A Strategic Masterplan for Penrith

Context and key drivers 02 16

2.1/ Current policy objectives

The strategic masterplan Strategies and policies operative at Key issues and objectives in respect of • Eden District Council Strategic acknowledges and responds to a national, regional and local scale will these policy drivers are identified in the Housing Land Availability Assessment wide range of contextual factors continue to shape development and following key documents, which (2009) (SHLAA) regeneration activity in and around developers are urged to research when • Eden District Council Five Year Supply that represent both constraints to Penrith. The strategic masterplan is preparing proposals. of Deliverable Land (SHLAA Update) and opportunities for growth and based on a clear understanding of (2010) development. Planning for these, demonstrating strategic alignment • Local Investment Plan for Cumbria • Annual Monitoring Data 2009-2010 significant scale of change and a holistic approach to sustainable 2010 / 2011(Cumbria Coordination – Eden District Council (2010) demands that a wide range of development. Group/Homes and Communities • Cumbria Housing Strategy 2006/2011 existing and potential issues be Agency 2010) • Strategic Housing Market Key objectives fall under the following • Eden District Council adopted Core Assessment: Eden Valley North appreciated, and that appropriate broad policy drivers, as explored over Strategy DPD (2010) Housing Market Area – Cumbria response to these be embedded in the following pages; • Eden District Council Housing Sub-Regional Housing Group (2009) the plan. Development Plan Document: Issues (SHMA) • Housing, Housing Need and and Options Paper (2007), and • Penrith Housing Study – Penrith Extensive baseline research has Affordability Housing Development Plan Document: Partnership (2006) been produced to identify the key • Regeneration and Economic Issues and Options, Alternative Sites • The Penrith Masterplan – Penrith Development Consultation (2008) Partnership (2007) drivers behind the plan. These are • Employment Land Study – Eden summarised as; District Council (2009)

2.1 Current policy objectives 2.2 Property market trends 2.3 Quality of place 2.4 Environmental constraints 2.5 Movement and transport A strategic masterplan for 02 Penrith / Context and key drivers / 17

2.1.1/ Housing, Housing Need and Council’s Core Strategy (CS), and development on greenfield sites around base on the County’s housing market. Affordability reflects EDC’s commitment to the Penrith. While both the SHLAA and Key concerns and issues arising housing target numbers set out in the Housing DPD issues and options papers - identified in the LIP – include the The Local Investment Plan (LIP) for now revoked RSS. Policy CS2 – suggest that sufficient housing land growth in house prices by 90 percent Cumbria is based on the vision of; Locational Strategy states that Penrith is would be available, a key challenge is seen in the period 2002-2007 (prices in the Key Service Centre for Eden and will the rate of delivery, as past completion Eden and South Lakeland are amongst “Building on the county’s be the focus for large scale rates have not achieved 164 dwellings/ the highest in the North West of attractiveness as a place to live, work development, town centre regeneration, pa. England). High prices combined with low and visit; the delivery of a range of new housing and strategic employment Indeed, other studies suggest that even incomes produce unbalanced house innovative and sustainable projects sites. Accordingly, Penrith is set to higher targets are required, notably the price to income ratios, and severe will secure a better quality of life for accommodate 60 percent of Eden’s total SHMA which indicates an average affordability problems. current and future generations. housing growth through to 2025. This annual requirement for 337 market-led Cumbria will work towards balanced equates to a need to provide 2600 new dwellings/pa and 83 affordable The SHMA reiterates the affordability housing markets which support the homes in Penrith within the plan period, dwellings/pa. The SHMA suggests an gap - house prices being recorded at social and economic changes that the at a rate of 164 dwellings/pa. additional 844 market-led properties seven times median income and nine county will undergo over the next (182 affordable properties) are also times lower quartile income in 2007, and twenty years.” Policy CS10 Affordable Housing sets a needed to address previous shortfalls. entry level properties are £43,000 more minimum target of 92 new affordable expensive in Eden Valley North than The LIP identifies that Cumbria needs dwellings/pa, requiring 30 percent of Affordable housing is a major issue in County averages. an increased supply of high quality open homes on each new development be Eden. As one of four sub-regional Vision market and affordable housing to attract affordable. This is seen as comprising Boards ‘Eden and South Lakeland 2.1.2/ Regeneration and Economic and retain those with the skills to 83:17 split between social rented Forward’ has developed a strategic Development support economic growth. housing and intermediate designation. programme of investment, a key theme The Core Strategy, reflecting the Local occupancy clauses should be of which is the provision of Affordable Housing need is embedded in the attached to affordable homes. Housing on the basis of a recognised shortage. The Cumbria Housing The CS accepts that meeting these Executive Group has a strong evidence targets will require significant 18

district-wide Employment Land Study, three major road routes (M6/A66/A6) development of the town including its together more effectively and the principle of 60 percent of and its access to the West Coast adjacent attractions and amenities. The • Promotion of well designed and development being directed to Penrith, mainline railway. Masterplan sets out a “preferred spatial compatible new development on key promotes a target of 30 hectares of land approach” to town centre development sites supply provision through to 2025. The distribution and logistics industry and intends to provide the context for However, there is limited scope as to sector is therefore very important to the the preparation of more detailed The Masterplan includes development where such supply could be delivered in local economy, as is public sector development briefs. briefs for four key Town Centre areas. Penrith and thus Eden Business Park is employment associated with health and One of these is Ullswater Road. The seen as critical to meeting the target. emergency services; education and The Masterplan finds that Penrith has a Masterplan notes that the west side of public agencies. strong identity as a historic market town Ullswater Road is an established Penrith’s role as an employment centre and rural service centre, offering a mixed-use area. Priority should be given reflects two particular aspects. Firstly its There is policy support for the growth of range of independent businesses and to improving the quality of the buildings function as a key service centre for a the University of Cumbria’s site at facilities for residents and visitors. and creating higher value business, wide rural hinterland. Secondly, its Newton Rigg, including the development Future challenges include; leisure or service uses in this area. Poor geographic location at the intersection of of complementary uses and the growth quality industrial or open storage uses of knowledge based industries. Retail • The movement of the town’s ‘centre of should be discouraged. developments, appropriate to Penrith’s gravity’ to the south as the New role as the dominant retail centre of the Squares development is brought District will also be supported. forward • The need for mixed-use investment in The Penrith Masterplan (2007) the north to counteract this • Increased diversity and quality of The Penrith Masterplan was produced better paid employment opportunities as an initiative by the Penrith • Encouragement of independent Partnership to provide a robust but businesses to collaborate and work flexible blueprint for the future

