LOCAL DEVELOPMENT FRAMEWORK- ANNUAL MONITORING REPORT
2010
BURNLEY BOROUGH COUNCIL December 2010 Burnley Local Development Framework: Annual Monitoring Report 2010
This Annual Monitoring Report covers the period from 1 April 2009 to 31 March 2010. It sets out the progress on the implementation of the policies in the Burnley Local Plan and the extent to which related targets are being met. Performance in relation to the timetable and milestones set out in the Local Development Scheme is also measured.
It has been prepared in accordance with Regulation 48 of the Town and Country Planning (Local Development) (England) Regulations 2004.
Contact
This report is published by:
Policy & Environment Team Planning & Environment Service Burnley Borough Council PO Box 29, Parker Lane Offices BURNLEY BB11 2DT
For further information, please contact the Policy & Environment team at:
Phone: 01282 425011 extension 4753 Fax: 01282 664764
Email: [email protected]
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CONTENTS
1 Introduction 4
2 Spatial Portrait of Burnley 5
3 Contextual Indicators 7
4 Issues, Challenges and Opportunities 43
5 Analysis of Output Indicators 45
6 Significant Effectors Indicators 91
7 Local Development Scheme Implementation 92
8 Evidence Base/Key References 103
Appendices
Appendix 1 Locally Important Nature Conservation Sites
Appendix 2 Local Plan Objectives and SCI objectives
Appendix 3 Sustainability Appraisal Objectives and Indicators
Appendix 4 Area Action Plan Indicators
Appendix 5 Significant Effects Indicators
Appendix 6: Building for Life Assessments
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1.0 INTRODUCTION
1.1 Planning Policy Statement 12: ‘Local Development Frameworks’ indicates that review and monitoring are key aspects of the ‘plan, monitor and manage’ approach to planning (paragraph 4.45). It is a requirement of the Town and Country Planning (Local Development) (England) Regulations 2004 that local planning authorities prepare an Annual Monitoring Report (AMR).
1.2 In accordance with PPS12, the AMR will consider:
whether the timetable and milestones for the preparation of documents set out in the Council’s Local Development Scheme have been met or, where they are not being met or not on track to being achieved, the reasons why;
whether policies and related targets in the Burnley Local Plan/subsequent Local Development Documents have been met or progress is being made towards achieving them, or where this is not the case, the reasons why;
what impact the policies are having in respect of national, regional and local policy targets, and any other targets identified in Local Development Documents. Regulation 48 specifically requires information to be provided on net additional dwellings and housing trajectories to be produced to demonstrate how policies will deliver housing provision in the future;
what significant effects implementation of the policies is having on the social, environmental and economic objectives by which sustainability is defined and whether these effects are as intended;
whether the policies in the Local Development Framework need adjusting or replacing because they are not working as intended; and
whether the policies need changing to reflect changes in national or regional policy.
1.3 Thus, Local Development Documents will be continually reviewed and revised and the Annual Monitoring Report will be the main mechanism for assessing the Local Development Framework’s performance and effects. Monitoring may also show the need to address other factors over and above reviewing the policies. For example, there may be a necessity to review or extend the monitoring framework itself or propose actions in relation to related local strategies and initiatives.
1.4 This year’s AMR will be the fourth to monitor the policies of the Burnley Local Plan Second Review (referred to in this report as the ‘Local Plan’) which was adopted in April 2006.
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Annual Monitoring Report and Wider Monitoring Framework
1.5 Monitoring of Local Plan policies in Burnley through the Annual Monitoring Report takes place within the context of sub-regional, regional and national monitoring frameworks.
1.6 The AMR is based on a set of national Core Indicators which provide a set of consistent and comparable definitions for planning bodies. In the North West local authority data relating to the core indicators is used to build up a regional picture of spatial planning performance and informs the Annual Monitoring Report of the Regional Spatial Strategy (RSS).
1.7 While the Joint Lancashire Structure Plan has now been superseded by the RSS, Lancashire County Council continues to report annually on spatial planning issues at the county level. This report and other statistics held on the County’s website are major sources of data for this AMR.
1.8 Annual Monitoring Report Core Indicators were significantly revised in 2008. Some indicators were removed from the national Core set but most of these, having been monitored in Burnley in recent years, were retained within the AMR and continue to be reported on as Local Indicators.
1.9 Three of the core indicators, net additional homes, affordable homes and deliverable housing sites are part of the set of 198 National Indicators by which local government performance is now assessed (national Indicators, NI154, NI155 and NI159 respectively). See The New Performance Framework for Local Authorities and Local Authority Partnerships: Single Set of National Indicators (HMSO 2007).
1.10 40 of these new National Performance Indicators are monitored by the relevant service units of the Council as are a set of Local Indicators. Some of the national indicators formed part of the Council’s Place Survey 2008/9 in which 3,000 randomly chosen residents were asked there views on the quality of life and services within the borough. Some of the 40 indicators are also monitored jointly with other local authorities in Lancashire under the Local Area Agreement (LAA) and the Pennine Lancashire Multi-Area Agreement (MAA).
2.0 SPATIAL PORTRAIT OF BURNLEY
2.1 Burnley borough is situated in the eastern part of Lancashire adjoining other former textile areas in Lancashire and Yorkshire. It covers an area of 11,072 hectares (42 square miles) and its compact urban area, stretching along two river valleys, is surrounded by the moorland countryside of the South Pennines.
2.2 Burnley is a key town in the North West and, along with Blackburn, Blackpool and Preston it is one of the key centres in Pennine Lancashire, the wider county and the Central Lancashire City Region. It is the retail, business and service centre for Pennine Lancashire. Padiham is a separate town within the borough that serves a wide rural hinterland.
2.3 Although Burnley is quite well connected to the rest of the Central Lancashire City region by rail and road, its links to the other city regions which adjoin it, Manchester and Leeds, are poor.
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2.4 The borough’s population is currently estimated to be 85,600, a decline from 89,500 since the 2001 Census. It is the only district in Lancashire that has experienced such population decline. Population projections for the borough indicate that the population will continue to decline to 83,700 by 2033.
2.5 The borough has a diverse population with about 10% of its residents being black and minority ethnic members of the community. There is currently a pattern of residential segregation in Burnley with ten out of fifteen of its wards having 3% or fewer residents who are not white. Burnley is made up of many neighbourhoods, including rural areas, such as Dunnockshaw, the villages of Cliviger and Worsthorne, suburban areas like Ightenhill and inner urban areas. Within these inner urban neighbourhoods, there are significant pockets of deprivation including high levels of crime, deep-rooted health problems and housing market failure. In this respect, Burnley displays similar characteristics to some of the major urban areas of the region, such as Manchester and Liverpool.
2.6 However, in one significant respect Burnley is quite different and this affords a great opportunity in terms of transforming the borough. Over 80% of the borough is rural and the urban area characteristically has open views of the surrounding countryside, including the Pennines.
2.7 Much of Burnley’s character and distinctiveness today derives, not only from its attractive Pennine setting but also from its development during the Industrial Revolution. This gave much of the inner part of the town its distinctive terraces, built of local stone in grid-iron street patterns, close not only to dominating mill buildings but also to attractive open areas, such as the borough’s fine formal parks and the Leeds-Liverpool Canal.
2.8 The quality of Burnley’s built and natural environment has a unique capacity to support future growth. The borough’s current employment base plays a key role in the economy of the Central Lancashire City Region. It will continue to be of great importance to the economy of the sub-region with advanced manufacturing being a key economic driver, supported by the development of the Burnley College and University campus and by new secondary school provision under the Building Schools for the Future programme. Its industrial past opens up exciting opportunities for the future, such as the potential for employment, leisure and housing development in canalside areas. Added to this, the Elevate Housing Market Renewal Initiative affords the opportunity to provide a greater choice of housing in the borough in order to reverse population decline.
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3.0 CONTEXTUAL INDICATORS
POPULATION
3.1 In June 2009, the population of the borough was estimated to be 85,600 (ONS), a decrease of 0.5% on the previous year. The population therefore continues to decline as it has done since 1991 due to out migration from the borough. All other Lancashire authorities seem to have experienced population growth over this period, although latest figures show small declines in Preston, Ribble Valley, West Lancs, Blackpool and Hyndburn.
3.2. Of the current population, 41,700 (48.71%) are male and 43,800 (51.16%) female (mid 2009, ONS). The population density is 771 people per square kilometre (compared to 489 in the North West and 363 in the UK) (mid 2009, ONS).
3.3 Burnley’s majority ethnic group is white British (87.4%) but there is a significant Asian heritage community in the area (8.7%). There are other small populations as follows: mixed (1.0%), black British (0.5%), Chinese or other ethnic group (0.5%), Irish (0.9%) other white (1.0%) (2007 mid year population by ethnic group, ONS 9 (experimental statistics). In 2008/09 there were 280 registrations by foreign nationals in Burnley. This was 60 fewer than in the previous year (a decrease of 18%). Most people (90) registering were Pakistani. The second largest group (30 people) were Polish .
3.4 The authority has had a tendency towards a younger population and fewer people of pensionable age than is the average for England and Wales. (LCC profile). Working age population (age 16-64 male, 16-64 female) is 54,200 (2009 calendar year, Nomis) indicating a slight increase on the previous year. This may be attributed to the change in female age range which was 16-59, but is now 16-64 as of 11 August 2010.
3.5 Population projections for the borough indicate that the population will continue to decline to 83,700 by 2033. The recent decline in Burnley’s population has not been reflected across the sub-region (see Figure 1), and Burnley is the only district to show a continued population decline, with a -2.7% population change in 2008-2033, whilst there will be an 18% increase for England as a whole. It should be noted that the projections are based on trends in fertility, mortality and migration and are not influenced by local development/regeneration policies. Caution needs to be exercised in the use of projections as their degree of uncertainty increases with time.
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Figure 1: Population Trends for East Lancashire
Population Prejection for East Lancashire Districts to 2033
100
90
80
70 Burnley 60 Hyndburn 50 Pendle Ribble Valley 40 Rossendale 30 Population (thousands) 20
10
0 1991 2001 2006 2011 2016 2021 2026 2031 2033 Year
Source: ONS 2009
3.6 It is important that demographic changes and projections continue to be monitored regularly and that attention is paid not just to headline figures but to trends within specific age groups eg those of working age or the elderly as these potentially have important spatial planning implications for the Borough
For example:
• The decrease in the proportion of working age people in Burnley will be a specific issue in terms of supporting regeneration of the borough. If not addressed it could also threaten the long term sustainability of communities, undermining essential infrastructure, such as schools, on which they depend.
• Growth in the number of elderly people will place additional demands on physical and social infrastructure provision including health, education, social care, transport, utilities, recreation and leisure. It will also have a significant effect on the type of housing needed to meet the population’s needs in the medium and long term.
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Table 1: Length of residence by Area Action Plan Area
Area Name 1-5 yrs 6-10yrs 11-15yrs 16-20yrs 21-25yrs 26-30yrs Over 30yrs Burnley Wood and 79% 2.9% 7.3% 5.1% 1.3% 0.7% 3.6% Healey Wood Daneshouse Duke 96.8% 0.8% 0.0% 0.0% 0.8% 0.0% 1.6% bar & Stoneyholme Padiham 47.7% 17.6% 7.7% 5.5% 7.6% 3.8% 10.1% Piccadilly/Trafalgar 46.7% 11.0% 9.9% 10.9% 5.2% 3.2% 13.1% South West Burnley 47.1% 15.4% 12.0% 7.9% 4.1% 5.7% 7.8% Burnley Non ADF 49.2% 17.4% 5.9% 7.2% 5.8% 5.7% 8.7% Total 53.3% 15.4% 6.2% 6.7% 5.3% 4.9% 8.2% Source: Pennine Lancashire House Condition Survey 2009
DEPRIVATION
3.7 The 2007 Index of Deprivation revealed a number of areas in the district with very high levels of deprivation. These figures are based on the Index of Multiple Deprivation which combines information from seven Deprivation Domains: Crime, Income Deprivation, Employment Deprivation, Education, Skills and Training Deprivation, Health Deprivation and Disability, Barriers to Housing and Services and Living Environment Deprivation.
3.8 The Index provides figures at the level of Super Output Areas or SOAs – each ward in Burnley being divided into four SOAs. Of the 32,482 SOAs in England, Burnley has nine in the bottom 1,000. All four SOAs in Daneshouse with Stoneyholme are in the worst 10% in the country; in Trinity ward, 3 are in the worst 10% and 1 in the worst 20%. In Bank Hall 2 are in the worst 10% and 2 in the worst 20%.
3.9 Of 354 local authorities in England, Burnley recorded an average index of deprivation score of 34.61 which gave a rank of average score of 21 st place (where 1st place = most deprived) (Indices of Deprivation 2007 and Lancashire Profile).
3.10 Of Burnley’s 60 SOAs the ‘direction of travel’ compared to 2004 was down for 46 SOAs (76.6%) and up for 14 SOAs (23.3%). 30 SOAs (50%) are in the most deprived 25% in the country, 22 (36.6%) are in the 15% most deprived, 14 (23.3%) are in the 10% most deprived, 12 (20%) are in the 5% most deprived and 7 (11.6%) are the 1% most deprived. Of the 25 SOAs in the most deprived 25% in 2004, all but two had become more deprived in 2007.
3.11 The 2007 Index shows that high levels of deprivation continue to be concentrated within the Daneshouse, Duke Bar & Stoneyholme, Burnley Wood and Healey Wood, Piccadilly/Trafalgar, and South West Burnley Area Action Plan areas. Further pockets of deprivation continue to be found within within the wider Burnley Pathfinder Intervention Area. In many of Burnley’s most deprived areas conditions have worsened significantly since 2004.
3.12 The 2008/9 Burnley Place Survey found a high degree of correlation between areas of worst deprivation and lowest levels of general satisfaction recorded in the survey.
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Map 1: Burnley Indices of Deprivation 2007
KEY Decile Index ranks Description Claret 1 to 3,248 The most deprived 10% of LSOAs in England Red 3,249 to 6,496 The second most deprived 10% of LSOAs in England Orange 6,497 to 9,745 The third most deprived 10% of LSOAs in England Pale orange 9,746 to 12,993 The fourth most deprived 10% of LSOAs in England Yellow 12,994 to 16,241 The fifth most deprived 10% of LSOAs in England Pale yellow 16,242 to 32,482 The sixth most deprived 10% of LSOAs in England
Source: Burnley Snapshot 2008 DCLG/LCCwebsite http://www.lancashire.gov.uk/office_of_the_chief_executive/lancashireprofile/misc/indexdepr ivation.asp
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EDUCATION
3.13 The percentage of Burnley pupils with 5 A*-C GCSEs was 54.3% (2008/09), which represents a significant increase from the previous year’s percentage of 49.5%. However, despite this encouraging increase levels of GCSE attainment in Burnley remain well short of those in the region (71% in 2008/09) and Burnley still has the lowest levels of attainment of districts within the region.
3.14 The percentage of adults qualified to NVQ4/5 was 24.3% for the 2009 calendar year, indicating a fluctuating trend, since the 2008 figure was 21.5% and 2007 was 22.5%.
Table 2: Adult qualifications 2009 calendar year
Qualifications Burnley North West Great Jan-Dec 09 Britain NVQ4 and above 24.3 27.0 29.9 NVQ3 only 47.7 46.9 49.3 NVQ2 only 58.5 64.5 65.4 NVQ1 only 76.3 78.7 78.9 Other NA 7.5 8.8 qualifications No qualifications 17.0 13.8 12.3 Source: nomisweb.co.uk
Building Schools for the Future (BSF)
3.15 The shifting population has meant a very high turnover of pupils within the borough’s schools making educational and young people’s services difficult to plan. The Building Schools for the Future programme is in the process of rebuilding all of Burnley’s secondary schools, a reorganisation aimed at raising achievement across the borough.
3.16 BSF is a national capital initiative to replace or improve all secondary schools over a 10 to 15 year programme which began in 2005/06. Lancashire has been included in the first wave of the BSF programme to cover schools in Burnley and part of Pendle, and the proposed development is being delivered in three phases.
3.17 Progress and establishments included in the three phases in Burnley are detailed in Table 2 below.
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Table 3: Building Schools for the Future Phases 1, 2 and 3 in Burnley
Progress: anticipated Phase Provision completion date Phase 1 schools: complete
Shuttleworth College 1,050 place 11-16 high school Open September 2008 Sixth form, Children's Centre, Burnley Campus nursery, primary school, public Open September 2008 library, Faith Centre Phase 2 schools: complete Unity College 1,050 place 11-16 high school Open September 2010 Sir John Thursby 1,050 place 11-16 high school Open September 2009 Community College 90 place 11-19 GLD secondary Ridgewood school. Co-located with Sir Community High Open September 2009 John Thursby Community School College Phase 3 Schools: complete Blessed Trinity 1,250 place 11-16 VA high Roman Catholic Open September 2010 school College Hameldon Community 750 place 11-16 high school Open September 2010 College The Rose School 40 place BESD 11-16 school Open September 2010
Abbreviations: GLD - General Learning Difficulties; VA - Voluntary Aided; BESD – Behavioural Emotional Social Difficulties. Source: Lancashire County Council, 20010
Burnley College and University
3.18 Burnley’s new combined further education College and University on Princess Way opened in September 2009. The £81m campus complex in conjunction with University of Central Lancashire (UCLAN) offers over 70 degree programmes from foundation level to postgraduate entry, as well as more than 40 A-Level courses and a range of vocational subjects and apprenticeship schemes.
CRIME AND COMMUNITY SAFETY
3.19 Home office statistics for 2008-2009 show certain types of crime to be of particular concern in the borough.
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Table 4. Recorded Crime for Key Offences, 2009/10
Recorded crime rate per Burnley Lancashire England 1,000 population (14 authorities) Violence against the person 2005/6 29.4 20.0 19.7 2006/7 26.9 18.5 19.2 2007/8 24.8 17.3 17.5 2008/9 22.3 16.1 16.3 2009/10 19.0 15.4 15.7 Robbery Offences 2005/6 1.1 0.7 1.8 2006/7 0.7 0.7 1.8 2007/8 0.8 0.7 1.6 2008/9 0.6 0.6 1.5 2009/10 0.3 0.5 1.3 Burglary Dwelling Offences 2005/6 6.6 4.3 5.8 2006/7 6.9 3.9 5.5 2007/8 5.7 3.4 5.3 2008/9 8.1 3.5 5.3 2009/10 6.8 3.1 5.0 Theft of a motor vehicle 2005/6 3.8 2.7 4.0 2006/7 3.7 2.6 3.6 2007/8 3.2 2.2 3.1 2008/9 4.2 2.2 3.0 2009/10 2.8 1.7 2.1 Theft from a motor vehicle 2005/6 12.7 7.3 9.4 2006/7 11.9 7.2 9.3 2007/8 11.1 5.8 8.0 2008/9 11.6 5.4 7.2 2009/10 8.3 4.4 6.2 Source LCC Lancashire Profile/Home Office – Crime in England and Wales
3.20 The table shows falling levels of crime in Burnley across all types of offence. This reflects similar trends in Lancashire and England as a whole.
3.21 National Performance Indicator NI 17 is one of a number of national indicators monitoring anti-social behaviour. It records the percentage of residents who perceive anti social behaviour to be a problem in their neighbourhood. In 2008/9 the Burnley figure is 33.8%, a fall from 41% in the previous year but is still higher than Pendle (31%), Hyndburn (23.2) and Rossendale (19.3%).
HEALTH
3.22 Of the 32 indicators shown in Burnley’s health profile (Department of Health, 2010) one is significantly better than the national average, 8 are not significantly different from the national average and 21 are significantly worse than the national average.
3.24 Burnley has a total of 18 indicators which are below the regional average, these spanning across all five domains of community, children and adult health, disease and life expectancy.
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3.25 A few indicators such as the statutory homelessness, obese children and new cases of tuberculosis are similar to the England average.
3.26 Life expectancy for both men and women remains lower than both the regional and national averages. Early death from heart disease and stroke is higher than national and regional averages.
3.27 There are inequalities by deprivation, gender and ethnicity. For example men and women, in the least deprived areas can expect to live several years longer than men and women in the most deprived areas. The health of the people of Burnley is affected by high levels of poverty and worklessness with poor general levels of educational attainment in children.
3.28 Burnley’s score for adults who eat healthily is significantly worse than the national average. Deaths from smoking remain significantly higher than the national averages, as do the level of adults who smoke and the level of binge drinking among adults.
3.29 With significant implications for Burnley’s economy, 11.8% of the borough’s working age population claims incapacity benefit, compared to a regional average of 8.8%. (Nomis 2010). The rate of people claiming incapacity benefit because of mental health problems is significantly higher than the regional and national averages (Department of Health 2010).
3.30 There is 25% greater incidence of limiting illness in Burnley than the national average. The 2001 Census showed that 19,970 (22%) people in Burnley, and 9,838 (18%) of the working population declared themselves as having a limiting long-term illness. The areas within Burnley that have the highest rates of limiting long-term illness are spread across a number of the more deprived wards in the Borough. The 2007 Index of Multiple Deprivation indicates that 10 wards in Burnley are in the top 10% for the health deprivation and disability indicator Figures for comparative illness and disability, an indicator which updates 2001 information, shows things getting worse in many Burnley Super Output Areas (SOAs). A score of over 100 is a negative result and less than 100 is a positive. Only 1 SOA in Burnley scored below 100 for this indicator. (LCC website)
3.31 The teenage pregnancy rate has shown a fluctuating trend in Burnley for the periods 2002-04; 2005-07 and 2006-08. For the latter period there were 57.4 teenage pregnancies in Burnley per 1,000 females, compared to 42.1 for Lancashire County and 40.9 for England and Wales. Only Blackpool has higher rates of teenage pregnancies, with Burnley being ranked at third place within the County (2006/08 results are provisional). (Source LCC profiles, 2009)
3.32 The infant mortality rate in Burnley has also shown a fluctuating trend between 2000-02 and 2005-07. For the period 2003-2007 Burnley shows lower rates than the county average and all other East Lancashire authorities except Rossendale and Ribble Valley. Latest data shows children in the borough continue to be more likely to suffer from tooth decay (Department of Health, 2009)
3.33 Local health and wellbeing priorities can be found in Lancashire's Local Area Agreement available at www.lancashirepartnership.co.uk . The East Lancashire Annual Public Health Report provides further information on the health of this area and is available at www.eastlancspct.nhs.uk
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COMMUNITY COHESION AND COMMUNITY ENGAGEMENT
3.34 An annual Place Survey is completed by all local authorities in England. In the Burnley Place Survey 2009 one of the questions asked was "to what extent do you agree or disagree that this local area is a place where people from different backgrounds get on well together"? The results for the Lancashire County Council area found that 74% of people agreed with this statement compared with an England average of 76%. The rate for Burnley however of 56% is a cause for concern. The survey also revealed that in the authority, 69% of residents are satisfied with their local area as a place to live. This is significantly lower than averages for the Lancashire County Council area (79%) and for England as a whole (80%).
3.35 New National Indicator NI 4 records percentage of people who feel they can influence decisions in their locality. Results from the Burnley Place Survey 2008/9 show the borough’s percentage as 25.8%, an increase from 16% in 2005 but a decrease from 34% in the 2008 survey The 2009 survey also found that only 28% of people in Burnley would like to be more involved in local decisions, a figure similar to the national average.
Statement of Community Involvement (SCI)
3.36 The first Local Development Document in Burnley’s Local Development Framework to be adopted since the Local Plan Second Review was the Statement of Community Involvement adopted in July 2007 and published September 2007.
3.37 A key element of these changes made under The Planning & Compulsory Purchase Act 2004 is the introduction of a planning system that is more accountable, more transparent, socially inclusive and above all, more participatory.
3.38 The SCI sets out how the Council intends to achieve continuous community and stakeholder involvement in the preparation of Local Development Documents. It explains how and when consultations will take place and what people who get involved can expect from the process.
3.39 The SCI covers consultations relating to Local Development Documents, Supplementary Planning Documents and Sustainability Appraisals and also in relation to planning applications.
Consultations in relation to Local Development Documents
3.40 This monitoring year consultation has taken place on two documents within the Local Development Framework. The Core Strategy Housing Issues and Options Document which was consulted on in August/September 2009.
3.41 Consultation was through the following means: • letters to key stakeholders and organisations and individuals on the Council's consultation database; • workshops for stakeholders and community groups (x3) • town centre exhibitions (x2) • information on the Council's website - including a specially commissioned short animated film. • publicity made available at Council offices and libraries
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• press releases and notices in the Burnley and Padiham Express; • drop-in sessions held in 5 locations throughout the borough
3.42 A total of 152 representations were received from 29 respondents.
3.43 It is envisaged that more detailed monitoring of the SCI will be undertaken in future Annual Monitoring Reports when more evidence is available.
HOUSING
Housing Type and Tenure
3.44 Burnley has a much higher proportion of terraced housing than England or the North West region as a whole. The Pennine Lancashire House Condition Survey (PLHCS) conducted between November 2008 and April 2009 found that 74% of Burnley’s housing stock consists of terraced houses compared to national average of 29%. 71% of the housing stock was built pre-1919 compared to 23% nationally.
