich has very low levels of rainfall overall. Evidence was produced tosupport the planned levels of housing and employment growth required by theSouth East Plan 33 . This showed that water supply was not a constraint on thatlevel of development. This position has since been confirmed throughSouthern Water's and Thames Water's Water Resource Management Planswhich cover the period to 2034 and the findings of the Kent Thameside WaterCycle Study. In view of this, it is assumed that the lower rates of growth nowintended in Gravesham are also manageable.33 South East Plan Technical Note 4 Water and Growth in the South East March 2006179

5.14.17 There is still a need to manage demand for water in an area which iswater-stressed. As a result, the Water Cycle Study recommended that:• All new homes should be built to level 3/4 of the Code for SustainableHomes in terms of water use (105 litres per person per dayconsumption);• A small percentage of new homes, e.g. 5%, should be built to level 5/6of the Code for Sustainable Homes in terms of water use, possibly asexemplars (80 litres per person per day consumption);• Retro-fitting be promoted, where it is cost effective, to offset aproportion of the demand from new development; and• New non-household developments should meet the BREEnvironmental Assessment Method (BREEAM) 'excellent' rating forwater efficiency, and the collection of rainwater should beimplemented.5.14.18 The Council's strategy is to minimise water use by requiring newdevelopments, to meet the suggested standards for water efficiency in newdevelopments. Within existing housing stock and where it is not possible tomeet the above standards on development sites, the Council will supportretrofitting of water efficiency measures within existing residential properties.Carbon Reduction5.14.19 The Core Strategy seeks to reduce greenhouse gas emissionsthrough the appropriate location and design of future development in theBorough. The NPPF requires local planning authorities to support energyefficiency improvements to existing buildings and to take into account theGovernment's zero carbon buildings policy and national standards whensetting local requirements for building sustainability. The aim is to movetowards zero carbon development and to reduce the overall carbon footprintof the Borough.5.14.20 To help increase the use and supply of renewable and low carbonenergy, the NPPF states that local planning authorities should:180

• Have a positive strategy to promote energy from renewable and lowcarbon sources;• Design their policies to maximise renewable and low carbon energydevelopment while ensuring that adverse impacts are addressedsatisfactorily;• Consider identifying suitable areas for renewable and low carbonenergy sources; and• Identify opportunities where development can draw its energy supplyfrom decentralised, renewable or low carbon energy supply systemsand for co-locating potential heat customers and suppliers.5.14.21 The Code for Sustainable Homes is the national standard for thesustainable design and construction of new homes. It aims to reduce carbonemissions and is intended to help promote higher standards of sustainabledesign above current Building Regulations minima. It uses a one to six starrating system, with six being the most sustainable. The Code is not mandatoryand there is no plan to make it mandatory but it can be required where localauthorities stipulate a requirement in their Local Plans.5.14.22 BREEAM sets the standard for best practice in sustainable buildingdesign, construction and operation. It is more commonly used for assessingnon-domestic buildings.5.14.23 The Government is moving towards introducing zero carbonstandards from 2016 for all new homes and from 2019 for all new nondomesticbuildings. Zero carbon will be achieved through: fabric energyefficiency which will require that new homes are sufficiently well insulated andadequately air tight; carbon compliance (the overall on-site contribution tozero carbon) which includes on-site low and zero carbon heat and power, e.g.solar panel electricity systems; and allowable solutions which are methods todeal with the remaining emissions to meet zero carbon standards, e.g.investment in off-site renewable electricity. The zero carbon standards will beimplemented through changes to the Building Regulations and the regulatoryframework is still being developed, so local standards are not proposed.181

