Annual Monitoring Report 2013/2014

Contents

1. Introduction ...... 2

2. Background ...... 2

3. Content of the Annual Monitoring Report ...... 4

4. Spatial Portrait ...... 4

5. Progress on the Local Development Scheme ...... 7

6. Implementation: Outcome and Effects ...... 13

7. Key Issues and Opportunities ...... 21

8. Developing the Monitoring Framework ...... 24

Appendix 1: Existing and Potential Information Base ...... 26

1. Introduction

1.1 This document is the Lancaster District Annual Monitoring Report (AMR) for the financial year 2013/14. This is the tenth AMR that Lancaster City Council has prepared and published.

1.2 The AMR establishes the monitoring framework for the district, reporting on the implementation of existing planning policies as well as the evidence base which will be used to support the preparation of future planning policies. Importantly the AMR also provides information on the progress in preparing these future planning documents.

1.3 The AMR establishes the monitoring framework for the district, reporting on the implementation of existing planning policies as well as the evidence base which will be used to support the preparation of future planning policies. Importantly the AMR also provides information on progress in preparing these future planning documents.

1.4 The aims of the AMR are to:

 Identify and report on the preparation of future planning policy documents being prepared by the City Council as described in its Local Development Scheme;  Report on the delivery of new housing within the district, identifying the number of new houses completed in the monitoring period as well as historic completions;  Identify where and in what capacity the Council has co-operated with another local planning authorities, county council, or others in the delivery of planning matters; and  Identify an up-to-date evidence base prepared for monitoring purposes for the preparation and implementation of planning policies.

1.5 The AMR is prepared in accordance with the Planning and Compulsory Purchase Act 2004 as amended by the Localism Act 2011 and in accordance with the Town and Country Planning (Local Planning) (England) Regulations 2012.

1.6 The data tables to support the AMR are maintained separately and are available on request.

2. Background

2.1 Lancaster City Council is the Local Planning Authority for Lancaster district. One of the council’s main responsibilities is the preparation of the Local Plan. The Local Plan establishes the planning policy framework for the district setting out the spatial vision for an area and the policies that will be used to make future planning decisions. The current Local Plan for the district was adopted in 2004.

2.2 The City Council is currently in the process of preparing a new Local Plan for the district, updating policies contained in the 2004 plan and providing new planning policies for the area.

2.3 Under the Planning and Compulsory Purchase Act (2004) the Government introduced a new planning system with local authorities required to prepare Local Development

Frameworks (LDFs) for their area. The LDF was to be made up of a number of separate planning documents, starting with the Core Strategy.

2.4 Lancaster City Council adopted its Core Strategy in July 2008. This set the strategic policies for the district with more detailed policies and guidance to be provided in further Development Plan Documents (DPDs), specifically:

 A Land Allocations document – this identifies the location for future housing, employment, leisure and retail opportunities across the district as well as areas of environmental, recreation and historic importance which should be protected and enhanced;  A Development Management document – this establishes the detailed planning policies that the council will need to consider when determining planning applications; and  An Area Action Plan for Morecambe – this provides a detailed planning framework for the regeneration priority area of Morecambe.

2.5 Following adoption of the Core Strategy the council commenced preparation of the above documents.

2.6 Since adoption of the Core Strategy the Government has published a new National Planning Policy Framework (NPPF) for the country. This was published in March 2012 and identifies a new approach to the preparation and content of planning policies. The NPPF aims to create a more concise and understandable approach to the planning system while at the same time delivering sustainable development and economic growth.

2.7 The NPPF now refers to the collection of documents that make up the statutory plan for a Local Planning Authority as a Local Plan, reverting back to the terminology used prior to the 2004 Planning and Compulsory Purchase Act. Accordingly, the council is preparing a new Local Plan with the above documents forming part of the Local Plan for Lancaster district.

2.8 In light of the publication of the NPPF the council has reviewed the requirements and need for the Core Strategy and has concluded that the key themes, objectives and policy approaches contained in the Core Strategy would be better placed within the Local Plan through the more detailed planning documents of the Development Management DPD, Land Allocations DPD and Morecambe AAP. In addition to these documents the council is also committed to the preparation of a specific DPD for the Arnside and Silverdale AONB and Gypsy and Traveller Accommodation. Upon the adoption of all five documents, the Core Strategy will be withdrawn as a material planning consideration with the Local Plan for the district forming the Development Plan for the area.

2.9 Irrespective of these changes the process of monitoring, evaluation and review remain an essential component of the planning system. It provides the main mechanism for reviewing the implementation of planning policies and evaluating their effects and outputs. The identification of outputs and trends also ensures that a comprehensive evidence base is developed which can be used to inform the preparation of future planning policies. Importantly where the monitoring process reveals that policies are not contributing to the delivery of desired outcomes the monitoring report allows opportunity to consider revising the policies.

2.10 In view of this the council continues to monitor progress against a number of key indicators. These are reported annually via this report.

3. Content of the Annual Monitoring Report

3.1 The AMR is divided into the following sections:

 Spatial portrait of the district;  Update on the preparation of future Development Plan Documents;  Analysis of key indicators based on the following themes; and  Summary of the issues, challenges and opportunities facing the district over the next 12 months.

3.2 The council is also required to publish a record of its activities under its duty to cooperate, this will be set out in a separate monitoring report that will be published shortly.

4. Spatial Portrait

4.1 Lancaster is the most northerly district in Lancashire covering an area of 565 square kilometres. It contains the coastal towns of Morecambe and Heysham, the historic city of Lancaster, the railway town of Carnforth and an extensive rural area including two Areas of Outstanding Natural Beauty (AONB), the Arnside and Silverdale AONB and the Forest of Bowland AONB. The district is bound to the south by the Lancashire Authorities of Wyre and Ribble Valley, to the east by the North Yorkshire Authority of Craven Valley, and to the north by the Cumbrian Authority of South Lakeland.

