WIGANLOCALDEVELOPMENTFRAMEWORK Core Strategy Preferred Options Report (June 2009) Council LDF

Contents

ONE Introduction 3

TWO How to get involved 8

THREE Spatial portrait 11

A 'spatial portrait' of Wigan Borough 11

Wigan 17

Standish, Aspull & Shevington 19

Orrell and Billinge 21

Ashton and Bryn 23

Golborne and 24

Leigh 26

Atherton 28

Tyldesley and Astley 30

Hindley and Abram 32

FOUR Key issues 35

FIVE Key evidence 37

SIX Spatial vision 41

SEVEN Strategic objectives and monitoring 43

EIGHT Choosing our preferred options 65

NINE Our preferred spatial policies 67

TEN Our preferred core policies 115

ELEVEN Our preferred development management policies 179 WIGANLOCALDEVELOPMENTFRAMEWORK Core Strategy Preferred Options Report (June 2009) Wigan Council LDF

TWELVE The alternative spatial options 196

Focus on the east of the borough 196

Focus on the west of the borough 200

Focus on the outer areas of the borough 203

Disperse development across the borough 205

THIRTEEN Next steps 209 A Changes to the proposals map: conservation areas 211

B Changes to the proposals map: sites of biological importance 217 WIGANLOCALDEVELOPMENTFRAMEWORK Core Strategy Preferred Options Report (June 2009) Wigan Council LDF

ONE Introduction

1.1 Welcome to the second ‘formal’ stage in the preparation of Wigan’s Local Development Framework Core Strategy - our 'Preferred Options'. It follows on from the previous 'Issues and Options' stage that we consulted widely on in February – April 2008 and builds on the contributions made at that stage and our wider findings. It is again a genuine opportunity for people who live in the borough and other ‘stakeholders’ to get involved in shaping how the borough will work and look in the future.

1.2 This 'Preferred Options’ document is still not a draft Core Strategy: it sets out our preferences for wide consideration and debate. We believe that these options will best address the issues we face. And this is your opportunity now to tell us what you agree with and what you do not agree with, and why. The views we receive will inform us in producing our proposed plan at the next stage - the 'pre-submission' stage - scheduled for mid 2010 - see chapter 13 'Next steps'.

1.3 There are a number of questions throughout the document that we would like you to consider and respond to if you wish. Hopefully they are broad enough for you to let us know your views, whatever it is you wish to tell us. Details of where to find all the documents, how to get involved and how to contact us can be found in the next chapter.

1.4 We have already consulted with and involved many people in the preparation of this document, in our research and evidence gathering, at the Issues and Options stage and through the Sustainability Appraisal. This is outlined in our 'consultation report', which includes a 'you said, we reply' section in an appendix. The results of this are reflected both in this document, in the supporting Interim Sustainability Appraisal Report and in more detail in our series of topic papers. You can view all of these documents on our website (www.wigan.gov.uk/ldfcorestrategy) and in libraries. The topics covered include:

Health and recreation Community safety and neighbourhood quality Community development and involvement Education and learning Economy and employment

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Housing Retail and centres Accessibility Built environment and landscape Wildlife habitats and species Energy Waste Natural resources and pollution

1.5 Clearly, since our Issues and Options stage the economy has experienced a sharp downturn and we are now in recession. This will have a significant impact on how much development comes forward and how it can be delivered, particularly in the early years of the Core Strategy. However, we have a choice. We can sit back and wait for the economy to recover, or we can actively prepare for when it recovers. We believe that the borough needs to be well prepared to take advantage of opportunities once the recovery is underway. Our preferred options are presented on that basis.

What is a Core Strategy?

1.6 The Core Strategy is the key strategic document in our Local Development Framework. When it is adopted in 2011, it will set out our spatial vision, strategic objectives and spatial strategy for the borough. It will include core policies, a key diagram and a revised Proposals Map to guide development. The key diagram will show broad locations and the Proposals Map will show key strategic sites. Other less strategic sites will not be designated through the Core Strategy. There will also be clear implementation (delivery) and monitoring frameworks.

1.7 The Core Strategy has to be in general conformity with the Regional Spatial Strategy and should reflect the borough's Sustainable Community Strategy. It should also draw on other strategies that have implications for the development and use of land, including the Local Transport Plan.

1.8 It has to be informed by a robust and credible evidence base and the contents of the document will be shaped by sustainability appraisal and the outcomes of extensive community and stakeholder engagement.

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1.9 Any other policy document prepared as part of our Local Development Framework, such as a site allocations plan, an area action plan or a supplementary planning document, will have to be ‘in conformity’ with the Core Strategy.

What is the local development framework?

1.10 A local development framework is the planning strategy for a borough or district. It was introduced by the Planning and Compulsory Purchase Act 2004.

1.11 Our Local Development Framework will replace the Wigan Unitary Development Plan (April 2006) that was prepared under the previous planning system.

1.12 The previous system was perceived as being too inflexible and difficult to change in a timely manner. The new system is intended to improve this situation by replacing a single development plan with a new ‘portfolio’ of documents. These can be prepared to suit the different needs of a particular area and can be more easily updated.

1.13 We have already produced a number of documents within the Local Development Framework. These include:

A Local Development Scheme, which sets out what policy documents we will prepare and why, how and when we will prepare them. A Statement of Community Involvement, which sets out how people can get involved in the preparation of our policy documents. An Annual Monitoring Report that sets out information on the borough’s social, economic and environmental performance and monitors whether our planning policies are doing what they are intended to do. Supplementary Planning Documents that are supplementary to policies in development plan documents, currently the Unitary Development Plan, which is ‘saved’ until the Core Strategy is adopted. They provide more detailed guidance on policies.

What is spatial planning?

1.14 Planning is about making decisions on how our borough will work in the best interests of the widest number of people, balancing sometimes competing social, economic and environmental demands and personal and private interests. Traditionally this has been based on a more restrictive ‘land-use planning’ approach, which focused on the development and use of

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land. However, spatial planning goes further and recognises and addresses a wider range of issues that affect our communities and the areas we live, such as health, education, crime, deprivation, environmental sustainability and accessibility. It should promote the social, economic and environmental well-being of the area. And it should ensure ‘buy in’ from throughout the public sector and the private and the third (voluntary) sectors, in order to deliver the strategy. In doing this it should provide the ‘spatial expression’ for the borough's Sustainable Communities Strategy 'Vision 2026'.

What this consultation will focus on

1.15 As we have already stated, we want your feedback on this document. We want to know if you agree or disagree with our 'preferred spatial (area-based) policy principles', our 'preferred core (topic-based) policy principles' and our preferred 'development management policy principles'. Are they the best way for spatial planning to tackle the key issues that we face, meet the objectives that we have set and deliver the vision that we have for the borough in 2026? Are they the right key issues, objectives and vision? Or do you prefer any alternative options.

1.16 To help guide you we have split this document into several successive chapters. With the exception of the next chapter and the final chapter, each is based on our analysis of the evidence we have and the representations that we have received.

1.17 The next chapter sets out a summary of 'how to get involved'.

1.18 The next five chapters, which were also in the Issues and Options document, are:

the spatial portrait of the borough, which is a ‘picture’ of the borough as it is now, in words. It sets out the social, economic and environmental characteristics of the borough in a spatial form. the key issues facing the borough, based on the evidence we have. the key sources of evidence that we have used and the key requirements arising from that evidence, for housing, employment land, retailing and open space. our long-term spatial vision for the borough up to 2026, to resolve the key issues. our strategic objectives to achieve that vision and monitoring indicators to measure how successful we are.

1.19 The next chapters are what this 'stage' is primarily about. They are:

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Our preferred options for development, conservation and protection that would achieve our strategic objectives, including our preferred spatial policy principles, core policy principles and development management policy principles. The alternative spatial options that we have considered and why they are not our preferred options.

1.20 We then conclude with the ‘next steps’ that looks beyond the ‘preferred options’ stage to what happens next.

1.21 Finally we have two appendices setting out changes to our Conservation Areas and Sites of Biological Importance since our current proposals map was adopted as part of the Unitary Development Plan in April 2006.

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TWO How to get involved

2.1 For the Preferred Options we have prepared a number of documents, presenting different levels of detail. These include:

This Preferred Options report. A pull-out supplement with 'Borough Life', the council's magazine circulated to all households in the borough in June, including a tear-off sheet for comments, and otherwise available as a stand-alone leaflet for other stakeholders. Our updated evidence base, which includes our 13 topic papers each one summarising the information and data that have informed the Preferred Options to date; our evidence reviews, which contain more detailed information; and our key local studies where detailed local evidence is needed. A further developed interim sustainability appraisal report that provides an assessment of the preferred options and alternative options and identifies the positive and negative social, economic and environmental impacts on the borough, for which there is also a non-technical summary. A consultation report that provides details of the consultation undertaken and a summary of all the comments received by us up to now and our responses.

How you can access these documents and submit your comments

You can find these documents online, at our offices and at our libraries (except copies of our evidence reviews, key local studies and detailed appendices to the sustainability appraisal that are only available online and at our offices in Civic Buildings - see below).

To view and download all documents and submit comments online, go to our website at: www.wigan.gov.uk/ldfcorestrategy.

On that page you can click on 'Preferred Options'. Here you will find an 'electronic copy' of all of the 'paper documents' and a link to 'web-page versions' of the Preferred Options and Topic Papers. It is from these web-page versions that you can submit your comments online.

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Alternatively visit us or write to us at Planning Policy, Wigan Council, Environmental Services Department, Civic Buildings, New Market Street, Wigan WN1 1RP. We are open 8.45am - 5.00pm, Mondays – Fridays.

Or telephone us on (01942) 404238 or 404234. Please note: we cannot record your comments on the phone, they must be received in 'writing'.

Or email us at [email protected]

You can also view the documents at:

Gateway House, Standishgate, Wigan, 8.30am - 5.00pm, Mondays - Fridays (Please note: that Gateway House has restricted access for people with limited mobility)

Wigan Town Hall, Library Street, Wigan, 8.45am - 5.00pm, Mondays - Fridays

Leigh Town Hall, Market Street, Leigh, 9.00am - 4.30pm, Mondays - Fridays and at all borough libraries (except the children's library) during opening hours, which can be viewed at www.wlct.org. Alternatively, telephone 01942 827619.

Abram Community Library, Vicarage Road, Abram, Wigan WN2 5QX Ashton Library, Wigan Road, Ashton-in-Makerfield, Wigan WN4 9BH Aspull Library, Oakfield Crescent, Aspull, Wigan WN2 1XJll Atherton Library, York Street, Atherton, M46 9JH Beech Hill Library, Buckley St West, Beech Hill, Wigan WN6 7PQ Golborne Library, Tanners Lane, Golborne, WA3 3AW Hindley Library, Market Street, Hindley, Wigan, WN2 3AN Hope Community Library, 2 The Grange Community Complex, Highfield Grange Avenue, Winstanley, Wigan WN3 6GH Ince Library, Smithy Green, Ince, Wigan WN2 2AT Leigh Library, Turnpike Centre, Civic Square, Market Street, Leigh WN7 1EB Marsh Green Library, , Marsh Green WN5 0QL Orrell Library, Orrell Post, Orrell, Wigan WN5 8LY Platt Bridge Library, Platt Bridge Community First, Avenue, Platt Bridge, Wigan WN2 5NG

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Shevington Library, Gathurst Lane, Shevington, Wigan WN6 8HA Standish Library, Cross Street, Standish, Wigan WN6 0HQ Library, Stanley Street, Tyldesley M29 8AH Wigan Library, College Avenue, Wigan WN1 1NN

Please return your comments to us by noon on Tuesday 4 August 2009.

We can make this information available in other formats and languages on request. Contact us at Planning Policy, Wigan Council, Environmental Services Department, Civic Buildings, New Market Street, Wigan WN1 1RP or email us at [email protected].

Please note: that all comments received will be published on our website but we will not publish your signature, telephone number or email address.

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THREE Spatial portrait

3.1 We have consulted on the spatial portrait previously at the Issues and Options stage and have made some changes as a result but it remains broadly the same.

3.2 A ‘spatial portrait’ is a ‘picture’ of the borough in words. It sets out the social, economic and environmental characteristics of the borough in a spatial form, including its role within the north-west region and how the different parts of the borough relate to one another and other areas in the north west. Its purpose is to ensure that we recognise the borough's spatial characteristics in developing policies for its future development. A 'spatial portrait' of Wigan Borough

3.3 Wigan Borough is one of ten districts in the former county of in the North West of . At 200 square kilometres it is the largest of these ten districts and, with a population of 305,000, it has the second largest population after the City of Manchester. Wigan is in the north-west of Greater Manchester bordering (district 262,000; town 140,000) to the north-east and to the south-east (district 218,000).

3.4 Manchester is the regional centre. Greater Manchester, with east to the south, Warrington to the west and High Peak to the east, is now increasingly being referred to as the Manchester city region. Manchester draws people from the borough for shopping, leisure and employment. It is 24 miles from Wigan (town) by rail or a combination of road routes. The wider Manchester / Salford regional centre is forecast to attract over 100,000 additional jobs during the next 20 years, amounting to more than 35% of all additional jobs in the region. Wigan borough residents need to be able to compete effectively for these jobs and access them, and the borough needs to create the conditions to attract businesses.

3.5 To the south-west of the Borough is St Helens district (177,000; town 102,000) within the former county of . St Helens shares many characteristics with Wigan. Merseyside with west Cheshire to the south is now increasingly being referred to as the . Liverpool is the main sea port in the north-west of England and is also identified as a regional centre in the Regional Spatial Strategy. It provides another major focus for shopping, leisure and employment. Liverpool is 22 miles from Wigan via the or rail routes.

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3.6 To the south of the borough, 13 miles from Wigan via the or the west coast mainline, is Warrington district (191,000; town 158,000), which is regarded as being in both the Manchester and Liverpool city regions. Warrington has become a major employment centre as a result of its previous status as a New Town and its location on the M6, M62 and M56 motorways, midway between Manchester and Liverpool. It will become a much bigger employment location when the Omega site to the north of the town is developed. But while access to many of Warrington’s employment locations is relatively easy by car, it is difficult by public transport.

3.7 To the west and north respectively are the districts of West (110,000) and district (101,000; town 33,000) within the county of Lancashire. is part of the Liverpool city region. North of Chorley is Leyland and the city of Preston district (335,000; town 185,000) which is the main focus for employment growth in Lancashire. Preston, Leyland and Chorley are being promoted as the Central Lancashire City (region). Preston is 20 miles from Wigan via the M6 motorway or the west coast mainline. In West Lancashire the former New Town of (39,000) has become a popular base for logistics companies, including some that have moved from Wigan. It is 8 miles from Wigan off the M58 motorway.

Diagram 1: Wigan Borough Location

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3.8 Wigan Borough is almost entirely within a landscape area known as the ‘Lancashire Measures’, which also embraces a large part of St Helens district and the west of Bolton and Salford districts. Generally the land rises to the north and west but is cut through by a number of valleys, the largest being the valley of the River Douglas which is steep in parts. The exception is the far south of the borough which is flat mossland that extends far into the adjacent Salford and Warrington districts.

3.9 The River Douglas drains the north-west of the borough ultimately to the Ribble Estuary in Lancashire. The east and south of the borough are drained by Glaze Brook and Sankey Brook respectively, both ultimately to the River Mersey.

3.10 The landscape and geology of the area has been instrumental in its development, with a scattered urban pattern arising from the location of coal mines and mills that developed rapidly from the late 18th / early 19th century. A legacy of dereliction and contamination remains although most has been restored.

3.11 An extensive system of railways was developed linking the Borough to most neighbouring areas and national destinations. Most of the main routes remain today with the Borough being relatively well served, except in the south and south-east. Additionally, some poor service patterns and overcrowding at peak times undermine the use of services.

3.12 The road network between towns in the Borough is based almost exclusively on the traditional late 19th century network between towns, with single carriageways and 30 mph speed limits. There have been relatively few new routes or significant widening schemes. This gives rise to considerable congestion on key routes at peak times and, in many cases, throughout much of the day. Buses, lorries and cyclists have to share these roads with general traffic and there are also adverse quality of life impacts including air pollution.

3.13 However, the Borough does enjoy excellent external road links. The M6 Motorway, the main north-south route in the north-west of England, follows the western edge of the Borough, with six junctions (numbers 22-27) serving the Borough. It is 200 miles south to and 200 miles north to Glasgow. The next junction to the south is the junction with the , the main west-east route in the north of England, from Liverpool to Manchester and then , Hull and the Humber Ports in the east.

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3.14 The runs close to the north eastern boundary of the Borough with Bolton, and has three junctions (numbers 4-6) serving the Borough. It connects northwards to the M6 Motorway near Preston and southwards to the M60 Manchester orbital motorway. In turn this links to the M62 Motorway.

3.15 The A580 East Lancashire Road () also links Manchester and Liverpool and broadly follows the southern boundary of the Borough. The M58 Motorway westwards from Junction 26 of the M6 Motorway connects Wigan to Skelmersdale and Liverpool.

3.16 is located on the southern edge of Greater Manchester, approximately 30 miles from Wigan by motorway and direct rail service. It is the largest airport outside of the south east of England. Liverpool Airport is located to the south of Liverpool and is a similar distance but not linked by rail.

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Diagram 2: Wigan Borough 2009

3.17 The ‘scattered’ settlements across the Borough retain much of their individual identity and characteristics. However, as the traditional industries have declined and disappeared they have had to ‘reinvent’ their role. This has been an ongoing process and much has been achieved, but there is much still to be done if the borough is to remain economically competitive.

3.18 In recognition of their individual identities and characteristics, and to develop more opportunities for local people to have a say about their area, the Council has established a structure of ten Townships. Each has a Township Forum as the principal mechanism for engagement with, and between, the community.

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3.19 Spatially, however, four main areas of the Borough can be identified as sharing similar characteristics and spatial relationships. These are:

the north-west, comprising of four townships centred on the town of Wigan; the south-west, comprising of two townships based on the towns of Ashton-in-Makerfield and Golborne; the east, comprising of three townships based around the towns of Leigh, Atherton and Tyldesley; and the central area, comprising of one township centred on the town of Hindley.

Diagram 3: Wigan Borough Townships

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The north-west

3.20 The north-west of the Borough is focused on the town of Wigan and surrounding smaller communities. It has a combined population of 130,000 people. The Council has established four Townships in this part of the Borough:

Wigan North Wigan South Standish, Aspull and Shevington Orrell, Billinge and Winstanley Wigan

3.21 Wigan is the largest town with a population of 89,000. Because of its size it is split into two main Townships: Wigan North and Wigan South. It also includes ‘Winstanley’ within the Orrell, Billinge and Winstanley Township, as that area has developed as a suburban part of Wigan, and New Springs and Whelley in the north-east of the town, which is in the Standish, Aspull and Shevington Township.

3.22 Wigan is located in the west of the borough in the valley of the River Douglas. It is the main centre for shopping, services and employment. Bolton, Warrington and St Helens are towns of a similar size and importance within their districts and limit the significance of Wigan in those directions (including within the east of the Borough itself). However, its influence does extend north and west into parts of Chorley and West Lancashire districts.

3.23 The town centre has two main shopping centres, the recently built which has significantly extended the town’s retail ‘offer’, and the older Galleries / Marketgate. These are separated by a pedestrian-prioritised main shopping street. Wigan College (part of ) is close to the town centre either side of the large Victorian Mesnes Park.

3.24 Pemberton, 3 kilometres to the west of Wigan town centre has a successful town centre along the A577 Road.

3.25 Wigan Royal Albert Edward Infirmary is one kilometre north of the town centre. It has been extensively redeveloped as a District General Hospital. There have been three recent major investments in primary healthcare, at Frog Lane close to Wigan town centre, and at Mesnes and Lower Ince to the south of the town.

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3.26 Close to the town centre westwards is the Wigan Pier Quarter, which is undergoing substantial regeneration as a location for housing, offices and leisure uses. Nearby is a major development opportunity for employment uses at the former site of Westwood .

3.27 A short distance further westwards is Robin Park, the major retail and leisure park in the borough with the only cinema. There is also a 25,000 capacity stadium, an athletics and gymnastics arena and a sports centre.

3.28 The largest concentrations of employment uses outside of the town centre are at Martland Park in the north-west of the town, to the south of the town near Junction 25; and at Pemberton in the west and Ince-in-Makerfield in the east.

3.29 Wigan has the highest proportion of social housing in the borough, with a ‘crescent’ around the centre from Beech Hill in the north-west to Scholes in the east, where there are a number of high rise blocks. There is also a high proportion of pre-1919 terraced housing, primarily in central Wigan, Ince and Pemberton. In ‘Wigan North’ 13% of housing is flats, much higher than elsewhere. Since the 1970s new housing has been focused on the Winstanley area to the south-west of the town. Housing market performance in most parts of the town is weak, the Swinley area of north Wigan being an exception.

3.30 The town is at the junction of the A49 north-south and A577 east-west roads. The A577 is the main east-west route in the borough and brings a large amount of through traffic into the central area, causing congestion and impacting adversely on amenity.

3.31 There are two railway stations in the town centre. Wigan North Western is on the west coast mainline with regular services to/from London and Glasgow. This national service also provides the service to Warrington, which is infrequent in local services terms. There is also a local service to St Helens and Liverpool. From the nearby Wigan Wallgate station there are direct local rail services from Wigan to (Merseyside), , Preston, Bolton and Manchester including the airport. There are further rail stations at Pemberton, 0.5 kilometres south of Pemberton town centre, on the Wigan-Kirkby line, which is poorly served, and at Ince 1.5 kilometres to the east of Wigan town centre, on the Wigan-Manchester line. There are capacity issues at peak times, particularly to and from Manchester.

3.32 There is also a bus station in Wigan town centre which is the focus for an extensive network of bus services.

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3.33 The town is tightly constrained by extensive Green Belt areas and has no land safeguarded for potential future development. There is also a known problem with river water flooding in central Wigan to the south of the Pier Quarter. To the west of the town at Ackhurst Lane off Gathurst Road, there is an inactive sand extraction site.

3.34 There are 6 conservation areas, at the Pier Quarter, the town centre and to the north of the town centre. The Wigan Flashes form a large area of wetlands to the south of the town, which are now of national significance for birdlife and an important recreational resource. They have developed over many years from land that sank as a result of collapsed mine workings. The Leeds-Liverpool Canal loops round the south of the central area of the town. There is a branch off to Leigh that cuts though the Flashes.

3.35 Multiple deprivation is a major issue in the town. Most of the north-west sector including Marsh Green, Norley and Worsley Hall, together with Beech Hill and parts of Springfield to the north; Worsley Mesnes to the south-west; Scholes and Whelley to the immediate east; and Ince-in-Makerfield to the south and east; are amongst the 30% most deprived neighbourhoods in England. Parts of Marsh Green, Norley, Worsley Hall, Worsley Mesnes and Scholes are amongst the 3% most deprived neighbourhoods nationally.

3.36 Wigan would be a much more sustainable community if this deprivation could be tackled and there were more and better local jobs. Standish, Aspull & Shevington

3.37 This township is closely related to Wigan. Standish is the only town. It has a population of 12,000 and is 5 kilometres north of Wigan. Aspull, with Haigh to its immediate north-west, are two villages that together have more than 5,000 residents. They are a similar distance to the north-east of Wigan. Shevington is a similar distance to the north-west of Wigan. Shevington Parish has a population of 11,000. It includes two other ‘villages’, Shevington Moor and Shevington Vale, more commonly known as Appley Bridge.

3.38 Shevington is on the edge of the relatively narrow valley of the River Douglas as it flows north-westwards towards the West Lancashire plain. As the names imply Shevington Moor is on the higher land and Shevington Vale is in the valley itself. Part of Appley Bridge is in West Lancashire district. Standish and Aspull/Haigh are also separated by the valley of the River Douglas in its higher reaches flowing southwards at this point. There is a small ‘village’ in this part of the valley, between Standish and Haigh, which includes Mayflower Cottages.

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3.39 Standish has a small town centre located around the busy crossroads of the A49 (Wigan-Chorley), the A5209 to Shevington and Junction 27 of the M6 Motorway and the B5239 to Aspull and Junction 6 of the M61 Motorway. There are village centres at Aspull and Shevington.

3.40 There is a major hospital at Wrightington, 1 kilometre west of Junction 27 in West Lancashire district. It has an international reputation for joint surgery, rheumatology and rehabilitation. There is a need for improved primary healthcare facilities in Standish, Shevington and Aspull.

3.41 The township has a low proportion of social housing and high levels of owner-occupation and detached housing. Much of the area is suburban in character. It continues to be popular for housing and key market indicators show the market is buoyant.

3.42 There is one main employment area, at Bradley Hall to the north-east of Standish. It is long established and, to a large extent, modernised. Access though is via a residential road off the A49 Preston Road, north of Standish town centre. Most residents commute to work and shop in Wigan or other locations across the north-west, via the motorway network.

3.43 The M6 Motorway runs north-south through the township between Shevington and Appley Bridge. Junction 27 is at Shevington Moor. The M61 is 3.5 kilometres east of Aspull in Bolton district. There is congestion during large parts of the day in the centre of Standish.

3.44 The west coast mainline railway passes east of Standish but there is no station. The Manchester-Wigan to Southport railway follows the lower Douglas valley and has stations at Gathurst (serving Shevington) and Appley Bridge. There are frequent bus services to Wigan from all of the centres and from Standish to Chorley and Aspull to Bolton.

3.45 There are small pockets of ‘best and most versatile’ agricultural land across the township. There are two large areas of land safeguarded for potential future development, to the west of Standish, north of the A5209 Almond Brook Road (total 50 hectares) and to the east of Standish both north and south of the B5239 Rectory Lane (total 110 hectares). Apart from the safeguarded land, the settlements are surrounded by green belt.

3.46 There are four Conservation Areas, at Standish town centre, Mayflower, Shevington village centre and Haigh. St Wilfrid’s Parish Church in Standish is the only grade one listed building in the Borough. Country Park covers a large area between Haigh and Wigan and is largely protected as an historic park. There are large areas that are protected for nature

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conservation, mostly associated with the River Douglas and other smaller watercourses. The Leeds-Liverpool Canal broadly follows the River Douglas into Wigan from Gathurst and out of Wigan via numerous locks to Haigh and onwards to Chorley. There is an inactive sand and gravel extraction site off Platt Lane / Chorley Road to the north-east of Standish, close to the borough boundary.

3.47 The west of Aspull is within the 10-20% most deprived neighbourhoods nationally. Otherwise multiple deprivation is not a major issue in the Township, which includes some of the least deprived areas in the borough.

3.48 These communities would be a much more sustainable if there were more and better quality jobs available closer to home in locations easily accessible by high quality public transport. Orrell and Billinge

3.49 5 kilometres to the west of Wigan is the small town of Orrell, with Billinge to its south. Most of Billinge is in St Helens district and part of Orrell (Tontine) is in West Lancashire district. Winstanley is also within this Township but is physically part of Wigan and is considered under 'Wigan'.

3.50 The Orrell and Billinge parts of the Township are wholly to the west to the M6 Motorway but are physically connected to Wigan along the A577 Ormskirk Road. They also have close links to St Helens and West Lancashire, in particular, the neighbouring area of . The ‘Wigan’ population of Orrell and Billinge is 10,800.

3.51 Orrell is divided north and south by the M58 Motorway to Skelmersdale and Liverpool. Orrell Post to the north has a small local centre grouped around the crossroads of the A577 and the B5206, north to Gathurst and Shevington and south to Orrell. Orrell to the south has a small village centre at Church Street just off the B5206. Orrell Rugby Union ground is located to the east of the centre.

3.52 Orrell and Billinge have a very high level of owner-occupation and a very low level of social renting housing. It is a popular area and key indicators show the market to be buoyant.

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3.53 The area is close to large employment areas in west Wigan, notably Lamberhead Industrial Estate at Pemberton and Martland Park / Heinz in the north-west of the town, part of which is accessed from the B5206 road. Most residents work and shop in Wigan, Skelmersdale or St Helens, or other locations across the north-west via the motorway network.

3.54 St John Rigby RC College is located to the north of Orrell relatively close to, but up a steep hill from, Gathurst railway station. is located to the south of Orrell less than 1 kilometre from Orrell railway station on the Manchester-Wigan to Kirkby line. It has an infrequent service. Both colleges are peripherally located and in the Green Belt.

3.55 The principal road is the A577 linking Orrell with Wigan and Junction 26 of the M6 motorway, which is frequently congested at junctions throughout much of the day. There are frequent bus services from Orrell Post to Wigan, Skelmersdale and Ormskirk and to Wigan and St Helens from Orrell and Billinge.

3.56 Orrell and Billinge are tightly constrained by Green Belt, eastwards towards Wigan and to the west in St Helens and West Lancashire districts. Orrell Water Park is a designated Local Nature Reserve. There are also large amounts of Grade 3a ‘best and most versatile’ agricultural land.

3.57 The east of Orrell Post is amongst the 21-30% most deprived neighbourhoods in the country but otherwise there are no deprived neighbourhoods.

3.58 Orrell and Billinge would be more sustainable if there were more and better quality jobs closer to home in locations easily accessible by high quality public transport.

The south-west

3.59 The south-west of the Borough is focused on two towns: Ashton-in-Makerfield and Golborne. The area has a population of 47,000 people. It is closely related to Wigan but it also has links eastwards to Leigh and Abram / Platt Bridge in the centre of the Borough. Externally, it is closely related to St Helens to the west and Warrington to the south and enjoys good highway links with the M6 Motorway to the immediate west and the A580 East Lancashire Road to the immediate south. The Council has established two Townships in this part of the Borough:

Ashton and Bryn Golborne and Lowton

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Ashton and Bryn

3.60 Ashton-in-Makerfield is located 6 kilometres south of Wigan in the south west of the borough and a similar distance north-east of St Helens. It is also four kilometres north of Newton-le-Willows in St Helens district, with Warrington a short distance further south. With Bryn to the immediate north and the smaller communities of Landgate further to the north and North Ashton to the west of Bryn, it has a population of 23,000.

3.61 Three junctions of the M6 motorway serve the town: Junction 23 to the south serves the A49 Warrington Road into the town centre as well as the A580 East Lancashire Road; Junction 24 to the west serves the A58 Liverpool Road but with north facing slip-roads only; Junction 25 to the north serves the A49 Wigan Road but with south facing slip-roads only.

3.62 Ashton town centre is at the junctions of the A49 north-south and A58 east-west roads, which effectively form a circuit within the centre. Given its proximity to the M6 and the two single facing junctions, there is extensive through-traffic and congestion.

3.63 Most commercial uses adjoin this inner circuit of roads. The main shopping street is Gerard Street. There is a small shopping centre off Gerard Street and a small market and shopping units off Garswood Street in the central core. Otherwise there is little activity in the central core other than car parking and servicing. The centre loses significant levels of trade to larger centres and out-of-centre superstores. A new primary healthcare facility is programmed for the town.

3.64 Bryn has a successful local centre at ‘Bryn Cross’, a crossroads on the A49 Wigan Road.

3.65 Ashton and Bryn have a relatively low proportion of socially rented housing and a high proportion of semi-detached houses. Indicators show the housing market is performing well.

3.66 The main concentration of employment uses are at the South Lancashire Industrial Estate to the north-east of the town, on the opposite side from the motorway. It is the second largest employment site in the borough and has extensive expansion land. There are also industrial areas at Haslemere and Landgate and Park Brook off the A49 Wigan Road, north of Bryn, close to Junction 25. There is also a major industrial estate at Haydock in St Helens district, to the north of the A580 East Lancashire Road and west of the M6 Motorway Junction 23.

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3.67 There is a motor racing circuit and small ‘country park’ at ‘Three Sisters’ in the Green Belt land to the north of the town. To the immediate south within St Helens district is Haydock Park racecourse. To the immediate west, also within St Helens, is Garswood Park golf course.

3.68 The only railway station is off the A49 at Bryn, with rail services to/from Liverpool, St Helens and Wigan. There are frequent bus services to/from Wigan, Leigh and St Helens but very limited services to/from Warrington and Newton-le-Willows.

3.69 The town is tightly constrained by Green Belt except at Landgate where there is a large area of land safeguarded for future development (total 45 hectares). Surface water flooding occurs in parts of central Ashton, particularly during ‘storm events’.

3.70 There is one Conservation Area, at Gerard Street and to the immediate south of the town centre around Warrington Road. To the west of the town centre is Skitters Wood, a protected woodland.

3.71 To the far north of the township to the west of the M6 motorway, is the 59 hectare site of the former Sandyforth Farm opencast mine. It is one of three remaining large derelict sites in the borough. Funding is in place for restoration as a country park and restoration will commence in January 2008.

3.72 There are relatively low levels of multiple deprivation compared with other parts of the Borough, with no part of the town in the 10% most deprived areas nationally. However, Landgate, large parts of Bryn and Stubshaw Cross on the A58 Bolton Road to the east of the town are within the 10-20% most deprived neighbourhoods nationally.

3.73 Ashton would be a more sustainable if there were more and better quality jobs in the town and surrounding towns that were easily accessible by high quality public transport. Golborne and Lowton

3.74 Golborne and Lowton are in the very south of the Borough, close to the boundary with St Helens (Haydock Park racecourse) to the west and Warrington to the south. Ashton-in-Makerfield is a short distance to the north-west and Leigh a similar distance to the north-east. Golborne is the traditional town but Lowton to its immediate east is the larger settlement. They have a combined population of 23,000. The settlements are, for the most part, on slightly raised land above the extensive mosslands to the south.

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3.75 Golborne has a small town centre around the junction of the A573 High Street (north from the East Lancashire Road) and Heath Street (a local road to Ashton). A new primary healthcare facility has been provided to the north of the centre. There is also a local centre around a crossroads in central Lowton and an out-of-centre superstore in north-west Golborne that draws trade from throughout the south-west of the Borough. Otherwise people shop in Leigh, Wigan, St Helens, Warrington or other larger centres.

3.76 Golborne and Lowton have a relatively low proportion of socially rented housing and a high proportion of semi-detached houses. Over a fifth of the housing stock was developed prior to 1919, most of this being terraced housing in central Golborne. Lowton has a large amount of suburban semi-detached housing. Indicators show that the area has a strong housing market.

3.77 With its position on the A580 East Lancashire Road a short distance east of the M6 Motorway, Golborne is a successful location for business. Stone Cross Park alongside the A580 is the most successful business and distribution park in the borough. To the immediate north of the town centre is Golborne Enterprise Park, which provides small industrial units on the former site of Golborne Colliery. There is also a traditional industrial area off the A573 Bridge Street, which has undergone some modernisation. To the north-east of Lowton is the Moss Industrial Estate, which is being extensively modernised.

3.78 A regional rail freight and distribution park is proposed by developers at Parkside, Newton-le-Willows in St Helens district. It is a large site in the Green Belt that abuts the Borough boundary south of Golborne.

3.79 The west coast mainline railway passes north-south through the middle of Golborne but there is no station. The closest railway station is at Newton-le-Willows, with services to Manchester and Liverpool. Frequent bus services connect the town to Wigan and Leigh but services to other local areas are generally poor. The A580 dual-carriageway connects the town to Manchester, Liverpool and the M6 Motorway at Junction 23. In addition, the A579 Winwick Lane south from Lowton connects to Junction 22 of the M6 at north Warrington. This causes congestion and disturbance at junctions in Lane Head.

3.80 The town is tightly constrained by Green Belt in most directions but there are two sites that are safeguarded for potential future development, at Rothwell’s Farm to the north (total 17 hectares) and Stirrup’s Farm to the south alongside the A580 East Lancashire Road (total 26 hectares). There is also a large area of land safeguarded for future development to the east of Lowton, alongside the East Lancashire Road (total 68 hectares).

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3.81 There are two Conservation Areas, at Golborne town centre and at Park Road to the south of Golborne close to the East Lancashire Road. There is a site of national importance for nature conservation at Highfield Moss in the mosslands to the far south of the Borough. Most of the mosslands are ‘best and most versatile’ agricultural land, principally grade 3a. There is an inactive sand extraction site at Town of Lowton on the edge of the mosslands. Sewer flooding is an issue in parts of Golborne, particularly during ‘storm events’.

3.82 There are relatively low levels of multiple deprivation compared with other parts of the Borough. However, a large part of central Golborne and parts of Edge Green in the north-west of the town are within the 10-20% most deprived neighbourhoods nationally.

3.83 The township is successful economically but would be more sustainable if it's economy was less dependent on good accessibility by car and lorry via the excellent road links.

