6 SOCIAL MATTERS T DRAF

Luton Local Plan 2001 - 2011 47

SOCIAL OBJECTIVES

6.1 is expected to contribute to county-wide and regional housing requirements, and to meet the identified housing needs of its residents. However, Luton has difficulty in realising this expectation as scope for further residential development is severely restricted because the town is already built up to its boundaries. The main opportunities for new residential development arise as a result of the reuse of vacant or underused employment or commercial land, and the intensification of existing residential areas, mostly through conversions to flats, and development of ‘backland’ sites.

6.2 The provision of adequate community facilities, together with green space and leisure uses, is important to the quality of life for the residents of Luton and is a major land use issue. Luton is generally deficient in green space, with particular shortages in some inner areas, such as . Development pressures in such a tightly constrained built up area have to be balanced against the need to protect green spaces and other community facilities. T 6.3 Thus the social objectives of the Plan are:

Housing

G Meeting local housing needs, including the need for affordable housing Leisure and DRAFCommunity Facilities

G Making adequate and appropriate provision for sport, leisure, community development and green space to meet local community needs

6.4 The following chapters on housing and leisure and community facilities seek to deliver these objectives, through policies intended to satisfy both Government guidance and local concerns.

48 Luton Local Plan 2001 - 2011 HOUSING

Introduction 6.8 There is a limited scope in Luton for new housing due to a lack of available developable land. Luton is a small compact urban area 6.5 The Government intends that everyone with many of the characteristics of a London should have the opportunity of a decent home. Borough. As a result of this, former Tackling the housing problems in Luton is employment ‘windfall’ sites have been the recognised by the Borough Council as being a main source of housing sites in recent years. fundamental quality of life issue for the Recently these have included redevelopment residents of the town.

on the former Electrolux factory in , Social matters the former Gas Works site on Road, 6.6 The Borough Council’s Housing Strategy and the Croda factory site on New Bedford Statement 2002/05 lists the particular Road. problems facing the town including: T G high levels of demand for social housing 6.9 PPG3 (Housing) emphasises the need to that cannot be met within existing achieve a more sustainable pattern of resources development, and a national target has been set to achieve 60% of additional housing G projections that the level of demand for development on previously developed land. social housing will increase in the There has also been a change in the approach foreseeable future DRAFfor planning for new housing; from ‘Predict and Provide’ to ‘Plan, Monitor and Manage’. G increasing levels of homelessness

G severe shortage and high cost of suitable Housing policy guidance building land within the town 6.10 PPG3 states that local planning G high levels of disrepair in private sector authorities should plan to meet the housing housing requirements of the whole community, including those in need of affordable and G pressure of maintaining the quality of special needs housing. It says that authorities service to the Borough Council’s own should provide sufficient housing land but give tenants. priority to re-using previously developed land. It also suggests that planning policies and 6.7 Between May and June 1999, a survey standards should be reviewed to make more was carried out to determine the housing efficient use of land. PPG3 specifies that this needs of the residents of Luton. The resulting could be achieved, for example, by avoiding Housing Needs Survey (July 1999) found that low-density development, seeking greater there are a high number of people living in intensity of development in locations with housing not suited to their requirements. It good public transport accessibility and also found that most of these people are lowering parking standards where appropriate. unable to afford the cost of market housing. It also emphasises that local authorities should

Luton Local Plan 2001 - 2011 49 promote development that is linked to public transport, encourage more mixed use development and put a greater emphasis on quality and designing places for people.

Table 2: Housing Land Supply (as of January 2004)

A Structure Plan requirement (net gain 1991-2011) 6,200 B Dwellings completed 1991-2003 (net gain) 3,972 C Shortfall from Structure Plan requirements on 1/1/04 (A-B) 2,228 D Dwellings under construction or with full or outline planning permission on 1,636 1/1/04 Minus 10% discount for uncertainty -164 1,472 E Large sites (10 dwellings and above) identified on Proposals Map (allocations 432 in Policy H2A) Minus 10% discount for uncertainty -43 389 F Windfall allowance for 2004-2011 @ 72 dwellings a year 504 G Expected surplus over Structure Plan requirement 137 (D + E + F – C)

Notes:

1. Information is no longer collected on Houses in Multiple Occupation as this is impossible to monitor accurately through the planning system.

2. The figures for housing completions do not include numbers of units for student accommodation or residential care homes, as these do not count against the Structure Plan target. However between 1993 and 2001, there was a net gain of almost 1800 student units and almost 300 residential care home units in the town.

6.11 Regional Planning Guidance for the housing could potentially be accommodated South East of (RPG9) sets authorities a within urban areas. The study followed the target of 60% of all new development on guidance on urban capacity studies produced previously developed ‘brownfield’ land. by the DTLR (now the ODPM) entitled ‘Tapping Almost every recent housing development in the Potential’ (2000). The Borough Council did Luton has been on brownfield sites, as the Tnot accept all of its findings in the production town already has a shortage of green spaces, of this Local Plan. and the Borough Council has been keen to prevent the loss of such important uses. 6.13 The current adopted Structure Plan 2011 gives Luton a target of 6200 additional 6.12 An Urban Capacity study was carried out dwellings to be provided between 1991 and in 2002 by independent consultants, in order 2011. It is phased between two periods: 5,200 to assist the Council’s decision-making in (1991-2006) and 1,000 (2006-2011). Using respect ofDRAF housing allocations in the Local Plan the most recent Housing Land Availability review. The study was commissioned in line survey information (January 2004) and other with guidance in PPG3 (Housing) to provide information, the housing land supply position objective advice on how much additional is shown in Table 2.

