Luton Local Plan 2001 - 2011
Adopted March 2006
Department of Environment and Regeneration FOREWORD
This written statement and the accompanying Proposals Map is the statutory local plan for Luton and constitutes part of the development plan for the Borough. It was adopted under Regulation 27 of the Town and Country Planning Act 1990 on 30th March 2006.
The Local Plan is the Council’s land use strategy for the Borough. It sets the pattern and character of future development in the town and provides the basis that the Council will use for the determination of planning applications. The Council expects that land shown on the Proposals Map without a specific designation will be retained in its current use, unless the proposed new use complies with the policies in this Plan. In assessing planning applications, the Council will take into account all of the relevant policies in the Local Plan and any other material considerations before reaching a decision on the merits of the proposed scheme. Hence it will be necessary for applicants to identify, and have regard to, all relevant policies. These may, for example, include design, landscaping and car parking, as well as any specific land use or site-specific policy.
The process of preparing the Local Plan involved the publication of an Issues Report, First Deposit Draft and Second Deposit Draft, a Public Inquiry that was chaired by an independent Inspector, and Proposed Modifications made having regard to the Inspector’s recommendations. All stages involved extensive consultation and the Council wishes to thank all those organisations and individuals who took part in any stage of the process.
The Local Plan may be viewed on the Council’s website: www.luton.gov.uk. and copies may be obtained from the Planning Service, Department of Environment and Regeneration, Luton Borough Council, Town Hall, Luton, LU1 2BQ. If you have any queries with regard to the Local Plan please call the Local Plans Team on 01582 54 70 96 or 54 71 75 or 54 65 47, fax on 01582 54 71 38 or e-mail on [email protected].
David Franks Leader of the Council
Luton Local Plan 2001 - 2011 (i) The Local Plan sets out the Council’s detailed policies and proposals for the development and use of land, which guide its planning decisions.
This information can be made available in other formats. If you require a copy in large print, on tape or in a language other than English, please telephone (01582) 54 70 96 or 54 63 15 or 54 71 75
(01582) 54 70 96 or 54 63 15 or 54 71 75
(01582) 54 70 96 or 54 63 15 or 54 71 75
(01582) 54 70 96 or 54 63 15 or 54 71 75
(01582) 54 70 96 or 54 63 15 or 54 71 75
(ii) Luton Local Plan 2001 - 2011 CONTENTS
Luton Local Plan 2001 - 2011 (iii) (iv) Luton Local Plan 2001 - 2011 CONTENTS
Chapter Page No.
FOREWORD (i)
1 INTRODUCTION 1 Purpose of the Local Plan 3 Local Plan timetable 3 Scope and status of the Local Plan 4 Structure of the Local Plan 4 Relationship between policies 5
2 PLANNING GUIDANCE 7 Introduction 9 National planning guidance 9 Changes to the planning system 10 Regional planning guidance 10 Bedfordshire Structure Plan 2011 11 Minerals and Waste Local Plan 11
3 BACKGROUND TO LUTON 13 Introduction 15 Luton Community Plan 2002-2012 15 Luton Borough Council plans and strategies 15 Luton in its context 18
4 AIM AND OBJECTIVES 21 Local Plan aim 23 Definition of sustainable development 23 National and regional sustainable development guidance 23 Objectives of the Local Plan 24 Local sustainable development strategy 25 Spatial development strategy 25 Sustainability appraisal 26
5 ENVIRONMENT 27 Environmental Objectives 28 Environmental impact of development 29 Landscape setting 29 Biodiversity 31 Historic environment 33 Design 38 Water resources 42 Pollution and contamination 43
Luton Local Plan 2001 - 2011 (v) 6 SOCIAL MATTERS 47 Social Objectives 48 Housing 49 Introduction 49 Housing policy guidance 49 Existing residential areas 51 Additional dwellings 51 Residential density 54 Extensions to dwellings 55 Affordable housing 56 Student halls of residence 58 Gypsies/Travellers sites 59
Leisure and Community Facilities 61 Introduction 61 Policy context 61 Green space 61 Community facilities 65 Visitor accommodation and tourism 70
7 ECONOMY 71 Economic Objectives 72 Employment 73 Introduction 73 Economic policy guidance 73 Employment land 73 Warehousing 75 Wigmore employment area 75 Development outside key employment areas 76
Retail 77 Introduction 77 Retail policy guidance 77 Local situation 78 Retail strategy 78 Retail allocations 80 Town centre shopping area 81 District and local centres 82 Local convenience shops 84 Re-use of vacant shop units 84
8 INFRASTRUCTURE 85 Infrastructure Objectives 86 Transportation 87 Introduction 87 Government policy 87 Structure Plan 88 Local Transport Plan 88
(vi) Luton Local Plan 2001 - 2011 Transport Strategy 88 Location of new development 89 Traffic implications of new development 90 Mobility 90 Public transport 91 Walking and cycling 93 Freight distribution 94 Taxis 94 Traffic management 95 Roads 96 Parking 97
Utilities 99 Introduction 99 Telecommunications 99 Public utilities sites 100 New infrastructure provision 100 Renewable energy 101 Waste and recycling 102
9 ACTION AREAS 103 Action Areas Objective 104 Central Area 105 Introduction 105 Luton Town Centre Development Framework 105 Luton Town Centre Partnership 105 Role of the central area 105 Parking and accessibility 106 Central area improvements 106 Gap site 106 Cultural quarter 107 Open spaces 107 Northern gateway 108 Bus and railway stations 109 Power Court 109 Butterfield Area 110 Stockwood Area 113 Marsh Farm 115 High Town 117 London Luton Airport 119 Introduction 119 Airport policy context 119 Planning control 119 Future development 120 Planning considerations 120 Airport safeguarding 123 Kimpton Road Area 125
Luton Local Plan 2001 - 2011 (vii) 10 IMPLEMENTATION AND MONITORING 127 Implementation and Monitoring Objective 128 Implementation 129 Planning obligations 129 Replacement facilities 131 Planning enforcement 131 Monitoring 132
APPENDICES 135 1. Regional Planning Guidance for the South East (RPG9) and the 137 Luton Local Plan – objectives for sustainable development 2. Standards and guidance for new residential developments 138 3. Alterations to dwellings 141 4. Maximum car parking standards 142 5. Minimum cycle parking standards 144 6. Transport assessment 145 7. Travel Plans 146 8. Performance indicators 147 9. Supplementary Planning Guidance 149 10. Relevant Planning Policy Guidance Notes and Statements 150
GLOSSARY 151
INDEX 163
PROPOSALS MAP POCKET
LIST OF FIGURES 1. Local Plan timetable 3 2. General structure and coverage of the Local Plan 5 3. National and regional guidance, structure and local plans 9 4. Luton Borough Council strategies 17 5. Luton in its regional context 18 6. Age structure in England and Wales 19 7. Age structure in Luton 19 8. Ethnicity in England and Wales 19 9. Ethnicity in Luton 19 10. Population change in Luton 19 11. Household number change in Luton 20 12. Percentage of households without a car or van 20 13. Unemployment rates in Luton and the East of England 20 14. Income support levels 20
LIST OF TABLES 1. Relationship between the Local Plan, the Community Plan and Luton 2011 16 2. Housing land supply (as of January 2004) 50
(viii) Luton Local Plan 2001 - 2011 LIST OF POLICIES Aim and objectives LP1 Sustainable development strategy 25 Environment Landscape setting ENV1 National landscape areas 29 ENV2 Local landscape areas 30 ENV3 Green Belt 30 ENV4 Access to the countryside 31 Biodiversity ENV5 Protection and enhancement of nature conservation 33 Historic environment ENV6 Archaeology 34 ENV7 Listed Buildings 36 ENV8 Development affecting Conservation Areas 37 Design ENV9 Design principles 39 ENV10 Landscaping 40 ENV11 Works to protected trees 41 ENV12 Public art 42 ENV13 Advertisements 42 Water resources ENV14 The water environment 43 Pollution and contamination ENV15 Pollution 45 ENV16 Development on contaminated land 46
Social matters Housing H1 Existing housing 51 H2 Additional dwellings 53 H3 Residential density 55 H4 Extensions to dwellings 55 H5 Provision of affordable housing 57 H6 Affordable housing arrangements 58 H7 Student halls of residence 59 H8 Sites for Gypsies/Travellers 59
Leisure and community facilities LC1 Protection and preservation of green spaces 63 LC2 Provision of green space 64 LC3 Protection of community facilities 68 LC4 New and extended community facilities 68 LC5 Dual use of educational facilities 68 LC6 Childcare facilities 69 LC7 Luton Town Football Club, Kenilworth Road 69 LC8 Visitor and tourist accommodation 70
Luton Local Plan 2001 - 2011 (ix) Economy Employment EM1 Development in key employment areas 74 EM2 Warehousing 75 EM3 Wigmore employment area 75 EM4 Development outside key employment areas 76
Retail S1 Retail strategy 79 S2 Town centre shopping area 81 S3 District and local shopping centres 83 S4 Local convenience shops 84
Infrastructure Transportation T1 Transport strategy 89 T2 Location policy 90 T3 Traffic implications of development 90 T4 Mobility 91 T5 Translink 92 T6 Bus accessibility 92 T7 Transport interchange 93 T8 Walking and cycling 93 T9 Freight 94 T10 Taxis 95 T11 Traffic management 95 T12 Road proposals 96 T13 Parking 98
Utilities U1 Telecommunications development 100 U2 Infrastructure provision in major new developments 100 U3 Renewable energy generation within new buildings 101 U4 Renewable energy proposals 102
Action Areas Central area CA1 Central area 106 CA2 Gap site 107 CA3 Cultural quarter 107 CA4 Central area open spaces 108 CA5 Northern gateway 108 CA6 Improvement of bus and railway stations 109 CA7 Power Court 109
Butterfield area BA1 Butterfield area 112
(x) Luton Local Plan 2001 - 2011 Stockwood area SA1 Stockwood area 114
Marsh Farm MF1 Marsh Farm 115
High Town HT1 High Town 118
London Luton Airport LLA1 Development at London Luton Airport 121 LLA2 Airport-related car parking 122 LLA3 Development within public safety zones 123 LLA4 Airport Safeguarding 124
Kimpton Road area KR1 Redevelopment at Kimpton Road 125
Implementation and monitoring IMP1 Planning obligations 130 IMP2 Replacement facilities 131 IMP3 Enforcement 131
Luton Local Plan 2001 - 2011 (xi) (xii) Luton Local Plan 2001 - 2011 1 INTRODUCTION
The hat Factory Luton
Luton Local Plan 2001 - 2011 1 2 Luton Local Plan 2001 - 2011 INTRODUCTION
Purpose of the Local Plan used to give planning advice and provide the primary basis for determining planning 1.1 Luton Borough Council has prepared the applications. Luton Local Plan in accordance with the Town and Country Planning Act 1990 (as amended Local Plan timetable by the Planning and Compensation Act 1991). The purpose of the Local Plan is to guide 1.2 The Borough Council agreed a broad development and the use of land in Luton over timetable for producing the Local Plan. The the next 10 years. Its policies and proposals main stages, with a description of what Introduction for land use and transportation are happened at each stage, and when the community was consulted is as follows: Figure 1: Local Plan timetable
Issues Report December 2001 Consultation Identifying key planning issues
First Deposit Formal consultation with opportunity for May 2003 supporting or objecting to policies and Draft policies and proposals proposals
Second Deposit Formal consultation with opportunity for February 2004 supporting or objecting to amended or Amend policies and proposals new policies
Public Local Inquiry Formal Inquiry where an independent November 2004 Inspector considered all outstanding Consideration of objections by Inspector objections
Proposed Modifications Consideration of Inspector’s Report and August 2005 opportunity to make representations on Amendments following Inspector’s Report proposed modifications
Local Plan adoption March 2006 Implementation of policies and proposals
Luton Local Plan 2001 - 2011 3 Scope and Status of the Local 1.7 Having identified the overall aim of Plan achieving sustainable development in Luton, the Local Plan is concerned with its delivery through the policies and proposals it contains. 1.3 Luton Borough Council, like all district These have been drafted in the context of and borough councils, has a statutory duty national, regional and structure plan guidance to produce a local plan for the whole of its and provide the land use framework for other area. Luton is a Unitary Authority but is still Council and external strategies. responsible for producing a local plan.
1.4 The Luton Local Plan 2001-2011 forms Structure of the Local Plan part of the development plan for Luton, together with the Bedfordshire Structure 1.8 The Local Plan is produced in two parts: Plan 2011 and the Minerals and Waste Local
Plan. The Structure Plan sets out the strategic l a Written Statement, which sets out the policies for Luton and Bedfordshire, and the Council’s policies and proposals for the Local Plan provides the more detailed policies development and use of land, and that apply to the Borough. The Local Plan is in
general conformity with the current Structure l a Proposals Map, which indicates the Plan, which covers the period until 2011. The sites that are subject to specific policies. Local Plan must also accord with national and Much of the Borough is shown on the regional planning guidance. Proposals Map without a specific designation. This land is expected to be 1.5 As a statutory local plan, its policies and retained in its current use unless the proposals may only relate to the development proposed new use complies with the and use of land. However, a wide range of policies in this Plan. social, economic and environmental issues have been taken into account in the preparation of 1.9 The Plan is divided into ten broad the Local Plan, including the objectives of other chapters. The Aim and Objectives chapter non-land use strategies. includes the Plan’s overarching policy concerned with delivering sustainability in 1.6 In accordance with Section 38(6) of Luton. The following four topic chapters the Planning and Compulsory Purchase contain the bulk of the Local Plan’s policies. Act 2004, and (Planning Policy Statement) Areas of the town where action needs to be PPS1 (Delivering Sustainable Development) focused are dealt with in the Action Areas applications for development must be chapter. The Local Plan includes a final determined in accordance with the policies chapter containing policies relating to how the in the adopted Local Plan and Structure Plan, policies and proposals of the Local Plan will unless ‘material considerations’ indicate be monitored and how development will be otherwise. Applications that are not in implemented. accordance with relevant policies in the Plan should not be allowed unless material considerations justify the granting of planning permission. Where the Local Plan is not relevant, through for example, not containing a policy relating to a particular development proposal, it follows that the planning application should be determined on its merits.
4 Luton Local Plan 2001 - 2011 Figure 2: General structure and coverage of the Local Plan
Introduction / Planning Guidance / Background to Luton
l Why the Local Plan is being produced and how it relates to other guidance and strategies.
l Background information and main planning issues facing Luton.
Aim and Objectives
Local Plan aim: To achieve sustainable development in Luton
l How the Local Plan can deliver sustainable development
l Introduction of Local Plan objectives
l Spatial development strategy Introduction
Environment Infrastructure
Environmental impact of development, Transport, utilities landscape setting, biodiversity, protection and enhancement of nature conservation, historic environment, design, water resources, pollution and contamination Action Areas
Central area, Butterfield, Stockwood, Marsh Farm, High Town, London Luton Airport, Social Matters Kimpton Road
Housing, leisure and community facilities
Implementation and monitoring Economy Planning obligations, replacement Employment, retail facilities, enforcement
Relationship between policies
1.10 In assessing planning applications, be necessary for applicants to identify, the Council will take account of all the and have regard to, all relevant polices. relevant policies in the development plan These may, for example, include design, and any other material considerations, landscaping and car parking, as well as before reaching a decision on the merits the specific land use policy. of the proposed scheme. Hence it will
Luton Local Plan 2001 - 2011 5 6 Luton Local Plan 2001 - 2011 2 PLANNING GUIDANCE
Town Hall Luton
Luton Local Plan 2001 - 2011 7 8 Luton Local Plan 2001 - 2011 PLANNING GUIDANCE
Introduction
2.1 The policies and proposals of the Local Plan have been prepared within the framework of national, regional and structure plan policies and guidance, which have the delivery of the principles of sustainable development as their key aim. Planning Guidance
Figure 3: National and Regional Guidance, Structure and Local Plans
NATIONAL REGIONAL Regional Planning Guidance for the South East (RPG9) Acts of Parliament
Planning Policy Guidance/Statements COUNTY AND BOROUGH (PPGs/PPSs) Bedfordshire Structure Plan 2011 Minerals & Waste Local Plan
Minerals Policy Guidance/Statements (MPGs/MPSs)
BOROUGH
Circulars Luton Local Plan
National Planning Guidance
2.2 The Government produces a range of the purposes of the planning system and the advice to planning authorities, which is set out role of development plans. It stresses the need in Planning Policy Statements (PPSs), Planning for the regulation of the development and Policy Guidance Notes (PPGs) and Circulars. use of land by development plans. Circulars Local authorities must have regard to national provide more detailed advice and guidance on policies set out in PPSs and PPGs. PPS1 specific planning issues. (Delivering Sustainable Development) sets out
Luton Local Plan 2001 - 2011 9 2.3 The PPGs, PPSs and relevant Circulars, 2.6 The General Permitted Development Order and how they have been used to influence (GPDO) has been updated to reflect changes policy formulation, are referred to throughout to the Use Classes Order. The system of the Plan, as appropriate. PPS12 (Local negotiated planning obligations (also known Development Frameworks) states that PPG12 as Section 106 agreements) is also likely to be will remain in operation for development amended. plans still being prepared under the 1999 Development Plan Regulations. Therefore, 2.7 The Government wishes to see local PPG12 is still referred to in this Plan. authorities move quickly from the current system to one of an LDF containing Local Changes to the Planning Development Documents, whilst maintaining System continuity in the development plan system as a framework for development control. The 2.4 During the period of preparing this Plan Government is keen for local authorities to the Government has reformed the planning incorporate LDF principles into local plans system. In May 2004, the Planning and being progressed under the previous planning Compulsory Purchase Act was granted Royal system. This Local Plan has attempted to do Assent to take forward the proposals for reform this by: set out in ‘Sustainable Communities: Delivering l taking a more spatial approach to policies; through Planning’.
l ensuring it is closely linked to the 2.5 The main changes are as follows: Community Plan;
l Planning Policy Guidance notes to be l writing more succinct and focused text and replaced by Planning Policy Statements policies; (PPSs); l designating Action Areas.
l Regional Planning Guidance to be replaced by statutory Regional Spatial Strategies 2.8 Following adoption, this plan will (RSSs), which will form part of the automatically be ‘saved’ for a three year development plan; period. It is anticipated that during this period policies will be replaced with others under the l Structure plans have been abolished and provisions of the 2004 Act. More details can local plans and unitary development plans be found in the most recently adopted Local replaced by Local Development Frameworks Development Scheme. (LDFs). Local Development Frameworks must be in general conformity with the RSS; Regional Planning Guidance
l LDFs will comprise a series of Local Development Documents (LDDs) including a 2.9 RPG9 (Regional Planning Guidance for the Local Development Scheme, a Core Strategy, South East) sets out the long-term framework Site Specific Policies and Proposals, Action for planning in the South East for the period Area Plans and a Statement of Community up to 2016. Involvement; 2.10 Luton is now within the East of England
l there will be modifications to the processes and future regional planning guidance will be by which plans are prepared and examined, provided in a Regional Spatical Strategy (RSS). and the Inspector’s report will be binding During the preparation of the Local Plan, on the local planning authority.
10 Luton Local Plan 2001 - 2011 regard has been had, where appropriate, to Structure Plan. The adopted Structure Plan policy documents produced in the East of 2011 is ‘saved’ for three years from the England. commencement of the new planning system.
2.11 RPG9, published in 2001, identified Minerals and Waste Local the general area of Milton Keynes as a Plan major growth area, and in view of this the Government commissioned the Milton 2.14 The Minerals and Waste Local Plan is Keynes and South Midlands (MK-SM) Study part of the development plan for Bedfordshire to investigate the opportunities for future and Luton. It sets out the detailed land use development. This reported in September policy framework for the extraction of minerals 2002 and recommended that future and management of waste. The Bedfordshire development should focus on six main urban and Luton Minerals and Waste Local Plan was areas, including Luton/Dunstable/Houghton adopted in January 2005, and is currently Regis. After this, a more detailed MK-SM being reviewed jointly by the Borough and study was commissioned which reported in County Councils. To avoid unnecessary Planning Guidance May 2003. This identified proposed urban duplication, the Luton Local Plan does not extensions to the north, east and west of the contain any minerals or waste planning Luton/Dunstable/Houghton Regis conurbation. policies. All applications for minerals and The MK-SM Sub Regional Strategy was then waste development occurring within Luton will prepared to form alterations to RPG8 (East be assessed against the policies in the Minerals Midlands) and 9 and the emerging Regional and Waste Local Plan. Planning Guidance for the East of England (RSS14). A public examination on the MK-SM Strategy took place in March 2004 to examine the key issues. An independent panel reported and made recommendations to the Secretary of State in August 2004. The final Milton Keynes/South Midlands Sub-Regional Strategy was published in March 2005, following consultations on the proposed changes.
Bedfordshire Structure Plan 2011
2.12 The adopted structure plan covers the period up to 2011, and it is that Plan with which this Local Plan has to conform.
2.13 Structure Plan 2011 was being rolled forward to 2016 in order to keep up to date and reflect regional planning guidance (RPG9). However, work on the Deposit Structure Plan was put on hold pending the introduction of the new planning system and was formerly abandoned in January 2005. The Local Plan is required to be in conformity with the adopted
Luton Local Plan 2001 - 2011 11 12 Luton Local Plan 2001 - 2011 3 BACKGROUND TO LUTON
Market Hill Luton
Luton LocalPlan 2001-2011 13 14 Luton LocalPlan 2001-2011 BACKGROUND TO LUTON
Introduction l Health: Improving healthfor all sectionsof the community. 3.1 The LocalPlanis alsoinfluenced by,and l Environment: Improving the quality of the seeks toimplement the policies of, other plans t o L ut on environment, toensure that it is attractive and strategies. to those who live, learn, workin, or visit, Luton, including improvements to the Luton Community Plan quality of housing and the street scene.
2002 - 2012 Ba ckg r o u nd The Community Plan was adopted by the 3.2 The Community Planhasbeen developed Luton ForuminSpring 2003. It is expected to by the Luton Forum, a partnership of the be reviewed and updated annually. voluntary and community sectors in Luton withlocal privateand public sector bodies, Luton Borough Council Plans including the Borough Council. The Planis a statutory document developed after extensive and Strategies consultation withLuton residents and local organisations. It is along-term planfor Luton 2011 improving the quality of life in Luton under six themes, withappropriate strategies and 3.3 The Borough Council’s mission is: targets. The six themes are: Luton -agreat place tolive, learn, workand l Adynamic and creative town: Providing havefun facilities for activities such as sport,culture, leisure, arts,and non-vocationallifelong Luton 2011 sets out the Council’s long term learning. goals toachieveby 2011, arranged under eight themes. It was decided with reference l Learning, skills and employment: Enabling tocommunity preferences established in the a thriving business sector,encouraging consultation undertaken for the Community vocationallifelong learning, and reducing Plan 2002-2012. unemployment. l Sustainable communities withaccess to Best ValuePerformance Planand services: Ensuring that all communities CorporatePlan haveaccess toemploymentopportunities, services (including shops and leisure 3.4 The annualBest ValuePerformance Plan facilities),healthfacilities and good and the CorporatePlanboth set out the public transport. valuesand priorities of the Borough Council. The CorporatePlancontains the Council’s l Crime Reduction: Reducing crime, the fear objectives and targets for the next five years, of crime, and anti-socialbehaviour. and shows how they will beachieved.
Luton LocalPlan 2001-2011 15 Relationship withCommunity Plan and Luton 2011
3.5 It is important that proposals in the 3.6 The following table summarises thesekey Community Planand the Borough Council’s corporateand Community Plan themes,and strategies that are related to the useofland identifies the policy areas of the LocalPlan that canbeimplemented by the LocalPlan, and that canassist in their implementation. it reflects the community priorities established in the Community Plan.
Table 1: Relationship between the LocalPlan, the Community Planand Luton 2011
Luton 2011 Community Plan LocalPlan policies key themes key areas
Deprivation Dynamic and creative All local plan town l Provisionofhousing, including affordable housing l Retention of key employment sites Learning, skills and employment l Retention of healthand education facilities,and enabling of new facilities Sustainable communities l Requiringcommunity safety tobeincorporated into the design of new development Crime reduction l Improvement of the built and naturalenvironment Health l Retention and strengtheningofexisting shopping areas Environment l Action Areas for MarshFarmand High Town
Education Learning, skills and Leisureand community facilities employment l Protection of existing education and community Sustainable communities facilities l Allowing new or expanded educationalfacilities, whereneeded and in appropriatelocations
Economic Dynamic and creative Employment regeneration town l Retention of key employment sites Learning, skills and l Allocation of new employment sites employment l Action Areas for Butterfield area,Kimpton Road and London Luton Airport Crime Crime reduction Design l Supplementary planning guidance on designing for community safety
EnvironmentEnvironment Environment l Protection of the naturalenvironment l Improving the design of new development and the built environment l Supplementary planning guidance on designing for sustainability l Reuseof vacant or derelict land l Using land efficiently l Protection of green space l Action Areafor CentralArea l Action Areas for MarshFarmand High Town
Health Health Leisureand community facilities
l Sustainable communities Allowing new or expanded healthfacilities, whereneeded and in appropriatelocations
16 Luton LocalPlan 2001-2011 Table 1: Relationship between the LocalPlan, the Community Planand Luton 2011 (cont)
l Allowing healthfacilities tolocate within District and LocalCentres
Transport Sustainable communities Transportation Environment l Safeguarding of parkand ride sites at Stockwood and Butterfield l Safeguarding the routefor Translink l Encouraging development in areas well served by public transport l Encouraging redevelopment of bus and railway stations t o L ut on Leisure Sustainable communities Leisureand community facilities Dynamicand creative l Retention of leisureand community facilities town l Allowing new and expanded community facilities, whereneeded and in appropriatelocations Ba ckg r o u nd Other Luton Borough Council strategies havebeen consulted and involved strategies in the preparation of the LocalPlan, toensure that issues of mutualconcernareco-ordinated wherever possible.Inaddition, a significant 3.7 Inaddition todelivering the land use amount of regeneration funding from the aspirations of the Community Plan, the Local Government’s Single Regeneration Budget and Planalsoassists in the implementation of land the EuropeanSocialFund is being directed into useelements of other Borough Council and Luton. The main areas tobenefitareMarsh partners’ strategies. The relationship that Farm, Dallow,High Town, Bury Park, and the LocalPlanhas with theseother strategies Lewsey, wherelocal partnerships are seeking canbe seen in Figure4. The Borough toimplement change. Within the Borough, Council is involved, often with partners,in opportunities and strategies arebeing created the preparation of many other strategies e.g. or are underway, toencourage further concerning culture, waste, contaminated regeneration opportunities. land, housing, socialinclusion, economic development,and regeneration. 3.9 The LocalPlancanhelp deliver the 3.8 Luton was chosen as the location for a land useelements of these strategies,and number of initiatives, such as aSport Action is effectively the Borough Council’s land use Zone and aHealthAction Zone. Those strategy. At the heart of achieving this is the concerned with producing these various aim of achieving sustainable development in Luton. Figure4:Luton Borough Council Strategies
Economic l Regeneration Strategy Corporate l Economic Development l Luton 2011 Social Strategy l Best ValuePerformancePlan l Housing Strategy l TownCentrePartnership – &CorporateStrategy l Education Strategies Business Plan l SocialInclusion Strategy l CulturalStrategy l Neighbourhood Renewal l Sports Strategies Strategy
Infrastructure Environment l LocalTransport Plan l Environment Strategy l Parking Strategy Luton LocalPlan l NatureConservation Strategy l Bus Strategy l Biodiversity Action Plan l Cycling Strategy l Green Space Strategy l Walking Strategy l Greening Strategy l Freight Strategy l WasteStrategy
Luton LocalPlan 2001-2011 17 Luton in its Context during the industrial revolution, and still contain amix of residentialand employment uses. Some substantial parks werecreated Location during the Victorian period and they still exist today. During the first half of the 20th 3.10 Luton covers anareaof 4,336 hectares. century,major employers, such as Vauxhall, It is located within the MetropolitanGreen Electrolux and SKF,developed their businesses Belt and Chilterns A.O.N.B,on the southern in the town. edge of Bedfordshireand is approximately 30 milesnorthofLondon (see Figure5). It is a 3.12 Housingdevelopment has taken place busy centrefor road, rail and air travel. The at a steady rate since the end of the First strategic roads,M1, A6 and A505, all pass World War, with40% of the total stock being through the town, providinggood north-south built between 1970 and the end of the 20th and east-west routes. These roads cater for century. Luton is now generally developed up through traffic and that which is destinedfor toits administrativeboundary. the towncentreand London Luton Airport. Thameslink serves the three railway stations, 3.13 Luton is home toa wide range of leisure withMidland Mainline operating from the and community facililties. The townboasts main Luton station and Luton Airport Parkway. major parks at Stockwood and Wardown, six Council operated Sports and Recreation Main features Centres,aLeagueFootball Team, athletics track, golf course, Hat Factory arts centre, 3.11 Luton is abusy town, withacentre twomuseums,anInternationalCarnival, eight focused upon alarge Arndale shopping centre. libraries,hotels,aUniversity,Barnfield College, To the northof the centralarea,extending and the Luton and Dunstable Hospital.The from Plaiters Lea toHigh Town, is the area Galaxy entertainment complex includes an11- previously dominated by the hat industry. The screen cinemaand ten-pin bowling alley. surrounding areas wereintensively developed
Figure5:Luton in its A6 A1 RegionalContext Bedford
Bedfordshire
M1 Milton Keynes M11
A5
LUTON Stevenage Buckinghamshire Metropolitan Green Belt Hertfordshire .B
A.O.N St Albans s e rn ilt h C 5 Essex M 2 M 2 5
N Greater London
➣ M4 Not to scale ©Crowncopyright. All rights reserved.Luton Borough Council.100023935 2006.
18 Luton LocalPlan 2001-2011 Population Figure8:Ethnicity in England and Wales
Asian/Asian 3.14 Luton has a population of over 184,000 British Black/Black 5% British people (at 2001) and 70,700 dwellings,all Mixed 2% 1% within a relatively small geographicalarea. Other Witha population density of approximately 1% 42 persons per hectare, it is one of the most densely populated urbanareas in England.The White populationis young, withabout 24% aged 91% under 16,compared with5% aged over 75. (See figures 6 & 7) t o L ut on
Figure 6:Age StructureinEngland and Wales Source: 2001Census [KeyStatistics for England and Wales] ©CrownCopyright. Crowncopyright materialis reproduced with the permission of the Controller of HMSO. 75+ 0-15 Ba ckg r o u nd 8% 20% Figure9:Ethnicity in Luton
Mixed Asian/Asian 3% British 18% 16-74 72% Black/Black British White 6% 72% Other 1% Source: 2001Census [KeyStatistics for England and Wales] ©CrownCopyright. CrownCopyright materialis reproduced with the permission of the Controller of HMSO. Source: 2001Census [KeyStatistics for LocalAuthorities] ©CrownCopyright. Crowncopyright materialis reproduced Figure 7:Age StructureinLuton with the permission of the Controller of HMSO.
3.16 The population is forecast to reduce 75+ 5% toabout 178,000 by 2011, compared withan 0-15 24% increaseinhouseholds over the same period from 69,600 to 71,800. (See figures 10 &11)
Figure10:Population change in Luton
16-74 190,000 71%
185,000
180,000 Source: 2001Census [Key statisticsfor LocalAuthorities] ©CrownCopyright. Crowncopyright materialis reproduced 175,000 with the permission of the Controller of HMSO. P o pu l a t ion 170,000
3.15 The residents of Luton arealsodiverse 165,000 and multicultural, witha wide range of 160,000 differing needs. In 2001, people from an 2001 2006 2011 ethnic minority background made up nearly Year 28% of the population, mostly Asian / Asian Source: ‘Population Estimates and Forecasts 2002’ British. BedfordshireCounty Council and Luton Borough Council
Luton LocalPlan 2001-2011 19 Figure11: Household number change in recent shift to the service sector, Luton manufacturing jobs as a proportionof total
75,000 employment, remain at ahigher level in Luton thaninGreat Britain as a whole. 73,000
71,000 3.19 Luton traditionally compares poorly with
P o pu l a t ion nationaland regional unemployment rates, 69,000 although local rates have steadilydeclined in
65,000 the last 5 years,inline withnational trends. Unemployment in Luton is 3.0% (October 65,000 2003), with pockets of nearly double this 20012006 2011 Year figure, whereas the nationalfigure was approximately 2.5%. Income support levels in Source: ‘Population Estimates and Forecasts 2002’ BedfordshireCounty Council and Luton Borough Council Luton arealsoabove the regionalaverage. (See Figures 13 &14) 3.17 Over one quarter of households in Luton do not have the useofacar,compared with Figure13:Unemployment rates in Luton and 17.6% in Bedfordshire (see Figure12). the East of England
7
Figure12:Percentage of Households without 6 acar or van 5
4 Luton 26.4
P e r cen t a ge 3
2 East of England 19.8
1 Bedfordshire (Excluding 17.6 0 Luton) 1996 1997 1998 1999 2000 2001 2002 2003 0 5 10 15 20 25 30 Year Luton Source: 2001Census [KeyStatistics]©CrownCopyright. East of Crowncopyright materialis reproduced with the permission of Source:ONS viaNOMIS England the Controller of HMSO.
Economy Figure14: Income Support Levels
3.18 Luton has animportant sub-regional 8% employment and shopping centre role. In 7% 2000 the town providednearly 78,000 7% jobs, 20% of which wereinmanufacturing. 6% 5% Approximately 10% of the jobs provided in the 5% 4% townare reliant on LondonLuton Airport. This 4%
is likely toincrease substantiallyas the Airport P e r cen t a ge 3% expands in accordance withGovernment 2% policy. Globaleconomic changes are taking place that impact upon business in Luton. The 1% 0% end of car production at Vauxhall resulted in Luton Rest of Beds East of England the loss of jobs,as well as havinganimpact on
related businesses. Despite this fall and the Source: DSS Information Centre (1998)
20 Luton LocalPlan 2001-2011 4 AIM AND OBJECTIVES
Luton Local Plan 2001 - 2011 21 22 Luton Local Plan 2001 - 2011 AIM AND OBJECTIVES
Local Plan Aim l Prudent use of natural resources
l Maintenance of high and stable levels 4.1 Local planning authorities are required of economic growth and employment. to ensure that their local plans have clearly defined aims and objectives against which National and Regional the effectiveness of the plan policies can be Sustainable Development assessed. Guidance Aim and Objectives 4.2 The aim of the Luton Local Plan is: 4.6 Planning has a key role to play in to achieve sustainable development achieving a more sustainable pattern of in Luton. development. It seeks to integrate economic, environmental and social factors in decisions Definition of Sustainable about where to put homes, jobs, shops and Development leisure facilities. By doing so it can limit demands on land and the environment, and reduce the need to travel, especially by 4.3 A generally accepted definition of car. PPG12 (Development Plans) stresses sustainable development is the importance of integrating sustainable ‘Development that meets the needs of the development and transport and land use present without compromising the ability policies in development plans. They can make of future generations to meet their own a major contribution to the achievement of needs’. the Government’s objectives for sustainable development. The Development Plan 4.4 The Government’s aim of achieving Regulations require local authorities to have sustainable development is set out in ‘A Better regard to environmental, social and economic Quality of Life: a strategy for sustainable considerations when preparing development development’ (1999). A Sustainable plans. However, policies in development Development Framework for the East of plans should implement the land use planning England, produced by the East of England aspects of sustainable development and must Regional Assembly and the East of England be capable of being addressed through the Sustainable Development Round Table, takes land use planning system. Guidance contained this national strategy forward to identify a in PPG3 (Housing) and PPG13 (Transport) vision and objectives for a sustainable East of emphasises how sustainable development England. and urban renaissance are linked with the re- use of urban land and the need to reduce car 4.5 The four key objectives of Sustainable dependency and promote more sustainable Development are: transport and development patterns. l Social progress which meets the needs of everyone 4.7 Regional Planning Guidance for the South East (RPG9) seeks to encourage economic l Effective protection of the success throughout the region and a higher environment
Luton Local Plan 2001 - 2011 23 quality of environment. It recognises the Social matters: need for the proper management of natural resources, opportunity and equity for the Housing region’s population, and a more sustainable l Meeting local housing needs, including the pattern of development. It also seeks to need for affordable housing deliver an urban renaissance by promoting regeneration and renewal. This is to be Leisure and community facilities achieved by concentrating development in l urban areas, promoting a prosperous and Making adequate and appropriate provision multi-purpose countryside and promoting for sport, leisure and community wider choice in travel options, thereby development and green space to meet local reducing reliance on the private car. RPG9 community needs also promotes sustainable development and identifies key development principles that Economy: should govern the continuing development of Employment the region. The Local Plan aims to take this
approach forward, and Appendix 1 identifies l Reducing levels of unemployment by how this will be delivered. retaining, strengthening and adding to employment opportunities in Luton
Objectives of the Local Plan Retail
l Retaining the sub-regional shopping role of 4.8 In order for the Local Plan to help realise Luton and maintaining the vitality and the Borough Council’s vision of getting the viability of the town centre and other best for Luton, ‘a great place to live, learn, shopping areas whilst meeting the shopping work and have fun’, and the aim of achieving needs of residents sustainable development in the town, a range of objectives has been set. These objectives Infrastructure: are set out below: Transportation Sustainability:
l Promoting public transport, cycling and l Ensuring development is carried out in walking in Luton to reduce the need to accordance with the sustainability aims set travel by car, thereby reducing congestion out in Policy 1 of the Bedfordshire Structure and motorised transport’s contribution to Plan 2011 greenhouse gases
l Ensuring development promotes the Utilities regeneration of Luton, through more
sustainable patterns of development l Accommodating the demand for telecommunications, managing waste in a Environment: sustainable way, and accommodating future energy needs l Protecting and enhancing the natural and historic environment of Luton Action areas:
l Requiring good design in Luton to make it l Identifying areas of change and an attractive place and to deliver an urban opportunity in Luton, and setting out the renaissance key priorities to guide future development
24 Luton Local Plan 2001 - 2011 Implementation: Policy LP1 (cont) l Securing delivery of appropriate development in Luton. [H] disadvantage any part of the community by virtue of gender, Local Sustainable sexuality, race, colour, disability Development Strategy or age.
