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Land south of A683

MR METCALFE

March 2017

Contents 1.0 Introduction 1 2.0 Addressing Lancaster’s Spatial Strategy & Housing Need 4 3.0 A Deliverable and Developable Site 10 4.0 Conclusion 31

Appendices

Appendix A Previous Representations July 2014 Appendix B Previous Representations Winter 2015 Appendix C Analysis Diagrams Appendix D Access Concept Plan

Disclaimer This report should not be relied upon as a basis for entering into transactions without seeking specific, qualified, professional advice. Whilst facts have been rigorously checked, Cushman and Wakefield can take no responsibility for any damage or loss suffered as a result of any inadvertent inaccuracy within this report. Information contained herein should not, in whole or in part, be published, reproduced or referred to without prior approval. Any such reproduction should be credited to Cushman and Wakefield.

1.0 Introduction Background

1.1 Cushman & Wakefield have previously submitted representations to consultations related to the preparation of the Lancaster Local Plan in July 2014 and Winter 2015 on behalf of Mr Metcalfe. These representations were to make the Council aware that it was Mr Metcalfe’s intention, in conjunction and collaboration with an adjacent landowner, to promote their landholdings, referred to as Land south of A683 (figure 1), for residential led mixed use development.

Figure 1: Location of site in relation to surrounding area

1.2 These representations stated that the site had the potential to become a sustainable (NPPF paragraph 14) and deliverable (NPPF paragraph 47, point 2) solution to Lancaster City Council meeting their objectively assessed housing land requirements up to 2031.

1.3 We can confirm that it is still the intention to promote both landholdings (figure 2) for a residential led mixed use development and that both landowners are in full control of all of the land within the extent of the red line boundary.

1.4 This specific report is submitted on behalf of Mr Metcalfe, with the adjacent landowner having submitted a separate, albeit linked, representation through their agent Garner Planning.

1.5 Whilst this is the case, this document provides evidence how the two landholdings when combined (the site) create a coherent and sustainable urban extension to the city of Lancaster. Representations

1.6 This report is an update to a previous document that was submitted to the Council during the People, Homes and Jobs consultation in November 2015 that responded to the combined landholdings being identified as a potential Urban Extension UE2 – East Lancaster.

1.7 We note from a review of the draft Strategic Policies and Land Allocations (SPLA) Map that the site

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has not been allocated for residential development and remains ‘Open Countryside’ even though the site was identified in the People, Homes and Jobs consultation as having potential for an urban extension, reference UE2 – East Lancaster on land to the east of the M6 motorway.

1.8 The draft Local Plan also omits a number of strategic sites previously considered by the Council during its People, Homes and Jobs consultation, including GB2, GB4 and VE1-5. We strongly believe that the Council’s current approach to omitting these strategic sites, including UE2, will only serve to meet not exceed its Objectively Assessed Housing Needs (OAN), with the significant risk that without sufficient flexibility in supply over the plan period, the Lancaster Local Plan will not meet the government’s objective of significantly boosting the supply of housing. This ultimately calls into question the soundness of the draft Local Plan.

1.9 The Council’s assumption that each of the strategic housing sites will be completed during the plan report and every housing allocation and development opportunity site will come forward and be completed within this period is unrealistic. The plan provides no flexibility for the more realistic scenario that many of the strategic sites will not produce housing completions for many years, are unlikely to produce completions above 60 dwellings per annum, and many will not deliver housing at all.

1.10 We therefore object to the proposed allocation of the site as Open Countryside, as well as to Policies SP7 and H1 of the SPLA.

1.11 We also strongly consider that the draft Local Plan should include additional flexibility by allocating, or as a minimum safeguarding, further land for development in accordance with the NPPF’s requirement of significantly boosting the supply of housing, specifically the landholdings identified at figure 2.

1.12 The basis of this representation is that Mr Metcalfe’s landholdings, in conjunction with the adjacent landholdings identified at Figure 2, will assist the Council over the Plan period in delivering the homes they need (as identified by its OAN) and addressing their economic ambition by bringing forward a truly sustainable urban extension to the city of Lancaster.

1.13 In making this further representation, it is important to note that this report builds upon previous representations, reflecting upon and responding to the Council’s guidance and emerging evidence base (Appendices A and B).

1.14 The report is structured in the following way:

. Addressing Lancaster’s Spatial Strategy and Housing Needs

. A Deliverable and Developable Site

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Figure 2: Site location. Mr Metcalfe’s landholdings are shown in red, with Mr Lloyd’s adjacent landholdings outlined in blue.

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2.0 Addressing Lancaster’s Spatial Strategy & Housing Need Introduction

2.1 The objective of this section of our response is to demonstrate that the site is critical to the delivery of Lancaster City Council’s (the Council) Spatial Strategy over the plan period, directly assisting the Council in meeting their full, objectively assessed needs for market and affordable housing in the Borough and locality1.

2.2 In achieving this, the site can directly contribute to meeting the Council’s requirement for a supply of specific deliverable sites sufficient to provide five years’ worth of housing against their housing requirements2, as well as contributing further to the Council’s supply of specific, developable3 sites or broad locations for growth, for years 6-10 and, where possible, for years 11-15. Spatial Development Strategy and Strategic Objectives

2.3 The draft Local Plan identifies a requirement for development to deliver around 48.9 hectares of employment land and 13,500 new homes by 2031. The Council’s proposed spatial development strategy (Policy SP3) is as follows:

“Promoting an urban-focused approach to development that is supplemented with additional large strategic development sites in greenfield locations which can be developed for housing and employment.”