The east

3.84 The east of the Borough is focused on Leigh and the smaller towns of Atherton and Tyldesley. The area has a population of 88,000 people. It is somewhat detached spatially from Wigan in the north-west of the Borough but it does have links westwards to Golborne and Hindley. Externally, it is closely related to Bolton northwards and Salford and Manchester to the east. It enjoys good highway links via the A580 East Lancashire Road. The Council has established three Townships in this part of the Borough:

Leigh Atherton Tyldesley and Astley Leigh

3.85 Leigh is the largest town in the east of the Borough with a population of 44,000. It is on low lying ground rising gently northwards from the mosslands to the south. Views of the town across fields from the A580 East Lancashire Road are dominated by the remaining central multi-floored red brick mill buildings.

3.86 Leigh is the main centre for shopping and employment within the east of the Borough and it does provide services for some people in to the north and Culcheth in Warrington district to the south. But it loses significant levels of trade to Bolton, Manchester

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and the Trafford Centre for non-food shopping. The main features of the town centre are the Spinning Gate Shopping Centre and the pedestrian - prioritised Bradshawgate main shopping street.

3.87 Two-thirds of homes in Leigh are owner occupied, significantly lower than the borough average, and 23% are social rented. The town has the highest proportion of terraced housing in the borough at over 40%, focused on central areas. Detached and semi-detached housing is located in outer areas such as Lilford and Pennington. Indicators show that Leigh has a weak housing market.

3.88 The largest concentrations of employment uses are at the modern Leigh Commerce Park to the south of the town; a traditional industrial area to the south of the town centre, either side of the Bridgewater Canal (Leigh Branch); and at Parsonage off Atherleigh Way, where extensive previously developed land is available. Leigh Infirmary is one kilometre north of the town centre. It provides complementary services to Wigan Infirmary. A new primary healthcare facility is also programmed for the town.

3.89 Much of the town is bypassed north-south by the A579 Atherleigh Way, which connects to the A580 East Lancashire Road. At Parsonage, one kilometre west of the town centre is a retail park and two supermarkets. Further south along Atherleigh Way is the new Leigh Sports Village, including a 10,000 capacity stadium, sports centre, athletics track and Leigh College (part of Wigan and Leigh College), a key sixth form facility in the east of the Borough.

3.90 There are major plans for the former site to the west of the town, one of the three remaining large derelict sites in the borough. Significant funding is allocated to tackle major dereliction and degradation. The former pithead site north of the canal is proposed for housing-led development. The larger area to the north is in Green Belt. Plans are progressing to restore this as a country park for recreation and wildlife. A second large area, north of Nel Pan Lane includes significant areas of derelict land.

3.91 Leigh has no railway station. The closest is at Atherton. There is, however, a bus station in the town centre with an extensive network of services. There are also plans to construct a guided busway from east of the town centre via Tyldesley to Salford, to connect with on-street bus lanes into Manchester. This would achieve significant time savings over car travel. There is serious congestion at key junctions around the town, particularly on roads connecting with Atherleigh Way and the A580 East Lancashire Road.

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3.92 The town is tightly constrained by Green Belt in most directions. To the north-west between Leigh and Hindley is land safeguarded for potential future development (total 26 hectares) and other land designated for reclamation and renewal (total 34 hectares). There are also small pockets of safeguarded land to the south and east (total 20 hectares).

3.93 The Leeds-Liverpool Canal / Bridgewater Canal runs east-west to the south of the town centre. Westwards is Pennington Flash Country Park which was formed in the same way as Wigan Flashes and is also important for wildlife and recreation. To the south, a former waste water treatment works at Hope Carr is managed as a nature reserve. There are five Conservation Areas, at Pennington to the south-west of the town, around the town centre and extending eastwards along the canal corridor. Surface water and sewer flooding during ‘storm events’ are concerns in parts of the town. In Crankwood to the west of the town there is an active clay and shale extraction site and an inactive clay extraction site.

3.94 Multiple deprivation is a major issue in Leigh except in the Pennington area to the south and the ‘Lilford Park’ area to the north. It is particularly severe in Westleigh, Plank Lane and Crankwood in the west of the town and at Higher Folds to the north east, central Leigh and Siddow Common to the south of the centre, which are within the 5 % most deprived or 10% most deprived nationally.

3.95 Leigh would be a much more sustainable community if this deprivation could be tackled and there were more and better local jobs. Atherton

3.96 Atherton is north-east of Leigh. The town centres of Atherton and Leigh are more than 3 kilometres apart but the towns are effectively joined together along the B5215 Leigh Road. It has a population of 20,000, which includes the communities of Howe Bridge to the south east, Lovers Lane to the west, and to the east.

3.97 The land rises up from Leigh towards the town centre and again northwards. To the north the town abuts the boundary with Bolton Borough. A short distance to the north-west is the town of Westhoughton in Bolton.

3.98 The town centre is largely linear, east-west, along the main A577 road, although through-traffic has recently been diverted to the north to enable significant improvements to be made to the streetscape. It has mainly small shop units but there is a central Tesco supermarket

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and small outdoor market. The centre loses significant levels of non-food shopping trade to larger centres. There is a sports centre at Howe Bridge with a number of sports pitches on Green Belt land to the rear between Atherton and Leigh. A new primary healthcare facility has been provided at Bag Lane to the west of the town.

3.99 Nearly one-third of houses in Atherton are social rented. This is concentrated at Hag Fold to the north of the town and at Hindsford to the south-east. 44% of housing is semi-detached, one-quarter is terraced and 12% is flats, a high proportion compared to the rest of the borough. Recent new housing has been concentrated at Gadbury Fold to the west of the town.

3.100 There is a group of mill buildings to the north of the town centre and other smaller pockets of employment uses. The main concentration of employment uses is at Gibfield to the west of the town, where a small business park is being developed at the northern end of the A579 Atherleigh Way. Related to this development a significant area of derelict land in the Green Belt has been restored for recreation and wildlife.

3.101 Atherton has two railway stations on the direct Manchester-Wigan line, to the north-east of the town off the A579 Bolton Road, and to the north of the town at Hag Fold, although services to/from Manchester are very congested at peak times. There are also frequent bus services to Leigh and Bolton (passing close to Atherton station) and Wigan.

3.102 The town is tightly constrained by Green Belt land to the north (in Bolton) and the west separating the town from Westhoughton, although there is some remaining land at Gibfield allocated for development. To the south and east of the town are large areas of land safeguarded for potential future development (total 105 hectares).

3.103 There are two Conservation Areas, at the eastern end of the town centre around the church and at Howe Bridge. Surface water and sewer flooding during ‘storm events’ are concerns in parts of the town.

3.104 Multiple deprivation is a major issue in Atherton with the exception of the areas around Lovers Lane, to the north east near the railway station and to the south-east towards Tyldesley. The whole of the Hag Fold estate to the north of the town is within the most deprived 10% of neighbourhoods nationally, with part being in the 3% most deprived and a further part in the 5% most deprived.

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3.105 Atherton would be a more sustainable community if there were more jobs in the town and/or more capacity and better services from the railway stations to/from Manchester and Wigan. Tyldesley and Astley

3.106 At the eastern extent of the Borough, 5 kilometres east of Leigh and close to the boundary with and Boothstown in Salford, is the town of Tyldesley. To its immediate south is the suburban area of Astley. Further east is Mosley Common, which effectively merges with Boothstown. To the south on the edge of the mosses is Higher Green. To the north-west is the Shakerley housing estate. The total population of the area is 24,000. It is closely related to the Manchester conurbation.

3.107 Astley and Bedford mosses extend the township four kilometres to the south. This area is part of wider mosslands in Warrington and Salford. The land rises up from the flat mosslands northwards, gradually at first with some undulation and then steeply towards Tyldesley town centre, which is on a ridge. The land falls away again before rising gradually over open land to the boundary with Bolton and Salford.

3.108 The town centre is linear along the A577 Elliot Street, which is one - way westwards in the town centre, eastbound traffic being directed down Shuttle Street to the north. It has a significant number of vacancies in the face of considerable competition from Leigh and Atherton locally and Bolton, Manchester and the Trafford Centre further afield. There are also two small local centres at Blackmoor in Astley and Sale Lane to the west of Tyldesley, both being somewhat remote from the town centre and having extensive local catchments.

3.109 A fifth of the housing stock has been built since 1982 infilling much of the area between Tyldesley and Astley. 50% of the stock is semi-detached. Owner occupation is high at almost 80%. The proportion of social housing is slightly below average and is concentrated at Blackmoor, Mosley Common and Shakerley. Indicators show that the township has a strong housing market.

3.110 The main concentrations of employment are at Chaddock Lane between Astley and Mosley Common, where there is considerable expansion land and Chanters Industrial Estate, a very successful low amenity site to the north-east of Tyldesley and east of Shakerley. There is a further employment area at Parr Brow to the north of Mosley Common.

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3.111 A major business park is proposed by developers and Bolton Council on Green Belt land at ‘Cutacre’ in Bolton, to the north of Tyldesley and north-east of Atherton.

3.112 The A580 East Lancashire Road runs broadly west to east through the Township on the edge of the mosslands. The direct Wigan - Manchester railway forms part of the boundary to the north with Salford but there is no station. The northern Liverpool – Manchester railway route also cuts through the mosslands in the south of the Township, but again there is no station. The nearest stations are at Atherton and Walkden. There are frequent bus services from Tyldesley to Leigh, Atherton, Bolton, Wigan and Manchester and it is on the proposed route of the Leigh guided busway.

3.113 The town is tightly constrained by Green Belt land to the north, north-east and south-west and to the south of the A580 East Lancashire Road. The areas that are safeguarded for potential future development to the south and east of Atherton are to the west of Tyldesley and Shakerley respectively. There are two further sites safeguarded for potential future development: a larger site at between Tyldesley, Astley and Mosley Common (total 28 hectares); and a smaller site at Lark Hill, Blackmoor to the south of Astley, alongside the East Lancashire Road (total 13 hectares).

3.114 There are two conservation areas, at and Tyldesley town centre. Part of the mosslands is subject to international protection as the Borough’s only Special Area of Conservation. Most of the mosslands are grade 1 or 2 ‘best and most versatile’ agricultural land. There is also ongoing peat and sand extraction works.

3.115 Surface water flooding is a concern in parts of Tyldesley and sewer flooding during ‘storm events’ is a concern in parts of Astley.

3.116 The Shakerley estate is amongst the 7% most deprived neighbourhoods nationally. The south-west of Astley (Blackmoor) and parts of Tyldesley and Mosley Common are within the 10-20% most deprived neighbourhoods nationally. However, parts of Astley are among the 5% least deprived areas in the borough and the extent of multiple deprivation is small compared with elsewhere.

3.117 Tyldesley and Astley would be more sustainable communities if there were high quality, frequent public transport services to Manchester and Bolton and more and better quality jobs locally.

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The central area

3.118 The central area of the Borough is focused on two towns: Hindley and Platt Bridge. The area has a population of 36,000 people. It is closely related to Wigan to the north-west, Leigh and Atherton to the east and Ashton-in-Makerfield and Golborne to the south-west. Externally, Hindley is close to Westhoughton in Bolton. The Council has established one Township for this part of the Borough: Hindley and Abram. Hindley and Abram

3.119 Hindley is midway between Wigan and Leigh, 5 kilometres from each. It is centred on the busy crossroads of the main A577 road from Wigan eastwards and the A58 from Bolton and Westhoughton to Ashton and St Helens. It has expanded considerably eastwards along the A577 to Hindley Green and has a population of 22,000. To its north-east is the Borough boundary with Bolton. Westhoughton is 4 kilometres to the north-east along the A58.

3.120 To the south-west of Hindley in the heart of the Borough is Platt Bridge, which is centred on the junction of the A58 and the A573 south from Wigan. To its south on the A573 is Abram and to its north on the same road is Spring View, which is close to Lower Ince in Wigan. A short distance south-west along the A58 towards Ashton is the small community of Bamfurlong. A kilometre east of Platt Bridge, on the B5237 towards Leigh and south of Hindley, is the village of Bickershaw. It is in two parts with the second part a further kilometre eastwards. These settlements have a combined population of 14,000.

3.121 Hindley town centre is centred on the A58 Market Street and Cross Street. There is an outdoor market and a modern superstore. Considerable investment has taken place in the town centre to improve the environment and lessen the impact of traffic. The centre loses significant levels of non-food shopping trade to Wigan in particular. Platt Bridge centre is a local centre focused around a small supermarket and a convenience store.

3.122 Hindley has a centrally located swimming pool and sports centre associated with Hindley Community High School. There is a prison north of Bickershaw, known as Hindley Prison.

3.123 There is an above average level of social rented housing, the largest concentration being to the east of Hindley town centre. There are large areas of recent housing development to the south of Hindley and older suburban housing estates at Hindley Green. 46% of the housing stock

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is semi-detached and over one-third terraced, located principally in the centres of Hindley and Platt Bridge. The housing market in Hindley and Abram is relatively weak but there have been recent improvements, especially in Platt Bridge.

3.124 The main concentrations of employment uses are at Swan Lane and Leigh Road to the west of Hindley. There is also the small Prospect Industrial Estate to the west of the town centre and Hindley Business Centre to the east of the town centre.

3.125 The A577 and A58 are busy and congested all-purpose roads. The A58 also provides access to Junction 5 of the M61 Motorway at Westhoughton and Junctions 23 and 24 of the M6 Motorway at Ashton. As a result traffic in the town centre is very congested for large parts of the day. There is a railway station 0.75 kilometres to the north of the town centre with regular services to Wigan, Bolton and Manchester. There are no regular bus services to the station. The A577 is a frequent bus route between Wigan and Leigh and Atherton. There are also frequent bus services from Platt Bridge to Wigan and Leigh and less frequent services to Ashton-in-Makerfield.

3.126 Hindley is tightly constrained by Green Belt, except to the south where there is a large area of land safeguarded for potential future development (total 114 hectares). Platt Bridge is surrounded by Green Belt but there are small areas of undesignated land. Abram, Spring View, Bamfurlong and ‘east’ Bickershaw are tightly constrained by Green Belt. ‘West’ Bickershaw is in the Green Belt.

3.127 A large part of Hindley town centre is a Conservation Area. This has enabled funding for the environmental and traffic impact improvement works. The Leigh Branch of the Leeds-Liverpool Canal runs from north-west to south-east through the township, to the west of Platt Bridge and Abram. West of the canal at Abram is Abram Flashes, a national protected site for nature conservation.

3.128 Platt Bridge and Abram are at the heart of the proposed Greenheart regional park in the Borough, which is bounded by Wigan, Ashton, Golborne and Leigh. The Regional Park will utilise assets such as the canal and Flashes to transform what is still a somewhat degraded countryside at Wigan’s ‘green heart’. This will significantly improve opportunities for recreation and wildlife and the appearance of the area, which should also benefit the local economy.

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3.129 Multiple deprivation is a major issue in the Township. With the exception of a small part of Platt Bridge, the east of Abram and parts of Hindley Green, the Township is amongst the 30% most deprived areas in England. Most of Platt Bridge and central parts of Hindley are amongst the 5% or 10% most deprived neighbourhoods in England.

3.130 This area would be more sustainable if this deprivation could be tackled, there were more and better local jobs, there were better transport links to other parts of the borough and the Greenheart regional park is successfully implemented. It would also make the borough more sustainable by better integrating east and west through a more prosperous and attractive centre.

Question 1

Do you recognise the borough and/or the township in which you live or work as we have set it out in the spatial portrait? If not, what would you change and what evidence can you give us to support your change?

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FOUR Key issues

4.1 The spatial portrait and wider evidence base informs the key issues that we face. It is essential that we recognise these issues if we are to improve the borough as a place to live and work in the future, within the context of continuous change in the world around us.

4.2 We have consulted on our key issues previously at the Issues and Options stage and have made changes as a result but most of them remain broadly the same. We are not including them in full here because they are contained in our 13 Topic Papers. They have also closely informed our 'spatial vision' and 'strategic objectives'; indeed they are effectively 'mirrored' in our strategic objectives. Nevertheless, the 'headline issues' are:

Health is a major issue in the borough, in particular relatively low life expectancy and levels of participation in physical activities and high incidences of multiple health problems, particularly in inner areas.

Multiple deprivation is deep and widespread. It is most concentrated in inner areas but there are also smaller ‘pockets’ of deep deprivation in other parts of the borough.

The level of qualifications and skills amongst the adult population is significantly below national levels, particularly in inner areas.

We are over-represented in declining sectors of the economy such as manufacturing, and under-represented in growth sectors such as skilled office jobs and research and development.

We have a two-speed housing market, with high demand and prices in outer areas and lower demand and lower prices in inner areas. However, in recent years housing has become less affordable for more people in more parts of the borough.

There is a limited range of services and facilities in our town centres with many struggling against competition from larger, more attractive centres.

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Congestion and slow journey times are major issues. Buses, lorries and cars have to share the same road network with its limitations and constraints and, accordingly, contribute to, and experience, the same congestion. As a result conditions for cycling and walking are also often unpleasant.

Past mining and industrial activity has disfigured the landscape. Most has been restored but extensive areas contain semi-mature landscapes and underused and neglected land, which has a significant impact on the image of the borough.

Our current patterns of energy use are unsustainable. We are contributing significantly towards climate change.

Parts of Wigan, Hindley and Leigh are the main urban areas at risk from flooding from rivers in the borough. Surface water and sewer flooding are also emerging as issues in several areas.

Question 2

Do you agree with the 'headline issues' that we have identified? If not, what do you think the 'headline issues' are and why?

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FIVE Key evidence

5.1 The Spatial Portrait and Key Issues are informed by an extensive evidence base, as noted in the Introduction. Evidence is gathered from a wide range of sources including existing publications and research; our own studies; and monitoring work. The key sources of evidence are:

National Planning Policy Statements and Planning Policy Guidance: see www.communities.gov.uk. These cover a full range of subjects including sustainable development, housing, the economy, transport and town centres. Regional Spatial Strategy for the North West of England. This is part of the development plan for the borough: www.go-nw.gov.uk North West Regional Economic Strategy (2006): www.nwda.co.uk North West Regional Housing Strategy (2005): www.nwrpb.org.uk Greater Manchester Local Transport Plan 2 (2006) www.gmltp.co.uk Greater Manchester Biodiversity Action Plan www.ukbap.org.uk Indices of Multiple Deprivation (2007) www.wigan.gov.uk Key local studies. A number of key local studies have been produced or are underway: see www.wigan.gov.uk/ldfcorestrategy. These include: Greater Manchester Forecasting Model Greater Manchester Strategic Housing Study 'Making Housing Count' Greater Manchester Strategic Housing Market Assessment Wigan Strategic Housing Land Availability Assessment Wigan Housing Needs Study 2008 Gypsy and Traveller Accommodation and Service Delivery Needs Assessment Wigan Borough Retail and Leisure Study Wigan Employment Land Review Manchester Independent Economic Review Greater Manchester Low Carbon Energy Study Transport Modelling Wigan Borough Open Space, Sport and Recreation Needs Assessment and Strategy

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Greater Manchester Strategic Flood Risk Assessment Level 1 (partial) Wigan Strategic Flood Risk Assessment Level 2 Greater Manchester Green Infrastructure Feasibility Study Wigan Landscape Character Assessment Greater Manchester Ecological Framework Wigan Biodiversity / Ecology Study Wigan Local Development Framework Annual Monitoring Report: see www.wigan.gov.uk The Sustainability Appraisal Scoping Report and Sustainability Appraisal of the Options: see www.wigan.gov.uk/ldfcorestrategy

5.2 There are a number of key requirements for the borough arising from this evidence:

The Regional Spatial Strategy requires us to make provision for at least 978 dwellings per year in Wigan Borough, for the period 2003 to 2021, plus an allowance for the replacement of cleared dwellings, estimated at 80 per year. For the Core Strategy we need to consider housing requirements for the period 2010 to 2026. Although there is no specific evidence of likely housing requirements for the period beyond 2021, this issue was considered by the Panel. On the basis of their recommendation it is appropriate to make provision for 978 (+80) dwellings per year to continue through to 2026. This represents a need for at least 16,928 dwellings. At an average of 40 dwellings per hectare a total of 423 hectares will be needed. Our Strategic Housing Land Availability Assessment (April 2007 baseline) has identified a supply of land with capacity significantly over the above figure. As such it is reasonable to assume that we can accommodate the regional housing provisions targets up to 2021 and beyond. There are a number of strategic constraints but they should not significantly affect the supply identified within the first five years. Our Greater Manchester Strategic Housing Market Assessment identified that Wigan has had high levels of development but affordable housing totals remain low relative to demand. It also identified high regeneration needs in parts of the borough and rising levels of vacant homes in certain localities. Our Wigan Housing Needs and Demand Study identified that only 18% of new forming households can afford to buy a home and now all townships have an affordable housing deficit. The total annual level of outstanding affordable need has grown to 417 units.

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Our Greater Manchester Gypsy and Traveller Accommodation and Service Delivery Needs Assessment identified a shortfall in the borough of 39 Gypsy and Traveller pitches and 23 Travelling Showpeople pitches up to 2015. Our Retail and Leisure Study identified the potential ‘capacity’ for additional retail floorspace in the borough for the short-term (2012) to the ultra long-term (2027). The food retail ‘capacity’ at 2012 is between 3,480 and 7,680 sq m. In 2027, it is 10,030 to 20,060 sq m. Particular concentrations of ‘capacity’ are in Wigan and Leigh and the south-west of the borough. Non-food retail ‘capacity’ at 2012 is between 16,180 and 23,115 sq m. In 2027 it is 96,320 to 137,599 sq m. The vast majority of this ‘capacity’ is in Wigan and Leigh. Wigan town centre is identified in the draft Regional Spatial Strategy as a key location for enhanced non-food retail facilities. In adopting the current Wigan Unitary Development Plan it was recognised that there was a shortfall of up to 91 hectares of employment land through to 2016. The Regional Spatial Strategy identifies the need for a further 917 hectares (incorporating a flexibility factor) of employment land in Greater Manchester through to 2021. In addition, our own Employment Land Review considers the need for employment land through to 2026. It anticipates that up to 170 hectares will be needed to meet demand levels, including replacement provision for sites that are no longer suitable for modern business use. The Manchester Independent Economic Review has only recently been published. It covers the Manchester city region of which Wigan Borough is part. Its headline findings cover skills, housing, transport, planning and governance. Further analysis of its findings and recommendations is needed Our Greater Manchester Renewable and Low Carbon Energy study is due to report around now and will be taken into account as we further develop our proposed policies. It will help us to better understand the existing energy infrastructure and supply against demand; establish which types of renewable and low-carbon energy technologies are likely to be most suitable; set broad targets and identify delivery mechanisms Our Open Space, Sport and Recreation Strategy sets out standards for open space provision in the borough, with an action plan for 2007 to 2017. It identifies shortfalls in park provision in some areas; in children’s play facilities throughout the borough; in local nature reserves in the east and centre of the borough; and in allotment provision in the west of the borough. There is also a recommended standard for all residents to live within 1,200 metres of a district park that is not being met. The Greenheart Regional Park project is being advanced in accordance with the Regional Spatial Strategy.

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Our Strategic Flood Risk Assessment is being undertaken in two parts. The Greater Manchester level 1 assessment revealed that the Poolstock, Newtown and Pier Quarter areas of Wigan, the town centre southwards in Hindley and parts of Pennington and Bedford in Leigh are the main urban areas in the borough at risk from flooding from rivers. However surface water and sewer flooding data were insufficiently available. In order to complete the level 1 assessment and undertake a level 2 assessment we are commissioning a more detailed study of the borough. This will enable us to confirm the sequential and exception tests as required by national policy Our Landscape Character Assessment identifies that the north and west of the borough is 'elevated enclosed farmland' that is sub-divided by 'steep-sided wooded valleys' and the south east of the borough is 'mossland'. In between most of the landscape is 'undulating enclosed farmland' but significantly, there is an east-west belt of 'degraded and partially restored landscapes' in the centre of the borough, south of which is a belt of 'wetlands and flashes'. These landscape types in the centre of the borough form the setting for the Greenheart Regional Park Our Biodiversity / Ecology Study is currently being completed. It identifies priority habitats in the borough. These include woodland, wetland, mossland and other priorities such as urban greenspace and are those habitats considered a priority at a local, national and regional level. The study also aims to identify key areas where protected and/or priority species may be present. Work has been undertaken to identify priority habitats and species on key development sites and to identify areas that have the potential for enhancement as mitigation for other schemes Our Transport Modelling work will determine those parts of the Wigan transportation network that will incur unacceptable levels of stress if the full quantum of development proposed in this Core Strategy and by adjacent districts is implemented. We are reasonably advanced with this and it is obvious that new transport services and infrastructure will be required. The modelling will confirm how we can best meet our objectives for accessibility and inform our transport infrastructure delivery plan.

Question 3

Is there any other key evidence that we should take into account and have we used the evidence correctly? If so, what and why?

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SIX Spatial vision

6.1 We have consulted on our spatial vision previously at the Issues and Options stage and have made changes but it remains largely the same. It sets out what we want the borough to be like in 2026. To achieve this we would have to resolve most of the key issues that we currently face. Our spatial vision is:

Spatial Vision

By 2026 people in all of our communities will be:

healthier, with more people participating in regular physical and cultural activities and with increased life expectancy; more fulfilled, with better qualifications and skills, to achieve their aspirations; more prosperous, with more people in work, in higher skilled jobs, earning more money; safer, stronger and more equitable and cohesive, with less crime and significantly less anti-social behaviour; more comfortably and affordably housed; better able to access what they need by walking, cycling, using the bus or train and better served by their town and local centres; and living and working in a borough that: has better quality, accessible, locally distinctive and sustainable places, with the best buildings of the past conserved and enhanced and new development of high quality and sustainable design; has better quality landscapes and open spaces with improved opportunities for recreation, wildlife and growing food; is more sustainable in the use and generation of energy and waste and mitigating and adapting to climate change; and is highly regarded by others.

This means that we want to:

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tackle deprivation where it is most prevalent, in the south and west of Wigan; in Ince and Platt Bridge; and in parts of Hindley, Atherton and Leigh, by providing the right opportunities for education and training, jobs, healthier lifestyles and leisure activities. improve the supply of job opportunities in growth sectors through the provision of sites that are or will be attractive to the market, focusing on central areas of Wigan and Leigh, inner areas of the borough and the M6 motorway corridor, through investing in infrastructure, skills training and environmental quality. improve the supply of good quality housing in inner areas of the borough to help deliver the infrastructure that is needed; and help make access to housing more affordable including in outer areas of the borough where traditionally the housing market has been stronger. improve the ease and attractiveness of travelling in a sustainable manner between the east and west of the borough; between the borough and surrounding areas, notably the Manchester regional centre and Warrington; and within the towns of Wigan, Leigh and Ashton-in-Makerfield; and improve the quality and breadth of provision in those centres in particular. improve our Conservation Areas and the wider built environment focusing on central areas of Wigan, Hindley, Leigh and Tyldesley; deliver the Greenheart regional park in the heart of the borough, and minimise carbon from energy use whilst recycling and reusing more of our waste.

6.2 Our spatial vision provides the spatial expression for our Sustainable Community Strategy 'Vision 2026', in particular: 'What kind of place do we want for the future?' (pages 2 and 3) and 'vision 2026 priorities' (page 6).

Question 4

Does our spatial vision address the key issues that we face? Is it an appropriate vision for Wigan borough in 2026? If not, why not and what should our vision be?

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SEVEN Strategic objectives and monitoring

7.1 We have consulted on strategic objectives previously at the Issues and Options stage and have made changes but most of them remain the same. They set out how we will achieve our vision and resolve the issues that the borough faces.

7.2 Against each strategic objective we identify whether it will help deliver part of our Sustainable Community Strategy, indicated by 'SCS' or Local Area Agreement, indicated by 'LAA', both of which are prepared by the Wigan Borough Partnership; or our Multi or 'Manchester' Area Agreement, indicated by 'MAA', which has been prepared by the Association of Greater Manchester Authorities with their respective local strategic partnerships for matters that can be best progressed in partnership at the sub-regional level.

7.3 Under each group of objectives we set out the indicators for monitoring our performance in delivering the objectives. They are not all exclusive to one topic area but are allocated against the topic that is most directly relevant. In most cases our targets still need to be determined.

Health and recreation

7.4 Our strategic objectives for health and recreation in the borough are:

Objective HR 1

To improve health and life-expectancy in the borough, particularly in our most deprived neighbourhoods, by enhancing opportunities for walking and cycling as part of everyday life; providing more opportunities for people to participate in sport and physical recreation and cultural activities; and improving the environment where people live.

SCS & LAA

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Objective HR 2

To improve accessibility to quality health care through the ongoing provision of new and improved healthcare facilities in locations that are accessible by public transport from the catchment areas they are designed to serve or, otherwise, through the provision of better public transport links.

SCS & LAA

Monitoring our health and recreation objectives

National indicator 8 - Adult participation in sport National indicator 120 - All-age all cause mortality rate National indicator - Number of parks with green flag status Local indicator: Gap between highest and lowest wards for % adults aged over 18 who considered their health (mental and physical) to be poor over the last 12 months

Community safety and neighbourhood quality

7.5 Our strategic objective for community safety and neighbourhood quality in the borough is:

Objective NQ 1

To reduce crime and anti-social behaviour; particularly in our most deprived neighbourhoods and town centres, through good design; high quality and viable environments; raising aspirations through education and life-long opportunities, including work, home and recreation.

SCS & LAA

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Monitoring our community safety and neighbourhood quality objective

National indicator 5 - Overall/general satisfaction with local area National indicator 21 - Confidence in local council and police in dealing with local concerns about anti-social behaviour and crime National indicator 130 - Re-offending rate of prolific and priority offenders National indicator 195 - Improve street and environmental cleanliness

Community development and involvement

7.6 Our strategic objectives for community development and involvement in the borough are:

Objective CD 1

To tackle inequality and multiple deprivation, particularly where deprivation is deepest and most widespread in an east-west ‘corridor’ through the core of the borough, notably parts of Wigan, Ince, Leigh, Platt Bridge, Atherton and Shakerley and in ‘pockets’ elsewhere such as parts of Hindley, Ashton and Bryn.

SCS, LAA & MAA

Objective CD 2

To further strengthen our communities and facilitate equality, diversity and ‘social cohesion’ by involving everyone in tackling issues that prevail in their communities, including opportunities for work, housing, recreation and healthcare and tackling crime and anti social behaviour.

SCS, LAA & MAA

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Objective CD 3

To ensure access for all through the design, construction and implementation of buildings, transport schemes and public spaces.

LAA

Objective CD 4

To meet the needs of an ageing and increasingly multi-cultural population through appropriate provision of housing, infrastructure, public services and opportunities for work, recreation and community activities.

SCS, LAA & MAA

Monitoring our community development and involvement objectives

National indicator 1: % of people who believe people from different backgrounds get on well together National indicator 2 - % of people who feel that they belong to their neighbourhood National indicator 3 - Civic participation in the local area National indicator 4 - % of people who feel they can influence decisions in their locality National indicator 7 - Environment for a thriving third sector National indicator 116 - Proportion of children in poverty Narrowing the gap between the least and most deprived areas in the borough Access for all? Changing demographics?

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Education and learning

7.7 Our strategic objectives for education and learning in the borough are:

Objective EL 1

To improve the educational achievement of school leavers and raise the level of qualifications and skills in the adult population, particularly in our most deprived neighbourhoods, matching skills to opportunities for work and fulfilment.

SCS, LAA & MAA

Objective EL 2

To improve accessibility to education and ensure that it is provided where it is needed, in facilities and environments that encourage and support people of all ages and abilities to learn and make the most of their potential.

SCS, LAA & MAA

Monitoring our education and learning objectives

National indicator 117 - % of 16-18 year olds not participating in education, employment or training National indicator 151 - Overall employment rate National indicator 152 - % of working age people claiming out-of-work benefits National indicator 163 - % of working age residents qualified to Level 2 or above National indicator 164 - % of working age residents qualified to Level 3 or above National indicator 165 - % of working age residents qualified to Level 4 or above National indicator 174 - skills gap in the current workforce reported by employers National indicator - % of pupils achieving 5 or more GCSEs A*-C

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National indicator - % of pupils achieving 5 or more GCSEs A*-C including English and Maths Local indicator: Schools for the future proposals delivered

Economy and employment

7.8 Our strategic objectives for the economy and employment in the borough are:

Objective EE 1

To create the conditions needed to modernise and grow the borough’s economy with more - and better skilled - jobs in growth sectors that are better paid, by providing high quality sites and premises that are well served by infrastructure, including roads and public transport.

SCS, LAA & MAA

Objective EE 2

To slow the decline in traditional employment sectors by maintaining, modernising and providing suitable sites and premises that are well served by infrastructure, including roads and public transport.

SCS, LAA & MAA

Objective EE 3

To equip and enable people to take advantage of job opportunities in surrounding areas, notably the city region centres of Manchester, Liverpool, Central Lancashire and Warrington where job growth will be highest.

SCS, LAA & MAA

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Objective EE 4

To contribute to the efficiency of the borough’s economy by releasing sites that are no longer suitable for business use and capturing a share of any increase in value to facilitate the provision or improvement of sites, premises or infrastructure for business.

LAA & MAA

Objective EE 5

To ensure that the borough’s town centres and local centres are hubs for business and cultural development.

LAA & MAA

Objective EE 6

To bring forward Wigan South Central as a location for sub-regionally or regionally significant economic development.

LAA & MAA

Monitoring our economy and employment objectives

National indicator 152 - Percentage of working age people claiming out-of-work benefits National indicator 166 - Average earnings of employees in the area National indicator 171 - Percentage change in VAT-registered businesses National indicator 172 - VAT registered businesses in the borough showing growth Core output indicator - Amount of floorspace developed for employment by type Core output indicator - Amount of floorspace developed for employment by type, in employment or regeneration areas (Local subset: in Wigan South Central)

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Core output indicator - Amount of employment floorspace on previously developed land Core output indicator - Employment land available by type Local indicator - Losses of employment in (i) employment/regeneration areas and (ii) local authority areas Local indicator - Amount of employment in key sectors Local indicator - Focus new employment development (not including direct on-site replacement) within the preferred spatial option area, target: 98%

Housing

7.9 Our strategic objectives for the housing in the borough are:

Objective H 1

To identify land and premises that will meet the borough’s need for new housing as established by government, the regional planning body and local market conditions, prioritising the use of previously-developed land.

SCS, LAA & MAA

Objective H 2

To provide a mix of high quality housing in terms of size, type and tenure (including sheltered and extra care housing) in line with evidenced needs, in locations that are well related to employment opportunities, services and facilities and are accessible by public transport, walking and cycling .

SCS, LAA & MAA

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Objective H 3

To provide affordable housing in line with identified needs by cross-subsidy from commercial housing, both on-site and off-site, or on subsidised sites or through new-build 'social housing'.

SCS, LAA & MAA

Objective H 4

To use land and buildings effectively at an average residential density of 40 dwellings per hectare with higher densities at places within walking distance of good public transport services, by good, innovative and high quality design and construction that will protect and enhance residential amenity.

SCS, LAA & MAA

Objective H 5

To enable the continued viable use of older housing that meets people’s needs and regenerates communities.

SCS, LAA & MAA

Objective H 6

To deliver sustainable housing based on modern methods and technologies suited to the climate and conditions in Wigan Borough.

SCS & LAA

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Objective H 7

To ensure that new housing is locally distinctive in reflecting the borough’s past and providing for its future.

Monitoring our housing objectives

National indicator 154 - Net additional homes provided (general market and affordable total less clearance replacement), target: average 978 per year National indicator 155 - Number of affordable homes delivered (gross) National indicator 159 - Supply of ready to develop housing sites, target - maintain a rolling 5-year supply of housing land Core output indicator - New and converted dwellings on previously developed land Core output indicator - Net additional pitches for gypsies and travellers Core output indicator - Housing quality: 'Building for life' assessments Local indicator - New housing completions in the preferred spatial option area: target: over 80% Local indicator - Density of new housing provision, target: at least 40% average Local indicator - Provision of family housing Local indicator - Provision of sheltered / extra-care housing Local indicator - % new homes meeting our targets for the code for sustainable homes

Retail and centres

7.10 Our strategic objectives for retail and centres in the borough are:

Objective RC 1

To ensure continued investment in town centres, improving their attractiveness to residents, visitors and businesses.

SCS, LAA & MAA

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Objective RC 2

To maintain and enhance Wigan’s role as a sub-regional centre: the main focus for shopping, services, cultural activities, leisure, entertainment and jobs for the most of the borough and adjacent parts of neighbouring districts to our north and west.

SCS

Objective RC 3

To maintain and enhance Leigh’s role as the main centre in the east of the borough for shopping, services, cultural activities, leisure, entertainment and jobs.