4.9 Given national and regional guidance on sustainability, the Borough Council’s own vision, and the aim and objectives set out in Spatial Development this plan, it is important that the plan clearly Strategy states what its overall sustainable development strategy is seeking to achieve. 4.10 Given that Luton is virtually built up to its boundaries, there is no scope for
development scenarios in different locations. Aim and Objectives Development could therefore only take place Policy LP1 on previously developed land and/or existing green spaces. Green spaces within the Sustainable development town are generally not considered suitable strategy for development, although there are long- standing commitments on greenfield sites at The Borough Council will grant planning permission for Butterfield, Stockwood and Wigmore, which developments unless it considers that are carried forward in this Plan. they would: 4.11 Luton needs additional housing and [A] conflict with the achievement of the aim or any of the objectives, to safeguard employment opportunities, as or any of the other policies, of well as meeting the needs of other activities this Local Plan; or such as education, shops, green space, sport [B] conflict with the environmental, and community facilities. The town’s limited social, economic, transportation amount of green space needs to be protected or other principles of sustainable if the environmental objectives of the Local development; or Plan are to be realised. Given the scale of [C] fail to maximise the opportunity need for development, there is a conflict to improve the physical between the protection of these green spaces environment of the town; or and pressures to develop some of them to [D] inhibit the lasting economic meet identified needs. Hence, the key issue regeneration of the Borough; or in Luton is the extent to which the conflicting needs for various uses and facilities are to be [E] fail to maximise the opportunity balanced. to improve the quality of life of residents and visitors; or 4.12 In tackling this issue, the Local Plan [F] fail to maximise the scope for emphasises the need to protect green space. contributing to the achievement of the urban renaissance of the It therefore directs other uses to previously Borough; or developed land, unless there are convincing and pressing reasons for doing otherwise. [G] not use land, buildings and materials efficiently; or
Luton Local Plan 2001 - 2011 25 4.13 Luton needs to provide opportunities sustainability objectives. The consultant’s final for new development that will create a well- report is available as a separate accompanying designed and attractive built environment, document. whilst at the same time protecting and enhancing its natural environment.
4.14 As the only option for the provision of new facilities is effectively limited to the re-use of previously developed sites, it is important to ensure that their development is sustainable. This is undertaken by the two-fold approach of:
l directing particular uses to certain types of location (e.g. where they are readily accessible by public transport); and
l identifying specific action areas for particular types of development, which will both regenerate them and provide uses and facilities to meet the needs of the local area and/or the Borough as a whole.
Sustainability Appraisal
4.15 PPG12 (Development Plans) includes an expectation that an environmental or sustainability appraisal will be undertaken as part of the development plans preparation process.
4.16 To test the sustainability credentials of the Local Plan, independent consultants have carried out a sustainability appraisal of the Plan and its policies. The consultants received draft versions of the Plan as it was being prepared, and these were appraised using a ‘sustainability framework’, which emerged through a series of stakeholder working group meetings. The group included representatives from a variety of organisations, as well as officers and Members of the Council.
4.17 As a result of the appraisals carried out at various stages during the Plan’s preparation, a number of changes were made to the policies and text to make it more sustainable. The final sustainability appraisal report found that the Local Plan is broadly consistent with
26 Luton Local Plan 2001 - 2011 5 ENVIRONMENT
Wardown Park
Luton Local Plan 2001 - 2011 27 ENVIRONMENTAL OBJECTIVES
5.1 The protection and enhancement of the Borough’s environmental resources is one of the key factors in determining the balance between conflicting needs, so that sustainability is achieved.
5.2 The quality of the built and natural environment is a major contributor to the quality of life for people who live and work in the town. A good environment will help attract investment and encourage local pride. Luton has some important environmental features, the profile of which can be raised through the Local Plan. Major investment projects, as well as small schemes, can be enhanced by recognising the importance of the role of the quality of the natural and built environment.
5.3 The Local Plan seeks to raise the profile of the natural and historic built environment and protect its best features. It also seeks to secure good design and quality landscaping in new developments as well as the creation of new wildlife habitats.
5.4 Thus the environmental objectives of the Plan are:
l Protecting and enhancing the natural and historic environment of Luton
l Requiring good design in Luton to make it an attractive place and to deliver an urban renaissance
5.5 The following policies seek to deliver these objectives in a manner that both conforms to Government guidance and addresses local concerns.
This section combines a variety of issues, which together can be considered to constitute the key environmental issues in the Plan. They are:
o Environmental impact of development
o Landscape setting
o Biodiversity
o Historic environment
o Design
o Water resources
o Pollution and contamination.
28 Luton Local Plan 2001 - 2011 ENVIRONMENT
Environmental Impact of management. The primary objective of the Development designation is the conservation of the natural beauty of the landscape and wildlife. Luton lies within the northern end of the Chilterns 5.6 The Borough Council is committed to AONB, which was designated in 1965. Whilst enhancing and protecting the environment and little of the designated area lies within the the amenities of its residents. It is, therefore, Borough boundary, it needs to be recognised important that development that could have that development within the town can have an a significant environmental impact is properly
impact on the AONB beyond. Environment assessed and considered.
5.7 Certain types of development that Registered parks and gardens require planning permission, as set out in the Town and County Planning (Environmental 5.10 Luton contains two parks that English Impact Assessment) (England and Wales) Heritage has included on its ‘Register of Parks Regulations 1999, must be accompanied by an and Gardens of Special Historic Interest in Environmental Statement. This is to enable an England’. They are Wardown Park to the assessment of the development to determine north of the central area, and Putteridge Bury whether it will have a significant impact on the on the north east edge of the town, which environment or on the amenities of the area. lies mostly within Hertfordshire. Such parks are considered by English Heritage to make a 5.8 Some other forms of development not significant contribution to the richness of the at present outlined in the Regulations can, local scene in terms of green space and nature depending on their nature, size or location, conservation. Inclusion on the list requires also have significant environmental effects. Local Authorities to make provision for the The Council may therefore require developers protection of the historic environment in their to provide further information in the form of policies and their allocation of resources. an environmental statement to accompany particular development proposals. Policy ENV1
Landscape Setting National landscape areas
Planning permission will not be Chilterns Area of Outstanding granted for development that would Natural Beauty have a detrimental effect upon:
[A] the special character, natural 5.9 Areas of Outstanding Natural Beauty beauty, landscape and setting of (AONB) are areas of nationally important the Chilterns Area of Outstanding landscape which are considered by the Natural Beauty; or Government to be equal to those in National [B] the historic character and Parks, as set out in the Countryside and Rights environmental quality of of Way Act 2000, and should be afforded the Registered Parks and Gardens and highest standards of protection and their settings.
Luton Local Plan 2001 - 2011 29 Areas of Great Landscape Value Green Belt
5.11 Areas of Great Landscape Value 5.13 Planning Policy Guidance Note 2 (Green represent areas of similar landscape quality Belts) explains that the fundamental aim of to AONBs, but are designated in Structure Green Belt policy is to prevent urban sprawl by Plans. Such local designations carry less keeping land permanently open. The Green weight than national designations. Area of Belt boundary in Luton was consolidated in the Great Landscape Value designations exist on Borough of Luton Local Plan 1997. This shows attractive and rare chalk downland in the that built development, or land committed for Borough at Dallow Downs and the escarpment development, generally extends to the Borough near Bradgers Hill. Two areas between the boundary. The situation has not changed since Borough boundary and the southern edge of that time and it is intended that the Green Belt London Luton Airport are similarly designated boundary remains unchanged. Policy provision as part of a larger locally important landscape for the principle of reviewing the Green Belt area extending south into Hertfordshire along boundary is incorporated in the Milton Keynes the Lea Valley. and South Midlands Sub-Regional Strategy, published in March 2005. Other areas of local landscape importance Policy ENV3 5.12 The Hart Hill area and Stockwood Park are important local landscape areas that should Green Belt be protected. The Hart Hill area is part of a steep hillside rising above the River Lea and Within the areas defined as Green Belt, planning permission will is characterised by mature trees, making the not be granted for inappropriate area a significant landscape feature visible development. Inappropriate development will include all building from much of the southern part of the town. operations, unless they are for the The public open space of Stockwood Park following purposes: survives as a large area of eighteenth century [A] agriculture and forestry; or ‘romantic’ landscaping. It is prominent from [B] essential small scale facilities for the M1 motorway and provides a fine setting outdoor sport and outdoor and introduction to the town from the south. recreation, for cemeteries, and for other uses of land which preserve the openness of the Policy ENV2 green belt and which do not conflict with the purpose of including land in it; or Local landscape areas [C] limited extension, alteration or Planning permission will not be replacement of existing granted for development in: dwellings. [A] Areas of Great Landscape Value; or
[B] the Hart Hill Area of Local Landscape Importance; or
[C] Stockwood Park;
except where the proposal would preserve or enhance their character, natural beauty, landscape and setting.
30 Luton Local Plan 2001 - 2011 Access to the countryside ownership as Local Nature Reserves. The current County Wildlife Sites are as follows: 5.14 It is important that the relationship Biscot Churchyard between Luton and the surrounding countryside is properly managed so that Bluebell Wood protected landscape areas are maintained. However, links within Luton and into the Bradgers Hill countryside beyond the built up area of the Bramingham Wood town need to be enhanced, so that people, including those with mobility difficulties, and The Chase (Mixes Hill) wildlife, can benefit from appropriate access to the wider countryside. Church Cemetery Cowslip Meadow
Croda Colloids, New Bedford Road
Policy ENV4 Environment Dallow Downs Access to the countryside Honeygate and Crick Hill Subject to their scale, purpose and location, development proposals Leagrave Common and Wauluds Bank may be required to provide, where feasible, pedestrian, cycle, Fallowfield equestrian, disabled and limited mobility access into: Oaket Wood
[A] the footpath and bridleway Oosey Hill network; and/or Peoples Park [B] the countryside. River Lea - headstreams and tributaries
Biodiversity Riverside Walk
Slaughters Wood and Green Lane 5.15 Biodiversity is shorthand for biological diversity and has come to mean the variety Splittlesea Hill of organisms on land, in water and in the air, the habitats in which they live and the Stockwood Park relationship between them. Conserving and Stony Hills enhancing biodiversity is an essential element of sustainability. Biodiversity can be simply Wigmore Park defined as ‘the sum total of life’s variety on earth’. 5.17 These sites cover a range of priority habitats that are identified in both national 5.16 In Luton, a number of sites have been and local Biodiversity Action Plans (BAPs), designated as County Wildlife Sites (CWSs), including calcareous (chalk) grassland, formerly known as Prime Sites of Nature waterways and wetlands, ancient and Conservation Importance. A Local Nature species-rich hedgerows and woodland. Their Reserve is proposed at Leagrave Common, designations may signify the presence of and the Borough Council will also seek the specific plants and animals or their intrinsic designation of all other CWSs within its scientific interest. Other areas that contribute
Luton Local Plan 2001 - 2011 31 to the biodiversity of Luton and its green in order to provide up-to-date supplementary network are shown on the Proposals Map as planning guidance on nature conservation ‘Other Sites of Nature Conservation Interest’. in the Borough. The local authorities in Sites are regularly reviewed by the Bedfordshire Bedfordshire, including Luton, have adopted and Luton Wildlife Working Group (BLWWG) the Bedfordshire and Luton Local Biodiversity and tested against an objective set of Action Plan (BAP) 2001. It recognises that the guidelines for CWS selection. diversity of nature is an important measure of the quality of life, which should be designed Biodiversity policy guidance into the fabric of built-up areas for its own sake and for the benefit and enjoyment of 5.18 In 1992, at the United Nations Earth people. Urban areas can provide a mosaic of Summit in Rio, the United Kingdom and over habitats capable of supporting wildlife. Small 150 other countries signed the Convention sites have greater value when they function on Biological Diversity. The Convention states as stepping stones and linkages. These can that contracting parties shall rehabilitate and include allotments, gardens, river corridors, restore degraded ecosystems and promote wetlands, ponds, woodland, hedgerows, the recovery of threatened species through street trees, grasslands, churchyards, parks, the development and implementation of plans playing fields, school grounds, railway land, or other strategies. The UK response to this sites awaiting development and the fabric of commitment was launched by the National buildings and other structures. Biodiversity Steering Group in 1994 with ‘Biodiversity: The UK Action Plan’, which sets 5.21 Trees and hedges can not only provide the context for subsequent biodiversity action. shelter for wildlife but also help reduce It recognises that biodiversity is ultimately lost noise and atmospheric pollution. When it or conserved at the local level. is not feasible to retain an important tree or hedgerow, as part of a development proposal, 5.19 PPS9 (Biodiversity and Geological the Borough Council will require the provision Conservation) explains the Government’s of appropriate replacements. Smaller features, objectives for nature conservation. These are such as hedgerows, ponds, amenity land to ensure that its policies contribute to the and gardens also have an important role conservation of sites of geological interest and in protecting biodiversity and maintaining the abundance and diversity of British wildlife habitats, as well as contributing to and and its habitats. Where conflict of interest is enhancing the visual appearance and quality of unavoidable, the adverse effects on wildlife the environment. and sites of geological interest should be minimised, in order to meet international 5.22 In some instances new development responsibilities and obligations for nature may be required to provide an appropriate conservation. replacement of the habitat lost or disturbed. A management plan will be required to Protection and enhancement of demonstrate how this will be achieved and Nature Conservation sustained over the long term.
5.20 The Borough Council maintains support 5.23 Development proposals will be required for its Nature Conservation Strategy, published to address the impact of the proposed in 1992. This recognises the importance of development on any features of wildlife or nature conservation in the urban environment geological interest. The assessment of habitats and the need to protect and enhance the and species should include those identified in green network. The strategy is being reviewed the Bedfordshire and Luton Local BAP, as well
32 Luton Local Plan 2001 - 2011 as those species protected by European Law and by the Wildlife and Countryside Act 1981 Policy ENV5 (cont) (as amended). The assessment must include details of measures to protect and enhance the (v) Biodiversity Action Plan habitat identified and to limit the impact of priority habitats and species protected by law; or the development upon it. (vi) trees, hedgerows, ponds or 5.24 Development can provide opportunities other features of biodiversity value; to enhance biodiversity through landscaping and innovative design, as set out in the unless it can be demonstrated that: Borough Council’s supplementary planning (a) the benefits of the proposal guidance ‘Designing for Sustainability’ and clearly outweigh the need to the Bedfordshire and Luton Local BAP 2001. safeguard the intrinsic The planting of native trees and hedgerows, nature conservation value of and the creation of new water features, for the site or feature; or Environment example, can provide habitats that have value (b) satisfactory arrangements at even the smallest scale. It is also important are made for the creation to maintain and enhance green stepping and management of an alternative habitat of at least stones and linkages because wildlife cannot be equivalent wildlife value in wholly contained in a specific site and often the locality; or ranges between protected sites. (c) the proposal would secure the protection, retention, enhancement and Policy ENV5 appropriate management of existing features of nature conservation value during Protection and enhancement of and after development. nature conservation Where a development proposal Planning permission will not be could have an adverse effect on a granted for development that: site of nature conservation interest, the prospective developer will be [A] fails to enhance or create wildlife required to submit an ecological habitats or sites of geological assessment with the planning interest, where this is application. appropriate and feasible; or
[B] would have an adverse effect on sites of nature conservation, biodiversity or geological Historic Environment interest, including: Archaeology (i) National Nature Reserves and Sites of Special Scientific Interest; or 5.25 PPG16 (Archaeology and Planning) requires archaeological remains to be seen (ii) Local Nature Reserves, as a finite, and non-renewable resource. including that proposed at Leagrave Common and Appropriate management is essential to ensure Waulud’s Bank; or that such remains survive in good condition. In particular, care must be taken to ensure that (iii) County Wildlife Sites; or archaeological remains are not needlessly or (iv) other sites of nature thoughtlessly destroyed. They can contain conservation importance; or
Luton Local Plan 2001 - 2011 33 irreplaceable information about our past application of planning and management and the potential for an increase in future policies for their survival and protection. knowledge. They also form part of the Where development affects sites of national identity and are valuable both for archaeological significance, or potential their own sake and for their role in education, significance, the Council will require the result leisure and tourism. of an archaeological evaluation to be submitted as part of any planning application. 5.26 The Secretary of State may schedule as ancient monuments, sites containing buildings, 5.31 The Borough Council will seek to ensure structures or other works, either above or that sites of national archaeological importance below the surface of land, and considered of are protected. In some circumstances it national importance. might be possible to retain and incorporate archaeological features within new 5.27 Any works to Scheduled Ancient development. Where this is not feasible the Monuments require the consent of the Borough Council will ensure archaeological Secretary of State under the Ancient investigation and recording either through Monuments and Archaeological Areas Act planning conditions or agreements made under 1979. This Act requires that consent be Section 106 of the Town and Country Planning obtained for any works that might damage Act, 1990. When new sites of archaeological such monuments, including the planting or importance are identified, the Council will seek uprooting of trees. The effect of development to ensure that they are afforded appropriate on a Scheduled Ancient Monument, or on protection and, where possible, are retained in its setting, is a material consideration in the situ. assessment of planning applications. The Borough Council will seek to ensure that new development proposals do not adversely affect the historic or archaeological importance of Policy ENV6 a Scheduled Ancient Monument, and such proposals will be refused planning permission. Archaeology Scheduled Ancient Monuments are shown on Planning permission will not be the Proposals Map. granted for development that would adversely affect sites of 5.28 Luton has two Scheduled Ancient archaeological interest and their Monuments, at Waulud’s Bank and Dray’s settings, whether scheduled or not. The Borough Council will also require: Ditches, both of which are associated with the ancient Icknield Way. Both monuments are of [A] the results of an archaeological national importance. evaluation to be submitted as part of any application; and
5.29 Other important archaeological sites in [B] the preservation in situ, and the Luton area include the Cultivation Lynchets provision for appropriate at Bradgers Hill, the Roman settlement west management, of those remains and their settings considered to of Runfold Avenue and the medieval manorial be of particular importance; and remains near Great Bramingham Farm. [C] provision for recording and/or excavation by an accredited 5.30 These and other sites and locations organisation prior to the within the Borough may have archaeological commencement of development potential, but they have no statutory where in situ preservation is not protection. They rely on the sympathetic justified.
34 Luton Local Plan 2001 - 2011 Listed buildings adversely affect their special architectural or historic character. Proposals which affect 5.32 PPS1 (Delivering Sustainable the setting of a Listed Building will also be Development) and PPG15 (Planning and the critically assessed. The setting of a building Historic Environment) consider the impact of and its contribution to the local scene may development on existing buildings, and on the be especially important, for example, where it character of areas that are recognised for their forms an element in a group, park, garden or landscape or townscape value. A fundamental other townscape feature, or where it shares part of this is the effective protection of all particular architectural forms or details with aspects of the historic environment, which other buildings nearby. should be valued and protected for its own sake, as a central part of our cultural heritage 5.35 The best use for an historic building is and our sense of national identity. The the use for which it was designed. Wherever protection of the historic environment needs to possible, this should continue particularly if be considered within the context of sustainable it is residential use. However, there may be Environment development, as it is irreplaceable. However, occasions when this is no longer a practical the historic environment cannot necessarily be proposition. The Borough Council will consider preserved unchanged. The Borough Council the introduction of appropriate alternative uses will ensure that the impact of proposals for for redundant listed buildings as an exception new development on the historic environment to other planning policies, provided it is the is fully considered. only way to preserve or enhance the special architectural and historic character or structure 5.33 The Government ‘lists’ buildings as being of the building and its setting, and it does not of special architectural or historic interest. adversely affect amenities, highway safety, etc. These buildings are subject to special planning In this context, a change of use can adversely controls over their demolition, including partial affect the setting, of a building through the demolition, alteration or extension in any extra activity it generates, in particular through manner which affects their special character. increased on-site car parking requirements, In many cases internal walls and architectural even if it does not affect the external or historic features are as important as the appearance of the building itself. It will not external features and they are also protected. be sufficient to justify such a development It is a criminal offence to demolish or alter a merely on the basis that the proposed use will listed building without consent. There are over generate a higher property value or increase 100 buildings on the statutory list of buildings revenues. of special architectural or historic interest in Luton. This list is kept under review and, 5.36 Policies 12, 13 and 14 of the where necessary, the Borough Council will seek Bedfordshire Structure Plan 2011 provide the listing of additional buildings. a framework to identify, manage, protect and enhance various aspects of the historic 5.34 In considering proposals which affect environment, including a provision for the listed buildings, local authorities have a recording of features. statutory duty to have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest. There is a clear presumption against proposals for the total or substantial demolition of any listed building, or for any alteration, or extensions, which would
Luton Local Plan 2001 - 2011 35 removed or damaged and, where appropriate, Policy ENV7 are incorporated within the internal layout of the building. Listed Buildings Conservation areas When considering proposals affecting a Listed Building: 5.38 PPG15 (Planning and the Historic [A] consent will not be given for the Environment) requires that the prime compete or partial demolition of consideration in identifying Conservation a listed building, unless it can be shown that there are very special Areas should be the quality and interest of circumstances as to why the areas, rather than the individual buildings. In building cannot be retained and conservation areas, special regard should be returned to an appropriate use; had for such matters as scale, height, form, [B] consent will not be given for any massing, respect for traditional pattern of extensions or alterations to the frontages, vertical or horizontal emphasis, and interior or exterior of a listed detailed design (e.g. the scale and spacing of building, which are likely to detract from its historic interest window openings, and the nature and quality or architectural character and of materials). The intention is to preserve or appearance; enhance the character or appearance of the area. [C] planning permission for the change of use of a listed building will only be granted where the 5.39 It is the responsibility of the Borough proposal: Council to designate Conservation Areas. They (i) would not harm the character represent areas of special architectural or or setting of the building; historic interest where the Borough Council and has a statutory duty to preserve or enhance (ii) would contribute to the their character and appearance. There are four continued preservation of the Conservation Areas in the Borough - Town building or its restoration; Centre, Plaiters Lea, High Town Road and Rothesay. The boundaries of the Conservation [D] planning permission will not be granted for development, which Areas are shown on the Proposals Map. The is likely to adversely affect the character of an area derives not only from the setting of a listed building. siting and design of buildings within it but also from the spaces created, together with such features as walls, landscape, floorscape, materials and the activities that take place 5.37 An area of concern is the pressure for within the area. the conversion of historic industrial buildings, particularly former hat factories, most 5.40 Careful treatment of the setting of commonly to residential use. There are many a building is vital in ensuring that the new such buildings in the Borough. The conversion development complements and enhances its of such buildings to dwellings can damage surroundings. Inappropriately large buildings many of their historic features. The internal and extensions, and infilling leading to the loss character, external appearance and setting are of important spaces, will normally be resisted. particularly important for such buildings. In Whilst the Borough Council has no option residential conversions attention needs to be but to register valid applications for outline given to the character and architectural detail planning permission, such applications are not of these buildings to ensure that they are not normally acceptable as it is not possible to
36 Luton Local Plan 2001 - 2011 judge the effect of the proposed development. 5.45 Within some of the Conservation Areas Use will be made of the powers available in the Borough there are buildings and other under Article 3(2) Town and Country Planning structures that are out of character with their (General Development Procedure) Order 1995 surroundings. Such buildings and structures to direct that specified details are required can, therefore, harm the visual character, before an application can be considered. setting and appearance of Conservation Areas. When opportunities arise the Borough Council 5.41 Local Planning Authorities are required will seek to encourage their redevelopment to keep the designation of Conservation and refurbishment, in order to enhance the Areas under review and to consider whether visual appearance of the Conservation Areas. additional areas should be designated. Further Conservation Areas may be designated if their special architectural or historic interest Policy ENV8 is established. The Borough Council is responsible for the identification of criteria for
Development affecting Environment the designation of new Conservation Areas, Conservation Areas and for the review of existing Conservation Area boundaries. Before designating a new When considering proposals affecting Conservation Area, the Borough Council Conservation Areas: will consult with local residents and other [A] development will be required to interested bodies who will be affected. preserve or, where appropriate, enhance the character or 5.42 The Borough Council will continue appearance of the area, in terms of siting, form, scale, materials, to produce appraisals and specific design detailing and landscaping; guidance for each Conservation Area, as a basis for development control and enhancement [B] consent for the demolition of a building will only be given projects. where:
5.43 The special character of Conservation (i) the building does not make a positive contribution to the Areas comes from the appearance of spaces character and appearance of as well as the buildings. Many areas still have that area; or historic paving stones, kerbs and cast iron street furniture that have become integral (ii) the redevelopment proposal preserves or enhances that to the character. The Borough Council will character and appearance; encourage retention of paving and street furniture with character value through its [C] any planning permission for demolition may be subject to: development control powers on private property and through representations to (i) planning permission having County Council and statutory utility companies. already been granted for the redevelopment of the site; and 5.44 In exercising its planning powers, the Borough Council has a duty to pay special (ii) a legal agreement requiring attention to the desirability of preserving or that the building is not demolished before a contract enhancing the character and appearance of for the redevelopment of the designated Conservation Areas. Buildings that site has been made. make a positive contribution to the character or appearance of a Conservation Area should be retained.
Luton Local Plan 2001 - 2011 37 Design location of development is an inadequate framework on its own. Other measures are Design principles required to ensure that the development is energy efficient, makes best use of existing 5.46 New development should make a resources and achieves quality in the built positive contribution to the quality of the environment. environment and should not adversely affect the amenities currently enjoyed by residents 5.51 The Borough Council has adopted and visitors. ‘Designing for Sustainability - a summary of good practice’ as Supplementary 5.47 Promoting good design and creating Planning Guidance, which seeks to ensure an attractive built environment will play an that all development meets sustainable important part in the regeneration of Luton. development criteria. This applies to all The built environment plays a key role in the types of development including residential, perception of Luton as a place to live, work, retail, employment, leisure and community and visit. This section seeks to promote good uses. This will be a material consideration in design and deliver an urban renaissance for determining planning applications. Luton. Where the existing pattern of buildings has little character or clear form then new 5.52 The Local Plan will ensure that new development should give a stronger identity to developments are well designed and consistent the area through the design of buildings, their with the overall strategy for urban renaissance layout and the creation of new spaces and and sustainable development. The polices routes. take advantage of the opportunities for regeneration created by new development. 5.48 PPS1 (Delivering Sustainable They promote design and layout solutions Development) states that ‘Good design ensures that are relevant to particular sites and their attractive, usable, durable and adaptable context, which take account of public health, places and is a key element in achieving crime prevention and community safety issues, sustainable development. Good design is and which build upon local distinctiveness. indivisible from good planning. High quality and inclusive design should be the aim of all 5.53 The Chilterns Conservation Board have those involved in the design process’. produced a ‘Chilterns Building Design Guide’. The Council supports this document and uses 5.49 RPG9 (Regional Planning Guidance for it when dealing with planning applications in the South East) states that ‘The quality of and adjacent to the Chilterns AONB. life in urban areas should be raised through significant improvements to the urban 5.54 PPS1 recognises that development environment, making urban areas more proposals provide the opportunity to secure attractive places in which to live, work, shop, a more accessible environment for everyone, spend leisure time and invest, thus helping to including wheelchair users, other people with counter trends to more dispersed patterns of disabilities, elderly people and those with residence and travel’. young children. This includes access to and into buildings, in particular those buildings 5.50 Policy 19 of the Bedfordshire Structure where the public could reasonably be expected Plan 2011 provides guidance on design to gain access. Whilst access for people principles to ensure that development with disabilities to facilities is a requirement contributes towards sustainability. It under Building Regulations and is part of the recognises that control of the level and Disability Discrimination Act, good and easy
38 Luton Local Plan 2001 - 2011 access for all members of the community 5.58 New development should be designed should be an integral feature of all to optimise energy efficiency. It can be development. orientated and designed to maximise the use of passive energy sources, such as the 5.55 Successful and popular shopping areas sun. New development can also make use of offer an attractive and pleasant shopping energy efficient technology and be designed environment. General improvements such as to reduce the demand for energy and water. pedestrianisation and enhancement schemes Heat loss can be reduced through insulation including landscaping and planting can all from surrounding properties. Building at contribute towards creating an attractive sufficient densities to reduce land take and environment. However, much can be achieved the incorporation of a mix of uses can also aid in terms of upgrading a shopping area by energy efficiency. seeking to improve building facades with well-designed shop fronts. Consequently, the 5.59 The Building Regulations require all Borough Council has produced a Shopfront new buildings to have an energy rating based Design Guide to ensure improvement of the upon the Government’s Standard Assessment Environment shopping environment. This is available free Procedure (SAP). Dwellings are rated from of charge and on request from the Local Plans 1 to 100 and developers are encouraged team. to seek to achieve a rating of 80 or above. The Borough Council will encourage good 5.56 Circular 5/94 (Planning Out Crime), The practice in developments. Its ‘Designing for Police Architectural Liaison Manual, ‘Secured Sustainability’ good practice guide states that by Design’, and ‘Secured Car Parks’ initiatives all new dwellings should have a minimum all aim to promote better community safety Building Research Establishment Environmental through the physical environment. The Safer Assessment method rating of ‘very good’ or a Luton Partnership is the main vehicle for SAP rating of 80 or above. delivering community safety in Luton which is a key priority for the people of Luton. RPG9 5.60 The following policy sets out the criteria requires that crime prevention considerations for determining the design of development should be incorporated into the design of proposals, and ensuring access for all potential new development. The Borough Council has users. produced a document entitled Designing for Community Safety in a Quality Environment.
Energy efficiency Policy ENV9
5.57 Energy consumption in dwellings has risen by about 20% since the 1980’s. Most Design principles of Luton’s energy needs are met by burning Proposals for built development fossil fuels such as coal, gas and oil, and these will be granted planning permission all contribute to greenhouse gas emissions provided that they: and hence global warming. Local Plan policies [A] enhance the character and can influence energy consumption through appearance of an area; and encouraging energy efficient measures to be [B] respect existing landforms and incorporated into the design and layout of new natural features; and development.
Luton Local Plan 2001 - 2011 39 Landscaping and trees Policy ENV9 (cont) 5.61 To be satisfactory, most new [C] respect the scale and proportion developments require either hard or soft of existing buildings, building landscaping, for which adequate space must lines and heights within the be given in the layout. The landscaping street scene; and must be appropriate and effective, in [D] retain or enhance existing urban relation to the development itself and to its spaces, or create new urban wider context, both now and in the longer spaces; and term when the landscaping matures. An [E] respect or enhance other adequate landscaping scheme will be one buildings, views or landmarks; that is likely to succeed in achieving necessary and screening, softening, the definition of space, [F] use materials that contribute to or enclosure. The Borough Council will give the character of the area; and particular attention to the use of landscaping [G] respect the detailed design of the and tree planting to enhance the public areas existing building where ancillary of development. An appropriate scheme will buildings and extensions are be suitable for its location in terms of style, proposed; and form and content. [H] provide easy access for all potential users; and 5.62 A good landscaping scheme can only be based on a thorough survey and analysis of [I] do not have an unacceptable the features of the site, and an appreciation visual impact on the surrounding countryside; and of its significance in its wider setting. To be complete, a landscaping scheme must be [J] are designed to provide a safe supported by details of: preparation of the and secure environment by: planting environment; planting procedures; (i) ensuring that public areas are and aftercare and maintenance. The long- overlooked; term management of landscaping schemes (ii) maximising natural may be sought in an agreement under S106 of surveillance in public areas at the Town and Country Planning Act 1990. different times of the day;
(iii) ensuring that main entrances are readily visible from the Policy ENV10 street or other public spaces;
(iv) ensuring that the street and Landscaping paths are well lit;
(v) ensuring that buildings, Development proposals will not landscaping and planting do be approved unless they make not create dark or secluded adequate provision for landscaping, areas; and any landscaping scheme is:
(vi) creating a clear distinction [A] appropriate in that it takes between public and private account of the setting or areas; and intended use of the development; and (K) utilise passive energy sources and minimise energy and water consumption.
40 Luton Local Plan 2001 - 2011 Public art Policy ENV10 (cont) 5.64 Public art, when incorporated as an [B] effective in that it: integral part of development, can significantly (i) retains trees of merit and enhance the public’s appreciation of the other important landscape associated development. Public art can also features; and serve to provide a sense of place, which improves or enhances the character or heritage (ii) establishes new planting and trees which will not be of a particular area as a whole. Policy 11 of problematic in the long term. the Bedfordshire Structure Plan encourages the provision of public art and enhancement of the image and character of urban areas.
5.63 The Borough Council has a duty to 5.65 The Arts Council ‘Percent for Art’ scheme protect existing trees and to consider the proposes that 1% of the capital budget for planting of new trees and woodland as part any building development is set aside for Environment of development proposals. The Council is providing new works of art. The aim is to empowered to make Tree Preservation Orders bring aesthetic benefits to public places, hence when it is appropriate in the interests of encouraging civic and community pride. This amenity. It will, therefore, use this power scheme will be implemented as part of the where it considers that there will be a clear development control and negotiation process. benefit to public amenity through bringing Appropriate guidance will be incorporated into trees under planning control. The following planning briefs, to secure maximum added policy sets out the circumstances in which value from development. Artists should be works to such trees will be permitted, and the involved early in the design process. form they must take.
Examples of artwork include: Policy ENV11 l Statues and sculptures
Works to protected trees l Murals
Consent for works to a tree l Decorative brickwork protected by a tree preservation order (TPO) will be given, provided l Stained or etched glass that the works:
l Tiling and mosaics on walls and floors [A] are necessary to ensure its retention or continued health; l Metalwork such as railings and gates and
[B] are consistent with good l Special lighting and other street furniture arboriculture practice. l Water features and gardens. Consent will not be given to fell a tree protected by a TPO unless this is necessary or justified. Any such consent will be conditional upon appropriate replacement of the tree.
Luton Local Plan 2001 - 2011 41 Policy ENV12 Policy ENV13
Public art Advertisements
The Borough Council will negotiate Consent will not be given for the provision of public art as advertisements which: an integral part of significant development proposals. [A] adversely affect the character or appearance of the building or area; or
[B] are out of keeping in their setting in terms of size, design, 5.66 In this context, significant development illumination, materials, or colour; refers to major retail developments, residential or developments of over 50 dwellings, major [C] are likely to have an adverse infrastructure projects, action areas, any site effect on traffic safety, including that requires a development brief, and any pedestrian safety and convenience. visually prominent site. However, other non- significant proposals can still contribute to Advertisement consent granted for or provide public art as part of development. hoardings around a development site Public art will, for example, be sought on the will be for a limited period. proposed National Cycle Network Route 6, which will pass through Luton.
Advertisements Water Resources
5.67 The display of outdoor advertising 5.68 The River Lea, and its tributaries, is the is an essential part of commercial activity major water feature within Luton. The river in a free and diverse economy. All corridors provide links between open spaces advertisements will affect the appearance and form important wildlife habitats. In order of the building, structure or the place to conserve and enhance these linear habitats, where they are displayed. PPG19 (Outdoor developments must be considered with the Advertisement Control) provides guidance complete river corridor in mind. on the advertisement control system. The main purpose is to help those involved in the 5.69 Within the central area much of the display of outdoor advertising to contribute River Lea is in concrete channel or culverted. positively to the appearance of an attractive Environment Agency policy is that, wherever and cared for environment in cities, towns practicable, the Agency will seek to have and the countryside. The display of outdoor watercourses restored to open channels. advertisements can only be controlled in the This policy has contributed to the delayed interests of amenity and public safety. The redevelopment of certain key sites within the control system is concerned with the visual central area. The following policy therefore effect of an advertisement on its surroundings. enables development without opening up the river where this is not feasible.
42 Luton Local Plan 2001 - 2011 5.70 It is necessary that new developments reduce flooding and protect water resources are designed to minimise the risk of pollution and natural habitats. The Borough Council to groundwater. Within Luton there are will expect applications for planning three major public water supply sources that permission to provide details of appropriate abstract from boreholes. It is important that SuDS that will help secure these objectives supplies of groundwater from these boreholes wherever practicable. Legal agreements may are not polluted. be negotiated to manage and maintain SuDS.
Flood risk
5.71 The Borough Council recognises that Policy ENV14 the influence of human activity and climate change is expected to result in a rise in sea The water environment levels and more intensive rainfall and an increased risk of river and flash flooding. The Planning permission will not be Borough Council wishes to ensure that flood granted for development that: Environment risk is properly taken into account in the [A] would result in increased flood planning of development. risk either on-site or elsewhere; or
5.72 It is necessary to ensure that future [B] does not incorporate appropriate developments are designed to reduce this water conservation measures; or risk of flooding. Potential flooding needs to [C] would pose an unacceptable risk be minimised by not increasing the area of of pollution to groundwater or buildings or raising ground levels within the surface water; or flood risk areas, and by controlling the surface [D] would have an adverse impact water run-off from new developments. upon the ecology of the River Lea or its tributaries or 5.73 Floodplains have an essential flood their banks or corridors; or protection role. The Environment Agency [E] fails to facilitate the opening up provides further guidance regarding the of culverts and the removal of extent and nature of floodplains and areas of concrete channels along the flood risk. For the purposes of this Policy the River Lea or its tributaries, except where the scale of the Council will regard the Environment Agency’s scheme does not make this most up to date guidance as to the defended feasible. or undefended floodplain location of any site, as authoritative.
