LDP2 Preferred Strategy

5.0 The Role and Function of Places

Overview

5.1 As part of formulating the spatial strategy for LDP2 and defining the broad approach to the scale, location and type of future growth, it is important to recognise the role and function of existing places. Swansea is made distinct in part by the diversity in character, form and function of different settlements across the County. These settlements play different roles in terms of how they meet the day to day needs and requirements of resident and visiting populations. Only some of these places are appropriate as a focus for future development and regeneration, with others more appropriate to be identified for safeguarding, enhancement and protection.

5.2 A Settlement Assessment (Settlement Hierarchy Review) of places across Swansea has been undertaken to establish a full and up to date understanding of the current role, form and function of places, and to ensure that the LDP2 Preferred Strategy identifies an appropriate 'Settlement Hierarchy' to inform the spatial approach to growth (see Appendix A).

Strategic Housing Policy Zones

5.3 To help understand the distribution of settlements, the County is split into seven housing market areas with similar characteristics, referred to as Strategic Housing Policy Zones (SHPZs) – see Figure 3 and Table 1 below. These Zones influenced the spatial strategy and policies of the adopted LDP and since its adoption have been fully reviewed as part of the latest Local Housing Market Assessment. This review recognised the amended electoral ward boundaries in 2022 but aside from these changes the SHPZs remain an appropriate and consistent way to divide the County for analysis. They continue to be a useful tool to enable strategic level consideration of matters that affect patterns of growth, and to provide a means of identifying common issues and influences affecting future development.

Figure 3 Strategic Housing Policy Zones

Table 1 SHPZs and composite ward groupings

5.4 A comprehensive review of the opportunities and constraints at the strategic level is captured within the evidence base of the Plan. The 'Options for Growth and Spatial Approaches' (December 2024) and 'Growth and Spatial Approaches' (May 2024) background papers present the outputs of a review of headline developmental considerations broken down by SHPZ. This work illustrates the contrasting roles and characteristics of the SHPZs, for example the comparison of the Gower SHPZ (and the associated environmental considerations) with the Greater North West SHPZ (located within the Future Wales defined National Growth Area). Therefore, whilst the review of form and function is focused on individual settlements, the analysis has been undertaken with the awareness of the strategic zones in which they are located, and indeed the review of spatial approaches. This approach ensures that there is a logical link between the settlement hierarchy, and the chosen spatial approach to growth of the Preferred Strategy.

The Existing Strategy - Swansea LDP 2010-2025 Approach to Settlements

5.5 In the adopted LDP the spatial strategy for growth across the County follows a very simple settlement hierarchy. This consists of the urban area, designated 'Key Villages' and finally the countryside containing a range of rural settlements and dispersed built form across SHPZs.

5.6 The existing approach identifies Swansea's urban area as the primary focus for growth and the most sustainable location for major development, reinforcing its position as the main centre for the Swansea Bay City Region. Within the urban area, the adopted LDP promotes the creation of a limited number of sustainable new neighbourhoods at Strategic Development Areas (SDAs), within, or close to the defined settlement boundaries. The LDP acknowledged however that an exclusive focus on SDAs would lead to an over concentration of development in certain Strategic Housing Policy Zones. Therefore, the LDP provides for a limited number of non-strategic medium scale edge of settlement extensions and more dispersed and smaller allocations. This included small scale appropriate development to provide Affordable Housing for Local Needs in rural and semi-rural settlements where the existing character and cohesion of the community will be maintained or improved by development. Away from the urban area, the LDP also advocates small-scale growth at the defined Key Villages, which were identified based on the settlement appraisal process undertaken at the time. This appraisal identified the Key Villages as the most sustainable settlements outside the urban area to accommodate appropriate small scale housing sites, community facilities and other sustainable development in rural or semi-rural locations. The County's countryside is extensive, within which are numerous hamlets, isolated dwellings, farms and rural enterprises that reflect the nature of the County's rural economy. The countryside is a finite resource and is protected from inappropriate development in the spatial strategy in accordance with national planning policy.

5.7 It is logical that LDP2 builds upon the adopted LDP having regard to settlement form and function, reflecting on the housing commitments and completions since that Plan was adopted. A general continuity in approach provides a measure of certainty for the market, the community and also utility / infrastructure providers (as well as departments within the Council – e.g. education) who utilise the Plan to guide their investment decisions. Notwithstanding this, having regard to the latest context (including national policy) and the Key Issues and Objectives identified for LDP2, it is important that the existing settlement strategy in the Swansea LDP 2010-2025 is fully reviewed (as is highlighted in the LDP Review Report) in order to ensure the most sustainable approach to future growth can be formulated.

