Local Plan - Written Statement - West Lindsey District Council

29th September 2006

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INTRODUCTION, AIMS AND OBJECTIVES, TARGETS AND MONITORING

INTRODUCTION

1. West Lindsey occupies the north-western corner of Lincolnshire. It is a large District covering an area of 1,156 square kilometres (447 square miles) of predominantly open countryside, much of which is arable land. The largest settlement is the market and industrial town of Gainsborough. In the eastern part of the District lie two smaller market towns, Market Rasen and Caistor, and adjoining the southern boundary of the District is the City of Lincoln. West Lindsey has cause to be optimistic about the future; the District has many qualities and assets, which form a solid foundation upon which to build. For example, the quality of life offered to residents in the District is high due to a culmination of different aspects. The District boasts some excellent countryside including the Lincolnshire Wolds Area of Outstanding Natural Beauty. Despite this idyllic setting, land and buildings are relatively cheap in comparison to other areas around the country with equivalent beauty, further contributing positively to the quality of life of the residents and the potential for investors.

2. Throughout the District there are numerous Listed Buildings and Conservation Areas further enhancing the natural beauty. The District is rich not only in its built heritage but also its natural environment, which has an abundance of flora and fauna.

3. Thus it can be seen that the District boasts many assets which will be protected and enhanced through the Local Plan First Review. This chapter sets out the aims, objectives and targets for the Plan that will be used as a tool to monitor its effectiveness.

ROLE AND PURPOSE OF THE PLAN

4. The role of the Local Plan First Review is to assist with the overall purpose of planning. The planning system regulates development and the use of land in the public interest. The preparation of the Local Plan is the most effective way of reconciling the demand for development and the protection of the environment, in order to ensure that there will be a net benefit to society and the built and natural environment arising from all development proposals.

5. The Local Plan First Review sets out criteria in the form of policies against which all proposals for development are considered. Other material planning considerations are taken into account but the Local Plan First Review contains detailed policies at a local level including the allocation of specific sites for different land uses.

6. The Local Plan First Review therefore has the following main functions:

Amplifying National and Regional Planning Policy and the Lincolnshire Structure Plan Review and applying them to the needs and specific circumstances of West Lindsey.
Setting out planning policies devised to help safeguard and improve the environment, control development and other uses of land, and promote the economic and social well-being of those living and working in West Lindsey.
Informing the general public and other interested parties about land use issues of District-wide and local importance and providing opportunities for them to be involved in solutions for resolving land use planning problems.

COUNCIL VISION, OBJECTIVES AND PRIORITIES

7. It must be clear which direction the Council should take and the priorities on which we should focus. A Council Vision with Corporate Objectives and Service Priorities have been prepared which set the context for the aims and objectives of the Local Plan First Review.

Council Vision

West Lindsey is seen as a place where people want to live, work, invest and visit.

Corporate Objectives 2006/07

1a Developing new strategies
1b Developing existing strategies
2 Achieving service excellence
3 Achieving efficiency and value for money
4 Improving and learning
5 Modernising the Council
6 People development and improving capacity

Service Priorities 2006/07

Waste Management
Regeneration and Economic Development
Quality of Life and Neighbourhood Enforcement
Leisure Options
Customer Care
Business Transformation, Efficiency and Value for Money

8. The Local Plan First Review has been prepared having regard to “A Sustainable Community Strategy for Lincolnshire 2006 – 2016” produced by the Lincolnshire Assembly. That strategy sets out the following four priorities which the Local Plan First Review seeks to help take forward:

Priority 1 – Safer, Stronger Communities;
Priority 2 – Children and Young People;
Priority 3 – Health and Social Well-Being; and
Priority 4 – Economic Development.

The West Lindsey Local Strategic Partnership has produced the “West Lindsey Sustainable Community Strategy 2006 – 2016” which sets out three priorities, which again the Local plan First Review contributes to:
• Healthy Communities
• Safer, Stronger Communities
• Economic Development

DOCUMENTS INFLUENCING THIS PLAN

Planning Policy Statement 1 (2005)
“Delivering Sustainable Development”

Planning Policy Guidance Note No. 3 (2000)
“Housing”

Draft Planning Policy Statement 3 (2005)
“Housing”

Planning Policy Guidance Note No. 4 (1992)
“Industrial and Commercial Development and Small Firms”

Planning Policy Statement 6 (2005)
“Planning for Town Centres”

Planning Policy Statement 7 (2004)
“Sustainable Development in Rural Areas”

Planning Policy Guidance Note No. 8 (2001)
“Telecommunications”

Planning Policy Statement 9 (2005)
“Biodiversity and Geological Conservation”

Planning Policy Guidance Note No. 12 (1999)
“Development Plans”