5.74 In all cases the Borough Council Pollution and Contamination will liaise with the Environment Agency in considering development proposals within and Pollution adjoining the floodplain and will require the submission of flood risk impact assessments in 5.76 The planning system has an important appropriate circumstances. role to play in protecting the environment, biodiversity, local residents, businesses 5.75 Sustainable drainage systems (SuDS) and the public in general from all forms of enable different design options to be used to development that could give rise to pollution. reflect the circumstances of a particular site. Pollution can be in many forms and includes This is intended to improve water quality, all solid, liquid and gaseous emissions to air,
Luton Local Plan 2001 - 2011 43 land and water (including groundwater) from l drainage provision; all types of development. l sewerage infrastructure; 5.77 PPS23 (Planning and Pollution l existing environmental quality management Control) confirms the close relationship plans; between the land use planning system and
the pollution control framework. They are l emissions; separate but complementary. A close co- coordination between planning authorities l major accident hazard; and the pollution control regulators can help l health or safety of the public; and ensure that the common aim of sustainable
development is met. l light pollution.
5.78 Pollution control regimes are concerned with determining appropriate levels of 5.80 Noise is a factor that needs to be emissions of pollutants from different taken into account when considering new sources, and ensuring that ambient air and development in a densely built-up area like water quality meets relevant standards. The Luton. PPG24 (Planning and Noise) identifies planning system determines the location of the considerations to be taken into account development that may give rise to pollution, in determining planning applications both and should ensure that other developments for noise sensitive developments and for are not affected by major existing or potential those activities that will generate noise. The sources of pollution. noise from road traffic, railways and airports is subject to national regulations and can leave a developer liable to pay compensation 5.79 PPS23, Annex 1: Pollution Control, Air and Water Quality requires that consideration if noise standards are not achieved. Noise should be given to the need to separate from existing uses, e.g. aircraft from London potentially polluting uses and other land uses Luton Airport or traffic on the M1 motorway, to avoid conflict. Other considerations will be: can mean that some land in the vicinity is not suitable for certain purposes. Internal
l the possible impact of potentially polluting building noise is dealt with through Building development on land use, including effects Regulations e.g. for flat conversions. on health, the natural environment, or general amenity; 5.81 Hazardous substances are defined by the Planning (Hazardous Substances) Regulations l sensitivity of the area; 1992. The Borough Council is required to ensure that land use policies maintain l environmental benefits; and secure appropriate distances between
l economic and wider social need for establishments where hazardous substances development; are present and residential areas, areas of public use and areas of particular national l air quality; sensitivity or interest. The Borough Council
l environmental quality standards; considers that it would be inappropriate to locate new development on or lying near to l not creating additional contaminated land; establishments where hazardous substances are present, where this would harm public l climate change; safety. It would also be inappropriate to grant
l discharges; planning permission for development
44 Luton Local Plan 2001 - 2011 proposals to expand existing sites handling or processing hazardous substances where this Policy ENV15 would also harm public safety. Where development is proposed within the Pollution consultation distances of notifiable installations, the Borough Council is required Planning permission will not be to consult with the Health and Safety granted for development that is likely to generate (or be subject to) Executive. levels of pollution that threaten public health or safety, or jeopardize 5.82 Where development proposals involve the quality of the environment. This any form of external lighting, the Borough policy applies to pollution to air, land and water, from any source, Council will require appropriate measures to including noise, vibration, light, be undertaken to ensure that the amenities heat, radiation, leakage, dust, fumes, of nearby residents and the character of the smoke emission or explosion. surrounding area are protected. The external illumination of buildings or land can give rise Environment to light spillages and glare. This may also create a distraction for users of the highway. Contaminated land Further concerns arise from the skyglow effect that is particularly experienced in the night 5.84 Government policy encourages the re-use sky in the countryside. Whilst light spillage of contaminated land as part of the strategy and glare is regarded as visual pollution it also to make the best use of land and relieve represents an inefficient use of energy and a pressure on greenfield land. The responsibility waste of natural resources. for remediation rests with the developer or owner. Developers are required to undertake 5.83 The floodlighting of sports facilities a full investigation of contamination on sites can often result in their more effective use proposed for development. by people who might otherwise not be able 5.85 Contaminated land concerns local to participate in sports activities. However, residents because of worries about pollution floodlighting can also be a contentious and health and such areas can lie unused issue due to the effects of illumination, for many years. Luton has a rich industrial which can often affect a much wider area heritage and some of this land has become than the immediate vicinity, and other vacant through factory closures. Any activity generated by extending operating contamination from industrial processes needs hours. Planning permission may be granted to be assessed and, if necessary, dealt with for the floodlighting of sports facilities in before land can be re-used. It can be costly to situations where its use does not result in remediate a site before any development can an unacceptable loss of amenity. Where occur. This is a cost to the developer, and may appropriate, conditions restricting the nature make some schemes unviable. The level and and intensity of the lighting, and its hours type of contamination may also restrict what of use, will be imposed to ensure that visual future uses can go onto a site. and residential amenities can be adequately safeguarded. 5.86 The Government has prepared ‘Development on Land Affected by Contamination’ as Annex 2 to PPS23 (Planning and Pollution Control). The Government’s approach to land contamination is:
Luton Local Plan 2001 - 2011 45 l to identify and remove unacceptable risks to problems which may not otherwise impact human health and the environment; on land use; and
l to seek to bring damaged land back into l can be carried out safely, without creation beneficial use; and of undue risks to workers or neighbours.
l to seek to ensure that the cost burdens faced by individuals, companies and society as a whole are proportionate, Policy ENV16 manageable and economically sustainable.
5.87 It is the developer who is responsible Development on contaminated for determining whether a development will land be affected by contamination and if it will Planning permission will not be increase the potential for contamination on granted for the development or reuse that site or elsewhere. The developer also of land which is likely to be affected needs to satisfy the local planning authority by contamination and which could: that any contamination can be successfully [A] expose the occupiers of the remediated with the minimum adverse development, domestic gardens environmental effect to ensure the safe or neighbouring land uses to an development and secure occupancy of any unacceptable risk; or site. In determining planning applications, [B] threaten the structural integrity the Borough Council needs to be satisfied of any existing or proposed that the developer can deliver a development building on, or adjoining, the site; or which meets these requirements, by carrying out any necessary remediation, either before [C] lead to the contamination of any development proceeds or as a feature of the watercourse, water body or aquifer; or development process. Where appropriate, conditions will be attached to permissions to [D] cause the contamination of ensure that the development proposed: adjoining land or allow the contamination to continue;
l does not present or incur unacceptable unless risks to human beings, or an ecological system, or living organism forming part of (i) a site assessment is carried out to such a system, or any property including establish the nature and extent of the contamination; and buildings; (ii) if contamination is found, l does not create new pollutant linkages remediation measures are agreed affecting other receptors, e.g. by mobilising by the Council; and contaminants or changing exposure (iii) the remediation scheme includes pathways, particularly where the receptors treatment on site, except in cases form an intrinsic part of the development, where it can be demonstrated e.g. landscaped areas; that this is not feasible or viable; and
l ensures that unacceptable concentrations of (iv) remediation measures are contaminants are not left in place, and completed as the first step in pollutant pathways are not left open; carrying out the development.
l does not prejudice or impede necessary remediation for other contamination
46 Luton Local Plan 2001 - 2011 6 social matters
Housing at Pope’s Meadow
Luton Local Plan 2001 - 2011 47 SOCIAL OBJECTIVES
6.1 Luton is expected to contribute to county-wide and regional housing requirements, and to meet the identified housing needs of its residents. However, Luton has difficulty in realising this expectation as scope for further residential development is severely restricted because the town is already built up to its boundaries. The main opportunities for new residential development arise as a result of the reuse of vacant or underused employment or commercial land, and the intensification of existing residential areas, mostly through conversions to flats, and development of ‘backland’ sites.
6.2 The provision of adequate community facilities, together with green space and leisure uses, is important to the quality of life for the residents of Luton and is a major land use issue. Luton is generally deficient in green space, with particular shortages in some inner areas, such as Bury Park. Development pressures in such a tightly constrained built-up area have to be balanced against the need to protect green spaces and other community facilities.
6.3 Thus the social objectives of the Plan are:
Housing
l Meeting local housing needs, including the need for affordable housing
Leisure and Community Facilities
l Making adequate and appropriate provision for sport, leisure, community development and green space to meet local community needs
6.4 The following chapter on housing and leisure and community facilities seeks to deliver these objectives, through policies intended to satisfy both Government guidance and local concerns.
48 Luton Local Plan 2001 - 2011 housing
Introduction 6.8 There is a limited scope in Luton for new housing due to a lack of available developable land. Luton is a small compact 6.5 The Government intends that everyone urban area with many of the characteristics of should have the opportunity of a decent a London Borough. As a result of this, former home. Tackling housing problems in Luton is employment ‘windfall’ sites have been the recognised by the Borough Council as being main source of housing sites in recent years. a fundamental quality of life issue for the Recently these have included redevelopment residents of the town.
on the former Electrolux factory in Leagrave, Social Matters the former Gas Works site on Dallow Road, 6.6 The Borough Council’s Housing Strategy and the Croda factory site on New Bedford Statement 2002/05 lists the particular Road. problems facing the town, including: l high levels of demand for social housing 6.9 PPG3 (Housing) emphasises the need that cannot be met within existing to achieve a more sustainable pattern of resources development, and a national target has been set to achieve 60% of additional housing l projections that the levels of demand for development on previously developed land. social housing will increase in the There has also been a change in the approach foreseeable future for planning for new housing; from ‘Predict and Provide’ to ‘Plan, Monitor and Manage’. l increasing levels of homelessness l severe shortage and high cost of suitable Housing Policy Guidance building land within the town 6.10 PPG3 states that local planning l high levels of disrepair in private sector authorities should plan to meet the housing housing requirements of the whole community, including those in need of affordable and l pressure of maintaining the quality of special needs housing. It says that authorities service to the Borough Council’s own should provide sufficient housing land but tenants. give priority to re-using previously developed land. It also suggests that planning policies 6.7 Between May and June 1999, a survey and standards should be reviewed to make was carried out to determine the housing more efficient use of land. PPG3 specifies needs of the residents of Luton. The resulting that this could be achieved, for example, by Housing Needs Survey (July 1999) found that avoiding low-density development, seeking there are a high number of people living in greater intensity of development in locations housing not suited to their requirements. It with good public transport accessibility and also found that most of these people are lowering parking standards where appropriate. unable to afford the cost of market housing. It also emphasises that local authorities should
Luton Local Plan 2001 - 2011 49 promote development that is linked to public transport, encourage more mixed use development and put a greater emphasis on quality and designing places for people.
Table 2: Housing Land Supply (as of January 2004)
A Structure Plan requirement (net gain 1991-2011) 6,200 B Dwellings completed 1991-2003 (net gain) 3,972 C Shortfall from Structure Plan requirement on 1/1/04 (A-B) 2,228 D Dwellings under construction or with full or outline planning permission on 1,636 1/1/04 Minus 10% discount for uncertainty -164 1,472 E Large sites (10 dwellings and above) identified on Proposals Map (allocations 432 in Policy H2A) Minus 10% discount for uncertainty -43 389 F Windfall allowance for 2004-2011 @ 72 dwellings a year 504 G Expected surplus over Structure Plan requirement 137 (D + E + F – C)
Notes:
1. Information is no longer collected on Houses in Multiple Occupation as this is impossible to monitor accurately through the planning system.
2. The figures for housing completions do not include numbers of units for student accommodation or residential care homes, as these do not count against the Structure Plan target. However, between 1993 and 2001, there was a net gain of almost 1800 student units and almost 300 residential care home units in the town.
6.11 Regional Planning Guidance for the housing could potentially be accommodated South East of England (RPG9) sets authorities within urban areas. The study followed the a target of 60% of all new development on guidance on urban capacity studies produced previously developed ‘brownfield’ land. Almost by the DTLR (now the ODPM) entitled ‘Tapping every recent housing development in Luton the Potential’ (2000). The Borough Council did has been on a brownfield site, as the town not accept all of its findings in the production already has a shortage of green spaces and the of this Local Plan. Borough Council has been keen to prevent the loss of such important uses. 6.13 The current adopted Structure Plan 2011 gives Luton a target of 6,200 additional 6.12 An Urban Capacity study was carried dwellings to be provided between 1991 and out in 2002 by independent consultants, in 2011. It is phased between two periods: 5,200 order to assist the Council’s decision-making in (1991-2006) and 1,000 (2006-2011). Using respect of housing allocations in the Local Plan the most recent Housing Land Availability review. The study was commissioned in line survey information (January 2004) and other with guidance in PPG3 (Housing) to provide information, the housing land supply position objective advice on how much additional is shown in Table 2.
50 Luton Local Plan 2001 - 2011 6.14 Table 2 shows that 3,972 additional located, such as near industrial areas. Housing dwellings had been provided in the Borough could also be unsuitable for continued between 1991 and the beginning of 2004, residential use if it cannot provide adequate compared to the Structure Plan target of amenities or access. There may also be an 6,200. It also shows how that target may accepted local need for a small-scale social, be met by 2011. At the start of 2004 there community or leisure facility, for which were outstanding planning permissions for no alternative sites are currently available. 1,636 additional dwellings, a number of which Proposals for such uses will be assessed against were already under construction. Even if Policy LC4. 10% of these permissions were not taken up by 2011, the housing stock would increase by 1,472 dwellings. Using the best available Policy H1 information from the Urban Capacity Study and other sources, potential housing sites have Existing housing been identified. The larger of these identified sites are allocated for development on the Planning permission for the loss of Social Matters Proposals Map and are listed in Policy H2[A] of residential accommodation or land to other uses will be refused except the Local Plan. The remaining identified sites where: are too small to be shown individually. Even if 10% of the potential capacity of the allocated [A] the design or location of the sites is not taken up by 2011, they will still existing residential development is such that it is inappropriate yield some 389 dwellings. Experience has for it to continue in such a use; shown that, on average, about 72 additional dwellings a year are provided on sites that and have not previously been identified by the [B] either Council as housing opportunities. There is no reason to expect the amount of this ‘windfall’ (i) small scale social, community or leisure facilities are development to decline. If it continued at its proposed for which no present rate, it would yield a further increase suitable alternative site is of some 504 dwellings by 2011. In view of available; or this assessment, it is estimated that there may (ii) there is a recognised local be a surplus of more than 130 dwellings over need for the proposed use. the Structure Plan target by the end of the Local Plan period.
Existing Residential Areas Additional Dwellings
6.15 Because of the limited amount of 6.16 The table in Policy H2 [A] identifies sites available housing land and the high levels allocated for housing development during of housing need in the town, it is important the plan period. On these sites, housing to maintain the current housing stock in its development will be appropriate in principle, current use wherever possible. The existing subject to detailed design and amenity housing stock is a valuable resource that considerations. Many of the sites that were needs to be protected and, where possible, suggested as being suitable in principle for enhanced. However, in some cases, there may housing in the urban capacity study were be a justifiable reason why it is not appropriate subsequently removed because they were to keep housing in its current use. For considered inappropriate or judged to be more example, some houses may be inappropriately likely to come forward for development
Luton Local Plan 2001 - 2011 51 beyond the plan period. No phasing is Residential conversions proposed in the Plan, even though this approach is recommended in PPG3 and in 6.19 The conversion of houses into flats or ‘Planning to Deliver - the Managed Release of the creation of ‘houses in multiple occupation’ Housing Sites’ (ODPM, 2001). This is due to (HMOs) can help to satisfy the demand for the fact that nearly all of the sites in H2[A] are smaller dwellings, and is particularly important derelict or underused previously developed to provide for the housing needs of single sites. There is no need to delay them to a later people and students. However, housing is in time period, as there is an acute shortage of limited supply, and the conversion of houses housing in the Borough to meet the identified into smaller units reduces the number of local needs. The Borough Council will still, family-sized dwellings. This can also have a however, carefully monitor their progress damaging effect on the environment and can through the annual Housing Land Availability lead to problems with on-street parking, traffic reports, and this approach will be assessed on generation and noise. It is therefore important a regular basis. to avoid the proliferation of conversions and HMOs to prevent these problems, particularly Planning applications on in areas where there are already problems with ‘windfall’ sites on-street parking.
6.17 Where proposals for residential Re-use of vacant floorspace and development come forward on sites not dwellings allocated in H2[A] (i.e. ‘windfall’ sites), applications will need to satisfy the criteria in 6.20 The Borough Council has produced an policy H2[B]. A proposal may be acceptable, Empty Homes Strategy to encourage the re- for example, if it would not lead to a loss use of dwellings that have remained empty of uses for which there is a recognised local for some time. The Borough Council wishes need, and the impact of the proposal on the to encourage, where appropriate, the use of environment is judged to be acceptable. The vacant floorspace above shops and offices as site should also have good access to local flats. This can have several benefits: it helps to community and shopping facilities, and be provide more dwellings for smaller households, close to existing or proposed public transport and re-uses buildings that would otherwise routes. remain empty. The presence of dwellings in shopping areas, for example, can help to ‘Backland’ development revitalise such areas and provide extra security when shops are closed at night. However, 6.18 Within existing residential areas, there it may well be that the normal standards are often ‘backland’ sites where a greater relating to amenity space and car parking have number of dwellings can be built. The use of to be relaxed because sufficient space is not these sites, including those with underused or available. This may be acceptable, depending vacant garages, for housing can help to reduce upon the location of the proposal and the the pressure on underdeveloped (‘greenfield’) nature of the household. sites. However, care needs to be taken to protect local amenity and biodiversity and avoid over intensive development. It is also important that the access into the site is safe and that sufficient parking is provided.
52 Luton Local Plan 2001 - 2011 Policy H2
Additional dwellings
The Local Plan identifies sites for the erection of 432 dwellings during the period 2004-2011; and provides for planning permission to be granted to enable at least a further 504 dwellings to be built on unidentified sites during that period.
Planning permission for residential development will be granted:
[A] on the following sites, allocated as such on the Proposals Map:
Site Location Approx. Estimated Estimated Most recent use of site and No. Size (ha) Dwelling Affordable notes Dwellings Social Matters 1 Land at Caleb Close 2.5 100 50 Employment
2 Heron Industrial 2.0 96 48 Employment Estate
Allotments 3 Land at Birchen 1.7 30 15 Development of this site is contingent Grove on satisfactory arrangements being made for the provision and maintenance of 0.97ha of public open space within the site.
4 69 Felstead Way 0.9 36 18 Housing
5 Land off Leicester 1.0 40 20 Employment Road
6 Dalroad Industrial 0.8 32 16 Employment Estate
7 Car park off Telford 0.5 25 12 Car park Way May be appropriate for mixed use scheme
8 Dunstable Rd / 0.3 12 6 Vacant/retail Leagrave Rd Triangle site
9 Car parks on 0.3 15 7 Car parks. Dunstable Place May be appropriate for mixed use scheme
10 Land on Dunstable 0.3 12 0 Coach depot Road Consent granted during 2004
11 1-9 Ashwell Parade 0.3 12 0 Retail At least one shop unit to be retained in scheme
12 Land to rear of Bank 0.3 12 0 Vacant backland Close
13 Former petrol 0.2 10 0 Petrol station/backland station & adjoining Yield is likely to be higher land, Round Green
Total 432 142
Luton Local Plan 2001 - 2011 53 Policy H2 (cont) Policy H2 (cont)
and [E] for the use of vacant or underused floorspace above [B] on sites not allocated for ground floor for residential use, housing in this plan, provided unless: that: (i) it is within either an existing (i) the site is on previously or identified employment developed or underused area; or land; and (ii) the development would (ii) development of the site result in unacceptable would not lead to a loss of conditions with regard to uses for which there is a access, security, car parking, recognised local need; and noise or general disturbance.
(iii) there would be no In all cases, residential development unacceptable effect on the proposals must have regard to the environment or it would guidance on design and layout given result in a demonstrable in Appendices 2 and 3. environmental gain; and
(iv) there is good access to local facilities and public transport;
and 6.21 Further guidance on the design and layout of residential development (including [C] on existing residential land that new-build and conversions) is given in will result in a greater number of Appendices 2 and 3 and the Borough Council’s dwellings on a site, provided that the scheme: Supplementary Planning Guidance entitled ‘Designing for Sustainability: A Summary of (i) is well sited in relation to the Good Practice’. surrounding buildings; and
(ii) would not be over-intensive Residential Density development; and 6.22 Achieving higher residential densities is a [D] for the conversion of dwellings major component of sustainable development into flats or the creation of and is essential for delivering the urban houses in multiple occupation renaissance. PPG3 (Housing) encourages provided that: local authorities to avoid the inefficient use of (i) the proposal would not land and to examine critically the standards adversely affect the applied to new development. Circular 01/02: character of the surrounding The Town and Country Planning (Residential area; and Density) (London and South East England) (ii) there would be no Direction 2002 states that, on sites of one unacceptable effect on new hectare or more in size, planning authorities or existing residents, by way intending to approve housing schemes of less of noise, disturbance or overlooking; than 30 dwellings per hectare must notify the Deputy Prime Minister. This Directive came and into force in December 2002.
54 Luton Local Plan 2001 - 2011 6.23 It is vital therefore that low-density housing development is avoided wherever Policy H3 (cont) possible. The Council will expect all new housing in Luton to be built at a net density residential development will be required to be built at a net density of 40 dwellings per hectare or above, unless of 50 dwellings per hectare or above. development at these densities is considered inappropriate. This might be the case if higher These minimum density density development would have an adverse requirements will apply unless it can be demonstrated that: impact on the character of existing areas or if affordable housing at lower densities is [A] development at these densities needed to provide larger dwellings, to meet would have a significant adverse local needs. Higher densities necessitate good impact on the surrounding area; or design. The Council has recently adopted as supplementary planning guidance a guide for [B] development at lower densities is required to facilitate the developers entitled ‘Designing for Sustainability Social Matters - a summary of good practice’. This shows identified local housing needs. how high quality, sustainable design can be incorporated into developments through the use, for example, of imaginative building Extensions To Dwellings design and reduced parking standards. 6.25 Extensions to residential properties can 6.24 It is also important that there is a greater have a damaging effect on the environment. integration of land uses with transportation They can spoil the appearance of a house and requirements. PPG13 (Transport) suggests even have an adverse impact upon the local that the Transport Development Area (TDA) street scene. They can also result in parking approach should be considered. This approach problems and can adversely affect the amenity suggests that high-density development or of nearby residents through visual intrusion, those generating significant amounts of traffic overlooking and loss of light. It is important should be concentrated in areas well served that sufficient space remains for car parking by public transport. Therefore, in the central and to meet the outdoor needs of occupants, area and in other accessible areas, e.g. near for example garden space and amenity areas transport nodes such as train stations and to store dustbins. bus routes, residential development will be expected to be built at a net density of at least 6.26 However, extensions can also help solve 50 dwellings per hectare. over-crowding problems for growing families by providing an alternative to moving house.
Policy H3 Policy H4
Residential Density Extensions to dwellings New residential developments will be Planning permission will be granted required to be built at a net density to extend a dwelling provided that: of 40 dwellings per hectare or above. [A] the scale, design and external In the central area or in areas with materials are generally good accessibility by modes of consistent with the dwelling and transport other than the private car, neighbouring properties; and
Luton Local Plan 2001 - 2011 55 housing in Luton, in particular, large family Policy H4 (cont) homes (four or more bedrooms) and single person dwellings. [B] the proposed extension does not significantly reduce the amenity of nearby occupiers, in respect 6.29 The most recent Housing Needs Survey of visual intrusion, loss of light (1999) showed that there are about 7,240 or overlooking. people in unsuitable housing, of which 70% In all cases, proposals for residential are unable to afford the cost of market extensions must have regard to the housing. This represents 5,100 existing guidance given in Appendix 3. households in need. It is also estimated that there are more than 10,000 ‘concealed households’ (persons who currently live with Affordable Housing a host household, often parents, who will require their own home within 5 years) across Defining affordable housing the Borough and of these almost 1,400 are in housing need. Therefore, in total, more 6.27 PPG3 (Housing) states that a than 6,500 households are in need, about community’s need for a mix of housing types, 9.3% of all households. In addition to this, including affordable housing, is a material the Survey predicted that another 1,430 non- planning consideration. Circular 6/98 (Planning local authority households would fall into and Affordable Housing) states that polices in housing need each year in the period to 2004. local plans should define what the authority The Survey concludes that a total of about regards as affordable. In Luton, it is defined as 4,500 additional affordable dwellings might ‘housing that will be available to people who be required to meet the need in full by 2004. cannot afford to rent or buy houses generally However, due to the demonstrable shortage of available on the open market’. It includes available sites for housing in the Borough, it both subsidised housing and low cost market will not be possible for this need to be met in housing. It does not exclude any particular full during the plan period. form of tenure, but can include properties for rental or sale, or for occupation on a Securing affordable dwellings shared ownership basis. The type and tenure through the planning system sought in any circumstance will be justified by the latest Housing Needs Survey. (The 6.30 As there is a demonstrable lack of 1999 Housing Needs Survey found that low affordable housing to meet local needs, cost market housing and shared ownership it is vital that as much affordable housing have limited roles to play in the delivery of as possible is secured in the town for affordable housing in Luton). those people unable to afford to buy on the open market. Circular 6/98 (Planning Housing need in Luton and Affordable Housing) suggests that, in authorities where there are exceptional local 6.28 House prices on the open market have constraints, a lower threshold of between risen rapidly in recent years in Luton and many 15 and 25 dwellings can be used on which people can no longer afford to buy a house. an element of affordable housing might be Housing need has been defined as a household sought. As Luton has such a large housing which is in unsuitable housing (defined by needs problem, and most new housing is using a points system) and cannot afford to expected to come forward on small sites, move into market housing either for sale or affordable housing may be sought on all rent. There is a proven need for affordable schemes of 15 units and above, and on sites
56 Luton Local Plan 2001 - 2011 of 0.5 of a hectare or more, irrespective of the requirements of the area. The precise nature number of dwellings. For the same reason, and scale of the affordable dwellings on an indicative target of 50% is proposed as a each site may vary according to local market basis for negotiations about the proportion conditions and development costs, and will of dwellings to be affordable, subject to any be a matter for negotiation between the site specific considerations. Although 50% is a developer and the Borough Council. The high percentage, it is justified by the high level affordable dwellings should also be well of housing need in the Borough. integrated into the site, in terms of siting, design and layout to assist the Borough 6.31 The Borough Council will resist attempts Council’s social inclusion objectives. It may by developers to circumvent these thresholds be appropriate for the affordable element to by fragmenting a large site or by ignoring be provided throughout the site rather than the potential for amalgamation of small in one block, although this may not always be sites. Therefore, affordable housing, or an appropriate for practical reasons. appropriate commuted sum, may be sought on sites smaller than 15 dwellings or 0.5 hectare Social Matters where these sites form part, or reasonably Policy H5 could form part, of a larger development. Provision of affordable housing
6.32 In most instances, the Council’s preferred Affordable housing is defined as option will be for affordable housing to be ‘housing that will be available to provided as part of the proposed development. people who cannot afford to rent or Off-site provision may be appropriate in some buy houses generally available on the open market’. cases. A commuted sum in lieu of provision is the least satisfactory form of contribution, The Borough Council will: but will be considered where it will secure an [A] seek affordable housing on appropriate provision of affordable housing. allocated housing sites as For example, the Borough Council and the specified in Policy H2[A]; and developer may agree that, although affordable [B] seek (as an indicative target) housing provision is appropriate on a particular that 50% of the proposed new site, a financial or other contribution towards units in all developments of 15 the provision of such housing on another site dwelling units or more (or 0.5ha is preferable. Where this approach is agreed, and above) are for affordable housing, subject to the a planning obligation will be sought to secure circumstances of the site and any this. special development costs; and
[C] seek to ensure that the size and 6.33 Most affordable housing units in the type of affordable dwellings Borough are likely to be provided for social provided reflects the identified rent through registered social landlords (RSLs). housing need requirements of RSLs receive public funding from the Housing the area and is well integrated into the overall scheme. Corporation for new build and renovation schemes. The Borough Council will encourage If an element of affordable housing developers to work with one of its preferred would be appropriate on a particular site in accordance with this policy, RSLs to progress and manage affordable but off-site provision would be housing schemes, and to ensure the dwellings preferable, a financial sum may provided meet the requirements. be acceptable as a contribution towards securing the development of affordable housing elsewhere. 6.34 The size and type of affordable dwellings provided should reflect the housing need
Luton Local Plan 2001 - 2011 57 6.35 The affordable element of a mixed tenure scheme should not be left until the end Policy H6 (cont) of the development to be built. There should therefore be suitably secure arrangements, would not otherwise be able to afford to rent or buy a dwelling either through a planning obligation or of sufficient size for their needs conditions, to ensure that the proposed on the open market, and who affordable dwellings are satisfactorily phased either: as part of the whole development. (i) already live in the Borough and are in housing need, or 6.36 The management of affordable housing after development is generally expected to (ii) can demonstrate a need to be carried out by transferring the units to a live in the Borough. preferred RSL. This should ensure that local Arrangements will be made people on the housing register have first to ensure that the affordable opportunity to live in the dwellings. However, accommodation will remain it may be necessary to enter into a planning available to meet the needs of such households beyond the first obligation to ensure that the affordable occupiers. dwellings provided are made available to those in housing need or who can demonstrate that they need to live in the Borough. This could include ‘key workers’ who work in Luton but Student Halls of Residence do not currently live here and people with
elderly relatives who live in the Borough. 6.37 Student housing is an issue within These arrangements would also need to Luton, as the town is home to a University ensure that the social accommodation remains with about 12,000 students, and to Barnfield available to meet the housing needs of such College, which has 4 campuses in the households beyond the first occupier. Borough. Students generate a demand for residential accommodation, and this Policy H6 has a knock-on effect on private rented accommodation.
Affordable housing 6.38 It is estimated that over 1700 student arrangements housing units were provided in Luton from Planning permission for the 1993 to the end of 2001 (Housing Land development of affordable housing Availability Report, Jan. 2002), but the rate will be granted subject to the of provision has slowed in recent years. following: However, this figure is almost certainly an [A] If the affordable housing is part underestimation because many bedsits and of a larger scheme, it will be houses in multiple occupation will be occupied subject to arrangements that by students. ensure its phased provision within the overall development. 6.39 It is more sustainable if students either [B] unless the affordable housing is live close to the places where they study or to be low-cost market housing, can get there easily by public transport. Policy or is to be managed by a registered social landlord, the H7 therefore aims to ensure that student halls council will require that it be of residence are either within walking distance occupied by households who of the facility they serve (assumed to be one
58 Luton Local Plan 2001 - 2011 kilometre) or are close to transport routes sites, and where this is not possible to set leading to it. Other student accommodation is out clear, realistic criteria for the selection of not covered by this policy. sites. The Circular also states that planning applications should not be refused on the grounds that public provision is considered to Policy H7 be adequate.
6.43 There are different types of Gypsy Student halls of residence and Traveller site, such as sites for settled Proposals for student halls of occupation, temporary stopping places and residence will be approved provided transit sites. Luton has one Gypsy site at that they: St. Thomas’s Road in Stopsley for settled [A] are either within 1 km of the occupation, and this has 20 plots. There is university or college building also a privately owned ground in Wigmore which they are primarily intended Lane used for storing fairground equipment in
to serve, or are close to Social Matters the winter. established public transport routes leading to the relevant university or college building; 6.44 There have been frequent problems and caused by unauthorised encampments within [B] would not have a significant the Borough, and enforcement powers have adverse impact on the amenity of had to be used to move on these Gypsies and adjacent residents or businesses. Travellers. These problems may be at least partly exacerbated by the lack of a transit site or a temporary stopping place in Luton. No new Gypsy sites have been specifically 6.40 Student accommodation can cause allocated in the Local Plan, as it has not proved amenity problems for nearby occupiers in the possible to find a suitable site. However, the form of parking and noise. Therefore, any following policy will be used to assess any potential sites for student housing, including planning applications for such a use. halls of residence, will also be assessed against the criteria in Policy H1.
Gypsies/Travellers Sites Policy H8
6.41 Gypsies have been defined as ‘persons Sites for Gypsies/Travellers who wandered or travelled for the purpose Planning permission will be granted of making or seeking their livelihood, and did for permanent or transit Gypsy/ not include persons who moved from place to Traveller sites if: place without any connection between their [A] the site has reasonable access to movement and their means of livelihood’. This shops, schools and other is a definition from 1994, and was accepted facilities; and by Government and quoted in Circular [B] the site has adequate road access 18/94 (Gypsy Sites Policy and Unauthorised and is well related to the primary Encampments). road network; and
[C] the site is on previously 6.42 Circular 1/94 (Gypsy Sites and Planning) developed or underused land and states that Local Authorities should wherever is not allocated for another use; possible identify locations suitable for Gypsy and
Luton Local Plan 2001 - 2011 59 Policy H8 (cont)
[D] hardstanding and basic facilities, including electricity, water supplies, sewage disposal and waste collection, are provided on site; and
[E] there would be no unacceptable effect on the environment.
60 Luton Local Plan 2001 - 2011 leisure and community facilities
Introduction September 2002). The Borough Council is in the process of producing a green space 6.45 Leisure and community facilities strategy. cover a wide range of activities, including sport, entertainment, education, health and 6.49 PPG12 states that local plans should community facilities. These activities are ‘make provision for schools and higher important to the social, environmental and education, health facilities, places of worship, economic welfare of communities, promote prisons and other community facilities’. social inclusion and cultural diversity, and Social Matters promote the image of the Borough. 6.50 The Borough Council has produced a Cultural Strategy (Luton’s Cultural Strategy 6.46 As increasing pressure is brought upon 2003-2008). This aims to improve the the remaining open land for development, it quality of life of Luton’s population through is important that green spaces are not lost to participation in cultural activity. The Cultural other uses without an assessment being made Strategy was influenced by the Community of their potential to meet current and future Plan and Luton 2011. The strategy is also community needs. influenced by two important regional plans: the East of England Development Agency’s Policy Context Corporate Plan 2002-2004, and ‘Culture: a Catalyst for Change’ by Living East, the cultural 6.47 The Structure Plan promotes policies consortium of the East of England. designed to protect and enhance the provision and quality of green space, recreation and 6.51 The Borough Council is developing a sports facilities in the County in a sustainable Sports Strategy and an associated Facilities manner, and to ensure the facilities meet the Strategy. Six wards in the town were needs of the local community. designated as a Sport Action Zone (SAZ), and these aimed to develop access to facilities 6.48 PPG17 (Planning for Open Space, in areas of high deprivation, to ensure local Sport and Recreation) recognises that these people have a better chance to take part in facilities underpin people’s quality of life. sport. The SAZ initiative ended in September The PPG states that to ensure effective 2005 but most of its projects have been planning for open space, sport and recreation, mainstreamed. local authorities should undertake robust assessments of the existing and future needs Green Space for these facilities, and to undertake audits of existing facilities. A Government guide 6.52 Green space has multiple functions: it giving examples of how such assessments and provides for recreational needs, contributes audits can be carried out has been published to improving quality of life, enhances the (‘Assessing Needs and Opportunities - A character of the local area, is important for Companion Guide to PPG17’, ODPM,
Luton Local Plan 2001 - 2011 61 nature conservation and biodiversity, and l Natural and semi-natural green spaces, promotes health and mental well-being. It is including urban woodland, providing at the heart of the urban renaissance. opportunities for wildlife conservation and biodiversity. 6.53 The green space strategy being prepared by the Council will include an analysis of the l Green corridors, which can be used for quality of Luton’s parks, and will identify in walking, cycling or horse riding, and giving more detail the needs and deficiencies in the opportunities for wildlife migration. town. It will also result in a local green space l Outdoor sports facilities, which encourage standard, and is likely to recommend that a participation in sports such as football, parks hierarchy be developed. However, the rugby, tennis, bowls, golf and athletics. strategy has not yet been completed.
l Amenity green space, giving opportunities 6.54 PPG17 aims to deliver networks of for informal activities close to home or work accessible, high quality open spaces and and enhancing the appearance of residential sport and recreational facilities, which meet areas. the needs of residents and visitors and are economically and environmentally sustainable. l Provision for children and young people, It also emphasises the need to protect high designed for play and social interaction. quality green space and recreational facilities l Allotments and community gardens, giving and to weigh any potential loss of green space opportunities for those people who wish to against benefits offered to the community. do so to grow their own produce. It advocates that local standards should be
developed, with an emphasis on quality and l Cemeteries, giving opportunities for quiet accessibility rather than quantity, instead contemplation and promoting wildlife of the use of the National Playing Fields conservation. Association (NPFA) Six Acre Standard. l Civic and market squares, providing a Types of green space setting for civic buildings and community events. 6.55 The PPG17 Companion Guide ‘Assessing Needs and Opportunities’ (2002) recommends Allotments and community gardens that local authorities should no longer use the outdated definition of open space in the 6.56 Allotments are a sustainable method of Town and Country Planning Act 1990. Instead growing cheap, fresh and healthy food. They it suggests that authorities should use the can also help to conserve wildlife habitats typology of open space proposed by the Urban and in particular are important for birds, Green Spaces Taskforce. This should provide insects, small mammals, slow worms and a framework for ‘joined up thinking’ and is grass snakes (see Biodiversity Action Plan for intended to help meet the practical needs of Luton and Bedfordshire for more details). local authorities. There are currently 13 allotment sites in use in The typology can be summarised as follows: Luton, with a further 7 sites either closed or proposed. The total area covered by the
l Parks and gardens, providing accessible ‘in-use’ sites is 31 hectares, but about 30% high quality opportunities for informal of plots on in-use sites are vacant (according recreation and community events. to a survey in 2000). There is a great deal of pressure to develop allotment sites, both
62 Luton Local Plan 2001 - 2011 vacant and used, for other uses, but they are excluded from the definition of previously Policy LC1 (cont) developed land in PPG3 and hence are ‘greenfield land’. or [B] the existing green space is 6.57 The green space strategy is being replaced by an alternative which prepared, and this will include an assessment is: of allotments within Luton. This will give an (i) of at least equivalent size, indication of whether all of the existing sites quality and accessibility; and should be retained or whether some can be (ii) in a suitable location within released for other uses, such as other forms the vicinity; and of green space. Until this is completed, and adopted as a supplementary planning (iii) operational prior to the development being document, the Council will continue its commenced; current allotment standard of 0.2 hectares per 1000 population. More details are given in or Social matters Appendix 2. [C] it can be demonstrated that:
Protection of existing green space (i) there is a recognised need for the proposed development; and 6.58 The policy is intended to protect green space from development, except (ii) the proposed development could not be undertaken in certain exceptional circumstances, elsewhere, on a previously and ensure qualitative improvements to developed site, within a facilities. Development that is ancillary to reasonable period; and the existing facility, such as changing rooms (iii) the amount of land-take or refreshment facilities, will also be allowed would not result in any subject to compliance with the criteria. significant loss of green space in an area in which there is, or would be, an Policy LC1 identified deficit; and (iv) the proposed development Protection and preservation of would result in the retention green spaces of any remainder of the green space for the long- term benefit of the Development will not be permitted community and, where on parks, playing fields and other necessary or appropriate, its outdoor sports facilities, children’s enhancement. play spaces, allotments or other green spaces unless: In all cases, proposals for new development will be required to [A] the proposed development is: demonstrate that: (i) ancillary to the use of the (a) the amount of land-take is the existing green space; and minimum practicable; and (ii) not anticipated to have an (b) the development is located such unacceptable effect on the that it will have the minimum efficient and effective use of adverse impact upon the the existing green space; and function and amenity of both (iii) limited in scale to that which the existing use and any is necessary; neighbouring uses.