Geography Figure 1 – Lancaster District

4.2 Over 90% of the district is rural with drumlin fields and rolling upland farmland forming the predominant landscape types. This is complemented by coastal drumlins along the coast of the district, the floodplain valley of the River Lune and the wooded limestone hills and pavements at Silverdale. Together these landscapes provide the setting for the main settlements of Lancaster, Morecambe and Heysham and Carnforth. The proximity of these landscapes to main settlements is a particular asset of the district with residents able to readily access the countryside.

4.3 Complementing the main urban settlements is a network of villages which together are home to a number of vibrant communities delivering key services and facilities for residents and the wider rural hinterland of the district.

Accessibility

4.4 The district benefits from good transport communications offering connectivity by a range of transport modes. Rail accessibility is particularly good with the presence of 7 railway stations ensuring good internal and external connectivity by rail. Lancaster is a key stop on the West Coast Main Line offering high speed connections to London and to the north of the Country. Access east to west is also provided with regular rail services connecting the district to Barrow, Leeds, Manchester and Manchester Airport.

Figure 2 – Lancaster Railway Station

4.5 While the presence of the M6 motorway running north to south through the district ensures good external connectivity, Lancaster does suffer from poor internal accessibility with congestion noted to be an issue at several locations, most notably in south Lancaster and the city centre gyratory. The new Heysham M6 link road will hopefully address this issue, improving traffic movements through the district, easing congestion in the city centre and increasing the potential for investment in the surrounding area.

Natural and Built Environment Characteristics

4.6 The district continues to benefit from a high quality and diverse environment with many of its assets protected by local, national and international designations. In total these designations cover 74% of the district (42,064 hectares). This includes two AONBs, as well as the largest area of wetland in Britain at Morecambe Bay. It is this environmental quality that distinguishes the district from the more urban authorities of Lancashire and Figure 3– Warton Crag provides residents with a high quality of life.

4.7 The rich diversity of the natural environment is complemented by a high quality built environment. This includes:

 1,347 listed buildings (24 grade I, 66 grade II* and 1,257 grade II),  37 Conservation Areas,  37 Scheduled Monuments and  3 Registered Parks and Gardens.

4.8 The number of listed buildings within the district is comparable to the cities of Liverpool and Manchester. During the last monitoring period two listed buildings have been taken off the national buildings at risk list, Slackwood Farmhouse in Silverdale and Church of St. Helen in Overton.

Social characteristics

4.9 Together the high quality built and natural environment continue to make the district an attractive place to live and visit. At 137,823 people the district is the fourth largest authority in Lancashire. Whilst having a large population the district’s large area and rural nature mean that its population density is low with an average of 244 people per km2 recorded, the second lowest population density in Lancashire.

4.10 Population growth across the district looks set to continue into the future with population projections published in May 2014 for the period 2012-2037 projecting a 5.9% increase in population between 2012 and 2037.

4.11 The number of dwellings within the district has also continued to increase through this period and now stands at 61,154 dwellings. 144 new dwellings were completed between the 1st April 2013 and the 31st March 2014 and 294 dwellings were granted planning permission.

Economic characteristics

4.12 The district is noted to have the most self-contained labour market in Lancashire, with 83% of its residents living and working in the area. Figure 4 - Mossgate, Heysham

4.13 Employment remains focussed on several key sectors with jobs concentrated in the education, energy and health sectors of the economy. In addition to these sectors the low carbon economy, environmental technologies economy, creative and digital industries and the visitor economy are all highlighted as potential growth areas with significant opportunities for expansion.

4.14 Latest unemployment data for the district shows a fall in people claiming job seekers allowance between April 2013 and March 2014, with just 2.5% of the working age population recorded as claiming job seekers allowance in 2014 compared to 3.2% in 2013.

5. Progress on the Local Development Scheme

5.1 The project plan for the implementation of Lancaster’s local planning policy is the Local Development Scheme (LDS). This document provides a timetable for the preparation of future DPDs detailing key milestones, the resources for preparation and the risks associated with preparation.

5.2 Following approval from the Secretary of State the council adopted a revised LDS for the district in April 2010. This updated the previously adopted 2007 LDS for the district. In view of further changes to the planning system (the Localism Act (2011), the publication of the National Planning Policy Framework (2012) and the introduction of new development plan regulations and new terminology the council has further revised its LDS with a new LDS for the district adopted in July 2013.

5.3 Of significance for this monitoring period was the submission of the Development Management document and Morecambe Area Action Plan to the Secretary of State for examination. These were both submitted to the Secretary of State on the 13th December 2013. The public examination took place between the 1st April and 9th April 2014. Whilst occurring outside of the 2013-2014 Monitoring period it is considered prudent to report that both the Development Management document and Morecambe Area Action Plan were found sound by the Inspector and have subsequently been adopted by the council on the 17th December 2014.

5.4 It should also be reported that, whilst outside of the 2013/2014 monitoring period, the council undertook additional consultation on its Land Allocations document in 2014. The Meeting Future Housing Needs Consultation took place between June and July 2014 and investigated where additional land could be provided to deliver an additional 5,000 new homes in the district. The consultation took place to address the gap between sites identified in the council’s Strategic Housing Land Availability Assessment (SHLAA) and new evidence on future housing need in the district contained in the October 2013 Housing Requirements Study (Turley Associates).

5.5 A new LDS for the district is being prepared. This will be reported in more detail in next year’s AMR.

LDS documents list

5.6 The AMR considers progress on the following local DPD documents:

 Lancaster District Core Strategy 2008  Development Management DPD  Land Allocations DPD  Morecambe Area Action Plan (MAAP)  Arnside and Silverdale AONB DPD  Gypsy and Traveller Accommodation DPD

5.7 In addition to the above documents the council will also be preparing a range of Supplementary Planning Documents (SPDs) and Planning Advisory Notes (PANs). These will add more detail to the policies contained in the Local Plan. Further details on these documents will be provided in a revised LDS.

Progress Summary

5.8 The following table provides more detailed information on the preparation of Development Plan Documents within the district.

