Regulation 19 Rutland Local Plan

Ended on the 2 December 2024

Large scale development and new settlements

What will this policy do?

This policy establishes the parameters for considering and taking forward large scale development proposals at St George's Barracks once it is vacated by the Ministry of Defence and for land at Woolfox adjacent to the A1 which has been proposed for a new settlement. No allocation is made for these sites in this Local Plan. Instead they have been identified as a Future Opportunity Areas. Policy SS4 provides a framework to help ensure any development is sustainable and holistically planned.

It is expected that St Georges Barracks site will be vacated by the MOD by 2026; at that time, it would constitute "previously developed land" (a brownfield site). Whilst the Woolfox site includes a former WWII airfield, it is considered to be greenfield.

The Council is mindful of potential increases in the Local Housing Need for Rutland and neighbouring areas as set out in the Government's consultation on proposed reforms to the National Planning Policy Framework and other changes to the planning system.

There is potential for either or both sites to help meet future housing and economic development needs. In so doing, this would ease the pressure for future development on the edges of the County's towns and villages. However, there are considerable complexities in considering the future use and development of both sites. It is proposed that these matters can be explored in greater detail through the preparation of a separate masterplan for each site as either a separate Development Plan Document (DPD), or as part of an early review of the Local Plan.

Policy SS4 – Future Opportunity Areas View comments

St. George's Barracks and an area of land at Woolfox are identified as future opportunity areas, defined on the Policies Map as SS4.

This policy provides a framework to help ensure any redevelopment is sustainable and holistically planned and is aligned to the spatial strategy set out in this plan.

The preparation of a masterplan as part of an early review of the Local Plan or as a separate Development Plan Document will be required prior to a planning application being submitted. Major development proposals on the site not detailed in the approved masterplan, or any proposals that will result in a conflict between uses, will not be supported.

The mix of uses and scale of housing and employment development on each site will be determined by the masterplan approach set out above. Redevelopment proposals for the St. George's Barracks site are not expected to deliver more than between 350 and 500 dwellings as part of a mixed-use development, although this will be determined within the proposed masterplan approach through a separate Development Plan Document or through an early review to this plan, once environmental considerations have been taken into account.

Site masterplans will be expected to:

set out the layout, mix and scale of uses, including the relationship with existing uses;
ensure a balanced and inclusive community, providing a mix of the type and tenure of uses. Where this includes housing, it will be expected to meet the needs of all sections of the community (including provision for Gypsy, Traveller and Travelling Showpeople accommodation) alongside the provision and promotion of opportunities for employment;
establish design parameters covering building heights, materials, landscaping, circulation, key features, and views, creating a distinctive environment respecting the site's designated and non-designated heritage assets;
assess impacts on the landscape, views into and out of the site and proposed mitigation to make any impacts acceptable;
demonstrate how the scheme will protect and enhance the natural environment and ecological networks, including the presence of any significant or protected habitat and or species, ensuring a minimum 10% biodiversity net gain and an assessment of likely impacts on ecology generally and on Rutland Water with proposed mitigation measures;
Provides a network of quality multifunctional green infrastructure and high quality open spaces with green access routes linking to nearby settlements and the wider countryside (for St George's Barracks these should be away from Rutland Water).
an evaluation of heritage assets on and off site, including their settings, and known and potential archaeological assets and an understanding of how the historic use and layout of the site may be reflected in the design and layout of new development;
detail the delivery of an appropriate amount and range of infrastructure to support the uses and community on the site which must be delivered in tandem with or ahead of development;
provide a detailed transport assessment including proposals for the delivery of sustainable transport and active travel linking the development with other key settlements in Rutland to ensure that reliance on the private car is minimised on the site;
be supported by a site-specific energy and embodied carbon strategy for the site which investigates the opportunities on the site to deliver net zero carbon development including the potential to offset the energy use of existing homes on the site;
detail the engagement that has taken place with the surrounding community and necessary infrastructure providers and how any necessary mitigation identified have been incorporated in the masterplan;
demonstrate that adequate utilities provision can be achieved in a timely manner to service and support the scale of development proposed;
set out details of phasing of development and infrastructure and construction management plans including assessment of the impact on the community;
address issues related to impact on safeguarded mineral reserves;
provide a clear demonstration that the proposed scheme will be deliverable and viable; and
detail how the scheme will satisfy the policies of the Local Plan and relevant Neighbourhood Plans, where appropriate.