Luton Local Plan 2001 - 2011 63 Provision of green space (paragraph 5), and were derived from the National Playing Fields Association’s Six Acre 6.59 Appropriate underused or vacant sites in Standard. For new development schemes the town could be used as new green spaces, providing specialist accommodation exclusively if they are within areas shown to be deficient for occupation by the elderly, the requirement in such uses in the green space strategy. It to provide green space will be confined to is possible that such sites may be able to the provision of amenity space as part of the be identified after the green space strategy scheme. emerges.
6.60 Major new developments will normally Policy LC2 be required to provide green space, including children’s play space, either within the site Provision of green space or on another nearby site. PPG17 states that In determining planning applications, planning obligations should be used to remedy the Borough Council may: local deficiencies in the quality or quantity of [A] require the provision of green space, sports and recreational provision, appropriate green space to: where this provision is inadequate or where new development increases local needs. It (i) meet the anticipated need generated by those using states that, providing local authorities have the development; and undertaken assessments of need and audits of existing facilities, planning obligations are (ii) contribute to meeting any justified. existing quantitative or qualitative deficiencies in the locality, taking into 6.61 Additional green space, sport and account the standards in recreational provision will usually be required appendix 2; on site but in some cases, for example in small and developments where this is not practical or where there is sufficient green space nearby, a [B] seek the provision of an appropriate commuted sum, contribution to off-site provision may be more where responsibility for the long appropriate. A legal agreement will normally term maintenance of an open be required to secure this. The payment space that is designed to serve of a commuted maintenance sum may be the proposed development is transferred to the Council or to appropriate, when a developer hands over a third party. responsibility for the long-term maintenance of the provision to the Council or a third party. Where provision is not practicable or viable on-site, then the Borough Council will seek to secure either: 6.62 The form that this green space will take will vary according to individual sites and (a ) the provision of adequate and will depend on local needs and deficiencies. appropriate green space It is important that children’s play space is elsewhere in a readily accessible location in the vicinity; or designed to include safe equipment and surfaces, and located in areas readily and (b) an appropriate financial or other safely accessible to children. When major contribution towards either: planning applications are received, the Council (i) new off-site provision; or will continue to use the standards relating to outdoor playing space from the previous Local (ii) the enhancement of existing Plan. These are shown in Appendix 2 off-site facilities.
64 Luton Local Plan 2001 - 2011 Community Facilities 2005-10 reveals a relatively stable primary and secondary school population, but 6.63 Community facilities, such as schools with localised pressure points for primary and higher education, health facilities, places school places in the south of the town and of worship, leisure and indoor sports facilities northwards along the A6 corridor. are important for local people. The Borough Council will resist the loss of these unless there 6.67 The use of the Private Finance Initiative is no longer a need for them, or particular (PFI) to support capital investment in schools circumstances justify it. is recognised as a major opportunity in the Council’s strategy for attracting the investment 6.64 Local community facilities include to facilitate raising educational attainment. community centres and halls, places of PFI schemes are being considered at a number worship, libraries, and public conveniences. of schools, where significant levels of capital These are particularly important for those investment are required. people without cars, the elderly, those with children and with mobility problems. 6.68 Luton University currently has 11,500 Social Matters Community facilities should be close to the students and 900 staff. The University has population they serve and be readily accessible recently opened a new Media Arts centre. The by walking and cycling. The Borough Council University’s future development proposals welcomes applications for these facilities, include a new building for Creative Arts, which fulfil a vital social function and tackle and a Student Plaza. Policy CA3 proposes social exclusion. a new theatre within the cultural quarter, to serve both university courses and the 6.65 Luton is home to people of more than wider community. It is also possible that 100 nationalities. Because of this cultural the proposed development at Butterfield will diversity, there is a wide range of religious include a campus for post-graduate students. buildings in the town and many religious groups have or are seeking premises in the 6.69 Luton also is the home for Barnfield town for the purpose of worship, teaching and College, which has four campuses in the town. fellowship. In some areas, such as Bury Park, The Borough has five Community Colleges, as purpose-built facilities for religious use have well as Luton Sixth Form College. been constructed. However, there is pressure Use of redundant educational for the use of residential properties for facilities religious purposes, which can have a serious impact on the amenity of adjoining properties. 6.70 The Borough Council is concerned about the loss of its school playing fields, which fulfil Education facilities an amenity and greenspace role as well as an educational one. Playing fields are protected 6.66 As a Local Education Authority, the under Section 77 of the School Standards Borough Council is responsible for securing the and Framework Act 1998, which gives the provision of primary and secondary education Secretary of State for Education powers to that meets the needs of the population. protect school playing fields from disposal Private sector provision can also play a part or change of use. Revised guidance, ‘The in meeting this demand. There are 6 Nursery Protection of School Playing Fields and Land Schools, 19 Infant Schools, 19 Junior Schools, for City Academies’, was issued in 2001. 21 Primary and 13 High Schools at present in Proposals involving the loss of part or all of a the town. The draft School Organisation Plan school playing field will be assessed against the criteria in Policy LC1.
Luton Local Plan 2001 - 2011 65 6.71 In principle, the development of new impacts on the surrounding residential area. and extended educational facilities will be However, the Council, in consultation with supported, where it satisfies the criteria in the Hospital Trust, is seeking to ameliorate Policy LC4. Schools generate significant the problems and has recently implemented amounts of traffic, and where new and a Controlled Parking Zone in the area. The expanded school facilities are proposed the Borough Council will continue to safeguard Borough Council will expect that a School the L&D site for medical purposes and support Travel Plan is submitted in line with Policy T2 the improvement of existing facilities. and Appendix 7 ‘Travel Plans’. Developers proposing large new housing schemes may 6.75 Luton was designated as a Health Action be required to fund additional school places Zone (HAZ) in 1998. The Luton HAZ was a and facilities, where there would otherwise partnership of local NHS organisations, the be insufficient capacity in the area as a result Borough Council, voluntary groups and the of the development. Any such contribution private sector. Luton was chosen to be a HAZ would be secured through the use of a because it has high levels of ill health and Section 106 Agreement in accordance with disadvantage, particularly in certain Wards . the guidance in Circular 5/05 (Planning The work previously carried out by the HAZ has Obligations). The wider use of educational now been incorporated into Luton teaching facilities for community purposes is covered by Primary Care Trust and its work with partner Policy LC5. Proposals for new student halls of agencies. residence are covered by Policy H7. 6.76 Traditionally, doctors’ surgeries, dentists Health facilities and health centres have been located within residential areas. There have been changes 6.72 Major general and specialist health more recently in the provision of primary care facilities are located at the Luton health care, including the rationalisation to and Dunstable Hospital (the L&D), a large form larger surgeries. These group practices modern hospital, with more than 500 give a wider range of services but require beds. The hospital has been rationalising its larger facilities to those of a lone practitioner, accommodation for many years and it is now and usually generate more traffic and centralised on the L&D site in Lewsey. The disturbance to those living nearby. New site is managed by two separate Trusts, the health facilities will generally be inappropriate Luton and Dunstable Hospital Trust and the in residential properties, unless there is an Beds and Luton Community NHS Trust, which established need for the facility that outweighs is responsible for mental health care on the the loss of the residential use. Proposals Faringdon Wing site. for new or expanded health facilities will be assessed against Policy LC4. 6.73 More than £30 million of building and refurbishment work has recently been carried 6.77 With an ageing population, the demand out on the hospital site, including a new for residential care and nursing homes in the three-storey St Mary’s Medical Wing and staff town has increased. The Borough Council has accommodation. several residential establishments throughout the Borough providing high quality permanent 6.74 The site has a problem with poor residential care to meet the needs of frail and parking facilities, and the existing public car mentally ill older people. However there has park on Lewsey Road is far from adequate. been a move recently away from long-stay This has resulted in congestion around community care facilities to allow people to Calnwood and Faringdon Roads, which live within the community while still receiving
66 Luton Local Plan 2001 - 2011 the support and care they need. The centre, which has a multiplex cinema, a ten precise land use implications of ‘Care in the pin bowling facility, and a bingo hall. Other Community’ initiatives are still unclear, but leisure developments in the last few years any new provision should be of a high quality include casinos, the Living Well gymnasium and have regard to residential amenity. New and swimming pool and the David Lloyd facilities will be supported subject to meeting Centre at Capability Green. The Artezium the criteria in policy LC4. was relaunched in 2004 as an arts and media centre. A selection of local community arts Leisure facilities companies are housed at the relaunched centre, which has been re-named ‘The Hat 6.78 There are a wide range of leisure Factory’. facilities in the Borough, including sports facilities, cinemas, bingo halls, casinos, a 6.82 Existing leisure facilities should be theatre, arts and other entertainment facilities. protected wherever possible and, where they
These facilities increase the attractiveness of are no longer needed in their current use, the Social Matters the Borough as a place in which to live, work potential of the site for alternative community and have fun. In the context of Policies LC3 uses should be explored. If these uses are not and LC4, the term ‘leisure’ facilities excludes required, then other uses may be acceptable. public houses and restaurants, which are Proposals for the change of use of existing covered by policies in the Retail and Central leisure facilities will be judged against the Area sections. criteria in Policy LC3.
6.79 Luton’s leisure scene is composed of 6.83 Proposals for new and extended leisure many different providers across the public, facilities will be considered against Policy LC4. private and voluntary sectors. The Borough PPS6 (Planning for Town Centres) suggests Council is the main provider of sporting that the ‘sequential approach’ applies to facilities in the town, but most others are all town centre uses which attract a lot of small-scale operations, with the exception of people, including entertainment and leisure. the Vauxhall Recreation Centre. The Borough Adopting the sequential approach means Council-owned facilities include Stockwood that first preference should be for locations in Park Athletics Track and Golf Centre, Luton appropriate existing centres, taking account Regional Sports Centre, Lewsey Park Pool, of an appropriate scale of development in Wardown Swimming and Leisure Centre, relation to the role and function of the centre. and recreation centres at Lea Manor and This is followed by edge-of-centre locations, Putteridge. and then out-of-centre sites, with preference given to sites which are or will be served by a 6.80 In respect of the need for new sports choice of means of transport and which are facilities in Luton, Sport England currently only close to the centre and have a high likelihood recognise the need for one additional artificial of forming links with the centre. Locating pitch, although it is clear that a replacement major leisure uses in town centres encourages swimming pool will be required when the linked trips, where people combine shopping Bath Road pool closes. It is possible that other and leisure activities, and contributes to the sporting needs could emerge as the Borough vitality and viability of the town centre. It Council develops its sports facilities strategy. is important that wherever possible, major leisure facilities are accessible by public 6.81 There is a trend away from public transport, cycling, and on foot. However, towards more private sector provision. This is leisure uses can disturb nearby residents reflected in the Galaxy Centre in the town through noise, traffic generation and other nuisance.
Luton Local Plan 2001 - 2011 67 Policy LC3 Policy LC4 cont
Protection of community facilities [D] it does not take land either in or allocated for other uses, unless it Planning permission will not be is demonstrated that the need for granted for development that would the facility outweighs that for lead to a loss of community facilities the existing or allocated use. unless:
[A] it is shown that there is no need or anticipated need for its use as Dual use of educational facilities any type of community facility; or 6.84 Schools are often the focus of the [B] it is unsuitable for alternative community in which they are located, and they community uses for which there can provide a wide range of facilities that can is a demonstrable need; or be of use to the community outside of school [C] adequate and appropriate hours. The multiple use of school and further facilities are provided in a education buildings and playing fields for suitable alternative location; or community use, to provide arts, entertainment [D] the facilities currently provided and sporting facilities, can make an important can be fully retained, enhanced contribution to provision in Luton and could or reinstated as part of the help to address any deficiencies in the town development of the site. and allow better use of existing resources. The Borough Council will therefore encourage the multiple use of educational facilities.
Policy LC4
New and extended community Policy LC5 facilities Dual use of educational New and extended community facilities will be granted planning facilities permission provided that: Planning permission will be granted for the multiple use of existing [A] a demonstrable local or regional and new educational facilities for need is established, and the community or leisure activities unless facility is well related to the area such a use would: it serves, and
[B] it would not adversely affect the [A] have an adverse impact on the viability and vitality of a delivery of the educational shopping centre; and service; or
[C] there would be no unacceptable [B] have an excessive adverse impact effect on the amenity of any on the character of the area or surrounding residential dwellings the amenity of nearby residential and other uses; and and other properties.
68 Luton Local Plan 2001 - 2011 Childcare facilities Luton Town Football club
6.85 As more parents return to work, the 6.87 The Borough Council bought the demand for pre-school childcare places is Kenilworth Road ground from Luton Town expected to rise in Luton. The ‘Early Years Football Club in 1989 and now the Club leases Childcare and Development Partnership’ is the ground from the Council. The current responsible for under fives’ provision in Luton. location of the club in the built-up area of Bury An area where there is expected to be some Park is far from ideal, and it wishes to relocate major expansion over the next few years is in to another site. The Borough Council will the development of Neighbourhood Nurseries. support this aspiration, provided that the club can find a suitable site. The preferred site of 6.86 The scale of childcare facilities can vary, the Borough Council for the relocated club is from the use of part of a house to a purpose- south of Stockwood Park, and Policy SA1, the built building. In the case of facilities within Stockwood Area, states that any development residential properties, it is important that of the area should include a new stadium for Social Matters the use remains subordinate to the main use Luton Town Football Club. Clearly it would be as a house and does not harm residential expected that the new stadium is operational amenity. Problems can include the parking before the current site is redeveloped. of vehicles to drop off and pick up children, noise and increased level of car movements. It 6.88 It is expected that the existing site is important to ensure that safe setting down will be used for a mix of green space and and picking up areas are provided, as well housing, as there is a recognised need for as longer term parking for staff and parents. both uses in this area. The Green Space Applications for such uses will be assessed strategy is expected to confirm the general against Policy LC6, and proposals that would belief that there is a great need for such involve the loss of part or all of a residential green space in the Bury Park area. Outline dwelling will also be assessed against Policy H1. planning permission was originally granted for housing and open space uses in 1989 and this permission has been renewed since then. Policy LC6
Childcare facilities Policy LC7
Proposals for new and extended nurseries and other childcare facilities Luton Town Football Club, will be granted planning permission Kenilworth Road provided that: Planning permission will be granted [A] there is no excessive adverse for the redevelopment of Luton Town impact on the amenity of nearby Football Club’s Kenilworth Road residential properties and other ground, identified on the Proposals uses; and Map, provided that the proposed uses comprise public open space and [B] where the proposed facility housing. would be in premises that are used for another purpose, it remains subordinate to the main use of the premises; and
[C] there is suitable vehicular access and safe dropping off and picking up areas.
69 Luton Local Plan 2001 - 2011 Visitor Accommodation and Policy LC8 Tourism
6.89 Tourism is becoming increasingly Visitor and tourist important for the economy of Luton. Apart accommodation from the Airport, attractions include sporting Planning permission for proposals facilities such as Luton Town Football Club, that would increase and improve Stockwood Park Golf Course, Stockwood visitor accommodation will be Country Park, the Mossman Collection, and granted provided that it does not cause an adverse impact on the Luton Museum. Luton is also home to historic amenity of surrounding residential sites such as Waulud’s Bank and St Mary’s properties and other uses, or on the Church. New tourist facilities will be assessed local environment. against Policy LC8.
6.90 A highlight of the cultural year is the Luton Carnival. The Carnival is the biggest outside Notting Hill and attracts about 150,000 visitors to Luton each year. Other events such as the Irish Fleadh and St. Patrick’s Day add to Luton’s vibrant community spirit.
6.91 The provision of an adequate supply of good quality hotels is essential to the promotion of Luton as a tourist centre. There is still a shortage of such visitor accommodation although the number of hotels in the town has increased in recent years, with the Ibis Hotel and Holiday Inn Express at the Airport, a Travel Inn at the Brache and the Royal Oriental on Mill Street. Further hotels may be provided as part of the Butterfield, Wigmore, Kimpton Road, Power Court and Stockwood Park proposals.
6.92 Guest houses and bed and breakfast accommodation play a more limited role, and may be under represented in the town. Many of these smaller facilities are converted houses and as such there are potential impacts on amenity and traffic problems.
70 Luton Local Plan 2001 - 2011 7 ECONOMY
Capability Green
Luton Local Plan 2001 - 2011 71 ECONOMic OBJECTIVES
7.1 The Local Plan seeks to provide the framework for the local economy to meet local employment needs in a sustainable way by balancing environmental, social, transportation and other activities that contribute to the quality of life for local people.
7.2 Luton has an important sub-regional employment role. In 2002 the town provided nearly 78,600 jobs, 17.2% of which were in manufacturing. Despite recent falls in the number of manufacturing jobs and a corresponding shift to the service sector, they remain at a higher level in Luton than in Great Britain as a whole.
7.3 Global economic changes are taking place that impact upon business in Luton. The end of car production at Vauxhall resulted in the loss of jobs, as well as affecting related industries and services. However, other firms need space to expand or relocate.
7.4 Unemployment in Luton is 3.1% (April 2005). This figure compares poorly with average unemployment rates in Britain of 2.4%.
7.5 There is pressure on employment sites from other uses, mainly residential or retail. Whilst such regeneration helps meet a local need, this is at the expense of traditional employment uses.
7.6 Luton has a sub-regional shopping role, the focus for which is the Arndale Centre, within the central area. Other retail space is provided at district and local centres, local convienence shops, Gipsy Lane Retail Park and other out-of-centre locations.
Thus the economic objectives of the Plan are:
Employment
l Reducing levels of unemployment by retaining, strengthening and adding to employment opportunities in Luton
Retail
l Retaining the sub-regional shopping role of Luton and maintaining the vitality and viability of the town centre and other shopping areas whilst meeting the shopping needs of residents
7.7 The following sections on employment and retail seek to deliver these objectives, through policies that satisfy both Government guidance and local concerns.
72 Luton Local Plan 2001 - 2011 EMPLOYMENT
Introduction Economic Policy Guidance
7.8 The Local Plan recognises the value of 7.11 Regional Planning Guidance (RPG9, maintaining the availability of employment Regional Planning Guidance for the South East) land. It is also recognised that reducing identifies Luton and Dunstable as a Priority unemployment requires actions such as Area for Economic Regeneration (PAER), where re-skilling the workforce, training and employment strategies are intended to improve advice and guidance. In Luton, a package the performance of poorer parts of the region. of measures supported by key agencies and Economy external funding is currently in place. The 7.12 PPG4 (Industrial and Commercial range of regeneration strategies will ensure a Development and Small Firms) and PPG12 mix of employment types is possible so that (Development Plans) set out how development the needs of both employed and unemployed plans are expected to encourage economic workers can be met. development in their areas. They emphasise the need for local planning authorities to 7.9 This part of the Local Plan deals only with consider the principles of sustainability in industrial, warehousing and office land uses. decisions regarding the location, use and However, it is important to bear in mind that quality of employment sites, a theme that is other uses have a significant influence upon repeated in the Bedfordshire County Structure the local economy through making a wide Plan 2011. range of employment opportunities available. These include retail, health, education and Employment Land transport. Nevertheless, those are considered to be specific land use functions with 7.13 Given the shortage of land in Luton, associated job creation being a beneficial there is limited scope to meet the expectations consequence. Hence such uses are dealt with of PPG4 and PPG12 with regard to new elsewhere in the Local Plan. employment site allocations. Pressure to use employment land for other uses adds to 7.10 Luton’s employment base remains the difficulties in making the best use of the strongly focused upon manufacturing and its land that does exist in order to meet these unemployment rates continue to be above the expectations and the priorities identified in regional and national averages. The Borough the Borough Council’s Economic Development Council’s Economic Development Strategy Strategy. seeks to overcome these long-term problems by encouraging new investment, diversification 7.14 Monitoring has shown that between and skills training. The Local Plan recognises 1991 and 2001 there was a net loss of these needs and seeks to safeguard employment land of over 13 hectares. Within employment land, where appropriate, in order this net figure there were gains in offices to help meet them. and warehousing of 2.5 and 5 hectares respectively.
Luton Local Plan 2001 - 2011 73 So, the net loss from industry was some 21 hectares. Despite these losses, the total Policy EM1 number of jobs in the Borough has increased by 3,000 between 1991 and 2000. Development in key employment areas 7.15 As at September 2002 there remained a total of approximately 66 hectares of Within the existing key employment identified employment land that has yet to areas and allocated employment sites, as identified on the Proposals Map, be developed. This land is needed to meet planning permission will be granted local employment needs and to encourage for developments provided that they: appropriate new investment and diversification [A] are for business or general into more technologically based employment. industry as defined in Use Class Most of this land is at Wigmore and B1(b) or (c), or Use Class B2; or Butterfield, and includes the final phase of [B] are required to secure an Capability Green. These sites are expected to essential environmental come forward within the life of this Plan, once improvement; or infrastructure issues have been resolved. [C] meet a demonstrable need which:
7.16 The Local Plan does not identify any new (i) could not be provided areas of employment land in addition to those elsewhere within a reasonable sites referred to above. There is no scope for period of time; and further allocations, given that the Borough is (ii) will not have an adverse mostly built up to its administrative boundary. effect upon the efficient and Also, estimates of demand for sites to meet effective operations of existing and potential uses employment needs indicate that further elsewhere in the employment allocations are unlikely to be needed before area; or 2011. However, there is concern that existing small firms are constrained from expansion [D] are warehousing, as defined in Use Class B8, and either: within Luton and may relocate elsewhere. (i) in accordance with Policy 7.17 Given the pressure to release EM2; or employment land for housing, it is important (ii) demonstrably ancillary to that key employment sites are identified and another use; or safeguarded. These are identified on the [E] are uses not classified in the Use Proposals Map. A range of suitable sites Classes Order but are not out of should be retained to meet the needs of character with the function of business. They need to be readily accessible the area; and capable of being served by more energy and efficient modes of transport. It is also important that employment sites provide, [F] do not have an unacceptable wherever possible, a high level of jobs in order effect upon the amenities of neighbouring uses; to help relieve unemployment in the Borough. and
[G] enhance the appearance of previously developed land when viewed from outside the area.
74 Luton Local Plan 2001 - 2011 Warehousing Policy EM3 7.18 Luton is well located to attract warehousing development. However, Wigmore employment area warehousing uses may not attract the high employment densities needed in order to help Development of the Wigmore key alleviate local unemployment. Warehousing employment area, as defined on the Proposals Map, will be supported to also has the potential to increase traffic provide primarily for light industrial congestion and be subject to long working and office employment as defined hours, which could impact upon the amenity in Use Class B1, but including also of housing areas and other sensitive uses. an element of warehousing (Use Class B8) that has a demonstrable need to be sited adjacent to London Luton Airport, retail and related Policy EM2 services (Use Classes A1 to A3) and leisure (Use Class D2) to serve the
needs primarily of employees in Economy Warehousing the area, and a hotel (Use Class C1). In considering the details of this development, the Borough Council Planning permission will be granted will have regard to the amenity of for warehousing, as defined in Use surrounding areas, and in particular Class B8, within the key employment require that: areas (other than Capability Green identified on the Proposals Map), [A] a new vehicular access from allocated employment sites and Airport Way is provided as London Luton Airport (as defined on shown on the Proposals the Proposals Map) unless it would: Map, and no use is made of Eaton Green Road to provide [A] involve the loss of a use with a access, except for cyclists, higher level of employment pedestrians and in emergencies; potential; or and
[B] lead to night time vehicle [B] extensive landscaping be movements or other operations provided both around and within that would conflict with the area to screen and soften the residential amenities or other development; and sensitive uses; or [C] the height of buildings will [C] create additional traffic that reflect the site’s rural fringe cannot be accommodated by the setting, its high visibility from highways concerned. surrounding countryside and its proximity to London Luton Airport; and
[D] provision is made for the Wigmore Employment Area disposal of surface water to prevent the creation of problems 7.19 The Wigmore employment area was on adjoining land. established through policy EMP3 in the Borough of Luton Local Plan 1997 as a fundamental means of meeting Luton’s 7.20 The White Paper ‘The Future of Air employment needs. The site continues Transport’ identifies London Luton Airport to represent an opportunity to modernise as an important contributor to the national Luton’s economic base and to accommodate strategy for air transport provision and shows development arising from the continued two options for runway alignment. The Airport growth of London Luton Airport. Operator was required to produce a Master
Luton Local Plan 2001 - 2011 75 Plan by December 2005, setting out how the White Paper’s proposals will be implemented. Policy EM4 Both the White Paper and the Master Plan will be ‘material considerations’ in the Development outside key determination of planning applications on this employment areas site. Outside the key employment areas defined on the Proposals Map, 7.21 The proposed employment areas planning permission will be granted at Butterfield (see Policy BA1 in Action for industry, offices or warehousing, Areas chapter) will make a contribution to as defined in Use Classes B1 to B8 if it will not have an unacceptable effect employment provision, including Use Class B1 upon the amenity of neighbouring in an innovation centre and technology village. uses. Development Outside Key Employment Areas
7.22 The pattern of development in Luton has resulted in many employment uses being located outside defined employment areas. They can make an important contribution to the economy of the town, and where they have no adverse effect on adjoining housing areas they should be supported.
7.23 Government advice (PPG4 - Industrial and Commercial Development and Small Firms) recognises that it may not be appropriate to separate small-scale business uses from the residential communities for whom they are a source of employment and services. Many businesses can operate in housing areas without causing unacceptable disturbance through increased traffic, noise, smell, pollution, safety or health impacts, or other adverse effects. Live/work schemes may also add vitality to commercial areas.
76 Luton Local Plan 2001 - 2011 RETAIL
Introduction l that locations are accessible and well served by a choice of means of transport. 7.24 The Borough Council wishes to ensure that all residents have access to adequate 7.27 Luton is defined as a sub-regional and appropriately located food and non- shopping centre in the Structure Plan 2011. food retail provision, while ensuring that Both RPG9 (Regional Planning Guidance for the new retail development is consistent with the South East) and Policy 51 of the Bedfordshire aims of national retail policy. The provision Structure Plan seek to maintain and enhance and protection of retail facilities in accessible the vitality and viability of town centres, Economy locations will meet the retail objectives of the and improve the environmental quality of Local Plan. town centres for residents, pedestrians, and cyclists, so as to assist the retention of retail Retail Policy Guidance uses. To achieve this, retail development should be focused in town centres, and further 7.25 In the 1990’s concern developed as to development in out of centre locations should the growth in the use of the private car for be avoided. shopping, and the impact of out-of-centre retail development on town and district 7.28 Current Government planning guidance centres. This had led to steady increases is focused upon encouraging sustainable in the concentration of retailing in out-of- development, making the best use of land, centre locations, and caused the Government encouraging redevelopment rather than the to change the emphasis of retail policy to development of greenfield sites, and reducing focus new retail development within existing the need to travel by car. Policy 52 of the centres wherever possible, and to impose Bedfordshire Structure Plan is in accordance more stringent policy tests for out-of-centre with this by seeking to guide new major retail proposals. development to locations within or adjacent to town centres and which are accessible by 7.26 PPS6 (Planning for Town Centres) public transport, walking and cycling. urges local authorities to promote retail development in town centres and identify sites 7.29 Major retail developments are usually for development accordingly. It emphasises those with a gross trading floorspace of more the sequential approach to selecting sites for than 929 square metres (as defined in the development. When assessing retail proposals, Structure Plan). They include hypermarkets, the five key tests to be considered are: superstores, large food and non-food stores, retail warehouses, retail parks, and factory l the need for development; outlet centres. Warehouse clubs are not classified as A1 in the Use Classes Order l the appropriate scale of development; (i.e. they are sui generis). The PPS6 tests of l sequential approach to site selection; need, scale, sequential approach, impact and accessibility by a choice of means of transport, l the impact of development on existing will still be applicable in determining an centres; and application for such a use.
77 Luton Local Plan 2001 - 2011 Local Situation Survey 2001. This survey includes a Local Centre Health Check, which examines each 7.30 Independent consultants carried out local centre to assess its vitality and viability, a Shopping Study of Luton for the Borough by assessing the range of shops, the Council in 2000, which was updated in 2002. environment, range of additional facilities, and The study comprises a ‘health check’ of the number of pedestrians. central area and a forecast of the anticipated retail floor space capacity in Luton central area to 2003, 2006 and 2011. Research revealed Retail Strategy that the central area’s primary shopping catchment area: 7.34 New retail development must be based upon an assessment of need, and be located l encompasses the whole of the urban area in accordance with the sequential approach east of the M1 for convenience shopping; set out in paragraph 2.44 of PPS6. This gives whereas first preference to:
l that for comparison shopping comprises l locations in appropriate centres, taking the conurbation of Luton and Dunstable. account of an appropriate scale of development in relation to the role and 7.31 The study found that the central area function of the centre; and then has a good range of comparison shops, a low vacancy rate, strong rental levels and, for l edge-of-centre locations, with preference the most part, a good quality environment. given to sites that are or will be well- However, it also identified the following connected to the centre; and then weaknesses: l out-of-centre sites with preference given to
l the lack of a wide choice of retailers selling sites which are or will be served by a choice convenience goods (to cater for large of means of transport and which are close weekly shopping trips) and ‘bulky’ to the centre and have a high likelihood of comparison goods; forming links with the centre.
l the pedestrian/cyclist linkage between the PPS6 also requires developers to be flexible railway/bus station and the main shopping and innovative, and explore fully the possibility area is weak and poor; and of fitting development onto more central sites.
l a significant proportion of buildings in the 7.35 There is a well-established hierarchy secondary shopping areas is in need of of shopping facilities in Luton. New retail investment and repair. development in the town centre should enhance its vitality and competitiveness as 7.32 The study concludes that, in 2002, Luton the main shopping centre. Development central area is a strong centre in commercial in the District and Local Centres should terms that shows high levels of vitality and protect and enhance their local shopping and viability. The Local Plan policies seek to ensure service functions. This will contribute to the that it retains and builds upon its current sustainability of the communities that each strengths. level of shopping centre serves by meeting their needs, and maintain and enhance access 7.33 The Council carries out a biennial survey to the full range of shopping facilities for all of all local shopping centres in the Borough, sections of the community. the most recent being the Luton Shopping
78 Luton Local Plan 2001 - 2011 7.36 Luton has one main retail park, Luton Retail Park, at Gipsy Lane to the southeast of Policy S1 (cont) the central area. There are concentrations of large retail warehouse operators in Dallow (2) edge of centre locations; Road and Chaul End Lane, and there are other individual warehouse retailers in various out- (3) out of centre sites; and of-centre and edge-of-centre locations. There [B] grant planning permission for is a steady demand from large retail stores for retail development, provided: premises in the town, and few sites become (i) it is demonstrated that: available to meet this demand. (a) there are no suitable 7.37 The purpose of the retail policies is to alternative sites or buildings in any locations protect the existing shopping policy areas, higher in the retail and identify sites to accommodate new retail hierarchy; and provision. However, there is always demand to provide new or extended retail facilities (b) the vitality and viability Economy of any shopping policy outside the protected areas or allocated sites. areas in the Borough In Luton, this often relates to extensions to would not be adversely existing stores, the use of employment land affected by the for retail purposes, and occasionally involves development either on its own or in combination new retail development outside the shopping with other proposals or policy areas. Such retail facilities should not commitments; and undermine the vitality and viability of existing (c) where the proposed shopping areas or the overall retail strategy. development is to be on Any new retail proposals should be located an edge-of-centre or out- in accordance with the sequential approach, of-centre site, it will as set out in PPS6, but this does not mean provide a facility for which there is a that a proposal is automatically acceptable demonstrable need; and if a need can be demonstrated. The policy below identifies how the Borough Council will (d) the benefits associated with the proposed consider applications outside the shopping development outweigh policy areas. the loss of the existing or potential alternative use; and
Policy S1 (e) the development would not adversely affect the Retail Strategy free-flow of pedestrians in the immediate vicinity; The Borough Council will: and
[A] apply the following sequence of (ii) the scale and nature of the preferred locations in development is in keeping considering proposals for retail with the function and development as defined in Use character of the area; Class A1: or (1) locations in appropriate existing centres; (iii) it is ancillary to a petrol filling station.
Luton Local Plan 2001 - 2011 79 7.38 In applying this policy, extensions where (ii) caution should be applied when considering the gross floor space exceeds 200 square expenditure projections over a relatively metres will be treated in the same way as new lengthy period to 2011. This is because developments. the assumptions (in (i) above) need only to be slightly different from what actually 7.39 For the purposes of applying this happens in practice to result in a wide policy, the term ‘town centre sites’ refers to discrepancy as to forecast floorspace sites within the town centre shopping area, requirements. This applies particularly to identified as such on the Proposals Map. For bulky comparison goods floorspace the purpose of applying PPS6, the term ‘town projections, which are therefore only centre’ is synonymous with the ‘town centre indicative beyond 2006. That is because, shopping area’ as described above. in bulky goods, expenditure per head has exhibited a cyclical pattern rather than a Retail Allocations regular pattern of annual growth; (iii) the out-of-centre location of bulky goods 7.40 The Luton Shopping Study update of stores (i.e. retail warehouses) is such that 2003 identified that: the stores effectively serve the Luton/ Dunstable conurbation as distinct from l there is likely to be capacity for around Luton. Conversely, it may be that any 5,000 sq.m. (net) of new convenience future potential shortfall in bulky goods goods retail floorspace by 2003, with small floorspace is met, at least in part, in increases in this figure up to 2011; Dunstable.
l there is unlikely to be capacity for non- bulky comparison goods floorspace to 7.42 There is, nevertheless, a clear need to 2003 with capacity emerging in the meduim accommodate significant additional retail term (approx. 7,300 sq.m. (net) in 2006). floorspace in Luton during the plan period. This figure is likely to grow substantially to The convenience and non-bulky comparison around 21,400 sq. m. by 2011; and goods floorspace would be best located within the town centre, in accordance with planning l there will be capacity for approximately a policies at the national, county and borough further 9,200 sq.m. (net) of bulky goods level and the objectives of this plan. However, floorspace by 2003. This is forecast to it may not be appropriate to seek to provide increase to 14,100 sq.m. (net) by 2006 and bulky goods outlets (i.e. retail warehouses) continue to grow significantly to 2011. in the town centre because of the traffic implications, in terms of heavy goods vehicles, 7.41 In considering these conclusions it is associated with such developments. important to bear in mind that:
(i) the ‘capacity’ for new retail floorspace is 7.43 The area between the Arndale Centre the potential which exists on the basis of and the bus/rail stations (i.e. the Northern various assumptions as to catchment area, Gateway) has been identified for a population, personal expenditure, turnover comprehensive development scheme of floorspace (i.e. £/sq. m.), overtrading of incorporating additional retail floorspace (see stores and that a constant market share is Policy CA5). It is anticipated that the site will maintained. It is therefore not necessarily readily accommodate the need for additional an amount of additional floorspace which convenience and non-bulky comparison goods must be obtained unless failure to do so floorspace during the plan period. The Power would prejudice the achievement of the Court area has been identified for a mixed-use relevant objectives;
80 Luton Local Plan 2001 - 2011 scheme including significant non-bulky goods experience more enjoyable. In view of the retail floorspace (see Policy CA7). function and status of the Arndale Shopping Centre, and the need for it to be fully 7.44 The development of additional shopping integrated with the rest of the town centre facilities at the Northern Gateway and Power shopping area, it has been identified as the Court will effectively form extensions to the premier shopping frontage, in which there is a town centre shopping area and be an essential more restrictive approach to the introduction part of the successful implementation of of non-retail uses. Policies CA5 and CA7. However, given the scale of the projects, it is not yet possible to specify which particular part, or parts, of the Policy S2 areas will feature retail development. Town centre shopping area
Town Centre Shopping Area Within the premier, primary and
secondary shopping frontages of Economy 7.45 There has been a long-standing policy the town centre shopping area, in Luton of concentrating retail development identified on the Proposals Map, planning permission will be granted within the town centre (as defined in para for the development of: 7.39). This approach provides a focus for shopping in the Borough, which is in an l financial, professional or other services (Class A2 uses); accessible location by public transport. The high street stores and supermarkets are l restaurants and cafés (Class A3 complemented by the indoor market which is uses)1; a vital part of the wider commercial shopping l drinking establishments (Class A4 on offer. uses)1; and
l hot food takeaways (Class A5 7.46 By concentrating shopping provision uses)1; in one main location, retailers are attracted to that location, and the strength of the provided that: town centre is maintained. Retaining the [A] the premises are: strength and attractiveness of the central area as a shopping destination means that (i) above ground floor level in the premier and primary people are more likely to spend money within shopping frontages; or the Borough, as opposed to other shopping centres. (ii) in the secondary shopping area; or
Premier, primary and secondary (iii) at ground floor level in the shopping areas premier and primary shopping frontages, and the proposed use will not 7.47 PPS6 allows for the identification of result in: primary and secondary shopping areas in town centres. The primary area should be (a) more than 10% of the relevant premier identified for predominantly Class A1 retail shopping frontage uses, but there should be scope for more being in non-retail flexibility within the secondary shopping areas. (Class A2, A3, A4 and 1 The provision of other non-retail facilities e.g. A5) use; cafes, banks, building societies and leisure (b) more than 25% of the uses, attract people to the town centre and relevant primary also contribute to making the shopping
Luton Local Plan 2001 - 2011 81 District and Local Centres Policy S2 (cont) 7.49 PPS6 defines District Shopping Centres shopping frontage as groups of shops, often containing at being in non-retail (Class A2, A3, A4 and least one supermarket or superstore, and a A5)1 use; and range of non-retail services, such as banks, building societies and restaurants, as well as (c) more than two adjacent local public facilities such as a library. The units (of not greater than the normal district centres in the Borough are Bury Park, frontage width) being High Town, Marsh Road, Stopsley, Sundon in non-retail (Class A2, Park, and Wigmore. The Purley Centre in A3, A4 and A5)1 use; Marsh Farm, which is currently a local centre, and may be identified as a district centre when redeveloped. Policy MF1 establishes the [B] the proposed use would not be likely to: principles of redevelopment in this area. PPS6 defines a local centre as a range of (i) result in a change in small shops of a local nature, serving a small pedestrian movements catchment. Local centres might include a which could have an adverse effect upon the small supermarket, a newsagent, a sub-post vitality of a particular office and a pharmacy. shopping frontage; or 7.50 District and local centres are spread (ii) have an adverse effect throughout the Borough. Their presence upon the amenities of within residential areas enables people to walk nearby occupiers by way for basic shopping needs. To those without of noise, smell or other nuisance. access to a car, such centres can provide a vital service to the local community. Policy 53 of 1 The Town and Country Planning (Use Classes) the Structure Plan encourages the provision (Amendment) (England) Order 2005 came into force on of local convenience shops and community 21 April 2005, i.e. after the Local Plan Inquiry. This order facilities to serve residential areas. It is the has been reflected in this Local Plan and will be given further consideration when it is reviewed. range of convenience and other retail shops, and community facilities e.g. health centres, that are the strength of district and local 7.48 Within the premier and the primary centres. The provision of other additional shopping frontages, the ‘relevant’ ground floor facilities will also add strength and enable frontage is that which is the most appropriate people to use such centres e.g. post offices, for assessing the acceptability of the proposed cash points, telephones, car parking and cycle development, given the location of the parking facilities. Therefore, retail uses and premises in both the block and the street. If, other community uses should be located in for example, the premises are in the middle district and local centres, where opportunities of a block then the percentage of non-retail exist, and not randomly sited. The approach uses in that block would be relevant. If, on will strengthen the role of district and the other hand, the premises were on a corner local centres, by concentrating appropriate then it may be appropriate to consider only provision within them. part of the block, perhaps in conjunction with part of the adjacent block.