Right: View south across the town showing Penrith and Gilwily industrial estates A strategic masterplan for 02 Penrith / Context and key drivers / 19 20

2.2/ Property market trends

Marketing intelligence has been population, economic activity, properties. Demand is from local first gathered regarding supply, demand, educational attainment, deprivation and time buyers, people moving up the Stakeholder discussions suggest there need, and market drivers. This has commuting. property ladder and older people may be a challenge of the identified sites included discussion with twenty four wishing to downsize. The demand for delivering the capacity figures suggested regional and local stakeholders, many of These statistics have been compared flats is considered to be low, although by the SHLAA and Economic Viability whom have been consulted via face-to- with district-wide, regional and national some new build apartment schemes Assessment. This is illustrated at face meetings. figures to enable fuller comparison report reasonable rates of sale. Carleton Fields (option area 4) where (although many ward level indicators are the SHLAA suggests potential for in This has included consultation with only available from the 2001 Census). The demand for affordable housing is excess of 800 units, but developer Cumbria Vision about the Local The population of Penrith for the well documented and reflected in policy interests estimate that the number is Investment Plan, along with many of the purposes of this analysis is 14,710. objectives, however a further nuance in likely to be far less (possibly over 25% Housing Market Partnership members the local market is the difference less) on the basis of site feasibility including four private housebuilders and 2.2.1/ The market: housing between values in different parts of the studies. Housebuilder aspirations four housing associations. The house town. In short, there is a differential in generally seem geared towards lower builders include those with proposed In overall terms there is good demand, values between north and east Penrith; density schemes, and a low level of schemes in Penrith as well as others and private housebuilders and Housing estimated to be around 10 percent for annual delivery. who see the town as a new investment Associations alike are confident about comparable 3-bedroom semi-detached opportunity. Eleven property agents Penrith as an investment location. All of properties. The average price for such a Also, whilst the principle of 30 percent have been consulted about the local the eight housebuilders / Housing property in the east of the town is - at affordable housing (as required under housing, employment, retail and leisure Associations contacted either have the time of study - around £200,000. CS Policy CS10) is generally accepted, markets. Details of individual current proposals for the town, or would concerns are that the 83:17 split in consultations are included in the wish to develop properties in the future. The town also has a strong rental favour of social rented housing could baseline documents. market, driven by affordability issues. impact negatively on development. This Demand is however seen as being very Again requirements are for family relates to the perceptions of open Market research has been balanced much local – first time buyers; people properties (houses and flats), from local market buyers, impact on development against socio-economic review: a range moving up the property ladder; older people. In terms of housing need, this values and concerns about registered of indicators have been identified that people wishing to downsize. Property overwhelmingly relates to family homes. providers lacking funds to purchase the illustrate the characteristics of Penrith’s sector stakeholders outline that the main The current housing waiting list is affordable housing element. Developer population and property market. These housing demand is for two/three-bed understood to extend to over 1200 preference is therefore for discounted cover the demographics of the terraces, semi-detached or bungalow applications. sales tied to deeds and local A strategic masterplan for 02 Penrith / Context and key drivers / 21

purchasers. (including incubation space of <50sqm). Retail capacity growth exists. Capacity Inward investment has ceased in the studies, which address the period to 2.2.2/ The market: employment and current recession and it is not clear if 2021 show a need for a further 20,000 commercial space demand from larger firms and the public sqm of comparison goods. The greater sector will resume in the future. The share is for bulky goods that maybe The supply of industrial premises is present supply of industrial and office difficult to accommodate in the Town focused at Gilwilly and Penrith Industrial space is meeting demand, and land at Centre, and Penrith Retail Park (a 4124 Estates, as well as Skirsgill Business Eden Business Park is expected to meet sqm retail warehouse proposal for Park. Offices are also available in these future needs. Ullswater Road) could meet some of this schemes, with good quality suites demand. Demand for convenience retail available at Redhills and Penrith 40 The current available land supply is 2.83 will be met by the Penrith New Squares Business Parks. There is a reasonable ha, which comprises serviced plots at scheme. Penrith also has a strong local supply of available units, in a range of Eden and North Lakes Business Parks. leisure offer, with no obvious gaps in the sizes, including some warehouse Other land at Eden Business Park market. properties. Phase I has been sold, but development delayed by the concerns of individual The quality of office and industrial space owners. Extensive land could be made is generally moderate and most available at Eden Business Park Phase schemes are well occupied. There does II (Option Area 6 / Parcel 65) subject to not seem to be an issue with a surplus the outcomes of this strategic of low quality space. masterplan and ability to mitigate environmental impact. Demand is for industrial units of up to 300sqm and offices of up to 200sqm 22

Penrith Context

Key M6 A7 A69 Motorways Brampton A Roads A689 Main Roads

Rail Carlisle 43 2.3/

Quality of Place 42 North Pennines

Quality of place is determined through a historic market town number of physical and environmental A595 factors, and includes both tangible, 2.3.1/ Landscape character and evident features (that represent specific protection assets or weaknesses) and intangible, M6 subtle qualities that are more difficult to Penrith sits within and is surrounded by define (but contribute or detract from the superb high quality countryside. To the River ‘sense of place’ – the experience of east lies the North Pennines Area of Eden being in and moving around an area). Outstanding Natural Beauty, to the south are the fells of the Yorkshire Dales Penrith is the largest town in Eden, and National Park and to the west is the 41 performs the role of a sub-regional Lake District National Park. Penrith centre for rural communities throughout River Eamont mid and eastern Cumbria. It is also Penrith is generally noted for being well 40 West Coast Main Line accessible to Pennine communities contained within its landscape setting. located in west County Durham and Some key strengths and weaknesses of A66 Keswick this landscape setting (relating south west Northumberland. West Cumbria specifically to issues of development, River The town is situated at Junctions 40 and the growth of Penrith urban area and the Lowther 41 of the M6, and marks its junction character of new development) are Ullswater point with the A66. This position on summarised over page. strategic, historic routes has been Strengths central to the rationale for its • Typically an open, expansive rolling development and growth, from Roman landscape, with rugged peaks forming 39 military post to traditional rural market Lake District town. Although now functioning as a National Park modern town centre, with its historic N M6 shop fronts and human scaled, distinctive red sandstone buildings, Right: Plan illustrating sub-regional context Penrith retains the atmosphere of a Opposite page: View towards Beacon Hill from 0km 5km 10km Mayburgh Henge within the Eamont Valley A strategic masterplan for 02 Penrith / Context and key drivers / 23