50 Luton Local Plan 2001 - 2011 6.14 Table 2 shows that 3,972 additional located, such as near industrial areas. Housing dwellings had been provided in the Borough could also be unsuitable for continued between 1991 and the beginning of 2004, residential use if it cannot provide adequate compared to the Structure Plan target of amenities or access. There may also be an 6,200. It also shows how that target may be accepted local need for a small-scale social, met by 2011. At the start of 2004 there were community or leisure facility, for which no outstanding planning permissions for 1,636 alternative sites are currently available. additional dwellings, a number of which were Proposals for such uses will be assessed against already under construction. Even if 10% of Policy LC4. these permissions were not taken up by 2011, the housing stock would increase by 1,472 dwellings. Using the best available Policy H1 information from the Urban Capacity Study and other sources, potential housing sites have Existing housing been identified. The larger of these identified sites are allocated for development on the Planning Permission for the loss of Social matters Proposals Map and are listed in Policy H2[A] of residential accommodation or land to the Local Plan. The remaining identified sites other uses will be refused except where: are too small to be shown individually. Even if 10% of the potential capacity of the allocated [A] the design or location of the existing residential development sites is not taken up by 2011, they will still is such that it is inappropriate yield some 389 dwellings. Experience has for it to continue in such a use; shown that on average, about 72 additional and dwellings a year are provided on sites that have not previously been identified by the [B] either (i) small scale social, community Council as housing opportunities. There is no or leisure facilities are reason to expect the amount of this ‘windfall’ proposed for which no development to decline. If it continued at its suitable alternative site is present rate, it would yield a further increase available; or of some 504 dwellings by 2011. In view of (ii) there is a recognised local this assessment, it is estimated that there may need for the proposed use. be a surplus of more than 130 dwellings over the Structure Plan target by the end of the Local Plan period. Existing Residential AreasT Additional Dwellings 6.15 Because of the limited amount of 6.16 The table below in Policy H2 [A] available housing land and the high levels of identifies sites allocated for housing housing need in the town, it is important to development during the plan period. On these maintain the current housing stock in its sites, housing development will be appropriate current use wherever possible. The existing in principle, subject to detailed design and housing stock is a valuable resource that needs amenty considerations. Many of the sites that DRAFto be protected and, where possible, were suggested of being suitable in principle enhanced. However, in some cases, there may for housing in the urban capacity study, were be a justifiable reason why it is not appropriate subsequently removed because they were to keep housing in its current use. For considered inappropriate or judged to be more example, some houses may be inappropriately likely to come forward for development

Luton Local Plan 2001 - 2011 51 beyond the plan period. No phasing is Residential conversions proposed in the Plan, even though this approach is recommended in PPG3 and in 6.19 The conversion of houses into flats or ‘’Planning to Deliver - the Managed Release of the creation of ‘houses in multiple occupation’ Housing Sites’’ (ODPM, 2001). This is due to (HMOs) can help to satisfy the demand for the fact that nearly all of the sites in H2 [A] are smaller dwellings, and is particularly important derelict or underused previously developed to provide for the housing needs of single sites. There is no need to delay them to a later people and students. However, housing is in time period, as there is an acute shortage of limited supply, and the conversion of houses housing in the Borough to meet the identified into smaller units reduces the number of local needs. The Borough Council will still, family-sized dwellings. This can also have a however, carefully monitor their progress damaging effect on the environment and can through the annual Housing Land Availability lead to problems with on-street parking, traffic reports, and this approach will be assessed on generation and noise. It is therefore important a regular basis. to avoid the proliferation of conversions and HMOs to prevent these problems, particularly Planning applications on ‘windfall’ in areas where there are already problems with sites on-street parking.

6.17 Where proposals for residential Re-use ofT vacant floorspace and development come forward on sites not dwellings allocated in H2[A] (i.e. ‘’windfall’’ sites), applications will need to satisfy the criteria in 6.20 The Borough Council has produced an policy H2 [B]. A proposal may be acceptable, Empty Homes Strategy to encourage the re-use for example, if it would not lead to a loss of of dwellings that have remained empty for uses for which there is a recognised local need, some time. The Borough Council wishes to and the impact of theDRAF proposal on the encourage, where appropriate, the use of environment is judged to be acceptable. The vacant floorspace above shops and offices as site should also have good access to local flats. This can have several benefits: it helps to community and shopping facilities, and be provide more dwellings for smaller households, close to existing or proposed public transport and re-uses buildings that would otherwise routes. remain empty. The presence of dwellings in shopping areas, for example, can help to ‘Backland’ development revitalise such areas and provide extra security when shops are closed at night. However, it 6.18 Within existing residential areas, there may well be that the normal standards relating are often ‘backland’ sites where a greater to amenity space and car parking have to be number of dwellings can be built. The use of relaxed because sufficient space is not these sites, including those with underused or available. This may be acceptable, depending vacant garages, for housing can help to reduce upon the location of the proposal and the the pressure on underdeveloped (‘greenfield’) nature of the household. sites. However, care needs to be taken to protect local amenity and biodiversity and avoid over intensive development. It is also important that the access into the site is safe and that sufficient parking is provided.

52 Luton Local Plan 2001 - 2011 Policy H2

Additional dwellings

The Local Plan identifies sites for the erection of 432 dwellings during the period 2004-2011; and provides for planning permission to be granted to enable at least a further 504 dwellings to be built on unidentified sites during that period.

Planning permission for residential development will be granted:

[A] on the following sites, allocated as such on the Proposals Map:

Site Location Approx. Estimated Estimated Most recent use of site and No. Size (ha) Dwelling Affordable notes Dwellings Social matters 1 Land at Caleb Close 2.5 100 50 Employment 2 Heron Industrial 2.0 96 48 Employment Estate Allotments. 3 Land at Birchen 1.7 30 15 TDevelopment of this site is Grove contingent on satisfactory arrangements being made for the provision and maintenance of 0.97ha of public open space within the site.

4 69 Felstead Way 0.9 36 18 Housing 5 Land off Leicester 1.0 40 20 Employment Road DRAF 6 Dalroad Industrial 0.8 32 16 Employment Estate 7 Car park off Telford 0.5 25 12 Car Park Way May be appropriate for mixed use scheme 8 Rd / 0.3 12 6 Vacant/ retail Leagrave Rd Triangle site 9 Car Parks on 0.3 15 7 Car parks. May be appropriate for Dunstable Place mixed use scheme 10 Land on Dunstable 0.3 12 0 Coach Depot Road Consent granted during 2004

11 1-9 Ashwell Parade 0.3 12 0 Retail At least one shop unit to be retained in scheme