82 Luton Local Plan 2001 - 2011 7.51 The Borough Council’s Shopping Survey l Leagrave Road / Saxon Road 2001 and associated Local Centre Health Check l Leagrave Road / Woodland Avenue shows that most district and local centres are l Lyneham Road performing well, but some are not. These l Market Square Farley surveys conclude that some local centres no longer meet the definition or provide the l Oakley Road range of shops expected in a local centre. l Old Bedford Road Therefore, while the general objective is to l Park Street protect local centres because of the role they l Purley Centre serve, those local centres that have long-term l Putteridge Parade vacancies and are close to other shopping l Riddy Lane facilities will not continue to be protected. l Roman Road The previously defined local centres which l Round Green no longer meet the definition, and which are not considered necessary to retain in location l St Dominic’s Square Economy terms, are no longer protected. However, l Waller Avenue
Policy S3 will continue to protect the shops l Wellington Street that remain in the local centres identified on l Westway the Proposals Map at: l Wigmore Lane
l Yeovil Road / Ashcroft Road l Birdsfoot Lane North l Birdsfoot Lane South l Biscot Road / Ascot Road Policy S3 l Biscot Road / Blenheim Crescent l Bishopscote Road District and local shopping l Calverton Road centres l Castle Street / Hibbert Street Planning permission will be granted l Chapel Street for the development of non-retail l Crawley Green Road uses in the existing district and local shopping centres provided l The Crossway that the proposed development: l Dallow Road / Lyndhurst Road [A] will provide a facility which l Dallow Road / Shirley Road complements the role and l Dallow Road / Warren Road function of the centre; and l Denbigh Road [B] will provide a facility for which l Dunstable Road / Claremont Road there is a recognised local l Dunstable Road / Kingsway need; and l Dunstable Road / Stanton Road [C] will not have an adverse l Eaton Green Road affect upon the vitality or viability of the centre; and l Freeman Avenue l Grange Avenue / High Street, Leagrave [D] will provide a service principally to visiting members l Hancock Drive / Bushmead of the public; and l Hart Lane [E] will entail the effective use of l Hockwell Ring any upper floors; and l Inner Ring Road [F] retains a window display where l Kimpton Road appropriate.
Luton Local Plan 2001 - 2011 83 Local Convenience Shops 7.54 The viability of vacant shop units, either in a district or local centre or a local 7.52 Luton has a large number of corner convenience shop, will be determined when shops and mini supermarkets offering the unit has been widely marketed for at convenience goods, which provide a useful least one year, and documentary evidence service to local people, particularly those who can be provided which demonstrates that all are less mobile. As with district and local reasonable attempts to sell or let the premises centres, individual local convenience shops for continued use as a shop have failed. are spread throughout the Borough, mainly within residential areas. This enables people to walk for basic daily shopping needs, such as newspapers, bread and milk. Therefore, the Borough Council will require, where possible, the retention of local shops selling convenience goods.
Policy S4
Local Convenience Shops
Outside the shopping policy areas, planning permission will not be granted for developments that entail the loss of existing shops selling convenience goods unless:
[A] there are equivalent alternative shopping facilities within a convenient walking distance of all parts of the catchment area of the existing shop; or
[B] the existing use is demonstrably not viable.
Re-use of Vacant Shop Units
7.53 Policy S4 does not seek to continue to retain long-standing vacant shops, particularly where there are district or local centres or other convenience shops nearby. There are a number of isolated vacant shops in residential areas, which are often detrimental to the surrounding area, and not the best use of resources. The housing policies permit the conversion of isolated long-standing vacant shop units to residential purposes, subject to other planning considerations.
84 Luton Local Plan 2001 - 2011 8 INFRASTRUCTURE
East Luton Corridor Improvements, 2006
Luton Local Plan 2001 - 2011 85 INFRASTRUCTURE OBJECTIVES
8.1 The sustainable provision of appropriate infrastructure in development proposals, for major transportation and other projects, is a requirement of the Local Plan.
8.2 Luton is an important focus for road, rail and air travel. The town has a comprehensive bus network and its cycleways are being supplemented by part of the National Cycle Network.
8.3 Traffic congestion is a particular problem that needs to be addressed through the promotion of sustainable transport choices and reducing the need to travel by car.
8.4 The Local Plan seeks to provide the framework for the provision of public utilities and telecommunications. These services are in great demand, but need to be provided without local adverse impact.
8.5 Renewable energy and more sustainable waste management need to be encouraged and are key factors in delivering sustainable development.
8.6 Thus the infrastructure objectives of the Plan are:
Transportation
l Promoting public transport, cycling and walking in Luton to reduce the need to travel by car, thereby reducing congestion and motorised transport’s contribution to greenhouse gases
Utilities
l Accommodating the demand for telecommunications, managing waste in a sustainable way, and accommodating future energy needs
8.7 The following sections on transportation and utilities seek to deliver these objectives through policies that satisfy both Government guidance and local concerns.
86 Luton Local Plan 2001 - 2011 TRANSPORTATION
Introduction 8.11 London Luton Airport handled approximately 7.5 million passengers, and 27,000 tonnes of airfreight in 2004. Most of the airfreight is transported to and from 8.8 Luton occupies a significant location the Airport by road. The airport has been between London and the South-East and designated as an Action Area and is the subject Birmingham and the Midlands. The M1 of a specific section of this plan. motorway passes through the western part of the Borough and there are two junctions, one
8.12 Many facilities, schools and local shops Infrastructure for north and western Luton, the other for the in particular, are within walking distance of central area and London Luton Airport. The people’s homes; nearly a quarter of residents A6 runs north-south and the A505 runs east- walk to work or school at least twice a west through the town. Both are part of the week, and half walk to shops at least once a regional road network. The A505, to the east week (Citizens’ Panel Survey, 2000) making of the town centre, provides access to London walking the second most important means of Luton Airport and major development sites, transport, after the car, for these activities. including Kimpton Road (the former Vauxhall car plant), Butterfield and Wigmore. 8.13 The continuing increase in car travel has meant worsening traffic congestion and 8.9 The town has a comprehensive local bus pollution, with congestion exacerbated by service network, and there are also a number the densely built-up nature of the town, of supported daytime services linking nearby constrained as it is by environmentally towns and villages with Luton. The proportion sensitive areas. The M1 motorway operates of journeys made by bus is higher than in above its design capacity for most of the most comparable urban areas. In addition day, and is regularly heavily congested, to services provided by local bus companies, with stationary traffic during morning peak there are a number of express coach services periods. The urban distributor roads are also to and from Luton Bus Station and London extremely busy. Several of the busiest roads Luton Airport, serving regional and national are important local bus routes and most are destinations. residential roads. Congestion is recognised as having an adverse effect on local businesses, 8.10 Luton has three railway stations: Luton, particularly those involved in ‘just in time’ Luton Airport Parkway and Leagrave. All manufacturing and distribution, and is a are served regularly by Thameslink Rail Ltd., deterrent to new employment-generating which offers the ability to commute into Luton investment. from nearby towns and villages as well as out-commute to London. Midland Mainline offers longer distance services providing links Government Policy with London St Pancras, Leicester, Derby, 8.14 The Government set out its policy for Nottingham and Sheffield. transport in the White Paper ‘The Future of Transport’ (July 2004) which aims to balance
Luton Local Plan 2001 - 2011 87 the need for travel with the need to improve cycling and walking. The LTP sets out a clear the quality of life, thereby contributing to view on the relative importance of alternative the aims of sustainable development. Land modes in delivering transportation objectives, use planning is seen as having a key role in as follows: delivering the Government’s policy, and PPG13 (Transport) sets the following objectives: l public transport
l l to promote more sustainable transport walking choices for both people and for moving l cycling freight;
l freight access l to promote accessibility to jobs, shopping,
leisure facilities and services by public l taxis transport, walking and cycling, and l powered two-wheelers l to reduce the need to travel, especially by car. l private hire vehicles
l cars and through traffic. Regional Planning Guidance for the South East (RPG9) reinforces the above guidance. 8.18 The rationale for making public transport Structure Plan the top priority is that improvements to public transport are more likely to increase social inclusion and achieve a modal shift from the 8.15 The transport policies of the current car, rather than improvements to walking Structure Plan seek to integrate all forms of and cycling. However, walking remains transport, reduce both the need to travel and fundamentally important especially because of the distances travelled, prioritise pedestrians, its part in any public transport journey. cycling and public transport, and enhance economic opportunities. Transport Strategy
8.16 In accordance with Government 8.19 The LTP incorporates the Luton- guidance, the Structure Plan supports and Dunstable Transport Strategy. This Local Plan promotes an Integrated and Sustainable incorporates policies which, when applied to Transportation Strategy that aims to reduce development proposals, will contribute to the the need to travel, particularly by private car, implementation of the strategy. They include and encourage an overall modal shift from measures which: the private car to public transport, cycling and
walking. l enable a higher proportion of journeys to be made by public transport, walking and Local Transport Plan cycling;
8.17 Local transport policy is set out in the l improve public transport accessibility for Local Transport Plan (LTP) for the Luton, every member of the community; Dunstable and Houghton Regis conurbation. l improve the attractiveness, frequency and It aims to improve personal mobility, with reliability of public transport services, and improved access for goods and services, and support and assist measures to improve the with special emphasis on integrated transport safety and personal security for those using solutions to encourage public transport, public transport;
88 Luton Local Plan 2001 - 2011 l identify, safeguard, improve and extend a density and compact nature of Luton mean, network of pedestrian and cycle routes; however, that public transport, walking and cycling can be viable alternatives to the car for l improve integration between different many journeys. modes of transport;
8.22 Controlling the location of new l promote sustainable freight distribution; development to minimise the need to travel l support traffic management and calming or facilitate journeys by means other than the schemes; private car, is an important element of the policies and plans referred to above. PPG13 l conform with the maximum parking (Transport) states that, in making decisions standards appropriate to the location and relating to jobs, shopping, leisure and services, type of development as set out in Appendix local planning authorities should: 4 to this plan; and
l consider the availability of public transport l improve the environmental quality of and opportunities for walking and cycling; Infrastructure transport corridors.
l relate the density of development to its accessibility by public transport; Policy T1 l require Transport Assessments to accompany applications for larger Transport Strategy developments; and
Planning permission will be granted l ensure maximum use of key sites most for development provided that it: accessible by non-car modes. [A] reduces the need to travel, particularly by private car, and 8.23 National and Regional Planning Policy [B] enables the use of sustainable Guidance (PPG13 and RPG9) encourage local transport. authorities to promote the development of Travel Plans for all major travel generating activities, both existing and proposed. The Borough Council is seeking to raise awareness 8.20 The strategy will be reviewed during of the impacts of travel decisions and promote the lifetime of this Local Plan. Developers will the widespread use of Travel Plans amongst therefore need to ensure that they have regard businesses, schools, hospitals and other to, and comply with, what is the current organisations in order to deliver its transport strategy when the application is submitted. objectives. Location of New 8.24 Policy T2 ensures a greater integration Development of land use with transportation and seeks to ensure that developments which will have 8.21 Travel to work figures demonstrate the significant transport implications, are well dominance of car travel and the short distances served by public transport. of the majority of journeys in Luton. The town’s radial road pattern and lack of proper ring road, exacerbated by the local topography, means that most road traffic is funnelled into the central area or along a small number of other key routes. The high population
Luton Local Plan 2001 - 2011 89 relate to targets in the Local Transport Plan, Policy T2 and should set out the arrangements for monitoring the progress of the plan, as well as Location policy the arrangements for enforcement in the event that agreed objectives are not met. Wherever Proposals for development with possible, the Borough Council will make potential to have significant transport Travel Plans binding either through conditions implications will not be permitted, unless it can be demonstrated that attached to a planning permission or through either: a related planning obligation.
[A] the site is served by public transport with sufficient Traffic Implications of New capacity to meet the potential Development demand generated by the proposed development; or 8.27 The Borough Council will seek to [B] public transport will be provided minimise additional traffic associated with new to meet the anticipated demand development, which can exacerbate existing or generated by the development. cause new problems. Developers will be required to submit Transport Assessments and Travel Plans with such applications which: Policy T3
(i) demonstrate that arrangements Traffic implications of have been made for the implementation and monitoring development of the Travel Plan; and Development will only be permitted if traffic generated by the proposal (ii) ensure compliance by occupiers would not: of the development. [A] exacerbate road congestion, particularly at peak hours; or
[B] cause safety problems for 8.25 The criteria which the Borough Council pedestrians, cyclists or other will apply in determining whether a proposed road users, or development could potentially have significant [C] be likely to cause demonstrable transport implications, and whether a harm to the quality of the local Transport Assessment is required, are set environment. out in Appendix 6. The assessment should illustrate accessibility to the site by all means of transport, and the likely distribution of Mobility journeys to and from the site by each of these 8.28 Social inclusion is a key objective of modes. It should also give details of proposed the Borough Council and the transportation measures to improve access by public policies set out in the Local Transport Plan. A transport, walking and cycling, to reduce the number of relevant transport schemes have need for parking associated with the proposal been implemented including the provision of and to mitigate transport impacts. those listed below, and similar facilities may be required in new schemes: 8.26 The criteria which the Borough Council
will apply in determining whether a Travel Plan l improved access to public transport for is required are set out in Appendix 7. The plan disabled people and people with mobility should have measurable outputs, which difficulties;
90 Luton Local Plan 2001 - 2011 l shopmobility schemes; 8.30 The proposed Translink guided busway system lies at the heart of the Integrated l convenient parking spaces for people with Transport Strategy, taking advantage of the disabilities; and opportunity offered by the former railway l measures to incorporate the needs of branch line between Dunstable and Luton disabled people and people with mobility Airport Parkway Station, via Luton town difficulties, into new and improved road, centre. Access points along the busway will footway and pedestrianisation schemes. allow this express bus corridor to be used by a number of services across the wider Luton- Dunstable conurbation. Policy T4 8.31 The scheme will incorporate improved Mobility passenger facilities and features such as real-time passenger information, improved The Borough Council will require shelters, level boarding and off-bus ticketing. Infrastructure all new developments, including As such, the Translink scheme will facilitate a transport infrastructure, to be accessible to, and useable by, people step-change in the quality of public transport with mobility difficulties. provision. The greatest impact in terms of the share of journeys undertaken by bus will be felt in the central area and at London Luton Public Transport Airport. It will make a major contribution to the modal shift targets included in the Buses Airport’s Surface Access Strategy. An extension of the network to a Park and Ride 8.29 Buses play an important role in Luton’s site at Junction 10a of the M1 motorway is transport system, but there are problems of also proposed in association with development punctuality, inadequate frequencies, lack of proposals set out in Policy SA1 of this plan, direct services to required destinations and a although the precise route has yet to be lack of buses early in the morning or late at finalised. night. In addition, demand forecasts have demonstrated that, without the development 8.32 It is envisaged that the Translink of a high-quality public transport system, the scheme will be delivered by a public-private underlying trends in income and car ownership partnership. The Borough Council will seek will result in a fall in the share of journeys planning obligations to secure private sector undertaken by bus. Against this background, contributions to the scheme’s infrastructure the Borough Council’s Integrated Transport in cases where development proposals are Strategy seeks to maximise bus use as a major likely to generate additional use of the system, contributor towards reducing the overall or it is necessary to bring forward planned demand for travel, reducing car dependency, provision in order to overcome a public reducing the energy consumed and pollution transport deficiency which would otherwise generated by travel and securing the maximum lead to a refusal of planning permission under benefits for local environmental quality, social Policy T2. inclusion and the local economy. The Strategy also acknowledges the important but more limited contribution that rail, taxis and private hire services can make.
Luton Local Plan 2001 - 2011 91 8.34 Where developments are sufficiently Policy T5 large, the Borough Council will seek contributions from developers, through Section Translink 106 Agreements, to facilitate access by public transport through infrastructure and/or service The development of a guided enhancements, appropriate to the location and busway (the Translink scheme) along the line of the disused Luton- nature of the proposed development. Dunstable railway line as shown on the Proposals Map, and its Trains southern extension, is proposed. Planning permission for development 8.35 With the introduction of improved rail proposals that prejudice links with London over recent years, including implementation of the busway or electrification and the Thameslink scheme, linkages to it will not be granted. the principal function of Luton’s rail services has become to provide access to London for commuters from the town’s three railway 8.33 Bus priority schemes will also be stations. However, rail services are also implemented. These schemes will comprise a important for commuting, business and leisure combination of bus lanes, traffic signal priority access into the town, including passenger measures, improved bus stops and passenger access to the Airport, locally and regionally. information, including Real Time Passenger The Strategic Rail Authority’s Network Information Systems. Priorities for action will Management Statement lists several proposals be identified on the basis of the levels of bus for the Thameslink and Midland Mainline and general traffic, the severity of congestion routes, including the Thameslink 2000 scheme and the presence of schemes already for enhanced capacity and better interchange committed or in operation. facilities across London.
8.36 PPG13 (Transport) recognises that quick, easy and safe interchange is essential Policy T6 to integration between different modes of transport and the promotion of more Bus accessibility sustainable travel choices. Local authorities All major development, highway and are encouraged to identify interchange related proposals must: improvements that need to be made and to seek funding through Local Transport Plans, [A] be designed to accommodate Rail Passenger Partnerships, public-private access by bus; and partnerships and planning agreements. They [B] include: should also ensure that the design, layout (i) appropriate infrastructure to and access arrangements of interchanges support passenger access to and surrounding development are safe and buses; and convenient so as to maximise the walking and cycling catchment population for public (ii) traffic management and highway improvements; and transport services.
(iii) infrastructure for passenger information.
92 Luton Local Plan 2001 - 2011 8.40 The use of cycles in Luton is currently Policy T7 limited. Improvements to the route network, including completion of the National Cycle Transport interchange Network Route 6 (Milton Keynes to St. Albans) through the town (as shown on the The Borough Council will require Proposals Map), will be supported by provision proposals for development at railway stations and other modal of complementary infrastructure, including interchanges to make effective further secure cycle parking at leisure, provision for pedestrians, cycles, recreation, health and shopping centres. The buses and taxis. provision of cycle parking will also be required in new developments in accordance with the standards set out in Appendix 5 to this plan. Further initiatives to encourage cycle use will Walking and Cycling include identification of safer routes to schools
and encouraging local employers to adopt Infrastructure 8.37 Together with public transport, walking cycle-friendly initiatives in Travel Plans. and cycling are the only modes of travel available to people who do not have access to a car. Walking and cycling are also beneficial to people’s health. Policy T8
8.38 PPG13 (Transport) encourages local Walking and Cycling authorities to promote safer walking and cycling. PPG3 (Housing) requires local planning The Borough Council will require new development and highway schemes authorities to place the needs of people before to take into account the needs of ease of traffic movement in designing the pedestrians and cyclists and the need layout of residential developments and to seek to promote walking and cycling. New to reduce car dependence by facilitating more developments will only be permitted if: walking and cycling. The Borough Council has prepared Walking and Cycling Strategies for [A] existing pedestrian and cycle Luton, which build upon objectives and policies routes are protected or equally convenient alternatives provided, in the LTP, to encourage these activities. where appropriate; and The strategies seek to ensure that policies to increase cycling and walking are fully [B] safe, convenient and attractive integrated into the Local Plan. pedestrian and cycle access is provided within the development and to and from residential 8.39 The Borough Council’s town centre areas, local shops, schools, strategy seeks to give pedestrians priority community and leisure facilities over all other modes of transport in the and bus stops; and town centre. The pedestrianisation already [C] through routes across and/or completed has given the main shopping streets around major sites are provided back to people rather than vehicles and has where these will deliver improvements to the pedestrian created a more pleasant environment in which and cycling networks; and people-based activities are now a regular feature. Further improvements will be made to [D] a contribution is made to the implementation or enhancement pedestrian circulation within the town centre, of the strategic footpath or with a view to encouraging walking and cycling networks as shown in the discouraging the use of cars for short journeys. Borough Council’s Walking
Luton Local Plan 2001 - 2011 93 Policy T8 (cont) Policy T9
and Cycling Strategies; and Freight
[E] convenient and secure cycle The environmental impact of freight parking is provided in movement will be limited by: accordance with the standards set out in Appendix 5 to this [A] restricting heavy goods vehicles Plan. in the Borough to particular routes and, where appropriate, In respect of employment-generating prohibiting, except for loading development proposals, the and unloading, lorries over 7.5 Borough Council may seek planning tonnes gross vehicle weight obligations for the provision of from residential and other showers and changing facilities for sensitive areas; and cyclists. [B] restricting operations or deliveries to particular times and/or categories of vehicle, in cases where, in the absence of such controls, there is likely to Freight Distribution be harm to residential amenity; and
8.41 The Government’s ‘Sustainable [C] permitting proposals for new Distribution Strategy’ (March 1999) states lorry parks only if: that land use planning can help to promote (i) it is demonstrated that sustainable distribution including, where there is a need for the feasible, the movement of freight by rail. facility; and The Bedfordshire Structure Plan 2011 also (ii) they are located within key encourages a shift away from road-borne employment areas with freight. In accordance with these policies, good access to the strategic the Council will seek, wherever possible, to road network; and facilitate and achieve a shift in the transport of (iii) they do not cause harm to goods from road to rail. However, road freight the environment or is likely to remain at the core of the local residential amenity; and distribution system for the foreseeable future, (iv) there is capacity on the and the Council will seek to implement a local highway network to Freight Quality Partnership which is consistent accommodate heavy goods with the ‘Sustainable Distribution Strategy’. vehicles.
8.42 The relatively high proportion of Luton’s economic activity involving manufacturing Taxis and distribution means that there is strong demand for overnight goods vehicle parking 8.43 Hackney Carriages (taxis), together with in and around the Borough. Additions to the Private Hire Vehicles (PHVs), are a significant supply of such parking accommodation will part of an integrated transport system, often be permitted, provided that a need for the meeting a demand which cannot readily be facility can be demonstrated; and provided met by local bus or rail services. They perform that the site is acceptable in terms of amenity, an important role for people with mobility environmental impact and highway capacity. difficulties (Hackney Carriages in Luton are wheelchair accessible), vulnerable travellers (for example, women travelling alone at
94 Luton Local Plan 2001 - 2011 night), those carrying heavy luggage, and contribute to planning objectives in a number as a link in a long distance public transport of ways, including: journey. Taxis and PHVs are also one of the l reducing community severance, noise, local main forms of transport available at night and, air pollution and traffic accidents; therefore, make an important contribution to the economic well-being of the town’s l promoting safe walking, cycling and public nightlife. Taxis enable those without their own transport across the whole journey; car to have access to such leisure facilities, and provide a convenient and alternative form of l improving the attractiveness of urban areas transport. Taxis and PHVs can also have a role and allowing efficient use of land; to play in the development of Travel Plans (see l helping to avoid or manage congestion paragraph 8.26, above). pressures which might arise in central areas from locational policies; and 8.44 The Borough Council is concerned to ensure that the existing capacity of taxi l applying resident parking schemes and Infrastructure ranks (for Hackney Carriages) is retained at other controls to avoid on-street parking in appropriate locations and increased where areas adjacent to developments with necessary and particularly in the context of limited on-site parking. other demands for highway space. Where new developments are likely to generate a 8.46 New residential areas should be significant demand for travel by taxis, either designed to encourage safe traffic speeds and because of the nature of the use or the may be car free where there is sufficient access scale of the development, developers will be by non-car modes. required to provide facilities for taxis to pick up and set down passengers. Policy T11 Policy T10 Traffic Management Taxis The Borough Council will control Where development involves the loss and manage traffic on the highway of existing taxi ranks, appropriate network in order to: replacement capacity should be provided. Major new developments [A] give priority to local bus services; may be required to make provisions and for access by, and waiting areas for, taxis. [B] promote a safe and convenient environment for pedestrians and cyclists; and Traffic Management [C] improve the quality of the local environment.
8.45 Government guidance set out in PPG12 (Development Plans) and the Town 8.47 Luton’s Safety Around Schools (SAS) and Country Planning Act 1990 state that initiative aims, amongst other things, to development plans should include policies in improve the safety of children on the journey respect of the management of traffic. PPG13 to and from school. Where appropriate, (Transport) suggests that well designed traffic traffic management works such as junction management measures (i.e. measures which improvements and raised crossings close to manage the use of existing road space) can schools will be undertaken as part of the
Luton Local Plan 2001 - 2011 95 project. As with development proposals at 8.51 Completion of the Inner Ring Road will commercial sites, Travel Plans will normally be provide an alternative to Guildford Street made a condition of planning permissions for for through traffic. It will remove from the new schools or extensions to existing ones. central area traffic that has no need to be there and which conflicts with the needs of Roads pedestrians, local bus services, cyclists and essential traffic. 8.48 An essential element of the transportation strategy of the Local Transport 8.52 Completion of the Luton East Circular Plan is the improvement of roads, and the Road (North) between Stopsley and the construction of a limited number of new A6, including a link to Barton Road along ones. Most of these roads are not designed the line of Weybourne Drive, will allow the primarily to give additional capacity, but rather introduction of traffic calming measures to to overcome existing environmental problems certain routes, the diversion of some traffic caused by traffic and to facilitate the efficient away from the town centre, and improve operation of public transport services. access to the Airport and employment areas along Airport Way (A1081) and Vauxhall Way 8.49 The Local Plan is required to safeguard (A505). land required for committed motorway schemes. The Highways Agency has published 8.53 Outside the Borough boundary, proposals to widen the M1 motorway construction of a northern by-pass for northwards from the M25. The Borough Dunstable and Luton is proposed in the Council recognises the economic benefits that Structure Plan. This will relieve several will result from increasing capacity, including roads within the Borough of much through improved access to the Airport. Although traffic, particularly along the Icknield Way details of the widening between Junctions 10 / Bramingham Road / Leagrave High Street and 13 have not yet been finalised, the Local route. Plan safeguards land that may be required for the scheme. Works to widen the section of the M1 from Junction 6A to 10 (including Policy T12 Junction 10) are likely to start in 2006. As this section of the widening scheme is at a Road Proposals more advanced stage than the Junction 10 to 13 proposals, the affected areas within Luton Land will be safeguarded for the following road building and (near Junction 10) are safeguarded on the improvement schemes: Proposals Map. [A] Department for Transport schemes: 8.50 A major scheme identified in the LTP is improvement of the East Luton Corridor, (i) M1 route upgrading and comprising Airport Way (A1081) and Vauxhall junction improvements; Way (A505) between the M1 motorway [B] other schemes of strategic (junction 10A) and the Hitchin Road/Stopsley importance, including: Way junction. Improvements are needed to (i) East Luton corridor, between support the expected growth in passengers junction 10A and Stopsley at the Airport and the extensive employment- Way/Hitchin Road, with a generating opportunities which exist in east new spur to London Luton Luton. Airport;
96 Luton Local Plan 2001 - 2011 walking, cycling or public transport. A Policy T12 (cont) maximum provision of 1.5 spaces per dwelling, on average, is advocated for urban areas. (ii) completion of the Inner Parking standards based on government Ring road; guidance are included in Appendix 4 to this plan and these will also generally be (iii) Luton East Circular Road (North), including the applied to smaller developments below the Weybourne Link; relevant thresholds. Except in respect of parking for disabled people, they will be [C] other schemes, including: applied as a maximum unless applicants (i) Gipsy Lane / Windmill Road have demonstrated, through a Transport improvement; Assessment, that a higher level of parking is (ii) Chapel Street / Windsor needed. In such cases applicants should show Street / Castle Street the measures they are taking (for instance in junction improvement; the design, location and implementation of Infrastructure (iii) Hitchin Road / Butterfield the scheme) to minimise the need for parking. Green Road / Cannon Lane junction improvement; 8.56 The location policy of this Local (iv) access to Wigmore Plan (Policy T2) seeks to ensure a greater Employment Area. integration of land uses with transportation requirements, by concentrating traffic generating development in areas which Parking are well served by public transport and are accessible by walking and cycling. In areas 8.54 The availability of car parking has a which are highly accessible by these modes major influence on the means of transport of transport, the Borough Council may in people chose for their journeys. Car parking certain circumstances restrict the amount of also takes up a large amount of space in parking in new developments to levels below development, is costly to business and reduces the maximum parking standards set out in development densities. PPG13 (Transport) Appendix 4. It may, for example, permit car- states that ‘reducing the amount of parking free housing if a demand is demonstrated. In in new development (and in the expansion the central area in particular, parking provision and change of use in existing development) is will be limited to that required for essential essential, as part of a package of planning and operational purposes only, and in practice transport measures, to promote sustainable this will mean that for many developments no travel choices’. parking will be permitted.
8.55 The Local Plan sets maximum levels of Luton’s Parking Strategy is aimed at: parking for broad classes of development, for the above reasons. PPG13 itself sets l improving the security and quality of the maximum standards for a range of major off-street parking stock; developments, above particular thresholds, l managing central area parking to which should be applied as a maximum encourage short-stay rather than long-stay throughout England. PPG3 (Housing) requires parking; local planning authorities to allow for significantly lower levels of off-street parking l managing existing on-street parking provision in new residential developments, through effective control and enforcement; particularly for those in locations such as town centres where services are readily accessible by
Luton Local Plan 2001 - 2011 97 l expanding controls in residential and visitors and customers. In all areas, business areas experiencing problems; appropriate on-street parking will be provided for disabled people who rely on the use l managing private parking through land use of a vehicle for mobility. The Council will policies and development control; and encourage shared access to private parking spaces in and around central Luton. l moving long-term commuter car parking to edge of town Park and Ride sites. 8.58 Park and Ride has the potential to play an important role in intercepting car journeys Policy T13 at the edge of the urban area and transferring drivers and passengers to public transport, thereby reducing congestion and pollution Parking in the town and reducing the demand for long-stay parking in the town centre. This Development will only be permitted where: Local Plan safeguards sites at Stockwood (adjacent to the M1 motorway, junction 10A) [A] the proposed parking provision and Butterfield for Park and Ride facilities. is necessary and does not exceed the maximum standards The latter site will be well placed to intercept set out in Appendix 4 to this car journeys to employment locations in plan unless the applicant has the East Luton Corridor area as well as to demonstrated that a higher the town centre. Further sites around the level of parking is needed; periphery of the Luton/Dunstable/ Houghton [B] private non-residential parking Regis conurbation, but outside the Borough provided in association with boundary, are being considered by adjoining new development within the local authorities. To maximise passenger defined central area is limited to that which can be justified for transfer, significant investment will be made in operational purposes only; bus priority measures for the corridors which the Park and Ride sites serve, including, in the [C] new car parks or extensions of existing car parks for public use case of Stockwood, implementation of the within the defined central area Translink project in accordance with Policy T5. replace or improve the quality of existing car parks, so that there is no net additional provision of public car parking spaces.
8.57 Within the central area, parking charges will continue to be set to encourage rapid turnover of on-street spaces, whilst public off- street parking will be maintained at its present level and priced to cater mainly for demand by short-stay users. In an intermediate zone around the central area and in other parking ‘hot-spots’ elsewhere, the Borough Council will continue to implement controlled parking zones which manage available space in favour of local residents, local businesses, and their
98 Luton Local Plan 2001 - 2011 UTILITIES
Introduction 8.62 A revised PPG8 (Telecommunications) was published in 2001. This updates guidance 8.59 This section deals with to take into account developments in telecom telecommunications, public utilities and waste technology and changes in permitted management, all part of the infrastructure development rights that apply to operators. required for development. PPG12 states that, The Government’s policy is to facilitate the in preparing plans, authorities should consider growth of telecom systems whilst keeping the requirements of the utilities companies environmental impacts to a minimum. for land to enable them to meet the demands Infrastructure that will be placed upon them. It also states 8.63 Visual impact is an important that authorities should consider the wider consideration in determining applications, environmental effects of increased demand, particularly close to sensitive sites such as both in terms of the additional need for basic schools and residential areas. Where a mast resources and of the associated emissions to is due to be installed near a school or college, air, land and water. developers should discuss the proposal with the relevant educational body before 8.60 The Structure Plan 2011 states that submitting the application. developers will be expected to contribute to the provision of infrastructure made necessary 8.64 Operators should explore the potential by their developments to avoid unacceptable for mast sharing, and they should also explore costs on the community. the possibility of erecting new masts on existing buildings or other structures. However Telecommunications mast sharing may not always be the optimum solution, as masts with several systems can 8.61 The recent increased use of mobile sometimes look ungainly and actually increase phones has led to an increasing demand visual intrusion. Good design is vital and for telecom masts. Telecom development developers should look at ways of using is subject to development control but much camouflage to minimise the visual impact minor development, such as the installation of on the environment. Screening and planting some residential satellite dishes, is ‘permitted can also be used to help blend the apparatus development’ under the General Permitted into the landscape. The ODPM’s ‘Code of Development Order 1995 and hence does not Best Practice on Mobile Phone Network require planning permission. Telecom code Development’ 2002 gives more advice on these system operators also enjoy a general planning matters. permission, subject to certain exclusions. In these cases, the operator has to make a 8.65 Concerns have been expressed about the ‘prior approval’ application, which allows the health risks of telecom development. Health authority to consider, within 56 days, the siting considerations can be a material consideration and appearance of the proposed development. in determining applications. However, if a proposed mobile phone base station meets the
Luton Local Plan 2001 - 2011 99 International Commission for Non Ionizing surplus to requirements, redevelopment for Radiation Protection guidelines for public other uses will be supported, provided that exposure, this would demonstrate that public they comply with the relevant development health concerns have been addressed. plan policies.