5.14.24 An Eco Assessment for Kent Thameside was completed in 2010 tounderstand the potential for renewable and low carbon energy in the area andto identify how this could be realised. This made the following key points:• Consideration should be given to the renewable and low carbon heatpotential of the key sites and the town centre;• It highlights the opportunities where stand-alone low carbon andrenewable energy technologies might be exploited, e.g. wind energy;• There is the opportunity for a Kent Thameside microgenerationinitiative to promote the installation of small scale renewable energytechnology. Particular reference is made to the opportunity to create abiomass hub at Northfleet Embankment East as part of developmentproposals; and• It recommends that local standards exceeding or introduced inadvance of changes to the Building Regulations would not beappropriate and a Supplementary Planning Document on sustainabledesign and construction to facilitate the transition to zero carbon homes/ buildings should be produced instead.5.14.25 In relation to the final point, the Sustainability Appraisal recommendedthat the policy should include BREEAM and Code for Sustainable Homestargets, as well as water demand management.5.14.26 The evidence shows that the key sites and the town centre havepotential for incorporating renewable and low carbon technology. As a result,the Council's strategy is to require the key sites to consider the potential andinclude proposals for low carbon and renewable energy generation, includingcombined heat and power. This should be justified by the submission ofevidence.5.14.27 The Council also supports proposals for stand-alone decentralised,renewable or low carbon energy development. The pressure for suchdevelopment is likely to be in the rural area of the Borough and thesedevelopments can have an impact on landscape character, particularly in thenationally important Kent Downs Area of Outstanding Natural Beauty. As aresult, proposals will need to take into account other policies in this plan, in182

particular the need to maintain the openness of the Green Belt and the policyrelating to Green Infrastructure.5.14.28 The Eco Assessment has identified the potential for a specificmicrogeneration initiative at Northfleet Embankment East. It is considered thatthe scale and mix of development proposed elsewhere may also provideopportunities. This is particularly the case where the development sites adjointhose in Dartford Borough or where development sites are close to existingresidential or commercial areas that can be integrated into a wider network.The Council intends to support the roll out of the national "Green Deal"initiative as an appropriate alternative to the microgeneration initiative. Thiscan be targeted towards areas and groups where wider carbon reduction andfuel poverty objectives can be achieved in a cost effective way. This will betaken forward through the Council's corporate approach to climate change.5.14.29 The introduction of local standards for reducing the carbon footprint ofnew buildings in advance of changes to the Building Regulations is notrecommended in the Eco Assessment but the Sustainability Appraisalcontradicts this advice. As outlined above, there are uncertainties about theforthcoming regulatory framework to achieve zero carbon standards and theissues are complex. In view of this, the Council is not seeking to introducelocal standards.5.14.30 The Council recognises that there may be other opportunities toreduce the carbon footprint of the Borough. It also includes potential initiativessuch as the creation of a Community Energy Fund whereby contributions fromdevelopers towards allowable solutions could be used for carbon reducinginitiatives in the Borough. Such initiatives include retrofitting existing homes.The Council will support such initiatives.5.14.31 The section above deals with operational carbon rather thanembodied carbon. Embodied carbon refers to the carbon emissions createdby the production of the building up to the point it comes into use. Operationalcarbon refers to carbon emissions resulting from the use of the building.Embodied carbon is not currently included in the national definition of zerocarbon. As such, it is inappropriate for this Core Strategy to include policy183

equirements for embodied carbon but this may be revisited through the SiteAllocations and Development Management Policies DPD.Coastal Zone Management5.14.32 In coastal areas, the NPPF requires local planning authorities to takeaccount of the UK Marine Policy Statement and marine plans and applyintegrated Coastal Zone Management to ensure the integration of andterrestrial and planning regimes. It further states that risks arising from coastalchange should be reduced by avoiding inappropriate development invulnerable areas or adding to impacts of physical changes to the coast. Areaslikely to be affected by physical changes to the coast should be identified asCoastal Change Management Areas and policies applied as appropriate.5.14.33 Marine planning, including the preparation of Marine Plans, will becarried out by the Marine Management Organisation (MMO). Marine Plansmust be consistent with the Marine Policy Statement and they will make asignificant contribution towards coastal integration. They will guide developersabout where they are likely to be able to carry out activities or whererestrictions may be placed on what they do.5.14.34 The Thames Estuary falls within a proposed Marine Planning Zonebut the Marine Management Organisation has not yet started work on aMarine Plan for this area. Until the implications of this work are fullyunderstood, it is premature for the Council to pre-empt the outcome of themarine planning process. In the interim, the MMO is being consulted underthe Duty to Co-operate. Policy CS12 on Green Infrastructure seeks to ensurethat there is no net loss of biodiversity in the Borough and that opportunities toenhance it are sought which should ensure that the Council's policies arecompatible with Natural England's proposed Thames Estuary MarineConservation Zone. Also of relevance in this respect is the EnvironmentAgency's work on: the Greater Thames Coastal Habitat Management Plan;the Thames River Basin Management Plan; and the emerging TE2100 Plan.184

