LOCAL DEVELOPMENT FRAMEWORK- ANNUAL MONITORING REPORT
2008
BURNLEY BOROUGH COUNCIL December 2008 Burnley Local Development Framework: Annual Monitoring Report 2008
This Annual Monitoring Report covers the period from 1 April 2007 to 31 March 2008. 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 extensions 2539, or 2536
Fax: 01282 477275
Email: [email protected]
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CONTENTS
1 Introduction 4
2 Spatial Portrait of Burnley 6
3 Contextual Indicators 8
4 Issues, Challenges and Opportunities 38
5 Output Indicators 41
6 Significant Effectors Indicators 77
7 Local Development Scheme Implementation 78
8 Evidence Base/Key References 89
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.
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1.4 The diagram below illustrates how the relevant documents fit into the Local Development Framework.
1.5 This year’s AMR will be the second 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. A subsequent legal challenge in relation to the Plan’s Employment Chapter was dismissed in the High Court in 2008.
Annual Monitoring Report and Wider Monitoring Framework
1.6 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.
1.7 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 by 4NW (formerly North West Regional Assembly) to build up a regional picture of spatial planning performance and informs their Annual Monitoring Report of the Regional Spatial Strategy (RSS).
1.8 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.
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1.9 This year Annual Monitoring Report Core Indicators have been significantly revised. Some indicators have now been removed from the national Core set but most of these, having been monitored in Burnley in recent years, have been retained within the AMR and continue to be reported on as Local Indicators.
1.10 Three of the core indicators, net additional homes, affordable homes and deliverable housing sites are part of the new 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).
1.11 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 will form part of the Council’s Place Survey 2008 in which 3,000 randomly chosen residents will be 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).
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 Lancashire 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.
2.4 The borough’s population is currently estimated to be 87,500, a decline since the 2001 Census. It is the only district in Lancashire that is experiencing such population decline. Since 1991, the population has fallen by 3% whilst over the same period, other nearby areas have grown. For instance, Pendle’s population has grown by nearly 5% and the Ribble Valley’s by over 8%. The borough’s population is falling and the working age population shrinking.
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2.5 The borough has a diverse population with about 8.2% 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. 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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Map 1: Location of Burnley in East Lancashire
3.0 CONTEXTUAL INDICATORS
3.1 KEY CONTEXTUAL CHARACTERISTICS
DEMOGRAPHIC CHARACTERISTICS
3.1.1 In June 2007, the population of the borough was estimated to be 87,500 (Lancashire County Council (LCC)/Office of National Statistics (ONS), mid 2007 estimates). This is a decrease of 0.6% on the previous year. At the time of the 2001 Census, Burnley’s population was 89,541 and the trend in recent years has shown a falling population despite increasing live births and reducing number of deaths suggesting population decline was due to out- migration. Internal migration figures showed the age that people were most likely to leave Burnley was between 15 and 29 with little or no net loss from the older population groups. However, latest subnational population projections from ONS (2008) estimate that Burnley’s overall population will stabilise over the coming years and ultimately rise to 91,100 by 2031. The recent decline in Burnley’s population has not been reflected across the region (see Figure 1) and indeed this projected rise of 3.1% is the lowest of
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the Lancashire districts. 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.
Figure 1: Population Trends for East Lancashire (under present conditions)
Population Projection for East Lancashire Districts to 2031
120
100
Burnley 80 Hyndburn 60 Pendle Ribble Valley 40 Rossendale
Population (thousands) 20
0 1991 2001 2006 2011 2016 2021 2026 2031 Year
Source: ONS 2008
3.1.2 Of the current population, 43,000 (48.91%) are male and 44,000 (50.68%) female (mid 2007, ONS). The population density is 792 people per square kilometre (compared to 486 in the North West and 355 in the UK) (mid 2006, ONS).
3.1.3 Burnley’s majority ethnic group is white British (87.8%) but there is a significant Asian heritage community in the area (8.4%). There are other small populations as follows: mixed (0.9%), black British (0.5%), Chinese or other ethnic group (0.5%), Irish (0.9%) other white (1.0%) (2006 mid year population by ethnic group, ONS 9 (experimental statistics))
3.1.4 Working age population (age 16-64 male, 16-59 female) is 54,500 (2006 calendar year, Elevate). Elevate figures show Burnley’s working age population has increased gradually since 2001 and the percentage of that population which is economically active also shows a gradually increasing trend over that period.
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SOCIO-CULTURAL CHARACTERISTICS
Deprivation
3.1.5 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.
3.1.6 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%.
3.1.7 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 21st place (where 1st place = most deprived) (Indices of Deprivation 2007 and Lancashire Profile).
3.1.8 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.
3.1.9 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.
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Map 2: 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/indexdepriv ation.asp
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Education
3.1.10 The percentage of Burnley pupils with 5 A-C GCSEs was 45.5% (April 2005- March 2006) a decrease on the previous year’s percentage of 46.9%. This is significantly below North West and England averages (56.5% and 58.4% respectively). This is the lowest level of achievement across all Lancashire districts. Burnley was ranked 345th out of 354 local authority areas nationally.
3.1.11 The percentage of adults qualified to NVQ4/5 was 20.2% for the 2006 calendar year, a slight decrease on the previous figure of 20.4%. 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.
Table 1: Adult qualifications 2006 calendar year
Qualifications Burnley East Lancs North West England Jan-Dec 06 NVQ4 and above 20.2 23.24 24.8 27.1 NVQ3 only 15.3 17.16 15.9 15.2 NVQ2 only 20.8 18.28 16.8 15.9 NVQ1 only 12.6 14.52 14.8 14.3 Other qualifications 7.5 6.62 5.8 8.7 No qualifications 16.3 13.7 15.8 13.6 Source: ONS/DCLG/LCC website http://www.lancashire.gov.uk/office_of_the_chief_executive/lancashireprofile/areas/lseducati on.asp
Crime and Community safety
3.1.12 Home office statistics for 2005-2006 show certain types of crime to be of particular concern in the borough. Per 1,000 population the annual rate for violence against the person increased from 15.1 (2002-3) to 29.1 (2005-6) but since then has fallen in consecutive years to 24.3. Burnley’s 2007-8 rate remains significantly higher than corresponding rates for Lancashire County (14.9) East Lancashire (16.7) the North West (17.3) and England & Wales (17.6), all of which have also been falling in recent years following a previous rising trend. (Home Office, Crime in England and Wales 2007-8)
3.1.13 The monitoring year has seen a slight increase in robbery offences but the rate of 0.8 per 1,000 population though slightly above the County rate is still well below the national rate. Burglary dwelling offences have fallen significantly this year to a rate of 5.6 per 1,000 population which is closer to the national rate of 5.2 but still higher than the County rate of 3.2.
3.1.14 Car theft (per 1,000 population) fell significantly from 2002-3 in line with regional and national trends but after remaining constant for two years at 3.7, it has this year fallen to 3.1. Theft from a motor vehicle per 1,000 population fell for the second consecutive year to 10.8. This, however, is still significantly higher than rates for Lancashire County (5.7), East Lancashire (6.8) North West (8.4) England and Wales (8.0).
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3.1.15 New National Performance Indicator NI 17 records the percentage of residents who perceive anti social behaviour to be a problem in their neighbourhood. In 2008 the Burnley figure at 41% is unchanged from that recorded in 2006 but is now higher than Pendle, Hyndburn and Rossendale. A number of other new National Indicators will monitor anti-social behaviour in more detail in future years.
Table 2. Recorded Crime for Key Offences, 2007/08
Recorded crime rate per Burnley Lancashire England and 1,000 population Wales Violence against the person 2004/5 28.5 22.0 19.5 2005/6 29.1 20.1 20.0 2006/7 26.6 18.6 19.3 2007/8 24.3 14.9 17.6 Robbery Offences 2004/5 1.0 0.8 1.7 2005/6 1.1 0.7 1.9 2006/7 0.7 0.7 1.9 2007/8 0.8 0.6 1.6 Burglary Dwelling Offences 2004/5 6.5 4.7 6.1 2005/6 6.5 4.3 5.7 2006/7 6.8 4.0 5.5 2007/8 5.6 3.2 5.2 Theft of a motor vehicle 2004/5 4.0 3.1 4.5 2005/6 3.7 2.7 4.0 2006/7 3.7 2.6 3.6 2007/8 3.1 2.1 3.2 Theft from a motor vehicle 2004/5 12.0 7.5 9.4 2005/6 12.6 7.3 9.6 2006/7 11.8 7.3 9.3 2007/8 10.8 5.7 8.0 Source LCC Lancashire Profile/Home Office – Crime in England and Wales
Health
3.1.16 Linked to the economic situation, the Borough’s population suffers from deep rooted health problems. Of the 32 indicators shown in Burnley’s health profile (Department of Health, 2008) one is significantly better than the national average, 4 are not significantly different from the national average and 23 are significantly worse than the national average. There are a number of indicators which are among the worst in the country, including the percentage of children who are physically active, which is the third worst in England.
3.1.17 A few indicators are similar to the England average, such as the estimated percentage of adults who are obese and the rate of infant deaths.
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3.1.18 Over the last ten years the death rate from all causes for men has decreased. Although the rate is still above England average, the gap between the Burnley and England rates has narrowed.
3.1.19 Life expectancy for both men and women is now lower than both the regional and national averages. Early death from heart disease and stroke is higher than national and regional averages. Burnley has the worst figures in the Lancashire for circulatory disease (2004-2006). Early death from cancer is higher than the regional and national averages but cancer mortality rates per 100,000 population have fallen significantly since 2002-2004 (three year average) and by 11% over the last year.
3.1.20 There are health inequalities by gender, level of deprivation and ethnicity. For example, men from the most deprived areas have over eight years shorter life expectancy than men from the least deprived areas. Women from the most deprived areas live over five years less than those from the least deprived areas.
3.1.21 Burnley’s score for adults who eat healthily (estimate) is below the regional and national averages as is that for adults who smoke. However, the score for physically active adults is above the regional average and close to the national average, perhaps reflecting increasing membership of the St Peter’s Centre. Binge drinking among adults is above the regional average but still significantly below the national average.
3.1.22 With significant implication s for Burnley’s economy, 12.1% of the borough’s working age population claims incapacity benefit, compared to a regional average of 9.5%. (Department of Work and Pensions 2007). The rate of people claiming incapacity benefit because of mental health problems is significantly higher than the regional and national averages (Department of Health 2008).
3.1.23 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. 2005 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)
3.1.24 Following a rapid decrease, in 2001-3 there were 58.5 teenage pregnancies in Burnley per 1000 females aged 15-17 compared with 42.7 in England This (provisional) figure fell to 54.9 for the period 2004-2006 but in Lancashire only Blackpool has a higher rate (LCC/Every Child Matters). The infant mortality rate in Burnley is now not significantly different from the national average (Burnley Health profile 2008). Children in the borough are more likely to suffer from tooth decay (Department of Health, 2008).
