ITEM NO.15a REGIONAL SPATIAL STRATEGY FOR THE NORTH WEST
LIVERPOOL CITY REGION SUB-REGIONAL STRATEGY
DETAILED PROPOSALS (Draft 10/02/05)
CONTENTS
Page
1. Introduction 2
2. Strategy Linkages 6
3. Limitations and Areas for Further Work 7
4. Vision and Objectives 7
5. Policy Issues 9
6. Spatial Options and Preferred Option 22
7. Implementation Mechanisms and Required Resources 23 (section to be included)
Appendices
1. Local Authority perspectives 2. Liverpool City Region Interim Report for RSS 3. Liverpool City Region Statement of Intent 4. Initial Options Appraisal using NWRA Methodology (to be undertaken)
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1. INTRODUCTION
1.1 The Regional Spatial Strategy for the North West (RSS) is currently in the process of being prepared by the North West Regional Assembly (NWRA) which is the Regional Planning Body (RPB). Under the provisions of the 2004 Planning and Compulsory Purchase Act, the RPB has requested that sub regional strategies be prepared by strategic planning authorities for inclusion in the RSS.
1.2 The Brief
1.21 The NWRA provided a brief on 13 December 2004 specifying requirements for the preparation of a sub-regional strategy to address key cross-boundary issues in the Liverpool City Region, taking this city region to cover the geographical extent defined within the Northern Way Growth Strategy. The brief notes that: ‘a key role of the sub-regional strategy is to address the spatial approach to long-term growth in broad terms of settlements/centres; and the scale, type and distribution of housing, employment and cultural/tourism development required up to 2021’.
1.22 It specifies the requirement to consider broad locational criteria for sub- regionally significant development and where appropriate the broad physical locations for such development, the management and regeneration of the coastal zone including the Mersey Waterfront Park and the need to develop spatial planning principles to account for the protection, enhancement, conservation and sustainability of the built environment; the policies and mechanisms required to realise economic growth against the objectives set in the NW Economic Strategy, the Northern Way and RPG13; the implementation mechanisms and resources required to deliver a preferred spatial approach; and implications for neighbouring parts of the North West and Wales.
1.3 Key Policy Areas
1.31 Following consideration of the brief, it was agreed that the overall strategy should be developed specifically to address the identified strategic policy deficit in relation to:
• Economic development; • Housing and sustainable communities; and, • Coastal zone. 1.32 The specific policy areas of economic development, housing in sustainable communities, and the coastal zone were identified as those appropriate for City Region Spatial Strategy proposals reflecting the Objective One Programme and the relationship between Liverpool City Centre and the Strategic Investment Areas; the work of the Mersey Partnership including the Action Plan for the City Region which is currently being reviewed within the context of the Merseyside
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Economic Strategy and Action Plan; the NewHeartlands Housing Market Renewal Pathfinder and the need to develop policies to support this and ensure the reversal of low demand across the City Region; and the unique assets and regeneration potential of the coast with particular reference to the Mersey Waterfront Regional Park. 1.33 Whilst the Merseyside authorities (the core of the city region) continue to support the Spatial Development Framework of RPG13 with its intention that investment and development should be focussed first on the regional poles of Liverpool and Manchester and secondly across the North West Metropolitan Area ( which covers the whole of Merseyside with the exception of West Wirral), it was considered that significant sustainable growth can only be achieved with specific city region focussed policies. A specific area of concern with the existing Spatial Development Framework is the lack of attention given to deprived communities which exist outside the conurbation cores. 1.34 Accessibility and connectivity issues are not the subject of specific policy proposals as such, but across the three policy areas, these issues are incorporated as essential elements supporting regeneration and inclusivity. In fact accessibility into the City Region and within it is considered as a primary objective required to achieve growth both in terms of economic performance, but also social inclusion in an area where multiple deprivation remains a real challenge. In addition, in considering transport provision and infrastructure, further thought needs to be given to how these spatial priorities can assist in addressing climate change by reducing the need to travel, promoting car free developments and high quality public transport systems in existing accessible, high density urban locations to help support this key policy objective. 1.35 A series of policy options have been developed which, in accordance with the brief provided by the NWRA, incorporate the principles currently being developed in the emerging Northern Way initiative as well as wider Government initiatives such as the Communities Plan and the UK Sustainable Development Strategy and relate back to RPG13 as above. .
1.4 The Northern Way
1.41 This RSS City Region Strategy provides an overview of key spatial options and identification of a preferred option which will support the continued renaissance and economic growth of the city region as set out in the statement of intent document, ‘The Liverpool City Region – Contributing to the Northern Way’. This statement, which was launched at the Sustainable Communities Summit in January 2005, aims:
‘To help reduce the economic gap between the North of England and the rest of the UK by better deployment of our assets and removing barriers to growth. We aim for better opportunities for businesses to create wealth ad for all our citizens to contribute to and benefit from a higher standard of living and quality of life’. (Foreword, The Liverpool City Region – contributing to the Northern Way, January 2005)
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1.42 The Northern Way report was prepared by a working group comprising The Mersey Partnership, Merseyside Policy Unit, Liverpool City Council and the Local Authority districts of St Helens, Wirral, Knowsley, Sefton and Halton, Merseytravel, Greater Merseyside Learning and Skills council, with contributions from the Cheshire and Warrington Economic Alliance, the Mersey Dee Alliance, West Lancashire District Council, and the North West Development Agency.