Table 5: Stock totals by Area Action Plan Area
Areas Dwellings Percent Burnley Wood and Healey Wood 1560 3.8% Daneshouse Duke Bar and Stoneyholme 2810 6.9% Padiham 2330 5.7% Piccadilly/Trafalgar 1090 2.7% South West Burnley 2680 6.6% Burnley Non ADF 30,170 74.2% Total 40,640 100% Source: Pennine Lancashire House Condition Survey 2009
3.45 One of the aims of the Housing Market Renewal Pathfinder initiative (Elevate) under way in Burnley is to redress the balance and mix of types of housing in the Borough. The tenure profile of the housing stock is shown below:
Table 6: Tenure Profile
Tenure Burnley 2008 Elevate HC Survey 2004 Owner occupied 28,270 70% 71% Private rented 6580 16% 11% Housing Association (RSL) 5790 14% 8% Local authority* 0 0 10% Total 40640 100% 100% Source: Pennine Lancashire House Condition Survey 2009. *All former local authority properties have been transferred.
Vacant Properties
3.46 There are strong links between the occurrence of vacant properties and the overall well being of a neighbourhood and the environment with the likelihood of increased crime, anti-social behaviour and levels of deprivation.
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3.47 In 2009, the Borough had 3350 empty homes, which was 8.2% of the overall housing stock. (PLHCS 2009). This vacancy rate has risen significantly this year after falling last year. It is significantly higher than the North West (3%) and national (4.1%) percentages.
Table 7: Trends in Vacant Dwellings in Burnley 1999-2009 Vacant Rate No. of dwellings 1999 3978 9.88% 40255 2005 2912 7.25% 40177 2006 2961 7.3% 40289 2007 3008 7.5% 40264 2008 2686 6.6% 40585 2009 3350 8.2% 40640* 3280 8.1% 40626** 2010 3305 8.1% 40562 *Pennine Lancashire House Condition Survey 2009 **Burnley HSSA 2010
3.48 1126 of Burnley’s vacant properties have been empty for six months or more (HSSA 2009) with a further 495 vacant subject to an agreement with private developer or partner for regeneration or housing scheme purposes. Discounting the latter vacants, this is 2.8% of all properties, a fall from 3.23% at April 2006. The Council’s Empty Homes Strategy 2008-11 and Action Plan aims to address long term empty properties. It sets a target of bringing 55 vacant properties back into use in 2009/10.
Non-decent homes
3.49 17 700 (43.6%) houses in Burnley are non-decent compared to the national average of 36.7%.(PLSCS 2009). Non decency numbers have increased since the Elevate House Condition survey in 2004 but this is due to the Housing Health and Safety Rating System replacing the unfitness standard which was used in that survey. Non decency is due mainly to Category 1 hazards (58%) and poor thermal comfort (73.9%). Excess cold is the main category 1 hazard and this overlaps heavily with poor thermal comfort. 13,100 dwellings (32%) fail the thermal comfort criterion of the decent homes definition compared to the national average of 16.7%.
3.50 There are 9831 private sector homes and 469 RSL dwellings in Burnley with Category 1 hazards. 39 private sector dwellings were made free of Category 1 hazards in 2008/9 (HSSA 2009). Removal is achieved through service of Housing Act notices, improvements for sale, landlord accreditation and licensing and Home Repair Assistance Grants.
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Table 8: Non Decent Dwellings by Area Action Plan Area
Areas Percent Percentage of non decent dwellings with vulnerable households Burnley Wood and Healey 52 52.3 Wood Daneshouse Duke Bar and 53.9 53.5 Stoneyholme Padiham 48.9 59.6 Piccadilly/Trafalgar 59 70.8 South West Burnley 42.8 53.8 Burnley Non ADF 41.3 42.2 Total 100 45.9 Source: Pennine Lancashire House Condition Survey 2009. *All former local authority properties have been transferred.
Demolitions
Table 9: Housing Demolitions in East Lancashire 2003/04 to 2008/09 (Private Sector)
District 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 Total Blackburn with Darwen 60 81 183 223 145 253 945 Burnley 132 151 89 147 36 75 630 Hyndburn 6 2 154 59 25 80 326 Pendle 0 0 0 0 6 126 132 Ribble Valley 0 0 0 0 0 0 0 Rossendale 0 3 0 0 0 0 3 LANCASHIRE 209 245 426 430 231 534 2,036 Source: Housing Strategy Statistical Appendix, CLG/Spatial Planning in Lancashire, Annual Monitoring Report 2, 2009
Housing Market
Strategic Housing Market Assessment (SHMA)
3.51 A Strategic Housing Market Assessment was carried out jointly for Burnley and Pendle Councils by Fordham Research in 2007-8. The joint Housing Market Area was found to be highly self contained. Some 73% of homes moves in Burnley (and 70% in Pendle) begin and end in the district of origin. This is high by national standards.
3.52 The shortage of affordable housing in both Burnley and Pendle is reflected by a large housing benefit dependent population in the private rented sector and relatively low private rent average incomes. The Assessment identified a high need for affordable housing calculated to be 664 new dwellings per annum in Burnley and 858 per annum in Pendle. Overall demand is negative in Burnley (modestly positive in Pendle) in both cases due to the large over supply of terraced stock. Burnley’s
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demand is well below its RSS targets for new housing provision but Pendle’s demand is above the target.
3.53 Following the findings of the SHMA a Viability Assessment of affordable housing prepared financial appraisals for a number of permitted proposed or potential housing sites. The appraisals were designed to assess the impact on development viability of alternative requirements for affordable housing provision. Viability would be examined for a range of sites in a variety of development situations.
3.54 The Assessment found that in the urban parts of the study no target proportion of affordable housing could reasonably be sought as a requirement in the present market situation, unless grant or other financial assistance was forthcoming. However it would be possible to set a target for the higher priced, rural areas. Provisionally a figure of 20% was suggested although a two tier target for greenfield and brownfield sites might be a feasible policy response. The Councils will need to consider these findings carefully in formulating policy targets in emerging Local Development Documents. Since the work was first commissioned a major economic downturn has taken place with the result that viability is likely to have deteriorated further, as prices have fallen but costs have continued to rise.
Property Prices
3.55 Average house prices in Burnley are consistently lower than national and regional averages across all property types. There are many external factors which influence house price trends and these factors are themselves being monitored i.e. employment levels, deprivation, population size, crime rates, housing stock conditions etc. The table below sets out figures gathered from the DCLG and Elevate in relation to Burnley’s house prices.
Figure 3: Quarterly Average (Mean) Residential Property Prices, 1996 Q1 to 2010 Q1 Source: Department for Communities and Local Government: Housing Statistics Area Lancashire Blackburn with Darwen Blackpool Burnley Chorley Fylde Hyndburn Lancaster Pendle Preston Ribble Valley Rossendale South Ribble West Lancashire Wyre
19 Burnley Local Development Framework: Annual Monitoring Report 2010
Table 11: House Prices in Burnley Borough Jan 2008 - March 2010
South Piccadilly/ Padiham Daneshouse, Burnley Burnley Overall West Trafalgar Duke Bar & Wood & Intervention Average Burnley Stoneyholme Healey area Wood Jan-Mar 60,674 58,602 73,232 54,245 61,063 61,625 94,608 2008 Apr-Jun 64,106 77,538 81,904 61,467 64,323 68,385 100,203 2008 Jul-Sept 57,100 66,921 70,771 67,750 54,985 63,824 94,468 2008 Oct-Dec 57,182 35,038 77723 70,333 53,268 61,007 97,231 2008 Jan-Mar 53,964 70,625 55,643 46,472 47,394 57,496 87,813 2009 Apr-Jun 44,375 54,350 60,375 41,889 50,506 51,405 91,555 2009 Jul-Sept 43,574 43,688 64,583 42,513 45,154 52,482 87,245 2009 Oct-Dec 56,167 61,174 53,703 48,277 49,529 55,277 97,163 2009 Jan-Mar 42,869 72,659 61,764 46,174 74,723 60,803 86,231 2010 *source: Elevate Local Information System
3.56 In the monitoring period average house prices in Burnley decreased by 12.4% from £99,141 (Q2 2008) to £86,808 (Q1 2009). As reported in the previous AMR, Burnley house prices remain well below the county and England averages (source DCLG website, housing statistics)
Energy Efficiency and Fuel Poverty
3.57 The Council contributes data to the Lancashire Local Area Agreement- Energy Efficiency Sub Group which is leading on New National Indicator NI 187 Tackling Fuel Poverty – people receiving income based benefits living in homes with a low energy efficiency rating. This work includes carrying out a survey to enable a baseline and target to be set.
3.58 The calculation of households in fuel poverty is based on a number of factors including condition of housing stock and income. 8600 households (21.1%) in Burnley are in fuel poverty compared to 13.9% nationally (PLHCS 2009). This is an increase of nearly 14% from 2003. This rise is likely to be the result of local incomes failing to keep pace with rising fuel prices.
3.59 In Lancashire only Blackburn with Darwen had a higher percentage. The situation is particularly serious in Daneshouse, Duke Bar & Stoneyholme area where 60.8% of households are in fuel poverty. In 2003 the Daneshouse with Stoneyholme ward had one of the highest levels of fuel poverty of any ward in England.
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Table 12: Fuel poverty by Area Action Plan area
Area Percent Burnley Wood and Healey Wood 29.5% Daneshouse, Duke Bar & Stoneyholme 60.8% Padiham 20.5% Piccadilly 17.7% South West Burnley 18.4% Burnley Non ADF 18.3% Source: Pennine Lancashire House Condition Survey 2009.
3.60 Fuel poverty is likely to increase in Burnley, due to rising fuel costs. Combined gas and electricity bills have gone up by 76% over the last five years, and costs are set to further increase (Burnley & Pendle Home Energy Strategy 2008- 2011). Other factors including, the increasing ageing population (with a quarter of households in Burnley containing pensioners (B&P HES, 2008-2011), low levels of household income and levels of poor quality housing mean that the incidence of fuel poverty in the borough is likely to increase.
3.61 The Pennine Lancashire House Condition Survey 2009 found excess cold and poor thermal comfort to be the main factor in the high level of Category 1 hazards and high level of non decency in Burnley’s housing stock. 13,100 (32%) fail the thermal comfort criterion of the decent homes definition compared to the national average of 16.7%. During the monitoring period the Council was responsible for removing Category 1 hazards from 39 homes (HSSA 2009).
3.62 The Government’s Standard Assessment Procedure (SAP) represents a measure of the overall energy efficiency of dwellings and is independent of both heat loss from the dwelling and the performance of the heating system. It ranges from 1 (highly inefficient) to 120 (highly efficient). The average SAP rating of private sector properties in Burnley is 54, an increase of three points since 2008. 8% of properties have a SAP rating below 35, an increase of 3% from 2008 (HSSA 2009)..
3.63 The Council, in conjunction with Pendle Borough Council, has now finalised a Home Energy Strategy with Pendle Borough Council (2008-2011) (B&PHES) which aims to increase partnership working between the two councils to tackle the issues of fuel poverty and energy efficiency.
3.64 The B&PHES 2008-2011, details that in the past few years ‘Warm Front Funds’ have been used to improve the insulation and heating of properties across Burnley and Pendle. Between 2005 and 2008, approximately 6100 properties were improved.
3.65 Burnley has been running the CRISP insulation service since 1997, From 2004, this has been part of the ‘Switch onto Savings’ scheme which assists approximately 500 households per annum by providing loft and cavity wall insulation for priority residents (over 60s, families with children under 5 in a Sure Start area, and those in receipt of means tested benefits)
3.66 New building standards set by National Government, including the Code for Sustainable Homes (CSH) will help to improve levels of energy efficiency within the borough in the longer term. In the HMR areas of Burnley, Elevate is working to code 3 of CSH, which will mean a 25% improvement on part L of the 2006 Building Regulations.
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ECONOMY
Employment
Table 13: % Working age population* in employment, Burnley 2005-2010
Year 2004/5 2005/6 2006/7 2007/8 2008/9 2009/10 Burnley 69.0 71.7 63.8 65.9 66.1 66.9 North West 70.6 70.6 70.5 70.3 69.1 67.8 England 72.7 72.5 72.5 72.6 72.2 70.3 Source: Annual Population Survey, Nomis, 2009/10 data used is based on Apr 2009 - Mar 2010 survey period. Previous year’s figures revised from Nomis data since last monitoring report. *From July 2010, rates are calculated using the estimated resident population aged 16 to 64. Before this, the population used was 16 to 64 for males and 16 to 59 for females.
3.67 The authority has a history of overall employment rates that are usually below the national average. However, the above figures show a narrowing of the gap between Burnley and the North West since 2006 with gradual increase in the Burnley figures contrasting with a gradual decline regionally and nationally.
3.68 The table below shows that the unemployment rate in the authority as a percentage of those economically active has remained above the regional and national averages since 2006.
Table 14: % Unemployed (percentage of economically active), Burnley 2005-2010
Year 2004/5 2005/6 2006/7 2007/8 2008/9 2009/10 Burnley 4.7 4.7 6.3 7.0 7.3 9.0 North West 4.8 5.0 5.5 5.7 6.9 8.7 England 4.7 5.1 5.4 5.2 6.2 7.9 Source: Annual Population Survey, Nomis, 2009/10 data used is based on Apr 2009 - Mar 2010 survey period.
3.69 At the ward and neighbourhood level there are some particularly high unemployment rates. Many urban areas of Burnley have high levels of worklessness, which remains a significant challenge for the borough. According to the 2007 Index, deprivation in terms of employment is increasing in 34 out of 60 Burnley SOAs and is particularly acute within the intervention area in those places with high levels of general deprivation including Burnley Wood, Piccadilly, Accrington Road South West Burnley and Leyland Road/Albert Road area.
3.70 Considerable parts of Lancashire including Burnley remain particularly reliant on traditional and manufacturing industries which are declining in employment terms (Regeneris Consultants, 2008). Despite this, the borough displays much higher proportions of manufacturing employment compared to the region or Great Britain.
3.71 Burnley has retained a strong cluster of engineering firms across the wider sub region that it falls within (Centre for Cities, City Links paper 2008). However, as globalisation continues, the town will need to attract more knowledge driven firms to recover from the recession. Constraints on existing businesses and potential investors include a lack of suitable and readily available sites and premises and a suitably qualified workforce. Furthermore, Burnley is a relatively insular economy
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with very low volumes of travel to work area movements. Data on commuting for Manchester and nearby Lancashire areas shows that residents from Burnley do not appear to be integrated into the Manchester labour market despite being quite close in distance. These factors illustrate some of the challenges that Burnley faces in adjusting to a changing economy (Centre for Cities, City Links paper 2008)
3.72 There has been a recent improvement in local entrepreneurship in Burnley with business formation rates in recent years moving above the UK average. This trend has also been accompanied by some improvement in the business survival rate (LCC Stock of Businesses Registered for VAT 1994-2007 ). However, overall levels of VAT registered businesses in Burnley have been decreasing since 2001 and they remain below County and regional averages (LCC-VAT Business Ratios per 10,000 Resident Adults, 2006). In 2008, there were only 2,260 VAT/PAYE- registered enterprises in the authority; the second lowest figure out of the 14 Lancashire authorities.
Household Incomes
Fig 4: Average Household Income, 2010, Lancashire Districts Source: Lancashire Profiles
3.73 There is a history of low wages in Burnley and Burnley’s wages are not growing as fast as the wider region or the country as a whole. This means that the more qualified members of the workforce are likely to be tempted to move to better paid work outside the borough. However, businesses may be attracted into the area to take advantage of the lower levels of pay, thus providing more job opportunities in the local economy.
3.74 2010 Average (mean) Gross Income in Burnley is £30-31,000 but has decreased 1.3% since 2009. The three East Lancashire authorities of Hyndburn, Blackburn with Darwen and Pendle recorded similar averages to Burnley of £30-31,000. The
23 Burnley Local Development Framework: Annual Monitoring Report 2010
North West Average (mean) Gross Income is £33,300 and Great Britain is £35,300. The twenty Lancashire wards with the Lowest Average (mean) Gross Household Income in 2010 included Bank Hall (£22-23,000) and Daneshouse with Stoneyholme (£18-19,000). No Burnley wards were included in the twenty highest income wards. Average (median) Gross Income in Burnley for 2010 is below £24,000.
3.75 Average earnings in Burnley are somewhat higher when measured by place of residence in comparison to place of work. The authority therefore records a net benefit from commuter flows. Both figures however are well below the GB average.
3.76 At the ward level, the variation in income levels between the most and least affluent wards in the district is quite noticeable. Affluent rural areas recorded relatively high average income levels that contrast noticeably with wards in central Burnley.
3.77 The authority contains a large number of Incapacity Benefit and Severe Disablement Allowance. Housing and Council Tax Benefit claimant rates are high in the authority. In comparison to the national average, there is a high percentage of the working age population that is reliant on welfare benefits.
ENVIRONMENT
Energy Consumption
3.78 The most recent data published by BERR, Regional and Local Total Energy Consumption Statistics 2006 , indicates that total petroleum products has increased in all districts including Burnley, with the exception of Blackpool and West Lancashire, which have shown modest decreases. Domestic gas consumption has decreased in the borough as well as all districts within the county. Domestic electricity consumption has shown a modest decrease in all districts including Burnley with the exception of Rossendale, South Ribble, West Lancashire and Wyre which have all shown increases in levels of consumption.
3.79 Coal Clough wind farm generates enough power each year to supply 6000 homes. However, in Burnley consumption of energy per head derived from renewable or waste sources was only 11% of the Great Britain figure and 24.6% of the North West figure in 2005 (LCC/DTI).
Waste Recycling and Composting
3.80 The Council currently provides boxes, bins and bags for the collection of glass, cans, plastic bottles, paper, card, garden waste and textiles for recycling. It also manages a number of recycling sites throughout the Borough and recently introduced ‘Recycle on the Go’ split bins in Burnley Town Centre. Burnley currently recycles or composts 33% of its household waste (2008/9 figures) New National Indicator NI 192). This is a slight increase on last year’s figure but short of the Council’s own 2009 target. The rate is well below the Lancashire average of 39% but matches the national average. The Council aims to increase its rate to 35% by 2010 and 35.5% by 2011.
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Carbon Emissions
3.81 Carbon dioxide (CO 2) is the principal greenhouse gas believed to be contributing to climate change, accounting for about 85% of the UK total. The vast majority of man- made CO 2 emissions come from the burning of fossil fuels in power generation and in the transport, domestic and industrial sectors.
3.82 Planning and Climate Change, the supplement to PPS1, identifies climate change as a key Government priority for the planning system. It expects planning authorities to make a full contribution to delivering the Government’s climate change programme and energy policies both through mitigation and adaptation measures.
3.83 The climate change agenda has continued to evolve rapidly during the monitoring period and in November 2008 several Acts of Parliament were introduced by the Government that reinforce its commitment to tackling carbon emissions.
3.84 The principal thrust of Climate Change Act 2008 is to set legally binding targets for reduction of UK carbon emissions by at least 26% by 2020 and at least 80% by 2050, compared to 1990 levels. The Committee on Climate Change established by the Act to advise the Government, has already called for tougher targets than those identified in the Act and in the RSS. In its first report on how the UK could meet its pledge to cut carbon dioxide (CO 2) and other greenhouse gases, the committee recommended an interim target for 2020 of 34%, or 42% if there is a global agreement to cut emissions.
3.85 The Planning Act 2008 and Planning and Energy Act 2008 further reinforce the Government’s commitment to tackling climate change. As a result of the Planning Act, RSS and Local Development Frameworks must include policies designed to secure that the development and use of land in the region contribute to the mitigation of, and adaptation to, climate change. The Planning and Energy Act relates to decentralised renewable energy and introduces provision that local authorities may include in their development plan documents policies imposing reasonable requirements for:
• a proportion of energy used in development to be from renewable sources in the locality of the development • a proportion of the energy used in development in their area to be low carbon energy from sources in the locality of the development • development in the area to comply with energy efficiency standards that exceed the energy requirements of building regulations.
3.86 In Lancashire one of the principle drivers taking forward the climate change agenda is the formation of the Lancashire Climate Change Partnership. This was established in 2007, and is made up of a range of public, private and third sector partners including Lancashire County Council and all the district and unitary local authorities in Lancashire. The partnership produced the Lancashire Climate Change Strategy which was adopted in February 2009 and has set targets in line with regional policy. It identifies various schemes and initiatives that can be taken forward at the sub-regional level to supplement regional and national policies and actions.
3.87 Burnley’s total per capita output of carbon emissions (6.65 tonnes) is among the lowest of Lancashire authorities and well below the County and regional averages
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(8.74 tonnes and 8.68 tonnes respectively). Only Blackpool (5.70) has a lower output. This represents a slight fall of 1.9% on 2005, the only other year for which data is available. Throughout Lancashire change in carbon dioxide output (both up and down) is attributable to change in industrial and commercial emissions within each authority area.
3.88 National Indicator NI 186 will continue to capture Per capita reductions in C02 emissions in the LA area. The target is 3% reduction over three years from the 2005 baseline. To assist with ongoing monitoring, the Energy Savings Trust has recently launched a new tool TrACE, that will record CO2 saving evidence for National Indicator 186. This is available in a downloadable spreadsheet, providing a useful tool for local authorities to monitor and report on carbon saving actions relating to domestic, transport and commercial/ industrial emissions in their area. In addition to this, the Energy Savings Trust is currently developing systems to combine and aggregate this data to allow local, regional and national comparisons to be made.
3.89 Just three years of comparable data are currently available from DEFRA which measure changes in carbon dioxide emissions - 2005, 2006 and 2007. The figures for Burnley indicate that total emissions have decreased by 2.2% for this period. Between 2005 and 2006, overall carbon dioxide emissions in Lancashire fell by 3.5%, which compares to 1% reduction in the North West. (LCC Spatial Planning in Lancashire 2)
Table 14 : Local and Regional Estimates of Carbon Dioxide Emissions, 2007
CO² emission (thousands of tonnes) Per capita[1] Industry and Domestic Road Land use Total CO² emission commerce transport change (tonnes)
Burnley 214 210 154 1 579 6.6 Chorley 199 258 395 10 861 8.7 Fylde 269 205 199 26 700 9.2 Hyndburn 201 190 187 2 580 7.1 Lancaster 312 314 346 21 992 6.9 Pendle 257 212 136 3 608 6.8 Preston 370 299 356 7 1,302 7.8 Ribble Valley 893 155 122 10 1,180 20.2 Rossendale 242 181 130 3 557 8.3 South Ribble 287 257 311 7 862 8.1 West Lancs 438 275 274 98 1,085 9.9 Wyre 312 270 238 47 867 7.8
Lancashire 3,994 2,826 2,848 235 9,903 8.5 County (12 district area)
Blackburn with 630 325 181 4 1,144 8.1 Darwen Blackpool 289 349 136 3 776 5.5
Lancashire (14 4,913 3,500 3,165 242 11,823 8.1 authority area)
North West 25,354 16,406 14,933 643 57,336 8.4 United Kingdom 232,945 145,725 136,361 -1,185 513,216 8.4 [1] Per capita rates are based on the ONS 2007 Mid-year Estimates of Population Source: Lancs Profile
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3.90 Burnley’s carbon profile shows the industrial/commercial sector to be the most significant accounting for almost 37% of all its emissions, which represents a slight decrease compared to last year’s figures. Whilst domestic use has decreased by 1.5% since last year, now accounting for 36.2%. In terms of carbon emissions, Burnley’s emissions for industrial, domestic and road transport sectors are comparable to neighbouring authorities in East Lancashire.
Table 14: C02 Emissions by Area Action Plan Area
Area C02 tonnes Average C02 per property Burnley Wood and Healey 6,727 4.3 Wood Daneshouse, Duke Bar & 15,386 5.5 Stoneyholme Padiham 9,536 4.1 Piccadilly 4,569 4.2 South West Burnley 9,531 3.6 Burnley Non ADF 120,109 4.0 Source: Pennine Lancashire House Condition Survey 2009
3.91 Renewal of Burnley’s urban neighbourhoods in future years will improve the quality and energy efficiency of the housing stock. Elevate is working to Code 3 level for Sustainable Homes, which is a 25% improvement on part L of the 2006 Building Regulations. Changes to Part L scheduled for October 2010
3.92 In Spring 2008 the Council joined the Carbon Trust’s Carbon Management Programme to address carbon dioxide emissions throughout the organisation. The programme aims to reduce the Council’s carbon emissions by 25% by 2014.
3.93 Ongoing and completed projects since the beginning of the project include:
• Awareness Campaign (Big Switch Off Week, Communication Framework with Champions) • Installation of passive Infrared (PIR) Lighting Sensors in Corporate Buildings and Council Offices Upgrade of Light fittings (all sites) with energy efficient lumaires. • Installation of Zone Valves and Thermostatic Radiator Valve (TRV) • Burnley Town Hall (Installation of Zone Valves to isolate the heating of the 5 th fl from the 3 rd and 4 th floor annexes) • Installation of Temperature Reducing Valves at Mechanics Radiators • Boiler Replacement Programme • (Replacement of inefficient and high maintenance boilers with new efficient boilers) • Roof Insulation Work
3.94 Some of the earlier projects have shown encouraging results, thus the Power Perfector Technology is currently being investigated with a view to implement at an earlier stage of CMP as it is anticipated that bigger savings can be achieved. Smart Metering Technology is also being investigated as this methodology will identify further savings from (½ hourly) accurate monitoring of our corporate buildings energy usage.
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3.95 Further progress towards this target will be reported in future Annual Monitoring Reports and via NI 185 Carbon Dioxide reduction from Local Authority operations.
