Lowestoft Lake Lothing and Outer Harbour Area Action Plan...AECOM Lowestoft Lake Lothing and Outer Harbour Area Action Plan 7 The 2007 AAP identified this area as having capacity for

Design + Planning Waveney District Council March 2011

Lowestoft Lake Lothing and Outer Harbour Area Action Plan Strategic Sites Residential Capacity Assumptions Paper

1 Introduction ....................................................................................................................................................................... 1

2 Housing Capacity Summary Table .................................................................................................................................. 3

3 SSP3 - Kirkley Waterfront and Sustainable Urban Neighbourhood ............................................................................. 7

4 SSP5 - Kirkley Rise ......................................................................................................................................................... 13

5 SSP6 - Western End of Lake Lothing ............................................................................................................................ 14

6 SSP7 - Oswald’s Boatyard .............................................................................................................................................. 15

7 SSP8 - The Scores .......................................................................................................................................................... 16

Table of Contents

AECOM Lowestoft Lake Lothing and Outer Harbour Area Action Plan 1

This paper has been prepared to set out assumptions relating to the capacity for housing and other supporting land uses within the Lake Lothing and Outer Harbour Area Action Plan (AAP) area.

The sites covered are as follows:

- SSP3 – Kirkley Waterfront and Sustainable Urban Neighbourhood - SSP5 – Kirkley Rise - SSP6 – Western End of Lake Lothing - SSP7 – Oswald’s Boatyard - SSP8 – The Scores.

Sites SSP1 (PowerPark), SSP 2 (Peto Square), SSP4 (East of England Park), SSP9 (Peto Way/Denmark Road Corridor) are not proposed to contain any residential uses and therefore not covered within this paper.

1.1 Starting Point Indicative site capacity testing was undertaken to inform the Further Preferred Options AAP that was subject to consultation in April/May 2010. This responded to the following key changes in context to the earlier Preferred Options AAP (2007):

- The completion of the SFRA which ruled out several locations within the AAP area previously identified for housing; - The evolution of the Brooke Peninsula scheme by site owners; - The emergence of the Sanyo and Jeld Wen sites for development during the plan period. It should be noted that this exercise included the former Waveney Campus scheme which had been granted planning permission in June 2009. This scheme is no longer being progressed by the Council and its partners, although the planning permission remains valid and the site has been subject to a Compulsory Purchase Order.

The 2007 Preferred Options AAP identified capacity for approximately 1,460 houses within the AAP boundary with Brooke Peninsula, Peto Square, Fishers’ Wharf and Kirkley Waterfront identified as having potential for new residential development, distributed as follows:

- Fishers’ Wharf (PowerPark): ~180 units - Peto Square: ~380 units - Kirkley Waterfront:~350 units - Brooke Peninsula: ~500 units - Oswald’s Boatyard – 50 units Following the emergence of the SFRA and proposals for the PowerPark by 1st East, Fisher’s Wharf (now part of PowerPark) and Peto Square were ruled out as housing sites. It was therefore considered appropriate to reallocate housing proposals to areas at least risk of flooding in the AAP area, which in particular included the Sanyo/Jeld Wen sites. The 2007 Preferred Option AAP proposals are shown in Figure 1.1:

1 Introduction


Figure 1.1 – 2007 Preferred Options AAP Proposals

1.2 Density Assumptions For the purposes of this assessment, a range of housing densities have been applied to calculate likely residential capacities within individual development sites. Forty to fifty units/hectare is considered to be the minimum density suitable for this area, given the urban nature of the AAP area. A maximum of 90 units/hectare is considered appropriate within the AAP area given the local context and surrounding urban form.

An Appendix to this document provides an illustration of recent schemes built to 50 u/ha, 65 u/ha and 90 u/ha and sets out an indication of potential housing typologies that may be applied within the AAP area.

1.3 Structure of Paper The next section provides a table summarising the Council’s assessment of housing capacity within the AAP area based upon development plot size and assumed residential density. The remainder of the paper provides a rationale and basis for these figures within AAP strategic sites.


Table 2.1 illustrates cumulative capacity for residential, employment and commercial sites within the AAP, together with a commentary on assumptions and phasing issues. This demonstrates that the AAP housing target of 1,500 can be achieved.