1.43 The statement provides a list of prioritised actions which resulted from collaboration with the above organisations and more than a year’s project evaluation and is reiterated below: • the Mersey Gateway Bridge between Runcorn and Widnes to improve and modernise road access to the city region and serve the planned growth of industry and commerce including Liverpool John Lennon Airport; • the University of Liverpool partnering with seven other universities across the North of England for a range of projects in energy, biochemical manufacture and health; • infrastructure improvements at John Lennon Airport to cater for 9 million passengers by 2008; • improved access and a new £80million deep sea terminal at the Port of Liverpool; • improvements to the West Coast mainline, Trans-pennine routes and Lime Street Station and Gateway; • enhancing Daresbury Science and Research Park; • growing internationally significant bio-pharmaceutical, chemical, ICT, automotive and aerospace clusters; • driving up entrepreneurship, business productivity and skills levels; • employability measures to build economically sustainable communities; and, • thriving housing markets supporting a growing economy.
The following proposals aim to provide the spatial conditions necessary to facilitate the above action.
1.5 Defining the Liverpool Merseyside City Region
1.51 The Liverpool City Region comprises the Core City of Liverpool and the local authority areas of Sefton, Wirral, St Helens, Knowsley and Halton. It has a population of 1.5 million people, providing a central focus for a much wider area, illustrated by the following drive- time figures from Liverpool City Centre; • 30 minutes – 2.22m people • 60 minutes – 6.75m people • 90 minutes – 11.88m people
1.52 For the purposes of sub regional proposals in the RSS, the wider geography, part of which connects the Liverpool City region with Greater Manchester’s economic sphere of influence, must be taken into account. This includes the overlapping business and manufacturing centres and residential and travel to work areas of: Ellesmere Port and Neston, Deeside, Chester and Cheshire,
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West Lancashire, Warrington and North Wales. The following map sets out this geographical context.
Liverpool City Region and surrounding Local Authorities
1.6 Timetable
1.61 The brief requested an Interim Report by the 28th January 2005 which was provided (attached at Appendix 2). The Detailed Proposals are required by 8 March 2005; however, whilst this deadline will met to assist the NWRA in its development of the overall RSS, the covering letter with the Interim Report stressed that this will still be ‘work in progress’ which has been accepted by the NWRA, and further work will need to be undertaken as detailed in Section 3.
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1.7 Contributions and Political Endorsement
1.71 This report has been prepared by the six Merseyside authorities of Halton, Knowsley, Liverpool, Sefton, St Helens and Wirral with input from the wider city region area - the local authorities of Ellesmere Port and Neston, West Lancashire, Warrington, Chester, Cheshire and North Wales. In addition, the following agencies have been involved in the development of this document: The Mersey Partnership, Merseytravel, NewHeartlands, Liverpool Vision and the Association of Greater Manchester Authorities.
1.72 The detailed proposals have been endorsed (will be) by the Merseyside Chief Executives and Leaders Group. Each of the individual local authorities has also gained political endorsement of the principles contained within, if not this final version.
2. STRATEGY LINKAGES AND CONTEXT
2.1 There are, currently, a number of strategies are under development or review at both the North West and Merseyside levels, and the Liverpool City Region proposals have been and will continue to be developed with reference to these. The process for the development of the Northern Way Liverpool City Region Development Programme (CRDP) is key and the RSS proposals have been developed with the intention of implementing and providing for the spatial implications and requirements needed for the realisation of the actions identified in the Liverpool City Region Statement of Intent document.
2.2 Also at the City Region level, the Merseyside Economic Review 2005 (draft) has been taken into account in developing these proposals and arrangements for the development of the Merseyside Economic Strategy and update of the Action Plan are underway. The second Local Transport Plans for Merseyside and Halton are also under preparation and the input of transport officers has been essential in the development of this document to ensure that the sub- regional strategy supports and will be supported by the LTPs. Finally, the Merseyside Housing Market Renewal Pathfinder, NewHeartlands will be preparing its Scheme Update for submission to ODPM in Summer 2005 and policies concerning housing in sustainable communities will be of fundamental importance to the success of the Pathfinder.
2.3 At the North West level, the Regional Housing Strategy is currently under review and the Merseyside input will be developed supporting the Housing and Sustainable Communities section of this paper. Later this year, the Regional Economic Strategy will be reviewed which will be influenced by the City Region Development Programmes (to be developed by March 2005).
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3. LIMITATIONS AND AREAS FOR FUTHER WORK
3.1 This document should be considered as a working draft and as such many issues have been raised without all of their implications being fully worked through or resolved. The very short timescale to undertake this work has proved a severe constraint on developing robust options and prevented any additional research being undertaken which could provide a stronger evidence base. As such only two fairly straightforward options have been developed, which would have benefited from further refinement (had time allowed) particularly in relation to further analysing the polycentric nature of the city region.