8.67 The Hart Lane Reservoir site may become Policy U1 surplus during the plan period. However, it is a site of nature conservation interest, Telecommunications so this is unlikely to be acceptable for built development development. Planning permission will be granted New Infrastructure Provision and prior approval proposals will be supported for telecommunication development provided that: 8.68 The provision of appropriate infrastructure is important for all major [A] installations have been development. One of the roles of the planning designed, sited and system is to co-ordinate new development appropriately landscaped to minimise their impact on with the infrastructure demands. In this amenity; and policy, infrastructure means water supply (including bore holes), surface water drainage, [B] the development would not harm the setting of a listed electricity, gas and sewerage provision. building, or the character of a conservation area, or any other 8.69 Major developments may lead to area designated for its additional infrastructure needs such as landscape, historic or nature conservation importance; and reservoirs, pipelines or treatment works. These demands may have impacts on the [C] the equipment does not detract environment that may extend beyond the from the appearance of the building on which it is proposed Borough’s boundaries. The adequacy of to be erected; and infrastructure can be a material consideration in deciding whether to grant planning [D] the developer has demonstrated permission. Where the lack of adequate that opportunities for sharing sites accommodating existing infrastructure is likely to result in the delay of telecommunication equipment an otherwise acceptable scheme, it may be have been fully explored before necessary to seek that the developer enters proposals for new sites are into a legal agreement to fund the necessary submitted; and facility. [E] the proposed installation complies with the national guidelines in respect of exposure of members of the Policy U2 public to electromagnetic fields. Infrastructure provision in major new developments Public Utilities Sites Planning permission for major new developments will not be granted 8.66 Land in public utility use includes unless it can be demonstrated that electricity sub-stations, gas works, telephone the infrastructure provision either: exchanges, and water supply and sewerage installations. Existing public utility facilities [A] meets the needs of the development; or will be safeguarded, but when these become
100 Luton Local Plan 2001 - 2011 large-scale renewable energy projects in Policy U2 (cont) Luton is likely to be limited. Nevertheless, technological advances during the plan period [B] will be provided in time to may make these viable in the town. serve the development.
8.72 The Structure Plan 2011 encourages the exploitation of renewable energy sources, such Renewable Energy as wind, solar, the combustion of fuel from crops and landfill gas. Combined Heat and 8.70 Renewable energy is defined in PPS22 Power (CHP) initiatives, as part of new and (Renewable Energy) as energy flows that occur existing developments, have the potential for naturally and repeatedly in the environment, providing sustainable, local power sources. such as energy from the wind, the fall of In the UK, only 5% of power currently comes water, the movement of oceans and from the from CHP. Even though most CHP schemes sun. It also includes the heat from the earth are powered by natural gas, these are more Infrastructure itself and energy from plant and digestible environmentally benign than power generated waste materials. These sources can reduce through the national grid. dependence on fossil fuels, reduce harmful emissions to the atmosphere and provide 8.73 However, small-scale proposals such as economic benefits. for photovoltaic (PV) systems on buildings, solar water heating and small wind turbines 8.71 Government policy is to stimulate the to power lighting are all viable and desirable exploitation and development of renewable within the urban area. PV technology can energy sources wherever they have prospects play a part in delivering renewable technology of being economically attractive and targets and may be integrated into commercial environmentally acceptable. PPS22 suggests and domestic buildings for converting solar that local authorities should include policies energy direct into electrical energy. The that require a percentage of the energy to Technical Annex within the Companion Guide be used in new residential, commercial or to PPS22 suggests that the determination industrial developments to come from on- of planning applications for new buildings site renewable energy developments. The incorporating PV should assess the impact that Government’s national target is to generate the system would have on visual amenity. The 10% of UK electricity from renewable energy use of PV systems on existing buildings is likely sources by 2010. The Government recently only to require permission if it represents a published its ‘Energy Review’ report, and material alteration of the external appearance this recommends an aspirational national of the building. Therefore, the Council will renewable energy target of 20% by 2020. seek to ensure that large new buildings Currently only 0.45% of energy in the Eastern incorporate renewable energy generation Region comes from renewable sources. equipment. However, the Government Office for the East of England is now promoting a regional target of 14% of electricity to be produced from Policy U3 renewable energy sources by 2010. It suggests that in Bedfordshire and Luton, this target Renewable energy generation should be 13%. Considering that Bedfordshire within new buildings is a relatively small county, this is a challenging target. As sites for such facilities will usually All proposals for new buildings totalling 1,000 square metres be proposed in rural areas, the potential for
Luton Local Plan 2001 - 2011 101 8.75 The Borough Council is also a waste Policy U3 (cont) planning authority, and has worked closely with Bedfordshire County Council to produce floorspace or more will be required a Minerals and Waste Local Plan (MWLP). The to incorporate renewable power generation equipment to provide at current MWLP was adopted in January 2005. least 10% of the predicted energy requirements for those buildings, 8.76 There are currently two household waste unless it can be demonstrated that recycling centres in the town. The site at there are overwhelming practical reasons why this is not appropriate. Eaton Green Road was modernised in 2005 to cater for the increase in waste. The second site at Progress Way opened in 2004 and forms a fundamental part of a new 12 year waste management and recycling contract Policy U4 which commenced in 2004. In order to fulfil the Audit Commission’s recommendations the Renewable energy proposals Borough Council would need to identify a site for a third household waste recycling facility Planning permission will be granted for proposals in connection with during the plan period, although it is not yet the generation of renewable energy clear if a suitable site can be found. However, provided that: there are a number of sites that have the [A] there would not be an potential for further investigation. unacceptable adverse impact on the amenity of nearby residents 8.77 The proportion of household waste and other occupiers; and recycled in Luton is currently about 20%, and [B] there would be no significant this figure is expected to increase significantly adverse environmental impacts, during the plan period. Most locally generated particularly on designated areas waste is still transported to Bedfordshire, of landscape or conservation where it is put into landfill sites. However, interest, or operational impacts on London Luton Airport. the Borough Council is working to reduce the dependence on landfill in line with the provisions of the Minerals and Waste Local Waste and Recycling Plan. The Borough Council will seek the provision of more recycling facilities, for 8.74 Government planning advice on waste example, within major new developments management is described in PPS10 (Planning that attract large numbers of people. Where for Sustainable Waste Management). The appropriate these will be secured through a planning system has an important role to play planning agreement under Section 106 of the in achieving sustainable waste management. Town and Country Planning Act 1990. The Borough Council is a waste collection and a waste disposal authority. In 2001 a 8.78 No policies on waste development Waste Strategy was produced with the other have been included in this Plan, as this Bedfordshire local authorities. This provides a would duplicate policies in the Minerals and foundation for the management and planning Waste Local Plan. All planning applications of waste in the context of new European for minerals and waste development will be and National waste policy. It aims to achieve considered against the policies in the Minerals the fundamental shift in waste management and Waste Local Plan, the Luton Local Plan in accordance with the waste hierarchy of and any relevant Supplementary Planning minimise, re-use, recycle, thermal treatment Documents. and landfill.
102 Luton Local Plan 2001 - 2011 9 action areas
London Luton Airport Control Tower
Luton Local Plan 2001 - 2011 103 action areas OBJECTIVE
9.1 There are a number of areas within the town where comprehensive treatment by redevelopment or improvement is required, or the planning issues are such that they need to be dealt with separately from the previous chapters of the Plan.
9.2 PPG12 (Development plans) states that a local plan may designate any part of an authority’s area as an ‘action area’; that is an area selected for comprehensive treatment by public authorities or private enterprise. The prescribed period for Action Areas is ten years from the date on which the plan is deposited.
9.3 Seven action areas are designated in this Plan. These are:
l Central area
l Butterfield area
l Stockwood area
l Marsh Farm
l High Town
l London Luton Airport
l Kimpton Road (former Vauxhall car plant).
The objective of this chapter is:
l Identifying areas of change and opportunity in Luton, and setting out the key priorities to guide future development.
9.4 The areas listed each have their own characteristics and problems. The central area is the focal point for shopping and entertainment, and includes several areas in need of improvement. High Town and Marsh Farm are principally residential areas characterised by high levels of deprivation and crime. The Stockwood and Butterfield areas are undeveloped sites where there are significant opportunities for large scale new development. London Luton Airport is a major commercial airport, and it plays an important role in the economy of both Luton and the surrounding area. Kimpton Road (former Vauxhall car plant) is a previously developed site that represents a major redevelopment opportunity.
9.5 Within each of the seven Action Areas there are opportunities for renewal and regeneration, and as such they need to be looked at in an integrated and sustainable way in order to deliver a range of physical, social and environmental improvements.
104 Luton Local Plan 2001 - 2011 central area
Introduction document as a supplementary planning document will take place during 2005/2006.
9.6 The central area of Luton performs a Luton Town Centre number of functions. It is the focal point Partnership of Luton for shopping and entertainment, 9.8 Luton Town Centre Partnership was containing the Arndale shopping centre and formed to develop the vibrancy of the town the Galaxy entertainment complex. It also
centre. Its aims are to create a town centre Action Areas provides many other functions ranging from that will: transport interchanges to a major source of employment in the service and business l enhance the quality of life of Luton’s sectors. It fulfils a major leisure, recreational residents and visitors by creating a centre and educational function. The area is thriving, that is alive and vibrant both in the daytime but some parts remain in poor condition. and at night; Government planning policy and urban regeneration initiatives are now focused on the l meet the needs of the diverse community renaissance of town centres and new ways of and sustain quality shops, restaurants and ensuring that they remain prosperous. entertainment facilities;
Luton Town Centre l provide a safer, more accessible and more Development Framework attractive centre where people can walk about freely, meet together and enjoy its streets, malls, squares and open spaces; 9.7 In 2004, the Council, along with its partners English Partnership, East of England l be known as a university town of Development Agency and GO-East, appointed commercial and cultural excellence. consultants to prepare a development plan for the central area of Luton. After Role of the Central Area extensive public consultation, the Luton Town Centre Development Framework was 9.9 The central area should play a number published in December 2004. The Town of roles, and provide opportunities for a Centre Development Framework presents a variety of uses to take place, including retail, vision and development strategy to guide residential, arts, entertainment and leisure. It the regeneration of the central area. It was should be an attractive place to visit, and be prepared in the context of this Local Plan and accessible. It should provide facilities for the the longer-term objectives of the Milton Keynes whole community to enjoy, and key sites in the and South Midlands sub-regional strategy. central area should be enhanced. Although the Town Centre Development Framework is a non-statutory document, it is a 9.10 It is important that there is a balance material consideration in the determination of and mix of uses in the central area in order to planning applications. Work to progress the encourage vitality and activity throughout the day and evening. The central area remains
Luton Local Plan 2001 - 2011 105 the main retail area of the town and is becoming more active in the evenings, as Policy CA1 people make use of its leisure facilities, pubs and restaurants. Central Area
The Borough Council will permit Parking and Accessibility developments in the central area provided that they at least maintain 9.11 The Government is now seeking to and, where possible, contribute to promote more sustainable means of transport, enhancing its: such as walking, cycling and the use of public [A] role as an attractive focal point transport. The Borough Council welcomes this for the Borough and sub-region; approach and is currently looking to relocate and the bus station immediately adjacent to the [B] role as a mixed use area in railway station to allow easier interchange for which to live, work, shop and train and bus travellers. Providing appropriate play; and levels of car parking is always a complex [C] attractiveness, convenience, balance. The reduction of car parking can only user-friendliness, and safety for be made in conjunction with improved public all members of the community transport, and park and ride. There is concern at all times; and about the impact on the viability of the central [D] accessibility, especially by public area, and on local businesses if the provision transport; and of car parking is reduced. The Parking [E] efficient and effective operation Strategy of the Local Transport Plan is seeking as a sub-regional centre. to move long-stay commuter car parking to edge of town locations at proposed park and ride sites.
9.12 The central area is well served by public Central Area Improvements transport during the day, but many people still choose to travel to it by car. The need 9.13 The sites identified for improvement or to accommodate the car is reflected in the action within the central area are the gap site redevelopment of the Regent Street multi- in St George’s Square, the cultural quarter, storey car park. Short stay car parking is central area open spaces, the Northern important to the vitality of the central area, Gateway, and the railway and bus stations. but commuter traffic can cause congestion at Other central area issues such as housing, peak times. The Borough Council’s walking, leisure, employment, retail, transport, parking cycling and bus strategies will address issues and shopping are dealt with in the relevant relating to improving access to the central parts of this Plan. area. Gap Site
9.14 The gap site, fronting St George’s Square, between the Central Library and the Thistle Hotel, is an important one within the street scene. Its development presents important opportunities in terms of both urban design and the nature of the uses on the site.
106 Luton Local Plan 2001 - 2011 area to the cultural quarter will need to be Policy CA2 improved and well signposted, in particular along St Mary’s Street, Church Street, Park Gap Site Street and Gloucester Road to create an attractive walking environment. New parking The Borough Council will grant and access arrangements will be needed as planning permission for the part of this proposal. development of the gap site, between the Central Library and the Thistle Hotel, identified on the Proposals Map, for a scheme which: Policy CA3
[A] incorporates a use or uses which is not likely to have an adverse Cultural quarter impact upon the use and enjoyment of St. George’s Planning permission will be granted square; and for redevelopment within the cultural
quarter, identified on the Proposals Action Areas [B] is of a scale and design which Map, for the purposes of a theatre, makes a significant impact upon, cultural activities, education use, and and enhances the townscape and associated facilities, provided that: skyline; and [A] where appropriate, the setting of [C] is well-related to, and st Mary’s Church is enhanced; complements: and
(i) other buildings fronting [B] the design and environmental st. George’s Square which are policies are met; and likely to be retained in the long term; and [C] the facility is made available for the dual use of both Luton (ii) the proposed enhancement of University and the wider st. George’s Square (which is community; and subject to Policy CA4). [D] the scheme incorporates public open space in accordance with 9.15 The site is, however, crossed by the Policy CA4; and River Lea, which runs in a culvert beneath the [E] there are adequate vehicular Central Library and the Thistle Hotel. access arrangements; and
[F] there are attractive and Cultural Quarter improved pedestrian routes from Luton central area. 9.16 Luton University in conjunction with the Borough Council is seeking to provide a 600- seat theatre venue, with associated car parking, within an area identified for cultural and Open Spaces educational activities. A number of temporary moves will need to take place to enable this to 9.18 A scheme to enhance St. Georges Square happen. is proposed, and work is excepted to begin early in 2006. 9.17 The building should be well-designed and provide a multi-purpose performance venue, which can be used by Luton University for educational purposes and by the wider community. Pedestrian routes from the central
Luton Local Plan 2001 - 2011 107 Policy CA4 Policy CA5 (cont)
Central area open spaces [A] accommodate the identified additional non-bulky goods retail The Borough Council will support: floorspace requirement during the plan period; and [A] the retention and enhancement of the existing open spaces in [B] retain and, where appropriate, the central area; and enhance those buildings within the area that are of particular [B] the creation of new public open architectural merit or historic spaces at: interest; and
(i) Luton Railway Station [C] form an effective and functional forecourt; extension of the town centre shopping area; and (ii) Northern Gateway; and [D] provide convenient and ready (iii) Cultural Quarter. pedestrian linkages with:
(i) the Arndale Centre at as many points as reasonably Northern Gateway possible; and (ii) the bus and railway stations; 9.19 Plaiters Lea is a Conservation Area, with and some listed buildings. It is characterised as a [E] provide a safe, convenient and mixed-use area of light industrial, commercial, attractive pedestrian link retail, leisure and residential uses. between the bus/rail stations and the Arndale Centre; and
9.20 A development brief will be prepared for [F] enhance the appearance of the the redevelopment of the area. The overall aim arndale Centre when viewed of the redevelopment of this area is to make from Bute Street; and Plaiters Lea an attractive mixed-use destination [G] utilise at least part of that in Luton central area, comprising retail, section of the River Lea which commercial, leisure and residential uses, which crosses the site as an attractive creates an attractive link between the Arndale feature of the development; and Centre and the bus and railway stations. [H] not introduce any risk of impeding either:
(i) the subsequent design of an acceptable scheme for the Policy CA5 entire site; or
(ii) the successful Northern Gateway implementation of the proposed comprehensive The Borough Council will scheme. facilitate the implementation of a comprehensive mixed-use scheme for the Northern Gateway to the town centre shopping area, as identified on the Proposals Map. Any such scheme will be required to:
108 Luton Local Plan 2001 - 2011 Bus and Railway Stations of the town centre is therefore crucial. In order for Power Court to become part of the 9.21 There is a need to improve both the bus town centre it must be able to offer a mix and railway stations, to provide an attractive of uses that are complementary to the town gateway to Luton that encourages people to centre. It also requires development which use public transport, and facilitate interchange significantly enhances the area architecturally between modes of travel. and in terms of urban design. Any development must satisfactorily accommodate the River Lea, which currently flows through Policy CA6 the site in a closed culvert.
Improvement of bus and railway stations Policy CA7 The Borough Council will seek to
secure through planning obligations: Power Court Action Areas [A] the relocation of the Bus The Borough Council will grant station; and planning permission for the [B] the refurbishment of Luton redevelopment of Power Court, railway Station. identified on the Proposals Map, for a mixed-use development that: The Borough Council will require any [A] comprises: such schemes to: (i) significant non-bulky goods [i] provide an attractive, safe, retail floorspace, subject to sheltered environment for Policy S1; travellers, visitors and staff; and (ii) residential uses in accordance with Policy H3; [ii] facilitate and provide a clear, direct, integrated, (iii) B1 office uses and/or hotel attractive, safe and, if and/or community uses; and necessary, sheltered link between High Town Road, (iv) public open space; and the railway station, the bus station and Bute Street. [B] enhances the setting of St Mary’s Church; and
[C] provides adequate, safe, convenient and attractive Power Court pedestrian linkages with the arndale Centre and other parts of the Central Area; and 9.22 Power Court is the major redevelopment opportunity within Luton’s Central Area. It [D] provides appropriate treatment has been the subject of enormous change over for the River Lea, in accordance with Policy ENV14[E]. the years and is now in need of regeneration. It immediately adjoins St Mary’s Church, the town’s only Grade 1 Listed Building. The main objectives for Power Court are to maximise the redevelopment opportunity which it offers and ensure that it becomes an integral and valued part of the town centre. Establishing pedestrian links with other parts
Luton Local Plan 2001 - 2011 109 butterfield area
9.23 The Butterfield area was the subject proximity to the Vale Cemetery and of a policy in the previous Local Plan (Policy Crematorium. To retain the open landscape BA1). The policy is retained largely unchanged character of the area there is a need for space in this Local Plan as the development has not about buildings; a ‘breathing space’ to allow a yet been implemented. The Borough Council green environment to develop. The Borough granted outline planning permission in March Council therefore considers that development 2003. It is subject to the approval of detailed comprising a high quality of building design in reserved matters, the discharge of relevant extensively landscaped settings, as seen in the planning conditions and a legal agreement. best science parks, should be promoted. Other forms of employment development could lead 9.24 The Borough Council previously to the risk of an unacceptable environmental concluded that the best use of land at impact. Butterfield, in the interest of the whole town, is for a combination of University campus, 9.27 The primary purpose of development of innovation centre and technology village - the Butterfield area is to provide for the needs which can benefit from a close relationship to of emerging and high technology businesses, the University and vice-versa, an hotel, a park- which will assist significantly in promoting the and-ride facility and an extension to the Vale regeneration of the town’s employment base, Cemetery. in accordance with regional guidance.
9.25 Government guidance is that 9.28 The first requirement is for an employment uses should be located where ‘Innovation Centre’ where other firms can they can benefit from the main road network locate with the University in order to share and be accessible to public transport. The facilities and develop new ideas. movement of employment uses from the inner part of the Borough to Butterfield could have 9.29 When a firm develops beyond the the following advantages: accommodation available in the Innovation Centre it will move to premises nearby, in a (a) the economic base of the town could ‘technology village’. It will essentially comprise be modernised, so aiding regeneration; small and medium sized firms combining research, small-scale production and shared (b) there could be enhancement of the administration. The Technology Village environment of the area currently in will respond to demand arising from the employment use; Innovation Centre, but will also attract other (c) there could be an easing of traffic firms wishing to benefit from shared services congestion in the area vacated by and the exchange of ideas. employment uses. 9.30 Luton University has a requirement for a 9.26 The nature of future employment uses in new campus primarily to provide teaching and this area will be conditioned by the location of related accommodation. This is in addition to Butterfield on the urban fringe and the close the Park Square campus and Putteridge Bury,
110 Luton Local Plan 2001 - 2011 and is not intended as a replacement for hedgerows and other natural features such as either. The accommodation specified by the the ponds. The need for substantial additional University in preliminary studies, identifies tree planting at the boundaries of the area, the need for a site of about 6 hectares. and within it, has been accepted since the Communications with the University’s other land was first suggested for development. sites will be primarily in the form of IT links. This provides the opportunity to create new landscape features and wildlife habitats. The 9.31 Development of a hotel will help to meet detailed landscaping proposals for each built the need for hotel accommodation in Luton element will be required to further enhance generally and will also benefit the Innovation the environment of the area. Centre, Technology Village and Putteridge Bury conference facilities. The incorporation of a 9.35 The Borough Council recognises that ‘leisure centre’ into the hotel would provide the environment of the area is a factor, further facilities of benefit to occupiers of which must continue to be considered. The the development and to local residents. The Butterfield area adjoins the Oaket Wood Action Areas hotel is independent of other developments County Wildlife Site, as well as the Chilterns in the Butterfield area and so can proceed in Area of Outstanding Natural Beauty. Therefore response to demand. it is important that the potential impacts of the development on these sites are taken into 9.32 The Butterfield area represents the only account. As a recreation resource, the area is opportunity to provide a park and ride facility essentially one of trees and hedgerows that on the A505 gateway into Luton. The policy pedestrians pass through in order to get to therefore safeguards land required, considered Warden and Galley Hills or onto the public to be 2 hectares, having regard to preliminary rights of way to the north east of Luton. studies on the implementation of park and ride Development must, therefore, respect this in Luton. To provide access to all the proposed present role of the area. Accordingly, built land uses, public transport will be given a development should be at a low density, in high priority. Appropriate public transport order to retain the essentially open nature facilities must be incorporated into the detailed of the area, with no more than 30% of the development proposals. area occupied by buildings. Regard will be given to the relative visibility of the site on 9.33 The importance of safeguarding land the urban fringe, and buildings will in general for further extension to the Vale Cemetery be restricted to a height of two storeys. This is recognised by the allocation of 4 hectares may be increased to 3 storeys where use can adjacent to the crematorium. This will have be made of roof space utilising skylights or the added benefit of providing an undeveloped dormer windows, but the emphasis is to be ‘buffer’ around the crematorium. clearly on a low-rise development. This will also assist the provision of a water supply in 9.34 It was acknowledged by the Inspector, particular. at the Public Inquiry into the North East Luton Local Plan in 1986, that the environment of the 9.36 The combination of extensive Butterfield area is not exceptional, although landscaping and low density and low-rise he recognised the need to provide substantial buildings has the potential to create a new landscaping around the development to landscape in which natural elements will protect the urban fringe. The Butterfield area dominate. is essentially farmland with mature hedgerows. A key principle for the development is the 9.37 All vehicular access will be taken from retention and strengthening of existing Hitchin Road utilising a new junction between
Luton Local Plan 2001 - 2011 111 the Borough boundary and the Vale Cemetery. Public transport provision and facilities will receive a high priority and early access should be provided into car parks serving the hotel and park and ride facility. This will minimise the amount of traffic needing to enter the University/Technology Village.
9.38 Access to the extension to the Vale Cemetery will be taken from within the existing cemetery.
Policy BA1
Butterfield area
Within the Butterfield area, as shown on the Proposals Map, support will be given to development of the area for a university campus, an innovation centre and technology village. Support will also be given to the provision of a park and ride facility, a hotel and a 4 hectare extension to the Vale Cemetery. Developments will be expected:
[A] to retain existing landscape features such as hedgerows and ponds and include substantial landscaping on or adjacent to the boundary and within the area to screen and break up the development area and to protect the amenities of adjoining properties;
[B] to be at a low density with the footprint of buildings occupying no more that 30% of the gross area, with space for significant landscaping between buildings / uses;
[C] to take vehicular access from Hitchin Road and to give a high priority to the early introduction of appropriate public transport facilities;
[D] to safeguard existing rights of way and to provide additional public routes within well landscaped corridors and away from traffic routes.
112 Luton Local Plan 2001 - 2011 stockwood area
9.39 The Stockwood area consists of some scheme. This scheme is programmed to 22 hectares of land lying on the Borough’s commence in 2006 and to be completed in southern boundary. It is made up of two 2008. Therefore, work on the Stockwood parcels of farmland separated by Newlands area development should not proceed until Road. the improvements to the adjacent section of the M1 motorway have started. This will 9.40 Luton Town Football Club needs to allow the two schemes to be co-ordinated, be relocated within a new stadium, and it thereby avoiding unnecessary duplication and is considered that the Stockwood area is disruption. Action Areas a suitable location for this facility. Other sporting facilities for which there is an 9.43 Development will also be constrained identified need may also be appropriate in this because adjoining land forms part of the area. Green Belt, an Area of Great Landscape Value and a County Wildlife Site. The larger parcel 9.41 As it is extremely doubtful whether of land, despite being farmland, is a site of high capital cost facilities could be provided nature conservation interest. Additionally, without some form of subsidy, it follows that both parcels of land are crossed by overhead their provision may well require associated or electricity lines having either a 133kv or enabling development. This virtually ensures 33kv capacity, and an underground high that relatively large scale development is pressure gas pipeline follows the south side of necessary and this, in turn, ensures that Newlands Road. A public footpath also runs suitable sites will need to be large. It is this down the south-eastern edge of the site and, criterion which resulted in the Borough Council while the land lies outside the Public Safety allocating the Stockwood area to provide Zone, it nevertheless lies under the flight path sports facilities in the previous Local Plan. to and from the airport. Policy S1 requires Little has changed in the intervening period. that enabling development should not threaten the vitality and viability of a shopping 9.42 The development of the site is policy area and, therefore, the regeneration of constrained by the land sloping down towards the central area. Newlands Road from both north-east and south-west. London Road and the M1 9.44 Developments of the type proposed motorway are therefore clearly seen by all will generate large volumes of traffic within those using the important southern vehicular relatively short periods of time and developers access into the town. Furthermore, proposals will need to ensure that their proposals will for widening the M1 motorway require part of not compromise the safety or convenience of the site to be safeguarded for such purposes other road users. As a statutory consultee, (see policy T12). The section of the M1 the Highways Agency will be consulted motorway adjacent to the Stockwood area site, upon development proposals and has the from Junction 10 northbound to the B4540 power to issue a direction to refuse planning (Church Road) underpass, is due to be widened permission where impact upon the motorway as part of the M1 Junction 6A to 10 widening is considered unacceptable.
Luton Local Plan 2001 - 2011 113 9.45 The height of the development will need to be carefully considered both for aircraft Policy SA1 (cont) safety reasons and to avoid unacceptable visual dominance which would detract from (iv) the development will not the amenity of the adjoining areas. The rights dominate or detract from the appearance of the adjoining of utility companies and the general public Green Belt, Area of Great will also have to be protected, as well as those Landscape Value or County attributes which led to part of the site being Wildlife Site; identified as a site of nature conservation (v) the development will not be interest. No use of the site should threaten of a height that compromises the regeneration of the central area. the safety of those using London Luton Airport;
(vi) the development will protect Policy SA1 features of nature conservation interest;
Stockwood area (vii) public rights of way and the rights of public utility Within the Stockwood area identified providers will be safeguarded; on the Proposals Map, support will be given to the development of: (viii) enabling development will not be to a scale that [A] a new stadium for the use of exceeds that of the related Luton Town Football Club; and sports facilities, or adversely affects the regeneration of the [B] sports facilities for which there central area. is an identified need
subject to the following:
(i) the development shall not be occupied until the proposed widening of the M1 Motorway, Junctions 6A-10, has been completed, unless the Highways agency is satisfied that the use did not have an unacceptable impact on the motorway, and shall not compromise the safety of road users;
(ii) planning permission will not be granted unless public transport services are secured to meet the expected demand arising from the development, and provision is made for a ‘park and ride’ facility;
(iii) car parking provision will not exceed the maximum standard specified in Appendix 4, and will not detract from the appearance of its surroundings;
114 Luton Local Plan 2001 - 2011 Marsh farm
9.46 Marsh Farm is located on the northern 9.50 The MFCDT NDC 10 year delivery outskirts of Luton adjacent to Bramingham plan highlights the main areas of physical Wood County Wildlife site. The estate was regeneration, namely the provision of a primarily local authority built in the late permanent community enterprise and resource 1960’s/early 1970’s, comprising approximately centre, the refurbishment or redevelopment of 4,000 dwellings and a population of 9,000. the Purley Centre, and the physical condition Approximately half of the dwellings are and occupation within the three tower blocks currently in private ownership. adjacent to Wauluds Bank. Action Areas 9.47 Community facilities within Marsh Farm 9.51 A master plan will be prepared for the are currently limited, but include schools, a estate. The key objectives of the exercise neighbourhood centre, a recreation/leisure will be to establish a development and centre, health centre and a community delivery plan to create a strong urban village enterprise and resource centre temporarily centre that will meet the aspirations of located in the former Coulter building. The the community, Council and other service neighbourhood centre, the Purley Centre, is in providers together with creating a framework the centre of Marsh Farm and includes local within which various projects/initiatives can be shops, market area, library, community centre, developed. residential properties and housing office.
9.48 Marsh Farm is characterised by severe Policy MF1 problems of multiple deprivation, including unemployment, poverty, lack of skills, poor Marsh Farm educational achievement, and poor health. In recognition of the multi-faceted nature Within the Marsh Farm Action Area (identified as such on the Proposals and severity of problems, Marsh Farm was Map) the council will grant planning designated a New Deal for Communities permission for: (NDC) neighbourhood in 2000. Funding [A] developments in the Central Area totalling £48 million has been awarded to (identified as such on the support the comprehensive regeneration of Proposals Map) which comprise: the estate over the next 10 years. The Marsh Farm Community Development Trust (MFCDT) (i) retail, community, recreational, employment or administers the programme. educational facilities which meet the needs of local 9.49 The MFCDT vision is: residents; and ‘To achieve a pioneering, forward looking, (ii) the provision of residential sustainable and capable community which is units which complement the able to work and enjoy a quality of life that is proposed function and full of opportunity and optimism’. character of the area; and
Luton Local Plan 2001 - 2011 115 Policy MF1 (cont)
(iii) infrastructure provision which allows the area to function efficiently and effectively as a local centre; and
(iv) open space provision which complements and enhances its role as a local centre; and
(v) the loss of buildings, or the relocation of uses, which inhibit the proposed function and character of the area; and
[B] developments in the Residential area (identified as such on the Proposals Map) which comprise:
(i) the provision of residential units which complement the proposed function and character of the area; and
(ii) commercial, recreational, educational and community uses which complement the function and character of the area; and
(iii) infrastructure provision which allows the area to function efficiently and effectively; and
(iv) open space provision of sufficient quantity and quality to enable the area to function efficiently and effectively.
116 Luton Local Plan 2001 - 2011 High town
9.52 High Town is one of the older areas of new learning centre for Barnfield College to the town and is situated immediately north replace their existing building in Charles Street. of Luton central area. It is an area with its own character, physically separated from the 9.55 A key feature of the regeneration central area by the Midland Mainline Railway. programme is work to enhance the High Town High Town can be separated into the following Road shopping area through the provision areas: of grants for building refurbishment and an environmental and traffic management l an area of local authority housing Action areas scheme. The projects selected for funding redeveloped in the 1970’s were part of a Renewal Plan for High l an area of older terraced housing Town prepared by the local community in consultation with key agencies such as the l the High Town Road Conservation Area, Council. comprising mainly small shops with a high vacancy rate, and 9.56 As well as the shopping area, there are many derelict and underused former industrial l older industrial buildings and vacant land. sites between High Town Road and Hitchin Road. Whilst the external funding has tackled 9.53 As an inner ward, High Town experiences some of the key issues affecting High Town, many of the problems of deprivation, with the longer-term future of the area needs to issues such as poor housing condition, high be considered in a comprehensive way. High levels of unemployment, high crime rates and Town has, therefore, been identified as an an ageing population. The older housing areas Action Area. have been targeted over a number of years through a programme called ‘Housing Plus’. 9.57 A masterplan is being prepared for the This provides grants for renovation works and High Town Action Area, to help identify the has also included environmental enhancement community’s requirements with regard to the work. provision of community and other facilities and housing. 9.54 Government funding through the Single Regeneration Budget and European funding through Objective 2 has also targeted the High Town area. The High Town Action Trust (HAT) has been set up to identify and deliver new facilities and services for the community and to assist the process of regeneration. A programme of activity is currently being implemented which includes the provision of a multi-purpose community, sports and arts centre, which will regenerate a long-term vacant site. The scheme will also include a
Luton Local Plan 2001 - 2011 117 Policy HT1
High Town
The central area of High Town, identified on the Proposals Map, is allocated as an Action Area within which development will be permitted which:
[A] meets the identified requirements of local residents with regard to housing, employment, retail, community and recreational facilities; and
[B] serves effectively as a centre for the community; and
[C] incorporates other uses necessary to meet local need; and
[D] incorporates development necessary to fund that which is required by this policy; and
[E] will enhance the character, appearance and function of the area.
118 Luton Local Plan 2001 - 2011 london luton airport
Introduction million passengers per annum (mppa), subject to environmental constraints related to aircraft 9.58 The freehold interest of London Luton noise and road traffic generation. An Annual Airport is vested in London Luton Airport Monitoring Report is produced jointly by the Ltd, a private company wholly owned by Borough Council and LLAOL in respect of these Luton Borough Council, who have granted a matters. concession and overriding lease to a private consortium London Luton Airport Operations 9.63 PPG 24 (Planning and Noise) has been
Limited (LLAOL). TBI Plc is the majority prepared by the Government to give guidance Action Areas shareholder in LLAOL. LLAOL is the licensed to local authorities on how to minimise the operator of the Airport, responsible for its adverse impact of noise. It: management and development. l outlines the considerations to be taken into 9.59 London Luton Airport is a major account in determining planning commercial airport serving London, the South applications, both for noise-sensitive East, the Midlands and the East of England. developments and for those activities which The Airport has grown principally as a holiday will generate noise; charter airport, but has now established itself l introduces the concept of noise exposure as a base for low cost, general aviation for the categories for residential development, business market, providing a major gateway to encourages their use, and recommends Scotland, Ireland and the rest of Europe, and appropriate levels for exposure to different has increased its range of scheduled services to sources of noise; and many international destinations.
l advises on the use of conditions to 9.60 Freight transport is an important part minimise the impact of noise. of the Airport’s business. The current cargo centre was opened in 1993 to rationalise and 9.64 PPG 24 is therefore a material expand freight handling facilities. consideration in assessing development proposals at London Luton Airport, and noise 9.61 London Luton Airport has an matters will need to be addressed in any international reputation as both a business Environmental Impact Assessment. aviation and aircraft maintenance centre. Planning control Airport Policy Context 9.65 In 1995, the Government introduced 9.62 London Luton Airport is subject to the Town and Country Planning (General National, Regional, County and local aviation Permitted Development) Order. This has the planning policies. These consider the Airport effect of increasing the range of development in terms of its capacity for passengers and all that could take place at London Luton Airport identify London Luton Airport as being able, in without planning consent, subject to certain policy terms, to provide capacity for up to 10 criteria. The General Permitted
Luton Local Plan 2001 - 2011 119 Development Order requires that consultation LLAOL is working to increase the proportion of with the Borough Council takes place for such passengers travelling to and from the airport development. by public transport, for example, by improving the speed and frequency of the shuttle service 9.66 In respect of all applications relating to to Luton Airport Parkway Station. London Luton Airport, the Borough Council, as local planning authority, is committed to Planning Considerations the widest possible consultation. Where such applications have the potential to significantly 9.70 The prospect of increased employment increase the capacity of the airport, the at London Luton Airport is an important Borough Council will require LLAOL to submit consideration. A successful airport can make an environmental statement in accordance an important contribution to the regeneration with relevant legislation. and economic viability of Luton. Future Development 9.71 The Luton/Dunstable/Houghton Regis conurbation is identified in RPG9 as a 9.67 A Development Brief, produced by Priority Area for Economic Regeneration. An LLAOL, was adopted by the Borough Council opinion expressed in background papers to as Supplementary Planning Guidance in SERAS, indicates that each 1mppa generates September 2001. This sets out future approximately 1,000 jobs, although it is developments at London Luton Airport, generally accepted that the additional jobs and includes taxiway links to allow better would benefit a much wider area than the management of air traffic around the airport conurbation, and would be a significant boost taxiways. to the regeneration of the local economy. 9.68 The Government produced a White Paper in December 2003 ‘The Future of Air Transport’ 9.72 Expansion is, however, only acceptable to provide a national strategy for air transport if subject to environmental constraints, to provision. It is anticipated that London Luton ensure that the environment of Luton and Airport will play an important part in providing the surrounding area of Bedfordshire and runway capacity in the South East. Whilst Hertfordshire is not significantly affected. London Luton Airport is still identified as a This includes environmental scrutiny of any one-runway airport, the options show a longer proposed development. runway (3000m), which potentially gives the Airport the capacity of around 31 mppa by 9.73 Controlling aircraft noise is particularly 2030. Airport operators were required to important at Luton as the airport is situated produce Master Plans by December 2005, close to residential areas. The Government setting out how the White Paper’s proposals proposes that Local Planning Authorities will be implemented. adopt policies which will benefit people living in the area, without imposing unreasonable 9.69 As part of the long-term strategy constraints on operations. At the Luton for expansion, LLAOL is encouraging the Local Plan Inquiry in 2004, the Inspector ‘modal shift’ from private motor vehicles to recommended that a policy was adopted public transport and produces an annual that would enable expansion, subject to Surface Access Strategy, which sets out noise impact that is below 1999 levels. The targets for sustainable travel for employees Inspector referred to the controls set out in and passengers of the airport. For a period the 1998 planning consent for the extension in 2002, the LLAOL reported that 30% of to the terminal building, which related to the passengers travelled by public transport. predicted contours produced as part of the
120 Luton Local Plan 2001 - 2011 Environmental Statement submitted with the planning application. Aircraft noise has Policy LLA1 previously been monitored annually against 1984 levels, using noise contours produced Development at London Luton for the Council by LLAOL, as part of the Airport Annual Monitoring Report. The regime under The Borough Council will which the airport currently operates refers grant planning permission for to noise contours for 1999 from the 1997 development at London Luton Environmental Statement; applications for Airport (identified as such on the further development will also be assessed Proposals Map) provided that it: against a 1999 benchmark. Future editions (i) is airport related; and of the Annual Monitoring Report will monitor levels against the predicted 1999 levels. (ii) is not in conflict with national or regional Policy LLA1 will provide the basis for an government aviation effective and implementable control on aircraft policies; and Action Areas noise, whilst allowing LLAOL the flexibility to (iii) is in accordance with the determine how operations are to be modified most recent airport to achieve noise control. development brief agreed jointly by Luton Borough 9.74 The term ‘airport related’ in Policy council and London Luton airport Operations Limited; LLA1 refers to ‘developments that have a and demonstrable need to be located at or in close proximity to the airport’. (iv) results in an aircraft noise impact that is below the 1999 level; and 9.75 London Luton Airport is located close to the national road and rail network, but (v) incorporates sustainable its transport infrastructure is at present transportation measures that will be likely to make inadequate to cope with major expansion an appropriate contribution of the scale envisaged in the White Paper. to the achievement of the Options for London Luton Airport outlined in targets for the modal shift this document identify the need for various of passengers, visitors and staff travelling to the improvements including: the implementation airport as set out in the and extension of the Translink guided busway most recent Surface Access or other integrated public transport system to strategy; and the airport, the construction of a Luton North- (vi) provides car parking Eastern bypass linking the A505, London Luton facilities that comply with Airport and the A1081, and the widening of the most recent Surface the A1081, Airport Way. It is recognised that access Strategy with regard to: further measures will be required to relieve congestion between the M1 junctions 9 and (a) the number and size of 13 by 2030. Further details of these schemes spaces; and are given in the Transportation Section. (b) the location and management of the car parks.
