Rhondda Cynon Taf Revised Local Development Plan 2022 - 2037 Preferred Strategy

Section 8 – Revised LDP Preferred Strategy

Aims of the Preferred Strategy

8.1.1 The Preferred Strategy builds upon the Vision of the Revised LDP, which seeks a more resilient and sustainable RCT:

8.1.2 The Preferred Strategy, at its highest level, seeks to ensure an approach that will achieve this Vision and the identified Objectives. It is supported by a framework of Strategic Policies.

8.1.3 The findings of the Strategic Growth and Spatial Options, alongside the Settlement Hierarchy, (and all the evidence gathered to inform them), come together to formulate the most appropriate and deliverable Preferred Strategy.

Proposed Level of Growth

8.1.4 A suitable level of growth for the RLDP for the period 2022-2037 has been determined, which has been derived from the Welsh Government 2018 Principal Population Projections. These are based on fertility, mortality, migration and household composition assumptions. The projections equate to new housing requirements of 8,450 across the Revised LDP plan period, or 564 dwellings to be built per annum. The assumed level of jobs growth associated with this, through the modelling calculation, is a total of 3,990 or 266 each year.

8.1.5 The dwelling and job growth projected by these scenarios are reflective of RCT's position within the National Growth Area of Cardiff, Newport and The Valleys in Future Wales – The National Plan.

8.1.6 It is both positive and aspirational in seeking to achieve the necessary levels of market and affordable housing and economic growth in RCT. Although challenging, it is considered achievable and deliverable.

8.1.7 The Housing Supply Paper and the strategic housing policy, later in the Preferred Strategy, sets out the evidence to indicate that this growth option housing requirement of 8,450 dwellings can be achieved (with an additional 10% buffer to set the housing provision).

8.1.8 The Employment Land Review paper and the strategic employment policy, further set out how the RLDP will seek to achieve the proposed employment growth.

8.1.9 This level of growth will be achieved by an appropriate Spatial Strategy.

Spatial Strategy

8.1.10 The findings of the Spatial Options analysis have been quite clear in that there is not an individual approach that could deliver the proposed growth, and ultimately the whole RLDP effectively. However, it identifies that several of the Spatial Strategy Options have elements of them that would be appropriate and able to contribute significantly to its delivery.

8.1.11 It is necessary to propose a Preferred Strategy that is a combination of the most positive aspects of the Spatial Strategy Options. This should also take into account the distinctive social, environmental and economic characteristics of different parts of the County Borough, and the identified and required level of growth, aligned with where this can be achieved.

8.1.12 A key Spatial Strategy consideration for the whole of the County Borough is associated with the affordable housing need, as set out in the Spatial Strategy Options, and informed by the Local Housing Market Assessment Draft Findings. The Housing Supply Paper then sets out the relationship between the intended methods of delivery of the overall housing provision and the delivery of affordable housing. The Strategy below proposes a spatial spread of delivery of the overall housing provision that closely aligns with the identified sub housing market areas and their affordable housing need. Later sections of this Preferred Strategy set out the location of the proposed strategic scale of housing delivery in the RLDP, and its relationship with these specific areas.

8.1.13 Different parts of the County Borough exhibit very distinct and different characteristics, particularly between the north and south. This has led to different Issues being identified and needing to be addressed. One of the key findings of the Strategy Options is that the fundamental elements of the current LDP Spatial Strategy remains appropriate, as a foundation for the Revised LDP. There is a clear need for the continuation of a distinct difference in strategy approach for the north and the south of the County Borough, to address the Issues and achieve the Objectives of the RLDP.

8.1.14 However, additional Spatial Strategy elements and Strategic Policies are needed to build upon the considerable successes of the existing plan to date. These will positively address those objectives in the current LDP that have not been as successful, or where new issues have arisen and need addressing, or where up to date opportunities have been realised. Elements of the current LDP strategy that are no longer required, will be removed or addressed.

Preferred Strategy

8.1.15 The overall Vision, Objectives and Growth intentions of the RLDP are in place for all the County Borough. Similarly, most of the Strategic Policies that follow, and their intentions, apply to most areas of RCT.

8.1.16 However, specific strategy and some policy approaches for the geographically defined Northern and Southern Strategy Areas will ensure a more appropriate and prosperous, plan-led future for these respective areas.