3.2 In addition, it should be noted that ongoing research which would contribute to the evidence base and help in the formation of the policy options, such as the significant programme commissioned by NewHeartlands and being undertaken by ECOTECH will not be available until March 2005. In addition, in some areas firm policy direction cannot be given due to the uncertainty of the situation; for example, in relation to the status of specific development plans.
3.3 As such, throughout the Issues and Options sections (5 and 6), any areas where further work is needed to develop a firm position, are highlighted.
4. VISION AND OBJECTIVES
4.1 Spatial options relating to the areas of economy, housing and coast, have been developed with the intention of supporting the overall intention of growth as set out in the Liverpool City Region Statement of Intent document:
‘To help reduce the economic gap between the North of England and the rest of the UK by better deployment of our assets and removing barriers to growth. We aim for better opportunities for businesses to create wealth and for all our citizens to contribute to and benefit from a higher standard of living and quality of life’. (Foreword, The Liverpool City Region – contributing to the Northern Way, January 2005)
4.2 From this the following objectives have been developed for the specific policy areas with which the proposals are concerned:
(i) recognition that accessibility improvements underpin the sub-regional strategy and likely success of the intentions set out in the Liverpool City Region document
(ii) ensure that the link between accessibility and green infrastructure is prioritised to address social inclusion, improve image and promote the high quality environmental assets of the city region;
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(iii) the need to build on the potential of Liverpool as a core city and economic driver within its City Region
(iv) maximise the economic contribution of Liverpool City Centre with high- quality commercial sites and premises, an expanded modern retail core, a vibrant cultural, leisure and living offer and high-quality buildings and spaces;
(v) harness the strength of the universities by translating high-level knowledge into market-leading economic applications, using local research to attract international business and retaining increasing numbers of graduates developing careers in the sub-region;
(vi) develop clusters of market-leading businesses seeking competitive advantages through locating near similar businesses, but also a recognition that sector development is a programme that stimulates enterprise and growth beyond the physically close location of businesses;
(vii) maximise the contribution that the City Region’s unique tourism and leisure offer can make to regeneration, in particular, Liverpool’s status as 2008 European Capital of Culture;
(viii) support the sustainable expansion of Liverpool John Lennon Airport which enhances accessibility into the City Region via extended air links and thus harness the contribution of the Airport to economic growth and renaissance;
(ix) improve rail services to London and re-establish rail links to other core cities eg Glasgow, Edinburgh, Newcastle, Cardiff, Bristol, Southampton, Plymouth etc and improves links to other parts of the region
(x) transform the housing offer within the sub-region, involving levels of clearance and net new building which have not been seen for more than a generation, and which will: § promote population stabilisation across the city region, with Liverpool aspiring for growth; § provide a quality and diverse choice of housing, suitable to meet § the needs and aspirations of different sectors of the housing market; and, § support regeneration and economic success.
(xi) ensure that housing is provided in locations characterised by high environmental quality with access to services and facilities, transport, and education, recognising the importance of urban density for sustainable neighbourhoods; and,
(xii) within the coastal zone the natural environment will be safeguarded, enhanced and matched by a built environment of the highest quality, a vibrant maritime economy and world-class tourism and recreational facilities.
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5. POLICY ISSUES
5.1 The policy issues identified within this section are derived from the above stated Vision and Objectives, and are addressed within the three separate topic areas of economy, housing and sustainable communities and coastal zone. These policy issues are considered to cover the key drivers needed to support the intentions set out in the Liverpool City Region Statement of Intent. The spatial options, identified in section 6, will be appraised in relation to these issues.
5.2 Economy
The following economic policy areas are considered as the key sub-regional priorities required to deliver the Vision:
(i) Support the strategic role and growth of Liverpool John Lennon airport
The airport is a major asset for the region complementing the role of Manchester Airport. Its expansion benefits not only the city region but the North-West and North Wales
An Airport masterplan for the period up to 2030 is in preparation in accordance with the Aviation White paper which will set down infrastructure and access provisions required to increase capacity from 5 to 12 million passengers per year in accordance with the provisions of the aforementioned White Paper.
Infrastructure to support the growth will include: § Expansion to terminal facilities § Runway extension § A new eastern access road § Enhanced public transport links
(ii) Support the strategic role and future development of the Port(s) of Liverpool for freight and passenger traffic
Liverpool is the major northern port for value added goods transferred in containers and the main UK port for container traffic between the UK and North America and Ireland
Improving access to the port by road and rail is of vital importance to maintain its competitive advantage, including the Olive Mount Curve and Birkenhead docks rail links
Pursue linkages between the port and other freight related initiatives in the city region including Ditton Strategic Freight Park and Parkside Freight Village (iii) Support for the development of the New Mersey Gateway
The New Mersey Gateway – a new crossing of the Mersey between Runcorn and Widnes - is of strategic importance for the continuing performance and
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expansion of the City Region’s economy including Chester and Cheshire, and inter-connected economic activities in North Wales and the wider North West region.
