• Contents
• Introduction
• Strategic Policies
• Economy, Industry & Commerce
• Housing
• Town Centres, Retailing & Leisure
• General Community Services
• Transport
• Open Environment
• Built & Historic Environment
• Waste, Pollution, Minerals, Water & Energy
• Planning Standards & Controls
• Car Parking Standards
• Cycle Parking Standards
• Proposals Map Schedules
• Glossary of Terms

PART ONE

CHAPTER 1 - STRATEGIC POLICIES

INTRODUCTION

BACKGROUND

POLICY CONTEXT

STRATEGIC POLICIES

SP1 The Environment

SP2 Urban Design

SP3 Transport Impact

SP4 Integrated Transport

SP5 Highway Schemes

SP6 Public Transport, Cyclists and Pedestrians

SP7 Retention of Employment Land

SP8 New Employment or Mixed Use Developments

SP9 Skilled Local Labour Force

SP10 Shopping Centres Hierarchy

SP11 Shopping Centres - Access, Convenience and Attractiveness

SP12 Housing Provision

SP13 Residential Development - High Standards of Design

SP14 General Community Facilities

SP15 Leisure and Recreation Uses

SP16 Planning for Equality

SP17 Urban Regeneration

SP18 Planning Obligations

SP19 Monitoring and Review

Fig 1.1 Key Diagram
Fig 1.2 Context Diagram

Background

Current Situation

1.5 The following paragraphs are intended to briefly describe the Borough, and provide a context for the policies and proposals of the Plan. More detailed statistical information about Waltham Forest and its residents is available from the Council's publication 'Borough Trends' and its own Website www.walthamforest.gov.uk. Other documents which provide information on specific topics include the Council's Housing Strategy and Local Implementation Plan (for transport). The publication of data from the 2001 Census of Population will provide more up-to-date information on people living in the Borough.

1.6 Waltham Forest covers an area of 3,860 hectares (almost 10,000 acres) in North East London. The Borough is predominantly residential interspersed with areas of industry and open land. To the north and east, the Borough also contains part of Epping Forest, which is protected from development by the Epping Forest Act of 1878. The western boundary of the Borough runs through the Lee Valley Regional Park, also established by a Parliamentary Act in 1966. These two areas provide not only for recreation and nature conservation but also serve to define the outer limit of built development in this part of London.

1.7 Within the built-up area of the Borough, a broad distinction can be made between the northern and southern areas. The southern parts of the Borough - Leyton, Leytonstone and Walthamstow - were mainly developed in the latter part of the Victorian era. In particular they have traditionally provided homes for first-time buyers. Many have invested in their homes and so brought about a gradual upgrading in the local private housing stock over the past decade. Industrial and commercial premises are often located very close to houses, and whilst the provision of social and community facilities like schools may have met the standards of the day, they are now considered unsatisfactory in some cases.

1.8 In contrast, the northern parts of the Borough are generally more open in character with houses built to higher specifications and relatively well distributed open spaces and community facilities.

1.9 The number of people living in Waltham Forest has risen from 217,664 residents in the adjusted Census 1991 to 218,341 in the Census of April 2001. There was a modest growth in population of 0.3% over the decade, contrasting with an average 3.4% growth in the Outer London Boroughs. Waltham Forest has a comparatively youthful population, when compared with England. The highest population numbers occur in the age groups 20 to 35 years. Below age 25 years there are more males than females, but from age 25 on there are more females in each age group. There were 89,788 households in 2001 compared with 86,722 in 1991, a growth of 3.5%. There were 29,727 one-person households in 2001, 33.1% of all households. This is more than in 1991 (31%) and is a growth of nearly 3,200 one-person households overall.

1.10 As is the case in most other parts of the country, the number of households has risen in recent years, and is projected to continue to rise. This can be largely attributed to more single and dual-person households forming as more people live longer - and to the effects of family and relationship breakdowns. The population of the borough is not expected to change significantly over the next 20 years. This is mainly because the availability of land on which to build new housing is severely restricted. In fact the population is likely to reduce slightly by 2016. This is mainly a function of a restriction on the supply of housing and shrinking average household size. This latter phenomenon is well-established and among other things reflects the ageing population.

1.11 Waltham Forest has changed in ethnic composition since 1991, even though the population total has grown by only a small amount. The White population group in Waltham Forest has fallen by 17,000 over the decade since Census 1991, when this group was 74.4% of the population. Census 2001 shows this proportion is now 64.5%, a total of 140,803 people in all the White groups including the Irish, people from the European Union and elsewhere. The proportion of the population belonging to an ethnic minority group has risen from 25.6% in the Census 1991 to 35.5% of the resident population in 2001. The Black Caribbean group is still the largest ethnic minority group in Waltham Forest. The population was 14,410 in 1991, rising to 17,797 in Census 2001, a growth of 24%. Black Caribbean people are 8.2% of the total population. The second largest ethnic minority group in Waltham Forest is the Pakistani population. This population has grown from 13,310 in 1991 to 17,295 in 2001, a growth of 30%. The Pakistani population in Waltham Forest is 7.9% of the total, the second highest percentage in Greater London after Newham with 8.5%. In 2001 12% of the Greater London Pakistani population lived in Waltham Forest.The Black African group is the next largest in Waltham Forest, with 12,630 people in 2001, 5.7% of the total population. There was a new count of people belonging to mixed ethnic groups introduced by the Census 2001. There are 7,749 people of mixed ethnic origins, 3.6% of the population. The largest mixed ethnic group is Black Caribbean and White, at just over 3,000 people. There are 7,671 Indians in Waltham Forest, 3.5% of the total population. Many other ethnic groups are represented in the Borough.

1.12 Council estimates also suggest that there are over 24,000 people with disabilities resident in Waltham Forest, the majority of whom are women. Disabled people live with a wide variety and severity of disabilities and differing personal circumstances.

