Carlisle DistrictLocalPlan
2015-2030
Foreword I am delighted to endorse the Local Plan. It provides a platform to embark upon the most ambitious levels of growth ever and directly echoes the priorities and vision of the Carlisle Plan 2015 - 2018 which aims to: ‘…work in partnership to further establish our position as the regional centre and focus for investment, ensuring that residents can share in the benefits through increased opportunities and greater choice of jobs, range of housing and a quality environment’.
Carlisle is a very special and diverse place for those who The Plan has been shaped with the support and involvement live, base their business, work in, or visit the District. It of local communities, landowners, businesses, agencies and extends from the Solway Coast to the North Pennines, many others - all who share the desire to plan for a prosperous with the City of Carlisle, with its cathedral and castle, at future for the District by meeting the need for new homes, a its heart. There is also an abundance of lowland farmland growing economy and the protection of our precious natural supporting agricultural and other rural businesses, and environment and outstanding heritage assets over the next many characteristic small towns, villages and hamlets. The 15 years. World Heritage Site of Hadrian’s Wall strides across it all. Carlisle City Council is now well placed to deliver this Plan, The Local Plan provides the vision, strategy, policies and by building on existing community support and working site allocations that will shape the future of Carlisle District. in partnership with business, developers, landowners and It provides clear direction on how to meet the challenges we infrastructure providers. face, such as: climate change; a growing population; and I would like to take this opportunity to thank all those who the need to deliver much needed regeneration in specific have been involved in the evolution of the Plan; from early parts of the City. It also identifies where, when, how and consultation to the finished document. the quantity of new development to be delivered. It will guide future planning documents such as Neighbourhood Development Plans and aims to create inclusive, safe and healthy communities. Cllr Colin Glover Leader of Carlisle City Council
Contents The Carlisle District Local Plan 2015-2030
1. Introduction 1
2. Vision and Objectives 9 Spatial Vision 10 Strategic Objectives 12 Spatial Portrait 15 Key Diagram 24
3. Spatial Strategy and Strategic Policies 25 Policy SP 1: Sustainable Development 26 Policy SP 2: Strategic Growth and Distribution 28 Policy SP 3: Broad Location for Growth: Carlisle South 37 Policy SP 4: Carlisle City Centre and Caldew Riverside 40 Policy SP 5: Strategic Connectivity 45 Policy SP 6: Securing Good Design 48 Policy SP 7: Valuing our Heritage and Cultural Identity 50 Policy SP 8: Green and Blue Infrastructure 53 Policy SP 9: Healthy and Thriving Communities 56 Policy SP 10: Supporting Skilled Communities 60 4. Economy 63 Policy EC 1: Employment Land Allocations 64 Policy EC 2: Primary Employment Areas 67 Policy EC 3: Primary Shopping Areas and Frontages 70 Policy EC 4: Morton District Centre 72 Policy EC 5: District and Local Centres 73 Policy EC 6: Retail and Main Town Centre Uses Outside Defined Centres 75 Policy EC 7: Shop Fronts 77 Policy EC 8: Food and Drink 79 Policy EC 9: Arts, Culture, Tourism and Leisure Development 81 Policy EC 10: Caravan, Camping and Chalet Sites 83 Policy EC 11: Rural Diversification 84 Policy EC 12: Agricultural Buildings 86 Policy EC 13: Equestrian Development 88 5. Housing 91 Policy HO 1: Housing Strategy and Delivery 92 Policy HO 2: Windfall Housing Development 98 Policy HO 3: Housing in Residential Gardens 101 Policy HO 4: Affordable Housing 103 Policy HO 5: Rural Exception Sites 108 Policy HO 6: Other Housing in the Open Countryside 110 Policy HO 7: Housing as Enabling Development 114 Policy HO 8: House Extensions 116 Policy HO 9: Large Houses in Multiple Occupation and the Subdivision of Dwellings 118 Policy HO 10: Housing to Meet Specific Needs 120 Policy HO 11: Gypsy, Traveller and Travelling Showpeople Provision 122 Policy HO 12: Other Uses in Primary Residential Areas 125
6. Infrastructure 127 Policy IP 1: Delivering Infrastructure 128 Policy IP 2: Transport and Development 130 Policy IP 3: Parking Provision 133 Policy IP 4: Broadband Access 135 Policy IP 5: Waste Minimisation and the Recycling of Waste 137 Policy IP 6: Foul Water Drainage on Development Sites 139 Policy IP 7: Carlisle Airport 141 Policy IP 8: Planning Obligations 142 7. Climate Change and Flood Risk 145 Policy CC 1: Renewable Energy 146 Policy CC 2: Energy from Wind 150 Policy CC 3: Energy Conservation, Efficiency and Resilience 155 Policy CC 4: Flood Risk and Development 157 Policy CC 5: Surface Water Management and Sustainable Drainage Systems 161
8. Health, Education and Community 165 Policy CM 1: Health Care Provision 166 Policy CM 2: Educational Needs 168 Policy CM 3: Sustaining Community Facilities and Services 170 Policy CM 4: Planning Out Crime 172 Policy CM 5: Environmental and Amenity Protection 174 Policy CM 6: Cemetery and Burial Grounds Provision 178
9. Historic Environment 179 Policy HE 1: Hadrian’s Wall World Heritage Site 180 Policy HE 2: Scheduled Ancient Monuments and Non-Designated Archaeological Assets 182 Policy HE 3: Listed Buildings 184 Policy HE 4: Historic Parks and Gardens 185 Policy HE 5: Historic Battlefields 185 Policy HE 6: Locally Important Heritage Assets 187 Policy HE 7: Conservation Areas 189 10. Green Infastructure 191 Policy GI 1: Landscapes 192 Policy GI 2: Areas of Outstanding Natural Beauty 194 Policy GI 3: Biodiversity and Geodiversity 196 Policy GI 4: Open Space 200 Policy GI 5: Public Rights of Way 203
Policy GI 6: Trees and Hedgerows 204
11. Monitoring and Implementation 207
12. Glossary 211
Appendix 1: Sites Allocated within Policy HO 1 227 Appendix 2: Local Plan Monitoring Framework 253
1 Introduction
1 Introduction
1.1 The Carlisle District Local Plan (2015 – 2030) is at the forefront sites that have planning permission. Designations include of shaping how the District, its many settlements and vast rural existing land uses such as areas of housing, employment and area will develop between now and 2030. The Plan sets out the City and other retail centres, and areas of protected land a long-term spatial vision and strategic objectives to support such as the two Areas of Outstanding Natural Beauty and the development of a thriving District through the identification Hadrian’s Wall World Heritage Site and its buffer zone, nature of land to accommodate new development, and policies to conservation areas, parks and playing pitches, amenity open achieve this growth in a positive, managed and sympathetic space and conservation areas. way, whilst ensuring the timely delivery of the infrastructure 1.4 Allocations identified on the Policies Map should be read in necessary to support growth. conjunction with the relevant policy in the Local Plan which 1.2 The policies and proposals within the Local Plan, and any will set out criteria that any planning applications will need other adopted local or neighbourhood development plans and to comply with. By setting out specific land allocations in supplementary planning documents in operation, are those this way, the Plan provides local communities, land owners, against which all planning applications within the District will developers and infrastructure providers with a clear indication be assessed. Ultimately the aim of the Local Plan is to facilitate of the future pattern of development across the District. sustainable development. It is therefore important to read the Inclusion as an allocated site within the Plan indicates that the Plan as a ‘whole’ i.e. with reference to all the policies that may principle of development on such sites is acceptable. be relevant, as it is these policies taken collectively which 1.5 It is important to acknowledge at the outset that the Local determine what will be regarded as constituting sustainable Plan will operate alongside the Cumbria Minerals and Waste development. Policies should not be taken out of context and Local Plan (MWLP) which contains mineral and waste specific will not be applied in isolation. policies for use in determining planning applications for waste 1.3 The Local Plan operates alongside a Policies Map, which or quarry developments across Cumbria. Once the MWLP is illustrates the policies in the Local Plan(s) which have an area adopted it may be necessary to update the Local Plan Policies or place specific application, including those sites that are Map to illustrate Mineral Safeguarding Areas and other relevant allocated for development and, where appropriate, committed designations and/or allocations.
2 1.6 The Local Plan will also operate alongside any neighbourhood 1.8 Monitoring is an integral part of the plan making and review development plans brought forward. The concept of process. A series of indicators have been identified to assess neighbourhood development planning was introduced by the the relative effectiveness of the Local Plan with regards to Localism Act 2011. It allows communities to develop a vision achieving its desired outcomes. The Authority Monitoring of what their area should be like and make decisions on where Report (AMR) reports on an annual basis the performance certain types of development should go. They go through a of the Local Plan, and in doing so, plays a leading role in formal preparation process but importantly need to be in line identifying the need to review existing policies and proposals. with the strategic policies within the Carlisle District Local Plan. One such plan is currently being progressed in Dalston. The Council will continue to work with and support those pursuing neighbourhood development plans.
1.7 Section 206 of the Planning Act 2008 (The Act) confers the power to charge Community Infrastructure Levy (CIL) on certain bodies known as charging authorities. This came into force on 6 April 2010 through the CIL Regulations 2010 (now amended by the CIL (Amendment) Regulations 2011, 2012, 2014 and 2015). This provides the enabling powers for local planning authorities to apply CIL to development proposals to support infrastructure delivery which in turn will support delivery of this Local Plan.
3 How the Local Plan has emerged
1.9 The Local Plan has been prepared under the Planning and that have been jointly prepared with other Cumbrian authorities Compulsory Purchase Act 2004 (as amended) and the Town or produced by Cumbria County Council. This evidence and Country Planning (Local Planning) (England) Regulations includes the Infrastructure Delivery Plan (IDP) which identifies 2012. the strategic and local infrastructure required to deliver the development proposals outlined in the Local Plan. The IDP will 1.10 The Plan has evolved through extensive research and be reviewed and updated throughout the lifetime of the Plan to consultation which identified the key issues it needed to continually identify and ensure the timely delivery of essential address, and determined the best approaches to various infrastructure. challenges and opportunities. Active community involvement at each key stage of plan preparation has helped to mould 1.13 The Localism Act introduced a Duty to Cooperate, requiring the Plan and has been undertaken in accordance with the the City Council to work with neighbouring authorities and a Council’s adopted Statement of Community Involvement (SCI), wide variety of public and private bodies on cross boundary which sets out how the Council will undertake consultation planning issues and matters of common concern. The Duty on key planning documents to ensure stakeholders and the to Cooperate ensures that there has been in the past, and community are engaged in the process. will be in the future, a high level of cooperation in the plan making process. Regular liaison meetings have been held with 1.11 The Plan has also been prepared in accordance with the prescribed bodies under the Act to ensure that strategic national planning policy and has had regard to other plans cross boundary issues have been identified and addressed as and strategies where relevant, including the Carlisle District the Plan evolved. Notably, the Council has, and will, continue Sustainable Community Strategy “A Community Plan for to work with all neighbouring authorities, Cumbria County Carlisle and District 2011-2016” which was itself informed by Council and other statutory consultees where relevant and extensive public consultation. necessary. An outcome of this cooperation is that the Plan 1.12 The Local Plan has been supported by a comprehensive and seeks to recognise the economic, social and environmental robust evidence base proportionate to the key issues it is linkages with neighbouring areas, and opportunities for joint seeking to address. The majority of these studies focus on working and policy development have been identified. Carlisle District specifically, however there are some studies
4 1.14 The plan preparation process has also been informed through Health Impact Assessment (HIA) - this process aimed to a variety of further statutory and non-statutory appraisals and measure the potential health impacts of a policy, programme assessments. These include: or project on the wider population. The HIA has therefore helped to ensure that the proposals outlined in the Plan have Equality Impact Assessment (EQIA) - this process aimed been judged against the effects they may have on the health to ensure that the Local Plan has promoted equality and that of the population through recognition that planning has a key any aspects which would have resulted in discrimination are role to play in the delivery of healthy sustainable communities. addressed. The Plan has been subject to a process of EQIA Ultimately the HIA has aimed to reduce health inequalities, across all stages of its evolution. contribute to improved health and contribute to better decision Habitats Regulation Assessment (HRA) - this is the statutory making. process to assess the potential impacts of the Local Plan Rural Proofing - this process sought to assess the impact of on Natura 2000 sites. Natura 2000 sites are of exceptional policies and site allocations on the rural area. The Plan has importance in respect of rare, endangered or vulnerable natural been subject to Rural Proofing through its evolution which has habitats and species within Europe: they include Special helped to identify those policies that provide urban solutions Protection Areas (SPAs) designated under the European Union that may not necessarily work for rural areas with dispersed (EU) ‘Wild Birds’ Directive; Special Areas of Conservation populations and economy. This allowed the adjustment of (SACs) designated under the EU ‘Habitats Directive’; European policies to optimise their impact. Marine Sites (EMS) and Ramsar Sites. As the Habitats Directive applies the precautionary principle, plans can only be adopted Sustainability Appraisal (SA) - SA is a statutory process if there is likely to be no adverse impact on the integrity of the integrated into the preparation of all aspects of the Local Plan. site(s) in question. In order to comply with the requirements of The process measures the potential impacts of the Plan on a the Habitats Regulations, a Screening Assessment has been range of economic, social and environmental considerations, undertaken at all stages of the evolution of the Plan. Each roll and includes the requirements of Strategic Environmental forward of the HRA has been submitted to Natural England for Assessment legislation. The separately published SA comment, and the conclusions have ultimately been signed off. post-adoption statement makes clear how environmental
5 considerations have been integrated into the Plan; how the • Positively prepared - the Plan should be based on a strategy report and consultation responses have been taken into which seeks to meet objectively assessed development and account; the reasons for choosing the selected approach infrastructure requirements, including unmet requirements from over the alternatives considered; and the arrangements for neighbouring authorities where it is reasonable to do so and monitoring the significant environmental effects of the Plan. consistent with achieving sustainable development;
Process leading to the adoption of the • Justified - the Plan should be the most appropriate strategy, Local Plan when considered against the reasonable alternatives, based on proportionate evidence; 1.15 The Proposed Submission Draft of the Carlisle District Local Plan was submitted to the Government for independent • Effective - the Plan should be deliverable over its period examination on 22nd June 2015. Prior to this, representations based on effective joint working on cross-boundary strategic on the ‘soundness’ of the Plan, and policies and proposals priorities; and within, were sought by the City Council for a minimum period • Consistent with national policy - the Plan should enable the of six weeks in accordance with Regulations 19 and 20 of delivery of sustainable development in accordance with the the Town and Country Planning (Local Planning) (England) policies in the NPPF. Regulations 2012. 1.17 The Inspector’s report into the examination of the Local 1.16 The hearing sessions of the examination commenced on Plan was received on 25th July 2016. The report sets out Tuesday 1st December 2015, and, following a recess due to the Inspector’s findings, based on a consideration of all the the devastating effects of Storm Desmond in Carlisle, resumed evidence, on legal compliance including duty to cooperate, on Tuesday 19th January 2016. During the examination and soundness. The overall conclusion and recommendation process the Inspector assessed whether the Plan had been in this report sets out that the Local Plan meets legal prepared in accordance with the ‘Duty to Cooperate’; legal requirements, is sound and capable of adoption, subject to the and procedural requirements; and whether it was ‘sound’. The recommended main modifications. tests of ‘soundness’ are defined in the National Planning Policy Framework (NPPF) (para. 182) as being:
6 1.18 Carlisle City Council resolved to accept the Inspector’s findings, including recommended main modifications, and formally adopted the Carlisle District Local Plan (2015 – 2030) on the 8th November 2016.
7 8 2 Vision and Objectives
9 Spatial Vision
In 2030... the District of Carlisle, Hadrian’s Wall and its associated National delivery of new business premises with the City at its heart, is successfully Trail path and Solway Coast and North and jobs. Continued innovation and asserting its position, as a centre for Pennines Areas of Outstanding Natural development within agriculture has acted activity and prosperity, as the capital Beauty, continue to underpin a thriving to ensure farming remains economically and economic engine for a region visitor economy, as too does Carlisle’s vibrant. Economic performance across encompassing Cumbria, the western proximity and ease of access to the Lake the District has been underpinned by fringes of Northumberland and extending District National Park. continued investment in higher and further into South West Scotland. education. This has resulted in a skilled Key to Carlisle’s ongoing success has and responsive workforce which exhibits People are attracted to visit, live, work, been an increased supply of new high high levels of entrepreneurship, with the invest and importantly remain in the quality market and affordable homes, the University of Cumbria and Carlisle College District of Carlisle, a key driver of which delivery of which has been instrumental in having been at the forefront of these is the setting of the historic City, as attracting and retaining an economically efforts. well as the District’s market towns and active workforce and in supporting villages, within a stunningly beautiful rural thriving rural communities. Capitalising on backdrop much of which is characterised excellent strategic transport connections, by a rich and unrivalled collection of including the M6 corridor, rail connections natural and cultural assets. The more and Carlisle Airport, land has similarly significant of these assets, including been made available to support the
10 Policies and proposals have succeeded timely delivery of supporting infrastructure, Looking to the future a Masterplan is in in strengthening and diversifying the City adding to the availability of essential local place to guide the continued realisation Centre offer, ensuring that its expanded services, facilities and connections. of a sustainable major mixed use retail and leisure focus is underpinned by a development at Carlisle South, in doing Careful consideration has been afforded to strong cultural offer which can be enjoyed so ensuring that Carlisle is well placed to the design of all new development in order by all. Opportunities have similarly been continue responding to the growth needs to ensure that proposals have enhanced taken to support thriving rural communities of its next generation. The District in its their immediate setting, strengthened through sustaining and enhancing a widest sense continues to be alive to local distinctiveness and helped to network of centres across the District’s its potential and capable of harnessing create environments which are safe and rural towns and villages. momentum to turn this into reality. resilient to the effects of climate change. Growth has been achieved through a New developments and the regeneration framework which has sought to protect and of brownfield sites within the City have enhance the very assets that make Carlisle proved a valuable catalyst for addressing unique, including its: important natural social inequalities and deprivation, landscapes; wildlife species, habitats and and as a recognised Healthy City, a geodiversity; and its cultural and heritage firm commitment to continue positively relics. Furthermore it has been enabled improving health and wellbeing outcomes through a co-ordinated approach to the for all of the District’s residents has been at the forefront of decision making.
11 Strategic Objectives
Spatial Strategy and Strategic Policies Economy
• To promote a sustainable pattern of development, • Foster the right conditions to stimulate inward which will contribute to building a strong, investment through increasing the working age responsive and competitive economy, to support population; strengthening and expanding the skills the vision for managed growth. base available, diversifying the economy and improving enabling physical infrastructure. • To support strong, vibrant and healthy communities, by meeting the housing needs of • To create opportunities for economic growth by present and future generations, in a high quality making land available to meet the current and future environment with accessible local services. quantitative and qualitative needs of the business community and to maintain Carlisle’s role as an • To contribute to protecting and enhancing our economic driver for a wider geographical area. natural, built and historic environment (including improving biodiversity), using natural resources • To focus new retail and leisure floorspace within the prudently, minimising waste and pollution, and City Centre, and take opportunities to strengthen mitigating and adapting to climate change including and diversify its offer, in order to enhance its role moving to a low carbon economy. as a sub-regional service centre and leisure and cultural destination.
12 Housing Climate Change and Flood Risk
• To enable the development of a range of high quality, • To reduce emissions of greenhouse gases, energy efficient housing, in a variety of appropriate including through securing energy from renewable locations, to meet the aspirations of the existing sources, and avoid inappropriate development in residents, including those with a need for affordable areas at risk of flooding in order to ensure that the housing and those wishing to move to the area. District is more resilient and less vulnerable to the effects of climate change and can successfully • To make land available to boost significantly the adapt to its effects. supply of housing to support economic growth, whilst ensuring new housing supports the creation of thriving communities.
Infrastructure Health, Education and Community
• To ensure the provision of efficient and integrated • To create a thriving, successful and healthy infrastructure networks, and their timely delivery, community for all by promoting cohesive mixed including sustainable transport, where needed to communities and ensuring that everyone can have support new and existing development, facilitate a decent home, in a safe environment, with good economic growth and deliver the Plan strategy. access to health care, educational provision and other community facilities by sustainable modes, including walking and cycling.
13 Historic Environment
• To conserve, enhance and promote Carlisle’s heritage and important historic landscapes whilst ensuring that development proposals respect and enhance Carlisle’s historic assets.
Green Infrastructure
• To protect, enhance and increase the provision of the green and blue infrastructure across the District to create and maintain multifunctional, interconnected and attractive recreational and ecological networks for the benefit of residents, businesses, visitors and the wider natural environment.
14 Spatial Portrait
2.1 This spatial portrait describes to the east, Allerdale and the Solway Scots during various campaigns and the District’s current geography, Firth to the west and Eden to the the area suffered from many attacks environment, economy, social and south. The City of Carlisle forms by the Border Reivers. cultural characteristics and movement the principal urban area and lies 2.5 By the time of the Norman conquest patterns. In doing so it provides a within the south western part of the in 1066 Carlisle was part of Scotland. snapshot of the District as it is now District. The remainder of the District This changed again in 1092 when the as well as highlighting future issues it is predominantly rural in nature, with region was invaded and Cumberland, faces. the exception of Longtown to the including Carlisle, was subsequently north and Brampton to the east, and 2.2 Today Carlisle’s identity is largely incorporated into England. Carlisle a number of smaller villages which are shaped by its extensive rural hinterland. Castle and the City Walls were scattered predominantly to the west It has an important agricultural constructed shortly after and whilst and east of the City. economy, and is set in an area of high only the West Walls and the section landscape value, including a coastal Local Character and Distinctiveness around the Castle remain standing, and upland landscape recognised the titles of the gates still remain in the 2.4 Carlisle’s local character and as being of national importance. The names of key roads into the distinctiveness has been significantly historic core of the City is traversed by City Centre. influenced by its rich and turbulent rivers that are internationally important history resulting from its location on 2.6 In the 12th Century King Henry l for biodiversity, and a World Heritage the border between England and allowed the founding of a religious Site strides across the District. Scotland. Carlisle established itself as establishment, later making the town 2.3 The District of Carlisle covers an area an important and well fortified Roman a diocese thus turning the Priory into of approximately 1,042 sq km and is settlement primarily serving the forts a Cathedral, which is today one of the situated in the far north of the County along Hadrian’s Wall. As an important smallest in England. of Cumbria, bounded by the Scottish frontier town it was frequently disputed border to the north, Northumberland and besieged by the English and the
15 2.7 Carlisle has been shaped in more Cemetery); as well as one historic important rivers, becks and burns. recent times by its industrial heritage, battlefield - the Battle of Solway Moss, The North Pennines AONB is also a predominantly in textile manufacture. at Longtown. European Geopark. The River Eden This was followed by the arrival of and its tributaries are of international 2.9 Carlisle District also has a number of the railways which continue to be of importance for their biodiversity, being locally listed buildings and structures of significant strategic benefit to the City. designated as both a Site of Special architectural and historic significance Scientific Interest (SSSI) and a Special 2.8 As a result of Carlisle’s extensive which whilst not of national significance Area of Conservation (SAC). Carlisle history the District is rich in heritage are important in creating the locally has a range of other sites of European ranging from Hadrian’s Wall World distinctive character that can be seen nature conservation importance Heritage site which crosses the District in parts of the District. Future additions including the Upper Solway Flats and from Gilsland in the east to Burgh by to this list will ensure Carlisle’s local Marshes Ramsar site and Special Sands in the west, to the remaining history continues to be protected Protection Area (SPA), the Solway Firth City walls, Carlisle Cathedral, the Old alongside both the nationally and (SAC), the Irthinghead Mires Ramsar Town Hall and Tullie House. There are internationally recognised assets. site and the North Pennine Moors approximately 1139 listed buildings The District’s heritage is an extremely (SPA). These form part of a network of within the District and 19 conservation important asset, which contributes internationally important wildlife sites areas including areas within the City, significantly to the character and within the European Union known as the historic market towns of Brampton attractiveness of the area and is a Natura 2000. and Longtown as well as some of the major draw for tourism. other villages such as Dalston and 2.11 In addition, the District is home to 2.10 Carlisle also has an attractive and Cumrew. There are also approximately many rare and endangered species varied natural landscape. The District 166 Scheduled Ancient Monuments, such as the red squirrel, great crested includes two Areas of Outstanding two designated parks and gardens, newt and otters, as well as habitats Natural Beauty (AONB), (Solway (Corby Castle and Dalston Road such as lowland raised bogs, blanket Coast and the North Pennines) as bogs and upland hay meadows. well as a network of ecologically
16 2.12 The landscape and wildlife in Carlisle Park. Rickerby Park is a natural park but the most marked decrease has and surrounding districts underpins with mature trees and grazed by sheep been in the 5 to 14 age bracket which the economy of the area, through and cattle. Bitts Park has a more formal has seen a reduction of 10% while the people’s work and leisure activities, layout with landscaped beds and trees, 0 to 4 age group has experienced an and their sense of local identity. together with playing pitches, children’s overall increase of 15.3%. Delivery of targeted biodiversity and play area and tennis courts etc. 2.16 Ethnic minorities within the District landscape enhancements, therefore, Social Characteristics account for 5.6% of the population has a significant contribution to which is a two fold increase since the make towards social inclusion and 2.14 Population data collated from the 2011 2001 census. In the same time period sustainable economic development, Census, released in July 2012, showed the figures for Cumbria have also and logically forms an integral part that the usual resident population of increased from 2% to 4.9%. of all aspects of the Sustainable the District had increased by 6,785 Community Strategy (The Community from 100,739 in 2001 to 107,524, a rise 2.17 In line with national trends, growth in Plan for Carlisle). of 6.7%. Whilst the rate was slower Carlisle will most notably be seen in than the average for England and the number of older people living in 2.13 The District has approximately 455 ha Wales it was the highest recorded in the District where it is predicted that of public open space, which ranges Cumbria. there will be a 57% increase by 2032. from amenity open space (land which Approximately 68% of the population is recognised as making a contribution 2.15 Census data shows that over the ten currently live within the urban area of to the visual amenity and enjoyment year period 2001 to 2011 there has Carlisle. In the rural areas a key feature of an area), to natural/semi natural been an increase of 15.8% in the is the sparse distribution of residents; greenspace, parks/gardens, allotments, over 60 age group. In the working age on average there are 97 people play areas and outdoor sports facilities. groups of 20 to 64 there has been an per hectare in Carlisle’s rural areas Within the centre of the City, and increase of 8.2% overall, but in the (compared to 477 regionally and 378 located immediately next to the River age bracket 30 to 44 there has been a nationally). Eden are two linked and important decrease of 7.2%. The under 18 age urban parks, Rickerby Park and Bitts group has also seen a decrease of 3%,
17 Movement Patterns 2.20 In terms of rail travel and freight transport across the District which movements, the West Coast Main Line varies considerably outside the urban 2.18 The M6 motorway runs through the provides a north/south high speed rail area, with a number of areas having District linking the City of Carlisle link serving the City providing access o n l y l i m i t e d s e r v i c e s . to Southwest Scotland, Northwest to Birmingham and London and England and beyond. Carlisle benefits Housing Glasgow and Edinburgh, as well as from four motorway junctions at links via Northern Rail to Manchester 2.22 Housing Stock as of 31 March 2012 Carleton (J42), Rosehill (J43) and Airport and Manchester to Glasgow was 50,660 (source ONS Local Kingstown (J44), whilst junction 45 and Edinburgh. There are rail links to Profiles). 85% of this stock is privately connects with the Scottish border Newcastle and the Cumbrian Coast owned with Registered Providers of at Gretna. Additionally the Carlisle providing access to Barrow and housing accounting for the remaining Northern Development Route (CNDR) Lancaster. The historic Carlisle/Settle 15%. (the A689) provides a western link from line, which is important for tourists, the A595 to the M6 at junction 44. It 2.23 At the 2001 census owner occupation commuters and freight, links Carlisle to also provides a combined pedestrian within the District was 71% which Leeds. and cycle route along its 8.25km was slightly below the Cumbrian length. 2.21 Travel to work is heavily dependent on percentage of 72% but higher than private car usage with 40.8% of people that of the North West which was 2.19 From Carlisle City there is a network of working in Carlisle District choosing 69%. The percentage living in social ‘A’ roads including the A69 which links to drive to work (Source: Office of rented properties were 18%, 16% the District to Newcastle upon Tyne in National Statistics (ONS) Census 2011) and 20% with the private rented the North East, the A7 to the Scottish despite the fact that nearly 50% of sector accounting for 8%, 12% and Borders and on to Edinburgh, the A6 to people travel less than 5km to their 8% respectively. Penrith and the Lake District, and the place of work. This level of car usage A595 to Workington and Cockermouth is partly due to accessibility to public in West Cumbria.
18 2.24 A house condition survey undertaken 2.26 Average household size as determined Economy in 2005 and Registered Social Landlord by the Department of Communities and 2.28 Carlisle is a free standing City which data from 2009 identified that 27% Local Government (DCLG) has reduced is not directly influenced by a major of the private sector and 12% of the to 2.2 persons and is expected to conurbation. It acts as a significant social sector dwellings failed the further reduce to 2.17 by 2016 and 2.14 employment base and the main decency standard in the urban area by 2021. This compares to 2.21, 2.18 professional centre for Cumbria as well and 43% and 10% respectively in the and 2.15 respectively for Cumbria and as parts of Southwest Scotland. rural area. 2.36, 2.35, 2.33 for England. 2.29 Historically, the economy of Carlisle 2.25 Housing in Carlisle is generally more 2.27 Over the last 10 years 72% of housing was based around easy access to affordable in respect of house price/ built within the District has been a railway network and the textile earning ratio at 4.7% than is the case within the urban area and 28% in the industry which has over time declined for England which is 6.6% (source rural area. Housing development has and been replaced by other forms ONS Local Profiles 2012). However, significantly slowed over the last 5 of manufacturing. A large proportion variations in average house prices years with the lowest increase in new of Carlisle’s working population are across the District identify parts of the housing being recorded in 2013/14 still employed in the manufacturing rural area where average house prices with only 190 net new dwellings. sector. However, the wholesale/ retail are in excess of ten times the annual This performance relates however trade provides employment for the income, creating problems of housing to national as opposed to local largest proportion of the workforce. need due to affordability. circumstances and predominately the Employment in non-service industries, effects of the most recent housing such as agriculture, manufacturing and crash and subsequent recession. construction are all higher than the national average. Carlisle is an important centre for agricultural services and lies at the centre of a large rural livestock market. Within the rural area Brampton
19 and Longtown act as employment hubs Tourism recreation, heritage tours, award- along with Dalston to a lesser extent. winning parks and nature reserves. 2.31 Tourism is of major importance to All three settlements have industrial Carlisle Racecourse lies on the edge of Carlisle as a generator of economic estates which provide employment the City, whilst in the wider rural area are prosperity and employment with opportunities for people within their a wealth of historic churches, Talkin Tarn the District receiving over 7 million locality as well as the wider area. Country Park, Lanercost Priory founded visitors in 2013 (STEAM Report). It is in 1197 as an Augustinian Priory, and 2.30 Whilst Carlisle benefits from good essential that the tourism potential of stunning countryside including the two connections to the M6 as well as the District is promoted and exploited Areas of Outstanding Natural Beauty. being situated on the West Coast Main to maximise the benefits it can bring Line, there can still be a perception by to the area, including a large number Culture and Heritage businesses from outside the area of of jobs. Carlisle’s heritage is central to 2.33 Protecting heritage whilst supporting remoteness and isolation which may its attractiveness as a tourist location economic growth is something that the detract from Carlisle’s attractiveness with Hadrian’s Wall World Heritage City Council is actively engaged in. The as a business location. This is further Site and National Trail crossing the historic core of the City includes Carlisle compounded by a gap in skills as well District, Carlisle Castle, the Cathedral, Castle, Tullie House Museum, Carlisle as poor retention levels with regards Tullie House museum and many more Cathedral precinct, the Tithe Barn, the to graduates. However, current work attractions attracting visitors in their City Walls, the Courts, the Market Cross, under the ‘Carlisle Story’ banner aims own right. the Old Town Hall and the Guildhall. to attract people to visit and live in the 2.32 Carlisle lies at the heart of a wealth These and other heritage and cultural area, encourage those here already of historic and modern attractions assets, including the Sands Centre and to stay, persuade investors and ranging from Roman remains to Old Fire Station Arts Centre, combine developers to see us as a place worth Norman strongholds, medieval market with the high quality environment in and investing in and create and attract new towns to a contemporary City. Carlisle around the District to contribute towards jobs whilst keeping the ones we have. has museums, art galleries, national Carlisle’s appeal as a visitor destination. sporting events, outdoor and indoor Providing potential for economic
20 diversification, particularly within the 2.35 All post 11 education in the District, redevelop the college estate through rural area, opportunities of this nature which was managed by the County refurbishment and replacement of are already being supported along for Council, now has Academy status. The outdated buildings. example the route of Hadrian’s Wall Richard Rose Academy (Central and 2.37 The University of Cumbria was World Heritage Site (officially known Morton sites) have been established established in August 2007 and as ‘Frontiers of the Roman Empire through an investment of some £30M. after a period of uncertainty, has in (Hadrian’s Wall): World Heritage Site’) Trinity School has obtained Academy recent years experienced significant National Trail with the development status and has again had significant levels of new students enrolling of accommodation and refreshment investment to improve its facilities. In in courses based at its Carlisle facilities. the rural area, Caldew School Dalston campuses. Proposals for major and William Howard School Brampton Education campus redevelopments including have also had significant investment to a new administrative headquarters 2.34 Educational achievement (measured improve facilities. for the University, based within the as 5 or more GCSEs at A* to C grade, 2.36 Carlisle College, based between City of Carlisle, have stalled due including English and maths) at 15 Victoria Place and Strand Road, is the to the initial financial challenges years old in Carlisle is lower (52.2%) main provider of further education. faced by the university following its than both national (59.2%) and The college also provides educational establishment. With recent reports regional (59.9%) averages. The District opportunities for students aged over 14 of improved performance, increasing also has a higher percentage of its alongside vocational and skills training student numbers, and in an improving population with no qualifications at for a growing number of both young economic climate it is hoped that these 12.3% compared to the national figure and mature students which is helping proposals can be progressed once of 9.3%. However in recent years there to expand the skills base locally. The more. has been significant investment and facilities at the college have greatly restructuring of education services improved in recent years as a result of and institutions across the District and significant investment being made to standards are continually improving.
21 Social Health those in the most deprived areas. Mortality rates per 100,000 persons 2.38 The English Indices of Deprivation 2010 2.40 Carlisle became a World Health at 609.3 is higher than the national (which updated the 2007 indices) show Organisation (WHO) Healthy City in figure of 553.3 and early death rates that Carlisle District is 109th out of 326 2009. Since then, the City Council has from cancer remain above the England nationally (with 1 being the highest) worked closely with organisations such average. with 5 Lower Super Output Areas as the National Health Service (NHS), in the 10% worst nationally which Riverside and Carlisle Leisure and has Flooding and Climate Change indicates great disparity throughout gained from the Healthy City approach 2.42 The position of Carlisle at the meeting the District and a slightly worsening and network. A Healthy City is one that point of three rivers makes it vulnerable position from the 2007 indices (ranked continually creates and improves its to the risk of flooding. In 2005, and 122nd out of 354 nationally). physical and social environments and then again in 2015, the District expands the community resources that 2.39 The Green Infrastructure Study March experienced the worst floods since enable people to mutually support each 2011 further supports the inequality 1822 which resulted in the loss of other in performing all the functions of across the District as it identified that human life and severely affected many life and developing to their maximum the 10 most deprived Super Output homes and businesses. Despite flood potential. Areas of the District have on average defences offering a level of defence 27% less green infrastructure cover 2.41 Life expectancy in the District is 78.5 against future flood risk, caution than the 10 least deprived. years for men and 82.0 years for must still be taken when considering women. Whilst slightly lower than the proposals for development in high risk national average this is higher than areas benefitting from defences. figures for the North West. However, there is great disparity across the District with men in the least deprived areas living seven years longer than
22 2.43 Specific data for the impacts of climate change on Carlisle are not readily available, but information is available on a regional basis that gives a good indication of the potential impacts. Between now and 2080, if we continue to discharge high amounts of greenhouse gases, the District could expect an impact on the following:
• more extreme weather conditions causing disruption to front line services like refuse/ recycling collections;
• higher energy costs for buildings and transport as climate change impacts on markets and trade;
• health related problems for example waterborne diseases linked to warm weather impacting on health services;
• drier summers could lead to droughts affecting parks, allotments and nature reserves putting pressure on water resources and local biodiversity; and
• wetter weather patterns in the summer affecting the agricultural economy through impact on crop and grass growth.
23 Key Diagram è Hawick/Galashiels A7
SCOTLAND è
Edinburgh/Glasgow M74
M6 Longtown « A75 J45 Gretna« A6071
Solway A69 Firth A7 Legend Hexham/ Hadrian’s Wall World Heritage Site Brampton Newcastleè A Roads « NORTHUMBERLAND J44 Motorway A689 AONB A69 Rivers A689 J43 Train Line Carlisle Lake District Airport
ALLERDALE Carlisle
J42 « Main Settlement
Dalston« A596 MOD - Longtown/Solway 45 Wigtonè EDEN Potential route for Borders Railway A595 Carlisle South (Policy SP 3) Workington/ Kingmoor Park Enterprise Zone (Policy EC 1)
Cockermouth Penrith/ M6
Manchesterè è South West Morton (Policy EC 1)
Lake District National Park ©Crown copyright and database rights 2014 Ordnance Survey LA100024459 A6 24 3 Spatial Strategy and Strategic Policies
Objective Context
• To promote a sustainable pattern of development, This section of the Local Plan comprises a suite of policies which will contribute to building a strong, responsive which set out key overarching and recurring principles and and competitive economy, to support the vision for therefore strategic direction for the more detailed policies and managed growth. specific proposals that follow. Collectively these strategic policies constitute the spatial strategy at the heart of the • To support strong, vibrant and healthy communities, Local Plan and in this regard they are central to the realisation by meeting the housing needs of present and future of the vision of how Carlisle will look in 2030. A number of generations, in a high quality environment with these policies go beyond traditional land use planning in accessible local services. order to lend impetus to wider initiatives pursuing common • To contribute to protecting and enhancing our natural, goals, as well as to ensure that synergies with the planning built and historic environment (including improving process are maximised. biodiversity), using natural resources prudently, minimising waste and pollution, and mitigating and adapting to climate change including moving to a low carbon economy.
25 Policy SP 1 - Sustainable Development Justification
3.1 The current United Kingdom Sustainable Development When considering development proposals Carlisle City Council Strategy ‘Securing the Future’ (HM Government, 2005) will take a positive approach that reflects the presumption in defines ‘sustainable development’ as: “Development which favour of sustainable development contained in the National meets the needs of the present without compromising the Planning Policy Framework (NPPF). It will always work ability of future generations to meet their own needs”. proactively with applicants, and communities, jointly to find solutions which mean that proposals can be approved wherever 3.2 The NPPF sets out a presumption in favour of sustainable possible, and to secure development that improves the development. This presumption is considered to be the economic, social and environmental conditions of the District. golden thread running through both plan making and decision taking. The NPPF emphasises the three dimensions to Planning applications that accord with the policies in this sustainable development, these being: Local Plan (and, where relevant, with polices in neighbourhood development plans) will be approved without delay, unless • an economic role – contributing to building a strong, material considerations indicate otherwise. responsive and competitive economy;
Where there are no policies relevant to the application, or • a social role – supporting strong, vibrant and healthy relevant policies are out of date at the time of making the communities; and decision, then the Council will grant permission unless material • an environmental role – contributing to protecting and considerations indicate otherwise - taking into account whether: enhancing our natural, built and historic environment. 1. any adverse impacts of granting permission would 3.3 These roles are interdependent, and to achieve sustainable significantly and demonstrably outweigh the benefits, when development, economic, environmental and social gains assessed against the policies in the NPPF taken as a whole; should be achieved through all aspects of planning. or
2. specific policies in the NPPF indicate that development should be restricted.
26 3.4 The Carlisle District Local Plan is the first reference point for those involved in the determination of planning applications. The NPPF makes it clear that local planning documents should reflect the presumption in favour of sustainable development and Policy SP 1 responds to this requirement.
3.5 It is important to note that in accordance with other policies in the NPPF that the presumption does not apply to development affecting sites protected under the Birds and Habitats Directives and/or land designated, amongst others, as a Site of Special Scientific Interest (SSSI), an Area of Outstanding Natural Beauty (AONB), Local Green Space, designated heritage assets or locations at risk of flooding or coastal erosion.
27 Policy SP 2 - Strategic Growth and Distribution
To ensure that objectively assessed development needs are a) the focus for development will be within the urban area of met, and met in the most sustainable manner, strategic growth Carlisle and locations which can maximise the benefits of Carlisle’s within the District of Carlisle will be governed by the following highly accessible position in relation to the M6 Corridor; and principles: b) whilst efforts will be focussed across the Plan period on realising 1. Sufficient land will be identified to accommodate 9,606 net the residual capacity within existing employment areas, this new homes between 2013 and 2030 including a minimum approach will be complemented by the allocation of an additional annualised average of: 45 Ha for employment related purposes.
• 478 net new homes between 2013 and 2020; and 3. Development of surplus land at Ministry of Defence (MOD) Longtown, which lies within the strategic M6 Corridor and benefits • 626 net new homes between 2020 and 2030 (adjusted to from excellent road and rail connections, will also be supported as have regard to delivery in the 2013-2020 period). a key element of the strategy to grow the economy, and to secure a) approximately 70% of this growth will be focussed on the modal shifts in freight transport. urban area of Carlisle, with approximately 30% in the rural 4. The City Centre will maintain and enhance its status by being the area; and primary focus for further comparison retail development across the b) specific sites have been identified within the Plan, Plan period: alongside an allowance for windfall developments, to a) specifically, sufficient land will be identified within the City accommodate the majority of growth required. Carlisle Centre to accommodate an additional 18,700m2 net comparison South has been identified as a broad location to retail floor space until 2030. accommodate additional housing growth in accordance with SP 3. 5. Provision for leisure and other ‘main town centre uses’ will be based on the need to protect and enhance the vitality and viability 2. Sufficient land will be identified to create the right of the City Centre, District Centres and Local Centres as defined on conditions for economic growth: the Policies Map.
28 Justification
3.6 Policy SP 2 sets out the level of housing market area and this level 6. Where possible and appropriate, objectively assessed development of growth therefore reflects what the the re-use and redevelopment of needs to be delivered within the District Council considers to represent the previously developed land will be until 2030, and importantly a number District’s objectively assessed encouraged across the District. Within of key principles to guide how, where housing need. the urban area of Carlisle the reuse and when these will be met in order and redevelopment of underused, 3.9 The housing requirement and time to ensure that sustainable patterns vacant and derelict land will be period to which it relates is consistent of development prevail across the supported in order to secure the with the base date and findings of plan period. This policy therefore continued regeneration of the City. the Carlisle Strategic Housing Market constitutes a key strategic policy which Assessment (SHMA) Update 2014, and 7. Within the District’s rural settlements, will be used to shape how the District the latest 2014 POPGROUP modelling development opportunities of an develops in the future. undertaken by the Cumbria Intelligence appropriate scale and nature, which 3.7 The delivery of housing is a key thrust Observatory. POPGROUP is a software are commensurate with their setting, of the spatial strategy necessary product designed to project populations, will be harnessed to positively in order to respond to changes in households and labour forces associated contribute to increasing the prosperity local demographics and equally in with specified future scenarios and is of the rural economy and to enable accommodating in-migration necessary widely regarded as a credible tool to rural communities to thrive. to support economic growth through derive robust projections. To do this, it 8. Within the open countryside, helping to sustain an economically builds upon Office of National Statistics development will be assessed active workforce. projections using further assumptions, against the need to be in the location for example: the continuation of longer/ 3.8 Policy SP 2 makes provision for a specified. shorter term trends in birth, death and minimum of 9,606 dwellings between migration rates, future development 2013 and 2030. The District of Carlisle proposals and the anticipated constitutes a self contained strategic performance of the local economy.
29 3.10 The POPGROUP “10 year migration approach reflects that job-growth is this same period. Beyond 2020 scenario”, based on historic migration generally expected to be stronger post the annualised average employed trends, and the “Experian jobs led 2020 (and hence a greater increase for assessment purposes should scenario”, based on the latest job in population would be required from similarly be adjusted to have regard projections for the District of Carlisle, this point). Aside from aligning with the to any under or over provision in the point to an annual housing requirement evidence in the form of the jobs-led preceding seven year period. of between 383 and 592 new homes. projection within the SHMA which has 3.13 Excluding Carlisle South the spatial The SHMA Update 2014 also produces influenced the housing requirement, strategy seeks to focus the majority projections which suggest an annual the introduction of a stepped approach (approximately 70%) of new housing housing requirement of between 485 importantly affords an opportunity for growth within or on the edge of the City and 565 new homes. The proposed the development industry to mobilise of Carlisle which aside from reflecting requirement pursued by the Plan can and increase its capacity within Carlisle, that this is where the majority of be seen to align with this evidence necessary given the migration from a housing needs arise within the District and is considered reflective of the historically lower housing requirement also reflects a desire to enhance the requirements set out in paragraph in preceding plan periods and industry City’s role as a sub-regional centre. 47 of the NPPF. base position. Concentrating development on the 3.11 To ensure the supply of new homes 3.12 It must be stressed that the ‘minimum’ City also reflects that this area is well does not constrain economic growth, requirements are exactly that and served by existing infrastructure which a minimum number equating to an should the conditions be in place entails evident sustainability benefits. annual average of 478 net new homes to exceed these and/or frontload The remainder of housing growth is required between 2013 and 2020. supply earlier in the Plan period then (30%) will occur within the District’s Beyond this and for the remainder of such opportunities will be positively rural settlements including in Brampton the plan period, between 2020 and responded to. To ensure that supply and Longtown. 2030, a minimum number equating keeps pace with demand it is important to an annual average of 626 net new that any shortfall within the 2013 homes is required. This stepped to 2020 period is addressed within
30 3.14 Specific allocations have been identified within the Local 3.16 Whilst Table 1 indicates a total supply which would support Plan to contribute, alongside existing commitments and an a higher rate of delivery than that proposed within the Local allowance for windfall, to meeting the majority of growth Plan, it is recognised that not all of the existing permissions required across the Plan period. Carlisle South, which is and allocations may be built out in full within the plan period, subject to the provisions of Policy SP 3, has been identified which the trajectory reflects. Nevertheless, if economic and as a broad location to accommodate additional housing market conditions are favourable, it demonstrates that the growth within and beyond the Plan period. Local Plan target could be exceeded. 3.15 The supply of housing land is summarised in Table 1 with the anticipated rate of delivery illustrated through the trajectory at Figure 1.
Table 1 - Summary of Housing Land Supply (as at 1st April 2015)
Source No. Of Dwellings Delivery to date (2013 – 2015) 609 Outstanding Planning Permissions 3,884 Proposed Local Plan Allocations* 4,017 Windfall Provision (@100 dwellings per annum across 1,500 the plan period) Strategic Allocation Carlisle South 1,450 Total Supply 11,460
* Excludes the capacity of those allocations which have an outstanding planning permission in place in order to avoid double counting.