The City Region’s inward investment success and status as European Capital of Culture 2008 mean that the volume of inbound passengers, both business and tourism related, is growing and will continue to do so. The proposed route for the new crossing attracts 90% of non-local traffic and will therefore have a significant impact on traffic flows across the North West and into North Wales, easing pressure on the Thelwall viaduct, and the increasingly congested M6. In addition, significant competitive benefits will accrue to both Liverpool John Airport and the Port of Liverpool through reduced journey times and strengthened catchment areas.
The New Mersey Gateway is of strategic importance to the growth of the Merseyside bio-tech sector, linking Daresbury Research Park with bio-tech and pharmaceutical companies in Speke and the university of Liverpool research centres at MerseyBio, Liverpool School of Tropical medicine and the Cancer Research Centre.
(iv) Continue the renaissance of Liverpool City Centre and other town centres within the city region
Liverpool City Centre is a regional economic driver and is increasing its profile as a major business centre for the wider city region including North Wales, West Cheshire and West Lancashire. Its development will include
§ Expansion of the core commercial district with new grade A office space;
§ Expansion of the retail core through the development of the Paradise Street Development Area;
§ Development of conference facilities (such as Kings Waterfront)
§ Development of visitor attractions and accommodation to expand the tourism offer building on Capital of Culture and World Heritage Site status
It is important for the City Region as a whole that the role and status of Liverpool city Centre as a regional centre is maintained and enhanced. It is home to an increasing number of jobs and investment and is quite clearly the major economic driver. Improving access into and throughout the City Centre will therefore also be of major importance.
It is recognised that town centres in the city region, such as St Helens, Bootle and Birkenhead need to continue their regeneration and improvement providing a complementary function to Liverpool City Centre, reflecting their individual character and location and meeting local needs. (Need to add para on Chester)
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Accommodation requirements arising from the relocation of development from higher cost areas (such as the possible relocation of the civil service) will be provided.
(v) Support the development of the employment base especially with regard to key clusters
The Mersey Partnership has identified nine sectors which will drive the continued growth of the economy. The growth of the sectors will be taken forward through partnership and collaborative initiatives including the universities addressing skills training, encouraging entrepreneurship, promotion as well as provision of sites and premises. There are clear spatial requirements in providing for the growth of these sectors.
High priority is attached to the City region developing its existing internationally significant knowledge economy to create a world class R&D and innovation base through Daresbury Science and Research Park, the Universities, National Bio-manufacturing Centre in Speke and Liverpool Science park. The associated spatial infrastructure will need to be provided.
The main opportunities for economic land development will be:
§ The eight Strategic Investment Areas (Liverpool City Centre, Atlantic Gateway, Huyton –Prescot SIA, Eastern Approaches, Gilmoss Kirkby, Speke Halewood, St Helens SIA,Wirral Waterfront SIA).These areas, identified as part of the Objective 1, programme incorporate most of the land development opportunities
§ Widnes Waterfront EDZ
§ Daresbury Science Park
§ Other NWDA designated strategic regional sites in the Regional Economic Strategy located within the city region ( Liverpool, 12 Quays; Knowsley, Kings Business Park ; Liverpool, The Estuary(Speke/Garston) ;Liverpool, University Edge ; Liverpool, Wavertree Technolgy Park ;St Helens, Former Parkside colliery ;Widnes ,Ditton ;Wirral, International Business Park )
§ Safeguarding existing (manufacturing?) operations and associated expansion requirements
Recognise the economic function of the rural areas and within the context of Green belt policy facilitate the positive contribution to the economy and in particular to tourism.
Acknowledge the economic and spatial impacts of areas outside the sub-region, particularly the economic drivers of Chester and Warrington and the importance of linkages between areas of opportunity and need.
In considering the wider city region as a whole, there are synergies which
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could benefit from further exploitation and development eg tourism and links between Liverpool and Chester, inward investment and links between Speke, Liverpool and Daresbury, Halton.
Recognise the regional importance of the potential Omega development in Warrington. Whilst this submission acknowledges the potential importance of this development, a final City Region view cannot be established until the status of Omega and its potential net contribution to the region’s economy is clear. The Inspectors Report on the Warrington UDP (due March 2005) will clarify the situation further.
Acknowledge importance of developments in adjoining areas such as Chester, Deeside, Ellesmere Port and West Lancashire (including Hooton Interchange)
Promote connectivity across the east - west Transpennine corridor and north/ south M6/WCML corridor
(vi) Promote the tourism potential of the city region with particular reference to the Capital of Culture, Chester and the coastal resorts
• Support the development of tourism infrastructure and the physical and promotional linkages between them
• Protection and enhancement of existing heritage
• Image building to improve perception of City Region nationally and internationally
• Ensure a strategic and integrated framework for the enhancement of major transport corridors through the city region as proposed in the New Approaches Study
• Support development of the creative business sectors
• Support the improvement and increase in leisure facilities
• Provide improvements to accessibility both within the city region and to external destinations
(vii) Recognise the role of the port and airport as key linkages in the North European Trade Axis (NETA) which extends across Ireland and Northern England to the Humber ports and across the North Sea to the Netherlands, North Germany and Poland. It aims to provide a counterweight to the overheated trade corridors through ports in the south of England
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(viii) Pursue improved rail and other public transport linkages between Merseyside and other city regions including:
§ Improvements to the West Coast main Line § Improving capacity and quality between Merseyside and Manchester including improved links between the two airports § Re-establishment of direct rail links to other core cities § Facilitate the development and construction of the Mersey Gateway between Runcorn and Widnes § Pursue through the Local Transport Plan a fully integrated public transport network,vital to supporting economic regeneration and ensuring access to jobs,training and social inclusion § Promote the development of The Mersey tram network
5.3 Housing in Sustainable Communities
5.31 The following Housing headings / issues are considered key to delivering the Vision for the Region as set down in the Liverpool City Region Statement of Intent. Spatially, housing development in the City region will impact differently on different areas with certain locations clearly the focus for new housing development and other locations remaining largely the same as present.