dramatic horizons Weaknesses • Existing residential development • The M6 and West Coast Mainline rail • Varying topography providing interest towards the edge of Penrith generally corridor create prominent artificial • Intensive farming and large field and offering spectacular long distance lacks distinctiveness and is not as elements in the landscape and present structures mean that vegetated views from high ground responsive to natural features (e.g. a hard physical edge to the urban area boundaries are limited and edge of • A layered and varied character heavily topography) as older developments (and physical and psychological settlement locations are generally influenced by agriculture closer to the centre (e.g. the New barriers to east-west movement) exposed (although topography aids • Strong visual connection between Streets area) Policy CS16 of the Core Strategy visual screening in some locations) urban area and surrounding • Large scale commercial buildings, (Principles for the Natural Environment) • There is a relatively low provision of landscape, particularly Beacon Hill structures and emissions clustered in states that development should accord footpaths, bridleways and green and the river valleys of the Eamont Penrith’s industrial estates are visible with the principles of protection and corridors, pointing towards a need to and Lowther from higher ground e.g. Beacon Edge enhancement of the natural expand the network environment, including landscape, 24

biodiversity and geodiversity and Policy E37 Landscape Character of the These principles must help drive the Assessment (Cumbria County Council especially those areas designated as saved Cumbria and Lake District Joint sustainable and integrated expansion of 2010) (CLCA). being of international, national and local Structure Plan 2006 states that Penrith. importance. Development should be compatible with The CLCA recognises the sandstone the distinctive characteristics and Beacon Hill is a defining feature of ridge as a large scale, open landscape To further protect the natural features of Cumbria’s landscape types Penrith and forms a defining visual with a mixture of open and rough areas. environment within the District as a and sub types. This will include backdrop to the town within views from A key characteristic is the expansive, whole, Policy CS16 states that the consideration for (inter alia) locally the west and south. Beacon Hill is a uninterrupted long distance views (in relationship between development and distinctive natural or built features, visual highly distinctive element in the area’s part over the Petteril valley – stretching the natural environment will be managed intrusion or impact, scale in relation to wider landscape character, forming part from the north of Penrith to Carlisle) both to minimise the risk of environmental the landscape and features, the of the ‘Sandstone Ridge’ (landscape toward and away from the Lake District damage, and development should reflect character of the built environment, category 10) which runs north from and the Eden Valley, towards the North and where possible enhance local historic patterns and attributes, and Penrith breaking off into a series of hills Pennines. The ridge is particularly landscape character. biodiversity features, ecological north of Lazonby as defined by the prominent from the M6 and West Coast networks and semi-natural habitats. Cumbria Landscape Character Mainline rail corridor to the west from A strategic masterplan for 02 Penrith / Context and key drivers / 25

where it provides a distinctive skyline. character and provides guidance on The CLCA recommends that inter alia access and recreation, natural development should be avoided in and cultural features and development. 1 exposed skyline locations and ensure A summary review of the CLCA and how 3 developments respect the ridgeline. it relates to Penrith is appended. 2 2.3.4/ Historic Development: parcel 65 The CLCA illustrates how Penrith forms Origins of Place the junction point of four landscape character areas – in addition to the Penrith’s rich and varied history 4 distinctive ‘Sandstone Ridge’, underpins its unique sense of place and ‘Intermediate Farmland’, ‘Broad Valleys’ distinguishing characteristics. Ancient and ‘Rolling Fringe’ come together and sites around Eamont, at Mayburgh merge at this location. Henge and King Arthur’s Round Table, 5 indicate prehistoric occupation, whilst The CLCA describes each landscape the town is well known for its Roman

Left (extending to opposite page): Penrith from the west, with the Sandstone Ridge of Beacon Hill forming a distinctive and spectacular backdrop

Top: Plan of landscape character areas defined in the CLCA, in the context of the 6 original urban extension Option Area sites 26

2.3.2/ Topography A prominent feature of the town is its to east of the lowest lying land on the Beacon Edge and marking the transition containment within the shallow valley ‘foothills’ of Beacon Hill, free from flood in landscape character to Sandstone Landscape character is inextricably that sits below Beacon Hill, set out risk, whilst industrial development Ridge. The 150m contour to the west linked with geology and topography. The around Thacka Beck - its original water occupies the valley floor. signifies the start of the shallow rise in natural topography of the area, dictated source - and sitting just north of the ground levels out of the valley, which by river valleys and ridges, has River Eamont at its confluence with the The 185m contour to the east has continues west across the ‘Rolling fundamentally shaped the growth of Lowther. The majority of 20th century historically provided a definitive edge to Fringe’ landscape character area. This Penrith and will continue to do so. residential development has taken place the urban area, roughly following broadly defines the urban edge to the A strategic masterplan for 02 Penrith / Context and key drivers / 27

west (although this is also heavily the site 1 sits above the 185m contour in Site 5 is bisected by the 130m contour influenced by the artificial boundary the Sandstone Ridge. which marks a significant transition from imposed by the M6). a flat site (to the west of it) and a steeply Site 3 contains a dramatic level change sloping site (to the east of it), as the All of the option area locations are within its boundary that increases its ground falls away towards the River subject to topographical variation. Sites exposure to views from the west. This Eamont and becomes visually exposed. 1 and 4 have perhaps the least dramatic could impact development feasibility Below: Option Area 3 sloping down level changes, although it is significant and/or achievable densities. towards the A6 28

2.3.3/ Visual analysis

The Council has undertaken a Landscape and Visual Impact Assessment (LVIA) of the development Option Areas identified through SHLAA and LDF processes. This is referenced further in section 4, and a summary review is appended.

The diagrams to the right and opposite expand on the findings of the LVIA to provide a more general illustration of how wider landscape character and topographic characteristics combine to dictate the visual characteristics of the option area sites. Left: Visual analysis - option areas to the north To the north, topography (elevation and of Penrith slope) presents a risk to the established Bottom: Long distance view towards Penrith Visual Analysis from the west @ Tirrel, on the border of the Lake balance of urban form to natural North District National Park landscape, and in particular the current relationship between urban area and Beacon Hill / Sandstone Ridge. This is mainly with regards to longer distance views, where the unique setting of Penrith is most appreciated (and where the visual impact of development will be appreciated most significantly).