12 Land to rear of Bank 0.3 12 0 Vacant backland Close

13 Former petrol 0.2 10 0 Petrol station/ Backland station & adjoining Yield is likely to be higher land,

Total 432 142

Luton Local Plan 2001 - 2011 53 Policy H2 (cont) Policy H2 (cont)

and [E] for the use of vacant or [B] on sites not allocated for underused floorspace above housing in this plan, provided ground floor for residential use, that: unless: (i) the site is on previously (i) it is within either an existing developed or underused or identified employment land; and area; or (ii) development of the site would not lead to a loss of (ii) the development would uses for which there is a result in unacceptable recognised local need; and conditions with regard to access, security, car parking, (iii) there would be no noise or general disturbance. unacceptable effect on the environment or it would In all cases, residential development result in a demonstrable proposals must have regard to the environmental gain; and guidance on design and layout given in Appendices 2 and 3. (iv) there is good access to local facilities and public transport; and [C] on existing residential land that 6.21 Further guidance on the design and will result in a greater number of layout of residential development (including dwellings on a site, provided new-build and conversions) is given in that the scheme: T Appendices 2 and 3 and the Borough Council’s (i) is well sited in relation to the Supplementary Planning Guidance entitled surrounding buildings; ‘Designing for Sustainability: A Summary of and Good Practice’. (ii) would not be over-intensive development; Residential density and 6.22DRAFAchieving higher residential densities is a [D] for the conversion of dwellings into flats or the creation of major component of sustainable development houses in multiple occupation and is essential for delivering the urban provided that: renaissance. PPG3 encourages local authorities (i) the proposal would not to avoid the inefficient use of land and to adversely affect the examine critically the standards applied to new character of the surrounding development. Circular 01/02: The Town and area Country Planning (Residential Density) (London and and South East England) Direction 2002) states (ii) there would be no that, on sites of one hectare or more in size, unacceptable effect on new or existing residents, by way planning authorities intending to approve of noise, disturbance or housing schemes of less than 30 dwellings per overlooking hectare must notify the Deputy Prime Minister. This Directive came into force in December 2002.

54 Luton Local Plan 2001 - 2011 6.23 It is vital therefore that low-density housing development is avoided wherever Policy H3 (cont) possible. The Council will expect all new housing in Luton to be built at a net density of [A] development at these densities would have a significant adverse 40 dwellings per hectare or above, unless impact on the surrounding area; development at these densities is considered or inappropriate. This might be the case if higher [B] development at lower densities density development would have a adverse is required to facilitate the impact on the character of existing areas or if identified local housing needs. affordable housing at lower densities is needed to provide larger dwellings, to meet local needs. Higher densities necessitate good Extensions to dwellings design. The Council has recently adopted as supplementary planning guidance a guide for 6.25 Extensions to residential properties can

developers entitled ‘Designing for have a damaging effect on the environment. Social matters Sustainability- a summary of good practice’. They can spoil the appearance of a house and This shows how high quality, sustainable even have an adverse impact upon the local design can be incorporated into developments street scene. They can also result in parking through the use, for example, of imaginative problems and can adversely affect the amenity building design and reduced parking of nearby residentsT through visual intrusion, standards. overlooking and loss of light. It is important that sufficient space remains for car parking 6.24 It is also important that there is a greater and to meet the outdoor needs of occupants, integration of land uses with transportation for example garden space and amenity areas requirements. PPG13 (Transport) suggests that to store dustbins. the Transport Development Area (TDA) approach should be considered.DRAF This approach 6.26 However, extensions can also help solve suggests that high-density development or over-crowding problems for growing families those generating significant amounts of traffic by providing an alternative to moving house. should be concentrated in areas well served by public transport. Therefore, in the central area and in other accessible areas, e.g. near Policy H4 transport nodes such as train stations and bus routes, residential development will be Extensions to dwellings expected to be built at a net density of at least Planning permission will be granted 50 dwellings per hectare. to extend a dwelling provided that:

[A] the scale, design and external Policy H3 material are generally consistent with the dwelling and neighbouring properties; and Residential Density [B] the proposed extension does not New residential developments will be significantly reduce the amenity required to be built at a net density of nearby occupiers, in respect of 40 dwellings per hectare or above. of visual intrusion, loss of light or overlooking In the central area or in areas with In all cases, proposals for residential good accessibility by modes of extensions must have regard to the transport other than the private car, residential development will be guidance given in Appendix 3. required to be built at a net density of 50 dwellings per hectare or above. Luton Local Plan 2001 - 2011 55 These minimum density requirements will apply unless it can be Affordable Housing households’ (persons who currently live with a host household, often parents, who will Defining affordable housing require their own home within 5 years) across households’ (persons who currently live with a 6.27 PPG3 (Housing) states that a host household, often parents, who will community’s need for a mix of housing types, require their own home within 5 years) across including affordable housing, is a material the Borough and of these almost 1,400 are in planning consideration. Circular 6/98 (Planning housing need. Therefore, in total, more than and Affordable Housing) states that polices in 6,500 households are in need, about 9.3% of local plans should define what the authority all households. In addition to this, the Survey regards as affordable. In Luton, it is defined as predicted that another 1,430 non-local ‘housing that will be available to people who authority households would fall into housing cannot afford to rent or buy houses generally need each year in the period to 2004. The available on the open market’. It includes, Survey concludes that a total of about 4,500 both subsidised housing and low cost market additional affordable dwellings might be housing. It does not exclude any particular required to meet the need in full by 2004. form of tenure, but can include properties for However, due to the demonstrable shortage of rental or sale, or for occupation on a shared available sites for housing in the Borough, it ownership basis. The type and tenure sought will not be possible for this need to be met in full during Tthe plan period. in any circumstance will be justified by the latest Housing Needs Survey. (The 1999 Housing Needs Survey found that low cost Securing affordable dwellings market housing and shared ownership have through the planning system limited roles to play in the delivery of affordable housing in Luton). 6.30 As there is a demonstrable lack of affordable housing to meet local need, it is Housing need in LutonDRAFvital that as much affordable housing as possible is secured in the town for those 6.28 House prices on the open market have people unable to afford to buy on the open risen rapidly in recent years in Luton and many market. Circular 6/98 (Planning and people can no longer afford to buy a house. Affordable Housing) suggests that, in Housing Need has been defined as a household authorities where there are exceptional local which is in unsuitable housing (defined by constraints, a lower threshold of between 15 using a points system) and cannot afford to and 25 dwellings can be used on which an move into market housing either for sale or element of affordable housing might be rent. There is a proven need for affordable sought. As Luton has such a large housing housing in Luton, in particular, large family needs problem, and most new housing is homes (four or more bedrooms) and single expected to come forward on small sites, person dwellings. affordable housing may be sought on all schemes of 15 units and above, and on sites of 6.29 The most recent Housing Needs Survey 0.5 of a hectare or more, irrespective of the (1999) showed that there are about 7,240 number of dwellings. For the same reason, an people in unsuitable housing, of which 70% indicative target of 50% is proposed as a basis are unable to afford the cost of market for negotiations about the proportion of housing. This represents 5,100 existing dwellings to be affordable, subject to any site households in need. It is also estimated that specific considerations. Although 50% is a there are more than 10,000 ‘concealed

