Central Lancashire City Region

Sub-Regional Strategy First Detailed Proposals

Prepared for: The North West Regional Assembly This document has been prepared by the Joint Authorities of Blackburn with Darwen Borough Council, Blackpool Borough Council and Lancashire County Council. © The Joint Advisory Committee for Strategic Planning Lancashire County Council, Blackburn with Darwen Borough Council, Blackpool Borough Council ISBN 1 8999 07 912 Copies of this document are available from: Adrian Smith, Lancashire County Council, Environment Directorate, PO Box 9, Guild House, Cross Street. PRESTON. PR1 8RD [email protected] Tel: 01772-534160 Fax: 01772-533898 www.lancashire2016.com March 2005 Text is available in large format on request Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Contents Page

List of Tables iii List of Figures iii 1. Introduction 5 2. The Central Lancashire City Region: Key Facts 7 3. Issues up to 2021 15 4. Vision and Objectives 21 5. Developing the Preferred Strategy 23 6. Developing the City Region Concept in Lancashire 35 7. Proposals Submitted to the North West Regional Assembly 43 A: A Strategy for Sustainable Economic Growth 43 B: Connectivity and Accessibility 45 C: Polycentric Growth 46 D: Planning Principles for Accommodating and Cascading Growth 51 E: Interventions: Removing Barriers to Growth 58 F: 'Saved Policies' from the Joint Lancashire Structure Plan 2001-2016 65 8. Conclusions 67

Appendices A The Brief 69 B Consultation 74 C Lancashire Districts' Outlook 76 D Technical Data 92 E Criteria for identifying business sites 94

The Ordnance Survey mapping included within this document is provided by Lancashire Councty Council under licence from the Ordnance Survey in order to fulfil its public function to make available Council held public domain information. Persons viewing this mapping should contact Ordnance Survey copyright for advice where they wish to licence Ordnance Survey mapping/map data for their own use. The OS web-site can be found at www.ordsvy.gov.uk.

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Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

List of Tables Page

2.1 Land Use within the City Region 7 2.2 GVA for Districts within the City Region 8 2.3 Average House Prices in the City Region 9 2.4 House Types in the City Region 9 2.5 Development Potential in the City Region 10 5.1 Option 1: Key Projections and Assumptions 2004-2021 23 5.2 Option 1: Pattern of Business and Industrial Land Provision, 2004-2021 24 5.3 Option 2: Key Projections and Assumptions 2004-2021 27 5.4 Option 2: Pattern of Business and Industrial Land Provision, 2004-2021 28 5.5 Differences between Options 1 and 2 29 5.6 Option 3: Key Projections and Assumptions 2004-2021 31 5.7 Option 3: Pattern of Business and Industrial Land Provision, 2004-2021 32 6.1 Ranking of the North West's Cities and Towns 36 7.1 Preferred Strategy: Key Projections and Assumptions 2004-2021 44 7.2 Preferred Strategy: Pattern of Business and Industrial Land Provision, 2004- 44 2021 7.3 Deprivation in Growth Centres 56 7.4 Proposed Transport Schemes 60

List of Figures

2.1 Context Map 11 2.2 Location of ethnic minority communities 12 2.3 Location of areas of deprivation 13 5.1 Option 1: Development Framework 25 5.2 Option 1: Development Framework 26 6.1 Travel to Work Areas 38 6.2 Spheres of Influence in the North West 39 6.3 Retail Catchment Areas 41 7.1 Potential Congestion on Motorway and Trunk Road Network, 2020 47 7.2 Proposed Rail Network Improvements 48 7.3 Growth Centres and Zones of Influence 52

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Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

1. INTRODUCTION

1.1 The Planning and Compulsory Purchase undertaken by the three Authorities into Act 2004 enables the North West travel to work patterns suggests that the Regional Assembly (NWRA) to prepare northern part of West Lancashire District, sub?regional strategies as part of the around Tarleton and Hesketh Bank, Regional Spatial Strategy. In such cases should be included in the Central detailed proposals must first be made by Lancashire, rather than Liverpool, City an authority defined in Section 4(4) of Region. the Act. In Lancashire these Authorities are Blackburn with Darwen BC, 1.4 The Three Authorities have worked Blackpool BC and Lancashire County together on the brief given by the NWRA Council. In this submission these are and, where appropriate, have jointly referred to as The Three Authorities. developed and share ownership of the proposals. However there is no statutory 1.2 The NWRA requested that The Three requirement to jointly agree the Authorities prepare detailed proposals for proposals. Each authority is responsible the Central Lancashire City Region. The only for development of policy for its own request was made on 14 December administrative area. Lancashire County 2004 and was accompanied by a brief. Council's remit does not extend to the This is reproduced at Appendix A. The unitary areas and vice versa. Some Three Authorities were required to proposals may not be relevant to all complete the first detailed proposals three Authorities, e.g. particular road within 12 weeks by 8 March 2005. proposals. 1.3 The NWRA requested The Three 1.5 The Three Authorities consulted widely, Authorities to develop the first detailed but not with the general public, during proposals for the area 'broadly defined' January 2005 before developing the as the 12 local authority areas of proposals. The ways in which Blackpool, Wyre, Fylde, Preston, South consultation was undertaken and the Ribble, Chorley, Blackburn with Darwen, organisations consulted are set out in Hyndburn, Ribble Valley, Burnley, Appendix B. This included three Rossendale and Pendle. This coincides workshops with groups of District Council with the Central Lancashire City Region officers. Each District Council was in 'Northern Way'. The sub-region does invited to prepare a two?page statement not include Lancaster City and West of its aspirations for the future of its area Lancashire Districts. However they are for inclusion in an appendix to this referred to where appropriate in this Report. These are included in Appendix Report and officers of the two Authorities C. have taken part in the consultation process outlined below. Analysis

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Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

2. THE CENTRAL LANCASHIRE CITY REGION: KEY FACTS

2.1 Central Lancashire adjoins three other profile, as do the City Region's sizeable City Regions: Leeds, Manchester and ethnic minority groups. Ethnic minorities Liverpool (Figure 2.1). Its population, at are particularly concentrated in the larger over 900,000, exceeds that of urban areas of Preston, Blackburn and Manchester and Liverpool City Councils Burnley and in the smaller communities combined. The City Region contains: in East Lancashire (Figure 2.2). The UK's biggest tourist destination, 2.3 Yet the City Region is not an urban Blackpool. agglomeration. Urban development makes up little more than 10% of the The UK's 5th largest university, area. The Forest of Bowland Area of Central Lancashire, with Lancaster Outstanding Natural Beauty covers University just to the north. almost twice as much land (Table 2.1). 1 in 5 of all GB jobs in the aerospace The network of towns means that most industry. 4% of jobs in the City people live close to green belts or other Region are in the aerospace industry. areas of countryside. Burnley town 2.2 Population is diverse. The coastal centre is just over 5km from the Forest of resorts traditionally attract retired people. Bowland. The former New Town areas of Preston, Leyland and Chorley have a younger

Table 2.1: LAND USE WITHIN THE CITY REGION

Land Use Hectares % of Total

Urban development 26,000 12

AONB (Forest of Bowland) 48,000 22

Green Belt 43,000 20

Other rural areas 99,000 46

City Region total 215,000 100

Source: Lancashire County Council based on Office of National Statistics, Ordnance Survey and District Local Plan data.

7 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

2.4 The City Region straddles the M6. M6 around Preston between Within the City Region the M55/M65 Junctions 30 and 31 in both provides a west-east spine running from directions is close to capacity; near Blackpool Airport to the Pennines. Parts of the A Road network also The M61 and M66 link the City Region to suffer peak hour congestion, Manchester. The rail network follows a particularly A585 between M55 and similar pattern. Congestion is low Fleetwood. compared with adjacent City Regions, but is increasing. Air Quality Some peak hour congestion on the Management Areas have been declared rail network, e.g. Blackburn- around the centres of Preston and Manchester. Blackburn. Congestion occurs at the 2.5 Despite significant employment in following locations on the strategic advanced manufacturing and the networks: professional services sectors, GVA is Peak-time queuing at motorway below the national average in most junctions: M55 (Junction 1); M65 Districts (Table 2.2). Average gross (Junctions 6 and 10); weekly earnings are 9% below the UK level. House prices are below UK Links to Junction 1 of M66 averages (Table 2.3). The City Region southbound are operating in excess lacks properties at the upper end of the of capacity with significant congestion housing market. There is a current bias along the remainder of the M66 towards semi-detached and terraced southbound; properties (Table 2.4). M65 between Junctions 4 and 5 eastbound is close to capacity;

Table 2.2: GROSS VALUE ADDED FOR DISTRICTS WITHIN THE CITY REGION

District GVA per head (district) % England = 100

Blackburn with Darwen 11915 79.0

Blackpool 10334 68.5

Burnley 14946 99.0

Chorley 15086 100.0

Fylde 19503 129.2

Hyndburn 7893 52.3

Pendle 11723 77.7

Preston 14886 98.6

Ribble Valley 10943 72.5

Rossendale 12525 83.0

South Ribble 11330 75.1

Wyre 12898 85.5

Source: Office of the Deputy Prime Minister/Neighbourhood Renewal Unit - derived from Inland Revenue data (2000/2001)

8 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Table 2.3: AVERAGE HOUSE PRICES IN THE CITY REGION

District

Blackpool £108,000

Preston £151,000

Blackburn £110,000

Burnley £98,000

North West £121,000

UK £157,000

Source: Historic Data Spreadsheet (Halifax Price Index, 2004)

Table 2.4: HOUSING TYPE IN THE CITY REGION

Proportion of Housing Proportion of Housing House Type (City Region) (England and Wales)

Detached 18.5% 22.8%

Semi-Detached 33.1% 31.6%

Terraced 35.8% 26.0%

Flat/Maisonette 12.1% 19.2%

Source: Household Spaces and Accommodation Type (ONS, 2003)

2.6 Patterns are not uniform. Economic 2.8 Areas of deprivation contrast with the restructuring, housing market failure, low extensive high quality suburban wages and outward migration of the environments found in the coastal resorts economically active are particularly and inland towns and villages which severe in urban east Lancashire. Low have attracted population from wages, seasonal employment, transient neighbouring City Regions. The City populations and deprivation mark the Region contains many major inner areas of Blackpool. development opportunities in a wide variety of locations, available to 2.7 The distribution of severe deprivation indigenous businesses and inward across the City Region is shown in investors (Table 2.5). Figure 2.3. It is primarily an urban phenomenon though the City's region's extensive rural areas are experiencing economic restructuring. They contain pockets of rural deprivation, there is a lack of affordable housing and, in remoter areas, inadequate access to jobs and services.

9 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Table 2.5: DEVELOPMENT POTENTIAL IN THE CITY REGION

Sites Available (or being developed) Land (Hectares)

Cuerden Business Park 65

Regional investment Sites Royal Ordnance, Euxton 52

Whitebirk, Blackburn 35

Fleetwood Docks/North East Thornton 500

Strategic Locations for Development Royal Ordnance, Euxton 249 (Buckshaw Village)

Brownfield Land 1,325 1

Sites with planning permission for Brownfield 314 2 housing Greenfield 168 3

Source: Lancashire Planning Authorities 1. Includes land at Regional Investment Sites and Strategic Locations for Development. 2. Assuming 30 dwellings per hectare for the 9,428 dwellings with pp on brownfield land. 3. Assuming 27.5 dwellings per hectare for the 4,624 dwellings with pp on greenfield land.

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Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

3. ISSUES UP TO 2021

Background 3.3 Extensive consultation by the three Authorities with stakeholders revealed a 3.1 The strategic planning framework for the number of issues and concerns. City Region is currently set by the Regional Spatial Strategy for the North 3.4 From all of this work, five themes have West (RSS), and by the Joint Lancashire been identified. Structure Plan 2001-2016. These ISSUE 1: ESTABLISHING THE represent established strategy, having CENTRAL LANCASHIRE CITY REGION been subject to extensive consultation and independent scrutiny. This analysis ISSUE 2: CONNECTIVITY of issues takes these as read, and focuses on new issues that have ISSUE 3: DELIVERING ECONOMIC emerged recently. GROWTH 3.2 Chief among these is the Northern Way ISSUE 4: SECURING THE BENEFITS initiative. Moving Forward, the Northern OF GROWTH Way's First Growth Strategy was ISSUE 5: CREATING A SUSTAINABLE published in September 2004 and covers PATTERN OF DEVELOPMENT a wide range of issues. Two are relevant to the Central Lancashire City Region, about which the Northern Way ISSUE 1: ESTABLISHING THE establishes different assumptions than CENTRAL LANCASHIRE CITY REGION those underpinning RSS and the 3.5 There are three overarching sub-issues: Structure Plan. These are: 1. The adoption of an economic growth 1a: Central Lancashire as one of three strategy for the North as a whole. City Regions in the North West This is aimed at increasing national output by closing the gap in economic 3.6 Historically strategic planning for the performance between the North and North West has focused on two main the South of the country. poles: Manchester and Merseyside. The Northern Way identifies Central 2. The identification of the Central Lancashire as a third pole, albeit of a Lancashire City Region as a discrete different form to the other two. It is entity. Central Lancashire is one of important that the development strategy eight City Regions defined in the of RSS itself reflects the presence of North; in the North West it sits three regional poles. alongside Greater Manchester and Greater Merseyside.

15 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

3.7 As well as using Central Lancashire as a both RSS and the Structure Plan, which planning "building block", establishing it place Blackpool, Preston, Blackburn and as a City Region will involve an element Burnley in the same tier (termed Key of "branding". Existing brands, for Towns in RSS and Principal Urban Areas example those established for regional in the Structure Plan). Under the parks and for Elevate, will play an Northern Way Central Lancashire is seen important role in this. as a polycentric City Region, with key centres complementing one another to 3.8 The issue for the Sub-regional Strategy collectively form a regional pole. (SRS) is therefore: 3.13 The issues for the SRS are therefore: What does it mean for Central Lancashire to develop as one of three What does a polycentric City Region regional growth poles? mean for Central Lancashire in terms of the pattern of development? 1b: The role of the Central Lancashire What should be the roles of the City Region in the North West various centres in the City Region? 3.9 The two other City Regions in the North West are each focused on a major city of ISSUE 2: CONNECTIVITY national/international significance. These 3.14 The Northern Way identifies physical attract a commensurate range and type linkages and accessibility as key drivers of investment and development, much of of economic growth. Connectivity is which would be unlikely to view Central important both for the success of the City Lancashire as an alternative location. It Region as a whole, and to ensure that is therefore not appropriate for Central each part of the City Region fulfils its Lancashire to attempt to compete directly potential. Connectivity issues for Central with Manchester and Merseyside. Lancashire relate both to links between 3.10 Instead it is necessary for Central the City Region and other City Regions Lancashire to establish its own role (particularly Manchester and Leeds), and within the North West and the North. between different areas within the City This should be focused on the City Region. Also of fundamental importance Region's existing strengths in terms of its will be managing the demand generated attractiveness to investment from certain by economic growth. sectors of the economy, its location in relation to national infrastructure, and its 2a: Connectivity between City Regions environment. It is a natural growth point 3.15 Central Lancashire is located within for sustainable communities that 40km of three of the other Northern Way collectively can act as a counterbalance City Regions: Manchester, Leeds and to Manchester and Merseyside. Liverpool. Historically there has been a 3.11 The issue for the SRS is: How to focus degree of functional connection with the City Region's role, identifying and these City Regions, centred on major taking advantage of its strengths, and transport links. It will be important to addressing its weaknesses? strengthen these connections in order to i) allow the specialisms of each City 1c: A polycentric City Region Region to complement one another to the benefit of the North as a whole; and 3.12 Unlike Manchester and Merseyside the ii) allow each City Region to take Central Lancashire City Region has no advantage of growth in the others. highly dominant centre. This is reflected in the hierarchy of centres established in

16 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

3.16 The issue for the SRS is therefore: What guidance needs to be established for local policy making? What measures will be needed to create this enhanced connectivity? How is anticipated growth on road (This issue also needs to be network managed? addressed at a regional level through the RSS's role as Regional Transport ISSUE 3: DELIVERING ECONOMIC Strategy.) GROWTH

2b: Connectivity within the Central 3.21 The fundamental principle of the Northern Way is that economic growth in Lancashire City Region the North should be faster than at 3.17 Connectivity within Central Lancashire is present. The SRS will play a key role in fundamental to its successful functioning delivering this in Central Lancashire. as a polycentric City Region. If different Delivering economic growth will rely not centres are to perform different functions, just on areas that can be directly it is essential that people are able to influenced by the SRS, but also on the travel easily between them using connections made to wider agendas, sustainable transport modes. In addition notably external funding and at a micro level, it is vital that people education/skills. living in the City Region are able to access employment opportunities 3a: Faster economic growth created by economic growth. This will require action at a City Region level, and 3.22 Securing economic growth in Central also at local level. Lancashire will involve a greater overall amount of economic activity, though the 3.18 The issues for the SRS are therefore: main need in many parts of the City Region is for higher value added activity. What actions are needed at a City Region level to feed into the Regional 3.23 The key issue for the SRS is therefore: Transport Strategy to enhance connectivity within the City Region? What levels of additional economic growth and job creation are to be What actions should the SRS assumed? propose at local level to enhance connectivity? Is inward migration to the City Region needed to achieve these levels in a 2c: Demand management sustainable way? 3.19 Government guidance in PPG13 and 3b: Actions to attract and elsewhere requires that the starting point accommodate economic growth in considering transport issues should be to reduce the need to travel. It is 3.24 Increased economic activity is likely to important that economic growth in the have implications for land requirements. City Region is not accompanied by In the first instance this may well be a unsustainable increases in travel or supply-led requirement, in that there will unacceptable additional pressure on be a need for the right development infrastructure networks. opportunities to be available to attract investors. In addition, some consultees 3.20 The issues are therefore: have suggested the importance of housing provision as a driver of What are the appropriate principles economic growth, in that housing needs for the location of development that to be available that will attract higher minimise the need to travel and make wage earners. Economic growth will best use of sustainable modes? also rely on other strategies and

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programmes. Key factors in this are What is needed do ensure that education and training provision to locations outside the "core" remain ensure that the local workforce has the viable? skills needed and alignment with funding What alternative futures do these regimes. These factors will be locations need to develop? addressed in the Northern Way's Central Lancashire City Region Development 4b: "Soft" issues Programme. 3.29 The main questions relevant to this are 3.25 The key issues for SRS are: covered by other issues: What development opportunities are Accessibility: local access to jobs needed to attract target sectors? (Issue 2: Connectivity). What housing requirements are Equipping people with skills to secure associated with the intention to higher paid employment (Issue 3: secure growth? Delivering Economic Growth). This will be addressed in the Northern ISSUE 4: SECURING THE BENEFITS Way CRDP. OF GROWTH 3.26 In order for a growth strategy in Central ISSUE 5: CREATING A SUSTAINABLE Lancashire to succeed, it is essential that PATTERN OF DEVELOPMENT the benefit is felt by local people and that 3.30 The Northern Way aims to establish a wealth generated is retained in the City strategy for the North centred on Region. This issue relates both to "hard" sustainable economic growth in the City issues relating to the location of growth, Regions. If this is to be delivered it is and to "soft" issues of economic essential that the pattern of development inclusion. within each City Region is sustainable.