2.4 The proposed spatial strategy continues with the urban focussed approach described in the adopted Core Strategy, directing the great majority of growth and development to the main urban areas of the district. This is confirmed in its revised Strategic Housing Land Availability Assessment (SHLAA 2015). The proposed approach recognises that in order to meet substantially increased development needs a number of additional strategic sites will be required, which can be categorised into 3 typologies:

. Urban extensions

. Green Belt review

. Village expansion

2.5 This is consistent with the provisions of paragraph 52 of the NPPF that states the supply of new homes can sometimes be best achieved through planning for larger scale development, such as new settlements or extensions to existing villages and towns that follow the principles of Garden Cities. Working with the support of their communities, local planning authorities should consider whether such opportunities provide the best way of achieving sustainable development.

2.6 Our previous representations in July 2014 brought the site at Land south of A683 to the attention of Lancaster City Council as a sustainable and deliverable solution to meeting Lancaster’s future housing needs.

2.7 In our representations in 2015, and on behalf of Mr Metcalfe, we welcomed the Council’s formal consideration of the site as part of the People, Homes and Jobs consultation (then referred to as UE2 - North East Lancaster east of the M6 Motorway) as a key component of its spatial development strategy to meet its OAN, recognising that it has potential for new homes and also new employment

1 National Planning Policy Framework, paragraph 47 2 National Planning Policy Framework, paragraph 47 footnote 11 3 National Planning Policy Framework, paragraph 47 footnote 12 Page | 4

consistent with the provision of paragraph 52 of the NPPF.

2.8 As previously stated, it is disappointing that UE2 has been omitted from the draft Local Plan particularly in the context of assisting the Council in meeting its spatial strategy and Strategic Objectives as follows:

. SO1 Delivery of a thriving local economy which fosters investment and growth and supports the opportunities to deliver the economic potential of the district.

. SO2 Provision of a sufficient supply, quality and mix of housing to meet the changing needs of the population and support growth and investment.

. SO3 Protect and enhance the natural, historic and built environment of the district.

. SO4 Provision of the necessary infrastructure required to support both new and existing development and the creation of sustainable communities.

. SO5 Delivery of a safe and sustainable transport network that improves both connection within and out of the district, reducing the need to travel and encouraging more sustainable forms of transport.

2.9 Our previous representations presented a case that the site had the potential to assist Lancaster City Council deliver against the majority of these objectives and contribute to the sustainable growth of the city of Lancaster, particularly through its excellent accessibility and connectivity to both the city centre and other local settlements and employment locations.

2.10 For example, it is in close proximity to Junction 34 of the M6 and will further benefit from direct and adoptable access off the A683, and is already well connected to existing settlements and employment locations by public transport, main off road cycle routes and local cycling and pedestrian routes.

2.11 The remainder of this section provides further detail on how the site remains capable of meeting the Council’s first two strategic objectives (SO1 and SO2) in the context of its spatial development strategy.

2.12 Section 3 presents further evidence as to how Land south of A683 will assist the Council in meeting its final 3 strategic objectives (SO3, SO4, and SO5), ensuring that the site can become a sustainable urban extension to the city of Lancaster. Meeting Lancaster’s full objectively assessed needs – strategic objectives SO1 and SO2

2.13 This sub-section will first address the Council’s identified housing needs given the significance of these requirements against a substantial and historic under delivery of housing targets, presenting evidence that supports the importance of the site in the Council delivering against strategic objective SO2. It will then consider the contribution the site can make to strategic SO1. Objectively assessed housing need

2.14 Paragraph 17 of the NPPF states that every effort should be made to objectively identify and then meet the housing, business and other development needs of an area, and respond positively to wider opportunities for growth. Specific to housing, paragraph 47 goes on to state that Local Planning Authorities must use their evidence base to ensure that their Local Plan meets the full, objectively assessed needs for market and affordable housing in the housing market area, as far as is consistent with the policies set out in this Framework, including identifying key sites which are critical to the delivery of the housing strategy over the plan period.

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2.15 The NPPF is also clear that local planning authorities should, through their Local Plans, meet objectively assessed needs unless any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in the Framework taken as a whole, or specific policies in the Framework indicate development should be restricted. Such policies include those relating to sites protected under the Birds and Habitats Directives, and/or designated as Sites of Special Scientific Interest; land designated as Green Belt, Local Green Space, an Area of Outstanding Natural Beauty, Heritage Coast or within a National Park or the Broads; designated heritage assets; and locations at risk of flooding or coastal erosion.

2.16 The Gallagher Estates Limited & Lioncourt Homes Limited v Solihull Metropolitan Borough Council (2014) ruling (CO/17668/2013) go so far as to say that the NPPF requires plan-makers to focus on full objectively assessed need for housing, and to meet that need unless (and only to the extent that) other policy factors within the NPPF dictate otherwise. That, too, requires a balancing exercise – to see whether other policy factors significantly and demonstrably outweigh the benefits of such housing provision. This ruling goes further to state that numbers matter; because the larger the need, the more pressure will or might be applied to infringe on other inconsistent policies.