Settlement Assessment

5.8 A Settlement Assessment was undertaken for LDP2 to help shape the spatial strategy for the Plan and provide a sustainable framework for growth, particularly to minimise unsustainable patterns in relation to the movement of people, including accessing local services and facilities. An understanding of the role and function of settlements has informed the assessment of the different spatial approaches undertaken to determine the preferred strategy for LDP2. Given the wider context and the contrasts that exist across the County, a 'one size fits all' approach in regards the scale and distribution of development would not be appropriate, which emphasises the need to understand how settlements are 'lived in' as well as their character.

5.9 The Settlement Assessment has followed a robust methodology, based on an analysis of a range of geographical, socio-economic and environmental features and topics, as well as important developmental constraints and opportunities. Examples of these are those relating to:

• Size
• Character
• Role and Function
• Sense of place / community and linguistic sensitivity (Welsh Language)
• Services and Facilities
• Infrastructure Capacity
• Sustainable transport and active travel connectivity
• Employment opportunities
• Environmental constraints

Analysis of the Urban Area

5.10 Whilst much of the 'urban area' of Swansea comprises a sprawl of built form, there is some sense of separation in built up areas at specific locations across the County. Importantly, this sprawl encompasses many different communities, organised as neighbourhoods. Whilst these may not operate as entirely self-contained settlements, they have distinct identities functioning as independent and connected places. Therefore, rather than being described as having one uniform 'urban area', Swansea can be regarded as a City of Connected Urban Neighbourhoods, which comprises a patchwork of places, each with a strong identity and distinct focal area, and each presenting unique strengths and challenges. Many of these urban communities positively relate to a commercial centre and/or mixed use neighbourhood hub which contributes towards a strong sense of place and cohesiveness. These focal areas typically lie at the centre of the local transport network and provide much of the day-to-day services and amenities such as schools, health provision, and opportunities for day to day shopping.

5.11 The approach taken to the methodical review of settlements within the urban area examined the potential for its sub-division into separate settlements in those locations where there is a significant perceived gap of open countryside between built-up areas. It also considered instances where there is potential to sub-divide settlements which are clearly nucleated, and/or where their only connection to other settlements is a long distance of small-scale ribbon development along a single road.

Analysis of settlements outside the Urban Area

5.12 Outside the settlements identified in the adopted LDP as being part of the urban area, the assessment has reviewed the list of 'Key Villages' to determine whether these settlements continue to justify being distinguishable from all other villages and settlements, and to establish how they function within the hierarchy. It has also comprehensively reviewed all areas of countryside within Swansea, as a sense check to identify any clusters of development that are not currently defined as Key Villages but may have the potential to be identified as such in LDP2.

5.13 The assessment has also reviewed the village settlement appraisal undertaken as part of the evidence base to formulate the adopted LDP. That appraisal considered whether or not clusters of development should be identified as Key Villages and generally excluded clusters of development as settlements where they had fewer than 25 dwellings, or no facilities.

Outcome of Assessment

5.14 Following a robust assessment using a clear and consistent methodology applied to each individual settlement, the following conclusions and recommendations were reached which has informed the Swansea Settlement Hierarchy for LDP2:

5.14.1 A More nuanced settlement hierarchy, with more levels

• It is important for Swansea's settlement hierarchy in LDP2 to be clear on the distinctions between individual places that are part of the urban and rural areas, as part of a place-based approach to highlight priorities for each settlement.
• A review of precedents and good practice settlement hierarchies has highlighted that it is common to define between three and six levels within the hierarchy. These are being used to help direct development to the most sustainable locations within those areas.
• Whilst there are not considered to be significant issues in applying Swansea's current settlement hierarchy and achieving appropriate spatial outcomes in practice, some issues do exist. For example, in being able to articulate locations where different design and transport approaches in new development are (or are not) appropriate.

5.14.2 Greater distinction between parts of the urban area

• The designation of green wedges in the Deposit Plan, and the potential future establishment of a green belt around Swansea in a future Strategic Development Plan (as referenced in Future Wales) will be aided by a greater distinction between individual settlements. For example, to provide clarity and a rationale for the role Green Wedges and any potential green belt could have in terms of preventing the merging of particular settlements.
• The singular urban area level of the current settlement hierarchy masks the existence of a number of physically separate settlements across Swansea and also does not fully reflect the difference in character in some areas. Acknowledging this would enable potential different policy approaches and/or separate consideration of these areas.

5.14.3 Apply a combination of considerations to establish a hierarchy

• A combined qualitative and quantitative approach to assessing settlements has provided a robust and legible way of assigning places within a hierarchy.

The Settlement Hierarchy

5.15 Having regard to the outcomes of the Settlement Assessment, the resulting Swansea Settlement Hierarchy for LDP2 is set out below:

Table 2 Swansea Settlement Hierarchy