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3.1.25 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
Source: Burnley Health Profile 2008, NHS
Community Engagement
3.1.26 New National Indicator NI 4 records percentage of people who feel they can influence decisions in their locality. 2008 East Lancashire Citizens Panel results show the borough’s percentage as 34%, an increase from 16% in 2005. However, Within East Lancashire the percentage of residents in Rossendale and Burnley who ‘definitely disagree’ when asked if they feel they can influence local decisions is significantly higher than in the other three districts. It was also found that residents with a disability are also much more likely to feel that they can influence the local decision making process compared to those residents without a disability.
Statement of Community Involvement (SCI)
3.1.27 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.
3.1.28 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.
3.1.29 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.
3.1.30 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
3.1.31 Since the adoption of the SCI one major consultation has been undertaken in relation to DPDs. Between 19 February and 31 March 2008 consultation was held for the Preferred Option Stage of Area Action Plan DPDs in five of the borough’s Housing Market Renewal Areas: Burnley Wood and Healey Wood, Daneshouse Duke Bar and Stoneyholme, Piccadilly/Trafalgar, South
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West Burnley and Padiham. Sustainability Appraisals for each of the plans were published simultaneously.
3.1.32 Consultation was through the following means: • consultation booklets delivered to all residents and businesses in the area • letters to key stakeholders and organisations and individuals on the Council's consultation database; • dedicated consultation pages on the Council's website - www.burnley.gov.uk; • documents made available at Contact Burnley, Planning and Environment Services • Reception, Burnley Central Library and Padiham Library; • press releases and notices in the Burnley and Padiham Express; • fourteen drop-in sessions held across the five AAP areas where planning officers and volunteers from Planning Aid will be in attendance to answer questions and assist with representations.
3.1.33 The number of representations received in the five areas is set out below:
Table 3: Preferred Option Area Action Plans Consultation February/March 2008: Duly made representations received and comparison with previous Issues and Options consultation (July/August2006).
Plan area Preferred Options Preferred Option Issues and Area Action Plan Sustainability Options Area Appraisal Action Plan Burnley Wood and 102 17 383 Healey Wood, Daneshouse Duke 510 18 1046 Bar and Stoneyholme, Piccadilly/Trafalgar, 92 4 376 South West Burnley 353 6 563 Padiham. 152 15 600 Source: Burnley Borough Council Limehouse Consultation Database
3.1.34 In analysing these figures in terms of the effectiveness of community involvement it is important to take account of the emphasis of the current plan making process and of the SCI on ‘front-loading’ ie maximising community at the earlier stages to ensure more of a consensus view is reflected in the plan’s later stage. Thus ideally the number of representations should reduce with each stage of the process. In the case of the Area Action Plans the number of representations has reduced significantly between Issues and Options and Preferred Option stages, though the number of representations at the later stage remains considerable.
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3.1.35 In 2007 Burnley won a RTPI Regional award for Community Engagement for its work involving local residents in previous stages of consultation and in particular for its innovative use of community arts projects to highlight and engage people in the plan making process.
3.1.36 It is envisaged that more detailed monitoring of the SCI will be undertaken in Annual Monitoring Reports when more evidence is available.
HOUSING AND BUILT ENVIRONMENT CHARACTERISTICS
Housing Type
3.1.37 Burnley has a much higher proportion of terraced housing than England or the North West region as a whole. Only a quarter of houses in England and a third in Lancashire are terraced. At the time of the 2001 Census, 52% of dwellings in Burnley were terraced. 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.
Figure 2: Types of Housing in Burnley
Vacant Properties
3.1.38 The problem of high numbers of unoccupied properties is well-documented. 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.
3.1.39 In 2008, the Borough had 2686 empty homes, which was 6.6% of the overall housing stock. (Housing Strategy Statistical Appendix (HSSA), 2008). This
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vacancy rate has fallen significantly this year after a gradual rise over the two previous years but is still significantly higher than the North West (3%) and national (4%) figures.
Table 4: Trends in Vacant Dwellings in Burnley
Vacant Rate No. of dwellings 1999 3978 9.88% 40255 2000 3786 9.33% 40593 2001 4036 9.89% 40802 2002 3438 8.47% 40583 2003 3123 7.72% 40442 2004 3343 8.28% 40383 2005 2912 7.25% 40177 2006 2961 7.3% 40289 2007 3008 7.5% 40264 2008 2686 6.6% 40585
3.1.40 940 (35%) of Burnley’s vacant properties have been empty for six months or more (HSSA 2008). This is 2.3% of all properties, a fall from 3.23% at April 2006. The Council’s Empty Homes Strategy 2008-11 aims to address long term empty properties. It sets a target of bringing 52 vacant properties back into use in 2008/9.
Unfit properties
3.1.41 Burnley has 3417 (8.4%) unfit dwellings (HSSA 2008). In addition 84 Registered Social Landlord (RSL) properties were deemed unfit. There were 16,938 low demand private sector dwellings (HSSA 2008).
3.1.42 In June 2007 the Council launched a selective landlord licensing pilot scheme in part of the borough’s Trinity ward where there is a high percentage of privately rented and vacant properties. Poor management of properties and high levels of anti-social behaviour have been identified in the area. The scheme aims to address problems of absentee landlords and poor standards of maintenance in order to levels of anti-social behaviour and vacant properties.
Housing Market
Strategic Housing Market Assessment (SHMA)
3.1.43 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.
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3.1.44 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 demand is well below its RSS targets for new housing provision but Pendle’s demand is above the target.
Property Prices
3.1.45 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.
Table 5: House Prices in Burnley Borough April 2007 - March 2008
South West Piccadilly/Tr Padiham Daneshou Burnley Burnley Overall Burnley afalgar se, Duke Wood & Intervention Average* Bar & Healey Wood area Stoneyhol me Jan – Mar 49,500 53,750 70,000 45,000 46,000 55,000 88,742 2007 Apr-Jun 49,500 52,000 74,995 46,000 55.000 52,500 97,495 2007 Jul-Sept 55000 59,950 83,500 49,975 55,000 63,500 98,299 2007 Oct-Dec ------100,916** 2007 Jan-Mar ------94,929 2008
*source: Elevate ** source: DCLG ***On this figure Burnley ranked 2 in England and Wales (second lowest average house prices of all UK authorities)
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Figure 3: Average Residential Property Prices, 1996-2007
Source DCLG - House Prices Index, based on HM Land Registry data
3.1.46 In the calendar year 2007 average house prices in Burnley increased 13.71% from 88,742 to 100,916 but fell back to 94,929 in the period January to March 2008. Despite this increase, Burnley’s average prices remain well behind regional and national averages. In the period July-September 2007 the average price of a terraced house in Lancashire was £77,157.
Table 6: House prices in East Lancashire Housing Market Renewal Areas
2003 2004 2005 2006 2007 Blackburn IA 37915 55327 66230 89,950 97,925 Burnley IA 28017 32549 42215 68,000 75,000 Hyndburn IA 37461 52899 72168 82,250 89,000 Pendle IA 33875 40264 54333 81,500 88,500 Rossendale IA 52206 68541 84691 104,000 113,516 Ribble Valley 173,000 190,000
England 37895 49916 63927 168,500 184,000 NW 85000 107000 118000 127,000 136,000 Source: Elevate
Energy Efficiency and Fuel Poverty
3.1.47 The calculation of households in fuel poverty is based on a number of factors including condition of housing stock and income. In 2003 7.32% of households in Burnley were in fuel poverty. In Lancashire only Blackburn with Darwen had a higher percentage. The situation is particularly serious in
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Daneshouse with Stoneyholme Ward which is within the worst 0.2% of wards in England for fuel poverty. It is the third worst ward in England and the worst in the Lancashire NUTS 2 area (Lancashire County plus Blackpool and Blackburn with Darwen).
3.1.48 Rising fuel prices over the monitoring period mean that the fuel poverty situation in Burnley is likely to have become more acute since 2003. Effects of the current economic downturn on local incomes could exacerbate the situation still further in the coming period. New National Indicator NI 187 Tackling Fuel Poverty – people receiving income based benefits living in homes with a low energy efficiency rating will be monitored by the Council with a new baseline figure from 2008/9.
3.1.49 Burnley’s overall ranking in terms of the energy efficiency of its housing is higher than all other East Lancashire authorities except Ribble Valley which has the same score. 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 51.0. 5% of properties have a SAP rating below 35. (HSSA 2008). The tenth report of the Home Energy Conservation Act 1995 (HECA) which covers the period up to March 2006, reports that Burnley’s performance in terms of improving the efficiency of its housing stock is above the target of 20% required in order to meet the government 30% target reduction by 2011 (see figure below).
3.1.50 It is difficult from the data set to derive underlying reasons why particular areas recorded high or low figures. The affluence of an area or the type of housing stock do not appear to be factors that lead to identifiable variations between authorities. In Lancashire, Burnley and Ribble Valley recorded the same figures (51) yet from the points of view of overall wealth, housing type and price, the two authorities have little in common. Burnley and Hyndburn are neighbouring authorities that share a number of similarities yet their results show a seven points variation (LCC website).
3.1.51 A 2007 East Lancashire Citizen Panel survey reported that only 9% of respondents thought councils do enough to promote energy efficiency, with 62% stating that they could do more. The Council, in conjunction with Pendle Borough Council, is currently finalising a Home Energy Strategy which aims to develop effective partnership with agencies across the two boroughs to improve the energy efficiency of homes, ensure affordable warmth for all and help tackle climate change (Burnley and Pendle Home Energy Strategy 2008-2011).
21 Burnley Local Development Framework: Annual Monitoring Report 2008
Figure 4: Energy Efficiency Improvement under the Home Energy Conservation Act
HECA % improvement to March 2006 (10th HECA Report)
25.00% 21.10% 21.30% 20.60% 20.00% 17.37% 15.30% 15.00% 13.80% 12.20%
10.00%
5.00%
0.00% BwD Burnley Hyndburn Ribble Rossendale Pendle Average Valley
Source: DEFRA
ECONOMIC CHARACTERISTICS
Table 7: % Working age population in employment, Burnley 2002-2007
Year 2002 2003 2004 2005 2006 2007 % 72.2 77.3 70.7 70.4 70.4 63.4 Source: ONS/LCC website http://www.lancashire.gov.uk/office_of_the_chief_executive/lancashireprofile/employment/.asp
3.1.52 63.4% of the working age population (16-59 for females, 16-64 for males) in Burnley are in employment compared with 74.8% in the County, 72.3% in the North West and 74.4 in Great Britain. Burnley’s 2007 figure shows a significant fall from the previous years. In the period 1998-2006 the number of jobs in the district has fallen by 6.1%. Hyndburn, Blackburn and Rossendale were the only other authorities to suffer a fall, though to lesser degrees. Proportionately the scale of the manufacturing job reduction in East Lancashire has not been much greater than that experienced nationally. The difference is that the sub-region has failed to compensate fully for these losses through the expansion of construction and some of the service activities (LCC). 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.
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3.1.53 The working age unemployment rate in the Borough has increased from 4.5% in 2004 and 5.5% in 2006 to 6.8% in 2007. Figures for Pendle and Hyndburn are slightly lower but show a similar trend.