2.17 In preparing the draft Lancaster Local Plan, Lancaster City Council reviewed its housing needs through a housing requirement study for the district. This resulted in the calculation of an objectively assessed housing need of 13,500 homes in the district, between 2011 and 2031, equivalent to 675 new homes per year.

2.18 The 2015 SHLAA considers that there is opportunity within the district for around 7,000 new homes, with completions of a further 959 new homes in the period 2011-2012 to 2014-15 leaving a shortfall of 5,000-6,000 new homes against the new objectively assessed housing need figure (OAN).

2.19 On this basis, the Council previously concluded that it is only once the inclusion of strategic sites are considered that the district’s housing requirement figure can be satisfactorily addressed, however significant work is still required to demonstrate that the scale of numbers can be achieved across these strategic development sites during the plan period, and indeed if some of the sites are actually able to be brought forward for new homes. It is therefore far from certain that these numbers can be delivered to meet the Council’s OAN, let alone exceeded, for example and in relation to two of its proposed Strategic Allocations:

. SG1 Bailrigg Garden Village requires the delivery of significant highways infrastructure in terms of M6 Junction 33 reconfiguration works, access road from Junction 33 into the wider Burrow Heights site, and the crossings of the West Coast Mainline; all of which require significant levels of funding and authorisation from key statutory agencies, making this a very lengthy, risky and complex process to open up the full extent of the site; and

. SG8 Land at Cuckoo Farm / Ridge Farm, East Lancaster is considered to have significant constraints to delivery including highway access requiring the relocation of Landsil Golf Club, and the fact that a significant proportion of the site is a Biological Heritage Sites (BHS) – Long Bank Wood, Lancashire Canal and Newton Beck Valley and also contains a significant area of Key Urban Landscape.

2.20 It is still Mr Metcalfe’s clear opinion that all of the strategic development sites identified in the People, Homes and Jobs consultation, including Land south of the A683, are required to provide the short to medium term certainty and long term flexibility that will ensure the Council can meet the requirements of NPPF paragraph 17 and 47.

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Housing Delivery

2.21 Paragraph 47 of the NPPF states that Local Planning Authorities need to illustrate the expected rate of housing delivery through a housing trajectory for the plan period and set out a housing implementation strategy for the full range of housing, describing how they will maintain delivery of a five-year supply of housing land to meet their housing target.

2.22 It is crucial that the Council understand the deliverability of the 2015 SHLAA sites and the draft allocations now proposed , particularly considering factors such as delivery rates, development lead in times, and density assumptions.

2.23 The importance of this for the Council’s 5 year supply of deliverable housing sites and its overall delivery of the OAN across the plan period is clear given that that the March 2017 Five Year Housing Land Supply Position Statement acknowledges that the Council has persistently under-delivered against its housing requirements from the start of the plan period in 2011.

2.24 On this basis the Council recognises in the March 2017 Statement that it must apply an additional 20% buffer to its 5 year housing land supply requirement, which when added to the previous undersupply of 1,933 dwellings and dealing with this in the first five years of the plan period, results in a five year housing land supply requirement of 6,370 dwellings.

2.25 This provides further evidence that the Council is going to need progress every previously identified strategic site option to firstly make sure that it has a 5 year supply of deliverable housing land, and secondly, to ensure it can meet and deliver its full housing requirements over the whole of the plan period.

2.26 In conclusion, and in order for the new Local Plan to be found sound, the Council must make every attempt to meet and deliver its OAN if it is to meet its strategic development targets. To do this it must ensure it has a flexible supply of housing land over and above that which it is currently proposing to allocate. A high quality and balanced housing offer

2.27 The scale of the site not only allows a significant number of new homes to assist the Council meeting its identified shortfall, it also allows the opportunity to incorporate a range of housing types, sizes and tenures to meet the needs of Lancaster, including much needed affordable homes, contributing to the creation of a balanced housing market across the city.

2.28 Its natural topography and existing landscape structure also provides a real opportunity to deliver new homes in a quality environment that are well designed, sustainable and energy efficient, appropriate to meet the needs of current and future residents. Section 3.0 of this submission provides further evidence of how this can be achieved.

2.29 For the reasons presented in our previous representations and further demonstrated by evidence contained within Section 3.0 of this document, the site is not subject to local, regional, national or European designations, there is no identified flood risk (the northern section falls within Flood Zone 2 and 3 but is not considered forming part of the developable area), there are unlikely to be any significant ground condition or contamination issues due to its Greenfield nature, and it is not within the Green Belt. The site is therefore not impeded by any environmental or physical parameters, and as such it is not technically constrained from being brought forward for development immediately.

2.30 The same cannot be said for a number of the proposed strategic allocations that are subject to clear technical and environmental constraints, including:

. UE1 – Development of the site is heavily dependent on delivery of significant strategic Page | 7

highways improvements as previously identified.

. UE3 – The site suffers from constraints to development including highways and access, and impact of development on the biology, ecology and landscape.

. GB1 and GB3 – Both sites are located within the Green Belt, with areas of the sites at risk of flooding and of high agricultural value. There was considerable local public opposition to release of land from the Green Belt due to its special characteristics and impact of development on heritage assets and the landscape.