Table 1 – Progress Summary

Process documents Description Adoption / publication date Updated version published July It sets out the timetable for the Local Plan for April 2010 - March 2013 2015. It covers which Development Plan Documents will be Local Development Scheme produced, helps the community to understand the development plan A new version of the LDS is process and how to get involved. currently in preparation Councils are required to publish this each year to show how the Report published for previous Annual Monitoring Report preparation of the Local Plan documents are progressing and to financial year monitor the effects of planning policy on the district. It sets out how we involve people in plan-making and the planning Adopted June 2006, an updated Statement of Community application process. It includes details about who will be involved, version was consulted upon in Involvement consulted with and how and when this will be done. August to September 2013 Development documents Completed Stages Current Stage Next Stage Core Strategy Adopted July 2008 . Consultation carried out on a draft policy options July - August 2011 Development Management . Draft Preferred Options Policies consultation held October – December 2012

. Preparation of report on Morecambe Area Action Plan findings of Draft Preferred Options consultation

. Publication version was open for representations October to

November 2013

. Submission to Secretary of State December 2013

. Examination April 2014

. Adoption December 2014

Delivery of the Land Allocations document has been delayed from  Consultation carried out on a that reported in the LDS to allow draft policy options July - for consideration of new August 2011 information in relation to housing need. . Draft Preferred Options consultation held October – A reviewed timetable will be December 2012 prepared as part of the 2015 . Preparation of a draft Land Land Allocations and Local Plan LDS. Key activities for the next . Preparation of report on Allocations Document Policies Map monitoring period include: findings of Draft Preferred Options consultation Publication of a new housing requirement report following the . Spatial Options consultation release of new householder June-July 2014 projections for the country, early 2015.

Draft Land Allocations consultation early 2016

Memorandum of Agreement A reviewed timetable will be signed between Lancaster City prepared as part of the 2015 Council and South Lakeland LDS. Key activities for the next

District Council monitoring period include: Evidence base requirements are Arnside and Silverdale AONB DPD Call for sites January 2015 Consultation on Sustainability being reviewed. Appraisal Scoping Report June 2015

Issues and Options Summer 2015 . Gypsy and Traveller . Additional community Accommodation Assessment engagement planned to (GTAA) completed – July 2013 determine the types of sites A new timetable will be prepared Gypsy and Traveller and locations for new for this document as part of the Accommodation DPD . GRT community engagement allocations. reviewed LDS for the district. event hosted at Salt Ayre Leisure Centre – Sept 2013

Supplementary Planning Documents (SPD) This is now under review following adoption of the Development Management DPD. A scoping consultation on the Meeting Housing Needs SPD Adopted 7 February 2013 proposed content was consulted on in January 2015. The comments received are currently being reviewed. A draft document was consulted Reviewing representations SPD to be reviewed in light of Employment and Skills Plans SPD on between January and received representations received February 2015.

A draft document was consulted Reviewing representations SPD to be reviewed in light of Shop fronts and Advertisements SPD on between January and received representations received February 2015.

6. Implementation: Outcome and Effects

Environment

6.1 As in previous years areas of biodiversity importance are monitored by the council. Areas of biodiversity importance are defined as Sites of Special Scientific Interest (SSSI), Special Protection Areas (SPAs), Regionally Important Geological/Geomorphological Sites (RIGs), Ramsar sites, Biological Heritage Sites (BHS) and Areas of Outstanding Natural Beauty (AONB).

Designation Area (ha) SSSI 19,119 SPA 18,098 SAC 10,649 RIG 1,491 RAMSAR 10,507 BHS 6,155 AONB 30,638

6.2 Importantly there have been no reported changes to these areas over the last 12 months.

6.3 Natural assets in the district include:

 Natura 2000 sites – these are sites of international importance and include: Morecambe Bay (Special Area of Conservation (SAC), Special Protection Area (SPA), and Ramsar site); Morecambe Bay Pavements (SAC); Bowland Fells (SPA), Calf Hill and Cragg Woods (SAC), Leighton Moss (Ramsar site and SPA).  Areas of Outstanding Natural Beauty (AONB) – the Arnside and Silverdale AONB and the Forest of Bowland AONB.  27 Sites of Special Scientific Interest (SSSI) covering 385 sq km of the district including Cockerham Marsh, Eaves Wood in Silverdale, the Lune Estuary and Warton Crag.  3 declared Local Nature Reserves including Trowbarrow Quarry in Silverdale, Warton Crag and Warton Crag Quarry.  277 Biological Heritage Sites including the Crook O’Lune Wood, Trowbarrow Quarry and Leapers Wood in Over Kellet.  35 Regionally Important Geological Sites including meeting House Bog at Abbeystead and Leapers Wood in Over Kellet.

6.4 In addition to these designations the district is also home to a network of local green spaces and corridors. Together these enable people and wildlife to move freely between areas, enhancing recreational opportunities and wildlife migration.

Figure 5 – Crook O Lune

6.5 Of the 19,119 ha of SSSI in the district 97% have been assessed as being in a favourable or unfavourable recovering position. This is a 2% improvement from the previous monitoring period.

6.6 The condition of the district’s two AONBs is also monitored. As reported in previous years both AONBs benefit from up to date management plans, with plans for both AONBs adopted in 2014.

6.6 The council is working in partnership with South Lakeland District Council on a joint Development Plan Document for the Arnside and Silverdale AONB. This will provide detailed policies and allocations for this area of the district, including any site specific allocations. Progress on the preparation of this DPD is described in section 5 of this report.

6.7 The amount of agricultural land across the district is also monitored. This reports no change from the previous monitoring period. The best and most versatile land is described as Grades 1, 2 and 3a.

Agricultural Grade 1 Grade 2 Grade 3 Grade 4 Grade 5 Land Ha 0 625 21,331 15,495 16,512 % 0 1.1 37.7 27.4 29.2

6.8 With a number of significant water courses in the district, including the Lune, the Keer and the Conder, large areas of the district remain at risk from flooding. Flooding remains one of the main issues facing the district with 22.79% of the district located in flood zone 3. Flood zone 3 is defined as areas at risk from 1 in 100 or greater probability of river flooding or a 1 in 200 or greater annual probability of flooding from the sea. 3,193 habitable residential properties (i.e. excluding garages) are located within this flood zone.