56 Luton Local Plan 2001 - 2011 high percentage, the high level of housing the developer and the Borough Council. The need in the Borough justifies it. affordable dwellings should also be well integrated into the site, in terms of sitting, 6.31 The Borough Council will resist attempts design and layout to assist the Borough by developers to circumvent these thresholds Council’s social inclusion objectives. It may be by fragmenting a large site or by ignoring the appropriate for the affordable element to be potential for amalgamation of small sites. provided throughout the site rather than in Therefore, affordable housing, or an one block, although this may not always be appropriate commuted sum, may be sought on appropriate for practical reasons. sites smaller than 15 dwellings or 0.5 hectare where these sites form part, or reasonably could form part, of a larger development. Policy H5

6.32 In most instances, the Council’s preferred Provision of affordable option will be for affordable housing to be housing provided as part of the proposed development. Social matters Off site provision may be appropriate in some Affordable housing is defined as cases. A commuted sum in lieu of provision is ‘housing that will be available to people who cannot afford to rent or the least satisfactory form of contribution, but buy houses generally available on the will be considered where it will secure an open market’. appropriate provision of affordable housing. The Borough Council will: For example, the Borough Council and the developer may agree that, although affordable [A] seek affordable housing on allocated housing sites as housing provision is appropriate on a particular specified in Policy H2[A]; and site, a financial or other contribution towards [B] seek (as an indicative target) the provision of such housing on another site that 50% of the proposed new is preferable. Where this approach is agreed, a units in all developments of 15 planning obligation will be sought to secure dwelling units or more (or 0.5ha this. and above) are for affordable housing, subject to the circumstances of the site and any 6.33 Most affordable housing units in the special development costs; and Borough are likely to be provided for social T [C] seek to ensure that the size and rent through registered social landlords (RSLs). type of affordable dwellings RSLs receive public funding from the Housing provided reflects the identified Corporation for new build and renovation housing need requirements of schemes. The Borough Council will encourage the area and is well integrated into the overall scheme. developers to work with one of its preferred RSLs to progress and manage affordable If an element of affordable housing would be appropriate on a particular housing schemes, and to ensure the dwellings DRAF site in accordance with this policy, provided meet the requirements. but off-site provision would be preferable, a financial sum may be 6.34 The size and type of affordable dwellings acceptable as a contribution towards securing the development of provided should reflect the housing need affordable housing elsewhere. requirements of the area. The precise nature and scale of the affordable dwellings on each site may vary according to local market conditions and development costs, and will be a matter for negotiation between the

Luton Local Plan 2001 - 2011 57 6.35 The affordable element of a mixed tenure scheme should not be left until the end Policy H6 (cont) of the development to be built. There should therefore be suitably secure arrangements, would not otherwise be able to afford to rent or buy a dwelling either through a planning obligation or of sufficient size for their needs conditions, to ensure that the proposed on the open market, and who affordable dwellings are satisfactory phased as either: part of the whole development. (i) already live in the Borough and are in housing need, or 6.36 The management of affordable housing after development is generally expected to be (ii) can demonstrate a need to carried out by transferring the units to a live in the Borough. preferred RSL. This should ensure that local Arrangements will be made to people on the housing register have first ensure that the affordable opportunity to live in the dwellings. However, accommodation will remain T available to meet the needs of such it may be necessary to enter into a planning households beyond the first obligation to ensure that the affordable occupiers. dwellings provided are made available to those in housing need or who can demonstrate that they need to live in the Borough. This could include ‘key workers’ who work in Luton but Student Halls of Residence do not currently live here and people with elderlyDRAF relatives who live in the Borough. 6.37 Student housing is an issue within These arrangements would also need to ensure Luton, as the town is home to a University that the social accommodation remains with about 12,000 students, and to Barnfield available to meet the housing needs of such College, which has 4 campuses in the households beyond the first occupier. Borough. Students generate a demand for residential accommodation, and this has a Policy H6 knock-on effect on private rented accommodation.

Affordable housing 6.38 It is estimated that over 1700 student arrangements housing units were provided in Luton from 1993 to the end of 2001 (Housing Land Planning permission for the development of affordable housing Availability Report, Jan. 2002), but the rate of will be granted subject to the provision has slowed in recent years. following: However, this figure is almost certainly an [A] If the affordable housing is part underestimation because many bedsits and of a larger scheme, it will be houses in multiple occupation will be occupied subject to arrangements that by students. ensure its phased provision within the overall development. 6.39 It is more sustainable if students either [B] Unless the affordable housing is live close to the places where they study or to be low-cost market housing, can get there easily by public transport. Policy or is to be managed by a registered social landlord, the H7 therefore aims to ensure that student halls Council will require that if be of residence are either within walking distance occupied by households who of the facility they serve (assumed to be one

58 Luton Local Plan 2001 - 2011 kilometre) or are close to transport routes sites, and where this is not possible to setout leading to it. Other student accommodation is clear, realistic criteria for the selection of sites. not covered by this policy. The Circular also states that planning applications should not be refused on the grounds that public provision is considered to Policy H7 be adequate.

6.43 There are different types of Gypsy and Student halls of residence Traveller site, such as sites for settled Proposals for student halls of occupation, temporary stopping places and residence will be approved provided transit sites. Luton has one Gypsy site at St. that they: Thomas’s Road in for settled [A] are either within 1 km of the occupation, and this has 20 plots. There is university or college building for also a privately owed ground in Wigmore Lane which they are primarily intended used for storing fairground equipment in the to serve, or are close to Social matters established public transport winter. routes leading to the relevant university or college building; 6.44 There have been frequent problems and caused by unauthorised encampments within [B] would not have a significant the Borough, and enforcement powers have adverse impact on the amenity of had to be used to move on these Gypsies and adjacent residents or businesses. Travellers. These problems may be at least partly exacerbated by the lack of a transit site or a temporary stopping place in Luton. No new Gypsy sites have been specifically 6.40 Student accommodation can cause allocated in the Local Plan, as it has not amenity problems for nearby occupiers in the provedT possible to find a suitable site. form of parking and noise. Therefore, any However, the following policy will be used to potential sites for student housing, including assess any planning applications for such a halls of residence, will also be assessed against use. the criteria in Policy H1.