SCS

Objective RC 4

To enhance Ashton-in-Makerfield’s role as the main centre serving the south-west of the borough for shopping, services, cultural activities, leisure, entertainment and jobs.

SCS

Objective RC 5

To maintain and enhance the role of Atherton, Golborne, Hindley, Pemberton, Standish and Tyldesley centres within their respective townships as key locations for shopping, services, leisure, entertainment and jobs.

SCS

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Objective RC 6

To maintain and enhance local centres throughout the borough as key locations for local shopping and services within easy walking distance of where most people live.

SCS

Monitoring our retail and centres objectives

National indicator 175 - % of people who have access to services by walking, cycling and public transport Core output indicator - Development of 'town centre uses' inside and outside of town centres Local indicator - Vacancy rate in town centres Local indicator - Vacancy rate in local centres Local indicator - Number of retail units (planning use class A1) in the Principal Shopping Area of our town centres Local indicator - Multiple retailers in the main town centres Local indicator - Prime rental values in main town centres (£ per sq m) Local indicator - Commercial yields in main town centres Local indicator - Development more than 800m walking distance from a town centre or local centre

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Accessibility

7.11 Our strategic objectives for accessibility and transport in the borough are:

Objective A 1

To increase bus use by making it a more attractive alternative for people with cars and improving it for people without cars, by improving journey times, frequency, reliability, integration, vehicle quality and the availability of information and making it more economically competitive, including services that cross the 'county' boundaries.

SCS, LAA & MAA

Objective A 2

To increase the capacity of the railways at peak times to / from Manchester, especially on the line serving Atherton, and increase rail use on other services and at other times, by enhancing the extent, frequency and integration of services, particularly in Wigan town centre, and improving safety, security and access to all stations.

SCS, LAA & MAA

Objective A 3

To improve connections from Leigh, Tyldesley, Astley, Golborne, Lowton and parts of Ashton, Standish and Hindley to the rail network by high quality bus-based transport initiatives.

SCS, LAA & MAA

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Objective A 4

To reduce congestion and traffic noise and pollution in town centres and where people live, particularly along the A577 main east-west road across the borough and roads to the west of Leigh and to the south of Wigan, by diverting traffic away from those areas and significantly improving the convenience and safety of public transport, walking and cycling.

SCS, LAA & MAA

Objective A 5

To reduce dependence on the private car by making roads and other routes safer, convenient and more enjoyable for cycling and walking and focusing development in areas where walking, cycling and public transport offer an attractive alternative.

SCS, LAA & MAA

Monitoring our accessibility objectives

National indicator 167 - Congestion average journey time during morning peak National indicator 175 - Access to services and facilities by public transport, walking and cycling National indicator 176 - Working-age people with access to employment by public transport National indicator 177 - Local bus passenger journeys originating in the borough National indicator 178 - Bus services running on time Core output indicator - Amount of new residential development within 30 minutes public transport time of GP, hospital, primary school, secondary school, area of employment, major retail centre Local indicator - Traffic levels Local indicator - Average 12 hour weekday traffic flows on A and B roads. Local indicator - Number of rail passenger trips in Greater Manchester

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Built environment and landscapes

7.12 Our strategic objectives for the built environments and landscapes of the borough are:

Objective BEL 1

To improve the borough’s countryside and open land and forge a more positive local identity and sense of place by tackling remaining areas of dereliction; conserving and enhancing the character of the landscape; improving opportunities for farming, access, recreation and wildlife; and supporting the multi-functions of 'green infrastructure'; focusing in particular on the emerging Greenheart regional park, in order to deliver genuine health and well-being benefits for communities and help transform the image of the borough as a place in which to invest.

SCS & LAA

Objective BEL 2

To maintain the extent of the Green Belt and protect it from inappropriate development.

LAA

Objective BEL 3

To maintain and enhance the built environment by reusing and converting existing buildings that make or could make a positive contribution; ensuring that new buildings are of a high quality, locally distinctive and sustainable design and construction; and creating people-friendly streets and spaces.

SCS & LAA

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Objective BEL 4

To conserve and enhance the borough’s built heritage through high quality modifications, maintenance and repair; avoiding street ‘clutter’ and other inappropriate development and advertising.

SCS

Monitoring our built environment and landscapes objectives

Local indicator - Amount and condition of green infrastructure Local indicator - impact on landscape character Local indicator - derelict land reclaimed

Wildlife habitats and species

7.13 Our strategic objectives for wildlife habitats and species in the borough are:

Objective WHS 1

To strengthen and support wildlife habitats and species in the borough by protecting key habitats such as Atherton and Bedford Woods, Crooke and Shevington woodland areas, Wigan Flashes, Pennington Flash and Astley and Bedford Moss; enhancing, diversifying and/or creating new habitats in the built and natural environment where appropriate; and ensuring that key habitats are actively managed including mitigating against invasive and other inappropriate species.

SCS & LAA

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Objective WHS 2

To facilitate opportunities to appreciate wildlife in the borough notably at 'gateway' sites for the Greenheart Regional Park in the west of the borough at Wigan Flashes and the east of the borough at the former Bickershaw Colliery and at Pennington Flash Country Park.

SCS & LAA

Monitoring our wildlife habitats and species objectives

National indicator 197 - Improved local biodiversity - active management of local sites Core output indicator - Change in areas of biodiversity importance (i) priority habits, (ii) areas designated for their intrinsic environmental value National indicator - The percentage area of land designated as Sites of Special Scientific Interest in favourable condition National indicator - Condition of habitats designated as Special Areas of Conservation (Astley and Bedford Mosses) National indicator - Hectares of land designated as Local Nature Reserve per 1000 head of population Local indicator - Adverse impacts on protected species

Energy

7.14 Our strategic objective for energy in the borough is:

Objective E 1

To strengthen our energy infrastructure and minimise emissions of greenhouse gases by using less energy for transport; making our homes and businesses more resource efficient; reinforcing capacity; and generating more energy from renewable and low carbon sources such as the wind, sun, ground, water, and combined heat and power; thereby securing our energy supplies and meeting domestic and economic needs in a more sustainable way

SCS, LAA & MAA

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Monitoring our energy objective

National indicator 186 - CO2 emissions per capita (total) Local indicator - Renewable energy capacity installed by type Local indicator: Number of relevant planning applications meeting our carbon reduction targets

Waste

7.15 Our strategic objective for waste in the borough is:

Objective W 1

To reduce the amount of waste produced in the borough and radically reduce the proportion of waste being dumped at landfill sites, by providing more facilities for the reuse, recycling and recovery of waste or securing access to other nearby facilities.

SCS & LAA

Monitoring our waste objective

National Indicator 191 - Residual household waste per head National Indicator 192 - Household waste recycled and composted National Indicator 193 - Municipal waste land filled

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Natural resources and pollution

7.16 Our strategic objectives for natural resources and pollution in the borough are:

Objective NRP 1

To ensure that development does not result in unacceptable levels of air pollution or will not have an unacceptable effect on air quality, through traffic or emissions.

SCS, LAA & MAA

Objective NRP 2

To tackle pollution problems from contaminated land and ensure that no new pollution arises by remediation through the development process and/or appropriate management.

SCS & LAA

Objective NRP 3

To maintain soil quality by maximising the use of previously-developed land for development, conserving top-soil, improving quality through remediation, reclamation and composting and minimising the loss of ‘best and most versatile’ agricultural land to development.

SCS

Objective NRP 4

To conserve the integrity of the mossland habitat in the south of the borough and minimise the extraction of peat to no more than currently permitted.

SCS

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Objective NRP 5

To protect known mineral resources from sterilising development and contribute to the national and regional requirement for minerals in line with the extent of resources and other policy considerations.

Objective NRP 6

To manage environmental noise, notably in areas identified in the Government’s strategic noise maps including Hindley, Leigh, Atherton and Tyldesley.

Objective NRP 7

To recognise that watercourses and their associated corridors are key assets of the borough and that water quality is maintained or improved, by not permitting development that would give rise to pollution.

SCS & LAA

Objective NRP 8

To mitigate and adapt to all flood risks in particular at strategic sites in critical regeneration areas across the borough, through the location and design of development and the sustainable use, storage and disposal of water.

SCS & LAA

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Monitoring our natural resources and pollution objectives

National indicator 189 - Flood and coastal erosion risk management Core output indicators - Number of planning permissions granted contrary to Environment Agency advice on flood risk or water quality National indicator - Number of days per year when air pollution exceeds national 24hr standard for dust/particles (PM10) National indicator - Annual average background nitrogen dioxide concentration (ug/m3) National indicator - Average of annual mean levels for selected nitrogen dioxide road side diffusion tube sites (ug/m3) National indicator - Number of tonnes of NOx emitted annually from road transport Local indicator - Irreversible development on grade 1, 2 or 3A agricultural land Local indicator - Remnant mossland Local indicator - Length of watercourses de-culverted through development Local indicator - Number of permissions incorporating sustainable urban drainage schemes Local indicator - Net gain in flood storage capacity

Climate change

7.17 Our strategic objective for climate change in the borough is:

Objective CC 1

To require that all new development tackles the threat of climate change and is capable of adapting to its effects.

SCS & LAA

Monitoring our climate change objective

National indicator 188 - Adaptation to Climate Change

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Question 5

Do you think that our strategic objectives are right? Will they deliver the spatial vision? If not, why not?

Question 6

Do you think our monitoring indicators are right? Are they the best ones for measuring our success in meeting our strategic objectives? What should our targets be?

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EIGHT Choosing our preferred options

8.1 At the Issues and Options stage in Spring 2008, we identified five distinct potential spatial options that might achieve our spatial objectives. Four of those options focused the majority of development on a particular part of the borough:

the east, in Leigh, Atherton, Tyldesley and Astley, Hindley Green and Lowton the west, in Wigan, Ashton-in-Makerfield, Hindley and Platt Bridge the outer, in Standish, Aspull and Shevington, Orrell and Billinge, Golborne and Lowton, the south of Leigh and Astley the inner, in Wigan, Ince, Hindley, Platt Bridge, Leigh and Atherton.

The fifth was for development to be dispersed across the borough.

8.2 We identified how each option could or would, or could or would not, achieve our spatial objectives. We also summarised the interim sustainability appraisal of each option that had been undertaken.

8.3 We have now confirmed our preferred spatial option for ensuring that development best helps to tackle the many issues that we face as a borough and delivers our strategic objectives. It is a development of spatial option 4 (Focus on the inner areas of the borough), as it focuses largely on the inner areas of Wigan, Ince, Hindley, Platt Bridge, Leigh and Atherton. In addition, however, it extends westwards to the M6 motorway at Lamberhead Green, south-westwards to include Ashton and Bryn and eastwards to include all of Leigh, Atherton and part of Astley. As such we call it the 'east-west core' of the borough.

8.4 Our preferred spatial option is firmly backed by our evidence base (summarised in Chapter 5). It is also the most sustainable option when considered against the full range of social, economic and environmental sustainability objectives, as shown in our sustainability appraisal (published separately). And it has received the most support from the community and other key stakeholders on the basis that the inner areas need development, as set out in our consultation report (also published separately).

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8.5 As a result we have developed our preferred spatial option further to establish what it means in terms of what, where and how development should be brought forward. In short, we have:

our preferred spatial policy principles, which are the principles that we think should form the basis for our spatial policies for the borough overall (focusing on the east-west core), for our key spatial priority areas (Wigan town centre, Wigan South Central, Leigh Central and Ashton) and for 8 key strategic sites (see chapter 9). our key diagram that sets out our preferred spatial option in a visual form (also in chapter 9). our preferred core policy principles, which are the principles that we think should form the basis for our core policies. These will be topic-based strategic policies covering matters such as housing, safer stronger and more attractive communities and accessibility (see chapter 10). our preferred development management policy principles, which are the principles that we think should form the basis for our development management policies, for those matters where more detailed policy is necessary, such as for employment land and buildings, Green Belt and design (see chapter 11). changes to allocations and designations on our proposals map that would result from our preferred options (see chapters 9-11 and Appendices A and B, as appropriate). all of which is 'reasoned and explained' against our evidence base, sustainability appraisal and community and stakeholder involvement, directly underneath each spatial, core and development management policy principles.

8.6 The above 'policies' are set out in the form of policy principles in order to seek peoples' views on what the content of the policies should be. At the next pre-submission stage of consultation we will include policies that should be close to the final versions in the Core Strategy that we later submit to the Secretary of State. It is therefore important that we have your views at this stage on what these spatial policy principles should say, or should not say (see chapter 13).

8.7 Chapter 12 outlines the four alternative spatial options that we have considered and do not prefer, these being the 'east', the 'west', the 'outer' and the 'dispersed'. Our reasons for not preferring these spatial options are also set out and similarly backed by evidence, sustainability appraisal and consultation.

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NINE Our preferred spatial policies

9.1 Our spatial portrait and key issues set out clearly that Wigan Borough has many strengths but also many weaknesses and that there are many differences between places across the borough. We need to make the most of where the borough has strengths while focusing on helping to tackle areas and issues where the borough is less strong. As such we set out our preferred principles for 11 spatial policies, covering, in turn:

The borough overall, focusing development on the 'east-west core' and restricting it elsewhere - see spatial policy principles SP1 Wigan Town Centre as a priority area - see spatial policy principles SP2 Wigan South Central as a priority area - see spatial policy principles SP3 The Bell, Lamberhead Green, Wigan as a key strategic site - see spatial policy principles SP4 South of Hindley as a key strategic site - see spatial policy principles SP5 Northleigh as a key strategic site - see spatial policy principles SP6 Leigh Central as a priority area - see spatial policy principles SP7 Westleigh Canalside as a key strategic site - see spatial policy principles SP8 East of Atherton as a key strategic site - see spatial policy principles SP9 Garrett Hall, Astley as a key strategic site - see spatial policy principles SP10 Ashton-in-Makerfield as a priority area with two key strategic sites - see spatial policy principles SP11.

Key strategic sites are sites that are central to the achievement of our strategy.

Spatial policy principles for Wigan Borough

Policy SP 1

The spatial policy for Wigan Borough should:

Support the development of sustainable communities that are well served by infrastructure and services; have an appropriate mix of uses; are accessible by public

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transport, walking and cycling; substantially reduce our contribution to climate change; and are more resilient to the impacts of climate change. Direct development towards the ‘east-west core' of the borough, notably the towns of Wigan, Ince, Hindley, Platt Bridge, Leigh, Atherton and Ashton-in-Makerfield; in order to achieve broad-based, transformational economic, environmental and community regeneration and deliver sustainable communities. Focus development where it will contribute most to the delivery of the substantial new and improved infrastructure that is needed to achieve this regeneration, with priority improvements being: east-west transport infrastructure our town centres and adjacent areas opportunities and environments for learning the borough’s ‘green infrastructure’, notably the Greenheart regional park broadband infrastructure Seek to establish a community infrastructure levy to contribute gap funding for the delivery of this infrastructure. Bring forward sites in accessible locations that will substantially improve the quality of economic development and ensure that we are more competitive in securing and retaining jobs (see core policy principles CP4). Bring forward sufficient land to meet the need for new housing, focused on previously-developed and degraded land in locations that will support the delivery of economic development (see core policy principles CP5). In the west of the borough identify Wigan as the sub-regional town and focus development in and around the Wigan town centre (see spatial policy principles SP2) and to the south and west of the centre (Wigan South Central - see spatial policy principles SP3). Identify a key strategic site at Lamberhead Green (see spatial policy principles SP4) in addition to the existing sites at Westwood Park and Pemberton Park. In the centre of the borough focus development on a large key strategic area to the south of Hindley (see spatial policy principles SP5), at Northleigh (see spatial policy principles SP6) and in Platt Bridge. In the east of the borough focus development in and around Leigh town centre (see spatial policy principles SP7), to the west and north of the town and in Atherton.

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Identify key strategic sites at Westleigh Canalside (see spatial policy principles SP8), east of Atherton (see spatial policy principles SP9) and at Astley (Garrett Hall) (see spatial policy principles SP10). In the south-west of the borough focus development on Ashton-in-Makerfield and identify key strategic sites at Stubshaw Cross and Landgate (see spatial policy principles SP11). Only allow low levels of development in Standish, Aspull and Shevington, Orrell and Billinge, Golborne and Lowton and otherwise in Tyldesley and Astley. Outside of the borough recognise the roles of Manchester, Bolton, Warrington, Liverpool and Preston in particular as major centres for employment, education, shopping and entertainment.

9.2 Our spatial policy principles set out our preferred spatial option for Wigan Borough through to 2026. They are underpinned by key preferred local area spatial policy principles, a full range of preferred core policy principles and preferred key strategic site allocations that follow, many of which are referred to directly in the spatial policy principles.

9.3 By focusing primarily on inner areas of the borough our preferred spatial option is consistent with national planning policy, notably Planning Policy Statement 1: ‘Delivering Sustainable Development’.

9.4 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1 – DP7 and DP9, the spatial priorities policy RDF1 and policies MCR1 and MCR5 for the Manchester city region.

9.5 It also accords closely to our sustainable community strategy ‘vision 2026’, emphasising jobs, aspirations, life skills and qualifications, quality of life, homes and communities. Sustainable communities are safe and attractive places that people really want to live in. They have a range of housing, jobs and services and facilities including schools, doctors, local shops, café, pub and play space, with other larger services and facilities easily accessible by walking, cycling or public transport. They will also reduce our contribution to climate change.

9.6 The east-west core is the most appropriate spatial option because a range of issues come together there that need to be tackled if we are to deliver sustainable communities.

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Diagram 4: Key diagram for preferred spatial option WIGANLOCALDEVELOPMENTFRAMEWORK Core Strategy Preferred Options Report (June 2009) Wigan Council LDF

9.7 We need to create the conditions that will make the east-west core far more attractive for investment in jobs. This includes:

resolving our transport and communications infrastructure deficit providing high quality sites and development opportunities raising aspirations and improving skills in the workforce including through ‘Schools for the Future’ improving the image of the borough environmentally, focusing on our town centres and the Greenheart Regional Park.

9.8 We also need to improve people's ability to compete effectively for jobs outside of the borough. This includes aspirations and skills but also the ability to access such jobs. By focusing housing development on the 'east-west core' we can maximise opportunities for people to commute to key employment locations by public transport.

9.9 Tackling these issues is a priority for the Wigan Borough Partnership (our local strategic partnership). It is essential that our Core Strategy contributes effectively to tackling these issues.

Health and recreation - see core policy principles CP1

9.10 Our preferred spatial option encompasses the areas of the borough with the most acute levels of health deprivation, namely central Wigan, Ince, Platt Bridge, Hag Fold in Atherton, central Leigh and Higher Folds near Leigh. In association with other strategies and action plans, it will help improve life opportunities in those areas including education, employment, housing, recreation and active transport (walking and cycling), and will help deliver significant environmental improvements including the emerging Greenheart Regional Park. It also complements the provision of acute health services in Wigan and Leigh and there is an ongoing programme of providing new primary health care facilities including in the central areas of Ashton, Wigan and Leigh. As such this spatial option will help best fulfil our objectives HR1 and HR2 for health and recreation.

Community safety and neighbourhood quality - see core policy principles CP2

9.11 Our preferred spatial option will enable us to maximise the benefits of development in our most deprived neighbourhoods and town centres, where crime, anti-social behaviour and environmental quality issues are generally most prevalent. As such this spatial option will help best fulfil our objective NQ1 for community safety and neighbourhood quality.

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Community development and learning - See core policy principles CP2

9.12 Our preferred spatial option directs development into the more deprived parts of the borough where it will help to raise aspirations, increase opportunities for work and play and improve quality of life. In doing so it will help reduce inequality gaps in the borough. As such it will help best fulfil our objectives CD1-CD4 for community development and involvement.

Education and learning - see core policy principles CP3

9.13 Our preferred spatial option focuses on the neighbourhoods with the lowest levels of qualifications and skills. Over 90% of the communities within Wigan that rank in the top 10% most deprived in the country for education, skills and training are located within the 'east-west core'. Focusing on these areas overall will help to raise aspirations and increase participation levels in further education. New ways of learning will be advanced through 'Schools for the Future', which has a major focus on new and remodelled high schools and two new '14-19 centres'. This approach extends across the borough but provision is being reduced outside of the 'east-west core' to reflect demand from those areas. As such this spatial option will help best fulfil our objectives EE1 and EE2 for education and learning.

Economy and employment - see spatial policy principles SP3-7 and SP9-11 and core policy principles CP4

9.14 Our preferred spatial option directs new economic development and employment opportunities towards key sites in sustainable locations within the 'east-west core', where it is most needed. It will achieve this by enabling the delivery of key transport infrastructure to make these areas attractive for investment. It encompasses over 95% of the communities within the borough that rank in the top 10% most deprived in the country for employment. Not only will these sites be accessible by public transport, it is also the best location to locate housing where people can commute by public transport to job opportunities elsewhere, notably the Manchester regional centre. The spatial distribution of employment development as a result of this spatial option is set out in the table below. Accordingly, this spatial option will help best fulfil our objectives EE1-EE6 for economy and employment.

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Township %

Wigan (including Winstanley and New Springs) 34

Hindley and Abram 25

Leigh 6

Atherton 7

Ashton and Bryn 19

Tyldesley and Astley 7

Golborne and Lowton 1

Standish, Aspull and Shevington (excluding New Springs) 1

Orrell and Billinge (excluding Winstanley) 0

Spatial distribution of new employment development by Township, 2010-2026

Housing - see spatial policy principles SP3 and SP5-11 and core policy principles CP5.

9.15 Our preferred spatial option directs most new housing development towards sustainable locations within the 'east-west core' of the borough where it is most needed, both to meet housing needs and to regenerate neighbourhoods and strengthen weaker housing markets. The east-west core also contains a high proportion of brownfield and degraded land. The development of key sites within this area will also help to enable the delivery of key transport infrastructure to make these areas attractive for investment. The spatial distribution of housing development as a result of this spatial option is set out in the table below. Accordingly, this spatial option will help best fulfil our objectives H1-H7 for housing.

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Township %

Wigan (including Winstanley & New Springs) 32

Hindley and Abram 19

Leigh 22

Atherton 5

Ashton and Bryn 6

Tyldesley and Astley 9

Golborne and Lowton 3

Standish, Aspull and Shevington (excluding New Springs) 2

Orrell and Billinge (excluding Winstanley) 2

Spatial distribution of new housing by Township, 2007-2026 (approximate)

Retail and centres - see spatial policy principles SP2, SP7 and SP11 and core policy principles CP6

9.16 Our preferred spatial option will help stimulate investment and economic growth in our three main town centres: Wigan, Leigh and Ashton-in-Makerfield; three of our other town centres directly: Atherton, Hindley and Pemberton, and two of the largest local centres: Ince and Platt Bridge. Housing and employment development will also be focused close to Tyldesley town centre. The centres themselves will be key locations for development. Only Standish and Golborne town centres are outside of our preferred spatial option. Standish is a prosperous centre; Golborne is not despite the relative prosperity of the township. Nevertheless they are identified as town centres and will be priority locations locally for appropriate development and improvements. As such this spatial option will help best fulfil our objectives RC1-RC6 for retail and centres.

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Accessibility - see spatial policy principles SP3-8 and 11 and core policy principles CP7.

9.17 Our preferred spatial option is the most appropriate for 'accessibility' because it is the most significant factor in making the east-west core attractive for investment and jobs. As such it will help transform people's life opportunities and well-being and enable the borough to contribute fully to the region's economic prosperity. Major investment is needed to achieve this, including transport infrastructure to join-up the east and west of the borough and to make our town centres function better. This will have the greatest impact in improving accessibility, relieving congestion and improving conditions for rail and bus use and walking and cycling. Consequently it is the spatial option that will best enable us to deliver more sustainable communities and help best fulfil our objectives A1-A5 for accessibility.

Built environment and landscapes - see core policy principles CP8, CP9, CP10 and CP11

9.18 Our preferred spatial option will establish sustainable, viable, attractive and locally distinctive built environments in areas where much of the built environment and landscape are degraded. It will help to make historic assets more viable, increase their 'value' to the local environment and enhance their settings. Significantly it will also help deliver the emerging Greenheart Regional Park, which will improve the appearance of the environment, protect and enhance wildlife habitats, improve opportunities to enjoy the countryside and help improve the relationship between the built environment and the landscape. As such it will help best fulfil our objectives BEL1-BEL4 for built environment and landscapes.

Wildlife habitats and species - see core policy principles CP12

9.19 The emerging Greenheart Regional Park is at the 'heart' of our preferred spatial option and wildlife habitats and species are at the heart of the priorities for the regional park. Concentrating development around the emerging regional park will help integrate the built and natural environment more effectively, with a proper allocation and management of 'space' for wildlife. Indeed, most of 'Greenheart' is in the Green Belt anyway. Clearly there are risks from pollution and unregulated access but we cannot afford to let these happen if we are to achieve truly sustainable communities in the east-west core. There are appropriate safeguards in our policies. As such this spatial option will help best fulfil our objectives WHS1 and WHS2 for wildlife habitats and species.

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Energy - see core policy principles CP13

9.20 Our preferred spatial option is appropriate in terms of ‘energy’ as it directs development into denser urban areas that are generally well served with infrastructure and have a good mix of uses to facilitate the development of low-carbon energy networks and sustainable patterns of travel. Many of our deprived areas also suffer from fuel poverty, which could be tackled through our preferred spatial approach. As such this spatial option will help fulfil our objective E1 for energy.

Waste - see core policy principles CP14

9.21 Our preferred spatial option assists in implementing a sustainable waste management policy as it would complement the development of centrally located waste management facilities. Most site and area options for built waste management facilities that have been identified through the preparation of the Greater Manchester Joint Waste Development Plan Document fall within the east-west core. As such this spatial option will help fulfil our objective W1 for waste.

Natural resources and pollution - see core policy principles CP15 and CP16

9.22 Our preferred spatial option will best help remediate areas of contaminated land; will involve no 'best and most versatile' agricultural land; and will locate development primarily within the urban area or on sites that have previously been worked for minerals. Flood risks from rivers and water courses, surface water and sewers will be an issue but mitigation measures will be built-in. Similarly, air quality management areas cover large parts of the east-west core and traffic pollution is the primary cause of poor air quality. However, most through-traffic will be removed from the heart of our communities where pollution causes the most harm. As such this spatial option will help best fulfil our objectives NRP1-NRP8 for natural resources and pollution.

Key strategic sites

9.23 Our key strategic sites are central to the achievement of our strategy. We have 8 such sites in addition to existing sites in Wigan South Central and Leigh Central that we are maintaining as Primary Employment Areas from our Unitary Development Plan.

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9.24 Together they will deliver nearly all of the new employment development and around one-third of new housing. Critically, however, they will facilitate the delivery of the strategic transport infrastructure needed to serve the 'east-west core'. All of the sites will be brought forward in line with our core policy principles. Only the most significant site-specific requirements are highlighted in the spatial policy principles for each site.

9.25 Community and stakeholder involvement has shown that there is widespread support for concentrating development in areas of greatest need.

9.26 Our preferred spatial option is the most sustainable approach with notable positive impacts against social and economic objectives and the ability to deliver notable positive environmental impacts with the right policy framework in place. We set out such policy safeguards in our core policy principles below. The full results of our sustainability appraisal to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.27 The key risk for our preferred spatial approach is deliverability. Significant new and improved infrastructure is needed to make it deliverable. Site values will be captured in part for investment in this infrastructure, including whole site values of key council-owned sites. But we are likely to also need significant contributions from government. The infrastructure improvements and funding implications are set out against each of our key strategic sites.

9.28 Chapter 7 includes our core monitoring framework against which the success of our preferred spatial approach will be measured.

Question 7

Do you think that our spatial policy principles for Wigan Borough are right? Is it the best spatial approach for achieving our strategic objectives and delivering our spatial vision? Why?

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Wigan town centre spatial policy principles

Policy SP 2

The spatial policy for Wigan town centre should:

Expand the town centre area to encompass the Northern Crescent and Eastern Gateway areas outside of the inner relief road to ensure that the town centre is enhanced as a focus for services and facilities and is better integrated with surrounding areas. Ensure that it retains its role as a sub-regional centre within its 'natural' catchment area by maintaining and enhancing its range of retail services in a strong retail core (the Primary Shopping Area - see development management policy principles DM3) and focusing additional retail floorspace to serve that catchment foremost in the town centre (see core policy principles CP6). Ensure delivery of the 'Wigan Hub' to better connect Wigan North Western and Wallgate railway stations and use traffic management measures to improve the integration of public transport services overall, links with taxis, provision of car parking for rail passengers, enhancement of public spaces between the two railway stations and promotion of links into Wigan South Central (see core policy principles CP7). Promote the Northern Crescent as a major opportunity for mixed-use regeneration to ensure that a range of facilities and attractions are available across the town centre area. Promote the Parsons Walk / New Market Street area as an enhanced ‘learning village’ through the redevelopment / modernisation of facilities for Wigan and Leigh College and the Deanery High School and support for the college securing University status. Promote the Eastern Gateway as an area of high quality mixed-use development that is complementary and well connected to the rest of the town centre. Promote a vibrant and varied 'evening and night-time economy, particularly in the King Street and Wallgate areas and any further development associated with the Grand Arcade and the civic quarter. Promote the area of Millgate / Library Street as an enhanced ‘civic quarter' following the development of the Joint Service Centre and through further joint-working.

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Provide new and enhance existing public transport, walking and cycling links between the town centre and surrounding residential areas, healthcare facilities,Mesnes Park, Wigan Pier Quarter, Robin Park and Westwood Park. Support Wigan as a destination for visitors related to our cultural heritage and sporting attractions.

9.29 Our preferred approach for Wigan town centre is consistent with national planning policy notably Planning Policy Statements 1 ‘Delivering Sustainable Development’; and 6 ‘Planning for Town Centres’; and Planning Policy Guidance note 13 ‘Transport’.

9.30 It conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1-7 and DP9; the spatial priorities policy RDF1; the retail and tourism policies W5-7; the 'living' policies L1 and L4; the transport policies RT1-3 and RT9; the environment policy EM1(C); and the Manchester city region policies MCR1 and MCR5.

9.31 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for 'ambitious communities', where opportunities exist within a local and regional economy that provides ease of access to jobs and services; 'living healthier', providing opportunities that improve quality of life; 'realising aspirations', where people of all ages are equipped with the right life skills and the qualifications employers need; and 'strong community' where communities are at the heart of all we do.

9.32 Wigan is by far the largest town centre in the borough and is identified as a sub-regional centre in the Regional Spatial Strategy. Wigan town centre primarily serves approximately two-thirds of the borough's residents and also adjacent parts of neighbouring authorities such as West Lancashire and Chorley.

9.33 Our Retail and Leisure Study (see Chapter 4) identifies that Wigan town centre has a high vacancy rate, limited convenience retailing (convenience retail includes food, drink, newspapers, magazines and confectionery), low representation in the financial and business sectors and a significantly lower number of restaurants than equivalent sized town centres elsewhere. The study acknowledges the opportunities that exist, particularly around the Northern Crescent and the Wigan Hub. There is also a need to further capitalise on the investment and new retailers brought in by the Grand Arcade, which has seen the retail core shift southwards from the older Galleries centre.

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9.34 Wigan Hub is to be a new southern gateway to the town centre that provides integrated public transport facilities. The creation of an integrated transport hub will help us to realise the key opportunities within the town centre and 'Wigan South Central'.

9.35 The council adopted a masterplan for the 'Northern Crescent' area of the town centre in October 2007 in order to stimulate and guide commercial development. It identified the need for radical intervention in the Galleries and Marketgate shopping centres to redress the balance following the Grand Arcade development and the decline in the fortunes of the market. This area also includes the college buildings and Deanery High School.

9.36 Also in October 2007 the council adopted a development framework for the 'Eastern Gateway' area of the town centre around Chapel Lane and Darlington Street, to promote and inform a small number of key development opportunities.

9.37 King Street and Wallgate are the focus for 'evening economy' activities. It is narrowly focused on pubs and clubs and there is a recognised need to broaden its appeal. Our approach is to promote a more varied evening economy and safeguard and reinforce the historic character of the area.

9.38 The area bounded by The Wiend, Millgate, Library Street and Riverway forms the site for the Joint Service Centre. This major development will create a central hub for a range of public services within an enhanced 'Civic Quarter'. Future developments around this area should be complementary to its key role.

9.39 There is a need to provide better walking links between the town centre and adjacent residential communities and 'destinations'. A particular issue to be addressed is the ‘barrier’ effect of the town centre ring road which segregates a number of areas.

9.40 The town centre area attracts visitors associated with the town’s sporting clubs and its local culture and heritage. Policies should help to realise the potential to attract more tourists and to encourage longer stays.

9.41 The main issues that were identified by stakeholders and the community were the quality of transport interchange in Wigan town centre, the amount of derelict sites, the need to improve the leisure and cultural offer and the need to better connect the town centre to adjacent areas, such as Wigan Pier Quarter.

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9.42 Our sustainability appraisal work shows that our preferred approach should help to strengthen the role of Wigan for employment, service provision and retail, enhance the appearance and experience of central areas and improve accessibility. However, flood risk is an issue around the Eastern Gateway and mitigation measures will be needed. The full results to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.43 An alternative to this policy would be for the retail core to be dispersed, but this would offer less connectivity between different retail destinations and in-turn make the centre less attractive. Not pursuing this option would lead to services being dispersed, harder to access by public transport and less easily joined-up.

9.44 Deliverability of these spatial policy principles is dependent on an effective partnership with a full range of stakeholders including government agencies, local agencies including town centre management, retailers and other businesses and developers. Key however, will be the new Wigan Regeneration Agency which will seek to maximise funding opportunities and target spending to deliver opportunities in the town centre.

9.45 A number of our core policy principles have a direct bearing on the town centre. The town centre may be subject to a masterplan developed through a supplementary planning document or an Area Action Plan, potentially also including all, or parts of, Wigan South Central (see spatial policy principles SP3).

9.46 Delivery of these spatial policy principles would enable us to achieve a number of our strategic objectives, most notably objectives RC1 and RC2 (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

9.47 Proposed changes to the proposals map: Delete the 'Retail Development' allocation (S1C) in Wigan Town Centre on the site of the now developed Grand Arcade. Expand the town centre as illustrated in the map below.

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Revised Wigan Town Centre boundary

Question 8

Do you think that our spatial policy principles for Wigan town centre are right? Why?

Wigan South Central spatial policy principles

Policy SP 3

The spatial policy for Wigan South Central should:

Promote Wigan South Central as a location for regionally significant economic development with complementary housing and other development. Promote new transport infrastructure including the A49 diversion from Worsley Mesnes to Wigan town centre via Westwood Park (current site ref: EM1A 20); a new access road from Junction 26 of the M6 motorway to the A49 via Pemberton Park (current

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site ref: EM1A 30 Pemberton Colliery); Saddle Junction improvements; the Inner Relief Road West; and a Pier Quarter relief road. Enhance the area's green infrastructure including the canal and river corridors, Parson's Meadow and Wigan Flashes for wildlife habitats and species, walking and cycling, leisure and tourism, education and flood management, as part of the emerging Greenheart Regional Park. Capitalise upon historic environment assets to reinforce local identity and ensure high quality design solutions are realised.

Wigan Pier Quarter

Promote the ongoing comprehensive mixed use conservation based regeneration of the area around Pottery Road / Pottery Terrace, comprising a vibrant mix of employment, housing, cultural activities, leisure and tourism that compliments the town centre; the improvement of public spaces; and schemes to remove through-traffic from Wallgate and Pottery Road. Expand the Pier Quarter to include the Queen Street / Caroline Street area adjacent to the town centre and bring it forward for office development and associated uses, supported through highway rationalisation, land assembly and relocation of existing uses, and improvements to public spaces.

Westwood Park

Support the comprehensive development of this Primary Employment Area as a flagship project for Wigan by adopting high quality design, sensitively related to the adjacent 'flash' (part of Wigan Flashes and a Site of Special Scientific Interest); ensuring suitable skills and training packages are established to enable the local workforce to benefit from the employment created; and securing the A49 diversion from Worsley Mesnes to Wigan town centre.

Pemberton Park

Support the comprehensive development of this Primary Employment Area and adjacent land for a mix of high quality employment uses supported by quality residential and other ancillary uses; ensuring suitable skills and training packages are established to

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enable the local workforce to benefit from the employment created; and makes provision for a new access road from Junction 26 of the M6 motorway.