(i) Develop a housing offer which secures economic growth and population stabilization for the City Region with population growth in Liverpool
The primary objective for the city region is to transform the housing offer within the City Region, involving levels of clearance and net new building which have not been seen for more than a generation. This will mean pursuing a rate of housing development within priority areas for regeneration, which is significantly higher than that indicated by long term historical trends. It is envisaged that spatially, the distribution of housing development in the City region will be polycentric, with certain locations / districts planning for sustainable housing growth in order to stabilize population levels. These are likely to be Liverpool, Knowsley, St Helens and Halton. The remaining districts of Sefton and Wirral will focus housing development into key defined regeneration areas (mostly centred around the New Heartlands HMR Pathfinder) with the key objective of housing renewal rather than population growth per se.
(NB: NewHeartlands is working with ECOTECH to consider issues such as supply and the case for increasing existing housing provision figure within RSS. The results of this research will not be available until early summer, but it is hoped can influence the development of RSS at a later date).
Across the City region, there will be the objective of providing a quality housing offer and diversity of choice in order to meet the differing aspirations of each of districts. The release of housing land and housing development must be
13 ITEM NO.15a undertaken in the context of sustainable development principles and in a manner which does not undermine the Vision and agreed City Regional Housing regeneration priorities (plan, monitor and manage). Whilst in accordance with Government guidance there will be an emphasis on the development of brownfield land for housing, other sustainability factors may need to be taken into account, such as public transport service; access to jobs; shops and other community services; and the capacity of infrastructure.
(ii) Give highest priority to housing development which supports the regeneration of the New Heartlands HMR Pathfinder
Given the importance attached to this in the Northern Way and the Sustainable Communities Plan, and also its cross boundary nature, this is clearly a City regional priority. It is also a long term regeneration programme which will last throughout the RSS period.
In total, the NewHeartlands Pathfinder covers 123, 000 properties in some of Merseyside’s most disadvantaged communities in the inner core and is a holistic, locally-tailored approach to regenerating local neighbourhoods. It has to be noted that the Pathfinder area is of significant strategic importance for the City Region, as it surrounds Liverpool City Centre, and lies adjacent to the Atlantic Gateway SIA and Port of Liverpool in Bootle, Sefton and adjacent to the Wirral Waterfront SIA and Waterfront area.
A critical mass of attractive and vibrant neighbourhoods in the Pathfinder will make an important contribution to consolidating the renaissance of the sub- region by stemming the outflow of population and improving the attractiveness and variety of its housing offer to existing and potential residents. The importance of the Pathfinder initiative in turning round the specific neighbourhoods cannot be under-estimated and remains a funding and development investment both for the individual authorities involved and the sub-region as a whole.
(Issues of displacement and adjacency in relation to Housing Market Renewal and restraint policies are recognised as of key importance to the authorities within the city region. Within Merseyside a major programme of research is underway for the Pathfinder which incorporates these issues. Research findings should be available in March and will be passed to the NWRA).
(iii) Support significant intervention in other low demand housing areas
There are other locations across the City Region, which experience problems similar to that found in the NewHeartlands Pathfinder area, such as vacancies, poor environment, poor housing stock condition and a lack of quality community facilities. Such areas include the Eastern and Southern Fringes in Liverpool (Croxteth; Dovecot; Netherley; Speke and Garston); Kirkby and North Huyton in Knowsley; Castlefields in Halton; and some outlying areas in Wirral. These areas are identified in districts’ Housing Strategies as being in need of regeneration. A variety of ways are being implemented including
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demolitions and rebuild and stock transfer. In terms of new house building, these areas should also be a priority location, together with the provision of associated community facilities in order to secure renaissance.
The issues which need to be addressed outside pathfinder area vary from authority to authority and are identified in more detail in Appendix 1.
(iii) In certain areas, continue the policy of restraint to meet local circumstance
The need for restraint policies across the City Region is likely to continue to ensure that housing development is prioritised towards the Pathfinder and other areas of deprivation and low demand, and that RSS provision figures are not exceeded. A City Region approach needs to be developed to the use of such mechanisms. Further, Wirral Council seeks a review of the North West Metropolitan Area boundary to better reflect the need to protect areas of high environmental quality in the east as well as the west of the Borough, and to better focus regeneration resources to the NewHeartlands Area and other regeneration priorities.