4a: "Hard" issues 5a: Growth versus regeneration 3.27 The Northern Way establishes four 3.31 The Northern Way Growth Strategy is centres in the City Region as the main underpinned by a philosophy of investing locations for growth. Consultation has in opportunity, with the focus being on raised concerns about the creation of a four key centres within the Central peripheral area as activity is Lancashire City Region. However the concentrated in these core centres. The Central Lancashire City Region SRS needs to ensure that the "trickle incorporates key regeneration down" effect from core centres as programmes, whose emphasis is more envisaged in the Northern Way is felt on need. Most notable among these are across the City Region; and that centres the Elevate Housing Market Renewal outside the "core" remain viable. Pathfinder in East Lancashire and the 3.28 The key issues for the SRS are Blackpool Masterplan. Consultation has therefore: shown that these regeneration programmes are considered critical to What actions are needed to secure the success of the City Region as a the "trickle down" of wealth generated whole. in the core centres? 3.32 The "opportunity" and "need" scenarios What should be the future economic are not entirely opposite to one another, role of rural areas? since some centres (notably Blackburn,

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Blackpool and Burnley) fall within both. 3.37 The SRS therefore needs to establish: Preston also contains areas of need. In many parts of the City Region areas of What is the most appropriate spatial need coincide with ethnic minority development pattern for populations. The strategic balance accommodating growth in the Central adopted between these two approaches Lancashire City Region? is key to the development strategy of the Should there be a focus on urban SRS, influencing assumptions about the centres? location of development, the roles of Should there be selective release of centres, and the allocation of green belt land? complementary resources. Should large scale new development 3.33 The issue for the SRS will therefore be: be located in discrete strategic What balance should the SRS strike locations for development, or as between focusing on opportunity and urban extensions focusing on need? Should there always be an emphasis on the use of brownfield land first, or 5b: Roles of centres should other factors determine the location of development? 3.34 The Northern Way proposes a focus on the four centres of Blackpool, Preston, 5d: Providing land to accommodate Blackburn and Burnley as the City development Region's drivers of economic growth. If these are to develop as the focus for 3.38 RSS will establish requirements for activity in the City Region it is necessary Districts for employment development to establish the extent of each centre, and housing. The SRS can assist this and their roles. Establishing a process. polycentric City Region means that these centres, and others, need to have clearly 3.39 The key issues are: defined and complementary roles and How much land for employment uses priorities. needs to be provided in the City 3.35 The key issues for the SRS are Region to 2021? therefore: How should this land be distributed? What should be the hierarchy of Should land be allocated for specific centres in the City Region? uses/types of investment? How tightly or loosely should the How many new dwellings need to be definition of each centre be drawn? provided in the City Region to 2021? What should be the role of each Where should these new dwellings centre in the City Region? be located?

5c: Preferred form of development What types of housing need to be provided? 3.36 The Northern Way implies a significant increase for the Central Lancashire City 5e: Housing renewal Region in the quantity of development to 3.40 Housing renewal, largely in East be accommodated. An overall strategic Lancashire but also elsewhere, has the approach to accommodating this growth potential to significantly influence both needs to be established for the City the form and pattern of development in Region. the City Region and the types and quality

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of housing available to residents in 2021. 3.41 The SRS needs to take account of, and The Northern Way First Growth Strategy reflect, any specific targets for housing calls for an accelerated rate of clearance clearance and give a strategic indication and replacement in order to create a of the future direction for housing wider choice of housing ("strategic requirements beyond simple numbers. clearance").

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4. VISION AND OBJECTIVES

'A Globally Competitive City Region Offering a Distinctive and Diverse Environment for Prosperity'

4.1 Neighbouring urban centres that drive energy-efficient development and quality forward the region's economy define our leisure and cultural facilities. A high unique City Region. Whilst spatially quality and range of housing will meet separate these centres operate as a the needs of the whole community, single economic entity with strong supporting regeneration and economic connectivity and supported by a network growth. Strong and vibrant city and town of sustainable communities set within a centres that are socially inclusive, high quality rural environment. promote sustainable growth and compete with the best in the country, will be 4.2 Economic growth will be sustainable, fundamental to the success of the City delivered through the key economic Region. generators of Blackpool, Preston, Blackburn and Burnley, and supported by 4.5 Eight objectives for the Sub-regional high quality investment sites in Strategy flow from the Vision. These are: sustainable locations that respond to the requirements of business and industry. A) Help to deliver a sustainable, Central to our Region's economic growing, high value, high wage prosperity will be a good quality, first economy reducing economic class integrated transport system. disparities within the City Region. B) Improve accessibility within the City 4.3 Urban regeneration and growth will be Region and enhance connectivity with matched by increased prosperity in our neighbouring City Regions and smaller towns, villages and rural beyond. communities. Rural regeneration will be underpinned by growth and C) Promote sustainable and healthy diversification of local enterprises, communities. improved access to jobs and services D) Create a sustainable pattern of and wider housing choice. development across the City Region. 4.4 A continually improving quality of life and E) Maximise the opportunities offered by sense of well-being will match economic protecting and enhancing the natural growth. The unique mix of landscapes environment of the City Region. and townscapes will flourish and will F) Promote a more diverse and continue to define the image of our City successful rural economy. Region, enhanced by high quality,

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G) Protect and enhance the distinctive 4.6 Three Options have been developed to qualities of the City Region's urban explore the best ways in which a sub- environment and the vitality and regional spatial strategy can achieve viability of its town centres. these objectives (Chapter 5). H) Provide a quantity and mix of housing that matches economic growth.

22 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

5. DEVELOPING THE PREFERRED STRATEGY

5.1 Developing the preferred strategy, or Option 1: Joint Lancashire Structure First Detailed Proposals, involved a 2 Plan Rolled Forward to 2021 stage sustainability process in accordance with NWRA guidance. The 5.2 The Joint Lancashire Structure Plan Three Authorities considered and tested 2001-2016 is due to be adopted by the three options using the sustainability Joint Structure Plan Authorities in March appraisal toolkit provided by the NWRA. 2005. Option 1 has been developed by This informed the development of a rolling forward the strategy and forecasts preferred strategy or option. It too was from this Plan to 2021. then subjected to a sustainability appraisal and refined into the First Detailed Proposals. A full account of the results of the appraisal is presented in the Sustainability Appraisal Report that accompanies this report.

Table 5.1: OPTION 1: KEY PROJECTIONS AND ASSUMPTIONS 2004-2021

Housing for Household Change Population Working Age Area (Spheres of Influence) Net Migration Annualised Change Pop21-64 Total Requirement

BLACKPOOL - Fylde-Wyre +22,800 +600 +3,100 +630 +10,600

PRESTON - South Ribble - -6,700 -6,180 -2,700 +610 +10,400 Chorley BLACKBURN - Hyndburn - -900 +2,900 +3,000 +610 +10,400 Ribble Valley

BURNLEY - Pendle -400 +3,000 +1,600 +320 +5,500

Rossendale +100 -3,100 -1,200 +90 +1,600

CITY REGION TOTAL +14,900 -2,780 +3,800 +2,260 +38,500

Source: The Three Authorities February 2005

23 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Table 5.2: OPTION 1: PATTERN OF BUSINESS AND INDUSTRIAL LAND PROVISION 2004-2021 District Provision (hectares)

Blackpool 45

Fylde 50 BLACKPOOL Wyre 140

235

Preston 75

South Ribble 50 PRESTON Chorley 70

195

Blackburn with Darwen 140

Hyndburn 80 BLACKBURN Ribble Valley 30

250

Burnley 80

BURNLEY Pendle 45

125

Rossendale 30

CITY REGION 835

Overall Strategy of Option 1 housing strategy, whereby the City Region provides only for its own housing 5.3 The development strategy of Option 1 is needs. focused on a targeted shift of investment and development away from "market-led" Accommodating Development under locations close to the M6 and into Option 1 Regeneration Priority Areas in East Lancashire, the Fylde coast and 5.5 Option 1 adopts a hierarchical approach Morecambe. This shift would be to distributing development between the delivered by constraining development in various urban areas and town centres in areas that have traditionally experienced the City Region, identifying three tiers of high levels of development pressure, and Principal Urban Areas, Main Towns and planning to accommodate above-trend Key Service Centres (Market Towns). levels of development in the This approach differentiates between Regeneration Priority Areas where centres mainly in terms of the scale of historically development pressure has development that they should been lower. Under Option 1 therefore, accommodate, in terms of the overall the Regeneration Priority Areas would be quantity to be accommodated in each the main source of a net increase in centre and the size of individual economic activity across the City Region. development projects. 5.4 Option 1 assumes that the most parts of the City Region will experience zero net migration by 2016. This is reflected in its

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Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

5.6 In line with the assumption of zero net Wider Considerations under Option 1 migration for most of the City Region, Option 1 identifies sufficient land for 5.9 This option identifies a series of transport housing to meet its own internal needs. improvements, which reflect priorities in The distribution of housing land across the current Regional Transport Strategy the City Region is informed by the and Local Transport Plans. These Regeneration Priority Areas development proposals serve a range of purposes strategy and by the hierarchy of towns including solving local problems, within this, but is also influenced by improving connections between parts of environmental capacity considerations in the City Region and the national network, terms of the availability of brownfield and improving connections outside the land. City Region. 5.7 Option 1 provides for above-trend levels 5.10 Option 1 recognises the significance of of employment development in the tourism as a key driver in certain parts of Regeneration Priority Areas, at the same the City Region, and the importance of time as continuing provision outside rural regeneration in creating a these areas at recent trend levels. This sustainable pattern of development. option identifies a series of Regional Investment Sites, which are expected to Option 2: Northern Way accommodate employment development 5.11 The Northern Way First Growth Strategy of regional significance. and Central Lancashire City Region 5.8 Option 1 adopts an environmental Diagnostic Report were published in capacity approach to identifying strategic September 2004. Option 2 is based on locations for development, with the these reports. There is also a close objective being to maximise the reuse of connection between Option 2 and the brownfield land and minimise greenfield City Region Development Programme development. currently being prepared for Central Lancashire by the Northern Way Steering Group.

Table 5.3: OPTION 2: KEY PROJECTIONS AND ASSUMPTIONS 2004-2021

Housing Net Population Working Age Area (Spheres of Influence) Annual Migration Change Pop21-64 Total Requirement

BLACKPOOL - Fylde-Wyre +39,500 +18,900 +10,600 +1,060 +18,000

PRESTON - South Ribble - Chorley +5,300 +13,200 +6,500 +1,060 +18,000

BLACKBURN - Hyndburn -900 +2,900 +3,000 +610 +10,400 - Ribble Valley

BURNLEY - Pendle -400 +3,000 +1,600 +320 +5,500

Rossendale +1,500 +900 +800 +190 +3,200

CITY REGION TOTAL +46,300 +38,900 +22,500 +3,240 +55,100

Source: The Three Authorities February 2005

27 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Table 5.4: OPTION 2: PATTERN OF BUSINESS AND INDUSTRIAL LAND PROVISION 2004-2021 District Provision (hectares)

Blackpool 45

Fylde 50 BLACKPOOL Wyre 140

235

Preston 90

South Ribble 65 PRESTON Chorley 82

240

Blackburn with Darwen 140

Hyndburn 80 BLACKBURN Ribble Valley 30

250

Burnley 80

BURNLEY Pendle 45

125

Rossendale 30

CITY REGION 880

Overall Strategy of Option 2 5.14 Option 2 establishes a strong focus on key urban centres as the drivers of 5.12 Option 2 is predicated on continuing to economic growth. For areas outside regenerate areas where development these centres, Option 2 proposes the pressure has historically been low, whilst development of alternative roles building allowing higher rates of investment and on existing and potential strengths, growth in areas that have traditionally rather than direct competition with the been attractive to the market. Under this major centres. option, both of these would contribute to a net increase in economic activity 5.15 This option proposes a greater targeting across the City Region. Option 2 of development, with the intention of therefore assumes a larger overall securing the right type of development to increase in economic growth than Option permit economic growth. This is of 1. Table 5.5 summarises the differences particular significance to housing and between Options 1 and 2. employment development. 5.13 In order to secure this higher rate of economic growth, Option 2 assumes that there will be a net flow of both population and investment into the City Region from outside.

28 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Table 5.5: DIFFERENCES BETWEEN OPTIONS 1 AND 2

Option 1: Joint Structure Plan Option 2: Northern Way

Relationship between the City Curtail inward migration from Strengthen economic links with Region and adjacent areas Manchester/Merseyside. Manchester/Merseyside/Leeds.

Retain and cater for existing population; Prevent loss of population, especially Population change curtail inward migration; prevent loss from economically active residents from East East Lancashire. Lancashire.

Growth strategy implies increased house Reduce the rate of house building after Housing Aspirations: New building to keep pace with new jobs, 2006 by providing only for demand Growth. meeting market demand in growth areas generated from within the City Region. generated by inward migration.

Housing Aspirations: Commitment to regeneration of unfit Reduce number of unfits by 25,000, by Obsolete and Unpopular housing to lift the image of areas in clearance or refurbishment. Housing decline.

Targeted shift towards the Regeneration Emphasis on growth throughout the City Economic growth Priority Areas. Region.

Strategic road improvements, rapid transit Improvements to rail and motorway systems and local rail and bus networks to accommodate economic Transport Infrastructure improvements to improve environmental growth. quality and assist economic development.

Relative shift to Regeneration Priority Growth in all urban centres. Business Land Areas and maintain past rates of take up elsewhere.

Hierarchical approach to protect the Polycentric approach with different roles Relationship between towns viability and vitality of each town centre. for interconnected towns.

Strong emphasis on, and targets for, Potential development of sustainable Development sites brownfield regeneration. greenfield locations.

Create nationally significant cluster of Emphasis on coastal resorts, Preston, Tourism and leisure cultural and tourism facilities; casino-led urban tourism, rural regeneration. regeneration of Blackpool.

Strategic role and expansion not Expansion to serve City Region and Blackpool Airport identified. areas to the North.