Newtown and Robin Park

Regenerate Robin Park by promoting uses and development that are distinct but complementary to what is, or could reasonably be, available in Wigan town centre, in accordance with national and regional planning policy as appropriate. Allow complementary housing-led mixed use development on sites on the fringes of Robin Park. Enhance the quality of open space provision. Improve pedestrian and cycle networks and public transport links to enhance connectivity with Wigan town centre and the Pier Quarter.

9.48 Our preferred approach for Wigan South Central is consistent with national planning policy notably Planning Policy Statements 1 ‘Delivering Sustainable Development’; 3 ‘Housing’; and 6 ‘Planning for Town Centres’; and Planning Policy Guidance notes 4 'Industry' and 13 ‘Transport’.

9.49 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1-7 and DP9; the spatial priorities policy RDF1; the economy policies W1-7; the 'living' policies L1 and L4; the transport policies RT1-3 and RT9; the environment policies EM1, EM3 and EM5; and the Manchester city region policies MCR1 and MCR5. It also reflects the Regional Economic Strategy and the proposed changes to the list of regionally significant employment sites, which includes the addition of Wigan South Central.

9.50 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for 'ambitious communities', where opportunities exist within a local and regional economy that provides ease of access to jobs; 'living healthier', providing opportunities that improve quality of life'; and 'realising aspirations', where people of all ages are equipped with the right life skills and the qualifications employers need.

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9.51 Our preferred approach for Wigan South Central supports the proposals and priorities set out in the Wigan South Central Masterplan that we adopted in May 2008. Its vision is to reposition the area as a high quality location in which to live, work, visit, invest and do business in order to complement the transformation of the town centre and support the wider regeneration of the borough and region.

9.52 Enhancing both strategic and local accessibility is at the heart of the masterplan and fundamental to its delivery. Improving connections to the strategic network and relieving congestion on the local networks are crucial to facilitating high quality development and improving the image of Wigan. Enhancements to the road network will create the opportunity to enable major improvements for public transport, walking and cycling.

9.53 Wigan South Central has over 100 listed buildings and numerous locally listed buildings. However, in many instances these are undervalued and falling into decline or disrepair. Capitalising upon the area's heritage will help to reinforce local identity, aid orientation and improve the quality of the built environment.

9.54 Enhancing and improving the quality and visibility of the area's green infrastructure network will create a high quality environment, capture value, promote accessibility by walking and cycling, help mitigate against flooding and improve the image of Wigan.

9.55 Wigan South Central includes or is close to a large proportion the borough's most deprived communities so there is great potential to marry opportunity and need.

9.56 Our sustainability appraisal work shows that there would be strong benefits for the local economy, which could be shared by some of the borough’s most deprived communities. However, there could be a negative impact on landscape character, open space and water objectives. Strong mitigation and enhancement measures will be required. The full results to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.57 The alternative option would be to not prioritise Wigan South Central for development. However, it is supported by the Northwest Development Agency as a key regeneration area and location for regionally significant employment development. It is strategically located between Wigan town centre (including the West Coast Mainline railway station) and two junctions of the M6 motorway. There are three large brownfield sites / areas and many other economic and community regeneration opportunities. There are also built environment and natural environment conservation and enhancement needs and opportunities.

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9.58 Deliverability of these core policy principles is dependent on an effective partnership with the economy and employment sectors, including government agencies, local agencies and businesses. Key however, will be the new Wigan Regeneration Agency which will seek to maximise funding opportunities and target spending to deliver the Wigan South Central masterplan.

9.59 The masterplan may be developed further through a supplementary planning document or Area Action Plan, potentially also including all or parts of Wigan town centre.

9.60 Delivery of these spatial policy principles would enable us to achieve a number of our strategic objectives, most notably objectives EE1-3 and EE6 for 'economy and employment', CD3 for 'community development' and H1-3 for housing (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

9.61 Proposed change to the proposals map: The revised boundary for the Wigan Pier Quarter is set out below.

Wigan Pier Quarter

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Question 9

Do you think that our spatial policy principles for Wigan South Central are right? Why?

The Bell, Lamberhead Green spatial policy principles

Policy SP 4

The spatial policy for 'The Bell' at Lamberhead Green, Wigan should:

Designate the area principally for employment development subject to an agreed masterplan and delivery of a relief road for Orrell Post and Pemberton from the A577 Orrell Road and Junction 26 of the M6 Motorway to the Heinz complex, Martland Park Industrial Estate and Robin Park (see spatial policy principles CP3 'Wigan South Central'). Ensure that capacity 'released' on the A577 through Pemberton is 'captured' for the benefit of bus travel, walking and cycling. Retain existing housing within the north of the site. Provide open space including play space and allotments as appropriate along the eastern fringe with Latham Lane / Bell Lane. Provide woodland planting and other landscaping around the fringes of the site and integrated within it. Ensure good accessibility to and through the development for bus services, walking and cycling, including from adjacent residential areas as appropriate.

9.62 The Bell is a key site for achieving our strategic objectives and realising our overall vision for the borough, specifically Wigan.

9.63 One of our key objectives is to make the borough more attractive for investment in jobs - better quality jobs. To achieve this we need to provide better quality sites and improve accessibility by all means. We are seeking to achieve this predominantly on degraded sites away from the motorway network but 'The Bell' is an exception. It is greenfield, immediately adjacent to the M6 motorway and accessible directly off Junction 26, and it is currently Green Belt.

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9.64 The site area is 62 hectares. Our proposal is for around 60% of the area to be developed for high quality employment uses with office development at the southern end close to the A577 Orrell Road and other employment uses in a broad band towards the western side of the site adjacent to the motorway. The A577 is a high frequency bus route and designated 'quality bus corridor'.

9.65 The balance would be made up of open space, planting and landscaping as a buffer for existing housing to the north and east, with the potential for play space, allotments and other open space as appropriate, with additional planting and landscaping along the motorway edge and within the site.

9.66 In order to bring The Bell forward for development we must show that there are exceptional circumstances that warrant this change to the Green Belt; and that the omission of this land will not adversely affect the ability of the remaining Green Belt land from serving its primary purposes.

Exceptional circumstances

In quantitative terms, land at The Bell is necessary to ensure that we have sufficient deliverable employment land to meet the need for employment land in the borough and achieve our economic objectives. We also need to ensure that we contribute to the employment land requirement for Greater Manchester that is established regionally.

In qualitative terms, land at The Bell is necessary because it is a high quality high profile greenfield site alongside the M6 Motorway with direct access to/from Junction 26. As such it is unique within the borough and it will raise the profile of Wigan as a place to invest in. It is attractive to the market and deliverable. It is appropriate for industrial and warehouse uses and accords with national planning policy for such uses. Furthermore, it will enable the delivery of significant highway infrastructure that is needed to serve the Heinz complex and Martland Park on an equivalent basis. This will relieve Pemberton town centre and Orrell Post local centre of significant levels of traffic, particularly heavy goods vehicles, as well as Standish town centre for Martland Park traffic accessing Junction 27. In linking through Martland Park to Robin Park it will also be complementary to proposals for new highway infrastructure in Wigan South Central. The site is also highly accessible by public transport: the A577 is a high frequency bus route between Wigan and Skelmersdale and is a designated 'quality bus corridor'. As such it is suitably located to meet some of the employment needs

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of areas most in need in West Lancashire. In the area immediately to the east as far as Robin Park, over one-third of the area is ranked within the 4% most deprived in England and the 2% most deprived against employment ‘indicators’. A further one-third of the area is ranked within the 8% most deprived against employment indicators.

The primary purposes of Green Belt

The site is located between the areas of Kitt Green and Orrell but these two areas are already joined together to the south. As such the site is surrounded by development on three sides (over 85% of the total boundary) with open land and Green Belt only along a short boundary to the north. As such development at The Bell will not alter the outer urban boundary of Wigan, will not constitute urban sprawl and will not bring the conurbations of Greater Manchester and Merseyside closer together. Kitt Green and Orrell are both part of Wigan. Nevertheless as far as the site is concerned they are separated by the M6 motorway and would continue to function as two separate entities regardless of development, divided by the motorway. The Green Belt land at the Bell is ‘an inlet’ within the urban area of Wigan. Its development would therefore not encroach on neighbouring towns. The land at The Bell is not 'best and most versatile' agricultural land; has no particular landscape value, most having been lost as a result of the existing development; has no particular ecological value; provides no opportunities for sport and recreation (which can be enhanced through the development); and provides little access to the countryside. The land at The Bell does not help preserve the setting and special character of an historic town. All appropriate employment sites outside of the Green Belt have been considered in bringing forward our proposals, including sites in neighbouring districts. We cannot meet all of our employment land needs on recycled and other urban land or other land outside the Green Belt, both within the borough and in neighbouring districts.

9.67 We have considered whether it would be appropriate to designate new Green Belt in the borough to replace 'The Bell'. But we have concluded that no site outside of the Green Belt should be designated.

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9.68 Our sustainability appraisal work shows that our preferred approach would have very positive impacts on economic and social objectives and would also help deliver infrastructure improvements that would relieve congestion along major routes through town centres. The full results to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.69 Delivery of these policy principles is dependent on an effective partnership particularly with landowners, the local community, businesses and government agencies. Key however, will be the new Wigan Regeneration Agency which will seek to maximise funding opportunities and target spending to deliver the highway infrastructure.

9.70 The masterplan required will be developed through a supplementary planning document unless otherwise secured.

9.71 Delivery of these spatial policy principles would enable us to achieve a number of our strategic objectives, most notably objectives HR1 for 'health and recreation', CD1 for 'community development and involvement', EE1 for 'economy and employment' and A1, A4 and A5 for 'accessibility' (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

The Bell, Lamberhead Green

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9.72 Proposed changes to the proposals map: The proposed key strategic site at 'The Bell', Lamberhead Green and amendment to the Green Belt boundary are shown on the map on the previous page. The area to the south-east of the site is being brought forward as playing fields for the new high school.

Question 10

Do you think that 'The Bell, Lamberhead Green' should be one of our key strategic sites? Why, and if not, which site should we propose instead?

South of Hindley spatial policy principles

Policy SP 5

The spatial policy for South of Hindley should:

Designate the area for a sustainable extension of Hindley comprising new housing, new employment opportunities and new and improved open space, subject to an agreed masterplan and delivery of a southern relief road for Hindley as part of a strategic east-west link road between Wigan and Leigh. Ensure that the new road becomes the route of choice for most east-west travel in Hindley and that capacity 'released' on the A577 through Hindley is 'captured' for the benefit of bus travel, walking and cycling. Enhance and conserve Leyland Park in an attractive residential setting. Maintain and enhance the provision of sports pitches and provide play space and allotments. Ensure good physical and visual links into the adjacent Greenheart Regional Park to the south, particularly for walking, cycling and horse-riding and safeguard, enhance and provide links to the proposed National Cycle Network route 55 which runs through the site. Ensure good accessibility to and through the development for bus services, walking and cycling, notably to Hindley town centre.

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9.73 Development of this area will enable the delivery of significant highway infrastructure needed to link the east and west of the borough and take a significant amount of traffic out of the heart of Hindley. It will not achieve this in isolation but as part of our overall core strategy for the borough.

9.74 Our key objective is to make the area more attractive for investment in jobs - better quality jobs. To achieve this we need to provide better quality sites and improve accessibility by all means, including for commercial traffic and the private car. To help deliver this we need residential land values on a large part of the site. We also need to meet the need for new housing.

9.75 As such we propose that around 50% of the area will be developed for housing - our preference is for the central and western areas; around 25% for employment development - our preference is for the eastern area close to Leigh Road; and around 20-25% open space provision, including the conservation and enhancement of Leyland Park. The total site area is 113 hectares.

9.76 Development of this area will help make Hindley a more 'sustainable community' in terms of housing, jobs, accessibility and the environment. It will help sustain Hindley town centre and other services and facilities in the town, including the proposed replacement high school at Borsdane Avenue. It will remove through traffic from the town. It will tackle dereliction and likely contamination at Forshaw's Tip, Hall Lane Farm and elsewhere. It will improve the interface between the urban area and the countryside. It will integrate Hindley with the emerging Greenheart Regional Park, which is immediately adjacent.

9.77 Our sustainability appraisal work shows that our preferred approach would improve accessibility, tackle worklessness, enhance the environmental and recreational quality of the area and contribute significantly to housing objectives. There could be pressures on primary and secondary school places in the local area and might be some adverse impacts on wildlife. The full results to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.78 Delivery of these policy principles is dependent on an effective partnership particularly with landowners, the local community and government agencies. Key however will be the new Wigan Regeneration Agency which will seek to maximise funding opportunities and target spending to deliver the highway infrastructure.

9.79 The masterplan required will be developed through a supplementary planning document unless otherwise secured.

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9.80 Delivery of these spatial policy principles would enable us to achieve a number of our strategic objectives but most notably objectives HR1 for 'health and recreation', CD1 for 'community development and involvement', EE1 for 'economy and employment', H1 for 'housing', A1, A4 and A5 for 'accessibility', BEL1 for 'landscapes' and WHS2 for 'wildlife habitats and species' (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

9.81 Proposed changes to the proposals map: The proposed key strategic site at 'South of Hindley' and the corresponding deletion of the safeguarded land designation are shown on the map below.

South of Hindley

Question 11

Do you think that 'South of Hindley' should be one of our key strategic sites? Why, and if not, which site should we propose instead?

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Northleigh spatial policy principles

Policy SP 6

The spatial policy for Northleigh should:

Designate the area for a sustainable extension of Leigh comprising new housing, new employment opportunities and new and improved open space, subject to an agreed masterplan and delivery of a link road from the A579 Atherleigh Way to the A578 Leigh Road as part of a strategic east-west link road between Wigan and Leigh. Maintain and enhance the provision of sports pitches and provide play space and allotments. Maintain open land in the south-east of the area around Westleigh Brook and ensure that surface water run-off into the brook is not increased as a result of the development. Ensure good accessibility to the development for bus services Ensure good physical links for walking, cycling and, as appropriate, horse-riding within the area and to/from Hindley Green, Westleigh (various), the proposed 'Rushes' Country Park (formerly Bickershaw Colliery north, within the emerging Greenheart Regional Park) and the emerging Gibfield country park at Atherton, including safeguarding and enhancing the proposed National Cycle Network route 55 which runs through the site. Ensure that any protected species in the area are safeguarded in line with statutory requirements.

9.82 A large part of this area is designated for reclamation and renewal in the current Unitary Development Plan and can be brought forward for development under that policy. However areas of land to the east are currently safeguarded for future development and need to be reallocated in this core strategy.

9.83 Development of this area will enable the delivery of significant highway infrastructure needed to link the east and west of the borough and take significant levels of traffic out of Westleigh and Hindley Green. It will not achieve this in isolation but as part of the overall core strategy for the borough.

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9.84 Our key objective is to make the area more attractive for investment in jobs - better quality jobs. To achieve this we need to provide better quality sites and improve accessibility by all means, including for commercial traffic and the private car. To help deliver this we need residential land values on a large part of the site. We also need to meet the need for new housing.

9.85 As such around 50% of the area will be developed for housing; around 15% for employment development to the north of the site; and around 35% open space provision, including the maintenance and enhancement of open land around Westleigh Brook / Nel Pan Lane. The total site area is 59 hectares.

9.86 Development of this area will help make Leigh and Hindley more 'sustainable communities' in terms of housing, jobs, accessibility and the environment; help sustain services and facilities in both towns, including the proposed expansion of Westleigh High School; remove traffic from communities; and tackle extensive dereliction and known contamination on the site. It will consolidate the urban area and improve links to the countryside, including the proposed 'Rushes' Country Park a short distance across Leigh Road to the south-west, a gateway location for the emerging Greenheart Regional Park.

9.87 Our sustainability appraisal work shows that our preferred approach would improve accessibility, tackle worklessness, enhance the environmental and recreational quality of the area and contribute significantly to housing objectives. However, surface water, drainage and ground issues could be a significant constraint / cost to development and there could be pressures on primary and secondary school places in the local area. The full results to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.88 Delivery of these policy principles is dependent on an effective partnership particularly with landowners, the local community and government agencies. Key however, will be the new Wigan Regeneration Agency which will seek to maximise funding opportunities and target spending to deliver the highway infrastructure.

9.89 The masterplan required will be developed through a supplementary planning document unless otherwise secured.

9.90 Delivery of these spatial policy principles would enable us to achieve a number of our strategic objectives, most notably objectives HR1 for 'health and recreation', CD1 for 'community development and involvement', EE1 for 'economy and employment', H1 for 'housing', A1, A4 and

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A5 for 'accessibility', BEL1 for 'landscapes' and WHS2 for 'wildlife habitats and species' (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

9.91 Proposed changes to the proposals map: The proposed key strategic site at 'Northleigh' and the deletion of the overlapping safeguarded land designation are shown on the map below.

Northleigh

Question 12

Do you think that 'Northleigh' should be one of our key strategic sites? Why, and if not, which site should we propose instead?

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Leigh Central spatial policy principles

Policy SP 7

The spatial policy for Leigh Central should:

Ensure that the town centre retains its role as the main town centre within the east of the borough by maintaining and enhancing its range of retail services in a strong retail core (the Principal Shopping Area - see development management policy principles DM3) and viable secondary areas, focusing additional retail floorspace to serve the east of the borough foremost in the town centre (see policy CP6), developing a strong civic and cultural quarter around the town hall and capitalising on opportunities identified in the current Leigh town centre feasibility study. Ensure delivery of the 'Leigh Guided Busway' to better connect the town to the Manchester regional centre and Tyldesley and facilitate new and improved local bus services and interchange at Leigh bus station. Ensure that the highway infrastructure in Leigh Central does not unduly constrain the opportunities for development and regeneration that exist to the north of the town. Support a vibrant and varied evening economy, particularly in the King Street and Market Street areas. Maintain and enhance Leigh Sports Village as a flagship development for sport, recreation and education. Support the comprehensive development of the Primary Employment Area at 'Bridgewater' (current site reference: EM1A 7) and adjacent areas fronting St Helens Road and Ellesmere Street in a way that maximises the amount of new office and other employment accommodation that is provided, integrates it with surrounding areas including the town centre and enhances the canal corridor. Support the comprehensive development of remaining land at the 'Parsonage' Primary Employment Area (current site reference: EM1A 6) in a way that maximises the amount of new employment accommodation that is provided and secures a new road link from Atherleigh Way to Wigan Road. Support the development of the former Leigh East Amateur Rugby League Club site off Atherleigh Way for non-food, ‘bulky goods’ retail that is complimentary and well connected to the town centre.

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Ensure that the town centre, Leigh Sports Village, 'Bridgewater', 'Parsonage' including the retail park and superstore at Priestners Way and the 'Leigh East' retail site are well connected in terms of walking, cycling and public transport to ensure a coherent central Leigh area, and similarly good connections to Leigh Infirmary, Pennington Hall Park and Lilford Park and the emerging Greenheart Regional Park, notably at Pennington Flash Country Park and the proposed Rushes Country Park (formerly Bickershaw Colliery north). Promote the development of key town centre gateway sites that contribute to the regeneration of the area.

9.92 Our preferred approach for Leigh Central is consistent with national planning policy notably Planning Policy Statements 1 ‘Delivering Sustainable Development’; and 6 ‘Planning for Town Centres’; and Planning Policy Guidance notes 4 'Industry', 13 ‘Transport’ and 17 'Planning for Open Space, Sport and Recreation.

9.93 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1-7 and DP9; the spatial priorities policy RDF1; the retail and tourism policies W5-7; the 'living' policies L1 and L4; the transport policies RT1-3 and RT9; the environment policy EM1; and the Manchester city region policies MCR1 and MCR5.

9.94 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for 'ambitious communities', where opportunities exist within a local and regional economy that provides ease of access to jobs and services; 'living healthier', providing opportunities that improve quality of life; 'realising aspirations', where people of all ages are equipped with the right life skills and the qualifications employers need; and 'strong community' where communities are at the heart of all we do.

9.95 Leigh town centre is the main town centre within east of the borough but faces a high level of competition from regional and sub-regional centres including Manchester, Bolton, Wigan and Warrington. The Trafford Centre also attracts a high amount of expenditure from the east of the borough. In this context, it is important that Leigh remains resilient. Our Retail and Leisure Study (see Chapter 4) identifies that the town centre has improved in recent years with fewer vacant 'retail' units and a strong retail base compared to centres of an equivalent size elsewhere. However, it has a low level of leisure and culture provision when compared to other centres, namely cinema and restaurants.

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9.96 A town centre feasibility study is currently being prepared, which is looking at Leigh's ability to capitalise on the opportunities that exist around and close to the town centre, such as at 'Bridgewater' and 'Parsonage'. We will respond to this study in developing these policy principles into a draft policy for inclusion in the pre-submission Core Strategy, the final stage of full consultation (see Chapter 13).

9.97 Leigh is one of the largest towns in the country without a rail service. The proposed Leigh Guided Busway is an off-road bus route from Leigh via Tyldesley that connects to dedicated bus lanes from Ellenbrook in Salford to Manchester city centre. It would radically improve public transport services to and from the Manchester/Salford Regional Centre for Leigh and Tyldesley. It is part funded provisionally through the Regional Funding Allocation.

9.98 Leigh Sports Village is a major flagship regeneration scheme approximately 1.2 kilometres walk from the town centre. It includes a 12,000 capacity stadium; 'state of the art' accommodation for amateur sports clubs; a new sports centre and new accommodation for Wigan and Leigh College. It needs to be better accessed from the town centre without adversely affecting amenity. The former Leigh East amateur rugby league club’s site at Grasmere Street is part of the enabling development for the Leigh Sports Village development and has planning consent for a ‘bulky goods’ retail development. Its allocation is maintained.

9.99 The 'Bridgewater' site south of the canal is the former BICC works. Land between the site and St Helens Road is also potentially available for development, including the school which may relocate onto part of Leigh Sports Village. North of the canal much of the area is a former radiator factory, recently closed. The adjacent site at Ellesmere Street site is a former supermarket, now part in use for bingo. There has been planning permission for redevelopment of the remaining site for retail. The overall policy objective is to retain and enhance provision for employment uses, taking advantage of the canalside locations and proximity to the town centre and bus station. The opportunity should be taken to bridge the canal for walking and cycling.

9.100 The 'Parsonage' site includes a large modern food processing factory. To the south is a modern retail park with a superstore. To the north is another superstore off Priestners Way. Other than the factory the rest of the site is vacant. It is a former mill and colliery site and the policy objective again is to retain provision for employment uses, as far as possible. However, as part of the highway infrastructure needed in Leigh Central to ensure that it does not unduly

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constrain the opportunities for development and regeneration that exist to the north and north-west of the town, a new highway link is needed across the site from the A579 Atherleigh Way to the A578 Wigan Road, to bypass the Twist Lane/Firs Lane junction.

9.101 A big issue for Leigh Central is accessibility around it and to/from it from elsewhere, including other key local 'attractions' by means other than the car. A comprehensive transport strategy is needed to ensure that opportunities for public transport, walking and cycling are maximised as a result of development proposals and other initiatives.

9.102 Issues arising from stakeholder and community consultation were that Leigh should seek to compete with larger centres and out-of-town shopping destinations; that there is a shortage of culture and leisure services; and there is a lack of 'local distinctiveness'.

9.103 Our sustainability appraisal work shows that our preferred approach would help to strengthen the local economy, enhance the centre's appearance, improve accessibility and offer better opportunities for leisure and employment. Flood risk could be an issue for some areas and would need to be mitigated. The full results to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.104 An alternative option would be to not identify Leigh as the main centre serving the east of the borough and not promote the integration of opportunities in Leigh Central. Not promoting a strong retail core could mean that the town centre would become more fragmented. As such it would be less attractive and would not serve people as efficiently. Failing to effectively connect the town centre to sites elsewhere in Leigh Central would mean that these sites could be developed in isolation from the town centre and that development on these sites would deliver fewer benefits to the community.

9.105 Deliverability of these spatial policy principles is dependent on an effective partnership with a full range of stakeholders including government agencies, local agencies including town centre management, retailers and other businesses, landowners and developers. Key however will be the new Wigan Regeneration Agency which will seek to maximise funding opportunities and target spending to deliver opportunities in Leigh Central.

9.106 A number of our core policy principles have a direct bearing on Leigh Central. The area, or the town centre alone, may be subject to a masterplan developed through an Area Action Plan. Alternatively, masterplans for individual sites or the town centre could be developed through supplementary planning documents.

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9.107 Delivery of these spatial policy principles would enable us to achieve a number of our strategic objectives, most notably objectives RC1 and RC3 (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

Question 13

Do you think that our spatial policy principles for Leigh Central are right? Why?

Westleigh Canalside spatial policy principles

Policy SP 8

The spatial policy for Westleigh Canalside should:

Designate the area for a sustainable extension of Leigh comprising new housing and improved open space, subject to an agreed masterplan and delivery of a link road from the A579 Atherleigh Way (Leigh Sports Village junction) to the A578 Twist Lane / Wigan Lane and/or to Plank Lane at the Bickershaw South site (former Bickershaw Colliery). Ensure an appropriate 'frontage' to the canal capitalising also on open views across Pennington Flash Country Park in Green Belt to the south. Ensure good accessibility to and through the development for bus services, walking and cycling, and good physical links for walking, cycling and, as appropriate, horse-riding into the Greenheart Regional Park (Pennington Flash Country Park across the canal southwards and the proposed Rushes Country Park westwards). Provide new and improved open space including play space and allotments as appropriate.

9.108 Development of this site should enable the delivery of significant highway infrastructure needed to relieve the junctions of the A578 Twist Lane with the A579 Atherleigh Way and with the A578 Wigan Road / Firs Lane. These junctions are significant constraints on regeneration opportunities in Leigh, Hindley and Atherton.

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9.109 Our key objective is to make the area more attractive for investment in jobs - better quality jobs. To achieve this we need to provide better quality sites and improve accessibility by all means, including for commercial traffic and the private car. To help pay for this we need residential land values on this site. We also need to meet the need for new housing. The total site area is 19 hectares.

9.110 As such we propose that most of this site will be developed for housing, with the balance retained for open space provision.

9.111 Development of this site will help make Leigh a more 'sustainable community' in terms of housing, accessibility and the environment and it will enable the creation of jobs elsewhere in the east/centre of the borough. It will remove traffic from key 'bottlenecks' in the town. It will improve the interface between the urban area and the countryside. It will benefit from the proposals for the Greenheart Regional Park, which is immediately adjacent.

9.112 Our sustainability appraisal work shows that our preferred approach would offer the opportunity to enhance environmental quality and improve accessibility and would contribute to housing objectives. However, there are potentially negative impacts on biodiversity and flooding and pressures on primary and secondary school places in the local area. The full results to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.113 Delivery of these policy principles is dependent on an effective partnership particularly with landowners, the local community and government agencies. Key however, will be the new Wigan Regeneration Agency which will seek to maximise funding opportunities and target spending to deliver the highway infrastructure.

9.114 The masterplan required will be developed through a supplementary planning document unless otherwise secured.

9.115 Delivery of these spatial policy principles would enable us to achieve a number of our strategic objectives, most notably objectives HR1 for 'health and recreation', CD1 for 'community development and involvement', H1 for 'housing', A4 and A5 for 'accessibility', BEL1 for 'landscapes' and WHS2 for 'wildlife habitats and species' (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

9.116 Proposed changes to the proposals map: The proposed key strategic site at 'Westleigh Canalside' is shown on the map below.

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Westleigh Canalside

Question 14

Do you think that 'Westleigh Canalside' should be one of our key strategic sites? Why, and if not, which site should we propose instead?

East of Atherton spatial policy principles

Policy SP 9

The policy for East of Atherton should:

Designate the area for the provision of housing to the north off the A579 Bolton Road, employment development to the south as an extension of Chanters Industrial Estate and improved open space in the centre, subject to an agreed masterplan and delivery of a link road from Bolton Road to Tyldesley Old Road, with a connecting link from Shakerley, and junction improvements with the A577 Tyldesley Road.

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Release the site for housing only when additional capacity at peak times on rail services from Atherton station to Manchester is committed. Ensure the open space provision meets local needs, including play space and allotments. Ensure that the link road is suitable for the provision of bus services. Ensure good physical links for walking and cycling within the area and to/from Atherton (including the railway station), Tyldesley, Hindsford and Shakerley.

9.117 Our key objectives in this area are to develop relatively high density, high quality sustainable housing in close proximity to Atherton station and high frequency bus services on Bolton Road, to encourage sustainable commuting, and provide additional land for lower amenity employment uses to expand the highly successful Chanters Industrial Estate. This development will also enable the improvement of open space provision in the area, between the two development sites and along the Hindsford Brook corridor. The total site area is 45 hectares.

9.118 Development of this area will enable the delivery of a new link road from the A579 Bolton Road to the A577 Tyldesley Road via Tyldesley Old Road. This will divert a considerable amount of traffic from the fringes of Atherton town centre and provide much improved access to the existing industrial estate. There should also be a connecting road from Shakerley that would create a second way into and out of the estate, helping its regeneration.

9.119 Delivery of additional capacity at peak times on rail services from Atherton station to Manchester is necessary if people are to be genuinely able to take advantage of the proximity of the station for commuting to work.

9.120 Development of this area will help make Atherton and Tyldesley more ‘sustainable communities’ in terms of housing, jobs, accessibility and the environment. It will support commuting by rail to jobs in the Manchester regional centre. It will tackle dereliction and potential contamination on the site and remedy problems with previous land reclamation measures. It will improve the quality of the environment and open space. It will provide local job opportunities in close proximity to deprived communities.

9.121 Our sustainability appraisal work shows that our preferred approach would have a positive impact on economic and social objectives. The site is excellently located for public transport and could help to provide employment to areas of need. However, there could be

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pressure on primary and secondary school places in the local area and there may be some adverse impacts on landscape. The full results to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.122 Delivery of these policy principles is dependent on an effective partnership particularly with landowners, the local community and, potentially, government agencies.

9.123 The masterplan required will be developed through a supplementary planning document unless otherwise secured.

9.124 Delivery of these spatial policy principles would enable us to achieve a number of our strategic objectives, most notably objectives HR1 for 'health and recreation', CD1 for 'community development and involvement', EE1 for 'economy and employment', H1 for 'housing', A1, A4 and A5 for 'accessibility' and WHS2 for 'wildlife habitats and species' (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

9.125 Proposed changes to the proposals map: The proposed key strategic site at 'East of Atherton' and the deletion of the safeguarded land designation are shown on the map below.

East of Atherton

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Question 15

Do you think that 'East of Atherton' should be one of our key strategic sites? Why, and if not, which site should we propose instead?

Garrett Hall, Astley spatial policy principles

Policy SP 10

The spatial policy for Garrett Hall should:

Designate the area for the provision of housing to the north of Garrett Lane in addition to the existing employment allocation south of Garrett Lane and improved open space including in the vicinity of Honksford Brook, subject to an agreed masterplan and delivery of a link road from the A577 Mosley Common Road to the A572 Chaddock Lane. Release the site for housing only on provision of the Leigh Guided Busway (section to Ellenbrook). Secure a financial contribution to the cost of the Leigh Guided Busway which runs along the northern edge of the site and the provision of a stop in the north eastern corner of the site. Ensure provision in the layout for pedestrian and cycle access to the guided busway stop and the proposed National Cycle Network route 55 adjacent to the busway. Ensure that the link road is suitable for the provision of bus services. Ensure good physical links for walking and cycling within the area and to/from surrounding areas and Tyldesley town centre stop.

9.126 A large part of this area, to the south of Garrett Lane, is designated as part of a Primary Employment Area in the current Unitary Development Plan. It also has outline planning permission for employment development. However the land to the north of Garrett Lane is currently safeguarded for future development and needs to be reallocated in this core strategy. The total site area is 42 hectares.

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9.127 Our key objectives are to develop high quality sustainable housing in the northern part of the site, to help facilitate and take advantage of the proposed Leigh Guided Busway for commuting into the Manchester regional centre, and to achieve the delivery of high quality employment opportunities on the southern part of the site, which is close to the A580 East Lancashire Road, a short distance from the M60 Manchester orbital motorway.

9.128 Development of this area will help make Tyldesley, Astley and Mosley Common more ‘sustainable communities’ in terms of housing, jobs and accessibility. There are particular opportunities for the allocation of the northern part of this site for housing. The regional centre of Manchester / Salford is forecast for a further major expansion in job opportunities. One known opportunity is the development of the Media City at Salford Quays. Garrett Hall has the potential to meet some of the housing demand arising from this and other developments, and enable people to commute by public transport. As such provision of the Leigh Guided Busway to Ellenbrook will be necessary if people are to be able to commute to the regional centre easily by high quality public transport. The southern part of the site is already allocated for the development of a business park and has outline planning permission.

9.129 Our sustainability appraisal work shows that development of the site could help to tackle worklessness, improve accessibility, contribute significantly to housing targets and enhance the quality of and access to open space. However, there are potential issues with flooding on parts of the site, water supply, landscape character and primary and secondary school places in the local area. The full results to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.130 Delivery of these policy principles is dependent on an effective partnership particularly with the landowner, the local community and, potentially, government agencies.

9.131 The masterplan required will be developed through a supplementary planning document unless otherwise secured.

9.132 Delivery of these spatial policy principles would enable us to achieve a number of our strategic objectives, most notably objectives HR1 for 'health and recreation', EE1 for 'economy and employment', H1 for 'housing', and A1 and A5 for 'accessibility' (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

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9.133 Proposed changes to the proposals map: The proposed key strategic site at 'Garrett Hall', the corresponding deletion of safeguarded land and the amended Primary Employment Area boundary are shown on the map below.

Key Strategic Site and Primary Employment Area at Garrett Hall

Question 16

Do you think that 'Garrett Hall, Astley' should be one of our key strategic sites? Why, and if not, which site should we propose instead?

Ashton-in-Makerfield spatial policy principles

Policy SP 11

The spatial policy for Ashton-in-Makerfield should:

Capitalise on opportunities identified and/or confirmed in the Ashton town centre feasibility study to enhance its vitality and viability.

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Enhance retail provision in the town centre utilising sites such as the former gasworks site and the market place. Support improved service provision in the town centre, through working with the health sector and establishing a contact point for council services. Designate a key strategic site at Landgate for a sustainable extension of Bryn and Landgate comprising new employment opportunities, new housing and enhanced open space, subject to an agreed masterplan and delivery of the northern section of a relief road for Ashton, from Lockett Road to the A49 Wigan Road / Junction 25 of the M6 Motorway. Re-designate land at Stubshaw Cross as a key strategic site for a sustainable extension of Ashton principally comprising new employment opportunities and a new high school with sports fields to replace Cansfield High School and Byrchall High School, subject to an agreed masterplan and delivery of the southern section of a relief road for Ashton, from the A58 Bolton Road to Bryn via Lockett Road. Ensure that the new road from the A58 Bolton Road to A49 Wigan Road/Junction 25 becomes the route of choice for traffic from Platt Bridge / Abram and, through traffic management measures, much of Ashton itself seeking access to the M6 motorway southbound, and that capacity 'released' in Ashton town centre is 'captured' for the benefit of bus travel and interchange, walking and cycling. Enhance facilities and services at Bryn railway station and support the provision of improved bus services between Ashton and Newton-le-Willows and Warrington, including rail services. Ensure that the town centre, Jubilee Park, Bryn local centre and railway station, schools, proposed key strategic sites at Landgate and Stubshaw Cross and the emerging Greenheart Regional Park notably at the Three Sisters recreation area, are well connected for walking, cycling and bus services. Support other measures to reduce the impact of traffic on the town centre. Retain and enhance the sports centre at the Cansfield High School site and release the remainder primarily for housing. Release the Byrchall High School site for employment development, principally offices.

9.134 Our preferred approach for Ashton-in-Makerfield is consistent with national planning policy notably Planning Policy Statements 1 ‘Delivering Sustainable Development’; and 6 ‘Planning for Town Centres’; and Planning Policy Guidance notes 4 'Industry' and 13 ‘Transport’.

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9.135 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1-7 and DP9; the spatial priorities policy RDF1; the work, retail and tourism policies W1, W3 and W5; the 'living' policies L1 and L4; the transport policies RT2, RT3 and RT9; and the Manchester city region policies MCR1 and MCR5.

9.136 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for 'ambitious communities', where opportunities exist within a local and regional economy that provides ease of access to jobs and services; 'living healthier', providing opportunities that improve quality of life; 'realising aspirations', where people of all ages are equipped with the right life skills and the qualifications employers need; and 'strong community' where communities are at the heart of all we do.