1.13 Walthamstow, with its famous street market, is the Borough's largest shopping centre. There are also seven smaller shopping centres (Leytonstone, Bakers Arms, Leyton High Road, Highams Park, Wood Street, North and South Chingford), reasonably well distributed throughout the Borough, as well as a large number of local parades and corner shops. These centres perform a valuable social function. The Council has given priority to improvements to their environment and accessibility since the Plan was first adopted in 1996. There has been a gradual change in the socio-economic character of the borough since then. Many young professional people have been attracted to live here, drawn both by a stock of relatively lower-priced private housing and the availability of a gradually improving range of social and community facilities in the area.

1.14 The economy of Waltham Forest cannot be considered in isolation. Many Waltham Forest residents commute to jobs in other areas, notably Central London. The prospects for many businesses based in the Borough will depend on the performance of the wider regional economy.

1.15 The economy of East London has not been as buoyant as other parts of the South East, because it was strongly affected by closures of traditional industries, such as the furniture and footwear industries in Waltham Forest, and did not gain as many jobs in the growth industries of the 1980's (e.g. office jobs, high technology industries) as West London. Indeed, even where new jobs were created such as in Docklands, there is often a mismatch between the skills needed for those jobs, and the skills possessed by local people. The number of claimants in the southern part of the Borough still remains well above the London average. There has been a stabilisation in local employment levels in Waltham Forest since the mid-1990's. This may well have partly been related to investment undertaken in its major industrial areas - e.g. using Objective 2 or Single Regeneration Budget funding.

1.16 The rising cost of housing in the South East has prevented many people on low and middle range incomes from buying their own homes. This, coupled with the high costs of privately rented accommodation and the constraints on Council house building, has led to increasing levels of homelessness in the Borough.

1.17 The increasing use of private cars and the additional numbers of people travelling into or round London have caused severe traffic congestion in the Borough. Four main traffic routes cross the Borough: the North Circular Road; Forest Road; Lea Bridge Road and Leytonstone High Road. Peak hour congestion on these main roads causes further congestion on local roads and "rat-running" through residential areas. It is also detrimental to industrial and commercial activity in the Borough, including shopping centres. However, the problems of traffic congestion are have been more acutely felt in the southern part of the Borough where car ownership levels are lowest. Construction of the M.11 Link Road and Orient Way have assisted in relieving some of these problems there, bringing environmental improvements and traffic flow reductions in their wake.

Context for the Plan Review

1.18 This section looks briefly at some of the factors which are part of the background for preparation of this Plan. It is important to acknowledge that the adopted 1996 UDP was essentially a character-based document, primarily reflecting concerns about the form and location of new development and its effect on the existing character of the Borough. Since the production of the Plan, however, greater understanding of the principles of sustainable development has resulted in a review of such matters as :

• the need to use and conserve resources more effectively and efficiently,
• the need to reduce travel, and
• how the form and location of development can contribute to delivering these.

A practical example here would be the Council's commitment now to maintaining a stock of land for industrial / commercial employment partly to give local residents the option of working closer to home and so reducing their need to travel.

1.19 Government thinking has increasingly focused on the need to secure more sustainable development in social, economic and environmental terms, reflected in recent Planning Policy Guidance Notes (PPGs) and Planning Policy Statements (PPSs). Following publication of the Urban Task Force Report, the Government's latest thinking on the way forward was set out in the Urban White Paper "Our Towns and Cities: The Future - Delivering an Urban Renaissance" (2000). A challenge for the production of this Plan Review is to identify the appropriate future role that Waltham Forest should play in order to help make London a more vibrant and attractive place to live. It must develop policies which secure development that is compatible with a more sustainable way of living whilst paying due regard to issues of the character of - and the needs of communities in - the Borough.This chapter identifies the strategic policies which will help deliver the key objectives for Waltham Forest's future development. There is a need to ensure that the policies and proposals in the Plan are consistent with national, regional and strategic London objectives.

1.20 Population change is expected to be an important factor shaping land use decisions in the next ten years. As noted above at paragraph 1.5, the results of the 2001 Census of Population will provide up-todate information on people living in the Borough. Established demographic trends show that nationally there will be an increase in the number of elderly people, and a decline in the number of young adults. This will reduce the number of people joining the workforce; whilst at the same time the number of people dependent on their earnings will rise. A range of initiatives will be needed to broaden the composition and effectiveness of the working population such as increased training opportunities, measures to attract women with children back into paid employment, and flexibility over retirement.

1.21 The Council's population projections for Waltham Forest show the total number of people living in the Borough remaining fairly stable. In line with national trends, there is likely to be a decline in the number of young adults. However, the number of people over 65 is expected to fall contrary to national trends. This is largely because Waltham Forest already has a high proportion of elderly people compared to the London average. Nonetheless Waltham Forest is still projected to have increased numbers of very elderly people (aged over 80) and there will be a significant increase in the number of elderly people from ethnic minority communities whose needs must be catered for.

1.22 Although the total population of the Borough is unlikely to show a marked change, there is likely to be a greater number of households than at present, due to an increase in small households. This change will generate a need for more smaller homes.

1.23 It is also likely that there will continue to be a significant shortage of suitable, affordable accommodation for letting particularly for families. The consequences, if such accommodation is not provided will be further deprivation for homeless families and those in overcrowded conditions. There will also be a continuing need for improvement and repair of homes in all sectors of the housing stock.

1.24 Some land use trends are likely to persist. Most sources suggest a continuing shift away from manufacturing to service and higher value added industries in London. Policy initiatives to encourage economic growth to the less prosperous eastern side of London continue to be strongly supported by both central Government and the Mayor & Greater London Authority, e.g. through resource commitments to the Lea Valley development corridor and the Thames Gateway area. Other factors which may affect the regional and local economy are East London's role in hosting the Olympics 2012 and its legacy; the location of the Channel Tunnel Interchange at Stratford; the expansion of Stansted Airport and completion of other new transport infrastructure in the region.