Luton Local Plan 2001 - 2011 121 9.76 Car parking demand is directly related to environment and is surrounded by Green a growth in passenger throughput. Increased Belt, to be protected from such forms of on-site car parking could provide additional development. It is therefore important that capacity. Studies have shown that major the likely physical effects of expansion upon expansion may require additional off-site car the local area are taken into consideration parking, even if there is a switch in emphasis when determining applications to ensure from road to rail access. It is essential that unsustainable development is avoided. such off-site facilities are located close to the strategic road network and away from 9.78 London Luton Airport can be seen residential areas to avoid the creation of from a variety of locations in Luton, South traffic congestion and damage to the physical Bedfordshire and Hertfordshire. New build environment. development and road works will have a visual impact upon the local area. To mitigate the adverse effects on visual amenity, development Policy LLA2 applications will be required to contain details of proposed landscaping, including appropriate tree planting. Airport-related car parking
The Borough Council will not grant 9.79 London Luton Airport is located above planning permission for airport- the chalk aquifer, which provides Luton with related car parking that is not at its drinking water. Care therefore has to be London Luton Airport (identified as taken with the disposal of surface water from such on the Proposals Map) unless it can be demonstrated that: the Airport, in particular, run-off from runway and apron areas, which can contain de-icing [A] there is a long-term need for the chemicals and aviation fuel and therefore have development that cannot be met on the airport; and the potential to seriously pollute. Treatment and disposal of surface water needs to be [B] it is in accordance with the most addressed fully in future proposals in the recent Surface Access Strategy; and interests of protecting the water environment.
[C] it is well-related to the existing 9.80 There is concern within local road network; and communities regarding kerosene odour and [D] there will be no unacceptable other forms of air pollution, which could impact upon residential increase as a result of increased air traffic. amenity; and National and local studies suggest that indirect [E] it will not exacerbate traffic air pollution from increased road traffic may congestion. be of more concern than direct pollution from aircraft. LLAOL and the Borough Council carry out air quality monitoring. Any proposals 9.77 Expansion of London Luton Airport will for expansion would need to address the bring new employment opportunities for the monitoring and management of air quality in people of Luton. Major expansion proposals any environmental statement. may encourage in-migration of people. This would bring new pressures for housing and other built development to the area. Luton has a limited capacity to accommodate further development without detriment to the
122 Luton Local Plan 2001 - 2011 Airport Safeguarding Policy LLA3 9.81 Developments within the vicinity of airports need to be considered for any Development within Public implications that they may have on airport Safety Zones operations. The Civil Aviation Authority (CAA) and the Department for Transport Within the Public Safety Zones (as identified on the Proposals Map) (DfT) publish safeguarding maps for airports planning permission will not be showing the area in which matters such as granted for: building height, interference with electronic [A] any development, including and visual navigation aids, and bird attraction extensions and changes of use, must be considered. which is likely to result in more people: 9.82 Advice notes have been produced jointly (i) living in the property, unless by the CAA, General Aviation Awareness it is for the purpose of Action Areas Council (GAAV) and the Airport Operators enlarging or improving the Association (AOA) covering safeguarding, living accommodation for the benefit of existing lighting near aerodromes, potential bird residents; hazards from amenity landscaping and or building design, cranes and other construction issues, and potential bird hazards from landfill (ii) working or congregating at the property or site; or sites. Copies of these notes are available from the CAA Safety Regulation Group. [B] short-stay car parking (where the maximum stay is expected to be less than six hours); or 9.83 The DfT map incorporates a Public Safety Zone (PSZ) at each threshold to the runway. [C] distribution depots, sorting The PSZ is the area within which development depots or retail warehouses; or is restricted in order to control the number of [D] children’s playgrounds, playing people on the ground at risk of death or injury fields or sports grounds; or in the event of an aircraft accident on take-off [E] sports clubhouses; or or landing. [F] any other development likely to 9.84 Within the PSZ, it is Government policy result in significant numbers of people being present at a site to advise against the granting of planning on a regular basis. permission for any development likely to increase the number of people living, working or congregating in it. DfT Circular 1/2002 (Control of development in airport public 9.86 Luton lies within an airport safety zones) provides further guidance on safeguarded area. Certain planning constraints within these areas. applications will be the subject of consultation with LLAOL and there may be 9.85 The Development Control Group restrictions on the height or detailed design of the Borough Council can give general of buildings, or on development which advice on obtaining the above information, could create a bird hazard as described and developers are strongly recommended in ODPM Circular 1/2003 (Safeguarding to discuss proposals and cranage prior to aerodromes, technical sites and military submission of schemes in the vicinity of explosives storage areas: The Town and London Luton Airport. Country Planning Direction 2002).
Luton Local Plan 2001 - 2011 123 Policy LLA4
Airport Safeguarding
The Borough Council will not grant planning permission for development that would have adverse implications for the safe operation of London Luton Airport.
124 Luton Local Plan 2001 - 2011 kimpton road area (former vauxhall car plant)
9.87 The Kimpton Road Action Area is designated in recognition of the major Policy KR1 (cont) development opportunity presented by the former Vauxhall car plant. The site totals [A] the various areas of the site as 23 hectares (57 acres), plus an area of 3.4 defined on the Proposals Map hectares (8.5 acres), which is to be retained as are developed for the following a Vehicle Release Facility (VRF) associated with uses: the adjoining IBC plant. (1) B1 or residential, or
residential and associated Action Areas 9.88 The key aim of the Borough Council with community facilities; regard to this site, is to deliver jobs, especially (2) residential and associated skilled jobs, which are considered to be community and/or leisure particularly important in order to strengthen and/or retail facilities to meet the economy. Accordingly, particular weight the needs of the immediate locality, and/or B1 and/or is placed on delivering business and industrial hotel and/or car showroom; employment uses as a key component of the development. Jobs created in association (3) B1 and/or B2 and/or hotel and/or car showroom, or, if with other land uses will also be taken into the site is not redeveloped, consideration, particularly where they involve the retention of the vehicle skilled positions. release facility to serve the adjacent vehicle manufacturing plant; 9.89 The former car plant has a number of constraints. There are substantial costs (4) B1 and/or B2 and; associated with its redevelopment, including (a) up to a maximum of 20% the need to relocate existing operations of this area for B8 uses from the site, decontamination, demolition, and/or a bulky-goods servicing and the creation of sufficient outlet which is in level areas, bearing in mind the fall of accordance with the retail strategy in Policy S1; approximately 140 feet from one side of the and/or site to the other. (b) up to a maximum of 20% of this area for long-stay airport-related car parking Policy KR1 which is in accordance with Policy LLA2; and/or
Redevelopment at Kimpton (c) up to a maximum of 20% Road of this area for a hotel;
Planning permission will be granted (5) B1 and/or B2 and up to a for the comprehensive mixed-use maximum of 30% of this area redevelopment and/or re-use of the for B8 uses, or, if Area 3 is former Vauxhall car plant provided redeveloped, Area 5 to that:
Luton Local Plan 2001 - 2011 125 Policy KR1 (cont)
comprise a replacement vehicle release facility to serve the adjacent vehicle manufacturing plant; and
[B] the design of any proposed redevelopment will enhance the character and appearance of the site when viewed from the surrounding area.
9.90 The B1, B2 and B8 uses referred to in this policy relate to the Use Classes Order and are Business, General Industry and Warehousing/ Distribution respectively.
9.91 The Council’s objectives for the future of this site are:
(1) to maximise both the quantity and quality of job opportunities;
(2) to maximise the opportunity presented by this major previously-developed site;
(3) to ensure that any proposed development does not have an adverse effect upon the operation or amenity of neighbouring uses;
(4) to enhance the overall appearance of the site to the maximum possible effect;
(5) to seek to ensure development within a reasonable period of time; and
(6) to ensure that any development does not have any adverse effect upon the vitality or viability of the town centre.
Given the Council’s objectives for the future of this site, any development proposals which are not in accordance with the policy will need to demonstrate how all of these objectives will be successfully achieved.
126 Luton Local Plan 2001 - 2011 10 IMPLEMENTATION AND MONITORING
Butterfield Green Business and Technology Park 2006
Luton Local Plan 2001 - 2011 127 implementation and monitoring OBJECTIVES
10.1 The implementation of Local Plan policies is mostly dealt with by the explanatory text that accompanies each policy. This chapter contains policies that are crucial to the successful implementation of the Local Plan. They deal with:
l planning obligations;
l replacement facilities; and
l enforcement of planning control.
10.2 Monitoring assesses the extent to which the objectives of the plan are being achieved. This is done by identifying a series of measurable Performance Indicators (PIs). The monitoring process is assisted, wherever possible, by identifying targets. Targets have the advantage of being quantified and specific. They provide the opportunity to assess not only the direction but also the adequacy of any resulting change.
The objective of this chapter is:
l Securing delivery of appropriate development in Luton
128 Luton Local Plan 2001 - 2011 implementation and monitoring
Implementation l restrict development or use of the land;
l require operations or activities to be carried out; 10.3 Guidance about the implementation of local plans is set out in PPG12 (Development l require the land to be used in a specified plans). Plans are required to: way; or l have regard to the likely availability of l require payments to be made to the resources (by taking account of national authority either in a single sum or Implementation and Monitoring economic policies, the financial policies of periodically. the implementing agencies and the likely availability of land, labour and other 10.5 PPG12 states that ’...where a planning resources); authority expects developers to enter into planning obligations on a regular basis...it l take account of the capacity of existing should set out its policy in the Local Plan.’ infrastructure and the need for additional facilities; 10.6 Government guidance on the proper l incorporate an appropriate policy where an use of planning obligations is contained in authority expects developers to enter into Circular 1/97 (Planning Obligations). It sets planning obligations on a regular basis; out the circumstances in which certain types of benefit can reasonably be sought. The Circular l assess development requirements over the states that the tests to apply for the use of whole Plan period in the light of projections planning obligations are that ‘...they should and national and regional policy guidance. be necessary, relevant to planning, directly related to the proposed development, fairly Planning Obligations and reasonably related in scale and kind to the proposed development, and reasonable in all 10.4 The Borough Council can seek other respects.’ modifications or improvements to development proposals in order to have 10.7 Circular 1/97 continues ‘Acceptable regard to the interest of the local environment development should never be refused because and other planning considerations. Such an applicant is unwilling or unable to offer modifications or improvements can be benefits’ and ‘Unacceptable development achieved through planning obligations should never be permitted because of under Section 106 of the Town and Country unnecessary or unrelated benefits offered by Planning Act 1990, as amended by section the applicant.’ 12 of the Planning and Compensation Act 1991. These comprise both legal agreements 10.8 According to Circular 1/97, in general (between the Council and the developer) or it will be reasonable to seek, or take account ‘unilateral undertakings’ (whereby developers of, a planning obligation if what is sought or independently commit themselves to a legally offered is: binding obligation). Such obligations may:
Luton Local Plan 2001 - 2011 129 l needed to enable the development to go However, a number of small developments are ahead and, in the case of a financial likely to have a cumulative impact on existing payment, will meet or contribute towards infrastructure, services and facilities and those the cost of providing such necessary responsible for their provision will find it more facilities in the near future; or cost effective to make a single improvement after a number of small developments have l necessary from a planning point of view been developed. and is so directly related to the proposed development and to the use of land after 10.11 The level of contributions required will its completion that the development ought depend on the size of the development and not to be permitted without it. in the event of a cash sum being required this will be placed in a fund controlled by 10.9 The Borough Council welcomes the the Borough Council for the provision of that opportunities created by Circular 1/97 to bring service or facility. The payments will be subject about the implementation of the Local Plan to legal agreements whereby the money will in appropriate circumstances. It will consider be spent on improvements to meet the needs the obligations put forward by developers in of the development as well as a method of the light of its planning objectives. The scope reimbursement, with interest, should the offered is seen as enhancing the Borough money not be spent within a defined period Council’s ‘enabling’ role. The following policy following the completion of the development. will therefore apply:
10.12 In the first instance, discussions will take place between those submitting proposals Policy IMP1 for development and the Borough Council, in order to ascertain the requirements for Planning obligations particular sites. Discussions and negotiations will involve the landowner, developer, agents In granting planning permission, the Borough Council will, in appropriate and officers of the Council to ensure that a circumstances, seek to enter into development is only required to contribute legal agreements to secure: to the extent that it directly impacts upon service needs. In accordance with [A] the provision, or the financial cost, of facilities made necessary Circular 1/97, this will ensure that required by the implementation of the development proposals remain viable and development; and are not frustrated by onerous demands for [B] an appropriate level of developer contributions. The use to which the provision, or contribution, contributions will be put will be dependent towards facilities for which upon the nature of the development, the there is either: demands which it will generate and the (i) a recognised need in the needs of both the local area and those of Borough; or the Borough as a whole. Matters for which contributions may be sought comprise (ii) a recognised deficit in the locality. transport, affordable housing, green space, environmental enhancement, sport and recreation, education, libraries, archaeology, 10.10 The majority of developments by health care, crime and disorder, recycling, air themselves may not warrant major investment quality and flood alleviation. in new infrastructure, services or facilities.
130 Luton Local Plan 2001 - 2011 10.13 The Borough Council intends to issue effective enforcement action which was further guidance as to the level of contribution plainly necessary; that will be expected with developments of l in considering action, the decisive issue various types and scale, as a supplementary should be whether the breach of control planning document (SPD). (This SPD will also take would unacceptably affect public amenity into account Circular 5/05 [Planning Obligations], which or the public interest; and came into force on 18th July 2005, i.e. after the Local Plan Inquiry.) l negotiations should not be allowed to hamper or delay whatever formal Replacement Facilities enforcement action may be required.
10.14 When the replacement or relocation of 10.17 PPG18 also gives guidance for facilities (e.g. libraries, clinics, sports grounds authorities where unauthorised development: and buildings) takes place it is important to ensure that the provision of the facilities is l can be made acceptable by the imposition maintained throughout the transition period. of conditions; Implementation and Monitoring Consequently, the existing facility should be l is unacceptable on the site and relocation retained until the new one is in place. is, or is not, feasible;
l is unacceptable and immediate remedial Policy IMP2 action is required;
Replacement facilities l is by small businesses or the self-employed; and Where replacement facilities are being provided, the Borough Council l is by private householders. will require the new facility to be operational prior to the closure of 10.18 In view of the importance which the the existing one. Borough Council attributes to the proper enforcement of planning control it will adhere rigidly to the following policy. The approach 10.15 This policy will be applied unless the is intended to be a step-by-step one using the Borough Council is satisfied that there are relevant powers in sequence, if need be, until adequate reasons for not insisting upon the the breach of control is resolved. continued provision of facilities and that adequate and appropriate replacement will be provided within an agreed period. Policy IMP3
Enforcement Planning Enforcement In determining the enforcement 10.16 PPG18 (Enforcing Planning Control) action to pursue where development specifies that local planning authorities ‘... has been undertaken either without have a general discretion to take enforcement the requisite planning permission or consent or in breach of a planning action, when they regard it as expedient.’ It is condition, the Borough Council will: also stated that: [A] take prompt enforcement action l the ombudsman may accuse the authority in cases where: of ‘maladministration’ if it fails to take
Luton Local Plan 2001 - 2011 131 respected as far as possible. The over-riding Policy IMP3 (cont) priority is to ascertain the relevant facts so that a judgement can be made on what is (i) it considers the development expedient in terms of planning enforcement. to be demonstrably harmful to public amenity or public interest and would not gain Monitoring approval even with the imposition of any planning 10.20 The Government has introduced conditions; or a new requirement into the development (ii) a planning application has plan process. It is ‘plan, monitor, manage’, been invited but has not been advocated in PPG3 (Housing), which entails: submitted; Plan - making proper decisions about the [B] serve a breach of condition scale, location and performance of notice in cases where it considers that the breach is demonstrably development; harmful to public amenity or public interest; Monitor - putting in place a system of tracking change to see if what is [C] serve a planning contravention happening is delivering a notice or seek a prompt planning application in cases where it contribution to the objectives of considers that the development the Plan; and is demonstrably harmful to public amenity or public interest Manage - ensuring that the knowledge but could be made acceptable by gained through monitoring is used imposing appropriate planning conditions; to adjust the influence that the Plan is having through the [D] allow an appropriate period of operation of policies and time for compliance with its subsequent reviews. requirements while ensuring that good planning is not prejudiced by virtue of the development 10.21 Monitoring assesses the extent to having been undertaken; which the objectives of the Plan are being [E] issue a stop notice in cases achieved. This is done by identifying a series where it considers the of Performance Indicators (PIs) that can be development to be exceptionally measured. This process is assisted, wherever harmful to public amenity or possible, by identifying targets. Targets public interest; have the advantage of being quantified and [F] commence legal proceedings in specific. They provide the opportunity to cases where there is evidence assess not only the direction but also the that an offence has been committed. adequacy of any resulting change.
10.22 It is important to note that the PIs 10.19 The Borough Council currently deals and targets serve only to give an indication with unauthorised activities by responding of whether and how an objective is being to complaints. It places great store on the met. Whilst there is a link between the opinions of local people about what they objectives, the PIs and the targets, it is not consider to be unacceptable development. comprehensive. That is because the nature of Some local residents do not wish their remarks the objectives is such that it is not possible to to be made public and confidentiality will be quantify the extent to which they are being
132 Luton Local Plan 2001 - 2011 achieved. The absolute (i.e. quantifiable) appraisal conducted by an independent measures therefore serve to contribute to what consultant. That appraisal concluded that must be a qualitative assessment. the Local Plan would be generally effective in this respect. 10.23 As well as having regard to assessing the achievement of the objectives, the PIs and targets also take into account the feasibility and resource implications of collecting the data.
10.24 It is intended to undertake comprehensive monitoring of the Plan, and publish the findings, on a regular basis. It is intended that this will take place annually. If the monitoring process indicates that one Implementation and Monitoring or more of the objectives of the Plan are not being met, then this may warrant various policies of the Plan being reviewed. The Borough Council’s monitoring systems will dovetail with those operating at the regional level, to support the East of England Regional Assembly’s monitoring work.
10.25 The PIs and targets for each of the objectives are set out in Appendix 8. They are, however, somewhat limited in scope because the land use planning system is often only one of many other influences on key corporate indicators (e.g. the level of unemployment, level of air pollution, crime rates etc). The attainment of such targets may therefore not be a direct consequence of this Plan alone.
10.26 In addition to the PIs in the Appendix, there are two other key measures of the quality of the Plan. These are: l the extent to which the policies are supported by the Borough Council (in determining planning applications) and Inspectors (in determining planning appeals); and l the extent to which the Local Plan may be considered to facilitate the achievement of sustainable development - which is the aim of the Plan. This is determined by an
Luton Local Plan 2001 - 2011 133 134 Luton Local Plan 2001 - 2011 APPENDICES
Luton Local Plan 2001 - 2011 135 136 Luton Local Plan 2001 - 2011 1 REGIONAL PLANNING GUIDANCE FOR THE SOUTH EAST (RPG9) - OBJECTIVES FOR SUSTAINABLE DEVELOPMENT
RPG9 Objectives for Sustainable Development Where delivered by Luton Local Plan
Urban areas should become the main focus for Sustainable development strategy, development through making them more attractive, biodiversity, historic environment, accessible and better able to attract investment. design, housing, retail, action areas, employment, transportation
Greenfield development should normally take place Design, housing, retail, employment, Appendices only after other alternatives have been considered, and transportation, central should have regard to the full social, environmental and area action area, biodiversity, leisure transport costs of location. and community facilities
The pattern of development should be less dispersed Leisure and community facilities, with more sustainable patterns of activity, allowing transportation, housing, retail, home, work, leisure, green spaces, cultural facilities and employment, central area action community services to be in closer proximity. area
Sufficient housing, and in particular affordable housing, Housing should be provided for all who need to live and work in the Region, to encourage social inclusion and avoid pressure for housing in adjoining regions.
The development of housing should be more sustainable, Housing providing a better mix of sizes, types and tenures, having regard to the structure of households and people’s ability to access homes and jobs.
Development should be located and designed to enable Utilities, design, safeguarding more sustainable use of the Region’s natural resources, natural resources, pollution and in the supply of food, water, energy, minerals and contamination timber, in the effective management of waste, the promotion of renewable energy sources and to assist in reducing pollution of air, land and water.
There should be continued protection and enhancement Biodiversity, landscape setting, of the Region’s biodiversity, internationally and nationally historic environment, design important nature conservation areas, and enhancement of its landscape and built and historic heritage.
Access to jobs, services, leisure and cultural facilities Transportation should be less dependant on longer distance movement and there should be increased ability to meet normal travel needs through safe walking, cycling and public transport with reduced reliance on the car.
Transport investment should support the spatial strategy, Transportation maintaining the existing network, enhancing access as part of more concentrated forms of development, overcoming bottlenecks and supporting higher capacity and less polluting modes of transport.
Luton Local Plan 2001 - 2011 137 2 STANDARDS AND GUIDANCE FOR NEW RESIDENTIAL DEVELOPMENTS
1. Applicants and developers should, in where an area of public amenity space or preparing their development proposals, planting is to be provided adjacent to the have regard to the content of the side garden area. Council’s Supplementary Planning Guidance notes entitled ‘Designing for (e) Where the provision for an enclosed Sustainability - A Summary of Good garden is less than 63 sq.m., an additional Practice’ and ‘Designing for Community area of 12 sq.m., shall be provided and Safety in a Quality Environment’. designated ‘’future garage space’’. This requirement shall apply to all detached, 2. Amenity Space semi-detached and terraced houses where a garage is not proposed with the original (a) Generally, provision shall be made for an development and vehicle access can be enclosed rear garden area of not less than readily obtained to a highway or service 90 sq.m., adequately screened from public road (see also 3(g) below). view. The Borough Council will be prepared to consider the provision of (f) Where a layout makes provision for small smaller enclosures having regard to the terraced houses and/or enclosed garden type and design of the house proposed areas of less than 63 sq.m., the Borough but, in any event, the area shall be not less Council will, if necessary, impose a than 45 sq.m. The enclosed garden area condition on any permission or approval may include an area to the side of a granted removing the ‘’Permitted dwelling provided that all other material Development’’ provisions of Schedule 2 considerations regarding distance between [Part 1] to the Town and Country Planning buildings can be satisfied. General Permitted Development Order 1995. (b) In the case of a one-bedroom terraced house, an enclosed rear garden area shall (g) Where a scheme includes maisonette be provided to a size to be determined on and/or flat development and no provision individual merit. is made for enclosed garden areas, adequate open space shall be provided (c) In all cases where the enclosed garden around the individual blocks and shall be area is less than 90 sq.m., the dividing landscaped in accordance with details wall or fence between individual house approved by the Borough Council. In plots shall be of a solid form of addition, an enclosed drying area shall be construction to a height of not less than provided for each block. 1.8m. for a distance of not less than 4.6m. from the main rear wall of the dwelling. (h) Where a development comprises 5 dwelling units or less [e.g. an infill (d) In cases where the side garden of a scheme] it will be expected to have regard dwelling is enclosed, the wall or fence to the character of the existing residential shall be constructed to the boundary of area in which it is to be sited, in addition the site with the public footway except to the guidance set out above.
138 Luton Local Plan 2001 - 2011 (i) In the case of all forms of traditional the proposal, unlike a larger housing estate house, maisonette or flat development, scheme]. provision shall be made for an undeveloped area of not less than 21.3m. 3. Garages and Parking in depth between the back or front of any Spaces building and the back or front of any neighbouring building, and a minimum (a) These shall be provided in accordance area of 13.7m in depth between the back with the maximum parking standards set or front of any building and the side of out in Appendix 4. any neighbouring building. (b) Driveways shall have a minimum length of (j) All dwellinghouses shall be provided with 4.9m. measured from the boundary of the a pedestrian access from the public site with the highway or footpath. footway to the rear garden area, where (c) Where parking provision is to be made in such provision can be achieved in a safe either garage blocks or grouped parking and secure manner. Appendices spaces, or a combination of both, the (k) In the case of one bedroom and maximum number of garages or spaces in bedsitting-room flats or maisonettes, a any one block shall not exceed 12. minimum of 5 sq.m. of amenity space per (d) Any garage court or grouped parking area flat shall be provided. In the case of two shall be designed and landscaped as an bedroom units a minimum of 25 sq.m. per integral part of the overall scheme, and flat shall be provided. For all other flats or include natural surveillance from nearby maisonettes, the minimum standard of dwellings. provision shall be the same as that for single dwellinghouses - 45 sq.m. Where (e) Any block of garages or residents’ or appropriate, this amenity space provision visitors’ parking spaces shall be sited not may be grassed or hard surfaced, having more than 50 m. from the furthest regard to the immediate surrounding dwelling which that group is designed to environment, and shall include soft serve. There shall be a clearly defined landscaping and, for those units of pedestrian link from the garages or accommodation without internal drying parking spaces to the dwellings to ensure facilities, drying areas. safe and convenient use.
[NOTE: Flat occupiers generally do not seek or (f) All garages in garage blocks shall be expect the same level of garden amenity space constructed of facing brickwork or such as house dwellers. Nevertheless, in order to other material to match that used in the maintain the amenity of flat developments, of construction of the adjoining dwellings. In neighbouring housing and an area in general, the case of grouped parking spaces, the an area of amenity space should normally surface treatment shall be designed to be provided. The provision recognises that make those spaces clearly distinguishable a number of new-build flat schemes include from the adjoining public highway. All internal drying facilities but it also takes into grouped parking areas shall be screened as account the fact that there is likely to be an part of the overall landscaping scheme for increase in the number of flats which may the estate. be occupied by couples or single parents with young children. This will be applicable, (g) In the case of infill development schemes, particularly in the case of infill schemes where the spaces to be provided shall have easy children’s play space may not be a feature of access to a public highway or right-of-way
Luton Local Plan 2001 - 2011 139 and shall be to a standard of not less than The Council will also seek to meet the NPFA’s 4.9 m. by 2.4 m. per space to facilitate the recommendations in respect of equipped play parking of a car. Permission will not areas. These recommendations are as follows: normally be granted where the spaces are to be sited in a rear garden area, adjacent l Neighbourhood Equipped Area for Play to other private garden amenity space or (NEAP) at 600m from homes, catering house windows. for older children (minimum size 8,400 sq.m.); 4. Internal Criteria l Local Equipped Area for Play (LEAP) at 240 m. from homes, catering for 4-8 The Borough Council will require all new flats year olds (minimum size 1000 sq.m.); to be constructed to comply with modern and standards relating to sound attenuation. The
following standards are considered to be l Local Area for Play (LAP) at 100m. applicable in this instance:- from homes, catering for children up to 6 years (minimum size 100 sq.m.); (a) The separating walls and floors between flats should be expected to achieve a The provision of equipment and subsequent standard of sound insulation equivalent to maintenance of any play areas shall be the that specified in the appropriate sections subject of an Agreement with the Borough of the Approved Document relating to Part Council under Section 106 of the Town and ‘E’ of the Building Regulations 2000 , or Country Planning Act 1990 [as amended]. any updates thereof. NOTE: On occasion, planning permission for (b) Where lounges and kitchens adjoin development may be granted with little or no separating walls above ground floor level, on-site provision of play areas (or other green the separating walls should be expected to space), provided that a contribution is made achieve a standard of sound insulation towards provision elsewhere. better than ‘house party-wall grade‘ across of the frequency range 100 Hz to 6. Allotments 3150 Hz. In order to maintain a satisfactory standard of 5. Public Playing Space allotment provision in Luton, the Council has adopted a standard provision of 0.2 hectares In determining planning applications, the per 1000 population. There are currently Council will have regard to the following approximately 31 hectares of allotments standards. in use in Luton, which gives a current overall provision of 0.17 hectares per 1000 A total outdoor playing space allocation of population, slightly below this standard. 2.43 hectares per 1000 population, to be made up of:
(a) Formal playing space for sports: 1.6-1.8 hectares per 1000 population.
(b) Children’s playing space: 0.2-0.3 hectares per 1000 population for equipped playgrounds and 0.4-0.5 hectares per 1000 population for casual play space.
140 Luton Local Plan 2001 - 2011 3 ALTERATIONS TO DWELLINGS
1. Applicants and developers should, in garages are required to provide an internal preparing their development proposals, length of not less than 4.9m. and an have regard to the content of the Council’s internal width of not less than 2.2m. Supplementary Planning Guidance notes entitled ‘Designing for Sustainability - A (f) In the case of extensions to the front of Summary of Good Practice’ and ‘Designing semi-detached or terraced properties, the for Community Safety in a Quality design and appearance of any extension
Environment’. already constructed at an adjoining Appendices dwelling and the need to harmonise with 2. The Borough Council will assess that existing extension; applications for house extensions and (g) The appearance and effect on other buildings within the curtilage of a neighbouring properties of any fire escape dwellinghouse, against the following staircase to be constructed, irrespective of criteria as appropriate: whether or not that staircase is required to (a) The effect of the proposed extension or be provided under any other applicable building on neighbouring properties in legislation. From the planning viewpoint, terms of loss of sunlight or daylight, there will be a need to demonstrate that it particularly where the loss would be to a is not reasonably feasible to provide the habitable room [kitchen, living room etc.]; means of escape within the building;
(b) The effect of the proposed extension or (h) The proximity of any two storey or first building on neighbouring properties in floor side extension to the boundary of the terms of overlooking, leading to a loss of site and the subsequent effect on both an privacy; adjoining property and the street scene or other areas of public viewpoint in general; (c) The effect of the proposed extension in terms of visual intrusion due to its height, (i) In the case of extensions, buildings or the depth or general position in relation to construction of crossovers resulting in new neighbouring premises; or altered means of access to the public highway, the effect of the proposal on (d) The appearance, design, scale and highway and pedestrian safety and the character of the extension in relation to impact on the existing availability of on- the existing building; street and off road parking.
(e) In the case of garage extensions or buildings, the length of the driveway, bearing in mind the general need to maintain a 4.9 m. long drive to enable a car to stand clear of the highway. Such
Luton Local Plan 2001 - 2011 141 4 MAXIMUM CAR PARKING STANDARDS
Use Class Description Standard (Maxima)
A1 Retail - Food (over 1,000 sq.m) 1 space per 14m2
A1 Retail - Non-Food (over 1,000 sq.m) 1 space per 20m2 A1 General Retail (under 1,000 sq.m) 1 space per 30m2 A2 Offices (Business & Professional) 1 space per 30m2 A3 to A5 Cafes, Restaurants, Public Houses, Wine Bars etc 1 space per 30m2 B1 Business Use 1 space per 30m2 B2 Industry 1 space per 30m2 B8 Warehousing, Storage & General Distribution: under 235 sq. m 1 space per 30m2 over 235 sq.m 1 space per 50m2 C1 Guest Houses/Hotels 1 space per bedroom + appropriate standards for ancillary uses + 1 per 2 full time equivalent staff parking C2 Hospitals 1 space per 4 staff (on-site at one time) + 1 space per 2 patient beds + 4 spaces per consulting room + 1 space per 2 bedrooms for residential accommodation C2 Nursing Homes Space as follows: 7 - 10 residents – 4 11 - 15 residents – 5 16 - 20 residents – 6 21 - 25 residents – 8 26 - 30 residents – 10 + 1 space per bedroom for live-in staff C3 Dwellings: 4+ bedrooms 3 spaces per dwelling 2/3 bedrooms 2 spaces per dwelling 1 bedroom 1 space per dwelling
C3 Sheltered Housing 1 space per 3 units (of which 1 shall be designed to accommodate an ambulance) + 1 per warden D1 Higher/Further Education Establishments and Adult 1 space per 2 staff Training Centres + 1 space per 15 students (total, not full time equivalent) on all developments D1 Medical & other Health Practices 4 spaces per consulting room + 1 space per 2 staff D1 Pre-School Play and Nursery Provision, Day Schools 1 space per 2 staff
D2 D2 Uses not individually listed below 1 space per 22m2 D2 Cinemas and Theatres 1 space per 5 seats D2 Conference Facilities 1 space per 5 seats D2 Sports Stadia (with over 1,500 seats) 1 space per 15 seats SG Hostels and HMOs 1 space per bedroom
SG Launderettes 1 space per 30m2 SG PHV Offices 1 space per 30m2 + 1 space per 2 cars based at premises
142 Luton Local Plan 2001 - 2011 General notes
1. For those developments where there is no adopted parking standard, the amount of parking required will be determined by the Borough Council having regard to the transportation policies and objectives set out in this Local Plan.
2. The standards set out above will be the maximum permitted in new developments in Luton. However, in accordance with Policy T13 of this Local Plan, the Borough Council will limit parking for new development in the central area to that which is essential for operational purposes, and may seek to reduce the maximum standard in other areas highly accessible by public transport. Appendices 3. The minimum size of a standard parking bay is 2.4m x 4.9m
4. The floor space in all cases refers to the gross (external) floor area.
5. For mixed-use schemes, the parking requirement will be calculated separately for each use.
6. Where developments require servicing by goods vehicles, sufficient space for their standing and manoeuvring should be provided. Schemes should be designed to allow vehicles to enter and leave the site in forward gear.
7. In all uses likely to generate coach traffic, e.g. hostels, education establishments, sports facilities and theatres, schemes should provide adequate off-street facilities for coaches, including picking-up and setting-down points, manoeuvring space and parking spaces. Schemes should be designed to allow vehicles to enter and leave the site in forward gear.
8. Disabled parking spaces: In all developments providing 5 or more car parking spaces, a minimum of 1 bay or 5% of the total capacity (whichever is greater) should be designated and reserved for disabled users. Spaces should be a minimum of 3.6m x 4.9m and conveniently located close to the entrance of buildings.
Luton Local Plan 2001 - 2011 143 5 MINIMUM CYCLE PARKING STANDARDS
The Borough Council has a target to increase the proportion of journeys to work undertaken by cycle to 10% by 2012, and will therefore apply the following minimum cycle parking standards to all new non-residential developments.
Use Class Description Standard (Minima)
A1 Retail - Food (over 1,000 sq.m) 1 space per 10 staff (on-site at one time) + 1 space per 150 sq.m
A1 Retail - Non-food (over 1,000 sq.m) 1 space per 10 staff (on site at one time) + 1 space per 350 sq.m
D1 Higher / Further Education Estabishments 1 space per 10 staff (on-site at one time) + 1 space per 15 pupils/students (on-site at Adult Training Centres and Day Schools one time) Other non-residential developments with more 1 space per 10 staff than 10 employees on site at any one time
Other non-residential developments attracting Cycle parking for the public to be agreed significant numbers of the public with the council, in addition to staff parking in accordance with the above standard
General notes
1. The cycling ‘spaces’ to be provided above requires some form of stand to which the cycle can be securely chained.
2. Cycle parking should be conveniently located for users, offer security and be subject to surveillance during use. Wherever possible, it should be under cover.
3. In accordance with Policy T8 of this Local Plan, consideration should be given to the provision of storage and showering facilities for employees choosing to cycle.
4. Developers should take account of the need for cycle storage in the design of new residential schemes.
144 Luton Local Plan 2001 - 2011 6 TRANSPORT ASSESSMENT
Developers will be required to submit Transport Assessments relating to new proposals and re-development schemes if the proposed development meets any of the following criteria:
(i) non-residential developments of 500 square meters and above;
(ii) residential developments of 50 units and above; Appendices
(iii) any development likely to generate 100 or more vehicle movements per day;
(iv) non-residential development likely to employ 100 or more people;
(v) any activity likely to generate 10 or more deliveries per day;
(vi) any development, irrespective of scale, likely to generate trips at peak times in congested areas;
(vii) any development likely to generate trips at night in residential and/or other sensitive areas;
(viii) any development likely to rely on unsafe access;
(xi) any development likely to adversely affect the urban fabric, for example by requiring access in a conservation area;
(x) any development having an impact on traffic flows on trunk roads.
Luton Local Plan 2001 - 2011 145 7 TRAVEL PLANS
Developers will be required to submit (vi) where a Travel Plan would help to address Travel Plans with planning applications a particular local traffic problem for developments which are likely to associated with a planning application, have significant transport implications, which might otherwise have to be refused including those for: on local traffic grounds.