31 32 3.17 Despite lower completion rates housing element of the strategy would the provision of new sites, particularly owing predominately to unfavourable also be instigated if evidence used to within the strategically important M6 economic conditions and the recent determine the housing requirement Corridor which is a recognised Cumbria global recession, there are encouraging changes; monitoring shows the LEP priority. market signals to support that the strategy is not meeting its objectives; 3.20 Whilst 45 Ha of land is allocated for desired level of housing growth can or sustained market signals indicate a employment purposes within the plan be achieved particularly across the clear need for change. period, there is also approximately 46 longer term. In this regard the Council 3.19 From an employment land perspective Ha of available land within existing is fully committed to directing its own Policy SP 2 identifies that sufficient and established Primary Employment resources to aid delivery efforts, with a land will be identified to create the Areas, with the majority of this (42 Ha) housing action plan in place to guide right conditions within the District being within the City of Carlisle and interventions. A key part of this action for economic growth, which is a key (4 Ha) within rural settlements. There plan is engagement with housing priority of the City Council, Carlisle have been encouraging signs of enablers to better understand future Partnership and the Cumbria Local investment in existing employment opportunities as well as risks and Enterprise Partnership (LEP). Evidence, sites, including the award of LEP constraints. in the form of the Carlisle Employment funding to enable qualitative 3.18 The delivery of housing to meet the Sites Study (2010) and the Economic improvements, and the City Council Local Plan target will be monitored Review of Carlisle (2013), shows that is committed to ongoing engagement through the Annual Monitoring Report one of the key economic issues to date with stakeholders and joint working (AMR), and if the rate of delivery is within the District has been the lack to secure further inward investment not as expected, the Council will seek of quality and choice of employment and promote opportunities within to work directly with stakeholders to locations for companies to invest. The the District. Whilst the allocation and identify any barriers to development, Local Plan seeks to address these existing Primary Employment Areas and consider further interventions shortcomings through encouraging and will be the focus for new employment including bringing forward additional or facilitating investment in existing sites, related development, this does not substituting allocations. A review of the and complementing this offer through preclude additional employment
33 developments coming forward out 3.22 Identification of the opportunity at the encompassing the majority of Cumbria with these sites where such proposals MOD Longtown site within the Cumbria and which extends into South West would act to diversify and strengthen LEP’s Strategic Economic Plan 2014- Scotland and the Scottish Borders. the employment offer in the District. 2024, and recent award of LEP funding, In catchment terms the City Centre In these circumstances the merits of is testament to the economic potential caters for almost 500,000 people and individual proposals would be assessed of the site with initial marketing of therefore provides a higher order role on a case by case basis against the the opportunity, branded as ‘Solway for both residents and businesses in suite of relevant policies within the 45’, revealing strong interest in it as the region. Local Plan. a destination for inward investment. 3.25 The Carlisle Retail Study (2012) The City Council are committed to 3.21 The identification of surplus land (some identifies that whilst the City Centre working with the relevant stakeholders, 243 Ha) at the Ministry of Defence was considered to be vital and viable, including those in Scotland given the owned Longtown munitions base and it was not achieving its full potential proximity of the site to the border, to its promotion for commercial purposes due to existing constraints such as ensure that the potential benefits of represents, owing to its scale, a its historic core (attractive asset but developing the site are maximised and significant economic opportunity within restricts change/expansion), small and that importantly any adverse impacts of the District within the life of the Plan historic retail accommodation (size and doing so are avoided. and beyond. The opportunity lends configuration of units) and department itself to manufacturing, storage and 3.23 Whilst it is not considered appropriate stores occupying multiple (irregular) distribution related uses, through either to pursue a specific employment land co-joined units. Consequently the making use of existing buildings or uptake target through the Local Plan, study identifies that improving the through the development of new ones. take up rates will be monitored and this performance and overall future vitality The site’s greatest assets are its ability stance will be kept under review. and viability of the City Centre will only to operate as a dry port owing to its be achieved if new comparison retail 3.24 Carlisle City Centre is recognised as excellent rail links, its proximity to the provision is delivered which is the main retail, leisure, service and M6 and M74, and its potential to exploit of sufficient quality to add to the administrative centre for a sub region linkages with the Port of Workington. existing offer.
34 3.26 In order to maintain and enhance 3.27 Beyond the City Centre the Carlisle needs on previously developed land. its status, and in accordance with Retail Study (2012) highlights the This largely reflects that previous efforts national policy, the City Centre will importance of a network of local and planning regimes have succeeded be the primary focus for further centres which perform an important in bringing previously developed land comparison retail development across top-up function from a convenience across the District back into beneficial the plan period. Whilst capacity and retail perspective as well as in providing use. Opportunities will however opportunities exist within the Primary access to other important local be taken to re-use and redevelop Shopping Area to accommodate services and facilities. The network of previously developed, underused and additional retail floor space, including local centres considered by the study vacant land where it exists, particularly within The Lanes Shopping Centre, has been reviewed and expanded as within the urban area of Carlisle where land has been identified through part of the Local Plan process, and a such opportunities can also act as a Policy SP 4 within the Local Plan, distinction has been made between catalyst for wider urban regeneration through a potential future expansion district and local centres. Accordingly, and renewal. of the Primary Shopping Area, to the provision for retailing, leisure and 3.29 In order to support the rural economy accommodate up to an additional other ‘main town centre uses’ will be and thriving rural communities, 18,700m2 net Class A1 comparison based, in accordance with national development proposals of an (non-food) retail floor space over the policy, on the need to protect and appropriate scale and nature, which period to 2030, which is identified as enhance the vitality and viability of this are commensurate with their setting, necessary by the Carlisle Retail Study hierarchy of centres. will be supported within the District’s (2012). As with other key elements of 3.28 Evidence in the form of the Strategic rural settlements. This approach will the spatial strategy the delivery and Housing Land Availability Assessment consider proposals on a case by case pipeline of additional comparison retail (SHLAA) and Employment Land basis on their individual merits, and floor space will be kept under regular Availability Position Statement against other policies of relevance review. support that there are relatively limited opportunities to meet development
35 within the Local Plan, and is considered preferable to a prescriptive approach particularly given the diversity of the many rural settlements within the District.
3.30 Within the open countryside development proposals will be assessed against the need to be in the location specified. This approach is necessary to ensure that sustainable patterns of development prevail and that importantly unnecessary and unjustified encroachment into and urbanisation of the District’s countryside and fine landscapes is avoided, in keeping with the objectives of national policy.
36 Policy SP 3 - Broad Location for Growth: Carlisle South
A broad location for growth for a major mixed use development, 4. to enable and support the co-ordination and timely delivery focusing on housing, is identified on the Key Diagram at of infrastructure provision; and Carlisle South. The release and phasing of Carlisle South will 5. to facilitate the delivery of land release to help address the be informed by a Development Plan Document inclusive of an imbalance of employment land between the north and south Infrastructure Delivery Strategy. of the City. To support the housing development, there will be a requirement The potential for the future development of a southern relief for primary and secondary schools, employment and retail sites, road linking Junction 42 of the M6 with the southern end of the community facilities, open space, green and other infrastructure A689 will be an integral part of the masterplan. including highways and transport. To enable a comprehensive and coordinated development The development of this area will be in accordance with a approach, piecemeal or unplanned development proposals masterplan which will be approved as a Development Plan within the area which are likely to prejudice its delivery Document. The study area for the masterplan will include the including the infrastructure required for the area will not be whole of the undeveloped extent beyond the city’s existing permitted. southern edge and any existing allocations. To ensure that Carlisle South is deliverable when required, work The purpose of the masterplan will be as follows: on masterplanning the area will commence in the early years of 1. to provide more detail on how and when the strategic the plan period. requirements set out in this policy will be delivered;
2. to set a framework to guide the preparation of future planning applications;
3. to provide a framework against which future planning applications will be assessed;
37 Justification
3.31 The NPPF (para 47) states that in order 3.33 Policy SP 2 sets out the overall housing appropriate option for meeting longer to deliver a wide choice of high quality target and identifies that specific sites term development needs within the homes, and to boost significantly have been identified within the Plan, District including beyond the plan the supply of housing, local planning through Policy HO 1, alongside an period. authorities should: “Identify a supply allowance for windfall developments, to 3.35 The delivery of Carlisle South as a of specific, developable sites or broad accommodate the majority of growth. strategic growth option may also help locations for growth, for years 6-10 Policy SP 3 makes provision for the to deliver in the long term a southern and, where possible, for years 11-15”. development of additional housing (and link road from the A689 (western associated infrastructure), by setting 3.32 The NPPF also states that the supply bypass) to Junction 42 of the M6, out a broad location for growth at of new homes can sometimes be and afford opportunities to secure Carlisle South. best achieved through planning investment in employment premises for larger scale development, such 3.34 The broad location is of such a size in the strategic M6 corridor. as new settlements or extensions that it would deliver a strategic number 3.36 Policy SP 3 makes clear that the to existing villages and towns that of houses and necessary supporting development of Carlisle South as a follow the principles of Garden Cities. development such as schools, broad location would be governed Paragraph 52 states: “Working with employment, retail and community by future masterplanning work, and it the support of their communities, local facilities, open space and green and would be through this process where planning authorities should consider other infrastructure for the District, in a consideration would be afforded to the whether such opportunities provide location bordering the southern edge detail of the scale and nature of the the best way of achieving sustainable of Carlisle, where the Plan indicates development and its boundaries and to development. In doing so, they should future development for housing and a the infrastructure necessary to support consider whether it is appropriate range of complementary uses would be growth. This process would also to establish Green Belt around or appropriate in principle. Future growth inform the release date and phasing of adjoining any such new development”. in this direction is considered the most development in this area. Maintaining
38 adequate distances between the major 3.38 The identification of Carlisle South in mixed use development and existing the Plan does not imply that the whole settlements in the wider locality, in area should be developed. Within order to avoid any coalescence and this wider area, specific and linked preserve their distinctiveness, would development sites will be identified be a valid and undoubtedly essential and allocated for specific uses, taking approach of any such work. account of infrastructure needs and land constraints through the processes 3.37 Future masterplanning work would outlined. be undertaken in partnership with stakeholders and be subject to its own 3.39 It would prejudice the strategy of the public consultation. Such work would Plan if individual sites within the Carlisle take forward the outcomes through to South area came forward until such the production of a Development Plan time as the intended Development Plan Document. It would then set the policy Document, inclusive of an infrastructure framework for any future planning delivery strategy, is adopted. It applications and make clear the would also prejudice the delivery of requirement for individual applications infrastructure. to demonstrate how they align with the masterplan including how they will contribute to the delivery of strategic infrastructure.
39 Policy SP 4 - Carlisle City Centre and Caldew Riverside
In order to maintain and enhance its status, Carlisle City Centre, Land to the north of Lowther Street including Rickergate has as defined on the Policies Map, will be the principal focus for been identified for a potential future expansion of the Primary comparison retail within the District, in addition to leisure, office Shopping Area. Retail led development proposals within this and other main town centre uses. area will be supported where they are in response to identified needs, are guided by a comprehensive strategy and where Development proposals within the City Centre should support its it can be demonstrated that the proposal would integrate vitality and viability and respond to opportunities to: effectively with the existing Primary Shopping Area. Proposals 1. create a diverse mix of uses, including City Centre living, which within this area which would prejudice the ability to respond to support vitality through generating daytime and evening activity; an identified need to deliver additional comparison retail floor space will be unlikely to be supported, unless the benefits of 2. preserve or enhance the character, appearance and wider doing so outweigh the benefits of safeguarding the potential setting of the City Centre, Botchergate and Portland Square/ expansion. Chatsworth Square Conservation Areas and contribute towards the delivery of objectives within their respective Management To the south of the City Centre a notable and significant Plans; opportunity exists in the locality of the Citadel, as defined on the Policies Map, to reuse and redevelop buildings and land 3. create new and enhance the existing public realm through for a mix of uses which could act as a catalyst to enhance the imaginative hard and soft landscaping; vitality and viability of the southern extent of the City Centre, 4. improve connectivity within the City Centre specifically with including Botchergate, and further improve the sense of arrival regards to increasing pedestrian and cycle permeability and for visitors using this important historic and iconic gateway. accessibility; and Consideration will be afforded to progressing a development brief for this locality to ensure that the opportunity to deliver a 5. bring back into beneficial use vacant and redundant buildings comprehensive and strategic development across this area is and upper floors particularly where to do so would increase safeguarded. This approach will also ensure that the potential City Centre living or generate job growth.
40 Justification
3.40 Carlisle City Centre is the main retail, leisure, service and benefits are maximised and that any opportunities to accelerate administrative centre for a sub region encompassing the delivery are identified. Proposals will be supported providing majority of Cumbria and which extends into South West that they do not prejudice any longer term opportunities Scotland and the Scottish Borders. Due to its historic and respect the significance of the heritage assets which status and heritage assets it is also an important visitor characterise this area. destination, and a key economic driver which is reflective Caldew Riverside, as defined on the Policies Map, constitutes of the roles it performs and jobs these roles give rise to. In a significant regeneration opportunity outwith but in close order to maintain this status and ensure that its offer keeps proximity to the City Centre, to bring back into beneficial use pace with a growing population and expectations, there is land for a mix of uses which would complement those found a need to plan positively for the future of the City Centre. in the City Centre and in doing so aid its overall attractiveness. 3.41 The extent of the City Centre is defined on the Policies Development proposals for main town centres uses on this site Map. This area will, in accordance with national policy will be considered on their merits, and should be accompanied and Policy SP 2 of the Local Plan, be the principal focus by a sequential and impact test in accordance with Policy EC for main town centre uses, with comparison (non-food) 6, to ensure that any proposed scheme does not threaten the retail further focussed within the Primary Shopping Area delivery of sequentially preferable sites and the health of the within the City Centre in accordance with Policy EC 3 of City Centre Primary Shopping Area. Development proposals the Local Plan. should demonstrate how they would contribute to the delivery of the comprehensive redevelopment of the wider site and 3.42 The Council commissioned consultants to prepare the positively interact with the River Caldew, including enhancing City Centre Development Framework (CCDF) to guide the the riverside walk/cycle way, as well as improving linkages with consideration of future development proposals in the City the City’s West Walls and the City Centre beyond. to 2030. Policy SP 4 seeks to embed the key principles to emerge from this work within the Local Plan and to take All proposals will need to consider their impacts on the forward the key development opportunities identified. transportation network.
41 3.43 The overriding objective for Areas, proposals will be expected 3.46 Connectivity between parts of the City development within the City Centre to contribute towards the delivery of Centre, and between the City Centre will be to contribute to maintaining objectives within these once in place. and adjoining areas and/or attractions, and where possible enhancing, in is not as good as it could be. Whilst 3.45 The public realm within the City accordance with national policy, its in some regards connectivity could Centre exerts a significant influence vitality and viability. The need for be improved through more simplistic on the perceived quality of the City proposals to contribute towards a measures such as enhanced signage, Centre and its overall attractiveness diverse mix of uses reflects a desire at the other end of the spectrum more as a destination. Whilst there has to act to ensure vitality throughout creative solutions are required to been significant investment in public both the daytime and evening overcome the severance effect of key realm within key areas of the City economies, and in doing so expand vehicular routes which pass through Centre, there remains a need to the City Centre offer. the City Centre. Again development improve its quality in other parts. The proposals should consider how they 3.44 The City Centre is covered in its City Council have commissioned a can assist to improve connectivity, entirety by conservation area public realm framework as a means of not least through a high quality and designations which serve to reinforce helping to identify and prioritise further inclusive design approach. its historic status. Botchergate is enhancements, and development currently identified as a Conservation proposals should consider how 3.47 There remains potential across the City Area at Risk and it is therefore they can assist such efforts. Major Centre to bring back into beneficial use imperative that opportunities are taken development proposals within or on upper floors with the introduction of to contribute towards the achievement the edge of the City Centre should also City Centre living and/or proposals for of actions within its adopted consider how they can help to expand offices and other uses which generate management plan in order to help the public realm network through job growth proven to positively reverse its decline. Whilst management opening up access to high quality enhance vitality. Such proposals will, plans are not yet in place for the public space. subject to conforming to other policies City Centre and Portland Square/ of relevance within the Local Plan, be Chatsworth Square Conservation supported.
42 3.48 A key objective of the CCDF was to proposals, through which the required 3.51 The CCDF also identifies that a explore whether and where within the development needs could be met. notable and significant redevelopment City Centre additional A1 comparison The identification of this land in this opportunity exists to the south of the (non-food) retail floor space could be manner is considered to afford a strong City Centre centred on the Citadel and accommodated. The need to do so degree of flexibility whilst at the same former Courts buildings. This reflects reflects the findings of the Carlisle time providing a sufficient degree of that these buildings are shortly (in 2016) Retail Study (2012) and both the certainty to aid investment decisions. to be vacated by Cumbria County quantitative and qualitative need for Council, and equally that the adjacent 3.50 In order to be supported a fundamental this form of additional floor space properties fronting English Street and aspect of any proposal within this within the City Centre within the Victoria Viaduct are also in public area will be demonstrating how the plan period. ownership. development scheme integrates 3.49 The CCDF concludes that the most effectively with the existing Primary 3.52 While this location does present a real appropriate and logical expansion of Shopping Area, particularly from a opportunity to deliver a transformative the Primary Shopping Area within the pedestrian accessibility perspective. mixed use development (for a variety City Centre would be to its north, on Furthermore, such proposals should of main town centre uses, alongside land to the north and east of Lowther be guided by a comprehensive strategy residential, educational or institutional Street. Accordingly this area, which to ensure a strategic approach to uses), realising this will not be without is also that where land availability is the actual expansion of the Primary challenges. Development will need currently greatest and market interest Shopping Area prevails. Proposals to respect the historic character and strongest, has been identified on the which would prejudice the ability of the fabric of the site, and comprehensive Policies Map as a future extension of land to the north and east of Lowther development will be dependent on the Primary Shopping Area. The extent Street to respond to the identified need assembling a number of leases. of land identified reflects that a number to deliver additional comparison retail Reflecting these characteristics, it of development options exist within this floor space will not be supported. may be that the redevelopment of area, as evidenced through the CCDF this site will need to take place on a and other private sector indicative phased basis.
43 3.53 In order to ensure that the opportunity however without its constraints and will be given clear priority over Caldew to deliver a comprehensive and is contaminated in parts and subject Riverside. In these circumstances strategic development across the to the risk of flooding. Planning development proposals for the site will wider Citadel area in the future is permission is in place for a food be considered on their merits and be not lost, the Council will consider superstore on part of the site with expected to deliver enhanced walking progressing a development brief for the consent for this having been and cycling links and to aid the overall the site in conjunction with Cumbria lawfully implemented but not currently attractiveness of the City Centre through County Council. Importantly this progressed. Based on the level of need the delivery of uses which would process may also help to identify identified in the Carlisle Retail Study the complement those found within it. opportunities to accelerate the site is not relied upon to accommodate 3.56 Finally all proposals will need to delivery of a more comprehensive any main town centre uses. consider their impacts on the redevelopment and ensure that the 3.55 The CCDF identifies that a mix of uses transportation network, in accordance benefits associated with redeveloping could potentially be accommodated with Policies SP 5 and IP 2 of the this site in acting as a catalyst to on this site subject to addressing Local Plan, to ensure that access to key improve the vitality and viability of the the relevant policy tests elsewhere sites and key routes are not adversely southern extent of the City Centre, within the Local Plan and providing affected. including Botchergate, are maximised. these uses do not undermine the 3.54 Caldew Riverside constitutes a delivery of sequentially preferable site significant regeneration opportunity to opportunities within the City Centre bring back into beneficial use land for including the proposed extension of a mix of uses outwith, and although the Primary Shopping Area and the in close proximity physically distinct redevelopment of the Citadel complex. from, the City Centre. The site is not The delivery of main town centre uses on these sequentially preferable sites
44 Policy SP 5 - Strategic Connectivity
The City Council will support improvements to the transport 6. enhance the appearance of key gateways; network, in partnership with delivery partners and operators, 7. secure a modal shift in the transport of freight from including the Highway Authority, in order to support the road to rail and improve connections with the Port of District’s growth aspirations and Carlisle’s role as a strategic Workington; and transport hub. 8. support Carlisle Airport as a gateway for business, Proposals in line with the objectives of the 3rd Cumbria Local tourism and in helping to improve access to global Transport Plan will be supported. Interventions to facilitate markets and destinations. growth as identified in the Infrastructure Delivery Plan will be prioritised. Opportunities will also be taken to: The lines of disused railways which have the potential for future use as green corridors for walking and cycling, or to 1. increase the provision for walking and cycling, including facilitate the reinstatement of public transport services, will improved connectivity across the District; be protected. Specifically, the alignment of the former 2. retain and enhance existing public transport services and to Carlisle - Longtown - Borders railway will, as far as possible, improve and modernise key public transport infrastructure be protected through recognition of the longer term aspiration including Carlisle Railway Station and interchange; to reinstate the Carlisle-Borders-Edinburgh rail connection.
3. promote economic growth and seek to attract new and Land will be safeguarded and/or allocated through the growing investment along the M6 corridor; planning process to support the realisation of new or improved transport infrastructure. 4. improve transport networks for all modes to ensure access and movement are maintained;
5. develop a southern relief road linking Junction 42 of the M6 with the southern end of the A689 as part of developing the broad location of Carlisle South;
45 Justification
3.57 Carlisle fulfils an important role as a 3.58 Carlisle’s strategic connectivity makes highway and transport network that strategic transport hub for the wider it an accessible and attractive everyone can access, which supports Cumbrian sub-region. The strategically location for investment and supports the development of a sustainable important M6 passes through the and services the wider County. The and prosperous low carbon economy District from south to north and need to protect and further enhance and ensures Cumbria’s outstanding links to Scotland beyond as well as this connectivity has however been environment can be enjoyed. The important east and west connections identified as critical in supporting not policies and allocations within this to Newcastle and the Northeast and only the District’s growth aspirations Local Plan help to contribute to this West Cumbria including the Port of but also those of the wider County. The ambition through acting to reduce Workington and Britain’s Energy Coast. need for this is echoed by the Cumbria the need to travel, reduce the need Carlisle also hosts Cumbria’s principal LEP which, through its Strategic to use private vehicles, promoting railway station with Carlisle Station Economic Plan, identifies connectivity accessibility to jobs, shopping, leisure fulfilling an important gateway and as one of four key priorities stating and community facilities by public rail interchange on the strategically that investment is required in the full transport, walking and cycling and important West Coast Mainline. A range of Cumbria’s strategic networks, promoting more sustainable transport number of strategic green corridors including rail, road, cycleways and choices for both people and freight. and cycle ways traverse through the public transport to improve connectivity Specific proposals which further aid District and link to the Lake District, within and to the sub-region. the delivery of the LTP objectives will Yorkshire Dales and Northumberland be supported. 3.59 The 3rd Cumbria Local Transport Plan National Parks. Carlisle Airport is also (LTP) sets out objectives and plans for 3.60 In order to facilitate the levels of a strategically important transport developing transport across Cumbria growth set out in the Local Plan, asset for both Carlisle and the wider including within Carlisle. The overriding interventions identified through the sub-region, with aspirations to increase objective of the Cumbria LTP is to Infrastructure Delivery Plan (IDP) will be its role and function over the next few ensure a high quality and resilient prioritised. The IDP acts to document years.
46 and continually review infrastructure commercialisation of surplus land Edinburgh and Tweedbank which is requirements, including transport at MOD Longtown and potential currently under construction, albeit that infrastructure, and subsequently connectivity to the Port of Workington; no firm proposals are yet in place to to monitor whether the delivery of and supporting Carlisle Airport as a further extend this route. infrastructure is keeping pace with gateway for business, tourism and in 3.63 Where land is identified as being development. The IDP has been helping to improve access to global essential to the delivery of transport developed with the co-operation of a markets and destinations. interventions which have a reasonable wide range of infrastructure providers 3.62 The lines of disused railways offer prospect of delivery, it will be including transport partners and unique opportunities to improve safeguarded where necessary through operators. connectivity through their reinstatement the planning process. No such 3.61 Opportunities will also be taken where as transport corridors. Every effort safeguarding is considered necessary they arise to assist in the realisation will therefore be made to protect at the current time, but if needed of a number of strategic interventions the potential of disused alignments throughout the life of the Local Plan will listed in Policy SP 5. These include within the District as far as is possible. be achieved through the partial review improving opportunities for walking Of particular relevance within the of the Local Plan or acting to bring and cycling; modernising public District is the alignment of the former forward an additional Development transport infrastructure; acting to Carlisle-Longtown-Borders railway Plan Document. capitalise on the economic potential of in light of the Campaign for Borders the M6 corridor; improving transport Rail and cross boundary longer term networks; enhancing the appearance aspirations to reinstate the Carlisle- of key gateways; securing a modal Borders-Edinburgh rail connection. Of shift in the transport of freight relevance to these aspirations is the from road to rail particularly within Scottish Government’s decision to re- the context presented by the part open the section of this route between
47 Policy SP 6 - Securing Good Design
Development proposals will be assessed against the following 7. ensure there is no adverse effect on the residential amenity of design principles. Proposals should: existing areas, or adjacent land uses, or result in unacceptable conditions for future users and occupiers of the development; 1. respond to the local context and the form of surrounding buildings in relation to density, height, scale, massing 8. aim to ensure the retention and enhancement of existing trees, and established street patterns and by making use of shrubs, hedges and other wildlife habitats through avoidance, appropriate materials and detailing; including alternative design. If the loss of environmental features cannot be avoided, appropriate mitigation measures should be put 2. take into consideration any important landscape or in place and on-site replacement of those features will be sought; topographical features and respect local landscape character; 9. include landscaping schemes (both hard and soft) to assist the integration of new development into existing areas and ensure 3. reinforce local architectural features to promote and that development on the edge of settlements is fully integrated respect local character and distinctiveness; into its surroundings; 4. take into consideration the historic environment including 10. ensure that the necessary services and infrastructure can be both designated and undesignated heritage assets and incorporated without causing unacceptable harm to retained their settings; features, or cause visual cluttering; 5. ensure all components of the proposal, such as buildings, 11. ensure that the layout and design incorporates adequate space car parking, and new connections, open space and for waste and recycling bin storage and collection; and landscaping are accessible and inclusive to everyone, safe and well related to one another to ensure a scheme which 12. when agreed by the Highway Authority, the reinstatement of is attractive and well integrated with its surroundings; existing traditional materials will also be sought, following repairs to roads, pavements, kerbs and underground services. 6. seek to ensure that streets are designed, where appropriate, to encourage low vehicle speeds which allow All proposals should be designed to maximise opportunities to streets to function as social spaces; employ sustainable design and construction techniques.
48 Justification
3.64 High quality design is an integral 3.66 Good design should be the aim of includes tree and shrub planting; part of sustainable development and everyone involved in the development and hard landscaping concerning accordingly is a key thrust of the process. The principles in this paving, walls etc. Where appropriate, Local Plan’s strategic overarching policy will help to ensure that the the Council may require the partial strategy. The Plan recognises that development itself is not only well implementation of a landscaping good design is essential to creating designed, but also complements and scheme prior to the completion of the accessible, inclusive, attractive, vibrant enhances its local setting whilst being development in order to reduce the and sustainable places with a strong accessible and inclusive to everyone. impact of the construction works on sense of place, in which people want Developments should also seek to site in the interim period. The proposed to live, work and have fun. This policy encourage a healthy lifestyle through development should be situated to applies across the whole spectrum of the provision of opportunities for reflect the mature growth of species development, regardless of use type or walking and cycling, and safe places to above ground and landscaping scale; all new development is expected play, where these are appropriate. schemes should take account of the to be well designed and appropriate to position of underground services and 3.67 In areas where there are no significant its surroundings. utilities, ensuring any planting does not local building traditions or where compromise their function. 3.65 Good design should enhance the positive character elements are lacking, quality of buildings and spaces proposals should seek to create a 3.69 In addition to this policy consideration by considering form and function, strong and attractive local identity must also be given to any additional efficiency and effectiveness, and the through intelligent, innovative and design guidance/policies or site potential impact of a development imaginative design. specific supplementary planning on the well being of the people documents including those set out in 3.68 Landscaping schemes are an essential who will use and view it. It should neighbourhood development plans. consideration of the design process. be sympathetic to the needs and Landscaping schemes can take requirements of different use classes two forms: soft landscaping which and localities.
49 Policy SP 7 - Valuing our Heritage and Cultural Identity
The Council will, through planning decisions and in fulfilling its 4. the historic quarter of Carlisle City including the Cathedral wider functions, proactively manage and work with partners to and its precinct, Carlisle Castle and the City Walls, Tullie protect and enhance the character, appearance, archaeological House Museum, the Market Cross, Old Town Hall and the and historic value and significance of the District’s designated and Guildhall, as well as the important streets and spaces which undesignated heritage assets and their settings. interconnect and provide a setting for these assets;
Opportunities will also be pursued, to aid the promotion, 5. important industrial heritage including Tindale, Forest Head enjoyment, understanding and interpretation of both heritage and Quarries and prominent and historically significant mill / cultural assets, as a means of maximising wider public benefits factory buildings in West Carlisle including Dixon’s Chimney; and in reinforcing Carlisle’s distinct identity. 6. key religious sites and their settings including the Cathedral Key elements which contribute to the distinct identity of Carlisle precinct, Brampton, Burgh by Sands, Lanercost, Wreay and District, and which will therefore be a priority for safeguarding and Bewcastle Cross; enhancing into the future, include; 7. conservation areas across the District and particularly 1. the outstanding universal value of the World Heritage Site Botchergate and the City Centre which fulfil important associated with the Roman frontier including Hadrian’s Wall and social and economic functions for the District and wider associated Roman sites such as Bew Castle; sub-region; and
2. medieval castles and other fortifications including Carlisle 8. key cultural assets encompassing parklands, landscapes, Castle and the City Walls, the Citadel, Brampton Mote, Bew museums, art galleries, public art, local food and drink and Castle, Naworth Castle, Rose Castle, Scaleby Castle and other local customs and traditions. bastles and fortified houses; As well as fulfilling its statutory obligations, the Council will: 3. Battle of the Solway Moss battlefield; a) seek to identify, protect and enhance locally identified heritage assets;
50 Justification
3.70 The historic environment plays a vitally these regards it is pertinent to note that b) promote heritage-led regeneration important role, both in terms of keeping whilst much is known about the past, including in relation to development the story of Carlisle’s history alive for much equally remains to be discovered. opportunities in the City Centre; the people who live here but also for 3.72 Policy SP 7 serves to ensure that this c) produce conservation area the economy in telling visitors that evidence is given due consideration appraisals and management plans; story. It is a source of local pride and in planning decisions and, aside from identity, as well as being a valuable d) develop a positive strategy to planning and development proposals, educational and economic resource. safeguard the future of any heritage reaffirms the Council’s commitment It is central to the character, quality assets that are considered to be ‘at to work proactively with partners and cultural identity of the District and risk’; and where opportunities arise to preserve, contributes significantly, from a social protect and enhance the character, e) adopt a proactive approach to perspective, to quality of life. The appearance, archaeological and utilising development opportunities historic environment acts as a stimulus historic value of heritage and cultural to increase the promotion and and inspiration to place making and assets, as well as to better understand interpretation of the District’s rich plays a part in increasing the appeal of their significance. In these regards archaeological wealth. the area as a place to live, work, visit the policy sets a clear and important and invest in. A more detailed suite of policies as a statement of intent with regards to both key mechanism through which to help 3.71 The District contains a wealth of heritage and cultural considerations safeguard the above assets and wider heritage and cultural assets and playing an integral part in local decision archaeological interest is set out in the evidence which have, and will continue making. historic environment chapter of the Plan. to, inform our understanding and 3.73 The Local Plan in its widest sense interpretation of the development of seeks to achieve this aim through the District’s historic landscapes and ensuring that both heritage and cultural townscapes, all of which contribute to assets are safeguarded or enhanced its identity and local distinctiveness. In
51 for the future, both for their own the District by ensuring that the historic heritage and cultural merits and for context informs planning decisions and the wider benefits they bring, in line provides opportunities to link with other with the NPPF. Benefits should include environmental infrastructure initiatives, improvements in the quality of the working with partners. historic built environment, stimulation 3.74 Like most places, Carlisle District has of high architectural quality in new a number of heritage assets that are buildings, creation of a stronger local considered to be ‘at risk’. The Council identity and sense of place, increased will work with partners to help secure sustainability, encouragement of the long term sustainable future of such local building craft skills, greater assets and aims to reduce the number opportunities for interpretation and use of buildings and areas at risk. As of the historic environment in education part of this, should a historic building and increased levels of investment (designated or undesignated) become and tourism. To ensure that historic vacant, under-used, or derelict, assets make a positive contribution the council will, where appropriate, towards the wider economic, social encourage its owner to promote its and environmental regeneration of re-use, or its more efficient existing use Carlisle District, it is important that they where this preserves or enhances its are not considered in isolation but are heritage significance. As a last resort, conserved and enhanced within their the Council may employ more robust wider context. A holistic approach measures such as Amenity Notices, to the built and natural environment Urgent Works Notices and Repairs maximises opportunities to improve Notices, to safeguard finite historic the overall image and quality of life in assets from unwarranted loss.
52 Policy SP 8 - Green and Blue Infrastructure
The Council will, through planning decisions and in fulfilling 4. supporting and enhancing those assets which fulfil a key its wider functions, work with partners to develop a holistic visitor and leisure, or other productive economic function approach to the protection and stewardship of the District’s including Bitts and Rickerby Parks, Talkin Tarn and green and blue infrastructure through a comprehensive and Kershope Forest; and connected policy approach. 5. protecting the lines of disused railways and encouraging, Existing assets will be protected and, where possible, enhanced where appropriate and possible, proposals for their reuse in order to establish a multifunctional, integrated and accessible for green transport links such as cycleways and footpaths, green and blue infrastructure network which maximises wider or as important wildlife corridors. public and ecological benefits. Conditions, legal agreements and developer contributions New development will be required to work towards delivering, will be sought to secure new or enhanced green and where appropriate and achievable, outcomes of the Carlisle blue infrastructure provision on, or associated with, new Green Infrastructure Strategy. At a strategic level these include: development. Developers will be expected to provide some aspects of green and blue infrastructure within developments, 1. affording the highest level of protection to key blue and green ensuring that, where possible, they integrate with wider blue assets and taking opportunities to enhance relationships and green infrastructure networks. with, views and the setting of aquatic assets such as the Rivers Eden, Caldew, and Petteril within the City; Where unavoidable harm is caused to a green infrastructure asset through development, the developer will be expected 2. recognising and enhancing the function of and connectivity to replace or mitigate for this damage. Any replacement or to Bitts and Rickerby Parks as strategic green infrastructure mitigation measure will be expected to be of similar or better hubs for the City and wider District; quality to that lost, including fulfilling the same functions 3. supporting and enhancing strategic green links including effectively, and should be deployed as closely as possible to Hadrian’s Wall National Trail, the Cumbria Way, English the affected green infrastructure asset. Coastal Path and The Reivers Route;
53 Justification
3.75 ‘Green infrastructure’ (GI) is a term and management of green and the potential to fulfil valuable functions used to refer to the living network blue infrastructure networks. This unless the loss of such assets can be of green spaces, water and other reflects that beyond the key role mitigated. Productive landscapes also environmental features in both urban these infrastructure networks play fall under the definition of GI and these and rural areas. It is often used in in providing a pleasant and green landscapes, which help drive the rural an urban context to cover benefits environment, they also constitute an economy through forestry, agriculture provided by trees, parks, gardens, important mechanism for building and tourism, will be protected from road verges, allotments, cemeteries, resilience against and countering inappropriate development through woodlands, rivers and wetlands, but is the impacts and causes of climate this policy. also relevant in a rural context, where change. They also have a proven and 3.78 The Carlisle Green Infrastructure it might refer to the use of farmland, demonstrable positive impact upon Strategy (2011) sets out a vision woodland, wetlands or other natural peoples’ quality of life and health and which places adopting a progressive features. In some instances, GI can well being, providing both pleasant and approach to GI at the heart of creating also provide important off-road walking safe places for exercise but also the an excellent place for business, and cycling links, contributing in part to sense of comfort and connection to the community and wildlife, which is the wider, integrated transport network. natural environment, providing rich and confident in its own distinctiveness, ‘Blue infrastructure’ (BI) refers to the varied habitats that allow the District’s strength and resilience, ultimately to aquatic and hydrological networks such flora and fauna thrive. Fundamentally assist in making Carlisle one of the as rivers and canals which often entail they also play a key role in supporting best places in the UK to live, work, wider corridors and therefore go hand and driving economic growth and invest and enjoy life. In addition to a in hand with GI. regeneration. number of specific actions the strategy 3.76 National policy expects planning 3.77 At the heart of Policy SP 8 is a highlights four key benefits of using GI authorities to plan positively for the presumption against the loss of any as follows: creation, protection, enhancement components of GI which fulfil or have
54 • enhancing the image and perception 3.80 Applicants for all development 3.81 The Carlisle Green Infrastructure of the District through improving the proposals will be expected to consider Strategy (2011) highlights a particular aesthetics and environmental quality and be designed to maximise the lack of accessible green space within of key areas over time; full range of benefits of green and the City Centre, emphasising the value blue infrastructure affording careful this places on those green spaces that • supporting spatial and economic consideration to how they can add to are present. In these circumstances growth by creating the setting and and integrate with existing spaces and and in other areas where a deficit is stimulus for this as well as making the wider network. Where appropriate, identified, developers may be required it sustainable; provision should be made on site to contribute towards new provision. • to improve quality of life through for green infrastructure through, for This approach reflects the need to tackling health and wellbeing example, landscaping and open space ensure that this form of infrastructure inequalities and deprivation; and provision. In such circumstances keeps pace with development and consideration should be afforded to ultimately that those proposals which • enhancing sustainability and resilience the functionality of such components, place an increased demand on assets through presenting an opportunity to for example, including how they can contribute to upgrading capacity. Such future-proof the District. equally assist with climate change contributions may also be justified on 3.79 The City Council will work with partners adaptation through providing natural the basis of the necessity to improve to help realise the ambitions of the GI shading and urban cooling or in the quality of existing assets and/or Strategy and will aim to ensure that creating valuable habitat to support to improve their accessibility. In some all opportunities are taken through the and enable biodiversity to flourish or to circumstances contributions towards planning system to add to, enhance improve ecological connectivity. the maintenance of these assets will the quality of, improve the functionality also be justified. The imposition of and increase the connectivity of the conditions or planning obligations will District’s green and blue infrastructure be used where necessary to secure networks. such contributions.
55 Policy SP 9 - Healthy and Thriving Communities
The Council will, through planning decisions and in fulfilling 3. encouraging the development of decent homes that are its wider functions, work with partners to proactively improve adaptable for the life course of the occupiers; the health and sense of wellbeing of the District’s population, 4. carrying out Health Impact Assessments for significant and reduce health inequalities. The Council will support strategic proposals and for proposals that are likely to have development of new/enhanced healthcare infrastructure a significant impact on the health and wellbeing of the local and will aim to ensure that all development contributes population, or particular groups within it, in order to identify to enhanced health and wellbeing outcomes through the measures to maximise the health benefits of development following measures: and avoid any potential adverse impacts; 1. creating high-quality and inclusive environments that 5. preparing for extreme weather events by creating support people in making healthy choices, and that environments and communities that are resilient to the make these choices easier by encouraging development impacts of extreme weather, ultimately caused by climate proposals to maximise the opportunity for walking and change; cycling, social interaction, sport and physical activity, whilst providing accessible local services, facilities and 6. protecting and promoting the role of community food jobs, a diverse and useable integrated network of green growing spaces including allotments, community orchards infrastructure assets and convenient public transport and community gardens in providing social and mental health facilities; benefits and access to healthy, affordable locally produced food as part of Carlisle’s role as a Food City; and 2. providing high quality design which ensures that developments consider their lifetime quality, create safe and 7. maximising opportunities for renewable and decentralised accessible environments and minimise and mitigate against energy. potential harm from risks such as pollution and other environmental hazards;
56 Justification
3.82 The impact of our environment on the 3.83 The District currently has some hazardous substances. It is therefore health and wellbeing of the population significant pockets of deprivation recognised that the Local Plan has is being increasingly recognised in with over 18,000 people living in areas a key part to play in addressing the health plans, strategies and policy considered to be the most deprived in health inequalities of our District in statements and in national planning England (Carlisle Health and Wellbeing order to create better environments for policies. Almost every decision has the Profile 2013). It is recognised that people to live, work and play, as well potential to impact upon human health behavioural factors are not the only as protecting and improving access to and wellbeing and Carlisle’s status as influences on health. Social and health services at a local level such as a Healthy City adds additional focus economic circumstances affect how GPs and at a larger scale, such as the to the health and wellbeing benefits people behave and their health. Cumberland Infirmary. that are attainable from sustainable 3.84 The link between planning and 3.85 Health starts where people live, learn, development, in creating environments health has been long established. work and play and so the Local Plan that allow people to reach their Development can affect health and is important in guiding development full health potential at all stages of health inequalities in a variety of of different uses, scale and location their lives. The potential impacts of ways, including through; the quality and striving to ensure that health and development are wide ranging and so of housing and developments, wellbeing will not be compromised as due consideration must be given to design of neighbourhoods, density a result of new development. Efforts how spatial planning, urban design, of development, mix of land uses, to improve health outcomes through housing and regeneration can enhance quality and efficient transport systems, the Local Plan will be maximised by the quality of the environment and opportunities to undertake recreation the application of those policies which contribute to addressing the causes and experience leisure and cultural seek to ensure that new development of ill-health, improving health and activities, opportunities to grow or takes account of access to services reducing health inequalities. have access to healthy food, access and facilities; enables walking and to green and open space facilities, cycling; provides access to formal and air quality, noise and exposure to
57 informal community meeting spaces, networks of semi-natural habitats plan period. The Council will seek to sports facilities; reduces the fear of which provide opportunities to interact ensure that consideration will be given crime and supports the development of with nature as well as peaceful and to the needs of the community on a education and health facilities; as well tranquil green spaces in which people site by site basis and an appropriate as seeking to protect health through can relax. mix of dwellings agreed through the policies that ensure only appropriate Development Management process. 3.87 Health and wellbeing can be improved developments are granted within close by ensuring that homes are accessible, 3.88 The links between health, education, proximity to populated areas such as inclusive and incorporate design community and planning are also policies considering levels of pollution features which add to the comfort and highlighted by national planning policy and hazardous substances etc. Health convenience of the home and support which acknowledges the role that the and wellbeing is therefore an underlying the changing needs of individuals and planning system can play in facilitating theme for consideration when assessing families at different stages of life, their social interaction and creating healthy, any application for development. It is life-course. This type of development inclusive communities. It emphasises also recognised that proposals that would allow older people to stay in the importance of working with provide improved social, economic their own homes for longer, reduce the health partners to understand and and environmental opportunities can need for home adaptations and give take account of the health status address some of the existing design greater choice to disabled people who and needs of the local population, disadvantage in the District. cannot achieve independent living due including expected future changes, 3.86 Green infrastructure can play a key role to lack of suitable housing. The Local and barriers to improving health and in contributing towards the health of Plan encourages the development of wellbeing. This policy seeks to ensure the District. This can include a range decent homes that are adaptable for that development enhances health of usable, high quality green assets the life course of the occupiers, given and wellbeing and does not have a which can be wide ranging in their role the numbers of residents in the three negative effect on it by ensuring that and function for the local community. oldest age bands (60-74, 75-84 and public health partners are consulted on This can include, for example, green 85+) are projected to increase (Cumbria development proposals. spaces for play, areas for food growing, Observatory, Spring 2014) across the
58 3.89 Where proposals for development healthcare services. The Local Plan 3.91 Demonstrating the relationship between are likely to have a significant impact has itself been the subject of a HIA. sustainable development and health is on health and wellbeing of the local The potential need for an HIA in relation a powerful argument to support climate population or particular groups within to a planning application will be raised change mitigation and adaptation in it, a Health Impact Assessment (HIA) with applicants through the pre- particular and sustainable development will be required. The HIA should application process. in general. A healthier environment can measure the potential health impacts contribute to better outcomes for all. 3.90 Good public transport, in combination of a development proposal on the This involves valuing and enhancing with cycling and walking, can reduce wider population. It is a tool to appraise our natural resources, whilst reducing air pollution, noise and greenhouse both positive e.g. physical, social and harmful pollution and significantly gas emissions, energy consumption mental wellbeing benefits from the reducing carbon emissions. By valuing and congestion, improve road safety creation of accessible open space and our physical and social environment, and better protect landscapes and negative e.g. generation of pollution we can restore our natural environment urban cohesion, while providing more impacts on different subgroups of the and strengthen our social assets, opportunities to be physically active population that might result from the whilst enhancing our independence and socially connected with improved proposal being implemented. HIAs will and wellbeing at both a personal and access to educational, recreational add value and assist decision making community level. By doing so, we and job opportunities. Where there in the planning process by maximising improve the quality of care, build strong are public green spaces and forests, the benefits and opportunities from communities and generate conditions people can use these to walk, play, a development to contribute towards where life is valued. One example of and cycle, turning physical activity creating healthy communities. It allows developments reducing the impacts of into an integral part of their daily lives, any necessary mitigation measures to climate change is through tree planting improving health by reducing stress be identified and can help to identify as trees absorb atmospheric pollutants levels and noise pollution. the potentially cumulatively significant and produce oxygen whilst absorbing effect a proposal could have on health carbon dioxide and sequestrating infrastructure and/or the demand for carbon, and can also provide urban cooling through natural shading.
59 3.92 Carlisle District is a founding member Policy SP 10 - Supporting Skilled Communities of the Sustainable Food Cities Network which strives to create a City where The City Council will work with partners to develop skilled communities in good food flourishes and where we order to underpin future economic growth. work in partnership to empower change In contributing to this objective the City Council will support developments towards a vibrant and inclusive food which relate to the operational needs of and/or expansion of all of the culture. As part of the commitment to District’s higher, further and specialist education establishments including sustainable development, sustainable the University of Cumbria and Carlisle College. food production will be promoted in consideration of its contribution to Ancillary and related uses such as student housing will also be supported health and wellbeing, environmental providing it can be demonstrated that such uses are: sustainability, local commercial 1. genuinely linked to the education establishment and its operations; enterprise prosperity and strengthening communities. Acknowledging 2. in locations where they are compatible with the surrounding land uses; and acting to protect the roles of and community growing spaces such 3. in accessible locations which minimise the need to travel. as allotments, community orchards, community gardens and farmers’ Where appropriate any new or proposed extensions to existing campuses markets in providing access to healthy, should be guided by a comprehensive and clear strategy. affordable locally produced food will assist this aim.
60 Justification
3.93 The Economic Review of Carlisle to strengthen the further education 3.97 Given the nature of such facilities it is (January 2013) identifies as a priority offer across Cumbria resulting in important to ensure that these continue a need to ensure the availability of higher student numbers and improved to be sustainable from an accessibility “Motivated and skilled people, able facilities within Carlisle. The University perspective and therefore in locations and willing to be effective employees also plays a leading role in terms which minimise the need to travel. and entrepreneurs” in order to underpin of fostering business growth and There is also a need to ensure that Carlisle’s growth. interaction within the wider region, they are compatible with surrounding and as a research establishment. uses which reflects that most existing 3.94 Carlisle College is the main provider facilities currently operate successfully of higher education in the District. It 3.96 Policy SP 10 provides a clear in mixed use environments. provides education opportunities for commitment to work with partners students over 14 years of age and to develop a skilled population and 3.98 The University of Cumbria continues vocational and skills training for a workforce within Carlisle. From a to largely operate from separate growing number of young and mature land use planning perspective it premises around the City rather than students and is helping to expand provides a clear framework to guide a single campus. In order to develop the skills base locally. Significant investment decisions, making clear a future strategy for higher education investment, including physical that developments which relate to the University of Cumbria has been expansion, has been and continues the operational needs or expansion reviewing their existing operations to be made to the College facilities. of higher and further education and the use of premises as part of a establishments will, in principle, be new Masterplan for their presence in 3.95 The University of Cumbria has now supported. This support extends to Carlisle. The Council are continuing become well established in Carlisle cover ancillary and related uses which to work with the University to discuss having brought together many of the are recognised as essential to the wider how their future aspirations can be previous further education offers in the attractiveness and ultimately success supported, where appropriate, through District. Alongside Carlisle College, the of these establishments. University is at the forefront of looking
61 the planning process and will continue to advocate in these and similar circumstances that such intentions are guided by a comprehensive and clear strategy.