9.137 Our Retail and Leisure Study (see Chapter 4) shows that Ashton town centre has a larger amount of floorspace, more retail outlets and more multiple retailers than all town centres in the borough except Wigan and Leigh, but has a low share of food retail expenditure. Food shopping patterns are not sustainable, as Ashton and Bryn residents tend to travel outside the township to Golborne, Robin Park and Marus Bridge for food shopping. A town centre feasibility study is currently being prepared, which is looking at opportunities to improve the town centre, including enhancing food retail provision. We will respond to this study in developing these policy principles into a draft policy for inclusion in the pre-submission Core Strategy, the final stage of full consultation (see chapter 13).

9.138 Ashton has specific opportunities for development at Landgate and Stubshaw Cross, not least arising from its strategic location alongside the M6 motorway. We need to be able to capitalise on this location. However, the motorway and A580 contribute significantly to the detrimental levels of traffic in the town centre, particularly along Gerard Street.

9.139 The traffic situation is not helped by the fact that Junction 24, to the immediate west of the town, allows traffic to join going to, and leave `from, the 'north' only, whereas Junction 25 to the north of the town has the opposite arrangement. Therefore traffic has to go through the town centre to go north on the motorway and to go south either has to negotiate the town centre to get to Junction 23 or go north through much of the town to get to Junction 25. Development at Landgate and Stubshaw Cross needs to help resolve these issues in terms of improving access to Junction 25 in preference to Junction 23 for journeys to and from the south on the motorway.

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9.140 The Stubshaw Cross site has been allocated as an extension to the South Lancashire Industrial Estate since January 1996. The site area is 33 hectares. Latterly there has been genuine interest in bringing a large part of the site forward as a first phase. However an improved link to Junction 25 of the M6 is needed to make this work. This can be achieved in part through accessing the site from the A58 Bolton Road near to Lily Farm and continuing the road through to Lockett Road within the South Lancashire Industrial Estate. Thereafter, a bypass of Bryn Cross is needed to connect with the A49 Wigan Road, or a new bridge is needed over the railway line, either way linking into the proposed key strategic site at Landgate.

9.141 We propose that the site will principally be developed for employment uses (industry and warehousing). It is needed to help meet the borough's employment land needs. However a replacement high school and associated sports fields would be appropriate at the southern end, with some limited housing in the vicinity of the school site provided it will not additionally constrain the employment development.

9.142 The Landgate site is close to Junction 25 of the M6 Motorway and commercially is potentially our best located site for employment development outside of the Green Belt. However, we need to facilitate the improved access to Junction 25 for the Stubshaw Cross site, the existing industrial estate and traffic on the A58. With the objectives of maximising the employment land provision, some housing will be acceptable to help fund the transport infrastructure needed. The site area is 45 hectares. Development of this site would also make the existing industrial estate more viable for modern industrial needs.

9.143 In order to further tackle traffic congestion we need to enhance people's travel choices. Bryn railway station is to the north of the town. However it is on a high frequency bus route. Uniquely for the borough Bryn has no direct rail service to Manchester but there is a direct service to St Helens and Liverpool. Better facilities and services are needed to really take advantage of the station. In addition, improvements to bus interchange and terminus facilities in Ashton town centre are necessary together with new bus links to Warrington and Newton-le-Willows, including rail services, and an effective network of local walking and cycling routes are needed.

9.144 A new school site is needed to replace the existing Cansfield and Byrchall High Schools. The preferred location is part of the Stubshaw Cross site. The Cansfield site is shared with Ashton Leisure Centre which would be retained. The Byrchall site is adjacent to a highly successful office park in St Helens district. Consequently it would be appropriate to bring the school site forward for office uses.

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9.145 Issues arising from stakeholder and community consultation were that Ashton is in decline and has a shortfall in food retailing. There is also a large body of people who are against development.

9.146 Our sustainability appraisal work shows that there would be benefits in terms of reduced congestion, improved accessibility and air quality, more employment and a stronger town centre. There would be a loss of some agricultural land but it is not the ‘best and most versatile’ and there will be minor impacts on landscape character and biodiversity. There are also constraints in energy capacity. The full results of our sustainability appraisal to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

9.147 An alternative option would be to not focus development on Ashton. This would be likely to result in fewer opportunities for employment in the town and further decline in the town centre, and would have little impact on existing high levels of traffic congestion.

9.148 Deliverability of these spatial policy principles is dependent on an effective partnership with a full range of stakeholders including government agencies, local agencies including town centre management, retailers and other businesses, landowners and developers. Key however, will be the new Wigan Regeneration Agency which will seek to maximise funding opportunities and target spending to deliver opportunities in Ashton.

9.149 A number of our core policy principles have a direct bearing on Ashton. The township, or the town centre alone, may be subject to a masterplan developed through an Area Action Plan. Alternatively, masterplans for the key strategic site or the town centre could be developed through supplementary planning documents.

9.150 Delivery of these spatial policy principles would enable us to achieve a number of our strategic objectives, most notably objectives HR1 for 'health and recreation', CD1 for 'community development and involvement', EL1 and EL2 for 'education and learning', EE1 for 'economy and employment', H1 for 'housing', A1, A4 and A5 for 'accessibility' and WHS2 for 'wildlife habitats and species' (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

9.151 The first map below illustrates the designation of a Key Strategic Site and the deletion of safeguarded land at Landgate. The second illustrates the designation of a Key Strategic Site at Stubshaw Cross and an amendment to the boundary of the South Lancashire Industrial Estate Primary Employment Area.

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Landgate

Stubshaw Cross

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Question 17

Do you think that our spatial policy principles for Ashton-in-Makerfield are right? Why?

Question 18

Do you think that Landgate should be one of our Key Strategic Sites? Why, and if not, which site should we proposed instead?

Question 19

Do you think that Stubshaw Cross should be one of our Key Strategic Sites? Why, and if not, which site should we proposed instead?

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TEN Our preferred core policies

10.1 There are 16 core policy principles covering the full range of social, economic and environmental 'topics' relevant to 'spatial planning'. Each have a bearing on all 3 matters but we start with those that are social matters, move onto those that are principally economic, and conclude with those that are principally environmental. Each 'policy' should not be read in isolation but together as a set of core policy principles. They should also be read in the context of the spatial policy principles which set out the overall 'direction' for the borough.

10.2 All other policies and proposals in the Wigan Local Development Framework will have to conform with the 'spatial' and 'core' policy principles.

Health and recreation core policy principles

Policy CP 1

Our core policy for health and recreation should:

Promote increased opportunities for recreation and leisure particularly where there are deficits against locally derived standards, focusing notably on ‘Greenheart’ and related opportunities through neighbourhood planning. Encourage walking and cycling as part of ‘everyday life’ to improve health and well-being, through off-road infrastructure as part of the ‘Greenheart Regional Park’ and through other green infrastructure provision, improving street design and maintaining and enhancing local centres and services. Reduce health inequalities and improve accessibility to primary healthcare facilities particularly in central Wigan, Ince, Platt Bridge, Hag Fold in Atherton, central Leigh and Higher Folds near Leigh, by working with the health sector to deliver primary care facilities. Support the delivery of high quality acute healthcare provision in Wigan and Leigh; and improve access to provision in Wrightington, Manchester, Liverpool and Bolton for patients and visitors.

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Require Health Impact Assessments for major developments. These provide information on how a particular project or proposal may potentially affect the health of people. Ensure that new development enhances our town centres and the places where people live by contributing to a high quality and attractive environment and forming a dynamic mix of uses, in order to have a positive bearing on health and well-being. Maintain and enhance the provision of open spaces in urban areas that are important for amenity, recreation and biodiversity by developing our evidence base further, working with appropriate stakeholders and setting standards for provision. State that development on open space or on land in use or most recently in use for sport and recreation will be determined in accordance with national planning policy as applicable. Enhance the quality and, where appropriate, quantity of open space, sport and recreation provision in accordance with the standards throughout the borough but, specifically, open space in Appley Bridge, Winstanley in Wigan and Mosley Common near Tyldesley; and playing pitches in Leigh, Golborne, Ashton-in-Makerfield and Orrell. Require that sport and recreation facilities are integral to the Schools for the Future programme and that facilities are replaced or improved and made available for community use, in accordance with the standards. Enhance the borough’s 3 principal parks at Haigh Hall Country Park, Mesnes Park and Pennington Flash and the 15 township parks. Remedy gaps in play provision throughout the borough but, particularly in Golborne and Lowton. Support healthier lifestyles and healthier eating through protecting allotment provision and providing new allotments in association with substantial new housing development and elsewhere where a need is identified, such as in Orrell and Ashton-in-Makerfield. Enhance the development of the borough’s cultural heritage through the development of cultural facilities and attractions particularly in town centres and at Wigan Pier Quarter.

10.3 By combining health and recreation through facilitating and promoting healthier lifestyles, our preferred approach is consistent with national planning policy, notably Planning Policy Statement 1: ‘Delivering Sustainable Development’ and Planning Policy Guidance notes 17: 'Planning for Open Space, Sport and Recreation' and 13: 'Transport'.

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10.4 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principle policy DP2 and policy L1 'Health, Sport, Recreation, Cultural and Education Services Provision'.

10.5 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priority for 'living healthier and longer'.

10.6 Health and recreation have been combined in our preferred core policy principles to reflect our focus on healthier lifestyles. It has a high profile because it is arguably the major social issue in the borough, with considerable implications also for the economy. Health deprivation and disability are major issues for Wigan Borough. Over one-quarter of people live in areas that are amongst the 10% most deprived in England for health and disability (2007 indices of deprivation), and no part of the borough is amongst the 40% least deprived. Tackling health deprivation head-on is therefore one of our main priorities and spatial planning needs to contribute fully. The location and design of development can facilitate walking and cycling as part of everyday life; access to recreational facilities can also enable people to lead healthier lives; and attractive high quality environments can help people to feel better about where they live. But clearly there is also a need to ensure good access to health services.

10.7 Male and female life expectancy for the borough is amongst the 20% lowest nationally. Furthermore, there is a 7 year gap in life expectancy between our most deprived and least deprived neighbourhoods. Over one-fifth of the population is obese and over one-quarter of all adults are smokers. There are clear correlations between obesity, those who do not eat fruit and vegetables daily and deprivation. Two-fifths of the population do not take part in even low level physical activities such was walking, with activity levels lower amongst older people and those living in deprived neighbourhoods.

10.8 Our evidence base tells us that there is a need for better quality parks, play spaces, open space and sport and recreation provision and that the built environment needs to be designed in a way that encourages and facilitates travelling on foot or by cycle.

10.9 We have worked closely with key local stakeholders in the provision of health care and education and open space, sport and recreation. The Primary Care Trust is delivering improvements to primary healthcare provision throughout the borough. Remaining priorities are identified amongst the core policy principles. The Wigan Leisure and Culture Trust has produced a parks and greenspaces strategy, which provides a strategy for 3 principal parks and 15 township parks and greenspaces across the borough. Significant potential opportunities for

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improved sport and leisure facilities exist through the 'Schools for the Future' programme. Our evidence base on health and recreation is summarised in more detail in our Topic Paper 1 'Health and Recreation' (June 2009).

10.10 Community engagement has identified that accessibility to emergency facilities and doctor’s surgeries is a problem in parts of the borough.

10.11 Our sustainability appraisal work shows that our preferred approach should have a positive impact across a wide range of factors, with these impacts getting more pronounced over time. The full results to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

10.12 An option that identified areas with less health deprivation would be less likely to deliver the desired outcomes. Not identifying areas where there are deficiencies in certain types of open space would make it more likely that the current shortfalls would persist.

10.13 A number of our other preferred core policy principles are particularly closely related to 'health and recreation', notably those on education and learning, accessibility, design, strategic landscape and green infrastructure, design and wildlife habitats and species.

10.14 Delivery of these core policy principles is dependent on partnership working with the health, leisure and education sectors. A strong development management policy is needed to establish firm standards for the quantity and quality of open space, sport and recreation provision (See Chapter 11). Infrastructure such as play equipment and allotments can be delivered through developer contributions.

10.15 Delivery of these core policy principles would enable us to achieve our strategic objectives HR1 and HR2 for 'health and recreation' (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

Question 20

Do you think that our core policy principles for health and recreation are right? Why?

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Strong, safe and attractive communities core policy principles

Policy CP 2

Our core policy for strong, safe and attractive communities should:

Promote sustainable ‘regeneration’ in-line with the preferred spatial policy to bring maximum benefit to our communities; helping to improve the quality of life, raise aspirations, increase opportunities for people to fulfil their ambitions and mitigate and adapt to climate change. Take account of the needs and wishes of communities, particularly vulnerable, disadvantaged and excluded groups such as elderly people, young people, immigrants and people with disabilities. Ensure that all sectors of the community have access to good quality, local facilities for the purpose of meeting, worship, youth activities, health care, education, leisure and other community services and activities. Links should be made to existing and planned facilities including schools, libraries and health centres. Use development as a mechanism to tackle dereliction and drive improvements in environmental quality and public amenity; in ways that will help to improve well-being, foster community pride and raise aspirations. Require all development to implement appropriate measures to reduce the actual and perceived scope for crime and anti-social behaviour, using secured by design principles as a framework, whilst acknowledging the need for open, accessible and vibrant communities that promote capable guardianship. Ensure that development is well designed and planned so that it does not have an undue negative impact on amenity and quality of life. Require ‘major’ developments to contribute towards community infrastructure provision where this is needed to ensure sustainable growth.

10.16 Our preferred approach on stronger, safer and more attractive communities is consistent with Planning Policy Statement 1: 'Delivering Sustainable Development', the Sustainable Communities Act 2007 and Section 17 of the Crime and Disorder Act (1998).

10.17 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principle policies DP2, DP5 and DP7.

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10.18 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priority for a 'strong community', where people support and care for the well-being of others and the future; a community with a strong sense of what it is capable of achieving; and where there are opportunities to get involved.

10.19 The scale of economic change in Wigan borough during the 1970s and 1980s in particular, with the end of mining and the loss of most heavy industry, had a profound impact on local communities. Their very existence as towns and villages was fundamentally tied to the original growth of those industries. People had to find others sources of work. Those that were unable were left jobless and dependent on benefits. Deprivation has been widespread.

10.20 The environment was already scarred, by mining in particular. Much of this legacy and that of the resulting decline in mining and heavy industry has been tackled but poor quality environments and areas of dereliction remain.

10.21 Meanwhile, a lot of residential development in particular has not contributed positively to a sense of community. New development has often not been physically well connected to existing communities. Development, including housing and community services and facilities, is far more dispersed and often only easily accessible by car. Relatively little attention has been paid to the implications of layout and design on the safety of people and property.

10.22 Our economic issues are common to much of northern England and these development characteristics are common to most of the country. Nevertheless, it is important to recognise their impacts locally. Our evidence also tells us that cleanliness, a feeling of safety, environmental quality and social cohesion are persistently identified as key issues in communities, particularly in deprived areas. Despite this, Wigan Borough retains a strong sense of community, particularly within its component townships, and crime is relatively low compared to the rest of Greater Manchester.

10.23 Nevertheless we need to promote development that seeks to reduce social inequalities, delivers safe, attractive and healthy places to live and promotes social cohesion, diversity and equality of opportunity.

10.24 Our preferred spatial option will focus regeneration activities into the ‘east-west core’ of the borough where deprivation is deep and widespread.

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10.25 It is vital that the benefits of development are maximised and can be shared by everyone, which means improving accessibility, promoting equality and embracing diversity. Nobody should be disadvantaged because of their age, gender, class, religion, disability, sexuality, race or other social identity.

10.26 There is an identifiable ‘gap’ between disadvantaged areas in the borough and more affluent areas, and our evidence tells us that people living and born into these disadvantaged areas are more likely to suffer from poor health, worklessness, crime and a range of other issues; significantly affecting their well-being and chances in life.

10.27 The gap is not closing quickly enough, if at all, and inequalities are being passed down through generations. This means that some areas and some people will need more support, help and resources than others.

10.28 It is vital that the benefits of development are maximised and can be shared by everyone, which means improving accessibility, promoting equality, and embracing diversity. Nobody should be disadvantaged because of their age, gender, class, religion, disability, sexuality, race or other social identity.

10.29 Our evidence base on stronger, safer and more attractive communities is summarised in more detail in our Topic Paper 2 'Community safety and neighbourhood quality' and our Topic Paper 3 'Community development and involvement' (June 2009).

10.30 Consultation with the community and other stakeholders has confirmed the importance that people place upon safety, environmental quality and social cohesion.

10.31 Our sustainability appraisal work shows that our preferred approach has notable positive impacts against social objectives. The full results to date are set out in an accompanying report.

10.32 An alternative approach would have been to have considered community safety, neighbourhood quality, cohesion and other ‘community’ issues as part of several other core policy principles. However, as discussed above, these are key issues in the borough that warrant significant attention as part of a dedicated policy.

10.33 A number of our other preferred core policy principles are particularly closely related to 'stronger, safer and more attractive communities', notably those on 'health and recreation', 'retail and centres', 'accessibility' and 'design'.

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10.34 These core policy principles will be delivered through the appropriate management of development. Success will enable us to achieve our strategic objectives NQ1 for 'community safety and neighbourhood quality', and CD1-5 for 'community safety and neighbourhood quality' (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

Question 21

Do you think that our core policy principles for strong, safe and attractive communities are right? Why?

Education and learning core policy principles

Policy CP 3

The core policy for education and learning should:

Enable education and training provision in the borough to be transformed in ways that will motivate and inspire more children and adults to learn and become skilled and empowered to compete effectively for employment in a global market-place and achieve personal fulfilment. Help achieve this through supporting replacement secondary school provision in Wigan, Ince, Hindley, Tyldesley, Astley, Golborne and Lowton, Ashton-in-Makerfield, Orrell and Standish and Shevington. Help achieve this through supporting new vocational training centres for young people in Wigan and Atherton. Help achieve this through the substantial improvement and modernisation of other secondary and primary schools including in Wigan, Westleigh and Leigh. Help achieve this through supporting the modernisation and expansion of further and higher education provision including in central Wigan. Help achieve this through improving accessibility by public transport, walking and cycling to further and higher education provision, notably at Winstanley College and St John Rigby College both on the western fringe of the borough and to/from colleges in neighbouring districts that serve the borough.

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Help achieve this through more innovative and inclusive use of information and communications technology. Designate a site in the Almond Brook area for a replacement school for Standish and Shevington High Schools - see change to the proposals map. Seek developer contributions towards the funding of employment skills training, facilities and associated skills. Tackle worklessness through targeted training and support to achieve employment/re-employment. Promote the use of the built and natural environment for learning.

10.35 Our preferred approach on education and learning is consistent with national planning policy notably Planning Policy Statement 1: 'Delivering Sustainable Development' and Planning Policy Guidance 13 ‘Transport’.

10.36 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP2 and DP3; the economy policy W1; the education and public services policy L1; and the northern part of the Manchester city region policy MCR5.

10.37 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for 'ambitious communities', where opportunities exist for people to fulfil their ambitions; and 'realising aspirations', where people of all ages are equipped with the right life skills and the qualifications employers need to achieve their ambitions.

10.38 Wigan Borough has below national and regional averages in the percentage of pupils achieving 5 GCSEs A*-C, including English and Maths; 16-18 year olds not participating in education, employment, or training; and working age residents qualified to levels 2, 3, and 4. The borough also has a higher proportion of economically active people with no qualifications. Skills and qualification levels are low and the district ranks 297th out of 408 districts nationally, where 408th is the worst (Local Futures Audit 2005). Parts of north-west Wigan and Hag Fold in Atherton are amongst the 3% most deprived in England for education, skills and training. In addition, over 18% of people of working age claim out-of-work benefits, compared to 17.5% regionally and 14.2% nationally, for which low skill levels and poor qualifications are key contributors to this.

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10.39 These core policy principles will help in addressing these key issues and bringing the borough's educational levels up to at least national and regional averages. With new employment opportunities anticipated in the borough as a result of our wider strategy and changing economic conditions, it is crucial to equip local people with the right employment skills and qualifications to compete effectively for these employment opportunities.

10.40 The 'Schools for the Future' programme will hopefully provide the borough with substantial funding over the next 12 years to invest in the improvement and restructuring of secondary school provision. The aim is to transform our schools into world-class learning environments that will enable generations of young people to reach their full potential. This will contribute to raising educational attainment and achievement in the borough. Proposals include replacement secondary school provision in Wigan, Ince, Hindley, Ashton-in-Makerfield (see spatial policy principles SP11); expansion of an existing school in Westleigh; modernisation of another school in Leigh and schools in Wigan; and new vocational training centres primarily for 14-19 year olds in Wigan and Atherton; all in line with our preferred spatial strategy.

10.41 In addition, there will be replacement schools at Tyldesley, Astley and Orrell and a new secondary school will replace two existing schools in Standish and Shevington and Golborne and Lowton. The proposals will also include the provision of other community facilities where appropriate, such as libraries and health centres.

10.42 Schools for the Future will address issues such as surplus school places, help to improve access to learning, and increase educational choice for pupils, including tailoring education provision to meet individual needs. This will include making use of 'new' technologies, including high-speed broadband, and the '14-19 centres' providing vocational training through diplomas and apprenticeships. This should help improve the numbers of 16-18 year olds participating in education, employment or training.

10.43 In addition, the government also has a capital building programme for primary schools. The Primary Strategy for Change will hopefully provide around £60 million over the next fourteen years to rebuild and modernise the borough's primary schools.

10.44 Proposals for 'Schools for the Future' are subject to separate consultation by the Council's Children's and Young People's Services department. They are not part of the Core Strategy preferred options. What is, is the council's preferred policy framework for delivering 'Schools for the Future' through the planning system.

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10.45 Access to schools and colleges is also important particularly the ability to access them by means other than the private car. This is particularly an issue for Winstanley College and St John Rigby College that are both located on the western fringe of the borough. If accessibility to these colleges was improved it would realistically increase the choice of further education for people living in the central and eastern parts of the borough in particular.

10.46 Our evidence base on education and learning is summarised in more detail in our Topic Paper 4 'Education and learning' (June 2009).

10.47 Consultation with the community and other stakeholders has identified a wide range of issues, notably the potential of schools for the future to deliver transformational change in the borough in terms of aspirations, ambitions, skills and qualifications, leading to improved life chances, greater prosperity and a substantial reduction in deprivation.

10.48 Our sustainability appraisal work shows that our preferred approach is strong particularly against ‘social’ and ‘economic’ factors, with the positive impacts getting significantly greater over time. The full results to date are set out in an accompanying report.

10.49 Alternative approaches would be to not prioritise education and learning or to prioritise it in a way that is contrary to our preferred spatial approach. Both would be little more than 'business as usual', so positive change would only be possible on the margins.

10.50 The other core policy principle that is most closely related to ‘education and learning’ is the 'economy and employment' core policy principle.

10.51 Deliverability of these core policy principles is dependent on an effective partnership with the education and learning sector. Funding is available through 'schools for the future', other programmes and site values.

10.52 Delivery of these core policy principles would enable us to achieve our strategic objectives EL1 and EL2 for 'education and learning'; and NQ1 for 'community safety and neighbourhood quality' (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

10.53 Proposed change to the proposals map: The maps below shows the proposed site for a replacement school for Standish and Shevington High Schools on land that is currently safeguarded for future development at Almond Brook, with access from Almond Brook Road. Our 'Schools for the Future' proposals are subject to separate public consultations by the council.

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New school site at Almond Brook

Question 22

Do you think that our core policy principles for education and learning are right? Why?

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Economy and employment core policy principles

Policy CP 4

Our core policy for economy and employment should:

Create the right conditions for sustainable economic growth by bringing forward sites of the right quality in the right location with the right infrastructure to attract, stimulate, grow and maintain businesses in key growth sectors, traditional sectors and low amenity sectors, notably in inner areas of the borough but also in key strategic locations close to the M6 motorway. Provide around 275 hectares of employment land of which 150 hectares is currently allocated in the Unitary Development Plan, to ensure that the local economy is as strong as possible and can compete effectively at the regional level. Effectively manage the release of employment land to ensure that there is a rolling provision of five years worth of high quality, unconstrained land that is readily available for development at any one time, beginning with locations in Wigan town centre (see spatial policy principles SP2) and Wigan South Central (see spatial policy principles SP3). Safeguard existing Primary Employment Areas for employment uses except where redevelopment for other uses will enable the modernisation of other existing employment sites for employment uses. Ensure that job opportunities are well related to areas of need by proximity and/or ensuring good public transport, walking and cycling links including to key employment locations outside the borough, notably Manchester, Bolton, Warrington, Liverpool and Preston. Develop Wigan South Central as a location for regionally significant economic development. Promote our town centres as hubs for business and cultural development. Provide opportunities for indigenous business growth. Ensure that a wide variety of site sizes and unit types are provided to accommodate various modern business needs. Secure local labour contracts and labour opportunities using planning obligations.

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10.54 Our preferred approach on economy and employment is consistent with national planning policy notably Planning Policy Statement 1 and Planning Policy Guidance notes 4 and 13. The policy also has regard to emerging national policy, notably the consultation paper on a new Planning Policy Statement 4 ‘Planning for Prosperous Economies’.

10.55 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1-6; the spatial priorities policy RDF1; the economy policies W1-4; and the Manchester city region policies MCR1 and MCR5. It also reflects the Regional Economic Strategy and the draft Manchester Skills and Employment Strategic Framework.

10.56 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for 'ambitious communities', where opportunities exist within a local and regional economy that provides ease of access to jobs; and 'realising aspirations', where people of all ages are equipped with the right life skills and the qualifications employers need.

10.57 Despite its strategic position at the heart of the North West, Wigan Borough is poorly regarded as a business location due primarily to a negative image/perception and poor accessibility from the strategic road network (motorways). We need to change this view of Wigan and make it 'punch its weight' within a successful and prospering region.

10.58 Our preferred approach focuses economic development in the east-west core of the borough where there are high levels of deprivation. These will provide local employment opportunities in areas of most need and thus contribute to narrowing the inequality gap in the borough. Currently, these areas are unattractive to businesses because of poor infrastructure, in particular constrained and congested roads, poor site availability and poor quality environments. Focusing development in these areas will provide funding to help tackle the infrastructure deficit.

10.59 On this basis key strategic sites including substantial employment development are proposed at 'The Bell, Lamberhead Green' (see spatial policy principles SP4), 'South of Hindley' (spatial policy principles SP5), 'Northleigh' (spatial policy principles SP6), 'East of Atherton' (spatial policy principles SP9), 'Garrett Hall' (spatial policy principles SP10) and 'Stubshaw Cross' and 'Landgate' (spatial policy principles SP11). Stubshaw Cross and the southern part of Garrett Hall are employment allocations maintained from the Unitary Development Plan. Development in these locations will act as a regeneration vehicle, by generating the necessary capital, through both private funding via planning obligations and/or the community infrastructure levy and public sector funding including land sales, to fund the necessary road infrastructure linking businesses to the strategic road network.

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10.60 The proposed key strategic sites at 'The Bell' and Landgate are close to Junctions 26 and 25 respectively of the M6 motorway. As a result these sites are in prime locations and are highly attractive to the market. However, both would need to deliver significant access improvements to existing nearby industrial areas. 'The Bell' is a Green Belt site but would open up access to Heinz and Martland Park, unlock significant job opportunities that are much needed in west Wigan, and, in raising Wigan’s economic profile, be a catalyst for sustained business growth in the borough.

10.61 Development in these locations will also provide employment opportunities for borough residents in areas that are easily accessed by public transport, walking and cycling. This will help tackle worklessness and enable more people to meet their employment requirements without having to commute outside of the borough.

10.62 Existing Primary Employment Areas at Westwood Park and the former Pemberton Colliery and the Wigan Pier Quarter are within Wigan South Central, which is identified as an area for regionally significant economic development (see spatial policy principles SP3). The Bell is also well related to this area.

10.63 The key strategic sites and other key locations such as Wigan and Leigh town centres will bring forward around 125 hectares of employment development. Approximately 150 hectares within existing Primary Employment Areas will be 'rolled forward' and maintained, giving a total land supply of around 275 hectares. This is slightly below the 'need' identified by our Employment Land Review but not significantly so. In addition, there are planned employment developments proposed in neighbouring authorities, such as at Cutacre in Bolton and in the Manchester / Salford regional centre, that would create employment opportunities accessible for people living in the borough.

10.64 Given the need to manage a five years supply of employment land and the economic situation that is likely to prevail over the next five years, it is essential that resources are targeted effectively to deliver what can be delivered. As such, development will need to be phased. Within the first five years we propose to prioritise employment development in Wigan town centre and Wigan South Central. We will seek to establish a further phasing policy as a result of these consultations and further work through to the pre-submission stage.

10.65 The council will encourage employers and developers to enter into local labour and training agreements, appropriate to the individual development, to ensure that the borough’s residents are able to access the employment opportunities that are provided within the borough.

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10.66 Our evidence base on economy and employment is summarised in more detail in our Topic Paper 5 'Economy and employment' (June 2009).

10.67 Consultation with the community and other stakeholders has confirmed that we need more and better quality jobs in accessible locations.

10.68 Our sustainability appraisal work shows that our preferred approach should have a major positive impact on economic factors with significant knock-on benefits across a range of social factors. However, there are a number of potential negative impacts that need to be mitigated if we are to move towards a more sustainable and lower-carbon economy. We set out such policy safeguards in other core policy principles. The full results to date are set out in the accompanying report.

10.69 An alternative lower growth option might focus development only on our town centres and existing Primary Employment Areas. However, there would be insufficient employment land and deprived areas would not be regenerated. It would also fail to generate funding to help deliver the necessary road infrastructure. As such, it would be ‘more of the same’ and would fail to address the key issues we face.

10.70 An alternative higher growth option might include safeguarded land sites such as Almond Brook and Rectory Lane, Standish or at Golborne and Lowton on the A580 East Lancashire Road. These areas are not well related to areas of need. Overall it would lack focus and fail to address the key issues we face.

10.71 The other core policy principles that are most closely related to 'economy and employment' are those on ‘education and learning’, 'retail and centres', 'accessibility', 'strategic landscape and green infrastructure', 'design', 'energy' and 'pollution'.

10.72 Deliverability of these core policy principles is dependent on an effective partnership with the economy and employment sectors, including government agencies, local agencies, businesses, as well as education and training providers. Key however, will be the new Wigan Regeneration Agency which will seek to maximise funding opportunities and target spending in line with our core spatial strategy to deliver our key strategic sites, Wigan South Central and town centre regeneration.

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10.73 A development management policy on employment land and buildings is proposed to replace policies EM1A and EM1B in the Unitary Development Plan (see development management policy principles DM2).

10.74 Delivery of these core policy principles would enable us to achieve our strategic objectives EE1 - EE6 for 'economy and employment' (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

Question 23

Do you think that our core policy principles for economy and employment are right? Why?

Question 24

Do you think that our priorities for directing employment development in the first 5 years are right? In what order should sites and locations be brought forward for development thereafter?

Housing core policy principles

Policy CP 5

Our core policy for housing should:

Adopt a ‘plan, monitor and manage’ approach that would meet the need for new housing established by government, the regional planning body and local market conditions, by taking account of housing completions, housing commitments and housing allocations in a ‘rolling’ 5 year supply of deliverable housing land. Concentrate most new housing development on previously-developed and degraded land in the borough. Focus over 80% of housing development in the urban areas of Wigan, Hindley, Platt Bridge, Atherton, Leigh and Ashton-in-Makerfield where it will help tackle the borough’s

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infrastructure deficit, re-balance local housing markets and support economic development and environmental and neighbourhood regeneration. Phase the delivery of sites to give priority to the delivery of the spatial strategy, to the development of previously-developed land and to sites which deliver key infrastructure. Meet the housing needs of all sections of the community through the provision of an appropriate mix of house types, sizes, tenures and affordability, including special needs housing and ‘lifetime homes’ and sites for gypsies and travellers and travelling showpeople, in accordance with our housing needs study, strategic housing market assessment and/or other relevant housing and population data. Require developers to provide affordable housing in line with our needs assessment on suitable sites where there is a demonstrable lack of affordable housing. Alternatively, it may be acceptable for the element of affordable housing to be located on another site in the locality or for the developer to refurbish unfit housing or vacant housing or make a financial contribution. Achieve sustainable housing development through energy conservation, sustainable energy generation, water efficiency, waste management on site, sustainable drainage and enabling good accessibility by public transport, walking and cycling to local centres, jobs and other key facilities. Promote the reuse of vacant buildings and increased residential densities using innovative and high quality design and construction techniques. Require sustainability appraisals on all proposals for demolition and rebuilding of dwellings.

10.75 Our preferred approach for housing is consistent with national planning policy, notably Planning Policy Statements 1 'Delivering Sustainable Development' and 3 'Housing'.

10.76 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1, DP2, DP4, DP5 and DP9; the spatial priorities policy RDF1; the housing policies L2-5; and the Manchester city region policies MCR1 and MCR5.

10.77 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for 'ambitious communities', where people will be able to access better quality, affordable homes; and 'strong community', where communities are at the heart of all we do.

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10.78 It is national policy that everyone should have the opportunity of a decent home; that there should be greater choice of housing; and that the housing needs of all in the community should be recognised. As such, our housing policy principles seek to meet the housing requirements of the whole community in providing sufficient land for housing, but giving priority to re-using previously developed land within urban areas; bringing empty homes back into use; and converting existing buildings, in accordance with our preferred spatial option.

10.79 As such housing growth will be concentrated in the ‘east-west core', notably Wigan, Hindley, Atherton, Leigh, Platt Bridge and Ashton-in-Makerfield. Housing markets are relatively weak in most parts of these inner areas and need substantial infrastructure and environmental improvements. This option offers the opportunity to tackle multiple deprivation where it is most acute and reduce inequality in the borough, boosting the housing market and supporting regeneration of the considerable amount of older housing stock that exists in the inner areas. Overall, the value of housing land will release a substantial amount of untapped potential in the inner areas, supporting infrastructure development and employment.

10.80 Outside of the 'east-west' core, limited development will be permitted focused on meeting local needs, particularly for affordable housing. Development which would undermine the achievement of the preferred spatial approach will be resisted.

10.81 The housing requirements for Wigan Borough are determined regionally as noted in paragraph 10.79 and detailed in Chapter 5, paragraph 5.2. The current Regional Spatial Strategy for the North West requires a total housing provision in the borough of at least 17,600 'dwellings' (net of clearance replacement) from 2003-2021. This equates to an annual average provision (net of clearance replacement) of 978 'dwellings', of which at least 80% should use existing buildings or brownfield land. We are required to ensure that there is sufficient housing land to meet these requirements. However, our Core Strategy will look forward from 2010 to 2026, a period of 16 years. Assuming that the annual housing requirement established regionally is carried forward to 2026, land for a total of at least 15,648 units will need to be provided.

10.82 Our Strategic Housing Land Availability Assessment (see Chapter 4) demonstrates that we have a potential supply of housing land over the next 16 years in excess of this requirement. To ensure that there is a continuous supply of deliverable sites available for housing, we will monitor the supply on an annual basis through our Annual Monitoring Report, and take appropriate action as necessary.

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10.83 The number of plots and pitches required for gypsies and travellers and for travelling showpeople in each local authority area will be determined by the emerging partial review of the Regional Spatial Strategy. The identification of these sites will be considered in a future Development Plan Document that we will prepare after adoption of the Core Strategy.

10.84 Within the first 5 years of the plan period first priority will be given to the development of the Northleigh key strategic site (see spatial policy principles SP6) and to other previously-developed sites within the 'east-west core' of the borough. Beyond this, priority will be given to the development of sites which will achieve the maximum benefit in terms of social, economic and environmental gain and/or result in the delivery of key infrastructure.

10.85 Our evidence base on housing is summarised in more detail in our Topic Paper 6 'Housing' (June 2009).

10.86 Consultation with key stakeholders has emphasised the need to provide more affordable housing and to ensure a greater variety of house types. Similarly, it was highlighted that the needs for pitches and plots for gypsies and travellers and travelling showpeople must be addressed, as must the issue of empty properties in the borough.

10.87 Our sustainability work shows that our preferred approach supports economic growth in the borough and could have knock-on positive impacts against a range of social objectives such as health, education, community safety and education. The impacts become more pronounced over time. The policy principles would also support the provision of improved infrastructure and better accessibility to services, employment and leisure opportunities. The full results of our sustainability appraisal to date are set out in the accompanying report.

10.88 The other core policy principles that are most closely related to those for ‘housing’ are those on 'safe, strong and attractive communities', ‘accessibility’, ‘strategic landscape and green infrastructure’ and 'design'.

10.89 Deliverability of these core policy principles is dependent on effective partnership with the housing sector including key government and local agencies, registered social landlords, housebuilders and landowners. Working with the Homes and Community Agency and the new Wigan Regeneration Agency, we will seek to maximise funding opportunities and target spending in line with our core spatial strategy to deliver our key strategic sites.