(i) retail, community and leisure facilities in Developers will be required to demonstrate excess of 1,000 square metres gross that adequate arrangements have been made floorspace; for the implementation and monitoring of (ii) offices and other B1 uses in excess of the Travel Plan and that the occupiers of 2,500 square metres gross floorspace; the development will comply with these arrangements. (iii) sports stadia or other facilities with 1,500 or more seats or people capacity;
(iv) smaller developments comprising employment, shopping, leisure, community and service activities which would generate significant amounts of travel in, or near to, locations where the Borough Council has adopted specific local initiatives and targets for the reduction of road traffic, or the promotion of public transport, walking and cycling;.
(v) new and expanded school facilities which should be accompanied by a School Travel Plan which promotes safe cycle and walking routes, restricts parking and car access at and around the school, and includes on-site changing and cycle storage facilities; and
146 Luton Local Plan 2001 - 2011 8 PERFORMANCE INDICATORS
Objective Performance indicator Target
Sustainable development strategy Amount of development on previously - 100% developed land. l Ensuring development is carried out in accordance with the sustainability aims set out in Policy 1 of the Bedfordshire Structure Plan 2011 l Ensuring development promotes the regeneration of Luton, through more sustainable patterns of development
Environment Appendices l Protecting and enhancing the Area of sites of nature conservation, biodiversity 0 natural and historic environment of or geological interest lost to development. Luton Opportunities taken to secure public art in 100% l Requiring good design in Luton to appropriate schemes. make it an attractive place and to Opportunities taken to open up river channels deliver an urban renaissance 100% where feasible. Value of public art scheme secured (as % of 1% scheme) Number of listed buildings lost to development 0% Amount of major development proposals 100% approved which incorporate energy efficiency techniques.
Housing l Meeting local housing needs, Net additional dwellings completed 1991-2011 6200 including the need for affordable 100% housing % of residential schemes of 15 units or above (or 0.5 hectares), where affordable housing is provided on site at a level of 50%, or a commuted sum towards provision elsewhere, is provided. Density of new housing outside central area 40 dwellings/ha or above
Density of new housing in central area. 50 dwellings/ha or above
Leisure and community facilities Area of green space lost to development 0 l Making adequate and appropriate % of appropriate schemes where green space 100% provision for sport, leisure and is provided either on-site or as a contribution community development to meet towards enhanced provision elsewhere. local community needs % of possible instances in which commuted sum secured in respect of long-term maintenance of 100% new open space. Employment l Retaining, strengthening and adding Amount of identified employment land 0 to employment opportunities in developed for non-employment uses. Luton, which meets the needs of business and reduce local levels of unemployment
Luton Local Plan 2001 - 2011 147 Retail
l Retaining the sub-regional shopping Amount of retail floorspace constructed in 500 sq.m (net) role of Luton and maintaining the central area shopping policy area (incl. ‘nothern of convenience vitality and viability of the central gateway’). floorspace in area and other shopping areas short term + whilst meeting the shopping needs 4,000 sq.m. of of residents non-bulky goods comparison floorspace in medium - terms (2006) Amount of retail floorspace developed outside 0 existing shopping policy areas. Amount of non-retail frontage at ground floor Not to exceed level in primary shopping frontage. 25%
Transportation
l Promoting public transport, cycling Planning permission granted for development 0% and walking to Luton, to reduce the that could prejudice implementation of need to travel by car, thereby Translink scheme. reducing congestion and motorised Opportunities taken to secure adequate 100% transport’s contribution to contribution to enhancing footpath/cycle greenhouse gases networks in appropriate schemes. Opportunities taken to secure adequate 100% contribution to enhancing public transport provision in appropriate schemes. Number of instances where car parking 0% provision associated with new development exceeds maximum standard specified. % of appropriate schemes where cycle parking 100% provided to minimum standard specified. Utilities
l Accommodating the demand for Amount of new buildings (of 1,000 sq.m. 100% telecommunications, managing floorspace +) incorporating renewable power waste in a sustainable way, and generation equipment to provide at least 10% accommodating future energy needs of predicted energy requirements. Action Areas
l Identify areas of change and Master plans finalised for Marsh Farm, High By adoption opportunity in Luton, and setting Town and central area action areas date of Local out the key priorities to guide future Plan development Extent to which identified targets met by Compliance with London Luton Airport regarding (1) results in (1) noise levels; and noise impact that is below the 1999 level; and (2) ‘modal shift’ from private motor vehicles to (2) current more sustainable means of transport. surface access strategy.
% of airport related parking spaces provided 0 outside the airport
Implementation Opportunities taken to secure actual, or 100% financial provision towards, facilities made l Securing delivery of appropriate necessary by development schemes. development in Luton Opportunities taken to secure actual, or 100% financial provision towards, facilities for which there is a local or Borough need.
148 Luton Local Plan 2001 - 2011 9 SUPPLEMENTARY PLANNING GUIDANCE
Supplementary Planning Guidance (SPG) formally adopted by the Borough Council:
1. Nature Conservation Strategy (1992)
2. Shopfront Design Guide (1993)
3. London Luton Airport Development Brief (2001)
4. Designing for Sustainability - A Summary of Good Practice (2003) Appendices
5. Designing for Community Safety in a Quality Environment (2003)
Luton Local Plan 2001 - 2011 149 RELEVANT PLANNING POLICY GUIDANCE NOTES 10 AND STATEMENTS
Relevant Planning Policy PPS12: Local Development Frameworks Guidance Notes and (September 2004)
Statements PPG13: Transport (March 2001) PPS1: Delivering Sustainable Development (February 2005) PPG14: Development on Unstable Land (April 1990) PPG2: Green Belts (January 1995) PPG15: Planning and the Historic Environment (September 1994) PPG3: Housing (March 2000) PPG16: Archaeology and Planning (November 1990) PPG4: Industrial and Commercial Development and Small Firms PPG17: Planning for Open Space, Sport and (November 1992) Recreation (July 2002) PPS6: Planning for Town Centres (March 2005) PPG18: Enforcing Planning Control (December 1991) PPS7: Sustainable Development in Rural Areas PPG19: Outdoor Advertisement Control
(August 2004) (March 1992)
PPG8: Telecommunications PPG21: Tourism
(August 2001) (November 1992)
PPS9: Biodiversity and Geological PPS22: Renewable Energy Conservation (August 2004) (August 2005) PPS23: Planning and Pollution Control PPS10: Planning for Sustainable Waste (November 2004) Management (July 2005) PPG24: Planning and Noise (September 1994) PPS11: Regional Spatial Strategies (September 2004) PPG25: Development and Flood Risk (July 2001) PPG12: Development Plans (December 1999)
150 Luton Local Plan 2001 - 2011 GLOSSARY
Luton Local Plan 2001 - 2011 151 152 Luton Local Plan 2001 - 2011 GLOSSARY
AFFORDABLE HOUSING BIODIVERSITY ACTION PLAN (BAP) Housing that will be available to people who A Plan to conserve or enhance biodiversity, cannot afford to buy or rent houses available which sets out detailed action on how it will on the open market. be achieved, either nationally or locally.
AGENDA 21 BROWNFIELD SITES An agreement originating from the 1992 UN Previously developed land (PDL). Brownfield Earth Summit. The Agenda sets out what sites may require remedial works prior to needs to be done in order to tackle the social, redevelopment becoming possible. Glossary economic and environmental problems which are threatening the planet. See also Local BULKY GOODS Agenda 21. Durable goods (see below) that are too large and/or heavy to be taken away by shoppers AREAS OF GREAT LANDSCAPE VALUE and usually have to be delivered (e.g. furniture/ (AGLV) fridges/freezers/cookers/building materials). Designated by the County Council as landscape areas of particular value to Bedfordshire and CENSUS Luton. A ten year population count carried out by the Office for National Statistics (ONS). The AREA OF OUTSTANDING NATURAL BEAUTY 2001 Census is the most recent and accurate (AONB) population count. An area that is of such outstanding natural beauty to be of national importance. CHANGE OF USE Designated by the Countryside Agency under The use of a building or other land for a Section 87 of the National Parks and Access to different purpose. In considering a change the Countryside Act 1949 to protect landscapes of use it is normally necessary to establish of national importance. Luton lies within the whether the change is ‘material’ and whether Chilterns AONB. by virtue of the provisions of the Town and Country Planning (Use Classes) (Amendment) ARTICLE 4 DIRECTION (England) Order 2005 development requiring A provision of the General Permitted planning permission is involved. Development Order 1995 (see below) that allows for the removal of permitted CIRCULARS development rights in certain areas. Statements of Government policy, often supplying guidance or background information BIODIVERSITY on legislative or procedural matters which The variety of organisms on land, in water and may prove to be a material consideration in in the air, the habitats in which they live and the determination of a planning application if the relationship between them. relevant to the decision.
Luton Local Plan 2001 - 2011 153 COMMUNITY STRATEGY (OR PLAN) newspapers, cigarettes, etc). A statutory document prepared under section 4 of the Local Government Act 2000 in order COUNTY WILDLIFE SITES (CWSs) to promote the economic, environmental and Key sites of local nature conservation interest, social well-being of an area. In Luton, the designated by the Borough Council. They Community Plan 2002-12 has been developed are formally known as Prime Sites of Nature by the Luton Forum, a partnership between the Conservation Importance. public, private and voluntary sectors. DEVELOPMENT COMMUTED SUMS The carrying out of building, engineering, A sum of money paid to a Local Authority mining, or other operations in, on, and over or by a developer (often under a Section under land or the making of a material change 106 Agreement) to provide facilities or in the use of any buildings or other land. improvement connected with a development. DEVELOPMENT BRIEFS CONDITIONS Guides to the amount, type and design of Clauses attached to a planning permission development that will be permitted on specific considered necessary, relevant, enforceable, sites. precise and reasonable to enable a development to proceed where it might DEVELOPMENT PLAN otherwise be necessary to refuse permission. Documents that together set out the policies and proposals for the use of land within an CONSERVATION AREA area. In Luton this comprises the Structure An area designated under Section 69 of the Plan, the Local Plan, the Minerals and Waste Planning (Listing Buildings and Conservation Local Plan and the Regional Spatial Strategy. Areas) Act 1990 as an area where it is desirable The development plan provides the primary to preserve or enhance the character of its basis for the consideration of planning special architectural or historic interest. applications. A range of new Development Plan Documents has been introduced by the CONTAMINATED LAND Planning and Compulsory Purchase Act 2004. Defined in section 78A of the Environmental Protection Act 1990 as ‘any land which DURABLE GOODS appears to the local authority in whose area it Those bought on an irregular basis (e.g. is situated to be in such a condition, by reason clothes, furniture, electrical goods, DIY of substances in, on or under the land, that - equipment). (a) significant harm is being caused or there is a significant possibility of such ENABLING DEVELOPMENT harm being caused; or Development which enables the Council to (b) pollution of controlled waters is being, secure a planning benefit which would not or is likely to be, caused’. otherwise be immediately forthcoming.
CONTROLLED PARKING ZONES ENFORCEMENT ACTION Areas where on-street parking is generally not A procedure used to seek the remedying of permitted between certain hours, except in a breach of planning control involving either marked bays. (a) unauthorised development or (b) non- compliance with conditions or limitations CONVENIENCE GOODS subject to which planning permission was Those often bought on a daily basis (e.g. food, granted.
154 Luton Local Plan 2001 - 2011 ENGLISH HERITAGE GYPSIES A body established to advise the Government People who have a traditional cultural and others on the preservation and preference for living in a caravan and who enhancement of ancient monuments, historic either pursue a nomadic habit of life or buildings and Conservation Areas, and to have pursued such a habit but have ceased promote public enjoyment and understanding travelling. It does not include members of an of the historic environment. organised group of travelling show people or circus people. ENVIRONMENTAL IMPACT ASSESSMENT (EIA) HEALTH ACTION ZONE A detailed assessment submitted by developers A partnership of local NHS organisations, the as part of the planning application process, Borough Council, the private and the voluntary of the likely environmental (built and natural) sectors working in areas with particular health impact of the proposed development. challenges. They were first introduced by the Government in the White Paper ’The New NHS’ FRONTAGE in 1997. On 1 April 1998 eleven successful Glossary The ground floor front of a building. partnerships nationally (including Luton) were granted Health Action Zone status. GENERAL PERMITTED DEVELOPMENT ORDER 1995 HAZARDOUS SUBSTANCES This sets out those categories of development A comprehensive list is given in Schedule which may be carried out without the need 1 of The Planning (Hazardous Substance) to apply for planning permission (called Regulations 1992. ‘permitted development’). The local authority can make legal directions requiring planning HISTORIC PARKS AND GARDENS permission to be obtained for particular types Those on a Register (produced by English of development which would normally be Heritage) of parks and gardens considered to allowed by an Order (e.g. planning condition be essential to an understanding of the history or Article 4 direction). of the landscape.
GREEN BELT HOUSING ASSOCIATION (also known as An area of open space around major towns Registered Social Landlord) and cities within which development will not A non-profit making organisation registered normally be permitted for uses other than with the Housing Corporation whose purpose those appropriate to rural areas. is the providing, constructing, improving or managing of houses for sale or rent. GREENFIELD LAND/SITES Land or sites that have not been previously INFRASTRUCTURE developed. The physical services necessary for buildings to be useable, e.g. roads, sewers, water, electricity GROSS FLOORSPACE and gas. The total floorspace of a building measured to the outside of all external walls. ‘JUST IN TIME’ MANUFACTURING AND DISTRIBUTION GROUNDWATER The practice of delivering goods or raw Water contained in the void spaces in pervious materials only when they are required for rocks and also within the soil. immediate use or sale.
Luton Local Plan 2001 - 2011 155 KEY WORKERS LOCAL TRANSPORT PLAN (LTP) Public sector employees who deal with the A statutory five-year strategy which aims to public directly to administer services, support, promote sustainable transport and provide healthcare and security. This term can include a safe and integrated transport network via nurses, teachers, the police and social care identified initiatives. The Luton-Dunstable LTP workers. covers the Luton, Dunstable and Houghton Regis conurbation. LISTED BUILDING A building included in a list compiled by the LOW COST HOUSING Secretary of State as a building of special See AFFORDABLE HOUSING. architectural or historic interest. LUTON 2011 LISTED BUILDING CONSENT Sets out the Council’s long term goals to The written permission of the Local Planning achieve by 2011, arranged under eight themes. Authority or Secretary of State to carry It was decided with reference to community out works for the demolition, alteration or preferences established in the consultation extension of a Listed Building (Planning (Listed undertaken for the Community Plan 2002- Building and Conservation Areas) Act 1990 2012. s.8). MATERIAL PLANNING CONSIDERATIONS LOCAL AGENDA 21 (LA21) Any consideration that relates to the use and The local application of Agenda 21. development of land. Material considerations must be genuine planning considerations, LOCAL HOUSING NEEDS i.e. they must be related to the purpose of A perceived demand for residential housing planning legislation and must also fairly and from local people which is commensurate reasonably relate to the issue in question. with their housing requirements. These requirements comprise all existing households MINERALS AND WASTE LOCAL PLAN in unsuitable housing who need to move; Produced by County Council and Unitary all concealed households living within other Councils setting out strategic guidance, on households who need to move; and all mineral workings, safeguarding reserves, and statutory homeless households who do not ensuring environmental protection, for the have access to a permanent home. whole of their area.
LOCAL NATURE RESERVE (LNR) MOBILITY HOUSING Established by Local Authorities under Dwellings suitable for easy adaptation, without the National Parks and Access to the structural alteration, for disabled people, Countryside Act 1949 (as amended) to provide including those confined to wheelchairs. The opportunities for public involvement in nature buildings must have suitable sized rooms, conservation at a local Level. doors and external access.
LOCAL PLANS MODAL SHIFT Detailed land use plans, produced by district A change in the means of transport, for councils to guide development in their areas. example from use of cars to public transport, Local plans are required to be in general particularly applied to all travellers within an conformity with the Structure Plan (see below). area or those travelling to a specific type of facility or destination.
156 Luton Local Plan 2001 - 2011 MONITORING continual monitoring is undertaken in order The process of collecting and checking to maintain accurate records of requirements information about what actually happens thereby being able to adjust provision once a Plan or policy is implemented, to see accordingly. whether changes need to be made to the Plan in response to changing circumstances. PLANNING AND COMPULSORY PURCHASE ACT 2004 MULTI-MODAL The new Planning and Compulsory Purchase Term applied to a number of regional Act 2000 received Royal Assent in May 2004 Government transport studies that cover all and provides a framework for reform. New types of transport and analyse how each can provisions started coming into effect in contribute to creating a more sustainable September 2004, with further Regulations and transport system. Development Orders to follow.
NATURE CONSERVATION STRATEGY PLANNING OBLIGATIONS A Borough Council strategy, adopted in 1992, Legal agreement made between a developer Glossary that provides a detailed approach to nature and the local authority under Section 106 of conservation within Luton. the Town and Country Planning Act 1990, by which the developer may carry out works, NEW DEAL FOR COMMUNITIES (NDC) make payments, or agree to certain conditions A Government initiative to address social covering matters which are outside the scope exclusion (see below) in neighbourhoods, of a planning permission and which may tackling unemployment, health, crime and include off-site works. education. In Luton, Marsh Farm was designated as a NDC neighbourhood in 2000. PLANNING PERMISSION A permission under Part 3 of the Town and NON-CONFORMING USES Country Planning Act 1990 to develop land or Established industrial/commercial uses which to carry out any development of land. cause a particular nuisance to neighbours (through either the activities undertaken or the PLANNING POLICY GUIDANCE (PPG) AND amount or type of traffic generated). PLANNING POLICY STATEMENT (PPS) Central Government advice on planning PARK AND RIDE matters. Motorist leaving vehicles at a car park, typically at the edge of a town, and making the journey PREVIOUSLY DEVELOPED LAND to the centre by a connecting bus or rail See brownfield sites. service. The term is also used for facilities to encourage this. PRIORITY AREA FOR ECONOMIC REGENERATION (PAER) PERMITTED DEVELOPMENT Identified in Regional Planning Guidance The Town and Country Planning (General 9, PAER’s are areas featuring deprivation Permitted Development) Order, 1995 grants of regional significance for which tailored planning permission for a number of specified regeneration strategies are produced and developments subject to certain conditions. implemented through a range of partnership This is known as ‘permitted development’. and funding approaches.
PLAN, MONITOR AND MANAGE Advocated in PPG3, an approach to the provision of housing requirements whereby
Luton Local Plan 2001 - 2011 157 PROPOSALS MAP RESIDENTIAL AMENITY A statutory part of a Local Plan showing, in Planning term applied to the level of map form, where policies apply. usefulness/benefit gained from, for instance, open space, shops, pleasant living environment PUBLIC SAFETY ZONES etc. The area within which development is restricted in order to control the number of RETAIL PARKS people on the ground at risk of death or injury An agglomeration of at least 3 retail in the event of an aircraft accident on take-off warehouses. or landing. RETAIL WAREHOUSES PUBLIC TRANSPORT INTERCHANGE Large single-level stores specialising in the sale A location where it is possible to change of household goods (such as carpets, furniture, between public transport services which may electrical goods and bulky DIY items) and be of a different type (e.g. between rail and catering mainly for car-borne customers and bus at a railway station that adjoins a bus often in out-of-centre locations. station). ‘SAFETY AROUND SCHOOLS’ REAL-TIME PASSENGER INFORMATION A scheme comprising education and SYSTEMS engineering projects designed to improve the Information of illuminated signs or video journey to schools, reduce child accidents and monitors about the running of a public influence travel behaviour in favour of more transport service, which is relayed to sustainable modes of transport. passengers as it becomes available. SCHEDULED ANCIENT MONUMENT REGIONAL PLANNING GUIDANCE (RPG) Archaeological remains scheduled under the AND REGIONAL SPATIAL STRATEGY (RSS) Ancient Monuments and Archaeological Areas Guidance to provide a framework for the Act 1979 and afforded special protection. preparation of local authority development plans. SECTION 106/LEGAL AGREEMENT See planning obligations. REGISTER OF HISTORIC PARKS A non-statutory list of parks and gardens of SEQUENTIAL APPROACH special historic interest maintained by English As defined by PPS6 the sequential approach Heritage. requires retail developments to be located so that first preference is for locations in REGISTERED SOCIAL LANDLORD appropriate existing centres, taking account of See Housing Association. an appropriate scale of development in relation to the role and function of the centre; and RENEWABLE ENERGY then edge-of-centre locations, with preference Energy obtained from natural resources that given to sites that are or will be well-connected cannot be exhausted, for example from the to the centre; and then out-of-centre sites with sun, wind, tides and waves. Energy generated preference given to sites which are or will be from combustible or digestible waste materials served by a choice of means of transport and is also regarded as renewable.
158 Luton Local Plan 2001 - 2011 which are close to the centre and have a high SITES OF NATURE CONSERVATION likelihood of forming links with the centre. IMPORTANCE Sites other than County Wildlife Sites (see SERAS (SOUTH EAST REGION AIRPORT above) that contribute to the biodiversity of STUDY) Luton and its Green Network. A study announced in March 1999 to assess the demand for airport capacity in the South SOCIAL EXCLUSION East and East of England, consider options for A situation suffered by individuals resulting how this might be addressed, and to appraise from a combination of linked problems such their economic, environmental and social as unemployment, poor skills, low income, implications. The findings from this study poor housing, high crime environments, provided the Department for Transport with bad health and family breakdown. Social the background for The Future Development exclusion can prevent people from access to of Air Transport in the United Kingdom: South employment, good quality housing or a bank East Consultation documents. account thereby negatively affecting their Glossary quality of life. SHOPMOBILITY An organisation (in Luton a charity) which SOCIAL HOUSING provides wheelchairs and similar mobility aids See AFFORDABLE HOUSING. to allow people with mobility difficulties to travel around shopping centres and to and SPECIAL NEEDS from nearby car parks or public transport Those sectors of the population, who facilities. may require specialised facilities or access arrangements, for example to housing or SINGLE REGENERATION BUDGET education. A Government scheme to support regeneration initiatives by the Community based on SPORT ACTION ZONE local needs. It covers activities to improve An initiative to create an effective and employment prospects, education and the sustainable sporting infrastructure in areas skills of local people; improve opportunities of high social and economic deprivation and for disadvantaged people; improve local ensure there is a more equitable participation environments and housing; support local in sport. Luton was one of the first twelve businesses and improve community safety. SAZ’s in the country and covers 6 wards. Locally it is administrated by the Luton and Dunstable Partnership who are responsible to STRATEGIC PLANNING AUTHORITY the East of England Development Agency. Bedfordshire County Council and Luton Borough Council in their joint role as SITE OF SPECIAL SCIENTIFIC INTEREST compilers/authors of the Structure Plan and (S.S.S.I.) the Minerals and Waste Local Plan. An area designated as such by English Nature, under the Wildlife and Countryside Acts 1981 STRUCTURE PLAN and 1985, in view of its particular value and Statutory document produced by County interest as a wildlife habitat. Councils outlining their strategy for development over a 10-15 year period.
Luton Local Plan 2001 - 2011 159 SUPERMARKETS TOWN AND COUNTRY PLANNING Single level, self-service stores selling mainly DEVELOPMENT ORDERS food, with a gross trading floorspace of Provision is made in the Town and Country between about 500 and 2,500 square metres, Planning Act, 1990 for the Secretary of State often with their own car parks. to make Development Orders which amongst other things grant planning permission for SUPERSTORES certain classes of development, thus obviating Single level, self-service stores selling mainly the need for a planning application to the food, or food and non-food goods, usually Local Planning Authority. The most recent with at least 2,500 square metres trading consolidated Development Order was the floorspace with dedicated car parks at surface Town and Country Planning (General Permitted level. Development Order) 2005.
SUPPLEMENTARY PLANNING GUIDANCE TOWN CRAMMING OR DOCUMENT (SPG/SPD) The excessive development or intensification of Guidance adopted by the District Council that use of urban areas. supplements or is additional to the Local Plan. TRAFFIC CALMING SUSTAINABILITY APPRAISAL The reduction of intrusive effects of motor An assessment of a scheme or plan which sees vehicles, especially speed, by a co-ordinated how well it fits with the ideas inherent in the series of measures including road humps, concept of sustainable development. widening footways/pedestrian areas, planting trees and bushes, speed limits, etc. SUSTAINABLE DEVELOPMENT Development that meets the needs of the TRAFFIC MANAGEMENT SCHEME present without compromising the ability of A scheme to promote more efficient traffic future generations to meet their own needs. movement in a given area, and/or improve the area’s environment, for example by SUSTAINABLE TRANSPORT rearranging traffic flows, controlling Forms or ‘modes’ of transport that impose intersections and regulating times and places fewer harmful environmental costs on the for parking. local and global environments. Typically these modes include walking, cycling, public TRANSLINK GUIDED BUSWAY transport, rail and water based freight. A guided bus system proposed to provide frequent services between and within Luton SUSTAINABLE DRAINAGE SYSTEM and Dunstable and surrounding areas. A drainage system which slows down the rainwater run off from a development, TRANSPORT ASSESSMENT preventing flooding and also cleaning up A study, normally provided by developers, pollutants. which details accessibility to a site by all means of transport, the likely distribution TOWN AND COUNTRY PLANNING ACT of journeys by each of these modes, and 1990 proposed measures to improve access by The statutory basis for town planning in public transport, walking and cycling, reduce England and Wales, relating to Local Plans the need for parking and mitigate transport that are nearing completion and to the impacts. control of development. See also Planning and Compulsory Purchase Act 2004.
160 Luton Local Plan 2001 - 2011 TRANSPORT DEVELOPMENT AREAS (TDAs) make up the public domain; the nature Highly accessible locations within which and quality of the public domain itself; the development and transport objectives are relationship of one part of a village, town integrated thereby ensuring efficient use or city with another part; and the pattern of land, i.e. promoting the location of of movement and activity which is thereby travel intensive land uses adjacent to major established. transportation interchanges. URBAN FRINGE TRANSPORT NODES The boundary between built up areas and the Identified locations that provide greater open countryside. integration of land uses with transportation requirements, particularly focusing on public URBAN REGENERATION transport networks. A process for enhancing the quality of life in urban areas through improvements in the TRAVEL PLAN vitality and viability of its activities and the A package of measures usually put together quality of its environment together with a Glossary by an employer, school or other body to reduction in the disparities between areas and encourage staff, pupils or patrons to travel by groups within the urban community. more sustainable modes of transport. URBAN RENAISSANCE TREE PRESERVATION ORDER A vision for urban regeneration founded on Statutory protection for individual trees, the principles of design excellence, social well groups, areas or woodlands. Any works to being, and environmental responsibility within preserved trees require the consent of the a viable economic and legislative framework. planning authority. USE CLASSES ORDER UNITARY AUTHORITY The Town and Country Planning (Use Classes) Following Local Government reorganisation in Order 1987, which groups land uses into 1997, a single tier system of local government categories (called ‘use classes’). Changes of was introduced in some non-metropolitan use between the classes requires planning areas to replace the two-tier system of permission, with certain exceptions defined by counties and districts. Luton Borough the General Permitted Development Order (see Council was established as a unitary authority above). The (Amendment) (England) Order which means that, in the most part, it now 2005 came into force on 21 April 2005. deals independently with functions formerly performed by the County Council, within its VIABILITY own area. The ability to attract investment and business.
URBAN CAPACITY STUDY VITALITY A study aimed at the accurate assessment of The level of activity taking place. the total housing capacity for an urban area. WINDFALL SITES URBAN DESIGN Sites that unexpectedly become available for The relationship between different buildings; housing development during the period of the between buildings and the streets, squares, Local Plan. parks, waterways and other spaces which
Luton Local Plan 2001 - 2011 161 162 Luton Local Plan 2001 - 2011 INDEX
Luton Local Plan 2001 - 2011 163 164 Luton Local Plan 2001 - 2011 INDEX
Advertisements 42 Affordable housing - see Housing, affordable Age structure 19 Aim 4,5,17,23-25,44,133,147 Airport - London Luton action area 5,16,104,119-124,148 development brief 120,121,149 employment 20 green environment 30,130
flight path 113 Index master plan 75,76 noise 44,119,120,121,148 public safety zone 113,123,158 renewable energy 102,137 transport 18,87,91-92,96,130,148 Wigmore employment area 75 Allotments 32,62-63,140 Archaeology 33-34,130 Areas of Great Landscape Value 30,113,153
Best Value Performance Plan 15,17 Biodiversity 5,17,28,31-33,43,52,62,137,147,153 Buildings and spaces - see Design Principles Bus station 17,78,87,106,109 Buses 17,55,86,87,91-92,93,95,96,98 Butterfield 5,16,17,25,65,70,74,76,87,97,98,104,110-112
Capability Green 67,74,75 Cemetery 31,110,111,112 Central Area action area 5,16,184,105-109,148 bus and railway stations 109 Cultural Quarter 65,106-107,108 Gap Site 106-107 housing density 55,147 Northern Gateway 108 open space 107-108,138 Power Court 109 retail 72,78,81,113,114,142,148 River Lea 42,147 town centre development framework 105 transport 89,91,96,97-98,106,142-143,144,145,146 Changes to the planning system 10,11 Childcare facilities 69 Chilterns Area of Outstanding Natural Beauty 29,111,153
Luton Local Plan 2001 - 2011 165 Community facilities 5,16,17,18,24,25,48,51,61,65-69,82,93,105,107, 115,117,118,125,146,147 Community plan 10,15,16-17,154,156 Community safety 16,38,39,141,149,159 Conservation areas 36-37,100,108,117,145,154 Contaminated land 17,44,45-46,154 Corner shops - see Retail, local convenience County Wildlife Sites 31,33,154 Cultural quarter 65,106-107,108 Cultural Strategy 17,61 Cycle parking 93-94,144,148 routes 31,42,62,75,78,86,89,93 Cycling 17,24,65,68,77,82,88,89,90,92,93,94,95,96,97, 137,146,148,160
Design principles 38-40 Designing for Sustainability 33,38,39,54,55,138,141,149 Development Brief 42,108,120,121,149,154
Economic Development Strategy 17,73 Education dual use of facilities 68-69,107 facilities 15,16,25,59,61,65-66,68,87,93,107,115,117,130, 143,146 Employment general 5,18,20,25,38,48,49,72,73-76,79,105,106,137,14 7,159 key areas 16,74,75,76 existing sites 54,73 need 15,16,23,24 new sites 74,75,76,106,110-112,115,118,121-122,125-126 transport 87,94,96,97,98,146 Energy efficiency 38,39-40,45,74,91,147 Enforcement 5,59,90,97,128,131-132,154 English Heritage 29,155,158 Environment Agency 42,43 Environmental Impact Assessment 29,155 European Social Fund 17
Flood-risk 43,130,150,160 Freight 87,88,89,94,119,160
Gap site 106-107 Green Belt 18,30,113,114,122,150,155 Green space 16,17,24,25,29,48,50,61-64,69,130,137,147 Groundwater protection 43-44,155 Gypsies / Travellers 59-60,155
Hart Hill area 30 Hazardous installations/substances 44,155
166 Luton Local Plan 2001 - 2011 Milton Keynes andSouthMidlandsStudy Minerals andWaste Local Plan Marsh Farm Luton T London LutonAirport-seeAirport-London Local Transport Plan Listed Buildings Libraries Leisure Legal Agreements-seePlanningobligations Landscaping Kimpton Road Infrastructure Implementation useofupperfloorsas Housing Hospital, L&D High Town Health
own Football Club facilities waste andrecycling transport telecommunications renewable energy public utilities windfall tenure strategy statement strategies standards sites registered sociallandlords previously developedland phasing needs loss of land supply extensions density conversions backland allocations affordable Action Zone facilities general
11,30,105, 4,11,102,156,159 5,16,82,104,115-116,148,157 69,70,113,114 17,88,90,92,106,156 35-36,108 18,65,130,131 106,111,115,125,137,146,147 5,15,16,17,18,23,24,38,48,51,61-70, 15,34,48,75,81,89,92,105,106,108,137,147 5,28,33,37,39,40-41,75,111,112,122,123,139 5,70,83,87,104,125-126 102 86-98,121 86,99-100 86,101-102 86,100-101 5,17,24,42,74,86,116,129,130,155 3,5,25,128-133,148 49,52 52,54 56,58,137 49 17,52 39,49,52,54,138-140 11,49,50,51,54,56,57 57,58,155,158 50,52,54 52 24,25,48,49,51,52,55,56,57,58,147,156 51,66,69 50 35,36,40,55-56,141,156 49,54-55,89,111,112,147 36,44,48,52,54,84 48,52 51,53 16,24,48,49,53,55,56-58,130,137,147,153 18,66,89,142 5,16,17,18,36-37,66,82,104,109,117-118 17,66,155 15,16,17,61,65,66,68,82,115,142 15,38,44,45,46,62,66,73,93,99-100,115,157 Luton Local Plan Local Luton 2001 - 2011 - 2001 88,93,95, 167
Index Mixed use area see Chapel Langley 50,53,80,106,108 Mobility - people with restricted 31,65,88,90-91,94,98,156,159 Monitoring 5,73,90,119,121,122,127,132-133 Motorways 18, 30, 44, 78, 87, 91, 96, 98, 113-114, 121
Nature conservation 5,17,32-33,62,100,113,114,137,147 New Deal for Communities 115,157, Noise 32,44,45,52,54,59,67,69,76,82,95,119,120,121, 148 Northern gateway 81,108 Objectives 4,5,15,21,23,24,25,26,28,32,43,48,57,72,77,80, 86,88,89,90,93,95,105,109,115,126,128,130, 132,133,137,143,161
Park and Ride 17,19,98,106,111,112,114,157 Parking 5,17,35,49,52,54,55,59,66,69,82,89,90,91,93,94, 95,97-98,106,107,114,121,122,123,125,139-140, 141,142-144,146,148,154,160 Pedestrian routes 107 Pedestrians (also see walking) 75,77,78,79,88,90,93,95,96,111 Performance Indicators 128,132,147-148 Plaiters Lea 18,36,108 Planning Obligations 5,10,64,91,109,128,129-131,157 Planning Policy Guidance Notes PPS 1 4,9,35,38,150 PPG 2 150 PPG 3 23,49,50,52,54,56,63,93,97,132, 150, 157 PPG 4 73,76,150 PPS 6 67,77,78,79,80,81,82,158,150 PPS7 150 PPG 8 99,150 PPS 9 32,150 PPG 10 102, 150 PPS 11 150 PPS 12 10,150 PPG 13 23,55,88,89,92,93,95,97,150 PPG 14 150 PPG 15 35,36,150 PPG16 33,150 PPG 17 61,62,64,150 PPG18 131,150 PPG 19 42,150 PPG 21 150 PPS 22 101,150 PPS 23 44,45,150 PPG 24 44,119,150 PPG 25 150 Play areas 140 Playing fields 62,63,64,65,68 Pollution 5,28,32,43-45,76,87,91,95,98,122,133,137,150, 154
168 Luton Local Plan 2001 - 2011 Taxis Targets Swimming pool Sustainable development Sustainability appraisal Students Structure Plan Stockwood area Sport ActionZone Spatial developmentstrategy Social inclusion Single RegenerationBudget(SRB) Shopfronts Schools Scheduled AncientMonuments Roads Retail Replacement offacilities Renewable energy Religious Buildings Registered Parks andGardens Regional PlanningGuidance-(RPG9) Recreational buildings/facilities Railway stations Public utilities Public transport Public safetyzone Public art Proposals Map Private carhireoperators Population structure vacant shops town centre secondary primary premier local district shopping areas local convenience allocations 88,91,93,94-95 15,90,91,101,120,121,128,132,133,146,148 67 4,5,9,17,23,36,38,44,54,86,88,133,137,147,150, 26,160 52,58,65,142,144 101,147,156,159, 4,9,10,11,30,35,41,50,51,61,77,82,88,94,96,99, 69,104,113-114 61,159 5 17,57,61,90,137 17,159 39 59,61,65,66,67,89,93,95,96,99,115,142,158 34 18,66,87,96-97,145,155 84 17,18,24,67,72,77,78,80,81,87, 78,81 78,81,148 81 78,82,83 82,83 24,39,52,72,78,79,81,148 82,84 80 24,38,42,53,67,72,73,75,77-84 5,128,131 86,101-102,137 65 29 9,10-11,23,24,38,39,50,73,77,88,89,120,137,158 62,118 17,18,87,108,109 86,99,100 120,121,137,143,146,148,158,159,160 88,89,90,91-93,97,98,106,109,110,111,112,114, 15,17,24,26,49,50,52,54,55,58,59,67,77,81,86, 123,158 41-42,147 158 108,109,112,114,115,116,118,121,122,123,125, 4,32,34,36,50,51,53,74,75,76,80,81,83,92,96,107 166 166 Luton Local Plan Local Luton 2001 - 2011 - 2001 169
Index Telecommunications 24,86,99-100,148,150 Tourism 34,70,150 Town centre 17,18,24,67,72,77,78,80,81,87,93,96,97,98,105, 108,109,126,150 Town Centre Partnership 17,105 Traffic development implications 52, 55, 66, 67, 70, 75-76, 80, 90, 96 management 89,92,95-96,117,160 Trains 92 Translink 17,91,92,98,121,148,160 Transport Assessments 89,90,145 Interchange 93,105,158 Travel Plans 66,89,90,93,95,96,146 Tree Preservation Orders 41, 161
University, Luton 65,107,110 Urban capacity study 50,51,161
Vauxhall site 18,20,67,72,87,96,104,125 Vision for Luton 23,24,25 Visitor accommodation 79
Walking 17,24,58,62,65,77,84,86,87,88,89,90,92,93,95, 97,106,107,137,146,148,160 Warehousing 73,74,75,76,126,142 Waste and recycling 102, Water resources 5,28,42,43 Wigmore employment area 75
170 Luton Local Plan 2001 - 2011
ISBN No 189833028 X
www.luton.gov.uk
Designed by Communications Division. Luton Borough Council NMD 000124 February 2007