Water and Flood Risk
3.96 There is an estimated 49.1km of watercourses within the Burnley Borough. In 2006 55.6% of Burnley’s watercourses were classed as ‘good’ by the Environment Agency while 44.4% were classed as ‘fair.’ Of Lancashire authorities only Rossendale, Ribble Valley and Lancaster have better river quality. In future these percentages may fall in the short term due to the introduction of a more rigorous ecological assessment of water quality being introduced under the European Water Framework Directive.
3.97 Climate change is expected to significantly increase levels of rainfall and increase the risk of flooding not only from local watercourses but also from non fluvial sources, particularly the increasing amounts of run off from both urban and agricultural land and the increasingly pressurised drainage/sewer system.
3.98 In Burnley, the areas at risk from fluvial (river) flooding are identified on Flood Zone Maps produced by the Environment Agency and follow the routes of the watercourses (and their tributaries) designated by the Agency as Main Rivers. In Burnley Borough these are principally:
River Calder Green Brook Pendle Water River Brun
3.99 Areas at risk from flooding are in either Zone 2 or Zone 3 of the Environment Agency’s Flood Zone Maps. Land in Zone 2 has a low to medium risk of flooding (0.1 – 1.0%) and land in Zone 3 has high risk of flooding (1.0% or greater).
3.100 As part of work to inform a Regional Flood Risk Assessment (RFRA) published in 2008 The Environment Agency has produced a ranking of all local authorities in the North West according to flood risk and development pressure. Burnley is a middle ranking authority in terms of properties at risk under Flood Zones.
Table 15: Properties at risk of flooding in Burnley
Local Authority (LA) Area (Ha) 11070 Urban Area (Ha) 1748 Flood Zone 3 in LA Area (Ha) 397 Urban Flood Zone 3 Area (Ha) 101 Urban Area Outside Flood Zone 3 (Ha) 1647 Number of Properties at Risk of Flooding per Year 1258 Number of Properties in Flood Zone 3 1737* Number of Properties in Flood Zone 2 1342* Number of Properties in Flood Zone 1 40702* *updated Environment Agency figures, February 2009
3.101 The Calder and its tributaries (particularly the Brun in Burnley and Pendle Water and Green Brook in Padiham) are the main source of fluvial flood risk in the Borough. 1258 properties in the borough are at risk of fluvial flooding per year. 1342
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properties fall within Flood Zone 3 (high risk) 1737 are within Flood Zone 2 (medium risk) and 40,702 are within Flood Zone 1 (low risk). (NB the no. of properties in FZ2 includes those identified in FZ3) (Environment Agency figures February 2009. These will be updated quarterly by the Agency from November 2009.)
3.102 The main urban areas at risk of fluvial flooding are Burnley Town Centre, the adjacent Burnley Wood/Fulledge neighbourhood and Padiham Town Centre all of which include significant areas within Flood Zone 3. Environment Agency Flood Warning Areas are in place in Burnley Town Centre (River Calder/River Brun), Fulledge (River Calder) and Padiham (River Calder and Green Brook/Sweet Clough).
3.103 Burnley and Padiham have a legacy of flood defences many of which are old, privately owned and poorly maintained. Planning Policy Statement (PPS) 25: ‘Development and Flood Risk’ published in December 2006 requires local authorities to reduce flood risk by locating new development in areas of lowest risk, and where possible managing surface water run off by introducing more sustainable drainage (SUDS) approaches.
3.104 Many parts of the Borough’s watercourses have been culverted in the distant past. Culverts are a significant source of flood risk in terms of potential blockage arising from storm debris or internal collapse. The Environment Agency requires that culverts are removed where development provides the opportunity. Restoring the natural profile of watercourses in this way reduces flood risk and can bring significant ecological and amenity benefits.
Green Infrastructure
3.105 The close interrelationship between urban and rural areas is a key part of Burnley’s character. The accessibility of the borough’s urban areas to open countryside and high quality landscapes, such as the South Pennine Moors, is seen as a strong marketing asset, as it is within the wider sub-region. Lancashire Economic Partnership (LEP), through the City Region Development Programme (CLCRDP) promotes the area as ‘the city with room to breathe’. Burnley’s green infrastructure is recognised as a key asset that can be developed and can support broader economic and social aims by providing an attractive place to live and work.
3.106 Burnley is generally well provided with greenspace, particularly parks and gardens, semi-natural greenspace and amenity greenspace. In accordance with national guidance PPG17 ‘A Green Spaces Strategy for Burnley 2007 – 2011’ assesses the level of greenspace in Burnley against national standards for parks & gardens, natural & semi-natural open space, amenity open space, play areas, outdoor sports facilities, allotments, cemeteries and green corridors. In addition to quantity of provision, the strategy also addresses access and quality issues.
3.107 Parks and Gardens : There is current provision of 168 hectares, equal to 1.4 hectares per 1,000 population. Of this 1.0 ha per 1,000 lies within district boundaries and the remainder is covered by Towneley Park, which is a town-wide facility. This provision meets the national Quantity Standard of a minimum of 0.8 hectares per 1,000 population (to be applied at district level). Quality is considered very good with four parks managed to Green Flag standard at 31/03/09 (Scott Park (8ha), Thompson Park (9.71ha), Memorial Park (Padiham), (5.09ha), Queens
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Park (11.33ha) with a total area of 34.13ha). The accessibility standard is a 15 minute walk.
3.108 Semi-natural Greenspace: The audit identifies 120 hectares of semi-natural areas across the borough equivalent to 1.36ha per 1,000 population, with an average of 0.5 ha per 1,000 within the district areas. This provision meets the national Quantity Standard of 0.5 ha per 1,000 population. The quality of these less intensively managed spaces is considered reasonable. The accessibility standard is a 15 minute walk.
3.109 Amenity greenspace: The audit identifies and average provision of 1.2 hectares per 1,000 population of amenity green space across the borough. This compares favourably with the National Playing Fields Association standard of 0.81 ha per 1,000 population. Quality is considered reasonable. The accessibility standard is a 5 minute walk.
3.110 Provision for children : Current provision for children and young people is 14.71 hectares (0.17 ha per 1,000 population) across the Borough indicating a shortfall of 3 hectares against the adopted Quantity Standard of 0.2 ha per 1,000 population. Quality is considered good. The accessibility standard is a 5-10 minute walk.
3.111 Sports facilities: Current provision is 208.56 hectares (2.53 per 1,000). If the golf courses are excluded, provision is 2.13 ha per 1,000 compared to the National Playing Fields Association ‘6 acre Standard’ of 1.61 ha per 1,000 which has been the accepted national standard for many years. Quality is considered generally good. The accessibility standard is a 15 minute drive. These figures include school sites as existing at the time of the Green Spaces Strategy but do not take account of recent school rebuilding through the Building Schools for the Future programme (see Education section at 3.14).
3.112 Allotments: The audit of allotments shows there is 13.37 hectares (0.15 ha per 1,000 population) of allotment and community gardens across the Borough with 6.85 hectares (0.08 ha per 1,000 population) located within the urban residential and district areas. This suggests there possibly could be some locational problems, with over 50% of allotments located outside the urban and residential areas. A local Quantity Standard is set at 0.18 ha per 1,000. Quality is considered reasonable. The accessibility standard is a 15 minute walk.
3.113 There is no quantity or accessibility standard for cemeteries and church yards. Quality is considered good.
3.114 There is no quantity or accessibility standard for green corridors. The Council’s objective is to provide a network of green corridors (cycleways & walkways) linking together around the Borough. Quality is considered good.
Areas designated for nature conservation
3.115 Collectively, statutory and non-statutory wildlife sites are the Borough’s key biodiversity resource.
Internationally and Nationally Important Sites 3.116 There is one internationally/nationally important nature conservation site in Burnley. The South Pennine Moors is a Special Protection Area (SPA) Classified under the
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European Community Directive on the Conservation of Wild Birds (1979). It is a Special Area of Conservation (SAC) designated under the European Community Directive on the Conservation of Natural Habitats and of Wild Flora and Fauna (the Habitats Directive) (1992). As an SAC and SPA the site also carries the UK designation of Site of Special Scientific Interest (SSSI). The South Pennine Moors cover approximately 12% of the total land area of the Borough. An Environmental Stewardship Scheme covers a large proportion of the SSSI.
County Biological and Geological Heritage Sites 3.117 Biological Heritage Sites (BHSs) is the name given to the most important non- statutory wildlife sites in Lancashire. Burnley has 42 Biological Heritage Sites (BHS) and four Regionally Important Geological Sites. These sites are listed in Appendix 1.
Local Nature Reserves 3.118 Local Nature Reserve (LNR) is a statutory designation made under Section 21 of the National Parks and Access to the Countryside Act 1949 by principal local authorities. Parish and Town Councils can also declare LNRs but they must have the powers to do so delegated to them by a principal local authority. LNRs must be on land in which the declaring authority has an interest (Natural England website www.naturalengland.org.uk).
3.119 There are two Local Nature Reserves (LNR) in Burnley: The Deer Pond in Towneley Park and Lowerhouse Lodges. Both these Local Nature Reserves are Biological Heritage Sites. The land area of these two nature reserves totals 12.3 hectares (LWT 2008).
3.120 Lancashire Wildlife Trust are to carry out an assessment of sites within the borough to see if there is scope for designating further sites as Local Nature Reserves. Natural England recommends 1 hectare of LNR per 1,000 population. On that basis Burnley should have 90 hectares of designated Local Nature Reserves. The borough therefore has a current shortfall of 77.7 hectares.
Burnley Wildlife Sites (Local Sites)
3.121 Burnley Wildlife Sites include sites of non statutory wildlife or geological importance within the borough. PPS9 Biodiversity and Geological Conservation recognises the fundamental role these sites play in helping to meet biodiversity targets, contributing to the quality of life and the well being of the community and in supporting research and education. Guidelines for assessing these sites are to be drawn up by Lancashire Wildlife Trust and as such there are currently no formally designated Local Sites in the Borough. The Council, however, is committed to working with the Lancashire Wildlife Trust to define the criteria for Local Sites in Burnley and to identify those sites worthy of protection.
Forest of Burnley 3.122 Since 1997 Forest of Burnley (FOB) project has reversed more than 1,000 years of woodland decline in the borough. Woodland areas have more than doubled from 3.5% to the England average of 8% and 200 hectares of neglected public and private woodland have been brought into management. An estimated 493 hectares of new mostly native woodland has been planted in and around the Burnley district in that period. Approximately 30 hectares is on Burnley Borough Council land, 232 hectares on United Utilities land around Dunnockshaw and Worsthorne, and 260 hectares.on 70 private sites with FOB/ Elwood agreements. Most of the planting is
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outer/rural wards like Cliviger with Worsthorne, Coal Clough with Deerplay, Hapton with Park and Briercliffe, but there is for example about 16 hectares in Daneshouse with Stoneyholme. (FOB data 2008)
Built Environment
3.123 In Burnley there are 303 Listed Building Entries. Of these, 4 are Grade I, 13 Grade II* and 286 Grade II. This figure refers to the number of entries on the List and not the number of individual buildings/structures that they comprise. For example, one listing entry can comprise a row of terraces. No additions or delistings have been made within the monitoring period.
3.124 Of these Listed Building entries, 5 are on the Heritage at Risk Register 2010. 4 of these are Grade II* and 1 Grade I.
Extwistle Hall and attached Garden Wall, Briercliffe, Burnley, Lancashire Listed Building Grade: II* Scheduled Monument: No Condition: Very bad Occupancy: Vacant Priority Category: A
The Holme, Burnley Road, Cliviger, Burnley, Lancashire Listed Building Grade: II* Scheduled Monument: No Condition: Very bad Occupancy: Vacant. The Council are currently discussing proposals for enabling development with the owners and English Heritage. Priority Category: A Arched gateway and garden wall attached to south front of Shuttleworth Hall, Hapton, Burnley, Lancashire Listed Building Grade: II* Scheduled Monument: No Condition: Poor Occupancy: N/A Priority Category: C
Shuttleworth Hall, Hapton, Burnley, Lancashire Listed Building Grade: I Scheduled Monument: No Condition: Fair Occupancy: Part occupied Priority Category: C
Barn on north east side of road opposite Hurstwood Hall, Worsthorne with Hurstwood, Burnley, Lancashire Listed Building Grade: II* Scheduled Monument: No Condition: Poor Occupancy: Vacant Priority Category: D
3.125 As well as the statutorily listed building entries, there are also 469 Locally Listed Buildings. Again, this figure refers to the number of entries on the Local List and not the number of individual buildings or structures. Many of these are detailed in the Heritage Appraisals the Council has produced for five housing market renewal areas. These have documented the wealth of historic and architectural interest within these neighbourhoods and informed both the development of Area Action Plans and also, for three areas, Design Guidance adopted as Supplementary Planning Documents in 2006.
3.126 In Burnley, there are 10 Conservation Areas. A working draft character appraisal and management plan for the Canalside Conservation Area has been prepared and
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is expected to be adopted in 2011. None of the Borough’s Conservation Areas have published Management Proposals.
Of the 10 Conservation Areas, 3 are included in the Heritage at Risk Register 2011 as follows:
• Burnley Wood Conservation Area – Very bad condition, expected to show some signs of improvement
• Canalside Conservation Area – Very bad condition, expected to show some signs of improvement
• Palatine Conservation Area – Very bad condition, no significant change expected
The Weavers’ Triangle
3.127 The Weavers' Triangle is the name given to an area alongside the Leeds & Liverpool Canal located in the heart of Burnley. It is widely regarded as the most important Victorian industrial district in the North West. The Weavers’ Triangle forms part of a larger Conservation Area, known as the Canalside Conservation Area. The Council and its partners share a belief and a vision for waterside regeneration in the Weavers' Triangle, a key gateway to the heart of Pennine Lancashire. A Working Group, chaired by Sir Neil Cossons, was set up early in 2008 to help deliver these shared regeneration objectives.
3.128 The Heritage Lottery Fund approved a bid for a Townscape Heritage Initiative for the Weavers' Triangle in June 2007 to help achieve the heritage-led regeneration of the area, including the refurbishment of key buildings and the improvement of the public realm, in particular the canal towpath and adjoining areas.
3.129 A revised THI programme was later approved in 2009 which has allowed urgent repairs to be funded to council-owned buildings at Sandygate, acquired using NWDA grant support. The on-going repair programme to secure and stabilise these buildings, funded by the THI, the NWDA, English Heritage, (through a Partnership Scheme in Conservation Areas), and the Borough Council, commenced in summer 2009 and includes, amongst others, Victoria Mill and Slater Terrace, both Grade II listed buildings. It is anticipated that the repairs will be complete by summer 2011.
3.130 The procurement process to secure a development partner for the land and buildings at Sandygate got underway in summer 2010 with the launch of a Prospectus, draft design guidelines and a draft development brief for the area. A notice in the OJEU was later published inviting prospective developers to enter into a competitive dialogue with the Council. The selection process will conclude by May 2011.
A number of the area’s significant buildings however remain at serious risk in 2010. These are:
• Finsley Mill and Healey Royd Mills (Locally Listed) – AT SIGNIFICANT RISK Poor Condition, at immediate risk of further rapid deterioration and loss of fabric. A planning application for the demolition of Healey Royd Mill and
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possible partial retention of Finsley Mill, with adjoining new development, is currently being determined.
• Finsley Wharf (A collection of Grade II Listed Buildings) – AT SIGNIFICANT RISK Poor Condition, at immediate risk of further rapid deterioration and loss of fabric
• George Street Mill (Locally listed) Poor Condition, at immediate risk of further rapid deterioration and loss of fabric. An outline planning application to redevelop the mill for office use and for new-build residential development on the adjoining site of the former weaving shed has been approved. The site is currently being marketed for sale.
3.131 The Local Plan supports the introduction of public art as part of new development through a ‘percent for art’ policy. The most significant piece of public art installed in the Borough in recent years has been the Singing Ringing Tree musical sculpture by Tonkin Liu (2006), located on a rural hill top at Crown Point, and one of a series of iconic landmark ‘panopticons’ sited at major viewing points in East Lancashire designed to symbolise the renaissance of the area. In 2007 The Singing Ringing Tree won a RIBA National award and was shortlisted for the Stephen Lawrence prize.
TRANSPORT AND COMMUNICATIONS
Walking and Cycling
3.132 There have been significant additions to the borough’s walking and cycling network during the monitoring period.
Table 16: Cycling and Access Schemes: Ongoing and recently finished projects
SCHEME Description Lengths Date Funding Bodies Comments
NCN68 Surfacing of canal 4100m March –August LEP, LCC Ltp, Pennine towpath from Finsley 2007 BBC, Sec106 cycleway Gate to Barden Mill and Tesco access improvements Brun Valley New bridlepaths and 6530m Sept 2007 – BBC, LCC Ltp, Concessionary Greenway upgraded park paths March 2008 SITA Landfill bridleway status Padiham Concessionary footpath 530m April – June Big Lottery Fund For Padiham Riverside along riverside 2008 Town Council Path Towneley New and upgraded 4000m Aug 2008 – Heritage Lottery, Concessionary Park Access bridlepaths and cycle July 2009 Sec106 Culshaw St bridleway Routes routes around park status Padiham Transformation of 2500m Completed Connect Greenway disused former 2010 2/Sustrans/LCC/ Ph.1 Padiham railway line REMADE (Mollywood into linear park from to Memorial Rose Grove to Park) Padiham Padiham Transformation of 1000m Design ongoing Connect 2/ BBC
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Greenway disused former Vegetation Sustrans/LCC/ Ph.2 Padiham railway line Clearance by REMADE (Memorial into linear park from BBC Park to Padiham Memorial winter2010/ Shuttleworth Park to Padiham 11 Hall Link bypass (A6068) Road) CONNECT Multi user path along 2000m Tender Connect 2 Sweet corridor of Sweet December 2/Sustrans/LCC/ Clough Clough, Lowerhouse, 2010. REMADE Greenway Burnley Construction Jan/April 2011 CONNECT Surfacing of canal 2900m Completed Lottery Funding, 2 towpath Gannow January 2010 BBC, LCC Ltp. Canal Tunnel to Hapton and Towpath access improvements West CONNECT Upgrade of existing 600m Completed May Lottery Funding, 2 pathways and lighting, 2010 BBC, LCC Ltp. Holme road vegetation clearance to Pendle Way CONNECT Upgrade path including 120m Design Dec BBC, Lottery 2 River ramp from River Drive 2010 for Funding. Drive to Bendwood Bridge construction Padiham March 2011
Rail and bus patronage
3.133 Measured by the fastest available journey times to London by rail, Burnley is one of the least connected places in the country. Currently rail links to Manchester are poor; the main stations are inadequate and the road network to both Leeds and Manchester city regions are congested at peak times. Although Burnley is relatively close to Manchester, the transport infrastructure restricts the ability of existing residents to commute and reduces the attractiveness of Burnley as a place to live thereby inhibiting economic and population growth. Only 2.6% of resident employees in Burnley commute to Manchester (Centre for Cities 2008).
3.134 The table below showing patronage at key rail stations between 2003 and 2009. The table indicates that, with the exceptions of Blackpool and Chorley rail usage has continued to grow this year across districts in the County including Burnley, albeit at a reduced rate compared to the previous monitoring year. However Burnley still has a low level of rail usage for the size of the town. This is likely to be attributed to poor journey times into Manchester, and a poor frequency of services, trains and facilities on the Preston-Colne line.
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Table 17: Patronage at key stations in Lancashire 2004-2009 (Passenger journeys in thousands)
District 2003/4 2004/5 2005/6 2006/7 % 2007/08 2008/09 % change change from from 2003/4 07/08 Preston 3,294 3,382 3,556 3,760 24.4 4,012 4,099 2.2 Blackpool 1,935 1,945 1,883 1,976 1.2 2,014 1,959 -2.7 Lancaster 1,348 1,393 1,445 1,536 27.3 1,649 1,716 4.1 Blackburn 977 1,022 1,080 1,156 30.9 1,246 1,279 2.6 Burnley 264 277 286 308 29.5 327 342 4.6 Accrington 225 237 247 260 34.2 286 302 5.6 Chorley 629 700 737 774 19.6 803 752 -6.4 Source LCC, Spatial Planning in Lancashire Annual Monitoring Report, March 2009
3.135 There are five railway stations in the Borough. Four of these are on the Colne to Blackpool line which has an hourly service. The fifth, Burnley Manchester Road, is on the York to Blackpool line and is also served by an hourly service in both directions.
3.136 The current Lancashire Local Transport Plan states that comprehensive refurbishment or redevelopment of Burnley Central Station is a priority, together with provision for a bus interchange at this station as well as at Burnley Manchester Road Station. These improvements will contribute to Burnley’s continued regeneration. In addition to this there are also plans to improve pedestrian and cycle links to the stations.
3.137 The Leeds-Blackpool railway line is identified as a key corridor for improvement in the Central Lancashire City Region Development Programme and as a second level priority for transport investment in the Regional Spatial Strategy for the North West. However, a 2008 study by commissioned by a number of transpennine authorities including Lancashire County Council and NWRA found that improvements to the hourly service to Leeds were not feasible due to signalling difficulties between Hebden Bridge and Halifax and that infrastructure improvements are unlikely to be cost effective.
3.138 A separate but parallel commissioned by Burnley Borough Council examining the potential for direct rail services between Burnley and Manchester concluded that there is an economic case for routing services via the re-instatement of a short section of track at Todmorden (Todmorden Curve) or alternatively via Blackburn.
3.139 Research carried out by Ekosgen in 2008 (source in Pennine Lancashire MAA), found that poor connectivity is the main constraint to greater interaction between the economies of Pennine Lancashire and Greater Manchester. Given the scale of the labour market, the numbers commuting in to the City of Manchester are very low. With a forecast growth rate of over 90,000 jobs, improving accessibility will need to be a major priority.
3.140 Bus travel in the Borough focuses on the award winning Burnley bus station. Recent investment in new buses in the form of Quality Bus Routes has seen an increase in patronage on those routes. On the Quality Bus Route, the Burnley & Pendle Mainline saw patronage increase by 27% between 2001 and 2006. (LCC/Local Transport Plan Delivery Report, 2001-2006)
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Public Transport Accessibility
3.141 Of Lancashire authorities only Blackburn’s car ownership rate is lower than Burnley’s and Burnley’s growth rate over the period 2001-2004 is markedly lower than anywhere else in Lancashire. In Burnley, 34% of households have no car. In Lancashire the average figure is 25% (Lancashire Local Transport Plan 2006- 2010). While average travelling distances to key destinations such as work, learning, hospitals, shops and leisure have generally increased in Burnley these services remain easily accessible to most residents (within 30 minutes travel by public transport). Journey to work figures by mode of travel (2001 census) showed Burnley has high levels of car sharing, low bike use and a high walking rate. Unfortunately, those people who do not have the ability to travel by car are unable to take advantage easily of the new opportunities as other transport provision has generally failed to keep pace in a number of respects.
3.142 Burnley is notable for the high proportion of work trips less than 5km. Whilst the short distance travelled to work reflects the close relationship between employment and homes in Burnley, it may also be due in part to limited travel horizons in the local workforce. The Local Transport Plan states that it will seek to improve access to education and employment locally and raise the quality of bus services to neighbouring centres. The Plan also states that ticketing will also be improved to make the bus network more accessible.
3.143 Analysis of recent housing completions (2007/8) by Lancashire County Council found that although 100% of new dwellings were within 400m of an existing bus stop or 800m of a rail station, only 51% were within 400m of ‘good’ public transport defined as a bus service running at least every fifteen minutes between hours of 8am and 6pm Monday to Friday (Spatial Planning in Lancashire 3, LCC).
3.144 As part of the evidence base for Area Action Plans, transport studies have recently were commissioned during the monitoring period for Daneshouse, Duke Bar & Stoneyholme, South West Burnley and Padiham. These studies set out baseline conditions in these areas relating to traffic flows, public transport, walking and cycling networks and assessed the potential effects of plan policies both individually and cumulatively. The studies also looked at accessibility and connectivity issues within the areas and proposed a number of recommendations for improvements many of which will be taken forward in the emerging plans.
3.2 ANALYSIS OF CONTEXTUAL INDICATORS
3.2.1 This fourth Annual Monitoring Report has updated and developed the baseline position in relation to the contextual indicators. Key findings and actions required are set out in the table below
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Table 18: Contextual Indicators – Key Findings and Actions
Indicator Key finding Action Sociocultural Indicators Population • Burnley’s population has this year continued Core Strategy to fall as it has annually over the six years of Area Action Plans the AMR. Out migration can be identified as the main factor. Maintain/develop plan • For the first time in recent years, figures policies in support of housing show small declines in Preston, Ribble market renewal and Valley, West Lancs, Blackpool and economic, social and Hyndburn. environmental regeneration to • The latest population projections (ONS 2009) reduce out migration and indicate that the population will continue to close regional disparities in decline to 2033. Burnley’s population decline population growth. has not been reflected across the sub-region, as Burnley is the only district to show a continued population decline, with a -2.7% population change in 2009-2033. Deprivation • In many of Burnley’s most deprived areas Core Strategy conditions have worsened significantly since Area Action Plans 2004. • The 2007 IMD shows that high levels of Maintain/develop plan deprivation continue to be concentrated policies at Borough and Area within the Daneshouse, Duke Bar & level in support of housing Stoneyholme, Burnley Wood and Healey market renewal and Wood, Piccadilly/Trafalgar, and South West economic, social and Burnley Area Action Plan areas. environmental regeneration to • Further pockets of deprivation continue to be reduce general deprivation found within the wider Burnley Pathfinder levels. Intervention Area. Health • Of the 32 indicators shown in Burnley’s Core Strategy health profile (Department of Health, 2009) Area Action Plans one is significantly better than the national average, 8 are not significantly different from Maintain/develop plan the national average and 21 are significantly policies at Borough and Area worse than the national average. level in support of housing • There are a number of indicators which are market renewal and among the worst in the country, including economic, social and female life expectancy, which is the sixth environmental regeneration worst in England. (Department of Health to reduce health and 2009) disability deprivation. • Some indicators have shown a marked improvement since last year, including the percentage of children who are physically active, which was among the worst in the country for 2008. This indicator is now not significantly different from the national or regional average • Burnley has a total of 18 indicators which are below the regional average, these spanning across all five domains of community, children and adult health, disease and life expectancy. • The health of the people of Burnley is affected by high levels of poverty and worklessness with poor general levels of educational attainment in children.