6.9 Current renewable energy generation in the district is reported below. This identifies a total generating capacity of 28.54 MW as of the 1st April 2014. As reported in previous monitoring reports the majority of this capacity is generated from wind energy with the 8 turbines at Caton Moor (16MW) responsible for the majority of this capacity.

6.10 Wind energy remains an attractive technology for the district with a number of screening opinions and applications submitted over the reported monitoring period. This includes applications at Tatham, Nether Kellet, Caton and Arkholme. Of significance for next year’s monitoring report will be the recent completion of 3 turbines at South Heysham which together have a generating capacity of 7.5MW. The council is continuing to receive applications for wind turbines across the district.

6.11 The number of applications for solar panel installations has also increased over the monitoring period with a large number of applications submitted for householder installations.

Technology Status Capacity Wind Operational 18.5 MW Landfill Gas Operational 4.26 MW Sewage Gas Operational 0.58 MW CHP Operational 1.4 MW Micro-generation Operational 3.8 MW TOTAL Operational 28.54 MW

6.12 The provision of sports facilities, green spaces and green networks are a central component of the delivery of sustainable communities. It is well documented that high quality recreation opportunities are essential to people’s quality of life and wellbeing. Lancaster district is fortunate to benefit from a network of high quality open spaces. Data from the council’s ‘PPG17 open Space, Sport and Recreation Facilities study’ (2010 Refresh) reveals that 86.5% of the urban population live within 720 metres of a natural or semi-natural green space and 80.6% of the urban population live within 480 metres of amenity green space.

Social

6.14 As reported in last year’s AMR the 2011 census identified a population for the district of 137,823 people, placing the district as the fourth largest in Lancashire with only Blackburn with Darwen, Blackpool and Preston recording higher populations. Whilst having a large population the districts large area and rural nature mean that the number of people per km2 is low with the only the rural district of Ribble Valley recording a lower population density.

6.15 The location of two universities in the district is clearly reflected in its age profile (figure 6) with an above average proportion of people recorded in the 15-24 age cohort. This is not reflective of the district as a whole with students tending to concentrate in a select number of wards, most notable in Lancaster South and Lancaster North sub-areas. The completion of several purpose built off-campus accommodation in the centre of Lancaster has increased the number of students 15

living in the city centre.

Figure 6 – Age distribution by four year age group (2011 Census based, ONS)

6.16 Population growth across the district looks set to continue into the future with 2012 based population projections published in May 2014 for the period 2012-2037 projecting a 5.9% increase in population in the district, increasing from 139,700 people in 2012 to 148,000 in 2037.

6.17 As with the national average there is evidence of a general ageing of the population with the most significant growth in the district estimated to be in the 65+ age group. This age group is projected to increase by 35% by 2037, and will account for 32% of the population by 2037. Growth at the other end of the age range is projected to be more modest with projections indicating just a 1.2% increase in the under 20 age group.

6.18 As reported within the spatial portrait the number of dwellings within the district has continued to increase through this period and now stands at 61,154 dwellings as of the 31st March 2014.

6.19 144 new dwellings were completed between the 1st April 2013 and the 31st March 2014 and 294 dwellings were granted permission. 213 of the 294 approved dwellings were for affordable housing. Monitoring reveals that 58 of the 144 housing completions recorded over the last 12 month period were for affordable dwellings. 71% of new completions took place on previously developed land.

6.20 Accounting for completed development and lapsed permissions, as of the 31st March 2014 the outstanding commitment for the district stood at 3,220 dwellings. A breakdown of the geographical distribution of the commitment is described below:

Sub-area Large sites Small sites Total Large sites Total % with with excluding awaiting (including Distribution planning planning large sites Section 106 large sites (including permission permission awaiting Agreements awaiting large sites S106 S106 awaiting Agreements Agreements) S106 Agreements) Lancaster 1,370 114 1,484 71 1,555 47% Morecambe 460 172 632 0 632 19% and Heysham Carnforth 200 1 201 0 201 6% Rural 297 106 903 0 903 28% Total 2,827 393 3,220 71 3,291 100%

Figure 7 – Halton Mills Housing Development, Halton

6.21 Analysis of the Mosaic household group classifications reveals that the majority of households in the district are located in group B (Residents of small and mid-sized towns with strong links), group E (Middle income families living in moderate suburban semis), group J (Owner occupiers in older style housing in ex-industrial areas) and group G (Young, well-educated city dwellers). It is noted that there is a larger amount of Group G households in the district when compared to the Lancashire average.

6.22 The overall unemployment rate in the district is noted to have improved over the last 12 month period with claimant data revealing that following a slight rise in unemployment in 2011/12 overall unemployment rates have fallen in the district during the most recent monitoring period, 2013/14. As of the 31st March 2014 2,047 people were reported as being unemployed, 2.3% of the working age population. A fall of 0.9% from March 2013.

6.23 As in previous years unemployment rates across individual wards in Lancaster district is also reported (figure 8). The largest concentration of unemployment continues to occur in Poulton ward with 273 people claiming unemployment related benefits, 12% of the total claimant population of the district. Unemployment levels also continue to be high in Harbour ward. The lowest level of claims were made in the Kellet and Upper Lune Valley ward.

Claimant count by ward (March 2014)

300 250 200 150

Claimants 100 50

Ellel

Bulk

Bare

Kellet

Castle

Duke's

Warton

Poulton

Overton

Harbour

Westgate

Carnforth

Silverdale

Torrisholme

Skerton East Skerton

Skerton West Skerton

John O'Gaunt John

Scotforth East Scotforth

Slyn-with-Hest

Scotforth West Scotforth

HeyshamSouth

HeyshamNorth

Bolton-le_Sands

HeyshamCentral

Lower Lune Valley Lower

Upper Lune Valley Lune Upper Halton-with-Aughton Ward

Total Male Female

Figure 8 – Claimant count by ward, 2014 (Nomis)

6.24 Average median gross annual income in the district was recorded as being £19,863 as of April 2014. This is slightly below the North West average of £20,723 and national average of £22,176.