1.25 The general health of the economy over the next decade will also affect retailing trends. The high rates of growth in retail sales which characterised the 1980s was followed by a deep recession in the early 1990s. There has since been a period of strong economic recovery. Nevertheless, fears of inflation have persisted and - together with such factors as increasing credit availability, fluctuating consumer attitudes, increasing competition amongst retailers and the growth of shopping via the Internet - it has become more difficult to predict trends in retailing over the coming decade. With the change of planning policy in the mid-1990s in PPG6 against out-of-town retail developments, it seems likely that town centres will remain the main destination for many shopping (and linked) trips.

1.26 In recent years there have been changes in the way in which public services are delivered which will have implications for patterns of land use over the next decade. The move towards 'care in the community' for people who would previously have been looked after in institutions is one example. The trend for local authorities to take on the role of enablers of service provision rather than providing them directly is another. Whilst the land use planning system is not directly concerned with the provision or management of services, the development plan must respond to changing needs whilst ensuring that environmental standards are upheld.

1.27 The inevitable uncertainty and complexity surrounding future pressures for land use change, make regular monitoring and review of the Plan's policies essential.

Policy Context

1.28 This section briefly outlines the national, regional and London-wide policy context within which this Plan is prepared. More detailed subject based policy considerations are to found within the following chapters of this plan.

National Policy

1.29 The national policy framework is based upon the various Acts of Parliament relating to town planning and further amplified by Government Guidance which is primarily contained in Circulars and Planning Policy Guidance Notes. These are revised and updated from time to time.

1.30 The 1991 Planning and Compensation Act (section 26) gives greater weight to development plans, such as this UDP, than was previously the case. The act requires that planning decisions should be made in accordance with the development plan unless the weight of other considerations tell against it.

1.31 Underpinning individual national PPGs is the "Strategy for Sustainable Development for the UK: A Better Quality of Life" (1999), which identified the following four main aims:

• Social progress which recognises the needs of everyone;
• Effective protection of the environment;
• Prudent use of natural resources; and
• Maintenance of high and stable levels of economic growth and employment.

1.32 To assist the measurement of progress towards more sustainable development, the Strategy identified a number of headline indicators. A menu of more local indicators for measuring sustainable development and quality of life in local communities was subsequently published in July 2000. The UDP will be an important mechanism for enabling necessary development which secures identified and inter-related objectives.

1.33 The Deputy Prime Minister launched the Communities Plan (Sustainable Communities: Building for the future) on 5 February 2003. The Plan sets out a long-term programme of action for delivering sustainable communities in both urban and rural areas. It aims to tackle housing supply issues in the South East, low demand in other parts of the country, and the quality of public spaces. One of its key themes is accelerating the provision of housing. This includes: ensuring that housing numbers set out in planning guidance for the South East (RPG 9) are delivered; accelerating growth in the four "growth areas" (Thames Gateway, London-Stansted-Cambridge corridor, Ashford, and Milton Keynes-South Midlands); and ensuring that the construction industry has the right skills to deliver. Thames Gateway encompasses areas in the Lower Lea Valley which involve and have an effect on the southern part of the borough and includes the major developments of Stratford City and the 2012 Olympics. The London Stansted Cambridge Corridor includes the Upper Lea Valley which is also an area with significant regeneration potential and includes Central Leeside Business Area, Blackhorse Lane, Walthamstow Town Centre and Leyton.

NATIONAL PLANNING POLICY GUIDANCE NOTES (PPGs) AND PLANNING POLICY STATEMENTS (PPSs)

1.34 Reviews of PPGs provide an up to date context for reviewing the strategic and policy content of development plans. PPS1, PPG3 and PPG13 in particular encompass some of the latest thinking on the practical application of sustainable development principles:

Planning Policy Statement 1: Delivering Sustainable Development (and supplementary document "The Planning System: General Principles")

1.35 PPS1 sets out an integrated approach to planning for sustainable development taking into account the need to achieve social inclusion, protection and enhancement of the environment, the prudent use of natural resources and sustainable economic development. Within the context of sustainable development key issues covered by PPS1 are:

• good design,
• accessibility, and
• community involvement

The supplementary document includes information about the operation of the planning system that had previously been included in PPG1, and has been updated to take account of the Planning and Compulsory Purchase Act 2004.

1.36 PPG3:Housing (2000) set out the Government's housing objectives, including the need to create more sustainable patterns of development, the need to secure the most efficient and effective use of land, seeking to reduce car dependence, and the promotion of good design in new housing developments.

1.37 Planning Policy Guidance Note 3: Housing Update "Supporting the Delivery of New Housing" (January 2005) introduced a new para 42(a). This indicates that local planning authorities should favourably consider plannning applications for housing or mixed use developments which include land allocated for industrial or commercial use unless certain criteria apply. The policy also emphasises the importance of having an up to date employment land review.

1.38 PPG13:Transport (2001) sets down objectives to integrate planning and transport at all levels in order to promote more sustainable transport, and reduce the need to travel, especially by car. This will assist the Government's strategy on sustainable development, including promoting social inclusion, and revitalizing towns and cities as places to live and work. Development plan policies should ensure close linkages with the local transport plan, whilst a range of more detailed advice aims to secure location of new development in order to reduce travel by car. Priority for people over traffic in town centres and other locations is also encouraged.

1.39 "Our Towns and Cities: The Future - Delivering an Urban Renaissance" was published as an Urban White Paper. It included a new vision of urban living to meet the following five main issues:

• a). To accommodate the new homes we will need by 2021;
• b). To encourage people to remain and move back into urban areas;
• c). To tackle the poor quality of life and lack of opportunities in certain urban areas;
• d). To strengthen the factors in all urban areas which will enhance their economic success; and
• e). To make sustainable urban living practical, affordable and attractive.

The new vision is of towns, cities and suburbs which offer a high quality of life and opportunity for all. The Government wishes to see:

• people shaping the future of their community, supported by strong and truly representative local leaders;
• people living in attractive, well kept towns and cities which use open space and buildings well;
• good design and planning which makes it practical to live in a more environmentally sustainable way, with less noise, pollution and traffic congestion;
• towns and cities able to create and share prosperity, investing to help all citizens reach their full potential; and
• good quality services - health, education, housing, transport, finance, shopping, leisure and protection from crime - that meet the needs of people and businesses.