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• Life expectancy for both men and women remains lower than both the regional and national averages. Early death from heart disease and stroke is higher than national and regional averages. • IMD 2007 (Health Deprivation and Disability) shows that of the 43 SOAs in the worst 25% nationally the situation improved compared to 2004 in only 9 (21%). If all 60 of the Borough’s SOAs are considered this figure rises to 15 (25%). Education Skills • Burnley has shown declining levels of GCSE Core Strategy and Training attainment and fluctuating levels of NVQ 4/5 Area Action Plans level qualifications during the past three monitoring periods. Burnley now has the Maintain/develop plan policies lowest levels of GCSE attainment within the at Borough and Area level in region, with the percentage of Burnley pupils support of economic social and with 5 A-C GCSEs having decreased over environmental regeneration to the last three monitoring periods, in contrast reduce deprivation levels in to the county and the region. Education Skills and Training. • The Government’s Building Schools for the Future Programme (BSF) has now completed the rebuilding a number of Burnley’s secondary schools, a reorganisation aimed at raising achievement across the borough. • IMD 2007 (Education Skills and Training) shows that of the 28 SOAs in the worst 25% nationally the situation improved compared to 2004 in only 8 (29%). If all 60 of the Borough’s SOAs are considered this figure rises to 16 (27%). • Burnley College/University opened in September 2009. This will assist in boosting knowledge and skills base. Housing Indicators Housing stock Pennine Lancashire House Condition Survey Core Strategy 2009 found: Area Action Plans 74% of Burnley’s housing stock consists of terraced houses compared to national average of 29%. Maintain/develop plan In 2009, the Borough had 3350 empty policies at Borough and Area homes, which was 8.2% of the overall level in support of housing housing stock.This vacancy rate has risen market renewal to reduce significantly this year after falling last year. It number of vacant properties. is still significantly higher than the North West (3%) and national (4.1%) percentages. 1126 (2.8%) of Burnley’s vacant properties have been empty for six months or more (HSSA 2009) with a further 495 vacant subject to an agreement with private developer or partner for regeneration or housing scheme purposes. Discounting the latter vacants, this is a fall from 3.23% at April 2006. 17 700 (43.6%) houses in Burnley are non- decent compared to the national average of 36.7%. Non decency is due mainly to
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Category 1 hazards (58%) and poor thermal comfort (73.9%). Excess cold is the main category 1 hazard and this overlaps heavily with poor thermal comfort. 13,100 dwellings (32%) fail the thermal comfort criterion of the decent homes definition compared to the national average of 16.7%. There are 9831 private sector homes and 469 RSL dwellings in Burnley with Category 1 hazards. 39 private sector dwellings were made free of Category 1 hazards in 2008/9 (HSSA 2009). Housing Market • A Strategic Housing Market Assessment Core Strategy carried out jointly for Burnley and Pendle Area Action Plans Councils in 2007-8 found the joint Housing Market Area to be highly self contained. Maintain/develop plan Some 73% of homes moves in Burnley (and policies at Borough and Area 70% in Pendle) begin and end in the district level in support of housing of origin. This is high by national standards. market renewal to improve • The Assessment confirmed that the shortage the quality, range and mix of of affordable housing in both Burnley and housing type and significantly Pendle is reflected by a large housing benefit increase the availability of dependent population in the private rented affordable housing. sector and relatively low private rent average incomes. The Assessment identified a high need for affordable housing calculated to be 664 new dwellings per annum in Burnley and 858 per annum in Pendle. Overall demand is negative in Burnley (modestly positive in Pendle) in both cases due to the large over supply of terraced stock. Burnley’s demand is well below its RSS targets for new housing provision but Pendle’s demand is above the target. • Findings from A Viability Assessment of affordable housing suggest that in the urban parts of the study no target proportion of affordable housing could reasonably be sought as a requirement in the present market situation, unless grant or other financial assistance was forthcoming. However, it would be possible to set a target for the higher priced, rural areas. Provisionally a figure of 20% was suggested although a two tier target for greenfield and brownfield sites might be a feasible policy response. The economic downturn since the study was commissioned has had further negative impact on viability.
In the monitoring period average house prices in Burnley decreased by 12.4% from £94,555 (Q2 2009) to £86,231 (Q1 2010). As reported in the previous AMR, Burnley house prices remain well below the county and England averages (source DCLG website, housing statistics) Fuel Poverty • 8600 households (21.1%) in Burnley are in Core Strategy fuel poverty compared to 13.9% nationally Area Action Plans, (PLHCS 2009). This is an increase of nearly particularly Daneshouse,
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14% from 2003. This rise is likely to be the Duke Bar and Stoneyholme result of local incomes failing to keep pace Area Action Plan with rising fuel prices. • The situation is particularly serious in New National Indicator NI 187 Daneshouse, Duke Bar & Stoneyholme area Tackling Fuel Poverty – where 60.8% of households are in fuel people receiving income poverty. based benefits living in • Excess cold is the main category 1 hazard in homes with a low energy Burnley’s housing stock and this overlaps efficiency rating will continue heavily with poor thermal comfort. 13,100 to be monitored by the dwellings (32%) fail the thermal comfort Council from the 2008/9 criterion of the decent homes definition baseline figure. compared to the national average of 16.7%.(PLHCS). • Fuel poverty is likely to increase in Burnley, due to rising fuel costs and the current economic downturn. Combined gas and electricity bills have gone up by 76% over the last five years, and costs are set to further increase (Burnley & Pendle Home Energy Strategy 2008- 2011). Economic Indicators Employment • 66.9% of the working population (16-59 for Core Strategy females, 16-64 for males) in Burnley are in Area Action Plans employment compared with 67.8% in the North West and 70.3% in England. The 2009/10 Maintain/develop plan figure shows an increase of 0.8% on the policies at Borough and Area previous year and a decrease of 2.1% from level in support of economic 2004/5. social and environmental • The working age unemployment rate in the regeneration to reduce Borough has increased from 4.5% in 2004 to Employment deprivation. 6.8% in 2007. The 2008 figures for Burnley show that the unemployment rate has fallen Maintain/develop plan slightly to reach 6.6%. Pendle and Hyndburn policies at Borough and Area show slightly lower unemployment rates than level in support of economic Burnley. (LCC Profiles) social and environmental • In 2007 Employment deprivation was getting regeneration to which allow worse in 34 out of 60 SOAs and particularly in businesses to establish and Housing Market Renewal Areas. grow. • Many urban areas of Burnley have high levels of worklessness, which remains a significant challenge for the borough. Considerable parts of Lancashire including Burnley remain particularly reliant on traditional and manufacturing industries which are declining in employment terms (Regeneris Consultants, 2008) • There is little evidence of new rural businesses or diversification Knowledge • Currently little new business development but Core Strategy based industries College/University development now open and Area Action Plans proposed linked Business Park will boost knowledge and skills base of workforce which Maintain/develop plan is key to maintenance and attraction of policies at Borough and Area knowledge/growth area business. level in support of economic social and environmental regeneration to attract/retain knowledge based industries and suitable workforce.
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Wage levels • 2010 Average (Mean) Gross Income in Burnley Core Strategy is £30-31,000 but has decreased 1.3% since Area Action Plans 2009. Pendle, Blackburn with Darwen and Hyndburn recorded similar averages to Burnley Maintain/develop plan of £30-31,000. The North West Average policies at Borough and Area (Mean) Gross Income is £33,000 and Great level in support of economic Britain is £35,300. The twenty Lancashire social and environmental wards with the lowest Average (Mean) Gross regeneration to reduce Household Income in 2010 included Bank Hall Income deprivation. (under £22-23,000) and Daneshouse with Stoneyholme (under £18-19,000). No Burnley wards were included in the twenty highest income wards. Average (median) Gross Income in Burnley for 2010 is below £24,000. Environmental Indicators Natural Burnley is currently characterised by: Core Strategy Environment • High quality and accessible parks and open Area Action Plans and Biodiversity spaces • Low level of designated Local Nature Reserves in relation to population size /sites under active management • Low per capita carbon emissions • Low car ownership • Low percentage of energy generated from renewable sources See Core Output indicator and Significant Effects indicator key findings Built • Continued deterioration of some of borough’s Core Strategy Environment Listed buildings (Grade 1 and Grade II*) on Area Action Plans Heritage at Risk Register. Canalside Conservation • Continued deterioration of historic buildings Area Appraisal (Grade II and locally listed) in Weavers’ Triangle with several continuing to be at significant risk. Public • Significant additions to the borough’s walking Core Strategy Transport/Conn- and cycling network recently completed Area Action Plans ectivity including Padiham Greenway, Towneley Park Access Routes and Leeds Liverpool Canal Continue making case for towpath improvements. direct rail service to Manchester via Todmorden • Percentage of resident population travelling to Curve and develop plan work in Manchester is only 2.6% (2008) policies which promote rail • Rail patronage figures show Burnley has a low usage eg in South West level of rail usage for the size of the town. In Burnley/Trinity Area Action addition to journey times, particularly to Plan (includes Manchester Manchester, this is likely to reflect the poor Road station) frequency of services the poor quality of station facilities and environment and the poor quality Continue to develop walking of trains, particularly on the Preston-Colne and cycling network to services. promote safe and sustainable • Despite these issues the figures below show travel and access to continued, albeit slower growth in rail usage in borough’s landscape assets. Burnley as in other Pennine Lancashire towns. • LCC research suggests accessibility to ‘good’ public transport is an issue in Burnley which may have been masked by high accessibility to rail stations and bus stops.
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3.2.2 In preparation for monitoring of currently emerging Area Action Plans (AAPs) as part of the Burnley LDF, a set of baseline Area based indicators was established in 2006. This year’s Annual Monitoring Report has extended provision of neighbourhood level data which will assist in updating these AAP indicators (see Appendix 4).
4. ISSUES, CHALLENGES AND OPPORTUNITIES
4.1 ISSUES
4.1.1 It can be seen from the contextual Indicators, that there are a number of key issues that any spatial plans/strategies for Burnley would need to address.
Tackling Deprivation
4.1.2 Deprivation encompasses issues of employment, income, housing, health and disability, and education skills and training all of which are major issues in Burnley.
4.1.3 There are high levels of economic, social and environmental deprivation in some sections of the community. Because many workers earn low wages, poverty is prevalent amongst both working and non-working households. There are low rates of economic participation coupled with high levels of benefit dependency. As a result affordable housing remains a major issue despite a depressed local housing market. Reversing the decline of communities and the housing market in inner urban areas remains a top priority. There is a particular need to address the over supply of terraced properties and the number of vacant (including long term vacant), non decent and energy inefficient dwellings. Within the rural parts of the borough, there are areas disadvantaged by poor access to services and limited local employment opportunities.
4.1.4 There is a long-standing problem of low educational attainment at all stages. Whilst attainment in Burnley continues to rise generally it is not rising in line with national and local trends. This reflects low aspirations and low expectations. There is a mismatch between skill levels in the borough and growth sectors within the economy which it is expected the borough’s new secondary schools and the opening of the new College/University are now addressing.
4.1.5 Burnley’s considerable health issues have a significant effect on levels of deprivation and economic performance. Mortality rates in some parts of Burnley are high compared to the rest of the UK. There are high numbers of people with limiting long-term illnesses or disabilities, high rates of life- threatening conditions and mental health problems. Crime is a significant problem in the borough and youth nuisance has increased in recent years. Sustainable urban and rural regeneration is a key aim of the Local Plan, as is the need to provide a decent home for all within a quality living space
Strengthening the local economy
4.1.6 Productivity in much of the local manufacturing industry is low and the service sector is relatively small. Burnley generally has a low wage economy with a
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shortage of skilled manual workers, professionals and managers. There is a low level of public sector employment in Burnley’s economy and inadequate public transport links to centres which can offer a wide variety of employment opportunities, such as Manchester. The Borough also needs to continue to address the damage to its image inflicted by the well documented community cohesion and housing market problems of recent years. Securing growth and diversification in the local economy is identified as a key aim in the Local Plan, as is the need to improve the role and function of Burnley and Padiham town centres.
Improving the borough’s urban environment
4.1.7 Whilst Burnley has a rich urban heritage the environmental quality of many neighbourhoods and is very poor. Empty historic buildings in the Weavers’ Triangle are in deteriorating condition and at serious risk. This is dispiriting to residents and discourages potential investors. The Local Plan identifies the need to protect and enhance the borough’s key environmental assets and to use their potential to regenerate both the urban and rural area as a key issue. Securing more sustainable forms of development (by for example re-using buildings, securing high quality design, mixing uses and minimising car journeys) is a key aim, as is protecting and enhancing the Borough’s key environmental assets.
Achieving community harmony and engagement
4.1.8 The gradual fall in Burnley’s population is projected to continue in the coming decades. This has significant implications for the borough’s economic and social well being.
4.1.9 There continues to be a pronounced lack of interaction between different communities. High levels of economic, social and environmental deprivation in some sections of the community exacerbate problems of social exclusion and can give rise to the perception that resources are disproportionately targeted at certain neighbourhoods. Recent survey findings that only 56% of residents believe that people of all backgrounds get on well together are a cause for concern. The Local Plan identifies the need to bring about more socially inclusive development that can help create more cohesive communities as a key aim.
4.2 CHALLENGES AND OPPORTUNITIES
4.2.1 The borough has many assets such as its location in the Pennines, its built heritage including Gawthorpe and Towneley Halls, its proximity to local and regional leisure and cultural facilities, a key sub regional centre in Burnley and attractive market town in Padiham. It has more publicly managed open space per head than any other local authority in England and a growing network of recreational green routes providing important links in the Borough’s valuable green infrastructure. The Leeds-Liverpool Canal provides a recreational corridor through and beyond the borough. This is one of the town’s greatest assets and there is great potential for it to act as a catalyst for regeneration.
4.2.2 At the same time, as the 2007 Index of Multiple Deprivation has shown, the Borough has some of the most deprived communities in the country The crucial
44 Burnley Local Development Framework: Annual Monitoring Report 2010
challenge is to turn these areas around to create good quality places that can make a positive contribution towards improving health and well-being.
4.2.3 Whilst Burnley has a range and scale of problems more often seen in many metropolitan areas, the majority of the borough’s geographical area is rural. The challenges it faces are complex and interlinked. For instance, to improve health, it will be necessary to reduce poverty and raise housing standards. The economic challenge is to continue to exploit the borough’s manufacturing strengths but also to respond to structural changes in the local economy and the overall decline in manufacturing industry.
4.2.4 Burnley is one of five areas in East Lancashire that comprise one of the Housing Market Renewal Pathfinders, Elevate. The Pathfinder aims to address housing market failure and is crucial to the regeneration of the borough .
4.2.5 Government funding has been made available for three Sure Start programmes, which cover most of inner Burnley and there is investment in the schools of the district through the ‘Building Schools for the Future’ programme. The North West Development Agency is also committed to investing in the area in order to complement the Housing Market Renewal Pathfinder.
4.2.6 Perhaps one of the most important opportunities to regenerate Burnley and to help address population decline and housing market failure is to improve links between the area and the towns and cities experiencing employment growth. Although Burnley lies on the rail route between Preston and Bradford/Leeds, it does not have a direct service to the nearest large city, Manchester. This could be achieved by the re-instatement of a small section of track, the ‘Todmorden Curve’. A recent study commissioned by the Council has established the economic case for such a link.
5. ANALYSIS OF CORE OUTPUT AND LOCAL INDICATORS
5.1. The main purpose of output indicators is to measure quantifiable physical activities that are directly related to, and are a consequence of, the implementation of planning policies.
5.2. Core Output Indicators are nationally designed indicators which are applied to monitoring at national, regional and local levels to provide consistent data. The current set of indicators are as set out in the DCLG publication Regional Spatial Strategy and Local Development Framework Core Output Indicators – Update 2/2008 (Table 1 p25).
5.3. Local Output Indicators are intended to address the outputs of policies not covered by the Local Development Framework core output indicators. In Burnley, the local output indicators are the targets that are included in the Burnley Local Plan Second Review. These targets have been written to assess how well the Local Plan policies are contributing towards the objectives of the Local Plan. Progress towards achieving local targets is analysed alongside core indicators.
5.4 Government guidance states that removal of indicators from the core set does not mean that they should no longer be collected and reported. In some cases data on former core output indicators continues to be collected and reported as local indicators.
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BUSINESS DEVELOPMENT AND TOWN CENTRES
Targets National planning policy, set out in Planning Policy Statement (PPS)1 emphasises the importance of delivering sustainable development. It highlights the need to make sufficient land in suitable locations available for industrial and commercial development, so that the economy can prosper. Sustainable development is encouraged to promote social inclusion and accessibility (both in locational and physical terms) to job opportunities. Local authorities should be aware of the changes in the local economy and be sensitive to the implications for development and growth. Development plan policies should seek to minimise the use of resources by making more efficient use, or re-use, of existing resources through encouraging the use of previously developed land at appropriate densities.
A supplement to PPS 1 Planning and Climate Change, published in December 2007, highlighted the key role of planning in helping to tackle climate change while making a vital contribution to a prosperous economy and a high quality of life for all.
Planning Policy Statement 4 (PPS4) published in December 2009, sets out the Government's comprehensive policy framework for planning for sustainable economic development in urban and rural areas. The guidance:
• States that plans should set out a clear economic vision and strategy which encourages sustainable economic growth, identifying priority areas with high levels of deprivation for prioritised regeneration investment. • Indicates that plans should support existing business sectors taking account of whether they are expanding or contracting and, where possible, identify and plan for new sectors. • Emphasises the need to prioritise previously developed land that is suitable for re- use, taking account of the different location requirements of businesses. • States that site allocations should not be carried forward without evidence of the need and reasonable prospect of take up during the plan period. • Sets out planning policies for economic development including town centre uses which include retail development, leisure and entertainment, offices and arts, cultural and tourism development. Requires Area Action Plans to address transport, land assembly, crime prevention, planning and design issues associated with the growth and management of centres.
The Regional Spatial Strategy for the North West published in September 2008 states that development plans should, in conjunction with local economic development strategies, identify a range of suitable sites and premises for employment purposes to take account of the needs of local businesses and communities and to ensure the modernisation and diversification of older manufacturing industries and their premises. Economy in the use of land and buildings is required and new development should be located so as to make the most effective use of land.
As part of the evidence base for the Local Development Framework, in particular the emerging Core Strategy and Area Action Plans, a comprehensive review of employment land is currently underway. Results of this review will inform future Annual Monitoring Reports.
The key economic aim of the Burnley Local Plan Second Review is to promote growth and diversification in the local economy. Related objectives are:
• To modernise and diversify the local economy (EW1)
46 Burnley Local Development Framework: Annual Monitoring Report 2010
• To maintain and improve established industries and employment areas (EW2) • To further diversify the rural economy (EW3) • To maximise the contribution of the town’s built heritage to economic regeneration (EW4) • To encourage the creation and development of small businesses (EW5) • To encourage further development of tourism, leisure, arts, culture, recreation and sport (EW6) • To encourage growth in new technology industries (EW7) • To modernise older industrial areas and premises (EW8)
Growth and diversification in the local economy will be pursued by identifying a range of quality sites within the urban boundary and in town centres that will attract quality employment in accordance with the North West region’s sectoral priorities. Diversification and modernisation will lead to more jobs, better pay, and a more balanced local economy better equipped to compete in today’s global marketplace. Encouraging improvement to existing premises and employment areas will be a priority in the pursuit of a more modern local economy.
General Policy GP1 aims to concentrate all new development, other than that appropriate to a rural area, within the Urban Boundary. The priorities for development within the Urban Boundary are to re-use previously developed land and buildings and to use these efficiently, to minimise the use of natural resources and to exploit existing services and facilities.
Protecting employment land in existing major industrial estates and in Economic Improvement Areas is a key objective (see objective EW2 above). This recognises the importance of these sites/areas to the Borough’s economy, and encourages their improvement and development to increase their attractiveness. New allocations for employment uses are directed towards identified sites, previously developed sites and mixed use development sites.
Local Plan Targets
Target GP1a – All new development, other than that appropriate to a rural area, to be located within the urban boundary. Target GP1c – At least 95% of all new employment development to be within the urban area. Target GP1d – 5 rural buildings re-used for employment or community uses by 2007. Target EW8c - 1,000m² of new floorspace created by 2010 Target EW8d - 2,500m² of floorspace re-used or brought back into use by 2010 GP3a – at least 3 mixed use allocations developed by 2010. Target EW3a – To secure the re-use of five former agricultural buildings for business use by 2010 Target EW3b – To increase the number of businesses based in rural areas by 5%.
BD1 (CORE) Total amount of additional employment floorspace – by type
Objective To show the amount and type of completed employment floorspace (gross and net)
ON TARGET?
Data Analysis In the monitoring period two sites in the Liverpool Road area of Burnley were developed for employment with a total of 11900 square metres of floorspace. This includes one site of
47 Burnley Local Development Framework: Annual Monitoring Report 2010
6280 square metres for mixed industrial (B1, B2, B8) use and another site of 5620 square metres for B1(a) office use.
Commentary Land developed for employment purposes, mainly consisted of mixed industrial and office use. The sites which have been brought forward for industrial use are located at Liverpool Road, an established industrial estate/business park in the west of the borough.
Although Burnley has more total office space (commercial and other) than all other East Lancashire authorities except Blackburn (LCC/ONS 2007), there is a lack of modern office space in the Borough. Recent developments at this site have made a significant contribution to addressing this shortage.
Overall, it is considered that the additional floorspace that was provided during the monitoring period will contribute to strengthening the local economy and help to offer a range of job opportunities for the local workforce.
BD2 (CORE) Total amount of employment floorspace on previously developed land – by type
Objective To show the amount and type of completed employment floorspace (gross) coming forward on previously developed land
ON TARGET?
Data Analysis Of the two Liverpool Road sites that were brought forward during the monitoring period, one (6280 sqm) involved development on greenfield land within the urban boundary. The second site (5620sqm) was previously developed.
Commentary 47% of employment land developed during the monitoring period was previously developed. All land developed for employment purposes was within the Urban Boundary.
BD3 (CORE) Employment land available by type
Objective To show the amount and type of employment land available
ON TARGET?
Data Analysis
Since the 2009 Annual Monitoring Report the Council has undertaken more detailed assessment of the take up and availability of employment land in the borough. This work was undertaken as part of preliminary work on the Council’s Employment Land Review (due for publication in early 2011).
48 Burnley Local Development Framework: Annual Monitoring Report 2010
The table below provides an overview of employment sites allocated in the adopted Burnley Local Plan with an indication of where development has progressed to date and any constraints/barriers which may be continuing to inhibit development.
Site Developable Location Comments Area EW1/1 – Widow Hill Road 2.0ha On well-established Adjacent building to Industrial Estate with the north now taken existing service by a single user (to be infrastructure but not used as a HQ) and well located in relation this site taken for to the road network expansion land
ALL COMMITTED EW1/2 – Balderstone 7.1ha On the edge of Developable area may Lane Heasandford Industrial be reduced by the Estate. Location is presence of overhead seen as poor by many power lines and the businesses which need for landscaping require motorway including the access. incorporation of Walshaw Clough. South eastern quadrant now developed (Holts Business Park) – 3 units – all let)
Area to north of Walshaw Clough – all with planning permission Eastern section – 2007 permission for B1 Western section – waste transfer station – to allow site assembly at Stoneyholme
EW1/4 – Hepworths 24.46ha On the edge of Whole site with Padiham. Road planning permission – access is poor but it is some residential close to a bus route. permitted as enabling The M65 runs to the development south of the site but there is no direct . access to the motorway. Infrastructure works will be required to provide motorway access.
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Site Developable Location Comments Area EW1/5 – Stoneyholme 7.2ha Located to the north of Southern section now Burnley town centre UCLAN immediately adjacent to an area for which an A smaller remaining ADF has been site (excluding prepared as part of the Rectory Road and Housing Market Stoneyholme Rec) Restructuring being assembled as Pathfinder. an Education and It is adjacent to Enterprise Park in Junction 11 of M65 but conjunction with there is only access to UCLAN the northbound carriageway at this point. All in Council ownership/being acquired through negotiation. Market Appraisal of 2007 Feasibility Study being updated ERDF funding
EW1/6 – Westgate 2.1ha Close to Burnley town Some ground centre with good condition issues. access to the Includes Nissan Car motorway and Burnley Showrooms but rest of Barracks station. Also site still available on a quality bus route and close to regeneration areas. EW1/7 – Calder Vale 0.9ha Close to Burnley town Developed for DIY Road centre with good retail use access to the motorway and adjacent to a Quality Bus Route EW1/8 – Clifton Street 0.66ha Close to Burnley town Small site suitable for centre and Quality bus B1 uses. route. EW1/10 – Plumbe Street 1.4ha Close to Burnley town Carried forward in centre with good area covered by access by public Burnley Wood AAP transport. Also, close to residential areas.