Accommodating Development Under core of a wider sub-area, so that smaller Option 2 centres with a strong functional relationship to the major centre are 5.16 The approach to accommodating placed alongside it in the hierarchy. development under Option 2 is centred on the roles of four main urban areas 5.17 In line with this, Option 2 establishes the within the City Region - Blackpool, focus on these four centres as the major Preston, Blackburn and Burnley - as the consideration in locating development. drivers of economic growth. Under Environmental capacity and the Option 2 a hierarchy of centres availability of brownfield land, whilst still establishes these four at the top. Each significant considerations, have less of the four centres is regarded as the influence on the location of development

29 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

than under Option 1. Option 2 sets out a to secure the benefits of growth sequential approach whereby in elsewhere. Many of the projects circumstances where there is insufficient proposed would be delivered by national brownfield land within the four major agencies and not the Three Authorities centres to accommodate the required as local transport authorities. level of development, the next preference is for sustainable urban 5.22 In line with the principle of developing extensions around these core centres. alternative roles for centres outside the Option 2 recognises that this strategy four Growth Centres, Option 2 highlights may lead to a need for strategic green the importance of tourism and regional belt release in the longer term. parks. 5.18 Option 2 does not establish a strict Option 3: Recent Trends hierarchy for town centres (as distinct from the towns as a whole). Rather, it 5.23 This option represents a combination of proposes complementary roles for each market forces and the effect of the of the key four centres, and establishes previous Lancashire Structure Plan the principle that development in each (1991-2006). It projects forward trends should contribute to these roles. that were evident in the 1990s in terms of demographics, the economy and 5.19 Within the Regeneration Priority Areas, patterns of land use. It is included in the Option 2 provides for the same SRSS primarily as a benchmark. enhanced levels of residential and employment development as Option 1. 5.24 The strategy of Option 3 assumes Outside the RPAs, Option 2 provides for considerable net inward migration into development to increase at the same the City Region. At the same time it rate as within them. This equates to assumes significant net migration out of approximately 40% more housing East Lancashire. These two factors development than Option 1, and 25% mean that under this option, the central more employment development than part of the City Region accommodates under current trends. very significant net inward migration.

Wider Considerations Under Option 2 Accommodating Development under Option 3 5.20 Option 2 recognises that the increased economic growth it assumes is likely to 5.25 This option concentrates most lead to increased pressure to travel. At development into eight urban areas the same time, it identifies enhanced across the City Region: Accrington; connectivity outside the City Region as a Blackburn with Darwen; the Fylde Coast significant way in which greater towns; Burnley, Chorley; Greater economic growth can be secured. Preston, the Irwell Valley towns and Option 2 therefore establishes a two- Leyland. This Option also assumes that pronged transport strategy, combining development will take place to demand management with strategic consolidate a number of smaller centres. infrastructure improvements. 5.26 Option 3 also establishes a hierarchy of 5.21 Option 2 proposes a wider range of town centres, focusing on the centres' transport infrastructure projects than roles in serving wider catchments. Option 1. The majority of the additional Under this Option, where centres do not ones are aimed at enhancing serve a wider catchment, development connectivity outside the City Region, to would be limited to that appropriate to facilitate investment within the City the function of the centre itself. Region and to allow people living within it

30 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

5.27 Although Option 3 focuses on 5.29 As with Options 1 and 2, Option 3 development in urban areas, a significant recognises the significance of tourism as proportion of the development proposed a key driver in certain parts of the City would be on greenfield sites. Option 3 Region, and the importance of rural also recognises that strategic green belt regeneration in creating a sustainable release may be necessary in the long pattern of development. term.

Wider Considerations Under Option 3 5.28 This Option places emphasis on connectivity outside the City Region, focusing on north-south transport links, links to west and east coast ports, and links to Manchester and Blackpool Airports. It establishes a focus on strategic corridors.

Table 5.6: OPTION 3: KEY PROJECTIONS AND ASSUMPTIONS 2004-2021

Housing required for Household Change Net Population Working Age Area (Spheres of Influence) Migration Change Pop21-64 Annual Total Requirement

BLACKPOOL - Fylde-Wyre +27,500 +5,800 +5,000 +750 +12,800

PRESTON - South Ribble - Chorley +5,300 +13,200 +6,500 +1,060 +18,000

BLACKBURN - Hyndburn - Ribble Valley -6,500 +100 +1,400 +540 +9,200

BURNLEY - Pendle -2,800 +1,900 +1,000 +300 +5,000

Rossendale +1,500 +900 +800 +190 +3,200

CITY REGION TOTAL +25,000 +21,900 +14,700 +2,840 +48,200

Source: The Three Authorities February 2005

31 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Table 5.7: OPTION 3: PATTERN OF BUSINESS AND INDUSTRIAL LAND PROVISION 2004-2021 District Provision (hectares) Blackpool 35 Fylde 40 BLACKPOOL Wyre 20 95 Preston 70 South Ribble 15 PRESTON Chorley 30 115 Blackburn with Darwen 115 Hyndburn 65 BLACKBURN Ribble Valley 10 190 Burnley 50 BURNLEY Pendle 30 80 Rossendale 25 CITY REGION 505

Sustainability Appraisal Stage 1: objectives - particularly in terms of Appraising the 3 Options reducing social exclusion, addressing economic disparities within the sub- 5.30 Each of the three options was appraised region, reducing health inequalities in order to assess its sustainability and targeting deprived communities effects. This appraisal was then used to (however, Option 1 was to found to compare the options and derive the deliver the biggest benefits in terms Preferred option which combines the of reducing disparities due to its focus most sustainable aspects of each. on Regeneration Priority areas). Under all aspects of the appraisal, Option 2 was found to have either Option 1 or Option 2 was found potentially negative effects on to be the most sustainable option. environmental objectives including loss of habitats and biodiversity Option 2 was found to score most through the release of green belt and positively in relation to the economic green field land and the increased objectives of the appraisal. It was use of natural resources resulting found to have specific benefits in from the increased level of terms of increasing employment development. Transport opportunities, developing and infrastructure provision in particular marketing the Region's image, was considered to have the potential delivering urban renaissance and to create significant negative securing economic inclusion. environmental effects on landscape Option 2 was also found to have and air quality. potential benefits in relation to social

32 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

The appraisal also highlighted the Sustainability Appraisal Stage 2: possibility that Option 2 could Appraising the Preferred Option increase sub-regional disparities if the rate of growth in the central core of 5.32 Once the preferred option had been Preston, Chorley, and South Ribble identified it was appraised in the same outstrips that in other parts of the way that the initial 3 Options were in sub-region. In order to address this Stage 1. The purpose of this stage of the appraisal recommended that the the appraisal was to identify any strategy emphasise the importance of unsustainable impacts that remain, ensuring that growth benefits areas in suggest further mitigation measures need of regeneration and that where possible and identify any gaps in economic opportunities are delivered the strategy. The key finding of this to local people. stage of the appraisal was that the preferred option scores well compared to 5.31 In general terms the appraisal found that the options appraised in Stage 1. Option 2 should form the basis of the However, the following issues were Preferred option but should be identified and taken into account when augmented by elements of Option 1 in developing the First Detailed Proposals: order to ensure growth takes place within acceptable environmental limits. The The need to define sustainable appraisal also identified the following as economic growth in terms of key measures to mitigate potential delivering positive environmental negative environmental effects: effects rather than forms of growth whose negative environmental effects Seek high quality in relation to the require mitigation. design and environmental standard of all development. The need to more explicitly define the economic roles of regeneration areas Transport demand management - particularly within the growth centres measures to minimise car use e.g. of Blackburn and Burnley. through the location of development and the provision of alternative The need to more explicitly define the modes of travel to the car. economic roles of towns and rural areas outside the main growth centres.

33

Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

6. DEVELOPING THE CITY REGION CONCEPT IN LANCASHIRE

6.1 Early work on Northern Way's Central include part of what was formally the Lancashire City Region Development Wigan TTWA. The Preston TTWA Programme (CRDP) (7 January 2005) continues to include the northern part of identifies Preston, Blackburn, Blackpool West Lancashire District and Burnley as providing the potential for (Tarleton/Hesketh Bank). sustainable growth in the City Region. 6.4 Within each TTWA there are more 6.2 The Three Authorities have looked at the complex patterns of movement roles and performance of the four associated with the location of major centres in the context of the Region's employers (Figure 6.2). In the City network of cities and towns. All four Region major employment locations are figure in a ranking of the top 20 cities associated with town centres, major and towns in the North West (Table 6.1): peripheral business locations (often Preston is ranked third with Blackpool aerospace), Central Lancashire and Blackburn joint seventh. Burnley is University and the main hospitals (Royal lower down the list at 19th. Across the Preston, Blackpool Victoria, Blackburn indicators used to construct these Queen's Park and Burnley General). rankings, each of the four centres has its specialisms and strengths. 6.5 Travel-to-Work distances in the City Region are comparatively short, and 6.3 In contrast to most of the towns and certainly compared with the much larger cities listed in Table 6.1, Preston, Manchester and Liverpool TTWAs. Blackpool, Blackburn and Burnley still There are, however, some significant retain an identifiable travel to work area flows to adjacent City Regions, (TTWA), based on The Three Authorities particularly Manchester. This is analysis of 2001 Census data (Figure particularly the case in towns such as 6.1). These generally expanded in size Adlington in Chorley District and in the 1990's as average journey lengths Rawtenstall in Rossendale where over increased. The four TTWAs together 10% of the population work in Central now largely define the City Region. The Manchester. The rural areas in Ribble Blackburn and Burnley TTWAs have Valley, Wyre, Chorley and elsewhere are become larger by absorbing the attractive areas to live for higher socio- Accrington/Rossendale and Nelson economic groups who travel to TTWAs respectively. Blackpool's TTWA Manchester. Resultant statistics for remains unaltered whilst Preston's has these areas can mask rural deprivation. extended southwards along the M6 to

35 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Table 6.1: CITY AND TOWN RANKINGS IN THE NORTH WEST 1 2 3 4 12 16 17 18 19 20 21 5 = 5 = 7 = 7 = 9 = 9 = 9 = 13 = 13 = 13 = Overall Madian) Rank (by 2 5 8 1 3 9 4 11 10 21 18 12 13 17 6 = 6 = Rail 14 = 19 = 14 = 14 = 19 = Rank Stations 1 21 4 = 7 = 2 = 7 = 7 = 2 = 7 = 4 = 4 = 11 = 11 = 11 = 19 = 19 = 14 = 14 = 14 = 14 = 14 = Rank Junctions Motorway 4 2 3 1 5 7 9 6 8 11 15 10 12 17 16 13 14 18 19 = 19 = 19 = Rank (Football) Attendance 7 8 1 6 9 3 2 4 5 11 13 19 15 12 16 20 14 10 21 18 17 Rank Tourism 3 5 2 1 7 6 9 4 8 11 13 21 15 12 14 10 19 16 20 18 17 Rank Retail Floorspace 9 1 2 4 6 5 7 3 8 11 21 10 13 16 12 20 17 14 15 18 19 Rank Retail Expenditure 9 1 2 6 8 4 7 5 3 11 13 12 20 10 19 18 17 16 14 15 21 Rank Student Population 7 5 9 4 1 2 3 6 8 11 13 12 10 18 21 20 17 19 16 14 = 14 = Rank Based Kowledge Workplaces 9 1 4 6 2 3 5 8 7 11 14 13 10 12 15 21 18 16 17 20 19 Rank Workplace Population 2 1 3 5 6 4 7 9 8 11 15 21 17 13 14 12 18 10 16 20 19 Rank Population Cities /Towns Wigan Liverpool Bolton Stockport Salford Blackpool Oldham Birkenhead Carlisle Rochdale Burnley Crewe Bury Manchester Preston Blackburn Chester Warrington Helens St Lancaster Southport

36 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Source: The Three Authorities, based on: Population Rank: Total population of urban area or urban area sub-division where available (ONS Census data, 2001) Workplace Population Rank: Total number of employees within urban area (NOMIS - Annual Business Inquiry, 2003) Knowledge Based Workplaces Rank: Total number of employees in knowledge based industries as listed in (NOMIS - Annual Business Inquiry, 2003) (Knowledge based industries as listed in DEFRA (report to be confirmed)) Student Population Rank: Total number of full-time students (ONS Census data, 2001) Retail Expenditure Rank: Comparison expenditure for retail centres (CACI, 2004) Retail Floorspace Rank: Total floorspace - town centres (ODPM, 2000) Tourism Rank: Number of visitors to tourist attractions within each District (North West Tourist Board and other inquiries) Attendance Rank (Football): Average attendance of clubs within the urban area (Barclays Premiership, Coca Cola League and Nationwide Conference) Motorway Junctions Rank: Number of motorway junctions with direct link by A road to urban area Rail Stations Rank: Number of departures per hour from rail stations within urban area

6.6 The great majority of commuting 6.7 The pattern of retail catchment areas journeys are made by car. The overall broadly reinforces that for travel to work figure for the City Region for driver-only areas though the Preston catchment car journeys is nearly 61% with an extends further north into rural Wyre additional 8% sharing a car. The next (Figure 6.3). The Rossendale area looks most popular way of getting to work is by more to its own local facilities and to foot, averaging over 13% in Burnley, Greater Manchester, rather than Blackpool and Blackburn. This reflects Blackburn or Burnley. the compact nature of towns in the City Region. Public Transport has a modal share of just under 8% but is significantly higher (11%) in Preston. Low car ownership rates prevail in many urban wards.

37

Key overleaf Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Key for Figure 6.2: Zones of Influence

40

Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

7. PROPOSALS SUBMITTED TO THE NORTH WEST REGIONAL ASSEMBLY

7.1 These are known as 'First Detailed Region. The assumed increases in the Proposals'. They have been developed number of economically active people from the appraisal of the three options and the future pattern of business and and their evolution into a preferred industrial land provision (Tables 7.1 and strategy. The proposals are structured 7.2.) are higher than projections based around six themes: on a continuation of past trends. They are also above projections used in the A: A Strategy for Sustainable Economic 'Joint Lancashire Structure Plan 2001- Growth. 2016'. B: Connectivity and Accessibility. 7.4 Potential housing requirements have C: Polycentric Growth. been assessed in the context of this D: Planning Principles for growth scenario, though future Accommodating and Cascading requirements will need to be refined by Growth. the NWRA in the context of Regional requirements and their distribution across E: Interventions: Removing Barriers to the North West. The First Detailed Growth. Proposals indicate that 55,000 additional F: 'Saved Policies' from the Joint dwellings for household growth might be Lancashire Structure Plan 2001-2016 required, 2004-21, as a consequence of economic growth in the Sub-region. A: A STRATEGY FOR SUSTAINABLE Other dwellings will also be required to ECONOMIC GROWTH replace some of those cleared in the future. It is assumed that 25,000 7.2 The overall strategy of the First Detailed dwellings in the Elevate area will be Proposals is one of increased rates of cleared or renovated. economic growth in the City Region at large. Growth in the Central Lancashire 7.5 Rates of economic growth in the City City Region will be an important Region will relate not just to the amount contributor to the 'Northern Way' of land developed or the number of aspiration to reduce the gap in economic houses built. A central element of the performance between the North and the growth strategy is to increase the value South. added in the City Region through the processing of goods or the delivery of Amount of Growth services. This need is an important factor in the First Detailed Proposals' 7.3 The strategy assumes increased strategy and a key area in which there is economic growth in all parts of the City synergy with the Northern Way CRDP.