1.40 The Government considers that the urban renaissance will benefit everyone, making towns and cities vibrant and successful, and protecting the countryside from development pressure.

Regional Policy

1.41 Relevant guidance is provided by the Regional Planning Guidance for the South East (RPG9 2001), Strategic Planning Guidance for London Planning Authorities (RPG3-May 1996), and the London Plan 2004.

Regional Planning Guidance for the South East (RPG9 - 2001)

1.42 This provides a context for planning in London, and identifies 12 main principles that should govern the continuing development of the region. It reflects a variety of guidance related to achieving sustainable development, embracing the urban renaissance and the need to concentrate development in urban areas, securing economy in the use of land, and integrating land use and transport.

Adjoining Local Planning Authorities

1.43 In addition to paying due regard to RPG9, the Council will also continue to liaise with adjoining authorities in London and Essex, and in particular comment on reviews of their development plans.

Context of Strategic Planning in London

1.44 The Council will pay regard to the London Plan 2004 (and the Mayor's other strategies on air quality, biodiversity, culture, economic development, energy, noise, transport and waste) as this provides the strategic framework for London planning authorities. Additionally, the Council will take into account other strategies relevant to the aims and objectives of this Plan - e.g. the Economic Development Strategy for London and The Thames Gateway Economic Strategy.

Mayor's Spatial Development Strategy (SDS) (London Plan) 2004

1.45 The policies in this Plan will have to be in general conformity with the SDS. Planning applications of strategic importance have to be referred to the Mayor as required by the Town & Country Planning (Mayor of London) Order, 2000. The Mayor has the power to direct refusal.

1.46 There are perhaps three key areas where Waltham Forest has a particular role to play:

• a). housing, particularly affordable housing - as with most Outer London Boroughs Waltham Forest is home to many people working in Central London.
• b). urban regeneration - the Borough has a role both as a focus for local manufacturing employment and, increasingly, also for creative industries. Notably, the Council is a partner in several regeneration initiatives focussed upon Walthamstow (with its pivotal role in both the Lea Valley and Thames Gateway corridors). Collectively, its town centres offer a significant variety and number of local jobs - which give residents the opportunity to work locally and reduce their need to travel.
• c). access to green spaces - the 'green chains' of the Lee Valley and Epping Forest provide a major recreational resource for many residents of Inner East London. Improving public transport links between Waltham Forest and the rest of London will help to maximise the Borough's contribution to London as a World City.

1.47 Figure 1.1 is a Key Diagram which highlights the major structural elements of the Plan and Figure 1.2 is a Context Diagram which shows strategic features in neighbouring boroughs. Both diagrams are at the end of this chapter.

Waltham Forest - Local Policy Context

Quality of Life - Planning for Sustainability

1.48 A number of boroughwide strategy documents will be periodically produced during the period covered by this review relating to sustainability issues. These include the Community Plan, Local Agenda 21 Action Plan and Green Charter. Other strategies will cover specific issues such as community safety, air quality management, energy and affordable warmth, recycling & waste management.

1.49 Waltham Forest is within the North London Sub Region and will play an important part in contributing to the sub-regional priorities outlined in in Policy 5E1 of the London Plan and being developed in Sub Regional Development Frameworks. The borough contains part of the Upper Lea Valley Opportunity Area and has three Strategic Employment Areas. There are three general locations in Waltham Forest which are categorised as Principal Industrial Locations (PILs) - Central Leeside Business Area, Blackhorse Lane and Lea Bridge Gateway.

Planning for Equality

1.50 It is important that the UDP takes into account the land-use needs of all the Borough's residents. Wherever possible, planning policies should reflect the Council's equal opportunities policies, and help to combat the discrimination and disadvantage encountered by many Borough residents. The Council is working on the preparation of a Community Plan for Waltham Forest. This will be looking at better targetting of the Council's - and other - resources to further address problems of local disadvantage in parts of the borough.

1.51 The Plan does not contain separate policies for specific groups since such an approach would tend to marginalize these groups. Furthermore there are often overlaps between the needs of different groups:- for example making buildings accessible to people with disabilities also makes them accessible to carers with small children. Policy SP15 states the Council's commitment to planning for equality, and reviewing the effect of its policies on particular groups.

1.52 The following paragraphs are a short summary of the main planning issues affecting people with disabilities, women, and the Borough's black and ethnic minority communities.

1.53 People with disabilities are often precluded from playing a full and independent role in society by the inaccessibility of land, buildings, transport and other facilities in the built environment. The Chronically Sick and Disabled Persons Act (1970) sets out basic provisions to ensure access to public buildings (including places of work). The provision of access and facilities to non-domestic buildings for disabled people is now covered by the Building Regulations 1991 and Approved Document M - Access and Facilities for Disabled People: 1992 edition, 2nd impression (with amendments) 1992. The Council's 'Access for All Guidelines' set down the Council's standards in relation to:

• access to buildings (provision of ramps, door widths, etc.);
• provision of parking spaces;
• footway and footpath considerations (minimum widths, dropped kerbs etc.);
• internal features (doors, circulation space etc.);
• toilet provision;
• specific considerations for certain premises including shops, banks, cafes, doctors' surgeries and chemists.

These standards are intended to apply not only to new developments but as far as possible to changes of use and alterations to external appearance (e.g. new shop fronts). The Council will also be guided by the requirements of the Disability Discrimination Act, 1995.

1.54 It is also important to ensure that the Borough's transport network meets the needs of people with disabilities. Most mainstream public transport is inaccessible to many people with disabilities. Whilst the Council itself does not provide mainstream transport services, it will nonetheless continue to lobby for improvements to public transport, including accessibility, and to support other initiatives such as Dial-a-Ride, taxicard and community transport.

1.55 In many respects women use the built environment differently to men. The reasons for this include:

• a). The conventional roles allocated to women as carers and homekeepers;
• b). Women are over-represented in low income groups e.g. pensioners, single parents. This restricts their choices about where they go and how they travel;
• c). Women are often less physically mobile than men. They are the majority of the older population, and are therefore likely to have age related disabilities. They are more likely to be carers of people with access and mobility needs;
• d). Women are restricted by widely accepted cultural definitions of where they can go, particularly at night, if they want to be safe. These additional restrictions affect most areas of women's lives including shopping, employment, leisure, caring for a family and travelling between various places to fulfill these roles.