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Site Developable Location Comments Area EW1/11 – Finsley 3.5ha (approx On the edge of Burnley Site has been Wharf/Lambert Howarth excl. Canal) town centre but with identified for Mixed poor access by road Uses, including B1 and by public transport Subject of planning application – St Modwens
Employment uses only on part of site EW1/12 – Victoria Mill 0.34ha Close to Burnley town Listed Building centre within the considered suitable for Weavers’ Triangle. a variety of uses. Reasonable access by Site has been road and fairly close to identified for mixed Quality Bus Route. uses including B1 and B2.
OJEU Notice
EW1/13 – Sandygate Mill 0.3ha Close to Burnley town Site has been centre within the identified for Mixed Weavers’ Triangle. Uses, including B1 Reasonable access by and B2. road from Trafalgar Street but some OJEU Notice distance from public transport routes. EW1/14 – Clock Tower 0.28ha Close to Burnley town Cleared site of a Mill centre within the Listed Building. Weavers’ Triangle but Site has been with poor road access. identified for Mixed Reasonably close to a Uses, including B1 Quality Bus Route. and B2. Canalside setting. OJEU Notice
EW1/15 – Wiseman 0.33ha Close to Burnley town Site has been Street centre within the identified for Mixed Weavers’ Triangle. Uses, including B1 Canalside setting. and B2. Access by road is poor but the site is close to OJEU Notice the town centre and public transport routes.
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Site Developable Location Comments Area EW1 /17 – Network 65 1.3ha On the edge of the Kestrel Court urban area with good completed Sept 2008 road access and links to the motorway Still some units network. However, available to let access by means other than the car is poor although there are proposals to provide a bus link with housing areas of need. EW1/20 – Liverpool Road 5.41ha Located to the west of Whole site has Burnley off the A649 planning permission with reasonable access to the Phase 1 is completed motorway. Close to and part let residential areas and public transport routes. EW1/21 – Network 65 1.66ha On the edge of the Completed and fully urban area with good let road access and links to the motorway network. However, access by means other than the car is poor although there are proposals to provide a bus link with housing areas of need. EW1/22 – Stanhope 0.53ha Prominent road Part of site has Street frontage identified in planning permission the Gateway Study for Gateway undertaken by Lambert Improvements Smith Hampton
The figures below provide a more detailed breakdown of employment land availability on allocated Local Plan sites.
Take up for Employment Uses
Developed 2005/10
EW1/2 - Balderstone Lane 0.7 ha EW1/5 – Stoneyholme 2.0 ha EW1/7 – Calder Vale Road 0.9 ha EW1 /17 – Network 65 1.3 ha EW1/20 – Liverpool Road 5.41 ha EW1/21 – Network 65 1.66 ha
TOTAL 11.97 ha
Take up 2004/10 2.39 ha/pa
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With Planning Permission/Committed/Land Assembly Advanced – likely development 2010/16
EW1/2 - Balderstone Lane 1.8 ha EW1/4 – Hepworths 18 ha EW1/11 – Finsley Wharf/Lambert Howarth 1.2 ha EW1/1 – Widow Hill Road 2.0 ha EW1/2 - Balderstone Lane 2.7 ha EW1/5 – Stoneyholme 3.0 ha
TOTAL 28.7 ha
Take up 2010/2016 4.78 ha/pa
Land in Council Ownership/Still Available – likely development – 2016/21
EW1/12 – Victoria Mill 0.34 ha EW1/13 – Sandygate Mill 0.3 ha EW1/14 – Clock Tower Mill 0.28 ha EW1/15 – Wiseman Street 0.33 ha EW1/6 – Westgate 1.5 ha EW1/8 – Clifton Street 0.66 ha EW1/10 – Plumbe Street 1.4 ha EW1/22 – Stanhope Street 0.4 ha
TOTAL 5.21 ha
Take up 2016/21 1.04 ha/pa
Additional employment sites identified in emerging Area Action Plans (AAPs) which are due for Submission to Secretary of State in early 2011.
AIT (South West and Trinity Burnley AAP) 2.1 ha Lutner Street (Burnley Wood and Healey Wood AAP) 0.3 ha Elm Street (Daneshouse Duke Bar and Stoneyholme AAP) 0.86 ha
Total 3.26ha
Windfall permissions 2005/10
These sites do not include permissions within the Borough’s existing industrial estates/business parks and Economic Improvement Areas as identified in the Burnley Local Plan (policies EW5 and EW6)
With permission B1 office 1.6 ha B2/B8 0.42ha
Developed 0.03ha
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TOTAL EMPLOYMENT LAND AVAILABLE At 31 st March 2009, 52.75 hectares of employment land was available for development.
This figure includes all undeveloped allocated sites, additional Area Action Plan sites and windfall permissions.
During the 2009/10 monitoring year development took place on allocated sites totalling 0.62 hectares. Outside allocated areas permissions for employment development totalling 0.56 hectares were granted.
In the 2009/10 monitoring year no employment land was lost to non employment uses (including residential) within the Borough.
Commentary The Local Plan has identified a range of new employment and mixed use allocations and existing sites throughout the Borough to achieve a sustainable distribution of employment land.
The majority of employment land is identified for a range of employment uses (B1, B2 and B8). However, the town centre sites allocated are identified solely for B1 uses and the Local Plan mixed use allocations for B1 and B2 employment uses.
In addition to the employment land figure, the adopted Local Plan Second Review also identifies 4 major industrial estates where development and improvement is promoted. Six Economic Improvement Areas, where investment in buildings, environment and access are encouraged, are also identified.
A comprehensive review of employment land commenced in 2009 as part of the evidence base for the emerging Core Strategy and Area Action Plans. This will inform future Annual Monitoring Reports.
BD4 (CORE): Total amount of floorspace for ‘town centre uses’
Objective To show the amount of completed floorspace (gross and net) for town centre uses within i) town centre areas and ii) the local authority area.
ON TARGET?
Target
PPS4 which replaced Planning Policy Statement 6: ‘Planning for Town Centres’ in December 2009 sets out planning policies for economic development including town centre uses which include retail development, leisure and entertainment, offices and arts, cultural and tourism development. It requires plans to address transport, land assembly, crime prevention, planning and design issues associated with the growth and management of centres.
The Regional Spatial Strategy for the North West published in September 2008 states that development plans should recognise the need to protect, sustain and improve all of the town and city centres in the region. Development plans can achieve this by encouraging new retail, leisure and/or mixed use developments within existing defined town and city centre boundaries with retail development being directed particularly to primary shopping centres. Office development that generates significant numbers of trips should be directed to suitable
54 Burnley Local Development Framework: Annual Monitoring Report 2010 locations within or adjoining town centres, or district centres, and near to major public transport interchanges within urban areas. The Burnley Local Plan aims to maintain and strengthen the town centres of Burnley and Padiham by directing major new developments to defined centres.
Local Target (Borough) Target TM2a - 95% of major (over 1,000m²) retail, leisure or office developments to be located in the defined town centres or within 100 metres of a defined transport corridor. Target EW6b – 2 additional leisure facilities of over 1,000m² gross floor area developed by 2010.
Local Targets (Burnley Town Centre) Target BTC2a – Increase shopping floorspace by 2,000m 2 by 2010. Target BTC2g – No new major retail or leisure development to be located outside defined town centre boundaries, or on unallocated sites, 2001-2011. Target BTC1c – 2 new major leisure developments by 2010.
Local Targets (Padiham Town Centre) Target PTC1b – To maintain retail floorspace in Padiham Town Centre at its 2004 level. Target PTC1d – To increase pedestrian footfall by 10% by 2006. Target PTC2b – To reduce vanacies on Burnley Road by 10% by 2010.
Data Analysis Town centre uses are defined as Use Class Orders A1, A2, B1a and D2. Within the 2008/9 monitoring period, the following retail development was completed within A1 Use Class:
• Homebase, land off Caldervale Road, Burnley 4200 sqm
An additional convenience retail outlet (Tesco Express, Brunshaw Road, Burnley) was created from a former public house (permitted change of use A4 to A1)
An extension (380 sqm) was completed at Padiham Leisure Centre. This development (use class D2) is below the 500 sq metres threshold which applied to this indicator in previous years but which has been removed in recent indicator revisions.
Commentary Within the monitoring period, the amount of completions for town centre uses has decreased since the last monitoring report which included significant additions to floorspace at Tesco’s Centenary Way store in Burnley.
There have been no other major office or leisure developments within this period within Burnley or Padiham town centres. However, there has been an increase in the amount of office development completions within the wider borough boundary, mainly at Liverpool Road, Burnley.
It should also be noted that significant developments were in the pipeline at the end of the monitoring period, in the form of as yet unimplemented permissions, notably the Oval Development, Burnley.
Monitoring of this indicator provides an important evidence base from which to regularly monitor the amount of floorspace completed against the floorspace capacities identified for future retail and leisure development in the 2005 Retail and Leisure Study carried out for Burnley Borough Council by Savills.
55 Burnley Local Development Framework: Annual Monitoring Report 2010
Padiham Retail, Office and Leisure Study, January 2010
The Padiham Retail Office and Leisure Study provides evidence in relation to the key town centre uses covered in Padiham. It provides an updated evidence base, building on previous studies including the Padiham Town Centre Retail Study 1997, Padiham Town Centre Strategy 2005 and the Burnley Retail and Leisure Study 2005. The study includes a comprehensive town centre PPS 6 Health Check Assessment.
Table: Change in principal town centre uses in Padiham 2005-2009 Source: Padiham Retail, Office and Leisure Study/GOAD 2009 % % % GOAD regional average 2009 2005 Convenience 18.1 7.1 12.8 floorspace Comparison 16.9 14.3 29.4 floorspace Service floorspace 47.9 37.5 40.3 Vacant floorspace 9.3 7.9 9.3
The relatively large proportion of floorspace dedicated to convenience use is largely attributable to Padiham's main foodstores, a Tesco Express and Co-op, along with a number of local independents. 12.6% of the town centre’s 140 retail and service outlets were vacant in April 2010 compared to the average vacancy rate for the UK of 12.3%. However, a concentration of vacant units exists in the historic core of the centre (Church Street/Burnley Road area). Of the 92 units to the north of Station Road, 20 were vacant in April 2010, a vacancy rate in that part of the town centre of 21.7%
A survey of town centre business carried out as part of the 2010 Retail Study revealed that:
• 72% of businesses had traded from current premises for over 5 yrs, 46% traded from Padiham for over 20 yrs, with 4% retail businesses starting up in last 1-2 yrs. 75% have had no other premises. • 64% were owner occupied. • 46% of businesses reported to be trading moderately but 20% trading poorly. 46% reported turnover had decreased in the last 12 months. • In terms of weekend opening, 57% were only open on Saturday with 21% open both Saturday and Sunday. 18% did not open at the weekend. 86% had no plans to change opening hours. • The majority of businesses employ low numbers of staff.
The other main findings of the Health Check Assessment were that:
• the town centre is poorly represented by national multiple retailers • there is a strong independent retail offer • there is a low level of demand for retail space and vacant units are very difficult to let • the town centre is well served by public transport but the town continues to suffer from poor pedestrian accessibility with little evidence of change since 1997. The town has poor, narrow pavements with a lack of crossing facilities. The A671 continues to be used as a major through route with high volumes of traffic • the current level of car parking appears to satisfy existing demand although it could be better signed
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• the town centre environment is undermined by poor quality public realm, poorly maintained shop fronts and a lack of cleanliness. This is well recognised by residents and businesses alike.
A Retail Capacity Study, based on a detailed telephone survey of shopping habits involving 400 households within a carefully defined catchment area around the town, was undertaken. This identified a need for both quantitative and qualitative improvements to Padiham's retail offer, particularly as the surveys showed that the town centre retains only small percentages of expenditure on both food and non food shopping made from within Padiham and the wider rural area it serves. However, the study also emphasised that any significant additions to the retail offer would need to be appropriate both in scale and location in order to realise potential benefits and not undermine the vitality and viability of the existing town centre.
As an important service centre with a large rural hinterland, the town centre is considered to be poorly served by cultural facilities as it has no cinema, dedicated art gallery/museum or dedicated community centre. However, the Town Hall offers a significant opportunity in terms of meeting some of the needs for community-based facilities in the town. The Retail, Office and Leisure Study concluded that, as the cinema and bingo provision in Burnley met existing needs, there was no basis on which to plan for new facilities.
Padiham has a traditional bar and restaurant offer with limited family orientated provision. The Retail, Office and Leisure Study recommended that the main focus of the Area Action Plan be on managing the concentration of A3 - A5 uses on Burnley Road/Church Street.
An assessment of existing office provision and demand in Padiham was undertaken as part of the same Study. This concluded that, in terms of office provision, Padiham is likely to continue to perform a secondary localised function in comparison to Burnley town centre and Shuttleworth Mead. The town's offer comprises a limited supply of 'above shop' premises which are in need of modernisation to meet current office market requirements. There is limited commercial demand for office space in the town at present. Through its employment and mixed use allocations, the Area Action Plan aims to deliver additional small office accommodation which meets local needs and is potentially attractive to small start up occupiers.
Contrary to the intent of national and Local Plan policy, in previous years more significant town centre uses have been concentrated largely in established out of centre business parks with poor public transport accessibility. This is due to strong market preferences amongst employers/developers for locations with good road transport link and less constrained parking provision. Other contributory factors could include the economic bias towards retail uses in town centre areas and the failure of the local planning authority to effectively differentiate and monitor industrial and office uses within the B1 use class;
Lancashire Town Centre Office Premises Study 2007 The regional pattern, generally reflected in Burnley and contrary to policy aims of PPS6 and the Burnley Local Plan Second Review, of out of centre location for town centre uses was investigated in 2007 by a Lancashire County Council survey of office stock (use classes A2 and B1) in all Lancashire town centres. The results for Burnley are shown below.
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Table 20: A2 and B1 Office Floorspace in Burnley and Padiham Town Centres
Town No of Total Vacant Percent Average properties floorspace m2 floorspace m2 vacant property size m2 Burnley 91 36,070 5,933 16.4 396 Padiham 9 1840 162 8.8 204 Source: BE Group 2008/LCC, Spatial Planning in Lancashire Annual Monitoring Report 1 April 2008
The study found that Burnley had the third largest town centre office stock after Preston and Blackburn. As in the other larger towns, this stock was dominated by B1 uses. Most of the County’s vacant office space was also concentrated in these three towns. Although like all other districts in Lancashire Burnley now has more office stock outside town centres than within town centres, the borough along with Preston and Blackburn is still one of the best performing in terms of proportion of stock provided within town centres. It should be noted however that this is to some degree a function of how town centre boundaries have been drawn to reflect key office zones in these towns.
GOAD Data 2009 on vacant retail units within town centres records a slight decrease in Burnley from 2007 figures, though this is not reflected in comparison with the 2007 LCC study. In Padiham vacancy levels have fallen slightly since 2001 though this masks high concentrations in the Church Street area of the centre.
Table 21: Vacant retail units in Burnley and Padiham Town Centres
Town Centre Total vacant Total vacant Total vacant Total vacant % total vacant units in 2003 units in 2007 units 2008 units October units October Burnley, 2001 (BE Group) (GOAD) 2009 2009 Padiham (GOAD) Burnley 58 61 63 60 12.1 Padiham 16 14 No 2008 13 9.6 data GOAD data 2009 /LCC, Spatial Planning in Lancashire Annual Monitoring Report 3 March 2010
Zone A rental is the value of the first 6 metres of floorspace in retail units from the shop window. It is an important indicator of retailers’ perception of a town centre. The 2007 LCC study found that Burnley and Nelson were the only Lancashire towns not to have experienced increased Zone A rental levels between 2005 and 2007. Burnley’s level fell by 4.9% between 2008 and 2009 and by 2.5% between 2005 and 2009. However, its value of £975 per sqm remains the third highest level behind Preston and Blackburn.
HOUSING
H1 (CORE): Plan period and housing targets
Objective To show the planned housing period and provision
The Regional Spatial Strategy for the North West came into force in September 2008 replacing housing allocation policies of the Joint Lancashire Structure Plan (JLSP). Policy L4 of RSS sets Burnley’s housing requirement between 2003 and 2021 at 2,340. This figure gives an annual average requirement of 130 dwellings per annum.
58 Burnley Local Development Framework: Annual Monitoring Report 2010
H2(a)(CORE) : Net additional dwellings – in previous years
Objective To show recent levels of housing delivery
Levels of housing completions for the period 2003-2010 in Burnley are shown below. It should be noted that these figures have been revised to integrate clearance replacement completions (those within Housing Market Renewal (HMR) Intervention Area) with remaining completions in the Borough in order to bring them into line with the RSS monitoring procedures of 4NW. Previously only completions outside the Intervention Area have been monitored against the RSS target. The integrated figures also take account of all demolitions including clearance within the Intervention Area. The completions figure for 2009/10 is -66 is derived from a completions figure of 119 and a demolitions figure of 185. Between 2007 and 2009 completions were in excess of, the annual requirement. In the monitoring period the level of completions has fallen well below the annual requirement.
Figure 6: Housing Completions 2003-2009
Housing Completions 2003 to 2010
200
150
100
50
0
-50
-100
-150 2003/ 2004/ 2005/ 2006/ 2007/ 2008/ 2009/ 04 05 06 07 08 09 10 Total Actual -121 27 90 105 176 152 -66 Completions Plan = 130 130 130 130 130 130 130 annualised strategic allocation
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H2(b)(CORE) : Net additional dwellings – for the reporting year
Objective To show levels of housing delivery for the reporting year
Data Analysis
Between 1 st April 2009 and 31 st March 2010, 119 dwellings were completed including those within the HMR Intervention Area. Of these, 112 were new build completions and 7 changes of use. A total of 185 dwellings were demolished in the borough.
Based on the figure of -66 for net additional dwellings the number of completions built this year is significantly below the annual figure of 130 dwellings required by the Regional Spatial Strategy, and a significant decrease of on last year’s figure which exceeded the target. This reflects both a reduction in dwellings completed, likely to be the result of the continuing economic downturn, combined with an ongoing clearance programme in HMR areas.
Allocated sites 6% of the new build dwellings were completed on sites which are allocated for housing in the Burnley Local Plan, Second Review.
These completions were on the allocated site at the Former Summit Site on Manchester Road in Burnley.
42% of completions were on sites allocated in the emerging Area Action Plans. These were on a site at Cog Lane in South West Burnley and Trinity and at Hurtley Street in Daneshouse, Duke Bar and Stoneyholme.
Windfall sites Windfall sites are those that have come forward for housing unexpectedly, and were not allocated in the local plan. 52% of this year’s completions have been constructed on windfall sites.
Table 22: Dwellings Completed on Windfall Sites 2003 to 2010
Year Dwellings
2003/04 93 2004/05 131 2005/06 119 2006/07 137 2007/08 62 2008/09 73 2009/10 62
As the table shows, since 2003 the figure has ranged between 62 and 137, with an average of 97 per year. The majority of these developments have taken place on brownfield sites, often former housing or mill sites. This level of windfall development is therefore to be welcomed as it helps to reduce pressure on the countryside from development.
60 Burnley Local Development Framework: Annual Monitoring Report 2010
Overall there were 13 windfall sites under 0.4ha (55 dwellings) and 4 change of use/conversions (7 dwellings) built on during 2009/10.
H2(c)(CORE) : Net additional dwellings – in future years
Objective To show likely future levels of housing delivery
Housing Land Supply
At 31st March 2010, 28.16 hectares of land for 1652 dwellings was available. 1538 dwellings have planning permission on 28.16 hectares of land. Of these 43% have full planning permission. In addition, 114 dwellings have planning permission for change of use/conversion. The total amount of land available is an increase of approximately 18% on the amount available in 2009 as shown in the following table:
Housing Land Supply 2003 to 2010
Date Dwellings available Hectares
31 st March 2003 551 12.3 31 st March 2004 538 10.0 31 st March 2005 584 13.53 31 st March 2006 736 11.82 31 st March 2007 724 10.70 31 st March 2008 976 17.14 31 st March 2009 1537 23.95 31 st March 2010 1652 28.16
Planning Permissions Granted April 2009 to March 2010
During 2009/2010, new planning permissions were granted for a total of 374 new dwellings, of these, 362 being new dwellings on 8.94 hectares of land and 12 through change of use/conversion. The total number of new dwellings approved represents a decrease on the total number of dwellings approved in the previous year as shown below:
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Table 24: New Planning Permissions Granted 2001 to 2010
Year New build Conversions Total approvals approved
2003/04 235 66 301 2004/05 280 29 309 2005/06 539 29 568 2006/07 117 24 141 2007/08 452 30 482 2008/09 433 45 478 2009/10 36212 374
The number of new build approvals has decreased from last year and the number of conversions is below the average number of approvals, which is 33.
Figure 7: Projected completions 2011 to 2016
Projected completions 2011-2016
5 yr projected completions Plan = annualised strategic allocation
250
200
150
100
50
0 10/11 11/12 12/13 13/14 14/15 15/16 5 yr projected completions 160 160 170 180 190 200 Plan = annualised 130 130 130 130 130 130 strategic allocation
H2(d)(CORE) : Managed delivery target
Objective To show how likely future levels of housing are expected to come forward taking into account the previous year’s performance
ON TARGET?
62 Burnley Local Development Framework: Annual Monitoring Report 2010
The projected number of net additional dwellings assumes the number of completions will be in excess of the annual requirement in the short to medium term due to the factors set out in H2c above. If these projections are proved to be correct, this will mean that in the longer term housing levels will need to managed down to levels at or below the annual requirement by the end of the RSS period as shown in Figure 8 below.
Figure 8: Housing Trajectory
250 Trajectory and managed delivery target, 2003/04 to 2020/21
200
150
100 200 200 200 190 185 176 170 180 175 152 160 160 157
105 50 90
27 0 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 2010/11 2011/12 2012/13 2013/14 2014/15 2015/16 2016/17 2017/18 2018/19 2019/20 2020/21 -66 -50 -121
-100
-150
Actual dwellings completed (net)
Projected completions (net)
Target Managed Delivery Target - What remains to be completed to achieve the overall RSS target annually for each of the number of the years of the plan period remaining
H3 (CORE): New and converted dwellings – on previously developed land
Rationale: To show the number of gross new dwellings being built upon previously developed land (PDL)
ON TARGET?
Target Greenfield sites are those that have not been previously developed. Conversely, brownfield sites are those that have been developed in the past, such as derelict sites and redundant buildings. Nationally, the Government’s target is that at least 60% of additional housing should be provided on previously developed land. The target for East Lancashire included in the Regional Spatial Strategy is at least 65%. The Joint Lancashire Structure Plan 2001- 2016 had previously proposed a target for Burnley of 90% which was adopted in the Burnley Local Plan for the same period.
Local Plan Target Target GP1b – At least 95% of all new housing to be within the urban boundary.
Data Analysis Greenfield sites accounted for only 1% of housing completions during 2009/10 as shown in the following table:
63 Burnley Local Development Framework: Annual Monitoring Report 2010
Ratio of Completions on Greenfield/Brownfield Sites
Year Greenfield Brownfield
2003/04 23% 77% 2004/05 11% 89% 2005/06 7% 93% 2006/07 5% 95% 2007/08 2% 98% 2008/09 7% 93% 2009/10 1% 99%
This year’s figure continues the trend of the last year as brownfield development is once again higher than greenfield. This is in line with the Government’s objective of securing 60% of new housing development on brownfield sites.
H4 (CORE): Net additional pitches (Gypsy and Traveller)
Objective To show the number of Gypsy and Traveller pitches delivered.
ON TARGET? ?
Target National planning policy on Gypsy & Traveller sites is outlined in Circular 01/2006. This outlines that provision of sites should be seen in the wider context of the Government’s housing policy to ensure that everyone has the opportunity of living in a decent home.
The Circular outlines in detail the processes for undertaking Gypsy & Traveller Accommodation Assessments (GTAA), which are a statutory duty of local planning authorities arising from the Housing Act 2004, gives guidance on how these assessments are then used to influence regional and local planning policy, and gives guidance on drafting of planning policy at the local level.
GTAAs assess the accommodation needs of the travelling community, and identify the amount of residential pitches 1 required at the local authority level. These are then taken as part of the evidence base for the Regional Spatial Strategy (RSS), which allocates a number of pitches per local authority to be delivered over the plan period. Whereas GTAAs are produced on a ‘meeting need where it arises’ basis, the RSS takes in wider factors such as land constraints, and the equity of provision across the region in deriving pitch allocations. At the local level, the Circular states that pitch requirements within the RSS should be translated into site allocations within one of the Local Development Framework’s Development Plan Documents. Furthermore, criteria based policies should be adopted at the local level to meet unexpected demand, and these should ‘be written in a positive manner that offers some certainty that where the criteria (not necessarily all of them) are met planning permission will be granted.’ (Circular 01/2006: Annex C, paragraph 1).
1 A pitch is an area of land generally home to one household, and can be of varying sizes, and have varying caravan occupancy levels. There is no statutory definition of a pitch.
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In Burnley’s case, there is emerging regional planning policy developing via a partial review of the North West RSS, which underwent an Examination in Public 2- 5 th March 2010.