2 Housing Capacity Summary Table


Site/Parcel

Strategic Site Area

(Ha)

Approximate Development

Area (Ha) Indicative Land Use

Indicative Residential

Density


Capacity

Indicative Employment

Capacity Notes and Phasing Assumptions

SSP3 - Kirkley Waterfront and Sustainable Urban Neighbourhood

B1 1.38 Residential/Office/LiveWork/Retail/Community 90 124

Brooke Peninsula - phasing subject to access constraints being overcome and relocation of existing businesses.





B4a 0.86 Retained Marina/Employment ABP Haven Marina and adjoining employment uses to be retained/intensified.

B4b 0.90 Residential/Office/LiveWork/Retail/Community 90 81







Area of mixed fragmented ownership - longer term development potential subject to access and ownership constraints being overcome.

B8 1.59 Retained Employment

Area around School Road comprising part of vacant Sanyo site, and business premises to be retained. Potential for infill development in short/medium term.

Open Space [1.38] New Open Space Area covered by existing Sanyo factory - high flood hazard. Identified as indicative location for open space.

B10a 1.71 Residential (75%) 65 78

Brooke Peninsula/Sanyo site - potential for initial development accessed from Heath Road. Potential for mixed use development as part of central hub.

B10b Retail/Community/Employment (25%)

Brooke Peninsula/Sanyo site - potential for initial development accessed from Heath Road. Potential for mixed use development as part of central hub.

B11 1.33 Residential/Retail/Community 50 66

Site occupied by SCS Recycling and Witham Oil and Paints - potential for longer term development subject to satisfactory relocation. Accessed via Stanley Road/Nelson's Wharf.

B12 0.97 Residential/Retail/Community 50 48 Site occupied by vacant Sanyo factory. Potential for short term development via School Road.

B13 0.38 Residential 65 25 Site occupied by vacant Sanyo factory. Potential for short term development via School Road.

B14 1.74 Primary School Indicative location for School with potential retention of mature landscaped elements.


Site/Parcel

Strategic Site Area

(Ha)




Density


Capacity



B15 0.15 Residential 65 10 Site occupied by vacant Sanyo factory. Potential for short term development via Heath Road.

B16 1.07 Residential/Retail/Community 50 53 Site occupied by vacant Sanyo factory. Potential for short term development via School Road.

B17 1.30 Residential 50 65

Site occupied by Suffolk County Council - Colville House Education Centre, and vacant Sanyo site. Potential for short/medium term development.

B18 1.93 Residential 50 96 Site occupied by open space adjacent to Jeld Wen. Development subject to reprovision of open space.

TOTAL - West of County Wildlife Site 35.70 20.78 1118

K1 0.58 Waterfront employment - - 0.58

Waterfront site presently occupied by Jeld Wen. Potential for waterfront employment activities, following vacation of Jeld Wen.





K4 5.00 Waveney Campus - - 5.00

Waveney Campus site, existing planning approval and CPO. Potential for sub-division of site as employment location.

K5 1.38 Waterfront employment - - 1.38 Site occupied by modern industrial premises. To be retained for employment

K6 0.94 Employment - - 0.94

Jeld Wen site - potential for employment function subject to access constraints being overcome following vacation of Jeld Wen.





K9 1.71 Residential 50 86 Site occupied by Jeld Wen. Potential for residential fronting Waveney Drive following vacation of Jeld Wen.





TOTAL - Kirkley Waterfront 24.10 17.53 262


Site/Parcel

Strategic Site Area

(Ha)




Density


Capacity



SSP5 - Kirkley Rise

ha

West of Kirkley Rise 0.42 Residential/Commercial ground floor uses 65 27

Vacant site, short/medium potential for residential with ground floor commercial uses. Subject to flood risk constraints.

East of Kirkley Rise 0.63 Residential/Commercial ground floor uses 65 41

Vacant site, short/medium potential for residential with ground floor commercial uses. Subject to flood risk constraints.

Rear of London Road South Health centre

Planning permission for health centre. Scope for small scale residential development.

TOTAL - Kirkley Rise 8.74 1.05 68

SSP6 - West End of Lake Lothing

Various 4.90

Subject to detailed site

design Residential/tourism/employment 57

Fragmented land ownerships with constrained site access. Longer term redevelopment potential. Site allocated in previous interim Local Plan.