43 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Table 7.1: FIRST DETAILED PROPOSALS: KEY PROJECTIONS AND ASSUMPTIONS 2004-2021

Housing Net Population Working Age Area (Spheres of Influence) Migration Change Pop21-64 Annual Total Requirement

BLACKPOOL - Fylde-Wyre +39,500 +18,900 +10,600 +1060 +18,000

PRESTON - South Ribble - Chorley +5,300 +13,200 +6,500 +1,060 +18,000

BLACKBURN - Hyndburn - Ribble Valley -900 +2,900 +3,000 +610 +10,400

BURNLEY - Pendle -400 +3,000 +1,600 +320 +5,500

Rossendale +1,500 +900 +800 +190 +3,200

CITY REGION TOTAL +46,300 +38,900 +22,500 +3,240 +55,100

Source: The Three Authorities February 2005

Table 7.2: FIRST DETAILED PROPOSALS: PATTERN OF BUSINESS AND INDUSTRIAL LAND PROVISION 2004-2021

District Provision (hectares)

Blackpool 45

Fylde 50 BLACKPOOL Wyre 140

235

Preston 90

South Ribble 65 PRESTON Chorley 82

240

Blackburn with Darwen 140

Hyndburn 80 BLACKBURN Ribble Valley 30

250

Burnley 80

BURNLEY Pendle 45

125

Rossendale 30

CITY REGION 880

44 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

It is expected that the CRDP will Region is inextricably linked to improved establish targets for overall levels of connectivity. This entails improving growth and value added and the First accessibility within the City Region as Detailed Proposals do not set specific well as enhancing links to other centres. targets in this area. 7.9 A key focus of the Strategy will be to promote sustainable access. It will be Ensuring that Growth is Sustainable 7.6 The Three Authorities recognise that important to ensure access for jobs and increased levels of development create leisure opportunities, in order to ensure the potential for unsustainable impacts that growth is socially inclusive. Many of on environmental quality and the these schemes will be relatively small exploitation of scarce resources. The scale Local Transport Plan projects, such strategy therefore seeks to deliver as the provision of local walking and sustainable growth by ensuring that cycling networks. Bus services, development is accommodated in line including demand-responsive provision with the following principles: between areas of deprivation and employment sites, can play a key role in Ensuring development takes place ensuring new jobs are taken up by within predefined environmental people in need of them. limits. 7.10 Demand Management will be an Promoting 'green' forms of growth essential tool to ensure that higher levels that decouple development from of growth do not result in existing negative environmental effects by infrastructure becoming overloaded. It is ensuring that development: envisaged that measures such as Travel is directed to sustainable locations; Planning, integrated public transport ticketing and parking controls will play a enhances local environmental quality; key part in this. Management of capacity uses scarce resources sustainably; on motorways and main roads will also minimises pollution of natural be pursued, including such measures as resources. use of ITS technology, signalising of motorway junctions and encouragement Ensuring that there is adequate of car sharing. This will contribute to mitigation of negative environmental reducing the impacts of projected traffic effects where these cannot be growth on key sections of the motorway avoided. and trunk network. Locations where the 7.7 The quality of the environment in Central network could potentially be operating Lancashire is a key factor in attracting above or close to capacity are shown on investment to the City Region, and as Figure 7.1. such its protection and enhancement is a 7.11 However, other more substantial pre-requisite of an effective growth schemes will be required to improve strategy. network capacities. Schemes are outlined in Theme D: 'Interventions: B: CONNECTIVITY AND ACCESSIBLITY Removing Barriers to Growth'. The 7.8 Action to improve transport, in terms of proposed schemes have been drawn up motorway and public transport networks on the basis of the following criteria: and improved services, emerged as the Consultation with District Councils, single most important message from NWDA, Elevate, English Partnerships, consultation undertaken by The Three East Lancashire Partnership and the Authorities during January 2005. The private sector. future economic growth of the City

45 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Identification of key movement BLACKPOOL/Fleetwood/Thornton corridors/nodes where enhanced Cleveleys/Lytham St Annes. connectivity is required. PRESTON (including Penwortham, A multi-modal approach to connectivity in Lostock Hall, Walton-le-Dale, Bamber each corridor. Bridge, Clayton Brook, Whittle-le- Woods). Minimisation of environmental impacts. BLACKBURN. Implementability BURNLEY/ Padiham/ Nelson/ Colne/ 7.12 Links to Manchester City Region are Brierfield. given particular prominence due to the importance of this relationship to the 7.14 Within these extensive urban areas the growth of the Central Lancashire City Strategy recognises that the city of Region. Dramatically improved rail Preston and the towns of Blackpool, services to Manchester central area and Blackburn and Burnley have critical roles Manchester Airport are vital to future to play in driving forward investment. growth prospects. In East Lancashire Their roles are complementary and the housing market and economic interdependent. Their proposed roles in performance will be improved through the City Region are: installation of the Todmorden curve in BLACKPOOL West Yorkshire. This will allow operation of a Manchester Victoria - Rochdale- Casino/conferencing and other major Burnley - Blackburn - Bolton - tourism development. Manchester Victoria circular service Economic growth to underpin urban through the East Lancashire Growth restructuring and neighbourhood Centres and intervening village stations. renewal to create a visually improved This interactive approach between urban environment. housing quality and public transport services to boost economic performance Location of strategic employment site. will also be used to gauge future housing Medical services and specialisms requirements in the Clitheroe - Blackburn centred on Blackpool Victoria - Manchester rail corridor. Housing Hospital. markets and economic performance will Focal point for Coastal Housing also benefit from improved rail links to Market Renewal. Liverpool and Leeds. The rail links to the three adjacent City Regions, and Transport hub and higher order proposed improvements are shown on retailing, service and public Figure 7.2. administration centre and FE centre for the Fylde Peninsula. C: POLYCENTRIC GROWTH PRESTON

Defining four Growth Centres Focal point for growth at the crossroads of the North-South 7.13 The four growth centres are defined as transport corridor that links the City the physically contiguous urban areas Region to the rest of the UK and the based on Blackpool, Preston, Blackburn East-West corridor (M55/M65) that and Burnley. These urban areas will be links the four growth centres. the major reception points for investment 'Preston City Vision': Centre for and population growth. They are defined culture, leisure and quality city living. as: Medical services and specialisms centred on Royal Preston Hospital.

46

Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Transport gateway into the City 7.15 Retailing investment will be guided Region as well as transport hub for its primarily to Blackpool, Preston, own hinterland. Blackburn and Burnley town centres. Future development in any of the four University of Central Lancashire, with centres will provide a level and quality of links to business. facilities that promote sustainable Public administration, financial and communities and shopping patterns legal services. across the City Region. Higher order retailing, cultural and leisure services for the central part of Zones of Influence around the Growth the City Region. Centres BLACKBURN 7.16 Blackpool, Preston, Blackburn and Burnley are interdependent and together Focal point for economic growth and provide critical mass for the City Region. restructuring in East Lancashire Each has a sphere of influence which based on close proximity to national extends beyond the larger urban area in motorway network via M65 and M66. which it is situated and creates four Location of strategic employment functional units or zones within the City sites. Region (Map 7.3). These zones reflect Focal point for Elevate's housing accessibility to services at each centre market renewal and population and local patterns of workplaces and retention at the western end of East residential areas. The establishment of a Lancashire. clear relationship between the largest centre in each of the four zones, and the Medical services and specialisms smaller surrounding centres and rural centred on Queens Park Hospital. areas, is considered the most Transport hub and higher order appropriate way to ensure that the retailing, service, FE and public benefits of growth are felt by all. administration centre for 'western 7.17 The settlements that relate to each of the East Lancashire'. four growth centres are: Centre for higher education and legal services in East Lancashire. Green Belts and Regional Parks BURNLEY 7.18 The juxta position and interweaving of Focal point for economic countryside with the network of often restructuring, housing market renewal closely spaced, but distinct, towns, (Elevate) and population retention at industrial and rural villages is one of the the eastern end of the M65. defining characteristics of the City Region. It is reflected through two key Transport hub and higher order aspects of Sub-regional policy: green retailing, service and public belts and regional parks. administration centre for 'eastern East Lancashire'. 7.19 The First Detailed Proposals recognise the importance of the green belt in FE centre for 'eastern East maintaining distinct breaks between Lancashire'. settlements and giving urban populations Medical services and specialism ready access to the countryside. centred on Burnley General Hospital. However, by 2011 the green belts in the Location of strategic employment site. City Region will be 30 years old. Some adjustments may be required in the longer term.

49 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Poulton-le-Fylde, Kirkham/Wesham, Wrea Green, Knott End/Preesall, Hambleton, BLACKPOOL Staining, Stalmine.

Chorley, Leyland, Garstang/Catterall, Adlington, Longridge, Broughton, Grimsargh, Hutton, PRESTON Longton, Tarleton, Hesketh Bank, Coppull, Euxton, Eccleston, Clayton-le-Woods, Freckleton, Warton (Fylde), Elswick, Clifton, Newton.

Accrington, Darwen, Clitheroe, Great Harwood, Rishton, Whalley, Billington, Mellor Brook, BLACKBURN Rishton, Edgworth, Rawtenstall/Haslingden/Bacup, Weir, Whitworth.

BURNLEY Barnoldswick, Earby, Barrowford, Foulridge, Read/Simonstone, Trawden.

7.20 Regional Parks are being established in pastures, rural fringes and reservoir East Lancashire and along the Ribble valleys and already has its own Estuary. They will provide a key Management Plan. Part of the West opportunity to enhance the image of the Pennines falls within the Manchester City sub-region as an attractive place to live, Region with particularly strong links to work and visit. It is envisaged they will Bolton and Bury. act as a catalyst to promote tourism, regeneration efforts, quality of life and 7.23 The Ribble Estuary is the 7th largest healthy lifestyle issues and employment estuary system in the UK. The estuary is opportunities within the Parks and in recognised as a Site of Special Scientific adjacent localities. Interest (SSSI), a Special Protection Area (SPA) and contains a number of Nature 7.21 East Lancashire is the most developed of Reserves. This reflects the very high the Regional Parks. The Regional Park numbers of different rare species of bird. concept provides an opportunity to The Ribble Estuary area was proposed create an integrated approach to as a Regional Park in 2003 with support environmental conservation, landscape from agencies such as RSPB, the enhancement and improved access in Environment Agency and English Nature. the countryside around these There are cross-border links with the settlements. The aim is to achieve Liverpool City Region with Sefton sustainable development solutions for Borough Council being an important areas of urban fringe and derelict land by partner in the project and West improving the appearance of gateways Lancashire forming a key gateway. and strategic transport corridors; enhancing recreational facilities; 7.24 The overall vision of the Regional Park is supporting biodiversity or becoming to create a major public "natural locations for outdoor sculpture and the landscape" resource of outstanding visual performing arts. biodiversity value with greatly enhanced access. The overall vision of the Park is 7.22 The Regional Park will cover all the rural to create a natural landscape as a areas of East Lancashire incorporating resource of the outstanding biodiversity The Forest of Bowland AONB, the West value. Key aims are to create additional Pennine Moors and the South Pennines high quality coastal habitats through Heritage Area. The West Pennine Moors managed re-alignment of existing coastal element of the Park comprises defences to promote the regeneration of approximately 90 square miles of the riverside around Preston Docks and attractive landscape of moorland, upland the Ribble Link.

50 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

7.25 A Regional Park is proposed for Accessibility Morecambe Bay, parts of which would be in Wyre and Lancaster. The Morecambe 7.27 Accessibility is the key consideration. Bay Partnership is developing proposals Development should be located in for a Regional Park to position the Bay accessible locations. The Growth Centre as a high quality environment. The in each zone is the most accessible objectives are: location and will be the prime location for housing, business and other To promote the conservation, development. Within those urban areas protection and improvement and there will be an emphasis, on town enhancement of the physical and centre sites, sites adjoining town centres natural environment of Morecambe and along public transport corridors and Bay for the public benefit, in particular other employment clusters with through the protection and prospects for good public transport. maintenance of the Bay's Coastal Similar principles should apply outside and marine environments; and the four growth centres with priority being To advance the education of the given to accessible sites. public in the natural and cultural history, conservation, environment Balancing Opportunity and Need and management of Morecambe Bay. 7.28 There must be a balance between D: PLANNING PRINCIPLES FOR investing in opportunity and driving economic growth of the City Region as a ACCOMMODATING AND CASCADING whole and targeting the regeneration of GROWTH areas of need. Areas of success and 7.26 Recognition of the pattern outlined in failure are often in close proximity. paragraphs 7.13-7.25 creates the basis Focussing on the large urban areas for establishing spatial planning strikes the right balance. These areas principles for the future development of contain a multi-cultural environment and the City Region. The principles for areas of deprivation (Table 7.3), yet by guiding investment and locational the acquisition of new skills and decisions in each of the four zones are: improved accessibility, there is the prospect of access to new employment opportunities nearby.

51

Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Table 7.3: DEPRIVATION IN GROWTH CENTRES

Percent of Population in the National List of the most Area deprived areas (2)

Blackpool(1) 15.9

Preston(1) 13.4

Blackburn(1) 27.0

Burnley(1) 23.1

Rest of City Region 4.1

Whole City Region 12.7

England and Wales 9.4

(1) Growth Centres as defined in paragraph 7.13 (2) Percentage of each area's population resident in areas ranked as the most deprived 10% of all areas in National Index of Multiple Deprivation 2004. (2001 Census data for Super Output Areas).

Spreading the benefits of growth locations for the growth of businesses and the provision of sites within the 7.29 The smaller, free-standing towns, villages framework at Appendix E. and rural areas must benefit from growth through viable local strategies. As a key service centres for rural areas. context, the future roles for those This will not be a rigid hierarchical settlements listed in paragraph 7.17 will approach and Districts will identify the be developed around: future roles of their towns and villages in LDDs. town centre regeneration and restructuring which concentrates on 7.30 Appropriate levels of development will retailing for local needs, specialist also be encouraged in rural areas so that shops and urban tourism, cultural and they experience the benefits of economic heritage schemes and roles as local growth. The emphasis will be on transport centres serving surrounding promoting the development of local areas and offering good links to the employment opportunities that Growth Centres. strengthen and diversity the rural housing development, with an economy. Rural housing will be needed, emphasis on affordable housing, at suitable locations, with an emphasis some executive housing at locations on affordable housing, but which also with good quality rail services, and takes advantage of home-based working replacement and renovated housing and remote working through IT in towns in East Lancashire. developments in rural areas.

56 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Promoting Visual and Environmental be located at places with rail stations Quality (existing or proposed) giving frequent access to at least one of the Growth 7.31 The benefits of growth must be cascaded Centres or Manchester/Manchester throughout the City Region while Airport, Liverpool, Leeds. Housing protecting and upgrading the quality of its development that is likely to be attractive environment. Visual character must be to commuters needs to be at suitable maintained or markedly improved where locations co-ordinated with clear necessary. All other things being equal, improvements to the rail network and the there will be a presumption in favour of quality and frequency of service. brownfield development to help raise environmental quality and prevent Providing for Tourism Development unnecessary outward urban growth. 7.35 Major tourism development in the City Providing for Additional Housing Region will be guided to Blackpool as an International and National Tourism 7.32 If the proposed higher rate of house Destination and to the Strategic Tourism building is to support economic growth Development Areas of Lytham St. Annes, and be sustainable in social and Cleveleys, Fleetwood and Preston. environmental terms, then it must be Tourism development in Preston and in targeted at the right locations and the smaller towns will relate to their particular sectors of the housing market. cultural identity, built heritage and local history and will be an integral part of 7.33 The City Region, in general, has a regeneration initiatives that improve local plentiful supply of mid-range housing at environments and broader job prices below the national average. What opportunities. A similar approach will be is needed is: followed in rural areas. affordable housing, in urban and rural 7.36 The Blackpool Masterplan will spearhead locations, including for key workers. tourism development within the City executive housing at the top end of Region delivering a world-class unique the housing spectrum. entertainment destination underpinned Targeting the provision of housing by regional casino and conferencing towards groups who are under provided development. for in the current market is considered the best way for housing policy to drive Providing Business Sites for Growth economic growth in the City Region. 7.37 The provision of business and industrial 7.34 The bulk of new housing will be at those sites will follow the following typology: places listed in paragraph 7.13 and 7.17. Seven Prestige Sites at the Growth These are the places with good public Centres. transport and in close proximity to jobs, shops, schools and other services. Urban gateway/hub sites. There will also be a need for some Neighbourhood opportunity sites. additional housing in villages and rural areas to assist regeneration and provide Rural renaissance sites. for lower-income groups. In East 7.38 This approach draws heavily on the work Lancashire there is a need to broaden for the East Lancashire Partnership by the range of housing available in the Genecon (Towards a Sustainable smaller towns and villages to provide Employment Land Strategy, Stage 2; opportunities for higher earners and Genecon, December 2004). Seven generally make the housing market more Prestige Sites have been identified. The attractive to them. Executive housing will criteria for site selection of the others are

57 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

set out in Appendix E. These will be through the granting of further planning used to review historic land allocations, permissions in the absence of economic identify new sites, confirm the retention growth and improved transport of others and generally ensure a infrastructure in the City Region would balanced portfolio of sites in all parts of merely lead to unsustainable the City Region. development patterns, longer journeys to work by car and more congestion. 7.39 Seven Prestige Sites have been identified: 7.42 The First Detailed Proposals imply adjustments to planning policy in terms Blackpool/Fylde Employment Hub, of the volume and location of future M55 (Junction 4) housing requirements. The pursuit of a Hillhouse, Fleetwood growth strategy in the Central Lancashire City Region would mean that the current Cuerden Regional Business Park, approach in RSS of restraint so as to near Preston boost the regeneration prospects of Euxton Royal Ordnance Site, near adjoining metropolitan areas would be Preston inappropriate. Whitebirk, near Blackburn 7.43 The strategy proposes the creation of a Samlesbury, near Blackburn better portfolio of business locations at each Growth Centre. This would involve Burnley/Accrington Employment Hub the de-allocation of unpopular, (M65/A56) inadequate and inaccessible sites during 7.40 These sites have considerable potential. the preparation of LDDs, the allocation of They are in prime locations and offer some new sites (using the criteria set out large flat sites. They are available for in Appendix E) and the promotion of 7 regional-scale investment to support Prestige Sites (paragraph 7.39). regional sectoral priorities and high value investments in line with the key 7.44 The definition of new business sites and economic priorities of the City Region. higher rates of housing development They will be part of a balanced portfolio might require adjustments to green belt of sites across the City Region and will boundaries. This would need to be provide opportunities for job creation in recognised during the preparation of higher value, higher wage industries. LDDs. Higher rates of house building should be in tandem with higher rates of economic growth, and there should be a E: INTERVENTIONS: REMOVING focus on providing housing where it is BARRIERS TO GROWTH needed and at accessible locations. A large proportion of preferred sites Interventions selected on this basis will also be brownfield. 7.41 Three types of intervention are proposed: 7.45 Greater housing investment is needed in Planning policy the provision of more affordable housing Housing investment across the City Region. Negotiations Transport investment through planning agreements for private house builders to supply an element of The interventions must be viewed as affordable housing will not provide the interconnected. The Three Authorities volume required. It is assumed that the propose a joined-up package approach Elevate programme will have an to all three with investment occurring as increasing impact on housing renewal in economic growth proceeds. An East Lancashire. accelerated rate of house building

58 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

7.46 Proposed transport interventions are 7.50 There are various public funding streams listed in Table 7.4. This sets out the available in the City Region. 'Elevate' is purpose and benefits of each scheme, its tackling the major problems of housing current status and priority. Schemes are market collapse in the East Lancashire grouped under six headings: Housing Market Pathfinder Area. However funding is generally insufficient Internal access movements and particularly with regard to providing Enhanced access to ports and affordable housing (including in rural airports areas) and improving transport infrastructure. Links to Greater Manchester and the South 7.51 One new development is Blackpool's Links to Liverpool City Region Urban Regeneration Company, announced on 1 February 2005. This Links to Leeds City Region will deliver the Blackpool Masterplan and Other improvements represents a major intervention in the City Region's economy. It is a direct Phasing Development response to the regeneration imperatives in the resort and the need to achieve a 7.47 Adjustments to Green Belts and any dramatically improved quality and pace other major greenfield developments will of investment. The URC will accelerate be considered as part of a package the redevelopment of key sites by approach where sites are clearly prioritising and coordinating all public identified as needed to assist further and private investment in the resort area. economic growth and where The regeneration company will be improvements to the strategic road (and, involved in the physical renewal process where relevant, rail) networks have been and linked programmes for put in place. neighbourhood improvement, skills 7.48 Additional housing, particularly executive training and resort management. housing at towns and villages with a direct rail service to one of the Growth Centres and/or Manchester City Centre and Airport will be considered once any rail capacity and frequency problems have been overcome.