A series of sub- regional GTAAs were produced to provide evidence of the need for additional numbers of pitches across the region. In terms of Burnley, Salford University completed a Lancashire- wide GTAA in May 2007. At the time of the survey Lancashire the study area had 93 pitches on five residential sites all managed by the respective local authorities; 262 pitches on 28 private authorised sites; a minimum of 30 households on unauthorised encampments; and at least 21 households in bricks and mortar housing. In all there was a minimum of 429 gypsy/traveller families on sites, in houses or encamped at the time of the survey. In addition there was somewhere in the region of 8 travelling showpeople households on sites across the study area. The Lancashire GTAA identified a need for 5- 7 pitches in the Borough over the plan period (to 2016).
The Submission version of the RSS Partial Review has adopted a policy which seeks to redistribute pitch requirements more equitably across the region to address historic inequalities of Gypsy & Traveller accommodation supply. As such, the Borough’s allocation within this document is for 15 pitches over the plan period. Although the RSS Partial review is yet to be adopted, there is a clear steer from the Government to continue local planning on the basis of evidence from completed GTAAs as Iain Wright MP states in his ministerial foreword to Government response to the Road Ahead: The Final Report of the Independent Task Group on Site Provision and Enforcement for Gypsies and Travellers ( April 2008 ): ‘The Task group has been clear that the pace of delivery must increase. I agree with that assessment. All Gypsy and Traveller Accommodation Assessments should by now be complete. For the first time, local authorities will have an authoritative statement of need for Gypsy and Traveller accommodation in their areas. It is now time to take action to meet those needs.”
It is clear from evidence in the Lancashire GTAA that there is a need for some provision of Gypsy & Traveller accommodation within the Borough. Thus planning applications have to be judged in relation to the criteria within the development plan in particular Local Plan policy H16 , and the Lancashire Joint Structure Plan policy 29.
Data Analysis None of the pitches or other sites identified in the Sub Regional Assessment are within the Burnley borough. However, the study found that Burnley, along with Blackburn and Lancaster, was one of the authorities with the highest levels of unauthorised encampments. In Burnley this may be related to accessibility from the M65.
Burnley Council’s figures for the monitoring period are shown in the table below.
Table 26: Travellers encampments in Burnley 2009/10
Location Date No of days No of caravans Site owner Liverpool Road 08/04/09 1 15 Private Park Road, 28/05/09 1 4 BBC Padiham A686 Cliviger 10/6/09 3 Believed 3 LCC Network 65 26/06/09 7 4 Private Industrial estate Network 65 13/07/09 7 4 Private Industrial estate A686 Cliviger 10/6/09 1 Believed 4/5 LCC
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Commentary Provision of pitches for Gypsies and Travellers will be considered in the light of emerging RSS Partial Review as part of the development of housing options in the Borough’s emerging Core Strategy, the evidence base for which is currently being established. The Lancashire Sub Regional Gypsy and Traveller Accommodation and Related Services Assessment will be part of this evidence base.
H5 (CORE): Gross affordable housing completions
Objective To show affordable housing delivery
ON TARGET?
Target Burnley’s Housing Strategy 2006-2009 was published in July 2006. One of the Strategy’s three principal objectives is to enable a range of affordable housing options to meet housing need in the borough. In support of this objective the Council published an Affordable Housing Statement (July 2006) which sets out the policies and mechanisms to be adopted in delivering affordable housing in future developments.
PPS3 Housing (November 2006) altered the definition of affordable housing to include social rented housing and intermediate housing 2 and to exclude low cost market housing.
PPS3 requires that local authorities approach to policy formulation is responsive to the market and based on evidence. It requires local authorities to prepare Strategic Housing Market Assessments (SHMAs) to assess need and demand for affordable housing. This requirement is reinforced in Policy L2 of the Regional Spatial Strategy Understanding Housing Markets . Policy L5 of the draft RSS deals with affordable housing. It contains no numerical targets but indicates that LDFs should set out requirements on the basis of sub regional SHMAs establishing appropriate quotas and thresholds.
In 2007 the Council, in conjunction with Pendle Borough Council published its SHMA, which investigated issues relating to affordable housing in the Borough. The SHMA found that in Burnley, as in many other authorities in the region, the level of demand for affordable housing in the Borough is far above the RSS target for new build housing (130 dwellings per annum).
The SHMA calculated an annual net affordable housing need of 664 dwellings in Burnley based on an estimated 37,350 existing dwellings giving a need per 1,000 households of 18. By comparison figures for Pendle (37,000 households) showed an even greater need of 858 dwellings giving a figure of 23 for need per 1,000 households.
Findings from A Viability Assessment of affordable housing suggest that in the urban parts of the study no target proportion of affordable housing could reasonably be sought as a requirement in the present market situation, unless grant or other financial assistance was forthcoming. However it would be possible to set a target for the higher priced, rural areas. Provisionally a figure of 20% was suggested although a two tier target for greenfield and brownfield sites might be a feasible policy response.
2 Housing at prices and rents above those of social rent, but below market prices or rents (PPS3 p25)
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GVA Grimley produced an Area Action Plan Economic Viability Assessment in January 2010. This considered the viability of housing development sites proposed in four emerging Area Action Plans (Burnley Wood and Healey Wood, Daneshouse Duke Bar and Stoneyholme, Piccadilly/Trafalgar and South West Burnley.
The Burnley Local Plan Second Review was the first statutory planning document to include a requirement for affordable or special needs housing in the Borough. Any affordable housing that has been provided prior to the Plan’s adoption in April 2006 has been through housing association development rather than as a requirement of planning policy. This has led to a very low provision of affordable housing in Burnley.
Policy H5 of the Plan seeks to provide Affordable and Special Needs Housing where: i) the proposed development is for 25 dwellings or more, or of 1 hectare or more in site area ii) the site is in a rural settlement of 3000 or fewer population where the development is for more than 15 dwellings or of 0.5 or more hectares in site area
Local Plan Target Target H1b – At least 10% of dwellings on sites above 0.4ha to be affordable.
Data Analysis In this monitoring year 67 compared to a planned 28 affordable dwellings were completed all through RSLs, 51 of which were for social rent and 16 through shared ownership/equity.
No additional affordable housing was delivered through the planning process ie under policy H5 of the Burnley Local Plan.
Next year a further 10 RSL dwellings for social rent are planned (HSSA 2010).
Commentary The issue of affordability in Burnley is complex. It is not simply a case that first time buyers or key workers are unable to access the housing market. Rather it is an issue of sustainable home ownership against the backdrop of a low wage economy. The Council’s aim is to offer a range of good quality house types to meet local need, now and in the future. That will require quality homes that will create the right housing offer to support economic regeneration and neighbourhood renewal, which will improve the prosperity, choice and opportunity for Burnley’s residents.
The Burnley and Pendle Strategic Housing Market Assessment identified various indicators of an affordability issue in Burnley and Pendle Housing Market Area (HMA): i) The study found that while the HMA and particularly Burnley, is low priced relative to other parts of England and Wales, the price income ratio in the HMA has roughly doubled over the 4 years 2002 to 2006. This illustrates that although housing is cheap by national standards, it is a lot less cheap than it used to be for local households. ii) Both homelessness and Housing Register data (whilst not showing clear trends over time) also suggests an ongoing need and demand for social rented housing. iii) Within the affordable spectrum there is some potential requirement for intermediate housing to be provided. The proportion of affordable housing need which can be met through intermediate housing varies from 9%-31% in Burnley and 20%-28% in Pendle. Overall it is estimated that the average across the whole HMA will be in the region of 15%-29%. The proportions are still relatively low and suggest that intermediate housing will have only a limited role to play in meeting the affordable housing needs locally.
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In the future, the Local Plan requirement for affordable housing will lead to an increase in affordable housing provision to better match the need that has been identified. However, the SHMA identifies the high threshold site size (25 dwellings or more) and the low percentage target (10%) upon which the current Local Plan policy is based as contributory factor in the small amount of affordable housing which has been delivered in Burnley. It was considered that Burnley’s demand would support a target of 40% affordable housing in new housing developments of 15 or more dwellings.
It is clear that from the findings of the SHMA and the Viability Assessment that the current Local Plan Affordable Housing Policy will not deliver sufficient affordable dwellings to meet identified need. More demanding targets may be viable in rural areas but the effect of the current economic downturn is likely to maintain overall levels of need for affordable housing while reducing still further the prospects for delivery of affordable homes at least in the short term.
Any changes to Affordable Housing Policy will be considered as part of the Core Strategy. Issues and Options for Housing were consulted on in August/September 2009. All options included a 40% affordable housing target. An Affordable Housing Supplementary Planning Document (SPD) which will provide more detailed information on the number of affordable units that should be provided in proposals in different parts of the Borough and what types of affordable housing provision would be considered acceptable by the Council.
Future Annual Monitoring Reports will assist in updating and monitoring the findings and recommendations of the SHMA.
H6: Housing Quality – Building for Life Assessments
Objective To show the level of quality in new housing development.
ON TARGET?
Target PPS3 Housing aims to create places, streets and spaces which meet the needs of people, are visually attractive, safe, accessible, functional, inclusive, have their own distinctive identity and maintain and improve local character.
Promoting designs and layouts which make efficient and effective use of land, including encouraging innovative approaches to help deliver high quality outcomes, Building for Life is the national standard for well designed homes and neighbourhoods. It is lead by CABE and Home Builders’ Federation and backed by the Housing Corporation, English Partnerships, The Civic Trust and Design for Homes.
The Standard is made up of 20 criteria based on the aims of PPS3 and other government endorsed guidance. Each housing development scheme of at least 10 completed dwellings is awarded a score out of 20 based on the proportion of CABE Building for Life questions that are answered positively. The scores are categorised as very good (16 or more positive answers out of 20) good (14 or more positive answers) average (10 or more positive answers) or poor (less than 10 questions). In the monitoring year four housing developments were completed which qualify for Building for Life Assessment. These are:
07/0847 Bartle Street/Cog Lane, 32 dwellings
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08/0336 Hurtley Street, 18 dwellings 06/0204 Villiers Works, Villiers Street 13 dwellings 07/0171 Clifton Street, 12 dwellings All except Clifton Street are within Housing Market Renewal areas covered by emerging Area Action Plans.
Data Analysis The four sites were assessed by relevant development control case officers. This year one scheme was assessed as ‘poor’, (Clifton Street) one as ‘average’ (Villiers Street) one as ‘good’ (Hurtley Street) and one as ‘very good’ (Bartle Street/Cog Lane). This marks a general improvement from last year’s assessments and indicates that development under way within Housing Market Renewal Areas has this year delivered good quality design. Completed Building for Life Assessments are at Appendix 6.
Commentary Schemes have only been assessed at a post construction stage and not at design stage. The Council is currently developing guidance for developers on the preparation of Design and Access Statements and intends to link Building for Life Assessment into this advice. This year these assessments again provide a simple overview. In future years it is intended that analysis against the twenty criteria will be in greater depth.
Indicator H7 (LOCAL) Housing Densities For schemes of 5 dwellings or more, percentage of new (gross) dwellings completed at: i) less than 30 dwellings per hectare (dph) ii) between 30 and 50 dph; iii) above 50dph
Objective To ensure an efficient and appropriate use of land.
ON TARGET?
Target PPS3 Housing encourages housing development which makes more efficient use of land. 30 dwellings per hectare is a national indicative minimum but authorities are encouraged to set their own density policies. Higher densities are expected in areas with good public transport accessibility. Policy H6 of the Local Plan aims to make the most efficient use of land by maximising the net site density of housing development. The policy requires windfall housing development to be at a density of 30 to 50 dwellings/hectare and higher in places with good transport accessibility (such as town, district and local centres and around major nodes along good quality public transport corridors).
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Data Analysis
Table 28: Density of new Housing Developments (including clearance replacement sites)
Number of Dwellings* (only developments of 5 or more dwellings included) Gross completions at density of less than 30 dwellings per 0 hectare (net site area of the development)
Gross completions at density of 30-50 dwellings per 51 hectare (net site area of the development)
Gross completions at density above 50 dwellings per 47 hectare (net site area of the development)
Total Completions (developments of 5 or more dwellings) 98
Commentary In contrast to last year the majority of dwellings in developments of 5 dwellings or more were completed at a density of less than 50 dwellings per hectare or above. This is due to the largest development (32 dwellings at Bartle Street/Cog Lane) being completed at a density of 38 dwellings per hectare.
Indicator H8 (LOCAL) Sustainable Homes
Objective To show number of new homes being built in the Borough to Code for Sustainable Homes Level 3 standard
ON TARGET?
Target As part of its drive to tackle climate change Government will require all new housing to be zero carbon by 2016.
The Code for Sustainable Homes (CSH), launched in December 2006 is the national standard for the sustainable design and construction of new homes. The Code measures the sustainability of a home against design categories, rating the ‘whole home’ as a complete package. The design categories included within the Code are energy/CO2, pollution, water, health and well-being, materials management, surface water run-off, ecology and waste.
The different levels of the Code provide an indication of the direction of Buildings Regulations (Part L Conservation of Fuel and Power) which were tightened in 2010 and are due to be again in 2013.
All new housing to be developed in the Borough under the Elevate Housing Market Renewal Pathfinder is required to meet the CSH Level 3.
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Data analysis During the monitoring period 32 homes were built to Code for Sustainable Homes Level 4 at Bartle Street/Cog Lane in the South West Burnley and Trinity Housing Market Renewal Area by Keepmoat plc. The development includes renewable energy technology (solar pv).18 new dwellings were built to Code for Sustainable Homes Level 3. These were built by Great Places Housing Association at Hurtley Street in the Daneshouse, Duke Bar and Stoneyholme Housing Market Renewal Area. They include large windows to let natural light flood in, and outdoor bin stores for recycling. Roofs feature photovoltaic units that convert sunlight into electricity which is sold to the national grid and offset against residents’ bills.
Commentary Objective GP7 of the Burnley Local Plan seeks to secure energy efficiency measures in new development where appropriate. Beyond this however, Local Plan policies do not specify sustainable design and construction standards. Such policies will form part of the Borough’s emerging Core Strategy. Until the Core Strategy is adopted it is likely that the development of sustainable new homes in the Borough will be driven by Elevate standards and concentrated in Housing Market Renewal Areas.
ENVIRONMENTAL QUALITY
TRANSPORT
Indicator T1 (LOCAL): Car Parking Standards Percentage of completed non-residential development complying with car- parking standards set out in the Local Development Framework
Objective To promote sustainable transport choices, and minimise inefficient use of land, through promoting parking provision restraint as appropriate to local circumstances.
ON TARGET
Target Burnley’s parking standards are set out in Appendix C of the Local Plan Second Review. They are based on Regional Maximum Standards originally set out in the Regional Planning Guidance for the North West (RPG13). These have been incorporated into the adopted Regional Spatial Strategy but will be reviewed in the forthcoming Partial Review of RSS. The Council aims to ensure that all new non-residential development complies with car parking standards.
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Data Analysis
Table 29: Compliance of new developments with parking standards
Development types (and Number of New Number of New UCO numbers) Developments* completed Developments on sites between April 1 st 2009 and complying with LDF March 31 st 2010 Parking Standards New retail developments 1 1 (UCOs A) New industrial and commercial developments 2 2 (UCOs B) New leisure developments (UCOs D) 0 0 * only developments greater than 1,000 sq m included.
Commentary There were two non-residential developments completed (above a 1,000 sq m threshold) during the monitoring period 2009/10 and these were both compliant with current Parking Standards.
The Car Parking Standards of the Regional Spatial Strategy include thresholds above which Travel Plans should be requested. A 2007 study commissioned by Lancashire County Council examined the extent to which these thresholds (until that time within the Joint Lancashire Structure Plan) were being applied by Lancashire planning authorities and the number of travel plans being conditioned. In Burnley 7 applications had exceeded thresholds, travel plans had been requested by LCC in 5 cases and in 5 cases travel plans had been conditioned. These results suggest that conditioning of travel plans in Burnley is closely linked to and, perhaps dependent upon, LCC requests. However, over the County as a whole these requests have not generally reflected the level of qualifying applications. (LCC Annual Monitoring Report 2007).
Indicator T2 (LOCAL) Accessibility Percentage of new residential development within 30 minutes public transport time of a GP, hospital, primary and secondary school, employment and a major health centre
Objective To promote public transport as a chosen means of travel, to promote accessibility to jobs and services, and to reduce the need to travel by private car.
ON TARGET?
Target Managing travel demand, reducing the need to travel and increasing accessibility is a key objective of national planning policy as expressed in PPG13. It is also one of the key spatial principles of the Regional Spatial Strategy and central to its transport objectives (Policies DP5, RT2).
The Burnley Local Plan aims to provide new housing in proximity to local services in order to:
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• reduce the need to travel (Local Plan ObjectiveTM2 ) • reduce reliance on, and the impact of, the private car (Local Plan Objective TM4) • improve public transport infrastructure and usage (Local Plan Objective TM5) • ensure new development is accessible by public transport, foot and cycle (Local Plan Objective TM7).
Local Plan Targets Target TM7a – 90% of new development to be within 400 metres of a bus stop with at least an hourly service between 8.00 am and 6.00 pm, Monday to Friday.
Target GP4b - 100% of all new major traffic generating uses no more than 400m from nearest bus stop or rail station.
Data Analysis Within the Lancashire Local Transport Plan there is data on strategic accessibility mapping which provides information on public transport accessibility to key services and centres. The maps indicate that, whilst the majority of the urban area of Burnley is within 30 minutes public transport travelling time of the services listed in the indicator, there are parts of the Borough that are less accessible.
The following table shows the number and proportion of residential completions in Burnley within 30 minutes public transport travel time (ie average bus and walk time by public transport during weekday morning peak hours) to the key service shown based on the Strategic Accessibility Maps.
Table 30: Accessibility of basic services from new housing development*
Nearest Nearest Nearest Nearest Nearest Nearest GP hospital Primary Secondary Employment retail School School centre Residential completions within 30 minutes public transport 119 119 119 119 119 119 travel time
100 100 100 100 100 100 Percentage of total completions *clearance replacement completions not included Source: Analysis of Burnley completions data by LCC 2010
Commentary Within the report period 119 dwellings were completed on 20 sites. 119 dwellings (100%) had 30 minutes access to all six services. The urban form of Burnley is fairly compact and as a result, the Borough enjoys reasonably good accessibility to local services by bus. A high percentage of all new housing has therefore complied with the indicator above (as shown in the table). As Local Plan policy is to concentrate development within the Urban Boundary, it is expected that a high percentage of development in Burnley will continue to comply with this indicator in the foreseeable future. It would appear that the reorganisation of a number of key services including health and education (Building Schools for the Future Programme and relocation of Burnley College) has not impacted to date on the general accessibility of these services. However, the indicator fails to take account of qualitative deterioration in the services which can be accessed, for instance relocation of Accident and Emergency services from Burnley to Blackburn in 2007 or proposed closure of five post offices within the Borough following a consultation in early 2008.
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Transport Studies 2009/10 for Daneshouse, Duke Bar and Stoneyholme, South West Burnley and Padiham Area Action Plans
Three Transport Studies were commissioned in late 2009 as part of the evidence base for emerging Area Action Plans in these areas. These looked at accessibility and connectivity issues within (and in the case of Padiham and South West Burnley, between) the areas and made a number of recommendations many of which will be taken forward in the emerging plans.
E1 (CORE): Number of planning permissions granted contrary to Environment Agency advice on flooding and water quality grounds.
Objective To show numbers of developments which are potentially located where i) they would be at risk of flooding or increase the risk of flooding elsewhere and ii) adversely affect water quality
ON TARGET?
Target Under The EU Water Framework Directive planning bodies are required to pursue an approach of Integrated Water Management working with Water Companies and the Environment Agency to protect the quality and quantity of surface and ground waters and manage flood risk. This is reflected in Policy EM5 Integrated Water Management of the Regional Spatial Strategy.
Planning Policy Statement PPS 25: ‘Development and Flood Risk’ published in December 2006 requires local authorities to adopt a strategic sequential approach to land allocation and development control in order to direct development towards areas of lowest risk and to consider ways of reducing the contribution of new development to overall levels of risk within their areas. The Council’s Strategic Flood Risk Assessment (SFRA) provides a framework for applying the sequential approach to planned development within the Borough.
Since the 2007 floods, the resulting Pitt Review and Floods and Water legislation, surface water flooding has become an increasingly important issue. National mapping of Areas Susceptible to Surface Water Flooding has now been made available to local authorities via the Environment Agency. The Pitt report called for the greater use of Sustainable Urban Drainage Systems (SUDS) in new development and emphasised the need to prevent the laying of impermeable surfaces on front gardens. The incidence and type of SUDS schemes within the Borough will be monitored in future years. Forthcoming legislation in the form of the Floods and Water Act will require local authorities to monitor more closely flood incidents from all sources and make a more detailed assessment of structures with the potential to contribute to flood risk.
River Quality Objectives (RQOs) were agreed by Government as targets for all rivers in England and Wales when the water industry was privatised in 1989 and have been monitored by the Environment Agency since then. The targets specify the water quality needed in rivers if we are to be able to rely on them for water supplies, recreation and conservation. Under the Water Framework Directive a new more sophisticated and rigorous ecological assessment of water bodies will set higher quality standards designed to deliver improvement over three six-year cycles to 2027.
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The Council’s aim through the planning process is to support these objectives, minimising the impact of new development on water quality and where possible improving it.
Local Plan Target Target E2e – To produce the supplementary planning document on development and flood risk by 2006.
Data Analysis Within the period 1/04/08 to 31/03/09, one application (ref APP/2009/0741 former Burnley College, Ormerod Road) was approved contrary to Environment Agency advice. No objections were made on water quality grounds.
Commentary The need to adapt to and mitigate the effects of climate change have meant that assessing and managing flood risk have become increasingly important. Flooding and pollution issues have become increasingly interlinked and this is reflected in the current emphasis on integrated water management.
The publication of PPS25 has strengthened and clarified guidance for local authorities in relation to development and flood risk. Increased awareness of the need to consider flood risk at all levels of the planning process (eg through Strategic Flood Risk Assessments and site specific Flood Risk Assessments) should reduce the likelihood of developments being permitted contrary to Environment Agency advice in future years.
Policy E8 of the Local Plan Development and Flood Risk will require some updating to align it more closely to the objectives of PPS25 and the Council’s SFRA. Emerging Local Development Documents will propose policies on Development and Flood Risk which will include support for protection of all watercourses (including culverted watercourses) from development and encourage the opening up and renaturalisation of culverted watercourses where possible to the benefit of amenity and biodiversity. These policy improvements should assist in reducing the likelihood of permissions being granted against EA advice in future.
E2 (CORE) : Change in areas of biodiversity importance
Objective To show losses or additions to biodiversity habitat
ON TARGET?
Target Following recent amendments to the core indicator set the biodiversity indicator now focuses on habitat only and not on species monitoring.
The countryside surrounding Burnley is a significant resource for biodiversity. PPS9 Biodiversity and Geological Conservation states that a key principle of plan policies and planning decisions should be to maintain, and enhance, restore or add to biodiversity and geological conservation interests. It also encourages local planning authorities to use Local Development Frameworks to identify areas or sites for the restoration or creation of new priority habitats, which will contribute to regional targets.
New National Indicator 197 Improved local biodiversity is concerned with the percentage of local wildlife sites under positive management. This indicator is monitored as part of the
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Lancashire Local Area Agreement and sets targets of 11%, and 14% over the next two years from a baseline of 5%.
Policy EM3 of the Regional Spatial Strategy Green Infrastructure has a key aim of maintaining and improving biodiversity. This is supported by policy CLCR 3 Green City for the Central Lancashire City Region. Lancashire Economic Partnership is currently producing a Lancashire Green Infrastructure Strategy. This will provide a framework for the future development of the sub-region’s green infrastructure.
The Local Plan states that in order to be sustainable, development should not just protect, but also look at positive opportunities for enhancing, the biodiversity and landscape value of a site. The Local Plan aims to avoid development which adversely affects both priority species and habitats, seeking to enhance, or restore, sites containing priority habitats or species and take measures to reduce their fragmentation and isolation by protecting and enhancing existing wildlife links and corridors. It also includes a specific target in relation to Local Nature Reserves which proposes that 36ha of new Local Nature Reserves should be designated by 2010 with a further 36ha designated between 2010 and 2020
Local Plan Targets Target E3a – During the plan period there will be no net loss of or damage to protected species and habitats as a result of development. Target G5a - 100% of major developments with landscaping. Target GP5b – Use of native species in all landscaping schemes. Target E2d – to increase tree cover to 8% by 2020.
Data Analysis
Sites of International Significance Part of one site of international importance for nature conservation falls within the borough boundary. This is the South Pennine Moors Special Protection Area/Special Area of Conservation/Site of Special Scientific Interest. The South Pennine Moors cover approximately 12% of the total land area of the Borough. In terms of quality, on 1 August 2009 99.63% of the SSSI within Burnley was in unfavourable condition, which is the same figure as last year. This is attributed to air pollution and overgrazing. More positively, however, 58.38% was described as recovering, which is a significant improvement on lasts year’s figure of 24.20%. The percentage of unfavourable areas described as declining has also improved compared to last year (1.79%, compared to 2.58%).
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Figure 8: Natural England Condition Assessment, South Pennine Moors at 1 August 2009
SSSI name: South Pennine Moors % Area % Area % Area % Area % Area % Area meeting favourable unfavourable unfavourable unfavourable destroyed / PSA target recovering no change declining part destroyed 58.75% 0.37% 58.38% 39.45% 1.79% 0.00%
Burnley Wildlife and Habitat Survey 2007 The Burnley Wildlife and Habitat Survey completed in November 2007 aimed to update the last Burnley Wildlife Survey carried out by the Lancashire Wildlife Trust in 1990. The 2007 survey covered all sites of known or potential conservation value within the Borough. These included County level Biological Heritage sites (BHS), Burnley Wildlife Sites (BWS), potential Burnley Wildlife sites (pBWS) and Forest of Burnley (FOB) sites.