To the east, the option areas generally A strategic masterplan for 02 Penrith / Context and key drivers / 29

occupy a less dramatic topography. This, and the lower elevation, means that impact of development on landscape and visual impact is in general terms likely to be more localised. With site 4 lying at the same level to existing residential development adjacent, much of it is sheltered from the longer distance views from the west and south (although its edges are exposed).

The eastern / south-eastern half of site 5 (broadly defined by the 130m contour) is prominent to views looking out from within the Eamont Valley and in particular Brougham Castle, and impact on these features of acknowledged Left: Visual analysis - option areas to the east of importance will need to be controlled. Penrith Bottom: View from the south east illustrating the visually prominent ridge to the east of Option Visual Analysis Area site 5 (Hunter Hall School shown to the East right) 30

settlement – based on advantageous east-west highway links. Locally, the N Penrith Growth

transport routes forts were constructed historically important junction of Inglewood Rd Green Lane Key at the site of Brougham Castle (the Castlegate and Middlegate at St Penrith 1898 Development confluence of Rivers Eamont and Andrew’s Church was reaffirmed as the M6 Penrith 2010 Development Railway

Lowther) linked to another about 10km natural centre of the town – the market Station to the north. These marked the junction square. Roman Road Major Road Network point of roads running south-north (to Carlisle), east (over the Pennines to In the mid-late 19th Century Penrith Beacon Edge York) and west (to Ambleside). The started to expand out from its medieval Scotland Rd course of a Roman road runs through core of tight, narrow streets and modest Stricklandgate the northern and eastern part of the terraced buildings. Grander residential d R k ic sw n town (eventually meeting the A6 at streets started to extend out to the east, ru Penrith B at e tleg as Plumpton Head, via Inglewood Road. towards Beacon Hill (now forming the Norfolk Rd C

‘Penrith New Streets’ Conservation H a Greystoke Rd w e

s w a During the 9th and 10th centuries, Area) reflecting the healthy socio- te r R Bridge Ln Penrith was the capital of Cumbria, at economic circumstances of the town at d Ullswater Rd the time a semi-independent state part that time. A66 of the Strathclyde region of Scotland. Penrith Castle and the distinctive narrow These extending residential areas are streets and passageways are remnants prominent features of 1898 Ordnance 5 min M6 A66 of defence against border raids. Survey mapping and are also picked up 0m 200m 400m Brougham Castle was constructed by in mid-19th century map extracts. The the Normans. latter (see opposite) reveals how the which has only ever incorporated a small extents of the town, local references to distinctive linearity of the ‘New Streets’ number of crossing points ‘Carleton Village’ persist, giving it Post industrial development of Penrith was shaped by historic field systems / distinction and sense of place. focused around transport connections. land ownership in linear arrangements Finally, historic mapping also illustrates Strategically, growth was driven by the running perpendicular to the slope of how Carleton was originally a distinct arrival of the railway in the 1840s and Beacon Hill. It is also evident how the and separate settlement to the the town’s continued importance at the outward expansion of the settlement has southeast of Penrith. Although now junction of key north-south and historically been curtailed by the railway agglomerated within the suburban – a physical and psychological barrier A strategic masterplan for 02 Penrith / Context and key drivers / 31

Far left (top): Sketch plan illustrating areas of 20th century growth Above: Historic mapping extract, circa 1850 Right: A street elevation within the distinctive, high quality ‘New Streets’ 32

2.3.5/ Urban structure Land use patterns This land use structure can be perceived restricted by the artificial boundaries of as a concentric pattern extending out the West Coast Mainline and M6 Penrith’s location, relationship with its Land use patterns affect physical form from the core. Residential areas - which motorway. landscape setting and historic and appreciation of a place. Penrith has progress from a diverse inner band (the development patterns combine to create a distinctive split in prevailing land use historic development locations) to a As edge of settlement sites, the an idiosyncratic urban structure. This - residential to the north, south and east, more conventional late 20th Century identified growth locations mainly ‘plug shapes the experience of being in and and employment to the west, set around suburban form - are generally shaped by into’ the outer residential band of typical moving through the town, and a central mixed use core. This mixed topography, located on the gentle slopes 20th century suburban development and fundamentally dictates the sense of use character extends to some extent below Beacon Hill and away from the are physically separated from the mixed place, ease of wayfinding and quality of through along the A6 corridor, lower lying areas prone to flood. use core and A6 corridor. life. particularly to the south of the town centre, e.g. education and healthcare Penrith’s main employment areas are services. contained to the west, shaped and A strategic masterplan for 02 Penrith / Context and key drivers / 33

Character areas Carleton and Eamont). In between these characterised by large format New Streets broadly covers the areas the town lacks this originality, commercial and industrial buildings conservation area on the western flank Organic historic growth has created which is significant given that the growth located in the lowest lying land in the of Beacon Hill. The area incorporates areas a distinct character - evident in areas adjoin locations most ‘devoid’ of valley. substantial residential properties built up land use, urban structure, building character. the hillside, perpendicular to the slope, forms, and materials / building Townhead is the residential area providing aesthetic appeal that is in part technologies. Although these have Castletown is the residential area to the located either side of the A6 to the north determined through the consistent use ‘blurred’ boundaries they demonstrate west of the West Coast Main Line (Scotland Road) and defined by its of high quality materials and presence of how the more distinguished, higher (WCML) incorporating distinctive relationship with key linear routes mature soft landscape features.. quality and authentic areas of Penrith terracing using local red sandstone. entering Penrith from the north. are broadly defined by the older, pre-war Buildings display a diverse range of Scaws and Carleton is the post-war areas either side of the A6 corridor This is wrapped around by the materials including sandstone, render, suburban housing area to the east of the (including the historic settlements of Industrial Edge of Penrith, brick, slate and concrete tiles. town centre set around Beaconside Infant & Junior School and made up of a mixture of house types and construction with little reference to local context. This area blurs into Carleton Village having now agglomerated the original settlement.