Planning Policy Statement 12 (2004)
“Local Development Frameworks”

Planning Policy Guidance Note No. 13 (2001)
“Transport”

Planning Policy Guidance Note No. 15 (1994)
“Planning and the Historic Environment”

Planning Policy Guidance Note No. 16 (1990)
“Archaeology and Planning”

Planning Policy Guidance Note No. 17 (2002)
“Planning for Open Space, Sport and Recreation”

Planning Policy Guidance Note No. 19 (1992)
“Outdoor Advertisement Control”

Planning Policy Guidance Note No. 22 (2004)
“Renewable Energy”

Planning Policy Guidance Note No. 23 (2004)
“Planning and Pollution Control”

Planning Policy Guidance Note No. 25 (2001)
“Development and Flood Risk”

Draft Planning Policy Statement 25 (2005)
“Development and Flood Risk”

Regional Spatial Strategy for the East Midlands (2005)

Lincolnshire Structure Plan Review 2004
“Deposit Draft” (2004)
“Proposed Changes” (2005)

AIMS AND OBJECTIVES

9. It is essential that the aims and objectives of this Plan be set out in order to establish what the Plan is trying to achieve. If this is not clear, then it is impossible to determine if the policies set out in the Plan are being successfully used, interpreted and implemented.

10. The objectives of the plan should be clearly explained for the following reasons:

a) They set the Plan in context with West Lindsey District Council’s overall corporate strategy and the two relevant Sustainable Community Strategies.
b) They allow the Council and other interested parties to determine the success of the Plan.
c) They make the Plan more understandable to all users.

11. By producing the Local Plan First Review the Council aims to ensure a District of progressing communities and has the following five fundamental aims and objectives:

To encourage the economic well-being of the District.
To encourage the social well-being of the District and reduce social inequalities.
To protect and enhance the natural and built environment.
To encourage and enable the economic regeneration, of the District’s towns and rural communities.
To meet the needs of the local communities in the District and protect the quality of life of local residents.

12. In order to achieve the national sustainability objectives, it is essential that there is a balance between environmental, social and economic factors and that on-going development is sustainable to meet the needs of today’s society whilst not harming the chances of future generations to meet their needs.

13. The aim of the Plan is not only to ensure the quality of life for residents of the District is retained but that quality of life is enhanced, by striking the correct balance between these three factors.

14. The Plan must also take account of the Regional Spatial Strategy for the East Midlands (RSS8) as well as the Lincolnshire Structure Plan Review. The aims and objectives are also mindful of the various Central Government Planning Policy Statements and other relevant forms of advice or policy.

15. In more detail, the Plan’s further twelve objectives underlying its content are:

To set a clear long-term vision for the future development of the District.
To adopt a sequential approach to development and the allocation of land with the prioritisation of the use of previously developed land in order to prevent the unnecessary development of greenfield sites.
To reinforce and sustain the role of the District’s towns as service centres for surrounding settlements and make them attractive to visitors from further a field.
To meet the District’s need for new homes and to ensure choice and diversity of homes for every person regardless of their social situation or need.
To preserve and enhance the existing physical character of the settlements and landscapes throughout the District, developing buildings and schemes with positive contributions towards the physical quality of the District, enhancing the environment.
To ensure the District’s economy will grow and diversify to improve the quality of life for residents and future residents.
To promote rural diversification to protect the future of the rural economy.
To safeguard and enhance the historic, cultural, landscape, biodiversity and wildlife assets of the District.
To ensure people have access to a range of recreational facilities as required.
To promote and actively support the District’s range of tourism attractions including the Lincolnshire Wolds AONB and the many heritage and natural attractions in the District to contribute towards the economic and social well being of West Lindsey.
To reduce the need to travel by ensuring all major new developments including new homes, employment-creating development, leisure and retail developments are situated close to existing where they can easily be accessed by public transport or walking or cycling.
To facilitate walking, cycling and the use of river, canal and public transport in order to reduce congestion and pollution caused by excessive use of the private car.

16. The Plan seeks to promote positive development where appropriate, enhancing the social, economic and environmental aspects of the settlements. At the same time the Council seeks to preserve and protect the cultural and industrial heritage thus making West Lindsey a place where people choose to live, work and play. The Council will actively promote and where possible embrace, positive planning tools, such as Village Appraisals, Parish Housing Needs Surveys, Village Design Statements and Parish Plans which aim to increase the community involvement in the planning system.

TARGETS

17. It is imperative that the Local Plan First Review sets achievable targets, which can be monitored to assess performance. Central Government sets out a number of targets Local Authorities should aim to reach. A good example of one of these targets would be the national requirement to develop 60% of residential development on brownfield land in order to protect greenfield land from unnecessary development.