1.56 Planning policies need to be framed in the light of these considerations. Policies in the Plan which may particularly benefit women include:

• establishing safety and security as important considerations for planning control (see especially policy BHE4);
• policies to promote public transport (policies TSP 1 - TSP 3);
• employment policies recognising the importance of homeworking, training and workplace nurseries (policies INB 11, 13 & 14);
• policies to retain shops in locations where they are accessible to people without cars and to improve facilities for shoppers (most policies of the shopping chapter);
• a policy for affordable housing (policies HSG7 and HSG8).

1.57 People from the borough's black and ethnic minority populations have diverse land use needs, and this diversity should be taken into account when framing planning policies. However there are a number of problems, with land use implications, which are shared by many black and ethnic minority communities. These include:

• higher than average unemployment rates;
• high dependence on public transport;
• difficulty in gaining access to appropriate housing;
• concern for safety in the built environment;
• need for facilities to meet specific cultural/religious requirements.

1.58 Many of the policies cited above as being of particular importance to women will also be of direct relevance to many black and ethnic minority residents (e.g. policies on safety, public transport, affordable housing, training). Other policies in the Plan which may particularly benefit black and ethnic minority communities include:

• policy to support increased provision of units for small business (policy INB11);
• policy to retain local shops, particularly where they serve the needs of local ethnic minority communities (policy TRL 8 );
• policy for community facilities (e.g. religious meeting places (policy GCS 1).

1.59 In some cases, established planning policies can have a disproportionately negative effect on ethnic minority communities. For example, for historical and economic reasons many black businesses operate in non-retail service uses (mini-cab hire, restaurants, takeaways etc). Policies which are devised to retain a high proportion of shops in shopping centres may prevent black businesses gaining access to prime trading locations. Such conflicts underline the need to review the effects of planning policies.

Land use Priorities

1.60 The Council places great importance on preserving and improving the environment. This means striving to create healthy and attractive places in which to live and work. It also means promoting and preserving its bio-diversity, keeping the Borough as green as possible by enhancing existing open spaces and providing new ones wherever possible. The UDP will be kept under review with particular reference here to the London Bio-Diversity Action Plan and to the emerging Waltham Forest Bio-Diversity Action Plan. Ensuring a good relationship between transport and land-use and encouraging efficient methods of travel are also important means of protecting the environment.

1.61 The only substantial areas of Waltham Forest which are not already developed are either Metropolitan Green Belt or valuable areas of open space which the Council is committed to preserving. There is, therefore, a limited amount of land which can become available to meet demands for residential and commercial development or for community uses. This means that there is strong competition for areas of land which do become available, and the process tends to favour those uses which can command high land values.

1.62 Therefore, the Plan contains policies to protect sites in important social, community and recreational uses, which would be difficult to replace elsewhere. The Council will also give careful consideration to providing land for such facilities on its own sites, and where appropriate securing new facilities through planning advantage. It will also work jointly with neighbouring authorities on preparing planning frameworks covering significant development proposals - e.g. as in the case of the Stratford Rail Lands - and consider adopting these as supplementary planning guidance as appropriate. It should be noted here that the proposed Stratford City development will create a high density mixed-use urban centre comprising:

• A regional shopping centre with 140,000 square metres of shopping, to include three department stores and some 120 shops, cafes and bars;
• 465,000 square metres of commercial office space - commercial and retail employment could reach 33,000 jobs in total;
• 4,500 new homes for about 11,000 people;
• 2,000 hotel rooms with associated conferencing and leisure facilities;
• Two schools and a range of community and health facilities.

1.63 The Chesterton Industrial Demand Study (2002) supported the regeneration and protection of industrial land as well as the need to seek managed release where appropriate. Employment uses in the designated Strategic, Borough and Local Employment Areas will be protected unless there are environmental reasons for not doing so or redevelopment is impractical. In other non-designated areas, employment uses will be protected unless it can be shown that the land will not be needed for employment generating uses in the foreseeable future or that it is unsuitable for continued employment use. Opportunities for increasing the amount of land in employment uses are limited due to the predominantly residential nature of the Borough. Recent years have seen increased demand for industrial and commercial premises especially for small businesses. The choice of vacant industrial sites and premises is now limited. It is, therefore, important to retain existing industrial and commercial sites in order that Waltham Forest can contribute to, and benefit from, the strategic aim of economic regeneration in North and East London. By doing so, this also matches the strategic approaches set out in the Economic Development Strategy for London and the Thames Gateway Economic Strategy.

1.64 The Council will look to encourage more environmentally responsive practices by local employers. It will encourage them to undertake audits of environmental practice, consider green travel plans & their parking requirements, energy conservation measures, environmental enhancements and other measures relevant to sustainable development objectives.

1.65 There is an acknowledged need to provide more housing in London, and the Council will encourage the use of suitable sites in the built-up areas for new housing development, subject to the priorities outlined above. The Council will review progress towards meeting the suggested level of new housing provision contained in the Secretary of State's Strategic Guidance for London.

1.66 The Council will give priority to maintaining and improving the Borough's existing town centres, because of their accessibility to most residents. They also offer local jobs and can be a focus for community life. The Plan contains policies to protect the vitality of these centres and to improve the environment for shoppers. It also contains criteria against which any out-of-town shopping developments will be considered.

1.67 During the period covered by this First Review, it is likely that there will be significant land use change in Walthamstow. The bus station has been redeveloped and the Arcade site is expected to be the subject of proposals for development. The Selbourne Walk shopping centre may be extended, whilst the Council also continues to discuss the potential redevelopment of the railway stations with site owners and transport providers.