62 4 Economy
Objective Context
• Foster the right conditions to stimulate The City Council is committed to address these shortcomings through inward investment through increasing the delivering sustainable economic improving the attractiveness of working age population, strengthening growth for its residents, businesses existing sites, and complementing and expanding the skills base available, and visitors. The Local Plan will this offer through the provision of diversifying the economy and improving be one of the mechanisms to help new sites, particularly within the enabling physical infrastructure. deliver economic growth by setting strategically important M6 Corridor out a clear and positive framework which is a recognised Cumbria • To create opportunities for economic growth which supports and enables the Local Enterprise Partnership priority. by making land available to meet the current expansion of existing businesses and and future quantitative and qualitative needs The Local Plan looks to support creates the right environment and of the business community and to maintain and enable the growth of all sectors conditions to attract new businesses Carlisle’s role as an economic driver for a of the District’s economy. The vital and investment. wider geographical area. and complementary roles played Evidence shows that one of the key by retail, leisure, tourism and • To focus new retail and leisure floorspace economic issues to date has been agriculture, as well as by industry, within the City Centre, and take opportunities the lack of quality and choice of are recognised within the Plan with to strengthen and diversify its offer, in order employment locations for companies policies designed to allow each to enhance its role as a sub-regional service to invest. The Local Plan seeks to sector to prosper. centre and leisure and cultural destination.
63 Policy EC 1 - Employment Land Allocations Justification
In order to support economic growth and increase the level 4.1 The Carlisle Employment Sites Study (2010) identified of high value jobs within the local economy, 45 Ha of land has that whilst there was sufficient land for employment been allocated, as identified on the Policies Map, at: in Carlisle there were qualitative issues with the sites which were available to fulfil this need. A key element of • Kingmoor Park/Brunthill (37 Ha) for the development the Plan’s economic strategy is to support investment of B1 (Business), B2 (General Industrial) and B8 in existing sites to facilitate their modernisation and (Storage and Distribution); and reconfiguration, as well as ensuring the potential of • Land to the South West of Morton (8 Ha) for the residual capacity within these sites is realised. This development of a business park (B1 use). approach is being complemented by the allocation of an additional 45 Ha of land for employment related Sui Generis uses may also be appropriate within the purposes. above allocations providing it can be demonstrated that employment opportunities are nevertheless being maximised 4.2 Brunthill comprises of 37 Ha of undeveloped land and that there would be no significant adverse impacts on within the wider established Kingmoor Park strategic existing or proposed adjoining uses. employment location. The site has good access to Junction 44 of the M6. Kingmoor Park is one of a number Consideration will be afforded to the need for and nature of strategic locations recognised by the Cumbria Local and quantum of land release at Carlisle South, in order to Enterprise Partnership (LEP) as central with regards to support longer term economic objectives, through acting capitalising on the potential associated with the strategic to masterplan the planned major mixed use development in connectivity of the M6 Corridor. The site benefits from a accordance with Policy SP 3. series of permissions which are either outline in nature or full consents which are yet to be implemented. Accordingly the allocation of the site is considered both appropriate and necessary to safeguard it for employment purposes across a longer horizon.
64 Owing to its location within the heart effectively with the wider development the allocation in its widest sense as a of Kingmoor Park, future proposals and adjoining phases. Whilst the focus for employment related activity. will be required to demonstrate that full extent of the allocation currently The approach taken by the Plan in the development of the site integrates benefits from outline planning these regards responds to the evidence effectively with the remainder of the permission for B1 purposes, the and the need for a flexible approach location. allocation of the site is considered towards developing land to support both appropriate and necessary to economic objectives. 4.3 Land to the South West of Morton safeguard it for employment purposes comprises of 8 Ha which is well placed 4.5 The Carlisle Employment Sites Study across a longer horizon. to meet economic objectives. Being (2010) identifies that in employment ideally located directly adjacent to the 4.4 Whilst the primary focus of the land terms there is a perceived spatial Carlisle Northern Development Route allocated employment sites will be imbalance with the majority of land and (CNDR) the site, once developed, will for B1, B2 and B8 land use purposes, premises to the north of the City away present further job opportunities for the Policy recognises that in some from concentrations of population to residents of the west of the District circumstances Sui Generis uses may the southern areas of the City. Also of and importantly ensure a mixed use also be appropriate. In order to be relevance is that the Carlisle Economic approach prevails with regards to considered favourably such uses will Partnership Economic Review of the development of the wider Morton have to demonstrate that employment Carlisle (January 2013) identifies locality, which includes significant opportunities are nevertheless being enhancing and developing key residential development, a new district maximised, through for example the employment sites at Carlisle motorway centre and ancillary community number and nature of jobs inherent in junctions as a key action, which infrastructure including a new primary the proposal, as well as demonstrating aligns with wider and well established school. Future proposals will therefore that the proposed use can co-exist aspirations to realise the economic be required to demonstrate that the without in any way jeopardising potential of the M6 corridor. Policy development of the site integrates adjacent uses or the effectiveness of SP 3 within the Plan identifies Carlisle
65 South as a broad location for growth allocations within the plan period may for a major mixed use development to be forthcoming. In this latter regard meet development needs towards the care would need to be afforded to end of and beyond the plan period. ensuring that the premature release Carlisle South therefore presents an of any land for employment purposes opportunity to act to deliver additional within the South did not compromise employment land within the south of current priorities to modernise existing the City, within the M6 corridor in close established employment sites, as well proximity to Junction 42, and in doing as the delivery of the Kingmoor Park so to respond to an evidenced need to and Morton allocations. do so.
4.6 Owing to the need to develop Carlisle South in a comprehensive manner which is supported by the timely delivery of the appropriate strategic and local infrastructure, Policy SP 3 commits to developing the location through a masterplan which will be approved as a Development Plan Document (DPD). It is through this process whereby the need for and nature and quantum of employment land release within the South will be considered, subsequent to which additional employment land
66 Policy EC 2 - Primary Employment Areas
Within Primary Employment Areas, as identified on the Policies applications for alternative uses of land or buildings will be Map, proposals for B1, B2 and B8 Uses will be acceptable. treated on their merits having regard to market signals and the Proposals for B1(a), unless clearly ancillary in their nature, will relative need for different land uses to support sustainable local in accordance with national policy be subject to a sequential communities. and impact test. Sui Generis uses may also be appropriate in Where an existing employment site adversely affects Primary Employment Areas providing it can be demonstrated neighbouring residential properties or local amenity, proposals that employment opportunities are nevertheless being for its redevelopment or change of use will be supported where maximised and that there would be no significant adverse they would result in the removal of the adverse effect. impacts on existing or proposed adjoining uses. In the Sandysike/Whitesyke areas proposals for the The introduction of non-employment related uses within Primary redevelopment and extension to existing industrial and Employment Areas may be appropriate where such uses are warehousing premises will be acceptable subject to careful ancillary in nature; of a proportionate scale; and where their consideration on any impacts on the landscape owing to their introduction would aid the overall attractiveness or sustainability open countryside setting. of the employment area.
Trade counters and retailing from employment premises will be restricted in their scale and nature to be ancillary to the main operation of the B1/B2/B8 business. Planning conditions may be imposed to ensure that the use remains ancillary.
Where there is no reasonable prospect of an entire employment site remaining in continued employment use; interventions to improve the attractiveness of the site are not feasible; and its release would not impact on the wider strategy for employment land or the availability of local employment opportunities,
67 Justification
4.7 Primary Employment Areas are located Carlisle District. The Policy also seeks jeopardising adjacent uses or the across the District and are identified to encourage investment by making effectiveness of the designated area on the Policies Map. They are typically clear that new development such as in its widest sense as a focus for existing industrial and business estates extensions or the reconfiguration of employment related activity. already well established and are home existing premises for employment 4.10 Non employment related uses will to a variety of large scale strategic related uses within these areas will only be supported within Primary employers as well as local employment be appropriate. Proposals for B1(a) Employment Areas where proposals and small scale business start up units. (offices), unless clearly ancillary in their are of an appropriate scale and nature The wide variety and nature of these nature, will however as a ‘main Town which can evidently be seen to be areas means that it is difficult to treat Centre’ use be subject to a sequential ancillary in nature, and particularly them all with equal policy direction. and impact test in accordance with the where the introduction of the proposed However, they all have varying degrees provisions of Local Plan Policy EC 6. ancillary use helps to improve of similar issues particularly when 4.9 In response to a need for flexibility, the overall attractiveness and/or there is interest from non-traditional the policy recognises that in some sustainability of an area. Such flexibility employment uses and alternative sites circumstances Sui Generis uses within is recognised as paramount within the are limited. these areas may also be appropriate. District given the need to improve the 4.8 Policy EC 2 provides a framework In order to be considered favourably attractiveness of existing employment which seeks to safeguard the primary such uses will have to demonstrate sites to meet economic growth purpose of these areas for employment that employment opportunities are aspirations in the short to medium generating uses (traditionally B1, B2 nevertheless being maximised, through term. and B8), in order to provide the wide for example the number and nature of variety and certainty of sites required to jobs inherent in the proposal, as well meet the needs of existing businesses as demonstrating that the proposed or those looking to locate within use can co-exist without in any way
68 4.11 The need to effectively control factory redevelopment or change of use which and trade sales from premises within would act to remove such conflicts primary employment areas reflects will be considered favourably. Such the need to safeguard the City Centre issues are more prevalent in the older and other recognised retail centres and traditional industrial areas of from peripheral and out of centre retail Carlisle City such as Denton Holme, developments. Any proposals which where there is a tight knit pattern of exceed what can genuinely in the development often with housing and circumstances be considered to be industry in close proximity. Whilst these ancillary to an existing employment areas have historically contributed related use will therefore be resisted. positively towards the supply of employment land within the District, 4.12 Where there is no reasonable their ability to do so in the future can prospect of a Primary Employment in some circumstances be genuinely Area or site within being retained limited or no longer appropriate. for ongoing or future employment use, and interventions to improve the attractiveness of the site are not feasible, development proposals for alternative uses will be considered on their merits. Similarly where the ongoing operation of an existing employment site adversely affects neighbouring residential properties or local amenity, proposals for its
69 Policy EC 3 - Primary Shopping Areas & Frontages Justification
The District’s Primary Shopping Areas, as defined on the 4.13 The main policy objective within Primary Shopping Areas Policies Map, will be the focus for new retail development is to maintain the vitality and viability of the wider Centres across the plan period, in accordance with the hierarchy set within which they are located, through the retention out in Policy SP 2. of high levels of retailing at ground floor levels. This objective is in keeping with national policy which requires Proposals for the change of use of ground floor shops to non- competitive town centre environments. Changes of use retail uses within Primary Shopping Areas will be supported which would result in concentrations of non-retail uses providing the proposal: and the creation of lengths of “dead” frontage, or which 1. would not lead to an unacceptable concentration of such would result in a loss of retail provision to the detriment uses and/or undermine the vitality and viability of the area; of the overall vitality and viability and attractiveness of the and Centre, will be resisted.
2. includes provision for views into the building or for a 4.14 Notwithstanding the above it is recognised that the window display in keeping with the character of the vitality and viability of defined centres is also increasingly frontage, in order to retain active frontages. dependent on a flexible approach particularly as centres increase their role as destinations for leisure related uses, In order to retain a strong retail core within the City Centre i.e. eating, drinking and socialising. Accordingly Policy Primary Shopping Area, a number of Primary Shopping EC 3 sets out the circumstances in which non-retail uses Frontages have been defined and are identified on the Policies would be acceptable within Primary Shopping Areas. Map. The impacts of proposals for non- retail uses within a designated frontage will be assessed in the context of the 4.15 In order to retain the vitality and viability of the City Centre defined frontage as well as the wider area. Primary Shopping Area, it is important that A1 uses continue to dominate the ground floor. The Local Plan seeks to achieve this through the identification of Primary Shopping Frontages. Proposals for non-retail uses within
70 Primary Shopping Frontages will be subject to an assessment against the criteria specified within Policy EC 3. Importantly such assessments will need to consider any impacts both within the context of the specific frontage designation as well as the wider area.
4.16 Any retail development outside of the Primary Shopping Area should be subject to relevant sequential and impact assessments as consistent with Policy EC 6.
71 Policy EC 4 - Morton District Centre Justification
Land is allocated at Morton for a District 4.17 The provision of a District Centre and south of the City, and the need for Centre to accommodate a foodstore at Morton is important in ensuring an anchor alongside which a range of anchor. Proposals for additional retail, that a mixed use and sustainable complementary retail and leisure uses leisure, local services and community development approach prevails with and community services and facilities facilities will be supported within the regards to the development of the can be delivered to meet the needs District Centre site providing they are wider Morton locality, which includes of existing and future residents. Any of a scale and nature commensurate a new business park, significant complementary uses should be of a with its intended catchment and would residential development and ancillary scale and nature which is commensurate aid its vitality and viability. Proposals community infrastructure including with the catchment of the District Centre for comparison (Class A1) retail which a new primary school. Future and which do not therefore threaten exceed 500sqm (gross) will need to proposals will therefore be required the vitality and viability of the City be accompanied by a retail impact to demonstrate that the development Centre and its Primary Shopping Area. assessment to demonstrate that there of the site integrates effectively with Proposals for Class A1 comparison retail would be no significant impact on the the wider Morton development and will be required to undertake an impact City Centre Primary Shopping Area. adjoining phases. assessment which reflects the need to exercise caution particularly in respect 4.18 The Carlisle Retail Study (August of fashion retailing and the potential 2012) recommends that the District negative effect that proposals of this Centre allocation for Morton should be nature may have upon the City Centre retained in order to provide sufficient Primary Shopping Area. policy protection to ensure that the foodstore anchor is delivered. The 4.19 Any development which would need for a foodstore reflects the need compromise the deliverability of the to address a spatial deficiency in Morton District allocation will, within the convenience retail provision in the west context of Policy EC 6, be resisted.
72 Policy EC 5 - District and Local Centres Justification
Within District and Local Centres, 4.20 The centres of Brampton, Dalston 4.21 The following Local Centres have been as identified on the Policies Map, and Longtown are defined as identified within the District, and are proposals for retail development and District Centres which reflects that shown on the Policies Map: other main town centre uses will be they comprise of groups of shops Urban Areas acceptable providing that: containing at least one supermarket or • Blackwell Road, Currock; superstore, alongside a range of non- 1. it is of a scale and nature appropriate • Botchergate South; retail services, such as banks, building to the area served by the centre; • Central Avenue/Pennine Way, Harraby; societies and restaurants and other • Denton Street; 2. it does not adversely affect the local public facilities such as a library or • Holmrook Road, Whernside; amenity of any adjacent residential secondary school. Beyond these there • Kingstown Road; areas; are also a number of Local Centres • Newlaithes Avenue, Morton; throughout the District which comprise 3. appropriate access, parking and • Petteril Bank Road, Upperby Bridge; of clusters of small shops, and often security arrangements can be • Scotland Road, Stanwix; other services and facilities, of a local achieved; and • Stonegarth, Morton; and nature which serve a small catchment. • Wigton Road, Caldewgate. 4. the design of any new development Such centres serve the immediate is attractive and in keeping with the day to day shopping needs of local Rural Areas character of the locality. residents. • Hallbankgate; and • Warwick Bridge. Non-retail proposals within Local Centres will be supported only where they act to enhance the vitality and viability and overall attractiveness of the centre.
73 4.22 District and Local Centres often also 4.24 Through recognition that District and fulfil a social function bringing members Local Centres are often within or of local communities together. As such close to established residential areas, it is necessary to protect the vitality and careful consideration will need to be viability of these centres as important afforded to ensuring that proposals attributes of sustainable communities. do not prejudice residential amenity. District and Local Centres also play 4.23 The Policy seeks to enable further retail an important role in place shaping and development or proposals for main their appearance has an important town centre uses within defined centres impact on the perception of the local providing the scale and nature of area itself. Careful consideration should proposals is appropriate and therefore therefore be afforded to the design of proportionate to the catchment of the any new development to ensure that area served by the centre. Non retail it is attractive and in keeping with the uses within District or Local Centres will character of the locality. be considered favourably where they act to enhance the vitality and viability and therefore overall attractiveness of the centre, through for example bringing back into beneficial use vacant premises or through appropriately diversifying the mix of uses. Proposals which would result in an unacceptable reduction in shopping facilities and which therefore act to undermine the primary purpose of a District or Local Centre will be resisted.
74 Policy EC 6 - Retail and Main Town Centre Uses Justification Outside Defined Centres 4.25 Policy EC 6 seeks to ensure that the vitality and viability of Development proposals for new retail and main town centre defined retail centres is not undermined by proposals for retail uses should in the first instance be directed towards defined and other main town centre uses outside of these centres centres, and for comparison retailing proposals the defined or where comparison (non-food) retail is concerned out with Primary Shopping Areas (where designated) within these designated Primary Shopping Areas within these centres. centres, in accordance with the hierarchy set out in Policy Main town centre uses are defined within the glossary and SP 2. mirror those currently employed by national policy for retail In line with national policy proposals outside of defined planning purposes. centres will be required to undertake a sequential test. In 4.26 The Carlisle Retail Study (2012) found that there was limited addition, locally set impact thresholds for retail floorspace spare capacity in the initial years of the plan period and have been set for the urban area and will be required for therefore that any development should aim to reinforce the City proposals which exceed 1000sqm (gross) for convenience Centre as the prime retail location. To achieve this, proposals retail and 500sqm (gross) for comparison retail. A separate for new retail and main town centre uses will, in line with impact threshold of 300sqm (gross) for convenience and national policy, have to undertake a sequential test. A locally comparison retail proposals has been set for Brampton, set threshold has also been established for undertaking retail Dalston and Longtown. impact assessments which addresses the requirements of This approach also applies to proposals for the extension of National Planning Policy Guidance (NPPG) and updates the floorspace (including the use of a mezzanine floor) at existing threshold set in the 2012 study. stores or retail warehouses where these are outside defined 4.27 The Retail Impact Threshold update (September 2015) centres. recommends that in respect of the urban area of Carlisle Any proposals for a foodstore will be required, as part of separate retail thresholds for convenience and comparison the impact test, to demonstrate that that they would not retailing should be applied to enable sufficient opportunity to undermine the planned delivery of the Morton District Centre robustly assess the impact of any future edge/out of centre foodstore anchor, or impact on its trading viability. proposal on existing urban centres.
75 4.28 In respect of the District Centres of This position will however be monitored Brampton, Dalston and Longtown when committed foodstore schemes a threshold has been set in order to are trading, and regular main food reflect the nature of these centres shopping patterns established. which are occupied by small scale operators orientated towards top up provision.
4.29 The sequential and impact tests should be carried out in accordance with national policy (and in respect of impact test in line with the thresholds set out) with the approach being proportionate to the scale and nature of the proposal being progressed.
4.30 The evidence supports that there is no requirement for new convenience provision in the City, beyond existing commitments including the Morton allocation, over the Local Plan period through to 2030. Accordingly, any proposals elsewhere in the City which would undermine the delivery of the Morton allocation, or impact upon its trading viability, will be resisted.
76 Policy EC 7 - Shop Fronts
Well designed and appropriate shop fronts, whether original 5. the proposal contributes to the realisation of specific or reproduction, should be retained wherever practicable and relevant objectives in any up to date Conservation Area if necessary restored when the opportunity arises. Shop fronts Management Plan. should contribute to the creation of a strong sense of place The use of roller shutters that would obscure displays and within the local context and relate in scale, proportion, materials architectural features on shop fronts will not be permitted in and decorative treatment to the relevant façade of the building any location. Applicants wishing to install security measures and, where appropriate, to adjacent buildings and/or shop on shop fronts are encouraged to consider alternative fronts. measures and must seek to ensure that, if shutters are to Within conservation areas new and alterations to shop fronts be used, they are well designed and integrated with the will only be acceptable where their design contributes to frontage, maintaining an active shop front even when the the preservation and enhancement of the area’s character, unit is closed. appearance and setting, and provided the following criteria are met:
1. any original or period features are retained or where possible restored;
2. the proposal relates well in scale, height, proportions, materials and detailing to other parts of the building, adjoining shop fronts and the street scene generally;
3. the proposal does not involve a single shop front spanning two or more frontages;
4. the proposal does not involve the use of inappropriate modern shop front features; and
77 Justification
4.31 Policy EC 7 applies to new or building and, where it is considered 4.35 Highly visible crime prevention alterations to existing shopping appropriate and pertinent, the measures such as security shutters frontages across the District including traditional features of well designed can work against the creation of a within defined centres and Primary and high quality shop fronts should be vital, vibrant and attractive shopping Shopping Areas. retained whenever alterations are being environment, have a detrimental effect carried out. on townscape and impact negatively 4.32 Shop fronts owing to their nature and on the overall perception of an area. prominence have an important role 4.34 The Council has produced When closed, solid security shutters to play in place shaping, and as such Supplementary Planning Guidance present a blank frontage and have should be designed to a high quality (SPG) on the design of shop fronts a deadening effect on the character to help establish a strong sense of which supports the implementation of of the street. Areas no longer benefit place. Accordingly, design solutions this Policy. The guidance offers useful from passive surveillance by shoppers should respond to local character and information on how people wishing and passers-by, thereby making history, and reflect the identity of local to install new shop fronts or alter shops more vulnerable to attack. In surroundings and materials, although existing ones can do so in keeping order to minimise their impact on the this will not necessarily preclude with the traditional styles of frontages building and the general character of appropriate innovation. across the City and wider District. the area, the Council encourages the Applicants will be encouraged to have 4.33 There are a number of well designed use of security measures other than regard to the document, and any and traditional shop fronts in the solid external shutters. Security is future successor documents, when District, particularly in the City Centre, best considered at the early stages progressing development proposals of Botchergate, Brampton, Dalston and of designing a new shop front so that this type. Longtown. Special care is needed measures can be integrated into the when dealing with proposals which overall scheme, rather than added on might detract from the character of a as an afterthought.
78 Policy EC 8 - Food and Drink Justification
Proposals which help to sustain and enhance a vibrant and 4.36 This Policy seeks to facilitate the creation of a vibrant and viable food and drink offer will be supported. Development viable food and drink offer across the District. The need to proposals for uses within Use Class A3 (restaurants and do so reflects national policy and the need to support the cafes), A4 (drinking establishments) and A5 (hot food vitality and viability of City, District and Local Centres through takeaways) will be approved provided that: diversifying their offer and encouraging competition and a greater provision of customer choice. The Policy responds 1. they are in defined centres or, if not, accord with the to this requirement through enabling the appropriate growth sequential and impact tests; of food and drink related leisure services which in many 2. the amenity of adjacent uses would not be adversely instances will complement a centre’s retail offer, the District’s affected; visitor offer and support the evening economy through improving evening activity. 3. the proposal would not cause unacceptable levels of traffic generation or highway obstruction, particularly 4.37 The primary evidence base for this Policy is the Carlisle Retail where customers are collecting food from takeaways, or Study (2012). This highlights that whilst there is an existing jeapordise highway or pedestrian safety; and restaurant sector that is informally emerging within the City Centre, there exists capacity to expand this restaurant 4. the proposal would not lead to an unacceptable offer, with an eye to attracting larger, nationally recognised concentration of a particular use or business type within restaurant chains. It also recommends that the Council should any given locality. aim to maintain and effectively manage the existing provision Opening hours will be imposed having regard to the of pubs and other late night establishments within the City surrounding uses, the character of the area, possibility of through the planning process. nuisance to residential areas and public safety. 4.38 Outside of the City Centre the food and drink offer is largely made up of cafes and pubs during the day, whilst the evening economy largely revolves solely around small town public houses.
79 4.39 Whilst the principal of such uses is 4.41 In some areas of the District, public supported, it must be recognised that houses represent important community their nature is such that they can, facilities which fulfil a broader purpose in certain circumstances, adversely and social role. Proposals which would impact upon the character and result in the loss of a public house residential amenity of areas. Careful should therefore have regard to Policy consideration will therefore need to CM 3 which seeks to prevent the be afforded to ensure that proposals unacceptable loss of valued community would not, by way of noise or odour, facilities. constitute a nuisance. Proposals also need to ensure that they would not in any way jeopardise highway safety.
4.40 The scope for such uses to constitute a nuisance can be amplified where there is a concentration of them. Concentrations can also adversely impact on the vitality and viability of retail centres through eroding their wider value and through resulting in dead frontages particularly during the day. Accordingly, proposals which would result in an unacceptable concentration of such uses will be resisted.
80 Policy EC 9 - Arts, Culture, Tourism and Leisure Development Justification
Proposals will be supported where they contribute towards the development 4.42 The tourism, arts, cultural and leisure and/or protection of the arts, cultural, tourism and leisure offer of the District sectors are vitally important to Carlisle and support the economy of the area. as generators of economic prosperity, employment and enjoyment. It is Proposals for main town centre uses which are ancillary to established tourist, essential that the potential of these leisure or cultural attractions will be exempt from the need to undertake a sectors is promoted and supported sequential and impact test. New proposals where no attraction currently exists, to ensure the continued growth of or those which go beyond what can be regarded as ancillary, will have to have the economy and cultural horizons regard to Policy EC 6. of the District. This could include the All proposals for arts, cultural, tourism and leisure development must also development of new community centres accord with the following criteria: and sports halls, as well as projects such as an arts centre within the City 1. the scale and design of the development is compatible with the character of for residents and visitors alike. Carlisle’s the surrounding area; heritage and environment is central to 2. adequate access by a choice of means of transport, including sustainable its attractiveness as a tourist location modes of travel such as cycling or long distance walking, and appropriate with key attractions including Hadrian’s car parking is provided; and Wall Path National Trail crossing the District, the English Costal Path and 3. where relevant, the value and significance of the attraction is not the historic City Centre comprising of compromised. Carlisle Castle, Tullie House Museum, Hadrian’s Wall World Heritage Site (WHS) is a major attraction for tourism Carlisle Cathedral Precinct, the City and proposals for new tourism development which are sustainable and aim Walls, the Courts, the Market Cross, to promote the enjoyment and understanding of the WHS whilst meeting the the Old Town Hall and Guildhall. The above criteria will be permitted. importance of access to the natural environment and the benefits and
81 opportunities that the green and blue subject to a sequential test and impact integrated as much as possible with, or infrastructure of the District entails assessment as per standard planning is easily accessible from existing green for arts, culture, tourism and leisure policy. infrastructure routes, including long development is also recognised. distance walking routes such as the 4.44 Sustainable rural tourism and Hadrian’s Wall or English Costal paths. 4.43 Arts, culture, tourism and leisure leisure developments that aid rural development (including theatres, diversification will be supported, 4.46 Proposals that would result in the museums, galleries and concert halls, particularly where they involve the loss of an art, cultural, tourist or hotels and conference facilities) are provision and expansion of tourist and leisure facility would be required to main town centre uses and, as such, visitor facilities in appropriate locations demonstrate that the current use is no the Council will encourage this type where identified needs cannot be met longer viable; that there is currently of development within a recognised by existing facilities in nearby local no requirement for an alternative centre (i.e. the City Centre, District centres. Such development must be community use; and that there is Centres or Local Centres). A sequential of a suitable scale, and design and be adequate alternative provision in the test and impact assessment would, sited with great care and sensitivity to locality. in accordance with Policy EC 6, its rural location. normally be required for this kind of 4.45 New development should normally development outside of a recognised be accessible by public transport, centre; however where development walking and cycling. However, for some is clearly ancillary to an established developments in the rural area this may leisure or cultural attraction, not be possible, especially if associated this requirement will be waived. with a diversification scheme in an Development outside of a recognised area with poor public transport links. In centre that is either too large to be these cases new development should described as ancillary or unrelated be able to demonstrate that it has to an existing attraction will still be
82 Policy EC 10 - Caravan, Camping and Chalet Sites Justification
Proposals for the development of and extension to 4.47 This Policy reiterates support for the sustainable rural tourism caravan, camping and chalet sites will be supported and leisure developments that benefit businesses in rural areas, where: communities and visitors and which respect the character of the countryside in line with the National Planning Policy Framework 1. clear and reasoned justification has been provided (NPPF). This includes supporting the provision and expansion of visitor as to why the development needs to be in the accommodation in appropriate locations where identified needs are not location specified; met by existing provision in established settlements. 2. the siting, scale or appearance of the proposal does 4.48 Proposals for both static and touring caravan sites as well as those not have an unacceptable adverse effect on the for chalets and camping will be judged against the criterion specified character of the local landscape, or upon heritage in the Policy, which are considered self explanatory in their purpose. assets or their settings; In certain circumstances restrictions will be applied through the 3. the site is contained within existing landscape imposition of planning conditions to avoid the continual residential features and if necessary, and appropriate, is use of a site. This reflects that there is a need to preserve the supply supplemented with additional landscaping; of visitor accommodation in order to respond to demand, and equally that such sites may not be in a location considered sustainable for 4. adequate access and appropriate parking occupation as primary residences. Similarly, conditions may also be arrangements are provided; and imposed to restrict seasonal occupancy of sites where considered 5. the potential implications of flood risk have been necessary to safeguard landscape character through, for example, the taken into account where necessary. winter months.
In addition, the Council will consider the need to 4.49 In addition to the need to obtain planning permission, caravan, impose planning conditions to avoid continual camping and chalet site operators must obtain a site licence. The site residential use of such sites or seasonal restrictions licence covers such matters as the number and standard of spacing where necessary to safeguard the landscape. of the caravans and hygiene. The City Council’s Environmental Health Section issues site licences.
83 Policy EC 11 - Rural Diversification Justification
Development proposals to diversify and expand upon the 4.50 Whilst the preferred location for new development will be range of sustainable economic activities undertaken in in existing settlements, changes in agriculture over recent rural areas will be supported and encouraged both through decades have resulted in a decline in farm-related jobs. As a the conversion of existing buildings and well designed result there is now a need to strengthen the economy in rural new buildings. Any new building must be well related to an areas by supporting the sustainable growth and expansion existing group of buildings to minimise its impact and blend of all types of business and enterprise in rural areas. There satisfactorily into the landscape through the use of suitable are often opportunities for reusing or adapting surplus materials, design and siting. existing rural land and buildings for commercial, industrial, recreational or environmental uses such as guesthouses, farm Proposals must: shops, rural workshops or other business premises, helping 1. be compatible with their existing rural setting; the countryside to diversify, flourish and sustain itself. The City Council recognises the important and changing role of 2. be in keeping, in terms of scale and character, with the agriculture and the need for new employment in the rural area. surrounding landscape and buildings; New employment opportunities may also be created within the 3. include adequate access and car parking arrangements; rural area as the provision and availability of rural broadband and spreads/expands.
4. not lead to an increase in traffic levels beyond the capacity 4.51 The use of surplus rural buildings for the provision of tourist of the surrounding local highway network. holiday accommodation can help to retain buildings in the countryside whilst helping to boost the rural economy. Conversion of rural buildings to holiday accommodation can, when skilfully undertaken, involve minimal alteration and therefore have little impact on the character of the countryside. Nevertheless schemes must be sensitive to their environments and measures must be taken to mitigate any potential environmental impacts. The NPPF supports sustainable rural
84 tourism and leisure developments where they respect the character of the countryside. This type of development is important in areas where identified needs are not met by existing facilities in rural service centres.
4.52 Traditional, redundant and underused buildings may provide habitats for wildlife such as bats or barn owls. For those species protected by the Wildlife and Countryside Act 1981, the City Council will seek to ensure a survey is carried out and suitable precautions taken for the protection of the species and their habitat before permission will be granted. Other environmental diversification schemes may help to improve the ecological value of the rural area whilst helping to provide local employment.
85 Policy EC 12 - Agricultural Buildings Justification
Proposals for new agricultural buildings 4.53 The development of agricultural new planting should therefore reflect and structures, or extensions to buildings and other structures of the vegetation type already existing in existing ones, which fall outside of a certain scale not requiring full the locality. Permitted Development rights will be planning permission instead require 4.55 New buildings should normally form permitted provided that: an ‘Agricultural Determination’ from part of a group rather than stand on the City Council. The purpose of this 1. the building or structure is sited their own and should relate to existing arrangement is to enable the Council where practical to integrate with buildings in scale and colour. However, to comment on the siting and design existing agricultural buildings and/ there may be occasions when a large of particular proposals, whilst not or take advantage of the contours building of modern design is required obliging the applicant to submit formal of the land and any existing natural on a farm largely comprising traditional applications for planning permission. screening; buildings. To avoid visual conflict, 4.54 The siting of a new agricultural building such buildings should be designed 2. the scale and form of the proposed can have a considerable impact on the to minimise their impact by such building or structure relates to an surrounding landscape. New buildings measures as breaks in roof slope or existing group of buildings, unless should therefore, where possible, differing roof heights and by linking the otherwise justified; integrate with both the surrounding building into the landscape by planting 3. the design and materials used reflect landscape and farmstead as a whole. groups of trees to soften its outline. the overall character of the area; and It may be possible to do this by using In exceptional circumstances such natural contours in the land or existing buildings may be better sited away 4. the proposal would not have natural screening such as woodland, from the group. an unacceptable impact on any trees or mature hedgerows. The aim is adjacent land uses. 4.56 In sensitive areas such as within not to hide a new building from sight, the setting of a listed building, but to soften its outline and integrate in a conservation area or Area of it with the surrounding landscape. Any Outstanding Natural Beauty (AONB),
86 it will normally be necessary to use traditional or sympathetic materials and the colours chosen should be compatible with the setting or surrounding countryside. Many traditional buildings are also important for protected species including bats and barn owls. Where such species are thought to be present in or adjacent to the existing buildings, a survey should be undertaken to confirm their presence. The adopted North Pennines AONB Supplementary Planning Documents on Building Design Guide (2011) and Planning Guidelines (2011) provide further information on the development of agricultural buildings within the AONB.
4.57 Finally, agricultural activities can impact on the amenity of adjoining land uses and care must therefore be exercised to avoid proposals giving rise to any unnecessary levels of nuisance including by way of noise or odour.
87 Policy EC 13 - Equestrian Development Justification
Proposals relating to the development of 4.58 Horse riding and keeping are popular As with all developments care must stables, horse riding arenas and/or riding leisure activities attracting a wide range be taken to ensure the design of centres will be permitted provided that: of people, as well as being an intrinsic the development is appropriate, part of rural life. Carlisle District has proportionate to genuine needs and 1. there will be no unacceptable impact seen an increase in the number of that any proposal would not adversely upon the landscape and character of proposals for equestrian development; affect adjoining land uses including the area; this trend is likely to continue due through nuisance in the form of noise, 2. the building or structure is sited where to changes in the rural economy odours or light pollution. Associated practical to integrate with existing providing scope for diversification in buildings should be situated in one buildings and/or take advantage of the rural businesses. The NPPF supports block or a tight grouping to reduce contours of the land and any existing sustainable rural tourism and leisure visual impact on the landscape and natural screening; developments where they respect means of enclosure should reflect the character of the countryside. local characteristics. Proposals likely 3. the proposal will not have a Supporting information and good to damage sensitive areas, such as detrimental effect upon surrounding practice guidance for this type of important habitats or landscapes, will land uses; development is available from the not be acceptable. 4. the surrounding roads and bridleways British Equestrian Federation which is 4.60 Conditions may be imposed upon are adequate and safe for the the national governing body for horse applicants to ensure that jumps and increased use by horse riders, with the sports in the UK. other equipment are removed and roads being suitable for all users; and 4.59 Horse keeping can be an appropriate stored out of site to help reduce 5. the scale and intensity of use is use in the countryside provided that the visual impact, of the operation, proportionate to the equestrian needs care is taken over the siting and on the landscape. High standards and appropriate for the site and location of facilities and that access of maintenance and management character of the area. to roads and bridleways is adequate. are required to ensure that the
88 activities do not adversely affect the countryside and that the horses are well accommodated and cared for. Additionally, in some cases conditions may be placed on this type of development to restrict their use to that of the applicant.
4.61 There is a highways safety issue associated with increasing levels of horse riders on the roads, therefore schemes which would give rise to excessive numbers of horses on the surrounding roads will not be favourably considered unless it can be demonstrated that the safety of all users would not be prejudiced.
89 90 5 Housing
Objective Context
• To enable the development of a range of high quality, The housing chapter sets out a group of policies which aim energy efficient housing, in a variety of appropriate to enable development and growth to meet the housing locations, to meet the aspirations of the existing needs of the District for open market, affordable and special residents, including those with a need for affordable needs housing, including provision for Gypsies, Travellers housing and those wishing to move to the area. and Travelling Showpeople. To deliver the objective, the Plan focuses new housing development on the City of Carlisle, • To boost significantly the supply of housing by making whilst also making provision for a commensurate proportion land available, to support economic growth, whilst of housing to come forward in the rural areas. This chapter ensuring new housing supports the creation of thriving sets out specific allocations for housing across the District, communities. and sets out a criteria based approach to enable housing to be delivered in a range of other circumstances such as for rural workers, or through the conversion of redundant rural buildings. Policies also recognise the range of housing circumstances at the domestic scale, and make provision for extensions to, or subdivision of, existing homes, and group housing such as HMOs, student housing, extra-care schemes and to protect the amenity of residential areas.
91 Policy HO 1 - Housing Strategy and Delivery
Planning permission will be granted for housing proposals that will:
1. deliver the allocations set out in this Policy and contribute to achieving the Plan’s housing target. Any unallocated sites which come forward for development and which would prejudice the delivery of this strategy will be resisted; and
2. in bringing forward allocations, developers will need to demonstrate that their proposals contribute to the overall mix of dwelling types, sizes and tenures which help meet identified local housing need and the development of mixed and sustainable communities.
The following table sets out allocated housing sites in the urban and rural areas. These sites are identified on the Local Plan Policies Map. Proposals should be brought forward having regard to and addressing any issues set out in Appendix 1.
Housing delivery will be monitored closely and if the number of houses built is not as expected, interventions will be sought, including bringing forward additional allocations.
92 Housing Allocations for Carlisle District
Allocated sites Urban Carlisle: Total Capacity (dwellings) 2,779 Area (Ha): Indicative Yield: Indicative Plan Period:
U 1 - Land to the south east of junction 44 8.03 217 0 - 5 U 2 - Land north of California Road, east of U 1 6.54 200 6 - 10 U 3 - Site of Pennine Way Primary School 3.57 112 6 - 10 U 4 - Land north of Moorside Drive/Valley Drive 4.96 140 0 - 5 U 5 - Land between Carleton Road and Cumwhinton Road 7.25 204 0 - 5 U 6 - Land at Garden Village, west of Wigton Road 6.08 169 6 - 10 U 7 - Land at Newhouse Farm, south-east of Orton Road 30.19 509 6 - 10 U 8 - Land north of Burgh Road 2.83 66 0 - 5 U 9 - Site of former Morton Park Primary School, Burnrigg 1.67 54 6 - 10 U 10 - Land off Windsor Way 10.60 300 0 - 5 U 11 - Land east of Lansdowne Close/Lansdowne Court 2.50 75 6 - 10 U 12 - Site to the rear of Border Terrier, Ashness Drive/Ellesmere Way 0.40 18 0 - 5 U 13 - Land east of Beverley Rise 1.20 30 6 - 10 U 14 - Land north of Carleton Clinic, east of Cumwhinton Drive 9.3 189 0 - 5 U 15 - Former Dairy site, Holywell Crescent, Botcherby 1.51 66 0 - 5 U 16 - Land at Deer Park, Belah 3.83 100 6 - 10 U 17 - Land to the south west of Cummersdale Grange Farm 2.43 60 6 - 10 U 18 - Land Opposite Rosehill Industrial Estate* 10.50 150 0 - 5 U 20 – Durranhill Road 3.32 70 6 - 10 U 21 – Laing’s site, Dalston Road 1.20 50 6 - 10
93 Allocated sites Rural Area: Total Capacity (dwellings) 1,409 Area (Ha): Indicative Yield: Indicative Plan Period Brampton R 1 - Land south of Carlisle Road 9.7 250 0 - 5 R 2 - Land west of Kingwater Close 2.31 60 6 - 10 R 3 - Land north of Greenfield Lane 5.66 140 6 - 10 Longtown R 4 - Site of former Lochinvar School 3.56 106 6 - 10 R 5 - Land south of Old Road 2.9 60 0 - 5 Burgh by Sands R 6 - Land west of Amberfield 1.0 25 6 - 10 Cummersdale R 7 - Land east of Cummersdale Road 0.38 14 0 - 5 Cumwhinton R 8 - Land adjacent to Beech Cottage 0.6 15 0 - 5 R 9 - Land west of How Croft 0.76 20 6 - 10 Houghton R 10 - Land at Hadrian’s Camp 5.1 96 0 - 5 Harker R 11 - Kingmoor Park Harker Estate 10.7 300 6 - 10 Moorhouse R 12 - Land east of Monkhill Road* 0.8 10 6 - 10
94 Allocated sites Rural Area: Total Capacity (dwellings) 1,409 Area (Ha): Indicative Yield: Indicative Plan Period Rickerby R 14 - Land at Tower Farm 0.8 10 0 - 5
Scotby R 15 - Land north of Hill Head, east of Scotby Road 3.7 90 0 - 5 R 16 - Land at Broomfallen Road 1.5 28 0 - 5 Warwick Bridge R 17 - Warwick Bridge/Little Corby North 1.55 45 0 - 5 R 18 - Land to the south of Corby Hill/Heads Nook Road 1.00 30 6 - 10 Wetheral R 19 - Wetheral South 2.2 60 6 - 10 R 20 - Land west of Steele’s Bank 1.6 40 0 - 5 Wreay R 21 - Land west of Wreay School 0.7 10 0 - 5
*There is no site U 19 or R 13.
95 Justification
5.1 The sites allocated in this policy are 5.3 This Policy has taken into account the 5.4 Policy SP 2 identifies the annual detailed in Appendix 1, which sets following factors: average housing target across out site profiles to aid identification, the District. In responding to this • the Council has maximised its together with some of the main issues requirement the focus must be on opportunities for developing brownfield associated with the sites. delivering attractive and sustainable land, and the number of brownfield communities and neighbourhoods 5.2 The delivery of housing across the sites remaining is diminishing; where people want to live. To achieve District is linked to three important • a peripheral scattered approach to new this, account must be taken of the issues of both national and local housing around the edge of Carlisle implications for infrastructure and significance: how to accommodate may not be the most sustainable option services across the whole District. an ageing population whilst retaining as some sites may be a considerable mixed communities; how to promote 5.5 A number of significant sites are distance from the centre; sustainable growth; and how to provide expected to contribute to the delivery the physical and social infrastructure • providing housing development within of the housing strategy across the that is required to support housing or on the edge of the city enables good Plan period. Where an existing growth. One of the key issues facing access to existing services and public planning permission is in place and the District is the provision of a range transport; and has been implemented, it has not been of new housing to help meet the needs considered necessary to identify the • whilst a small number of housing sites of the whole community. Planning for site as a housing allocation. Significant within the Strategic Housing Land a range of housing types (including for sites of this nature are shown for Availability Assessment (SHLAA) are the elderly) will enable more balanced information on the Policies Map to located within the City, the majority are communities with a mix of people aid the identification of future housing on the periphery, with one or two very creating opportunities for better growth. To assess the housing capacity large sites. neighbourhoods. of the District, and in accordance with Government requirements, the City Council has prepared a SHLAA.
96 5.6 With reference to the proposed objective level of need sits somewhere housing allocations, the assessment of in the range of 480 to 565 homes per deliverability has been informed by the annum. The lower figure is based on a SHLAA. To be considered deliverable, reasonable demographic basis for need sites should be available and offer with the upper figure being based on a a suitable location for development need to meet the Experian economic now, and be achievable with a realistic forecast. prospect that housing can be delivered 5.8 Therefore given the need to plan for on the site within five years. In employment growth, and to provide particular, development of the site must housing to meet a broad range of be viable. needs, the Local Plan has set an 5.7 The September 2014 Strategic Housing appropriate housing target. Delivery Market Assessment (SHMA) update of housing to meet this target will identifies that the latest population be monitored through the Authority forecasts generally show (after Monitoring Report (AMR), and if the factoring in local assumptions about numbers of houses being built is not as new housing development, growth expected, the Council will seek to work of the local economy and trends in directly with stakeholders to identify births, deaths and migration rates) any barriers to development, and that the population will continue to consider further interventions including grow to the end of the Plan period and bringing forward further allocations. beyond, although at a much lower level of growth than was seen in previous sub national population projections. The overall conclusions are that an
97 Policy HO 2 - Windfall Housing Development
New housing development on sites other than those allocated 5. the proposal is compatible with adjacent land users. will be acceptable within or on the edge of Carlisle, Brampton, Within rural settlements applicants will be expected to Longtown, and villages within the rural area provided that demonstrate how the proposed development will enhance or the development will not prejudice the delivery of the spatial maintain the vitality of rural communities. strategy of the Local Plan and: Applicants will be expected to work closely with those directly 1. the scale and design of the proposed development is affected by their proposals to evolve designs that take account appropriate to the scale, form, function and character of the of the views of the community. existing settlement;
2. the scale and nature of the development will enhance or maintain the vitality of the rural community within the settlement where the housing is proposed;
3. on the edge of settlements the site is well contained within existing landscape features, is physically connected, and integrates with, the settlement, and does not lead to an unacceptable intrusion into open countryside;
4. in the rural area there are either services in the village where the housing is being proposed, or there is good access to one or more other villages with services, or to the larger settlements of Carlisle, Brampton and Longtown; and
98 Justification
5.9 Windfall housing is recognised as 5.11 The majority of Carlisle District is rural. 5.13 It is recognised that within many parts contributing in a positive way to The Local Plan only makes housing of the rural area it will be difficult the supply of housing over the plan allocations on sites that can support to achieve all of the above. The period. Within the built up areas of 10 or more houses. In smaller villages, National Planning Policy Framework Carlisle, Brampton and Longtown, no allocations have been made as 10 (NPPF) states that in rural areas local particularly but not exclusively within additional houses on one site may be planning authorities (LPAs) should be the Primary Residential Areas, there inappropriate in terms of scale. This responsive to local circumstances and are likely to be opportunities for new policy aims to provide a flexible basis plan housing development to reflect residential development, either through with which to make provision for rural local needs. It goes on to say that to the development of vacant sites, the housing in smaller villages, which will promote sustainable development in conversion of vacant buildings, or as inherently be smaller in scale, reflective rural areas, housing should be located part of a larger mixed use scheme. of the fact that sustainability may be an where it will enhance or maintain the Residential development in these areas issue. vitality of rural communities. will be acceptable, subject to the stated 5.12 Most new residential development 5.14 The local circumstances for Carlisle criteria in the above policy. in the rural area will be focussed in District are very specific in that there 5.10 The scale of the rural area and the sustainable locations. This means is a large rural area with many villages number of villages within it gives a villages which have, or have good scattered throughout. The villages vary wide choice about where to locate access to, for example, a primary in size and the level of services that new housing. If housing is located in school, post office, shop and frequent they support. There are some very sustainable locations it can bring many public transport within 400m walking small villages which support a primary benefits including wider choice for distance. Other facilities such as a school, for example Raughton Head households. village hall, church, pub, and other local and Wreay, and some much larger businesses can all add to the overall villages with few or no services, such sustainability of a location. as Brisco and Low Row. There are also
99 a number of primary schools, churches, 5.16 Development is more likely to be village halls and pubs which lie entirely acceptable on sites that are physically outside any recognised village, for contained by existing landscape example Stoneraise Primary School, features such as hedges, trees, and Blackford Primary School, but woodland or topography, physically which serve a surrounding cluster of and visibly connected to the village, villages. and do not adversely impact on wider views into or out of a village. 5.15 Accessibility to services will therefore be one consideration in assessing 5.17 Applicants will be expected to work applications for housing under this closely with those directly affected policy. Housing will also be acceptable by their proposals to evolve designs where it will enhance or maintain the that take account of the views of vitality of rural communities. This the community. Proposals that can will need to be demonstrated by demonstrate this in developing the the applicant, and could include, for design of the new development should example, a young family moving to the be looked on more favourably. As village, someone wishing to work from such, applicants will be expected to home, people moving into a village demonstrate that they have complied to support other family already living with this Policy requirement. there.