SSP7 - Oswald's Boatyard

0.50 0.50 Residential 50

Site subject to planning application for 100 units. Lower housing figure based upon Interim Local Plan allocation.

SSP8 - The Scores

11.70

Subject to detailed site

design Residential 30

Highly fragmented ownerships. Recent piecemeal residential development. Potential to enhance connectivity along scores in longer term.

TOTAL 1585


The 2007 AAP identified this area as having capacity for some 850 units, focused within the Brooke Peninsula site (500 units), and some residential contained on the Jeld Wen site, along the Waveney Drive frontage, and on part of waterfront (350 units).

3.1 Areas West of County Wildlife Site (Brooke Peninsula and Sanyo) A series of issues emerged following the production of the 2007 Preferred Option AAP, which needed to be reflected in the “Further Preferred Options” AAP prepared during early 2010. Key issues addressed were as follows:

- Sanyo had vacated their sites to the south of Brooke Peninsula; - Jeld Wen had indicated their intention to vacate their site during the plan period. - 1st East had received interest from potential off-shore energy sector businesses to utilise water frontage within the Kirkley

Waterfront site. - The site owner of Brooke Peninsula had evolved proposals for residential led development on this site and had submitted a

planning application to Waveney District Council (which had not been registered). This comprised: o 650 residential units (including live/work); o 1,850 sq m retail/restaurants; o 8,462 sq m office; o 4,566 sq m commercial o 140 bed floating hotel; o 200 room continuing care retirement community.

Given the requirement to reconsider the approach to housing capacity across the AAP area these sites were considered to provide considerable potential for a comprehensive housing scheme, whilst taking into consideration the need to retain certain waterfront sites for employment purposes. As a starting point initial site capacity testing was undertaken of the previously unidentified sites whilst incorporating the developer-led Brooke Peninsula proposals. Broad densities of 50, 65 and 90 residential units per hectare were allocated to provide a range of potential capacities across the site. The areas tested are illustrated in Figure 3.1 and Table 3.1. Figure 3.1 – Initial Site Capacity testing exercise

3 SSP3 - Kirkley Waterfront and Sustainable Urban Neighbourhood


Table 3.1 – Initial Area Capacity Testing

Gross Area

Net Area

(80%)

% Resi

Resi Ha

% Other

Non-Resi

50 u/ha

65 u/ha

90 u/ha Comments

Brooke Peninsula 12.2 9.8 100% 9.8 0% 0.0

650

Figure based upon Brooke Peninsula

developer masterplan (66 u/ha).

Sanyo 1 4.9 3.9 70% 2.7 30% 1.2 137 178 247 Includes provision for1.5 ha primary

school Sanyo 2 3 2.4 100% 2.4 0% 0.0 120 156 216

Sanyo 3 1.3 1.04 100% 1.0 0% 0.0 52 68 94

Sanyo 4 0.4 0.3 100% 0.3 0% 0.0 16 21 29

Sanyo 5 4.9 3.9 25% 1.0 75% 2.9 49 64 88

SANYO TOTAL 374 487 674

Kirkley 1 14.2 11.4 30% 3.4 70% 8.0 170 222 247

Kirkley 2 5.0 4.0 0% 0.0 100% 4.0 0 0 247

KIRKLEY TOTAL 170 222 494

Total: Brooke/Sanyo/Kirkley

1194 1359 1818

This indicated potential to accommodate a range of between 1,194 and 1,818 residential units within the site (including the Brooke Peninsula proposals for 650 residential units).

This formed the basis for discussions with stakeholders and further schematic design for the site.

Refining a comprehensive approach Following this iterative process, two options were drawn up, taking on board high level masterplanning principles for the site. This also sought to reconsider the layout of Brooke Peninsula to be better integrated into a wider comprehensive scheme. Principles included:

- A broad street network taking on board likely connections into and through the site; - The requirement for a new primary school; - The requirement to retain or reprovide existing open space within the site; - The need to incorporate a range of housing types and densities:

o High density (90 u/ha) were applied to areas closer to the waterfront, recognising the need to raise habitable rooms above any flood line, together with land raising and viability requirements within the site;

o Lower densities were applied through southern parts of the site towards existing residential properties, which are typically in the range of 40-75 u/ha.