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10.90 The existing Affordable Housing Supplementary Planning Document supplements the Housing Core Policy and provides detailed guidance on how the policy will be applied to housing proposals so as to produce new affordable housing

10.91 Delivery of these core policy principles would enable us to achieve our strategic objectives H1 – H7 for ‘housing’ (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

10.92 Proposed changes to the proposals map: delete all 'housing commitments' as they are out-of-date (April 2002).

Question 25

Do you think that our core policy principles for housing are right? Why?

Question 26

Do you think that our priorities for directing housing development in the first 5 years are right? In what order should sites and locations be brought forward for development thereafter?

Retail and centres core policy principles

Policy CP 6

Our core policy for retail and centres should:

Confirm our hierarchy of centres as: Sub-regional town centre: Wigan Main town centres: Leigh and Ashton-in-Makerfield Town centres: Atherton, Golborne, Hindley, Pemberton, Standish and Tyldesley. Local centres: 25 centres as set out in the Unitary Development Plan Neighbourhood centres

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State that retail development will be determined in accordance with national and regional planning policy as applicable. Maintain and enhance Wigan’s role as a sub-regional centre for shopping, leisure, entertainment, services, jobs and education, as set out in spatial policy principles SP2. Maintain and enhance Leigh as the main centre in the east of the borough for shopping, services, leisure, entertainment, education and jobs, as set out in spatial policy principles SP7. Enhance the retail and service role of Ashton-in-Makerfield and ensure that it serves surrounding settlements in the south-west of the borough, as set out in spatial policy principles SP11. For the other town centres: Enhance the role of Atherton, Golborne, Hindley, Pemberton, Standish and Tyldesley as key locations for shopping, leisure, entertainment, jobs and services Encourage a diversity of uses, promote the re-use of vacant buildings, establish an attractive and high quality environment, ensure centres are convenient and accessible, support distinct retail provision and where appropriate, consolidate retail and service uses into a more compact core. For local and neighbourhood centres Maintain the local centres and identify smaller neighbourhood centres throughout the borough that serve the day-to-day needs of their surrounding neighbourhoods. Ensure that residents are within no more than 800m walk of food / convenience shops and utilise development opportunities to remedy any gaps in provision of food / convenience retail. Support residential development as part of mixed-use schemes in town and local centres that will increase their vitality and viability and safety. Support the development of local independent retail businesses, retail entrepreneurship and specialist retailers, particularly in the smaller town centres.

10.93 Our preferred approach on retail and centres is consistent with national planning policy notably Planning Policy Statements 1 'Delivering Sustainable Development' and 6 'Planning for Town Centres' and Planning Policy Guidance note 13 'Transport'. The policy also has regard to emerging national policy, notably the consultation paper on a new Planning Policy Statement 4 ‘Planning for Prosperous Economies’.

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10.94 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principle policies DP1-6; the spatial priorities policy RDF1; the retail policy W5; and the Manchester city region policies MCR1 and MCR5.

10.95 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priority for 'ambitious communities', where opportunities exist within a local and regional economy that provides ease of access to services.

10.96 Wigan town centre is clearly the largest town centre in the borough, comparable to Bolton, Warrington, St Helens and Preston as a 'sub-regional centre', below the 'regional centres' of Manchester / Salford and Liverpool in the 'hierarchy of centres' within the region. Wigan town centre's 'catchment' extends across the west and centre of the borough and extends into neighbouring areas of Lancashire.

10.97 Leigh town centre is considerably smaller than Wigan town centre but is the main town centre in the east of the borough. Its catchment is overlaid by those of Bolton, Warrington and Manchester.

10.98 Ashton-in-Makerfield town centre is the main centre within the south-west of the borough and has significantly more retail units than other town centres except Wigan and Leigh. However, it is within the catchment area of Wigan town centre and also loses trade to many centres outside the borough.

10.99 Our retail and leisure study identifies a high level of 'need' for new floorspace in these centres, but these calculations were based on the level of growth up to 2006 and expected high levels of economic growth to continue. Clearly the current recession now needs to be taken into account.

10.100 Our other town centres serve their respective townships on more of a day-to-day basis. Local centres are identified to ensure that people are able to easily access convenience retail and other services by walking and cycling. Whilst there are areas outside of a walkable catchment area from local centres, the policy also seeks to identify neighbourhood centres so that these can be given policy protection and, where appropriate, provided as part of larger development sites to ensure residents are able to access local shops and services by walking and cycling.

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10.101 Our town and local centre boundaries are 'rolled forward' from the Unitary Development Plan, with the exception of Wigan town centre - see spatial policy principles SP2.

10.102 Diversity of town centres is an important part of managing their vitality and viability. Independent and specialist retailers offer variety between centres and are the 'lifeblood' of many of our town centres and important 'fringe' areas of Wigan and Leigh town centres.

10.103 Our evidence base on retail and centres is summarised in more detail in our Topic Paper 7 'Retail and centres' (June 2009).

10.104 Consultation with the community and other stakeholders has identified deficiencies in our town centres, particularly in terms of leisure, culture and transport infrastructure. A common theme has been the poor quality condition of Ashton, Atherton, Tyldesley and Golborne town centres.

10.105 Our sustainability appraisal work shows that our preferred approach should have a positive impact on a wide range of sustainability factors, with some of the impacts getting more pronounced over time. The full results to date are set out in the accompanying report.

10.106 We have considered a number of other options for retail and centres. One is not to focus on centres but this would be contrary to the historical development of settlements and fundamentally unsustainable. A further option would be to prioritise different centres, for example Leigh as a sub-regional centre instead of Wigan. But Wigan is much larger than Leigh and consequently, has a larger town centre. We can hope to 'steer' market economics but we cannot 'buck' them. We could also choose not to identify Ashton as a main town centre, continuing its ranking alongside the other town centres as in the Unitary Development Plan. However, this would fail to recognise the needs and opportunities for Ashton town centre.

10.107 Not supporting local independent retailers, retail entrepreneurship and specialist retailers would be failing to acknowledge the role that these can have in creating vibrant and diverse town centres and could heighten the decline of some of our smaller town centres in the long term.

10.108 The other core policy principles that are most closely related to 'retail and centres' are those on 'health and recreation', 'strong, safe and attractive communities', ‘education and learning’, 'economy and employment', 'accessibility', and 'design'.

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10.109 Deliverability of these core policy principles is dependent on partnership working through our town centre management arrangements, local strategic partnership and the development sector, including our new Regeneration Agency. A development management policy is proposed for the principal shopping areas in our town centres, other locations in the town centres, our local and neighbourhood centres and supporting the local independent retailers - see Development Management Policy Principles DM3. Neighbourhood centres will need to be identified in a future development plan document.

10.110 Delivery of these core policy principles would enable us to achieve our strategic objectives RC1 - RC5 for 'retail and centres' (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

Question 27

Do you think that our core policy principles for retail and centres are right? Why?

Accessibility core policy principles

Policy CP 7

Our core policy for accessibility should:

Prioritise and demonstrate deliverability of key infrastructure and service improvements that will benefit the ease and attractiveness of travelling in a sustainable manner, notably: between the east and west of the borough, stimulating economic activity, relieving traffic from centres and residential areas and promoting public transport. between the borough and surrounding areas notably Manchester, Warrington, Liverpool, Preston and Bolton by public transport. to and within our town centres, especially Wigan, Leigh, Ashton-in-Makerfield and Hindley. Ensure that capacity on the existing highway network that is released by the provision of new road infrastructure is ‘captured’ to improve the capacity and reliability of public transport and the conditions for walking and cycling.

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Locate key facilities in accessible locations near public transport interchanges and high frequency routes and/or where public transport, walking and cycling facilities can be improved. Ensure that access from the highway network to new development is safe, convenient and suitable. Prioritise the development of Wigan town centre as a regional public transport gateway in accordance with regional planning policy and in conjunction with partner organisations, service operators and developers. Substantially increase bus and rail use by: implementing bus infrastructure and priority measures including the Leigh Guided Busway and parking at guided busway stops. maximising the potential of the rail network, through improving the accessibility of rail services and car parking and supporting improvements in the extent, capacity and quality of train services, especially at Atherton station. addressing gaps and poor quality in public transport services including service frequencies, vehicle quality, capacity, accessibility, route coverage, ticketing, cost of journeys and safety improvements, working with partner organisations and operators using a variety of funding opportunities, including evening rail services to Orrell and Sunday services to Atherton. improving the ease of interchange and the availability of information between different public transport services especially in other town centres including Golborne, local centres and at rail stations. Significantly improve the attractiveness of walking and cycling through improvements in the convenience, attractiveness and safety of routes and the provision of safe and secure cycle parking at destinations. Ensure the needs of disabled people are met in the design and implementation of schemes and services, using appropriate management techniques and including provision for taxis. Ensure the needs of commercial traffic and freight are met by appropriate connection to the strategic route network and encourage rail, pipeline and water based transport of bulky goods including minerals and waste wherever practicable to minimise transport by road. Reduce the overall environmental impact of travel through consideration of severance of communities by busy roads, road safety measures, greenhouse gas emissions, noise, vibration, use of resources/energy and impact on climate change in town centres, air

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quality management areas and where people live, especially along the A577 at Hindley and Pemberton. Encourage other measures that reduce the need to travel and manage car use including Smarter choices, travel plans and management of parking.

10.111 Our preferred approach for accessibility is consistent with national planning policy, notably Planning Policy Statement 1 'Delivering Sustainable Development' and Planning Policy Guidance note 13 'Transport'. It also reflects other relevant national guidance such as the Department for Transport documents: Manual for Streets (March 2007), Guidance on Transport Assessments (March 2007) and Delivering a Sustainable Transport System (November 2008).

10.112 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principle policies DP1, DP2, DP4-7 and DP9; the transport policies RT1-4, RT7, RT9; and the Manchester city region policies MCR1, MCR5 and MCR6.

10.113 It also accords with our sustainable community strategy ‘vision 2026’, notably the priority for 'ambitious communities', where opportunities exist within a local and regional economy that provides ease of access to jobs and services; and our Local Transport Plan.

10.114 Congestion and the lack of a comprehensive modern road network in the borough severely constrains our ability to attract new investment, especially in the 'east-west core' away from the motorways and the A580 East Lancashire Road. We need to tackle this infrastructure deficit if Wigan Borough is going to 'punch its weight' within a successful and prospering region.

10.115 Despite relatively low average household incomes, car ownership and use are high. People travel further to work and use public transport less than in other Greater Manchester districts. The ability to interchange between rail and bus is constrained by poor infrastructure, provision of information and service patterns. This leaves parts of the borough, most notably Leigh and Ashton-in-Makerfield without appropriate public transport connections to the Manchester regional centre. Cross boundary travel by public transport is poorly co-ordinated and usage is low, even to key destinations such as Warrington and Liverpool. Overcrowding on trains, especially on the Atherton line at peak times, acts as a further disincentive to use.

10.116 Levels of walking and cycling are also low as a result of the poor environmental conditions and safety issues arising from high traffic levels and congestion.

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10.117 Our policy is therefore to create and sustain mixed and inclusive communities by improving access to jobs, health, education, shops, leisure, recreation and community facilities for everyone, regardless of age, gender or disability. The appropriate location of these facilities and physical access to them is key to achieving this. It will require appropriate provision of new transport infrastructure and upgrading of existing facilities to meet demands for modern roads and improved conditions for walking, cycling and public transport.

10.118 Our evidence base on accessibility is summarised in more detail in our Topic Paper 8 'Accessibility' (June 2009).

10.119 Consultation with the community and other stakeholders has confirmed that congestion occurs at various locations throughout the borough but most particularly between at Hindley, south of Wigan and at junctions with the M6 and A580. There is support for our emerging transport solutions accompanying new development sites that may also help solve some of the problems, but increased capacity for walking, cycling and public transport must also be secured on existing networks coupled with demand management techniques.

10.120 Our sustainability appraisal work shows that our preferred approach should have substantial positive impacts, particularly in the longer-term. There are notable benefits for the economy and well-being. The full results to date are set out in the accompanying report.

10.121 We have considered a number of other options for accessibility. An alternative approach would be to rely on the existing transport infrastructure. This is not appropriate as existing problems and constraints would only intensify with increased development, which would be to the detriment of economic activity, access to leisure and services, community safety, personal health and well-being and climate change issues. Alternative spatial options for development would give rise to significantly more car use.

10.122 The other core policy principles that are most closely related to 'accessibility' are those on 'health and recreation', 'strong, safe and attractive communities', 'education and learning’, 'economy and employment', ‘housing', 'retail and centres', and 'design'.

10.123 Delivery of these core policy principles is dependent on strong partnership working with the transport and development sectors, including local and government agencies, transport operators, key developers and landowners. Key transport infrastructure improvements will be delivered in partnership with our key strategic sites (see spatial policy principles SP4-SP6 and SP8-SP11).

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10.124 The existing 'Travel Plans' and 'Access for All' Supplementary Planning Documents will be rolled forward to supplement this core policy. A development management policy on parking is proposed to replace Policy A15 in the Unitary Development Plan (see development management policy principles DM4).

10.125 Delivery of these core policy principles would enable us to achieve our strategic objectives A1-A5 for 'accessibility' (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

10.126 Proposed changes to the proposals map: Delete 'Physical improvements to bus network' because it is not carried forward in the policy. It would be more appropriately designated in the Local Transport Plan.

Question 28

Do you think that our core policy principles for accessibility are right? Why?

Green Belt and safeguarded land core policy principles

Policy CP 8

The core policies for Green Belt and safeguarded land should:

Maintain the extent of the Green Belt identified on adoption of the Core Strategy and state that development in the Green Belt will be determined in accordance with national planning policy so as to achieve the following local aims: Limit the spread of the major urban areas and help prevent the coalescence of the conurbations around Manchester and Liverpool as well as preserving open land around towns and settlements. Protect open countryside from encroachment. Prevent neighbouring settlements from merging.

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Preserve the special character of settlements by maintaining a recognisable form and preventing the loss of identity arising from urban sprawl. Redirect development pressures towards sites within the urban area where development will contribute to the resolution of existing problems or the achievement of the strategic objectives. Allow for the limited extension or replacement of dwellings in Green Belt or safeguarded land provided that such extensions are restricted to 75% of the existing volume (with an absolute limit of 200 cubic metres, cumulatively) and that replacing dwellings which have lawful use rights, on a one for one basis, is allowed where the new dwelling does not exceed the height, volume and footprint of the existing one and occupies substantially the same position on the site. Allow for infilling development in the settlements of Haigh and Bickershaw within the settlement boundary shown on the Proposals Map. Designate two new 'major existing developed sites in the Green Belt' at Shevington High School and St Mary's Roman Catholic High School, Astley and state that limited infilling or redevelopment within the boundaries of the major existing developed sites will be determined in accordance with national planning policy. State that development in safeguarded land between the urban area and the Green Belt will be restricted in accordance with national planning policy, in order to maintain its availability for development beyond 2026.

10.127 Our preferred approach to Green Belt and safeguarded land is consistent with national planning policy as set out in Planning Policy Guidance note 2 ‘Green Belts’.

10.128 It also conforms closely with the Regional Spatial Strategy: in particular the regional spatial framework policies RDF1 and RDF4.

10.129 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for 'strong community', where communities are at the heart of all we do.

10.130 The fundamental aim of national Green Belt policy is to prevent urban sprawl by keeping land permanently open; the most important attribute of Green Belts is their openness. In Wigan Borough the Green Belt is vital in both limiting the spread of Manchester and Liverpool and in preventing settlements within the borough from merging. It can, along with 'safeguarded land',

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shape patterns of urban development, help to ensure that development occurs in desired locations and move towards more sustainable patterns of development, as well as protecting the countryside from encroachment by development.

10.131 In line with our preferred spatial approach, our preferred option on the location of future development is to concentrate growth towards the ‘east-west core' of the borough, notably Wigan, Hindley, Atherton, Leigh, Platt Bridge and Ashton-in-Makerfield. This option offers the opportunity to tackle multiple deprivation where it is most acute and reduce inequality in the borough, boosting housing markets and supporting regeneration in these areas. The restriction of development imposed by Green Belt will help to shape this growth into existing and expanded settlements whilst preventing urban sprawl.

10.132 As part of this preferred spatial approach, we have maintained the extent of the existing Green Belt whilst reviewing safeguarded land so as to release land for new development in the appropriate locations. Equally we have retained a supply of safeguarded land to meet longer term development needs beyond 2026.

10.133 Our preferred spatial strategy therefore, whilst maintaining the general extent of Green Belt, puts forward a site at The Bell, Lamberhead Green in Wigan, to be taken out of the Green Belt (see spatial policy principle SP4). This is justified by the existence of exceptional circumstances.

10.134 Existing safeguarded land is allocated as key strategic sites for development at South of Hindley (spatial policy principles SP5), East of Atherton (spatial policy principles SP9); Garrett Hall, Astley (spatial policy principles SP10); and Landgate, Ashton-in-Makerfield (spatial policy principles SP11). 'Safeguarding' is also removed from other sites which are either suitable for development in line with our preferred spatial strategy, or are too small or inappropriately located to meet their function of meeting longer term development needs. These sites are at Northleigh / Westleigh; Appley Bridge; Thames Avenue, Leigh; Smiths Lane, Hindley Green and Hooten Gardens, Leigh.

10.135 The 12 major existing developed sites in the Green Belt comprise firstly, the 10 existing designations at: Leyland Mill, Wigan; Former Leigh CE High School, Leigh; Astley Works, Gin Pit Village; Industrial Area off Edge Green Road, Golborne; Winstanley College, Winstanley; Brick and Terracotta Works, Billinge; St John Rigby College, Orrell; The Orica UK Ltd site

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at Shevington; Kilhey Court Hotel, Standish; and Dicconson Mill, Aspull. Two new major existing developed sites are proposed at Shevington High School, Shevington and St Marys Catholic High School, Astley.

10.136 For the purpose of this core policy, dwelling 'extensions' will be taken to include garages and permanent domestic outbuildings within the curtilage, any part of which is within 5 metres of the original dwelling, as well as attachments to the main dwelling. Similarly, the volume restrictions are to be applied to the ‘original’ dwelling taken as existing on 4 November 1991 (the date the policy first came into force) or, if built after that date, as originally built. If existing extensions or parts of the existing dwelling are to be demolished as part of the scheme, the volume of these extensions will be permitted as an addition to the maximum volume of extension permissible. Cubic content will be determined by external measurement.

10.137 Consultation with key stakeholders has demonstrated the widespread support for Green Belt and its role in protecting countryside from development. There is also an appreciation of the role it can play in achieving sustainable development.

10.138 Our sustainability appraisal work shows that our preferred approach supports our sustainability framework with positive impacts far outweighing the minor negative impacts. The full results to date are set out in the accompanying report.

10.139 The other core policy principles that are most closely related to those for ‘green belt and safeguarded land’ are those for 'economy and employment', 'housing' and ‘strategic landscape and green infrastructure’.

10.140 Deliverability of these core policy principles is dependent on effective partnership with householders in Green Belt and safeguarded land, developers and landowners.

10.141 A development management policy on the re-use of buildings in Green Belt or safeguarded land is also proposed to replace policy GB1A in the Unitary Development Plan (see policy DM5).

10.142 Delivery of these core policy principles would enable us to achieve our strategic objective BEL2 for ‘built environment and landscapes’ and EE2 and H1 for ‘economy and employment’ and ‘housing’ respectively (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

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10.143 Proposed changes to the proposals map: delete 'safeguarded land' to the south of Hindley; at Northleigh; to the east of Atherton/west of Shakerley; at Garrett Hall, Astley; and at Landgate, Ashton-in-Makerfield in respect of proposed key strategic sites; and at Smiths Lane, Hindley Green; at Westleigh, off Nel Pan Lane and Westleigh Lane, adjacent to the Northleigh key strategic site; at Hope Carr, Leigh to the north, east and south-west of the nature reserve; and Hooten Gardens, Leigh, which are smaller areas potentially suitable for development in line with our preferred spatial strategy; and at Appley Bridge between the canal and railway, because it is inaccessible for development. Delete Green Belt land at 'The Bell, Lamberhead Green' (see spatial policy principle SP4) .

10.144 The following maps illustrate the two proposed new major existing development sites in the Green Belt, at Shevington High School and St Mary's Catholic High School in Astley.

Shevington High School

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St. Mary's Catholic High, Astley

Question 29

Do you think that our core policy principles for Green Belt and safeguarded land are right? Why?

Strategic landscape and green infrastructure core policy principles

Policy CP 9

The core policy for strategic landscape and green infrastructure should:

Recognise the role of landscape quality and green infrastructure in improving the image of the borough as a place in which to invest in jobs and live. Provide an integrated and unified landscape structure that provides visual coherence, ecological continuity and - through the Greenheart Regional Park - a strategic impact in the region.

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Strengthen the landscape character of the borough through appropriate location of development, enhancement of the urban edge, sensitive conservation and programmes to restore natural features. Establish our priorities for strategic green infrastructure through the Greenheart Regional Park, the mosslands and other key locations such as Gibfield near Atherton and Sandyforth near Ashton-in-Makerfield. Recognise cross-boundary linkages notably at the mosslands with Salford and Warrington; through the greenway network to the north into Lancashire and the West Pennine Moors; and the canal corridor west of Wigan into Lancashire. Add functionality to the green infrastructure network where required and create new assets where green infrastructure is lacking, potentially through developer contributions. Promote the multi-use of green infrastructure where compatible, for healthier lifestyles including sport, recreation, walking and cycling, biodiversity, flood management and climate change adaption, food production and enhancement of the environment. Safeguard existing green infrastructure from development that compromises its integrity and that of the overall green infrastructure framework. See the planning, design, management and maintenance of green infrastructure as an integrated, multi-partner, multi-functional and continuous requirement.

10.145 Our preferred approach on strategic landscape and green infrastructure is consistent with Planning Policy Statements 1 ‘Delivering Sustainable Development’, 9 ‘Biodiversity and Geological Conservation’, 25 ‘Development and Flood Risk’ and 7 ‘Sustainable Development in Rural Areas’ and Planning Policy Guidance note 17 ‘Planning for Open Space, Sport and Recreation’.

10.146 It also conforms closely with the Regional Spatial Strategy: in particular, the spatial principles policies DP1, DP2, DP7 and DP9; the tourism policy W6; the environment policies EM1(A), EM3 and EM4; and the Manchester City Region policy MCR1.

10.147 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for ‘ambitious communities’, which look to the future and protect our environment for future generations, and ‘living healthier and longer’ by improving quality of life.

10.148 Nearly two-thirds of Wigan Borough is open land. A large proportion has been subject to deep and/or opencast mining. This together with the initial basic restoration in many cases has had a profound impact on the 'popular' image of the borough. The result today as identified

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in our landscape character assessment (see Chapter 4) is that there is an east-west belt of 'degraded and partially restored landscapes' in the centre of the borough and, significantly, south of this is a belt of 'wetlands and flashes'. Together these offer great potential for transforming the borough's image and form the setting for the emerging Greenheart Regional Park. Its potential is such that it is has been recognised as one of the North West region's best possible areas for a regional park by the Regional Economic Strategy.

10.149 This core policy will contribute to the long term development and attractiveness of our landscape types and the green infrastructure within them, with a focus on the Greenheart Regional Park.

10.150 We define green infrastructure broadly as ‘a planned and managed network of natural environmental components and green spaces that intersperse and connect our city centres, our towns and our rural fringe. In simple terms, it is our natural outdoor environment’. In Wigan Borough it consists of a range of types and scales of spaces from street trees and private gardens to the canal and river corridors, major parks and areas of countryside, which together form a diverse multi-functional network that contributes to 'quality of place' and 'quality of life' for residents.

10.151 There are wide ranging benefits from developing green infrastructure. These include natural drainage, which can reduce flood risk in urban areas; improving wildlife habitats; improving air quality; adapting to climate change, for example by helping to mitigate heat island affects in hot weather and storing flood water during wet weather; providing 'breathing-space' for people; and enhancing the attractiveness of an area as a place in which to invest.

10.152 The Greater Manchester Green Infrastructure Feasibility Study has identified 'Greenheart' and the Manchester mosslands - which includes the Astley and Bedford mosses - as two of four core areas for green infrastructure in Greater Manchester. These are where "green infrastructure is critical to conserving or creating a distinctive sense of place". Destination parks have also been identified including Haigh Hall and Pennington Flash country parks.

10.153 It is clear that green infrastructure needs to be planned, developed and managed just like all other forms of infrastructure if the quality of life of our residents is to continue to improve. A full audit will need to be undertaken of existing green infrastructure across the borough, including identification of potential sites and features for functional improvement and enhancement. We need to better understand how it can integrate with work on flood risk management, wildlife habitats and species and climate change.

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10.154 Our evidence base on strategic landscape and green infrastructure is summarised in more detail in our Topic Paper 9 'Built environment and landscape' (June 2009).

10.155 Consultation with the community and other stakeholders has identified a wide range of issues, notably, the need for improvements to the landscape character of the borough, in particular where there are areas of neglected land; and making the countryside more accessible.

10.156 Our sustainability appraisal work shows that our preferred approach has positive impacts across the entire range of environmental, social and economic factors in the longer-term. The full results to date are set out in an accompanying report.

10.157 We have considered a number of alternative approaches, notably to not include specific reference to green infrastructure or to adopt a local approach only. The former would be contrary to regional policy, the latter would be deficient in not recognising strategic and cross-boundary issues.

10.158 A number of our other preferred core policy principles are particularly closely related to ‘strategic landscape and green infrastructure’, notably those on 'health and recreation', 'safe, strong and attractive communities', 'economy and employment', 'accessibility', and 'wildlife habitats and species'.

10.159 Delivery of these core policy principles is dependent on partnership working with the environment, conservation, heritage and leisure sectors. Green infrastructure will need to be delivered at various levels, from local neighbourhood and site specific projects to strategic Borough-wide and cross-boundary projects and programmes. Further work needs to be done in Greater Manchester to finalise and co-ordinate our approach.

10.160 Nevertheless Greenheart is the key over-arching strategy for the development of the borough’s strategic landscape and green infrastructure. This is reflected through the partnership of the Council, environmental agencies and bodies and voluntary groups on the Greenheart Board and Greenheart Operations Group.

10.161 There is potential from developer contributions for improvements to the green infrastructure network and the creation of new environmental assets. This would be secured through planning obligations or use of the community infrastructure levy. We may need to amend our ‘Open space in new housing’ Supplementary Planning Document accordingly.

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10.162 Success in delivering these core policy principles will enable us to achieve our strategic objectives BEL1 for 'landscape'; NQ1 for 'community safety and neighbourhood quality'; HR1 for 'health and recreation'; A5 for 'accessibility'; WHS1 and 2 for 'wildlife habitats and species' and NRP7 and 8 for natural resources and pollution' (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

Question 30

Do you think that our core policy principles for strategic landscape and green infrastructure are right? Why?

Design core policy principles

Policy CP 10

Our core policy for design should:

Ensure that good design and landscaping is integrated into the development process at the earliest possible stage and can be achieved, if applicable, at no additional cost in order to achieve a more viable, sustainable and easier to use development. Require the design of development to contribute positively to a locality’s ‘sense of place’ through understanding the character and context of a place and providing an innovative interpretation using contemporary architecture, materials, siting, size, scale and landscaping. Contribute in establishing communities that are inclusive for all people to use, reduce travel distances and support local businesses. Require that masterplans and design codes are established for all key strategic sites and other large areas of development / redevelopment, in order to achieve sustainable communities. Achieve more vibrant, person-friendly streets, squares and other public spaces notably in town centres and residential areas through measures to reduce the dominance of motor vehicles; secure and maintain high quality materials; encourage legitimate uses; ensure that buildings interact with the street scene; minimise street clutter; introduce greenery and provide cycling facilities.

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Ensure that buildings and layouts are designed to establish a safe and vibrant public realm. Buildings / urban blocks will preferably be mixed use and be designed to ensure that the public realm benefits from natural surveillance and activity generated by the immediate buildings. Appropriate provision should be made for domestic and light commercial waste storage and collection. Strengthen the landscape character of the borough through appropriate enhancement of the urban edge, appropriate siting of development and programmes to enhance and restore natural features and details. Help to tackle climate change and promote sustainable communities by requiring development to achieve accreditation to the highest practicable standards (for example the Code for Sustainable Homes). Require development to make use of materials that have a low environmental and social impact over their lifetime.

10.163 Our preferred approach on design is consistent with Planning Policy Statements 1 ‘Delivering Sustainable Development’, 3 ‘Housing’ and 6 ‘Planning for Town Centres’ and Planning Policy Guidance note 15 ‘Historic Environments’. It also reflects the 'By Design' companion guide.

10.164 It also conforms closely with the Regional Spatial Strategy: in particular, the spatial principles policies DP1, DP2, DP4, DP5, DP7 and DP9. It also reflects the North West Best Practice Design Guide

10.165 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for ‘ambitious communities’, which will be able to access better quality, affordable homes in safe neighbourhoods and protect our environment for future generations, and ‘living healthier and longer’ by improving quality of life.

10.166 Good quality design is essential to the delivery of attractive, usable, durable, adaptable, inclusive and sustainable environments. This has been increasingly recognised nationally and needs to be recognised locally if Wigan Borough is to have the successful and prosperous future that is at the heart of our objectives.

10.167 The borough has a number of distinctive built environments but further character appraisal work needs to be carried out. These distinctive localities, which were predominately defined by their industrial heritage, are being eroded.

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10.168 Our evidence base on design is summarised in more detail in our Topic Paper 9 'Built environment and landscape' (June 2009).

10.169 Consultation with the community and key stakeholders has confirmed the opportunity for us to now address a number of design issues, including development not being in character and scale with its surroundings.

10.170 Our sustainability appraisal work shows that our preferred approach has positive impacts across environmental, social and economic objectives. The impacts are mostly minor in the short term but get more pronounced over time. The full results to date are set out in an accompanying report.

10.171 An alternative approach would be to not include design as a core policy but instead include it as part of other core policy principles or rely on national policies. However, we need to enhance design quality in the borough and it would not have the same profile without its own core policy.

10.172 'Design' relates closely to most of our other preferred core policy principles, including those on 'health and recreation', 'strong, safe and attractive communities', 'education and learning', 'economy and employment', 'housing', 'accessibility', 'strategic landscape and green infrastructure', and 'historic environment'.

10.173 Delivery of these core policy principles is dependent on the provision and application of strong local policies. Therefore, there will be a strong development management policy on the principles of promoting good design. The existing 'Residential Design Guide', 'Shopfront Design Guide' and 'Landscape Design' Supplementary Planning Documents support the Design Core Policy. A Residential Extensions Supplementary Planning Document is in preparation. Preparation of a sustainable design and construction supplementary planning document is being considered. A future borough design guide might consolidate existing guidance and give guidance on emerging national and regional policy.

10.174 Success in delivering these core policy principles will enable us to achieve our strategic objectives BEL3 for 'design'; NQ1 for 'community safety and neighbourhood quality'; HR1 for 'health and recreation'; and A5 for 'accessibility' (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

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Question 31

Do you think that our core policy principles for design are right? Why?

Historic environment core policy principles

Policy CP 11

Our core policy for the historic environment should:

State our commitment to the conservation of the historic environment through making local designations and through sensitive environmental management and improvements. Protect and, where appropriate, enhance the character and appearance of buildings and structures of special architectural or historic interest and their settings, historic parks and gardens (national list) and their settings, Scheduled Ancient Monuments and important archaeological remains in accordance with legislation and national planning policy as applicable. Ensure that proposals for development and other alterations to the built environment within Conservation Areas will preserve or enhance and will not harm the character, townscape, coherence or appearance of that area in accordance with legislation and national planning policy as applicable. Ensure that development does not adversely affect the character or setting of our historic parks, gardens and cemeteries (local list). Encourage the protection and enhancement of buildings and structures of local architectural or historic interest by ensuring that any development proposed is sensitive to the integrity of the interest. Encourage the occupation of old buildings and permit new uses that are compatible with their character and setting.

10.175 Our preferred approach on the historic environment is consistent with Planning Policy Statement 1 ‘Delivering Sustainable Development’ and Planning Policy Guidance notes 15 ‘Planning and the Historic Environment’ and 16 'Archaeology and Planning'.

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10.176 It also conforms closely with the Regional Spatial Strategy: in particular, the spatial principles policies DP1, DP2, DP4 and DP9 and the environment policy EM1(C).

10.177 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for ‘ambitious communities’, which will protect our environment for future generations, and ‘living healthier and longer’ by improving quality of life.

10.178 We have around 420 listed buildings in the borough. These are buildings and structures of special architectural or historic interest, which are designated on behalf of the government. It is a very small proportion of the overall building stock and, amongst them, there is only one Grade 1 listed building (the highest grade), St Wilfrid's Church in Standish, and only 54 '2 star' listed buildings, the second highest grade. This reflects the significant expansion of settlements in the 19th and 20th Centuries with predominantly cheaper forms of building. We are required to ensure that listed buildings and their settings are protected and, where possible, enhanced.

10.179 We have 5 entries on the national register of listed buildings at risk, which only addresses buildings of grade 1 or 2 star. There are 41 listed buildings at risk identified on our local register. This is nearly 13% of the total listed building stock, well above the national and regional averages of 3.2% and 5.4% respectively. We will be publishing a Local Building at Risk Strategy and it will be monitored annually.

10.180 Mesnes Park in Wigan is our only park that is included on the national register of historic parks. We have a duty to treat the park as a whole as if it was a listed structure.

10.181 We have 12 Scheduled Ancient Monuments. These are structures of architectural or historic interest. Scheduled monument consent is required from the Secretary of State for any development that would affect such a monument.

10.182 Nevertheless, despite the relatively small numbers of national designated buildings, structures, parks and monuments, our industrial, mining and settlement heritage is of value in its own right locally and, to some extent, regionally, in helping to inform and maintain the identity of our different places. As such we have designated Conservation Areas, local historic parks, gardens and cemeteries and buildings and structures of local architectural or historic interest.

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10.183 We have 23 Conservation Areas. These are designated under separate legislation and are historic areas that clearly distinguish a place, provide for a quality environment and contain important buildings and spaces. Once designated, we have a duty to help preserve and enhance the identified character of the area.

10.184 We have 18 historic parks, gardens and cemeteries. These include former parks of country houses such as at Haigh Hall and Atherton Hall Park between Atherton and Leigh; Victorian urban parks such as Firs Park in Leigh; and historic cemeteries such as at Hindley, Ince and Atherton. These parks, gardens and cemeteries contribute greatly to the historic setting of our settlements. It is important that their integrity is safeguarded and, wherever possible, enhanced for future generations.

10.185 We also have a large number of buildings and structures of local architectural or historic interest and we are in the process of confirming designations across the borough in a Supplementary Planning Document. We are likely to designate around 900 such buildings and structures. These are valued by local people as contributing to the historic context and identity of our settlements. Where there are a number of designated buildings and structures in close proximity, we may extend existing or designate new Conservation Areas.

10.186 The approach set out above will help to manage change and ensure that our historic assets play their part in promoting economic prosperity; encouraging inward investment; offering attractive places for living, working and leisure; providing opportunities for culture and tourism; and providing for a clear distinct and recognisable identity which has its foundation in the history of the borough.

10.187 There is clear evidence that the retention and enhancement of our historic built environment is an important component towards providing an attractive quality of life. It is important to manage the process of change within our historic environment and to promote the benefits of the repair, renovation, extension and sensitive alteration of our historic assets. Good design stems from an understanding of where we have come from what has made and shaped the places where we live. If we can protect the past it can help create the future.

10.188 Our evidence base on the historic environment is summarised in more detail in our Topic Paper 9 'Built environment and landscape' (June 2009).

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10.189 A common theme of our consultation with the community and key stakeholders has been the condition and overall lack of maintenance to our historic assets. Opportunities for improvement to our historic assets and their intrinsic value in distinguishing the Borough and its component settlements have been identified.

10.190 Our sustainability appraisal work shows that our preferred approach has particular benefits for environmental assets and resources and community pride. However, historic buildings and features can act as a barrier to development and the installation of renewable energy technologies. The full results to date are set out in an accompanying report.

10.191 Our options for the built environment are limited by the requirements of national legislation and policy. However, within that context we can choose to prioritise the conservation and enhancement of our historic environment, or not prioritise it. Very often the historic environment is seen as a constraint on economic development. Sometimes it will be but it can help to make a location more attractive to investors and development more acceptable to local people. Ultimately, conserving the best of the past is an important part of securing an attractive environment for the future.