3.1.54 In most economic sectors Burnley performs as well as if not better than its East Lancashire neighbours. However, there is a lack of business diversity especially in the knowledge driven service sectors such as financial and professional services (Elevate). Reliance on lower value mass manufacturing is a potential risk in a volatile and highly competitive global market. Constraints on existing businesses and potential investors include a lack of suitable and readily available sites and premises and a suitably qualified workforce
3.1.55 There has been a recent improvement in local entrepreneurship in Burnley with business formation rates over the past five 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 remain below County and regional averages (LCC-VAT Business Ratios per 10,000 Resident Adults, 2006)
3.1.56 In terms of employment, there has been a marked decline in manufacturing industry in the past ten years. Nevertheless, in 2006 it still accounted for 21.5% of employment in the Borough, significantly higher than corresponding regional and national figures. The other main sources of employment are wholesale and retail trades (18.0%), health and social work 16.1% and education (9.5%) (LCC/ONS Annual Business Enquiry 2006). All these percentages have fallen slightly from the 2005 figures published in last year’s Annual Monitoring Report.
23 Burnley Local Development Framework: Annual Monitoring Report 2008
Household Incomes
Figure 5: Average Household Income, 2008, Lancashire Districts
Source: CACI
3.1.57 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.
3.1.58 2008 Average Gross Household Income in Burnley is below £30,000 but has increased 1.6% since 2007. This compares with £32,000 for the North West and £34,400 in Great Britain. The twenty Lancashire wards with the lowest gross Household Income in 2008 included Bank Hall (under £24,000) and Daneshouse with Stoneyholme (under £21,000). No Burnley wards were included in the twenty highest income wards.
ENVIRONMENTAL CHARACTERISTICS
Energy Consumption
3.1.59 Most recent data (LCC/BERR Regional and Local Total Energy Consumption Statistics 2005) show that in Lancashire only Blackpool has a lower per head level of petroleum products consumption than Burnley. However, domestic gas consumption within the borough is relatively high, has overtaken the County and Great Britain averages and is rising along with
24 Burnley Local Development Framework: Annual Monitoring Report 2008
electricity consumption. This may reflect a general increased ownership of consumer goods, poor general standards of thermal efficiency in the housing stock as well as lack of awareness of climate change. Coupled with increases in fuel prices and the low wage economy this trend may lead to higher rates of fuel poverty in the borough.
Figure 6: Energy Consumption, 2005, in kWh per Person
Source: BERR/LCC website http://www.lancashire.gov.uk/office_of_the_chief_executive/lancashireprofile/monitors/ener gyconsump.asp
3.1.60 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 is only 11% of the Great Britain figure and 24.6% of the North West figure (LCC/DTI, 2005).
Waste Recycling and Composting
3.1.61 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 31% of its household waste (2007/8 figures) (New National Indicator NI 192). This 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.
25 Burnley Local Development Framework: Annual Monitoring Report 2008
Carbon Emissions
3.1.62 Carbon dioxide (CO2) 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 CO2 emissions come from the burning of fossil fuels in power generation and in the transport, domestic and industrial sectors. In Supplement to PPS 1 Planning and Climate Change, December 2006) the Government aims to reduce carbon dioxide emissions from all sources by 20% below 1990 levels by 2010 and by 50% below 1990 levels by 2050. The Climate Change Bill, which is expected to become law by the end of 2008 will see the 2050 target revised to at least 80% against a 1990 baseline.
3.1.63 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 (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. New 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.
Figure 7: Carbon Dioxide Emissions, Lancashire and Districts: Sector Shares, 2005
Source DEFRA - Emissions of Carbon Dioxide for Local Authority Areas, 2005 (November 2007)
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3.1.64 Burnley’s carbon profile shows the industrial/commercial sector to be the most significant accounting for over 41% of all its emissions with domestic use accounting for 34.4%. In terms of carbon emissions Burnley’s emissions for industrial, domestic and road transport sectors are comparable to neighbouring authorities in East Lancashire.
3.1.65 Burnley’s relatively low level of car ownership (see below Transport and Communications) is reflected in the relatively low contribution from road transport (24%). Renewal of Burnley’s urban neighbourhoods in future years will improve the quality and energy efficiency of the housing stock, though new patterns of housing development may lead to an increase in car ownership which may offset domestic carbon savings.
3.1.66 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. 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
3.1.67 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.
3.1.68 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.
3.1.69 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
3.1.70 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).
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3.1.71 As part of work to inform a Regional Flood Risk Assessment (RFRA) 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 8: Overview of Fluvial Flood Risk in Burnley (Source: Environment Agency, 2007)
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 1289 Number of Properties in Flood Zone 2 1679 Number of Properties in Flood Zone 1 40860
3.1.72 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. 1289 properties (3%) fall within Flood Zone 3 (high risk) 1679 (4%) are within Flood Zone 2 (medium risk) and 40860 (93%) are within Flood Zone 1 (low risk).
3.1.73 The main urban areas at risk of fluvial flooding are Burnley Town Centre, the adjacent Burnley Wood/Fulledge neighbourhoods 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).
3.1.75 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.
3.1.76 Many parts of the Borough’s watercourses have been culverted in the past. 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.
Greenspace
3.1.77 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 –
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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.
3.1.78 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 31/03/08 (Scott Park (8ha), Thompson Park (9.71ha), Memorial Park (Padiham), (5.09ha), Queens Park (11.33ha) with a total area of 34.13ha). The accessibility standard is a 15 minute walk.
3.1.79 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.
3.1.80 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.
3.1.81 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.
3.1.82 Sports facilities: Current provision (including school sites) 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.
3.1.83 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.
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3.1.84 There is no quantity or accessibility standard for cemeteries and church yards. Quality is considered good.
3.1.85 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
3.1.86 Collectively, statutory and non-statutory wildlife sites are the Borough’s key biodiversity resource.
Internationally and Nationally Important Sites 3.1.87 There is one internationally/nationally important nature conservation site in Burnley. The South Pennine Moors is a Special Protection Area (SPA) Classified under the 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 3.1.88 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 3.1.89 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).
3.1.90 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). In summer 2008 Lancashire Wildlife Trust will 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
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hectares of designated Local Nature Reserves. The borough therefore has a current shortfall of 77.7 hectares.
Burnley Wildlife Sites (Local Sites) 3.1.91 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 currently being 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 3.1.92 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 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.
Built Environment
3.1.93 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.
3.1.94 Of these Listed Building entries, 5 are on the English Heritage Buildings at Risk Register. 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
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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
3.1.95 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 which was published in the form of Supplementary Planning Documents within the monitoring period.
3.1.96 In Burnley, there are 10 Conservation Areas. A working draft character appraisal for the Canalside Conservation Area has been prepared. None of the Borough’s Conservation Areas have published Management Proposals.
The Weavers’ Triangle
3.1.97 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. 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. However, a number of the area’s most significant buildings remain at serious risk in 2008. These are:
• Victoria Mill (Listed, Grade II) – AT MOST RISK Very Bad Condition with structural failure. In final phases of risk requiring a short term solution to supporting the building in the event of further structural failure.
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• Slaters Terrace & Warehouse (Listed Grade II) Poor Condition at immediate risk of further rapid deterioration and loss of fabric
• Finsley Mill (Locally Listed) – AT SIGNIFICANT RISK Poor Condition at immediate risk of further rapid deterioration and loss of fabric
• Healey Royd Mill (Locally listed) Poor Condition at immediate risk of further rapid deterioration and loss of fabric • Finsley Wharf (A collection of Grade II Listed Buildings) Poor Condition at immediate risk of further rapid deterioration and loss of fabric
• Waterloo Public House and Sandygate Mill (Locally listed) 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
3.1.98 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 during the monitoring period has been the Singing Ringing Tree musical sculpture by Tonkin Liu, 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 CHARACTERISTICS
3.1.99 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).
3.1.100 The table below showing patronage at key rail stations shows Burnley has a low level of rail usage for the size of the town. In addition to journey times, particularly to Manchester, this is likely to reflect the poor frequency of services the poor quality of station facilities and environment and the
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poor quality of trains, particularly on the Preston-Colne services. Despite these issues the figures below show significant growth in rail usage in Burnley as in other Pennine Lancashire towns.
Table 9: Patronage at key stations in Lancashire 2004-2007
District 2003/4 2004/5 2005/6 2006/7 % change from 2003/4 Preston 3,294,000 3,382,000 3,556,000 3,760,000 11.4 Blackpool 1,935,000 1,945,000 1,883,000 1,976,000 2.1 Lancaster 1,348,000 1,393,000 1,445,000 1,536,000 13.9 Blackburn 977,000 1,022,000 1,080,000 1,156,000 18.3 Burnley 264,000 277,000 286,000 308,000 16.6 Accrington 225,000 237,000 247,000 260,000 15.5 Chorley 629,000 700,000 737,000 774,000 12.3 Source LCC, Spatial Planning in Lancashire Annual Monitoring Report 1 April 2008
3.1.101 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.
3.1.102 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.
3.1.103 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.
3.1.104 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
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Manchester Road, is on the York to Blackpool line and is also served by an hourly service in both directions.
3.1.105 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 has seen patronage increase by 27% between 2001 and 2006. (LCC/Local Transport Plan Delivery Report, 2001-2006)
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
Table 10: Contextual Indicators – Key Findings and Actions
Indica Key finding Action tor Sociocultural Indicators Population Burnley’s population has this year continued to fall Core Strategy as it has annually over the four years of the AMR. Area Action Plans This is contrary to the trend in the rest of the County and out migration can be identified as the Maintain/develop plan main factor. However, latest population policies in support of housing projections (ONS 2008) show that the population market renewal and will stabilise over the coming decades and rise by economic, social and 3.1% by 2031. The projections are not influenced environmental regeneration to by planned regeneration within the Borough. reduce out migration and close regional disparities in population growth. 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 deprivation continue to be concentrated within Maintain/develop plan the Daneshouse, Duke Bar & Stoneyholme, policies at Borough and Area Burnley Wood and Healey Wood, level in support of housing Piccadilly/Trafalgar, and South West Burnley market renewal and Area Action Plan areas. Further pockets of economic, social and deprivation continue to be found within the wider environmental regeneration to Burnley Pathfinder Intervention Area. reduce general deprivation levels. Health The Borough’s population continues to suffer from Core Strategy deep rooted health problems. Of the 32 indicators Area Action Plans shown in Burnley’s health profile (Department of Health, 2008) one is significantly better than the Maintain/develop plan national average, 4 are not significantly different policies at Borough and Area from the national average and 23 are significantly level in support of housing worse than the national average. There are a market renewal and number of indicators which are among the worst economic, social and in the country, including the percentage of environmental regeneration children who are physically active, which is the to reduce health and third worst in England. disability deprivation. There are health inequalities by gender, level of
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deprivation and ethnicity. For example, men from the most deprived areas have over eight years shorter life expectancy than men from the least deprived areas. Women from the most deprived areas live over five years less than those from the least deprived areas.