Gypsies/ Travellers Sites Policy H8

6.41 Gypsies haveDRAF been defined as ‘persons Sites for Gypsies/Travellers who wandered or travelled for the purpose of making or seeking their livelihood, and did not Planning permission will be granted for permanent or transit include persons who moved from place to Gypsy/Traveller sites if: place without any connection between their movement and their means of livelihood’. This [A] the site has reasonable access to shops, schools and other is a definition from 1994, and was accepted by facilities; and Government and quoted in Circular 18/94 [B] the site has adequate road access (Gypsy Sites Policy and Unauthorised and is well related to the primary Encampments). road network; and

[C] the site is on previously 6.42 Circular 1.94 (Gypsy Sites and Planning) developed or underused land and states that Local Authorities should wherever is not allocated for another use; possible identify locations suitable for Gypsy and

Luton Local Plan 2001 - 2011 59 Policy H8 (cont)

[D] hardstanding and basic facilities including electricity, water supplies, sewerage disposal and waste collection are provided on site; and

[E] there would be no unacceptable effect on the environment.

T DRAF

60 Luton Local Plan 2001 - 2011 LEISURE AND COMMUNITY FACILITIES

Introduction September 2002). The Borough Council is in the process of producing a green space 6.45 Leisure and community facilities cover a strategy. wide range of activities, including sport, entertainment, education, health and 6.49 PPG12 states that local plans should community facilities. These activities are ‘make provision for schools and higher important to the social, environmental and education, health facilities, places of worship, economic welfare of communities, promote prisons and other community facilities’. social inclusion and cultural diversity, and Social matters promote the image of the Borough. 6.50 The Borough Council has produced a Cultural Strategy (Luton’s Cultural Strategy 6.46 As increasing pressure is brought upon 2003-2008). This aims to improve the quality the remaining open land for development, it is of life of Luton’sT population through important that green spaces are not lost to participation in cultural activity. The Cultural other uses without an assessment being made Strategy was influenced by the Community of their potential to meet current and future Plan and the Council’s Vision 2010. The community needs. strategy is also influenced by two important regional plans: the East of England’s Policy Context Development Agency’s Corporate Plan 2002- DRAF2004, and ‘Culture: a Catalyst for Change’ by 6.47 The Structure Plan promotes polices Living East, the cultural consortium of the East designed to protect and enhance the provision of England. and quality of green space, recreation and sport facilities in the County in a sustainable 6.51 The Borough Council are developing a manner, and to ensure the facilities meet the Sports Strategy and an associated Facilities needs of the local community. Strategy. Six wards in the town were designated as a Sport Action Zone (SAZ), and 6.48 PPG17 (Planning for Open Space, Sport these aimed to develop access to facilities in and Recreation) recognises that these facilities areas of high deprivation, to ensure local underpin people’s quality of life. The PPG people have a better chance to take part in states that to ensure effective planning for sport. The SAZ initiative ended in September open space, sport and recreation, local 2005 but most of its projects have been authorities should undertake robust mainstreamed. assessments of the existing and future needs for these facilities, and to undertake audits of Green Space existing facilities. A Government guide giving examples of how such assessments and audits 6.52 Green space has multiple functions: it can be carried out has been published provides for recreational needs, contributes to (‘Assessing Needs and Opportunities - A improving quality of life, enhances the Companion Guide to PPG17’, ODPM, character of the local area, is important for

Luton Local Plan 2001 - 2011 61 nature conservation and biodiversity, and G Natural and semi-natural green spaces, promotes health and mental well-being. It is including urban woodland, providing at the heart of the urban renaissance. opportunities for wildlife conservation and biodiversity. 6.53 The green space strategy being prepared by the Council will include an analysis of the G Green corridors, which can be used for quality of Luton’s parks, and will identify in walking, cycling or horse riding, and giving more detail the needs and deficiencies in the opportunities for wildlife migration. town. It will also result in a local green space G Outdoor sports facilities, which encourage standard, and is likely to recommend that a participation in sports such as football, parks hierarchy be developed. However, the rugby, tennis, bowls, golf and athletics. strategy has not yet been completed.

G Amenity green space, giving opportunities 6.54 PPG17 aims to deliver networks of for informal activities close to home or work accessible, high quality open spaces and sport and enhancing the appearance of residential and recreational facilities, which meet the areas. needs of residents and visitors and are economically and environmentally sustainable. G Provision for children and young people, It also emphasises the need to protect high designed for play and social interaction. quality green space and recreational facilities T G Allotments and community gardens, giving and to weigh any potential loss of green space opportunities for those people who wish to against benefits offered to the community. It do so to grow their own produce. advocates that local standards should be

developed, with an emphasis on quality and G Cemeteries, giving opportunities for quiet accessibility rather than quantity, and instead contemplation and promoting wildlife of the use of the National Playing Fields conservation. Association (NPFA) SixDRAF Acre Standard. G Civic and market squares, providing a Types of green space setting for civic buildings and community events. 6.55 The PPG17 Companion Guide ‘Assessing Needs and Opportunities’ (2002) recommends Allotments and community gardens that local authorities should no longer use the outdated definition of open space in the Town 6.56 Allotments are a sustainable method of and Country Planning Act 1990. Instead it growing cheap, fresh and healthy food. They suggests that authorities should use the can also help to conserve wildlife habitats and typology of open space proposed by the Urban in particular are important for birds, insects, Green Space Taskforce. This should provide a small mammals, slow worms and grass snakes framework for ‘joined up thinking’ and is (see Biodiversity Action Plan for Luton and intended to help meet the practical needs of for more details). There are local authorities. currently 13 allotment sites in use in Luton, The typology can be summarised as follows: with a further 7 sites either closed or proposed. The total area covered by the

G Parks and gardens, providing accessible ‘in-use’ sites is 31 hectares, but about 30% of high quality opportunities for informal plots on in-use sites are vacant (according to a recreation and community events. survey in 2000). There is a great deal of pressure to develop allotment sites, both