10.192 A number of our other preferred core policy principles are particularly closely related to the ‘historic environment’, notably those on 'health and recreation', 'safe, strong and attractive communities' and 'design'.

10.193 A development management policy on 'design' is proposed that includes design in historic environments. A Supplementary Planning Document on caring for our historic environment may be brought forward.

10.194 Success in delivering these core policy principles will enable us to achieve our strategic objectives BEL3 and 4 for 'built environment' (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

10.195 Proposed changes to the proposals map: amendments to Conservation Areas are shown in Appendix A. These are factual changes as Conservation Areas are designated under separate legislation.

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Question 32

Do you think that our core policy principles for historic environment are right? Why?

Wildlife habitats and species core policy principles

Policy CP 12

The core policy for wildlife habitats and species should:

Protect, enhance, restore and, where appropriate, diversify wildlife habitats and species in both the built and natural environments and identify opportunities to increase the wildlife resource. State that our Special Area of Conservation at Astley and Bedford Mosses (and other internationally designated sites outside of the borough) will be protected in accordance with the governing legislation. State that our Sites of Special Scientific Interest will be protected in accordance with national planning policy as applicable. Protect our Sites of Biological Importance including, where applicable, any future new or altered designations, from development that would adversely affect the integrity of a site, unless it can be demonstrated that it is necessary in the overriding public interest; cannot be carried out elsewhere (in the region or sub-region depending on the grade of designation) or in a different way that would have a lesser impact; and it is mitigated as far as is reasonably possible. Protect, maintain and promote the active management of existing Local Nature Reserves and designate new Local Nature Reserves, notably in the east of the borough, to meet the national standard for provision. Protect and enhance species and habitats that are protected by law or otherwise recognised as important by government or government agency acknowledged policy or evidence, notably UK priority habitats and species, species of principal importance in England and those detailed in the Greater Manchester biodiversity action plan and our own biodiversity strategy.

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Support functional networks for wildlife habitats and species including features of nature conservation importance and work with adjacent districts on cross-boundary issues and impacts. Protect and enhance the borough’s ponds, watercourses, water bodies and wetlands recognising their rich value for wildlife species and their contribution to the quality of life and the well-being of the community. Protect and enhance the borough’s trees, woodlands and hedgerows, recognising their rich value as habitats and their contribution to the quality of life and the well-being of the community. Support an integrated approach to tree and woodland management including in areas of restored and/or maturing woodland and in mature and/or ancient woodlands notably in the north of the borough, including developing a trees and woodland strategy and supplementary planning document. Facilitate opportunities to appreciate, enjoy and learn about wildlife in the borough, notably at gateway sites for the emerging Greenheart Regional Park at Wigan Flashes, Haigh Country Park, Amberswood near Ince and Bickershaw and Pennington Flash in Leigh, and other key sites. Ensure proposals are of the highest quality and demonstrate the best gain for wildlife habitats and species where mitigation, compensation or enhancement is required. Support partnership working to tackle the issue of the spread of invasive species across the borough and ensure appropriate controls through the development process.

10.196 Our preferred option on wildlife habitats and species is consistent with national planning policy, notably Planning Policy Statements 1 ‘Delivering Sustainable Development’ and 9 ‘Biodiversity and Geological Conservation’. It also complies with the Habitats Regulations (as far as international sites are concerned) and the biodiversity duty conferred on all Local Authorities under the Natural Environment and Rural Communities Act 2006.

10.197 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1, DP2, DP7 and DP9; and the environment policies EM1(B) and (D).

10.198 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for ‘ambitious communities’, which protect our environment for future generations and ‘living healthier and longer’ by improving quality of life.

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10.199 Large areas of the borough are significant habitats for wildlife. Many areas have been subject to disturbance as part of Wigan’s industrial past, but have naturally re-colonised and/or have been part of a land reclamation programme to create habitats and attract species.

10.200 Parts of Astley and Bedford mosses in the south-east of the borough are designated as part of the Manchester Mosses Special Area of Conservation, a degraded raised bog of European nature conservation significance. We are required to ensure that development does not adversely affect the integrity of the site unless it is an imperative of overriding public interest; cannot be carried out elsewhere (in Europe) or in a different way that would have a lesser impact; and it is mitigated.

10.201 Sites of Special Scientific Interest (SSSIs) are habitats of national significance that are designated on behalf of the government. We have four such designations, all wetlands / lowland mosses, at Abram Flashes and Bryn Marsh and Ince Moss in the centre of the borough, Highfield Moss to the south of Golborne and Astley and Bedford Mosses.

10.202 Sites of Biological Importance are identified on a sub-regional basis in Greater Manchester and are proposed to the Council for adoption. They are habitats of local, sub-regional or regional importance for maintaining the strength and diversity of wildlife habitats and species and need to be protected accordingly. We will show designations on our proposals map that are up-to-date at the time we submit this strategy to the Secretary of State. A major review is underway to ensure that the designations are consistent and remain accurate. We currently have 125 such sites.

10.203 Local Nature Reserves are places with wildlife or geological features that are of special interest locally. There purpose is to give people opportunities to study or learn about nature or simply to enjoy it. We currently have 4 Local Nature Reserves, at Wigan Flashes, Borsdane Wood in Hindley, Greenslate Water Meadows at Orrell and Low Hall Park between Hindley and Platt Bridge. Further designations will be sought, notably in the east of the borough to ensure that we meet national standards for accessibility.

10.204 Existing key wildlife corridors support functional networks for wildlife habitats and species. Minor changes to the boundaries of the wildlife corridors will be published for consultation in the autumn of 2009 prior to inclusion in our pre-submission Core Strategy.

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10.205 Our Biodiversity Strategy and Action Plan provides a framework for the protection and enhancement of the most important wildlife habitats and species identified in the borough. The Action Plan sets out our response towards the conservation and enhancement of key priority habitats and species, working in partnership with local communities.

10.206 Our recent study on biodiversity and ecology (see Chapter 4) identifies habitats in the borough that are a priority either nationally, regionally or locally and areas where opportunities exist for enhancement. As such we can target development to areas where any ecological impact can be kept to a minimum and ensure that appropriate mitigation or compensation is implemented to protect the biodiversity resources in the long-term. It is our intention to ensure that there is no net loss to biodiversity in line with regional policy.

10.207 Our evidence base on wildlife habitats and species is summarised in more detail in our Topic Paper 10 'Wildlife habitats and species' (June 2009).

10.208 A common theme of our consultation with the community and key stakeholders has emphasised the need to protect and enhance our biodiversity resource through managing our existing habitats as well as enhancing and creating new ones. It has also highlighted the wildlife value of brownfield sites and the need for a strategic programme to facilitate the removal of certain invasive species that are threatening our native wildlife habitats and species.

10.209 Our sustainability appraisal work shows that our preferred approach has particular benefits for environmental assets and resources. The full results to date are set out in an accompanying report.

10.210 Our approach on wildlife habitats and species is led in large part by legal requirements. Alternative approaches may mean that planning policies do not reflect or support our statutory duties and activities in these areas.

10.211 A number of our other preferred core policy principles are particularly closely related to ‘wildlife habitats and species’, notably those on ‘health and recreation’, ‘strategic landscape and green infrastructure’ ‘natural resources’, and ‘pollution’.

10.212 Delivery of these core policy principles is dependent on partnership working with the environment, conservation, and leisure sectors. A key over-arching strategy for enhancing wildlife habitats in the borough is the emerging Greenheart Regional Park. Delivery will be steered by the Greenheart Board and Greenheart Operations Group.

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10.213 The existing Development and Protected Species Supplementary Planning Document will be rolled forward to supplement this core policy. A further document will be brought forward to cover the protection of sites and habitats of national, regional and local importance.

10.214 Success in delivering these core policy principles will enable us to achieve our strategic objectives WHS1 and WHS2 for 'wildlife habitats and species' (see chapter 7). We will monitor our performance in the delivery of these objectives using the targets and indicators set out against them.

10.215 Proposed changes to the proposals map: new and amended Sites of Biological Importance are shown in Appendix B. The maps below show the boundary of the Local Nature Reserve at Orrell Water Park, which was designated in January 2007, and the new Local Nature Reserve at Low Hall Park between Hindley and Platt Bridge.

Local Nature Reserve at Orrell Water Park

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New Local Nature Reserve at Low Hall Park

Question 33

Do you think that our core policy principles for wildlife habitats and species are right? Why?

Energy core policy principles

Policy CP 13

Our core policy for energy should:

Require that development adheres to the ‘energy hierarchy’ set out in national and regional planning policy by minimising energy demand as a priority, particularly through passive solar design and efficiency measures. Where appropriate, support and enable local generation of energy through the development of renewable and other low-carbon energy schemes and networks, such as 'district combined heat and power'.

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Subject to considerations of viability, set an evidence-based target of at least 10% for the amount of energy demanded by new development proposals to be generated from decentralised, renewable and/or low-carbon technologies, with higher targets to be set where particular opportunities have been identified. Promote energy efficiency measures beyond those required by prevalent building regulations. Use development as a mechanism to help improve energy efficiency and increase decentralised, low-carbon energy supplies to existing buildings. Where appropriate, require that new development is equipped and obliged to connect to existing or planned / potential decentralised heat and/or power schemes. Ensure that the embodied energy and resources in a building are taken into account in determining whether to reuse buildings or construct new buildings. Ensure that necessary energy infrastructure and capacity is well-planned and delivered to encourage and support future development. Support the development of Energy Service Companies (sometimes known as ESCOs) as a mechanism for operating and delivering energy services and infrastructure. Encourage cross-boundary solutions such as combined heat and power where opportunities can be shared between neighbouring districts. Recognise and address the potential environmental impacts of energy schemes by carrying out individual impact assessments that are proportionate to the size and importance of the scheme. Require all development proposals to outline how these core policy principles have been implemented as part of an Energy Statement.

*Targets will be expressed as a reduction in carbon emissions in the context of prevalent building regulations, using the predicted emissions rate as a baseline.

10.216 Our preferred option on energy is consistent with national planning policy, notably Planning Policy Statements 1 ‘Delivering Sustainable Development’, including its supplement 'Planning and Climate Change', and 22 ‘Renewable Energy’. It also complies with the Climate Change Act 2008 and the Planning and Energy Act 2008.

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10.217 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1, DP2, DP4 and DP9; and the environment and energy policies EM15, EM16, EM17 and EM18.

10.218 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priorities for ‘ambitious communities’, which look to the future and protect our environment for future generations and ‘living healthier and longer’ by improving quality of life.

10.219 There is strong evidence that climate change and energy security are key issues that need to be tackled both globally and locally. The has become one of the world’s leaders on climate change and energy policy, being the first country to introduce legally binding carbon reduction targets through the Climate Change Act 2008. Through this Act the government is committed to reducing carbon emissions by 26-32% by 2020 and 80% by 2050. However, there is increasing recognition that we have to act stronger and sooner if we are to prevent the planet from warming above a critical level.

10.220 We also need to achieve better energy security and tackle fuel poverty. In 2008 the government published a draft Renewable Energy Strategy which sets out that 15% of the UK’s energy should come from renewable sources by 2020. The planning system has a vital role to play if we are to achieve these aims and move towards a low-carbon economy.

10.221 A key part of our evidence base is the Greater Manchester Energy Study, which is due to be completed in Summer 2009. This will inform our carbon reduction targets and help us to develop a more robust energy plan for the borough that will be linked to the council’s Climate Change Strategy. However, through development opportunities we will need to supplement this with more detailed information about strategic opportunities for energy schemes and site-specific viability/feasibility.

10.222 Promoting energy efficiency measures beyond those required by prevalent building regulations will reduce the total energy demand and carbon emissions of a proposal so that the actual amount that our target reduction applies to will be proportionally reduced and easier to achieve.

10.223 Our existing building stock will still be the majority contributor to carbon emissions in 2020 and beyond. Therefore, our preferred approach aims to tackle carbon emissions and energy issues associated with existing buildings as well as from new development. New

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developments can be a catalyst for establishing energy networks that serve existing buildings. We may also establish a ‘carbon fund’ supported by developer contributions, which would be used to invest in efficiency measures or low carbon energy schemes for the existing stock.

10.224 We also recognise that we are starting from a ‘low baseline’, in that we produce very little renewable energy in the borough at present, and are heavily reliant on non-renewable energy imported from outside the borough. Continued reliance on oil, gas and coal (and nuclear) means we are vulnerable to changes in the price and availability of these fuels. In the long-term this could result in a very negative impact on our economy due to rising costs and potential disruptions to supply.

10.225 Evidence from a recent report conducted across Greater Manchester also suggests that there are economic benefits of taking advantage of emerging technologies and services in the energy and environmental sectors before others do. Therefore, we propose to take a proactive and challenging approach to energy and climate change in the borough, seeking the highest viable standards of sustainability and supporting business opportunities and skills development in these sectors.

10.226 Our evidence base on energy is summarised in more detail in our Topic Paper 11 'Energy' (June 2009).

10.227 Consultation with the community and key stakeholders has identified strong support for energy efficiency measures and general agreement that a flexible, mixed approach to renewable and low-carbon energy technologies would be the most beneficial, rather than focusing on any one technology.

10.228 Our sustainability appraisal work shows that the positive impacts of our preferred approach outweigh the negatives. The careful application of policies and further impact assessment is required to ensure that greater negative impacts do not occur, particularly against our housing objectives. The full results to date are set out in an accompanying report.

10.229 A number of our other preferred core policy principles are particularly closely related to ‘energy’, notably those on 'economy and employment', 'housing' 'accessibility', 'strategic landscape and green infrastructure', 'design', 'waste' and 'pollution'.

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10.230 Our options for energy are increasingly being directed by national legislation and policy, regional policy and the almost recognised threats from climate change. So to do less is not an option. Doing more however, is constrained by needing to maintain the viability of development and by the requirement to establish robust and credible local evidence in the face of a global threat.

10.231 In order to deliver these core policy principles we will need to facilitate and support substantial new ‘energy infrastructure’ in the borough. We will also need to consider supporting infrastructure such as connection networks, substations, storage facilities for fuel, heat and power, access roads, and grid connection; including reinforcement and upgrading of existing infrastructure.

10.232 We recognise that this infrastructure will need to be delivered over different time frames by a variety of stakeholders, and utilising a range of funding mechanisms. Key partners will include developers, energy companies including Energy Service Companies (ESCOs), government agencies, other public sector organisations such as the health service, local communities and neighbouring councils.

10.233 We anticipate that a number of public sector buildings could be utilised as ‘anchor loads’ to help support the development of renewable/ low carbon energy schemes. Town centres and mixed use developments may also present particular opportunities to develop low-carbon energy networks.

10.234 We propose a development management policy on decentralised energy that expands upon aspects of these core policy principles - see development management policy principles DM7.

10.235 We need to develop a robust energy plan/strategy to identify strategic opportunities for renewable and low carbon energy schemes. Subsequent standards and targets may be set out in a development plan document and further guidance may be set out in a supplementary planning documents.

10.236 Success in delivering these core policy principles will enable us to achieve our strategic objectives E1 for 'energy', CC1 for climate change and BEL3 for 'design' (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

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Question 34

Do you think that our core policy principles for energy are right? Why?

Waste core policy principles

Policy CP 14

Our core policy for waste should:

Promote sustainable waste management in accordance with the waste hierarchy. Support work with other Greater Manchester Authorities (through the preparation of the Joint Waste Development Plan Document) to: Identify and safeguard waste management sites in appropriate locations; Ensure that the authority makes its contribution towards meeting sub-regional waste management needs; Encourage good design in order to minimise waste and promote the use of recycled materials; and Encourage the sustainable transport of waste and promote the use of site waste management plans.

10.237 Our preferred approach to waste is consistent with national planning policy, notably Planning Policy Statements 1 'Delivering Sustainable Development' and 10 'Planning for Sustainable Waste Management' and with the ‘Waste Strategy for England 2007’, which is part of the implementation for England of the ‘Framework Directive on Waste’.

10.238 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1, DP4 and DP9 and the waste policies EM10-14.

10.239 It also accords closely with our sustainable community strategy ‘vision 2026’, notably the priority for 'ambitious communities', where communities will look to the future and protect our environment for future generations.

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10.240 The overall objective of government policy on waste is to protect human health and the environment by producing less waste and by using it as a resource wherever possible. The policy principles, along with the Greater Manchester Joint Waste Development Plan Document, therefore aim to break the link between economic growth and the environmental impact of waste by more sustainable waste management, moving the management of waste up the ‘waste hierarchy’ of reduction, reuse, recycling and composting, using waste as a source of energy and only disposing as a last resort.

10.241 Our evidence base on waste is summarised in more detail in our Topic Paper 12 'Waste' (June 2009).

10.242 The other core policy principles that are most closely related to those for ‘waste’ are the core policy principles for ‘design', ‘accessibility’ and ‘natural resources’.

10.243 Our sustainability appraisal work shows that there would be a positive impact across a number of sustainability objectives, although most of these are only minor or moderate. Potential negative impacts concern traffic and amenity although there is scope for mitigation. The full results are set out in an accompanying report.

10.244 Deliverability of these core policy principles is dependent on effective partnership with the Greater Manchester Geological Unit and the other Greater Manchester authorities also involved in preparing the Greater Manchester Joint Waste Development Plan Document; the council acting as waste collection and waste disposal authority; the waste management industry' local businesses; the general public; and the Environment Agency.

10.245 The Greater Manchester Joint Waste Development Plan Document will set out the planning strategy to 2026 for sustainable waste management which enables the adequate provision of waste management facilities (including disposal) in appropriate locations for municipal waste, commercial and industrial waste, construction and demolition waste and hazardous wastes. It will include a set of development management policies which will assist in the consideration of waste planning applications and will identify potential locations for future waste management facilities.

10.246 Delivery of these core policy principles would enable us to achieve our strategic objective W1 for ‘waste’ (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

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Question 35

Do you think that our core policy principles for waste are right? Why?

Natural resources core policy principles

Policy CP 15

The core policy for natural resources should:

Ensure that Wigan Borough contributes its reasonable share of mineral resources to help secure an adequate and steady supply of minerals for the economy and society in line with the principles of sustainable development; that minerals resources are used efficiently and effectively when extracted, making use of carbon reduction technologies; and that important mineral resources, notably coal, sand and gravel are protected by mineral safeguarding areas for future use. Provide for the maintenance of land-banks of the appropriate level of permitted reserves of non-energy minerals. Ensure that all mineral extraction sites, including existing sites at Morleys Hall Quarry and Astley and Bedford mosses, are restored fully, providing for progressive working and restoration where feasible, notably for agriculture, forestry, recreation and/or to support biodiversity and the historic landscape as appropriate. Seek to maximise the use of secondary and recycled aggregates in order to preserve primary mineral resources, by encouraging the recycling of construction and demolition waste at appropriate locations by promoting the use of site waste management plans at construction sites and by encouraging the recycling of demolition waste at redevelopment sites again making use of carbon reduction technologies. Conserve the integrity of the remnant mosslands at Astley and Bedford mosses, Highfield Moss near Lowton, Amberswood Common near Ince and Wigan Flashes. Seek to conserve top-soil by reusing existing buildings, maximising the use of previously-developed and degraded land, safeguarding and re-using top soil on development sites and maintaining the borough’s ‘best and most versatile’ agricultural land as a high quality resource for long term food production.

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Avoid severance or fragmentation of viable areas of uninterrupted farmland. Seek to establish measures that reduce our overall consumption of water per head of population, in particular conserving water and using it efficiently through measures such as rain water capture, green roofs and grey water recycling. Reduce flood risk from all sources, notably from rivers and other water courses in the central areas of Wigan and Hindley and parts of Leigh, and from sewer and surface water across the borough, by incorporating appropriate mitigation measures including ensuring that surface water run-off remains the same or is reduced as a result of development, including implementing sustainable drainage systems and reconnecting watercourses with their floodplains through, in part, de-culverting.

10.247 Our preferred approach for protecting, enhancing and promoting our natural resources is consistent with Planning Policy Statements 1 ‘Delivering Sustainable Development’, including its supplement 'Planning and Climate Change'; 7 ‘Sustainable Development in Rural Areas’; 9 ‘Biodiversity and Geological Conservation’; and 25 ‘Development and Flood Risk’; together with Minerals Planning Statements 1 ‘Planning and Minerals’ and 2 ‘Controlling and Mitigating the Environmental Impact of Minerals Extraction in England’.

10.248 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP1, DP4, DP7 and DP9; environment policies EM1, EM3 and EM5; minerals policies EM7, EM8 and EM9; and the Manchester City Region policy MCR1.

10.249 It also accords with our sustainable community strategy ‘vision 2026’, notably the priority for ‘ambitious communities’, which look to the future and protect our environment for future generations.

10.250 Our preferred approach will help to facilitate the conditions to enhance and improve environmental standards for the benefit of local communities.

10.251 These core policy principles support an integrated vision of the mosslands which seeks to reclaim the landscape by enabling the diversity of the agricultural economy and realising its potential to act as a ‘green lung’ for the Greater Manchester sub region. We will ensure that the potential impacts of development on air quality, water quality and water levels are considered to conserve the integrity of the mosslands.

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10.252 Mineral resources are of great importance to the economy, but their extraction must be balanced with environmental and social costs. Our core policy principles will ensure they are managed carefully, used efficiently and restored effectively for appropriate uses.

10.253 These core policy principles seek to ensure effective measures for the protection of soil functions, mainly to maintain capacity for growing food. As such all top-soil that is disturbed should be safeguarded for future use; the development of 'best and most versatile' agricultural land should be avoided wherever possible, in line with national policy, and, in line with the core policy principles on health and recreation, opportunities for people to grow their own food should be promoted wherever practicable.

10.254 Wigan Borough is subject to several types of flooding, including flooding from rivers and other water courses, surface water flooding and sewer flooding. Our evidence base is incomplete. We are commissioning a further Strategic Flood Risk Assessment to complete our level 1 assessment for all flood types and undertake our level 2 assessment across the borough. In anticipation of the outcome however, it is likely that most, if not all, development will have to include measures to reduce and/or slow surface water run-off. In addition, extensive flood alleviation measures are proposed in the Douglas Valley upstream of Wigan town centre to significantly reduce the prospect of flooding to the south of the town centre. This is essential as the area is part of 'Wigan South Central'.

10.255 Our preferred options approach will protect and improve the water resource in line with the EU Water Framework Directive. It will have regard to the findings of the Strategic Flood Risk Assessments at all levels from regional through to local and also, river basin management plans, catchment flood management plans and water company asset management plans.

10.256 Our evidence base on natural resources is summarised in more detail in our Topic Paper 13 'Natural resources and pollution' (June 2009).

10.257 Consultation with the community and other stakeholders has identified a wide range of issues. Notable amongst this is the fact that our soils are not very permeable, which exacerbates rates of surface water run-off.

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10.258 Our sustainability appraisal work shows that, on balance, our preferred approach supports our sustainability framework, particularly in terms of landscapes, soil and water. However, there are a number of potential negative impacts that need to be mitigated. We set out such policy safeguards in other core policy principles. The full results to date are set out in the accompanying report.

10.259 We have considered a number of alternative approaches for protecting and enhancing our natural resources and using them in a sustainable way. An alternative spatial approach that directs development to outer areas of the borough or disperses development would almost certainly necessitate the development of 'best and most versatile' agricultural land. The east-west core of the borough is also where mineral resources have been extracted so it is far less likely to 'sterilise' resources.

10.260 A number of our other preferred core policy principles are particularly closely related to ‘natural resources’, notably those on 'health and recreation', 'strategic landscape and green infrastructure', 'economy and employment', 'housing', 'green belt and safeguarded land', 'wildlife habitats and species', and 'pollution'.

10.261 Delivery of these core policy principles is dependent on partnership working with the environment and utilities sectors. A development plan document will be brought forward to establish new development management policies for minerals, including site and area designations, in line with national minerals planning policy. The means of achieving this in partnership with the other districts in Greater Manchester is still being explored.

10.262 Delivery of these core policy principles would enable us to achieve our strategic objectives NRP3-8 on natural resources (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

Question 36

Do you think that our core policy principles for natural resources are right? Why?

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Pollution core policy principles

Policy CP 16

The core policy for pollution should:

Manage air quality, particularly in our Air Quality Management Areas which lie along all of our principal traffic routes, by requiring measures to reduce the exposure of the local population to poor air quality and minimise air pollution and greenhouse gases from new development. Seek to tackle land contamination, primarily on sites affected by past industrial uses, by promoting the appropriate re-use of sites and, where sites come forward, by supporting the identification of contamination and requiring appropriate remediation measures. Promote the appropriate reclamation and remediation of derelict, underused and neglected sites in ways that ensure the character of the Borough is sensitively maintained and enhanced, having regard to biodiversity interests. Manage environmental noise, notably in areas identified in the Government’s strategic noise maps including Hindley, Leigh, Atherton and Tyldesley, by supporting measures to reduce the impact on individuals of noise from transport and industry and to minimise noise from new development. Support measures to minimise artificial light pollution emitted from sites and premises. Support measures to improve water quality within the River Douglas and its tributaries and other main water courses in the Borough including those in the Glaze Brook and Sankey catchments. Ensure development does not result in unacceptable levels of pollution in watercourses or groundwater or which would result in the transfer of contaminated run off to foul or surface water sewers or that would compromise the integrity of the mosslands.

10.263 Our preferred approach for pollution is consistent with the main environmental protection legislation, including the Environmental Protection Act 1990, the Environment Act 1995, the Environmental Noise Regulations 2006 and the European Union Water Framework Directive. It is also consistent with national planning policy notably, Planning Policy Statements 1 ‘Delivering Sustainable Development’ and 23 ‘Planning and Pollution Control’ and Planning Policy Guidance note 24 ‘Planning and Noise’.

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10.264 It also conforms closely with the Regional Spatial Strategy: in particular the spatial principles policies DP2, DP7 and DP9; environment policies EM1, EM2 and EM5; and the Manchester City Region policy MCR1.

10.265 It also accords with our sustainable community strategy ‘vision 2026’, notably the priority for ‘ambitious communities’, which protect our environment for future generations and ‘living healthier and longer’ on supporting people to make choices that improve quality of life.

10.266 There is a need to tackle all forms of pollution in order to protect the environment and people's health and quality of life. Wigan's long industrial history has left a legacy of potentially contaminated land. Many of these sites have been identified and prioritised for future investigation with a view to remediation. The decline in industry has improved air quality and reduced noise pollution but both have been countered in some respects by the rise of road traffic. Work is being carried out in partnership with other councils in Greater Manchester to tackle poor air quality but there are still unacceptably high levels of pollution in some areas across the borough. Noise is currently mitigated as far as possible using planning and environmental controls. However work is ongoing on the strategic assessment and management of environmental noise in the borough.

10.267 A key measure in our air quality action plan is to ensure that the planning system is used where possible to minimise the impact of new development and reduce local air pollution. Supported by a ‘Low Emission Strategy’ approach our preferred options can help minimise both polluting and greenhouse gas emissions from new developments.

10.268 Soil resources can be contaminated or damaged as a result of erosion, loss of nutrients, industrial and agricultural pollution or other natural or human activities. We have statutory duties to find and deal with land contamination and the risks it can pose to people’s health and the environment. A recent study identified over 5,000 sites in the borough with historical industrial uses. Our contaminated land inspection strategy describes how the sites of greatest risk to the public and the environment will be dealt with and acknowledges that the planning development process will continue to be the primary route for the effective treatment of contaminated sites. It therefore helps to bring previously-developed and degraded land forward for development, provided that important biodiversity and open space interests are safeguarded.

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10.269 The Government has introduced a new regime for the assessment and management of environmental noise. We have a role in implementing policies and action plans to manage environmental noise and protect communities. Strategic noise maps were published in 2008 for major roads, major railways and agglomerations with a population of more than 250,000. Areas of the borough have been included on the map for Manchester.

10.270 There is also a need to mitigate any noise from new developments that have the potential to cause a statutory nuisance.

10.271 Since 2006 the statutory provisions for nuisance have been extended to cover artificial light emitted from premises. There are a number of exclusions listed including transport facilities, freight depots, lighthouses, defence premises and prisons. Planning conditions can be used to limit light 'spillage' or pollution.

10.272 It is important that the chemical and biological quality of water in our waterways is improved. Indeed water pollution has been identified as one of the key issues affecting three of the four 'Wigan Biodiversity Action Plan' species. All controlled waters including rivers, flashes and aquifers have been identified as sensitive receptors requiring protection from contamination and contaminated land.

10.273 Our preferred approach will help to facilitate the conditions to enhance and improve environmental standards for the benefit of local communities and will ensure that the potential impacts of development such as air and water quality are considered to conserve the integrity of the mosslands. It will protect and improve the water resource in line with the EU Water Framework Directive and will have regard to the findings of the river basin management plans.

10.274 Our evidence base on pollution is summarised in more detail in our Topic Paper 13 'Natural resources and pollution' (June 2009).

10.275 Consultation with the community and other stakeholders has identified that many were supportive of our strategic objectives and, in particular, tackling air pollution and climate change and improving water and soil quality are important.

10.276 Our sustainability appraisal work shows that our preferred approach would have positive impacts increasing over time across the range of environmental, social and economic factors. The full results to date are set out in the accompanying report.

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10.277 Our preferred approach for pollution is led by legal requirements. Alternative approaches may mean that planning policies do not reflect or support our statutory duties and activities in these areas.

10.278 A number of our other preferred core policy principles are particularly closely related to ‘pollution’, notably those on 'health and recreation', 'strong, safe and attractive communities', 'accessibility', 'strategic landscape and green infrastructure', 'wildlife habitats and species', 'waste', and 'natural resources'.

10.279 These core policy principles will be delivered in part through the appropriate management of development. In such instances and otherwise it will be dependent on partnership working with the environment, health and safety and public protection sectors. To tackle air quality issues, we will continue working in partnership with other councils in Greater Manchester.

10.280 The existing Development and Air Quality Supplementary Planning Document supplements the Pollution Core Policy and provides detailed guidance on assessing impacts of development on air quality and how to address these.

10.281 Delivery of these core policy principles would enable us to achieve our strategic objectives NRP1-3 and 6 and 7 for pollution (see chapter 7). We will monitor our performance using the targets and indicators set out against them.

10.282 Proposed changes to the proposals map: delete 'land reclamation and renewal' sites under policy EV1A in the current Unitary Development Plan.

Question 37

Do you think that our core policy principles for pollution are right? Why?

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ELEVEN Our preferred development management policies

11.1 We propose to include a small number of development management policy principles in this Core Strategy to provide additional policy detail to that included in the core policy principles. This is particularly important when necessary to comply with national or regional policy and/or to provide consistency with the current Unitary Development Plan as far as appropriate in the change from 'development control' to 'development management'. Most of the Unitary Development Plan will be replaced directly by the Core Strategy.

Open space, sport and recreation

Policy DM 1

Our development management policy for open space, sport and recreation should:

Establish local standards for the quantity and quality of open space, sport and recreation provision Only allow development that would result in the loss of amenity greenspace where it is low of community use and comparable or better alternative provision is available and similarly accessible. Ensure that open space and/or play space is provided on site as part of new housing developments, or that a contribution is made by the developer to off-site provision.

11.2 Our preferred approach accords with our core policy principles CP1 'Health and recreation' and will be consistent with national planning policy as set out in Planning Policy Guidance note 17: 'Planning for Open Space, Sport and Recreation', once we have established our local standards.

11.3 Our open space, sport and recreation needs assessment sets out evidence for our standards. It identifies shortfalls for various types of provision throughout the borough and standards will need to be developed to rectify these. The standards will be published for consultation in the autumn of 2009 prior to inclusion in our pre-submission Core Strategy.

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11.4 Continuing to provide open space through the development of new housing will ensure that standards for types of open space can be met, either on the site or off site in an appropriate location. Developer Contributions are also a major funding source for play equipment, to ensure that communities have access to play provision. Our existing supplementary planning document on 'Open space in new housing' will continue to apply.

Question 38

Do you think that our development management policy principles for open space, sport and recreation are right? Why?

Employment land and buildings

Policy DM 2

Our development management policy for employment land and buildings should:

Ensure that where all, or a substantial part, of an employment area is proposed for development or redevelopment that would have a significant impact on the local area in terms of traffic generation and other amenity considerations, a masterplan shall be agreed with, and approved by, the council, and development should accord substantially with the approved masterplan. Enable development for, or change of use to, employment uses as defined in the box below, provided that there will be no unacceptable environmental, amenity, highway, road safety or other adverse impact. Only allow the re-use of employment land and buildings for non-employment uses where: It can be demonstrated that there is no current or likely future demand for employment uses and the site could not reasonably be made suitable to meet current or likely future demand; or The site or use gives rise to a significant environmental problem such as pollution, noise or traffic generation on unsuitable roads, and redevelopment or re-use for non-employment uses is the only means by which sufficient mitigation can be achieved; or

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It is the only viable means of retaining a building of architectural or historical significance; or As part of a larger scheme, an element of non-employment development or uses is necessary to enable the required upgrading, modernisation or redevelopment of existing employment land and buildings on the remainder of the site to a standard suitable for modern business needs; or It is an important component of a wider regeneration proposal supported by the Local Strategic Partnership; or It will meet an established need in accordance with other policies in the Local Development Framework and it can be demonstrated that there is no alternative site reasonably available and the benefits, in planning terms, outweigh the loss of the employment land; or It will be small scale and complementary to the primary employment function of the area; or It is a small site, below 0.4 hectares, that is physically isolated from other employment sites; and Ensure that development or change of use would not detract from the employment use of other nearby employment sites; and Require the developer to provide a financial contribution towards off-site employment development / investment or training initiatives in the borough to compensate for the loss of the site to non-employment uses, with the borough’s average employment land value, as stated in the most up-to-date Valuation Office Agency Property Market Report, used as the basis for determining the level of compensation.

Employment uses

Employment uses include uses within Use Classes B1 business, B2 general industry and B8 storage and distribution, and other employment uses. Outside of the Use Classes Order, employment uses that may be appropriate include a builders merchant; builders yard; gardening/horticultural contractors base; civil engineering depot; demolition contractor’s yard; transport depot; haulage yard; coal merchant; scrap yard; waste transfer depot; waste transfer and recycling facilities; utility company depot; security business; taxi or private hire business; plant hire; skip hire, trade counter, and motor vehicle servicing, repairs, hire and sales.

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11.5 Our preferred approach accords with our core policy principles CP4 'Economy and employment'. It is a combination of policies EM1A and EM1B in our Unitary Development Plan that applies to all employment land and buildings, both allocated and unallocated. It has enabled the effective control of the loss of employment land and remains relevant for the future. Further guidance on the policy requirements is set out in our Supplementary Planning Document ‘Reuse of employment land and buildings for non-employment uses' (April 2006), which we will update accordingly in line with this policy.

11.6 Not all employment uses are appropriate on all employment sites. Conflict can occur where the external impact of one use has detrimental effects on the amenity enjoyed by a use located adjacent or nearby and/or the overall 'image' of the location. Clearly, there can also be an adverse impact on uses outside of the employment area.

11.7 In order to demonstrate that the site or premises is no longer viable for continued employment use, we will require evidence that it has been effectively marketed and/or that the means by which it could be made suitable, such as demolition and rebuild, have been costed and can be shown to be uneconomic against prevailing land prices and rentals being achieved in the area. The availability of grant assistance to make it financially viable will also need to be discounted. Similar evidence will also be required in order to demonstrate that non-employment uses are the only means by which a substantial environmental problem can be mitigated; or that a building of architectural or historic interest can be retained.

11.8 Where existing employment areas require upgrading, modernisation or redevelopment to bring them up to a standard suitable for modern business needs, an element of residential development or other higher value use(s) will be permitted (subject to other relevant policy considerations) where the applicant can demonstrate that it is necessary in terms of viability, based on similar evidence to that described above. In these circumstances, a masterplan may be required to ensure that the proposed development is appropriate in terms of layout, siting, design and amenity. A standard suitable for modern business need is that which is likely to be attractive to the market.

11.9 Regeneration is an ongoing priority and, over time, different initiatives are advanced in different areas according to need and opportunity. In some circumstances there can be advantages in reorganising land uses such that it is appropriate for redevelopment of an employment site for other uses. Such a proposal would need to have the support of the Local Strategic Partnership in order to ensure that it is in the wider economic, social and environmental interests of the area.

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11.10 In order to demonstrate that a development or use proposed is needed and cannot reasonably be implemented on a site not in, or last in, employment use, evidence will need to be presented against relevant planning policy for the development and/or use concerned.

11.11 To be isolated from other employment sites a site should share no more than one-quarter of its boundary with another employment site or sites, including on opposite sides of the highway.