8.1.17 The Revised LDP Preferred Strategy is therefore defined as a combined 'Northern Sustainable Communities and Southern Sustainable Growth Strategy', for the distinct Northern and Southern Strategy Areas.

Sustainable Communities in the Northern Strategy Area

8.1.18 The spatial strategy for the north of RCT seeks to set out distinct approaches and interventions in the Northern Strategy Area (NSA). The primary aim of the Northern Sustainable Community Strategy is to continue to strengthen the communities therein. For the most part, the urban areas in the NSA are those in the Rhondda Fawr, Rhondda Fach and Cynon Valleys.

8.1.19 The current LDP has seen considerable development and economic growth in some areas in the NSA. This RLDP will seek opportunities to extend this trend to all areas within the NSA. It also aims to ensure the continued halting of depopulation, as has been positively achieved by the current LDP Strategy.

Housing Delivery

8.1.20 The levels of housing growth in the NSA will contribute significantly to the overall RLDP level of growth, but will be lower here comparatively than in the Southern Strategy Area. Anticipated growth is also greater in the front end of the plan period than the latter. The combined large and small housing landbank indicates a significant 1,561 dwellings that are likely to come forward in the first half of the plan period, in the NSA. Most of the larger sites are around the Principal Settlement of Aberdare, with a range of medium and smaller sites across the area:

8.1.21 Continued delivery of windfall housing is also expected throughout the RLDP plan period, with more opportunities in the NSA, as identified through the Urban Capacity Study and from past trends analysis in the Housing Supply Paper.

8.1.22 It remains that there is less scope and reliance for new housing allocations to support the NSA in the latter stages of the plan. Fewer and smaller appropriate Candidate Sites have come forward. Many of our NSA valleys communities are within high-level flood risk zones, rendering much suitably located brownfield land limited in its potential for redevelopment. Similarly, the urban edges of the NSA are important ecological habits for protected biodiversity.

8.1.23 Although there is significant Open Space and Green Infrastructure in the County Borough, we need to continue to protect, improve and enhance this and to improve access where possible. These areas play so many important roles in our communities.

8.1.24 The Viability Report indicates that larger, and particularly greenfield sites would have the more appropriate levels of market-led viability for their confident delivery in the NSA. Allocations will be made at the Deposit Stage of the RLDP; although it is indicated that in general, the NSA would provide approximately a third of the housing provision identified for RCT.

Employment

8.1.25 There are many employment sites in the NSA, of different scales, age and condition. There have been multiple, positive new commercial development and redevelopment schemes on these sites throughout the current plan period. There remain many opportunities for further development on known employment landbank sites and windfall redevelopment on the employment estates in the NSA. These would contribute to the expected jobs growth associated with the level of housing growth proposed. This is set out further in the Employment Land Review Paper and the Strategic Employment Policy.

8.1.26 Proposals for a potential key housing site and a key mixed employment site are set out further, below.

Settlement Hierarchy

8.1.27 Development in the NSA should align, where possible, with the identified RLDP Settlement Hierarchy. The Principal Settlement of Aberdare, along with the Key Settlements of Hirwaun, Mountain Ash, Ferndale, Porth, Treorchy and Tonypandy, play an essential role in their communities across the NSA. These settlements provide a wide range of social, economic and environmental services and facilities for existing communities. They have been shown, and are encouraged to be, the most appropriate locations for accommodating future growth – of all types of development. Equally, overall development growth is seen as key in supporting the future of these places.

8.1.28 The associated Settlement Centres play a significant role in the heart of these Settlements, and new development, (or redevelopment of existing property) here should further support them and their detailed future strategies. This is set out further in strategic policy below.

8.1.29 Development would be acceptable in smaller settlements, which have suitable facilities and appropriate sustainable transport links to the higher order settlements.

8.1.30 The spatial options for locating development in Settlement Centres, around metro hubs, meeting local needs and urban containment where possible, are therefore very appropriate in the NSA and are incorporated into the Sustainable Communities Strategy. Development in the NSA will be encouraged to align with these approaches, which allow for very sustainable forms of development. This, in essence, follows National Policy by seeking a Town Centre First approach to the location of new development. This overarching principle of sustainable locations would translate the intentions of the RLDP into the Council's approach to tackle Climate Change and reduce the production of Carbon. This is set out further in strategic policy below.