(iv) Promoting Housing Choice through diversity of housing type
In certain parts of the City region, there will be need to provide a wider housing choice in order to diversify housing offer and thus retain and attract population. Whilst spatially the priority for the provision of new housing are those areas noted above, there will be instances where housing will need to provided outwith them. In these cases, housing should be built on clear sustainability principles.
At the top end of the market there is a growing need to meet the needs of new economic sectors. Economic growth at locations such as the City Centre, the Strategic Investment Areas in Sefton, Wirral, St Helens and Knowsley and the EDZ and Daresbury Science Park in Halton, is likely to generate a need for new high quality housing in easy commuting distance of these areas. In 2002, the North West Development Agency published the Mersey Belt study, which identifies a need for more high value housing in parts of Merseyside.
At the other end of the market, due to increasing prices, affordability is recognized as an emerging problem across the City-Region, which is currently realised in hotspots rather than as a general concern. St Helens notes affordability as an increasing problem and a growing issue of public concern. Due to rising concerns about house prices within West Wirral, Wirral Council will be undertaking a Housing Needs and Market Assessment in 2005, which may identify affordable housing needs across the Borough. Halton will also be undertaking a Housing Needs Survey in 2005 in order to establish whether an affordable housing policy is required. Knowsley Council commissioned a housing demand and need assessment in 2002 which identified a structural imbalance in the supply of affordable housing, with a significant surplus of
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stock in the former local authority (now Knowsley Housing Trust) sector and a shortage of owner occupied affordable property. Particular issues of unsustainably high housing demand and difficulties for the local population to afford property can be found in Southport in Sefton, particularly in relation to the employment, retention and accommodation of seasonal workers.
(v) Ensure that regeneration is of a holistic nature, with opportunities being sought to improve the environment of residential areas and their social infrastructure (schools, community facilities etc.).
In addition, the need to recognise urban density in relation to the need for a critical mass of local population to sustain local services and facilities.
Excellent schools, together with clean, safe and well managed neighbourhoods can act as anchors for strong and sustainable communities. Whilst the economic prosperity of Merseyside is increasing with major developments planned in Liverpool City Centre and elsewhere, the issues associated with multiple deprivation still continue to present a very real challenge. Sefton is the only authority in Merseyside not in the top 10 ranking of local authorities in the multiple deprivation indices, with Liverpool and Knowsley occupying 1 st and 3 rd positions (2001 Census).
Across the City-Region, the importance of neighbourhood management is rising up the agenda delivering integrated local packages of housing management, environmental services, regeneration and local employment projects ensuring every resident lives in a neighbourhood which is safe, clean and well managed. Whilst crime levels are low in comparison to other other city-regions across the country, the fear of crime remains high and new approaches to tackling crime and antisocial behaviour across the City Region are continually being employed. There is a specific need to consider design and the use of the Secured by Design standards to contribute to community safety.
Knowsley has obtained £¼ Billion investment to replace most of its schools and primary health facilities over the next eight years, and has large scale regeneration programmes in places such as North Huyton NDC and SRB initiatives to address the significant deprivation within the borough.
Halton Borough Council has approved the masterplan for the Castlefields Regeneration and a delivery team has been appointed to lead the £100m. development. The masterplan highlights a number of key principles including: movement, visual structure, character areas, public space, built form and social cohesion.
(vi) Ensure that new housing development takes place in sustainable and accessible locations.
In this regard, a high priority will be given to focussing new development onto brownfield sites (together with the re-use of existing buildings), although other
16 ITEM NO.15a sustainability factors will also be taken into account such as accessibility to jobs, shops, services and public transport to ensure that developments are not reliant on car ownership or car use, and the capacity of existing infrastructure, schools, health facilities etc.
(vii) Promoting environmental excellence and the green infrastructure agenda
Improving environmental performance is recognized as a key part of delivering sustainable communities. Green space and the quality of the local environment play an important part in the quality of life experienced by people within our most deprived neighbourhoods. Several of the Merseyside authorities have green flag status and increased commitment is being given to target environmental crime such as graffiti and fly tipping, including the use of neighbourhood wardens and environmental management.
Across Merseyside, all 6 authorities have increased recycling levels through the introduction of kerbside collection systems combined with awareness campaigns and social enterprise businesses are being supported to deliver these services making a truly sustainable initiative. Halton’s overall recycling performance at 18% has placed the Council in the top 25% of all local authorities in recent years.
The commitment to green infrastructure is of fundamental importance in a predominantly urbanised area which is emerging from many years of decline and environmental dereliction exemplified by initiatives such as the Mersey Forest, Newlands and the proposal for New Approaches. The substantial amount of environmental assets need to be recognised and exploited for their regeneration potential by:
(a) Ensuring that the Sub-regional Strategy and Local Development Documents will enhance, strengthen and link up new and existing urban and countryside greenspace
(b) Safeguarding and enhancing natural and historic assets, between, in and around the major communities
(c) Ensuring that at the local level, plans for growth (regeneration?) include the provision and maintenance of a network of high quality and diverse urban green space, incorporating and enhancing existing provision
(d) Ensuring that landscape character integrates urban form and sets a strategic environmental context for settlements that create a positive sense of place, provide environmental protection and enhance the quality of life for new and existing communities
(e) Providing a framework for management of the urban fringe to meet the needs of both rural and urban communities, strengthening the links between them
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(f) The management of Green Infrastructure is critical to its effectiveness and must be carefully considered and adequately resourced from the outset.