Policy CS18: Climate ChangeFlood Risk5.14.35 With the exception of the previously developed sites along theThames Riverside (see policies CS03, CS04 and CS05), development willbe directed sequentially to those areas at least risk of flooding.5.14.36 Proposals in areas at risk of flooding must be accompanied by aFlood Risk Assessment and, if required, a Flood Risk Management Planto demonstrate that they are adequately defended and safe. Planningpermission will be refused for schemes which do not pass thesequential and exception tests.5.14.37 The Council will prioritise the maintenance, improvement orreplacement of flood defence infrastructure over other land uses whererelevant.Sustainable Drainage and Surface Water Run-Off5.14.38 The Council will seek to minimise the impact of drainage fromnew development on waste water systems. In particular, the Councilwill:• Require that surface water run-off from all new development hasno greater adverse impact than the existing use;• Require the use of Sustainable Drainage Systems on alldevelopments where technically and financially feasible.Water Demand Management5.14.39 The Council will seek to manage the supply of water in theBorough and reduce the impact of new development on the supply ofpotable water as much as possible. In particular, the Council will:• Require all new homes to be built to at least level 3/4 of the Codefor Sustainable Homes in terms of water use (105 litres per personper day consumption). Where it can be demonstrated that a185

development is unable to meet these standards, permission willonly be granted if provision is made for compensatory watersavings elsewhere in the Borough;• Seek 5% of homes on key sites to act as exemplars by meetinglevel 5/6 of the Code for Sustainable Homes in terms of water use(80 litres per person per day consumption);• Require all non-residential developments of 1,000 sq.m and aboveto meet the BREEAM ‘excellent’ standards of water efficiency andinclude provision for the collection of rainwater; and• Support proposals to retrofit existing residential properties inways which reduce water consumption.Carbon Reduction5.14.40 The Council will seek to reduce the overall carbon footprint ofthe Borough. In particular, the Council will:• Require proposals for development of the key sites to considerthe potential and include proposals for low carbon and renewableenergy generation, including combined heat and power.Applicants must submit evidence which demonstrates how therequirements have been met or which demonstrate thatcompliance is not technically or financially feasible;• Support stand-alone decentralised, renewable or low carbonenergy development where it does not adversely affect theopenness of the Green Belt and is consistent with AONB policy;and• Support other proposals which lead to a reduction in carbonfootprint including the retrofitting of existing homes.5.15 Development and Design Principles5.15.1 Gravesham has a distinct and diverse character, with its uniqueheritage as an historic riverside town, surrounded by distinct rural settlementsset in an attractive rural landscape, which is highly valued by residents and186