Carleton Village is still evident as a historic settlement along the A686 that includes an attractive terrace of buildings in a recognisable vernacular (although this is diluted by less distinctive post-war housing). The A686 frontage also incorporates a prominent public house, the Cross Keys. 34

Pategill sits north-east of the A66 Built environment heritage bounded by Carleton Road and Bridge Lane (A6) and consists of post-war The defined Penrith Conservation Area housing – often with a Radburn planning and concentration of Listed Buildings are influence - with no particular reference centred on the core town centre streets to place or vernacular. and New Streets area. Again, post-war residential areas separate the potential Wetheriggs defines the area between new growth areas from the Conservation Bridge Lane (A6) and Ullswater Road / Areas, and more distinctive areas of WCML. Its northern end includes Penrith Penrith. This raises the question of how Castle and rail station, but the main the character of new development body includes inter-war and late 20th should respond to surrounding context, Century housing as well as three emphasising the opportunity for new schools, a hotel (Northlakes) and development to pick up some of the roadside commercial / retail along the qualities seen in the core of the town. Ullswater Road. A strategic masterplan for 02 Penrith / Context and key drivers / 35

Urban green space

Penrith has a reasonable proportion of parks and other green amenity spaces distributed throughout the town centre. The town is also surrounded by open countryside with access to many areas of outstanding landscape.

It is apparent - as illustrated in the plans to the right - that growth areas to the south and east have greater potential to link to existing amenity including outdoor sports areas associated with the schools in the Wetheriggs area. The ‘green corridor‘ that connects northwest from Carleton to the town centre could be reinforced and enhanced as part of the growth plans.

A similar approach should be investigated in relation to creating ‘green’ connections from the northern growth areas, albeit using existing street space.

Right: View of Penrith on approach from the north east, illustrating how urban green space helps provide a visual foil to built development 36

2.3.6/ Experiential qualities and daily life

Key features and wayfinding

The idiosyncratic urban structure, unique history and setting combine to create a place with a strong sense of place. Key features in the built form and urban structure affect the experience of being and moving through Penrith, in a positive or negative way, influencing perceptions of quality of place and quality of life.

Key destinations in the town provide important markers, and will continue to provide reference points as the place grows and develops. These are anchor sense of place. This must include key connections and routes of movement - in spine for the town as a whole. This is points that shape the place, largely features outside the main urban areas particular for pedestrians and cyclists. reaffirmed by the diverse mix of land clustered within the historic heart of the which also contribute to sense of place uses found through the A6 corridor, town. and its legibility as a historic, distinctive In this regard, a key element of Penrith including key education facilities, settlement (including for example is the A6 and the corridor it creates healthcare and a wide range of shops Development and in particular urban Brougham Castle and the Eamont Valley through the town. This is not only a and services. extensions must recognise and respond generally). main, multi-modal route of movement to these landmarks, in appreciation of but - from the point of view of legibility Social infrastructure provision how people and the physical form of the This highlights the continued need for a and sense of place - it creates a defining town must interact with them to maintain strengthening in the network of physical A review of land use patterns reveals A strategic masterplan for 02 Penrith / Context and key drivers / 37

Access to Secondary Schools

Secondary Schools Access to Secondary Schools up to 10 min walk 11-20 min walk Roads

how main education and health development will generate additional Queen Elizabeth Grammar School provisions are generally remote from the students at a rate of 2no. per 10no. new Ullswater Community College Option Areas for urban extension, and dwellings. cluster to the centre and to the south of Penrith. The plans to the right illustrate the location of schools and their relative Education physical accessibility. The table below summarises performance. There are 4 primary schools and 2 0 375 750 1,500 Metres secondary schools in Penrith. There are Located just outside the centre of no operational catchment areas, so Penrith, Beaconside CofE Primary Access to Primary Schools students can apply to attend any school. School is a large primary school serving Primary Schools Eden District Council continue to work a wide catchment which was formed Access to Primary Schools up to 5 min walk with the LEA and Cumbria County from the amalgamation of two schools. It 6-10 min walk Council in developing an understanding has 500 pupils on its roll. 11 - 15 min walk of social infrastructure provisions and Roads requirements in relation to new The most recent Ofsted inspection, St. Catherine's School Beaconside Primary School development. At present, the conducted in May 2009, rated assumption is that new residential Beaconside’s overall effectiveness as Brunswick School

School Name Overall Age Range Pupils on roll Effectiveness Score Hunter Hall School Primary Schools North Lakes School Beaconside CofE Primary School 3 3-11 500 Brunswick School 3 3-7 161 North Lakes School 3 7-11 194 St Catherine's Catholic Primary School 3 4-11 104 Secondary Schools

Queen Elizabeth Grammar School 1 11-18 830 Stainton CE Primary School Ullswater Community College 3 11-18 1445 0 375 750 1,500 Metres 38

‘Satisfactory’ (‘Good’ in relation to its to be at capacity and constrained in Access to Health Facilities Lane. Primary Care is Roads early years provision and in terms of terms of expansion opportunity. Access to GP/Hospitals delivered through two up to 5 min walk personal development and well-being). 6-10 min walk Secondary Schools GP practices, with a 11 - 15 min walk total of 20 GPs, Hospital Brunswick school is a smaller primary Doctors Surgeries school with 161 pupils on its roll. The Queen Elizabeth Grammar School, with operating out of most recent Ofsted inspection, October 830 pupils on its roll, is a medium sized Penrith Health Centre 2009, rate the school’s overall selective secondary school in Penrith on Bridge Lane. Birbeck Medical Penrith Hospital effectiveness as ‘Satisfactory’ (early serving a wide catchment that includes Dr Goulding & PartnersDr Dunlop & Partners years provision adjudged to be ‘Good’). rural areas. The most recent Ofsted Group has 8 male and inspection, conducted in April 2009, 4 female GPs and the North Lakes School, located in south rated the school as ‘Outstanding’ against Lakes Medical Penrith has 194 pupils on roll. The most every category. Practice also have 8 recent Ofsted inspection, conducted in GPs. With a May 2009, rated the school’s overall Ullswater Community College is a larger population of around 0 375 750 1,500 Metres 15,000 people and effectiveness as ‘Satisfactory’ (‘Good’ in than average comprehensive school Access to Dentists assuming a sector Roads relation to its early years provision and serving a wide catchment area, with Access to Dentists in terms of care, guidance and support). 1445 pupils on roll. The most recent standard for GP up to 5 min walk provision is 6-10 min walk Ofsted inspection, conducted in July 11 - 15 min walk Dentists St Catherine’s Catholic Primary school 2010, rated the school’s overall approximately 1800 is a small school with 104 pupils on roll. effectiveness as ‘Satisfactory’. It was, people per GP, Penrith Stricklandgate Dental Practice has an adequate Richard Wilson & Partners The most recent Ofsted inspection, however, considered to have ‘Good’ St Andrews Dental Practice conducted in May 2010, rated the capacity for sustained improvement. supply of GPs. Gloucester Yard Dental Practice Victoria Road Dental Practice school’s overall effectiveness as Open space and ‘satisfactory’ (with ‘Good’ capacity for recreational sustained improvement, and rated as Health Care Facilities ‘good’ in relation to its early years provision). Acute Care provision is through Penrith Penrith’s Open Space Skirsgill Dental Surgery Community Hospital, located on Bridge and Recreational Facilities Study and All primary schools are considered 0 375 750 1,500 Metres A strategic masterplan for 02 Penrith / Context and key drivers / 39