5.4 Coastal Zone
5.41 Overview
The coastal zone is arguably the City Region's greatest natural asset and the River Mersey is home to one of the most famous waterfronts in the world. The coast makes a substantial contribution to the quality of life of the City Region’s residents. There are a number of key defining characteristics for the coastal zone, including:
• The Liverpool Waterfront centred around the Pier Head, now granted UNESCO World Heritage Site Status;
• The location and impetus for many of Merseyside’s key regeneration projects;
• Major Port and maritime industry facilities;
• The coastal resorts of Southport, New Brighton, Hoylake and West Kirby.
• Extensive waterfront residential areas on Wirral, Liverpool and Sefton Coastlines; and,
• The areas of open coast and natural shoreline on parts of the Mersey Estuary, the Liverpool, Sefton, North Wirral and Dee Coasts, substantial parts of which are of international nature conservation importance and are also a significant recreational resource for the City Region.
The Mersey and Dee Coast waterfronts are of acknowledged regeneration importance and remains a key focus for activity through projects such as Kings Dock and the proposed cruise liner facility. Elsewhere regeneration opportunities range from individual locations such as the former Garden Festival site, to the coastal resorts of Southport, New Brighton, Hoylake and West Kirby. There remain significant challenges, for example in finding new uses for redundant port and maritime buildings, facilities and waterspaces whilst continuing to retain key maritime and port infrastructure. In recognition of the unique role and importance of the waterfront, the Mersey Waterfront Regional Park has been established with key objectives to increase economic activity associated with the waterfront, enhance support for the maritime sector, improve the waterfront environment and its management, and increase the number of visitors to the city region.
The Port of Liverpool remains the premier port for the North-West complemented by port activity upstream on the Mersey at Garston and the lower reaches of the Manchester Ship Canal. The existing and potential growth in the port industry must be supported by improved road and rail access, on
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both sides of the Mersey Estuary. In addition the potential growth of shipping and particularly the off-shore energy industry in Liverpool Bay needs to be accommodated, and existing operational port areas safeguarded. The wider Maritime sector within Merseyside encompasses in excess of 500 businesses, employing 6000 people, with a turnover of £1.3 billion per annum. The key task in this sector is to expand the value chain from goods in transit through logistics and distribution to manufacturing.
The areas of open coast and natural shoreline make an important contribution to the overall environmental quality and character of the coastal zone, particularly on parts of the upper Mersey, the Sefton, North Wirral and Dee Coasts. It is also a significant recreational resource for the city region, encompassing championship standard golf courses and extensive networks of footpaths, promenades, cycleways parks and open spaces. Substantial parts of the coast are host to a range of valuable coast and estuarine habitats, many of which are of international nature conservation importance. Effective safeguarding and enhancement of these assets is essential. The macrotidal nature of the Mersey and Dee Estuaries means that the coastline can be subject to extreme tide levels under storm conditions. Shoreline management plans are being developed for the Sefton and Wirral coastlines. Current information on climate change indicates that planning for coastal protection must be a key priority in spatial planning for the sub-region. In view of the importance to Merseyside and the region of the major seaways into the Mersey Ports, spatial planning of the marine areas, particularly Liverpool Bay is of increasing concern.
5.42 Key Issues for the Coastal Zone in the Liverpool City-Region
The Merseyside Authorities see the Coastal Zone as being at the heart of the regeneration of the Merseyside city region. Within the coastal zone the natural environment will be safeguarded, enhanced and matched by a built environment of the highest quality, a vibrant maritime economy and world-class tourism and recreational facilities.
The Merseyside Authorities are looking for coastal zone policy to deliver the following objectives:
• Continued support for the retention of coastal zones (highlighting developed and undeveloped coast) within Development Plans, defined on the basis of common principles
• continued support for the regeneration of the Merseyside waterfronts and coastal resorts;
• safeguarding and enhancing the quality of the historic and contemporary built environment;
• promotion of sustainable new development and re-use of redundant buildings, sites and water-spaces, where the original use is no longer viable;
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• development and maintenance of a high-quality public realm;
• ensuring sustainable access to and along the coast for all;
• support for the Mersey Waterfront Regional Park;
• recognition of the port of Liverpool and the associated maritime industrial sector as a key driver of the Merseyside economy, with support for its future sustainable growth and expansion;
• acknowledgement of the international nature conservation importance of much of the city region’s coast, with support for on-going management and enhancement of its contribution to the biodiversity of the region;
The Mersey Waterfront Regional Park is currently the most fundamental player in delivering the above and constitutes a unique partnership for the City Region.