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 IMD 2007 (Education Skills and Training) shows Core Strategy and Training that of the 28 SOAs in the worst 25% nationally Area Action Plans the situation improved compared to 2004 in only 8 (29%). If all 60 of the Borough’s SOAs are Maintain/develop plan policies considered this figure rises to 16 (27%). at Borough and Area level in support of economic social and College/university development/Business park will environmental regeneration to boost knowledge and skills base. reduced deprivation levels in Education Skills and Training. Housing Indicators Housing stock Percentage of vacant, long term vacant and unfit Core Strategy properties all continued to fall in the latest Area Action Plans monitoring year but are still higher than regional and national averages. Maintain/develop plan policies at Borough and Area level in support of housing market renewal to reduce number of vacant properties. Housing Market A Strategic Housing Market Assessment carried Core Strategy out jointly for Burnley and Pendle Councils in Area Action Plans 2007-8 found the joint Housing Market Area to be highly self contained. Some 73% of homes moves Maintain/develop plan in Burnley (and 70% in Pendle) begin and end in policies at Borough and Area the district of origin. This is high by national level in support of housing standards. market renewal to improve the quality, range and mix of The Assessment confirmed that the shortage of housing type and significantly affordable housing in both Burnley and Pendle is increase the availability of reflected by a large housing benefit dependent affordable housing. 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 demand is well below its RSS targets for new housing provision but Pendle’s demand is above the target.
In the calendar year 2007 average house prices in Burnley increased 13.71% from 88,742 to 100,916 but fell back to 94,929 in the period January to March 2008. Despite this increase, Burnley’s average prices remain well behind regional and
36 Burnley Local Development Framework: Annual Monitoring Report 2008
national averages. Fuel Poverty The calculation of households in fuel poverty is Core Strategy based on a number of factors including condition Area Action Plans, of housing stock and income. In 2003 7.32% of particularly Daneshouse, households in Burnley were in fuel poverty. In Duke Bar and Stoneyholme Lancashire only Blackburn with Darwen had a Area Action Plan higher percentage. The situation is particularly serious in Daneshouse with Stoneyholme Ward New National Indicator NI 187 which is within the worst 0.2% of wards in Tackling Fuel Poverty – England for fuel poverty. It is the third worst ward people receiving income in England and the worst in the Lancashire NUTS based benefits living in 2 area (Lancashire County plus Blackpool and homes with a low energy Blackburn with Darwen). efficiency rating will be monitored by the Council with Rising fuel prices over the monitoring period mean a new baseline figure from that the fuel poverty situation in Burnley is likely to 2008/9. have become more acute since 2003. Effects of the current economic downturn on local incomes could exacerbate the situation still further in the coming period. Economic Indicators Unemployment Working age unemployment rate up from 4.5% in Core Strategy 2004 to 6.8% in 2007. Significant fall in working Area Action Plans age employment. Maintain/develop plan Employment deprivation is getting worse in 34 out policies at Borough and Area of 60 SOAs and particularly in Housing Market level in support of economic Renewal Areas. social and environmental regeneration to reduce Employment deprivation. Business Activity Average annual Business formation rate 2001- Core Strategy 2006 (11.64) above Lancashire NUTS-2 average Area Action Plans (9.74). Average annual Business Survival rate 2001-2006 rate (91.31) slightly below Lancashire Maintain/develop plan NUTS-2 (91.78) but total stock of businesses per policies at Borough and Area 10,000 population below sub-regional average. level in support of economic social and environmental Manufacturing levels still higher than regional regeneration to which allow levels. businesses to establish and grow. Little evidence of new rural businesses or diversification
Knowledge Currently little new business development but Core Strategy based industries College/university development/Business park will Area Action Plans boost knowledge and skills base of workforce which is key to maintenance and attraction of Maintain/develop plan knowledge/growth area business. policies at Borough and Area level in support of economic social and environmental regeneration to attract/retain knowledge based industries and suitable workforce. Wage levels Average Gross Household Income increased Core Strategy 1.6% since 2007 but still below regional average. Area Action Plans There are pockets of very low incomes within the Intervention Areas. Maintain/develop plan policies at Borough and Area level in support of economic
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social and environmental regeneration to reduce Income deprivation. Environmental Indicators Natural High quality and accessible parks and open Core Strategy Environment spaces Area Action Plans and Biodiversity 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 English Heritage’s Buildings at Risk Register. Continued deterioration of historic buildings (Grade II and locally listed) in Weavers’ Triangle with several now at serious risk.
Public Percentage of resident population travelling to Core Strategy Transport/Conn- work in Manchester is only 2.6% (2008) Area Action Plans ectivity Rail patronage figures show Burnley has a low Continue making case for level of rail usage for the size of the town. In direct rail service to addition to journey times, particularly to Manchester via Todmorden Manchester, this is likely to reflect the poor Curve and develop plan frequency of services the poor quality of station policies which promote rail facilities and environment and the poor quality of usage eg in trains, particularly on the Preston-Colne services. Piccadilly/Trafalgar Area Despite these issues the figures below show Action Plan (includes significant growth in rail usage in Burnley as in Manchester Road station) other Pennine Lancashire towns.
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 has been established (see Appendix 4). The Council’s monitoring framework will extend provision of neighbourhood level data as appropriate in developing and monitoring Area Action Plans.
4.0 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.
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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), unfit 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.
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
Preparing for a changing 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 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.
39 Burnley Local Development Framework: Annual Monitoring Report 2008
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 years before eventually stabilising and beginning a slow rise by 2031. This has significant implications for the borough’s economic and social well being. The opening of Europe’s borders is an opportunity for the borough’s future economic growth. The Council and its partners will promote and welcome immigration but will also manage and plan for demographic change. 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. 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
40 Burnley Local Development Framework: Annual Monitoring Report 2008
The crucial 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. In Padiham, the Market Towns Initiative, ‘Padiham Life’, provides funding to develop a local strategy that will enable to town to realise its potential.
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.
5.0 OUTPUT INDICATORS
5.1 Output Indicators
5.1.1 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
5.2.1 Regional Spatial Strategy and Local Development Framework Core indicators were revised and updated by DCLG in February 2008. These revisions, to
41 Burnley Local Development Framework: Annual Monitoring Report 2008
reflect current Government guidance and priorities, include removal of some indicators from the core set, the addition of two new indicators, and modifications to definitions of other indicators. Details of changes are described in the text introducing the relevant indicator. All revisions are listed 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
5.3.1 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. In this second year of monitoring the adopted Plan progress towards achieving local targets is analysed alongside core indicators.
5.3.2 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 will continue to be collected and reported as local indicators.
5.4 Analysis of Core Output Indicators
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.
The Regional Spatial Strategy for the North West 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
42 Burnley Local Development Framework: Annual Monitoring Report 2008 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.
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) • 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 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
43 Burnley Local Development Framework: Annual Monitoring Report 2008
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? 3
Data Analysis In the monitoring period, two sites were developed for employment with a total of 5800 square metres of floorspace. This included one site of 2840 square metres for (mixed B1, B2, B8 uses) and one of 2593 square metres for warehousing uses (B8). One smaller site was brought forward for offices (B1 (a)).1
Commentary Land developed for employment purposes was mainly brought forward for mixed industrial uses (B1, B2, B8) and warehousing. Both developments were located within major industrial estates, one at Heasandford, the other at Rossendale Road.
One small office development (B1(a) uses) was completed also on a former industrial site. 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. It was hoped that the identification in the Local Plan of sites within the town centre for such uses would rectify this position. So far there has been no office development on these sites.
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? 3
Data Analysis Of the 5800 square metres that were brought forward during the monitoring period, only 367 (an office development) was on previously developed land. Industrial developments completed (totalling 5433sq m) were on greenfield land within designated major industrial estates (within the urban boundary) where expansion
1 Latest revisions to core indicators have removed the 1,000sq m threshold for sites which can be counted in relation to this indicator.
44 Burnley Local Development Framework: Annual Monitoring Report 2008 and improvement of existing employment uses is permitted subject to Local Plan Policy EW5.
Commentary Only 6% of employment land developed during the monitoring period was on previously developed land. However, the remaining 94% consisted of greenfield sites within designated industrial estates which were allocated for industrial development in the adopted Local Plan and continues to be a key location for employment within the Burnley economy.
All land developed for employment purposes is within the Urban Boundary.
BD3 (CORE) Employment land available by type
Objective To show the amount and type of employment land available
ON TARGET? 3
Data Analysis At 31st March 2008, 57.76 hectares of employment land was available for development. This figure is made up as follows: i) sites allocated for employment uses in the Burnley Local Plan Second Review ii) sites for which planning permission has been granted for employment uses but not included in i)
In calculating a figure for total employment land available previous Annual Monitoring Reports (2005-2007) have used a baseline figure of 57.19 hectares allocated in the Burnley Local Plan and subtracted any completed employment development on these allocated sites only. New permissions granted for employment development were not included in the figure for employment land available.
The table below shows revised employment land figures for 2005-2008 taking into consideration permissions granted (and completed) since 2006.
Monitoring Employment Minus Plus Minus Total year land base Completions Permissions permissions Employment figure on allocated on non (2006 land (hectares) sites allocated onwards) available (hectares) sites completed (hectares) (hectares) (hectares) 2005 - - - - 57.19 2006 57.19 0.00 0.71 0.00 57.90 2007 57.90 0.56 0.00 0.00 57.34 2008 57.34 0.00 1.00 0.58 57.76
During the 2007/8 monitoring period no development took place on allocated sites. Outside allocated areas permissions for employment development totalling 1 hectare were granted. Permissions granted in 2006 and 2007 totalling 0.58 hectares were
45 Burnley Local Development Framework: Annual Monitoring Report 2008 completed and this land area therefore no longer counts towards the employment land figure.
In the 2007/8 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.
During the monitoring period there were no losses of employment land to other uses in employment/regeneration areas, or within the wider borough and no employment land was lost to residential development. These indicators are no longer monitored as part of the national core indicator set (former Indicator B5).
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? 3
Target National planning policy set out in Planning Policy Statement 6: ‘Planning for Town Centres’ promotes sustainable development and aims to focus development for retail, office and leisure uses in existing town centres. Growth and investment should therefore seek to promote vital and viable town centres.
The Regional Spatial Strategy for the North West 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 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 the centre.
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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.
Padiham targets Local Targets (Burnley Town Centre) Target BTC2a – Increase shopping floorspace by 2,000m2 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.
Data Analysis Town centre uses are defined as Use Class Orders A1, A2, B1a and D2. Within the 2006/7 monitoring period there was no completed floorspace for town centre uses within town centres. In the borough as a whole one small new office development of 367 sq metres was completed (Sycamore Park, Burnley). One new retail unit of 287 sq metres was completed at 287/287a Manchester Road. Both these developments are below the 500 sq metres threshold which applied to this indicator in previous years but which has been removed in recent indicator revisions.
Commentary There has been little retail, office or leisure development during the monitoring period. The locational effects of development for town centre uses have not therefore been significant. However, 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;
It should also be noted that a number of more significant developments are in the pipeline, both under-construction and in the form of as yet unimplemented permissions.
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.
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.
47 Burnley Local Development Framework: Annual Monitoring Report 2008
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.
Data on vacant retail units within town centres show an increase in Burnley but a decrease in Padiham.