Broad habitat types Major habitats surveyed were woodland and scrub; grassland and marsh; heathland; mire; swamp, marginal and inundation; open water (eg reservoir) and mosaic of the above.
The proportion of each major habitat type is illustrated in the table below
Table 31: Percentage area coverage of broad habitat samples across Burnley
Habitat Woodland and scrub 18.67% Grassland and marsh 54.64% tall herb and fen 0.65% Heathland 1.11% Mire 18.71% swamp, marginal and inundation 0.28% open water 4.60% rock exposure and waste 0.28% Miscellaneous 0.98%
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UK Biodiversity Action Plan habitats
The table below shows the percentage area coverage of these nationally important habitats in Burnley.
Table 32: UK Biodiversity Action Plan (UK BAP) habitats
UK BAP Habitat Upland flushes, fens and swamps 1.48% Upland heathland 1.51% Rivers 1.16% Blanket bog 32.75% Hedgerows 0.03% Eutrophic standing waters 0.02% inland rock outcrop and scree 0.51% lowland beech and yew woodland 1.28% lowland dry acid grassland 1.95% lowland heathland 0.29% lowland meadow 3.49% mesotrophic lakes 5.15% ponds 0.87% purple moor grass and rush pasture 36.90% lowland mixed deciduous woodland 12.61%
Lancashire Biodiversity Action Plan (BAP) habitats Lancashire BAP Priority habitats within the Lancashire BAP are species rich neutral grassland, broadleaved and mixed woodland, rivers and streams and moorland. Of these moorland is by far the dominant habitat in the borough. Biological Heritage Sites These include Burnley’s two Local Nature Reserves. Of the 42 BHSs surveyed in 2007, 39 still qualify under the same or more criteria than the 1997 evaluation. The three sites that did not qualify are Halifax Road Pasture, Briercliffe; Leeds Liverpool Canal section (Old Hall Street to M65 J12 Reedley Hallows/Nelson and Colne) and Oswald Street, Stoneyholme. The Halifax Road Pasture was though to have lost part of its diversity due to grazing pressure. The designated section of canal was found to have to have no features of biological interest at the time of the survey but two other sections were found to have much more interesting flora (see below). The Oswald Street was found to have suffered from its urban location though had not lost all its floristic diversity and still qualified under the Local Wildlife Site guidelines.
The Biological Heritage Site Review Panel (LWT, LCC and NE) considered the findings of the Burnley Wildlife and Habitat Survey in December 2008. They concluded that of the 3 sites recommended for deletion that following further survey 2 still qualified and 1 was judged able to recover following deliberate damage. Several proposals for designation were either rejected (on the grounds that a wider assessment and/or designation was required) or deferred pending the results of further surveys.
The Burnley Phase 2 LNR Report was finalised in September 2008. This will form the evidence base for the LDF in setting targets for designating LNRs.
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Burnley Wildlife sites 6 Burnley Wildlife sites were assessed against emerging Local Wildlife sites guidelines. Only one qualified under the grassland criteria. Twenty six potential BWS (pBWS) were also assessed. Out of these, 3 qualified under the BHS guidelines: two sections of the Leeds- Liverpool Canal for their marginal and aquatic vegetation and Swinden Reservoir for its associated species-rich grassland. Five of these sites have ornithological interest and further survey is needed to decide whether or not these sites qualify under the bird criteria. Three of these sites qualify under the LWS guidelines for their grassland: Oswald Street North, Shorten Brook and Heasandford. Again, this assessment should be taken with caution as the LWS guidelines are only at a draft stage.
Commentary Apart from the nationally and internationally important South Pennine Moors, the condition of which is monitored by Natural England, recent qualitative data in relation to Burnley’s wildlife sites in the form of the Burnley Wildlife and Habitat survey shows a degree of deterioration in the borough’s key biodiversity resource (in relation to three Biological Heritage sites). However, this deterioration is to some degree compensated by the identification of three further BHSs among potential Burnley Wildlife sites. The study recommends further surveys of specific faunal groups which could lead to further sites qualifying under specific criteria.
Other key recommendations of the Survey were that:
• Particular attention be given to connecting existing designated sites by assessing potential for wildlife corridors and consequently avoiding the fragmentation of the habitats.
• Consideration is given to the implementation of an effective site based management and monitoring programme for all Local Wildlife Sites in order to ensure that active conservation enables the retention and enhancement of their substantive nature conservation value and that subsequent surveys are not recording a declining resource. Such a programme would be the basis for reporting on National Indicator 197 Improved local biodiversity – active management of local sites.
PPS9 points out that development proposals provide many opportunities for building-in beneficial biodiversity or geological features as part of good design. In future years, Burnley will need to take advantage of these opportunities in order to ensure that the Borough’s biodiversity resource is maintained and enhanced.
E3 (CORE): Renewable energy generation
Objective To show the amount of renewable energy generation by installed capacity and type
ON TARGET?
Target The principal thrust of Climate Change Act 2008 is to set legally binding targets for reduction of UK carbon emissions by at least 26% by 2020 and at least 80% by 2050, compared to 1990 levels. The Committee on Climate Change established by the Act to advise the Government, has already called for tougher targets than those identified in the Act and in the RSS. In its first report on how the UK could meet its pledge to cut carbon dioxide (CO 2) and
79 Burnley Local Development Framework: Annual Monitoring Report 2010 other greenhouse gases, the committee recommended an interim target for 2020 of 34%, or 42% if there is a global agreement to cut emissions.
As a result of the Planning Act 2008, RSS and Local Development Frameworks must include policies designed to secure that the development and use of land in the region contribute to the mitigation of, and adaptation to, climate change. The Planning and Energy Act relates to decentralised renewable energy and introduces provision that local authorities may include in their development plan documents policies imposing reasonable requirements for:
5. a proportion of energy used in development to be from renewable sources in the locality of the development 6. a proportion of the energy used in development in their area to be low carbon energy from sources in the locality of the development 7. development in the area to comply with energy efficiency standards that exceed the energy requirements of building regulations.
The development of renewable energy, alongside improvements in energy efficiency and the development of combined heat and power, will make a vital contribution to addressing climate change and to maintaining reliable and competitive energy supplies.
Reducing emissions and adapting to climate change is one of the overarching spatial principles of the Regional Spatial Strategy (Policy DP9). Policy EM17 Renewable Energy and the North West Sustainable Strategy aim that by 2010, at least 10% of electricity should be generated from renewable sources, rising to at least 15% by 2015 and at least 20% by 2020. Detailed targets are set out at regional and sub regional level for a range of renewable energy types.
The Lancashire Climate Change Strategy sets out a long-term vision that Lancashire is “low carbon and well adapted by 2020.” Lancashire is aiming to reduce its carbon dioxide emissions by at least 30% (relative to 1990) which will involve a switch to renewable, decentralised and low carbon technologies.
The Burnley Local Plan, though it seeks to ensure that all new buildings, conversions and change of use of buildings should reduce energy consumption and include energy efficiency measures, includes no targets for renewable energy. Policy E31 Wind farms , and Policy E32 Other Renewable Energy Facilities in Rural Areas provide a presumption in favour of renewable energy facilities subject to a set of criteria being met. However,
Policy EM18 of RSS Decentralised Energy Supply requires that
“In advance of local targets being set, new non residential developments above a threshold of 1,000sqm and all residential developments comprising 10 or more units should secure at least 10% of their predicted energy requirements from decentralised and renewable or low carbon sources, unless it can be demonstrated by the applicant, having regard to the type of development involved and its design, that this is not feasible or viable.”
This report provides initial assessment of the application of this policy which became part of the development plan on adoption of RSS in September 2008.
Data Analysis The Core Indicator requires the Council to provide details of completed renewable energy schemes, biofuels, onshore wind, water, solar energy and geothermal energy.
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At present renewable energy schemes in Burnley have a capacity of 19.47MW (Renewables Northwest 2007). Approximately 10MW is produced by Coal Clough Wind Farm which has been in operation since 1993. This represents a small amount of the energy that is consumed in the Borough.
Table 33: Operational renewable energy projects in Burnley
Type No of Project Estimated projects capacity (MW) Onshore wind 3 Coal Clough Wind Farm 9.60 Hameldon Hill (New Barn Farm) 3.90 Shay Lane Farm 0.01 Landfill Gas 3 Rowley 1.85 1.77 Queen’s Park eNERGY 1.85 Deerplay 2.0 Sewage gas 1 Burnley Sewage Works 0.17 Micro Hydro 1 Worsthorne Hydro 0.09 TOTAL 19.47 (Source: Renewables Northwest 2007).
Commentary There were no major additions to the Borough’s renewable energy capacity during the monitoring period. However, new schools opened under the Government’s Building Schools for the Future Programme include renewable energy generation in the form of wind turbines, solar photovoltaic arrays and biomass boilers fuelled by wood chips from renewable sources.
Wind Energy developments permitted during the monitoring period are set out in the table below:
Table: Permitted Wind Energy Developments in Burnley 2009
Planning App. Site Power (kw) XY Turbine Mast Blade Planning No. Address Coordinates No. Height Diameter Stage (In Planning / Consented / Operational) APP/2009/0332 The 11kW 382892,428735 1 18m 13m Full Kestrels permission Manchester granted Road , BURNLEY, BB11 5NT APP/2008/0415 Far Pasture 6kW 388878,429807 1 9.7m 5.5m Full Farm The permission Long granted Causeway , CLIVIGER, BB10 4RR APP/2008/0416 Middle 6kW 388659,430346 1 9.7m 5.5m Full Pasture permission Farm granted Foxstones Lane , CLIVIGER,
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BB10 4RS APP/2007/0277 Thorny 5kW (not 379712,429701 1 12m 5.4m Full Bank Farm on permission Hameldon application) granted Road , HAPTON, BB11 5QP APP/2006/1091 28 Kings 1kW 379988,432934 1 n.a. 1.75m Full Drive , permission HAPTON, granted BB12 7DF
Landscape Capacity Study for wind energy developments in the South Pennines Jan 2010
This study was commissioned by six local planning authorities in the South Pennines, namely Burnley, Bury, Calderdale, Kirklees, Rochdale and Rossendale. The overall aim of the work was to provide a landscape capacity study for wind energy developments to inform a sound evidence base for the production of monitoring of the Local Development Frameworks in the six districts. The brief for the study indicated that it should provide baseline information and assessments but no policy development.
The study objectives were to: · Identify, at a strategic scale, broad landscape areas which may be able to accommodate various scales of wind energy development subject to detailed appraisal; · Identify any specific strategic constraints which may reduce the potential of particular landscape areas to accommodate wind energy development; · Identify any likely cumulative and cross-border impacts of wind power developments; · In doing the above, assist the local planning authorities in producing Local Development Frameworks, future energy and landscape strategies, and scoping opinions and assessments for wind energy development proposals.
The study brief required the consultants to assess the contribution that the landscape of the study area could make to meeting renewable energy targets; compile a baseline of existing and programmed wind energy developments by type and by district; review existing landscape character assessments and landscape capacity studies for wind energy development; develop and apply a methodology for assessing landscape sensitivity to and capacity for wind energy development; ground truth that assessment; provide a report and mapping to describe and justify the sensitivity and capacity assessment; and provide key landscape criteria and guidelines to assist in formulation of appropriate development proposals.
Renewable and Low Carbon Energy Study A complementary study on the capacity for renewable and low carbon energy in the Partnership councils was commissioned in the monitoring period. In particular it was to identify the opportunities for delivering energy from renewable and low carbon (RLC) sources, including micro and district scale technologies, in order to meet both local and site specific targets.
Burnley Woodfuel Feasibility Study 2009 This study within a 5km radius of Burnley Town centre has recently been completed by Lancashire County Council. The woodlands in the study area were visited between March and April 2009. Key findings of the report were:
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• The survey area contained a total of 477 hectares of woodland, of which 85 hectares of woodland could provide good opportunities for woodfuel thinning.
• A further 128 hectares could provide woodfuel thinning, although the possibilities are greatly reduced due to access constraints, management objectives and conflicts of interest.
• 264 hectares of the total area have been discounted from the survey, due to constraints outweighing any possible woodfuel gains.
• From a total annual yield of 530m3, woodlands with a good viability for woodfuel production account for 215m3, limited viability accounts for 182m3, with poor viability sites accounting for 133m3.
• It has been assumed that 100% of the annual yield would be made available for woodfuel use. Without knowing current local market values for other woodland products, it is not feasible to predict what proportion of the timber available would be directed to woodfuel.
• Recommendations for improvement to the woodfuel viability are generally limited to addressing the issues regarding management constraints that have currently reduced potential woodfuel outputs.
In Burnley consumption of energy per head derived from renewable or waste sources was only 11% of the Great Britain average in 2005 (LCC/BERR). It is very important that the amount of energy generated from renewable sources is increased in the next few years in line with regional and national targets in order to reduce reliance on fossil fuels and emissions of greenhouse gases, which contribute to global warming. Policies relating to energy in the Local Plan need to be updated as the LDF progresses in order to include objectives and targets in relation to renewable energy.
Implementation of Policy EM18 of Regional Spatial Strategy(RSS) In the monitoring period there were two residential/mixed use schemes and one non residential development permitted of the qualifying size. As shown in the table below, the RSS policy for 10% of energy requirements to be met from renewable energy sources was not enforced in any of the three qualifying schemes. This suggests a need for greater awareness of this policy.
Site Development Permission Development EM18 type size implemented Oxford Mill, Burnley Mixed use, APP/2009/0529 20 dwellings No conversion Full PP granted and 30/03/2010 commercial use Waterside Mill, Mixed use APP/2008/0830 117 dwellings, No Langham Street redevelopment Outline granted sports 19/01/10 pavilion, ecology park, play area Land rear of Non- APP/2008/0721 6280 sqm No Lowerhouse Cricket Residential Full PP granted No Club, Liverpool (B1, B2, B8) 07/04/09 Road
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Government plans to extend permitted development rights to householders seeking to install small scale renewable energy technology including wind turbines, biomass, solar panels, ground and air source heat pumps became operational from 1 st October 2008. Consequently, this will now make it more difficult to monitor the uptake of micro-generation schemes throughout the Borough.
The Council is also investigating whether it will be possible to get information from the Energy Savings Trust and Low Carbon Buildings Programme (BERR) on the number of grants given for the installation of renewable energy schemes. This will include the Burnley Solar Saving Scheme which provides householders with a £1000 discount towards installing a solar water heating system.
5.5 Core and Local Output Indicators Key Findings and Actions
5.5.1 Previous Annual Monitoring Reports have, in the main, served to update the baseline position in relation to the Core Output Indicators. In this sixth monitoring year more information is available and trends can begin to be identified and an initial analysis provided.
5.5.2 The analysis of the Core and Local Indicators will enable to Council to identify which ‘saved’ policies from the Local Plan, that constitute the Local Development Framework, are not being implemented, and to state what steps are being taken, if appropriate, to replace or amend them.
Table 35: Core and Local Output Indicators: Key Findings and Actions
BUSINESS Key finding Action DEVELOPMENT AND TOWN CENTRES Take up of Business Take up of business floorspace in the Employment Land Review floorspace (including Borough has risen this significantly year being undertaken as part of developments on having previously fallen each year since evidence base for Greenfield land) 2005. However, only two developments employment policies in 4 contributed to this and they were both in the Area Action Plans, Core same area (Liverpool Road). In addition to Strategy and Allocations the onset of the continuing economic DPD downturn, this may reflect the reduced availability of space at some local Business Parks/industrial estates outside the Borough’s main town centres where most development has taken place in the previous period. One of the two sites developed was on greenfield land. One of the two sites was allocated for employment uses in the Local Plan. Employment land Employment land available includes sites Employment Land Review available allocated within the Local Plan and sites being undertaken as part of with planning permission for employment evidence base for use. employment policies in 4 Following preliminary work on the Council’s Area Action Plans, Core Employment land Review employment land Strategy and Allocations figures have been revised. In the six year DPDs. period (2005-2010) 11.97ha of 59.47ha of
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developable land allocated for employment Progress more detailed in the Local Plan has been taken up. 2.02 monitoring breakdown of ha of employment permissions have been employment granted on non-allocated sites and of these permissions/completions by 0.03ha have been completed. and within relevant use classes. Town Centre uses Retail In preparing LDF documents: Within the last monitoring period an extra 4200sqm of retail floorspace has been Review, in light of PPS4 completed on a single site (Homebase at 2009, Local Plan Burnley Caldervale Road, Burnley). Town Centre and Padiham This year the number of vacant retail units Town Centre policies in Burnley fell slightly according to GOAD Review Economy and Work 2009 figures after a previous rise from policies 2001. A decreasing trend in Padiham since 2001 masks significantly higher than Review Local Plan Transport average vacants in the Church and Movement policies Street/Burnley Road area as highlighted by Padiham Retail, Office and Leisure Study Relevant LDF documents 2010. Padiham Area Action Plan This study also identified a need for both Burnley Town Centre Area quantitative and qualitative improvements Action Plan to Padiham's retail offer, particularly as Core Strategy surveys showed that the town centre Allocations DPD retains only small percentages of expenditure on both food and non food Monitor the amount of shopping made from within Padiham and floorspace completed against the wider rural area it serves. However, the the floorspace capacities study also emphasised that any significant identified for future retail, and additions to the retail offer would need to be leisure development in the appropriate both in scale and location in 2005 Retail and Leisure order to realise potential benefits and not Study carried out for the undermine the vitality and viability of the Council by Savills and in the existing town centre. The study also Padiham Retail, Office and recommended improvements to the public Leisure Study 2010. realm/general environment within the town centre. Progress more detailed monitoring breakdown of Burnley’s Zone A rental level fell by 4.9% employment between 2008 and 2009 and by 2.5% permissions/completions by between 2005 and 2009. However, its value and within relevant use of £975 per sqm remains the third highest classes. level behind Preston and Blackburn . Continue to monitor number Office of Travel Plans conditioned Contrary to the intent of national and Local against qualifying Plan policy, Burnley has reflected a general applications and monitor trend for office uses to be developed in quality of Plans conditioned. established out of centre business parks with poor public transport accessibility. New office development in this monitoring period has followed this trend which is due to strong market preferences amongst employers/developers for locations with good road transport link and less constrained parking provision.
However, although like all other districts in Lancashire Burnley now has more office stock outside town centres than within town
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centres, the borough along with Preston and Blackburn is still one of the best performing in terms of proportion of stock provided within town centres. HOUSING Housing completions In 2009/10 the number of housing Data from Strategic Housing completions (not including clearance Land Availability Assessment replacement) increased from 90 in 2008/9 (SHLAA) and Viability to 119 but remained below the annual Assessment of Strategic housing requirement of 130. However, this Housing Market Assessment year’s figure included completions in HMR (SHMA) to provide clearer areas, previously monitored separately. picture of deliverable sites, When demolitions within HMR areas are including sites currently taken into account the net additional allocated for other uses, and dwellings figure this year is -66. The to inform 4 Area Action borough’s housing trajectory has been Plans, Core Strategy, revised to reflect this new monitoring Allocations DPD. approach which has had the effect the number of projected completions required in future years in order to meet the overall RSS requirement. The downturn in the national/ global economy and its effects on the building industry will has prevented development progressing on sites with planning permissions.
Core Strategy Issues and Options (Housing) document consulted on in 2009 offered a number of strategic options as to where new housing development might be focussed within the borough, the quantity and quality of development and how these options might be resourced/delivered. Housing completions on The six year period has seen levels of Viability Assessment of brownfield sites and brownfield completions consistently well Strategic Housing Market public transport above the RSS target of 65% (86-99%). Assessment (SHMA). accessibility This is in line with national and regional Data from Strategic Housing guidance and Local Plan and Sustainability Land Availability Assessment objectives. (SHLAA) to provide clearer picture of deliverable sites, This year 100% of new housing including sites currently permissions approved (20 sites) were within allocated for other uses, and 30 minutes public transport time of six basic to inform 4 Area Action services. Plans, Core Strategy, Allocations DPD. Core Strategy Issues and Options (Housing) document consulted on in 2009 offered a number of strategic options as to where new housing development might be focussed within the borough. Options proposed included those focussing on brownfield sites (generally more accessible) and greenfield (generally less accessible).
Transport studies in Daneshouse, Duke Bar and Stoneyholme, South West Burnley/Trinity and Padiham areas (2009/10) have made further recommendations on accessibility and
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connectivity issues which have fed into emerging Area Action Plans. Housing Design and Building for Life (BFL) Assessments of Develop in house system for Sustainable Homes completed housing schemes of more than monitoring and improving 10 dwellings have been carried out for the design quality through third time in 2009/10. 4 schemes were Building for Life Framework assessed, three of which were in HMR and Code for Sustainable areas. Schemes ranged in quality from Homes. ‘poor’ to ‘very good’. Three schemes within Develop in house system for HMR areas were ‘average’, ‘good’ and ‘very monitoring completions under good’. Code for Sustainable Homes.
32 homes at Bartle Street/Cog Lane were Targets for achievement of completed to Code for Sustainable Homes BFL and Code for Level 4. 18 homes were completed in Sustainable Homes Daneshouse, Duke Bar and Stoneyholme standards to be adopted area to Code for Sustainable Homes Level within 4 Area Action Plans, 3. Core Strategy, General Development Control Policies DPD Net additional pitches Lancashire Sub Regional Gypsy and Consider identification of for Gypsies and Traveller Accommodation and Related sites in Core Strategy Travellers Services Assessment May 2007 identified a total residential need in Burnley 2006-2016 (less supply 2006-2016) of 5-7 pitches.
Illegal encampments were recorded at six sites within the borough during the monitoring period. Affordable Housing The Burnley and Pendle Strategic Housing Viability Assessment of Market Assessment identified various Strategic Housing Market indicators of an affordability issue in Burnley Assessment (SHMA). and Pendle Housing Market Area (HMA): Data from Strategic Housing Land Availability Assessment i)The price income ratio in the HMA roughly (SHLAA) has provided doubled over the 4 years 2002 to 2006. This clearer picture of deliverable illustrates that although housing is cheap by sites including sites currently national standards, it is a lot less cheap allocated for other uses. than it used to be for local households. Affordable Housing ii) Both homelessness and Housing Supplementary Planning Register data suggest an ongoing need and Document (SPD ) will provide demand for social rented housing. more detailed information on the number of affordable iii) intermediate housing will have only a units that should be provided limited role to play in meeting the affordable in proposals in different parts housing needs locally. of the Borough and what types of affordable housing It is clear that from the findings of the SHMA provision would be that the current Local Plan Affordable considered acceptable by the Housing Policy will not deliver sufficient Council. affordable dwellings to meet identified need. The SHMA identifies the high threshold site size (25 dwellings or more) and the low percentage target (10%) upon which the current Local Plan policy is based as contributory factor in the small amount of affordable housing which has been delivered in Burnley. More demanding targets (it was considered that Burnley’s
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demand would support a target of 40% affordable housing in new housing developments of 15 or more dwellings proposed for affordable housing in the SHMA) were subsequently tested by a Viability Assessment which found that in the urban parts of the study no target proportion of affordable housing could reasonably be sought as a requirement in the present market situation, unless grant or other financial assistance was forthcoming. However it would be possible to set a target for the higher priced, rural areas. Provisionally a figure of 20% was suggested although a two tier target for greenfield and brownfield sites might be a feasible policy response.
Core Strategy Issues and Options (Housing) document consulted on in 2009 offered a number of strategic options as to where new housing development might be focussed within the borough, the quantity and quality of development and how these options might be resourced/delivered. A 40% affordable housing target was proposed for all options.
ENVIRONMENTAL QUALITY Change in areas of The condition of the nationally and The Burnley Wildlife and biodiversity importance internationally important South Pennine Habitat Survey Moors, the condition of which is monitored recommended: by Natural England, continues to be unfavourable but the percentage of the site Attention be given to classed as recovering has increased by connecting existing over 100% to 58%. designated sites by assessing potential for The Burnley Wildlife and Habitat survey wildlife corridors and 2007 is due to be updated in 2012. The consequently avoiding the 2007 study showed a degree of fragmentation of the habitats. deterioration in the borough’s key biodiversity resource (in relation to three Consideration is given to the Biological Heritage sites). implementation of an effective site based There has been no further progress on the management and monitoring establishment of Local Nature Reserves programme for all Local and the Borough’s continues to have a low Wildlife Sites in order to level of LNRs in relation to its size. There is ensure that active no land in the Borough under high level conservation enables the stewardship schemes. retention and enhancement of their substantive nature Rates of woodland cover within the conservation value and that Borough and extent of woodland under subsequent surveys are not management continue successful growth recording a declining thanks to the work of Forest of Burnley. resource. Such a programme would be the basis for Managed Green Routes recently reporting on National implemented or under construction such as Indicator 197 Improved local the Padiham Greenway opened in 2010 biodiversity – active
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should also contribute to enhancing the management of local sites. biodiversity value of the Borough’s green infrastructure. Climate Change, Burnley currently has one of the lowest per Renewables Potential Study Carbon Emissions, capita carbon emission levels in the underway with neighbouring Decentralised and County. However, these levels are likely to authorities of Pendle Renewable or Low increase as regeneration policies raise Rossendale, Calderdale, Carbon Energy levels of growth/prosperity in the borough. Kirklees and Rochdale.