1.68 It is not possible to establish hard and fast priorities for sites which will become available during the Plan period because of the variety of constraints and opportunities presented by individual sites. In deciding the appropriate use for a particular site, or whether planning permission should be granted, the Council will take into account all of the factors involved, not least the environmental consequences of the proposed development. The Council will be guided by the overall aims of the Plan (see paragraph 1.2) which are reflected in its policies and proposals.

1.69 The following policies form Part I of this Unitary Development Plan.

Strategic Policies

The Environment

1.70 The quality of London's environment is critical to the maintenance of its role as a World Class City. The Council is committed to ensuring that new development contributes to preserving that which is environmentally pleasing in the Borough and improving those parts of Waltham Forest which are less attractive. The design and location of new development must take into account the need to conserve energy and the preservation of the wider environment.

1.71 The Borough is fortunate in having many environmental assets such as attractive Green Belt areas and open spaces within the urban area, which should be preserved and enhanced for their nature conservation and recreational value. These areas also have a functional role to play in breaking up the mass of the built environment or in the case of the Green Belt preventing the outward spread of London. Any application for planning permission in the Green Belt or on Metropolitan Open Land will be considered in relation to the detailed criteria of policies ENV 2, ENV 3, ENV 4 and ENV5 of Chapter 7 (Open Environment).

1.72 There is also a need to enhance the built environment of the Borough, through the Council's own programme of environmental improvements and whenever new development opportunities arise. The Council will also wish to ensure that Conservation Areas and Listed Buildings are properly protected and enhanced.

1.73 New developments can make a positive contribution to the environment if they are well designed and landscaped. Improving the quality of the environment is not confined to aesthetic matters but includes factors such as safety and accessibility for everyone.

1.74 Much of the Borough's attraction lies in the consistent quality of the design and layout of its buildings and public spaces. The Council is committed to securing the highest quality of development throughout the Borough, which maintains and enhances the variety and diversity of Waltham Forest's built environment. It is important to ensure that all new development achieves a high standard of design which has proper regard to the particular characteristics of the site and its integration with the surrounding area. It applies both to the design of individual buildings and wider urban considerations, including the relationship between buildings and the public spaces around them where people meet and move about. The Council will therefore promote a design-based approach to development that encourages quality and innovation rather than the application of prescribed standards. Examples of urban structure and clarity which the Council will emphasise with this policy include the attention given to spaces enclosed by streets and blocks, the creation of clear entrances and vistas, building lines, clear and legible routes and landmarks. Good design has wide benefits, improving the quality of the environment - including providing public art - reinforcing civic pride and helping to secure a more sustainable pattern of development. It should also help to preserve the character of areas where the design and layout of existing development is of a high standard. Wildlife habitat can be retained, enhanced and created through appropriate design, not only of open spaces, but also of built structures. As part of its general commitment to improving the environment of the borough the Council is also preparing an Air Quality Management Action Plan for the borough. Once this is in place, the Council intends producing detailed supplementary planning guidance explaining its approach to development control in the Air Quality Management Action Plan Area. Several of the main policy changes proposed for the first UDP Review are relevant to the Council's air quality objectives and include:

• a) Introducing car-free developments.
• b) Changing off-street parking requirements from minimum to maximum standards.
• c) Using planning obligations to fund public and other transport improvements including walking & cycling.
• d) Requiring transport assessments for developments that would have significant transport implications.
• e) Introducing cycle parking standards.

Transport

1.75 Ensuring a good relationship between transport and land use planning is essential to achieving the overall aims of the Plan (see paragraph 1.2). For example, traffic congestion has a very negative effect on people's environment, causing pollution and inconvenience. Furthermore, economic regeneration cannot be maximised unless transport of workers and goods is as efficient as possible. Although it is not the main provider of transport services, the local authority can, through its development control powers, have an impact on patterns of land use and transport in the Borough. For example, traffic hazards and congestion have a very negative effect on people's environment, causing danger, pollution and inconvenience.

1.76 Walking, cycling and public transport are the most efficient methods of getting around London. They save energy and road space, reduce congestion and cause least damage to the environment. However, they are rendered less attractive means of travelling, because of congestion caused by increasing use of private cars. This in turn encourages more people to use a car, and so a vicious circle of increasing congestion and environmental damage sets in. Although car ownership levels have risen over recent years, many people still do not own or have regular use of a car. This is particularly true for disadvantaged groups such as women, people from black and ethnic minorities, and elderly people. Problems of getting around are even more acutely felt by people with disabilities and carers with children. Policies aimed at improving public transport and helping pedestrians and cyclists will benefit everyone, by reducing congestion and travelling time and freeing road space for essential journeys. The Council will encourage the movement of as much freight as possible by rail and waterway, as these modes of transport cause less environmental damage than road transport.

1.77 New road building or schemes to increase the capacity of existing roads do not solve problems of traffic congestion in the long term, as people are encouraged to make more trips by car. However road improvements required to facilitate development (e.g. for regeneration objectives - such as in the case of the Orient Way) or necessary to enable the Council to achieve its wider transport policies (e.g. to relieve traffic congestion elsewhere - again, as in the case of Orient Way will be considered in the light of policy TSP 14 of Chapter 6 (Transport). The Council will oppose the building of new trunk routes through the Borough, or the designation of existing roads as trunk roads.

Employment

1.78 PPG4 places a duty on local authorities to "ensure that there is sufficient land available for industry and commerce and that the variety of sites is sufficient to meet the differing needs of the user". Regional Guidance (RPG9) acknowledges the need for policies aimed at redressing the imbalance between economic growth in West London and the less prosperous East of the Capital.

1.79 In recent years, there has been a healthy demand for premises in Waltham Forest, to the extent that there is now a very limited supply of vacant industrial land and premises on the market. Much of the demand for premises comes from new or expanding small businesses. It is therefore important to ensure that a variety of sites suitable for employment generating uses is available. To this end the Plan designates industrial and business zones where any loss of land to non- employment uses will be resisted.