Town Centre Total vacant outlets in Total vacant outlets in % change in total vacant 2003 2007 outlets 2003 to 2007 Burnley 58 61 5.2 Padiham* 16 14 -12.5 * 2001 GOAD data /LCC, Spatial Planning in Lancashire Annual Monitoring Report 1 April 2008
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 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 remained stable at £1,000 per m2, 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.
48 Burnley Local Development Framework: Annual Monitoring Report 2008
Plan Plan period Burnley Housing requirement Joint Lancashire Structure 1/4/2001 to 31/3/2016 1430 dwellings Plan/Adopted Local Plan Regional Spatial Strategy 1/4/2003 to 31/3/2021, 2340 dwellings,
H2(a)(CORE) : Net additional dwellings – in previous years
Objective To show recent levels of housing delivery
Levels of housing completions in recent years in Burnley are shown below. This shows that between 2004 and 2007 completions were generally at or in excess of, the annual requirement.
Housing Completions 2001 to 2008
200
150
100
50
0 01/02 02/03 03/04 04/05 05/06 06/07 07/08 Actual completions 44 114 133 168 129 149 71 Annual requirement 130 130 130 130 130 130 130
H2(b)(CORE) : Net additional dwellings – for the reporting year
Objective To show levels of housing delivery for the reporting year
Data Analysis
Between 1st April 2007 and 31st March 2008, 71 dwellings have been completed2. Of these, 71 were new build completions and 0 changes of use.
This is a significant fall from the previous years’ figures which is likely to be an effect of Burnley’s recent moratorium on housing permissions which was imposed in 2006 (but lifted in 2007 following new supply requirements introduced in PPS3) because the borough then had an over-supply of dwellings. The downturn in the national/ global economy and its effects on the building industry may also have prevented development progressing on sites with planning permissions.
2 Dwellings are considered to be complete when the roof is on and the windows are in. This definition has been adopted by all Lancashire Districts for the purposes of a joint housing land study.
49 Burnley Local Development Framework: Annual Monitoring Report 2008
The number of completions is below the annual figure of 130 dwellings required by the Regional Spatial Strategy for the North West.
Allocated sites:- 12% 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 two allocated sites. One at St. Margaret’s Church in Hapton which had remained undeveloped, despite having an outstanding planning permission from 1989, and the other at the Former Summit Site on Manchester Road in Burnley.
Windfall sites:- Windfall sites are those that have come forward for housing unexpectedly, and were not allocated in the local plan. 88% of this year’s completions have been constructed on windfall sites.
Dwellings Completed on Windfall Sites 2001 to 2008
Year Dwellings
2001/02 30 2002/03 65 2003/04 93 2004/05 131 2005/06 119 2006/07 137 2007/08 62
As the table shows, since 2001 the figure has varied between 30 and 137, with an average of 91 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.
Overall there were 5 windfall sites under 0.4ha (23 dwellings) and 1 windfall site of 0.4ha or more (39 dwellings) built on during 2007/08.
H2(c)(CORE) : Net additional dwellings – in future years
Objective To show likely future levels of housing delivery
Housing Land Supply
At 31st March 2008, 5.43 hectares of land for 343 dwellings was available. 252 dwellings have planning permission on 5.43 hectares of land. Of these 91% have full planning permission. In addition, 64 dwellings have planning permission for change
50 Burnley Local Development Framework: Annual Monitoring Report 2008 of use/conversion. The total amount of land available is an increase of approximately 16% on the amount available in 2007 as shown in the following table:
Housing Land Supply 2001 to 2008
Date Dwellings available Hectares
31st March 2001 508 11.7 31st March 2002 632 15.7 31st March 2003 551 12.3 31st March 2004 538 10.0 31st March 2005 434 10.24 31st March 2006 465 8.23 31st March 2007 269 4.68 31st March 2008 343 5.43
This year sees an increase in the land available. However, the Borough has an insufficient stock of permissions to maintain a rolling five-year supply.
Planning Permissions Granted April 2007 to March 2008
During 2007/2008, new planning permissions were granted for a total of 167 new dwellings, of these, 161 being new dwellings on 3.23 hectares of land and 6 through change of use/conversion. The total number of new dwellings approved represents an increase on the total number of dwellings approved in the previous year as shown below:
New Planning Permissions Granted 2001 to 2008
Year New build Conversions Total approvals approved
2001/02 199 26 225 2002/03 92 34 126 2003/04 235 66 301 2004/05 129 6 135 2005/06 222 13 235 2006/07 5 8 13 2007/08 161 6 167
The number of new build approvals has increased from last year and the number of conversions is below the average number of approvals, which is 23.
51 Burnley Local Development Framework: Annual Monitoring Report 2008
The chart below shows projected completions for a five year period following the monitoring year. It shows levels of housing completions remaining well below the annual requirement for the next two years before increasing incrementally towards the required level by the end of the five year period. This reflects the still relatively low level of current permissions and an assumption that the building out of those permissions will continue to slow in the current economic climate before eventual recovery. However, the Borough currently has an insufficient stock of permissions so, beyond the criteria set out in local plan policies, there are now no restrictions on housing development as there have been in recent years when the Borough was in over supply. It should be noted assumptions regarding the economic climate inevitably carry a high degree of uncertainty.
Projected completions 2009-2013
Monitoring year - actual completions 5-year projected completions Plan = annualised strategic allocation
140 120 100 80 60 40 20 0 2007/08 2008/09 2009/10 2010/11 2011/12 2012/13 Monitoring year - actual 71 completions 5-year projected 80 80 115 120 125 completions 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? 3
The projected number of net additional dwellings assumes the number of completions will initially continue to fall below the annual requirement due to the national/global economic downturn. However, it is assumed that the economy will subsequently recover and that the number of net additional dwellings will continue
52 Burnley Local Development Framework: Annual Monitoring Report 2008 rise steadily to levels above the annual RSS requirement, thus compensating for lower levels in previous years.
Burnley Housing Trajectory 2007-2022
Monitoring year: actual completions Projected completions (15 year period) Plan: annualised strategic allocation (RSS) Manage to RSS housing target based on actual and projected completions
200 150 100 50 0
/08 09 /10 11 12 13 14 15 16 17 18 19 20 21 22
2007 2008/ 2009 2010/ 2011/ 2012/ 2013/ 2014/ 2015/ 2016/ 2017/ 2018/ 2019/ 2020/ 2021/
The figure below shows the amount by which completed dwellings are ahead or behind the cumulative RSS allocation at any time over the RSS period.
Monitor = the position above or below zero represents the amount of dwellings the authority is ahead or behind their cumulative allocation at any time
100 50 0 -50 -100 -150 2005/ 2006/ 2007/ 2008/ 2009/ 2010/ 2011/ 2012/ 2013/ 2014/ 2015/ 2016/ 2017/ 2018/ 2019/ 2020/ Series1 40 59 0 -50 -100 -115 -125 -130 -130 -125 -115 -100 -80 -55 -28 0
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? 3
Target 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.
53 Burnley Local Development Framework: Annual Monitoring Report 2008
Local Plan Target Target GP1b – At least 95% of all new housing to be within the urban boundary.
Data Analysis As shown in the following table, greenfield sites accounted for only 7% of housing completions during 2007/08. 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.
Ratio of Completions on Greenfield/Brownfield Sites
Year Greenfield Brownfield
2001/02 23% 77% 2002/03 13% 87% 2003/04 23% 77% 2004/05 13% 87% 2005/06 11% 89% 2006/07 7% 93% 2007/08 7% 93%
This year’s figure of 93% continues the trend of the last few years with the vast majority of development being on previously developed land. This is in line with national, RSS and Local Plan targets for new housing on previously developed land. The high proportion of brownfield development in recent years is due to the completion of a large number of permissions on existing greenfield allocations in 2000/2001, prior to the new policy direction beginning to affect housing completions in Burnley.
H4 (CORE): Net additional pitches (Gypsy and Traveller)
Objective To show the number of Gypsy and Traveller pitches delivered.
ON TARGET? ?
Target Following the Housing Act 2004 and Circular 01/06 “Planning for Gypsy and Traveller Caravan Sites” which sets out Councils’ requirement to make adequate provision for gypsy sites in their development plans, local authorities have been preparing strategies to respond to the accommodation needs of the gypsy and traveller communities. The Council’s Housing Strategy 2006-2009 aims to promote independence and improve support for vulnerable people including gypsies and
54 Burnley Local Development Framework: Annual Monitoring Report 2008
travellers. The Burnley Local Plan Second Review includes Policy H16 Gypsy and Traveller Sites which sets out where sites will and will not be permitted.
To help inform the development of such strategies in Lancashire, the North West Regional Assembly, on behalf of Lancashire authorities, has commissioned the Lancashire Sub Regional Gypsy and Traveller Accommodation and Related Services Assessment. The study was carried out by researchers at Salford and Birmingham Universities and was published 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.
Data Analysis None of the pitches or other sites identified in the 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.
The Department of Communities and Local Government carries out periodic caravan counts. In the last five counts between Jan 2006 and Jan 2008 there were 2 caravans recorded on sites in Burnley not owned by gypsies (in July 2007) and these were ‘not tolerated.’
Residential accommodation need arising from existing district level Gypsy and Traveller populations 2006-2016.
Authority Current Total Supply of Total Estimated Total authorised residential pitches residential supply of residential provision3 need 2006 - 2006-2011 need 2011- pitches need 2006- 2011 2016 2011 - 2016 (less 2016 supply 2006-2016) Burnley 0 pitches Nil 1 pitch Nil 5 – 7 pitches 5 – 6 pitches
The need from unauthorised encampments was derived by assuming that 53% of the households interviewed within the district required residential accommodation within the area. This indicates a need for 1.06 pitches.
From the information collected with gypsies and travellers across the area, it is indicated that by 2011 there will be approximately 3 young people who will have reached the age where households are traditionally formed within the gypsy and traveller community (around 18 years).
3 These are approximations of the provision (public and private), based on information obtained from the authorities during the course of the assessment.
55 Burnley Local Development Framework: Annual Monitoring Report 2008
In order to ascertain the need as indicated by site waiting lists the study assumed that around 50% of the applicants on the site waiting list have not already been accounted for in the assessment of need. This indicates the development of an additional 10 pitches for the district. From the ‘known’ number of gypsies and travellers in housing in the area (3 households), the study provided a range figure of need which reflects the findings that between 19%-63% of bricks and mortar dwellers are likely to leave their accommodation. This indicates a need for between 0.57 – 1.89 pitches
The estimation for future need (2011-2016) was obtained by summing together the level of existing pitch provision, coupled with potential new pitch provision (2006- 2011) and used a household growth multiplier of 3% per annum compound.
Commentary Provision of pitches for Gypsies and Travellers will be considered 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? 2
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 housing4 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.
4 Housing at prices and rents above those of social rent, but below market prices or rents (PPS3 p25)
56 Burnley Local Development Framework: Annual Monitoring Report 2008
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.
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 40 out of a planned 104 affordable dwellings were completed all of which for social rent through RSLs. These were located within the intervention area and are not included within the borough’s general new build completions figure (71). Of these 71 housing completions during the monitoring period, none were affordable dwellings. Although some of these were part of schemes of 25 dwellings or more none of these schemes were permitted since the adoption of the Burnley Local Plan (and policy H5) in April 2006. Next year a further 30 RSL dwellings for social rent are planned plus a further 6 RSL shared ownership/shared equity dwellings.