Option 1 included provision for the comprehensive redevelopment of the entire site (i.e. maximum redevelopment potential);

Option 2 took into account site constraints including the requirement to incorporate retained areas such as the ABP marina and other employment functions within the site. This option also considered the development of the open space within the Jeld Wen site, with reprovision on areas of higher flood hazard within the centre of the site (in the general location of the existing Sanyo factory building).

3.2 Option 1 – Comprehensive Redevelopment: This option took the entire area and divided into parcels, each of which was ascribed a residential density based upon location. This sought to retain the County Wildlife Site and Jeld Wen open space in situ. Based upon this approach, residential capacity of some 1,265 residential units was identified as illustrated in Figure 3.2 and Table 3.2.


Figure 3.2 – Option 1 – Maximum Redevelopment

Table 3.2. – Option 1 – Approximate Capacity (Sites West of County Wildlife Site)




Density


Capacity














B14 1.74 School




Total 20.00 1265

Option 2 – Constrained Development Option 2 was prepared to take into account issues raised by stakeholders including local councillors, ABP English Heritage, Natural England and the Environment Agency. This option sought to relocate open space to the centre of the site in an area of high flood hazard. It also sought to retain employment and marina functions around School Road, with the potential to intensify these uses. This resulted in a reduction in residential capacity to 1,118 units as illustrated in Figure 3.3 and Table 3.3.


Figure 3.3 – Option 2 – Constrained Redevelopment

Table 3.3. – Option 2– Approximate Capacity (Sites West of County Wildlife Site)

Parcel




Density


Capacity




B4a 0.86 Retained Marina/Employment

B4b 0.90 Residential/Office/LiveWork/Retail/Community 90 81




B8 1.59 Retained Employment

Open Space [1.38] New Open Space

B10a 1.71 Residential (75%) 65 78

B10b Retail/Community/Employment (25%)




B14 1.74 Primary School





TOTAL 20.78* 1,118

*Excluding open space


3.3 Kirkley Waterfront The potential for a greater mix of uses at Kirkley Waterfront was also explored as part of the capacity testing exercise. This sought to focus employment functions towards the waterfront, taking account of suggested demands from off-shore operators in these sites. At this time the Waveney Campus was moving forward and so was incorporated into the exercise. This site remains as having potential for office-campus development, although it is noted that a range of reconfiguration options that may be appropriate in this location.

Residential uses were focused along Waveney Drive, with potential for lower density residential uses (50 dwellings per hectare) that would follow the character of the surrounding building stock.

Based upon the indicative capacity testing exercise, capacity for some 262 residential units was established, with some 12.28 ha retained for employment uses.

Table 3.4 – Potential capacity within Kirkley Waterfront (both Options)

Parcel




Density


Capacity


Capacity

Building footprint (based

upon 40% plot ratio)

Gross Employment Floorspace (based

upon 1.5 floors)

K1 0.58 Waterfront

employment - - 0.58 2336.80 3,505.2

K2 1.25 Waterfront

employment - - 1.25 5000.00 7,500

K3 0.30 Waterfront

employment - - 0.30 1205.60 1,808.4

K4 5.00

Employment (former

Waveney Campus) - - 5.00 20000.00 30,000

K5 1.38 Waterfront

employment - - 1.38 5511.20 8,266.8

K6 0.94 Employment - - 0.94 3760.00 5,640

K7 1.66 Employment - - 1.66 6637.20 9,955.8

K8 1.17 Employment - - 1.17 4661.20 6,991.8

K9 1.71 Residential 50 86





TOTAL 17.53 262 12.28 73,668

3.4 Basis for AAP Proposals This capacity testing exercise was intended to establish initial high level development principles to take forward within the AAP and form a starting point for discussions with the developers and other stakeholders.

It must be recognised that considerable further master planning work is required to formulate proposals. However, based upon the exercise the following assumptions were taken forward to form a basis for AAP proposals:

- Option 2 was considered most appropriate for sites west of the County Wildlife Site due to its ability to retain the ABP marina and employment uses and respond to flood hazard risks. For this reason the indicative residential capacity of 1,118 units was used as the base assumption for AAP proposals within this area.