Roads Access to Natural Environment Assets Access to Active Recreation Open Spaces Roads Access to Passive Recreation/Amenity Grassland 1. Natural open spaces Outdoor Sports Grass Areas 2. Recreation open spaces Parks 3. Passive open spaces Cemeteries Allotment Access to Passive Recreation/Amenity Grassland Access to Active Open Spaces up to 5 min walk up to 5 min walk 6-10 min walk 6-10 min walk 11 - 15 min walk 11 - 15 min walk

Roads Ancient Woodland Woodland Priority Habitats Green Corridor County Wildlife Sites Access to Natural Environment Assets up to 5 min walk 6-10 min walk 11 - 15 min walk

0 450 900 1,800 Metres 0 455 910 1,820 Metres 0 450 900 1,800 Metres

Green Spaces Strategy reiterate the perform particular roles (e.g. replacement facilities of equivalent or 2. Recreation open spaces – open importance of open space. Although contribute to the distinctive form and greater net benefit to the community space with a primary purpose for they do not set provision standards, they character of a settlement, create in terms of quality, availability and active recreation, providing leisure set out a range of actions set out around focal points, provide the setting for accessibility. and amenity value. four overarching themes; community; important buildings, allow views into environment, health and well being and or out of a settlement, nature In this context Penrith has a number of 3. Passive open spaces – open young people. Core Strategy policy conservation value). important open spaces that provide a spaces with amenity value and/or CS24 provides the associated policy range of functions. The plans above tranquil, passive character. support, seeking to protect open space b. Does not lead to a loss of open illustrate provision of and relative and recreational land from being lost to space that would result in (or worsen) physical access to; development. a shortfall of land used for informal or 1. Natural open spaces – open space The Core Strategy specifically aims to formal recreation. that is primarily natural or semi- ensure that development; natural, with biodiversity, ecological, c. (in the event of loss of open space / amenity and placemaking value. a. Does not harm to spaces which recreational land) Provides 40

Key

2km Buffer Zone

10km Buffer Zone

Option Area 5

Special Area of Conservation (SAC)

Special Site of Scientific 2.4/ Interest (SSSI) Ancient Woodland Inventory (AWI) Key Local Nature Reserve (LNR) Cowraik Quarry County Nature Sites (CNS) environmental SSSI & LNR

The River constraints Low Mill Eamont: The River Eden SAC, SSSI & SCI Eamont Woodland and Riverside Bridge CNS CNS 2.4.1/ Ecology locations under consideration sit in the context of national and international Environmental and ecological protection, ecological interests (such as the River and the promotion of biodiversity, are Eden Special Area of Conservation Project: integral to the concept of sustainable PENRITH STRATEGIC MASTERPLAN (SAC) and Cumbrian Marsh Fritillary Site Client: EDEN DISTRICT COUNCIL

Title: FIGURE 6 development. The Core Strategy SAC) and the presence of several noted LOCATIONS OF ECOLOGICAL SITES IMPORTANT TO OPTION AREA 5 encourages the protection, protected species including bat, badger, Scale: 1:76,000 Drawn By: SC Date: 23-12-2010 Checked By:

Lynnfield House, enhancement, re-creation of restoration snakes, otter and red squirrel. Church Street, Altrincham, Cheshire WA14 4DZ of traditional habitats, and expects new CONTAINS ORDNANCE SURVEY DATA WITH PERMISSION OF THE CONTROLLER OF HER MAJESTY'S STATIONARY OFFICE (C) CROWN COPYRIGHT AND DATABASE RIGHT 2010. UNAUTHORISED REPRODUCTION INFRINGES CROWN COPYRIGHT AND MAY LEAD TO CIVIL PR0CEEDINGS. developments to contribute positively to Notwithstanding, there are some notable Key biodiversity and mitigate harm. local relationships that will require 2km Buffer Zone careful mitigation, e.g.; In general terms, a key risk at any of the 10km Buffer Zone Option Area 6 potential development sites would be • Parcel 65 (“Option Area 6” ) lies Cumbrian Marsh Fritillary Site SAC Special Area of Conservation (SAC) disturbance to or loss of trees and other adjacent to an area of “Coastal and UKBAP Priority Habitat vegetation. Mature trees within the Floodplain Grazing Marsh” which is development site (s) would have to be designated as a UKBAP Priority subject to detailed survey and habitat Habitat. UK BAP Priority Habitat Coastal and Floodplain assessment. • Option Area 5 lies within 2 Km of (i) Grazing Marsh Cowraik Quarry LNR & SSSI; (ii) The

Development sites also pose pollution River Eden SAC & The River Eden The River Eden SAC risk to ponds/watercourses and this and tributaries SSSI; (iii) two areas of must be carefully managed. Habitat ancient and semi natural woodland; Suitability Assessments (HSI’s) and (iv) The River Eamont, Eamont Bridge potentially full surveys should be County Nature Site and; (v) Low Mill