Other proposed methods of delivery of the Northern Sustainable Communities Strategy:

Flexible Settlement Boundaries

8.1.31 Although it is difficult to quantify, it is expected that windfall sites will continue to deliver housing in the NSA, at a rate that may go up to 100 a year from 2026 onwards. As with the current LDP, it is proposed that the Settlement Boundaries here may be more flexible. This is to give the chance for suitable sites to come forward over the plan period; as searches for sites whilst preparing the RLDP have otherwise shown one or several of the constraints mentioned above e.g. flood risk, ecology, value in terms of public open space etc. More detailed policies will be prepared for the Deposit Stage.

South East Wales Metro

8.1.32 The significant investment in the South Wales Metro, which serves significant urban areas of the NSA in the Rhondda and Cynon Valleys, should be taken advantage of wherever possible. New development near to the stations will be supported, in principle. The Council continues to improve a comprehensive Active Travel network to make these facilities more accessible.

Empty Homes

8.1.33 RCT sets out keen ambitions to bring empty residential properties back into use. Although this process is essentially bringing new houses onto the market, they cannot be considered like-for-like, as a new dwelling that would be included in the housing provision. The Housing Supply Paper and Strategic Housing Policy sets this out further, although there are currently 2,120 empty homes located in the NSA. With recent past rates of completion as high as 273 in 2021/22, along with current available funding, it is expected that the Council's Empty Homes Strategy will continue to form the source of many available new, starter family homes; this will clearly play a major role in the Northern Sustainable Communities Strategy.

Tourism

8.1.34 The Tourism industry in RCT has continued to see considerable growth in recent years, whilst our Tourism Strategy seeks to continue its success. This is particularly the case in the Northern Strategy Area, where the open countryside and proximity to the Bannau Brycheiniog National Park and its features, is a growing attraction not just for the residents of RCT but also nationally and internationally. There is strong attraction to the South Wales Valleys from UK wide adventure sports enthusiasts, with the ever-expanding Zip World Tower at Hirwaun being a headline for RCT.

8.1.35 The heritage of the County Borough also attracts from far and wide, along with day trips from the region to our town centres and parks. This Preferred Strategy includes a strategic tourism policy for the RLDP, particularly in the NSA. This will set out some higher-level guidance and encouragement for suitable Tourism proposals. This would be the facilities themselves, both in our Settlement Centres and in appropriate countryside locations. It similarly sets out the suitability for accommodation development i.e. hotels, rental accommodation or even holiday parks.

8.1.36 This is considered a key strategic intention for the future of the NSA. Not only does this industry bring considerable investment and spending to the area, but it is seen as a very realistic diversification for the area in terms of new employment opportunities. It also gives our Settlement Centres a much-needed positive prospect for the future. Again, a major role in the Northern Sustainable Communities Strategy.

Potential Key Sites

8.1.37 Similar to the Strategic Sites in the current LDP, the RLDP should identify sites that are 'Key' to the delivery of the Strategy.

8.1.38 It should be noted at this point that the Strategic Sites at Fernhill Colliery, Maerdy and Phurnacite will no longer be considered in this way. The LDP plan period has indicated the ongoing uncertainty and constraints associated with the sites and their development proposals. We cannot confidently rely upon them for the scale of delivery that they have previously been allocated for. Potential for alternative uses will be considered through the Deposit Stage of the RLDP. The Employment element of Robertstown Strategic Site has been developed, with the former Aberdare Hospital site in the Landbank of committed housing sites.

8.1.39 Potential Key Site 1 – Penrhys Village, Tylorstown

8.1.40 Advance plans are in place for the redevelopment of the village of Penrhys on the 29.8 hectare site. The overall intention is to replace existing housing stock with up to 700 new private market and affordable dwellings, alongside the replacement and improvement of public facilities and services. It is considered that approximately 500 of these will be delivered in the RLDP Plan period. The proposals include a mix of uses including renewed community uses and education facilities, renewable energy, leisure and tourism. The size of the proposed allocation offers the potential to protect SINC habitat and to mitigate and enhance biodiversity.