100 Policy HO 3 - Housing in Residential Gardens Justification
Proposals for housing development in existing residential 5.18 Gardens contribute significantly to the character and quality of gardens will be permitted providing that the following housing areas within the City, and also within the market towns criteria are met: and many villages within the rural area. Mature gardens can also help to mitigate factors contributing to climate change, 1. the scale, design and siting of the proposal would for example trees which absorb carbon dioxide. Proposals for not result in a cramped form of development out of housing development in existing gardens, especially backland character with the surrounding environment; development, can often be contentious. 2. a safe and attractive garden area, which reflects that 5.19 National planning policy makes provision for local plan policy predominant in the area, can be created for both the to resist inappropriate development of residential gardens, for proposed new house and the existing house; example where development would cause harm to the local 3. the proposal, by way of design, siting and materials area. The Natural Environment White Paper (Securing the integrates into the surrounding built, natural, and where Value of Nature, 2011) states that natural networks include necessary historic environment; private gardens and that these can help to conserve wildlife in environments that have become fragmented by human 4. there is no unacceptable loss of living conditions to activities. surrounding properties by overlooking, loss of light, overbearing nature of the proposal or increase in on 5.20 There will be instances where development of part of a street parking; and residential garden for housing will be acceptable. However, such proposals also have the potential to cause significant 5. the proposal does not prejudice the development amenity problems to existing properties including loss of potential of an adjacent site. privacy, loss of daylight, overlooking, visual intrusion by a building or structure, noise disturbance, reduced space around buildings, loss of car parking, and loss of mature vegetation including screening. There can also be increased surface water run off due to an increase in hard surfaces.
101 5.21 Critical factors which will be taken into 5.24 Backland sites can result in piecemeal account in determining applications proposals being submitted for land will be the size of the site, capacity of which are physically connected to the access and impact on adjacent much larger areas with greater potential properties. for a more comprehensive form of development. Proposals which block 5.22 For sites to be acceptable there the development potential of adjacent needs to be an appropriate plot depth land, for example through land locking, and configuration, in order to allow are unlikely to be acceptable. new housing to be developed which results in a quality environment for 5.25 This Policy also relates to tandem both new and adjacent residents. development. This is a form of Garden development, especially on backland development where a new rear gardens, on restricted plot depths dwelling is placed immediately behind is unlikely to be acceptable, especially an existing dwelling and uses the same where overlooking issues cannot be access. This type of development is overcome. nearly always unacceptable because of the impact on the amenity of the house 5.23 The form and scale of any new at the front of the site. development should respect the local character of the immediately surrounding area. In particular, the scale, number of storeys and massing of new housing development should not exceed that of existing dwellings adjacent to the site.
102 Policy HO 4 - Affordable Housing
In order to achieve mixed and inclusive where it can be clearly demonstrated development sites will be sought where it neighbourhoods, affordable housing by way of a financial appraisal that the is considered to meet needs and the site provision will be sought in the following development would not otherwise be is in an appropriate location. circumstances: financially viable or where the proposed Policy HO 4 will operate within the mix better aligns with priority needs. 1. within Zone A, all sites of six units and context of national policy and will be Early dialogue with the Council on these over will be required to provide 30% implemented with regard to any relevant matters is essential. of the units as affordable housing; future changes including to the national For sites of between six and ten units, definition of affordable housing. 2. within Zone B, all sites of 11 units or the affordable housing contribution over will be required to provide 20% will be sought in the form of cash of the units as affordable housing; and payments which will be commuted 3. within Zone C, all sites of 11 units or until after completion of units within over will be required to provide 30% the development. For sites of 11 units of the units as affordable housing. or over, the affordable housing should be provided on the application site It will not be acceptable to sub-divide unless off site provision, or a financial sites and purposely design a scheme contribution of broadly equivalent value to avoid making affordable housing in lieu of on-site provision, can be contributions. robustly justified by local or site specific The tenure split of affordable housing to circumstances. be provided should be 50% for social or The opportunity to secure affordable affordable rent and 50% for intermediate extra care housing schemes as part of housing. A lower proportion and/or the wider affordable housing mix on different tenure split may be permitted
103 Justification
5.26 The NPPF states that in order to deliver affordable housing. The introduction 5.28 The SHMA update (Sept 2014) identified a wide choice of high quality homes, of PPG, which introduces national that overall in the period from 2013 local planning authorities should use thresholds, has necessitated the to 2030 an average of 295 affordable an evidence base to ensure that their identification of the built up area of homes per annum are required. Although Local Plan meets the full, objectively Brampton as Zone C. This reflects this demand will be partially met by assessed needs for market and that the town of Brampton is not a the private rented sector supported by affordable housing. In addition, in order ‘designated rural area’ as described housing benefit, this policy aims to strike to ensure viability and deliverability, under section 157(1)(c) of the Housing a balance on an appropriate affordable the scale of affordable housing Act 1985. However, the viability housing requirement. required by this Policy has been evidence supports that development 5.29 Cumbria County Council’s Extra Care calculated following the undertaking sites in Brampton can support 30% of Strategy estimates the need for 340 extra of an Affordable Housing Economic the units as affordable. care units by 2019, across the District, Viability Assessment, (AHEVA), which 5.27 The Policy contains a viability with 234 of those places needed within assesses the viability of a range of cushion in line with advice in the the City of Carlisle. The opportunity to housing developments across the Harman guidance, ‘Viability Testing deliver an element of this housing on District using a residual valuation Local Plans’. Therefore when the appropriate development sites, as part of appraisal method. Zones A, B and C requirements of this policy make a the overall affordable housing provision, (which depict differences in viability site unviable, the Council will expect will be sought. within the District) have therefore the developer to submit an appraisal been defined having regard to the 5.30 The maximum proportion of affordable such as the Homes and Communities evidence as set out in the Carlisle housing on larger housing schemes Agency Development Appraisal Tool AHEVA and government policy set is an important factor to consider in or similar, before a departure from the out in the Planning Practice Guidance trying to achieve balanced and mixed policy will be allowed. (PPG) regarding the thresholds for communities. Large developments seeking planning obligations including of entirely affordable housing could
104 potentially lead to community cohesion 5.32 Sub-dividing a site to avoid making 5.34 In determining the type of affordable issues with the surrounding area affordable housing contributions will housing to be provided, the Council’s and also fail to contribute to mixed not be acceptable. The yield generated Housing Service will advise developers communities. The siting of affordable by the site as a whole will be assessed of the appropriate type and mix of housing within a development also and used as a basis on which to seek units for each site to ensure local need needs careful thought to ensure that it the affordable housing contribution. is being met. This will help deliver is not concentrated within one area of Therefore affordable housing will be the priorities in the Carlisle Housing the site, but is integrated throughout sought on developments below these Strategy 2012-2016, especially the development. This approach thresholds if the Council considers that the need to work closely with local will provide greater opportunities for the site is part of a larger development communities to address their housing community cohesion. site, particularly where the site is being needs and preferences, and support sub-divided as a way to avoid the community based development 5.31 In relation to the tenure split of affordable housing threshold. initiatives. affordable housing 50% should be social or affordable rented with the 5.33 This will also apply where one site is 5.35 For sites of eleven units or over the remaining 50% for affordable home divided between different developers, Council’s expectation will be that ownership (often referred to as or is proposed to be developed in a affordable housing will be provided intermediate housing). However, it phased manner. The affordable housing on the application site, in line with the is important to allow for flexibility to generated by the site as a whole will Council’s commitment to mixed and ensure that marginal schemes remain be assessed and used as the basis on sustainable communities, supported viable. Demand for intermediate which to seek the affordable housing by the NPPF. Off-site provision (or housing (such as shared ownership) contribution. financial contributions towards the can vary with market conditions and as provision of affordable housing) a result there may be occasions where will only be agreed where such an an increased proportion of social rented approach can be robustly justified, housing will be acceptable.
105 for example to improve or make more effective use of the existing housing stock, where housing need priorities could be better met in an alternative location, or where there is an oversupply of a particular type of affordable housing provision in the immediate area and the agreed approach contributes to the objective of creating mixed and balanced communities.
5.36 Evidence will be required to show that the affordable housing cannot be managed effectively on the site and that providing the affordable housing elsewhere will significantly widen housing choice and encourage a better social mix. Where off-site provision or contributions are agreed, it will be on the basis of the developer providing the same ratio of affordable housing to market housing as would have been provided on-site. Off- site provision should, where possible, be in the same Housing Market Area (HMA) as the application site (Carlisle City, Rural Carlisle East or Rural Carlisle West).
106 Figure 2
107 Justification Policy HO 5 - Rural Exception Sites 5.37 The purpose of a rural exception site is to address In the rural area dwellings will be permitted on small sites where open local housing need in order to sustain rural market housing would not be acceptable, subject to the following communities. Proposals must include evidence criteria: setting out the level of local need and a justification 1. the development is for affordable housing to meet an identified of the particular location to ensure that the scheme local need; is appropriate in terms of scale, tenure and other characteristics. This Policy enables planning 2. the affordable housing will be retained for affordable need in permission to be granted for affordable housing on perpetuity; land that would not normally be used for housing 3. the proposal can demonstrate that the development can be because, for example, it is subject to policies of delivered; and restraint. Hence, an exception is made to normal planning policy to address proven local housing 4. the site is very close to, adjoining or within a settlement which need. However, other planning issues such as site provides a range of local services and facilities, or has good public suitability, scale, design etc must still be addressed. transport links to a larger settlement with a wider range of services and facilities. 5.38 The rural area can be the least affordable place to live in the District. In 2008, the Government’s ‘Living In the following exceptional circumstances an element of open market Working Countryside’ Matthew Taylor review of the housing will be allowed on rural exception sites: rural economy and affordable housing found that 1. excessive development costs due to site constraints; while people working in rural areas tend to earn significantly less than those working in urban areas, 2. the Registered Provider can demonstrate that the additional rural homes are more expensive than urban homes. revenue created by the development of open market housing is essential to enable the delivery of affordable housing on the site; or 5.39 The popularity of rural areas and migration from urban areas add to the pressures on rural housing 3. the amount of open market housing is the minimum required to affordability. achieve site viability.
108 5.40 In the rural area, opportunities for • the exception site is adjacent to the It is important that the number and type delivering affordable housing can edge of a village, or is well related to of houses to be developed enables be limited. The AHEVA notes that existing residential development and the creation of sustainable, inclusive rural exception sites land values are amenities located in, or adjacent to, a and mixed communities. Schemes are generally lower, thereby creating clearly identifiable village or settlement. more likely to be successful with the an opportunity to deliver affordable involvement, support and knowledge 5.42 The policy aims to ensure that rural housing. Rural exception sites can of the parish council and the local communities remain sustainable by contribute towards the supply of community. making provision for households in local affordable housing, and help to meet affordable housing need, for example: 5.44 The occupancy of the houses will be specific identified local needs. Such controlled by a Section 106 agreement sites can only be used for affordable • existing residents needing separate to ensure that the affordable housing housing in perpetuity. The type, tenure accommodation in the area, e.g. grown is available in perpetuity to meet local and size of the homes must meet an up children, or growing families; needs. This prevents the houses being identified local need. Local is defined • workers who provide important services sold or rented at open market rates. as within the parish. and need to live closer to the local 5.45 The S106 must include the name of the 5.41 Examples of the type of land that would community; or parish or parishes within the appropriate qualify as an exception site include: • people who require family support, e.g. area (usually the relevant Housing Market • land within or adjacent to a small the elderly. Area) where the local affordable housing village where open market housing need has been identified. It may also 5.43 Villages throughout the District vary would normally be constrained; include a list of neighbouring parishes, enormously in size. It is therefore wards or wider geography to be referred • land close to a larger village with a important that the development of a to if, at some point in the future, one or range of services and facilities; or rural exception site is in scale with its more of the houses becomes vacant and surroundings, and normally only small there are no applicants from the original sites will be considered acceptable. parish or parishes.
109 Policy HO 6 - Other Housing in the Open Countryside
New housing will be allowed in the open countryside in the 3. conversion of structurally sound redundant or disused following special circumstances: buildings, provided that the development would:
1. where there is an essential need for a rural worker to live a) lead to an enhancement of the immediate setting of the at or near their place of work, and evidence is provided to building; and demonstrate need for a full time worker to be available at all b) be able to access the road network without the need to times for the enterprise to function properly, provided that: construct access tracks which would have an unacceptable a) the business is established, has been profitable for at impact on the landscape. least one year, is currently financially sound, and has a clear Justification prospect of remaining so;
b) the housing need cannot be met by other housing nearby; and
c) the house would be appropriate in terms of size, scale and design for its location.
2. replacement dwellings:
a) the dwelling has an existing lawful residential use;
b) the development is of a scale appropriate to the size of the plot; and
c) the development would reflect the identity of local surroundings and materials in terms of both the new dwelling and any curtilage development such as garages, outbuildings and boundaries.
110 5.46 There are a number of opportunities rural arts and crafts, etc. The definition 5.51 Houses permitted under this policy will within the rural parts of the District does not apply to someone whose be subject to a condition limiting initial to create new dwellings either where business or occupation is carried out in a and successive occupation to a rural there is an essential need for a rural wide locality in the rural area, for example worker solely or mainly employed at worker to live at or near their place a tradesperson who has no requirement their place of work nearby. of work, through the demolition and for fixed premises. 5.52 An application for the removal of replacement of substandard dwellings, 5.49 Applicants for such dwellings will need such an occupancy condition will or though the conversion of redundant to demonstrate that there is a clearly only be permitted where it can be or disused buildings. established existing functional need, demonstrated that: 5.47 Rural workers dwellings - most rural that the need relates to a full time • there is no longer a need for the workers will live in a variety of locations worker, that the enterprise concerned dwelling in relation to the enterprise/ within and outside the District (and is an established business, and has business; and commute to their work) or in existing been profitable for at least one year. The properties connected to their place of business should also provide evidence • the dwelling has been marketed for work. However, there will be specific that there is a clear prospect of it sale or rent for six months at a price circumstances where the nature and remaining financially sound. that reflects the occupancy condition. demand of the rural enterprise require a 5.50 The applicant will also be expected to 5.53 Replacement dwellings - proposals worker to live at the place of business demonstrate that the need for a dwelling for replacement dwellings will need to in the countryside. could not be met by existing housing demonstrate that the dwelling to be 5.48 The definition of a rural worker is not for sale in the area. This would require replaced has not been abandoned. simply limited to someone employed a basic search for houses for sale in the Development proposals under this in agriculture or forestry, but can immediate locality and a brief indication policy will generally arise where an include, for example, those employed as to why they are not suitable to meet existing dwelling is in a poor condition in equestrian or other land based the need for the rural worker, for example, and therefore unsuitable for current enterprises, water based businesses, on the grounds of location or price. living standards.
111 5.54 Careful consideration will need to 5.56 Any building to be converted should • how the site will access utilities such as be given to the location of the new be visually worth retaining due to its energy and water supply; dwelling within the plot, and sufficient contribution to the rural landscape. • how the site will access the road curtilage will need to be retained This will exclude modern agricultural network; and for adequate garden, parking and or industrial buildings. Buildings to be circulation space. Any new dwelling converted should be structurally sound. • how the building will contribute to should not have a greater adverse Proposals which require the substantial energy efficiency. impact on character and appearance of reconstruction of the external walls or 5.58 All proposals under this Policy should the surrounding area than the dwelling roof will not be acceptable. Structural seek to optimise the potential to to be replaced. The existing house surveys may be required in order improve the character and quality of on the site must be demolished on to demonstrate that a building is the site. A high standard of design will completion of the new dwelling. structurally sound. be required resulting in a development 5.55 Conversion of redundant and 5.57 Carlisle is the second largest District in which is visually attractive as a result disused buildings - buildings such as England and covers 400 square miles. of good architecture and appropriate barns, mills and old stables make a As such, there are likely to be some landscaping. The design of new houses significant contribution to the character very remote rural buildings in areas in the open countryside should promote and quality of the countryside around with poor accessibility, remote from or reinforce local distinctiveness but be Carlisle. To avoid their loss and to services, facilities and employment, open to appropriate innovation. prevent them from becoming derelict and where the only option for travel is 5.59 In all cases the creation of new eyesores this policy makes provision by car. The conversion of redundant dwellings should avoid introducing for their conversion and re-use. or disused buildings in such locations suburban character or features, Conversions must aim to retain and may raise sustainability issues, and such as extensive areas of tarmac or enhance any architectural quality and any proposals will require additional paviours, close boarded timber fencing character of the building and its rural information to be submitted by the or leylandii hedges. setting. applicant to show the following:
112 5.60 Where a courtyard development of several dwellings is proposed, the gardens and courtyard should normally be left as a single communal space.
5.61 Many rural buildings can be habitats for a variety of wildlife including bats and barn owls. These species are sensitive to disturbance and therefore at risk from building works. They are also protected under the 1981 Wildlife and Countryside Act. An ecological survey will also be required where such species are present. The survey should identify the species present, identify any impacts and consider avoidance, mitigation, and new benefits.
113 Policy HO 7 - Housing as Enabling Development Justification
Enabling development in the form of new housing, where it 5.62 Within the District there are a number of buildings which would otherwise be contrary to planning policy, that would can be considered as heritage assets. Heritage assets for secure the future conservation of a heritage asset, will be the purpose of this policy are most likely to include historic acceptable providing that the following criteria are met: buildings that are either on the statutory list or the local list.
1. it is necessary as a last resort to resolve problems arising 5.63 In many cases the setting of a heritage asset will be significant from the inherent needs of the place; and must not be compromised as a result of proposals arising under this policy. In particular walled or historic gardens, open 2. any harm caused to the significance of the heritage asset parkland or other landscapes can be an integral part of the and its setting is outweighed by the public benefits of the setting of a heritage asset. proposal; 5.64 Enabling development in the form of new housing, which 3. sufficient grant or subsidy to secure the future of the would not be supported by any other policies in the Local heritage asset is not available from any other source; Plan, should be proportionate to the scale and complexity of 4. the proportion of enabling development proposed is the the project. Early pre-application discussions will be essential, minimum required to secure the long term future of the so that applicants do not waste resources on schemes that are heritage asset; unlikely to be justified.
5. the development secures the long term future of the 5.65 The impact of the development must be accurately detailed heritage asset, and this outweighs the disbenefits of when the planning application is submitted. Outline planning departing from any other planning policies; and applications will not be acceptable. The design and layout of the enabling development will be critical in determining its 6. the new development makes a positive contribution to acceptability. The proposals must adequately set out how the local character and distinctiveness. objective of securing the future of the heritage asset will be achieved, including setting out any timescales, which ideally should secure the restoration of the heritage asset as early as possible in the course of the enabling development, preferably
114 at the outset, and certainly before the completion and occupation of the dwellings.
5.66 The end use of the heritage asset must not only be compatible with the historic form, character and fabric of the place, but be financially viable. This means either that the place must have a positive market value on completion of repair and return to beneficial use, or there must be clarity about who will take responsibility for it in the long term.
115 Policy HO 8 - House Extensions Justification
5.67 Many people choose to adapt their existing homes to cater for House extensions and alterations should be designed to: changes in lifestyle rather than move house. House extensions 1. relate to and complement the existing building in scale, are usually defined as any extension of the living space, design, form and materials; including basements, roof conversions and conservatories. Planning permission will be refused for development of 2. be visually subservient to the main building; poor design that fails to take the opportunities available for 3. ensure there is no loss of amenity to surrounding properties improving the character and quality of an area and the way it by overlooking, overbearing nature of the proposal, or functions. increase in on street car parking caused by the loss of an 5.68 The design of an extension should respond to the existing garage or off street parking space; characteristics of the specific site, as well as the 4. ensure adequate natural light within the building, garden or distinctiveness of the wider setting. The aim should be other outdoor amenity space; to reflect the style of the existing building, especially in conservation areas and for listed buildings. However, 5. maintain the established character and pattern of the street extensions of a more contemporary design may be scene and be a positive addition; and appropriate, provided they are of the highest standard of 6. retain gaps between buildings where they are characteristic design, and innovative in nature, together with significantly of the area and contribute to the street scene. enhancing the immediate setting. Consequently, any proposal will need to demonstrate that through its scale, density, layout, siting, character and appearance, it has been designed to respect the property and its surroundings.
5.69 Most proposals should be visually subservient to the existing property. The scale of the extension that is likely to be acceptable will depend on the size of the plot, the size of the original dwelling and the impact on neighbours and the
116 street scene. Further detailed policy is contained in the adopted 2011 Supplementary Planning Document (SPD) Achieving Well Designed Housing.
5.70 Not all house extensions require planning permission. Permitted development rights allow householders to improve and extend their homes without the need to seek planning permission. The Government has produced technical guidance on permitted development for householders which can be found on the Planning Portal website.
5.71 This policy will therefore apply to all applications for development which are not covered by permitted development rights, although it also provides useful guidance, together with the SPD Achieving Well Designed Housing, for extensions being constructed under permitted development rights.
117 Policy HO 9 - Large Houses in Multiple Occupation and the Subdivision of Dwellings Justification
Proposals for the subdivision of Within the rural area, proposals for 5.72 A Large House in Multiple Occupation dwellings and the creation of houses in the subdivision of larger houses into (HMO) is a house with more than six multiple occupation will be acceptable two or more units of accommodation people sharing. These are unclassified by providing that: must demonstrate either that there are the Use Classes Order and in planning services in the village where the house is terms are described as being sui generis. 1. such proposals do not lead to the located, or that there is good access to This Policy applies to large HMOs. The unacceptable loss of good quality one or more other villages with services, General Permitted Development Order family housing; or to the larger settlements of Carlisle, gives Permitted Development rights for 2. effective measures are proposed to Brampton and Longtown. change of use from dwelling houses to minimise the effects of noise and small scale houses in multiple occupation. other disturbance to neighbouring Small scale is defined in Circular 08/2010 residential properties; as small shared houses or flats occupied by between three and six unrelated 3. adequate space is provided for the individuals who share basic amenities. storage of refuse and recycling bins; 5.73 The Housing Act 2004 definition of an 4. the proposal would not adversely HMO is as follows: affect the character of the building or the surrounding area, for example • three or more unrelated people are sharing through increased on-street parking; facilities; and • buildings comprising non-self-contained 5. the proposal does not lead to the flats; creation of substandard units of • houses converted to self-contained flats accommodation. before 1991 and not in accordance with the 1991 Building Regulations; and
118 • a self-contained flat converted to 1991 5.77 Because of the shared occupancy of Whilst the nature of the buildings in Building Regulations standards (or the properties, HMOs, such as bedsits these locations (three storey Victorian later), if occupied by more than three and shared houses, require a higher houses) can be successfully converted, unrelated persons. standard of management than other there are often problems with lack of private rented property and are subject parking or sufficient outdoor space for 5.74 The Act also makes provision for to additional regulation. Some of these storage of bins and recycling bags. mandatory licensing of certain HMOs regulations relate to the management This can have an unacceptable impact and for such licensing schemes to be of the HMOs and this helps safeguard on the amenity of neighbours, and on operated by the City Council. the health and safety of people who the character of the street scene. 5.75 Under the Act, HMOs which need to be live in them who can be amongst the 5.80 This policy also applies to proposals licensed are those where: most vulnerable and disadvantaged to subdivide larger houses into two members of the community. This type • the HMO or any part of it comprises or more dwellings. This can provide of housing is a valuable housing option three storeys or more; additional smaller units of housing, for many people. often at less cost than new build, and • the HMO is occupied by five or more 5.78 HMO licensing has been operated can often preserve the life of an older persons; and in Carlisle since 2006. For more building. Such proposals must ensure • these persons are living in two or more information on HMO licensing, please adequate internal living space, as well single households. contact the Private Sector Housing as complying with other policy criteria. Team at the City Council. Where such houses are located in the 5.76 Where an HMO is situated in a part of open countryside, proposals must a building above business premises, 5.79 Certain areas in Carlisle have a demonstrate that there is good access each storey of the business premises is concentration of HMOs, in particular to local services and facilities, or to the included when calculating the number Warwick Square/Aglionby Street/ larger settlements of Carlisle, Brampton of storeys for the HMO. Warwick Road, Stanwix, and or Longtown. Chatsworth and Portland Squares.
119 Policy HO 10 - Housing to Meet Specific Needs Justification
5.81 The age profile for Carlisle District is slightly older than found The Council and its partners will work together to enable regionally or nationally, with a greater proportion of people in all the delivery of specialist housing for vulnerable people age groups from 45 onwards. Within the rural area there is a much including for the ageing population and those with physical larger proportion of people aged 45 and over than in the urban and learning disabilities, such as extra-care accommodation, area. Nearly 30% of the population of each rural HMA is aged 60 and which take account of the need to provide for a variety or over. Cumbria County Council has produced an ‘Extra Care of care needs and flexibility to accommodate differing Housing Strategy 2011-2029’, which identifies that 340 extra requirements of care. care units are required in the District up to 2019. There will be Proposals for new development to meet a particular housing continuing dialogue with the County Council on how this can be need, e.g. older people, supported or other specialist delivered. accommodation will be acceptable where they are in 5.82 These figures have implications for the delivery of housing over appropriate sustainable locations, for example, close to a the plan period and therefore it is essential to ensure that the range of services and facilities. needs of older people are met over the plan period. New specialist housing for vulnerable people should aim to give all people who require provision of care more choice and control over where and how they live and how they receive care.
5.83 This Policy encourages the provision of housing to maximise the independence and choice of older people and those members of the community with specific needs. When assessing proposals for the development of residential care homes, extra care housing and other similar schemes the Council will have regard to the local need for the accommodation proposed, and the ability of future residents and staff to access a range of local services such as shops, community facilities and public transport.
120 5.84 Older people or others with specialist the changing needs of individuals and Housing, and Heysham Gardens, Belle housing needs often want to stay families. Adaptable homes are intended Vue, provides 60 units (Eden Housing). within the community in which they to add to the comfort and convenience have been living, or move to be close of the home, and support the changing to family or others who are able to help needs of those who live there at support them. Whilst such locations different stages of their lives. They are may not benefit from local services designed to create and encourage and facilities, they are still considered better living environments for everyone, sustainable in terms of the community/ from small children to coping with family support for the particular temporary or permanent disability, or housing need. reduced mobility in later life.
5.85 The Council will also support evidence 5.87 Housing for people with a range of based proposals for annexes or special needs will also be necessary. extensions to existing houses to The Cumbria County Council ‘Adult accommodate an elderly, disabled or Social Care in Carlisle District Plan otherwise dependant person. 2012-14’ identifies extra care housing as a key form of support. Carlisle has 5.86 Proposals for the development of a number of such schemes where homes that are adaptable for the life people are offered support in extra course of the occupiers in line with care schemes, rather than residential Building Regulations M4 (2) (Accessible care, enabling them to stay at home and adaptable dwellings), and M 4 (3) for longer. Burnside Court in Stanwix (Wheelchair user dwellings), will help provides 44 flats for people with care to ensure a supply of adaptable and needs, and is provided by Anchor accessible homes that can respond to
121 Policy HO 11 - Gypsy, Traveller and Travelling Showpeople Provision
The Council and its partners will work together to meet the 4. adequate utilities can be provided or are already available; accommodation needs of Gypsies, Travellers and Travelling 5. the site is well planned to be contained within existing Showpeople. landscape features, or can be appropriately landscaped to Land has been allocated adjacent to Low Harker Dene for nine minimise any impact on the surrounding area; permanent residential pitches and up to 15 transit pitches to 6. satisfactory living conditions can be achieved on the site and meet identified needs over the Plan period for Gypsies and there would be no unacceptable impact on the amenity of Travellers provision. adjacent land uses including residential uses; Proposals which contribute to achieving additional provision 7. any ancillary business uses that are intended to be carried of transit and permanent residential pitches, and sites for out on the site will not have an unacceptable impact on Travelling Showpeople, in addition to the sites allocated will be the residential use of the site, any adjacent land uses or the considered favourably where they meet the following criteria: visual amenity of the area; and 1. the location, scale and design would allow for integration 8. the site should have, or be able to provide, adequate access with, whilst not dominating or unacceptably harming, and turning space for large vehicles and caravans. the closest settled community to enable the prospect of a peaceful co-existence between the site and the local The redevelopment or change of use of existing sites for community; Gypsies, Travellers and Travelling Showpeople to alternative uses will not be supported whilst there remains a proven need 2. the site has reasonable access to key services and facilities for provision within the District. including schools, shops, doctors’ surgeries and health care and other community facilities;
3. there are opportunities to access these facilities by public transport, walking or cycling;
122 Justification
5.88 The Housing Act 2004 places a duty any under provision can be addressed 5.92 In addition to the need for permanent on local authorities to carry out an to ensure that an appropriate level of provision, the GTAA also makes an assessment of the accommodation supply is maintained in places where assessment of the need for pitches for needs of Gypsies and Travellers Travellers can access education, short term use while in transit. Such in the District. Government policy health, welfare and employment. sites are intended to be authorised, on travellers is contained in the and usually permanent, but there is a 5.90 The total pitch requirement across the Communities and Local Government limit on the length of time residents can District, based on the current supply (CLG) document ‘Planning Policy stay. of pitches, and views expressed by for Traveller Sites’ which also states Gypsy and Traveller households, is 17 5.93 Within the District, based on Gypsy, that local planning authorities should pitches up to 2030. It is acknowledged Traveller and Travelling Showpeople make their own assessment of need that the need for pitches should be surveys, and the broad scale of for the purposes of planning. This regularly reviewed to determine the unauthorised encampment activity, will help in identifying land for sites extent to which this requirement is the GTAA identifies that up to eight and will also ensure that both plan changing over time. additional transit pitches would help making and decision taking help to offset the incidences of unauthorised reduce the number of unauthorised 5.91 There are currently a number of encampment activity in Carlisle. developments and encampments and licensed Gypsy sites in the District This is not an annual requirement, make enforcement more effective. including: Low Harker Dene; Hadrian’s but rather an overall requirement Park and Atchin Tan. In addition, there 5.89 The Cumbria Gypsy and Traveller which helps to address on-going are also a number of pitches provided Accommodation Assessment (GTAA) unauthorised encampment activity. through personal consents to cater for (November 2013) sets out an up to The transit allocation adjacent to Low the needs of single family units. There date picture of accommodation needs Harker Dene provides sufficient land is also a permanent site for people of across Cumbria on a district by district to accommodate up to 15 pitches. the Showman’s Guild at Willowholme basis up to 2030. This will ensure that in Carlisle.
123 Any additional proposals for transit provision will be assessed against the criteria in the policy.
5.94 With regards to provision for Travelling Showpeople, the GTAA does not identify any need for new permanent sites over the Plan period. Any proposals coming forward for provision for Travelling Showpeople will be assessed against the criteria in the policy.
124 Policy HO 12 - Other Uses in Primary Residential Areas Justification
Primary Residential Areas are identified on the Local 5.95 This Policy aims to ensure a good standard of amenity for all existing and Plan Policies Map. The amenity of residential areas future occupants of land and buildings. The City Council therefore aims will be protected from inappropriate development. to protect and maintain the residential character of the areas identified Planning applications for non-residential uses will as being primarily in residential use, as shown on the Local Plan Policies only be permitted providing that: Map. The Policy coverage will extend to include all consented residential schemes once implemented. 1. such uses maintain or enhance the overall quality and character of the immediate area; 5.96 Within residential areas it is necessary to prevent development that would be detrimental to the amenity of those who live there. In order 2. there is no detrimental effect on residential to protect residential amenity, the City Council will resist any planning amenity either through noise, nuisance, damage application which seeks to introduce a use which is clearly non- to visual amenity or increase in traffic; and conforming and threatens the residential character of an area. 3. the proposed use will provide a beneficial service 5.97 Certain proposals for non-residential uses within established residential to the local community. areas including small local shops, public houses, health care facilities, Support will be given for schemes which include the and small businesses including B&Bs may be acceptable provided the redevelopment or refurbishment of previous non- applicant can demonstrate that the benefits of the scheme will be in the conforming uses in the area. community’s interest.
The character and residential amenity of the area 5.98 There are uses, however, either through the type of use, its scale, or should not be compromised by the cumulative because it would generate an unacceptable level of traffic, noise or impact of such proposals, either through increase other adverse effects such as impact on the safety or health of residents in traffic or the intensity or intrusive nature of such that would result in an overall loss of amenity. Such development is not proposals. acceptable in residential areas and will not be permitted.
125 126 6 Infrastructure
Objective Context
To ensure the provision of efficient Infrastructure can take many forms District, highlighting any deficits and likely and integrated infrastructure and is essential to support the delivery funding arrangements that will be needed networks and their timely delivery, of the objectives within the Local to address them, ultimately to help ensure including sustainable transport, Plan of increased housing provision, that infrastructure provision keeps pace where needed to support new and economic growth and creating thriving with growth. Where deficits exist, this existing development, facilitate and sustainable communities. The chapter establishes a framework through economic growth and deliver the policies in this chapter aim to ensure key which developments can help to address Plan’s strategy. infrastructure provision is in place, or can them using planning obligations where be put in place, to allow new development appropriate and viable to do so. to be brought forward and function in a sustainable way.
The implementation of the policies within this chapter will be supported through evidence in the form of the Infrastructure Delivery Plan (IDP) which identifies what infrastructure currently exists across the
127 Policy IP 1 - Delivering Infrastructure Justification
New development must ensure that sufficient infrastructure 6.1 The timely delivery of infrastructure is fundamental to the is in place in order to support it. Where this is not the case, delivery of the Plan. Co-ordinating development with the or where proposals would place an unacceptable strain on delivery of infrastructure will be necessary in some instances. existing infrastructure networks, development will not be 6.2 Key infrastructure likely to be necessary to co-ordinate with permitted unless arrangements can be made to ensure the the delivery of development within Carlisle includes: timely delivery of required infrastructure improvements. • primary and secondary school placements; Where a development requires the creation of new • adequate highway capacity and achievable access; infrastructure the Council will require it to be secured through • health and social facilities or improvements; planning obligations. If adopted, the Community Infrastructure • flood risk and surface water management infrastructure Levy (CIL) may also be used to help address infrastructure and improvements; deficits identified in the Carlisle Infrastructure Delivery Plan • transport facilities and improvements; (IDP). • foul water drainage and network capacity; Early engagement at pre-application stage by all parties • energy supply; and with infrastructure providers will be encouraged for all • clean water supply. development proposals. Applicants proposing major 6.3 Other infrastructure requirements may also need to be development must be able to demonstrate they have engaged addressed before development can commence. These in pre-application discussions with relevant infrastructure requirements will vary from location to location, and may providers. cover a wide range of social and environmental needs, based Where land is earmarked for infrastructure development, it will on local circumstances. be protected from development proposals with the potential to compromise its delivery. Where necessary, the Council will act to safeguard land for new and emerging infrastructure proposals that may arise over the lifetime of the Plan.
128 6.4 The Infrastructure Delivery Plan (IDP) 6.5 The IDP will also provide information road closures are incurred on multiple, will continue to be used to identify and evidence to support the separate occasions over the course any infrastructure deficits that may introduction of a Community of construction as different utilities impact upon proposals for new Infrastructure Levy (CIL), which would are installed, to the inconvenience of development. In this regard the IDP seek contributions from applicants existing communities. will support the implementation of towards known strategic infrastructure 6.7 The Council will seek to ensure that this Policy through providing evidence deficits that have been identified across land required to accommodate new for seeking developer contributions the District. If CIL is subsequently infrastructure provision is, where from applicants where a specific introduced by the City Council, the use necessary, protected from unrelated infrastructure issue would directly of planning obligations would be scaled and potentially compromising affect and/or result from a development back in accordance with the regulations development. In some cases it may proposal. Issues may also be raised governing the use of CIL. be necessary to formally allocate or during consultation on a planning 6.6 In order to reduce disruption caused safeguard land for the development application by relevant infrastructure by connecting development sites and delivery of new infrastructure. If bodies. New development which would to infrastructure networks such as the need to do so arises throughout place unacceptable strain on existing gas, water, sewage, electricity and the life of the Plan the Council will infrastructure, or which is proposed in broadband fibre i.e. where development consider the need for a partial review of an area where essential infrastructure may need to close highways to carry the appropriate element of the Plan or does not exist, will only be approved out work, developers will need to co- consider the need to bring forward an once the applicant has demonstrated ordinate with infrastructure providers to additional Development Plan Document how and when infrastructure ensure that works on multiple utilities (DPD). requirements will be met. are carried out, wherever it is possible to do so, at the same time. This will help to avoid situations where lengthy
129 Policy IP 2 - Transport and Development
All new development will be assessed Proposals that would facilitate a modal 4. the site will safely and conveniently against its impact upon the transport shift in freight transport from road to rail connect to public and green transport network. Development that will cause and/or air will be supported where the routes, and contribute to creating a severe issues that cannot be mitigated impact on the surrounding road network multifunctional and integrated green against will be resisted. Development and land uses can be accommodated infrastructure network; likely to generate significant levels of without significant adverse effect. 5. the accessibility needs of more transport within isolated and poorly Travel Plans and Transport vulnerable people have been taken into accessible areas will be resisted Assessments: account; unless a clear environmental, social or Development which through reference economic need can be demonstrated. 6. the impact of heavy goods vehicles to national guidance requires the accessing the site, where this is a New development that will be accessible submission of a Transport Assessment required aspect of operations, will be to the public will be required to and/or Travel Plan, should, in addition minimised, including restrictions on prioritise safe and convenient access to responding to national guidance, operating hours and how route plans for cyclists and pedestrians, and to demonstrate how: involving the movement of HGVs will take opportunities to contribute to 1. the needs of cyclists and pedestrians avoid residential areas where possible; the creation and enhancement of an will be met and prioritised on site; and integrated and continuous sustainable transport network. All new development 2. the development will help to reduce 7. all other sustainable transport must demonstrate/provide convenient the need to travel, particularly by concerns will be addressed. access to public transport, although a private motor car; Sustainable Vehicle Technology: more flexible approach may be justified 3. the movement of freight and goods by Developers will be encouraged to include in rural areas where public transport rail will be maximised where possible sustainable vehicle technology such as options are more limited. and appropriate; electric vehicle charging points within proposals.
130 Justification
6.8 Through recognition that all new all. Residential developments should • the wider impact of development developments can potentially impact in this context pay particular regard on the transport network has been upon the transport network, it is to the importance of safe walking considered; important that the extent of these routes to school. New development • pedestrians and cyclists have been impacts are fully understood and should capitalise upon and enhance given the highest consideration in considered when determining planning links to existing green infrastructure terms of accessing the site and there applications. Policy IP 2 seeks to and rights of way networks wherever is good access to the public transport achieve this via providing a framework possible or should seek to create network; through which likely impacts can be new networks if none are present. assessed. The overriding objective Similarly opportunities should be taken • road and street layouts are designed of the Policy, which builds upon the to maximise connectivity with public to be safe and secure and minimise Strategic Transport Policy at the transport. the conflicts between traffic and outset of the Plan, is to ensure that pedestrians and cyclists; 6.10 Travel Plans and Transport development proposals that will Assessments will be used to make sure • the needs of vulnerable people, such compromise the safe or effective that new development conforms to the as children, people with disabilities, the operation of any element of the principles of sustainable transport. The elderly, and parents with prams/young District’s transport network will be circumstances when such assessments children have been addressed; resisted. will be formally required are set out • convenient and safe walking routes 6.9 New development should be planned in the Planning Practice Guidance to schools and other services and in such a way that reduces the need to as too is the intended scope of such facilities can be achieved; travel and prioritises the movements assessments. In summary however of pedestrians and cyclists and other such assessments will generally be sustainable transport uses in order to required to demonstrate that: achieve safe and secure access for
131 • the delivery and movement of goods will need to be both convenient and and supplies is as efficient as possible safe, not only from a traffic point of (i.e. by rail) and that all reasonable view, but also through ensuring that efforts have been taken to reduce the neither a sense of fear is created nor potential nuisance caused by HGV crime encouraged through the isolating movements; and of the route from other activities and street users, especially at night. • opportunities to incorporate facilities for electric vehicle charging points have 6.12 The Council will continue to work with been considered. the Local Highway Authority to ensure that new estate roads and streets, 6.11 The Manual for Streets was produced particularly those designed using the by the Department for Transport Manual for Streets, are of a standard in 2007 and continues to provide that can be adopted. valuable guidance on how to achieve accessible and well designed streets 6.13 Whilst electric vehicle technology is and neighbourhoods. In order to ensure still in its infancy, there is a strong push a high quality living environment for from national Government to encourage residents, the Council will encourage the development of infrastructure to its use within development proposals. support its growth. The provision of In keeping with the Manual for electronic car chargers within car parks Streets, the Council will expect new is slowly growing within the City and development to integrate well with wider District. As such consideration existing development particularly should be afforded to increasing regarding cycle and pedestrian access electric charging provision wherever and connections. Foot and cycle paths appropriate and possible.
132 Policy IP 3 - Parking Provision Justification
Where appropriate, proposals for new development will be 6.14 National policy now makes clear that parking standards expected to provide a minimum number of parking spaces should be determined at the local level in response to per new dwelling/m2 of floor space depending on the local circumstances. The Council, working with the Local type and location, in consultation with the Local Highway Highway Authority, will produce a Supplementary Planning Authority and in accordance with any local standards in Document (SPD) to set minimum parking standards for the operation. District. A minimum requirement for parking as opposed to a maximum allowance is considered a logical response to In areas suffering from significant on-street parking problems, local circumstances and specifically an increase in on street greater provision will be sought where possible, or alternative parking. Experience supports that more spaces are needed measures to address the issues will be required. In all areas in new development, and new standards, depending on the the need to encourage the use of alternative means of travel, type, location and scale of development will reflect this. New other than the private car, shall be an important consideration development will be expected to be in line with the standards when applying parking standards. presented within the SPD once formally adopted. Provision for convenient and secure bicycle parking will 6.15 In the interim, standards will be decided on a case by case also be expected to be provided in line with standards. A basis, in consultation with the Local Highway Authority, minimum standard for disabled parking spaces within new ensuring that all new development provides adequate parking development will also be applied. provision. In doing so standards and therefore requirements Off and on street parking provision will be required to be will be informed by: well designed, safe and appropriate for the street scene. • the type, mix and use of the development; Proposed car parking provision that would have a significant • the accessibility of the development; adverse impact upon the character of an area will be resisted. • the availability of and the opportunities for public transport; The Council will expect developers to have regard to the • local car ownership levels; Manual for Streets when considering parking design. • the availability and number of parking permits within the locality; and
133 • an overall need to reduce the use of 6.18 Conversely it is acknowledged that there high-emission vehicles. is virtually no off-street parking provision in some parts of the City, such as on and 6.16 For commercial and leisure areas, it around Warwick Road, and this can result may be acceptable for different uses to in significant issues with inappropriate share parking space which can count on street parking. There are also parking towards meeting the required spaces problems on the Kingstown Industrial for both businesses, assuming it can Estate in the north of the City, where be adequately demonstrated that piecemeal take up of units has meant anticipated peak usage will occur at that insufficient parking spaces have different times of the day as to avoid been provided leading to congestion conflict. issues on the estate roads as people 6.17 There is an issue with increasing levels struggle to find a place to park. Beyond of on street parking in some residential the City, issues also arise due to a lack areas within the District and there of parking in the other larger settlement is therefore a need to look at more centres, particularly in Brampton where appropriate off street parking solutions. town centre spaces are used largely by When considering proposals, it must workers rather than visitors or shoppers, be noted that garages that are less with issues owing to commuter parking than 6m in length and 3m in width also known in Dalston and Longtown. are not considered large enough to A more flexible approach to parking comfortably accommodate the average standards in such areas may be required. modern family car and will not be counted as car parking spaces.
134 Policy IP 4 - Broadband Access Justification
New development must be able to demonstrate how it will 6.19 The expansion of high speed broadband across the District contribute to and be compatible with local fibre or internet will be supported, particularly in rural areas where there has connectivity. Applicants will be expected to demonstrate the been a market failure regarding the viability of providing high anticipated connectivity requirements of the development, speed and holistic connectivity. known nearby data networks and their anticipated speed, and 6.20 The Fibre to the Home Council Europe (FTTH) reported that realistic assessments of connection potential (fixed copper, in 2012/13 the UK had not yet achieved 1% household 3G, 4G, fibre, satellite, microwave, etc) or contribution to any coverage of superfast, fibre optic broadband (100Mbps), such networks. falling dramatically behind other European countries. All new development should aim to enable a connection to The Government has expressed its intention to invest in the internet with a minimum symmetrical speed of 10Mbps, broadband networks across the country, aiming to ensure aspiring towards 25Mbps where possible and viable. Where every household has access to at least 2Mbps and that 90% this cannot be achieved, proposals should still include, where of homes have access to at least 25Mbps by 2015. It is widely possible, suitable measures to enable a superfast broadband recognised however that speeds of at least 100Mbps will be connection at a future date. required to ensure the functionality of emerging workplace practices such as cloud computing. Applicants proposing major development schemes are encouraged to engage with local broadband groups and 6.21 Across the District current levels of broadband access vary Parish Councils, where present, to explore how superfast significantly. Parts of the City, in have access to fibre optic broadband can be provided to benefit the local community; cable broadband technically capable of speeds of up to and establish whether any community broadband projects are above 75Mbps. Rural parts of the District can have generally active within the local area; and understand how development much lower connection speeds, though this is improving as may contribute to and integrate with them. access to fibre broadband is rolled out across the County.
Within the City Centre, Brampton and Longtown proposals to expand the free public Wi-Fi network will be supported.
135 6.22 This Policy seeks to balance the should demonstrate the efforts taken to viability of new development with that ensure that their development is ready of ensuring the wider, long term viability to embrace superfast broadband once of the District from a socio-economic it is available by ensuring measures perspective in terms of access to such as ducting, capable of carrying superfast broadband. It also seeks fibre cables, is provided up to the to support community broadband public highway or any community led initiatives. Provision needs to be made broadband networks in the area. to ensure new development contributes 6.23 A free public Wi-Fi network is currently towards the Government’s target of being rolled out by the City Council 24Mbps to 95% of UK households across the City Centre and within by 2017. However, it would be remiss parts of Brampton and Longtown, not to consider the likely requirements for the benefit of residents, visitors of homes and businesses over the and businesses. Proposals to expand 15 years of this Plan and encourage these networks or to create similar new applicants to consider ways of allowing ones will be supported providing the for future upgrades to networks within necessary infrastructure is incorporated their plans. Applicants will be required into the street scene as subtly as to actively demonstrate that they have possible. considered broadband connectivity within their proposals and, where necessary, justify why a 10Mbps connection at the site could not be achieved. Where a 10Mbps connection is not currently possible, applicants
136 Policy IP 5 - Waste Minimisation and the Recycling of Waste Justification
6.24 The principles for sustainable waste management are clearly All new development should follow the principles of established at the national level. Similar principles are set out in sustainable waste management and must include details of the Cumbria Minerals and Waste Local Plan, which forms part facilities for the storage, collection and recycling of waste of the Development Plan for the District of Carlisle. Planning produced on-site for both during and after construction. On authorities should seek to reduce the amount of waste going to new housing estates of 20 or more new dwellings developers landfill. This means ensuring that every possible step has been will be encouraged to make provision for collective, taken by new development to ensure sustainable methods of accessible and secure waste and recycling areas that create waste disposal are encouraged and, on larger sites, required a single, sheltered point for waste storage and collection to through planning policy. serve a number of dwellings. 6.25 Carlisle City Council currently aims to have at least 50% of Developers will be expected to provide waste storage units all household waste disposed of sustainably either through for every new dwelling or unit within a new development, recycling or composting by 2020. The Council is well on track either as large euro-bins for collective waste areas or smaller to meeting this target with around 43.5% of all household wheelie bins for individual dwellings. These bins must meet waste in 2013/14 being recycled or composted. This figure has Council standards for quality, size, colour and design, and seen a significant increase in recent years with only 25.73% of must be in place before any dwelling is occupied. Where waste being recycled or composted in 2004/5. To ensure that necessary this requirement will be secured through the this trend is maintained all new development must be required imposition of planning conditions and/or planning obligations. to follow the principles of sustainable waste management.