Resources and Priorities 7.49 If changes to planning and housing policies are to take place, they need to be matched by other interventions and more resources for the City Region. The Three Authorities have taken account of resources available, but a visionary strategy for 2021 cannot be totally constrained by short term considerations.

59 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Table 7.4: PROPOSED TRANSPORT SCHEMES 1 1 1 2 1 1 2 2 2 1/2 1/2 INDICATIVE RANKING(1/2/3) ANTICIPATED TIMESCALE (SHORT/ MEDIUM/ LONG) Short/Medium Short Medium Short/Medium Short/Medium Medium Short/Medium Short/Medium Short/Medium Short/Medium Medium Schemes currently being developed Plans/Joint Local Transport Plan Lancashire Structure Plans/Joint Local Transport Plan Lancashire Structure CURRENT STATUS Plans/Joint Local Transport Plan Lancashire Structure Plans Local Transport Plans/Joint Local Transport Plan Lancashire Structure Plans/Joint Local Transport Plan Lancashire Structure Plans/Joint Local Transport Plan Lancashire Structure Plan/Joint Local Transport Plan Lancashire Structure Plan/Joint Local Transport Plan Lancashire Structure Plans/Joint Local Transport Plan Lancashire Structure PURPOSE as Tram Modernisation of existing Blackpool alternative to closure and possibly Fleetwood via Extension to Lytham Poulton Enhancement of existing rail services; "super-bus" development of on and off-road corridors; common branding and ticketing protect sites for possible future rail freight use, To distribution promoting sustainable provide Park and Ride facilities on key To gateways in order to reduce town centre congestion To make bus and rail services more attractive for To users and non-users through construction of high quality facilities and attractiveness of improve the efficiency To existing services and to promote modal shift improve accessibility to Bacup and East To housing market Rossendale and boost its and improve bypass complete existing partial To conditions in centre of environmental Penwortham A6 in reduce high levels of congestion on To village of Broughton near Preston St direct access from M55 to Lytham facilitate To Annes PROPOSAL and Enhanced bus and rail stations interchanges, e.g. at Preston, Burnley and Accrington Proposals for Fylde Coast - Transit Rapid Phases 2 & 3 Proposals for East Lancashire Transit Rapid Protection of sites and routes Sub- for railfreight., e.g. regional importance Heysham Port Complete Penwortham Bypass Construct Broughton Bypass INTERNAL ACCESS MPROVEMENTS Development of "Quality Bus Services" on key corridors including appropriate use of IT technology A681 between Rawtenstall to Improvements and Bacup Proposals for Fylde Coast. - Transit Rapid Phase 1 Park and Ride Facilities to serve each Key Centre Heyhouses-M55 Link

60 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals) 1 1 1 1 2/3 2/3 1/2 1/2 INDICATIVE RANKING(1/2/3) Medium/Long Medium Short/Medium ANTICIPATED TIMESCALE (SHORT/ MEDIUM/ LONG) Medium/Long Short/Medium Short/Medium Short Short/Medium CURRENT STATUS None - broader issue of congestion covered in Agency M65 Route Highway Management Strategy Plan/Joint Local Transport Plan Lancashire Structure Plan Local Transport None Plan Local Transport None - broader issue of congestion covered in Agency M6 Route Highway Management Strategy Joint Lancashire Structure A585 problems Plan - mentioned in LTP Plan Local Transport Develop a Surface Access Strategy that identifies Access Strategy Develop a Surface measures that maximise travel on and implements public transport by users and workers as well essential local road improvements PURPOSE address increasing levels of congestion on To access route to Growth Centre of Preston principal and improve access to Regional Investment Site address increasing levels of congestion on To access route to Growth Centre of principal Blackburn and enhance access to Regional Investment Site reduce congestion in historic centre of To Lancaster and provide consistent access to Heysham Port reduce congestion and provide consistent To access to Fleetwood Port and Hillhouse Prestige Business Site Airport is the main international Manchester gateway for the sub-region. Faster direct rail and in services with fewer intermediate stops a direct service to Blackburn and Burnley particular sub-regional growth would facilitate better interchange between intercity facilitate To services and regional to/from Blackpool, Blackburn and Burnley provide enhanced facilities passenger and freight links to rest provide faster passenger To of UK including greater capacity Improvements to the motorway network Improvements around Preston ENHANCED ACCESS TO AND AIRPORTS PORTS M6-Heysham Link (Junction 34). Norcross-M55 link for enhanced cross- Develop Preston Station Interchange platform Coast Main Line Enhancements West PROPOSAL Widen M65 from M61 to Blackburn (Junction 6). Improved public transport links (Quality Bus links) and local road access to and Rail/Tram Airport Blackpool an expanding Improved public transport access to Airport, especially from East Manchester Lancashire. THE SOUTH AND MANCHESTER, MERSEYSIDE GREATER TO LINKS

61 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals) 3 2 2 2 3 3 2 3 2/3 1/2 INDICATIVE RANKING(1/2/3) ANTICIPATED TIMESCALE (SHORT/ MEDIUM/ LONG) Medium Medium Medium Medium/Long Medium/Long Medium Medium Medium/Long Medium Medium None - broader issue of congestion covered in Agency M6 Route Highway Management Strategy Frequency improvements Transport sought in Local Plans Indirect mention in Local Plan alongside Transport enhanced service aspiration PTE Rail Plan & Yorks West Calderdale Unitary Development Plan None - broader issue of congestion covered in Highway Agency Route M65/A56/M66 Management Strategy Plan Local Transport PTE Rail Plan & Yorks West Calderdale Unitary Development Plan None - broader issue of congestion covered in Highway Agency Route M65/A56/M66 Management Strategy CURRENT STATUS Plan Local Transport Indirect mention in Local Plan alongside Transport enhanced service aspiration To facilitate direct, high quality services to facilitate To elsewhere in Region and London support of Blackpool Masterplan PURPOSE north-south ensure continued efficient To communication more frequent train services on facilitate To Clitheroe-Blackburn-Bolton-Manchester route and increase existing capacity utilise underused infrastructure to provide a To into direct commuter rail service from Rawtenstall Manchester reducing dependence on M66 direct, high quality services to facilitate To elsewhere in Region and London support of Blackpool Masterplan a circular rail service to Manchester facilitate To from East Lancashire via Rochdale and Bolton access from the east of sub- efficient retain To Airport region to M60, Manchester and in light of worsening congestion utilise underused infrastructure to provide a To into direct commuter rail service from Rawtenstall Manchester reducing dependence on M66 a circular rail service to Manchester facilitate To from East Lancashire via Rochdale and Bolton access from the east of sub- efficient retain To Airport region to M60, Manchester and in light of worsening congestion PROPOSAL to Commuter Rail Link from Rawtenstall via Heywood using Manchester Victoria preserved East Lancashire Railway Electrification of Manchester via Preston to Blackpool rail line curve Todmorden Re-instate Widen M66/A56 to Commuter Rail Link from Rawtenstall via Heywood using Manchester Victoria preserved East Lancashire Railway curve Todmorden Re-instate Widen M66/A56 M6 widening from Junction 32 to Wigan Double tracking Blackburn-Bolton rail line where single Electrification of Manchester via Preston to Blackpool rail line

62 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals) 1 2 1 2 2 2 1 1 1/2 INDICATIVE RANKING(1/2/3) ANTICIPATED TIMESCALE (SHORT/ MEDIUM/ LONG) Short Medium/Long Medium Medium Short/Medium Short Short/Medium Short Medium Local Transport Plan/Joint Local Transport Plan Lancashire Structure None Plans/Joint Local Transport Plan Lancashire Structure Plans Local Transport Countryside Agency Hyndburn Local Plan Plan/Joint Local Transport Plan Lancashire Structure CURRENT STATUS Plan/Joint Local Transport Plan Lancashire Structure Joint Lancashire Structure Plan To provide an enhanced link from end of M65 To Yorkshire providing improved links to North/West and an alternative to M62 create a Blackpool-Preston-Blackburn-Burnley- To Aire Valley, Leeds route, via Pendle, Skipton and greatly enhancing public transport accessibility and Yorkshire from east of Sub-region into securing role of truncated Colne-Burnley railway and its serving Garstang provide a new station To between rural hinterland - currently no station Preston and Lancaster (20 miles) PURPOSE Provide enhanced links to Southport - Lancashire LTP Heysham-M6 link top priority after provide for direct rail services from Preston to To Southport and also from Ormskirk to reflect existing commuter flows - possible long To term extension to Southport forming a circular electrified network access within the Sub- maximise sustainable To Region, both for functional and recreational/tourism purposes (e.g. links to and within Regional Parks) access within the Sub- maximise sustainable To Region, especially for recreational/tourism purposes (e.g. links to and within Regional Parks) brownfield development of important facilitate To development location at Huncoat PROPOSAL LINKS TO LIVERPOOL CITY REGION Bypass A56 Villages Colne-Skipton railway Reinstate OTHER IMPROVEMENTS Footpaths Development of Long Distance Way and Bridleways, e.g. Coastal A56/M65 to former Improved access from in and improvements Huncoat Power Station surrounding area Ormskirk Bypass Burscough Curves Reinstate Extend Merseyrail Electrification to Burscough LEEDS CITYTO LINKS REGION Completion of National Cycle Network and key feeder routes to serve Garstang Rail station

63 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals) 2 3 3 2 INDICATIVE RANKING(1/2/3) ANTICIPATED TIMESCALE (SHORT/ MEDIUM/ LONG) Medium/Long Medium/Long Medium/Long Medium/Long None Preston Local Plan Highways Agency Route Management Strategy None CURRENT STATUS To serve Regional Investment Site at Whitebirk To development of (Junction 6), facilitate land at Huncoat (Junction 8) and provide west in Burnley facing slip roads at Junction 11 PURPOSE reduce congestion at Junction 1 of M55 and To provide access to economically buoyant area around Garstang employment development at Preston facilitate To East and provision of "Park Ride" from east Preston provide better access to Chorley and Leyland To areas from M6, especially for Regional Investment Sites at Royal Ordnance and Cuerden PROPOSAL Widen proposed new Junction at Charnock Richard Services New Motorway junction on M6 to serve A6 corridor of Garstang-Broughton North facing slip roads at M6 Junction 31a to M65 Junction 6, 8 and 11 Improvements Key scale - Short 1-5 years; medium 5-10 long 10 years plus Time 3= Lower Importance 2 = Important; Important; Priority - 1= Very

64 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

7.52 Current budgetary constraints mean that Policy 20: Lancashire's it will not be possible to deliver all Landscapes (and associated SPG) transport projects in the short or medium Policy 21: Lancashire's Natural and term. Nevertheless The Three Manmade Heritage Authorities consider that the proposals represent a balanced programme across Policy 22: Protection of Water different modes that should be Resources considered as a whole, not as purely Policy 23: The Coastal Zone discrete projects. The proposals reflect a widespread consensus that considerable Policy 24: Flood Risk additional investment is required if Policy 25: Renewable Energy (and anticipated growth is to be facilitated and associated SPD) delivered. Policy 26: Provision of Working Minerals F: PROPOSALS FOR SAVED POLICIES FROM THE JOINT LANCASHIRE Policy 27: Development and Waste STRUCTURE PLAN 2001-2016 (JLSP) Minimisation Policy 28: Waste Management 7.53 The preparation of the First Detailed Facilities Proposals suggests that there are a number of policies in the JLSP which will Policy 29: Sites for Gypsy and continue to be relevant when that Plan is Traveller Families superseded by the Regional Spatial 7.56 This must be regarded as a preliminary Strategy and its sub-regional strategies. list. The final list of 'saved policies' will 7.54 These primarily address environmental depend on the eventual policy content of matters and can provide a framework for the sub-regional strategy determined by other strategic policy issues, Local the NWRA. The main exclusions from Development Documents and individual the above list relate to the JLSPs policies planning applications. Green Belt policy for general strategy, settlements, is included in the list even though the transport networks and individual types preparation of the First Detailed of development. The less the degree of Proposals indicates that some green belt change in the sub-regional strategy from adjustments might be needed in the the JLSP, the greater the relevance longer term. Such adjustments will need these other policies would continue to to be clearly justified in the context of have. both the objectives of the sub-regional strategy and national green belt policy. Therefore the strategic green belt policy should remain to provide a context for deciding on any boundary changes. 7.55 The list of 'saved policies' that should be incorporated in the sub-regional strategy are: Policy 5: Rural Development Policy 6: Green Belts Policy 7: Parking (and associated technical appendix and SPG) Policy 13: Housing Renewal Policy 19: Tourism Development

65

Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

8. CONCLUSIONS

8.1 The Three Authorities have attempted to can lead to conclusions that may not take full account of the emerging seem to square with the objectives of 'Northern Way' Strategy and in particular, 'Northern Way' but it is a process that the Central Lancashire City Region leads to a more rounded spatial strategy Development Programme (CRDP), in which social and environmental though at the time of preparation of the components are more fully developed. First Detailed Proposals, the CRDP was The quality of the environment in the City in an embryonic state. Region will be a key factor in attracting investment and as such its protection 8.2 The Three Authorities have taken on and enhancement is a pre-requisite of an board the message from 'Northern Way' effective growth strategy. of securing greater growth. The Three Authorities were also requested by the 8.4 A clear message to emerge from the NWRA to fully assess the implications of preparation of the First Detailed growth options and proposals through Proposals is the need for a 'package the Sustainability Appraisal process. The approach'. The need to carefully co- NWRA provided The Three Authorities ordinate and phase development and with an Appraisal Toolkit to test options. infrastructure improvements will be This included a large number of paramount. Some changes to planning objectives that are not the same as those policies may be necessary in order to developed for the Sub-regional Strategy. facilitate economic growth. Other The initial focus of the Sub-regional interventions to remove barriers to Strategy was developed in line with the growth, and particularly greater steer provided by 'Northern Way' which investment on roads, public transport establishes aspiration for higher growth and affordable housing, will be equally levels. The eventual Sub-regional important. Increased rates of Strategy goes on to focus on sustainable development, and particularly housing, growth through the inclusion of mitigation need to be part of a co-ordinated measures and the adoption of planning investment programme which includes principles that enable development to be improvements to transport networks, accommodated in a sustainable way. regeneration programmes in both urban and rural areas and other actions that 8.3 The Appraisal Toolkit required The Three promote economic growth. This wider Authorities to assess the full implications package of measures is expected to be of a growth strategy. The sustainability identified in the CRDP. appraisal process enables adverse environmental impacts to be identified 8.5 The Three Authorities have produced and mitigation measures and necessary these 'First Detailed Proposals' with an modifications to strategy clarified. This emphasis on 'First'. The 2004 Planning

67 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

Act requires Section 4(4) Authorities to How the proposals fit together with prepare these for the Regional Planning the first detailed proposals for other Board. The Three Authorities are Sub-regional Strategies. expecting a considered and equally Wider consultation (The Three detailed, response from the NWRA. The Authorities were not required to Three Authorities are of the opinion that consult with the general public). the NWRA may need to amend the proposals and will need to further Advice from Central develop the Central Lancashire Sub- Government/GONW/NWDA on long- regional Strategy in the light of: term and short-term strategies for funding interventions. The Central Lancashire City Region Development Programme when it is published in May 2005. The NWRA's own research that is currently underway, including Housing Need and Demand Research, Spatial Implications of North West Housing Market Renewal Pathfinder Programmes, Town Centre Assessment Study, Casino Market Demand Study, Regional Employment Land Study, and transport studies.