8.1.41 Although the net gain of new dwellings may be a modest 200 dwellings in terms of the housing provision in the plan period (and a further 200 beyond this time); the considerable scale of the new housing stock proposed is a very positive aspiration and statement for the Rhondda. This part of the NSA has seen few larger scale housing developments over recent years.

8.1.42 Potential Key Site 2 – Land South of Hirwaun

8.1.43 The land allocated for employment in the current LDP Strategic Site at Hirwaun underwent a vast opencast mining operation throughout the current LDP plan period. This was for the pre-extraction of coal reserves, to allow the allocated development to continue. This work has been completed, and the site extends to approximately 160 hectares.

8.1.44 The RLDP sees the site as being able to broaden its proposed uses. This includes the continuation of the proposed employment uses, with 15 to 20 hectares of employment land suitable here. There is then seen an opportunity for 30 - 40 hectares of land for future tourism opportunities and investment. Much of the remainder of the site is then subject to the re-establishment of biodiversity and natural habitats, along with future nature conservation; this is associated with the agreed restoration of the site following the opencast scheme. However, it is further considered that this natural area may be appropriately designed to allow for suitable public access and ecological and geomorphological tourism. This would be on site but may also include links to the wider countryside, with its multiple natural attractions and modern tourism destinations.

8.1.45 The scale of this proposal is clearly key in the NSA. However, it is also considered key to take full advantage of the significant Welsh Government investment in dualling the adjacent A465 'Heads of the Valleys' trunk road. This road opens up this South Wales Valleys sub-region to the midlands of England and West Wales. It is essential that RCT grasp this opportunity to bring investment to the NSA, rather than let it drive past.

8.1.46 Furthermore, a combined Transport for Wales and RCT proposal has had Weltag 2 approval for the continuation of the passenger rail line from Aberdare up to Hirwaun Industrial Estate. The new stations proposed at Hirwaun and Hirwaun Industrial Estate would make the wider area far more sustainable in terms of the public transport options serving them. The station at the industrial estate would also be in close proximity to the potential Key Site.

Sustainable Growth Strategy in the Southern Strategy Area

8.1.47 The spatial strategy for the south of RCT sets out specific approaches to achieving a high proposed level of housing growth in this Southern Strategy Area (SSA), particularly when compared to the NSA. The Sustainable Growth Strategy will seek to provide the necessary growth for existing communities, with additional growth to meet the wider needs of the whole of RCT and accord with Future Wales – The National Plan.

8.1.48 The current LDP has seen considerable development and economic growth in some areas in the SSA. For the most part, the urban areas in the SSA are those around Pontypridd down to Taffs Well and Church Village in the east, and Tonyrefail down to the wider Llantrisant area to Llanharan in the west. This RLDP will seek opportunities to provide new housing and economic development in areas where there is a more proven market-led delivery and sustainably located and suitable development land.

Housing Delivery

8.1.49 The levels of housing growth in the SSA will contribute the greater proportion of the overall RLDP level of growth, in comparison with the NSA. This will be achieved through the continued development of sites within the housing landbank and through the identification of suitable, sustainable new allocations. The combined large and small housing landbank indicates that a significant 2,562 dwellings are likely to come forward in the SSA, in the first half of the plan period:

8.1.50 The majority of these dwellings are on large sites in the west of the SSA, and particularly on the Strategic Sites at Llanilid and Cefn Yr Hendy/Talbot Green. There are significantly fewer landbank sites in the eastern side of the SSA. Although there will be unforeseen windfall sites that do come forward, they are not as likely to be in the same number as is expected in the NSA; which is indicated in the Urban Capacity Study and from past trends analysis in the Housing Supply Paper.

8.1.51 Many Candidate Sites have come forward in the SSA, several of which are significant in size. A substantial amount of these have constraints similar to those in the NSA, particularly in existing urban areas and on brownfield sites. However, more opportunities are presenting themselves in the SSA for suitable housing sites. The scale of growth requires that the proposed sites are in sustainable locations, whilst trying to spread the delivery across the Settlement Hierarchy.

8.1.52 It remains that RCT needs to protect, improve and enhance our Open Space and Green Infrastructure in the County Borough. There are far fewer large areas of open access land for the residents of the SSA than in the NSA, which indicates a need for new development to provide, extend or improve access to such places.