For St George's Barracks the following additional criteria must also be addressed:

be accompanied and influenced by a Heritage Impact Assessment which identifies the potential impact of development on heritage assets including their settings. The masterplan should demonstrate how important heritage assets, such as the Thor Missile site (a Grade II* listed building) will be protected, identifying options for the adaptation and re-use of existing historic buildings where possible; and
identify how the scheme will integrate with the existing communities of Edith Weston and North Luffenham.

For Woolfox the following additional criteria must also be addressed:

how development will be accessed, including detailed proposals for a new junction onto the A1 to support the total amount of development proposed on site; and
identifying how the scheme will integrate with neighbouring uses and local communities, particularly the villages of Stretton and Clipsham.

Why is this policy needed?

The NPPF advises plan makers that the supply of a large number of new homes can often be best achieved through planning for larger scale development, such as new settlements or significant extensions to existing villages and towns, provided that they are well located and designed, and supported by the necessary infrastructure and facilities.

This Local Plan does not, allocate the St. George's or Woolfox for development to meet the housing need proposed for the initial Local Plan period as this Local Plan is based on the current NPPF 2023 requirements. It is recognised, however, that either (or both) site(s) may be required to meet future development needs for both housing and economic development, therefore policy SS4 sets out the baseline requirements for developing future allocations for them as opportunity areas

St George's Barracks

In November 2016, the Ministry of Defence announced that the St George's Barracks site located between the villages of Edith Weston and North Luffenham would close. The timetable for the site to close has been extended and it is now expected that it will be vacated in 2026.

The site is significant in size, extending to about 265 hectares. About a third of the site in the northwestern corner comprises military housing, a community shop, workshops, aircraft hangers, open space and sports and recreational facilities and infrastructure associated with its current and former military uses. This area of the site would be suitable for re-use and or redevelopment once the site is vacated. The remaining site is subject to ecological, geological and heritage constraints which would significantly restrict opportunities for re-use or redevelopment.

This site includes extensive areas of airfield land, technical buildings, and housing and community and leisure facilities for use by service personnel. With the expected closure of the barracks, there is an imperative to plan for the future use and development of the site which also accommodates a Grade II* listed structure (Thor Missile site) and a significant area identified as a mineral safeguarded area.

Development proposals for the re-development of the site remains uncertain at the point of preparing the Local Plan and therefore no specific proposal is included for the site. However, the plan needs to ensure that a policy framework is in place to guide the development of proposals and to help ensure any redevelopment is sustainable and holistically planned and aligned to the spatial strategy set out in this plan. The site is therefore identified as a future opportunity area which would be the subject of a separate Development Plan Document (DPD).

Once vacated the site will become a major brownfield site (previously developed). National planning policy requires councils to make the most effective and efficient use of brownfield land and it is expected that the Ministry of Defence will want to explore all opportunities for the re-use and reclamation of the site.

The barracks were established on the site of the former RAF North Luffenham airfield in 1998. They became the home of the Royal Regiment of Fusiliers in 1999, of the King's Own Royal Border Regiment in 2003 and of the 16th Regiment Royal Artillery in 2007. In April 2013 16th Regiment Royal Artillery received the Freedom of Oakham on behalf of the barracks. In July 2014 16th Regiment Royal Artillery moved to Baker Barracks, Thorney Island. 2 Medical Regiment, Royal Army Medical Corps and 1 Military Working Dogs Regiment, Royal Army Veterinary Corps moved into St George's Barracks later that year.

Prior to the Army taking over the site in 1998, it was used by the RAF. The station was built as a training airfield, opening in 1940. It was later taken over by 5 Group of RAF Bomber Command as a heavy bomber base and was expanded by the building of concrete runways later in the war.

From 1959 to 1963, North Luffenham was the base for PGM-17 Thor intermediate range ballistic missiles, operated by No. 144 Squadron RAF. The Thor missile site was listed as a Grade II* building in 2011.

When the RAF vacated the base, the gates from the main entrance were donated to the village of North Luffenham. The gates which bear the station badge were later erected at the entrance to the village's recreation ground.