Project: conducted on ponds within 500m of Woodland and Riverside County PENRITH STRATEGIC MASTERPLAN Client: EDEN DISTRICT COUNCIL sites to confirm presence of protected Nature Site. Title: FIGURE 7 LOCATIONS OF ECOLOGICAL SITES IMPORTANT TO OPTION AREA 6 species such as Great Crested Newt. Scale: 1:84,000 Drawn By: SC These are identified to the right. Date: 23-12-2010 Checked By: Lynnfield House, Church Street, Altrincham, Penrith and all the urban extension Cheshire WA14 4DZ CONTAINS ORDNANCE SURVEY DATA WITH PERMISSION OF THE CONTROLLER OF HER MAJESTY'S STATIONARY OFFICE (C) CROWN COPYRIGHT AND DATABASE RIGHT 2010. UNAUTHORISED REPRODUCTION INFRINGES CROWN COPYRIGHT AND MAY LEAD TO CIVIL PR0CEEDINGS. 2.4.2/ Flood Risk A strategic masterplan for 02 Penrith / Context and key drivers / 41

require more detailed flood risk result in heavy rainfall flowing overland be conditioned at planning stage). The plan below shows the location of the investigation as development sites come into sites, and this must be analysed in Strategic SuDS covering more than one 6 Option Area sites and their proximity forward, in particular the watercourses further detail as development proposals site is a particular opportunity, rather than to Flood Zones 2 and 3 associated with that run through Area 6 to the north and progress. The disposal of surface water apportionment on a piecemeal basis: Thacka Beck, the River Eamont and east of Area 5. from sites is a much greater concern holistic SuDS provide significant river Lowther. It should be noted that and priority issue, especially given the advantages such as reduced water there are additional sources of flood risk With regards flood risk from land it is local topographic characteristics. quantities, enhanced amenity/aesthetic not mapped at this level which will possible that steep topography could value, reduced environmental impact and At this stage Environment Agency are reduced cost. keen to ensure that sustainable drainage systems (SuDS) are incorporated at detailed masterplanning stage (not left to Capability of different SuDS techniques (Extract from CIRIA C697, Table 1.7) Environmental Management Train Suitability Water Quantity Water Quality Benefits

Technique Description Ecology Amenity Filtration Detention Infiltration Aesthetics Prevention Adsorption Nitrification Site Control Site Conveyance Conveyance Precipitation Volatilisation Pre-treatment Sedimentation Sourcecontrol Biodegradation Uptakebyplants RegionalControl WaterHarvesting

Water butts, site layout Good housekeeping and design practices.

and management J L J L L J L L L L L L L L L L L L Pervious pavement Allow infiltration of rainwater into underlying construction/soil. J J L J J L J J J J J L L L Filter drain Linear drains/ trenches filled with a permeable, often with a

perforated pipe at the base of the trench. J J L J J J J J J Filter strips Vegetated strips of gently sloping ground designed to drain water

from impermeable areas and filter out silt and other particulates. J J L L L J J J J L L L Swales Shallow vegetated channels that conduct and/or retain water (and can permit infiltration when underlined). The vegetation filters J J J J J L J J J J L L L L particulates. Ponds Depressions used for storing and treating water. They have a

permanent pool and bankside emergent and aquatic vegetation. J J J L J J J J J J J J J J J J Wetlands As ponds, but the runoff flows slowly but continuously through aquatic vegetation that attenuates and filters the flow. Shallower L J J L J L J J J J J J J J J J J J than ponds. Detention Basin Dry depressions designed to store water for a specified retention J time. J J J J L L J L L L Soakaways Sub-surface structures that store and dispose of water via

infiltration. J J J J J Infiltration Trenches As filter drains, but allowing infiltration through trench base and

sides. L J J L J J J J J J Infiltration basins Depressions that store and dispose of water via infiltration. J J J J J J J J L L L Green roofs Vegetated roofs that reduce runoff volume and rate. J J J J J J J J J J J J J J Bioretention areas Vegetated areas for collecting and treating water before discharge

downstream, or to the ground via infiltration. J J J J J J J J J J J J J J J Sand filters Treatment devices using sand beds as filter media. J J L J L J J J J J Silt removal devices Manhole and/or proprietary devices to remove silt. J J Pipes, subsurface Conduits and their accessories as conveyance measures and/or storage storage. Water quality can be targeted using sedimentation and J J J J L L L filter media.

Key J Recommended Above: Table showing the capability of different SuDS techniques L Some opportunities, subject to design (Extract from CIRIA C697, Table 1.7)

2.5/ Movement and Transport

2.5.1/ Strategic context Penrith is partially dissected by the West Penrith is well located to take advantage Cost Mainline Railway to the west of the of the strategic transport network, in town, with the M6 acting as an outer particular; edge boundary to the west of this. The A66 runs to the south of the town • Excellent rail connections through providing a southern border. The A6 cuts its direct access to the West Coast through the heart of Penrith providing a Main Line. This makes other towns link through to the north as well as and cities, such as Kendal and connecting to routes off to the east and Carlisle, readily accessible for west. The A592 connects the town employment opportunities; centre to Junction 40 of the M6 and the • Two direct connections with the M6 B5288 provides a link out to the west as via Junctions 40 and 41 (which is to well as connecting the parcel of land the north and outside Penrith’s sandwiched between the railway and the urban area). This places it between M6. key economic areas of North West England and Central Scotland, both In the centre of the town there is a with their ports and airports as well gyratory arrangement with a system of as major populations. one way roads helping traffic to flow • Direct connection to the key east / round and through the town centre, west corridor of the A66, which although it appears that congestion is local and through movements resulting in current plans proposing ultimately links the ‘Energy Coast’ of considered problematic locally, putting pressure on Junction 40 of signalisation. West Cumbria to the industrial anecdotally. the M6. This junction has recently heartland and ports on Teeside and been improved by the Highways 2. Access to the Gilwilly Industrial forms an important rung on the The following transport network issues Agency – further improvements Estate, its hinterland and it’s North of England Strategic road are central to the strategic masterplan; would require costly physical works. expansion zone this being the main network. Additionally the other southern employment area of Penrith, but 1. The concentration of traffic in the roundabout onto the A66 is a which is convoluted with no direct 2.5.2/ The highway network southern quadrant of the town, both pressure point on the network, links to M6 junctions. Also, the main A strategic masterplan for 02 Penrith / Context and key drivers / 43