2.31 On this basis, we consider that the site will make a significant contribution to strategic objective SO2, delivering a development that directly assists the Council in providing for the full objectively assessed need for housing in the district to support economic growth and meet housing needs in a very sustainable location directly to the east of the city of Lancaster. Delivering a thriving local economy

2.32 We also consider that the site also has the potential to deliver against strategic objective SO1, which is consistent with the provisions of NPPF paragraph 20 “To help achieve economic growth, local planning authorities should plan proactively to meet the development needs of business and support an economy fit for the 21st century”, as well as paragraph 17 that states that Local Planning Authorities should proactively drive and support sustainable economic development to deliver the homes, business and industrial units, infrastructure and thriving local places that the country needs.

2.33 It further states that every effort should be made objectively to identify and then meet the housing, business and other development needs of an area, and respond positively to wider opportunities for growth. Plans should take account of market signals, such as land prices and housing affordability, and set out a clear strategy for allocating sufficient land which is suitable for development in their area, taking account of the needs of the residential and business communities.

2.34 Mr Metcalfe wishes to promote site the site as a residential led mixed use development, recognising that its supporting infrastructure, services and facilities has the potential to deliver additional commercial development that will contribute to facilitating Lancaster’s economic potential and assist in generating future investment and economic growth in the district.

2.35 We believe that the site can specifically address the following components of SO1 given its accessible location (M6 junction 34 / Park & Ride / main bus, cycle and pedestrian routes to Lancaster city centre) and the scale of available land in proximity to major employment locations north of the city centre (adjacent to the River Lune and junction 34 of the M6) as identified on the draft policies map”:

. Capitalising on the accessibility of the district, maximising the opportunities provided by its location on the main strategic rail and road network and opportunities at the Port of Heysham;

. Securing a balanced portfolio of employment sites ensuring that there is a sufficient supply and range of locations available for job creation and economic growth; and

. Promoting the vitality, viability and accessibility of Lancaster City Centre to create a thriving destination for retail, culture and leisure activities to meet a growing population and attract visitors which secures its role as a sub-regional centre for Lancashire and Cumbria. Conclusion

2.36 The evidence presented in this section demonstrates that the site is highly suitable for allocation as a residential-led mixed use site. Furthermore, its inclusion is critical to the Local Plan being found sound when set against the uncertainty as to whether the currently identified allocations can be fully delivered

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over the plan period. The site would thus assist the Council in ensuring that they can meet their Objectively Assessed Need and realise their economic ambitions for Lancaster.

2.37 Its accessible location and scale also provides opportunity for the site to assist the Council in delivering a thriving local economy which fosters investment and growth and supports the opportunities to deliver the economic potential of the district.

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3.0 A Deliverable and Developable Site Introduction

3.1 This section seeks to demonstrate that the site directly addresses the following core NPPF land use planning principle4:

“Actively manage patterns of growth to make the fullest possible use of public transport, walking and cycling, and focus significant development in locations which are or can be made sustainable”.

3.2 In doing this, it can be seen to be both a deliverable site capable of bringing forward early phases of new homes over a 5 year period, and a developable site that continues to phase new homes through the latter years of Local Plan. In doing this is can also assist the Council in meeting its final 3 strategic objectives (SO3, SO4, and SO5), ensuring that the site can become a sustainable urban extension to the city of Lancaster.

3.3 To achieve the two objectives above, we have firstly assessed the physical parameters of the site, which has secondly informed a consideration of the appropriate land uses across the site and its capacity in this context, as well as the local benefits that this is likely to deliver. The Site and Surrounding Area

3.4 IBI has supported Cushman & Wakefield in compiling this representation and this section in particular. They have produced a number analysis diagrams for the site to assess the physical parameters and capacity of the land to incorporate development that will not amount to detriment that outweighs its significant economic, social, and environmental benefit. These diagrams have been included at full size in the Appendix to this document but have been included at a reduced scale in this section for reference. Streams, Ponds and Ditches (figure 3: Existing Streams, Rivers and Ditches)

3.5 Denny Beck forms the eastern boundary of the site and is a substantial tributary to the Lune. A smaller stream, also running north-south, forms the western boundary. The location and character of these features should inform a sustainable drainage strategy and the green infrastructure framework for the site. Topography and Slope Analysis (figure 4: Existing Topography and Slope analysis)

3.6 The site is identified in the Lancashire Character Assessment (LCA) as ‘Drumlin Fields’, the general topography reflects this with “regular green hillocks with steep sides and broad rounded tops” and “large scale undulating hills of pasture”.

3.7 This site is part of the Docker-Kellet-Lancaster Drumlin Field (character area 13c in the Lancashire Character Assessment). This drumlin field has a distinctive north-east, south-west grain and runs from the edge of Lancaster northwards into Cumbria

3.8 The LCA notes the River Lune ”cuts a gorge through the hills at Halton. This gorge provides a major transport route through the hills with a number of parking, picnic and camping sites scattered along its length.”

4 National Planning Policy Framework, Paragraph 17 Page | 10

Figure 3: Existing Streams, Rivers and Ditches

3.9 The topography of the drumlin landscape relating to development is discussed in the LCA as “Woodlands are often associated with designed landscapes and built development takes advantage of views from the hill tops, for example the Ashton Memorial on the edge of Lancaster which sits atop a drumlin and is a landmark for miles around. The drumlins create a setting for the city of Lancaster and its university.”