6.26 Developers will be encouraged to set aside areas on new housing estates for collective waste storage in order to provide a single point for collection. This should make it easier for refuse collection services to work on an estate and also alleviate levels of disturbance to residents that may arise from refuse trucks travelling door to door. Collective waste
137 sites must be accessible to refuse to demonstrate that this has been trucks and must also be secure to considered within a design and access prevent fly tipping; sheltered from the statement. Where possible, waste elements to prevent pollution; and free storage areas should be discreetly from animal interference. Recycling located outside and afforded some provision should also, where possible, protection from the elements. When be provided alongside these collective considering how waste should be waste areas. located for collection, developers must ensure that kerbside placement is 6.27 Collective waste areas should be achievable. accessible and larger estates may require multiple sites. One euro- 6.29 Developers will be expected to provide bin should be provided for every 12 bins for each new dwelling or unit households using the storage area, within a new development. These bins, or every eight if recycling facilities are either euro-bins or smaller wheelie bins not available. Collective waste sites for individual dwellings, must meet should be within easy walking distance Council standards for design, quality, from any given front door on an estate colour and size. They must also bear and special arrangements will need to the Council’s logo to ensure they can be put in place to assist people with be immediately recognised by the mobility issues. refuse teams. It is recommended that developers order their bins through the 6.28 When considering how waste should Council’s waste services team. Bins be stored on a property where must be provided before dwellings/ collective waste points will not be units are occupied on site. available, developers must be able
138 Policy IP 6 - Foul Water Drainage on Development Sites Justification
Where there are concerns that inadequate foul water 6.30 Foul and surface water drainage are managed through two treatment and drainage infrastructure exists to serve a different systems and must be considered separately. Policy proposed development, or where such provision cannot be IP 6 sets out the expected approach with regard to foul water made within the time constraints of planning permission, drainage but should, where necessary, be read alongside it is the responsibility of the developer to demonstrate Policy CC 5 which relates to surface water management. how foul drainage from the site will be managed. In some Policy IP 6 requires applicants to ensure that the impact of circumstances, it may be necessary to co-ordinate the development on infrastructure has been considered in liaison delivery of development with the delivery of infrastructure. In with the statutory sewerage undertaker. certain circumstances, a new development will be required 6.31 United Utilities manage and monitor capacity within the waste to discharge foul water to the public sewerage system at an water treatment network. The Council relies on feedback from attenuated rate. them in order to ascertain whether sufficient capacity exists The first presumption will be for new development to drain within the network to accommodate new development or to the public sewerage system. Where alternative on-site where it may be necessary to co-ordinate development in line treatment systems are proposed, it is for the developer to with any upgrading work. This will be dependent on detailed demonstrate that connection to the public sewerage system proposals and developers are encouraged to speak to United is not possible in terms of cost and/or practicality and provide Utilities at the earliest opportunity. details of the responsibility and means of operation and 6.32 Specific issues that may arise within the waste water management of the system for its lifetime to ensure the risk to infrastructure network will also be picked up through the the environment is low. Infrastructure Delivery Plan. The Council will continue to work with United Utilities to ensure the impact of development on infrastructure is appropriately managed.
139 6.33 The quality of groundwater and surface waters and associated water- based recreation, fisheries and nature conservation must be protected against the risk of pollution from the inadequate provision of foul water sewerage and sewage treatment facilities. Development proposals which necessitate the use of septic tanks and sewage treatment package plants may, if not designed correctly or located appropriately, result in an increased risk of pollution to groundwater and surface waters. Such systems will only be permitted if it can be demonstrated that connection to the public foul water sewerage system is not feasible, taking into account cost and/or practicability, and where it can be demonstrated that they accord with environmental standards. The discharge from such systems will also need to comply with the Environmental Permitting Regulations.
140 Policy IP 7 - Carlisle Airport Justification
Within the boundary of Carlisle Airport, 6.34 There is a continuing requirement to support the development that is related to airport development of the Airport for aviation uses through activities will be acceptable. recognition of its role as a unique component of the District’s strategic transport infrastructure. National policy In addition, enabling development that makes clear that when planning for airports, plans should would facilitate the ongoing or further take account of their growth and role in serving business, operational development of the Airport, leisure, training and emergency service needs. and which would not compromise other elements of the Local Plan’s overarching 6.35 The extent of the boundary of the airport is defined on the spatial strategy, will be acceptable. Policies Map. Development proposals within the boundary Applicants will be required to provide which relate to Airport activities will be supported, subject clear evidence as to how any such to conformity with other polices within the Local Plan where enabling development will ensure the relevant. ongoing viable operations of the Airport 6.36 Enabling development that would facilitate the ongoing or for aviation. further development that is essential or conducive to the operation of the Airport, will be acceptable, subject to the clear provision of evidence to demonstrate how any such development is proportionate to and relates to the ongoing viable operations of the Airport. Proposals for enabling development must also demonstrate through reference to their scale and nature that the Local Plan’s overarching spatial strategy would not be compromised.
141 Policy IP 8 - Planning Obligations
Carlisle City Council will work with partners to identify and Where a developer seeks to depart from any planning deliver infrastructure, services and community facilities to obligations sought, it will be necessary for them to improve the sustainability of its communities. demonstrate that such contributions are nevertheless being maximised as far as it is viable to do so, and that ultimately In the first instance new development will be expected to the wider economic, social and environmental benefits to be provide infrastructure improvements which are directly realised from approving the proposal in the absence of such related to and necessary to make the development contributions outweigh the harm of doing so. acceptable. These will be identified through the development management process and secured through planning conditions and obligations.
The Infrastructure Delivery Plan (IDP) will, through consultation with relevant partners and infrastructure providers, assist in the identification of the infrastructure, services and facilities that new development may be required to contribute to within the life of the Plan. Such infrastructure could cover a wide range of economic, social and environmental provision.
If a Community Infrastructure Levy (CIL) is introduced by the Council, planning obligations will not be sought for infrastructure funded by CIL.
Certain forms of development, where prescribed by national policy and guidance, will be exempt from any tariff-style planning obligations.
142 Justification
6.37 There are a number of policies in the 6.38 The Carlisle IDP identifies known 6.40 In accordance with national policy Plan which aim to improve the local deficiencies in infrastructure provision and to ensure that the Plan remains environment for existing residents within the District, having regard to deliverable, it is recognised that the of the District and new occupants. planned and therefore cumulative use of planning obligations must not In order to ensure that any new levels of development, and also over burden developers or compromise development proposals are integrated a highlights what funding arrangements the viability of development proposals. number of measures will be considered. are required to address these. Where The Plan and the policy requirements Planning obligations are one way of there are gaps in funding, it is likely within have therefore been informed integrating new development into the that developer contributions will be through the Local Plan Viability Study surrounding environment especially needed to ensure infrastructure is and development proposals will be where development proposals may provided where and when it is needed. assessed in accordance with the tests have a direct impact on others. Given Planning obligations may be used, set out in paragraph 204 of the National the wide range of local issues which where appropriate, to secure such Planning Policy Framework. may arise, the City Council will consider contributions. setting out its priorities for planning 6.39 In the future the Council may seek obligations in a separate document. to adopt a CIL. The need for CIL will Notwithstanding this, it is recognised be informed through the IDP process that ultimately the scope of obligations and subject to a separate process will need to be considered on a site of preparation which would entail by site basis, informed through local consultation opportunities and a circumstances and the nature of separate examination. In accordance development proposed. with the regulations which govern the use of CIL, if introduced, the approach to the use of planning obligations alongside CIL will be clearly set out.
143 144 7 Climate Change and Flood Risk
Objective Context
To reduce emissions of greenhouse gases, including Carlisle City Council recognises that the planning system through securing energy from renewable sources, has a central role to play in ensuring the resilience of and avoid inappropriate development in areas at risk our communities into the future. It is therefore clear that of flooding in order to ensure that the District is more the policies contained within this chapter emphasise the resilient and less vulnerable to the effects of climate importance of protecting our natural environment whilst change and can successfully adapt to its effects. making the most effective use of our natural resources through renewable energy generation, energy efficient design and effective water management. Central to this is ensuring that the District is resilient to the effects of climate change.
145 Policy CC 1 - Renewable Energy
Proposals for renewable energy development will be supported 5. do not have an unacceptable effect on civil or military where they can demonstrate, through identifying and aviation and/or other defense related installations, thoroughly appraising any potential individual and cumulative including RAF Spadeadam and Eskdalemuir Seismic effects, that any associated impacts are or can be made Recording Station. acceptable. This presumption will apply where proposals: In addition to the criteria set out above, applications for 1. do not have an unacceptable impact on the location, wind energy development should accord with Policy CC 2. in relation to visual impact caused by the scale of In all cases proposals will be required to demonstrate that development, on the character and sensitivity of the appropriate operational requirements have or are capable immediate and wider landscape, townscape or heritage of being satisfied (including accessibility and suitability assets and their settings; of the road network, ability to connect to the grid and 2. do not have an unacceptable impact on local amenity and the proximity of any feedstock where relevant) and that can successfully mitigate against any noise, smell or other appropriate measures are put in place for the removal of nuisance or pollutants likely to affect nearby occupiers and structures and the restoration of sites should they become neighbouring land uses; non-operational.
3. ensure that any waste arising as a result of the development Where mitigation is required to make any identified impacts is minimised and dealt with using a suitable means of acceptable these will, where necessary, be secured through disposal; condition or planning obligations.
4. do not have an unacceptable effect on existing services such as highways infrastructure and telecommunications; and
146 Justification
7.1 The City Council recognises the energy however applications for this any one type of power generation, importance of protecting our natural type of renewable energy development therefore ensuring security of supply. environment whilst making the most which import off-site waste materials Additionally, the value of renewable effective use of our natural resources would come under the remit of Cumbria energy generation is recognised as through renewable energy generation. County Council as the Waste Planning a means of achieving a low-carbon Renewable energy is the collective Authority. economy. The Planning Policy term used for repeatedly occurring Guidance (PPG) includes a strong 7.2 The Government is committed to natural energy sources. These include message that local authorities should sourcing 15% of its total energy (across energy from wind, biomass, waste, promote and encourage, rather than the sectors of transport, electricity hydropower, solar, heat pumps, restrict, the development of renewable and heat) from renewable sources by woodfuel and others as technologies energy sources. 2020 alongside a UK carbon budget to develop. This criteria based Policy reduce emissions by 80% from 1990 7.3 The Cumbria Renewable Energy will be used to ensure that renewable levels by 2050. Renewable energy Capacity and Deployment Study energy development is sited in the sources can help to diversify energy (September 2011) considers a range of most appropriate locations, be that supply and reduce harmful emissions renewable energy sources, translating large scale or micro-renewable to the environment, however most potential into realistic deployable schemes (where planning permission forms of renewable energy require capacity up to 2030 in order for is required). Policy CC 2 ‘Energy specific environmental conditions and Cumbria to meet Government energy from Wind’ must also be satisfied therefore can only be developed where targets. It states that Cumbria needs to when considering applications for the the resource exists. The Overarching significantly increase its current level of development of wind energy. Certain National Policy Statement for Energy deployment (of all types of renewable combustible industrial, agricultural (EN-1) advises that a diverse mix of all energy) if it is to meet the target figure or domestic waste materials and types of power generation is beneficial considered deployable by 2030. anaerobic digestion plants are also so that we are not dependent on regarded as renewable sources of
147 The study looks at the overall potential and Toolkit 2011, or any successor 7.6 It is recognised that micro-renewables technical capacity from wind, biomass, documents, should be used to assist can make an important contribution energy from waste, hydropower, in identifying areas that are capable to renewable energy and carbon solar and heat pumps. Applicants of successfully integrating renewable reduction, especially in reducing should have regard to this and any energy developments. carbon emissions from both domestic future studies in the formulation of and commercial buildings. Micro- 7.5 The Council will seek to foster development proposals. renewables refers to installations community involvement in larger of less than 50Kw and includes 7.4 It should be noted that within Carlisle scale renewable energy projects, technologies such as solar panels and District there are a number of additional and recommends that developers of wood-fuelled heating. In some cases landscape and functional constraints renewable energy projects engage in due to scale and site constraints, that may limit renewable energy active consultation and discussion planning permission will be required for development in certain locations, with local communities at an early micro-renewable energy schemes, as including within the North Pennines and stage in the planning process. The such the criteria of this Policy will be Solway Coast Areas of Outstanding Council will also seek to consider, used to assess such applications. Natural Beauty (AONB), Hadrian’s where appropriate, the opportunity for Wall World Heritage Site and buffer developing renewable energy projects 7.7 Proposals for renewable energy zone, Carlisle Airport Safeguarding in association with new large-scale developments may inevitably have area, Eskdalemuir Seismic Recording developments, for example district some local environmental implications. safeguarding area and the Ministry heating networks. It will also positively Any significant adverse impact will of Defence (MOD) safeguarding support community-led initiatives for be weighed against the wider social, zone. Within sensitive landscapes renewable and low carbon energy economic and environmental benefits reference must be made to the relevant where they are in line with this Policy, including those of reducing emissions. Management Plan(s) when considering for example community-led anaerobic Some renewable energy projects may proposals which could have an impact digestion schemes. be subject to an Environmental Impact upon these designations. The Cumbria Assessment (EIA). This will be the Landscape Character Guidance case where a scheme is likely to have
148 significant environmental implications for the surrounding area during its development and/or operation. Further information on EIA can be found online in the PPG.
7.8 Proposals will be required to demonstrate that they have considered the environmental effects of the distribution lines between the development and the point of connection to the National Grid. Consideration should also be given to the environmental impact of access tracks where these are required to construct and maintain the proposed development, as well as the appropriateness of the local highway network to gain access to the site in these terms and for the purposes of restoration.
149 Policy CC 2 - Energy from Wind
Proposals for the development of wind 2. an unacceptable impact on local 4. a significant adverse impact on turbines will be supported where they amenity in relation to noise, amplitude the significance of heritage assets accord with national policy and guidance, modulation, shadow flicker, low including Hadrian’s Wall World and where it can be demonstrated, frequency sound or vibration. In the Heritage Site and conservation of its through identifying and thoroughly interests of residential amenity and Outstanding Universal Value, Scheduled appraising any potential individual and safety, turbines over 25m to blade Ancient Monuments, listed buildings, cumulative effects, that any associated tip will be required to be located a historic parks and gardens, battlefields, impacts are or can be made acceptable. minimum of 800m away from residential conservation areas or undesignated This presumption will apply where properties. It is recognised that in some heritage assets included in a local list proposals do not have; cases due to site-specific factors such including their settings; as orientation of views, landcover, other 1. an unacceptable impact on the 5. an unacceptable effect on existing structures and topography that it may location, in relation to visual impact services such as highways be appropriate to vary this threshold, caused by the scale of development, infrastructure and telecommunications; where it can be demonstrated through on the character and sensitivity of and evidence that there would nevertheless the immediate and wider surrounding be no unacceptable impacts on 6. an unacceptable effect on civil or landscape and townscape; residential amenity or safety; military aviation and/or other defence related installations, including RAF 3. an adverse effect on any nature Spadeadam and Eskdalemuir Seismic conservation features, biodiversity Recording Station. and geodiversity, including designated sites, or priority habitats and species;
150 Justification
7.9 The Local Plan has a duty to encourage 7.10 The Cumbria Renewable Energy The criteria listed above will also be the use of renewable energy sources Capacity and Deployment Study used as a basis for future identification as a means of reducing greenhouse (September 2011) considers a range of of suitable area(s) for wind energy gas emissions and providing positive renewable energy sources, translating development. resilience to the impacts of climate potential into realistic deployable In all cases proposals will be required change. The Climate Change Act (2008) capacity up to 2030 in order for to demonstrate that appropriate set legally binding carbon budgets for Cumbria to meet Government energy operational requirements have or are the UK which aim to reduce UK carbon targets. It states that Cumbria needs to capable of being satisfied (including dioxide emissions by 34% by 2020 significantly increase its current level of accessibility and suitability of the and, in line with European guidelines, at deployment (of all types of renewable road network, ability to connect to least 80% by 2050. The UK Renewable energy) if it is to meet the target figure the grid and the proximity of any Energy Strategy 2009 includes a considered deployable by 2030 and feedstock where relevant) and that national target to provide 15% of encourages the continued deployment appropriate measures are put in place electricity and heat from renewable of commercial wind as it provides the for the removal of structures and the and low carbon sources by 2020. cheapest option for energy generation restoration of sites should they become Accordingly the National Planning and gives the highest carbon savings. non-operational. Policy Framework (NPPF) requires Wind energy proved to be the largest local planning authorities to promote single resource in Cumbria with Carlisle Where mitigation is required to make and support the delivery of renewable having a significantly lower capacity any identified impacts acceptable and low carbon energy and associated than other Districts. In relation to these will, where necessary, be infrastructure in moving towards a low landscape capacity, the study identifies secured through condition or planning carbon economy. that Carlisle has 9% of the wind obligations. energy capacity for Cumbria. Despite this, Carlisle is identified as having
151 the highest potential capacity for demonstrate that they have addressed from known proposals in the planning accessible small scale resource ‘micro- the planning concerns of the local system, extant planning approvals renewables’, due to the urban nature of community and therefore have their or other existing renewable energy the District. backing. Using this evidence the developments within and adjacent Council will consider the extent to to Carlisle District, including across 7.11 In order to ensure that only appropriate which the applicant has addressed the border in Scotland. Such an development takes place, the Policy community concerns and make a approach is imperative in ensuring that sets a positive criteria based approach judgment of the community backing. the cumulative effects of proposed to encourage acceptable proposals developments are understood. to come forward to help meet 7.13 Until such time as the suitable areas are national renewable energy targets. identified in a subsequent development 7.15 Proposals for wind energy This approach sees each proposal plan document (on a district basis developments will almost always have determined on its merits, and will work or through collaboration with some local environmental implications. in conjunction with other local plan adjoining districts) or neighbourhood Any significant adverse impacts policies to ensure the maximum level development plan, proposals for wind will be weighed against the wider of resource is harnessed while ensuring energy development will be considered social, economic and environmental that any impacts are, or can be made against other local plan policies, benefits including those of reducing acceptable, reflecting both national together with national policy and emissions and greenhouse gasses. planning policy and local evidence. guidance. Some renewable energy projects may be subject to an EIA. This will be the 7.12 In addition to the criteria set out in 7.14 In identifying and considering the case where the scheme is likely to have Policy CC 2 wind energy development impacts of any proposal, such significant environmental implications will be required to follow national assessments will be required to also for the surrounding area during its policy and therefore, as appropriate, take into account the impact of any development and/or operation. Further it will be necessary to define suitable singular or cumulative development information on EIA can be found online areas for wind energy development. on the landscape and other matters in the PPG. Furthermore, applications should
152 7.16 Proposals for the development of wind study will therefore be used when area, Eskdalemuir Seismic Recording turbines will be expected to provide determining applications of this type. safeguarding area and the MOD supporting evidence proportionate safeguarding zone. Within sensitive 7.17 From a landscape perspective the to their scale and nature and the key landscapes reference must be made Cumbria Wind Energy SPD was issues they give rise to, including to the relevant Management Plan(s) adopted by the City Council in 2007 Landscape, Visual and Environmental when considering proposals which to help guide the siting and design of Assessments. In developing proposals could have an impact upon these turbines and to indicate the capacity of regard should be had to the Cumbria designations. each landscape character type within Wind Energy - Supplementary Planning Cumbria for wind energy. It reiterates 7.19 Within aviation or military installation Document (SPD); Cumbria Renewable that wind energy development can safeguarding areas, where proposals Energy Capacity and Deployment have wider landscape and visual effects may have an effect on and compromise Study (2011); the Cumbria Landscape than other forms of renewable energy their safe and effective operation, Character Guidance and Toolkit development. This SPD is therefore an assessment of potential effects (2011) and/or any related documents. used to guide development of this kind should be set out in an Environmental Additionally, the City Council have and will support the implementation of Statement (as outlined in EN1- worked with Cumbria County Council this Policy. Overarching National Policy Statement and other Cumbrian authorities to for Energy). Similarly it must be develop a Cumulative Impact of 7.18 It should be noted that within demonstrated that proposals would Vertical Infrastructure Study. This Carlisle District there are a number of not inhibit the safe operation of study is valuable in that It assesses additional landscape and functional existing services including highways the cumulative effect of a number constraints that may limit wind related and public rights of way nor impede of tall structures in the landscape developments in certain locations, telecommunications networks. (turbines, pylons, telecoms, masts including within the North Pennines etc) and assesses instances where it and Solway Coast AONBs, Hadrian’s 7.20 A key objective of the Policy is to is considered that the landscape has Wall World Heritage Site and buffer protect amenity and particularly reached the point of saturation. This zone, Carlisle Airport Safeguarding residential amenity and safety.
153 Whilst the PPG is clear that Local 7.21 Any impacts on the District’s 7.23 Where it is identified that a proposal Planning Authorities should not rule out biodiversity, geodiversity and would give rise to any significant otherwise acceptable renewable energy heritage assets will be considered adverse impacts, measures will developments through inflexible rules in the context of the relevant policy be required to be put forward to on buffer zones or separation distances, coverage set out elsewhere within demonstrate that such impacts can the inclusion of an 800m separation the Plan. The RSPB will be consulted be satisfactorily mitigated and that distant is considered entirely justified where development has the potential such measures can be appropriately within the District in response to the most to impact significant populations secured through the imposition of up to date evidence on these matters of sensitive bird species or their planning conditions or use of planning and importantly to ensure a consistent habitats. obligations. approach on this strategic cross boundary 7.22 Proposals will be required to 7.24 The Council will seek to foster issue particularly with the adjoining demonstrate that they have community involvement in wind Borough of Allerdale and Scotland. considered the environmental energy projects, and recommends Through recognition that the local context effects of the distribution lines that developers of renewable energy including factors such as topography, the between the development and the projects engage in active consultation local environment and near-by land uses point of connection to the National and discussion with local communities can influence the extent to which distance Grid. Consideration should also be at an early stage in the planning itself is likely to determine whether the given to the environmental impact process. The Council will also seek impact of a proposal is acceptable, of access tracks where these are to consider, where appropriate, the flexibility has been built in to permit required to construct and maintain the opportunity for developing community- a departure from the 800m threshold proposed development, as well as the led initiatives for wind energy schemes where it can be clearly demonstrated appropriateness of the local highway where they are in line with this Policy. that residential amenity and safety would network to gain access to the site in not be compromised. Such an approach these terms and for the purposes of accords entirely with that advocated by restoration. the PPG.
154 Policy CC 3 - Energy Conservation, Efficiency and Resilience Justification
New development should make the fullest contribution to 7.25 It is important to be clear that as well as planning to mitigate creating environments which enable carbon reduction and are and reduce the impacts of climate change, we must also resilient to the effects of climate change. recognise that some level of climate change is now unavoidable. There is therefore a need to start adapting to the predicted Development proposals must take into account the need for impacts we are likely to see in the future. The Council therefore energy conservation and efficiency in their design, layout and seeks to ensure the high quality of development proposals choice of materials. The principles should be introduced in and to promote energy efficiency and sustainable sources of the early stages of the design process in order to consider the energy supply. This Policy sets out a supportive framework orientation of buildings to maximise solar gain and introduce for delivering low and zero carbon energy infrastructure to options for alternative methods of heating. The efficient and demonstrate the Council’s commitment to supporting the effective use of land, including the reuse of existing buildings delivery of energy security and climate change initiatives. The and the use of environmentally sustainable and recycled Council is committed to ensuring that all new development materials is also expected within the design. maximises energy efficiency in its design and materials used, in Proposals which incorporate other micro-renewable sources line with the NPPF. of renewable energy like photovoltaic cells will be supported in 7.26 It is acknowledged that buildings, which are energy efficient accordance with other policies in the Plan. and hence cheaper to run, have enhanced market appeal. The Council will encourage all major developments to explore The layout, location and design of a development can have the potential for a District Heating Network or Decentralised a fundamental impact on energy efficiency. Higher density Energy Network. Proposals for renewable, low carbon or developments and south facing aspects can both help to decentralised energy schemes will be supported provided produce milder urban microclimates as well as maximising they do not result in unacceptable harm which cannot be natural light. Design should aim to maximise solar gain successfully mitigated. This includes support for community- (where appropriate) as well as natural ventilation, utilising led renewable energy schemes. appropriate materials, micro-renewables and increasing opportunities to recycle heat (through air/ground source heat
155 pumps) and rainwater. Energy efficient efficiency standards dealt with under housing also has health benefits Part L. Progress towards ‘zero carbon’ through providing warmer housing will be made through progressive in winter months. Development tightening of Building Regulations. should also consider the use of Changes to Building Regulations and micro-renewables in reducing carbon the move to zero-carbon buildings emissions from both domestic and will increase energy efficiency and commercial buildings. encourage greater use of decentralised and renewable energy. Development 7.27 Applicants should be able to proposals will be assessed against the demonstrate how they have attempted relevant Building Regulations prevailing to minimise energy use and heat loss at the time. The Council will support through careful and imaginative design, proposals which seek to build to a location and construction techniques. higher energy level than is currently The Council has produced a SPD on required by Building Regulations Energy Efficiency (March 2011) which through the aforementioned methods provides further detailed guidance on in order to further reduce carbon energy conservation for developers emissions. in the consideration of development proposals.
7.28 The NPPF recognises the important role of planning in supporting a move to a low carbon future. Building Regulations set the minimum standards for the design and construction of new buildings (and extensions) with energy
156 Policy CC 4 - Flood Risk and Development
The Council will seek to ensure that in Flood Zones 2 and 3; and where the capacity of the water supply, new development does not result in proposed development or a change of drainage and sewerage networks have unacceptable flood risk or drainage use to a more vulnerable class may be been considered in liaison with the problems. subject to other sources of flooding; to relevant statutory bodies for water and establish: wastewater, to establish the impact of Most new development should be located development on infrastructure; and in Flood Zone 1 and development within a) whether a proposed development is Flood Zones 2, 3a and 3b (with the likely to be affected by current or future g) that where flood defences exist the exception of water compatible uses and flooding from any source, taking into residual risk of flooding that remains key infrastructure (as defined in the PPG)) account the increased risk associated behind defences has been considered. will only be acceptable when they are with climate change; This should include reference to compliant with the NPPF and when the overtopping of defences in extreme b) whether it will increase flood risk sequential test and exception test where events and possible breach analysis elsewhere or interfere with flood flows; applicable have been satisfied. evidence. c) that no other lower risk alternative Development should: 2. take account of the Council’s Strategic site exists; 1. be supported by a Flood Risk Flood Risk Assessment (or the most up Assessment for all proposals of 1 d) whether appropriate mitigation to date flood risk information available) hectare or greater in Flood Zone 1 or measures are proposed to deal with along with any evidence from the Lead in an area within Flood Zone 1 which potential risks and effects; Local Flood Authority (Cumbria County has surface water concerns or is listed Council) and the Environment Agency. e) how access and egress can as an area of concern in the Lead reasonably be maintained at times of Where mitigation is required to make any Local Flood Authority local flood risk flood risk; identified impacts acceptable these will, management strategy; all proposals where necessary, be secured through for new development (including minor f) that adequate floodplain storage condition or planning obligations. development and changes of use) capacity can be provided and that
157 Justification
7.29 The Council recognises the risk that 7.30 The primary source of flood risk in 7.31 Within the District the floodplain areas flooding poses for parts of the District, Carlisle District is fluvial flooding (where of the Rivers Eden, Caldew, Esk, Lyne, including the potential for flood events flooding occurs in the floodplains Irthing and Petteril, and their tributaries, to occur more frequently as a result of of rivers when the capacity of rivers have remained largely undeveloped. climate change. The most significant is exceeded as a result of rainfall or Therefore future development will flood event in recent years occurred in snow and ice melts within catchment continue to be directed away from January 2005, when flooding affected areas further upstream). Carlisle City floodplains and wider flood risk approximately 2,700 residential is vulnerable from the River Eden, areas. Further information on the properties across the catchment of the River Petteril and the River Caldew, risk of flooding is available on the River Eden, with Carlisle City being both independently and, in wider flood Environment Agency’s website and is badly affected. As well as high flood risk events concurrently. Carlisle is also regularly updated. Flood risk at any in the urban area, there is also significant at risk of flooding from a number of specific location may be influenced by risk of flooding in the rural area. It main watercourses, namely Dow Beck, local factors such as existing formal is therefore important that planning Gosling Sike, Parham Beck and Wire or informal flood defences and the policies provide a framework to ensure Mire Beck. The main urban areas at capacity of existing drainage systems that flood risk to people, including their risk of flooding are: Denton Holme, or road/rail culverts. Flood defence health and property is not increased Willowholme, Carlisle City Centre, works have been completed within the as a result of development. This Policy Etterby Terrace, Rickerby, Warwick City along the Rivers Eden, Caldew aims to steer new development away Road and Harraby Green. There are also and Petteril and in the rural area from flood risk areas where possible, in parts of the rural area that are at risk, for along the River Eden at Crosby-on- line with the NPPF and associated PPG. example River Roe at Stockdalewath. Eden. Elsewhere there are maintained Where development is considered to be flood embankments at Low Crosby acceptable in these areas, opportunities and some privately owned flood to reduce the causes and impacts of embankments at Warwick Bridge. flooding will be taken.
158 7.32 Extensive areas of the District (both to provide solutions to the potential creating new wildlife habitats and urban and rural) are within Flood Zone negative effects of new development, amenity space. 3 (High Probability of Risk or Functional a site-specific flood risk assessment 7.35 In certain circumstances it is necessary Floodplain). The safeguarding of the (FRA) will be required. The FRA should for a Sequential Test to be undertaken floodplains is all the more important follow the guidance in the PPG and in order to steer new development to because of concerns about climate the Environment Agency and Lead areas with the lowest probability of change which may, in all probability, Local Flood Authority Standing flooding. Here, development should result in an increased frequency of Advice. Proposals for development not be allocated or permitted where severe weather events, increased in all areas should always seek to there are reasonably available sites winter rainfall and sea level rise which include permeable surfaces in order to that are appropriate for the proposed could affect the coastline and Solway reduce the potential impact of surface development in areas with a lower Firth estuary and main rivers. water run-off. Additionally, the natural probability of flooding. Where the environment and trees in particular can 7.33 New developments usually result in Sequential Test has been undertaken play a huge part in helping to absorb an increase in impermeable surfaces, but no suitable sites have been found in surface water run-off. The creation of including roofs and paving where they zones of lower probability of flooding, hedges, tree belts, landscaped and replace existing permeable surfaces. and there is an exceptional need for wooded areas helps soak up rainfall These changes can reduce percolation the development, the Exception Test and slow down water run-off. and increase volumes and rates of should be applied as outlined within the surface water run-off while decreasing 7.34 The outcome of a FRA may identify NPPF. Allocated sites within the Local the response time with the potential that mitigation will be required. The Plan have been sequentially tested and to either create or exacerbate flooding City Council will encourage the use of therefore a separate Sequential Test will problems elsewhere. Developments Sustainable Drainage Systems (SUDS) not be required. should be sustainable and use building as a means of reducing the overall methods that promote the use of flood risk, controlling pollution from permeable surfacing. However, in order urban run-off and, where possible,
159 7.36 A Strategic Flood Risk Assessment embankment, within eight metres of the 2009. A marine licence may be (SFRA) has been produced for the top of the bank or wall which confines required for activities involving a whole District with a Stage 2 SFRA the river. Additionally, when development deposit or removal of a substance carried out for those parts of the City takes place on land adjoining a main river or object below the mean high Centre that benefit from flood defences or ordinary watercourse it has become water springs mark or in any tidal in order to provide some indicative common practice for planning authorities river to the extent of the tidal breach modelling of the flood defences. to require the developer to leave a strip influence. Any works may also The City Council will discourage more of land, at least 5-8m wide, free from require consideration under The vulnerable development proposals development along one or both sides of Marine Works (Environmental in areas of close proximity to flood a watercourse, in order to provide access Impact Assessment) Regulations defences, where the risks would be for future maintenance and space for the 2007 (as amended), therefore highest during a breach or overtopping watercourse in flood. The Environment early consultation with the Marine flood event. The SFRA should be used Agency is responsible for providing Flood Management Organisation is during the preparation of FRAs in order Defence Consent for works in or near advised. to assess the risk of flooding to a site main rivers. Similarly, Cumbria County 7.38 When considering potential flood from all sources. There are restrictions Council as Lead Local Flood Authority risk associated with development, on development in close proximity (LLFA) is responsible for providing the Environment Agency’s flood to existing flood defences under the Ordinary Watercourse Flood Defence maps should be consulted to ensure Environment Agency’s Flood Defence Consent for works in or near ordinary that the most current information Byelaws. There is a requirement to designated watercourses. has been taken into account. obtain consent from the Environment 7.37 With regards to coastal areas, the Agency for development within eight Marine Management Organisation is metres of the foot of any artificial responsible for issuing marine licenses river embankment serving as a flood under the Marine and Costal Access Act protection barrier or, if there is no
160 Policy CC 5 - Surface Water Management and Sustainable Drainage Systems
Development proposals should The approach to surface water Where SUDS are incorporated, a prioritise the use of sustainable drainage should be based on evidence drainage strategy should be submitted drainage systems. Surface water of an assessment of site conditions detailing: should be managed at the source, and any surface water discharge a) the type of SUDS and/or measures not transferred; and discharged in the solution should reflect the non- proposed; following order of priority: statutory technical standards for b) hydraulic design details/calculations; sustainable drainage (March 2015) or 1. into the ground (infiltration at any subsequent replacement national c) pollution prevention and water quality source); standards. Measures intended to treatment measures together with 2. attenuated discharge to a surface assist with surface water management details of pollutant removal capacity water body; should be made clear as part of any as set out in the CIRIA SUDS Manual submission. C697 or equivalent and updated local or 3. attenuated discharge to surface national design guidance; and water sewer, highway drain or Where there is no alternative option another drainage system; and as but to discharge surface water to d) the proposed maintenance and last resort a combined sewer, applicants will management regime. need to demonstrate why there is no 4. attenuated discharge to a Drainage requirements including alternative and submit clear evidence combined sewer. detailed maintenance and management that the discharge of surface water arrangements for the lifetime of the will be limited to an attenuated rate, development will be secured by way including an allowance for climate of planning conditions and/or planning change, agreed with the appropriate obligations. bodies.
161 Justification
7.39 Surface water management is a key passively treat many pollutants and of medium and high permeability principle of sustainable development. help to prevent the settlement of soils. This will have an effect on the SUDS aim to reduce flooding by using contaminants such as dust, oil, litter appropriateness of SUDS techniques devices or a series of complementary and organic matter which otherwise employed. devices to control surface water run- tend to flow rapidly into the sewer 7.41 The use of SUDS should be considered off as near to its source as possible. system, by mimicking natural features at the earliest possible stage in the The Flood and Water Management Act that slow down the rate that water preparation of a design solution, 2010 defines a SUDS as: ‘a structure drains away thereby reducing the in conjunction with a landscaping for dealing with rainwater that is not a amount of surface run-off entering into scheme. Key considerations at this sewer or watercourse’. Development sewers. stage should be: increases impermeable surfaces 7.40 SUDS can also help to reduce the need which increase the risk of downstream • layout; for investment in flood management flooding. Underground piped systems and protection measures by mitigating • density; have focussed on the rapid removal any additional flood risk that new of surface water from sites to the • site access; development might generate. The receiving watercourse or sewer with Council’s SFRA advocates that SUDS • topography; little consideration to the downstream should be considered and given priority environment. SUDS seek to replicate • ground conditions; and for every new development site, in natural drainage flow patterns with line with the NPPF and associated • discharge destinations. retention of peak runoff and additional PPG. It provides advice relating to the flow volumes on site. This ensures that use of SUDS and has identified the the risk of flooding is not increased. permeability of the soil within Carlisle The natural processes which happen is mainly low with some small areas in many SUDS techniques trap and
162 7.42 Examples of SUDS techniques development without adding to the risk Policy. Applicants will be required include porous surfaces, filter drains of flooding or pollution. They will also to demonstrate that surface water and strips, trenches, ponds, wetland contribute to achieving improvements disposal will be controlled so that pre basins, soakaways, green roofs and to comply with the Water Framework and post development run-off rates swales or wide, shallow depressions. Directive. are at least equivalent. SUDS solutions will be appropriate 7.43 It is recommended that pre-application 7.45 A discharge to groundwater or on most types of development where discussions take place before watercourse may require the consent the area or impermeable surface is to submitting an application to the local of the Environment Agency or be increased, particularly in areas of planning authority. In the context of Cumbria County Council as LLFA. the District where culvert capacity and the Policy, the appropriate bodies are In accordance with national policy, floodplain constraint problems exist. Cumbria County Council as LLFA, the Council will work with the LLFA The City Council will also support Environment Agency and United seeking their advice on all major retrofitting of SUDS within existing Utilities. scheme designations consisting of developments to achieve integrated 9 houses of more on sites greater water management. SUDS can help 7.44 United Utilities will continue to work than 0.5ha, or locations where local to create enjoyable and high quality with landowners and developers to limit flooding affects land to be developed. environments which encourage the extent of surface water entering the Early pre planning discussions with the biodiversity and amenity, benefit water sewerage system as a result of new LLFA is strongly advised with regard to resources, reduce pressure on the development to most appropriately the risk of flooding from any proposed sewer network and help to mitigate the manage the impact of growth on development and the suitability of a negative impacts of climate change. infrastructure. Proposals should clearly more sustainable drainage approach They work effectively in both rural and demonstrate with evidence, how to the disposal of surface water. urban areas and help support new they have applied the surface water drainage hierarchy outlined in this
163 7.46 Standards for dealing with Sustainable Drainage are outlined within the non- statutory technical standards for sustainable drainage (March 2015) (or any subsequent replacement national standards). Reference should also be made to Cumbria County Council’s SUDS Requirements document when published.
164 8 Health, Education and Community
Objective Context
To create a thriving, successful The policies contained within the plan aim to facilitate social interaction and create and healthy community for all healthy, inclusive and sustainable communities by ensuring that they would not be by promoting cohesive mixed compromised as a result of new development. For example, through the Local Plan, communities and ensuring that new development will provide opportunities to: enable walking and cycling; create everyone can have a decent home, formal and informal community meeting spaces; sports facilities and green spaces; in a safe environment, with good provide local shops; reduce the fear of crime and support the development of access to health care, educational education and health facilities. Health and wellbeing is therefore an underlying theme provision and other community which will be considered when applications for any type of development are assessed. facilities by sustainable modes, The Council recognises the importance of protecting and enhancing the health and including walking and cycling. wellbeing of the District’s population and the benefits that are attainable from good design and development. This is further enhanced by Carlisle’s status as a World Health Organisation (WHO) Healthy City. A Healthy City is one that continually creates and improves its physical and social environments and expands the community resources that enable people to mutually support each other in performing all the functions of life and developing to their maximum potential. Since becoming a Healthy City in 2009, the Council has worked closely with partner organisations. It has gained from the Healthy City approach and network to improve the health and wellbeing of the District’s residents.
165 Policy CM 1 - Health Care Provision Justification
Proposals for the development of 8.1 In order to contribute towards the of new housing on a site allocated for health care facilities will be supported objective of enhancing health and residential purposes off Carlisle Road in where the scale and location of wellbeing, new development will be Brampton. the proposal is appropriate for the supported in line with this policy which 8.3 It is important that sites for the catchment it is intended to serve provides a framework against which provision of health care facilities are and is or can be made accessible by proposals will be assessed. accessible by public transport. Where walking, cycling and public transport. 8.2 In recent years, planning approval has there is not currently bus service Development at the Cumberland been granted for the development of provision existing routes may need to Infirmary for hospital, health care the North Carlisle Medical Centre in be amended, where it is possible to do and related ancillary uses will also be the Stanwix area of the City. The new so, to serve new developments in order supported. Non-health care related medical centre is also home to Carlisle to improve their accessibility. In such development at this location will be Partnership NHS Foundation Trust and cases those promoting new health supported on surplus land subject to includes provision for a pharmacy. This facilitates should engage with public the compliance with other relevant model may be replicated across the transport providers. policies within the Plan. plan period as public health services 8.4 It is acknowledged that over the continue to be reconfigured and the plan period there is likely to be a existing estate rationalised. In addition requirement for some redevelopment to this there has been an indication and reconfiguration at the Cumberland that a site for a replacement medical Infirmary. This may result in some centre will be required in Brampton land and/or buildings being identified over the course of the plan period. as surplus to current and future The opportunity has therefore been health care requirements. This policy taken to promote the delivery of such is supportive of development and a facility in tandem with the delivery
166 reconfiguration at the Cumberland Infirmary, particularly where this will enable the hospital to meet future health needs of the City and deliver improved facilities. Redevelopment of surplus land and/or buildings, identified through the process of an asset review, will be supported for alternative non-health care uses subject to compliance with other relevant policies within the Plan.
167 Policy CM 2 - Educational Needs Justification
Proposals for the development of new 8.5 This Policy aims to respond to the are also two privately run secondary educational facilities as well as for the need to ensure that there is sufficient schools in the District. Over the expansion, alteration and improvement choice of school places available to last few years, significant changes, of existing educational facilities will be meet the needs of existing and new investment and reorganisation have supported where they are well related to communities. There are currently 48 been made to the District’s secondary the catchment they will serve. Primary schools within the District, schools in pursuit of greater efficiency 18 are located within the urban area and higher educational attainment. Where there is a need for new educational with 30 located in the wider rural facilities outside of an existing site, the 8.7 Cumbria County Council, as the area. There are two additional schools location should be close to the intended responsible Education Authority, currently planned within the urban area catchment in order to minimise travel in line has highlighted the potential need in response to large scale housing with sustainable development principles. for more primary and secondary developments at Crindledyke and school places in different parts of the Specifically in relation to primary and Morton. Most rural primary schools District in order to keep pace with the secondary school provision, Carlisle are located within villages, however demand generated by new housing City Council will continue to work with there are a number located in the open developments. The process of the the Education Authority to identify what countryside which serve wide, yet Infrastructure Delivery Plan (IDP) will new demand will be generated from sparsely populated rural communities. continue to ensure that the need for development as well as helping to identify 8.6 In relation to secondary school additional school places is identified suitable new education sites should this provision, there are currently six in response to housing developments be required. secondary schools within the District. and that the necessary measures are To assist in the delivery of additional Four are located within the City itself put in place to ensure their timely school places, where required, to meet the with one school located in Brampton delivery. needs of development, contributions will and one in Dalston, both serving the be sought. wider rural area. In addition to this there
168 8.8 There are two options to overcome the issue of school capacity, either supporting the expansion of existing schools or securing the construction of an entirely new school to meet any need arising from significant levels of new development. Where housing developments or the cumulative impact of a number of housing developments in an area gives rise to the need for extensions, refurbishment and/ or remodelling to provide additional capacity (including nursery capacity, as appropriate) at existing schools, or the construction of a new school, the County Council will look to the landowner/developer or a consortium of landowners/developers to fund the cost of providing the additional capacity or additional school at the appropriate time, including the cost of acquiring additional land if necessary.
8.9 This Policy also applies to higher and further education provision in the District.
169 Policy CM 3 - Sustaining Community Facilities and Services 8.10 Planning has a social role to play in supporting strong, vibrant and healthy communities, by ensuring there are accessible local Proposals which involve the loss of valued community services that reflect the community’s needs and support its facilities such as shops, public houses and other facilities health, social and cultural wellbeing, by for example promoting of value to the local community will only be permitted the retention and development of local services and community where it can be demonstrated that: facilities such as local shops, meeting places, sports venues, 1. its current use is no longer viable or there is adequate cultural buildings, public houses and places of worship and alternative provision in the locality to serve the local guarding against their unnecessary loss, particularly where this community; would reduce the community’s ability to meet its day-to-day needs.
2. all options for their continuance have been fully 8.11 One of the major challenges facing communities, and which is explored, including any scope for alternative community often exacerbated in rural settlements, is their ability to retain local uses; and services and facilities which are essential for maintaining thriving and sustainable communities. This policy seeks to retain facilities 3. any asset listed on a Community Asset Register has and services of value to the local community through ensuring satisfied the requirements under this obligation. that their loss constitutes a valid material consideration in the determination of any development proposals affecting them.
Justification 8.12 Community facilities are important for delivering a valuable service and social focus for the local community both in rural villages and urban environments, particularly for those without access to private transport. Whilst it is often difficult to define ‘locality’ as this varies across the District, it is generally accepted as being where there is an identifiable local population that a service or facility serves. It is however recognised that in more sparsely populated rural areas this may be more difficult to define.
170 8.13 It will not always be possible to prevent social role for the local community The local authority then, in turn, has the closure of community facilities in providing multi-functional meeting to notify any interested parties. If local and services when it is uneconomic and recreation spaces. Where the groups are interested in buying the or unsustainable for their use to redevelopment of such sites, either in asset they have six months to prepare continue. Proposals involving their existing use or where their last use was a bid to buy it before the asset can loss will only however be permitted for such, is proposed, consideration be sold. This initiative is governed where the Council is satisfied that the should be given, where possible, to by separate regulations out with the existing use is no longer viable and, the incorporation or retention of valued planning process. where appropriate, there is no market provisions such as community meeting for the business as a going concern, space within the new development. or for any alternative community uses. 8.15 Operating alongside this policy is the Proof of advertising in these terms for Community Right to Bid. This right a reasonable period of time, usually not was introduced through the Localism less than six months, will be required to Act and gives community groups substantiate that this is the case. Such the right to prepare and bid to buy evidence should include for example, community buildings and facilities that a record of numbers of enquiries to are important to them including, for take over the facility/service, evidence example, shops, pubs and community of viability and proof that the property centres if made available for sale. The has been adequately marketed at an City Council maintains a Community appropriate value. Asset Register to hold all of these 8.14 It is recognised that some local facilities ‘assets of community value’. If an such as community centres, village owner of a listed asset wants to sell it halls and schools provide a valuable they have to notify the local authority.