68 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

APPENDIX A: THE BRIEF

Brief for the Preparation of a Sub-Regional Strategy for Central Lancashire City Region

1 Introduction

1.1 This project brief contains the North West Regional Assembly's specification for the preparation of a sub-regional strategy to address key cross-boundary issues in the Central Lancashire City Region1. 1.2 Work is being commissioned from the principal Authorities in the sub-region, namely, Blackburn with Darwen Borough Council, Blackpool Borough Council and Lancashire County Council (Section 4(4) Authorities). The Assembly expects that the principal Authorities will involve relevant district councils, the North West Development Agency (NWDA), Government Office for the North West (GONW) and representatives of the social, environmental and economic sectors as appropriate in contributing to the preparation of the strategy. 2 Background

2.1 The Planning and Compulsory Purchase Act 2004 places considerable emphasis on a sub- regional approach to addressing strategic cross boundary issues both within the Region and with other regions. Where necessary and clearly justified, the North West Regional Spatial Strategy (RSS) will set out sub-regional policies and proposals to address a specific 'strategic policy deficit' which cannot be dealt with either by individual or joint development plan documents or by other policies in the Plan. This is in line with the policy advice given in Planning Policy Statement 11 'Regional Spatial Strategies'. 2.2 The further work being commissioned by the Assembly in each area focuses on key sub- regional issues. It involves: The development and appraisal of options for scales of change and patterns of development; Advice on a broad spatial vision; and A preferred set of spatial planning principles and appropriate policies setting out an approach for dealing with issues that need specific treatment at the sub-regional level. The spatial planning principles need to be in sufficient detail to provide a framework for the preparation of local development documents, local transport plans, community strategies and other relevant programmes, whilst allowing sufficient scope for local discretion. 3 Extent of the Sub-Region

3.1 The Central Lancashire City Region is focused upon the four regional towns or cities of Preston, Blackpool, Blackburn and Burnley with a sphere of influence that has been broadly defined2 by 12 Local Authority areas stretching from the Irish Sea to the Pennines: Blackpool, Wyre, Fylde, Preston, South Ribble, Chorley, Blackburn with Darwen, Hyndburn, Ribble Valley, Burnley, Rossendale and Pendle.

69 Central Lancashire City Region: Sub-Regional Strategy (First Detailed Proposals)

3.2 Analysis of options for the future development of the sub-region should not be constrained by administrative boundaries and the involvement of partners beyond the geographical area set out in paragraph 3.1 will be necessary to ensure a thorough investigation of alternative spatial options for the period until 2021. Particular attention will need to be paid to the preparation of sub-regional strategies for the Liverpool/Merseyside and Greater Manchester City Regions. 3.3 Key economic, housing and transport linkages with the adjoining region of Yorkshire and the Humber will also need to be taken into account in drawing up the options and spatial planning principles for the sub-region. 4 Issues to be Addressed

4.1 A key role of the sub-regional strategy is to address the spatial approach to long-term growth in broad terms of role of settlements/centres; and the scale, type and distribution of housing and employment development required within the sub-region up to 2021. 4.2 The issues that need to be considered in developing the sub-regional strategy include: (a) Broad locational criteria for sub-regionally significant development and where appropriate, the broad locations for such development accounting for: The economic roles of the various centres in the sub-region; The general housing renewal programme underway in East Lancashire; and Transport connections within the sub-region and between other parts of the region. (b) The policies and mechanisms required to realise economic growth against objectives set in: North West Regional Economic Strategy The Northern Way RPG13 (c) The proposals for a regional park in East Lancashire. (d) The development of spatial planning principles to account for the protection, enhancement, conservation and sustainability of built and natural environment. (e) As an integral part of the strategy, the implementation mechanisms and resources required to deliver this growth. (f) Proactive measures required to ensure that accessibility to transport, ICT, utilities, and community (including health and education) infrastructure provision in order to support further growth. (g) Implications for neighbouring parts of the North West, and Yorkshire and the Humber with particular reference to the Leeds City Region. 5 Developing Options

5.1 At least two spatial options will need to be tested and evaluated for the levels and broad distribution of economic and housing growth to be planned for the period to 2021, having regard to the key issues listed in Section 4. 5.2 In developing the options account needs to be taken of: The emerging work on the Central Lancashire City Region Development Programme and associated work streams3.

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The current work programme being undertaken by Elevate East Lancashire. RPG13 and the Partial Review of RPG13. County and local economic development strategies and development plans. Assessments of local housing need and local housing markets including the work of the Elevate East Lancashire Housing Market Renewal pathfinder. Existing planning consent commitments, urban potential and other sources of land supply. Existing provisions for development. the Journey to Work data from the 2001 Census. Existing strategic designations. The pressures and implications on infrastructure and natural resources and scope for overcoming them; and Spatial relationships within the Central Lancashire sub-region, and with adjoining areas. 6 Testing and Appraising Options

6.1 The outcomes of the strategy should be underpinned by the principles of sustainable development, which should be considered from the outset. The study partners will need to undertake initial strategic testing and appraising of the strategy options combining the requirements of sustainability appraisal, and strategic environmental assessment into an integrated sustainability appraisal process4. While the appraisal needs to reflect local circumstances, detail which is inappropriate, for a sub regional strategic strategy should be avoided. 6.2 The Assembly has recently commissioned Entec UK Limited to assist in undertaking this process. It will include the production of an Appraisal Framework, which will set out the objectives, targets and indicators against which the Spatial Strategy will be appraised. It is anticipated that the framework will be available shortly for use in appraising sub-regional strategy options. The Assembly will supply the Appraisal Framework to the sub-regional partnership as soon as possible. 7 Policy Development, Monitoring and Implementation

7.1 The broad spatial vision and preferred set of spatial planning principles setting out an approach for dealing with issues that need specific treatment at the sub-regional level will be a key output. A limited number of policies for possible inclusion in the North West Regional Spatial Strategy need to be drafted to address the issues in Section 4. These should be related to the preferred option for the level and pattern of development with an indication given as to how they may need to be modified to meet the other options tested. 7.2 An indication of monitoring outputs needs to be given. These should link in with the regional indicators and targets being developed by the Assembly. 7.3 It is also particularly important that comments should be made on appropriate implementation mechanisms and the organisations responsible for delivering policies and proposals.

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8 Timetable

8.1 An interim report on the first detailed proposals is required by the North West Regional Assembly by 28 January 2005. The interim report will consist of a brief summary of progress including setting out the initial broad spatial options, and highlight any potential areas where difficulties may be encountered in meeting the timetable for reporting on first detailed proposals set out in paragraph 8.2. These initial broad spatial options will then be incorporated by the North West Regional Assembly into its wider consultation\engagement work of spatial options for the North West RSS which will take place in February/March 2005. 8.2 The first detailed proposals for the sub-regional strategy are required by the Assembly by 8 March 2005. The first detailed proposals are required to inform the preparation of the public consultation draft of the North West RSS. The report should include: A summary of key issues. Worked up preferred and agreed options for the level and distribution of development. A summary of the testing and appraisal of options. Advice on a broad spatial vision and preferred set of spatial planning principles and appropriate policies. Proposals for implementation, monitoring and delivery; and Further work required to develop and implement a sub regional spatial strategy. 8.3 A draft of the North West Regional Spatial Strategy incorporating sub-regional policies and proposals is to be published for public consultation in Summer 2005. A revised draft taking into account the responses received is to be submitted to the Government Office for the North West in late Summer 2005. 8.4 The Assembly wishes to emphasise that the first detailed proposals represent an initial stage in sub-regional policy development. It is important that consensus is achieved amongst the Section 4(4) Authorities in the production of the sub-regional strategy. Any points of contention or dissent amongst the Section 4(4) Authorities should be highlighted to the Assembly and included in the submission of first detailed proposals. The attention of all participating Local Authorities is drawn to paragraph 2.29 of PPS11 which highlights that: "It is the executive and not the full council which should exercise the responsibilities under Section 4(2) and 5(5) of the Act. Therefore, the Local Authorities (Functions and Responsibilities) (England) 2000 Regulations have not been amended to provide that an Authority, in exercising its responsibilities under Section 4(2) and 5(5) of the Act, should do so as the full council." 9 Working Arrangements and Political Engagement

9.1 The principal Authorities will need to establish appropriate working arrangements to progress the sub-regional strategy in accordance with the above timetable. 9.2 The Assembly expects the principal Authorities to involve non-unitary District Councils in the area and representatives from the social, environmental and economic sectors. Arrangements also need to be made by the Section 4(4) Authorities for liasing with Government Agencies such as the Environment Agency and other service providers, including the water and utility companies and for keeping informed local strategic partnerships and other key stakeholders.

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9.3 An Assembly staff member may attend the meetings arranged to progress the sub-regional strategy as an advisor where the Section 4(4) Authorities consider it to be appropriate. The Section 4(4) Authorities should also consider inviting representatives of the North West Development Agency and Government Office for the North West to also attend as advisors. 9.4 The Section 4(4) Authorities need to put in hand arrangements to enable them to consider the contents of the draft strategy, to ensure that their representatives on the group have a mandate for the submission of proposals to the Assembly. 9.5 It is for the Assembly to decide whether these suggestions, in whole or part, shall form part of the Consultation Draft Regional Spatial Strategy. Publication of the Draft RSS will not imply that the sub-regional proposals have been fully agreed by the constituent Authorities or indeed the Assembly. The only agreement that is necessary is to go forward with a set of options for consultation. All Local Authorities and other organisations will have the opportunity to comment formally on the sub-regional proposals during the public consultation period later in 2005. Engagement with the wider public is not required before then. 10 Contact Details

Lead Officer: To be nominated from the three Strategic Authorities Lead Authorities: To be nominated from the three Strategic Authorities Assembly Contact: Duncan McCorquodale Tel: 01942 [email protected]

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APPENDIX B: CONSULTATION

B1 The three Authorities consulted with a wide range of agencies, organisations and voluntary groups during the period 21 December 2004 - 28 January 2005. B2 The following were asked for their opinions: Countryside Agency North West *+ Sustainability North West Enterprise plc British Retail Consortium Boots plc National Grid plc * English Nature + BAe Systems *+ Tesco Stores Limited + Community Futures British Wind Energy Association * United Utilities Environment Agency *+ English Heritage *+ English Partnerships *+ House Builders Federation Marks and Spencer Limited Housing Corporation Nuclear Electric Limited BT Group c/o RPS Consultants Vodafone Limited BG Group plc Associated British Ports * Blackpool Airport Lancashire & South Cumbria Strategic Health Authority Lancashire CPRE + National Farmers' Union Highways Agency *+ Heysham Port Limited Northern Rail * University of Central Lancashire RSPB (NW England) Friends of the Earth North Lancashire *+

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Myerscough College Shell UK Pipelines Strategic Rail Authority Lancaster Port Commissions/Glasson Dock * Transpennine Express University of Lancaster Wildlife Trust for Lancashire, Manchester & North Merseyside *+ Friends of the Earth Central Lancashire Lancashire Heritage Trust Federation of Lancashire Civic Societies *+ Ramblers' Association Mid Lancs NWDA *+ RPS (Camelot) *+ B3 Those marked (*) provided a written response or other information. Discussions were held with those marked (+). Workshops were held with officers of the 12 District Councils in Lancashire. Representatives of other organisations attended the workshop held with the East Lancashire Districts.

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APPENDIX C: LANCASHIRE DISTRICTS' OUTLOOK

C1 Each of the 12 District Councils in Lancashire was offered the opportunity to submit a short paper setting out its views of what it wants to happen in its area in the 2004-21 period for inclusion in this Report. C2 Six Districts have submitted papers and these are reproduced in this appendix: Chorley Fylde Hyndburn Preston South Ribble Wyre These papers represent Officer views of the Authorities concerned. Most have not been referred to elected Members. The views of the Authorities may change during later, formal consultation. C3 The Fylde Borough Council submission refers back to the First Detailed Proposals document. These references are to an early draft supplied to District Councils for comment in mid February 2005. It differs from this Report, dated 8 March 2005.

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CHORLEY BOROUGH AT 2021: A SUSTAINABLE, PROSPEROUS HEALTHY PLACE TO LIVE AND TO DO BUSINESS - A CHORLEY BOROUGH COUNCIL VIEWPOINT

Its Role Chorley Borough will be at the interface between the internationally important conurbation of Greater Manchester and the prosperous new city of Preston. It plays a key role as an integral part of a thriving Central Lancashire Sub-region; the Borough will have carved itself a niche, nurturing forward-looking technologies that require an educated flexible work force.

Population The population of the Borough will have increased by about 4,000 by 2021. Of this population growth a considerable percentage will be the elderly who will require an environment that is conducive to health at the various stages of their retirement. Despite the population growth the decreased proportion of people in the child rearing age groups has meant the school rolls have continued a long term falling trend.

Infrastructure A high level of accessibility within the Borough, its Sub-region and the national and international orbit has been achieved - vital for it to continue to attract high gross value added jobs. To this end there is a seamless approach where, for example, the businessperson arriving from Manchester Airport can reach Chorley and other settlements quickly and efficiently, or the older non-driver in Croston can reach the shops in Chorley with ease. This has been realised through a realistic approach to infrastructure provision. Attracting economic growth requires infrastructure to be in place prior to investment decisions being made otherwise increasing levels of growth would not have occurred. Finance has been made available to increase the capacity of the infrastructure of both rail and road main routes i.e. the M6 motorway and the main West Coast rail line through widening. Strength of purpose has also resulted in a quality rail interchange at Buckshaw Village. The former unofficial M6 junction to the south west of the Central Lancashire area at Charnock Richard has been improved and has had its use formalised to allow greater connectivity with the Manchester conurbation. Management of parking, road pricing and public transport has been addressed holistically at a regional level to ensure that improved economic growth has not led directly to more congestion.

Economy Economic growth has taken place by not relying on large inward investment projects with footloose capital that may have no commitment to a region. The Royal Ordnance site is almost complete with its uses complementing at a regional and Sub- regional level the regional economic priorities set out in the Regional Economic Strategy (RES). Considerable cross-sector partnership working has succeeded in bringing back into the workforce many of those who had previously been claiming incapacity benefit. Continuous adult education building on the resources of the universities at Lancaster, Preston and Manchester has ensured that the work force is able to contribute to bridging the productivity gap by becoming more skilled.

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The growth in small and medium sized enterprises has meant that some historic employment areas or allocations are no longer required. Clean employment uses coexist with residential and other intensive uses within the settlement cores. Employers in partnership with public sector organisations including universities and the hospitals have successfully anticipated new growth areas such as renewables and geriatrics instead of trying to support sectors in decline.

Housing Provision House building rates have increased considerably since the record lows of the beginning of the 21st Century. This has meant that unpopular areas of housing have been cleared and replaced with new housing. Arbitrary density requirements have been removed as restrictions on major release of green belt land and the continued emphasis on town centre developments has broadly resulted in high density development. Where developers have demonstrated a case for "top of the market" housing in line with the RES and the Regional Housing Strategy (RHS) this has been allowed. A mix of housing has been built in all new developments where it fulfilled the requirement for a balanced community. Quality of design and implementation has been central to attracting inward investment into the Borough. The majority of economically active residents still commute out of the Borough to Preston or Manchester. However, the numbers choosing to live and work in Chorley has increased - appreciative of the attractions of short journeys to work. Affordable housing is financed through a combination of Registered Social Landlord (RSL) finance (including key worker initiatives) and contributions from S106 agreements relating to new market housing.

Chorley Town Centre Chorley Town Centre complements the larger regional centres of Manchester and Preston. It does not compete with the major centres but has a clearly defined role as a sustainable retail destination with a niche offer. Its attractive town centre with its famous market and good rail and transport links has found favour with employers who wish to locate here finding land competitively priced.

Environment The conservation of the historic, built and natural environment has been fundamental to the economic success of the Borough. Generally new building has been restricted to the historic boundaries of settlements, as proactive planning and use of CPO powers by the Council has resulted in new flexible buildings within an existing urban framework. This has had considerable success in addressing accessibility issues and mixed communities. In common with the rest of Europe, the use of renewable technology has become standard in all new buildings. Commercial installations have been integrated into appropriate locations. Tourism, quality of life issues and economic development are dependent on a quality environment so large scale growth was not considered appropriate. Sustainable use is made of the countryside in the Borough as a local recreational resource.

Conclusion Good planning within the long established settlement pattern linked with a vastly improved transport system has helped bridge the productivity gap whilst improving social inclusion.

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SUBMISSION BY FYLDE BOROUGH COUNCIL ON CENTRAL LANCASHIRE CITY REGION SUB-REGIONAL STRATEGY

FIRST DETAILED PROPOSALS These submissions have been prepared by Officers without any reference to Members. As such they are highly provisional comments and may be subject to change.