visitors alike. Over the plan period, the Council proposes to safeguard theGreen Belt by meeting its development needs predominantly within the urbanarea. To deliver this strategy the Council will seek to achieve the mostefficient use of land. This in turn will lead to increases in the density of thebuilt environment particularly in the urban area and the rural settlements insetfrom the Green Belt. The challenge is to ensure that new development is welldesigned so that it strengthens the character and distinctiveness of the area,safeguards local amenity and makes a positive contribution to theenvironment.5.15.2 This policy gathers together the design requirements from a range ofpolicies within the Core Strategy. Developers should refer to all relevantpolicies in the plan to inform their submission.5.15.3 The Council will seek to manage new development in a way thatmakes a positive contribution to the built, historic and natural environment.Ensuring new development is attractive, fit for purpose, reinforces localcharacter and safeguards people's amenity is key to achieving successfulneighbourhoods and gaining community acceptance of changes to their localarea. However this does not mean that only traditional design solutions will besupported. The Council recognises the positive impact contemporary,innovative design solutions can have in appropriate locations, particularlywhere they embrace sustainability and enhance local distinctiveness.5.15.4 General design principles underpinning good design are set out innational policy and other locally adopted documents including the Kent DesignGuide (Supplementary Guidance) and the Kent Downs AONB ManagementPlan. For residential development, "Building for Life" is the national standardfor residential design quality and encompasses good design objectives. Theseprinciples underpin Gravesham's approach to design.5.15.5 The Council recognises that different parts of the Borough presentdifferent contexts for new development and therefore require different designresponses if they are to be successfully integrated into the surrounding area.To help understand the character of the Borough, a range of studies havebeen carried out which include a Landscape Character Assessment and187

Urban Baseline Study. A Townscape Character study is also being prepared.Appraisals of most of the Borough's Conservation Areas have beenundertaken and a range of Management Plans produced to inform decisionsand guide investment decisions in these areas. Furthermore, somecommunities, such as Meopham, have prepared their own Parish Plan andthis includes a consideration of the settlement's character.5.15.6 In line with national policy, the Council recognises that safety andsecurity are essential in creating successful places where people wish to liveand work. In considering the design and layout of proposals, applicants willhave regard to the principles contained in current guidance such as "Securedby Design", "Crime Prevention through Environmental Design" and "ParkMark" (for car parks).5.15.7 National policy recognises the contribution that a high quality publicrealm makes in creating successful places. Public art is a component of thepublic realm and can contribute to the creation of a strong sense of place andlocal distinctiveness in a scheme. It can take many forms from physical piecesto creative lighting, street furniture and street paving. The Council will expectapplicants to consider opportunities to provide public art as an integral part oftheir approach to the public realm.5.15.8 There is a strong case for seeking improvements to achieve moresustainable new development. The degree to which new developmentincorporates sustainable construction and makes efficient use of resources,including land are important components of good design. In line with nationalpolicy, the Council will support new development that uses land efficiently andincorporates innovative designs and measures to address the causes andeffects of climate change, as set out in policy CS18.5.15.9 In support of their proposals, applicants will submit Design and Accessstatements to explain the design principles that have informed the approachunderlying the planning application and to demonstrate how they have takenaccount of the design criteria and guidance adopted by the Council and otherrelevant planning policies and studies set out in the Core Strategy.Statements will also demonstrate how the design ensures that everyone,188

including disabled, older people and very young children, will be able to usethe buildings and spaces being created and how crime prevention measureshave been incorporated within the proposal. Current best practice guidanceon Design and Access statements can be found in the Commission for theBuilt Environment (CABE) document "Design and Access Statements: How towrite, read and use them”5.15.10 To support the delivery of well-designed successful developments,the Council will encourage pre-application discussions with developers,particularly for major development proposals, sensitive development orproposals that affect a wide area. For larger and more complex proposals,developers may also be required to submit additional information to supporttheir application such as a spatial masterplan, development brief, conceptstatement or design codes.5.15.11 A proportionate amount of stakeholder and community engagementshould also be undertaken to ensure that the design approach responds toexpert advice and the needs and wishes of those who will use the places orbuildings created or be impacted upon by them. Developers will beencouraged to seek independent advice from the South East England DesignReview Panel (currently provided through the Kent Architecture Centre), toinform their design approach, where proposals are likely to have a significantimpact on the appearance and functioning of an area.5.15.12 The space within and around individual dwellings is an importantfactor in the quality and adaptability of accommodation, the well-being ofoccupants and the impact of a proposed development on the character andamenity of the surrounding area. Currently the Council uses its ResidentialLayout Guidelines, which were adopted in 1996 as Supplementary PlanningGuidance, to ensure that housing layouts, room sizes, internal arrangementsand amenity space meet a minimum standard. All new residentialaccommodation, including conversions, will normally be required to conformto the space standards set out in the current Supplementary PlanningGuidance. It is expected that the minimum internal floorspace standards willbe exceeded to create good quality accommodation and to ensure futureadaptability of the dwelling.189