171 Policy CM 4 - Planning Out Crime Justification
8.16 It is widely acknowledged that good New development should make a positive to the route to avoid presenting design plays a key role in creating safe contribution to creating safe and secure direct opportunities for concealment, and secure environments. This policy environments by integrating measures for unobserved access, or an excess of seeks to ensure that developments security and designing out opportunities routes that could aid escape; create environments where crime for crime. 4. effective lighting should be recognised and disorder, and the fear of crime, Proposals should be designed with the as essential to deterring criminal and do not undermine quality of life or following principles in mind in order to anti-social activity, but care should be community cohesion. Developers create secure environments which deter taken to avoid nuisance, annoyance should, at the earliest stage possible, crime: and unnecessary spill or pollution; and consult the Police Crime Prevention Design Advisor for advice on measures 1. developments should be laid out 5. careful consideration should be to be incorporated for designing out and buildings positioned with the afforded to landscaping schemes crime. Advice will be given based on intention of creating active and vibrant to ensure that they do not create current crime trends or particular crime neighbourhoods and maximising secluded areas, impede surveillance risk, in accordance with Secured by natural surveillance opportunities; opportunities, or position elements that Design principles. The Council will could be exploited as climbing aids. 2. public and private spaces should have also encourage applicants to apply to clearly defined boundaries, utilising Applicants will be expected (where Cumbria Constabulary for the Secured appropriate physical treatments and appropriate) to demonstrate how the by Design and/or the Park Mark Safer promoting the concept of defensible above principles have been adhered to. Parking Award(s), where appropriate. space; The deployment of CCTV (Closed Circuit 8.17 The planning system can be 3. footpaths and cycleways should be Television) may be considered necessary instrumental in producing environments designed to maximise legitimate use in certain circumstances. that are well managed, lively and and consideration should be given attractive, which discourage crime
172 and anti social behaviour, for example design and layout of developments. through overlooking and active This document provides advice to frontages. Developers will therefore applicants relating to incorporating be expected to adopt designs for safety and security measures into new development that take fully into developments and is used to assess account the security of property and and determine planning applications. people but which are also sensitive A further adopted SPD ‘Achieving to local circumstances. It is evident Well Designed Housing’ (April 2011) that insensitive approaches to crime focuses on the development of/within prevention can result in an increased residential areas and also emphasises fear and perception of crime by that designing out crime is a key creating environments which appear consideration at the concept stage of threatening and as such are avoided. any development. It seeks to promote Clearly therefore a careful balance safe and secure environments and to needs to be struck to successfully design spaces and networks which achieve the objective. minimise opportunities for crime or anti-social behaviour. 8.18 In 2009 the City Council adopted a supplementary planning document 8.19 Additional guidance on creating (SPD) entitled ‘Designing Out Crime’. successful spaces and achieving The SPD seeks to improve the safety good design is detailed within Manual and security of developments and for Streets and Manual for Streets aims to strike a balance between the 2 produced by the Department for need to reduce crime and creating a Transport or successor documents. high standard of appearance in the
173 Policy CM 5 - Environmental and Amenity Protection Justification
The Council will only support to human health or the environment, 8.20 Development that poses a risk to the development which would not lead to unless suitable mitigation and/or environment or human health will be an adverse impact on the environment remediation is or can be carried out to carefully considered in conjunction with or health or amenity of future or existing ensure safe development; the City Council’s Environmental Health occupiers. Development will not be team and any relevant external agencies. 4. it would be subject to unacceptable permitted where: New development for sensitive uses risk from existing hazardous (such as residential development) should 1. it would generate or result in exposure installations; and/or be located an appropriate distance away to, either during construction or on 5. proposals for new hazardous from existing operational uses with the completion, unacceptable levels installations (e.g. certain gases, liquids potential to generate unacceptable levels of pollution (from contaminated and explosive chemicals) pose an of noise, odour or pollutants. This will substances, odour, noise, dust, unacceptable risk to the health or ensure that new development would vibration, light and insects) which safety of users of the site, neighbouring not negatively prejudice either use. cannot be satisfactorily mitigated land and/or the environment. Unless potential risks can be removed in within the development proposal or by their entirety or successfully mitigated, means of compliance with planning Proposals may be required to submit development proposals which would conditions; detailed assessments in relation to any compromise the environment or human of the above criteria to the Council for 2. it would cause demonstrable harm to health will be resisted. approval. the quality, quantity and associated ecological features of groundwater and Where development is permitted surface waters or impact on human which may have an impact on such health; considerations, the Council will consider the use of conditions or planning 3. it is on contaminated or unstable land obligations to ensure any appropriate which would pose an unacceptable risk mitigation measures are secured.
174 Construction and Demolition Sites: be required and will be sought at the be well below the government’s health Noise, Dust and Light Management earliest possible stage of the planning based objectives. However, six Air process. By avoiding the location of Quality Management Areas (AQMAs) 8.21 It is essential to have effective noise noise sensitive uses near to noise- have been declared in Carlisle since and dust emission control measures producing premises, noise problems 2005 as a result of NO2 exceedances. in place for every activity carried can often be prevented. Where this is The declaration of these AQMAs out on site. In order to successfully not possible, noise controls will need placed a duty on Carlisle City Council control demolition and construction to be incorporated into new noise- to draw up an Air Quality Action Plan, activities, it is important to evaluate the producing developments and mitigation which details the local measures from risk from pollutants emitted from site. measures may be prudent for new which air quality improvements can be Applications for development proposals noise sensitive developments. realistically achieved. which, by virtue of the nature and/or scale are considered by the Council Air Quality 8.24 Developers must have regard to be likely to give rise to an adverse 8.23 The Environment Act 1995 established to the air quality implications of impact during construction, demolition the current framework for the National new developments. Large new and/or generate construction waste, Air Quality Strategy and placed developments may require the will be expected to be accompanied by statutory duties upon local authorities preparation of an Air Quality a Construction Management Method in respect of Local Air Quality Impact Assessment to accompany Statement. Management. Since 1996 Carlisle the planning application. Further City Council has been monitoring air information on when an Air Quality Planning and noise pollution levels and comparing the Assessment will be required and a 8.22 Effective land use planning can help results with the national air quality guide for developers is available on prevent or mitigate potential noise objectives. For the majority of key the City Council’s website. Developers impacts. Where noise may be an pollutants measured across the District must consider all aspects of the issue, a noise impact assessment will the concentrations have been found to development including emissions to
175 air and the increased traffic volume Insects Contaminated/Unstable Land that the development may generate. 8.26 Some forms of development may give 8.28 Within the District there are many Planning applications should include rise to a greater risk of insect nuisance. historic and current land uses that mitigation measures to offset the Where this is suspected, applicants have impacted or have the potential negative impacts. may need to demonstrate appropriate to impact the quality of the land and strategies are or will be put into effect result in land contamination or land Artificial Light to mitigate the risk, the implementation stability concerns. 8.25 There are three main types of light of which may be secured through the pollution: sky glow, glare and light 8.29 It is important to identify potential imposition of planning conditions. trespass. Intrusive light can adversely contamination and ground stability impact residential amenity as well Groundwater Quality problems at an early stage, since as causing road safety problems 8.27 The Environment Agency has statutory remediation of land contamination and harming wildlife. Applications responsibility for managing water or instability can incur significant involving significant external lighting resources and has developed a costs. It is strongly recommended such as floodlights for sports pitches strategy for the proper management that pre-application advice is sought or arenas must be accompanied by a and protection of the groundwater from the Council’s Environmental robust lighting report and strategies as resource (‘Underground, Under Health Department regarding potential part of their submission for planning Threat - The State of Groundwater contamination/stability issues. permission. Landscaping measures in England and Wales’). This (or any 8.30 The Coal Authority has defined such as mounding and planting may successor documents) will be used high risk areas, where the legacy in some situations help to protect as a guide to determine the suitability of past coalmining activity poses a residential amenity and reduce light of developments in relation to potential risk to land stability and spillage and glare. groundwater impact. The Environment new development. Most planning Agency has also established Source applications for non-householder Protection Zones for public water development within high risk areas will supply and other human consumption need to be accompanied by a Coal uses.
176 Mining Risk Assessment, prepared • any unacceptable risks identified can be Hazardous Substances by a competent person. Further adequately dealt with in order that the 8.34 Within the Plan area there are a number information on these requirements can completed development is suitable for of notifiable hazardous substance be found at: www.gov.uk/government/ its intended use and no unacceptable installations, including high pressure organisations/the-coal-authority risks remain either to human health or pipelines and major hazard sites. the wider environment; and Whilst these are subject to stringent 8.31 The requirement for a development to controls under existing health and safety be sustainable and viable also extends • any steps needed to deal with legislation it is considered prudent to to the remediation technology to be unacceptable risks are either already control the kinds of development in the applied. For some developments, the in place or can be secured through immediate vicinity of such installations, technology required may impact on the suitable planning conditions or or where proposed new development design of the proposed development. obligations. would result in an additional safety If potential land contamination/ 8.33 The assessment of potentially hazard. stability issues are not identified contaminated sites should be carried and an assessment of the risks not 8.35 Applicants should have regard to out through a phased process. Ongoing undertaken this may result in refusal of Planning Advice for Developments dialogue with the City Council at each permission. near Hazardous Installations (PADHI) phase is recommended to ensure which provides the Health and Safety 8.32 The Council must be satisfied that: that the work undertaken is sufficient Executive’s advice on land use planning and necessary. Where development • where there is information available near hazardous installations. The aim is proposed on a site known to be which suggests the possibility of of this is to manage population growth contaminated or has the potential to be contamination or land instability or close to such sites to mitigate the contaminated as a result of industrial of unacceptable risk, these concerns consequences of a major accident activity (e.g. gasworks, petrol stations, have been addressed within the should one occur. When determining filled ground, steelworks, railway land) supporting information submitted with applications for development around a preliminary risk assessment will be any application; major hazards the Council will consult required. with the Health and Safety Executive.
177 Policy CM 6 - Cemetery and Burial Grounds Provision Justification
8.36 This policy will enable the delivery of Proposals for the development of new cemetery or burial grounds cemetery grounds/burial grounds or the or extensions to existing sites will be assessed against the following extension of existing facilities across the criteria: District to meet identified future needs. 1. the site is in an appropriate location, away from flood risk and with A stand alone policy is considered suitable ground conditions; necessary given the specific nature of this land use. The policy sets out a 2. the use of the site and its operation is acceptable in terms of impact criteria based approach and highlights on adjoining uses; the key issues that will be required to be 3. the design approach, including the layout and any proposed satisfied. landscaping act to minimise any adverse impacts on the landscape and/or townscape; and
4. there is a clear rationale for the size of the site proposed, including all necessary ancillary elements.
178 9 Historic Environment
Objective Context
To conserve, enhance and promote Carlisle’s heritage Carlisle possesses a rich historic environment comprising of and important historic landscapes whilst ensuring that many assets which range from international through to local development proposals respect and enhance Carlisle’s significance. These assets are recognised as playing a key role historic assets. in reinforcing the District’s distinctive identity and sense of place, as well as underpinning a strong tourism offer, opportunities for education and the wider economy through job creation and environmental quality. The policies within this chapter build on the strategic direction at the outset of the Plan to promote and protect this finite heritage resource.
179 Policy HE 1 - Hadrian’s Wall World Heritage Site Justification
There is a presumption in favour of preserving the fabric, 9.1 A World Heritage Site (WHS) is a designated heritage asset of integrity and authenticity of archaeological sites that form part the highest significance. Accordingly such sites are afforded of the Outstanding Universal Value of Hadrian’s Wall World the strongest degree of protection through the planning Heritage Site. system. The overriding objective of the planning system in this regard is to ensure that the Outstanding Universal Value of New development will not normally be permitted on currently such sites is in no way undermined by development. open land on the line of the wall. 9.2 Hadrian’s Wall was designated a WHS by the United Nations New development within the Hadrian’s Wall World Heritage Educational, Scientific and Cultural Organisation (UNESCO) in Site and its buffer zone which enhances or better reveals its 1987 in recognition that it comprises the most complex and significance, or which accords with the approved Management best preserved of the frontiers of the Roman Empire. It also Plan will be supported. forms part of a wider WHS designation known as the ‘Frontiers Proposed development in the buffer zone should be assessed of the Roman Empire’. for its impact on the site’s Outstanding Universal Value and 9.3 The wall is an internationally known icon of the north of particularly on key views both into and out of it. Development England and a unique part of the District’s identity. It is that would result in substantial harm will be refused. valued by those who live and work in the area as part of Proposed development outside the boundaries of the buffer their geographic and social identity, and visitors to the area. zone will, where appropriate, be carefully assessed for its It has significant historical and archaeological value as well effect on the site’s Outstanding Universal Value, and any that as being important from recreation, social and economic would result in substantial harm will be refused. perspectives. The associated Hadrian’s Wall Path National Trail and the Hadrian’s Cycleway also provide significant access Where development proposals would result in less than opportunities for large numbers of cyclists and walkers. substantial harm to the site’s Outstanding Universal Value, this harm will need to be assessed against the public benefit by 9.4 The extent of the WHS designation is identified on the Policies way of reference to the above objectives. Map, as too are the extents of the site’s buffer zone.
180 9.5 There is a statutory requirement to have and work to a five Outstanding Universal Value of the Wall and its setting. A year rolling management plan for world heritage sites. The formal Environmental Impact Assessment (EIA) will be required current plan for Hadrian’s Wall covers the period 2015 - 2019 for significant developments affecting Hadrian’s Wall WHS and and provides an essential framework for the management its buffer zone. of the site to ensure its preservation for present and future generations.
9.6 The buffer zone for Hadrian’s Wall World Heritage Site was established in the 1996 Management Plan as a means of helping to protect the site’s Outstanding Universal Value. Within the City this buffer highlights areas where non- scheduled archaeological remains can be given focussed protection, which reflects that those parts of Hadrian’s Wall that are not scheduled are not formally included within the WHS designation. The buffer also serves to protect the visual setting of the site.
9.7 It must equally be recognised that in certain circumstances proposed development out with of the buffer zone may potentially impact on the WHS and its setting. In these circumstances any potential impacts will need to be understood and will weigh heavily in determining such proposals.
9.8 Development proposals (where appropriate) should be accompanied by an archaeological assessment and/or evaluation of the site to demonstrate the impact on the
181 Policy HE 2 - Scheduled Ancient Monuments and Justification Non-Designated Archaeological Assets 9.9 Scheduled and non-designated Development will not be permitted where it would cause substantial harm to archaeological assets are valuable as the significance of a scheduled monument, or other non-designated site or a resource for research, education, assets of archaeological interest, or their setting. leisure, tourism, and for their influence Proposals that affect non designated assets will be judged on the on perceptions of identity and sense significance of the assets and the scale of likely harm to establish whether of place. They are also a finite, the development is acceptable in principle. The preferred approach will be irreplaceable and fragile resource to seek to avoid damage to such remains through their preservation in-situ. and are vulnerable to a wide range of When in-situ preservation is not justified, the developer will be required human activities and natural processes. to make adequate provision for excavation and recording and analysis of 9.10 The Ancient Monuments and assets. Where possible and appropriate opportunities should also be taken Archaeological Areas Act 1979 makes to promote and interpret assets. provision for the designation of Where there is knowledge that there are archaeological remains, or where scheduled monuments. Once included there are reasonable grounds for the potential of unknown assets of in the schedule, a monument (together archaeological interest to be, proposals should be accompanied by an with land in or on which it is situated, assessment of the significance of the asset and how it will be affected by plus any land essential for its support the proposed development including where their significance, extent and and preservation) has legal protection. state of preservation is not clear. The level of information required will be 9.11 It is important to acknowledge that proportionate to the asset’s significance and to the scale of impact of the where a monument is not designated proposal, and may require, where necessary, archaeological desk-based as a scheduled monument, that this assessment and field evaluation. does not necessarily imply that it is not important. As such proposals affecting important but non-scheduled monuments will also be subject to the
182 provisions of this Policy, as too will 9.13 Works affecting a scheduled monument those affecting sites within the District will also require Scheduled Monument which are known to be of, or likely Consent (SMC) which is separate to be of, archaeological interest but from the statutory planning process. are not scheduled. This approach is However, the two processes may run in entirely in keeping with national policy. parallel when the granting of planning permission is required. Development 9.12 The overriding objective of the Policy affecting the setting of a scheduled is to ensure that both designated and monument is dealt with wholly under non-designated assets are preserved in the planning system and does not perpetuity. Where in-situ preservation require SMC. is not deemed to be appropriate, adequate provision for excavation and recording and analysis will be expected. This information will need to be made publicly accessible in the County’s Historic Environment Record and published appropriately if the results merit this. Where possible and appropriate opportunities should also be taken to implement interpretation schemes at or close to the site.
183 Policy HE 3 - Listed Buildings
Listed buildings and their settings will be preserved and Development within the locality of a listed building should enhanced. Any harm to the significance of a listed building preserve or enhance its character and setting, and be will only be justified where the public benefits of the proposal sympathetic in scale, character and materials. clearly outweighs the harm. The demolition or total loss of the significance of a listed Applications for works to listed buildings including alterations building will only be permitted in exceptional circumstances or extensions, changes of use, or new development within the where it can be clearly demonstrated that the tests set curtilage and/or its setting must have regard to: out in national policy can be met. Such proposals must also be accompanied by clear details of the proposed 1. the significance of the heritage asset, including its intrinsic redevelopment. architectural and historic interest and its contribution to the local distinctiveness and character of the District;
2. the setting of the asset and its contribution to the local scene;
3. the extent to which the proposed works would result in public benefits;
4. the present or future economic viability or function of the heritage asset; and
5. the preservation of the physical features of the building, in particular scale, proportions, character and detailing (both internally and externally) and of any windows and doorways.
184 Policy HE 4 - Historic Parks and Gardens Justification
Proposals that harm the significance of a designated park and 9.14 A listed building is a building or structure that has been placed garden or its setting will not be permitted. on the Statutory List of Buildings of Special Architectural or Historic Interest. Inclusion on the list reflects that the Proposals affecting a historic park and garden or its setting importance of these assets are of national significance. should ensure that development does not detract from the Accordingly, the City Council will give careful consideration enjoyment, layout, design character or appearance of that to development proposals which affect a listed building or its landscape, cause harm to key views from or towards these setting. The overriding objective of doing so is to ensure that landscapes or, where appropriate, prejudice their future the character and setting of listed buildings is preserved. restoration. 9.15 The setting of a listed building will vary greatly and often Opportunities for their conservation and enhancement will be extends well beyond the building’s own curtilage to encompass supported. a number of other properties and public space. Occasionally the setting may incorporate extensive areas of townscape and landscape. In urban areas it should be noted that the setting Policy HE 5 - Historic Battlefields of listed buildings often owes its importance to the harmony produced by a particular grouping of buildings, and to the Proposals affecting the Registered Historic Battlefield of quality of spaces between them. the Battle of the Solway Moss will not be permitted where it adversely affects its significance including the historic, 9.16 Development proposals affecting listed buildings will be archaeological or landscape interest of the site including required to demonstrate an understanding of their significance potential for interpretation. Any opportunities for and show how proposals will minimise any adverse impacts on interpretation will be supported. the asset and its setting. This should be set out in the form of a Heritage Statement to support any application for planning or listed building consent.
185 9.17 Listed buildings in keeping with other 9.18 The District contains several parks heritage assets are an irreplaceable and gardens of visual and/or historic resource which should be conserved interest. These include the grounds in a manner appropriate to their of Corby Castle, which are listed in significance. The destruction of historic Historic England’s Register of Parks buildings is very seldom necessary and Gardens of Special Historic for reasons of ‘good planning’, and Interest. Historic England also hold is more often the result of neglect, or a Register of Historic Battlefields of of failure to make imaginative efforts Special Historic Interest which includes to find new uses for such buildings an area of land within the District, or to incorporate them into new close to the settlement of Longtown, development. Accordingly permission identified as being the site of the Battle will not be given for development of the Solway Moss. The significance proposals involving the demolition of these assets will be protected and of a listed building without clear and unless development proposals affecting convincing evidence that all reasonable them and their settings are consistent efforts have been made to sustain with the preservation or enhancement existing uses or find viable new uses, of their character, historical significance in accordance with the tests set out and appearance they will not be in national policy regarding the loss permitted. of heritage assets. In addition any proposed redevelopment must be able to demonstrate that substantial public benefits would clearly outweigh the loss resulting from demolition.
186 Policy HE 6 - Locally Important Heritage Assets
Throughout Carlisle District there are a number of buildings Only in exceptional circumstances will the loss of a locally and structures of historic and architectural significance listed asset be permitted. Where this is the case the that, whilst not statutorily protected, help create the locally following may be required: distinctive character of the area. The Council recognises the 1. an appropriate level of survey and recording which may positive contribution these structures make to streetscape also include archaeological excavation; and/or landscape and will therefore designate such assets through the Local List to strengthen the presumption in favour 2. provision of replacement buildings of comparable quality of their retention when considering development proposals. and design; and
Development which would remove, harm or undermine the 3. the salvage and reuse within the replacement significance of a locally listed asset, or its contribution to the development of special features. character of the area, will only be permitted where robust evidence can demonstrate that the public benefits of the development would clearly outweigh the harm.
A number of buildings on the Local List have also been included on the basis that together, and sometimes alongside statutory listed heritage assets, they make a particularly strong and positive contribution to the ‘townscape’ character of an area. These ‘key townscape frontages’ are identified on the Policies Map. Development proposals which would erode the significance of these frontages will be resisted.
187 Justification
9.19 Across the District there can be List will continue to be added to and pressure for redevelopment potentially monitored against assessment criteria resulting in the loss of unlisted guided by Historic England’s Good structures that whilst not of national Practice Guide for Local Listings, to importance (and therefore not ensure a consistent approach is applied eligible for inclusion on the statutory in the identification and management register of listed buildings) may of Carlisle’s local heritage assets of be of local heritage or townscape significance. The most up to date list significance. This reflects that many will be published on the Council’s of these structures make an important website. contribution to the streetscape and/or 9.21 A number of locally listed heritage landscape of a particular area, or that assets have been listed on the basis of they are of local historic or architectural their collective value as part of a ‘key interest. townscape frontage’. These frontages 9.20 The Council is committed to are identified on the Policies Map. maintaining a list of such assets which 9.22 There will be a presumption against is to be known as the list of locally development proposals which would important heritage assets or the ‘Local result in substantial harm or the loss of List’. The list will recognise those any assets included on the Local List, structures which play an essential role or which erode the significance of key in protecting and reinforcing a sense townscape frontages. of local character, distinctiveness and identity, or which have significant local historic connections. The Local
188 Policy HE 7 - Conservation Areas
Any new development and/or alterations and setting of the conservation area, Proposals to utilise vacant land for to buildings in conservation areas important open spaces or significant car parking for interim or longer term should preserve or enhance the special views into, out of and within the area; use within conservation areas, will character and appearance of the be resisted except in exceptional 4. not, other than as a last resort, result in conservation area and its setting. circumstances. demolition and redevelopment behind Specifically proposals should: retained facades; Development which would result in harm to a public or private open space that 1. seek to harmonise with their 5. wherever practicable, draw on a local contributes positively to the character surroundings and be sympathetic to pallet of materials to reinforce the of a conservation area will be permitted the setting, scale, density and physical distinctiveness of an area; only where this harm is outweighed by characteristics of the conservation 6. retain individual features of interest e.g. the public benefits of the proposals. area; doorways, windows, shopfronts, garden There will be a presumption in favour of 2. preserve or enhance features which walls, railings, cobbled or flagged the retention of buildings and/or features contribute positively to the area’s forecourts, sandstone kerbs, trees and which make a positive contribution to character or appearance, in particular hedges etc. Where this is not possible or the special character and appearance the design, massing and height of practical any replacement should match of a conservation area. Demolition or the building should closely relate to the original; and other substantial loss of these assets adjacent buildings and should not 7. not generate a significant increase in will only be permitted where it can be have an unacceptable impact on the traffic movements, heavy vehicles or clearly demonstrated that the tests set townscape or landscape; excessive parking demands where these out in national policy can be met. Such 3. not have an unacceptable impact would be prejudicial to the character of proposals must also be accompanied on the historic street patterns/ the conservation area. by clear details of the proposed boundaries, roofscape, skyline redevelopment.
189 Justification
9.23 Carlisle City and parts of the wider A series of management plans for each 9.26 Planning permission for redevelopment District have evolved organically over conservation area will also, as far as proposals involving the demolition of centuries to become areas of special resources allow, be prepared setting out an unlisted building in a conservation architectural and historic interest. the way in which development pressure area will only be given if such This is reflected in many of the rural and neglect will be managed to ensure proposals accord with the tests set out settlements and parts of the urban the specific character of each area is in national policy relating to the loss area being designated as conservation maintained. of heritage assets and furthermore are areas. in detail. This latter requirement seeks 9.25 There are many opportunities for the to avoid the situation of derelict gap 9.24 The Council will continue to enhancement of conservation areas sites appearing in conservation areas review existing and designate new and these should be taken wherever in advance of development proposals conservation areas to ensure that possible. For example, the repair and being drawn up. the areas continue to justify their refurbishment of buildings, revitalising conservation area status through vacant and underused buildings, or their special architectural and historic the carrying out of tree planting and interest thus ensuring the concept paving works and other public realm of conservation is not devalued improvements. Development proposals through the inclusion of areas lacking in conservation areas should be of high special merit. In order to promote the design quality and should be developed enhancement of conservation areas the to complement and enhance their City Council will carry out appraisals context. for each area, highlighting its special characteristics as well as any existing problems and make suggestions regarding their solution.
190 10 Green Infrastructure
Objective Context
To protect, enhance and increase Green infrastructure is a broad concept The aim of the policy framework is to the provision of the green and that put simply refers to the District’s protect and enhance green infrastructure blue infrastructure across the collective network of green spaces and assets and the functions they perform, District to create and maintain environmental features. Coverage ranges ultimately for the sake of their own natural multifunctional, interconnected from individual components such as street value, but also through recognition of the and attractive recreational and trees through to strategically planned parks many wider social and economic benefits ecological networks for the benefit and open spaces and even the rolling, they perform, including: the opportunities of residents, businesses, visitors open landscapes of the rural area. they present for positively improving the and the wider natural environment. health and wellbeing of the population; The policies in this chapter aim to deliver for sustainable travel; for mitigating and the objectives of the Carlisle Green adapting to climate change and for their Infrastructure Strategy: The Big Green amenity value. Furthermore the framework City, which recognises the fundamental seeks to secure qualitative improvements role green infrastructure and the natural and to connect areas of fragmentation in environment play in creating an identity order to create a continuous right of way for the District and their contribution to network and integrated ecological system creating a successful place where people throughout the District and beyond. want to live and work.
191 Policy GI 1 - Landscapes Justification
All landscapes are valued for their intrinsic character and 10.1 The District is characterised by high quality and diverse will be protected from excessive, harmful or inappropriate landscapes from the remote upland moors and forests in and development, particularly those areas less able to around Bewcastle, which offer some of the most intrinsically accommodate significant change. Where the opportunity dark skies in Europe, to the lowland river valleys and farmland arises, measures should be taken to enhance or restore around Carlisle, all of which are valued and worthy of some valued landscapes. degree of protection and enhancement. There are also two Areas of Outstanding Natural Beauty (AONB) within the District, Proposals for development will be assessed against the the Solway Coast AONB and the North Pennines AONB. criteria presented within the Cumbria Landscape Character Guidance and Toolkit (or successor documents) with 10.2 In 2011, Cumbria County Council, in association with the regard to a particular Landscape Character Area’s key Cumbrian district planning authorities, produced a Landscape characteristics, local distinctiveness and capacity for change. Character Guidance and Toolkit for the whole of Cumbria. This The relevant landscape features described within the toolkit toolkit provides decision makers with a means to assess the should be reflected in the detailed design of individual sites. impacts of a development on any of the different landscape character areas found across Cumbria. The core principle Landscapes valued for their intrinsically dark skies, such as is that all landscapes matter, not just those that form part the area around Kershope Forest in the rural north-east of the of national designations. Every landscape character area is District, will be protected from the adverse impact of artificial important and, whilst some may be more sensitive to change light pollution. than others, the planning process should seek to protect all landscapes from harmful development. It is important to note, however, that this does not mean that development which incurs changes to landscapes should be resisted; rather that new development should be appropriate to its surroundings and be suitably accommodated within the landscape.
192 10.3 The Policy also seeks to limit the impact of light pollution from artificial light on intrinsically dark landscapes. Northumberland National Park and Kielder Water & Forest Park have been designated a Gold Tier Dark Sky Park, one of the largest in Europe. As Carlisle District bounds these areas, it is important that planning policy preserves the dark sky status on the periphery of the park. Whilst every effort to reduce light pollution should be made across the District, particular care should be taken in the areas north of Gilsland up and around Kershope Forest and Bewcastle. Under no circumstances should lights that beam light upwards or which would allow excess light to seep into the night sky be permitted in these areas.
193 Policy GI 2 - Areas of Outstanding Natural Beauty Justification
Development proposals within the North Pennines or Solway 10.4 AONBs are designated under the Countryside and Rights Coast AONBs must conserve and enhance the natural of Way (CROW) Act (2000). They are designated in order to beauty of the areas. Natural beauty includes landform and conserve and enhance an area’s natural beauty (which includes geology, plants and animals, landscape features and the landform and geology, plants and animals, landscape features, history of human settlement. Development in the AONBs and the rich history of human settlement over the centuries). will be expected to protect the special characteristics and The CROW Act also introduces the duty of local authorities to landscape quality of the areas and ensure that: prepare management plans for AONBs within their boundaries.
1. the scale, siting and design of the proposal is appropriate 10.5 Whilst aiming to ensure that development conserves and to the landscape setting; and enhances the natural beauty of the AONBs, account should be taken of the needs of agriculture, forestry, other rural industries 2. existing landscape features are incorporated in a way and of the economic and social needs of local communities. which preserves or enhances the character of the area Promoting recreation is not an objective of AONB designation. and, where appropriate, mitigates the effects of the However, the demand for recreation can be met so far as this development. is consistent with the conservation of natural beauty and the Development in both AONBs must ensure that it is in needs of agriculture, forestry and other uses. accordance with the objectives of the AONB Management 10.6 There are two AONBs in the District; The Solway Coast and Plans. Proposals within the Solway Coast AONB will the North Pennines. Both AONBs have adopted and up to date be expected to have regard to the Solway Coast AONB Management Plans. Proposals for development that are in line Landscape Character Assessment. with or actively working towards delivering the objectives and Planning permission will only be given for major outcomes of the Solway Coast and North Pennines AONB development in exceptional circumstances and where it Management Plans will be considered favourably. A Landscape can be demonstrated to be in the public interest. Such Character Assessment has been carried out for the Solway developments will be considered against national policy. Coast AONB, which should be used when assessing the potential landscape impact of a scheme. The core principle of
194 this document is that all landscapes 10.8 Protection of the landscape and within the AONB are important and, scenic beauty of AONBs is given great whilst some may be more sensitive weight when considering development to change than others, the planning proposals in these areas. Only in process should seek to protect all exceptional circumstances should landscapes within the AONB from major development be approved within harmful development. It is important to an AONB and only when it can be note, however, that this does not mean demonstrated that the development is that development which incurs changes in the public or national interest. to landscapes should be resisted; rather that new development should be appropriate to its surroundings and be suitably accommodated within the landscape.
10.7 Two adopted Supplementary Planning Documents (SPDs) provide detailed planning policy guidance within the North Pennines AONB (Planning Guidelines SPD and the AONB Building Design Guide). Appropriate development, in line with the aims and guidance in these documents, will be supported.
195 Policy GI 3 - Biodoversity & Geodiversity
Biodiversity assets across the District 2. proposals where the primary objective is Internationally Designated Sites: will be protected and, where possible, to conserve or enhance biodiversity will internationally designated sites identified enhanced. All proposals for development be approved; under the Natura 2000 network (European should protect and (where possible) Sites) which consist of Special Areas of 3. the incorporation and integration of enhance any priority habitats, European Conservation (SAC), Special Protection wildlife corridors and other habitats and nationally protected species, Areas (SPA) and Ramsar Sites will be in and around development sites will and priority species as defined in the afforded the highest levels of protection, be required, wherever the opportunity England, Natural Environment and Rural as they are of exceptional importance in arises; Communities Act (2006). Development respect of rare, endangered or vulnerable proposals should also maintain and 4. species appropriate provision will natural habitats and species. (where appropriate) enhance any be sought on development sites to Development which is likely to have a recognised geodiversity assets identified encourage an increase in biodiversity significant effect on the integrity of such in the Local Geodiversity Action Plan for and; sites, and is not directly connected with Cumbria which may be affected by the 5. development which would result in the or necessary to the management of the development. loss or deterioration of irreplaceable site will be resisted unless an overriding When considering planning applications habitats, including ancient woodland and public interest can be demonstrated and and the need to conserve and enhance the loss of aged or veteran trees found no alternative solutions are available and biodiversity, the following principles outside ancient woodland will be refused necessary compensatory measures are apply: unless the need for, and the benefits of, taken to ensure that the overall coherence the development in that location clearly of Natura 2000 is protected. Proposals 1. permission for development will be outweigh the loss. which may have an impact upon a Natura refused if significant harm resulting 2000 site must be accompanied by a from development cannot be avoided, Habitats Regulation Assessment (HRA). adequately mitigated or, as a last resort, compensated for;
196 Where the HRA identifies the need for an from development which would result in the Appropriate Assessment, the presumption loss or deterioration of the site, unless the in favour of sustainable development will need for, and benefits of, the development not apply. in that location clearly outweigh the loss.
Nationally Designated Sites: any proposal Species and habitats surveys should be which is likely to have an adverse effect provided where the potential to impact on the special interest features of a Site upon bio or geodiversity exists. Species Of Special Scientific Interest (SSSI) will and habitats surveys must be carried out at only be permitted where the benefits of an appropriate time of year by a qualified the development clearly outweigh both ecologist. the impacts that the development is likely Mitigation: Where the need for mitigation to have on the special interest features of or compensatory measures has been the site, and any broader impacts on the identified this will be secured, through national network of SSSIs. appropriate habitat creation, restoration Locally Designated Sites: local wildlife or enhancement on site or elsewhere, designations such as County Wildlife via planning conditions, agreements or Sites, Local Nature Reserves and Ancient obligations. Woodlands, as well as Regionally Important Geological/Geomorphological Sites (RIGGS) and other, locally important and irreplaceable habitats including lowland raised mires, lowland valley mires and ancient meadow sites will be protected
197 Justification
10.9 The Plan aims to promote the 10.11 Any development likely to have a Key and endangered species present within preservation, restoration and re- significant adverse effect on sites Carlisle include: creation of priority habitats, ecological protected under the Birds and • bats (all species); networks and the recovery of priority Habitats Directives would not be • red squirrel; species populations. The protection of sustainable under the terms of the • water vole; geological conservation interests will presumption in favour of sustainable • hen harrier; also be considered in response to new development. If development is • reptiles (all native species); development proposals. It is the duty proposed on an internationally • otter; of both the local planning authority protected site, consent may only be • barn owl; and the potential developer/landowner granted if no suitable, less harmful • pink-footed geese; alike to ensure every effort is taken to alternative sites or solutions are • barnacle geese; protect and enhance biodiversity as available and an over-riding need, • whooper swan; part of new development. as defined in Regulation 62 (2) of • song thrush; and the 2010 Habitats Regulations (as 10.10 This Policy sets out a clear hierarchy • great crested newt. amended), can be demonstrated. for the protection of important wildlife 10.13 It is a criminal offence to harm or and nature conservation designations, 10.12 The Cumbria Biodiversity Data Centre disturb protected species, including which have also been identified on the has drawn up a list of key species and the destruction of nests, roosts and Policies Map. It should be recognised habitats for the county, detailing how dens. As such, the protection of these that many of these designations do they should be protected, preserved species should be given a high priority not stop at the District’s boundary. and enhanced. within planning policy. Further to this, Biodiversity should be planned for principal species as listed in Section at a landscape-scale, across local 41 of the England NERC Act (2006) authority boundaries, through cross- will also be strictly protected. working initiatives with neighbouring authorities and other key stakeholders.
198 10.14 The extent of important habitats 10.15 There are also two Local Nature across the District has been mapped Partnerships (LNPs) currently by the Cumbria Biodiversity Data operating within the plan area that Centre (CBDC) team based at have been established to provide Tullie House Museum. Key habitat local support and expertise on natural is important to protecting and environment issues. The Council will enhancing biodiversity, and can be continue to engage with both the important to animal species beyond Cumbria and the Northern Upland the key protected species listed Chain LNPs and will actively consult above. Its loss should be prevented. with them on planning applications Where resources allow the Council involving biodiversity and geodiversity may, in consultation with Natural issues. England, the CBDC and other relevant stakeholders, identify sites of significant biodiversity value or for the restoration and/or creation of new habitat to assist in revitalising key species within the District. Such sites will be protected from inappropriate development. Applicants are encouraged to access data from the CBDC to inform their planning application and/or any ecological surveys they are required to produce.
199 Policy GI 4 - Open Space
Development affecting Open Space 5. statutory obligations have been fulfilled if it is proposed to Within areas of Open Space, proposals that relate to and dispose of statutory open space (such as statutory allotment complement the existing leisure use, or would be ancillary land). to it (such as changing rooms for sports pitches), and are Open Space within new development appropriate in character and scale to the surroundings, will New housing developments of more than 20 dwellings will generally be acceptable. Development that would result in a be required to include informal space for play and general partial or total loss of, an area of Open Space to non-sport or recreational or amenity use on site according to the size recreation uses, or would otherwise detract from the role and of the proposal. The developer will be required to ensure function an open space is valued for (be it visual amenity, noise that appropriate measures are put in place for the future attenuation, or other community use), will not be permitted management and maintenance of such spaces. On smaller unless: housing sites, where on site provision is not appropriate the 1. an up-to-date needs assessment has been completed developer may be required to make commuted payments and clearly shows a surplus of open spaces within a given towards the upgrading of open space provision in the locality, locality; especially if a deficit has been identified.
2. it can be demonstrated that alternative provision of the same All new dwellings should have safe and convenient access or greater size, quality and accessibility will be provided to high quality open space, capable of meeting a range nearby; of recreational needs. Where deficits are identified, new development will be expected to contribute towards the 3. development of a small part of the area of open space would upgrading of an existing open space to improve its accessibility enable investment to improve the quality of the rest of the or the creation of a new one within the immediate locality. site; Standards for open space provision will be informed by an 4. there is a strong and justifiable social or economic need for assessment of need and demand for the various types of open development and the open space is otherwise of low quality space, ensuring there is an adequate supply of accessible and has little community value; or
200 Justification and high quality spaces across 10.16 In line with national policy, existing open Data regarding the need and demand the District. The Council’s space, sports and recreational buildings for sports pitches and grounds is set Playing Pitch Strategy (2013) and land, including playing fields, should out in the Playing Pitch Strategy (May (or successor documents) will not be built on unless: 2013). Further work will be carried out be used to inform decisions for to assess the need and demand for • an assessment has been undertaken proposals involving or impacting other types of open space. Such an which has clearly shown the open upon sports pitches. assessment will identify areas of both space, buildings or land to be surplus to surpluses and deficits in open space requirements; or provision, and will also attempt to • the loss resulting from the proposed anticipate how demands for new areas development would be replaced by of recreational land will grow over the equivalent or better provision in terms of course of the plan period. In advance quantity and quality in a suitable location; of this work, applicants can conduct or a needs assessment to support any application. Such assessment must • the development is for alternative sports be conducted using an appropriate and recreational provision, the needs for methodology that has been agreed by which clearly outweigh the loss. the Council. 10.17 The National Planning Policy Framework 10.18 Open space includes: (NPPF) highlights the importance of having an open space needs assessment as part • parks; of the evidence base for the Local Plan. • gardens; A needs assessment is vital in identifying • areas of trees and woodland; both deficits and surpluses of particular • natural and semi-natural areas; open space types across the District. • amenity green space;
201 • playing fields, including artificial grass quality or accessibility. This could with noise, but must also remain pitches; involve planting, path laying, new overlooked to ensure the safety of • play areas; play equipment, new foot/cycle children using the site and discourage • outdoor provision for teenagers and paths connecting the space to the anti social behaviour. young people; proposed development, or other 10.22 In the urban area there is currently • allotments; and improvements recommended by the in the region of 3.6 hectares of land • cemeteries and churchyards. Council. Contributions to open space per 1,000 population of informal (be they either the creation of a new 10.19 An audit of open space across the and formal grassed, wooded or site or the upgrading of an existing) district was completed in 2005, landscaped land and small amenity should be made in consultation with though this now needs updating it areas of open space, and 1.86 the Council’s Green Spaces team to can still be considered indicative of hectares of playing pitches per 1,000 ensure any work is in line with their provision. population. The Council will ensure strategies and plans. that any new development does not 10.20 In some cases, where local deficits 10.21 New housing development will be lead to a reduction in these standards. in open space provision exist, expected to set aside informal space contributions may be sought from for play and general recreation, new development. However, the depending on the size of the proposal. establishment of a new area of open These sites will be designated as space may not always be appropriate Open Space, and may be expected within a development site or land to provide appropriate equipment, or nearby may not be available to less formal opportunities for natural be used as open space. In these play and space for games. Such cases a developer may be asked areas must be designed to avoid to contribute to upgrading existing conflict with residents through issues local space to improve either its
202 Policy GI 5 - Public Rights of Way Justification
New development will be expected 10.23 Carlisle District has an extensive development and its setting, and not to ensure that all public footpaths, system of public footpaths, cycleways significantly longer than the original bridleways, cycleways and other rights and bridleways which form an route. of way are retained. Development integral component of the District’s 10.25 Development proposals may proposals that would affect existing Green Infrastructure (GI). These sometimes present opportunities to rights of way will not be permitted rights of way are a valuable resource provide new rights of way or improve unless an alternative route is available, fulfilling essential leisure, wildlife and existing ones in order to bring them or can be made available, which is safe, transport functions, and as such will to a standard suitable for use by all. attractive, is well integrated with the be protected and where possible Agreement will be sought between existing network and is not significantly enhanced. the Council and the developer(s) to longer than the original route. 10.24 Development proposals likely to explore such opportunities should Where opportunities arise, local impact upon a right of way should aim they arise. improvements and extensions to the to maintain existing routes unchanged. rights of way network may be sought as Only if this can be demonstrated to part of development proposals. be impossible or impractical should the rerouting of the right of way be considered. When an alternative route is proposed as part of an application for new development, the application will only be approved once it is clear that the route has been (or will be) established, and that the route is safe, convenient, of similar or better quality to the original, well integrated with the
203 Policy GI 6 - Trees and Hedgerows
Proposals for new development should Proposals which would result in the via planning conditions and/or legal provide for the protection and integration unacceptable or unjustified loss of existing agreement, to the replanting of trees of existing trees and hedges where they trees or hedges or which do not allow for in an appropriate, alternative location. contribute positively to a locality, and/or the successful integration of existing trees The extent of replanting required will be are of specific natural or historic value. or hedges identified within the survey will representative of the age, number and Planning conditions requiring protective be resisted. size of trees, or length of hedgerows, fencing around trees to be retained, in originally lost. Ancient Woodland: Development which line with the current and most up to date would result in the loss of any areas All new development should also British Standard: BS 5837 will be used of recognised ancient woodland, or have regard to the current Trees and to ensure adequate protection of valued plantations on ancient woodland sites, Development Supplementary Planning trees during construction. will normally be resisted unless strong, Document. Tree Surveys: Where trees and hedges overriding social or economic benefits or are present on a development site a need can be demonstrated that clearly survey, in accordance with the current outweighs the potential harm. and most up to date British Standard: BS Landscaping and Replanting: Any 5837 must be carried out by a qualified proposals for onsite landscaping arboriculturist and presented as part of schemes should seek to incorporate the the planning application. planting of native tree species where Layouts will be required to provide practicable. Where trees are lost due adequate spacing between existing to new development, the Council will trees and buildings, taking into account require developers to replant trees of the existing and future size of the trees, an appropriate species on site where it and their impact both above and below is practicable to do so, or to contribute ground.
204 Justification
10.26 Trees and hedges add considerable 10.28 Carlisle City Council has adopted value to our urban and rural the Trees and Development SPD. environments, and are natural features This document provides guidance in an ever-changing landscape. They on how trees and hedgerows should can soften the impact of buildings and be incorporated into development hard surfaces, contribute to the overall schemes in a way that can both character of the development, help to protect and enhance both the trees hide unsightly views, provide shade, themselves as well as the overall absorb noise and provide a screen natural quality of a development. from the wind. In addition, mature
trees can give identity to an area, creating a real sense of place within communities.
10.27 Ancient woodland and veteran trees found outside of ancient woodland will be protected, in line with the NPPF, as irreplaceable habitat. Development that would result in their loss or deterioration should not be approved, unless an overriding social or economic need or benefit would outweigh the loss.
205 206 11 Monitoring and Implementation
207 11.1 Monitoring is an integral part of the • reviewing the circumstances and 11.3 For policies with clear quantitative planning process and an important tool engaging with stakeholders as outputs, for example in relation to to help understand the wider social, appropriate; housing delivery, there are specific environmental and economic issues targets in the monitoring framework • reviewing the policy(ies) concerned affecting an area, and the key drivers against which it will be easy to see and their implementation mechanisms of spatial change. The Local Plan whether delivery is on track and which may lead to a formal partial needs to not only be able to respond therefore whether the appropriate review of the Plan and/or the to changing circumstances across policies and site proposals are proving supporting evidence base; the District over its intended duration, effective. For policies with qualitative but to know when action needs to • in the case of take up of development outputs such as design, heritage or be taken. There also needs to be a land, consider interventions which landscape impact, monitoring of their way of measuring the effectiveness of may assist in overcoming barriers if effectiveness and whether they are policies and sites within the Local Plan, identified; and/or delivering their underlying objectives, and that they are meeting the Plan’s will require analysis of the policy use, • identify reasonable alternative land strategic objectives and ultimately its its outcomes and what the significant through further Development Plan vision. If a policy is not contributing effects are to enable an assessment Documents and/or Neighbourhood to these objectives, or if a site simply to be made of its effectiveness. Data Development Plans. isn’t being delivered, there needs to will be gathered on assessing, for be a way of recognising this in order to 11.2 A monitoring framework has been example, how often a policy is used by instigate remedial actions. Depending devised for the Local Plan in order to Development Management in decision on the scale and/or nature of the enable the effectiveness of the policies making, and the number of appeals ineffectiveness actions may include: and proposals within it to be monitored. upheld or dismissed and the reasons This framework can be found at for this. Appendix 2.
208 11.4 The Monitoring Framework has a clear existing infrastructure. In this regard shared, and in this regard the Council objective for each individual policy monitoring whether or not the delivery consider that they have an excellent within the Local Plan and it makes of infrastructure identified as necessary track record of meaningfully engaging clear what indicators will be used for is keeping pace with development is with others particularly where to do so monitoring purposes. It also identifies of equal importance to understanding is mutually beneficial or in the public what circumstances may trigger a whether the Local Plan is on track to interest. The Council’s continued review and what remedial actions may achieve its intended objectives and engagement under the Duty to be pursued as a consequence. The vision. This will be achieved through Cooperate will be reported in the AMR. monitoring framework also identifies drawing on information within the which Sustainability Appraisal (SA) Local Plan Infrastructure Delivery Plan objectives individual policies support. (IDP), and reporting on this annually in the AMR. This reflects that the IDP 11.5 The results of monitoring will be is a ‘living’ document which will be reported annually within the Council’s updated as and when new information Authority Monitoring Report (AMR), on investment in infrastructure or any through which the need to review any pressures become known, or previously policy or proposal within the Local Plan identified schemes are delivered. will be raised. The AMR will also be the process through which any significant 11.7 Both the implementation and effects on the SA objectives are monitoring of the effectiveness of the reported. Local Plan will be supported through continued co-operation with a host 11.6 The effectiveness of some policies of other public and private sector and many of the site allocations agencies and organisations under the within the Local Plan will ultimately Duty to Cooperate. Such co-operation depend on the timely and co-ordinated has helped to shape the Local Plan, delivery of new and upgrades to in doing so ensuring that its vision is
209 210 12 Glossary
NOTE: This list is intended only to provide a general explanation of terms used in the Local Plan and does not constitute precise definitions in law.
211 A Affordable housing - Social rented, Rent is subject to rent controls that require a Air Quality Management Area (AQMA) - affordable rented and intermediate housing, rent of no more than 80% of the local market Where a national air quality standard or provided to eligible households whose rent (including service charges, where objective is not likely to be met, the relevant needs are not met by the market. Eligibility applicable). Council is required to declare an Air Quality is determined with regard to local incomes Management Area and produce an Action Intermediate housing is homes for sale and and local house prices. Affordable housing Plan outlining how they intend to improve the rent provided at a cost above social rent, but should include provisions to remain at an air quality within that area. below market levels subject to the criteria affordable price for future eligible households in the Affordable Housing definition above. Allocations of Land - The allocation of sites or for the subsidy to be recycled for These can include shared equity (shared for specific purposes including housing, alternative affordable housing provision. ownership and equity loans), other low cost employment, retail and open spaces. Social rented housing is owned by local homes for sale and intermediate rent, but not Amenity - A positive element or elements authorities and private registered providers affordable rented housing. that contribute to the overall character or (as defined in section 80 of the Housing and Homes that do not meet the above definition enjoyment of an area. For example open Regeneration Act 2008), for which guideline of affordable housing, such as “low cost land, trees, historic buildings and the inter- target rents are determined through the market” housing, may not be considered as relationship between them, or less tangible national rent regime. It may also be owned affordable housing for planning purposes. factors such as tranquillity. by other persons and provided under equivalent rental arrangements to the above, Affordable Housing Economic Viability Amenity Open Space - The Local Plan as agreed with the local authority or with the Assessment (AHEVA) - An assessment of identifies areas of land within settlements Homes and Communities Agency. the costs of any requirements likely to be which make so significant a contribution applied to development, focussing on the to their character and to the amenity and Affordable rented housing is let by local implications of developers having to enjoyment of nearby residents and the public authorities or private registered providers provide affordable housing and to ensure at large as to warrant long term retention of social housing to households who are that planning policies would not render as open space. Such designation does not eligible for social rented housing. Affordable schemes unviable.