62 Luton Local Plan 2001 - 2011 vacant and used, for other uses, but they are excluded from the definition of previously Policy LC1 (cont) developed land in PPG3 and hence are ‘‘greenfield land’’. or [B] the existing green space is 6.57 The green space strategy is being replaced by an alternative which is: prepared, and this will include an assessment of allotments within Luton. This will give an (i) of at least equivalent size, indication of whether all of the existing sites quality and accessibility; and should be retained or whether some can be (ii) in a suitable location within released for other uses, such as other forms of the vicinity; and green space. Until this is completed, and (iii) operational prior to the adopted as a supplementary planning development being document, the Council will continue its current commenced; allotment standard of 0.2 hectares perT 1000 or population. More details are given in Social matters [C] it can be demonstrated that: Appendix 2. (i) there is a recognised need Protection of existing green space for the proposed development; and

6.58 The policy is intended to protect green (ii) the proposed development could not be undertaken DRAFspace from development, except in certain elsewhere, on a previously exceptional circumstances, and ensure developed site, within a qualitative improvements to facilities. reasonable period; and Development that is ancillary to the existing (iii) the amount of land-take facility, such as changing rooms or would not result in any refreshment facilities, will also be allowed significant loss of green subject to compliance with the criteria. space in an area in which there is, or would be, an identified deficit; and (iv) the proposed development Policy LC1 would result in the retention of any remainder of the Protection and preservation of green space for the long- green spaces term benefit of the community and, where necessary or appropriate, its Development will not be permitted enhancement. on parks, playing fields and other outdoor sports facilities, children’s In all cases, proposals for new play spaces, allotments or other development will be required to green spaces unless: demonstrate that: [A] the proposed development is: (a) the amount of land-take is the minimum practicable; and (i) ancillary to the use of the existing green space; and (b) the development is located such (ii) not anticipated to have an that it will have the minimum effect on the efficient and adverse impact upon the effective use of the existing function and amenity of both green space; and the existing use and any neighbouring uses. (iii) limited in scale to that which is necessary;

Luton Local Plan 2001 - 2011 63 Provision of green space in Appendix 2 (paragraph 5), and were derived from the National Paying Fields Association’s 6.59 Appropriate underused or vacant sites in Six Acre Standard. Once the green space the town could be used as new green spaces, strategy has been adopted as a supplementary if they are within areas shown to be deficient planning document, the local standards from in such uses in the green space strategy. It is this will supersede those in this plan. possible that such sites may be able to be identified after the green space strategy emerges. Policy LC2

6.60 Major new developments will normally Provision of green space be required to provide green space, including In determining planning children’s play space, either within the site or applications, the Borough Council on another nearby site. PPG17 states that may: planning obligations should be used to remedy [A] require the provision of local deficiencies in the quality or quantity of appropriate green space to: green space, sports and recreational provision, (i) meet the anticipated need where this provision is inadequate or where generated by those using new development increases local needs. It the development; and states that, providing local authorities have (ii) contribute to meeting any undertaken assessments of need and audits of existing quantitative or existing facilities, planning obligations are qualitative deficiencies in justified. the locality, taking into account the standards in Appendix 2; 6.61 Additional green space, sport and recreational provision will usuallyT be required and on site but in some cases, for example in small [B] seek the provision of an developments where this is not practical or appropriate commuted sum, where there is sufficient green space nearby, a where responsibility for the long term maintenance of an open contribution to off-site provision may be more space that is designed to serve appropriate. A legal agreement will normally the proposed development is be required to secure this. The payment of a transferred to the Council or to DRAFcommuted maintenance sum may be a third party. appropriate, when a developer hands over Where provision is not practicable or responsibility for the long-term maintenance viable on-site, then the Borough of the provision to the council or a third party. Council will seek to secure either:

(a ) the provision of adequate and 6.62 The form that this green space will take appropriate green space will vary according to individual sites and will elsewhere in a readily accessible depend on local needs and deficiencies. It is location in the vicinity; or important that children’s play space is (b) an appropriate financial or other designed to include safe equipment and contribution towards either: surfaces, and located in areas readily and (i) new off-site provision; or safely accessible to children. When major planning applications are (ii) the enhancement of existing received, the Council will continue to use the off-site facilities. standards relating to outdoor playing space from the previous local plan. These are shown

64 Luton Local Plan 2001 - 2011 Community Facilities and secondary school, but with localised pressure points for primary school places in 6.63 Community facilities, such as schools the south of the town and northwards along and higher education, health facilities, places the A6 corridor. of worship, leisure and indoor sports facilities are important for local people. The Borough 6.67 The use of the Private Finance Initiative Council will resist the loss of these unless there (PFI) to support capital investment in schools is is no longer a need for them, or particular recognised as a major opportunity in the circumstances justify it. Council’s strategy for attracting the investment to facilitate raising educational attainment. 6.64 Local community facilities include PFI schemes are being considered at a number community centres and halls, places of of schools, where significant levels of capital worship, libraries, and public conveniences. investment are required. These are particularly important for those 6.68 Luton University currently has 11,500 people without cars, the elderly, those with students and 900 staff. The University has Social matters children and with mobility problems. recently opened a new Media Arts centre. The Community facilities should be close to the University’s future development proposals population they serve and be readily accessible include a new building for Creative Arts, and a by walking and cycling. The Borough Council Student Plaza.T Policy CA3 proposes a new welcomes applications for these facilities, theatre within the cultural quarter, to serve which fulfil a vital social function and tackle both university courses and the wider social exclusion. community. It is also possible that the proposed development at Butterfield will 6.65 Luton is home to people of more than include a campus for post-graduate students. 100 nationalities. Because of this cultural diversity, there is a wide range of religious 6.69 Luton also is the home for Barnfield buildings in the town DRAFand many religious College, which has four campuses in the town. groups have or are seeking premises in the The Borough has five Community Colleges, as town for the purpose of worship, teaching and well as . fellowship. In some areas, such as Bury Park, purpose built facilities for religious use have Use of redundant educational been constructed. However, there is pressure facilities for the use of residential properties for 6.70 The Borough Council is concerned about religious purposes, which can have a serious the loss of its school playing fields, which fulfil impact on the amenity of adjoining properties. an amenity and greenspace role as well as an educational one. Playing fields are protected Education facilities under Section 77 of the School Standards and Framework Act 1998, which gives the 6.66 As a Local Education Authority, the Secretary of State for Education powers to Borough Council is responsible for securing the protect school playing fields from disposal or provision of primary and secondary education change of use. Revised guidance, ‘The that meets the needs of the population. Protection of School Playing Fields and Land Private sector provision can also play a part in for City Academies’, was issued in 2001. meeting this demand. There are 6 Nursery Proposals involving the loss of part or all of a schools, 19 Infant Schools, 19 Junior Schools, school playing field will be assessed against 21 Primary and 13 High Schools at present in the criteria in Policy LC1. the town. The draft School Organisation Plan 2005-10 reveals a relatively stable primary