6.26 Information on the wider social characteristics of an area is provided via the 2010 Indices of Multiple Deprivation. Indices of deprivation were published in March 2010 by the Department for Communities and Local Government. The indices measure seven different aspects of deprivation across the UK – income deprivation, employment deprivation, health deprivation and disability, education skills and training deprivation, barriers to housing and services, living environment deprivation and crime. Data is recorded at the lower super output level, the smallest geographical data level available and usually contains a population of around 1,500 people.

6.27 The 2010 Indices of Multiple Deprivation identifies 10 lower super output areas within the district that fall within the 10% most deprived in the Country. This includes areas within Skerton West ward, Poulton ward, Heysham North ward, Harbour ward, Westgate ward and Bulk ward. In 2007 only one lower super output area within the district was recorded within the 10% most deprived in the country.

6.28 Taking into account the various components of deprivation the Indices of Multiple Deprivation ranked Lancaster district as the 116th most deprived authority in the country, an improvement of one place from that reported in 2007.

Economy

6.29 As is the case across the country the district relies heavily on employment in the service sector. 46,300 people were recorded as working in the service industry in 2013. Main employers in the district are noted to include Lancaster City Council, British Energy, Heysham Port, Lancaster University and Cannon Hygiene Ltd.

Figure 9: Heysham Nuclear Power Station

6.30 It is noted that Lancaster has a largely self-contained labour market, with nearly 83% of employed residents living and working in the area. As reported in the social section the district has continued to experience a fall in unemployment. The total unemployment rate in the district is noted to be below the national average.

6.31 Throughout the monitoring period the council has continued to monitor indicators relating to the provision of B1 (office), B2 (general industry) and B8 (storage and distribution) employment land in the district. Over the 12 month period 1st April 2013 to the 31st March 2014 an additional 569 sqm of employment floor space has been completed within the district. The location split of development across the district over the monitoring period is shown below.

Location Amount Developed Percentage Lancaster 369 sqm 65% Morecambe and Heysham 200 sqm 35% Carnforth 0 sqm 0% Rural 0 sqm 0%

6.32 All of the new employment land was completed on previously developed land.

6.33 Monitoring has revealed a number of applications which would see a reduction in employment land in the district by approximately 899sqm. The most significant loss would occur at Moor Lane in central Lancaster where 380 sqm of B1 office space would be lost to D1 non-residential institutional use. Other smaller losses have been recorded elsewhere in the district, the majority of which are proposals which seek to use employment premises in Lancaster for student accommodation. In total 4 applications were approved for such change of use, totalling the loss of 186 sqm of employment space.

6.34 Whilst there has been a reported loss of employment land the council can also reveal that through this period it has approved an additional 1,322 sqm of employment land. This includes approvals at Heysham Power Station for the erection of a replacement office building, the erection of two light industrial units at Lune Industrial Estate and the erection of a new industrial building at Denninson Trailers on Caton Road.

6.35 The council has also continued to monitor retail completions and permissions over the last 12 months. This reports that over the monitoring period a number of applications have been approved for A1 retail uses within Lancaster centre. Two applications of significance over the monitoring period have been the approval of a new Aldi foodstore at Scotland Road in Carnforth generating 1,495 sqm of convenience floorspace and the reuse of the Market Hall in Lancaster City Centre for comparison retailing, whilst this would make use of existing retail space it would also generate an additional 209 sqm of new floorspace.

6.36 In total 562 sqm of retail floor space has been completed between the 1st April 2013 and the 31st March 2014. This included 429 sqm extension to the Booths site in Carnforth and 70sqm following the redevelopment of the filling station on Scotforth Road in Lancaster.

6.38 420sqm of retail floor space were lost over the 2013/14 monitoring period. The majority of this floor space has been lost to student accommodation. Figure 10: Penny Street, Lancaster

6.39 Information on property prices reveals a slight fall in overall house prices between February 2013 and February 2014 with the average house price falling from £152,018 in 2013 to £151,479 in 2014. The main reason for this decrease appears to relate to a fall in house prices for terraced housing and flats in the district. All other components of the housing market reported an increase in price. Despite the recent period of decline the average house price in the district is still 142% higher than in 2001.

6.40 The district continues to benefit from good transport links with connections to main road and railway corridors as well as port facilities at Heysham Port and Glasson 20

Dock. The recent approval of the Heysham M6 link will further improve accessibility and connectivity in the district. Completion of this is anticipated in 2016.

6.41 Rail patronage remains high in the district with 2,569,888 journeys recorded between 2012/13. Data for 2013/14 is currently unavailable.

6.42 The district continues to benefit from a high quality and comprehensive cycle network with over 75km of cycle path across the district. This include lanes on the highway network as well as off road shared use paths.

7. Key Issues and Opportunities

7.1 The spatial portrait has revealed a number of issues which will need to be considered as part of future Development Plan preparation. These include:

Population growth

7.2 Population projections continue to report a growing population for the district. The district is currently recorded as the fourth largest district in the county with the population expected to grow by 5.9% by 2037, increasing from 139,700 in 2012 to 148,000 in 2037. Meeting the needs of this growing population continues to be one of the key issues facing future planning policies.

7.3 The council will be investigating the implications of new population projections for the district via a revised housing requirement study. This will also take account of the recently published householder projections which were published by the Department for Communities and Local Government in February 2015 as well as the council’s own local employment evidence base.

Ageing population

7.3 As reported in previous monitoring reports the most significant growth in population is expected to be in the 65+ age group, with this projected to increase by 35% by 2037, accounting for 32% of the total population growth in the district. Meeting the specific needs of this demographic represents a key challenge for the future, requiring a more joined up approach between relevant organisations and increased consideration in planning decisions.

Student population

7.4 The district continues to be home to a large student population with this continuing to impact on the age profile for the district. Whilst this presents a number of benefits for the district in terms of economic activity and employment opportunities, it can create problems in terms of housing and service provision. This is especially relevant for a number of wards in the Lancaster sub-area where students are noted to be concentrated.

7.5 In recent years there has been a significant increase in the number of proposals for new student accommodation in the city centre. Over the longer term, these proposals may help to ease demand for traditional ‘shared’ accommodation amongst 21

students and therefore increase the supply of low cost family housing, particularly in south Lancaster. The implications of this will need to be kept under review.