8.1.53 The Viability Report indicates that all types of development sites in the SSA may have a fair level of market led viability to ensure their delivery, and the southern part of the SSA is the most viable in RCT overall. Allocations will be made at the Deposit Stage of the RLDP, although it is indicated that in general, the SSA would provide approximately two thirds of the housing provision identified for the RLDP.

8.1.54 It is inevitable that many of these allocations will need to be greenfield releases due to the distinct lack of brownfield land available in this area.

8.1.55 Allocations in the SSA will need to be carefully chosen and will be larger in size to allow further supporting infrastructure to be developed, where possible, as set out in the associated Spatial Strategy Options. There are proposals to improve the public transport infrastructure in the SSA. Improved bus services have been considered from Bridgend through to Llanharan and Pontypridd and across the central South Wales Valleys. Continued advancement of proposals to bring forward light rail infrastructure from central Cardiff out into northwest Cardiff, should extend into south east RCT. Consideration is also given to whether further main train line capacity to serve the south west of the County Borough could materialise in the plan period.

Employment

8.1.56 There are many employment sites in the SSA, of different scales, age and condition. There have been many positive new developments and redevelopment schemes on these sites throughout the current plan period. Major industrial and commercial estates of sub-regional importance such as Treforest Industrial Estate, Llantrisant Business Park and the wider Talbot Green Industrial Estate are thriving, with very low levels of vacancy. There still remain opportunities for further windfall redevelopment on these and other estates and capacity for new development on employment landbank sites. These would contribute to the expected jobs growth associated with the level of housing growth proposed. This is set out further in the Employment Land Review Paper and the Strategic Employment Policy.

8.1.57 Proposals for a potential Key Site for mixed housing, employment and open space uses, along with ecological management are set out further, below.

Settlement Hierarchy

8.1.58 Development in the SSA should align, where possible, with the identified RLDP Settlement Hierarchy. The Principal Settlements of Pontypridd and Talbot Green/Pontyclun/Llantrisant, along with the Key Settlements of Llanharan and Tonyrefail, play an essential role in their communities across the SSA. These settlements provide a wide range of social, economic and environmental services and facilities for existing communities. They have been shown, and are encouraged to be, the most appropriate locations for the accommodating future growth. Equally, overall development growth is seen as key in supporting the future of these places.

8.1.59 The associated Settlement Centres play a significant role in the heart of these Settlements, and new development, (or redevelopment of existing property) here should further support them and their detailed future strategies. This is set out further in strategic policy below.

8.1.60 The spatial options for locating development in Settlement Centres, around metro hubs, meeting local needs and urban containment where possible, are still very appropriate in the SSA and are incorporated into the Sustainable Growth Strategy. Development in the SSA will be encouraged to align with these approaches, which allow for very sustainable forms of development. This in essence follows National Policy of seeking a Town Centre First approach to the location of new development. This overarching principle of sustainable locations would translate the intentions of the RLDP into the Council's approach to tackle Climate Change and reduce the production of Carbon. This is set out further in strategic policy below. However, it is acknowledged that the level of growth proposed here would see some settlements expand substantially, albeit sustainably.

Other proposed methods of delivery of the Southern Sustainable Growth Strategy:

The Principal Settlement of Pontypridd

8.1.61 The Principal Settlement of Pontypridd has limited capacity for housing growth, in terms of available land for development. Development within the Settlement Centre in Pontypridd will be supported, although will not likely produce high numbers of dwellings. Further, housing development is needed in and around this Principal Settlement for its continued prosperity, local needs and its ambitions as a leading destination in the region. Conversely, further development is needed here to take full advantage of its capacity to provide for a greater population. This would include through the Settlement Centre and its retail and leisure facilities and services therein, the University at Treforest, and the Treforest Industrial Estate. This eastern side of the SSA also benefits the most from the ongoing South Wales Metro development.

8.1.62 It is continued from the current LDP, that in principle, development would be acceptable in smaller settlements, which have suitable and sustainable links to the wider Pontypridd settlement, including, but not limited to, the areas around e.g. Church Village, Llanilltud Faerdref and Beddau. Further, as mentioned above, it is necessary to seek to address the considerable affordable housing need in the wider Pontypridd area in these edge of centre settlements.

