Current position May 2021
- The Brighton Gasworks site is allocated in the City Plan Part One for mixed use development – 2,000 square metres of employment space and a minimum of 85 dwellings
- Most of the land at the Gasworks site is privately owned and development of the site is being taken forward by a private developer. There are small strips of land owned by the council on the edges of the site but the applicant has indicated that these would not be included as part of the planning application.
- The development of the site is at pre-planning application discussion stage
- Until a formal planning application is submitted, we can't start to gather petitions, letters and emails supporting or objecting to the proposals, so please don't submit them right now.
- We expect a planning application in the Summer of 2021 and we will publish it once planning officers have checked the application is accurate and includes the relevant documents. This is called the ‘validation’ process. Once published, we will consult residents on the proposals.
- Developer St William have spoken with local residents about initial proposals. There have been several public meetings and residents have set out that they would like to see more detail.
- Some of the key areas to address are the safe environmental clean-up of the site, the level of development proposed, and parking / highways issues.
- The site lies outside of a designated ‘tall buildings’ area.
- Officers will carefully consider the planning application against policies in the development plan. They will then make a recommendation on whether to grant or refuse the scheme. The application will be decided at Planning Committee.
About the site
The 2-hectare former Gasworks site is next to the A259 coastal road and near Black Rock, Brighton Marina and East Brighton Park. The site itself is predominately given over to temporary uses such as storage, parking and light industrial uses. Two redundant gasometers and supporting gas infrastructure remain on land owned by National Grid and St William.
Due to the historic industrial use of the site, the development of effective and comprehensive strategies and plans to safely repair the site will be very important. We are talking to specialist environmental consultants to help us assess and review the plans as part of the formal planning application.
The developer’s initial proposals are for a mixed-use development with approximately 600 dwellings and some commercial or retail space set within a mix of building types across the site. The site will be accessed via Boundary Road and Marina Way and will provide pedestrian links through the site.
Planning, design and consultation
Where you can find information about the planning application
When the planning application has been submitted, all the documents will be available on our website. The planning process is public and transparent, so all the information taken into account in deciding the application will be online for the public to view.
Limitations of Planning
Any planning application that is submitted has to follow local and national planning policy and national planning legislation. The council has no control over when (or if) a planning application is submitted, or what it concerns.
However, officers often discuss before applications are submitted to try to influence the final application. This has been the case with the Gasworks proposal.
Some issues are beyond the scope of the planning process. These include:
- The management of soils removed from the site during construction (dealt with by the Environment Agency through the Environmental Permitting regime)
- Ensuring everyone takes reasonable precautions to avoid risks to health and safety caused by contaminants in the ground covered by buildings (dealt with through Building Regulations).
Consulting the local community
It's not a statutory requirement for the developer (the applicant) to consult the local community before submitting a planning application. However, it's strongly encouraged for major applications in national and local planning guidance.
The developer has:
- done two rounds of consultation
- set up a website with information about the development
- hosted live webinars
We marked the Gasworks site has for redevelopment as part of the 2005 Brighton and Hove Local Plan. We have since replaced this with the allocation in the 2016 Brighton and Hove City Plan Part One.
On both occasions the Development Plans had significant city-wide consultation. We considered relevant responses which helped to shape these planning policies.
We don't consult the local community on ‘pre-application’ proposals. These are confidential and shared with us by a potential applicant before they submit a planning application.
Once a planning application has been submitted and validated, we then publicise the application (see below).
Planning performance agreements (PPAs)
The National Planning Policy Framework (NPPF) encourages the use of PPAs. They say that they are likely to be needed for applications that are large or complex.
A PPA is a project management tool which local planning authorities and applicants can use to agree timescales, actions and resources for handling particular applications.
Following several rounds of pre-application advice, we're finalising a PPA for this site. It will set out:
- the issues and topics to consider
- how we will work together
- an updated programme for a planning application
How to have your say on the development
Until a formal planning application is submitted, we don’t have any formal documentation to publish. Please don't submit comments to us until the planning application is published. Once the application has been submitted, we will:
- put up site notices in the immediate vicinity of the site
- advertise the application in The Argus
- include it in the weekly list of planning applications we publish on the our website
- update the Brighton Gasworks web page with links to the application
The easiest way for people to comment on the application and to receive updates on key milestones is to register with our planning system.
Anyone can provide comments at the planning application stage. Planning officers will consider all comments in their assessment . Comments will be considered right up until the day of the planning committee meeting.
The council services involved in the planning application
Once the application is validated, we will formally consult key internal and external consultees for their input on the planning application.