Housing Delivery

7.6 Whilst the total housing stock in the district stands at 61,154 dwellings monitoring has revealed that the council has continually failed to deliver against its 400 per annum housing requirement. Just 144 new dwellings were completed between the 1st April 2013 and the 31st March 2014. While this is an increase from the previous monitoring period it remains below the current 400 per annum dwelling requirement.

7.7 The council published a new Strategic Housing Market Assessment (SHMA) in October 2013 for the district. This was prepared by Turley Associates on behalf of the City Council and investigated future housing need in the district. The SHMA indicated the need for an increased housing requirement for the district in the range of 514 and 609 dwellings per annum for the period 2011 to 2031.

7.8 The council investigated opportunities to meet this additional need via its 2014 ‘Meeting Housing Needs’ consultation. Through this consultation the council sought to investigate opportunities to identify where additional housing supply in the district could be delivered. Evidence from the council’s Strategic Housing Land Availability Assessment (SHLAA) identified potential to deliver approximately 7,000 new homes by 2031. This left a gap of 5,000 new homes. The ‘Meeting Housing Needs’ consultation looked at options to deliver this additional 5,000 new homes.

7.9 As identified earlier updated population projections for the country were published in May 2014. These updated the information used by Turley Associates in the October 2013 Study.

7.10 Whilst new population projections were anticipated the extent of revision to the previous data set was more than anticipated. Population projections are trend based and project forward past trends. The most recent population projections reflect a period of restrained growth reflecting the impact of the recession whereas earlier projections reflect a more buoyant economy.

7.11 It should be noted that whilst population projections are of course an important source of secondary evidence informing the objectively assessed need calculations, the calculations are determined through reference to a number of information sources. Of particular significance will be the recently published householder projections, and importantly the district’s local employment and economic projections evidence base which is currently being finalised.

7.12 In light of this information the council has committed to refreshing its objectively assessed housing need figure. This work has now been commissioned. The conclusions of this work will be used to inform preparation of the Land Allocations DPD.

7.13 The council is also in the process of preparing an updated SHLAA for the district. This is likely to identify further opportunities for additional housing in the district.

7.14 The implications of this reviewed evidence base will need to be considered by the

council as it looks to progress preparation of the Land Allocations document.

7.15 The council recognise that in delivering future supply the council must ensure that all types of housing need in the district are addressed. This includes the delivery of affordable housing as well as housing to meet specific housing needs, including gypsy and traveller needs.

Flood risk

7.16 With a number of significant water courses in the district, including the Lune, the Keer and the Conder, large areas of the district remain at risk from flooding. In meeting future development needs the council will need to ensure that existing and future residents are not exposed to unacceptable flood risk.

7.17 An up to date Strategic Housing Flood Risk Assessment (SFRA) will be central to this work. The council, in support of the Land Allocations document, is currently reviewing this document. This takes account of new flood mapping published by the Environment Agency. A new SFRA for the district is anticipated to be published shortly.

Employment

7.18 Whilst unemployment provision has fallen in the district the AMR reports a continued reliance on a small number of employers. As reported in previous years the continued reliance on a small number of employers makes the district vulnerable to any major job losses in these organisations. This is noted to be especially true for the public sector with an above average number of people employed within the public sector in the district when compared to the national and North West average.

7.19 The council is currently reviewing its employment evidence base. This will be essential in informing the preparation of the Land Allocations document and the availability of employment land. The review will also include a new Economic Strategy for the district identifying future employment opportunities. This information will be used to inform a new assessment of housing need in the district.

Environment

7.16 As reported the district benefits from a rich and diverse natural environment with large areas of the district designated for their environmental quality. Future Local Plan documents will need to ensure that this environmental capital is protected and where possible enhanced. The ability to do this while at the same time meeting development needs is a key challenge in delivering the districts increased housing need.

Transport

7.17 Residents continue to benefit from good levels of accessibility with good public transport links providing excellent connectivity both within the district and externally with the wider north-west. The new Heysham to M6 link will further improve accessibility across the district. This is currently scheduled to be open to the public in the summer of 2016. 23

7.22 Opportunities to strengthen and build on these links and minimise the environmental impacts of traffic will continue to be investigated by the council through the preparation of new planning policy.

7.23 The Lancashire County Council Transport Masterplan for Lancaster district will be an important consideration for the preparation of the Local Plan.

Future Planning Policy Documents

7.24 In reviewing the evidence base it is clear that further work is required in relation to housing in the district. The publication of new population and householder projections will need to be considered by the council as will new local evidence on employment growth in the district. Together this information is likely to lead to a revised calculation of the district’s objectively assessed need figure for future housing, amending the data from that consulted on as part of the 2014 summer consultation.

7.25 A revised figure will be consulted on as part of the draft Land Allocations consultation. This consultation will also include information on new housing sites identified as part of the council’s revised SHLAA.

7.26 The council is aware that its current LDS is out of date. Preparation of additional evidence base documents has meant that the council has been unable to keep to the timetable initially envisaged for the Land Allocations document. It is therefore recommended that the LDS be reviewed to take account of this additional work and that a revised Local Plan timetable for the district be prepared. 8. Developing the Monitoring Framework

8.1 In preparing the Development Management DPD the council undertook an assessment of its existing monitoring framework and assessed the relationship and compatibility of existing indicators with the new policies contained in the Development Management DPD. Where possible the council has sought to utilise existing monitoring arrangements with additional data only being collected where gaps are identified. The existing framework is viewed in the main to provide a comprehensive evidence base on which to inform both policy development and monitor implementation.