Comments The document has been prepared very quickly and this is evident in the text. There is a general lack of clarity within what is a very complicated document and many elements are open to wide interpretation. Whilst there is no criticism of the document authors in view of the short time scales involved, a much more clear and concise document is required in the next draft. In general, the use of broad principles and statements to guide the location and scale of development is likely to mean more work at the planning application stage, compared to the firmer guidance provided in the structure plan. The implications of this are additional costs and greater time taken in dealing with planning applications. There are some sweeping generalisations e.g. the need for executive housing in the City Region. This may be true of East Lancashire, but it may not be true in the Fylde. Housing figures should be provided on a district wide basis, not within the current format of the City Regions. It is essential that this is done so that there is a realistic basis for comment by Districts. On a related note, in discussions with GONW some months ago, it appeared to be the case that consideration was being given to whether affordable housing completions would fall outside the housing figures to be contained within the Regional Spatial Strategy. This could benefit the situation in Fylde Borough. Support is given to the proposed higher levels of housing in principle, but because the figures are not provided on a district wide basis, comments cannot be made on the scale of proposed housing development. The figures proposed for business and industrial land are considered too low for Fylde Borough, which has had a good historical rate of take-up compared to Blackpool. There is support for Lytham St. Annes being defined as part of the Blackpool Urban Growth Area. Kirkham/Wesham's relationship to Blackpool rather than Preston is questioned. Elswick's relationship to Preston is questioned. Support is given to the Rapid Transport proposals for the Fylde coast. Support is given to the proposal for the Norcross to M55 Link Road. General support is given to the proposals to develop Blackpool Airport, but his will raise Greenbelt and transportation issues. This could be controversial. Support is given to the Prestige Business and Industrial Site at Whitehills Park at the end of the M55 motorway. Doubt is expressed whether the large-scale investment indicated will be made in the transportation proposals i.e. new roads, junctions and rail links/stations.

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Larger housing developments at settlements with stations may cause local controversy at Kirkham. There is a feeling that higher levels of housing and other development should be allowed at Warton in view of the BAe plant (9,000 employees) and the fact that workers travel from all over Lancashire to work there. This would be very sustainable. Concern is expressed at the loss of the RPA status at Lytham St. Annes. The importance attached to the Blackpool Casino project by the SRS is questioned since it appears to be a very high-risk strategy.

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CENTRAL LANCASHIRE CITY REGION SUB-REGIONAL STRATEGY

LOCAL AUTHORITY VISION 2004-2021 HYNDBURN BOROUGH COUNCIL Hyndburn Borough Council (HBC) offers the following points as a summary of its vision for the area and its part in the proposed City Region for the period 2004-2021. The headings used are those selected by the three strategic planning authorities in drawing up their First Detailed Proposals for the City Region in March 2005.

Regeneration Priority Areas (RPA's) The regeneration of East Lancashire must be a top priority for the achievement of a prosperous, sustainable City Region. This can only be accomplished by a formal recognition of East Lancashire's area-based historic legacy of manufacturing decline, poor housing and social inequality. In order to give genuine priority to tackling these issues, resources and growth potential must be given favour to the RPA as opposed to other parts of the City Region.

Hierarchy of Towns There is a clear recognition that Central Lancashire only makes sense as a City Region if it is recognised as a polycentric entity. However, a polycentric approach based around a hierarchy of Preston, Blackpool, Blackburn and Burnley as major growth centres, with other areas in a much reduced supporting role, is far too simplistic a model. Preston is the obvious crossroads and focus of the City Region but it is strongly balanced on each side by the urban areas of the Fylde coast and East Lancashire. Within East Lancashire, the same principle of polycentric focus should apply. The East Lancashire towns should be seen as a networked urban area, linked by superb public transport systems, so that the distinctive character and facilities of each town are accessible and available to all residents on the area. To channel all major growth and renewal into two main centres in the area at the expense of others would be a denial of the historic evolution of the area and a significant waste of physical and human capital. A centre such as Accrington has a character and history, as well as accessibility and an economic raison d'etre, which locate it only slightly below its near neighbours. The success of past regeneration initiatives such as the Globe Centre has shown how appropriately scaled development can revitalise not just the town itself, but also contribute to a range of opportunity available to residents and businesses of the wider area. Hyndburn's vision, as set out in its Elevate Strategic Development Framework, would see future development of similar locations as key to the long term future of the borough. This approach is endorsed by the ELSERG Amion/Genecon/King Sturge strategy for future employment land, which advocates urban gateway sites as a key typology.

Regional Investment Sites The Whitebirk regional investment site lies within Hyndburn borough, even though close to the urban area of Blackburn. This shows the close inter-relationship of the East Lancashire towns. Development of Whitebirk as a focus for knowledge based industry and quality manufacturing is rightly seen as benefit for all of East Lancashire. By 2021 this site should be fully operational as key economic generator for the area, well linked by public transport to all the East Lancashire towns and beyond. The challenge for East Lancashire will then be to find the locations to attract the spin off development. One possibility is the Huncoat area, where a land use and transportation study commissioned by Lancashire County Council has shown the potential created by altering access

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arrangements at Junction 8 of the M65. This area has already been identified in the Joint Lancashire Structure Plan as a location for rail freight transfer opportunity. A review of the green belt would be required to exploit this opportunity.

Town Centre Hierarchy In Hyndburn's vision, Accrington town centre would prosper over the 2004-2021 period as one of a network of thriving centres in the eastern part of the City Region. It would sustain its current position in the retail hierarchy, offering a full range of comparison and convenience shopping, primarily aimed at local residents, but also easily accessible and appreciated by residents of the wider area seeking the different experience which a compact historic centre can offer. Opportunities to expand the retail offer would be taken where justified. Specialist shopping would be particularly supported and promoted, while the full range of town centre services would be available. Further education would be enhanced by the new campus development of Accrington and Rossendale College, and sixth form facilities would be available once more in a central location Hyndburn's smaller centres, such as Oswaldtwistle and the free-standing towns of Great Harwood and Rishton would continue to meet the needs of local people, primarily for convenience goods and local services.

Tourism Locations The tourism benefits of the East Lancashire Regional Park and the Leeds Liverpool Canal would be fully exploited in a co-ordinated strategy throughout the East Lancashire area. Combined with this would be an emphasis on industrial and town centre heritage.

Transport Network East Lancashire demands a first rate transport network linking its main towns to enable it to achieve a critical mass much greater than the sum of its parts. This period should see the implementation of the East Lancashire Partnership's rapid transit solutions for the area, involving complementary road and rail based systems. The spine of movement routes through the area will be the East Lancs rail line and the M65 motorway corridor. Accrington lies at the key crossroads of this corridor and the M66/A56 north-south link to the Manchester City Region. The Joint Structure Plan also identifies the Accrington-Haslingden- former rail line for consideration for re-opening as a key rail link to Manchester. The potential for rail freight and motorway access improvements in the Huncoat area has already been mentioned, which would also benefit access to the regionally significant waste site nearby at Whinney Hill. Housing Strategy Hyndburn is a partner in the Elevate HMR Pathfinder. Over this period, the full benefits of the Elevate programme will be delivered. The programme is essential for the regeneration of the borough and the wider East Lancashire area. The successful outputs of the programme must be spread across the Pathfinder. Replacement of cleared housing and any other redevelopment opportunities must be available in all towns, rather than focussed in certain growth poles. Hyndburn would welcome modest additional housing growth over and above the strategy set out in the Joint Structure Plan as a response to RPG. Emphasis on a range of opportunities, from executive homes to affordable is supported. However, it would appear clear that this can only be achieved by an element of restriction of potentially more marketable growth sites in the central area of the City Region.

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Land for Business and Industry In addition to the Regional Investment Site at Whitebirk and the potential opportunities at Huncoat already outlined, Hyndburn would seek to offer a range of locations for employment expansion. The needs of indigenous firms seeking to grow would receive as high a priority as inward investment. The Joint Structure Plan target of 80Ha of new employment land is felt to be a realistic provision. The objective should be to move to a higher skilled higher wage economy, particularly by targeting the ELSERG growth sectors. Urban gateway/hub sites will be brought forward through the local development framework process.

Conclusion A polycentric City Region has the potential to be a dynamic and sustainable unit. However, in order to succeed all its centres must link effectively and maximise their synergy with each other. This is particularly true in the eastern part of the sub-region, where the network of towns and surrounding web of countryside and green belt must be considered as a whole, and the complementary roles of individual parts given due weight.

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FIRST DETAILED PROPOSALS FOR THE CENTRAL LANCASHIRE CITY SUB-REGIONAL STRATEGY

PRESTON CITY COUNCIL'S ASPIRATIONS FOR THE CITY REGION

1. Building on Success The fundamental purpose of the Northern Way Growth Strategy (NWGS) and the principles of the Regional Economic Strategy should not be undermined by sub-regional policy contained in the Regional Spatial Strategy (RSS). The strategic planning system can assist, not only in creating and sustaining the economic competitiveness of the growth centres but in spreading the benefits to the wider City Region and elsewhere throughout the North West. It would be contrary to NWGS principles if growth in the four City Region growth centres occurred as a result of decline in the smaller centres, rather than as a result of attracting growth currently directed to other parts of the Country. Building on the success of areas such as Central Lancashire, centred on the city of Preston, will benefit the City Region and the North West region as a whole

2. The Reality of Greater Preston The three strategic authorities' 'preferred option' takes account of the Northern Way's City Region Development Programme for Central Lancashire and concentrates on promoting growth in the four urban growth areas of Preston, Blackpool, Blackburn and Burnley. However, the Sub-regional Strategy (SRS) should recognise that the Central Lancashire functional area comprising Preston, South Ribble, Chorley and parts of Fylde (sometimes referred to as 'Greater Preston') forms the dominant core of the Central Lancashire sustainable city region. The area acts as a gateway and interchange at the core of the City Region and can provide a counterbalance to the North West Metropolitan Area as a natural growth point for more sustainable communities. Growth at the centre of Lancashire, with the critical mass of retail, education, housing and employment, can help reduce unsustainable patterns of travel to areas such as Liverpool and Manchester. The 'preferred option' proposes equal growth in the four urban growth centres. However, it must be recognised that the market dictates the hierarchy of centres and, in reality, Greater Preston functions at a significantly higher level than the other three centres.

3. Employment Growth and Skills Employment growth in Greater Preston is currently far in excess of major centres in the North West region (including Manchester and Merseyside) and is more closely aligned with national growth rates. Service sector employment is increasing and there is a spread of sub-sectors, many of which are growing in excess of the national average (GVA Grimley 2004). Key areas for future investment are skills training, transport and accessibility improvements and knowledge industries, particularly building on the University of Central Lancashire's (UCLAN's) growing reputation for technology transfer and business incubation. UCLAN is one of the most successful and ambitious universities in the UK and continues to grow, being the principal provider of higher education in Lancashire and Cumbria. As well as being one of the largest employers in the region, with an annual turnover in excess of £120 million, the University has a significant impact on the local economy, including significant investment in high quality buildings and equipment. In addition to the impact the student body has on creating vibrant local communities, it is estimated that it contributes in excess of £250m to the economies of Lancashire and Cumbria.

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4. Regional Catchment and Investment Over 333,000 people (28.5% of the population of the wider City Region) reside in the central core of Lancashire, with 12% residing in both Blackburn and Blackpool and 8% in Burnley (2001 Census.) Situated at the North West transport hub, Central Lancashire has a 30-minute catchment extending to and including Blackpool to the west and Bolton to the south. To the east it includes the rural Ribble Valley and Lancaster to the north. In terms of journey to work, 13% (approx. 75,000) of the 560,000 trips beginning and ending in Lancashire are destined for Preston (GVA Grimley 2005). Central Lancashire is set to secure 'regional level' investment in Preston City Centre by way of the Tithebarn scheme and works connected to the River Ribble (Riverworks) and has a number of prestige Regional Investment Sites.

5. Functional Separation Journey to work data produced by GVA Grimley (January 2005) highlights that there is some functional separation between the Central Lancashire core area and East and West Lancashire. This is supported by migration data where stronger links are identified between the core area and the authorities of Merseyside, than with East Lancashire (excluding Blackburn). The existence of a core area, focussed on Preston, is further supported when considering the economic profile of sub- areas within Lancashire. Research recently completed by the East Lancashire Strategic Economic Regeneration Group (ELSERG) has confirmed that Blackburn performs the dominant role within East Lancashire and, consequently, there are reservations about whether Burnley can be regarded as a growth centre in the City Region.

6. Unleashing Potential Like Manchester and Merseyside, the Central Lancashire City Region has a dominant centre. The dominance and economic potential of the Central Lancashire core is demonstrated by all the empirical evidence. The Phase 1 Report of the Regional Town Centres Assessment Study, prepared by White Young Green for the NWRA, identifies Preston city centre as the highest ranked centre in the Lancashire sub-region, being the only 'Major Regional' centre as identified by the Management Horizons Index. The Index identifies Preston as 34th nationally and 4th in the North West Region. In the NW Blackpool is ranked 10th, Blackburn 15th and Burnley equal 17th. The NWGS proposes that economic growth in the North should be faster than at present. This will involve unleashing potential in areas, such as Central Lancashire, that are economically successful but are currently constrained by planning policy. Officers at Preston City Council consider that the Section 4(4) authorities' First Detailed Proposals take the 'lowest common denominator' approach by proposing an equal amount of growth in all four of the defined urban growth centres. However, paragraph 2.22 of PPS11 states that '…the RPB should be particularly careful to ensure that it achieves RSS 'buy-in' by its partners while avoiding a 'lowest common denominator' approach (i.e. one that avoids dealing with contentious issues), in tackling the key issues which the RSS has to address'. The SRS should focus on how the opportunities created in the City Region can be optimised and captured by those in need.

7. Preston's City Vision and Tithebarn The NWGS is underpinned by the philosophy of investing in opportunity and the City Region already incorporates key regeneration programmes, namely Elevate East Lancashire, the Blackpool Masterplan and the Tithebarn regeneration scheme in Preston. The Tithebarn scheme will unleash untapped potential that requires support by strategic policy if the City Region as a whole is to benefit. Preston's City Vision has evolved to embody Preston's ambitions in terms of its position, prominence and function within the North West region. It is a reflection of its metropolitan functionality, incorporating key civic, judicial and administrative institutions within the context of the

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wider City Region. The City Vision concept also denotes the commercial importance of Preston and its particular position with regard to retailing. Achievement of this vision depends on a degree of growth commensurate with the NWGS. Major centres, such as Preston, can grow without adversely impacting on other centres as they perform a strategic function, i.e. they provide for the sub-region in respect of higher order comparison shopping, thereby reducing unsustainable patterns of travel to regional centres such as Manchester and the Trafford Centre. Major developers will only be attracted to larger centres and, if these centres are not allowed to accept growth such as that proposed for the Tithebarn Regeneration Area in Preston, the sub-region as a whole will lose out. Draft PPS6 further boosts town and city centres with the tightening of planning controls on out-of-centre developments and new development schemes planned for major centres such as Liverpool, Chester and Preston will deliver growth in the north and help re-balance the Country's economic position, in line with NWGS principles.

8. Transport and Accessibility Transport and accessibility, reliant on and supportive of the urban patterns promoted as part of the SRS, will be a major issue to be addressed if the implications of congestion are to be avoided. There is a need for an integrated transport strategy across the sub-region and improvements to links between the main centres in the sub-region and Manchester and Merseyside. Particular emphasis should be placed on transport infrastructure improvements and improvements to public transport facilities. Preston's role as a 'gateway' and public transport hub has already been defined in the current RSS and this role will continue to be important for the success of the City Region. Enhanced accessibility to employment and services between the urban centres within the City Region and transport links to other City Regions, e.g. Manchester, is essential for the economic success of the Sub-region.

9. Housing Affordable housing will be a key priority in the SRS. Central Lancashire is an area of high demand and there are considerable problems relating to the issue of affordability, as evidenced by the joint Housing Market Study undertaken in 2004. The restriction on new housing in the Central Lancashire housing market area in the current RSS and emerging JLSP, and the resultant moratoria at district level, means that affordability cannot be addressed solely by Section 106 agreements attached to planning permissions. The SRS should address this as a separate issue and include a specific policy and/or a formula for the allocation of affordable housing provision. The collapse of the housing market in East Lancashire has begun to be addressed nationally by the Elevate East Lancashire Pathfinder. However, it should not be overlooked that there are significant areas of deprivation in Preston, particularly in East Preston, that will need to be addressed by the SRS. Preston is a NRF area, having eight wards in the top 10% for deprivation nationally, all within the City Centre. This underlies the requirement for the Tithebarn scheme and housing renewal in areas such as East Preston.

NB: Whilst these are the views of Officers of Preston City Council, they reflect and support the individual views submitted by officers from South Ribble and Chorley Borough Councils.