Luton Local Plan 2001 - 2011 65 6.71 In principle, the development of new impacts on the surrounding residential area. and extended educational facilities will be However, the Council, in consultation with the supported, where it satisfies the criteria in Hospital Trust, is seeking to ameliorate the Policy LC4. Schools generate significant problems and has recently implemented a amounts of traffic and where new and Controlled Parking Zone in the area. The expanded school facilities are proposed, the Borough Council will continue to safeguard Borough Council will expect that a School the L&D site for medical purposes and support Travel Plan is submitted in line with Policy T2 the improvement of existing facilities. and Appendix 7 ‘Travel Plans’. Developers proposing large new housing schemes may be 6.75 Luton was designated as a Health Action required to fund additional school places and Zone (HAZ) in 1998. The Luton HAZ was a facilities, where there would otherwise be partnership of local NHS organisations, the insufficient capacity in the area as a result of Borough Council, voluntary groups and the the development. Any such contribution private sector. Luton was chosen to be a HAZ would be secured through the use of a Section because it has high levels of ill health and 106 Agreement in accordance with the disadvantage, particularly in the Wards of guidance in Circular 1/97, Planning Ashcroft and Ramridge, Leagrave, , Obligations. The wider use of educational , Dallow, , High Town and facilities for community purposes is covered by South. The work previously carried out by the Policy LC5. Proposals for new student halls of HAZ has nowT been incorporated into Luton residence are covered by Policy H7. teaching Primary Care Trust and its work with partner agencies. Health facilities 6.76 Traditionally, doctors’ surgeries, dentists 6.72 Major general and specialist health care and health centres have been located within facilities are located at the Luton and residential areas. There have been changes Dunstable Hospital (theDRAF L&D), a large modern more recently in the provision of primary hospital, with more than 500 beds. The health care, including the rationalisation to hospital has been rationalising its form larger surgeries. These group practices accommodation for many years and it is now give a wider range of services but require centralised on the L&D site in Lewsey. The site larger facilities to those of a lone practitioner, is managed by two separate Trusts, the Luton and usually generate more traffic and and Dunstable Hospital Trust and the Beds and disturbance to those living nearby. New health Luton Community NHS Trust, which is facilities will generally be inappropriate in responsible for mental health care on the residential properties, unless there is an Faringdon Wing site. established need for the facility that outweighs the loss of the residential use. Proposals for 6.73 More than £30 million of building and new or expanded health facilities will be refurbishment work has recently been carried assessed against Policy LC4. out on the hospital site, including a new three- storey St Mary’s Medical Wing and staff 6.77 With an ageing population, the demand accommodation. for residential care and nursing homes in the town has increased. The Borough Council has 6.74 The site has a problem with poor several residential establishments throughout parking facilities, and the existing public car the Borough providing high quality permanent park on Lewsey Road is far from adequate. residential care to meet the needs of frail and This has resulted in congestion around mentally ill older people. However there has Calnwood and Faringdon Roads, which been a move recently away from long-stay

66 Luton Local Plan 2001 - 2011 community care facilities to allow people to 6.81 There is a trend away from public live within the community while still receiving towards more private sector provision. This is the support and care they need. The precise reflected in the Galaxy Centre in the town land use implications of ‘Care in the centre, which has a multiplex cinema, a ten Community’ initiatives are still unclear, but any pin bowling facility, and a bingo hall. Other new provision should be of a high quality and leisure developments in the last few years have regard to residential amenity. New include casinos, the Living Well gymnasium facilities will be supported subject to meeting and swimming pool and the David Lloyd the criteria in policy LC4. Centre at Capability Green. The Artezium was relaunched in 2004 as an arts and media Leisure facilities centre. A selection of local community arts companies are housed at the relaunched 6.78 There are a wide range of leisure centre, which has been re-named ‘The Hat facilities in the Borough, including sports Factory’.

facilities, cinemas, bingo halls, casinos, a Social matters theatre, arts and other entertainment facilities. 6.82 Existing leisure facilities should be These facilities increase the attractiveness of protected wherever possible and, where they the Borough as a place in which to live, work are no longer needed in their current use, the and have fun. In the context of Policies LC3 potential of the site for alternative community and LC4, the term ‘leisure’ facilities excludes uses shouldT be explored. If these uses are not public houses and restaurants, which are required, then other uses may be acceptable. covered by policies in the Retail and Central Proposals for the change of use of existing Area sections. leisure facilities will be judged against the criteria in Policy LC3. 6.79 Luton’s leisure scene is composed of many different providers across the public, 6.83 Proposals for new and extended leisure private and voluntary DRAFsectors. The Borough facilities will be considered against Policy LC4. Council is the main provider of sporting PPS6 suggests that the ‘sequential approach’ facilities in the town, but most others are applies to all town centre uses which attract a small-scale operations, with the exception of lot of people, including entertainment and the Vauxhall Recreation Centre. The Borough leisure. Adopting the sequential approach Council-owned facilities include Stockwood means that first preference should be for Park Athletics Track and Golf Centre, Luton locations in appropriate existing centres, Regional Sports Centre, Lewsey Park Pool, taking account of an appropriate scale of Wardown Swimming and Leisure Centre, and development in relation to the role and recreation centres at Lea Manor and function of the centre. This is followed by . edge-of-centre locations, and then out-of- centre sites, with preference given to sites 6.80 In respect of the need for new sports which are or will be served by a choice of facilities in Luton, Sport England currently only means of transport and which are close to the recognise the need for one additional artificial centre and have a high likelihood of forming pitch, although it is clear that a replacement links with the centre. Only then should out of swimming pool will be required when the Bath centre sites be considered, in locations Road pool closes. It It is possible that other accessible by a choice of transportation means. sporting needs could emerge as the Borough The PP5 states that major leisure facilities Council develops its sports facilities strategy. should be encouraged to locate in town and district centres, and smaller scale facilities,