1.80 In addition, Waltham Forest has many smaller sites currently in employment uses. These sites should be retained in employment uses where they are not causing unacceptable or insoluble environmental problems. However, the Council accepts that environmentally unacceptable uses should be relocated or extinguished wherever opportunities arise. Furthermore, it may not always be practicable to re-use or redevelop a building or site for employment uses when an existing employer closes. In these circumstances an alternative use such as housing may be acceptable (subject to the detailed requirements of policy INB3).

1.81 Environmental considerations and the need to add to the Borough's housing stock means that there are likely to be few opportunities to increase the amount of land in industrial and business uses.

1.82 Many people feel marginalised from the mainstream of paid employment through prejudice or domestic and childcare responsibilities. Training, coupled with other measures such as increased provision of childcare and improved access arrangements for people with disabilities can help people attain their full potential.

1.83 Over the Plan period there will be fewer young people joining the workforce. This is likely to lead to a shortage of workers, particularly those with relevant and up to date skills. Therefore, there is a need to make the most of resources which are or would be available.

1.84 This would have obvious benefits for the individuals concerned and the wider communities in which they live. However, it is also a material consideration for land use planning. If the potential of the local labour force is not fully realised, it is likely that skilled workers will need to be attracted from elsewhere. This would either result in additional strain on housing in the Borough, or lead to increased commuting and hence greater stress on transport networks. Such pressures would be harmful to the environment in the Borough, lowering the quality of life for all those who live and work in the Borough.

Shopping

1.85 The hierarchy of town centres in Waltham Forest (see paragraphs 4.28 - 4.29 of Chapter 4 (Town Centres, Retailing & Leisure) is reasonably well distributed throughout the Borough. It is important to maintain the vitality and viability of these centres because they are accessible both to car drivers and people who rely on public transport. In seeking to maintain the existing hierarchy of centres, the Council will have due regard to anticipated future retail need, the London Plan and North London Sub-Regional Development Framework.

1.86 The attraction of shops is also the key to maintaining the vitality of shopping centres, which are also important for their contribution to employment and as a focus for community life.

1.87 One of the most important ways of ensuring that shopping centres retain their vitality and viability is to make them more attractive and convenient places to shop. This is stressed in in PPS6 "Planning for Town Centres" (2005) and Policy 3D.1 (Supporting Town Centres) of the London Plan (2004).

Housing

1.88 There is a recognised shortage of housing in London. This has resulted in very high costs of buying and renting properties which, coupled with restrictions on Council house building, has caused high levels of homelessness. Therefore, new house building will generally be welcomed, especially where affordable housing for sale or rent is provided. The Council will generally resist the loss of housing to other uses. The London Plan 2004 indicates that the borough's policy should seek to exceed the figure of 9,140 (460 per annum) additional 'homes' over the period 1997-2016, and to address the suitability of housing development. The review of the London Plan will in due course further change this target.

1.89 However, it is also important to ensure that new developments create a good environment. There is a balance to be struck between the number of homes which can be provided on a site, and the need to ensure a good residential environment. It is also important to maintain a wide diversity of housing in terms of size of units and the character of different residential areas. This contributes to the overall quality of the environment, and means that a wide range of housing types are available for the existing communities in the Borough, and in the interests of economic regeneration.

1.90 Land use planning policies have a limited role to play in housing improvement but they can ensure that developments such as flat conversions improve rather than detract from the quality of the housing stock and the environment. In particular, the Council will promote sustainable housing construction - energy conservation and affordable warmth being examples of the type of objectives it will seek to encourage.

General Community Facilities

1.91 The Plan contains policies for a wide range of social and community facilities provided by public authorities (mainly the Council and the Health Authority), the voluntary sector and private bodies. It is important that the land use needs of these agencies can be met and that facilities are available where they are easily accessible to the communities they serve.

Leisure and Recreation

1.92 Opportunities to participate in a wide variety of leisure pursuits including arts, culture and entertainment, are important to people's mental and physical well being. In a densely built-up urban area like Waltham Forest, finding new sites for indoor or outdoor uses is often difficult because of the pressure from other priority uses such as housing and employment. Therefore it is important to retain existing sites, which are used for both formal and informal leisure activities. Many recreational open spaces also have an environmental value as areas of open land within the built-up area. Some of the Borough's recreational assets such as the green chains of Epping Forest and the Lee Valley have a strategic value to visitors from other parts of London and beyond.

1.93 Given the current demand to use leisure facilities of all types, it is important to make maximum use of facilities which do exist, and to ensure that the needs of disadvantaged groups such as women, black and ethnic minorities and people with disabilities are accorded priority. New leisure facilities will generally be welcomed subject to their compliance with the Plan's other policies, particularly environmental considerations including the protection of open land.

Planning for Equality

1.94 The Government's Planning Policy Guidance Note 12 exhorts local planning authorities "to consider the relationship of planning policies and proposals to social needs and problems, including their likely impact on different groups in the population such as ethnic minorities, religious groups, elderly and disabled people, women, single parent families, students, people living in deprived areas."

1.95 The Race Relations Act, 1976, lays a duty on Local Authorities to promote "equality of opportunity and good relations between persons of different racial groups to eliminate racial discrimination". Section 55 of the Housing and Planning Act 1986 states (as an amendment to the Race Relations Act) that, "It is unlawful for a local planning authority to practice racial discrimination in deciding planning applications and in carrying out its planning functions."

1.96 Section 76 of the 1990 Town & Country Planning Act places a duty on local authorities to draw developers attention to various legislative provisions (principally the Chronically Sick and Disabled Persons Act 1970) which require that public buildings must provide access, parking and toilet facilities for disabled people.

1.97 Thus the local authority has a duty to consider the impact of its planning (and other) policies on different groups and communities in the Borough. This Plan's overall approach is stated in paragraph 1.4 of this Chapter, and a brief summary of the planning issues affecting people with disabilities, women, and black and ethnic minorities is given in paragraphs 1.50-1.59. Policy SP19 on monitoring and review also establishes the need to monitor the effect of planning policies on different groups in the community, to ensure that the Council meets its statutory duty effectively. The Council will also be guided by the requirements of the Disability Discrimination Act 1995.