- Within Kirkley Waterfront 262 residential units was considered to be an appropriate assumption given likely future employment demands indicated by 1st East, with 12.28 ha identified as a likely employment requirement within these areas. However, this figure may be increased dependent upon employment demands within this area.

- A total of 1,380 residential units were therefore considered to be an appropriate assumption to be taken forward within AAP proposals.

It is recognised that a range of configurations and land use mixes may be brought forward within this area, and subsequent representations from stakeholders (including representatives of site land owners) had various objections regarding illustrating prescriptive design principles within the AAP. For this reason the initial capacity exercise was used as a basis to establish high level principles, recognising that these will be subject to future refinement, taking a comprehensive partnership approach with site


owners. The AAP therefore includes high level diagrams that illustrate the core principles established during this planning stage, but does not provide detailed commitments to site layouts.


Kirkley Rise relates to the area south of Horn Hill, and west of London Road South District Shopping Area. This area has been identified as having some scope for residential development to contribute to overall AAP targets. The Council are aware of current interest from the site land owner to develop the site and is therefore considered to offer short term development potential.

The area had previously been identified in the 2004 Interim Waveney District Local Plan for mixed use development (residential, commercial, open space). Policy H1 identified potential for 30 units built at 60 units/hectare) on 0.5 ha of the site. Since this time, an access road “Kirkley Rise” has been constructed to link the London Road South Area, with Horn Hill.

The area contains a considerable amount of employment uses which the AAP seeks to retain.

The AAP identifies two potential development parcels on the east and west side of Kirkley Rise. Taking the Interim Local Plan density assumption as a basis (65 units/ha), the following potential residential capacity was identified to use as a basis for AAP proposals. Sites are illustrated in Figure 4.1 and potential capacity is identified in Table 4.1.

Table 4.1 – Kirkley Rise Residential Assumptions

ha Residential Units (@65 units/ha)

West of Kirkley Rise 0.42 27

East of Kirkley Rise 0.63 41

TOTAL 1.05 68

Further residential development may be accommodated to the south of the site, adjacent to the health centre (recently granted planning permission).

Figure 4.1 - Kirkley Rise Development Sites

4 SSP5 - Kirkley Rise


The Western End of Lake Lothing refers to the area to the south west of Lake Lothing between Stanley Road and Saltwater Way to the north of Victoria Road. The area extends to some 4.9 ha and is currently characterised by small scale industrial uses, underutilised employment land and residential focused around Stanley Road/ Crompton Road. The Waveney Interim Local Plan (2004) identified this location for tourism, marine and residential uses including up to 113 new homes. Land between the railway line and Saltwater Way now has planning permission for residential uses.

Policy SSP6 continues to allocate the remainder of this area, between the railway line and Stanley Road, for smaller scale incremental development of tourism, marine and residential uses, including potential for some 57 new homes (based upon the previous Local Plan allocation). Important considerations in bringing forward development include overcoming flooding and access constraints prior to development, providing public access to the waterfront and ensuring that the amenity of existing residents is not adversely affected. It is therefore considered to be a longer term proposal.

Figure 5.1 – Western End of Lake Lothing - Development Sites

5 SSP6 - Western End of Lake Lothing


The Oswald’s Boatyard site provides a short-term opportunity to facilitate development within the western part of the AAP area. This site is currently occupied by a disused boat yard, two cottages, and library. The site was previously allocated in the Waveney Interim Local Plan (2004) for residential, library and tourism facilities and was subject to a planning application for a scheme comprising approximately 100 residential units. Policy SSP7 carries forward the interim Local Plan allocation, including lower density residential development (approximately 50 residential units) and a replacement library. The site has considerable flood risk issues and was included in the Cumulative Land Raising Study as a location for land raising. Development in this area will be acceptable providing the flood risk issues are mitigated.

Figure 6.1 – Oswald’s Boatyard Development Site

6 SSP7 - Oswald’s Boatyard


The area west of the High Street contains a network of historic laneways known as the Scores. This area is characterised by complex, fragmented land ownership and predominantly light industrial land uses. However, in recent years an increasing amount of residential development has been brought forward in this area, notably the area adjacent to Lighthouse Score to the north of the area, adjacent to existing residential property on Whapload Road, and along Martins Score.