212 signify that such areas are available for Authority’s Monitoring Report (AMR) - Best and Most Versatile Agricultural public access and use although this may Monitoring report recording the delivery of Land - To assist in assessing land quality, be the case in some instances. Rather, it policies in the adopted plan. the then Ministry of Agriculture, Fisheries indicates an intention that proposals for and Food developed a method of classifying Area of Outstanding Natural Beauty built development which would encroach on agricultural land by grade. There are five (AONB) - Relatively large areas of land identified areas will not normally be granted grades with grade 3 divided into two grades designated under the National Parks and planning permission. (3a and 3b). The best and most versatile Access to the Countryside Act 1949 by agricultural land falls into grades 1, 2 and 3a. Amplitude Modulation - A technique the Countryside Commission. The primary This land ranges from excellent (grade 1) to used in electronic communication, most objective of designation is conservation good quality (grade 3a). commonly for transmitting information via a of the natural beauty of the landscape. radio carrier wave. AONBs differ from National Parks in that the Biodiversity - Refers to the variety of plants promotion of recreation is not an objective and animals and other living things in a Ancient Woodland - Natural England is of their designation, though these areas particular area or region. It encompasses responsible for compiling the inventory of should be used to meet the demand for habitat diversity, species diversity and genetic ancient woodlands in Cumbria. The term is recreation so far as that is consistent with diversity. Biodiversity has a value in its own applied to woodlands which have existed the conservation of natural beauty, and the right and has social and economic value for from at least medieval times to the present needs of agriculture, forestry and other uses. human society. day without being cleared for uses other than timber production. The inventory B Blue Infrastructure (BI) - The network includes ancient semi-natural woodland Backland - Land (usually landlocked) of aquatic components that lie within which is defined as woodland which does that lies to the rear of an existing property and between cities, towns and villages not originate from planting, the distribution that often, but not always, fronts onto a which provide multiple social, economic of species generally reflecting natural road. Such land may be within the existing and environmental benefits. The physical variations in site and soil. curtilage of a house, or adjacent to components of blue infrastructure include the curtilage. waterways such as rivers, streams, marshes and lakes.
213 Brownfield Land - Previously-developed Climate Change - Term used to describe Comparison Shopping - The provision land which is or was occupied by a changes in weather patterns which of items not obtained on a frequent basis. permanent structure, including the curtilage threaten our environment and the way we These include clothing, footwear, household of the developed land and any associated live our lives both now and in the future. and recreational goods. fixed surface infrastructure. It is a coherent and internally consistent Condition (or ‘planning condition’) - description of the change in climate Business Park - High quality employment Requirements attached to a planning by a certain time in the future, using a sites aimed at light industrial and office permission to limit, control or direct the specific modelling technique and under developments, particularly those related to manner in which a development is specific assumptions about the growth of high-tech industries. carried out. greenhouse gas and other emissions and C about other factors that may influence Convenience Shopping - The provision City Centre - The highest level of centre climate in the future. Climate change is of everyday essential items, including identified in development plans. In terms sometimes referred to as global warming food, drinks, newspapers/magazines and of hierarchies, they will often be a regional because it is currently concerned with rises confectionery. centre and will serve a wide catchment (as is in global temperatures. Conservation - The process of maintaining the case in Carlisle). The centre may be very Community Infrastructure Levy (CIL) - and managing change to a heritage asset in large, embracing a wide range of activities A local charge on new developments. The a way that sustains and where appropriate and may be distinguished by areas which money raised will be spent by the local enhances its significance. may perform different main functions. authority on infrastructure. The justification Conservation Areas - ‘Areas of special City Centre Development Framework for the charge is that new buildings have architectural or historic interest the character (CCDF) - Sets out principles to guide an impact on infrastructure need (i.e. new or appearance of which it is desirable the consideration of future development roads and schools), and should therefore to preserve or enhance’. Such areas are opportunities and interventions in the City contribute towards that provision. designated by Local Planning Authorities Centre to 2030. under the Planning (Listed Buildings and
214 Conservation Areas) Act 1990. Provisions Cumulative Effects - The state in which a Development Management - The relating to conservation areas are contained series of repeated actions have an effect process by which development proposals in the Act. The Local Planning Authority has greater than the sum of their individual in the form of planning applications, are additional powers over the demolition of effects; noted here especially in the location considered and decided. It is a positive buildings and the removal of trees within such of wind turbines. and proactive approach to shaping, areas, and certain permitted development considering, determining and delivering D rights are either reduced or removed. development proposals. It is led by the local Decentralised Energy - Local renewable planning authority, working closely with County Wildlife Sites - Cumbria Wildlife energy and local low-carbon energy those proposing developments and other Trust designates some sites, which do usually but not always on a relatively small stakeholders. not meet the criteria set out by Natural scale encompassing a diverse range of England for SSSI’s, as Wildlife Sites. They technologies. Duty to Cooperate - The Localism Act 2011 contain examples of important habitats with introduced a Duty to Cooperate, which is Density - The volume of development uncommon species of plants and animals. designed to ensure that all of the bodies relative to the size of the site on which it involved in planning work together on issues Critical Drainage Areas - Areas with occurs. From a housing perspective density that are of bigger than local significance. drainage problems and therefore at risk is generally measured as the number of from surface water flooding, that have homes per Hectare of land. E been identified as such by the Environment Employment Land Review (ELR) - Designated Heritage Asset - A World Agency. To assess the demand for and supply of land Heritage Site, Scheduled Monument, Listed for employment. Cumbria Landscape Character Building, Protected Wreck Site, Registered Guidance and Toolkit - A document which Park and Garden, Registered Battlefield or maps and describes the character of Conservation Area designated as such under different landscape types across the the relevant legislation. County and provides guidance to help maintain their distinctiveness.
215 Environmental Impact Assessment (EIA) - Evidence base - A range of technical Flood Risk - An expression of the A process by which information about reports and studies that have been or are combination of the flood probability or the environmental effects of a proposal being prepared to support the development likelihood and the magnitude of the potential are collected and taken into account by and implementation of policies and consequences of the flood event. the Planning Authority in forming their proposals in the Local Plan. Flood Risk Assessment (FRA) - judgement about whether or not to grant Examination in Public - This is the An assessment or test of the risk of flooding planning consent. The Town and Country examination of a local plan document by an from river, tidal, coastal, groundwater and/ Planning (Environmental Impact Assessment independent planning inspector acting on or local sources conducted to meet the etc.) Regulations 1999 as modified sets out behalf of the Secretary of State. requirements of national policy and practice the types of project for which an EIA guidance. The FRA will provide a framework is required. F for robust and sustainable flood risk Flood Flows - The natural distribution of European Marine Sites (EMS) - Also known management solutions within (re)developing water during a flood event. as Natura 2000 sites these are Special areas. Areas of Conservation (SACs) for habitats of Flood Plain - All land adjacent to a G European importance and Special Protection watercourse over which water flows or General Permitted Development Order - Areas (SPAs) for birds. would flow, but for the presence of flood The Town and Country Planning (General defences, in times of flood. The limits of the Equality Impact Assessment (EQIA) - Permitted Development) Order 1995 flood plain are defined by the peak water A process designed to ensure that a (as amended) prescribes many of the level of an appropriate return period event policy, project or scheme does not procedures for the determination of on the watercourse or at the coast. On rivers discriminate against any disadvantaged planning applications and details those this will normally be the greater of the 1 in or vulnerable people. forms of minor development which may 100 year return period flood or the highest be undertaken without the need for an known water level. In coastal areas the 1 in application for planning permission. 200 year return period flood or the highest known flood will be used.
216 H Geodiversity - The range of rocks, minerals, Habitats Regulations Assessment (HRA) - Heritage Asset - A building, monument, fossils, soils and landforms. Assesses the likely impacts of the possible site, place, area or landscape identified as effects of a plan’s policies on the integrity having a degree of significance meriting Greenfield - Land on which no development of the Natura 2000 sites (including possible consideration in planning decisions, has previously taken place unless the effects ‘in combination’ with other plans, because of its heritage interest. Heritage previous development was for agriculture projects and programmes). asset includes designated heritage assets or forestry purposes or the remains of any and assets identified by the local planning structure or activity have since blended into Homes and Communities Agency (HCA) - authority (including local listing). the landscape. The national housing and regeneration agency for England. They provide Historic Environment - All aspects of the Green Infrastructure (GI) - The network investment for new affordable housing and environment resulting from the integration of natural environmental components and to improve existing social housing, as well between people and places through time, green spaces that lie within and between as for regenerating land. They are also the including all surviving physical remains cities, towns and villages which provide regulator for social housing providers in of past human activity, whether visible, multiple social, economic and environmental England. buried or submerged, and landscaped and benefits. The physical components include planted or managed flora. parks, rivers, street trees, moorlands, green Health Impact Assessment (HIA) - corridors, gardens and amenity spaces. A combination of procedures, methods House in Multiple Occupation (HMO) - and tools by which a policy, programme or As defined in the 1985 Housing Act, one Gypsy and Traveller Accommodation project may be judged as to its potential that is occupied by persons who do not Assessment (GTAA) - Assessment to effects on the health of a population, and form a single household. ensure that the needs and wider demand the distribution of those effects within of the Gypsy and Traveller communities for the population. suitable accommodation can be considered and met equally and fairly alongside other sectors of the community.
217 Housing Market Area - A geographical Infrastructure Delivery Plan (IDP) - local bodies and communities through area defined by household demand and Contains a list of all infrastructure needed public consultation and scrutiny, and preferences for all types of housing, to support sustainable growth, as set out delivery planning; reflecting the key functional linkages in the Local Plan. Infrastructure projects • maintain a register of assets – these are between places where people live and work. are identified by location, cost and delivery physical features that have a significant Some housing market areas overlap. timescale and funding. effect on flooding in their area; Housing Need and Demand Study K • investigate significant local flooding (HNDS) - Also referred to as a Strategic Key Townscape Frontage Buildings - incidents and publish the results of such Housing Market Assessment (SHMA). Primarily located within conservation areas investigations; The Assessment considers future housing and are defined as buildings that make a requirements, in terms of the number of contribution to the character of a particular • establish approval bodies for design, homes required to meet need and demand. area. Such conservation areas include building and operation of Sustainable It considers the mix of housing required, the City Centre, Botchergate, Longtown, Urban Drainage Systems (SUDs); in both the affordable and market sectors. Brampton and Dalston. • issue consents for altering, removing or It also looks at the housing requirements L replacing certain structures or features on of specific groups, including older people, Lead Local Flood Authority (LLFA) - ordinary watercourses; and Black and Minority Ethnic (BME) households, Are county councils and unitary authorities. and those with support needs. • play a lead role in emergency planning For Carlisle, the LLFA is Cumbria County and recovery after a flood event. I Council. Under the Flood and Water Infrastructure - A collective term for Management Act, LLFAs are required to: services such as roads, electricity, sewerage, • prepare and maintain a strategy for local water, education, health facilities, parks and flood risk management in their areas, recycling and refuse facilities. coordinating views and activity with other
218 Listed Building - The Secretary of State Local Distinctiveness - The positive Local Planning Authorities (LPAs) - for Culture, Media and Sport, advised by features of a place and its communities The public authority whose duty it is to Historic England, compiles a list of buildings which contribute to its special character and carry out specific planning functions for a of ‘special architectural or historic interest’. sense of place. particular area. Carlisle City Council is the Any material alteration to or demolition/ LPA for the administrative area it covers. Local Enterprise Partnership (LEP) - part demolition of a listed building, whether Locally owned partnerships between local Local Strategic Partnership (LSP) - external or internal will require an application authorities and businesses which play a The Carlisle Partnership is a non-statutory, for listed building consent. central role in determining local economic non-executive partnership bringing together Localism Act - Received Royal Assent in priorities and undertaking activities to drive different agencies to support each other November 2011. In relation to Planning, economic growth and the creation of local and work effectively together on economic, the Act abolished Regional Strategies jobs. Carlisle is part of the Cumbria LEP. community and environmental issues that but introduced a duty for interested matter to local people including crime, Local Nature Reserves - May be parties to co-operate in the preparation employment, education, health and housing. established by Local Authorities under of development plans and introduced Their aim is to deliver sustainable economic, section 21 of the National Parks and Access Neighbourhood Planning. social and physical regeneration, improved to the Countryside Act 1949. They are public services, promotion of equality and Local Development Scheme (LDS) - habitats of local significance which can inclusion, and improvements to the quality of Provides information on how Carlisle City make a useful contribution both to nature life for local citizens, particularly those from Council intends to produce its Local Plan. conservation and to the opportunities for the deprived areas and disadvantaged groups. It sets out the planning policy documents public to learn more about and enjoy wildlife. In order to achieve this, partners are required that form the development plan for the Local nature reserves are predominantly to assess local needs, plan services, set Carlisle District area and their programme of ecological, but can also be established on targets and monitor delivery. preparation over a three year period. geological sites.
219 Local Transport Plan 3 (Draft) (LTP) - The Masterplan - A type of planning brief National Planning Policy Framework Transport Act 2000 introduced a statutory outlining the preferred usage of land and (NPPF) - Sets out the Government’s requirement for local transport authorities (in the overall approach to the layout of a planning policies for England and how these Carlisle’s case Cumbria County Council) to development, including the coordination are expected to be applied. It provides a produce a Local Transport Plan (LTP) every of necessary infrastructure, to provide framework within which local people and five years and to keep it under review. It detailed guidance for subsequent planning their accountable councils can produce their sets out the statutory framework for Local applications. own distinctive local and neighbourhood Transport Plans and policies. development plans, which reflect the needs Minerals and Waste Local Plan (MWLP) - and priorities of their communities. M The Draft Cumbria Minerals and Waste Main Town Centre Uses - Retail Local Plan is for the period up until 2030. It Natura 2000 - Created by the European development (including warehouse sets out Cumbria County Council’s policies Union, this is a network made up of Special clubs and factory outlet centres); leisure, for the provision for mineral working, Protection Areas and Special Areas of entertainment facilities the more intensive for safeguarding mineral resources and Conservation. These designations form an sport and recreation uses (including associated mineral developments, and for internationally important network of cinemas, restaurants, drive-through waste management. It covers those parts of wildlife sites. restaurants, bars and pubs, night-clubs, Cumbria that are outside of the Lake District Neighbourhood Development Plans casinos, health and fitness centres, indoor and Yorkshire Dales National Parks. (NDP) - Introduced by the Localism Act, bowling centres, and bingo halls); offices; N ‘Neighbourhood Planning’ aims to give people and arts, culture and tourism development National Nature Reserve - Areas of national greater ownership of plans and policies that (including theatres, museums, galleries and sometimes international importance affect their local area. It enables local people and concert halls, hotels and conference which are owned or leased by Natural to put together ideas for development facilities). England or managed in accordance with (relating to land-use or spatial matters) in their wishes. The essential characteristic of their area via a “Neighbourhood Development such areas is that they are primarily used for Plan”. Once adopted such plans form part of nature conservation. the statutory development plan.
220 O Open Space - All open space of public Pitch (with regards to Gypsies and Policies Map - Identifies geographically the value, including not just land, but also Travellers) - An authorised area of land adopted policies and proposals of the Local areas of water (such as rivers, canals, which is generally home to one Gypsy Plan. lakes and reservoirs) which offer important and Traveller household. There is no one- Primary Employment Areas - Designated opportunities for sport and recreation and size-fits-all with regards to the precise when the predominant land use relates can act as a visual amenity. size of a pitch but as a general guide an to employment. Also included within this average family pitch must be capable of Out of Centre - A location which is not in or designation is land that has planning accommodating an amenity building, a large on the edge of a designated retail centre but permission and land allocated for trailer and touring caravan (or two trailers), not necessarily outside the urban area. employment use. Such areas are located drying space for clothes, a lockable shed (for within Carlisle, Longtown, Brampton Overarching National Policy Statement for bicycles, wheelchair storage etc.), parking and Dalston. Energy (EN-1) - A National Policy Statement space for two vehicles and a small garden (NPS) which sets out national policy for area. Primary Residential Areas - Housing areas energy infrastructure. within Carlisle, Longtown and Brampton. Planning Obligations - Private agreements These areas are predominantly residential, P made between local authorities and and they contain a number of other uses Permitted Development - The Town developers and can be attached to a normally acceptable in housing areas and Country Planning (General Permitted planning permission to make acceptable such as churches, small shops and public Development) Order 1995 permits certain development which would otherwise be houses. minor alterations and extensions to be unacceptable in planning terms. undertaken without the need to apply for Planning Practice Guidance (PPG) - planning permission from the local planning Technical guidance published by the authority. Such development is known as Government to support the practical permitted development. implementation of the NPPF and the plan making process.
221 Primary Shopping Area - Contains all the Regionally Important Geological/ Renewable and Low-Carbon Energy - important shopping streets and areas in the Geomorphological Sites (RIGS) - These are Includes energy for heating and cooling as City Centre. All the major stores are included geological/geomorphological sites of local well as generating electricity. Renewable together with the streets with continuous importance which complement the national energy covers those energy flows that shopping frontages and sites where network of geological SSSIs. The aim of occur naturally and repeatedly in the shopping development is acceptable in designation is to maintain and enhance environment; from the wind, the fall of water, principle. It also includes the main shopping specific features of rock and landform, and the movement of the oceans, from the sun streets in Brampton and Longtown. the dynamic natural processes which create and also from biomass and deep geothermal them. heat. Low carbon technologies are those Public Realm - This is the space between that can help reduce emissions (compared and within buildings that are publicly Register of Battlefields - Identifies a to conventional use of fossil fuels). accessible, including streets, squares, limited number of areas of historic forecourts, parks and open spaces. significance where important battles are Rural Exception Sites - Small sites used for sufficiently documented to be located on affordable housing in perpetuity where sites R the ground. This register is compiled by would not normally be used for housing. Ramsar Site - Wetlands of international Historic England. Rural exception sites seek to address importance, particularly as waterfowl the needs of the local community by habitats, listed by the Secretary of State. Register of Parks and Gardens of Special accommodating households who are either The provisions of the Ramsar Convention Historic Interest - This is a register, current residents or who have an existing require the promotion of the conservation of produced by Historic England, which family or employment connection. Small the wetlands. identifies parks and gardens of visual and/or numbers of market homes may be allowed, historic interest. for example, where essential to enable the delivery of affordable units without grant funding.
222 Rural Masterplanning - Joint working with Setting of a Heritage Asset - The owners and occupiers the operations Parish Councils to establish the capacity for surroundings in which a heritage asset is which they consider to be harmful to their development within the rural area informed experienced. Its extent is not fixed and may conservation interest. Local authorities have by community opinion. change as the asset and its surroundings a responsibility under the Countryside and evolve. Elements of a setting may make Rights of Way (CRoW) Act 2000 to take S a positive or negative contribution to the reasonable steps to further the conservation Scheduled Ancient Monument - Nationally significance of an asset, may affect the and enhancement of the features for which a important monuments usually archaeological ability to appreciate that significance or may SSSI has been notified. remains, that enjoy greater protection be neutral. against inappropriate development through Special Area of Conservation (SAC) - the Ancient Monuments and Archaeological Significance of Heritage Assets - The Areas established under the EU Directive Areas Act 1979. value of a heritage asset to this and future on the Conservation of Natural Habitats and generations because of its heritage interest. of Wild Fauna and Flora as contributing to Section 106 Agreement - Planning That interest may be archaeological, the maintenance of a coherent Community Agreements (or ‘Planning Obligations’) are architectural, artistic or historic. Significance wide network of habitats called Natura 2000. made under Section 106 of the Town and derives not only from a heritage asset’s SAC’s are selected for their contribution Country Planning Act 1990. Agreements may physical presence, but also from its setting. to the survival of species and habitats of be made between a local planning authority European importance. The areas proposed and a land owner (often a developer) or may Site of Special Scientific Interest (SSSI) - as SACs are also SSSIs. be entered into unilaterally by such persons. Section 28 of the Wildlife and Countryside Agreements are usually employed to restrict Act 1981 enables Natural England to Special Protection Area (SPA) - Areas the development or use of land in ways designate areas of land which, by reason established under the EC Directive on which cannot properly or conveniently be of their flora, fauna, or geological or the Conservation of Wild Birds in order to achieved by the imposition of conditions. physiographic features, it is in the national safeguard habitats of migrating birds and interest to conserve. To protect SSSIs from certain threatened species and thereby to operations outside the scope of planning conserve populations. All SPAs are also controls, Natural England specify to their SSSIs.
223 Statement of Community Involvement Strategic Housing Land Availability Supplementary Planning Document (SCI) - Explains to the public how they Assessment (SHLAA) - A technical study (SPD) - Documents which add further detail will be involved in the preparation of local to inform planning policy relating to planning to the policies in the Local Plan. They can planning. It sets out the standards to for housing. It also assists in the monitoring be used to provide further guidance for be met by the authority in terms of of whether there is an adequate supply of development on specific sites, or on particular community involvement. deliverable and developable housing land. issues, such as design. Supplementary planning documents are capable of being a Strategic Environmental Assessment Strategic Housing Market Assessment material consideration in planning decisions (SEA) - A procedure (set out in the (SHMA) - See ‘housing needs and demand but are not part of the development plan. Environmental Assessment of Plans study’. and Programmes Regulations 2004) Sustainability Appraisal (SA) - A statutory Sui Generis (Use Class) - Certain uses which requires the formal environmental assessment undertaken on Local Plans to do not fall within any use class and are assessment of certain plans and identify and evaluate the impacts of a plan considered ‘sui generis’. Such uses include: programmes which are likely to have on the community (social), economy and theatres, hostels providing no significant significant effects on the environment. environment. element of care, scrap yards. Petrol filling Strategic Flood Risk Assessment stations and shops selling and/or displaying Sustainable Development - The Bruntland (SFRA) - Informs knowledge of flooding, motor vehicles. Retail warehouse clubs, Report in 1987 brought a new approach when refines the information on the Flood Map nightclubs, launderettes, taxi businesses, it proposed that an ongoing balance could and determines variations in flood risk amusement centres and casinos. be struck between economic growth and the from all sources of flooding across and needs of the environment through the concept from their area. of sustainable development. A definition of this concept is ‘development that meets the needs of the present without compromising the ability of future generations to meet their own needs’. The NPPF identifies a presumption in favour of sustainable development.
224 U Sustainable Urban Drainage Systems Use Classes Order - The Town and Country Use Class A3 Restaurants and Cafes - (SUDS) - A sequence of management Planning (Use Classes) Order 1987 (as For the sale of food and drink for practices and control structures designed amended) contains a number of Classes into consumption on the premises - restaurants, to drain surface water in a more sustainable which most uses of land or buildings fall. The snack bars and cafes. way than some conventional techniques. change of use of land or buildings, from one Use Class A4 Drinking Establishments - SUDS manage surface water on site as class to another, normally requires planning Public houses, wine bars or other drinking near to source as possible by slowing down permission. The change of use of land or establishments (but not night clubs). the rate of run-off and treating it naturally buildings within a particular Class does not through such design techniques as porous involve development requiring planning Use Class A5 Hot Food Takeaways - pavements, infiltration trenches and basins, permission. For the sale of hot food for consumption off french drains, swales and passive treatment the premises. Use Class A1 Shops - Shops, retail systems including filter strips, detention warehouses, hairdressers, undertakers, Use Class B1 Business Use - Offices basins, retention ponds and wetlands. This travel and ticket agencies, post offices (but (other than those that fall within A2), approach will allow the release of good not sorting offices), pet shops, sandwich research and development of products and quality surface water into watercourses and bars, showrooms, domestic hire shops, dry processes, light industry appropriate in a the groundwater resource. cleaners, funeral directors and internet cafes. residential area. T Use Class A2 Financial and Professional Use Class B2 General Industrial Use - Tree Preservation Order (TPO) - Under Services - Financial services such as banks Use for industrial process other than one Section 198 of the 1990 Act a local planning and building societies, professional services falling within class B1 (excluding incineration authority may, in the interests of amenity, (other than health and medical services) purposes, chemical treatment or landfill or make provisions for the preservation including estate and employment agencies hazardous waste). of individual trees or woodlands. TPOs and betting offices. prohibit the cutting down, topping, lopping, uprooting, wilful damage or wilful destruction of trees without the prior consent of the Authority. 225 Use Class B8 Storage or Distribution World Heritage Sites (WHS) - The World Use - Storage or Distribution warehouses Heritage Convention from which World including wholesale cash and carry. This Heritage Sites derive was ratified by the UK class includes open air storage. in 1984. The Convention provides for the identification, protection, conservation and V presentation of cultural and natural sites of Village - A group of houses, other buildings outstanding universal value. Hadrian’s Wall and open spaces which can include Military Zone was designated as a World businesses and community uses such as Heritage Site in 1987. a village hall and village green, church or primary school. The pattern of dispersed World Health Organisation (WHO) - Is villages in the rural area has resulted in a the directing and coordinating authority for significant number of villages sharing one health within the United Nations system. church, primary school or village hall. Z W Zero Carbon - That all emissions from Wildlife Corridors - Areas of habitat a house or commercial property and the connecting wildlife populations. activities that take place within them must be net zero over the course of a year. Windfall Site - An informal term used to describe a site where planning consent (usually for housing) is granted despite that site not being allocated for development in the Local Plan.
226 1 Appendix 1
Sites Allocated within Policy HO 1
The following site profiles are intended to aid identification of the sites allocated for housing development in Policy HO 1, and identify some of the associated main issues. The profiles are not intended to include an exhaustive list of every matter to be considered. All of the allocated housing sites lie within Flood Zone 1. Anyone considering submitting a planning application is encouraged to undertake early discussions with the Council’s Development Management team.
227 Urban Area:
U 1 and U 2: Land to the south east of Consideration should also be given to the • water course on site should remain junction 44 of the M6 - these two sites are development providing alternative access open and road crossing limited to as immediately adjacent to each other at the arrangements to the James Rennie School few as possible; and northern edge of Carlisle and have good in order to help resolve school traffic related • most obvious drainage option would accessibility to the main public transport problems. be into School Sike. network and to the M6 via junction 44. Biodiversity: there are no statutory or non- Careful consideration needs to be given Other constraints: Tree Preservation Order statutory designations within or adjacent to to the design of the development so that 207 on northern boundary of site. Public the site. The land is agricultural grassland, the two sites integrate, but also respect footpaths along northern (FP 109002 and and is bordered by mature hedgerows which the privacy of the outdoor play spaces 120001) and eastern (FP 132012 and are likely to provide wildlife corridors and for the adjacent James Rennie School. 132020) boundary of site. These will need habitats for a variety of species. Opportunities should be taken to link into to be taken into account in the design and the public footpath which lies adjacent to Heritage assessment: the course of a Roman layout. the site. In addition, noise attenuation from road is indicated along the eastern boundary U 3: Site of Pennine Way Primary School, the M6/Kingstown Road will be required by of the site. An archaeological evaluation Pennine Way/Edgehill Road - the school is a combination of planting and bunding. The in the form of an appropriate desk based about to undergo redevelopment in order to main infrastructure issue in north Carlisle is assessment (and where necessary a field accommodate an increased intake of pupils. the current lack of primary school places. evaluation) will be required at the planning This will involve relocating the school to an Additional housing in this area has the application stage. adjacent site on the south side of Edgehill potential to fund the development of primary Flooding/drainage: Road. The redevelopment is part of a wider school provision. • some recent surface water flooding on project including a new community hub. Highways advice: the Highway Authority California Road so any development The redevelopment of the site provides an has indicated that the sites would need here should incorporate a solution to opportunity to diversify the housing mix in significant infrastructure works to create limit surface water flows to the south of this area of Harraby. access off A7/C1022 signalised junction. the site;
228 Highways advice: assumed access would U 4: Land north of Moorside Drive/Valley remains. An archaeological desk-based be from Pennine Way and Edgehill Road. Drive - a previously allocated site which has assessment and field evaluation will be Arnside Way/Eastern Way junction may residential development on its north, western required at the planning application stage. need improvement with contribution to A69 and southern boundary and integrates well Flooding/drainage: corridor depending on total development with the urban form in this area. Careful • localised surface water flooding to west of of all proposed allocations in this part of consideration should be given so that the site, around Moorside drive – needs to be Carlisle. design and layout leads to a development taken into consideration; which harmonises with the surrounding built Biodiversity: no statutory or non-statutory context, but has its own sense of place. • should connect to the watercourse as far designations within or adjacent to the site. down as possible; and As school playing fields the site is likely to Highways advice: the Highway Authority have low biodiversity value. has indicated that the scale of development • cumulative impact on Durranhill Beck envisaged would need a link road from (culverted). Heritage assessment: no known heritage Edgehill Road to Moorside Drive. Extension assets within or adjacent to site. Other constraints: the site will require noise of suburban bus services would also be attenuation measures due to proximity of M6 Flooding/drainage: required. to east. • significant surface water flooding issues Biodiversity: no statutory or non-statutory within the site boundary – need to be U 5: Land between Carlton Road and designations within or adjacent to the site. managed on site; Cumwhinton Road - the southern edge of Site currently used as agricultural land Carlisle in this location is characterised by • historic records show flooding has been (arable) so likely to be species and habitat mainly low density semis and bungalows, a problem in the area so needs careful poor. No trees although hedges border the before the small village of Carleton, approach to drainage; and site. which has a range of designs and sizes • could be significant cumulative impacts Heritage assessment: Bronze Age remains of properties. Carlton also has a mix of from concentration of allocations in the have been revealed adjacent to the site and services including a pub, restaurant, garage area draining into Durranhill Beck. the wider landscape is rich in prehistoric and offices. The development of this site
229 provides the opportunity to create an • United Utilities request no surface water to Biodiversity: no statutory or non-statutory attractive edge to the City, whilst retaining sewer. designations within or adjacent to the site. the identity of Carleton as a village. Fairy Beck lies adjacent to the site and is a U 6: Land at Garden Village, west tributary which ultimately discharges into the Highways advice: due to traffic issues of Wigton Road - this site is in two River Eden SAC/SPA. However, the proposal associated with the standard of the existing ownerships, with the western section being a is not likely to have a significant effect on the access/lack of visibility onto London Road, long narrow strip of land. It will be necessary interest features for which the designated an improved two way access such as the to develop the site as a whole for optimum site has been classified. Mature hedgerows upgrading of Sewells Lonning to Local design and layout and from an infrastructure within and on boundary of site, especially Access Road Standard will be required. The planning perspective. The site wraps around along north western boundary of site. Some site also has poor accessibility and would four existing properties which front onto mature trees in hedgerows. require the provision of new bus stops and a Wigton Road and one on the A689, and as developer contribution towards an increased such the design will need to minimise loss Heritage assessment: no known heritage frequency bus service. of amenity to these properties. The site is assets within or adjacent to site. immediately adjacent to the A689, and some Biodiversity: no statutory or non-statutory Flooding/drainage: noise attenuation measures will be required. designations within or adjacent to site. • drainage into either Dow Beck or Fairy Grazing land but good roadside hedgerows Highways advice: the Highway Authority Beck possible, provided that satisfactory and some hedgerows within the site. has confirmed that satisfactory access is measures are incorporated to control run available off Wigton Road. The site would off during construction and completion of Heritage assessment: no known heritage require the provision of new bus stops the site; assets within or adjacent to site. and potentially a developer contribution • SUDS system on site desirable; Flooding/drainage: towards an increased frequency of bus • Run-off rate should be QBAR (estimated service. The site should ensure good non- • No historic surface water flooding has annual greenfield runoff rate) if the site is to motorised links to the surrounding area been reported for the site; and drain south to the Petteril; and as well as improvements to the existing to accommodate the potential increase in use.
230 • Fairy Beck - possible cumulative impact Highways advice: the Highway Authority Flooding/drainage: issues with Morton development (though has indicated that the site would need to • drainage into either Dow Beck or Fairy Morton has SUDS included in plans so be accessed off Orton Road which would Beck possible provided that satisfactory shouldn’t be a problem). need corridor improvements and suburban measures are incorporated to control run bus service extension. Cycle path linkage to off during construction and completion of Other constraints: sensitive design required secondary school is essential. the site; to integrate new development with four existing houses on south eastern edge of Biodiversity: no statutory or non-statutory • should aim for standard greenfield run-off site. designations apply within or adjacent to the rates; site. Dow Beck crosses part of the site and U 7: Land at Newhouse Farm, south east • SUD system on site desirable; is a tributary which ultimately discharges of Orton Road - this is a significant site into the River Eden SAC/SPA. However, the • no report of surface water flooding in terms of size and is predicted to come proposal is not likely to have a significant problems on site; forward in the later part of the plan period. effect on the interest features for which the Access will be taken from Orton Road, • Dow Beck/Fairy Beck - possible designated site has been classified. The land as the southern boundary of the site is cumulative impact issues with Morton is agricultural grassland, and is bordered adjacent to the A689, the Carlisle western development (though Morton has SUDS by mature hedgerows which are likely to bypass. A masterplan approach will be included in plans so shouldn’t be a provide wildlife corridors and habitats for a required to guide the development of the problem); and variety of species. site. The overall design and layout will need • open watercourses need to be retained to consider ways of using the land beneath Heritage assessment: prehistoric except where road crossings are required. and around the power lines on the western remains have been revealed on an boundary of the site in ways which will adjacent residential development site. An Other constraints: three high voltage benefit the overall development. archaeological desk-based assessment overhead power lines cross the south and field evaluation will be required at the western corner of the site. planning application stage.
231 U 8: Land north of Burgh Road - the site satisfactory measures to control run off through good design and incorporation of has potential to integrate successfully with during construction and completion of the the exiting mature trees on the site which are the built edge of Carlisle in this location. site. protected by TPO 245. Development would Established housing areas lie to the south, need to be in accordance with the adopted Heritage assessment: site lies within 150 and to the east is further housing fronting SPD Trees and Development. The design m of Hadrian’s Wall Military Zone World onto Burgh Road, behind which is a small and layout of the site needs to protect the Heritage Site (WHS). However, the WHS is industrial estate. The design and layout amenity of the bungalows on Kingrigg. not physically in evidence in this location. of the site will need to address the site The site lies within walking distance of The NPPF states that not all elements boundary with the industrial estate, and the Newlaithes Primary School, neighbourhood of a WHS will necessarily contribute to western boundary adjacent to the overhead shops, a community centre and the large its significance. It is not considered that high voltage cables. area of public open space known as Morton development in this location would cause Park. Highways advice: The Highways Authority harm or loss of the WHS. The site has been has raised no particular issues with this subject to a geophysical survey which Highways advice: no particular issues with site. Access is achievable from the C2042 revealed archaeological assets. These will the site considering previous use. Localised Burgh Road, although some upgrading of need to be investigated and recorded prior upgrade work will be needed to surrounding the current 40mph restriction section will be to any development commencing. network. necessary, together with bus infrastructure Flooding/drainage: Biodiversity: no statutory or non-statutory provision. The size of the site is unlikely to • no major issues - small flooding issues designations apply within or adjacent to the cause any significant traffic impacts. further down but not on this site; and site. Biodiversity: the site lies within 200m of River • drain directly into the Eden. Heritage assessment: no local or national Eden SSSI, SAC. However, the proposal is designations apply within or adjacent to the not likely to have a significant effect on the U 9: Former Morton Park Primary School, site. interest features for which the designated Burnrigg - originally the site of a primary sites have been classified, subject to school, this is now a cleared site offering potential to improve the character of the area
232 Flooding/drainage: Highways advice: the Highway Authority Flooding/drainage: • no major issues; and has expressed some concern over traffic • SUDS storage already proposed for the generation, and indicated that a loop road area; and • drainage into Dow Beck would be required so that a bus service can • contribution from development towards Other constraints: Tree Preservation Order access the site and the adjoining housing SUDS plans would be desirable. 245 applies within the site. area. Capacity issues are likely with M6 Contributions would need to clearly junction 44 and onto Scotland Road, as U 10 and U 11: Land off Windsor Way demonstrate relationship of development well as other major junctions to the north and land east of Lansdowne Close/ with the SUDS scheme. of Carlisle. Tarraby Lane is not of sufficient Lansdowne Court - the main infrastructure standard to serve the development. Any Other constraints: public footpath 132011 issue in north Carlisle is the current lack of further development will need improvements partially borders the north eastern boundary primary school places. Additional housing to the resilience of the site (i.e. additional of the site. in this area has the potential to help fund access points). the development of new primary school U 12: Land to the rear of the Border provision. Careful consideration needs to be Biodiversity: the land is agricultural Terrier, Ashness Drive - the site lies in given to the relationship/boundary between grassland, and is bordered by mature an established area of housing close to the two sites, as U 11 is landlocked. hedgerows which are likely to provide neighbourhood shops, a primary school, Therefore the development of U10 must wildlife corridors and habitats for a variety of and public open space. The character of the maintain access to U 11. Access onto species. immediate area is nondescript, and therefore Tarraby Lane will not be permitted except this site offers the potential to improve Heritage assessment: it is likely that for emergency vehicles. Existing flooding the environment of the area through good archaeological remains will be encountered problems at the culvert on the adjacent design. The site is owned by a registered on the site, and appropriate measures will Pennington Drive must not be exacerbated affordable housing provider and as such the be required to record these remains. An by any new development and plans must loss of incidental open space is mitigated archaeological evaluation in the form of an include a management regime for surface by the gain of a significant proportion of appropriate desk based assessment (and water run-off. affordable housing. where necessary a field evaluation) will be required at the planning application stage. 233 Highways advice: acceptable with minimal between the site and the M6 which lies to Flooding/drainage: works. Footway fronting site required. the east. Careful consideration will also need • bounded by railway embankment - to be given to the boundaries of the site drainage pipes should go to the south; Biodiversity: no statutory or non-statutory adjacent to existing housing and the Carlisle designations within or adjacent to the site. • run-off rates will need to be restricted to Settle railway line to the north. QBAR (greenfield) 1 in 200 run-off rates (2 Heritage assessment: no known heritage Highways advice: proposed means of year rainfall event); and assets within or adjacent to site. access is acceptable in principle. Local • drainage into Durranhill Beck - need to Flooding/drainage: widening of existing access road needed be wary of cumulative impact in this • United Utilities have issues with sewer Biodiversity: there are no statutory or non- area - potentially need a masterplan flooded properties in this area (considered statutory designations which apply within or approach towards Durranhill Beck. a High Risk area); and adjacent to the site. The site is agricultural Other constraints: noise attenuation • future development should ensure that grazing land with some hedgerows and measures will be required along eastern surface water run-off into sewers is trees which are likely to provide habitats for boundary of site due to proximity of M6 severely restricted; wildlife. motorway. Boundary treatment will be Other constraints: mobile phone mast lies Heritage assessment: the site lies required along northern boundary of site adjacent to north eastern corner of site. immediately adjacent to the Carlisle/Settle for safeguarding from Carlisle/Settle railway line Conservation Area (CA). The special line. U 13: Land east of Beverley Rise, Harraby interest of the CA lies in the corporate the site is adjacent to an established area U 14: Land north of Carleton Clinic, east architectural styles of the buildings along of housing which had good local facilities of Cumwhinton Drive - as part of the the route, the mainly civil engineering works, and amenities including a primary school long term development strategy for the and the scenic nature of the route. There for which there are immediate plans for Carleton Clinic, Cumbria Partnership NHS are no buildings associated with the line at redevelopment in order to allow expansion is consolidating its operations into certain this point, and the line cannot be seen as for an increased pupil intake. Noise sectors of the site. As such U 14 surplus to an element in the wider landscape, as it is attenuation measures will be required NHS requirements. The eastern boundary screened by trees.
234 of the site extends to the motorway, and as good non-motorised links to the surrounding which is available for housing development. such significant noise attenuation measures area as well as improvements to the existing The site is well located in relation to local will be required, through layout and design, to accommodate the potential increase in services and facilities including a primary to mitigate any future adverse impacts on use. school and public open space. residents. A public footpath lies on the Heritage assessment: a Bronze Age Highways advice: no highways issues have southern boundary, and currently has a cemetery and other prehistoric remains have been raised. semi-rural feel as it has fields on both sides. been found at the former Garlands Hospital. This footpath must remain unobstructed, Biodiversity: the information submitted with An archaeological desk-based assessment and the ultimate layout and design should the planning application recorded that the and field evaluation will be required at the not have an overbearing effect. The buildings majority of the habitats on site are of low planning application stage. adjacent to the north west corner of the site conservation interest in terms of vegetation. are currently in ancillary use for the Carleton Flooding/drainage: However, there was some potential for birds Clinic, and the northern boundary of the • drainage into Durranhill Beck; to use the trees/scrub, and therefore removal site is adjacent to Parklands Village. Layout of such vegetation should not be undertaken • reasonable opportunities for a number of and design of the site must respect these during the breeding season. SUDS features; and adjacent uses. Heritage assessment: no known heritage • needs to limit drainage due to cumulative Highways advice: the Highway Authority assets within or adjacent to site. impact. has advised that Cumwhinton Drive at this Flooding/drainage: point is a private road and would require U 15: Former dairy site, Holywell • no further comment in view of planning upgrading to local distributer road standard. Crescent, Botcherby - planning permission permission for site. The development of the site should ensure has been granted for 66 houses on this site. satisfactory linkage to the A6. The traffic Its allocation in the Local Plan safeguards Other constraints: site lies adjacent to gas modelling results carried out by Cumbria the site for future development for housing pipeline. County Council to inform the Local Plan over the plan period. It is one of a limited should be considered for junction capacities. number of brownfield sites within the City The development of the site should ensure
235 U 16: Land at Deer Park, Belah - the site is Biodiversity: immediately to the west of individual trees within the site. These trees bordered by residential development to the the site lies the Kingmoor Sidings County must be retained and protected as part south and east, and by employment uses to Wildlife Site, which is also designated as a of the development. There is potential to the north. The protected trees within the site Local Nature Reserve. It contains a series incorporate them as part of the open space provide a strong green presence, and any of small ponds which support a population requirement for the site. They are significant, development must be in accordance with the of Great Crested Newt. As an old railway mature parkland trees which will require adopted SPD Trees on development Sites. siding, the succession of habitats colonising adequate separation distances from any The layout and design of the development this site has resulted in a high species new development in order for them to be will need to make provision for adequate diversity. effectively protected. separation distance between the houses and Heritage assessment: an archaeological U 17: Land to the south west of the trees. Consideration should also be given desk-based assessment has identified Cummersdale Grange Farm - this site to a buffer between new housing and the that there is the potential for Roman formed part of a larger housing, retail, small industrial estate to the north. The main archaeological remains to survive on the site. employment and open space allocation in infrastructure issue in north Carlisle is the An archaeological investigation will need the 2008 Local Plan. In November 2010 lack of primary school places. Development to be carried out prior to any development outline planning permission was granted of housing in this area has the potential to commencing. for the allocation, but excluded this site. fund the development of primary school As such it is almost entirely enveloped by provision. Flooding/drainage: land subject to the planning permission. In • drainage is achievable and there are no Highways advice: access should be safe and addition, the land to the south, bounded major surface water issues. the development of the site should ensure by Peter Lane, has approval for reserved good non-motorised links to the surrounding Other constraints: public footpath 109397 matters and is under construction. It is area as well as improvements to the existing crosses the site in a north westerly direction therefore imperative that the development to accommodate the potential increase in from Kingmoor Road, and must be retained of this site integrates both visually and use. and protected as part of the development. physically with the area subject to the wider TPO 181 applies to a number of groups and planning permission.