(i) Preferred Spatial Planning policy options for Waterfront Regeneration
• Quality of the built environment in the coastal zone: adoption/acknowledgement of tall buildings/strategic views/World Heritage Site Management Plan principles. Recognition and where appropriate safeguarding of water spaces and waterways as an important regeneration resource
• Identification of coastal regeneration priority areas, which will be a particular focus for Regeneration Activity, and where some development that does not require a coastal location may be needed as part of a comprehensive approach in order to secure regeneration
• For coastal resorts, encourage development and restructuring where it will help diversify local economies and promote regeneration, by; - developing tourism roles which reflect local heritage and character and - addressing issues of environmental decline.
• Ensure development supports the regeneration objectives of the Mersey Waterfront Regional Park Programme
(ii) Preferred Spatial Planning Policy Options for Mersey Waterfront Regional Park
• Show Indicative boundary for Mersey Waterfront on Key Diagram
• Ensure Greater Merseyside development plan policies support the objectives of Mersey waterfront
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(iii) Preferred Spatial Planning Priorities for the Port and Maritime Sector
• Acknowledgement of the National and Regional role of the Merseyside ports and the associated maritime sector
• Support for future sustainable expansion of the port, subject to environmental safeguards and ensuring that existing dock resources are fully utilised
• Support for essential related support infrastructure – including ship repair facilities, road and rail links and protection of strategically important seaways in Liverpool Bay
• Support for provision of sites and premises to expand the value chain of port- related goods transfer
(iv) Preferred Spatial Planning Policy Options for Environmental Quality in the Coastal Zone
• Achieve a net gain in environmental quality in the coastal zone through the protection, creation and enhancement of environmental resources, routes and assets, including, urban, regional and country parks, informal and formal sports facilities, woodlands and community forests, trails, bridleways and cycleways, canals and waterways, historic sites and natural and semi-natural habitats.
• Protect existing assets from inappropriate development that would harm their amenity or nature conservation/biodiversity value and compensating for unavoidable damage to existing assets.
• Support Mersey Waterfront Park objectives for improving the waterfront environment and its natural assets, including programmes of education and interpretation, and higher standards of management.
(v) Preferred Spatial Planning Policy option for coast protection in the coastal zone • Ensure consideration of climate change and coast protection issues, in particular the provisions of relevant shoreline management plans, are taken into account in local development plans
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6. SPATIAL OPTIONS AND PREFERRED OPTION
6.1 Due to the limitations noted in section 3, the options analysed have been restricted to two. As previously noted, if time allowed these would benefit from further refinement particularly in relation to considering the issue of the polycentricity of the city region and the focus on the core city of Liverpool.
6.2 The options are identified as follows: Option 1 – no change in regional policy, ie continuation of RPG13 Option 2 – sustainable economic growth, ie economic growth as envisaged in the Liverpool City Region Statement of Intent which also links needs to opportunities and promotes environmental quality.
6.3 These options are now analysed in further detail, but it must be recognised that this is a broadbrush, qualitative analysis lacking a robust evidence base and using some untested assumptions.
6.4 Option1
Option 1 is the status quo option and based on the continuation of the Core Development Principles, Spatial Development Framework and associated policies in RPG13.
Whilst it has been previously noted, that the City Region is generally in support of the existing Spatial Development Framework, it could inhibit future growth on the following counts:
• Outdated population and economic forecasts which are based on moderate levels of economic growth and assumes continued population decline. This is compared with the recent economic growth of the city region exceeding all expectations, recent developments such as Liverpool European Capital of Culture and other major developments in the city such as the Paradise Street Development Areas, success of the Port, expansion of John Lennon Airport and potential contribution of the Mersey Gateway. Recent ONS population data and forecasts also indicate that population loss has stabilised with Liverpool’s population starting to increase.
• housing provision figures being exceeded across the City Region thus requiring restraint measures in some districts which may have a detrimental effect on regeneration in certain districts;
• RPG13 gives priority to development within Liverpool City Centre and its adjacent inner city areas, but does not recognise the very real problems of deprivation elsewhere. Whilst the focus of development on the regional poles is accepted and should be supported, there are real challenges elsewhere such
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as North Huyton, Knowsley which are not being helped by the current RPG policies;
• RPG13 does not recognise the economic and social inclusion contribution made by the Objective One Strategic Investment Areas which are spread across the 5 Merseyside authorities. Whilst the level of EU support is likely to change post 2006, those areas will remain of strategic significance to both economic prosperity and social inclusion.
Overall, it is considered that certain policies could be strengthened or amended to support the city region’s potential economic growth and meet the needs of its deprived communities and as such this Option is not recommended.
6.2 Option 2
This option involves continuing to promote the regional pole role of Liverpool, but also recognising the importance of other areas that contribute to economic growth such as the Strategic Investment Areas and the overall polycentricity of the city region. Policies need to be developed which encourage complementary roles for centres and linkages between them eg heritage tourism assets of Liverpool and Chester
In addition this option recognises the needs to link need with opportunities, to prioritise accessibility between areas of multiple deprivation and jobs and promote environmental excellence and green infrastructure.
This option would support the objectives and priorities identified in the previous section enabling the City Region’s continued economic prosperity in a sustainable manner, which also respects the needs of local communities and highlights the role of environmental assets.
This is the preferred option for the Liverpool City Region.
7. IMPLEMENTATION MECHANISMS AND REQUIRED RESOURCES
To be added
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