5.15.13 The Council will provide further guidance on these design principles inthe Site Allocations and Development Management Policies DPD and throughSupplementary Planning Documents.Policy CS19: Development and Design Principles5.15.14 New development will be visually attractive, fit for purpose andlocally distinctive. It will reinforce the character of the local built,heritage and natural environment, integrate well with the surroundinglocal area and meet anti-crime standards. The design and constructionof new development will incorporate sustainable construction standardsand techniques, be adaptable to reflect changing lifestyles, and beresilient to the effects of climate change. This will be achieved throughthe criteria set out below:• In line with the guidance set out in Kent Design, the design, layoutand form of new development will be derived from a robustanalysis of local context and character and will make a positivecontribution to the street scene, the quality of the public realmand the character of the area. Account will be taken of the scale,height, building lines, layout, materials and other characteristicsof adjoining buildings and land. Account will also be taken ofstrategic views, heritage assets and natural features whichcontribute to local character and sense of place;• New development will encourage sustainable living and choicethrough a mix of compatible uses which are well connected toplaces that people want to use, including the public transportnetwork, local services and community facilities; encouragesustainable travel; enhance Green Grid links and encouragehealthier lifestyles;• New development will avoid causing harm to the amenity ofneighbouring occupants, including loss of privacy, daylight andsunlight, and will avoid adverse environmental impacts in termsof noise, air, light and groundwater pollution and landcontamination;190

• The design and layout of new residential development, includingconversions, shall accord with the adopted Residential LayoutGuidelines;• New development will be designed in an inclusive way to beaccessible to all members of the community;• New development will provide appropriate levels of private andpublic amenity space;• New development will include details of appropriate hard and softlandscaping, public art, street furniture, lighting and signage andshall ensure that public realm and open spaces are well planned,appropriately detailed and maintained so they endure;• Car parking will be well related to the development it serves.• New development will protect and, where opportunities arise,enhance biodiversity and the Borough’s Green Grid network.Support will be given to environmental enhancements whereopportunities arise;• New development will be fit for purpose and adaptable to allowchanges to be made to meet the needs of users;• The design and layout of new development will take advantage ofopportunities to build in resilience to the effects of climatechange. This will include protection against flood risk, whererelevant, delivering carbon reduction, provision for low carbonand renewable energy, and minimising energy consumption andwater use;• New development will incorporate appropriate facilities for thestorage and recycling of waste; and• The layout of new development will create a safe and secureenvironment and provide surveillance to minimises opportunitiesfor crime and vandalism.5.16 Heritage and the Historic Environment5.16.1 Our heritage is a valuable but fragile asset, so easily destroyed but soimportant in how we define or make sense of the world within which we live.191

As our heritage comprises remnants of the past, such assets that have beenpassed down to us must be treated as a non-renewable resource. Theprinciple of sustainable development therefore dictates that we should act ascustodians of our heritage, meeting the Borough's current needs andaspirations whilst enabling future generations to benefit from, interpret andenjoy this irreplaceable legacy. The richness and diversity of local heritageassets sets much of Gravesham apart from other areas and provides astrategic advantage upon which to build its future role and identity.5.16.2 In addition to their cultural, architectural and historic importance, theseassets have the potential to act as a significant draw for inward investmentand heritage led regeneration. This is both through the enhancement of theirsettings and the creation of a more interesting and attractive place to live,work and visit.5.16.3 Of particular importance in defining the heritage interest of Graveshamare:-• The historic town centre of Gravesend in its riverside setting, togetherwith the borough's urban conservation areas and their settings;• The borough's historic villages, many of which include conservationareas at their core, and their countryside settings; and• The borough's extensive maritime, military, industrial and transporthistory that is revealed in surviving built form and archaeologicalremains.5.16.4 The Borough's also benefits from having many literary connectionswith Charles Dickens and from the presence of historic Cobham Hall and itssurrounding landscape.5.16.5 National planning policy clearly establishes that conservation andenhancement of the historic environment should be afforded considerableimportance within the planning process and that decisions should be made onthe basis of an informed evaluation of the significance of designated and nondesignatedassets. The weight accorded the heritage interest in any decisionwill depend on the significance of the asset and the degree of harm caused toit or its setting compared to the public benefit that may derive from the192