Settlement Boundaries

8.1.63 There will be rigidly defined settlement boundaries in the SSA, which would prevent incremental development proposals coming forward. Sites will be allocated appropriately in sustainable locations, and as indicated, often larger sites, which can benefit from their economies of scale of development. Major sections of the SSA have been formed by the continued development of housing estates over the past 70 years. Accordingly, the pattern of development does not support incremental small developments on its edges.

Tourism and Empty Properties

8.1.64 The opportunities and reliance on the policy interventions of empty properties and tourism in the SSA are not likely to be as great as in the NSA.

8.1.65 There are empty properties in the south that will come forward through the Empty Properties scheme, but not at the same scale or rate as in the NSA.

8.1.66 The SSA has its tourism attractions such as the Royal Mint and Pontypridd Town. However, it is considered to have more of a tourism link to Cardiff than perhaps to the Bannau Brycheiniog National Park. Tourism facilities will be supported in the SSA, although past trends have included more local leisure based facilities, such as diversification of agriculture in the countryside. Accommodation facilities will be promoted in the settlements and not in countryside locations, as set out further in strategic policy.

Key Sites in the SSA

8.1.67 It should be noted at this point that the Strategic Site at the Former Cwm Coking Works will no longer be considered in this way. The LDP plan period has indicated the ongoing uncertainty and constraints associated with the site and its development proposals. We cannot confidently rely upon it for the scale of delivery it has been allocated for. The site has been considered for Cardiff Capital Region funding to help bring it forward. If this comes forward as anticipated, the site may be considered for alternative uses, such as a Regeneration Site, through the Deposit Stage of the RLDP.

8.1.68 Potential Key Site 3 – Land at Llanilid

8.1.69 This Key Site is located on the previous open cast coal site at Llanilid, adjoining the south of the Key Settlement of Llanharan; being a strategic location in RCT. The site totals 269 hectares. The proposal for the site builds upon the success of the Strategic Site allocation in the current LDP, which is currently under construction. The site provides the opportunity to regenerate a previous open cast site to create a sustainable mixed-use development.

8.1.70 The proposals for this site include residential development, schools, employment, local and district centres, and play and open spaces. The proposal also includes the retention of vast swathes of public open space and green infrastructure, whilst protecting and enhancing a range of important biodiversity features.

8.1.71 Proposals for the site seek to incorporate exemplar design and place-making and a network of sustainable transport that will serve the development, and link to the existing communities.

8.1.72 The site is seen as being capable of delivering a significant number of dwellings and employment land over the plan period in the Key Settlement. Due to the significant size of the site, the proposals are intended to be delivered over this plan period and further into the next one after 2037. It is envisaged that the site may deliver over 3,000 houses in total, however it is unlikely that more than 1,500 will come forward during the plan period to 2037.

8.1.73 Potential Key Site 4 - Llanilltud Faerdref/Efail Isaf

8.1.74 This potential Key Site is made up of a number of Candidate Sites in adjoining locations on the south of the wider settlements of Llanilltud Faerdref and Efail Isaf.

8.1.75 When combined, the whole site totals 50 hectares of greenfield land. It is considered that this Key Site could accommodate up to approximately 1,000 new homes, along with a range of proposed supporting uses to ensure the sustainable growth of the site. These include a new school, local shops, shared working hub, formal playing fields and areas, informal public open space and green infrastructure networks.

8.1.76 The retention of existing landscape features alongside pedestrian and cycle access links, will ensure the most modern accessible design and place-making. It is noted that the line of the former railway that runs through the eastern element of the site should be safeguarded for any future active or other sustainable travel options. The site benefits from safe access, where necessary, over and under the Church Village bypass, into the nearby settlements. It is considered that this new housing growth will bring the benefits of increased facilities and community infrastructure to existing communities, whilst increased footfall will benefit the local centres.

8.1.77 The site is in a strategic location with good access to social, employment, educational, public transport and major highway facilities that exist close to the site, in the wider area of the Pontypridd Principal Settlement and Treforest Industrial Estate. This Key Site is further seen as an opportunity to support the prosperity of Pontypridd, whilst making a significant contribution to the delivery of the necessary overall growth of the RLDP.

Preferred Strategy Key Diagram