The military heritage is deeply ingrained in the site including listed buildings related to the Thor missile site, current operational buildings, streets, spaces, trees, and landscaping and therefore what remains when the operational use of the site ceases will continue to be influenced by its military past.

There is already a community at St. George's, and this will continue to be the case once operational use ceases. It is vital that the future of the community is well managed to ensure a sustainable future for current and future residents. Therefore, this Local Plan will look to ensure that the impacts of this change are well managed to deliver the best possible outcomes for the community through future joint working between the County Council, Ministry of Defence, and other involved partners in terms of planning for its future sustainable development in line with the spatial strategy set out in this plan.

Key issues include:

the unique and important site is of national significance in its heritage.
existing biodiversity and ecology on site.
the specific nature of the site and challenges in relation to integration and improved access both across the site itself and to other settlements, supporting connectivity and future sustainability.
the risk of fragmented nature of current infrastructure across the site and challenges around infrastructure specification and standards affecting opportunities for future public authority adoption.
the relationship of new development to neighbouring communities.
the scope for the retention and development of existing employment opportunities.

The St. George's site offers the opportunity to provide for appropriate employment as part of a comprehensive development proposal. Redevelopment proposals are not expected to deliver more than between 350 and 500 dwellings as part of a mixed-use development, although this will be determined within the proposed masterplan approach through a separate Development Plan Document or through an early review to this plan, once environmental considerations have been taken into account.

Woolfox

The site is known as "Woolfox" and it lies within the administrative area of Rutland County Council. Woolfox is located directly to the east of, and with access to, the A1 in Rutland. The site is also strategically well placed between the existing market towns of Oakham (approx. 9.6 miles to the west), Stamford (approx. 6.6 miles to the south), Grantham (approx. 16.6 miles to the north) and Bourne (approx. 12.3 miles to the east) ('the Site'). It is circa 3.7 miles from the boundary with the adjoining South Kesteven District.

The Woolfox site extends to approximately 503 hectares (1,242 acres) and comprises a former Airfield and agricultural land, as outlined on the Policies Map. It is understood that the former RAF Airfield on the site was constructed in 1940 and was used through the Second World War for training and live missions. After the war, the airfield continued to be used for training until 1953. Part of the airfield adjacent to the A1 was subsequently used for Bloodhound I missiles until 1964, and the site was sold by the MOD, and purchased by the current landowner family in 1966. A number of derelict buildings or evident remains of former buildings, along with significant areas of extensive hard surfacing from the former runways, taxiways, roads and tracks remain present on the site.

Like St George's, the Woolfox site is also subject to environmental and geological constraints and similarly there are uncertainties and complexities to a development in this location. Unlike St George's, the Woolfox site is not considered to meet the definition of previously developed land.

The Council received proposals for the development of a new community at Woolfox, through the Call for Sites. The proposal submitted in 2023 included an expected capacity of at least 4,000 houses together with over 100 hectares of employment land (although previous submissions have referred to the potential of the site delivering higher capacities than this). Should such a large scale, long term new settlement proposal be considered appropriate and deliverable, there may be scope for it to address wider sub-regional needs.

Allocating a development of the scale and nature proposed for Woolfox would compromise the delivery of the proposed spatial strategy set out in this plan and potentially the plans of neighbouring areas. Therefore, the proposals put forward are not considered to be deliverable within the context of the assessed employment and housing needs for Rutland for this plan period. However, the Council is mindful of potential increases in the Local Housing Need for Rutland and neighbouring areas as set out in the Government's consultation on proposed reforms to the National Planning Policy Framework and other changes to the planning system.

The scale, nature and deliverability of a proposal for Woolfox will need to be determined through a masterplan to be prepared either as part of an early review of the Local Plan or as a separate Development Plan Document. This will be required prior to a planning application being submitted.

This Local Plan does not, therefore, allocate the Woolfox site. It is recognised, however, that the site may contribute to meeting future development needs of Rutland, particularly if it is possible to develop a sub-regional basis for its consideration and therefore policy SS4 identifies Woolfox as a future opportunity area.

Supporting Evidence

Whilst large amount of evidence was prepared to support the previous proposals for each site it is expected that a new evidence base will be required as part of the preparation of a master plan for both sites.

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