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.
57 Burnley Local Development Framework: Annual Monitoring Report 2008
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.
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 that the current Local Plan Affordable Housing Policy will not deliver sufficient affordable dwellings to meet identified need. More demanding targets proposed for affordable housing in the SHMA are currently subject of a viability assessment, following which any changes to Affordable Housing Policy will be considered as part of the Core Strategy Issues and Options to be consulted on in 2009 and further in 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.
It should be noted that the effect of the current economic downturn is, despite falling house prices, likely to maintain overall levels of need for affordable housing while reducing the prospects for delivery of affordable homes at least in the short term.
Future Annual Monitoring Reports will assist in updating and monitoring the findings and recommendations of the SHMA.
58 Burnley Local Development Framework: Annual Monitoring Report 2008
H6: Housing Quality – Building for Life Assessments
Objective To show the level of quality in new housing development.
ON TARGET? 3
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 five housing developments were completed which qualify for Building for Life Assessment. These are:
• Land at Kiddrow Lane (17 dwellings) • Land off Greenbrook Road (39 dwellings) • Victoria Works, Institute Street, Padiham (28 dwellings) • Former Cinema site, Shale Street (24 dwellings) • Park Mill, Leyland Road (47 dwellings)
Sites at Victoria Works, Shale Street and Leyland Road are all within the Housing Market Renewal Intervention Area and do not therefore contribute to the borough’s annual housing completions figure.
Data Analysis Four of the five sites were assessed by relevant development control case officers and the Council’s Principal Planner (Design and Heritage). Two were scored ‘very good’, one was scored ‘good’ and one was scored ‘average.’ Completed Building for Life Assessments are at Appendix 6.
59 Burnley Local Development Framework: Annual Monitoring Report 2008
Commentary As Building for Life Assessment is part of the Core indicator set for the first time these 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. In this first year these assessments provide a simple overview. In future years 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? 3
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).
Data Analysis
Figure 15: Density of new Housing Developments
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 0 hectare (net site area of the development)
Gross completions at density above 50 dwellings per 61 hectare (net site area of the development)
Total Completions 61
60 Burnley Local Development Framework: Annual Monitoring Report 2008
Commentary This year the majority of dwellings (100%) in developments of 5 dwellings or more were completed at a density of 50 dwellings per hectare or above. This percentage exceeds last year’s figure of 96.4% which was due to apartments forming the bulk of the housing completions. This year there were a significantly smaller number of total completions and only three developments of five or more dwellings.
Indicator H8 (LOCAL) Sustainable Homes
Objective To show number of new homes being built in the Borough to Code for Sustainable Homes Level 3 or better or Ecohomes ‘Very Good’ standard or better
ON TARGET? 3
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.
CSH builds upon the Ecohomes standard maintained and operated by the Building Research Establishment.
All new housing to be developed in the Borough under the Elevate Housing Market Renewal Pathfinder is required to meet the CSH Level 3 which is equivalent to Ecohomes ‘Very Good’ standard.
Data analysis During the monitoring period no homes were built to these standards. However, permission was granted for three schemes in the South West Burnley Housing Market Renewal Area with a total of 103 new dwellings conditioned to Ecohomes ‘Very Good’ standard.
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 are likely to form part of the Borough’s emerging Core Strategy and Area Action Plans. Until these plans are 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.
61 Burnley Local Development Framework: Annual Monitoring Report 2008
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 3
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.
Data Analysis
Figure 16: 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 1st 2007 and complying with LDF March 31st 2008 Parking Standards New retail developments 0 0 (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 2007/8 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
62 Burnley Local Development Framework: Annual Monitoring Report 2008 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? 3
Target Managing travel demand, reducing the need to travel and increasing accessibility is 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 • 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 In August 2005, the Provisional Lancashire Local Transport Plan 2006/7 – 2010/11 was produced. Within this 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 within 30 minutes public transport travel time (i.e. average bus and walk time by public transport during weekday morning peak hours) to the key service shown based on the Strategic Accessibility Maps.
63 Burnley Local Development Framework: Annual Monitoring Report 2008
Figure 17: 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 68 63 68 68 68 68 travel time
Percentage of total completions 95.7 88.7 95.7 95.7 95.7 95.7
Source: Analysis of Burnley completions data by LCC 2008
Commentary Within the report period 71 dwellings were completed on 8 sites. 63 dwellings (88.7%) had 30 minutes access to all six services. 5 dwellings (7%) had 30 minutes access to 5 services. 3 dwellings (4.2%) on a rural site in the east of the borough were unable to access any of the services within the 30 minutes. 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. However, it should be noted that the reorganisation of a number of key services including health (relocation of Accident and Emergency services from Burnley to Blackburn in 2007), education (Building Schools for the Future Programme and relocation of Burnley College to an edge of centre site) and postal (proposed closure of five post offices within the Borough following a consultation in early 2008) will impact on the accessibility of these services in future years.
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? 3
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
64 Burnley Local Development Framework: Annual Monitoring Report 2008 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.
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.
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 1/04/07 to 31/03/08, a total of 5 objections were made by the Environment Agency on flood risk grounds. Three of the objections were resolved prior to the determination of the application (APP/2008/0059; APP/2007/0285; APP/2007/0847). One application has not yet been determined but the Agency’s objection still stands (APP/2008/0108) and the last application (APP/2008/0098) was approved contrary to our objection (development over a culvert). In this case a condition requiring the developer to divert the culvert away from the building footprint was initially imposed by the Council but later removed after the developer’s investigations showed that diversion would be prohibitively difficult and costly due to the depth of the culvert.
No objections were made on water quality grounds. The list of objections made to planning applications each year by the Environment Agency is available on their website: http://www.environment-agency.gov.uk/aboutus/512398/908812/1351053/1449570/ However, the number of objections listed does not take account of those objections resolved prior to the determination of the planning application.
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
65 Burnley Local Development Framework: Annual Monitoring Report 2008 need to consider flood risk in all developments (eg through Flood Risk Assessments) should reduce the likelihood of developments being permitted contrary to Environment Agency advice in future years. The new guidance also includes greater encouragement for SUDS schemes designed to reduce the contribution of new developments to overall levels of flood risk. The incidence and type of such schemes within the Borough will be monitored 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 emerging SFRA. The Council’s SFRA is likely to recommend updated 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. This will bring the Council’s policy more explicitly in line with that of the Environment Agency and is likely to reduce 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? 3
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.
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.
New National Indicator 197 Improved local biodiversity is concerned with the percentage of local wildlife sites under active management. This indicator is monitored as part of the Lancashire Local Area Agreement and sets targets of 8%, 11%, and 14% over the next three years from a baseline of 5%.
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
66 Burnley Local Development Framework: Annual Monitoring Report 2008 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, at 1 September 2008 99.63% of the SSSI within Burnley was in unfavourable condition mainly due to air pollution and overgrazing, though 24.2% was described as recovering, an increase on last year’s figure of 21.5%. The percentage of the unfavourable area described as declining has also seen a significant reduction from 3.81% in 2007 to this year’s figure of 2.58%.
Figure 18: Natural England Condition Assessment, South Pennine Moors at 1 September 2008
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 24.57% 0.37% 24.20% 72.84% 2.58% 0.00%
Source: Natural England (website)
Burnley Wildlife and Habitat Survey 2007
67 Burnley Local Development Framework: Annual Monitoring Report 2008
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
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%
UK Biodiversity Action Plan habitats The table below shows the percentage area coverage of these nationally important habitats in Burnley.
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%
68 Burnley Local Development Framework: Annual Monitoring Report 2008 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.
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 Hesandford. 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
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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? 2
Target The Climate Change Bill, which became law in October 2008 will require at least 80% cuts in carbon dioxide emissions nationally by 2050 against a 1990 baseline. The development of renewable energy, alongside improvements in energy efficiency and the development of combined heat and power, will make a vital contribution to these aims 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.
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.
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.
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.
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Figure 20: Operational renewable energy projects in Burnley
Type No of Project Estimated projects capacity (MW) Onshore wind 3 Coal Clough Wind 9.60 Farm Hameldon Hill 3.90 (New Barn Farm) Shay Lane 0.01 Farm Landfill Gas 3 Rowley 1.85 1.77 Queen’s 1.85 Park eNERGY Deerplay 2.0 Sewage gas 1 Burnley Sewage 0.17 Works Micro Hydro 1 Worsthorne Hydro 0.09 TOTAL 19.47 (Source: Renewables Northwest 2007).
Commentary In the reporting year only one application was approved in the Borough for renewable energy generation. This was for a small domestic wind turbine. Elsewhere one similar application was refused. In the previous monitoring year there were 11 applications.
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, is designed to encourage an increase in installation of these technologies in future years. However, this move will make the contribution of microgeneration to renewable energy production in the Borough harder to monitor as planning permission will no longer be required.
To overcome future monitoring problems work is being undertaken to investigate whether it will be possible in future years 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.
In Burnley consumption of energy per head derived from renewable or waste sources is only 11% of the Great Britain average (LCC/BERR, 2005). 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.
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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 fourth 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.
BUSINESS Key finding Action DEVELOPMENT AND TOWN CENTRES Take up of Business Annual take up of business floorspace in Review of employment sites floorspace (including the Borough has been significantly lower in to be undertaken as part of developments on the last two years than in the previous two. evidence base for Greenfield land) The 2008 figure was the lowest of the four employment policies in Core despite the removal of the 1000sq m size Strategy and Allocations threshold for included developments. In DPD addition to the onset of the economic downturn, the fall in take up 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 four year period. Some development within these designated parks has been on greenfield land. By contrast little of this take up in the period has been on sites allocated for employment uses in the Local Plan, suggesting market preference for out of centre sites and the perceived benefits these can offer in terms of transport/communications and other locational factors. Employment land Employment land available includes sites Review of employment sites available allocated within the Local Plan and sites to be undertaken as part of with planning permission for employment evidence base for use. employment policies in Core In the four year period only 0.56 ha of Strategy and Allocations 57.19ha land allocated for employment in DPDs. the Local Plan has been taken up. 1.71ha of employment permissions have been granted on non-allocated sites and of these 0.58ha have been completed. Town Centre uses Retail In preparing LDF documents: There has been little significant retail development within the Borough within the Review Local Plan Burnley four year period. However, a number of Town Centre and Padiham significant retail developments have Town Centre policies permission or have been completed since the end of the most recent monitoring year. Review Local Plan Transport These include in-centre, edge of centre and and Movement policies out of centre developments.
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Vacant units in Burnley have rose by 5% Review Economy and Work between 2003 and 2007 but there was a policies decrease in Padiham (2001 data) Burnley was one of only two centres in Lancashire Relevant LDF documents (the other being Nelson) where Zone A Core Strategy rental levels between 2005 and 2007 did Allocations DPD not rise but remained stable. Burnley Town Centre Area Action Plan Office Padiham Area Action Plan Contrary to the intent of national and Local Plan policy, Burnley has reflected a general Monitor the amount of trend for office uses to be developed in floorspace completed against established out of centre business parks the floorspace capacities with poor public transport accessibility. This identified for future retail and is due to strong market preferences leisure development in the amongst employers/developers for 2005 Retail and Leisure locations with good road transport link and Study carried out for Burnley less constrained parking provision. Borough Council by Savills.