Key internal teams include:
- Planning Policy
- Environmental Health
- Air Quality
External consultees include:
- The County Ecologist
- County Archaeology
- The County Landscape Architect
- South Down National Park
Concerns about overshadowing, loss of privacy, noise and congestion
All these issues will be considered as part of the planning application process. The developer will need to submit sufficient information to show that the issues have been assessed and provide details on any mitigation that may be necessary.
The application will be accompanied by a full Environmental Impact Assessment, as well as a Transport Assessment and other studies.
How the proposal contributes to Brighton & Hove becoming a carbon-neutral city by 2030
When we make decisions on planning applications, we have to apply a ‘presumption in favour of sustainable development’.
- protecting the environment
- mitigating and adapting to climate change
- moving to a low carbon economy
Central to this approach is making efficient use of ‘brownfield’ (previously developed) land, rather than new (green) sites.
Development must comply with Policy CP8. This seeks, as a minimum, a 19% improvement on the carbon emissions set by Building Regulation (Part L). This percentage may increase under the Future Homes Standards.
Homes for families
We expect the proposal to provide a mix of different housing types, bedroom numbers and sizes in accordance with policy CP19, Housing Mix.
There is a local policy requirement for 40% affordable housing. This set out in policy CP20 of the City Plan Part One.
If the applicant says they can't provide the 40% affordable housing, then they have to demonstrate why through a viability assessment.
Types of development allocated to the site
The site allocation set out in policy DA2 in City Plan Part 1 (CPP1) is for:
- approximately 2,000 sqm of business floor space,
- a minimum of 85 residential units
- some secondary retail development
We express this as a minimum to allow for developments with a higher level of housing. This is because of the significant shortfall in meeting housing needs in the city.
However, all applications will be carefully assessed against wider policies in the City Plan.
Why there are more homes allocated for the Gasworks site on the Brownfield Land Register
We have to prepare an annually updated Strategic Housing Land Availability Assessment (SHLAA) with new information such as:
- residential completions,
- planning permissions
- updated residential site information.
The 2019 SHLAA shows the potential for the Gasworks site to deliver 340 dwellings. This which was informed by a Housing and Employment Land Study. The figure in the Brownfield Land Register is from the SHLAA.
These are indicative figures. They help us to identify the level of housing land that is still needed in the city to meet our housing requirements.
Developers can submit planning applications for more (or fewer) dwellings on sites than are allocated.
How housing targets affect the gasworks site
In 2019 the government introduced new planning rules through the 2019 revision of the National Planning Policy Framework (NPPF).
Our City Plan Part 1 (CPP1) Policy CP1 ‘Housing Delivery’, which sets the minimum housing target for 660 homes per annum, becomes out of date for the purposes of assessing the five-year housing land supply position once the Plan is five years old (measured from the date of adoption March 24th 2021).
From this date the Plan’s housing requirement will increase from 660 dwellings per year to 924 dwellings per year. This is set by government using their standard method for calculating housing need.
The most immediate impact of this change is likely to be on the council’s ability to show an up to date five-year supply and satisfy the government’s annual housing delivery test.
In December 2020 the Government announced a change to this standard method approach through the introduction of a new ‘cities and urban centres uplift’. This will add 35% to the housing need figure as derived under the existing standard method for England’s 20 biggest cities and towns, effective from 21 June 2021. As Brighton & Hove is included in that list the city’s housing need figure will increase from 924 homes per year to 1250 homes per year.
The challenge of meeting the government-set housing targets for the city means that there will be an increased presumption in favour of sustainable development and other policies in the national planning policy framework which we have to consider.
It means we need to ensure that brownfield sites are developed to their maximum potential so that there is enough housing on these sites. This will then help us protect the greenfield sites on the edges of the city.
The Tall Building Supplementary Planning Guidance document is available on the council website. It provides guidance on appropriate locations in the city for tall buildings (6 or more storeys) and how we assess applications for tall buildings. A Tall Buildings Study informed this guidance.
This document lists the Marina was as an area with potential for tall buildings that didn't include the Gasworks site. The study and guidance went on to inform policy CP12 Urban Design in the adopted City Plan.
If a site is outside an area identified as having potential for tall buildings, it does not mean we will automatically reject that a planning application for a tall building (6 or more storeys).
A detailed assessment will be required with any future tall building application in line with the guidance. The case officer will then assess on the basis of that information, the character of the area and the details of the scheme.