Janet McDonald/Senior Planning Officer/Preston City Council 21/02/05

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ADDITIONAL COMMENTS IN RELATION TO SOUTH RIBBLE BOROUGH

The Council has been invited by the three Section 4(4) Authorities to make a two page submission setting out its views on what it wants to happen in its area in the period 2004-21. In the time available it is only possible to provide informal officer views and the Council reserves the right to add to or alter the comments at the formal consultation stages as the RSS emerges. The First Detailed Proposals take into account the Northern Way Growth Strategy and therefore these comments are restricted in scope to the matters which relate to that strategy and its implications for this Borough.

Relationship to Central Lancashire City Region The fundamental aim of the Northern Way Growth Strategy is that the rate of economic growth of the North's economy should be accelerated. The City Regions, including Central Lancashire are drivers for this growth. Whilst the City Region Development Programme is not yet finalised, it is clear that South Ribble will play an important role in delivering economic growth for the Central Lancashire City Region (CLCR). This should be in a sustainable manner which in turn will add to the prosperity of the north west region as a whole. The Borough has strong links with the neighbouring districts of Preston and Chorley as evidenced by a shared housing market and journey to work patterns and together these form the Core area of the CLCR. Geographically, it is situated at a central core of the City Region, at the hub of the M6/M65/M61 and the West Coast Main Line, East Lancashire and Trans Pennine rail lines providing transport links north and south, with East Lancashire, Greater Manchester, Merseyside and West Yorkshire. Whilst the CLCR is polycentric it is considered that the Central Lancashire Core Area is the main centre forming the gateway to the City Region. This is self evident-based on commercial, economic, retail and range and level of services and functions.

Town Centres Retailing in the Borough is dominated by proximity to Preston particularly in terms of comparison goods. Part of the delivery of the economic growth should be in terms of strengthening and enhancing existing town and district centres to enable them to offer the best possible range of goods and services to local populations thereby contributing to sustainable patterns of development. There are four pilot regeneration areas in the borough based on existing centres. Development will be encouraged in these centres acting as a catalyst for further economic growth.

Housing The borough has experienced high levels of housing and population growth between the 1970's and the 1990's. It is a popular area to live and there is still considerable pressure for housing development despite more recent policies of strategic restraint. House prices are approximately 18% above the County average (3rd quarter 2004 source: Land Registry). The Central Lancashire housing market (Preston, Chorley and South Ribble) for the major part is an area of high demand and there are considerable problems over the issue of affordability as evidenced by the joint Housing Market Study undertaken in 2004. The current strategic policies of restraint mean that the planning system is likely to deliver little, if any, new affordable housing units. This is an issue which will need to be addressed in line with the emerging Regional Spatial and Housing Strategies. At a general level the Borough's housing requirements up to 2016 under the current policies of strategic restraint are likely to be met mostly from existing commitments. The current strategic policies are therefore unlikely to accommodate any new housing that may directly relate to improved economic growth and regeneration opportunities.

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Transport and Infrastructure Improved connectivity within the Central Lancashire Core area, through the City Region and with other towns and City Regions is key to delivering economic growth and creating more sustainable transport choices. External connectivity to West Yorkshire could be improved with the extension of the M65. The Borough's population is heavily dependant on the private car. Improvements should be delivered in a comprehensive and integrated manner which addresses both public transport and transport infrastructure provision. Barriers to connectivity and congestion in the Central Lancashire Core Area need to be removed in order to attract growth and investment and enable sustainable growth.

Employment/Economic Development The borough will make a significant contribution to economic growth by bringing forward a range of suitable sites for employment development. The regional investment site at Cuerden is seen as a major asset for investment in the north west and therefore in the CLCR. Substantial priority should be given to bringing the site forward and realising its potential for economic growth. The availability of land is only one (albeit an important) factor in attracting economic growth. Investment will be required to market and bring forward sites in addition to an examination of the grant assistance regime. Opportunities to deliver improved economic development through regeneration need to be facilitated.

Tourism The Borough is a particularly suitable location for business tourism and this will contribute to improved economic performance.

River Ribble Regional Park The Council supports this initiative which will harness and enhance one of the Sub-region's environmental and recreational assets and contribute to sustainable growth.

Protection of the Environment The Borough's pleasant built and natural environment is considered to be a key asset for the existing residential and business communities and in attracting potential investment. It also contributes significantly to a high quality of life for potential future residents who may be part of economic growth. Large areas of green belts, urban green spaces, open spaces and environmental features will continue to be protected for the major part. Selective review of the green belt in proximity to main urban areas may be required to facilitate development which supports economic growth.

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WYRE BOROUGH COUNCIL - STATEMENT OF ASPIRATIONS

With particular regard to Wyre and its future expectations up to 2021, the Council wishes to see provision made in the RSS for the following.

The Economy Whilst Wyre residents enjoy relatively high levels of employment, there are significant pockets of deprivation most notably within the Fleetwood peninsula. This is coupled with extensive areas of derelict and under utilised brownfield land. These features are coupled with significant net out- commuting and should be considered alongside the issues relating to Transport and Fleetwood Port. The Fleetwood - Thornton Strategic Location for Development is to be recognised as a positive opportunity to attract new investment in order to diversify the City Sub-region's economy and both to protect existing and enhance new job prospects. It could also make a major contribution to sustainability by reducing the need to travel outside the area to work. The RSS should provide a framework to foster development and regeneration in a co-ordinated manner to ensure that in the longer term a vibrant core is delivered, whilst at the same time making better use of the estuary location. The prospect of development and regeneration taking place in the Fleetwood peninsula will be directly related to the status and recognition, which it is afforded in the context of the City Sub-region and the RSS. Action The RSS should identify and promote a prestige site for in the Fleetwood-Thornton area to act as a focus for employment-led development and regeneration. This is to be supported by improvements to the transport infrastructure and realisation of the growth potential at Fleetwood Port.

Transport The intended integration of the Regional Transport Strategy (RTS) within RSS is welcomed thus ensuring the integration, as far as possible, of land use and transport matters. The partial review of RPG13, which withdrew transport matters, meant there were serious shortfalls in terms of policy addressing transport issues of regional significance. Links to the major port of Fleetwood and the implications for regeneration are significant issues within Wyre and, indeed, the wider City Sub- region. The transport issues affecting the Fylde-Wyre-Blackpool area have been assessed through the Fylde Coast Sub-regional Transport Study and should be a key source document for informing the development of policy in the RSS and for the Central Lancashire City Sub-region. M55 - FLEETWOOD LINK The A585 trunk road route from the M55 to Fleetwood is a route of regional and national significance. Congestion on the route is a major barrier to growth at Fleetwood Port and to economic investment in the Fleetwood/Thornton area. The A585(T) north from the M55 at Junction 3 to the port of Fleetwood needs to be given suitable recognition in RSS. Having regard to improving journey time reliability and operational efficiency as a part of the Regional Highway Network, the A585(T) needs to be identified as a 'National Distributor Route'. Specific inclusion of this route will reflect its function in terms of actual or intended purpose within the transport network as a whole, as well as its linkages beyond the City Sub-region - including Northern Ireland. The Fylde Coast Sub-Regional Transport Study is nearing completion. Its findings should be incorporated into the RSS. In particular, the need to invest in a new road route from the M55 to Norcross should be recognised and promoted.

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PUBLIC TRANSPORT AND FREIGHT Blackpool Transport Authority's Light Rapid Transit (LRT) System proposals also need to be addressed. Upgrading the existing tramway to modern light rail standard will further compliment the role of the Fleetwood peninsula. The LRT is a regionally significant scheme which is integral to the future regeneration and development of the Fleetwood area and the connectivity of Blackpool Airport. The regional rail network is also essential to the City Sub-region's economy. Achieving a significant switch to rail travel will require better integration with buses and other forms of transport through the development of interchanges which need to be accessible. Safeguarding land which would be required to reinstate rail services, including freight movement services to Fleetwood is therefore essential. Protection of the diverted railway line which runs through the Fleetwood - Thornton Strategic Location for Development should be formally recognised in RSS as a means of directing investment and regeneration initiatives towards Wyre's urban area. Action The RSS should indicate that the A585(T) north from M55 Junction 3 to Fleetwood is a route of regional and national significance, most particularly because of its linkages to Fleetwood Port. The construction of a new link road between the two should be actively promoted in RSS as a priority highway proposal. The role and function of the proposed Fylde Coast Light Rapid Transit System (including Blackpool - Fleetwood), and rail services (both passenger and freight) needs to be recognised in relation to current and future land use patterns having regard to wider economic and regeneration objectives. FLEETWOOD PORT Fleetwood Port is a key economic asset of national and regional significance. In 2002 it handled over 1.5m tonnes of freight, in particular the movement of high value time critical goods between the UK and Ireland. The key role-played by this port needs to be further progressed. Its potential as a regionally significant interchange in assisting the transfer of freight from road, or rail, to water needs to be further realised. The importance associated with improving access to Fleetwood Port is therefore to be considered in the context of the aforementioned transport priorities (A585(T), LRT and Rail) within a Wyre and City Sub-Region context. Action The RSS should recognise the significance of Fleetwood Port to the regional economy and support its future growth potential.

Housing Any significant housing growth within Wyre would run counter to the imperative of sustaining communities and regeneration within the main metropolitan areas of Manchester and Merseyside and the east Lancashire 'Elevate' towns. It would also exacerbate the net out-commuting from Wyre, contrary to sustainability principles. The prospect of achieving a balanced housing market, either on a Borough-wide basis or a City Sub-Region basis needs to be addressed via RSS with regard to both need and quality. Action The RSS should restrain housing growth within Wyre to that necessary to meet local affordable housing needs and to allow for natural growth of existing communities.

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Coastal Defences Considerable areas of Wyre, and the neighbouring authorities of Blackpool and Fylde are vulnerable to tidal flooding and future rises in sea levels. The Council are generally supportive of the principle of directing new development away from areas of flood risk. However, large urban areas are located within the coastal flood zone. These communities have to be safeguarded and further development allowed to sustain them. Action Coastal defence reinforcement should be recognised in RSS as a key component of regeneration projects. The RSS should promote investment which reinforces coastal defences integral to protecting existing urban communities and facilitating regeneration and the provision of visitor attractions.

Natural Environment and Recreation Wyre and adjoining districts have rich and varied landscapes (e.g. the Wyre Estuary, Morecambe Bay and the Forest of Bowland) that are valued for their natural beauty and as great wildlife resources. Whilst worthy of protection for these reasons, there are also opportunities to develop their leisure, tourism and recreational potential as a regional destination and as an alternative to longer distance trips to the Lake District and the Yorkshire Dales. Individually and collectively these areas very positively contribute to the 'quality of life' in the North West. This is a significant factor in making the region one that is attractive to inward investment and wealth creation. Action The RSS should recognise the regional, national and international significance of these landscapes and wildlife resources and afford to them appropriate protection. The Morecambe Bay and the Forest of Bowland should be designated as regional parks to aid the sustainable development of their leisure, tourism and recreational potential coupled with the associated opportunities for economic diversification and growth in 'gateway' market towns and villages.

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APPENDIX D: TECHNICAL DATA

Copyright Notice: Please note that all data utilised in both D1 and D2 below were derived from the 2001 Census, special workplace origin-destination data for wards. Crown Copyright. Crown copyright material is reproduced with the permission of the controller of HMSO.

D1 Travel to Work Analysis, 2001 Census of Population This analysis used the methodology developed by M.G. Coombes and the Office for National Statistics in 1998 to create the 1991-based Travel-to-Work Areas. The function used to assess an area's viability as a Travel-to-Work Area is outlined below. This essentially related to areas with populations of over 3,500 and self-containment of 70 to 75% depending on the size of the area, that is areas were created where between 70 and 75% of the working population both live and work in a Travel-to-Work Area. The function used was as follows:

Fa,a Fa,a min { - ; - ; 0.75 } X Ra Wa

min { 5.295Ra ; 18,220 + 0.0885Ra ; 20,000 }

Where Fa,a is the number of people who both live and work in the area concerned; Ra is the number of workers who live in the area; and Wa is the number of people who work in the area concerned. The area is a viable Travel-to-Work Area if the value of this function exceeds 13,900. The resultant Travel-to-Work Areas are shown in Figure 4.1. Note that only wards in the North West were processed. This leads to 'edge' effects where Travel-to-Work Areas created at the 'edge' of the analysis area cannot be relied upon. These have been left off the final map.

D2 Major Employment Destinations and Spheres of Influence Major employment destinations are identified on Figure 4.2. These destinations have been identified as those wards that have a high level of employment in the ward compared to their resident population. The thresholds shown on Map 4.2 were based on the formula below. Only sites where the scaling coefficient was equal to or exceeded 4,000 were included as 'major' employment destinations. We2 Scaling coefficient = ______R Where We = workforce employed in the ward R = resident population of the ward The spheres of influence for clusters of major employment destinations were defined by applying the following formula to each ward (excluding wards which were 'destination' wards as identified above).

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Wd Scaling coefficient = ______Wt-WI Where Wd = Workforce resident in ward employed at destination Wt = Total workforce resident in ward WI = Resident of ward also working in the same ward Clusters of major employment destinations were designated using 'nearest neighbours'. Those wards where the coefficient of influence was 10-30% or 30%+ were mapped in Figure 4.2.

D3 Retail catchment areas Figure 4.3 is derived from Table 4A of 'The Lancashire Shopping Study' (March 2003). This Study was based on a telephone survey of 3,000 households with a minimum of 100 interviews carried out in each of a series of survey zones. The Study was commissioned from Nathaniel Lichfield and Partners by the Joint Structure Plan Authorities. From Table 4A of the Study, the Tier 1 Centre with the highest recorded percentage as a primary destination (both town centre and retail parks) for each survey zone was mapped on Figure 4.3.

D4 Population, housing and employment forecasts The population, migration and housing numbers that illustrate the various options are derived from the baseline data (base population, fertility, mortality, migration, household formation rates etc.) underpinning ODPM/ONS 1996-based population and household projections and have been prepared by The Three Authorities. Adjustments have been made to net migration levels in order to distinguish between and reflect the economic 'growth' aspirations underpinning each of the options. Accordingly, projections of population and household change and housing requirements have been calculated by varying the net migration assumptions for each District to reflect either a continuation of recent trends in migration, or else a 'nil net migration' situation. Various combinations produce different growth scenarios. For example, adoption of 'nil net-mitigation' in Districts that have consistently experienced outward migration implies future growth, but less growth in Districts which experience inward migration. Adoption of 'recent trends' in Districts which traditionally experience inward migration, but where current policy assumes mil net-migration implies accelerated growth. In the case of Blackpool projections have been informed by the growth aspirations envisaged by its Master Plan. In all other respects, the assumptions that underpin the population, household and housing numbers in the Joint Lancashire Structure Plan 2001-2016 (household sharing, vacancy in new stock, etc.) are used in these proposals. A more detailed explanation of the methodology and background data is contained in background technical reports to the Joint Structure Plan1. The employment forecasts are derived from 2001 Census of Population economic activity rates, calculated by The Three Authorities, and applied to each District's projected working age (16-74) population.

1 'Lancashire Housing Study, Methodology (Explanatory Paper)' (Joint Advisory Committee for Strategic Planning, October 2000); 'Housing Provision Background Paper' (Joint Advisory Committee for Strategic Planning, August 2002)

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APPENDIX E: CRITERIA FOR IDENTIFYING BUSINESS SITES

This is based on work for East Lancashire Partnership by Genecon (December 2004).

'Urban gateway/hub sites' Edge of within town centre 'walkable zone'; Walking distance to public transport hubs; Well related to town centre facilities sought by skilled workers; Good standard of private transport access including car parking; Proximity to HMR areas; Capable of accommodating mix of uses including accommodation for urban 'knowledge- based' business and target sectors as well as public sector office relocations - predominantly office development of varying scales; Capable of creating distinctive business locations with clear identify.

'Neighbourhood opportunity sites' Neighbourhood opportunity sites arising from ADF master plans, creating relocation of expansion opportunities for indigenous companies; The potential for significant land use 'exchange' between housing and employment uses to create mixed use communities which better integrate housing with 'clean' business activities and community enterprise; Small workspace developments of circa 1 hectare yielding approximately 2,500sq.m of space in around 10 units sized between 160?320sq.m. Mainly leasehold. Can be integrated into mix of uses; Larger developments of 2 hectares allowing for development of 8,000 to 10,000sq.m in unit sizes between 300?2,000sq.m. Leasehold and Freehold. Given possible need to cater for 24/7 working and HGV generation, locations close to main roads are required. Opportunities for mixed-use development limited associated with district/neighbourhood retail centres. Likely locations within or close to the ADF areas.

'Rural renaissance sites' Small workspace developments of circa 1 hectare yielding approximately 2,500sq.m of space in around 10 units sized between 160?320sq.m. Mainly leasehold; Larger developments of 2 hectares allowing for development of 8,000 to 10,000sq.m in unit sizes between 300?2,000sq.m; Capable of creating distinctive business locations as part of market town 'renaissance' process; Potential for broadband connectivity; Well located to public transport facilities, shops and other services; Likely locations in or on the edge of market towns.

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