area of the industrial estate has only 4. The public realm of the town centre Coast Main Line (WCML) and provides a single access point off Newton has recently improved, and appears access to frequent services to the north Due to the scale of Penrith, there is Road. A key issue within the town is prosperous and popular. However, and south, details of which are shown insufficient demand to support a more that of the presence of key industry the configuration of the surrounding below. The station is located on the extensive local bus service and currently and employment to the west of the roads does mean that for certain A592 and is within easy walking the majority of bus routes within the town between Railway and M6 traffic movements it is more distance of the town centre. A bus stop town are part of longer distance motorway, while the bulk of Penrith’s convenient to travel through the is located outside of the station providing services. New developments should be residential areas are to the east. town centre, rather than use other an interchange point with other bus designed in a way which are permeable This means that traffic has to cross routes. If the town continues to grow services. to buses to ensure that if the demand the town centre area to link these the town centre has to continue to arises, the services can easily access land uses, this being exacerbated by upgrade its presence and amenity Penrith’s Bus Station is located on Albert the sites on a route (e.g. avoiding over-reliance on historical radial value alongside, otherwise out- Street. Several long distance services cul-de-sac based highway layouts). routes to and from the town centre. migration of movement for such will operate through it, including 104 occur. (Whinfell Forest (Center Parcs), - Penrith 3. The West Coast Main Line creates a - Carlisle), and 106 (Kendal Rail Station, barrier to east / west movement, and 5. Following from the above over Tebay Mountpleasant, Orton, Shap, concentrates traffic at a limited reliance on routes to and around the Clifton, Penrith). number of rail crossings. Also linked town centre for non town centre Mon Approx. movement is a key issue for all Route Sat Sun Operators to this issue, there is a lack of route -Fri Duration choice for north / south traffic, which modes and such orbital demands London (calling at lancaster, Preston, Wigan 5 per 6 per 5 per 3 hours 20 need to be considered. Virgin Trains again focuses movements on links North Western, Warrington, London Euston) day day day minutes and junctions – particularly, the Glasgow (Calling at Carlisle, Lockerbie, 12 per 15 per 12 per 1 hour 30 Transpennine Express A592 corridor; 2.5.3/ Public Transport Motherwell, Glasgow) day day day minutes and Virgin Edingurgh (Calling at Carlisle, Lockerbie, 9 per 7 per 9 per 1 hour 40 Transpennine Express Penrith Railways Station is on the West Haymarket, Edinburgh) day day day minutes and Virgin Manchester (Calling at Oxenholme, 7 per 8 per 6 per 1 hour 40 Teanspennine Lancaster, Preston, Manchester) day day day minutes Express Birmingham (Calling at Oxenholme, Preston, Lancaster, Wigan North Western, 5 per 6 per 3 per 2 hours 40 Virgin Trains Warringtono, Crewe, Wolverhampton, day day day minutes Birmingham) 44

2.5.4/ Walking and Cycling Cumbria Police have kindly provided the worsened by the development Penrith New Squares scheme should latest five years injury accident data for proposals. The evident clusters have a positive effect on accidents at the There are a number of pedestrian the roads and streets of Penrith. The (assumed to be those locations where junction. thoroughfares throughout Penrith below image gives the locations of all there were more than seven accidents) providing access for pedestrians to cut slight, serious and fatal accidents in and are represented in the below figure. As The accident cluster at the gyratory through from the residential areas into around the town that were recorded can be seen, all of the accident clusters would be worthy of a more detailed the town centre. This provides a more during this period. appear to be along the A6 corridor investigation as turning manoeuvres are direct route to the centre making walking – with the largest concentrations being reduced at these types of junctions. more appealing and accessible. Detailed analysis of the accident types, at the A6 / A66 Kemplay Bank 2.5.6/ Traffic Flows and causes as not been undertaken as Roundabout, and in the vicinity of the The topography of Penrith makes part of this work. Rather, the accident Stricklandgate / Duke Street gyratory. Key to the strategic masterplan is an walking and cycling less appealing locations have been reviewed to However, the signalisation of the A6 / overview assessment of the possible further with some steep roads on all determine if there are any particular A66 roundabout proposed under the traffic impact implications of new sides of the town leading down into the clusters – and if so, could they be centre and is particularly difficult for

C Cycle Routes 2 C K people with pushchairs and wheelchairs, e Existing Strategic / NCN sw i ck Proposed Strategic / NCN

C2C Existing Distributor as well as hazardous in winter weather. Alston Proposed Distributor

12 Proposed off-highway connection to C2C avoiding town centre Proposed School links Cycle routes through the town are 1 to residential 1 NCN- rail interchange link: signing 2 and some ACL available on some sections of the 2 NCN links to town centre 3 Ullswater Rd - advisory cycle lanes facilitated by new development & 4 land take 1 network, notably along Drovers Lane 4 Signed route & footpath conversions to employment sites

2 5 6 School link: signing and formalising and Carleton Road. A plan, taken from a of routes 7 School link: conversion and 9 widening of path to cycle track 5 10 8 School link: agree with Ullswater cycle study in 2006, is shown to the right School to formalise and sign route 8 11 New Squares development- N 9 CN indicative route only 71 6 Ap highlighting the available and proposed pl 10 School- residential link: Signing and e by some ACL

3 11 Existing route: remove inbound ACL and widen outbound ACL routes. 7 13 12 C2C -rail interchange link: footpath conversion to cycle track

13 Convert footway to shared use PENRITH URBAN CYCLE 2.5.5/ Road Safety NETWORK REVIEW

The Capita Building Kingmoor Business Park Carlisle Tel. 01228 673000 CA6 4SJ Fax. 01228 673111

FIGURE 1 Keswick via C2C & Ullswater Right: cycle routes Drawn by RAC Scale NTS Date NOV ‘06 A strategic masterplan for 02 Penrith / Context and key drivers / 45

developments on Penrith’s highway town, A6 Scotland Road to the south of (Wednesday 15th September) the through the introductions of the more network. This will help guide what the town and A592 Ullswater Road following peak results were produced. residents at each of the potential growth mitigating measures may be required to feeding in to the west of the town. These locations. accommodate the new activity. three sites provide a good overview of 2.5.7/ Trip Distribution the key routes into and out the town. This modelling work is reviewed at TRADS data has been used to A schematic model has been created to section 4.5. understand flows in and out of the town Hourly flows at these sites were illustrate the key routes into and within along the key routes. TRAD sites are analysed for the month of September Penrith to try to provide an overview of located at three positions within the town 2010. Based on a neutral term-time day how the network would be affected – A6 Scotland Road to the north of the Time Sites SB, A6, Scotland Road NB, A6, Scotland Road SB, A592, Ullswater Road NB, A592, Ullswater Road NB, A6, Bridge Lane SB, A6, Bridge Lane AM Peak 8am – 9am 194 172 328 247 218 291 PM Peak 5pm – 6pm 280 313 583 501 416 633 46