Urban Regeneration

1.98 The Council's priorities for future work on urban regeneration are set out in the Waltham Forest Regeneration and Investment Strategy 2004. The Council's regeneration policies involve supporting and retaining existing businesses as well as encouraging new ones. The limited amount of land for employment use in the Borough means that land and buildings suitable for such use need to be protected. When one business vacates a site, that site should be retained for employment purposes for the benefit of new businesses. Loss of land from employment use means that fewer jobs can be located within the Borough, so residents have to travel further afield to work. Forcing local people to travel further to seek employment increases their travel costs and disadvantages those on lower incomes. Local job creation and retention also helps to support other parts of the local economy, as firms buy from local suppliers and employees buy from local shops, etc. The only exception to the retention of employment land may be where small sites, undesignated by the Council (see policy INB 3), are not viable for continued employment use, or would create significant amenity problems for surrounding residents. Keeping as wide a range of local job opportunities available in the Borough as possible is not simply a Council objective. The Economic Development Strategy published by the London Development Agency in July, 2001 ("Success Through Diversity") also recognised the value to London as a whole of maintaining a diverse local economy:

"There is evidence that London's economic base is narrowing and is becoming increasingly concentrated on finance and business services. Although this increasing concentration in a narrow range of industries has undoubtedly driven much of London's recent growth, it leaves London potentially more exposed to global economic change and market volatility. London cannot afford to be complacent about its success." . . . . "Economic diversity is necessary for London. It reduces the risks of over-dependence on the success of single economic sectors, and expands opportunities to reinforce all sectors with stronger local demand and positive trading relationships."

1.99 Where mixed use redevelopment is acceptable in principle, such as in the Major Opportunity Sites and Mixed Use Regeneration Areas, the Council will aim to achieve a development that would produce a significant number of jobs to help balance those lost on the site or elsewhere in the Borough.

Planning Obligations

1.100 Planning applications should be considered on their merits and determined in accordance with the provisions of the development plan unless material considerations indicate otherwise. In circumstances where a planning objection to a proposal cannot be overcome by the imposition of conditions, it may be appropriate to enter into a planning obligation with the applicant. Such obligations shall fairly and reasonably relate in scale and kind to the development proposed.

1.101 Government advice on planning obligations is set out in Circular 05/2005

1.102 Where development outside the Borough would have significant implications within Waltham Forest, the Council will discuss with the adjacent Local Planning Authority and other relevant organisations the mitigation of unacceptable effects through a Planning Obligation. Major development proposals such as Stratford City will have significant planning & transport implications for the borough and it will seek mitigation measures as appropriate.

Monitoring and Review

1.103 Because of the rapid pace of economic and social change, planning policies can quickly become outdated or ineffectual. Therefore, the Council will monitor trends and patterns of population change, economic and social activity and the physical environment. PPG12 states that the Secretary of State would "expect plans to be reviewed at least once every five years". However, PPS12 "Local Development Frameworks" indicates that "unitary development plans will be saved for a period of three years' from adoption. This means that policies under the new system will emerge much sooner"

1.104 There is also a need to monitor the impact of policies on different groups in the community (see policy SP14 above). This is necessary because policies which are apparently applied in an egalitarian manner may not be equal in effect.

1.105 The success, or otherwise, of particular policies in achieving the aims and objectives of the Plan will be reviewed. Where necessary statutory amendments will be made to the Plan. Throughout this process of monitoring and review, the opinions and wishes of local people will be taken into account.

IMPLEMENTATION AND RESOURCES

1.106 There are considerable constraints on the Council in framing policies for the Plan and in putting those policies into effect. Firstly, there is the legislative framework within which the Council has to act, including the statutory provisions relating to planning. Secondly, there are the constraints of Government Policy as set out in Strategic Guidance and the national Planning Policy Guidance Notes and Circulars.

1.107 Notwithstanding these constraints, the Council has more influence over the form and timing of development on Council-owned sites than privately owned ones. However, the Council's heavy burden of committed expenditure, together with tight government control of revenue generation and capital expenditure, leaves little surplus for major new projects. Where appropriate the Council may enter into partnership arrangements with private developers and other agencies to ensure that Council-owned sites are developed in a way which accords with the policies of the Plan.

1.108 However, where the Council is wholly dependent upon other agencies - developers, landowners, etc. - to bring forward development proposals, its influence is obviously less direct. Nevertheless, the Plan will still be a useful means of co-ordinating and promoting development, and guiding decisions on planning applications.

1.109 The Plan contains standards and criteria against which applications for new development/extensions/adaptations of buildings will be judged. The judgement may relate to the principles of using a site for one particular purpose rather than another, or to more detailed standards which are designed to ensure that environmental objectives are met. The latter category includes such factors as design, layout, and car parking standards. Such standards are drawn up as a set of day to day working principles.

1.110 However, these standards will be applied flexibly as long as the underlying objectives are not compromised. The Plan aims to strike a balance between the needs for different kinds of development, and the wider objectives of maintaining and enhancing the environment. The Council will exercise its function as planning authority sensitively and with due regard to the needs of residents and businesses. If development proposals are considered unacceptable the Council will try to persuade applicants to amend their proposals to make them consistent with the policies of the Plan.

1.111 The Unitary Development Plan is not intended to be a grandiose blueprint for the future. On the whole its implementation will not be sudden nor its impact dramatic. Primarily, the Plan provides a context within which gradual changes can take place and day-to-day decisions about the use of land and buildings can be made. This framework enables individual decisions to be taken in a co-ordinated way leading towards the overall achievement of the main aims of the Plan (see paragraph 1.2).

1.112 Looking back in a few years' time, it is likely that the Plan will be seen as having set the scene, so far as it is able, for:

• a) a modest increase in the amount of housing in the borough;
• b) improvements to the environmental quality of residential areas through a variety of means, including conservation initiatives, better policies on the control of development, traffic management and so on;
• c) a firmer commitment towards keeping a wide variety of sites of nature conservation interest and promoting bio-diversity;
• d) consolidation of the Borough's employment areas and regeneration initiatives;
• e) the clearer identification of open spaces to be kept.

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