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Figure 4: Existing Topography and Slope analysis

3.10 The northern extent of the site gently falls towards the River Lune until it approaches the Lancaster- Caton cycle route where the land falls more steeply. In the north western corner of the site is an area of lower, flatter land adjacent to the Lune.

3.11 The southern and larger extent of the site takes the form of an upper and a lower plateau divided by some steeply sloping land. The lower plateau runs along the Denny Brook and A683. The upper plateau takes the form of a north-south ridge line running up through the centre of the site but stopping short of the A683.

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Field pattern, hedgerows and woodland (figure 5: Existing Field Pattern, Hedgerows and Woodland)

3.12 A compact field pattern is a conspicuous part of this rolling landscape, although in places, within the site, the hedgerow are significantly degraded. A strong hedgerow with trees runs along either side of Grimeshaw Lane and Denny Beck is well-wooded as are the banks of the Lune. Two significant stands of woodland are situated in the southern part of the site. Moss Syke Wood is in a hollow on the steeply sloping west face of the Drumlin and the other is on the east bank of Denny Beck.

Figure 5: Existing Field Pattern, Hedgerows and Woodland Views and Vistas (figure 6: Existing Views and Vistas)

3.13 The north and east facing slopes of the site have excellent, long views to the surrounding countryside. There are also particular view corridors:

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. Southwest to Lancaster City Centre from the upper areas of the south site

. Towards Williamson Park from the high area east of Moss Syke Wood

. Down the Lune Valley from the north facing slopes

. To Caton Moor from the east facing slopes

Figure 6: Existing Views and Vistas Access and Highways

3.14 Mott MacDonald has supported Cushman & Wakefield in compiling this representation and this section in particular. Their analysis is included over the following paragraphs to demonstrate that patterns of growth can be actively managed to make the fullest possible use of public transport, walking and cycling, and focus significant development at the site that is or can be made sustainable.

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3.15 The site is positioned just to the north east of the existing built up area of the city and adjacent to Junction 34 of the M6. The site straddles the A683 Caton Road, with the greater proportion of the site to the south of this road and the northern portion extending to the River Lune. There are currently no public roads within the site, although there is an unsurfaced track, Grimeshaw Lane, which traverses the site and crosses the M6 via an overbridge.

No motorised vehicles Grimeshaw Lane M6 overbridge Heysham Link Road

3.16 At the time of the preparation of the initial access review (Winter 2015) there were major highway works underway associated with the construction of the Heysham Link Road.

3.17 The works have now been completed and have provided a new two lane dual carriageway between Junction 34 of the M6 and Heysham and Morecambe peninsula, allowing traffic to travel to and from the peninsula without having to pass through the built up area of Lancaster via the currently congested A683. This improvement therefore significantly reduces traffic volumes on the A683 allowing regeneration along this corridor, and also provides much better access for residents, businesses and tourists to the Heysham and Morecambe area.

3.18 Aside from the reduction of traffic on the A683, the Heysham Link Road scheme also produces two other major benefits for the future development of the site.

3.19 Firstly, the works included the improvement of Junction 34 through enhanced on and off-slips and capacity improvements to access junctions on the A683. This means that there are significant reserves of capacity to accommodate additional traffic associated with new development in the area. The reserves will be more than adequate to accommodate traffic associated with the development of the site.

3.20 Secondly, the highway scheme included provision of a new park and ride site of at least 600 spaces adjacent to Junction 34. To serve this facility a new high quality, high frequency bus service has been introduced to run between it and the city centre of Lancaster. The park and ride site is located only about 400 metres from the site, and is therefore a very valuable facility for future residents.

3.21 The Heysham Link Road scheme has therefore presented a major opportunity for significant new development in north Lancaster.

3.22 Another point to highlight is that in order to construct the junction improvement some land under the ownership of the proposed developer of the site was required, and within this land was an access to the agricultural land to the south. This access has been reconstructed as part of the works – as indicated in the diagram below (and over the page) – to a standard that would be suitable for use as a general vehicle access to the southern extent of the site.

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Access

Reconstruction access proposal Access under reconstruction Accessing the Site (figure 7: Existing Vehicle Access)

3.23 As mentioned previously, there are currently no public roads on the site, however, both the north and south extent of the site have a lengthy unimpeded frontage with the A683. It is also worth noting that this entire frontage is under the control of the proposed land promoters, which will maximise the opportunity for achieving adequate access to help unlock the full extent of the site.

Figure 7: Existing Vehicle Access

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A683

3.24 The site’s frontage with the A683 extends from the new M6 southbound access junction to the small hamlet of Denny Bank to the east (above).

3.25 Along this length, the A683 is a single carriageway road and it has the national speed limit. There is no street lighting, and a footway only to one side. The majority of the frontage is grass verge and low hedgerows. This gives it a rural feel where the 60mph speed limit is appropriate. There is also a lengthy layby along the southern side which was full on the day of the site visit.

Grass verges and hedges Layby

3.26 There is however, the small hamlet of Denny Beck which creates some active frontage, and also the give way junction of Denny Beck Lane which gives a weight and width restricted access to the town of Halton via a very narrow bridge over the River Lune.