8.2 In undertaking this work the council has however identified the need for new indicators in the following areas:

 Retail completions;  Applications for defined cultural developments;  Successful appeals against inappropriate development;  Permissions granted for equine development;  Planning applications received for caravan/chalet/log cabin development;  Successful appeals against inappropriate caravan/chalet/log cabin development;  Employment land lost to alternative uses;  Establish baseline lengths of PROW/Cycle network and monitor

improvements;  Successful appeals based on parking matters;  Successful appeals against telecommunications equipment;  Number of tree preservation orders made  Successful appeals based on tree/hedgerow matters;  Successful appeals based on the protection of non-designated heritage assets  Consider additional indicator to monitor archaeological assets  Number of zero carbon developments  Number of SuDs approvals granted by SABs  Monitoring number of bed spaces for defined vulnerable communities via the Housing Action Plan

8.3 Following the adoption of the Development Management document in December 2014 the council will now look to incorporate additional indicators within its monitoring framework. These will be incorporated into the 2015 AMR.

Appendix 1: Existing and Potential Information Base

Housing

Document Name Purpose Published Anticipated Future Activity Strategic Housing Provides a October 2013 The document Market Assessment comprehensive Prepared by Turley is being (SHMA) assessment of the Associates on reviewed to Lancaster district behalf of the City take account of housing market Council new evidence. area. It provides an This includes assessment of new population demand and need projections for within the housing the district, the market area council’s local providing detailed employment information on study and new tenure, type, householder affordability and projections. the location of need. The SHMA reports on the district’s objectively assessed need figure. Housing Need and Report on the 2012 Review not Demand Study housing needs Prepared by David imminent. survey of the Couttie Associates districts population. on behalf of the Describes housing City Council needs by size and type. Lancaster District Provides 2011 Review not Rural Settlements information on Prepared by David imminent. Report housing need for Couttie Associates each of the eight on behalf of the identified villages in City Council the Core Strategy. Affordable Housing Tests the 2010 Review Viability Study circumstances in Prepared by Adams scheduled for which the district’s Integra on behalf 2015/2016 housing market can of the City Council. deliver affordable housing.

Document Name Purpose Published Anticipated Future Activity Study into the Reports on the September 2006 Review not Identification and identification and Prepared by imminent. Use of Local use of local housing ECOTEC Housing Market market areas for Consultants on Areas for the the development of behalf of development of the the Regional Spatial Government Office Regional Spatial Strategy for the for the North West Strategy in the North West. North West Definition of The study looked at 2008 Review not Housing Market boundaries defined Prepared by Nevin imminent. Areas in the NW in the above study. Leather Associates New information on behalf of 4NW was also fed into the process primarily using travel to work data and patterns of migration. Lancaster City Assessment of the 2013 Prepared by Review not Council Gypsy, need for gypsy and Opinion Research imminent. Traveller and traveller Services on behalf Travelling accommodation of Lancaster City Showperson and service Council Accommodation provision Assessment Update

Housing Land Reports on housing May 2014 Produced Monitoring Report completions within annually with a the District for the Prepared by base date of the period 1st April to Lancaster City 1 April. the 31st March and Council the long term delivery of housing land supply across the District. Strategic Housing Identifies and 2014 Kept under Land Availability assesses the Prepared by review as part Assessment deliverability of Lancaster City of the housing (SHLAA) potential housing Council land monitoring sites across the process. A district. Sites are revised SHLAA assessed based on is expected to their suitability, be published achievability and shortly. availability for housing.

Document Name Purpose Published Anticipated Future Activity Local Brownfield Identifies key 2009 Review not Land Study brownfield sites Prepared by Atkins imminent. across the district Ltd in conjunction and examines the with Lambert obstacles currently Smith Hampton on preventing their behalf of the City development as Council. well as the mechanisms to overcome them. Public Health Profile Reports on public 2013 Review not health data for the imminent district. Prepared by Public Health England

Environmental Protection, Enhancement and Recreation Evidence

Document Name Purpose Published Anticipated Future Activity Lancaster Air Identification of air 2007 N/A Quality quality management Prepared by the Management area in Lancaster council’s Health and Area City Centre Strategic Housing Services

Carnforth Air Identification of air 2007 N/A Quality quality management Prepared by the Management area in Carnforth council’s Health and Area Strategic Housing Services

Contaminated District wide No formal study Work is ongoing Land Survey assessment of currently exists. contaminated land – Work is ongoing addressing issues and implications

Document Name Purpose Published Anticipated Future Activity Strategic Flood Assessment and September 2007 Review Risk Assessment over-view of flood Prepared by Jacobs underway risk across the on behalf of the district. council

River Lune Identifies how flood 2009 Review not Catchment risk will be managed Prepared by imminent Management for the next 50-100 Environment Agency Plan years.

Shoreline Provides initial 1999 Third Shoreline Management guidance for Prepared by Management Plan shoreline Morecambe Bay Plan will start management and Shoreline commencement the development of Management Plan in the next four sustainable polices Partnership years. for coastal defences. The second Shoreline Management Plan (SMP2) has now been completed and is waiting formal approval. Landscape Classifies the December 2000 Review not Character landscape into Prepared by imminent Assessment distinct landscape Environmental types identifying key Resources characteristics and management (ERM) sensitivities as well on behalf of as the principles to Lancashire County guide development. Council

Review of Key Review of the November 2012 Review not Urban Landscape council’s Key Urban imminent Allocation Landscape Prepared by designation and Woolerton Dodwell, assessment of November 2012 existing allocations.

Document Name Purpose Published Anticipated Future Activity Historic Towns Identifies a small March 2007 Review not and Cities in number of historic Published by North imminent England’s North towns and cities as West Development West strategic priorities Agency and English for tourism Heritage infrastructure and product development

Grab Lane Assessment of the February 2013 Review not Setting Study implications of imminent development at the Prepared by The proposed Grab Lane Architectural History allocation on Practice on behalf of adjacent historic Lancaster City assets. Council

Open Space Report of survey of December 2007 Refreshed in Study (PPG17 recreation and open Prepared by PMP 2010 Study) space within the Consultants on district and behalf of the council identification of future need. Open Space Refresh of 2007 October 2010 Review not Study (PPG17 Open Space Study Refresh undertaken imminent Study) Refresh by Lancaster City Council Lancaster District Report of survey of July 2007 Review not (Commercial) commercial leisure Prepared by White imminent. Leisure Study facilities in the Young Green District. Consultants on behalf of the council