A County level survey of Travel Plans Progress more detailed suggested that these had been conditioned monitoring breakdown of in Burnley where advice to do so had been employment received from LCC but not in every case permissions/completions by where technically required. and within relevant use classes. Other contributory factors influencing location of town centre uses could include Monitor and update the economic bias towards retail uses in Lancashire Towns Office town centre areas and the failure of the Study 2007 data for Burnley local planning authority to effectively and Padiham. differentiate and monitor industrial and office uses within the B1 use class. Continue to monitor number of Travel Plans conditioned However, although like all other districts in against qualifying Lancashire Burnley now has more office applications and monitor stock outside town centres than within town quality of Plans conditioned. 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 2007/8 the number of housing Viability Assessment of completions fell significantly below previous Strategic Housing Market levels and the annual housing requirement Assessment (SHMA). of 130. Data from Strategic Housing This is likely to be an effect of Burnley’s Land Availability Assessment recent moratorium on housing permissions (SHLAA) to provide clearer which was imposed in 2006 (but lifted in picture of deliverable sites 2007 following new supply requirements including sites currently introduced in PPS3) because the borough allocated for other uses. then had an over-supply of dwellings. The downturn in the national/ global economy and its effects the building industry may also have prevented development progressing on sites with planning permissions. Housing completions on The four 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% (87-93%) Assessment (SHMA). accessibility This is in line with national and regional Data from Strategic Housing
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guidance and Local Plan and Sustainability Land Availability Assessment objectives. (SHLAA) to provide clearer picture of deliverable sites Percentage of new housing permissions including sites currently approved within 400m of an existing bus allocated for other uses. stop (2007) was 100% in Burnley. However, percentage of permissions within 400m of a 15 minute bus service Monday to Friday was 45%. Housing Design and Building for Life Assessments of completed Develop system for Sustainable Homes housing schemes of more than 10 dwellings monitoring and improving have been carried out for the first time in design quality through 2007/8. 4 schemes were assessed, three of Building for Life Framework. which were within the Housing Market Renewal Area. Of these one was average, Develop system for one was good, two were very good monitoring completions under Code for Sustainable Homes
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. 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 the price income ratio in the HMA has (SHLAA) to provide clearer roughly doubled over the 4 years 2002 to picture of deliverable sites 2006. This illustrates that although housing including sites currently is cheap by national standards, it is a lot allocated for other uses. less cheap than it used to be for local households. Following the above any changes to Affordable ii) Both homelessness and Housing Housing Policy will be Register data suggest an ongoing need and considered as part of the demand for social rented housing. Core Strategy Issues and Options and further in an intermediate housing will have only a limited Affordable Housing role to play in meeting the affordable Supplementary Planning housing needs locally. Document (SPD) which will provide more detailed In future years, the Local Plan requirement information on the number of for affordable housing will lead to an affordable units that should increase in affordable housing provision to be provided in proposals in better match the need that has been different parts of the Borough identified. However, it is clear that from the and what types of affordable findings of the SHMA that the current Local housing provision would be Plan Affordable Housing Policy will not considered acceptable by the deliver sufficient affordable dwellings to Council. 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
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demanding targets (it was considered that Burnley’s 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) are currently subject of a viability assessment. ENVIRONMENTAL QUALITY Change in areas of Apart from the nationally and internationally The Burnley Wildlife and biodiversity importance important South Pennine Moors, the Habitat Survey condition of which is monitored by Natural recommended: England, recent qualitative data in relation to Burnley’s wildlife sites in the form of the attention be given to Burnley Wildlife and Habitat survey shows a connecting existing degree of deterioration in the borough’s key designated sites by biodiversity resource (in relation to three assessing potential for Biological Heritage sites). However, this wildlife corridors and deterioration is to some degree consequently avoiding the compensated by the identification of three fragmentation of the habitats. further sites meeting BHS criteria among potential Burnley Wildlife sites. The study Consideration is given to the recommends further surveys of specific implementation of an faunal groups which could lead to further effective site based sites qualifying under specific criteria. management and monitoring programme for all Local There has been no further progress on the Wildlife Sites in order to establishment of Local Nature Reserves ensure that active and the Borough’s continues to have a low conservation enables the level of LNRs in relation to its size. There is retention and enhancement no land in the Borough under high level of their substantive nature stewardship schemes. conservation value and that subsequent surveys are not Rates of woodland cover within the recording a declining Borough and extent of woodland under resource. Such a programme management continue successful growth would be the basis for thanks to the work of Forest of Burnley. reporting on National Indicator 197 Improved local Other significant schemes recently opened biodiversity – active or in progress such as the Padiham Linear management of local sites. Park and Brun Valley Greenway should also contribute to enhancing the biodiversity value of the Borough’s green infrastructure. Climate Change, Burnley currently has one of the lowest per New policies/targets required Carbon Emissions, capita carbon emission levels in the County in LDF Core Strategy on Renewable and but successful regeneration of the climate change/carbon decentralised Energy Borough’s urban areas needs to be emissions sustainable and not linked to rising renewable energy emission levels. decentralised energy Consider SPD(s) on these In Burnley consumption of energy per head issues. derived from renewable or waste sources is Other relevant LDF only 11% of the Great Britain average documents (LCC/BERR, 2005). The number of Allocations DPD applications for renewable energy Area Action Plans installations requiring planning permission has fallen in the last monitoring period. The Burnley Local Plan, seeks to ensure that all new buildings, conversions and change of use of buildings
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should reduce energy consumption and include energy efficiency measures, but includes no general policy or targets for carbon emissions reduction renewable energy or decentralised 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.
5.6 Monitoring Policy Effectiveness
5.6.1 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. The transition from saved Local Plan policies to Local Development Document is explained in the Council’s Local Development Scheme.
5.6.2 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
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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
5.6.3 The success or otherwise of planning policies is tested at planning appeals. Appeals commenced between 1st April 2007 and 31st March 2008 were analysed to provide information on the support given to policies in the adopted Local Plan by Planning Inspectors.
5.6.4 Of the 15 appeals, 8 were dismissed, 5 were upheld and two were upheld in part. Of the appeals that were upheld none have significant policy implications.
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 first 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 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 2008 - 20011. 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.
TABLE 1: PROGRESS ON THE PREPARATION OF THE BURNLEY LDF – DEVELOPMENT PLAN DOCUMENTS (DPDS)
Statement of Community Involvement (SCI)
LDS Timetable and Milestones LDS milestone met/on (Key Milestones in Progress target Italics) Public participation on Consultation on draft This milestone was not quite draft SCI SCI undertaken met as consultation started in February 2006 March – April 2006 March 2006. Preparation of submission The submission This milestone was changed to statement statement following December 2006 in the revised May 2006 public consultation LDS 2006 – 2009. This revised was drawn up in milestone was met November 2006 Submission to S o S and Submission to the This milestone was changed to public consultation SoS and consultation February 2007 in the revised May 2006 will follow approval of LDS 2006 – 2009. This the SCI by the milestone was met. Council – January 2007 Pre-examination This stage will follow This milestone was changed to consideration of once the Council has April 2007 in the revised LDS representations submitted its SCI – 2006 – 2009. This milestone July 2006 March 2007 was met. Pre-examination meeting Pre-examination This milestone was changed to September 2006 meeting– Not June 2007 in the revised LDS necessary 2006 – 2009. This milestone was met. Examination period Examination – May This milestone was changed to November 2006 2007 October 2007 in the revised LDS 2006 – 2009. This milestone was met. Inspector’s report Receipt of Inspector’s This milestone was changed to April 2007 Report– around June December 2007 in the revised 2007 LDS 2006 – 2009. This milestone was met.
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Adoption Adoption – June This milestone was changed to June 2007 2007 January 2008 in the revised LDS 2006 – 2009. This milestone was met.
Commentary on Progress
Apart from the first milestone, the Council met all of the milestones set out in its Local Development Scheme 2004 - 2007.
The milestones set out in the Local Development Scheme 2006 – 2009 were all met and the Statement of Community Involvement is now adopted.
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 Joint Housing Market still underway. assessment has been jointly commissioned with Pendle DC and a Wildlife and Habitat survey undertaken. Both should be completed by the end of 2007. Preparation of issues and Public consultation on issues This milestone was alternative options, and options has yet to be changed to March October 2007 undertaken 2009 in the revised LDS 2008 – 2011. Milestone renamed Regulation 25 consultation. Public participation on Preferred Option stage This milestone was Preferred Options removed by PPS and new removed and not Document 2008 Regulations. replaced in the revised June 2008 LDS 2008 – 2011. Consideration of This milestone was representations removed and not September 2008 replaced in the revised LDS 2008 – 2011. Preparation of submission This milestone DPD and any amendments replaced with to the sustainability report Publication of the April 2008 DPD in the revised LDS 2008 – 2011. New milestone January 2010. Submission to S o S and This milestone was public consultation changed to June 2010 January – February 2009 in the revised LDS 2008 – 2011. Pre-examination meeting This milestone was May 2009 changed to August
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LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) 2010 in the revised LDS 2008 – 2011. Milestone renamed Pre-Hearing Meeting Examination period June - This milestone was July 2009 changed to September – October 2010 in the revised LDS 2008 – 2011. Milestone renamed Start of Examination Hearing Inspector’s report This milestone was October 2009 changed to December 2010 in the revised LDS 2008 – 2011. Milestone renamed Receipt of Inspector’s Report Adoption and publication This milestone was of DPD and revised changed to February Proposals Map 2011 in the revised December 2009 LDS 2008 – 2011.
Commentary on Progress
Progress on the Core Strategy has been slower than anticipated. However, work on building up the evidence base has progressed and is still under way, including two major pieces of work, a housing market assessment and wildlife and habitat survey that have been undertaken by consultants. The housing market assessment provides important background information for the issues and options stage and so it was considered prudent to delay consultation on issues and options until this work was completed.
General Development Control Policies DPD
LDS Timetable and Milestones LDS milestone (Key Milestones in Italics) Progress met/on target Pre-production period Milestone removed June 2007 and replaced with Consultation with statutory bodies on the scope of the Sustainability Appraisal in the revised LDS 2008- 2011. New milestone October 2010. Preparation of issues and Milestone changed to alternative options, January 2011 in the October 2007 revised LDS 2008- 2011. Milestone renamed Regulation
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LDS Timetable and Milestones LDS milestone (Key Milestones in Italics) Progress met/on target 25 consultation Public participation on Preferred Preferred Options This milestone was Options Document and formal Stage removed by new removed and not sustainability appraisal report PPS12 and 2008 replaced in the revised June 2008 regulations LDS 2008 – 2011. Consideration of representations This milestone was September 2008 removed and not replaced in the revised LDS 2008 – 2011. Preparation of submission DPD This milestone November 2008 replaced with Publication of the DPD in the revised LDS 2008 – 2011. New milestone August 2011. Submission to S o S and public Milestone changed to consultation February 2012 in the January – February 2009 revised LDS 2008- 2011 Pre-examination meeting Milestone changed to May 2009 April 2012 in the revised LDS 2008- 2011. Milestone renamed Pre-Hearing Meeting Examination period Milestone changed to June - July 2009 May/June 2012 in the revised LDS 2008- 2011. Milestone renamed Start of Examination Hearing Inspector’s report Milestone changed to October 2009 September 2012 in the revised LDS 2008- 2011. Milestone renamed Receipt of Inspector’s Report Adoption and publication of DPD Milestone changed to and revised Proposals Map November 2012 in the December 2009 revised LDS 2008- 2011.