development proposed. It also allows local authorities to consider the benefitsof enabling development to secure the future conservation of a heritage asset.5.16.6 The nature and form of heritage assets within the Borough areextremely diverse and extend beyond those which may be subject to statutorydesignation. Further information on the Borough's heritage assets can befound in the Heritage and Character Baseline Report December 2009.Depending on their heritage significance, and the value placed upon them bythe local and wider communities, these assets contribute toward what makesthe Borough distinctive and how people relate to it.5.16.7 The Borough's key heritage assets include:• Listed Buildings (approximately 450 in total) such as Gads Hill,Higham, the former home of Charles Dickens;• Conservation Areas (24 in total) such as The Hill Northfleet;• Scheduled Monuments (8 in total) such as Gravesend Blockhouse;• Historic landscapes, landscape features, parks and gardens such asCobham Park;• Known archaeological sites and areas of archaeological significance;and• A significant number of un-listed buildings and features of local historicand/or architectural value.5.16.8 The Council has recently undertaken appraisals of some of itsConservation Areas and has developed a range of Management Plans toinform proposals and decisions and to guide investment in the builtenvironment. In addition, the Council can produce lists of locally importantbuildings. Such buildings are not of national importance but still make asignificant contribution to the character and quality of an area because of theirlocal architectural or historic interest. Whilst the Council has maintained a listof locally important buildings for some years, it is intended that this will beupdated and included in a Supplementary Planning Document on heritageand the historic environment in due course. This work will set out and consulton clear criteria (including architectural, historic and townscape significance)and the process to be followed for identifying locally important buildings.193

5.16.9 The Council will expect any proposals for development to demonstratea thorough understanding of the heritage significance of any affected assets,their context and setting. Proposals should have regard to any relevantConservation Area appraisals and associated Management Plans, lists ofbuildings of national and local architectural or heritage interest and guidancerelating to areas of archaeological interest adopted by the Borough Council.Policy CS20: Heritage and the Historic Environment5.16.10 The Borough Council will accord a high priority towards thepreservation, protection and enhancement of its heritage and historicenvironment as a non-renewable resource, central to the regeneration ofthe area and the reinforcement of sense of place. Particular attention inthis regard will be focused on those heritage assets most at risk throughneglect, decay or other threats. Securing viable, sustainable andappropriate futures for such assets at risk will need to be reconciledwith the sensitivity to change that many present.5.16.11 Proposals and initiatives will be supported which preserve and,where appropriate, enhance the significance and setting of theborough’s heritage assets, their interpretation and enjoyment, especiallywhere these contribute to the distinct identity of the borough. Theseinclude:• Gravesend Town Centre, its development as a heritage riversidetown, and its setting;• The borough’s urban and rural conservation areas; and• Surviving built features and archaeology relating to the borough’smaritime, military, industrial and transport history.5.16.12 When considering the impact of a proposed development on adesignated heritage asset, the weight that will be given to the asset’sconservation value will be commensurate with the importance andsignificance of the asset. For non-designated assets, decisions will haveregard to the scale of any harm or loss and the significance of theheritage asset.194

Need this information in a different language or format?Contact Customer Services: Telephone 01474 33 70 00,Fax 01474 33 76 80, Minicom 01474 33 76 17 or emailcustomer.services@gravesham.gov.ukPlanning Policy, Civic Centre, Windmill Street, Gravesend, Kent, DA12 1AUwww.gravesham.gov.uk planning.policy@gravesham.gov.uk Tel. 01474 33 76 03