Infrastructure Estimates the total 2009 Currently being Schedule amount of money Prepared by reviewed being spent on Lancaster City infrastructure in the Council district over the next 10 years

Document Name Purpose Published Anticipated Future Activity Community Assessment of the 2012 Review of Infrastructure feasibility of viability Levy: Economic introducing a Prepared by GVA on considerations Viability Community behalf of the underway. Assessment final Infrastructure Levy council. report (CIL) within the district

Economy and Transport Evidence

Document Purpose Published Anticipated Name Future Activity Phase 1: Retail The study updates and January 2014 Review not Development supersedes parts of the imminent Strategy, Final previous Lancaster Prepared by White Report 2006 Retail Study Young Green on behalf of the City Council Shopping and Examines town centre January 2004 Review not Town Centres health indicators Prepared by Lancaster imminent Monitoring City Council Report Retail Study Report of survey of 2006 Updated in retail capacity and town Prepared by White 2009 centre catchment areas Young Green on behalf of the City Council Addendum to Considerations of initial September 2006 Updated in Retail Study report findings in light Prepared by White 2009 for period of emerging policy Young Green on behalf 2016 - 2021 guidance (RSS), re- of the City Council estimates of population and expenditure figures

Retail Update Update of the June 2009 Review not Study convenience and Prepared by White imminent comparison models in Young Green on behalf the Lancaster Retail of the City Council Study

Local Economy Provides information 2014 Updated Monitoring and descriptive account Prepared by Lancaster annually Report of employment City Council information and structure of the local economy.

Document Purpose Published Anticipated Name Future Activity Lancaster and Baseline analysis of the October 2005 Review not Morecambe local economy, Prepared by Regeneris imminent Economic Base identifying and on behalf of the City Line Study assessing key economic Council drivers of the economy

Employment Employment premises September 2006 Review Land Study and site assessment Prepared by currently and Premises consultants Regeneris underway Assessment and King Sturge on Report behalf of the City Council

Partial Review of continued October 2008 Review Employment suitability of currently Land Review employment sites Prepared by Atkins Ltd underway across the district. The in conjunction with information will be used Lambert Smith to inform the Hampton on behalf of allocations of sites in the City Council the Land Use Allocations DPD.

Lancaster Provide a review of the Currently being Still being District existing employment finalised. Anticipate finalised. Employment land portfolio to assess publication in early Land Review their suitability for 2015. retention for employment purposes Being prepared by or whether they should Turley Associates on be considered for behalf of the City alternative uses, and Council. provide an assessment of the quantitative future employment requirements for the district in terms of potential job growth expected in specific economic sectors and the land requirements for future expansion through the plan period 2011-2031.

Document Purpose Published Anticipated Name Future Activity Lancaster Assessment of tourism 2008 Regularly District demand and provision Prepared and updated reviewed Tourism across Lancaster by council’s Tourism Strategy District. Service Morecambe Aims to support October 2005 Review not Resort Action Morecambe Action Plan Prepared by DTZ Pieda imminent Plan Partnership and other Consulting partners to achieve the vision for Morecambe

Morecambe The study tests the 2011 Review not Marina concept of a marina Prepared by Gifford, imminent Feasibility development within Marina Projects and Study Morecambe. PLC Architects STEAM Provides information on 2011 Review not Reports visitor numbers, Executive summary of imminent expenditure and the key figures prepared by economic impact of Lancaster City Council tourism in the District

Destination Provides visitor 2008 Review not Benchmarking opinions and profiles Prepared by England’s imminent Reports for key attractions and Northwest Research centres within the Service District. Reports are available for Lancaster and Morecambe

The Lancaster Reports on a wide 2008 Review not Transport range of information Prepared by Faber imminent Strategy about transport in the Maunsell in 2008 on urban area of Lancaster behalf of Lancashire and Morecambe and County Council and proposals for Lancaster and improvement Morecambe Vision Board

Completion of Supporting information 2013 Ongoing the Heysham to the planning Prepared by Lancashire updates M6 Link application for the County Council Heysham to M6 link Lancaster Information on cycling 2013 Ongoing Cycling and and walking routes updates Walking Map across the district. Prepared by Lancaster City Council

Document Purpose Published Anticipated Name Future Activity Lancashire Assesses the extent to June 2005 Review not Rights of Way which rights of way Prepared by Lancashire imminent Improvement meet the present and County Council Plan for likely future needs of Lancashire the public.

The M6 10 year strategy setting Prepared by the Review not junction 20-44 out the Highways Highways Agency imminent Warrington to Agency actions and the Scottish expenditure for the Border Route identified route. Management Strategy

Route Identifies opportunities 2010 Review not Utilisation for improving local Prepared by Network imminent Strategies for connections, improving Rail Lancashire and rail links between some Cumbria of the bigger towns and making the railway a more attractive option for commuters.

Lancashire Provides technical 2011 Review not Sustainable resource assessments Prepared by SQW Ltd imminent Energy Study for renewable energy on behalf of Lancashire for each of the fourteen County Council Lancashire Authorities.

Taking Identifies the realistic 2011 Review not Forward the deployment potential Prepared by SQW Ltd imminent Deployment of for each of the fourteen on behalf of Lancashire Renewable Lancashire Authorities. County Council Energy This takes the technical resource assessment above and factors in constraints to allow for a more realistic deployment capacity to be identified.

Document Purpose Published Anticipated Name Future Activity Development Identifies the potential June 2006 Review not of New for development of imminent. Renewable renewable energy and Prepared by Quantum Energy and recycling industries in Strategy and Recycling Lancaster and Technology Ltd on Industries for Morecambe and behalf of the Lancaster Lancaster and assesses the potential and Morecambe Vision Morecambe contribution of board. renewable energy to Lancaster district’s energy consumption.

Landscape Assessment of February 2005 Review not Sensitivity to landscape sensitivity to Prepared by Lovejoy on imminent. Wind Energy wind energy across behalf of Lancashire Development Lancashire. Existing County Council in Lancashire landscape character areas form the basis for the study. Landscapes are assessed for their ability to absorb change and the scale of change that can be accommodated.