Commentary on Progress
No progress to date on this document. The revised LDS 2008-2011 proposes that this document is now prepared along the same timetable as the Site Allocations DPD which has been added to the LDS timetable.
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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 Submissions 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
As stated in last year’s Annual Monitoring Report, the preparation of this document will need to start afresh as it was considered that the document could not be taken forward in it’s current form. The above reflects the revised timetable.
Padiham and Piccadilly/Trafalgar Area Action Plans 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 last years’ Documents and formal AMR 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 Preparation of submission This milestone DPDs and any replaced with amendments to the Publication of the sustainability report DPD in the revised January 2008 LDS 2008 – 2011. New milestone July 2009 Submission to S o S and Due to staff shortages, revised This milestone was public consultation regulations and advice from the changed to March 2008 Council’s POSe Critical Friend November 2009 in the submission of the the revised LDS submission document has been 2008 – 2011. delayed. Milestone renamed Submission of DPD Pre-examination This milestone was consideration of removed and not representations replaced in the June 2008 revised LDS 2008 – 2011. Pre-examination meetings The pre-hearing meetings will This milestone was August 2008 follow from submission changed to January 2010 in the revised LDS 2008 – 2011. Milestone renamed Pre-hearing meeting Examination period, This milestone was September 2008 changed to February 2010 in the revised LDS 2008 – 2011. Milestone renamed Start of Examination Hearing Inspector’s reports This milestone was April 2009 changed to May 2010 in the revised LDS 2008 – 2011. Adoption and revised This milestone was Proposals Map changed to July May 2008 2010 in the revised LDS 2008 – 2011.
Commentary on Progress
For a number of reasons, the Council did not meet a number of the milestones for the preparation of the Area Action Plans for Padiham and Piccadilly/Trafalgar as set out in the Local Development Scheme 2006 - 2009. This includes unforeseen staff shortages and the publication of the new PPS12 and accompanying regulations. The decision to use the services of a ‘Critical Friend’ to assess whether the process being followed was likely to produce
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‘sound’ plans also resulted in additional work on the Area Action Plan and the Core Strategy and a reconsideration of some of the work already undertaken as part of the Preferred Options process
Burnley Wood, Daneshouse/Duke Bar/Stoneyholme and South West Burnley 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 last years’ Documents and formal AMR 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 years’ September 2007 2008 AMR this milestone was not met Preparation of submission This milestone DPDs and any replaced with amendments to the Publication of the sustainability report DPD in the revised January 2008 LDS 2008 – 2011. New milestone July 2009 Submission to S o S and Due to staff shortages, revised This milestone was public consultation regulations and advice from the changed to March 2008 Council’s POSe Critical Friend November 2009 in the submission of the the revised LDS submission document has been 2008 – 2011. delayed. Milestone renamed Submission of DPD Pre-examination This milestone was consideration of removed and not representations replaced in the June 2008 revised LDS 2008 – 2011. Pre-examination meetings The pre-hearing meetings will This milestone was August 2008 follow from submission changed to January 2010 in the revised LDS 2008 – 2011. Milestone renamed Pre-hearing meeting Examination period, This milestone was September 2008 changed to February 2010 in the revised LDS 2008 – 2011.
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LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Milestone renamed Start of Examination Hearing Inspector’s reports This milestone was April 2009 changed to May 2010 in the revised LDS 2008 – 2011. Adoption and revised This milestone was Proposals Map changed to July May 2008 2010 in the revised LDS 2008 – 2011.
Commentary on Progress
For a number of reasons, the Council is not on target to meet the milestones for the preparation of the Area Action Plans for Burnley Wood, Daneshouse/Duke Bar/Stoneyholme and south West Burnley as set out in the Local Development Scheme 2006 - 2009. This includes unforeseen staff shortages and the publication of the new PPS12 and accompanying regulations. The decision to use the services of a ‘Critical Friend’ to assess whether the process being followed was likely to produce ‘sound’ plans also resulted in additional work on the Area Action Plan and the Core Strategy and a reconsideration of some of the work already undertaken as part of the Preferred Options process.
Site Allocations 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 Submissions of DPD February 2012 Pre-Hearing Meeting April 2012 Start of Examination Hearing May/June 2012 Receipt of Inspector’s Report September 2012
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LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) Adoption and publication of document and revised Proposals Map November 2012
Commentary on Progress
Site Allocations DPD added to the revised LDS 2008-2011
TABLE 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 was SPD remit of this SPD was re-assessed. changed in the April 2007 revised LDS 2008 – 2011 to December 2008 Public participation on This milestone was draft SPD changed to March June 2007 2009 in the revised LDS 2008 – 2011. Consideration of This milestone was representations changed to June August 2007 2009 in the revised LDS 2008 – 2011 Adoption and This milestone was publication of final changed to October SPD 2009 in the revised October 2007 LDS 2008 – 2011.
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. The timetable above reflects the revised timetable for the SPD.
Development and Flood Risk SPD
Commentary on Progress
This SPD has been removed from the revised LDS 2008-2011.
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Developer Contributions/Planning Gain Supplements SPD
Commentary on Progress
This SPD has been removed from the revised LDS 2008-2011.
Affordable Housing SPD
LDS Timetable and Milestones LDS milestone met/on (Key Milestones in Progress target Italics) Preparation of draft No SPD has been prepared This milestone was changed SPD and there is currently no to December 2010 in the July 2007 staff resource for this work. revised LDS 2008 – 2011 Public participation on This work should be This milestone was changed draft SPD delayed until more staff are to February 2011 in the October 2007 appointed to handle the revised LDS 2008 – 2011 Consideration of additional workload arising This milestone was changed representations from the appointment of to March 2011 in the revised January 2008 Lead Developer partners. It LDS 2008 – 2011 Adoption and had been anticipated that This milestone was changed publication of final this additional staff to August 2011 in the SPD resource would be in post revised LDS 2008 – 2011 April 2008 by April 2007. As at November 2008, there was still no additional staff resource.
Commentary on Progress
It had been anticipated that, if additional staff had been appointed by April 2007 in order to deal with the team’s increased workload, work could have started on the preparation of this SPD. However, the new post has not been filled and the team has suffered from additional staff shortages.
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 SPD December 2008 Public participation on draft SPD March 2009 Consideration of representations June 2009 Adoption and publication of final SPD
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LDS Timetable and Milestones LDS milestone (Key Milestones in Progress met/on target Italics) October 2009
Commentary on Progress
New SPD added to the revised LDS 2008-2011
7.2 Conclusions
7.2.1 For a number of reasons, the Council has not met or has had to revise a number of the milestones set out in the Local Development Scheme. The absence of three members of staff due to maternity leave, retirement and staff leaving the Council and changes to national policy are identified as risk factors in the LDS. However, the need to reconsider work undertaken in order to produce a ‘sound’ document (resulting from a ‘critical ‘friend’ assessment), the production of additional documents to supplement the evidence base and bringing forward work on the Core Strategy Issues and Options documentation to support the preparation of the Area Action Plans were not anticipated.
7.2.2 In retrospect, the Local Development Scheme continues to be too ambitious, not allowing sufficient flexibility to accommodate delays arising from unforeseen problems and additional work.
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8.0 EVIDENCE BASE/KEY REFERENCES
Burnley Annual Monitoring Report 2007/8: http://www.burnley.gov.uk/site/scripts/documents_info.php?documentID=78&pageNu mber=11
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 (2006) Burnley’s Future. The Sustainable Community Strategy http://www.burnleyactionpartnership.org/downloaddoc.asp?id=1896
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. http://www.nwrpb.org.uk/whatwedo/issues/environment/?page_id=457
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 Burnley Borough Council (2008) Annual Report 2008 http://www.burnley.gov.uk/site/scripts/download_info.php?downloadID=951&fileID=2189
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
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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 (2008) Spatial Planning in Lancashire. Annual Monitoring Report 1. http://www.lancashire.gov.uk/corporate/web/view.asp?siteid=3981&pageid=15569&e=e
North West Regional Assembly (2008) RSS Annual Monitoring Report for the North West of England. February 2008 http://www.nwrpb.org.uk/downloads/documents/feb_08/nwra_1203092039_NWRA_Annual_ Report_08.pdf
Housing Burnley Borough Council (2008) Housing Land Book 2002-2008 http://www.burnley.gov.uk/site/scripts/documents_info.php?categoryID=372&documentID=9 2
Burnley Borough Council (2008) Housing Land Availability Schedule 2002-2008 http://www.burnley.gov.uk/site/scripts/documents_info.php?categoryID=372&documentID=9 2
Burnley Borough Council (2008) Housing Strategy Statistical Appendix (HSSA) 2008
Burnley Borough Council (2008) Housing Flow Reconciliation (HFR) 2008
Burnley Borough Council (2008) Empty Homes Strategy 2008-11. http://www.burnley.gov.uk/site/scripts/documents_info.php?categoryID=2639&docum entID=1022
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=2 05
Burnley Borough Council (2006) Housing Strategy 2006-2009 http://www.burnley.gov.uk/site/scripts/documents_info.php?categoryID=946&documentID=2 07
Burnley Borough Council (2006) Affordable Housing Statement http://www.burnley.gov.uk/downloads/Affordable_Housing_Statement_Appendix_1_2 6-09-06.pdf
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
Fordham Research (2008) Burnley and Pendle Strategic Housing Market Assessment Final Report April 2008.
90 Burnley Local Development Framework: Annual Monitoring Report 2008 http://www.pendle.gov.uk/site/scripts/documents_info.php?documentID=829&pageN umber=4
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. http://www.nwrpb.org.uk/downloads/documents/jul_07/nwra_1183639617_Lancashir e_Sub_Regional_GTAA,_.pdf
Economy Burnley Borough Council (2007) Economic Development Strategy 2007-2017 http://www.burnley.gov.uk/site/scripts/documents_info.php?categoryID=59&documentID=34 6
BE Group (2008) Lancashire Town Centre Office Premises Study. http://www.lancashire.gov.uk/corporate/web/view.asp?siteid=4017&pageid=16113&e=e
Health Department of Health (2008) Burnley Health Profile 2008. http://www.apho.org.uk/resource/view.aspx?RID=50215&SEARCH=burnley
The East Lancashire Primary Care Trust (2007) Annual Report of the Director of Public Health 2007. 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. http://www.burnley.gov.uk/downloads/Green_Spaces_Strategy_-_Appendix_1_1_.pdf
Golder Associates (2007) Burnley Wildlife and Habitat Survey 2007.
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
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