11.12 Small scale and complementary uses are those that would provide a service primarily to local employees and businesses, for example a snack bar, café, local convenience store (less than 150 square metres gross floorspace), day nursery or fitness gym. Developers will be required to demonstrate that the proposed use will receive at least 50% of its trade from local employees and businesses.

11.13 Any alternative development or use should not detract from the use of other nearby employment premises for employment purposes, including the need for access by heavy goods vehicles and other commercial vehicles, and will be subject to other policies in the Local Development Framework.

11.14 All financial contributions will be secured via a planning obligation and will be ring-fenced by the council for off-site employment development/investment and training initiatives. Financial contributions will reflect the average employment land value in the borough, as stated in the most up-to-date Valuation Office Agency Property Market Report.

Question 39

Do you think that our development management policy principles for employment land and buildings are right? Why?

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Retail and centres

Policy DM 3

Our development management policy for retail and centres should:

Maintain primary shopping areas in our town centres within which retail uses (use class A1) should be the principal use at ground floor and mall level. Allow the full range of 'town centre uses' elsewhere in our town centres provided that the proposed use or uses relates well to existing uses in the locality and across the town centre in terms of existing and likely pedestrian flows, 'vitality and viability' and amenity considerations and accords with our spatial and core policies. Support the development of local independent retailers and retail entrepreneurship by: expecting large retail developments to include a proportion of smaller units for the occupation of local independent retailers. using planning conditions to ensure that developments consisting of small retail premises cannot be amalgamated into larger units. utilising developer contributions (or other appropriate means) to subsidise affordable shop units for local independent retailers. Maintain and enhance local centres and neighbourhood centres through permitting an appropriate mix of 'local centre uses' including convenience retail, prioritising these locations for the provision of local services and facilities and only allowing residential development at ground floor level where it would help improve an under-performing centre.

11.15 Our preferred approach accords with our core policy principles CP5 'Retail and centres' and is consistent with national planning policy as set out in Planning Policy Statement 6: 'Planning for Town Centres'.

11.16 Maintaining the 'vitality and viability' of our town centres and local and neighbourhood centres is important to achieving 'sustainable communities'. They are, by definition, locations that are accessible to everyone within the catchment area that they need to serve. Wigan town centre should be able to meet nearly all of people's shopping needs and requirements. Leigh and Ashton town centres should be able to meet a substantial part of people's shopping needs. Our other town centres should be able to meet a comprehensive range of local shopping needs. Our

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local centres should be able to meet most of people's day-to-day convenience shopping needs and a range of other local service requirements within a walking distance of home. Neighbourhood centres should be able meet people's day-to-day convenience shopping needs and fill the 'gaps' between local centres.

11.17 'Vitality' and 'viability’ are concerned with the performance of a centre as a hub of the community and economically. Vitality refers to how busy it is and how well it's different components relate to one another. It can be measured by a range of indicators including the diversity of uses, the proportion of vacant shops and pedestrian flows. Viability is how capable a centre is of being commercially successful and attracting on-going investment. Key indicators include shopping rents, commercial yields, the number and type of retailers that are present and those that would like to move into the centre.

11.18 Primary Shopping Areas (currently called Principal Shopping Areas in the Unitary Development Plan) are the areas in each town centre with the highest concentration of shops. Shopping is the core function of town centres and people like to compare products in different stores and shop for a range of goods. It is therefore important for the ongoing attraction of a town centre that a concentration of shops is maintained or enhanced.

11.19 Elsewhere in our town centres a much wider range of 'town centre uses' is appropriate, both to enable people to use other services and facilities in the same trip and to keep the town centre functioning outside of normal shopping hours. Such uses include shops, entertainment and leisure, pubs, bars and restaurants, community uses, offices and cultural facilities. However, it is important that these uses are arranged in ways that maintain the vitality and viability of the locality concerned, as appropriate, and the wider town centre. Housing can also be appropriate, particularly on upper floors, as it maintains a human presence in centres overnight and all services and facilities are available locally. However, it can constrain commercial development as a result of adverse impacts on amenity.

11.20 Independent retailers have an important role in making our town centres attractive places with distinct shops. Independent retailers are often defined as a single shop or chain of ten stores or less that are independently owned. Local retailers would typically be based in the borough or nearby. Small retail premises, for the purpose of this policy, are units that have a gross floorspace of approximately 100 square metres. Utilising developer contributions for

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affordable shop units is appropriate because not only can independent retailers help make town centres more attractive and distinct, but independent retailers using local suppliers can also ensure that the money generated by their businesses stays in the local economy.

11.21 'Local Centre uses' typically include small supermarkets / convenience stores, newsagents, sub-post offices, pharmacies and hot-food takeaways serving a small catchment area.

11.22 For the purposes of this policy 'convenience shopping' refers to everyday items including food, drink, newspapers, magazines and confectionery.

11.23 Proposed changes to the proposals map: delete 'retail development' at Station Road, Wigan town centre under policy S1C in the current Unitary Development Plan, because it has been built and opened as the 'Grand Arcade'. The map below illustrates the proposed revised Primary Shopping Area boundary, which is extended to include the Grand Arcade.

Revised Primary Shopping Area boundary

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Question 40

Do you think that our development management policy principles for retail and centres are right? Why? And do you think that the revised Primary Shopping Area boundary is right? And if not, what should it be?

Parking

Policy DM 4

Our development management policy for parking should:

Ensure convenient, safe and secure provision in new development for cycle, motorcycle and car parking and car parking for disabled people in accordance with regional standards. Enable scope for varying from the regional standards in considering the following factors: the accessibility of the site by public transport. the availability of convenient and safe off-street parking. the availability of on-street parking without detriment to residential amenity and highway safety. the feasibility of providing on-site parking relative to other planning issues such as the reuse of a constrained site or building and urban design factors and in mixed-use developments where spaces can be shared if peak usage times for different uses vary. Requiring a legal agreement, where necessary, to secure a developer’s contribution to the provision and/or management of off-site parking. Allow the provision of general car parking (not associated with a particular development) subject to one or more of the following criteria: It is developed in conjunction with greater on-street parking controls and enforcement to improve conditions for buses and cyclists. It will not provide net additional long-stay car parking in a town centre unless dedicated to a rail station.

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11.24 Our proposed approach accords with our core policy principles CP7 'Accessibility'; is consistent with national planning policy as set out in Planning Policy Guidance note 13: 'Transport'; and supports the emerging regional parking standards.

11.25 There is a balance between managing traffic growth through 'demand management' techniques such as restrictive parking policies and securing economic development. The removal of parked cars from traffic routes can improve the attractiveness of bus use by improving punctuality.

11.26 When a development is proposed with car parking in excess of the maximum standards, it should be justified in the accompanying Transport Assessment and Travel Plan. Applicants should discuss their proposal with us at an early stage to determine what is likely to be acceptable.

Question 41

Do you think that our development management policy principles for parking are right? Why?

The re-use of buildings in the Green Belt or safeguarded land

Policy DM 5

Our development management policy for the re-use of buildings in the Green Belt or safeguarded land should:

Allow for the reuse of structurally sound, permanent existing buildings in the Green Belt and safeguarded land with proposals which respect their form and style and which limit extensions to such buildings to 50 cubic metres volume of single storey construction. Restrict encroachment onto agricultural land to form a curtilage. Require a non-residential use for proposals involving a Listed Building, a building in a conservation area or a building of local interest, such uses being generally less detrimental to the fabric and character of historic buildings, unless it is demonstrated that such a use is not feasible.

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11.27 Our proposed approach accords with our core policy principles CP8 'Green Belt and safeguarded land' and is consistent with national planning policy as set out in Planning Policy Guidance note 2: 'Green Belts'.

11.28 These policy principles apply national policy on the Green Belt appropriately to the local context. They have been applied successfully in Wigan Borough over a long period of time.

11.29 When considering making a proposal for the reuse of a sound, permanent existing building in the Green Belt and safeguarded land, applicants should discuss the project at an early stage with us and employ the services of a Chartered Architect. Applications will not be accepted in outline form and full and precise details of both internal and external features must be submitted.

11.30 A building will be considered to be needing major reconstruction (and therefore not capable of re-use under this policy) if more than 20% of its fabric needs to be rebuilt, although the replacement of the roof covering in appropriate material will usually be acceptable. Wherever possible new window or other openings should not be made and existing ones (or previously closed off ones) should be re-used.

11.31 The design should minimise the visual impact of the conversion both externally and internally, for example by using minimal and discrete new openings, retaining open roof structures and existing partitions and minimising new floors especially over threshing spaces. Existing materials should be re-used wherever possible.

11.32 Permitted development rights under the General Development Order will normally be removed and for business uses the approval will be specific to the use applied for to prevent unsuitable changes of use within the Use Class.

11.33 After conversion any proposals for further extensions or for outbuildings will be considered against the provisions of this policy and the building will not be considered to be an existing house for the purposes of extension or replacement under core policy principles CP8.

Question 42

Do you think that our development management policy principles for the re-use of buildings in the Green Belt or safeguarded land are right? Why?

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Design

Policy DM 6

Our development management policy for design should:

Ensure that design quality is considered early in the development process through reference to design guidance (supplementary planning documents) and discussions with the council if appropriate prior to submitting an application. State that design and access statements clearly illustrate and explain the design components of the proposals and justify how the development will support design quality. Ensure that design helps foster a sense of community by respecting and enhancing locally distinctive patterns and styles of development. Where this is lacking, development should not miss the opportunity to introduce a ‘sense of place' appropriate to the character of the borough. Ensure that opportunities are not missed to provide an accessible network of plot patterns, street layouts and block sizes that establish safe, attractive and 'usable' streets and spaces, including squares and parks. Ensure that streets and spaces encourage pedestrian and cyclist activity, are not overly car-orientated and are accessible by disabled people. Shared surfaces, cycle lanes, cycle facilities and footpaths should be provided. Streets, squares and parks should be clutter free, well landscaped and maintained for future generations to enjoy. Car parking should be conveniently located, well over-looked and located to help manage the speed of traffic, but not be visually dominant. Promote developments that people will understand and can find their way around, by providing recognisable gateways, routes and junctions and protecting and enhancing local and strategic views of landmarks and focal points. Promote developments that people can understand and find their way around by providing recognisable 'gateways', clear routes and junctions and providing, protecting and enhancing local and strategic views of landmarks and focal points. Ensure that development will be safe for users and, as far as reasonably practicable, will maintain or improve safety in the locality, demonstrated by reference to ‘Secured by Design’ guidance and/or certification by, or on behalf of, the police.

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Ensure that places are robust enough to adapt effectively to changes in social, technological, economic and climatic conditions. Encourage mixed-use development with uses that would complement one-another, be mutually supportive and enable accessibility by walking, cycling and public transport. Ensure that development responds positively to neighbouring buildings and the local area more generally, and considers the human scale relationship with buildings in terms of their scale (form, mass and height) as well as the shape of roofs. Establish high quality, innovative and contemporary interpretations of existing built environments that have stood the test of time and avoid using standardised approaches to design. Ensure that development is energy and resource efficient by reusing existing building materials and/or using building materials from local sustainable sources; providing opportunities for recycling; minimising water use and using sustainable drainage systems. Ensure that major developments include high quality works of specific public art and provide for its long-term maintenance or, where it is not practical or possible, makes an appropriate financial contribution to the 'public art fund'. Require development to incorporate good quality hard and soft landscaping as an integral part of the proposals to enhance the environment and setting of a new building and help integrate the development into its surroundings. Resist the sub-division of curtilages that would be detrimental to the setting of a listed building, a protected tree or trees, or the qualities of a conservation area or an historic park, garden or cemetery. Ensure that traditional shopfronts are retained wherever possible irrespective of the use of the property and that new shopfronts use traditional materials or high quality contemporary materials that respect the character and proportions of the building and nearby properties.

11.34 Our proposed approach accords with our core policy principles CP9 'Strategic landscape and green infrastructure', CP10 'Design' and CP11 'Historic Environment' and is consistent with national planning policy as set out in Planning Policy Guidance note 15: 'Planning and the Historic Environment'.

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11.35 It is essential to the overall success of a development that design issues are considered early in the development process. It is not just about making places look attractive, it is about making them work effectively and be places that people recognise and respect.

11.36 Rigid highway standards have been used for roads, junction separation distances and turning circles, which subsequently create places which fail to promote pedestrian or cycle activity. Streets should be designed as places to be and not primarily channels of movement. Furthermore, parking facilities should contribute to the usability and feel of an area and not dominate.

11.37 It is important that development works with the urban form and not against it. New residential development should be built to provide for local distinctiveness and to enhance local identity.

11.38 In 2004 more than a quarter of the UK’s carbon dioxide emissions, which is a major cause of climate change came from the energy we use to heat, light and run our homes.

11.39 The provision of public art is a significant factor in enhancing the environment and can help to make new buildings and spaces particularly distinctive. Public art is also recognised as an important tool in encouraging community participation and promoting social inclusion and a sense of ‘ownership’ within the development/regeneration process.

11.40 Well designed lighting, street furniture, careful detailing and attractive planting can improve the quality of public space. Uncluttered and well-maintained areas that are designed for a variety of experiences will help create places which are lively, pleasant to use and develop a sense of wellbeing among users.

Question 43

Do you think that our development management policy principles for design are right? Why?

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Decentralised energy

Policy DM 7

Our development management policy for decentralised energy should:

Determine carbon reduction targets and thresholds through an evidence-based understanding of local feasibility and viability that may increase over time in support of the national programme for achieving zero-carbon development. Express decentralised energy targets as a reduction in carbon emissions from the predicted energy requirement of the development (in the context of prevalent Building Regulations). Refer to the national definition of 'zero carbon development' to determine which technologies and approaches are acceptable in counting towards a reduction in carbon emissions. There should be a preference for energy efficiency, on site generation, and directly connected heat unless it can be demonstrated that other options are more effective in terms of cost and long term carbon reductions. Require all developments to set out in an Energy Statement how they have explored the feasibility and effectiveness of options for renewable/low carbon energy generation and which, why and how these technologies will be employed to achieve the relevant carbon reduction target. When applicants claim that targets cannot be met without an undue impact on viability, evidence must be provided to support this. If carbon reduction targets cannot be met due to feasibility issues alone, developments will be expected to achieve reductions through ‘off-site’ measures such as payment of Section 106 to support infrastructure development.

11.41 Our proposed approach accords with our core policy principles CP13 'Energy' and is consistent with national planning policy as set out in the supplement to Planning Policy Statement 1: 'Planning and Climate Change' and Planning Policy Statement 22: ‘Renewable Energy’.

11.42 By basing our policy on carbon dioxide emissions it encourages the use of less carbon intensive forms of energy use. Reducing the energy demand of a development will also reduce its percentage renewable/low carbon requirement, thereby reducing the amount and cost of the technologies required.

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11.43 A Greater Manchester Energy Study will identify broad areas of opportunity for renewable and low carbon energy development in the borough. This study and supplementary evidence will also help to inform our local targets and thresholds. These targets will be published for consultation in the autumn for inclusion in our published core strategy.

Question 44

Do you think that our development management policy principles for decentralised energy are right? Why?

Planning obligations and community infrastructure levy

Policy DM 8

Our development management policy for planning obligations and the community infrastructure levy should:

Specify that, when appropriate against the provisions of other planning policies, a planning obligation will be sought and/or a 'community infrastructure levy' payment be levied in accordance with legislation and national planning policy as applicable. Such a planning obligation and/or the community infrastructure levy could include the enhancement or maintenance of, or contribution towards the following, as applicable: Transport infrastructure and services. Utilities and waste infrastructure. Social infrastructure and services, including health, education and community safety. Environmental and green infrastructure such as flood prevention, biodiversity, landscaping and open space. Cultural and leisure infrastructure such as playing pitches, play areas and amenity space, historic buildings. Affordable housing. Skills training and premises for ’start-up’ businesses. Mitigation or compensation for harmful air quality impacts. Neighbourhood quality measures.

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11.44 Planning obligations are the current mechanism used to secure additional infrastructure or improved community services and facilities, the need for which arises from new development. They are intended to make acceptable development which would otherwise be unacceptable in planning terms.

11.45 Planning obligations can enhance the quality of development and enable proposals to go ahead which might otherwise be refused. They are a part of the mechanism whereby part of the value of new development is captured by the council to be used for the wider public benefit.

11.46 Provisions for a community infrastructure levy are being made nationally and we may choose to establish a levy locally. It would apply to most development and would be used to deliver infrastructure in line with our infrastructure delivery plan. The plan will show how the proposals in the core strategy will be delivered. If the levy is established locally, planning obligations would be used for affordable housing and remaining matters.

11.47 Financial contributions secured through planning obligations and the community infrastructure levy will be closely monitored so as to provide a full audit trail of expenditure.

Question 45

Do you think that our development management policy principles for planning obligations and the community infrastructure levy are right? Why?

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TWELVE The alternative spatial options

12.1 As noted in earlier chapters we considered four other distinct spatial options at the Issues and Options stage that we do not prefer. These were:

Focus development on the east of the borough Focus development on the west of the borough Focus development on the outer areas of the borough Disperse development across the borough.

Our reasons for not preferring these spatial options are set out briefly against each one. Focus on the east of the borough

12.2 The focus of this option would be the townships of Leigh, Atherton and Tyldesley and Astley together with Hindley Green in Hindley and Abram Township and Lowton in Golborne and Lowton Township. Leigh, Atherton, Hindley Green and Astley (part) are part of our preferred spatial option. The remaining areas are also part of the 'outer' spatial option.

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Diagram 5: Alternative option - focus on the east of the borough

12.3 There would be capacity for around three-quarters of new houses and three-quarters of new employment development within these areas. The key strategic sites that would be needed to deliver this option would be the land safeguarded for future development ('safeguarded land') in the above areas.

12.4 Areas outside the borough that would be most affected include Westhoughton in Bolton and Walkden and Boothstown in Salford.

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12.5 Potential developments outside the borough that could meet some of our needs include the Cutacre proposal between Westhoughton and Walkden, which is in the Green Belt, and proposals at Salford Quays and Barton in Salford.

12.6 This option is not preferred because it would not focus:

on those parts in the west of the borough where people experience health problems at least to the same extent as they do where it is most prevalent in the east of the borough, so it would do little if anything to help tackle the problems there.

on those communities in the west of the borough that are affected by crime and anti-social behaviour to at least the same extent as those areas that are most affected in the east of the borough, so it would do little to help tackle those issues there.

on those parts in the west of the borough where there are significant concentrations of people that are experiencing the worst effects of economic and social deprivation.

on those parts in the west of the borough where a lack of educational qualifications and skills are a significant barrier to work and improving the quality of life.

on those areas in the west of the borough where worklessness is most widespread. Neither would it take advantage of Wigan, which is the largest town in the borough by far and its only sub-regional centre. It would also take little advantage of strategic infrastructure serving the west of the borough, notably the M6 motorway and west coast mainline railway.

12.7 In addition it would:

not meet housing needs in the west of the borough and would not address the two-speed housing market in the west of the borough. A substantial proportion of new housing would need to be built on green field, agricultural land.

be unlikely to stimulate investment in town centres in the west of the borough, including Wigan and Ashton, and in most local centres which are concentrated around Wigan. Wigan would struggle to compete effectively with neighbouring sub-regional town centres.

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only support substantial transport infrastructure investment in the east of the borough, such as the Leigh Guided Busway where, otherwise, there is limited access to the rail network while it would not enable improvements in the west of the borough. Increased congestion and air pollution would be likely across the borough as a result of a shortfall in investment in the west and the extent of development in the east.

fail to tackle derelict, degraded and under-used land in the west of the borough and would relate well only to the eastern part of the proposed Greenheart regional park.

12.8 In respect of what it would achieve in the east of the borough, our preferred spatial option covers many of the same areas and can achieve significant benefits for the east of the borough, but not at the expense of areas in need in the west.

12.9 Community and stakeholder involvement has shown some support for this option based on views that the east of the borough has not had its fair share of investment and development and this should now be redressed, particularly in town centres and transport links including better linkages to the Manchester regional centre. However, others were concerned that it would neglect the needs and opportunities in the west of the borough.

12.10 Our sustainability appraisal has shown that this option has fewer positive impacts than our preferred spatial option. It would have positive economic and social impacts in the east but not in the west and its impact on the environment would be moderately negative. The full results of our sustainability appraisal to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

Question 46

Do you agree that 'focusing on the east of the borough' is not the best spatial approach for Wigan Borough?

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Focus on the west of the borough

12.11 The focus of this option would be the townships of Wigan, Ashton and Bryn, Standish, Aspull and Shevington and Orrell and Billinge together with the west of Hindley and Platt Bridge within Hindley and Abram Township. Wigan, Ashton and Bryn, Hindley and Platt Bridge are part of our preferred spatial option. The remaining areas are also part of the 'outer' spatial option.

Diagram 6: Alternative option - focus on the west of the borough

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12.12 There would be capacity for over three-quarters of the new houses needed and two-thirds of new employment development within these areas. The key strategic sites that would be needed to deliver this option would be the land safeguarded for future development ('safeguarded land') at Standish, Ashton and Hindley. In addition land at 'The Bell' at Lamberhead Green, Wigan would be needed for this option as well as for our preferred spatial option.

12.13 Areas outside the borough that would be most affected include Up Holland and Skelmersdale in West Lancashire, Chorley, Newton-le-Willows in St Helens and parts of Warrington.

12.14 Potential developments outside the borough that could meet some of our needs include the Parkside proposal at Newton-le-Willows, which is in the Green Belt.

12.15 This option is not preferred because it would not focus:

on those parts in the east of the borough where people experience health problems at least to the same extent as they do where it is most prevalent in the west of the borough, so would do little if anything to help tackle the problems there.

on those communities in the east of the borough that are affected by crime and anti-social behaviour to at least the same extent as those areas that are most affected in the west of the borough, so it would do little to help tackle those issues there.

on those parts in the east of the borough where there are significant concentrations of people that are experiencing the worst effects of economic and social deprivation.

on those parts in the east of the borough where a lack of educational qualifications and skills are a significant barrier to work and improving the quality of life.

on those areas in the east of the borough where worklessness is most widespread. Neither would it take advantage of the proximity of the east of the borough to the focus of economic activity at the Manchester regional centre. It would also take little advantage of strategic infrastructure serving the east of the borough and nearby areas, notably the M60 motorway.

12.16 In addition it would:

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not meet housing needs in the east of the borough and would not address the two-speed housing market in the east of the borough. A substantial proportion of new housing would need to be built on greenfield, agricultural land.

be unlikely to stimulate investment in Leigh, Atherton, Tyldesley and Golborne town centres. Leigh would struggle further to compete effectively with attractions in towns in neighbouring districts and would be likely to decline as a result.

only support substantial transport infrastructure investment in the west of the borough while it would not enable improvements in the east of the borough. Increased congestion and air pollution would be likely across the borough as a result of a shortfall in investment in the east and the extent of development in the west.

fail to tackle derelict, degraded and under-used land in the east of the borough and would relate well only to the western part of the proposed Greenheart regional park.

12.17 In respect of what it would achieve in the west of the borough, our preferred spatial option covers many of the same areas and can achieve significant benefits for the west, but not at the expense of areas in need in the east.

12.18 Community and stakeholder involvement has shown that there are a range of views on this option. There was support for its focus on central Wigan and on tackling deprived areas in the central core. Those opposed reflect our own concerns over the lack of focus afforded to the east of the borough including Leigh town centre, the failure to capitalise on links to Manchester and Salford and increased road congestion.

12.19 Our sustainability appraisal has shown that this option has fewer positive impacts and more negative impacts than our preferred spatial option. On balance it would have positive economic and social impacts in the west but not in the east and its impact on the environment would be moderately negative. The full results of our sustainability appraisal to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

Question 47

Do you agree that 'focusing on the west of the borough' is not the best spatial approach for Wigan Borough?

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Focus on the outer areas of the borough

12.20 The focus of this option would be the townships of Standish, Aspull and Shevington, Orrell and Billinge, Ashton and Bryn, Golborne and Lowton and Tyldesley and Astley. All of these townships are outside of our preferred spatial option except Ashton and Bryn and Astley (part).

Diagram 7: Alternative option - focus on the outer areas of the borough

12.21 There would be capacity for around two-thirds of new houses and three-quarters of new employment development within these areas. The key strategic sites that would be needed to deliver this option would be the land safeguarded for future development ('safeguarded land')

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at Standish, Ashton-in-Makerfield, Golborne, Lowton and Astley. In addition land at 'The Bell' at Lamberhead Green, Wigan would be needed for this option as well as for our preferred spatial option.

12.22 Areas outside the borough that would be most affected include Up Holland and Skelmersdale in West Lancashire, Chorley, Newton-le-Willows in St Helens, parts of Warrington, Westhoughton in Bolton and Walkden and Boothstown in Salford.

12.23 Potential developments outside the borough that could meet some of our needs include the Parkside proposal at Newton-le-Willows and the Cutacre proposal between Westhoughton and Walkden, both of which are in the Green Belt.

12.24 This option is not preferred because it would not focus:

on those parts of the borough where people experience the greatest health problems, so would do little if anything to help tackle this.

on those communities that incur the most crime and anti-social behaviour, so it would do little to help tackle those issues where they most need to be tackled.

on those parts of the borough where there are greater concentrations of people that are experiencing the worst effects of economic and social deprivation.

on those parts of the borough where a lack of educational qualifications and skills are a significant barrier to work and improving the quality of life.

on those areas where worklessness is most widespread. In addition, jobs located in the outer areas are highly accessible by car for people who live in neighbouring districts and not easily accessible by means other than the car for the majority of people who live in the borough, particularly those most in need.

12.25 In addition it would:

meet the housing needs of neighbouring areas as much as it would meet the borough's own housing needs and many people would live there to access job opportunities elsewhere by car. It would exacerbate the existing two-speed housing market and require a substantial proportion of new housing to be built on green field, agricultural land.

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be unlikely to stimulate investment in most of the borough’s town centres, including Wigan and Leigh, and in most local centres in the borough. Wigan would struggle to compete effectively with neighbouring sub-regional town centres.

be substantially car-based leading to increased traffic congestion and air pollution on the motorways and A580 East Lancashire Road, and routes to/from them. As such it would be incompatible with aspirations to reduce demand for travel.

fail to tackle the majority of derelict, degraded and under-used land and would not relate well to the proposed Greenheart regional park.

12.26 Community and stakeholder involvement has shown that people are generally opposed to this option as it would compound the inequalities in the borough, exacerbate traffic congestion and encourage out-commuting. There was some support because it would be attractive to the market.

12.27 Our sustainability appraisal has shown that, on balance, this is the least sustainable spatial option compared to our preferred spatial option and all of the spatial options considered at the Issues and Options stage. It results in many more negative impacts than any other option and has fewer positive impacts in total than the other four spatial options. The full results of our sustainability appraisal to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

Question 48

Do you agree that 'focusing on the outer areas of the borough' is not the best spatial approach for Wigan Borough?

Disperse development across the borough

12.28 This option would not focus development strongly on any one area. Instead it would be ‘dispersed’ across the whole borough but particularly in the towns of Wigan, Leigh, Ashton-in-Makerfield, Atherton, Hindley, Tyldesley, Golborne, Standish and Platt Bridge.

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Diagram 8: Alternative option - disperse development across the borough

12.29 Key strategic sites would be needed to deliver this option and this could include any of the land safeguarded for future development ('safeguarded land') across the borough.

12.30 This option is not preferred because it would not focus:

on those parts of the borough where people experience the greatest health problems, so the potential benefits would be diluted substantially.

on those communities that incur the most crime and anti-social behaviour, so the potential benefits would be diluted.

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on those parts of the borough where there are greater concentrations of people that are experiencing the worst effects of economic and social deprivation. Effectively, it would be ‘more of the same’ and inequalities between different communities would remain.

on those parts of the borough where a lack of educational qualifications and skills is a significant barrier to work and improving the quality of life, so the potential benefits would be diluted.

12.31 In addition it would:

fail to make the borough more attractive for investment in jobs as it would not focus effectively on those issues that need to be tackled, such as the provision of high quality accessible sites with good infrastructure, a skilled workforce and the availability of high quality housing.

fail to tackle the two-speed housing market in the borough and would place considerable pressure on the capacity of existing infrastructure and services with relatively little ability to address these constraints.

be limited prospects for major improvements in our town centres and smaller centres may not attract development.

add to the demands on existing infrastructure across the borough, including road infrastructure. Without focusing development on particular locations it would be difficult to raise significant additional funds to tackle key constraints. As such capacity issues may genuinely constrain our ability to provide the level of development that the borough needs to meet housing and employment needs.

exacerbate traffic noise and air pollution and fail to address the challenges of climate change effectively.

reduce opportunities for development-led land reclamation and regeneration in areas where it is most needed.

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12.32 Community and stakeholder involvement has shown that there are a range of views on this option, with those opposed slightly outnumbering those in support and reflecting our own concerns, that it would lack focus and dilute its effects, be difficult to serve by public transport and compound the borough's environmental problems. Those in support thought that it would spread the benefit and tackle the dispersed problems across the borough.

12.33 Our sustainability appraisal has shown that, on balance, this option has less pronounced impacts across most aspects of sustainability than the spatial options. Its positive impacts are mostly minor or moderate. Notably, it has only minor or moderate positive impacts for the economic objectives and performs poorly against social objectives. The full results of our sustainability appraisal to date are set out in the accompanying Preferred Options Sustainability Appraisal Report.

Question 49

Do you agree that 'dispersing development across the borough' is not the best spatial approach for Wigan Borough?

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THIRTEEN Next steps

13.1 We will consider all of the views and evidence that we receive on our Preferred Options and use them to help shape our 'pre-submission' Core Strategy. It is very important that you get involved at this stage rather than leaving it to later - see paragraph 13.4 below.

13.2 On certain matters including standards for open space, sport and recreation, we will be consulting on our preferred options in the Autumn of this year.

13.3 The next full stage in the preparation of the strategy will be the publication of our 'pre-submission' Core Strategy. This will take place in the summer of 2010. The ‘pre-submission’ version is the Core Strategy that we want to adopt, based upon strong evidence, effective community and stakeholder involvement and a full sustainability appraisal. Our spatial policies, core policies and development management policies will be fully worked-up together with our framework for implementation (delivery) and monitoring. This will be the last opportunity for you to submit representations in favour of, or against, any part of the Core Strategy.

13.4 However, you shouldn't wait to get involved until the pre-submission stage. If you have made your case to us earlier in the process you will be in a stronger position later on. The principle for all participants in the plan preparation process is to get involved and try and resolve things as early as possible. This concerns us as much as anybody else. If you introduce anything new at the pre-submission stage, you will have to support it with evidence, community and stakeholder involvement and a sustainability appraisal. If you introduce it at an earlier stage, now if not before, it is our responsibility to do this.

13.5 On the conclusion on the pre-submission stage we will consider the representations that we have received and whether we should make any further changes to the Core Strategy. Any such changes should be relatively minor or we will need to consult again.

13.6 We then submit the Core Strategy and all representations received at the pre-submission stage to the Secretary of State. It will then be considered at an 'Examination-in-Public' by an independent Inspector. This is scheduled for late 2010 / early 2011.

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13.7 The Inspector will consider whether we have complied with legislation and whether the Core Strategy is ‘sound’. There are a number of tests that we will have to pass if we are to adopt the Core Strategy. These are that we have:

prepared it correctly, in accordance with legislation and our Local Development Scheme consulted the community and other stakeholders effectively undertaken a full sustainability appraisal of proposals and policies had regard to national planning policy conformed generally with the Regional Spatial Strategy had regard to our Sustainable Community Strategy taking proper account of all other relevant plans and strategies, including development plans in neighbouring districts presented the most appropriate strategy having considered the reasonable alternatives justified it against robust and credible evidence ensured that it is coherent and consistent ensured that it is able to be monitored ensured that it is deliverable, including the provision of the infrastructure that will be needed ensured that it is flexible and able to adapt to changing circumstances.

13.8 The Inspector’s report will be binding on us. Provided that the Inspector is satisfied that the Core Strategy is legally compliant and is, or can - with modifications that would not undermine the process - be 'sound', we will then adopt the Core Strategy. This is scheduled for mid 2011.

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A Changes to the proposals map: conservation areas

A.1 The maps below show amendments to Conservation Area designations.

Ashton Conservation Area

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Golborne Town Centre Conservation Area

Haigh Village Conservation Area

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Howe Bridge Conservation Area

Leigh Town Centre Conservation Area

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Mesnes Park Conservation Area

Park Road, Golborne Conservation Area

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Pennington Conservation Area

Shevington (Church Lane) Conservation Area

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Tyldesley Conservation Area

Wigan Lane Conservation Area

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B Changes to the proposals map: sites of biological importance

B.1 The following maps illustrate new and amended Sites of Biological Importance in the borough.

New Sites of Biological Importance

CP12 (A98) - Martland Heath and Marshes

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CP12 (A99) - Platt Bridge Heath

CP12 (A100) - Calico Meadow

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CP12 (A101) - Frodsham's Wood

Amended Sites of Biological Importance

CP12 (A2) - Abbey Lakes

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CP12 (A4) - Orrell Brickworks

CP12 (A7) - Gathurst Wood

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CP12 (A8) - Martland's Wood

CP12 (A10) - Big Wood and Wrightington Ponds

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CP12 (A11) - Barton Clough

CP12 (A13) - Porters Wood

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CP12 (A15) - Crooke West Clay Pits

CP12 (A18) - Otters Croft, Crooke and Greaves Wood

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CP12 (A20) - Wetland by M6

CP12 (A23) - Blundell's Wood

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CP12 (A24) - Crooke

CP12 (A25) - Lawns Wood

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CP12 (A26) - Folient Wood

CP12 (A29) - Ponds south of Langtree Lane

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CP12 (A31) - Scotsman's Flash

CP12 (A35) - Bibi's Sand Pit

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CP12 (A44) - Arley Woods

CP12 (A48) - Amberswood Common

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CP12 (A50) - Amberswood Common

CP12 (A52) - Kirkless Lane

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CP12 (A57) - Hindley Deep Pits

CP12 (A59) - Barlows Farm

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CP12 (A60) - Reservoirs East of Leyland Park

CP12 (A62) - Bickershaw Colliery

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CP12 (A63) - Wetland and Scrub at Hindley Green

CP12 (A69) - Marsh and Reedbeds at Shakerley

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CP12 (A71) - Ponds North of Cleworth Hall (South)

CP12 (A72) - Ponds near New Manchester (West)

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CP12 (A75) - Lightshaw Lime Beds

CP12 (A84) - Marsh at Lower Green

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CP12 (A94) - Orrell Water Park

B.2 The following Sites of Biological Importance have had minor boundary amendments. Details of these are available online at www.wigan.gov.uk/ldfcorestrategy and at the deposit locations listed in Chapter 2.

CP12 (A1a) - Bispham Hall Woods and Billinge Plantations CP12 (A5) - Dean Wood CP12 (A6) - Forest Fold CP12 (A9) - Calico and Hullet Hole Woods CP12 (A14) - Ackhurst Lane Sand Workings CP12 (A17) - Gathurst between Canal and River CP12 (A22) - Glead Wood and Tan Pit Slip CP12 (A27) - John Pit Woods CP12 (A28) - Pond at Primrose Hill CP12 (A30) - Ponds at Robin Hill Farm (West) CP12 (A32) - Fairhurst Lane CP12 (A33) - Barrowcroft Wood CP12 (A37) - Ochre Flash

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CP12 (A38) - Turner's Flash CP12 (A39) - Pearson's Flash CP12 (A40) - Westwood Flash CP12 (A42) - Fairclough Wood CP12 (A46) - Horrocks Flash CP12 (A47) - Haigh Plantations CP12 (A53) - Abram Flashes CP12 (A53b) - Abram Flashes CP12 (A55) - Low Hall Park CP12 (A61) - Borsdane Wood West CP12 (A64) - Disused Railway at Hindley Green CP12 (A65) - Firs Park CP12 (A66) - Wetland off Orchard Lane CP12 (A68) - Atherton and Bedford Woods CP12 (A70) - Astley Hospital CP12 (A74) - Highfield Moss CP12 (A76) - Ponds near Lighshaw Lane CP12 (A79) - Hope Carr Nature Reserve CP12 (A81a) - Astley and Bedford Moss CP12 (A81b) - Astley and Bedford Moss CP12 (A81c) - Astley and Bedford Moss CP12 (A82) - Tyldesley Sewage Works CP12 (A83) - Chat Moss Remnants CP12 (A91) - Skitters Wood CP12 (A92) - Field by Scowcroft Farm CP12 (A93) - Culvert and Lodge at Standish CP12 (A95) - Parson's Meadow

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