Luton Local Plan 2001 - 2011 67 such as branch libraries, pubs and restaurants should be encouraged to locate in local Policy LC4 (cont) centres. Locating major leisure uses in town centres encourages linked trips, where people [A] a demonstrable local or regional need is established, and the combine shopping and leisure activities, and facility is well related to the area contributes to the vitality and viability of the it serves, and town centre. It is important that wherever [B] it would not adversely affect the possible, major leisure facilities are accessible viability and vitality of a by public transport, cycling, and on foot. shopping centre; and However, leisure uses can disturb nearby [C] there would be no unacceptable residents through noise, traffic generation and effect on the amenity of any other nuisance. surrounding residential dwellings and other uses; and [D] it does not take land either in or Policy LC3 allocated for other uses, unless it is demonstrated that the need for the facility outweighs that for Protection of community the existing or allocated use. facilities

Planning permission will not be granted for development that would Dual use of educational lead to a loss of community facilities unless: facilities [A] it is shown that there is no need or anticipated need for its use as 6.84 Schools are often the focus of the any type of community facility; community in which they are located, and they or can provide a wide range of facilities that can [B] it is unsuitable for alternative be of use to the community outside of school community uses for which there hours. The multiple use of school and further is a demonstrable need; or education buildings and playing fields for [C] adequate and appropriate community use, to provide arts, entertainment facilities are provided in a and sporting facilities, can make an important suitable alternative location; or contribution to provision in Luton and could [D] the facilities currently provided help to address any deficiencies in the town can be fully retained, enhanced and allow better use of existing resources. The or reinstated as part of the development of the site. Borough Council will therefore encourage the multiple use of educational facilities. T Policy LC4

New and extended community facilities

New and extended community facilities will be granted planning DRAF permission provided that:

68 Luton Local Plan 2001 - 2011 Policy LC5 Policy LC6

Dual use of educational Childcare facilities facilities Proposals for new and extended Planning permission will be granted nurseries and other childcare facilities for the multiple use of existing and will be granted planning permission new educational facilities for provided that: community or leisure activities unless such a use would: [A] there is no excessive adverse impact on the amenity of nearby [A] have an adverse impact on the residential properties and other delivery of the educational uses; and service; or [B] where the proposed facility [B] have an excessive adverse impact would be in premises that are used for another purpose, it on the character of the area or Social matters the amenity of nearby residential remains subordinate to the main and other properties. use of the premises; and [C] there is suitable vehicular access and safe dropping off and picking up areas. Childcare facilities

6.85 As more parents return to work, the demand for pre-school childcare places is Luton Town Football Club expected to rise in Luton. The ‘Early Years Childcare and Development Partnership’ is 6.87 The Borough Council bought the responsible for under fives provision in Luton. ground from Luton Town An area where there is expected to be some Football Club in 1989 andT now the Club leases major expansion over the next few years is in the ground from the Council. The current the development of Neighbourhood Nurseries. location of the club in the built up area of Bury Park is far from ideal, and it wishes to relocate 6.86 The scale of childcare facilities can vary, to another site. The Borough Council will from the use of part of a house to a purpose support this aspiration, provided that the club built building. In the case of facilities within can find a suitable site. The preferred site of residential properties, it is important DRAFthat the the Borough Council for the relocated club is use remains subordinate to the main use as a south of , and Policy SA1, the house and does not harm residential amenity. Stockwood Area, states that any development Problems can include the parking of vehicles to of the area should include a new stadium for drop off and pick up children, noise and Luton Town Football Club. Clearly it would be increased level of car movement. It is expected that the new stadium is operational important to ensure that safe setting down before the current site is redeveloped. and picking up areas are provided, as well as 6.88 It is expected that the existing site will longer term parking for staff and parents. be used for a mix of green space and housing, Applications for such uses will be assessed as there is a recognised need for both uses in against Policy LC6, and proposals that would this area. The Green Space strategy is involve the loss of part or all of a residential expected to confirm the general belief that dwelling will also be assessed against Policy there is a great need for such green space in H2. the Bury Park area.

69 Luton Local Plan 2001 - 2011 Outline planning permission was originally Express at the Airport, a Travel Inn at the granted for housing and open space uses in Brache and the Royal Oriental on Mill Street. 1989 and this permission has been renewed Further hotels may be provided as part of the since then. Butterfield, Wigmore, Kimpton Road, Power Court and Stockwood Park proposals.

Policy LC7 6.92 Guest houses and bed and breakfast accommodation play a more limited role, and may be under represented in the town. Many Luton Town Football Club, of these smaller facilities are converted houses Kenilworth Road and as such there are potential impacts on amenity and traffic problems. Planning permission will be granted for the redevelopment of Luton Town Football Club’s Kenilworth Road ground, identified on the Proposals Policy LC8 Map, provided that the proposed uses comprise public open space and housing. Visitor and tourist accommodation

Visitor Accommodation and Planning permission for proposals that would increase and improve Tourism visitor accommodation will be granted provided that it does not 6.89 Tourism is becoming increasingly cause an adverse impact on the amenity of surrounding residential important for the economy of Luton. Apart properties and other uses, or on the from the Airport, attractions include sporting local environment. facilities such as Luton Town Football Club, Stockwood Park Golf Course, Stockwood Country Park, the Mossman Collection, and Luton Museum. Luton is also home to historic sites such as Waulud’s Bank and St Mary’s Church. New tourist facilities will be assessed against Policy LC8 6.90 A highlight of the cultural year is the T . The Carnival is the biggest outside Notting Hill and attracts about 150,000 visitors to Luton each year. Other events such as the Irish Fleadh and St. Patrick’s Day add to Luton’s virant community spirit.

6.91 The provision of an adequate supply of good quality DRAFhotels is essential to the promotion of Luton as a tourist centre. There is still a shortage of such visitor accommodation although the number of hotels in the town has increased in recent years, with the Ibis Hotel and Holiday Inn

70 Luton Local Plan 2001 - 2011