Denny Beck Bridge over the River Lune

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3.27 The topography and the alignment of the A683 along this section result in the road being on a slight curve and there also being a crest of a gentle rise approximately where the layby is. Aside from the reconstructed access described above, the existing highway arrangement is such that it would be possible to achieve another within standard access to serve both the northern and southern portions of the site. Depending upon the traffic flow predictions, this access could be a left / right staggered priority junction, a large roundabout or traffic signals. Therefore, leaving the character and speed of the road as it currently is, there is a choice of access types to serve the development parcels.

3.28 However, development at the site offers an excellent opportunity to change the nature of this section of the A683 so that it is much more suitable for an urban area. Measures could include: reducing the speed limit to 30 mph with associated traffic management measures; introducing active frontages to the carriageway with people walking and cycling; new on-carriageway bus stops; on-street parking; landscaping; and controlled road crossing facilities.

3.29 This is demonstrated as being effective in the near locality where the A683 passes through village and town centres. A good example of this is where the A683 passes through Hornby as highlighted in the photos below.

3.30 Hornby is only a few miles away from the development site, and therefore the A683 in this location carries very similar volumes and mix of traffic as it would when it passes through the site.

3.31 This opportunity has been explored in the concept access plan at Appendix 3, and as can be seen includes the following features:

. The start of a 30 mph speed limit to the east;

. Four three-arm priority junctions giving access to the northern and southern portions of the site. The two accesses on the south side of the A683 are in the position of the reconstructed access and Grimeshaw Lane;

. Wide footways to both sides; Page | 18

. On-street parking, bus stops and road crossing facilities;

. Enhanced carriageway treatment through the central section;

. The opportunity to front the road with a mix of uses; and

. Much scope to introduce landscaping and public realm.

3.32 On the south side of the link, the accesses have been designed to allow for the unimpeded movement of larger vehicles, such as buses.

3.33 The introduction of all of these measures would make it much more suitable for the safer movement of people and cyclists, whilst also facilitating the sympathetic development of the site. Travelling to and from the site

3.34 The predominant land-use at the site will be residential, so the new residents will need to have a good choice in their travel options to meet their day-to-day needs. To plan for this, detailed assessment will be required on why people will want to live at the site, and where they will want to travel to. This issue will be subject to much more detailed analysis, but figure 8 on the next page gives a pictorial representation of people’s journey to work destinations from the nearby town of Halton as recorded by the 2011 census.

3.35 From this image it can be seen that by far the majority of residents in Halton are travelling to work in Lancaster or other nearby towns. Relatively few people are therefore travelling on the M6 motorway to access more distant destinations, such as Preston or Kendal. This therefore means that establishing quality transport connections with the city will be very important to the success of the site and its overall sustainability.

Figure 8: Travel to Work Patterns Page | 19

Walking and Cycling (figure 9: Pedestrian and Cycle Links)

3.36 The site is fortunate in that there are three direct walk routes to Lancaster. Along its northern edge is the Rive Lune Millennium Park which includes a disused railway that has been converted into a traffic free walk and cycle route (National Cycle Route 69). Locally this facility runs between the site and the city centre, but it extends much further to Morecambe in the west and out into the Yorkshire Dales to the east. This route could be used by residents to travel daily to local destinations, but it will also be a quality recreational facility.

Figure 9: Pedestrian and Cycle Routes

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Walk and cycle routes Rive Lune Millennium Park

3.37 Running through the centre of the southern portion of the site is Grimeshaw Lane which runs between the A683 and the overbridge of the M6. This then extends further via Ridge Lane and Moor Lane to the built up area of Lancaster. The current thoughts for the site is that Grimeshaw Lane would be retained and improved to give an all-weather traffic free walk and cycle route.

3.38 Grimeshaw Lane runs north-south through the site leaving the A683 opposite the Halton Bridge road, it continues south to cross the motorway. This is an un-metaled road, very narrow, hedge-lined and steep in places. It is open to cycles and pedestrians and joins up with bridleways which lead toward the city centre and Williamson Park, at the southern motorway bridge. Grimeshaw Lane is part of the Lancashire Witches Walk.

3.39 The third route is along the A683, which once the Heysham Link Road is open should be much less trafficked than it currently is. This route has footways to both sides, and most main junctions are signalised incorporating pedestrian crossing facilities. By bus

3.40 As mentioned previously, the A683 is already served by inter urban bus routes, and also a new park and ride facility adjacent to Junction 34 of the M6. Both bus facilities give direct connections between the site and the city centre.

3.41 In the earlier phases of the development of the site, residents will have the choice of using the bus services which run through the site on the A683, or walking the short distance to the park and ride facility where there are high frequency services.

3.42 As the site becomes established and matures and later phases are built out, the area will have the density of population to warrant bus services circulating around the development itself. This could either be via a new bus service, or possibly via an extension to some of the park-and-ride services.

3.43 Either way it is evident that the site will be well served by public bus services.

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By car

3.44 The proximity of the M6 and the new Heysham Link Road afford the site excellent accessibility for journeys by car without the need to traverse the city centre of Lancaster.

3.45 Figure 10 shows that all of the main population and employment centres can be reached in a journey time of 30 minutes or less. However, as discussed previously, it is likely that most of the residents of the site will want to travel to and from Lancaster, rather than more remote destinations. Also, the choice of modes of travel which are available to residents will mean that they will not be reliant on travel by car.