The existing Tall Buildings guidance is proposed to be replaced in the future by The Urban Design Framework Supplementary Planning Document (SPD). The draft version of this document went through a City-wide consultation from October to December 2020. The document included the Gasworks site within a tall buildings area. We are considering amendments to the Draft SPD in response to the consultation responses.
Potential improvements to the local area
The scheme will be liable for site specific developer (s106) contributions to mitigate for any detrimental impacts of the scheme.
These could include such things as:
- improvements to the local highway network
- a requirement to use local labour
- public realm and/or nature conservation improvements.
Gasworks site original use
The site was used for gas production and storage from 1818. Gas production stopped in 1860 but the site continued to be used for gas storage in up to seven large gas holders over the entire site.
From 2012, gas was stored in underground mains. The gasholders are no longer in use, though two remain on site. A small part of the site remains in use for gas infrastructure and would be retained if the site is developed.
Potential for contamination
Former industrial sites can contain harmful substances such as:
- oils and tars
- waste metals
- organic compounds and gases
These can be leftover from or created by the previous activities on site.
Land is affected when there are polluting substances in, on or under the land. This may mean that there are substances left in buildings or on land, or that the substances are buried in the ground. These can harm human health or cause water pollution.
Because the site was used for the production and then storage of gas, it could be contaminated.
The applicant’s Environmental Impact Assessment (EIA) Scoping Report states that the developers did an initial assessment for the owner of the site. You can find more information on contaminated land and the planning process on gov.uk.
About Environmental Impact Assessments (EIA)
Environmental Impact Assessments (EIA) form part of the planning application process. We use them to test developments which could have ‘significant effects’ on the environment.
The aim of the EIA is to protect the environment. It does this by ensuring that when making decisions on planning applications, planning authorities like us have full knowledge of the likely significant environmental effects.
It's a formal procedure which the applicant must do to first agree with us whether the project should be subject to an EIA (the EIA screening process). If it does, then the applicant should then seek our agreement as to which environmental effects to assess and how (the EIA scoping process). An EIA is then carried out and the results submitted with the planning application in an Environmental Statement.
You can learn more about EIAs on gov.uk.
EIAs and the Gasworks site
As part of the planning application to redevelop the Gasworks site, the developer has to submit information showing how the site can be cleaned up safely. This will include:
- investigating what contamination is on the site and where
- quantifying existing and future risks
- demonstrating how developers will prevent it from harming people or the environment.
Some initial work is already complete. This includes:
- a desktop review of historic uses
- borehole data
- groundwater sampling
The Gasworks scheme would be an ‘EIA development’ because it has the potential for significant environmental effects (within the meaning of the EIA Regulations). The scope of information to be submitted as part of the EIA was agreed through a Scoping Opinion issued by the Council on 19 November 2020.
We now know the existing conditions at the site. We will use the data in the scoping opinion report and will develop a model. This will identify what the risks are of contaminants reaching people and the environment, and crucially, how this risk would be mitigated during any redevelopment.
It is the applicant’s responsibility to show that the development can come forward safely and address issues of contamination and environmental impact.
'Special site' status
A ‘special site’ is a site identified under the Contaminated Land Regulations 2006,. The effect of this is that the Environment Agency becomes the enforcing authority. They are then responsible for environmental clean-up.
The Gasworks site has not been identified as a ‘special site’.
Risks of contaminated sites to human health and the environment
The risk of contamination depends on the site conditions and nature of the contamination. It can also depend on any ‘linkages’ between the contamination (the ‘source’) and people/the environment.
For there to be harm to human health, there needs to be a source of contamination at a concentration that could cause harm. There have to be people present, and there needs to be a pathway of exposure (breathing in dust/gas, drinking contaminated water etc.).
A site may therefore be contaminated, but if there are no ‘pathways’, there will be no risk to human health.
A contaminated site can harm habitat and species if there is a source of contamination at a concentration enough to cause harm and where there is a pathway of exposure. This could include examples such as wildlife consuming contaminated plants or water.
Ensuring that the Gasworks development is safe
The applicant has to set out in the planning application how the development can come forward without putting human health at risk from any contamination on the site. They have to consider risks both during the redevelopment and following completion of construction.
They will assess the level and type of contamination on the site now, the increased risks of dispersal the development may create, and how they will prevent this.
How our planners will know if the measures the applicants propose will work
Once the application is in, planning officers will consult with a range of specialists, including:
- the council’s Environmental Health specialists
- an externally appointed Contaminated Land specialist
- the Environment Agency
- Public Health England
- the council’s Director of Public Health
These experts will assess the information in the planning application and provide comments on it, including whether they agree the developer’s approach is safe.