Whilst the precise potential capacity of this area is difficult to ascertain at the current time, there is a likelihood that the trend for residential infill development will continue. It is considered that residential development within this area, particularly along the frontage of the historic scores, will assist in the regeneration and enlivenment of this area.

Figure 7.1 and Table 7.1 identify recent residential development sites, together with potential sites that are presently considered to be underutilised and may provide scope for residential development. This is based upon an initial site appraisal exercise and broad brush density assumptions of 50 units/hectare, which is reflective of the current residential character of this area.

This illustrates that in identified sites some 100 units may be accommodated. However, due to uncertainty relating to land ownership a more conservative estimate of 30 units has been taken forward within the AAP, recognising that greater potential may exist within this area during the plan period depending upon the areas ongoing viability as an employment area.

Table 7.1 – The Scores –Indicative Capacity of Potential Development Sites

Ref Use Location Area Ha Units (@50u/ha)

A Residential South of Lighthouse Score 1.00 50

B Residential South of Lighthouse Score 0.30 15

C Residential South of Mariners Score 0.14 7

D Residential South of Crown Score 0.09 4

E Residential South of Rant Score 0.39 20

F Residential South of Spurgeons Score 0.10 5

TOTAL 2.02 101

7 SSP8 - The Scores


Figure 6.1 – The Scores – Recent Residential Development Sites and Indicative Future Development Sites


Appendix – Housing Density Case Studies

AECOM Lowestoft Lake Lothing and Outer Harbour Area Action Plan 20 Capabilities on project: Error! Reference source not found.

Housing Density Case Studies Up to 50 units per hectare Typical Housing Typology Semi-Detached/Town Houses/Flats Typical Housing Size 3-5 bedroom units

2-3 storeys Typical Layout

Open Space Private and Communal Gardens Case Studies Hereward Hall, March, Cambridge Architect: Proctor Matthews Site Area: 0.7 Ha Dwellings: 35 houses Density: 50 dwellings/hectare Typical unit area: 2 bed house – 76 sq m, 4 bed house 86 sq m


Newhall Essex Architect: Alison Brooks Architects Site Area: 1.63 ha Dwellings: 85 (25 flats, 14 villas, 29 courtyard, 7 terraces) Density: 52 dwellings/hectare Parking: 138 spaces Typical areas: 50 sq m- 134 sqm


Up to 65 units/hectare Typical Housing Typology Town Houses/Flats Typical Housing Size 2-4 bedroom units


Open Space Private courtyards, communal space, balconies Case Studies Accordia, Cambridge Architect: Fielden Clegg Bradley Studios, Maccreanor Lavington, Alison Brooks Architects Site Area: 9.5 Ha Dwellings: 378 (166 flats, 212 houses) Density: 40 dwellings/hectare overall, 67 dwellings/hectare in built up area Typical unit area: 1 bed flat – 50 sq m, 5 bed house 360 sq m


Coin Street, London – 68 u/ha


Upton, Northampton – 65 u/ha


Up to 90 units per hectare Typical Housing Typology Flats Typical Housing Size 1-3 bedroom units


Open Space Private Courtyards/Communal Space/balconies Case Studies Chapel, Southampton Number of dwellings: 174 units (152 flats, 22 townhouses) Dwelling type: 40 one bed apartments, 112 two bed apartments, 5 three bed and 17 four bed townhouses comprising: 110 private units - 94 flats, 2 three bed houses, 14 four bed houses and 64 affordable units - 15 one bed, 43 two bed flats (including five shared ownership), 3 three bed, 4 four bed townhouses. 37% affordable units Site area / density (units per hectare): 1.943 hectares / 90 dwellings per hectare Parking ratio: 1:1 for private units (110 spaces) 1:0.75 for affordable (48 spaces) Typical unit area: 1 bed flat - 53.7 sq.m / 2 bed flat - 69 sq.m / 3 bed townhouse - 106 sq.m / 4 bed town house - 111 sq.m

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Lowestoft Lake Lothing and Outer Harbour Area Action Plan...AECOM Lowestoft Lake Lothing and Outer Harbour Area Action Plan 7 The 2007 AAP identified this area as having capacity for