Figure 10: Journey times to main population and employment centres Land Use & Site Capacity

3.46 The previous paragraphs of this section serve to demonstrate that the site is an inherently sustainable location for new development given its accessibility across a range of transport modes and its proximity to key employment locations, as well as its excellent connectivity to the city of Lancaster

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and larger villages in close proximity. On this basis it is our contention that the site is best promoted and progressed as a high quality residential led mixed use urban extension set within the context of its landscape and townscape. The following paragraphs provide further explanation. Green Infrastructure Framework (figure 11: Outline Green Infrastructure Concept)

3.47 The site’s natural topography and existing landscape structure provides a real opportunity to deliver new homes and associated land uses in a quality environment that are well designed, sustainable and energy efficient, incorporating a range of housing types, sizes and tenures to meet the needs of Lancaster and to assist in the creation of a balanced housing market across the city.

3.48 On this basis the sites ‘green infrastructure’ is used to frame new development demonstrated by figure 10: Outline Green Infrastructure Concept whereby existing woodland areas is retained and has the potential to be enhanced with further green infrastructure:

. Along the cycle path along the banks of the Lune including the lower area of land in the north- west corner of the site

. A band running north-south across the A693 in the centre of the site

. A broad loop on the steepest sloping land in the southern site facing west, north and east

. A belt along the length of Denny Beck

. A band around the south east corner of the site and leading up to Moss Syke Wood

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Figure 11: Outline Green Infrastructure Concept Development Plots

3.49 Within the green infrastructure framework, the development plots will, as far as possible, be inscribed within the existing field pattern. Existing hedgerow will be retained, except where access is required and reinforced with new hedgerow planting. This approach to the development ensures retention of the historic field pattern and encourages a form of development that is sympathetic to the grain of the landscape.

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Figure 12: Development Plots Primary movement network

3.50 The A683 will become the main axis of the new settlement which will be designed to make turn this section of road into a High Street, the centre of community life, in the same way, that the same road is the heart of nearby villages such as Hornby, Melling and Caton. The new High Street will be the element which draws together the northern and southern halves of the site to create a homogenous settlement.

3.51 The green infrastructure framework and existing routes along Grimeshaw Lane and the River Lune Cycleway provide the basis for pedestrian and cycle only routes creating direct links to the community centre which respect the local topography and field patterns. The new High Street (A683) will be designed to encourage low traffic speeds to enable it to function as a pedestrian and cycle friendly route. Streets and Lanes within the settlement will also be designed to encourage low traffic speeds such that they function as a primary part of the pedestrian and cycle infrastructure connecting housing areas to the community centre and the cycle/footway along the Lune to Lancaster, Caton and Halton.

3.52 Regular junctions of this High Street will lead up new Main Streets into the different character areas and a network of Minor Lanes. Development will be designed, as much as possible, to front onto

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green infrastructure, the High Street, Main Streets and Minor Lanes to create an active, sociable settlement whose streets are places for community life to happen where pedestrians and cyclists feel perfectly safe.

Figure 13: Primary Movement Network

3.53 The primary road network (Figure 12) within the site is designed to serve the different character areas with a route alignment that respects the sites topography. This is demonstrated on the Primary Movement Network plan, which gives an indicative layout of the internal circulation arrangements of

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the site, and although only concept at this early does demonstrate the feasibility of the following:

. By providing multiple access points allows for ease of phasing of the development, and the separation of construction activities from occupied properties;

. Multiple access points also naturally lends itself to creating a network of interconnected streets, and allowing a cohesive and permeable settlement;

. The streets can be planned to have a hierarchy of uses, so that some will be more suitable for public transport and servicing routes, and some for quieter activities;

. Alongside the trafficked streets a network of green pedestrian and cycle routes can be created, with Grimeshaw Lane forming the spine; and

. Multiple access points onto the A683 will more readily allow the change in nature from an rural high speed route, to an urban street making it more suitable for pedestrians and cyclists.

3.54 The street pattern on the southern portion of the site could also allow for the built area to extend further south, and even connect with new development to the west of the M6, should this be desired in the future. Figure 13 demonstrates this potential eastern vehicular link road over the M6 that would connect the urban extension directly into the eastern edge of the city centre where significant new residential development is being brought forward and proposed for later years.

3.55 This initial access assessment has demonstrated that there are a range of realistic and readily deliverable options for accessing the development parcels. The review has also highlighted that future residents will have a good choice of means of travelling to and from the site, and that it will connect well with the existing built up area of Lancaster. Also, the improvements to Junction 34 of the M6 and the Heysham Link Road mean that highway infrastructure will have more than adequate capacity to accommodate the development of the site.