236 Highways advice: access should be safe and subject to a programme of archaeological this use and has instead been promoted for the development of the site should ensure evaluation to be consistent with the housing. The site is well located on the edge good non-motorised links to the surrounding requirements of the planning permission of Carlisle in terms of accessing a range of area as well as improvements to the existing for the wider surrounding area. Where services and facilities, and the wider road to accommodate the potential increase in archaeological remains survive, these should network. The site will require considerable use. be recorded. noise attenuation measures from the M6, and also a physical barrier such as bunding Biodiversity: Fairy Beck borders part of the Flooding/drainage: and planting to reduce the visible impact of northern boundary of the site, and ultimately • Fairy Beck, which is classified as the motorway. drains into the River Eden SSSI and SAC. ‘main river’, borders part of the northern Housing development is not likely to have boundary of the site; and Highways advice: access should be safe and a significant effect on the interest features the development of the site should ensure • the site must be drained on a separate for which the designated site has been good non-motorised links to the surrounding system with only foul drainage connected classified, subject to satisfactory measures area as well as improvements to the existing to the foul sewer. to control run off during construction and on to accommodate the potential increase completion of the site. The hedgerows on Other constraints: the site is almost in use. Mitigation measures for traffic the site may have potential as bird and bat entirely surrounded by land subject to an impact will be needed not merely to allow roosting sites, and measures will be required extant planning permission (09/0413), for the additional motorised traffic, but also to ensure the protection of these species. residential, employment and public open pedestrian movements to main attractors space. Careful consideration will need to be (schools, retail, leisure). Heritage assessment: there is potential given as to how this site can integrate into for unknown archaeological remains on Biodiversity: there are hedgerows bordering this wider area. site. The site has in the past been subject the site, and a number of isolated stretches to an archaeological geophysical survey. U 18: Land opposite Rosehill Industrial of hedgerows within the site which could Results show that it is highly unlikely Estate - this site was allocated in the 2008 provide roosting, feeding or nesting sites for that archaeological remains of national Local Plan for a premier pedigree livestock birds or bats etc. These should be evaluated importance survive. The site should be centre. However, it is no longer needed for as part of any planning application. There is
237 a semi-mature tree belt along the south side development known as Barley Edge, where development will not detract from the of Durranhill Road. This should be retained. an access road has been created to serve setting of the listed building as new housing this site, unless a suitable alternative access development (Barley Edge) exists between Heritage assessment: prehistoric remains can be provided in conjunction with, and the site and the building. Prehistoric survive on the site. An archaeological desk without prejudice to, the development of remains have been revealed on an adjacent based assessment and field evaluation will be site U18. Access should be safe and the residential development site and there is required at the planning application stage. development of the site should ensure good further potential for unknown archaeological Flooding/drainage: non-motorised links to the surrounding area remains to survive. An archaeological desk- • Durranhill Beck - there are capacity issues as well as improvements to the existing to based assessment and field evaluation further downstream. Need to be sure that accommodate the potential increase in use. will be required at the planning application development here won’t exasperate that Mitigation measures for traffic impact will stage. situation. be needed not only to allow the additional Flooding/drainage: motorised traffic, but also pedestrian U 20: Land south of Durranhill Road, • Small area of surface water flooding to the movements to main attractors (schools, Botcherby - this parcel of land was part of east of the site; and retail, leisure). a larger allocation in the 2008 adopted Local • Durranhill Beck - there are capacity issues Plan. There is an existing regular bus service Biodiversity: no statutory or non-statutory further downstream. Need to be sure that along Durranhill Road, and the site is close to designations apply within or adjacent to development here won’t exasperate that local services and facilities, including primary the site. TPO 254 applies along the north situation. schools and an employment area at Rosehill. western boundary of the site and any new The layout and design of the site must take development would have to comply with Other constraints: TPO 254 along the north account of the protected trees, adequate the Council’s adopted SPD Trees and western boundary of the site. The Carlisle to separation distances between existing Development. Newcastle railway line forms the southern housing and the proposed new housing. boundary of the site. Heritage assessment: Chapel Brow, a Grade Highways advice: access will be from II listed building sits on the opposite side Durranhill Road, through the adjacent of Durranhill Road. However, this proposed
238 U 21: Former Laing’s site, Stanhope Road effect on the interest features for which the Rural Area: to the east of this site, and fronting onto designated site has been classified subject Dalston Road is a recently constructed to satisfactory measures to control run off R 1: Land south of Carlisle Road, 1,532 m2 retail food store. The layout of the during construction and on completion of Brampton - this site is located on the development incorporates an access road the site. edge, but within walking distance of the designed to link through to this allocated town centre, which has a wide range of Heritage assessment: no known heritage housing site. This is a brownfield site, which local services and facilities. The site abuts assets within or adjacent to site. was allocated in the 2008 Local Plan for existing housing development on its north mixed use. High quality and design and Flooding/drainage: eastern and eastern sides, and is opposite layout will be required in order to contribute • the Environment Agency’s surface water established housing and employment uses towards improving the character and mapping indicates flooding around the on the northern side of Carlisle Road. The appearance of the local area. Dow Beck, edge of the site which may affect access; western boundary of the site abuts open which is classified as ‘main river’ runs countryside, and care will need to be • brownfield site - unlikely to reach adjacent to the northern boundary of the site. taken over the design of the boundaries greenfield run-off standards, but a to ensure that the development integrates Highways advice: the Highways Authority betterment in run off rates should be with surrounding land uses. Within the site has advised that Stanhope Road is a local sought through development; and there will be land set aside for the provision distributor road and there may be a need to • 8m buffer from Dow Beck (culverted) of a medical centre to accommodate the improve its junctions with Wigton Road and main river required. relocation of the Brampton Medical Practice, Dalston Road. which has a requirement to expand to Biodiversity: no statutory or non-statutory purpose built premises. designations apply within or adjacent to the Highways advice: the Highway Authority site. Dow Beck runs along the north western has advised that this site is well positioned boundary of the site and ultimately drains just to the west of the town centre and into the River Eden SSSI and SAC. However, therefore close to local facilities. However, the proposal is not likely to have a significant there are likely to be town centre parking
239 and school muster time issues with this scale boundary of the Brampton Conservation obtaining rights over third party land. The of development, which will require mitigation Area (CA). The CA is not visible from the adjoining land owner from Kingwater Close measures. site. New development should not directly and Gelt Rise is Riverside. Discussions with imitate the existing development in this area, Riverside have led to agreement in principle Biodiversity: there are no statutory or non- but should be well designed with respect for access over their land to facilitate this statutory designations which apply within for the local context, and have its own well development. or adjacent to the site. Substantial roadside established character and appearance. hedgerows (although species poor), should Biodiversity: no statutory or non-statutory be retained as far as possible, with the Flooding/drainage: designations apply within or adjacent to exception of where their removal is required • no apparent flooding issues; and the site. TPO 225 covers land immediately for site access sight lines. adjacent to the north west corner of the site. • possible opportunities for infiltration SUDS There are mature hedgerows around the Heritage assessment: there is a grade II listed due to sandy soil (this has been done in boundary of the site. building (Green Lane House) on Greenhill. the locality). However the building lacks a strong presence Heritage assessment: there is a Grade R 2: Land west of Kingwater Close, as it is partly single storey and is screened II listed building (Green Lane House) Brampton - this site is City Council owned. by mature roadside trees. It is also not adjacent to the western boundary of the There is agreement with the landowner at visible from the proposed housing site as it site. The property operates as a private Kingwater Close to achieve access to the is separated from the site by a row of two residential care home, and is part single/ site. The land is within walking distance of story semi-detached houses, (Elmfield). part two storey. There have been a variety of the town centre, which has a wide range of Therefore the development of this site is extensions over recent years, and there are local services and facilities. The landscape unlikely to harm the setting of the listed a number of outbuildings. On the eastern has the capacity to absorb additional building. Prehistoric and Roman remains boundary of the plot, between the building development without adverse impacts. survive around the borders of the site. An and the proposed development site there is archaeological desk-based assessment Highways advice: the Highway Authority a mature hawthorn and beech hedge, which and field evaluation will be required at has indicated that the site is well related to stands on a one metre mound. This partially the planning application stage. The north the town centre, but access would require obscures the building and its setting from eastern corner of the site lies 100m from the the adjacent site. It is considered that the
240 site can be developed whilst still preserving taken to either integrate or divert the route of setting of the listed building. Roman remains the setting of this listed building. the public footpath which crosses the site. survive around the borders of the site. An archaeological desk-based assessment Flooding/drainage: Highways advice: the Highway Authority has and field evaluation will be required at the • no apparent flooding issues; and indicated that a development of this size planning application stage. would require a link road to Local Access • possible opportunities for infiltration SUDS standards. Direct access to properties from The site lies within the buffer zone of due to sandy soil (this has been done in the A6071 (Brampton to Longtown Road) Hadrian’s Wall World Heritage Site (WHS). the locality). would not be permitted. A public footpath The buffer zone protects the visual setting Other constraints: there is a public footpath passes through the site. of the WHS, but at this point there is no running along the western boundary of the inter-visibility between the WHS and the Biodiversity: no statutory or non-statutory site which connects with Greenhill. allocation. designations apply within the site. However, R 3: Land north of Greenfield Lane, there are a number of mature trees within Flooding/drainage: Brampton - this is a large site which is the site, and a low roadside hedgerow which • main river abuts site to north - 8m buffer connected to the built edge of Brampton is predominantly hawthorn. The trees and required; and at Dacre Road and Greenfield Lane. The the hedgerow are likely to provide feeding • the site could drain into river in the north. southern corner of the site will require corridors and roosting sites for birds. careful design considerations in the context Other constraints: TPO 217 applies to Heritage assessment: the Grade II listed of the small bungalow on the corner of trees on the eastern boundary of Garth Garth House lies adjacent to the south Dacre Road, and the protected trees on the House. These mature trees will require western corner of the site. However, a boundary of Garth House, which is a listed adequate separation distance from any new dense tree screen which is protected by a building. Care will need to be taken over the development as set out in the adopted SPD TPO separates the two sites. As such the design of the site in relation to the Brampton Trees and Development. listed building has a very limited presence, to Longtown road frontage, in both matters and its setting is defined by the mature of layout, design and boundary treatment. In tree boundary. Development of this site addition, particular measures will need to be would be unlikely to cause harm to the
241 R 4: Site of former Lochinvar School, Flooding/drainage: Biodiversity: no statutory or non-statutory Mary Street, Longtown - this is a former • main river crosses the north west boundary designations apply within or adjacent to the secondary school site owned by Cumbria of the site. Eight metre clearance applies; site. The land is agricultural grassland, and County Council. The buildings have been and is bordered by mature hedgerows which cleared. The site is well contained within the are likely to provide wildlife corridors and • the site is flat and will drain to the north. As existing built form of Longtown. The layout habitats for a variety of species. this is a brownfield site, any development and design of the development on this should result in a betterment in run-off Heritage assessment: the site lies within the site will need to protect the amenity of the rates. boundary of a much larger area which is community buildings and create a suitable on the English Heritage register of Historic buffer to the retained playing fields to the R 5: Land south of Old Road, Longtown - Battlefields, (Battle of the Solway Moss). east. this site lies on the eastern edge of Longtown The purpose of the register is to offer and is bordered to the south by the Longtown Highways advice: information provided battlefields protection and to promote better to Brampton Road, and to the north by a shows an indicative access capable of understanding of their significance. minor link road (Old Road). The boundaries allowing for an appropriate access for this of the site are in the main established hedges Flooding/drainage: no major surface water scale of development. The development or tree belts which should be maintained issues. of the site should ensure good non- with any new development to help integrate motorised links to the surrounding area Other constraints: within Ministry of Defence the site with both the adjacent built edge of as well as improvements to the existing to Safeguarding Zone but unlikely to preclude Longtown and the open countryside beyond. accommodate the potential increase in use. development. Careful consideration will need to be given to Biodiversity: no local, national or the boundary treatment of the site where it R 6: Land west of Amberfield, Burgh by internationally designations apply within or abuts the housing and employment site to the Sands - the site adjoins recent housing adjacent to the site. There are a number of west. development to the south of the village, mature trees adjacent to the entrance to the and is close to the primary school. Much Highways advice: main access off A6071 with site. of the village is covered by Conservation potential secondary access of Old Road. Area designation, whilst the north of the village lies within the Solway Coast AONB.
242 Hadrian’s World Heritage Site (WHS) The site also lies adjacent to the Burgh by R 7: Land east of Cummersdale crosses the central part of the village from Sands Conservation Area (CA) boundary. Road, Cummersdale - a small site with west to east. This site lies outside all of This boundary is marked by a screen of community and parish council support for a these designations, and as such is less dense tree and hedge cover, giving limited modest increase of up to 14 houses. There constrained. Development here should seek views into or out of the CA. The CA at this are a number of mature trees along the to create and enhance green infrastructure point is mainly either private or public open northern boundary of the site, and adequate connections with the centre of the village. green space, with very few buildings. New separation distances will be required The creation of a pavement connecting development will be expected to harmonise between new houses and the canopy of the the site with the Primary School is likely with the grain of the CA, and respond to the trees. The location of the site on the edge to be required to ensure any development local form, context and character. of the village will not increase traffic flow is sustainable from an accessibility through the village, as the primary school, An archaeological evaluation has revealed perspective. pub and village hall are all located within Roman remains surviving on the site. These walking distance. Highways advice: access should be safe and will need to be investigated and recorded the development of the site should ensure prior to development commencing. Highways advice: the Highway Authority good non-motorised links to the surrounding has indicated that the site is a logical Flooding/drainage: area. extension to the village. The only constraint • surface water flooding is an issue at highlighted is that the site lies on a bend, Biodiversity: no statutory or non-statutory various points throughout the village; and as such the development will need to designations apply within or adjacent to the • need careful consideration of how it is be set back to provide the requisite visibility site. intended to address surface water issues; splays. Heritage assessment: the site lies within and Biodiversity: no statutory or non-statutory the buffer zone of Hadrian’s Wall Military • surface water run-off must not exacerbate designations apply within or adjacent to the Zone WHS. As such any development will any existing problems. site. have to be assessed on its impact on the outstanding universal value of the WHS, and Heritage assessment: the Spinners Arms is particularly on key views, into and out of it. a Grade II listed building which is separated
243 from the eastern boundary of the site by Biodiversity: no statutory or non-statutory Highways advice: the access visibility splays four houses. The development of the site is designations apply within or immediately from the site require careful consideration. unlikely to have an impact on this building. adjacent to the site. There is potential for The access will need to comply with An archaeological evaluation has revealed a range of species to be present within the adoptable road criteria. A speed survey will Roman remains surviving on the site. These vicinity of the site due to the network of be needed to inform the aforementioned will need to be investigated and recorded hedgerows in the area. splay requirements. prior to development commencing. Flooding/drainage: Biodiversity: there are no statutory or non- Flooding/drainage: • foul drainage can connect to the public statutory designations which apply within • flat land so would look to see SUDS sewer via a pumping station; or adjacent to the site. There is potential measures incorporated. for a range of species to be present within • capacity exists in the existing sewage the vicinity of the site due to the network of Other constraints: a number of mature trees network to accommodate the foul flow from hedgerows in the area. are located along the northern boundary of the development; and the site. Flooding/drainage: • surface water to be disposed of via • potential land drainage issues which will R 8: Land adjacent to Beech Cottage, soakaways. require further investigation. Cumwhinton - the site has planning R 9: Land west of How Croft, permission subject to the signing of a R 10: Land at Hadrian’s Camp, Houghton - Cumwhinton - adequate provision for Section 106 agreement (application reference the site has outline planning permission for access can be made between a gap in 12/0856), for 15 dwellings including three 96 houses (planning application reference existing properties on the B6263. The site has affordable bungalows and one dwelling 12/0610) and is allocated in the Local Plan to housing on its western, northern and eastern for an elderly person. The site is therefore safeguard the permission. A reserved matters boundaries, and is well contained within allocated to safeguard the permission, as application (14/0930) was received at the end the landscape. Any development proposals the principle of development on this site has of October 2014 for 99 houses (including 25 must ensure that any existing surface water been accepted. affordable dwellings). drainage issues are fully addressed in the Highways advice: the Highways Authority has design of the development. The village has a Highways advice: the Highways Authority not raised any highways issues. number of local amenities and services, and has not raised any significant issues with the an hourly bus service to Carlisle. 244 proposal, subject to satisfactory visibility Heritage assessment: Historic England has something of an eyesore, and which are splays being provided onto Houghton Road, commented that it is likely that this site can unsuitable for ongoing commercial use. Its and no properties being accessed directly be developed without unacceptable impact redevelopment for housing would yield a from Houghton Road. on the Hadrian’s Wall World Heritage Site, significant amount of affordable housing, subject to a height limit of no more than 2½ and lead to an improvement to the local Biodiversity: Natural England has storeys. environment. The site lies close to junction commented as follows: The watercourses 44 of the M6, and employment areas and - Brunstock Beck and Gosling Sike - both Flooding/drainage: other services in the north of Carlisle. There discharge into the River Eden and Tributaries • only foul drainage connected into the foul are a number of small businesses in Harker. SSSI and SAC. We advise that sufficient sewer - foul water must discharge into the There is a primary school at Blackford which pollution prevention measures will need manhole located at Brampton Old Road; is just over 2km away. Providing a safe route to be designed into the detailed drainage • surface water drainage to discharge to school is likely to be an issue which will design, and employed on site during the into either a soakaway/infiltration or need to be addressed as part of any planning construction period, in order to not impact watercourse; land drainage or subsoil application. on the interest features of the designated drainage water must not be connected river. Highways advice: would require cycle into the public sewer; path along C1015/1022. Site has poor The site and the surrounding area is • the connection of highway drainage from accessibility and would potentially require a designated as a non-statutory County the proposed development to the public developer contribution to improve bus service Wildlife Site. The biodiversity interest of the wastewater network will not be permitted; frequency. Improvements will be required to site is due to its mosaic of habitats including and enhance pedestrian and cycle facilities linking orchid rich grassland. The ecological the site to nearby schools etc. assessment prepared to inform the planning • the Environment Agency requires a application recommends that the species greenfield rate of discharge. Biodiversity: no statutory or non-statutory rich turfs are relocated to an area to the east designations apply within or adjacent to R 11: Kingmoor Park Harker Estate, of the application site which are currently the site. The main river which runs along Low Harker - an underused brownfield under metalled road surfaces, the surfaces the southern boundary of the site ultimately site with outdated buildings which are to be removed and broken up beforehand. drains to the River Eden and Tributaries SSSI
245 and SAC. However, housing development is R 12: Land east of Monkhill Road, the listed building and its setting. Prehistoric not likely to have a significant effect on the Moorhouse - a modest increase of 10 remains survive adjacent to the site. An interest features for which the SAC has been houses over the plan period is considered archaeological desk-based assessment classified , subject to satisfactory measures acceptable for the size and scale of the and field evaluation will be required at the to control run off during construction and on village. Although there are limited services planning application stage. completion of the site. within the village, other nearby villages of Flooding/drainage: Burgh, Great Orton and Kirkbampton have Heritage assessment: no known heritage • there have been drainage issues within primary schools, pubs, village halls and a assets within or adjacent to site. Moorhouse in the past; and shop. The primary school at Burgh by Sands Flooding/drainage: is currently has spare capacity. • United Utilities developed a first time • likely surface water issues on site; sewerage project here but consideration Highways advice: the Highway Authority has would need to be given to surface water • main rivers border site – 8m buffer zones indicated that there may be a gradient issue, and where it might discharge to – this will be required; but the development is acceptable from a doesn’t rule out the development but it highways point of view in principle. Junction • potential for surface water flooding on may be hard to find a suitable place to spacing will need to be considered. south west corner – would need to be drain. careful with the layout to this part of the Biodiversity: no statutory or non-statutory Other constraints: mature tree within centre site - may provide the opportunity for open designations apply within or adjacent to of site should be retained and protected, space here; and the site. The roadside hedgerow is likely to being incorporated within the layout to provide a habitat for wildlife and should be • could cause surface water issues for any provide focal point and mature landscape retained after taking into account access potential future land use to the south. element. arrangements. Other constraints: brownfield site - some R 14: Land at Tower Farm, Rickerby Heritage assessment: Grade II listed building contamination may be present and A small village very close to the edge of (Fairfield) opposite southern boundary of the remediation likely. Carlisle. The whole village is covered by site. Any development on this site will be a conservation area designation and the expected to minimise any adverse impact on majority of the buildings, apart from this site,
246 lie within flood zones two and three. The with the grain of the conservation area by into any development of this sensitive scale of the proposed development, at 10 respecting historic layout, road patterns and site, effectively a gateway to the Rickerby houses, is considered appropriate for the land form etc. New development should not Conservation Area. scale and form of the village. The site is a directly imitate existing, but should be well Flooding/drainage: gateway to the conservation area, and the designed with respect for its context, and • small amount of surface water flood risk 19th century barns and stables should be have its own well established character and susceptibility; and retained and converted creatively into the appearance. New development should also redevelopment of this site. protect important views into and out of the • drain to the south and/or west. area. Prehistoric remains survive adjacent Highways advice: the Highway Authority has Other constraints: TPO 191 covers a number to the site. An archaeological desk-based advised that there are no major issues with of trees on the western boundary of the site. assessment and field evaluation will be the site. A speed survey will be required to required at the planning application stage. R 15: Land east of Scotby Road and north inform the visibility splay requirement. of Hill Head, Scotby - the site lies at the The Old School House, and Wayside and Biodiversity: no statutory or non-statutory northern end of Scotby, with easy access Old School Cottage are grade II listed designations apply within the site. However, to the A69 and junction 43 of the M6, and buildings which lie approx 100m from the the land lies within 150m of the River Eden to Carlisle. Careful design of the layout western boundary of the site. However, a and Tributaries SSSI and SAC. Sufficient including type of dwellings and location of large new bungalow has been constructed pollution prevention measures will need open space will be required to minimise between the site and The Old School House, to be designed into the detailed drainage impact on the occupiers of the existing effectively resulting in neither listed building design, and employed on site during the housing and bungalows which border the being visible from the site. construction period, in order to not impact site on both Hill Head and Scotby Road. The on the interest features of the designated The existing buildings on the site, while not layout should ensure appropriate distances river. statutorily listed, are nonetheless designated between existing and proposed dwellings to heritage assets by virtue of their setting ensure no adverse effect on the residential Heritage assessment: the site lies within the within the conservation area. The Nineteenth amenity of existing residents. The boundary Rickerby Conservation Area. As such, the Century stables and barns on the site would of the site with the open countryside to the development of this site should harmonise be expected to be incorporated creatively east should reflect the transition from the
247 development to the open countryside for 50m to the east of the site. Prehistoric Highways advice: there are no fundamental example by the use of hedgerows. The main remains survive adjacent to the site. An issues with the proposed development. access will be onto Scotby Road, but there is archaeological desk-based assessment Biodiversity: no statutory or non-statutory potential for a secondary access to Hill Head. and field evaluation will be required at the designations apply within or adjacent to The roadside hedgerow fronting the A69 planning application stage. the site. A key issue is that a length of should be retained. The hedgerow fronting Flooding/drainage advice: potential hedgerow is to be removed for access Scotby Road should also be retained unless drainage issues on site. to the site. This must be undertaken some limited removal is required for sight outside of the bird nesting season. The lines. Other constraints: the North Western area is especially important for protected Ethylene Pipeline lies to the east of the Highways advice: the proposed access will species such as yellowhammer, spotted site, and is operated by Essar Oil (UK). It require upgrading to be wide enough for two flycatcher and tree sparrow. Some form of is a significant pipeline asset of strategic way traffic and pedestrian footways. No other appropriate compensatory planting should importance in the supplies of oil and gas from highways issues raised, other than some be undertaken so as to avoid a net loss of the North Sea. The pipeline is classified by junction capacity testing may be required. hedgerow biodiversity. the Health and Safety Executive as a major Biodiversity: the site lies within 150m of accident hazard pipeline (MAHP) and as such Heritage assessment: there is an Powmaughan beck which is a tributary of is subject to land use planning constraints. unscheduled archaeological site to the the River Eden and Tributaries SSSI and north and south of this site. It is therefore R 16: Land at Broomfallen Road, Scotby - SAC. However, housing development is recommended that an archaeological the site has planning permission for not likely to have a significant effect on the evaluation and, where necessary, a scheme 28 houses (including seven affordable interest features for which the SAC has been of archaeological recording of the site be houses), subject to the signing of a Section classified, subject to satisfactory measures undertaken in advance of development. 106 agreement to secure the affordable to control run off during construction and on units, open space, community transport, Other constraints: public bridleway 138049 completion of the site. education contribution and waste bins. The runs along the northern and north western Heritage assessment: an unscheduled site is allocated to safeguard the planning boundary of the site. archaeological site lies approximately permission.
248 R 17: Land east of Little Corby Road, Heritage assessment: Grade II listed Little R 18: Land to the south of Corby Hill to Little Corby/Warwick Bridge - the site Corby Hall lies 100m north of the site. The Heads Nook Road, Corby Hill/Warwick presents an opportunity to enhance the Hall was built in 1702 from dressed red Bridge - located to the east of Corby Hill, approach to Corby Hill with a development sandstone, with end walls of brick/part this site can be accessed from the Corby that reflects local design. Any development rendered. This is an attractive building in an Hill to Heads Nook Road, and makes here would need to have full regard to the open setting which has a strong presence provision for up to 30 houses. Where the setting of Little Corby Hall, a Grade II listed in this location. There is clear visibility from site abuts open countryside to the east and building. The development boundaries the proposed housing site to Little Corby south, careful consideration will need to consist of mature hedges which should be Hall. In order to preserve the setting of the be given to boundary treatment in order to retained and reinforced where necessary by listed building, the density of development integrate the development with the open additional planting to enhance biodiversity on the site has been reduced to give scope countryside. The frontage of the site onto and to help integrate the development with for better design. The site presents an the public highway will also need high its rural aspect to the north and east. opportunity to enhance the approach to quality design and layout to complement Corby Hill with a development that reflects the attractive approach to the village at this Highways advice: the Highway Authority local design better than the post war point. has indicated that pedestrian linkages to estate development that currently forms the Hurley Road Estate would be essential, Highways advice: Main access off Heads its northern edge. Any development here as would improvements along Little Corby Nook to Corby Hill road. would need to have full regard to the setting Road. of Corby Hall, which until post war years, Biodiversity: the site is located just under Biodiversity: no statutory or non-statutory enjoyed an isolated location, set apart from 500m from the River Eden and Tributaries designations apply within the site. However, the small hamlet of Little Corby. SSSI/SAC. Trout Beck which crosses the the River Eden and Tributaries SSSI and site is a tributary of this designated site. Flooding/drainage: SAC lies within 100m of the site. Appropriate Development must ensure no adverse • relatively flat site; and measures will need to be taken to ensure impact on the special interest features of the that foul and surface water drainage does • drain into watercourse to the west. designated site from run off etc. not impact on the interest features of the designated river.
249 Heritage assessment: unlikely to impact on Highways advice: the Highways Authority New development will be expected to the setting of Warwick Mill Main Mill and High has not raised any issues regarding this site. harmonise with the local context both within Buildings listed buildings. and adjacent to the CA. Biodiversity: there are no statutory or non- Flooding/drainage: statutory designations within or adjacent to Flooding/drainage: • area around Trout Beck classified as flood the site. There are a number of hedgerows • historically lack of WWTW capacity has zone 2 and 3; and within and on the boundary of the site which been an issue with new development; are likely to provide habitats and feeding • Trout Beck classified as ‘main river’, • initial assessment of capacity at WWTW areas for birds. 8 metres clearance required either side. has been revised. Monitoring has shown Heritage assessment: Grade 1 listed the situation is not as bad due to the R 19: Wetheral South - there are Wetheral Priory and Gatehouse lies 250 brewery permission in Great Corby not acknowledged issues with the capacity of metres from the site. There are also two being implemented; the waste water treatment works (WWTW) for scheduled ancient monuments within the Wetheral. However, increasing the capacity • foul water connections can potentially Wetheral Abbey Farm cluster. The land rises of the WWTW is in the United Utilities connect now; steeply to the west of the listed building, forward funding plan. In the meantime United blocking views of the heritage asset from • increasing the capacity is in the United Utilities has advised that any surface water the wider landscape. The roofs of the Utilities funding plan - expected delivery should discharge at the lowest possible rate. westernmost houses on The Glebe are only of improved works 2020 will upsize the This will be at a rate which is less than the just visible. It is unlikely that development of works to take additional flow; and average greenfield run-off rate. The surface the proposed site would adversely impact water drainage system should include on-site • some surface water flood risk within area the character and setting of the listed attenuation. The site lies adjacent to Wetheral to adjacent properties - the run off across building. Wetheral CA boundary lies adjacent Conservation Area (CA) boundary, and as the site would need to be managed to to part of the northern boundary of the site. such new development will be expected to prevent this. The CA at this point has a range of designs harmonise with the local context. and sizes of two storey properties, finished in stone, render and brick, in a compact layout.
250 R 20: Land west of Steele’s Bank, south Flooding/drainage: with local architect and landower Sarah of Ashgate Lane, Wetheral - whilst the site • the main issue in Wetheral is lack of sewer Losh 1785-1853. A number of nearby listed is bordered to the north and east by existing capacity; buildings include St Mary’s Church, (Grade housing, the landscape in this location is II*), the Grade II Mausoleum, and to the • initial assessment of capacity at WWTW flat and open, and very careful design of immediate north of the site is the Grade II has been revised. Monitoring has shown the layout and housing will be required to Pompeian Cottage. the situation is not as bad due to the establish an attractive edge to the village brewery permission in Great Corby not The site is sensitive given its high density and prevent any adverse impact on the being implemented; of designated heritage assets and also the properties on both Ashgate Lane and Steele’s relative low-density of Wreay as a whole. Bank. Adequate separation distances will be • foul water connections can potentially Any design should be of extremely high required between the new development and connect now; quality and fully respond to the sensitivity of the mature trees which fringe the cemetery, in • increasing the capacity is in the United its surroundings. accordance with the adopted SPD Trees and Utilities funding plan - expected delivery of Development. Highways advice: the Highway Authority has improved works 2020 will upsize the works not raised any issues regarding this site. Highways advice: the Highway Authority has to take additional flow); and not raised any issues regarding this site. Biodiversity: there are no statutory or non- • some surface water flood risk within area statutory designations which apply within or Biodiversity - there are no statutory or non- to adjacent properties - the run off across adjacent to the site. There are good roadside statutory designations which apply within or the site would need to be managed to hedgerows which are likely to provide adjacent to the site. There are a number of prevent this; habitats and feeding area for birds etc. hedgerows within and on the boundary of the R 21: Land west of Wreay School, Wreay site which are likely to provide habitats and Heritage assessment: Wreay is a notable Wreay is a small village with a good range feeding areas for birds and other wildlife. location thanks to its association with local of local services including a primary school architect and landower Sarah Losh 1785- Heritage assessment: no known heritage with spare pupil capacity. Though not 1853. A number of listed buildings are in assets within or adjacent to site. designated as a conservation area, Wreay proximity to this proposed site, all by her is a notable location due to its association hand. These include St Mary’s Church,
251 which is Grade II* listed, located on the opposite side of the road to the south eastern corner of the site. Associated with this are a number of other listed structures in the vicinity of the Church including the Grade II Mausoleum. There is a mature tree belt which provides some screening of the site from some of these structures. Any development would have to respect, and not cause harm to the significance and setting of these listed buildings. To the immediate north of the site is the Grade II Pompeian Cottage, built in 1830 by Sarah Losh as a school master’s house, and a replica of a house excavated at Pompeii.
Flooding/drainage: • main river runs down western side of site - 8m buffer would be required; and
• watercourse would provide point of discharge.
252 2 Appendix 2
Local Plan Monitoring Framework
The below schedule should be read within the context of Chapter 11 of the Local Plan.
253 Policy Objective Indicator Trigger Possible Actions SA Objective Spatial Strategy and Strategic Policies % applications Timely approval of determined within Review circumstances with applications that Sustained poor SP 1 statutory timescales Development Management and All represent sustainable performance identify further actions as necessary development % appeals dismissed
Negative deviation Net cumulative from trajectory for a total new dwelling Delivery of at least sustained two year completions 9,606 net additional period Depending on the scale and nature of dwellings between Projected rates of Anticipated or actual the potential under-delivery/deviation, 2013 and 2030 delivery as illustrated shortfall in five year actions may include: through the housing supply of housing • engaging with stakeholders; trajectory land 1, 2, 5, 6, 7, 11, SP 2 • the preparation of an interim Approximately Actual and projected 13, 16 Urban/rural split position statement; 70% of new homes completions of gross housing • bringing forward additional delivered in the significantly deviating completions allocations; and/or Urban area from target. • a partial review of the Local Plan Annual Five Year Anticipated or actual Five years of Housing Land shortfall in five year deliverable housing Supply Position supply of housing land at all times Statement land
254 Policy Objective Indicator Trigger Possible Actions SA Objective
Employment Land uptake (Ha) and type Uptake analysis Adequate delivery of (B1/B2/B8) and forward supply Diminishing of employment land Amount of forward supply of to support economic employment land employment land growth available (Ha) and (Ha) and type type (B1/B2/B8) (B1/B2/B8) Realisation of Depending on the scale and the opportunity Progress toward the nature of any shortfall, actions presented by the part delivery and take up Stalled progress may include: commercialisation of 1, 2, 5, 6, 7, 11, 13, SP 2 of the opportunity • engaging with stakeholders; MOD Longtown 16 and/or (Solway 45) • a partial review of the Local Take up of additional Plan 18,700 m² (net) additional New (net) Under delivery and comparison retail Comparison Retail no forward supply floorspace between Floorspace 2012 and 2030 Respond to opportunities Amount of and encourage Little or no reuse of development on development on previously developed previously developed previously developed land land land
255 Policy Objective Indicator Trigger Possible Actions SA Objective
• Review circumstances; Masterplan and Deviation from LDS Progress against • engage with stakeholders; infrastructure delivery without legitimate timetable set out in • review LDS; and/or strategy in place for reason (as reported LDS • secure additional resources to Carlisle South in the AMR) accelerate delivery Actual dwelling Depending on the scale and nature SP 3 1, 13 completions at of the potential under-delivery, Housing/ Housing delivery at Carlisle South. actions may include: infrastructure delivery Carlisle South in line with • engaging with stakeholders; not in accordance Masterplan Progress against and/or with Masterplan delivery of required • partial Review of the Masterplan infrastructure and IDP (including phasing)
Protect and enhance the City Centre Health Sustained decline in vitality and viability of the Depending on the scale and nature Check health of City Centre City Centre of the decline/lack of progress, actions may include: 1, 2, 5, 6, 7, 11, SP 4 Lack of published Realisation of City Progress towards • review circumstances; 13, 16, 17 year on year Centre and Caldew the realisation • engage with stakeholders; and/or progress towards Riverside development of identified • partial review of the Local Plan implementation of a opportunities opportunities deliverable scheme
256 Policy Objective Indicator Trigger Possible Actions SA Objective
To protect and enhance the strategic connectivity of the District and Progress towards Engage with stakeholders in support delivery of SP 5 delivery of identified Stalled progress particular in context with the IDP/ 1, 2, 4, 7, 11, 12 priorities as identified priorities LTP in the Infrastructure Delivery Plan and Local Transport Plan High quality design Review circumstances and if 1, 9, 10, 12, 13, SP6 which supports/ creates Policy usage Decision monitoring appropriate review Policy and 14, 15,16, 17 a strong sense of place alternatives Net change in designated heritage Negative trends assets Number of To protect, enhance and conservation areas Deviation from Review circumstances, engage with enable the enjoyment of with up to date agreed programme SP 7 stakeholders and consider options if 1, 6, 16, 17 the District’s heritage and appraisals and for appraisals necessary cultural assets management plans Number of designated heritage Negative trends assets considered to be at risk
257 Policy Objective Indicator Trigger Possible Actions SA Objective
Protection and enhancement of an 1, 3, 4, 5, 6, 7, interconnected and Policy usage and Engage with stakeholders in SP 8 Decision monitoring 11, 12, 14, 15, multifunctional green S 106 Monitoring particular in context with the IDP 16, 18, 19 and blue Infrastructure network Improve the health and Health Profile/Joint Review circumstances, engage with 1, 2, 4, 7, 8, 9, sense of wellbeing of the Strategic Needs SP 9 Negative trends stakeholders and consider options if 11, 12, 13, 14, District’s population, and Assessment of the necessary 19, 20 reduce health inequalities District To support efforts to Review circumstances, engage with Levels of education SP 10 up-skill the District’s Negative trends stakeholders and consider options if 1, 2, 13, 20 attainment population necessary Economy
To support economic Depending on rate of delivery and/ growth and increase the or speed of progress, actions may No or limited level of high value jobs Take up of the include: prospect of take up EC 1 within the local economy allocated 45Ha • engaging with stakeholders; 1, 2 of allocated land as through making land employment land • review evidence; and/or reviewed annually available for employment • a partial review of the Local Plan land purposes
258 Policy Objective Indicator Trigger Possible Actions SA Objective
Vacant floorspace Sustained net To safeguard primary (m2) and/or land on increase in vacancy Depending on the scale and nature employment areas designated Primary rates of the position, action may include: to ensure land and Employment Areas • engaging with stakeholders; and/ premises are available to Loss of Primary EC 2 Sustained net loss or 1, 2, 7, 20 provide the wide variety Employment of land (Ha) and/or • review appropriateness of of sites required to meet Areas (Ha) and/or floorspace (m²) to designation the needs of businesses floorspace (m²) to non-employment across the plan period non-employment (B1, B2, B8) uses (B1, B2, B8) uses % of ground floor To maintain the vitality units within the and viability of Primary Primary Shopping Shopping Areas through Areas in A1 use Review circumstances and if EC 3 the retention of high % of ground Negative trend appropriate review policy and 1, 2, 5, 6, 7, 11 levels of retailing (Use floor units within alternatives Class A1) at ground floor designated Primary levels Shopping Frontages in A1 use
259 Policy Objective Indicator Trigger Possible Actions SA Objective
Lack of published Depending on rate of delivery and/ Progress towards year on year or speed of progress, actions may the delivery and take progress towards Delivery of a District include: EC 4 up of the allocation implementation of a 1, 2, 7, 11, 14 Centre • engaging with stakeholders; including foodstore deliverable scheme • review evidence; and/or anchor Superseded master • a partial review of the Local Plan plan
To protect the vitality and District and Local Review circumstances and if EC 5 viability of District and Centre Health Negative trends appropriate review policy and 1, 2, 7, 11, 16, 20 Local Centres Checks designations
To protect the vitality Retail Centre Health and viability of defined Checks Review circumstances and if retail centres through New Comparison EC 6 Negative trends appropriate review policy and 1, 2, 5, 7, 11 controlling inappropriate Retail floorspace alternatives out of centre retail and (m2) in out of centre leisure developments locations
To help establish a strong Review circumstances and if sense of place through EC 7 Policy usage Decision monitoring appropriate review policy and 7, 16, 17 well designed shop alternatives fronts
260 Policy Objective Indicator Trigger Possible Actions SA Objective
To facilitate the creation Retail Centre Health Negative trends Review circumstances and if of a vibrant and viable Checks EC 8 appropriate review policy and 1, 2, 7, 11, 20 food and drink offer Policy usage Decision monitoring alternatives across the District
To protect and enhance Review circumstances and if the District’s arts, 1, 2, 7, 11, 12, EC 9 Policy usage Decision monitoring appropriate review policy and cultural, tourism and 14, 16 alternatives leisure offer To facilitate visitor Review circumstances and if EC 10 accommodation in Policy usage Decision monitoring appropriate review policy and 1, 2, 4, 16, 17 appropriate locations alternatives To enable rural Review circumstances and if diversification in order EC 11 Policy usage Decision monitoring appropriate review policy and 1, 2, 5, 16 to support the rural alternatives economy
To support ongoing Review circumstances and if agricultural investment EC 12 Policy usage Decision monitoring appropriate review policy and 1, 2, 16, 20 and activities within the alternatives District To support ongoing Review circumstances and if equestrian investment EC 13 Policy usage Decision monitoring appropriate review policy and 1, 2, 12, 16, 20 and activities within the alternatives District
261 Policy Objective Indicator Trigger Possible Actions SA Objective
Housing
Cumulative reduction Depending on the scale and nature in indicative yields of any potential under-delivery, actions may include: Site allocations Delivery of site • engaging with stakeholders; 1, 2, 5, 6, 7, 11, HO 1 contributing to housing allocations in line Allocations not • bring forward additional 12, 13 delivery as anticipated with policy coming forward allocations utilising evidence from within the plan period the SHLAA; and/or indicated. • a partial review of the Local Plan
Annual average of Actual and projected Sustained lower Review windfall rate employed in HO 2 at least 100 windfall rates of windfall 1, 2, 6, 9, 13 windfall delivery rates trajectory and land assessments dwelling completions delivery
To preserve the character Review circumstances and if HO 3 and quality of housing Policy usage Decision monitoring appropriate review policy and 1, 9, 13, 14, 16 areas alternatives
262 Policy Objective Indicator Trigger Possible Actions SA Objective
Review circumstances and if No. of affordable appropriate: homes delivered • engage with stakeholders; To contribute towards • review housing need and/or meeting affordable housing Negative trends viability evidence; needs through securing No. of affordable in percentages HO 4 • the preparation of an interim 1, 6, 13, 14 affordable homes from housing secured secured and position statement; qualifying open market via Development delivered on sites • bring forward additional housing developments Management allocations utilising evidence from process the SHLAA; and/or • a partial review of the Local Plan
Review circumstances and engage To make provision for rural Decision HO 5 Policy usage stakeholders and if appropriate 1, 2, 13 housing need monitoring review Policy and alternatives To protect the open countryside from inappropriate housing Review circumstances and if Decision HO 6 development whilst Policy usage appropriate review policy and 1, 2, 5, 13, 14 monitoring recognising there may be alternatives special circumstances where new housing will be allowed Review circumstances and if To assist in protecting Decision 1, 5, 6, 9, 13, 17, HO 7 Policy usage appropriate review policy and Heritage Assets monitoring 20 alternatives
263 Policy Objective Indicator Trigger Possible Actions SA Objective
To assist in adaption Review circumstances and 1, 2, 9, 13, HO 8 of existing dwellings to Policy usage Decision monitoring if appropriate review Policy 16, 20 meet changes in lifestyle and alternatives To contribute to the mix Review circumstances and HO 9 of housing offer within Policy usage Decision monitoring if appropriate review Policy 6, 10, 13, 14 the District and alternatives Policy usage Decision monitoring Review circumstances and To contribute to the mix Number of additional No additional specialist and engage stakeholders and 2, 7, 9, 11, HO 10 of housing offer within specialist and/or or supported housing units if appropriate review Policy 12, 13, 14 the District supported housing delivered and alternatives units delivered Progress towards the build out of Net increase in the allocations permanent pitches Review circumstances and if Sustained increase in number and plots delivered appropriate: of unauthorised pitches/ To meet the • engage with stakeholders; developments accommodation • review evidence; Lower than cumulative 10% HO 11 needs of Gypsies and Turnover on • bring forward additional 11, 12, 13, 14 turnover on rented sites within Travellers and Travelling permanent sites allocations; and/or the District over a two year period Showpeople • a partial review of the Progress towards the build out of Net increase in Local Plan the allocations transit pitches and plots delivered Sustained increase in number of unauthorised encampments
264 Policy Objective Indicator Trigger Possible Actions SA Objective
Review circumstances and if To protect the amenity of HO 12 Policy usage Decision monitoring appropriate review Policy and 1, 2, 13, 14, 20 Primary Residential Areas alternatives Infrastructure
To ensure timely delivery of infrastructure needed Delivery mechanisms Continued deficit as Engage with stakeholders in 1, 3, 4, 6, 7, 11, IP 1 to support delivery of the within IDP identified in the IDP particular in context with the IDP 12, 14 Plan To minimise the impact of Type, nature and Continued deficit as Engage with stakeholders in 1, 2, 4, 7, 9, 11, IP 2 new developments on the location of new identified in the IDP particular in context with the IDP 16, 18, 19, 20 transport network developments To ensure appropriate Compliance with • Review circumstances; parking standards are any standards in • engage with stakeholders; Deviation from LDS adhered to operation • review LDS; without legitimate 1, 2, 6, 9, 13, IP 3 • secure additional resources to Progress against reason (as reported 14 Adoption of SPD setting accelerate delivery; and/or timetable set out in in the AMR) out parking standards • partial review of the Local Plan LDS
To ensure new Policy usage Decision monitoring developments benefit Engage with stakeholders in IP 4 Decision monitoring 1, 2, 13 from access to high speed Infrastructure particular in context with the IDP Continued deficit as internet Delivery Plan identified in the IDP
265 Policy Objective Indicator Trigger Possible Actions SA Objective
Levels of residual household waste per Engage with stakeholders To reduce the level of household (kg) and review circumstances 4, 10 ,13, 19, IP 5 waste and improve levels Negative trend Levels of household waste and if appropriate review 20 of recycling sent for re-use, recycling or Policy and alternatives composting (%) To ensure sufficient Policy usage Decision Monitoring Engage with stakeholders in capacity for foul water IP 6 particular in context with the 3, 13, 20 drainage to support Continued deficit as Infrastructure Delivery Plan IDP growth identified in the IDP To facilitate the ongoing Review circumstances and if IP 7 operation of Carlisle Policy usage Decision monitoring appropriate review Policy and 1, 2 Airport alternatives Depending on scale and To secure any measures nature of the issues, action agreed as necessary may include: S106/CIL monitoring Issues raised through the 1, 7, 11, 12, IP 8 to make development • engage with stakeholders; as reported annually annual reporting 13, 14 acceptable in planning and/or terms • partial review of the Local Plan
266 Policy Objective Indicator Trigger Possible Actions SA Objective
Climate Change and Flood Risk
Capacity in kW Decline in the number Depending on scale and nature of To facilitate/enable output of approved of applications the decline, action may include: development which CC1 applications received and/or • engage with stakeholders; and/ 1, 2, 4, 8, 10, 19 contributes to generating Number of capacity kW output or renewable energy applications received over a five year period • partial review of the Local Plan
To facilitate/enable Capacity in kW Decline in the number Depending on scale and nature of development which output of approved of applications the decline, action may include: contributes to generating applications received and/or • engage with stakeholders; and/ renewable energy from Number of capacity kW output or wind applications received over a five year period • partial review of the Local Plan CC 2 1, 2, 4, 8 • Review circumstances; Deviation from LDS • engage with stakeholders; DPD to identify suitable Progress against without legitimate • review LDS; and/or areas for wind energy timetable set out in reason (as reported in • secure additional resources to development is in place LDS the AMR) accelerate delivery
To ensure development proposals are energy Review circumstances and if CC 3 efficient and resilient to Policy usage Decision monitoring appropriate review Policy and 4, 8, 9, 10, 13 the impacts of climate alternatives change
267 Policy Objective Indicator Trigger Possible Actions SA Objective
No development which Number of would be subject to applications granted Engage with stakeholders in 1, 3, 4, 13, 14, CC 4 flood risk or increase the Negative trend against flood authority particular in context with the IDP 20 possibility of flood risk advice elsewhere Year on year increase Depending on the scale and nature Number of in number of of issues, actions may include: Prioritisation of SUDs in applications approved 3, 4, 9, 12, 13, CC 5 applications approved • engage with stakeholders; and/or new development sites contrary to advice of 14, 15 contrary to advice of • consider introduction of further appropriate bodies appropriate bodies guidance /SPD
Health, Education and Community
Type, nature and Support New Health Care Continued deficit as Engage with stakeholders in CM 1 location of new 1, 12, 14 Provision identified in the IDP particular in context with the IDP healthcare provision
Sufficient capacity Support Educational Continued deficit as Engage with stakeholders in CM 2 to support proposed 1, 2 Provision identified in the IDP particular in context with the IDP growth
Policy usage Decision monitoring Avoid loss of valued Review circumstances and if Number of facilities CM 3 community facilities and Increase of assets at appropriate review Policy and 1, 2, 7, 12, 14 registered as a services risk alternatives Community Asset
268 Policy Objective Indicator Trigger Possible Actions SA Objective
Design of development Decision Review circumstances and if CM 4 Policy usage 1, 4 deters crime monitoring appropriate review Policy and
To protect the Review circumstances and if 3, 4, 5, 6, 10, Decision CM 5 environmental and Policy usage appropriate review Policy and 12, 13, 14, 15, monitoring residential amenity alternatives 16, 18, 19, 20
To facilitate and enable Type, nature and Continued deficit Engage with stakeholders in particular in CM 6 additional cemetery and location of new as identified in 3, 4, 12, 18, 20 context with the IDP burial grounds cemetery provision the IDP
Historic Environment
To protect Hadrian’s Wall Decision Review circumstances and engage with HE 1 World Heritage Site from Policy usage 1, 12, 16, 17 monitoring stakeholders inappropriate development
To protect scheduled and non-designated archaeological assets as Net change in Review circumstances and if a resource for research, HE 2 designated heritage Negative trends appropriate review Policy and 1, 16, 17 education, leisure, tourism assets alternatives and for their influence on perceptions of identity and sense of place
269 Policy Objective Indicator Trigger Possible Actions SA Objective
Historic Environment
To protect buildings HE 3 1, 6, 9, 16, 17 and/or structures that have been placed on Net change in Review circumstances and if HE 4 1, 12, 15, 16, 17 the Statutory List of designated Heritage Negative trends appropriate review Policy and Buildings of Special Assets alternatives HE 5 Architectural or Historic 1, 12, 15, 16, 17 Interest
To protect locally important heritage assets Policy usage Decision monitoring that have not been Review circumstances and if HE 6 placed on the Statutory appropriate review Policy and 1, 6, 9, 16, 17 No of assets List of Buildings of alternatives included on a Local Negative trends Special Architectural or List Historic Interest
To preserve or Review circumstances and if enhance the character HE 7 Policy usage Decision monitoring appropriate review Policy and 1, 6, 9, 16, 17 and appearance of alternatives conservation areas
270 Policy Objective Indicator Trigger Possible Actions SA Objective
Green Infrastructure
Review circumstances and if To protect against 1, 12, 14, 15, 16, GI 1 Policy usage Decision monitoring appropriate review Policy and insensitive development 20 alternatives To protect and enhance the natural beauty and special characteristics 1, 9, 12, 14, 15, GI 2 Policy usage Decision monitoring Review Policy and alternatives and landscape quality of 16, 17 the Solway Coast and the North Pennine AONBs Net change Review circumstances and if No net loss of biodiversity in designated 3, 4, 15, 16, 18, GI 3 Negative trend appropriate review Policy and or geodiversity biodiversity and 19 alternatives geodiversity assets No unacceptable loss of Amount of public Depending on the scale and Loss of public public open space open space (Ha) lost nature of issues, actions may open space / failure include: Ensuring new housing to provide new Amount (Ha) • engage with stakeholders; 1, 4, 11, 12, 14, GI 4 developments in excess of provision contrary of public open • consider introduction of further 15, 16, 18, 19, 20 20 units, where required, to advice of the space secured guidance /SPD; and/or provide or contribute to the Council’s Green on new housing • partial review of the Local Plan creation of additional public Spaces team developments open space
271 Policy Objective Indicator Trigger Possible Actions SA Objective
Review circumstances and if No net loss of public Amount of public 1, 2, 7, 11, 12, GI 5 Negative trend appropriate review Policy and rights of way rights of way (Km) 14, 16, 18, 19 alternatives
No unauthorised loss of Number of TPOs trees subject to a TPO Review circumstances and if GI 6 or hedgerows qualifying Amount of Negative trend appropriate review Policy and 4, 15, 16, 18, 19 as ‘important’ under the ‘important’ alternatives Hedgerow Regs 1997 hedgerows
272
Images courtesy of Eden Housing Association, Nick Fox and Graeme Peacock