In Burnley consumption of energy per head New policies/targets required derived from renewable or waste sources in LDF Core Strategy on was only 11% of the Great Britain average climate change/carbon in 2005 (LCC/BERR). emissions renewable energy Five applications for wind energy decentralised energy developments have been permitted during Consider SPD on these the monitoring period. Schools opening issues. under the Building Schools for the Future Other relevant LDF programme have included renewable documents energy generation capacity from wind, solar Allocations DPD and biomass. Area Action Plans
A Landscape Capacity Study for wind The Burnley Local Plan, energy developments in the South seeks to ensure that all new Pennines was completed in Jan 2010 by six buildings, conversions and local planning authorities in the South change of use of buildings Pennines, namely Burnley, Bury, should reduce energy Calderdale, Kirklees, Rochdale and consumption and include Rossendale. The overall aim of the work energy efficiency measures, was to inform a sound evidence base for but includes no general the production of monitoring of the Local policy or targets for carbon Development Frameworks in the six emissions reduction districts. renewable energy or decentralised energy.Policy A complementary Renewable and Low E31 Wind farms , and Policy Carbon Energy Study on the capacity for E32 Other Renewable renewable and low carbon energy in the Energy Facilities in Rural Partnership councils is due for completion in Areas provide a presumption 2010. in favour of renewable energy facilities subject to a A woodfuel feasibility study of woodlands set of criteria being met. within 5km radius of Burnley Town Centre was completed in 2009. The study identified Requirement for 10% significant potential for energy generation renewable energy in major from the local woodland resource. residential and non residential schemes under Since September 2008 RSS Policy EM18 RSS policy EM18 should be Decentralised Energy requires residential addressed immediately in developments of 10 or more units and non order to contribute to sub- residential developments over 1000sqm to regional targets and ensure generate at least 10% of energy compliance with the current requirements from renewable sources. In development plan for the the monitoring period none of the three Borough. qualifying schemes permitted had implemented this policy.
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5.5 Monitoring Policy Effectiveness
5.5.1 Under the terms of the Planning and Compulsory Purchase Act 2004, Local Plan policies are ‘saved’ for three years following the Plan’s adoption in April 2006. All saved policies in the adopted plan were extended indefinitely following approval by Government Office for the North West on 1 April 2009. The transition from saved Local Plan policies to Local Development Document is explained in the Council’s Local Development Scheme.
5.5.2 It is apparent that a number of Local Plan policies are used more often than others in the determination of planning applications. The following list includes those policies which are used most often based on anecdotal evidence from Development Control officers:
GP1 Development within the Urban Boundary GP2 Development in Rural Areas GP5 Access for all GP6 Landscaping and Incidental Open Space GP7 New Development and the Control of Pollution GP9 Security and Planning Out Crime EW1 – Land for Business B1 and Industrial B2 and Warehousing (B8) Development EW2 – Major Retail Development Outside Burnley and Padiham Town Centre EW3 New leisure, tourist arts and cultural development outside town centres EW11 Rural Diversfication and Conversion of Rural Buildings for Employment Uses E6 Trees Hedgerows and Woodlands E8 Development and Flood Risk E12 Development in or adjacent to Conservation Areas E15 Locally important buildings, features and artefacts E16 Areas of traditional construction E18 Scheduled Ancient Monuments E20 Views E26 Development in the Green Belt E27 Landscape Character and Distinctiveness in Rural Areas and Green Belt E28 Protecting Agricultural Land and Businesses H3 Quality and Design in new housing development H4 Providing a choice of housing in new development H7 Open space in new housing development H8 Environmental improvements in existing residential areas H13 Extensions and Conversions of Existing Single Dwellings CF3 Protection of existing public parks, informal recreation areas, major open areas, play areas and other areas of open space CF4 Allotments and Community gardens CF12 Local and Village Shops TM5 Footpaths and walking within the urban boundary TM7 cycling network TM14 Taxis and taxi booking offices TM15 car parking standards TM16 Management of public and private on and off street parking BTC5 Leisure and Tourism development in Burnley Town Centre BTC6 The Weavers’ Triangle BTC12 Canal and riverside development in Burnley Town Centre
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5.5.3 The success or otherwise of planning policies is tested at planning appeals. Appeals commenced between 1 st April 2009 and 31 st March 2010 were analysed to provide information on the support given to policies in the adopted Local Plan by Planning Inspectors.
5.5.4 Of the 13 appeals, 8 were dismissed, and 5 were upheld. Of the appeals that were upheld none have significant policy implications (Application refs: 08/0553, 08/0798, 08/0864, 09/0085 and 09/0277).
6.0 SIGNIFICANT EFFECTS INDICATORS
6.1 Significant Effects Indicators (SEIs) provide a means of assessing the social, economic and environmental impacts (intended and unintended) of Local Plan policies. The SEIs are derived from Sustainability Objectives and accompanying indicators which have been formulated and approved as the basis of Sustainability Appraisal for all emerging Local Development Documents in the borough’s Local Development Framework. While these objectives and indicators were formulated under the new planning system which came in to force when the Burnley Local Plan Second Review was approaching completion, they can be matched closely with many of the Local Plan objectives (see below) and can therefore be usefully applied to monitor the effects Local Plan Policies since their adoption in 2006.
6.2 This is the third year that the effects of Local Plan policies have been analysed using significant effects indicators. Analysis is set out in the table at Appendix 5 and is of a preliminary nature based on a limited number of indicators. In future Annual Monitoring Reports it is intended to look more closely at individual Plan policies and expand the range of indicators in the analysis.
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7.0 LOCAL DEVELOPMENT SCHEME
7.1 Progress on the Local Development Scheme
7.1.1 The Council’s current Local Development Scheme (LDS) identifies the documents that will be prepared over the period 2009 – 2012. This section reviews progress on these documents and highlights those LDS ‘milestones’ or key stages that have not been met.
7.1.2 Each proposed Local Development Document (LDD) identified in the Local Development Scheme is considered in the tables below. These set out a brief review of progress to date, whether milestones have been met and, if not, the reasons for this. The commentary on progress outlines the reasons why no new milestones have been set.
Local Development Documents
Development Plan Documents (DPDs)
Statement of Community Involvement (SCI) The Statement of Community Involvement was adopted in 2007. It should be updated to reflect the changes to the planning system that were introduced under the Planning Act 2008. However, this is likely to be unnecessary in the light of the Government’s proposal to reform the planning system.
Core Strategy DPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Pre-production period Work on building up the Work on building up December 2006 evidence base under way. A the evidence base is Housing Market assessment well under way. has been undertaken jointly with Pendle DC and a Wildlife and Habitat survey has also been undertaken. Work on a Strategic Housing Land Availability Assessment, employment Land Review and Infrastructure Plan (including Green Infrastructure) is under way
Regulation 25 consultation Public consultation on issues No change to these and options relating to the milestones but the March 2011 housing element of the Core Government’s Strategy was carried out proposed reforms to August – October 2009 the planning system Publication of the DPD are likely to result in January 2012 the preparation of a Submission to S o S borough wide plan, June 2012 rather than a suite of
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LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Pre-hearing meeting planning documents . August 2012 . Start of Examination Hearing September – October 2012 Receipt of Inspector’s Report December 2012 Adoption and publication of DPD and revised Proposals Map February 2013
Commentary on Progress Progress on the Core Strategy has been much slower than anticipated. However, work on building up the evidence base has progressed well although much is still outstanding. Three major pieces of work, a Strategic Housing Market Assessment, an Affordable Housing Viability Assessment and Wildlife and Habitat Survey have been completed. Work on an Employment Land Review, the Strategic Housing Land Availability Assessment and Infrastructure Plan (including a Green Infrastructure Study) is well under way. The outstanding assessments and plans are being done in-house although it is likely that the Employment Land Review will need to be completed by consultants. All of these studies provide important background information in terms of developing a future planning framework for the borough.
Consultation on issues and options relating to the housing element of the Core Strategy were undertaken August-October 2009 and this will feed into the borough – wide plan
Site Allocations DPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Consultation with No change to these statutory bodies on the milestones but the scope of the Government’s proposed Sustainability Appraisal reforms to the planning October 2010 system are likely to result Regulation 25 in the preparation of a consultation borough wide plan, March 2011 rather than a suite of Publication of DPD planning documents January 2012 Submission to SoS June 2012 Pre-Hearing Meeting August 2012 Start of Examination Hearing September/October 2012
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LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Receipt of Inspector’s Report December 2012 Adoption and publication of document and revised Proposals Map February 2013
Commentary on Progress No progress to date on this document. This is now likely to form part of a borough-wide planning framework
General Development Control Policies DPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Italics) Progress met/on target Consultation with statutory No change to these bodies on the scope of the milestones but the Sustainability Appraisal Pre- Government’s production period proposed reforms to October 2012 the planning system Regulation 25 consultation are likely to result in January 2013 the preparation of a Publication of the DPD borough wide plan, August 2013 rather than a suite of Submission to S o S planning documents February 2014 . Pre-Hearing Meeting April 2014 Start of Examination Hearing May - June 2014 Receipt of Inspector’s report September 2014 Adoption and publication of DPD and revised Proposals Map November 2014
Commentary on Progress No progress to date on this document. This is now likely to form part of a borough-wide planning framework
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Burnley Town Centre Area Action Plan DPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Consultation with statutory bodies on the scope of the Sustainability Appraisal October 2010 Regulation 25 consultation January 2011 Publication of DPD August 2011 Submission of DPD February 2012 Pre-Hearing Meeting April 2012 Start of Examination Hearing May/June 2012 Receipt of Inspector’s Report September 2012 Adoption and publication of document and revised Proposals Map November 2012
Commentary on Progress The need for this document will be reassessed once the Government’s reforms to the planning system are announced but, in the current economic climate, this is unlikely to be a priority.
Padiham and Piccadilly/Trafalgar* Area Action Plans DPD
* Piccadilly/Trafalgar AAP now merged with the SW Burnley AAP to form the SW Burnley/Trinity AAP
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Pre production Production of the AAPs had This milestone was March 2005 started by March 2005 met Preparation of issues and Public consultation on the This milestone was options, including public issues and options took place met. consultation during July and August 2006 April - July 2006 Start of public participation Preferred Options consultation Due to issues on Preferred Options took place in February 2008 outlined in the AMR Documents and formal 2008 this milestone sustainability appraisal was not met reports
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LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) July 2007 Consideration of Consideration of Due to issues representations representations started in April outlined in last years’ September 2007 2008 AMR this milestone was not met
Publication of the DPDs These were approved for This milestone was February 2010 publication and submission by not met because the Council’s Executive in June consideration of the 2010 AAPs by the Executive was delayed by the General Election. They were published in November 2010 Submission of DPDs The AAPs were published in Due to the May 2010 November 2010 and the date uncertainty about the for submission has yet to be resource likely to be determined following the available to progress Council’s decision to make the AAPs, no further savings by reducing the number milestones have of staff in the team that is been set preparing these AAPs Pre-hearing meeting See above. The pre-hearing July 2010 meeting will follow from submission Start of Examination Hearings August 2010 Receipt of Inspector’s reports November 2010 Adoption and publication of documents and revised Proposals Map December 2010
Commentary on Progress The General Election delayed approval of these AAPs and so the milestone for publication slipped. The team has lost 3 qualified staff posts in less than 2 years and all of its Technical Support posts. This loss of posts within the team continues to be a serious concern and further staff losses proposed, along with a very limited budget, raise serious questions about the Council’s ability to progress the AAPs further.
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Burnley Wood, Daneshouse/Duke Bar/Stoneyholme and South West Burnley/(Trinity)* Area Action Plan DPDs
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Pre production Production of the AAPs had This milestone was March 2005 started by March 2005 met Preparation of issues and Public consultation on the This milestone was options, including public issues and options took place met. consultation during July and August 2006 April - July 2006 Start of public participation Preferred Options consultation Due to issues on Preferred Options took place in February 2008 outlined in the AMR Documents and formal 2008 this milestone sustainability appraisal was not met reports July 2007 Consideration of Consideration of Due to issues representations representations started in April outlined in last year’s September 2007 2008 AMR this milestone was not met Publication of the DPDs These were approved for This milestone was February 2010 publication and submission by not met because the Council’s Executive in June consideration of the 2010 AAPs by the Executive was delayed by the General Election. They were published in November 2010 Submission of DPDs The AAPs were published in Due to the May 2010 November 2010 and the date uncertainty about the for submission has yet to be resource likely to be determined following the available to progress Council’s decision to make the AAPs, no further savings by reducing the number milestones have of staff in the team that is been set preparing these AAPs Pre-hearing meeting The pre-hearing meetings will July 2010 follow from submission Start of Examination Hearings August 2010 Receipt of Inspector’s reports November 2010 Adoption and publication of documents and revised Proposals Map December 2010
Commentary on Progress The General Election delayed approval of these AAPs and so the milestone for publication slipped. The team has lost 3 qualified staff posts in less than 2 years and all of its Technical Support posts. This loss of posts within the team continues to be a serious concern and
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further staff losses proposed, along with a very limited budget, raise serious questions about the Council’s ability to progress the AAPs further.
TABLE 7.2: PROGRESS ON THE PREPARATION OF THE BURNLEY LDF – SUPPLEMENTARY PLANNING DOCUMENTS (SPDS)
Weavers’ Triangle Public Realm Strategy SPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Preparation of draft As outlined in last year’s AMR, the This milestone has SPD remit of this SPD was re-assessed. not been met and it December 2009 A Draft SPD has been produced by is anticipated that the consultants but a lack of a staff draft SPD will now be resource to progress this work has completed in March delayed progress. 2011 Public participation on This milestone has draft SPD been changed to February 2010 May 2011 Consideration of This milestone has representations been changed to March 2010 June 2011 Adoption and This milestone has publication of final been changed to SPD July 2011 April 2010
Commentary on Progress As set out in last years AMR, following the granting of THI funding for the area, and developer interest in bringing forward a number of sites in the Weavers’ Triangle area, it was decided to focus this SPD on the production of a public realm strategy SPD for the area. A Draft SPD has been prepared by consultants. This is currently being updated and the dates set out above reflect the anticipated timetable for the SPD.
Affordable Housing SPD
LDS Timetable and Milestones LDS milestone met/on (Key Milestones in Progress target Italics) Preparation of draft An Affordable Housing This milestone has not been SPD Viability Assessment has met and no further December 2010 been undertaken and milestones have been Public participation on updated but there is identified due to the draft SPD currently no staff resource uncertain situation in relation February 2011 to progress this work. to the staffing of the team. Consideration of representations March 2011 Adoption and publication of final SPD August 2011
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Commentary on Progress It had been anticipated that, if additional staff had been appointed in order to deal with the team’s increased workload, work could have started on the preparation of this SPD. However, the team has lost posts. Further staff losses in the team are proposed as part of the Council’s budget cuts
Public Realm Strategy for Burnley Town Centre SPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Preparation of draft A Draft SPD has been produced by This milestone has SPD consultants. This work has now been changed to December 2009 been picked up by staff in the October 2010 as this Regeneration Directorate. This SPD has now been milestone was not met prepared in draft Public participation on This milestone has draft SPD been changed to February 2010 December 2010 to reflect the current timetable Consideration of This milestone has representations been changed to March 2010 February 2011 to reflect the current timetable Adoption and This milestone has publication of final been changed to SPD March 2011 to March 2010 reflect the current timetable
Commentary on Progress This was a new SPD added to the revised LDS 2008-2011. The difficulty in securing maternity cover for the Principal Planner (Design and Heritage) had an impact on the proposed timetable and this was been revised when staff in the Regeneration Directorate picked up the work
Saunder Bank Development Brief SPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Preparation of draft A Draft SPD has been produced. This milestone SPD This work is now being picked up by slipped and the SPD January 2010 staff in the Regeneration has now been put ‘on Directorate. The timetable for its hold’ because of the preparation has been agreed with economic downturn staff in this Directorate Public participation on draft SPD March 2010 Consideration of representations
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LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) April 2010 Adoption and publication of final SPD June 2010
Commentary on Progress New SPD added to the revised LDS 2009-2012 but now put ‘on hold’ because of uncertainties about delivery in the context of the economic downturn
South West Burnley Development Brief SPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Preparation of draft Work on this SPD has been brought This milestone has SPD forward as a priority in order to been met. July 2009 guide new development proposals in this HMRI area Public participation on This milestone has draft SPD been met September 2009 Consideration of This milestone has representations been met November 2009 Adoption and This milestone was publication of final met SPD January 2010
Commentary on Progress New SPD added to the revised LDS 2009-2012 in order to provide guidance for new development being undertaken through the Housing Market Renewal Initiative. This SPD is now adopted.
Daneshouse Development Brief SPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Preparation of draft Work on this SPD has been brought This milestone SPD forward as a priority in order to slipped as the team December 2009 guide new development proposals member responsible in this HMRI area for drawing up this SPD was transferred to another team Public participation on See above draft SPD Consultation started March 2010 in November 2010
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LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Consideration of This is now representations programmed for June 2010 January 2011 Adoption and This is now publication of final programmed for SPD March 2011 September 2010
Commentary on Progress New SPD added to the revised LDS 2009-2012 in order to provide guidance for new development being undertaken through the Housing Market Renewal Initiative. The timetable slipped as the member of staff undertaking the work was transferred into another team. However, this work is now progressing in line with the timetable outlined above.
Burnley Wood Development Brief SPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Preparation of draft Work on this SPD has been brought This milestone SPD forward as a priority in order to slipped as the team December 2009 guide new development proposals member responsible in this HMRI area for drawing up this SPD was transferred to another team Public participation on See above draft SPD Consultation started March 2010 in November 2010 Consideration of This is now representations programmed for June 2010 January 2011 Adoption and This is now publication of final programmed for SPD March 2011 October 2009
Commentary on Progress New SPD added to the revised LDS 2009-2012 in order to provide guidance for new development being undertaken through the Housing Market Renewal Initiative. The timetable slipped as the member of staff undertaking the work was transferred into another team. However, this work is now progressing in line with the timetable outlined above.
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Canalside Conservation Area Appraisal/Management Plan SPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Preparation of draft Work on this SPD has been brought Milestone not met SPD forward as a priority in order to due to a lack of December 2009 support the Weavers’ Triangle THI resources to take this project SPD forward. As Public participation on there is still draft SPD uncertainty about February 2010 staff resources, no Consideration of new milestones have representations been identified April 2010 . Adoption and publication of final SPD May 2010
Commentary on Progress New SPD added to the revised LDS 2009-2012 in order to provide guidance for development proposals in the Weavers’ Triangle, including through the THI.
7.2 Conclusions
7.2.1 The Council has not met or has had to revise a number of the milestones set out in the Local Development Scheme. Factors such as the loss of staff in the team and likely changes to national policy, identified as risk factors in the LDS, have had an impact on document preparation. The economic downturn along with the Government’s proposed changes to the planning system mean that future programming is problematic. This is compounded by the continued deletion of posts from the team.
7.2.2 For the reasons set out above, very few milestones have been set, both in terms of plans that are already being progressed and those that have yet to be started. The lack of adequate resources raises serious concerns about the ability of the Council to progress some of the documents currently being drawn up. In terms of the preparation of future documents, it is not possible to programme their preparation as their nature is still unknown.
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8.0 EVIDENCE BASE/KEY REFERENCES
Burnley Annual Monitoring Reports: http://www.burnley.gov.uk/site/scripts/documents_info.php?documentID=78&pageNumber=1 1
General Statistical Information Burnley Borough Council (2008) Burnley Snapshot Update 2008. http://www.burnley.gov.uk/site/scripts/download_info.php?downloadID=994&fileID=2204
Lancashire County Council Research Monitor website links: http://www.lancashire.gov.uk/office_of_the_chief_executive/lancashireprofile/monitors/index. asp Provides a wealth of data and explanatory background arranged under the following headings at a variety of levels including district, ward and below: Business Activity, Community Safety, Deprivation, Earnings Income and Benefits, Economic performance, Education and Training, Employment, Environment, Health and Wellbeing, Housing and Households, Manufacturing, Population, Sector Profiles, Transport, Unemployment
Spatial Planning Framework Burnley Action Partnership (2010) Burnley’s Future. 2010-2017 Community Strategy update http://www.burnley.gov.uk/site/scripts/download_info.php?downloadID=1397 Burnley Borough Council (2006) Burnley Local Plan Second Review. http://burnley.devplan.org.uk/
Burnley Borough Council (2007) Statement of Community Involvement. http://www.burnley.gov.uk/site/scripts/documents_info.php?documentID=78&pageNumber=4
Government Office for the North West (2008) North West of England Plan Regional Spatial Strategy to 2021. The Lancashire Partnership (2008). Ambition Lancashire 2005-2025. Strategic Vision for the Future of Lancashire (Sustainable Community Strategy for Lancashire) http://www.lancashirepartnership.co.uk/content.asp?siteid=3813&pageid=13316&e=e
Monitoring Framework
Department of Communities and Local Government (2007) The New Performance Framework for Local Authorities and Local Authority Partnerships: Single Set of National Indicators. http://www.communities.gov.uk/publications/localgovernment/nationalindicator
Department of Communities and Local Government (2008) Regional Spatial Strategy and Local Development Framework Core Output Indicators Update 2/2008 http://www.communities.gov.uk/publications/planningandbuilding/coreoutputindicators2
Lancashire County Council (2010) Spatial Planning in Lancashire. Annual Monitoring Report 3.
North West Regional Assembly (2010) RSS Annual Monitoring Report for the North West of England. February 2010
Housing Burnley Borough Council (2009) Core Strategy Housing Issues and Options. August 2009
103 Burnley Local Development Framework: Annual Monitoring Report 2010 http://www.burnley.gov.uk/site/scripts/documents_info.php?documentID=78&pageNumber=5
Burnley Borough Council (2009) Housing Land Book 2002 -2010 http://www.burnley.gov.uk/site/scripts/documents_info.php?categoryID=372&documentID=92
Burnley Borough Council (2009) Housing Land Availability Schedule 2002-2010 http://www.burnley.gov.uk/site/scripts/documents_info.php?categoryID=372&documentID=92
Burnley Borough Council (2009) Housing Strategy Statistical Appendix (HSSA) 2009
Burnley Borough Council (2009) Housing Flow Reconciliation (HFR) 2009
Burnley Borough Council (2008) Empty Homes Strategy 2008-11. http://www.burnley.gov.uk/site/scripts/documents_info.php?categoryID=2639&documentID=1 022
Burnley Borough Council and Pendle Borough Council (2008) Home Energy Strategy 2008- 2011 http://www.burnley.gov.uk/site/scripts/documents_info.php?categoryID=411&documentID=20 5
Burnley Borough Council (2006) Housing Strategy 2006-2009
Burnley Borough Council (2006) Affordable Housing Statement Commission for Architecture and the Built Environment (CABE) (2008) Building for Life publications: Delivering Great Places To Live; Evaluating Housing Proposals step by step; Building for Life Assessment Exercise. http://www.buildingforlife.org/publications
CPC Consultants (2009) Pennine Lancashire House Condition Survey Final Report June 2009.
Fordham Research (2008) Burnley and Pendle Strategic Housing Market Assessment Final Report April 2008. http://www.pendle.gov.uk/site/scripts/documents_info.php?documentID=829&pageNumber= 4
Fordham Research (2009) Burnley and Pendle Affordable Housing Site Viability Study March 2009.
Brown, P et al (2007). Lancashire Sub Regional Gypsy and Traveller Accommodation and Related Services Assessment. Housing and Urban Studies Unit, University of Salford/Centre for Urban and Regional Studies, University of Birmingham.
Economy Burnley Borough Council (2007) Economic Development Strategy 2007-2017 http://www.burnley.gov.uk/site/scripts/documents_info.php?categoryID=59&documentID=346
BE Group (2008) Lancashire Town Centre Office Premises Study. http://www.lancashire.gov.uk/corporate/web/view.asp?siteid=4017&pageid=16113&e=e
GVA Grimley (2010) Padiham Retail Office and Leisure Study. January 2010 Health Department of Health (2010) Burnley Health Profile 2010. http://www.apho.org.uk/resource/view.aspx?RID=50215&SEARCH=burnley&SPEAR=
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The East Lancashire Primary Care Trust (2009) Annual Report of the Director of Public Health 2009. http://www.eastlancspct.nhs.uk/about-us/annual-reports/additional/
Environment Burnley Borough Council (2007) A Green Spaces Strategy for Burnley 2007 – 2011 and Green Spaces Strategy Action Plan 2007-2012.
Golder Associates (2007) Burnley Wildlife and Habitat Survey 2007.
Robin Forestry Services/Lancashire Woodlands Project (2009) A Woodfuel Inventory of Burnley Woodlands
JBA (2010) Strategic Flood Risk Assessment Level 2 covering sites in Burnley Town Centre, Burnley Wood, Stoneyholme and Padiham.
Julie Martin Associates (2010) Landscape Capacity Study for wind energy developments in the South Pennines. January 2010
Transport and Communications Brock Carmichael ( 2007 ) Burnley Stations Feasibility Study. Colin Buchanan (2008) Manchester Direct Railway Scheme Report. Faber Maunsell (2007) Rail Access from East Lancashire to Manchester Network Rail (2008) Lancashire and Cumbria Route Utilisation Strategy
Transport Studies for Daneshouse, Duke Bar and Stoneyholme (2009) Padiham (2010) and South West Burnley (2010) http://www.burnley.gov.uk/site/scripts/documents_info.php?documentID=78&categoryID=856 &pageNumber=28
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