3.56 Overall, from a transport perspective, this initial work strongly suggests that the site can be brought forward in the short term without the need for third party land or costly infrastructure improvements. Combined Plan

3.57 Over-laying the analysis plans begins to shape a site Masterplan that is informed by, and respectful of, the sites context (Figure 14). The development will be largely residential, supporting approximately 1,500 units, the analysis suggests five distinct character areas with different housing densities, drawn together by a strategic green infrastructure framework:

. Southern site upper settlement – 28 units per hectare

. Southern site lower settlement – 35 units per hectare

. New high street and community centre on the A683 – 35 units per hectare

. Denny Brook – 28 units per hectare

. Northern riverside site – 35 units per hectare

3.58 The development would also include the following facilities, anticipated to be in the form of a Neighbourhood Centre:

. Primary School (assume 2 hectare site for 2 form entry with approx. 400 pupils)

. Health Centre

. Local shops Page | 27

. Local community centre

3.59 Other land uses required will include the following, which would form part of the sites green infrastructure:

. Amenity green space

. Recreational green space

. Sustainable drainage system

Figure 14: Proposed Combined Plan Conclusion

3.60 This section of the reprot has begun to demonstrate our full understanding of the physical parameters

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and capacity of the site, presenting emerging evidence that it has the ability to incorporate new development that has significant economic, social, and environmental benefit without significant detriment to city of Lancaster and local area.

3.61 This is entirely consistent with paragraph 14 of the NPPF, which makes it clear that local planning authorities should, through their Local Plans, meet objectively assessed needs unless any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in the Framework taken as a whole, or specific policies in the Framework indicate development should be restricted. Such policies include those relating to sites protected under the Birds and Habitats Directives, and/or designated as Sites of Special Scientific Interest; land designated as Green Belt, Local Green Space, an Area of Outstanding Natural Beauty, Heritage Coast or within a National Park or the Broads; designated heritage assets; and locations at risk of flooding or coastal erosion.

3.62 On this basis, the site is not subject to local, regional, national or European designations, there is no identified flood risk (the northern section falls within Flood Zone 2 and 3 but is not considered forming part of the developable area), there are unlikely to be any significant ground condition or contamination issues due to its Greenfield nature, and it is not within the Green Belt. The site is therefore not impeded by any environmental or physical parameters, and as such there are no technical constraints to prevent it from being brought forward for development immediately.

3.63 In conclusion, it is our opinion that the site directly addresses the following core NPPF land use planning principle5:

“Actively manage patterns of growth to make the fullest possible use of public transport, walking and cycling, and focus significant development in locations which are or can be made sustainable”.

3.64 In doing this, it can be seen to be both a deliverable site capable of bringing forward early phases of new homes over a 5 year period, and a developable site that continues to phase new homes through the latter years of Local Plan. The site can also assist the Council in meeting its final 3 strategic objectives (SO3, SO4, and SO5), ensuring that the site can become a sustainable urban extension to the city of Lancaster.

Contribution to Local Needs and Requirements

3.65 The provision of a 1,500 home residential led mixed use urban extension offers the opportunity to stimulate economic growth, to enhance local infrastructure, and assist in meeting the locally specific housing needs and requirements.

3.66 The following presents a summary of the likely benefits to Lancaster from the proposed strategic development option, demonstrating that it has the ability to immediately and directly assist in meeting the Local Plan Spatial Development Strategy and supporting strategic objectives, as well as contributing to meeting the District’s objectively assessed housing and employment needs:

. 450 affordable homes – based on 30% requirement set out in adopted Core Strategy (2008)

. £135 million construction value – base build cost and externals

. 100 direct construction jobs – FTE temporary construction jobs per annum over a 30 year construction period (deliverable supply 0-5 years / developable supply 6-10 years and 11-15

5 Paragraph 17, NPPF Page | 29

years)

. Additional £2.52 million Council Tax Revenue per annum – based on 1,500 Band D properties at 2017/18 prices of £1,680.30 within Quernmore Parish

. £16.07 million in New Home Bonus payments – (£10,081.80 x 1,500 units plus additional £2,100 x 450 affordable homes – Quernmore Parish 2017/18 rates)

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4.0 Conclusion

4.1 Further to the previous representations made on behalf of Mr Metcalfe, this report seek to demonstrate that the site, in conjunction with the adjoining land owned by Mr Lloyd has the potential to be a sustainable urban extension to Lancaster delivering a residential-led mixed use development.

4.2 Development at the site would directly support the Local Plan requirement for 13,500 new homes by 2031, as well as being in accordance with the Strategic Objective SO2 in particular by delivering a mix of housing to meet population needs.

4.3 This report has also sought to demonstrate that the site is highly suitable for allocation as a residential- led mixed use site. Its inclusion is critical to the Local Plan being found sound due to the uncertainty that exists around the currently proposed allocations, and thus development at the site would directly assist the Council in ensuring that they can meet their Objectively Assessed Need and realise their economic ambitions for Lancaster.

4.4 Furthermore, this report has demonstrated that the site is not subject to any environmental or technical constraints that would preclude development being brought forward at the site, nor is it within the Green Belt.

4.5 We have demonstrated that development of the site could provide significant social, economic and environmental benefits outweighing any adverse impacts and in accordance with paragraph 14 of the NPPF, including provision of circa 450 affordable homes, direct and indirect construction jobs, Council Tax revenue and New Homes Bonus.

4.6 It is therefore our opinion that the site is deliverable and capable of bringing forward development throughout the plan period, including within the first five years.

4.7 In conclusion, it is considered that the cumulative positive benefits of development at the site are significant so as to justify allocation of the site for a residential-led mixed use development. Development at the site would assist the Council in meeting their Objectively Assessed Need and deliver growth in line with their strategic ambitions.

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Appendix A Previous Representations July 2014

Appendix B Previous Representations Winter 2015

Appendix C Analysis Diagrams

Appendix D Access Concept Plan