18. In West Lindsey these National and Regional targets may not always be realistic due to the unique nature of the District. Thus when setting targets the distinctive character of the District and the issues and problems faced by that particular District must be considered. Targets set out in a Local Plan must therefore be specific to West Lindsey but based on National and Regional objectives. They should be achievable and realistic but also challenging for the specific circumstances of the District. The targets set out must also be measurable to establish if they have been achieved as part of the annual monitoring.

19. There are six targets for the Local Plan First Review:

To increase the percentage of new housing development on previously developed land to meet with national sustainability objectives on a year on year basis with the aim of reaching a target of 40% by 2016.

The national target is to achieve 60% of new housing on previously developed land. Land is a finite resource and protecting greenfield sites (those previously undeveloped in planning terms), is essential in order to maintain the natural beauty and character of the countryside. As the District is deeply rural in nature, the national target is unlikely ever to be achievable.

The re-use of previously developed land can improve the character of the area. If the site or building is vacant and/or run-down it may be an eyesore that would be improved with re-development. Although being brownfield land is not in itself necessarily a primary reason for approving development as proposals must still satisfy all relevant policies to be acceptable in planning terms.

To reduce the number of vacant residential dwellings in the District to reflect the national and regional averages by 2016.

Many habitable dwellings, especially in Gainsborough are currently vacant. Vacancy rates have reached over 6% in West Lindsey in recent years (compared to a Lincolnshire average of 3.69%). Some housing is arguably reaching the end of its natural life but many empty dwellings are habitable and could make a contribution to affordable housing.

To ensure that at least 320 dwellings per annum are completed until 2016.

A regular supply of new housing will ensure that the market is not unduly restricted and there is some degree of certainty for housing availability through the District.

To ensure that at least 50 affordable dwelling units are brought forward annually by the planning system.

Affordable housing can be brought about by various mechanisms. The land use planning system has a role to play and the Council is keen to see that affordable housing is made available throughout the District to allow housing market choice. The target of 50 dwellings per annum is based upon the results of the Housing Needs Survey (2003) and recent monitoring of completions and is considered to be realistic for West Lindsey.

To halt the population decline in the three Market Towns of Gainsborough, Market Rasen and Caistor and encourage development that would see a population growth by 5% over the Plan Period.

Population decline has a detrimental effect on the capacity of the services and facilities within the three Market Towns to remain economically viable.

The most recently available population estimates indicate West Lindsey grew only marginally from 76,700 in 1991 to 84,000 in mid-2004. Between 1991 and 2001 there was a decline or very limited growth in the populations of Gainsborough (-6%), Caistor (+4%) and Market Rasen (including Middle Rasen) (+5%) all based on Census figures.

The Local Plan First Review has allocated land for 2178 dwellings within the three Market Towns collectively. Therefore it is estimated that, based on an average of two adults per household the population will rise by 5%, approximately 4356 persons, when allocated housing sites have been completed. This will ensure that existing services and facilities within the three towns remain economically viable and provide a greater catchment population to encourage more services and facilities in order to continue to meet the needs of the population of West Lindsey.

To ensure that the Heapham Road Employment Site achieves a 50% occupancy target by 2016.

The Heapham Road Employment Site is the largest employment allocation within the District. It plays a strategic role in ensuring the economic viability of the District and it is vital that this site is developed as planned.

20. The policies throughout this Local Plan First Review have been formulated to try to ensure that development meets these aims, objectives and targets for the benefit and quality of life of current and future residents of the District and visitors alike, and for the local and wider environment.

DEFINITION OF TERMS USED IN POLICIES IN THE PLAN

21. The following terms are used in the Local Plan First Review and require a definition in the interests of clarity.

Brownfield Land: All previously developed land is that which is or was occupied by a permanent structure (excluding agricultural or forestry buildings), and associated fixed surface infrastructure.

Greenfield Land: All land that is not defined as brownfield or previously developed. This includes all agricultural and forestry land.

FUL PP or f/p: Full Planning Permission
OUT PP or o/l: Outline Planning Permission
RM PP: Reserved Matters
Planning Permission
u/c: Under Construction
PPG: Planning Policy Guidance
PPS: Planning Policy Statement
RSS: Regional Spatial Strategy

Settlement Boundary: Line indicated around the built footprint of the Towns and Primary Rural Settlements on the Inset Maps.

Outside of Settlement Boundary: All land not within the settlement boundaries of the Urban Area of Lincoln, the Towns or the Primary Rural Settlements. i.e. it covers land in all the other settlements and the open countryside.

Settlement: Any Town or Village contained within the Towns; Primary Rural Settlement; Subsidiary Rural Settlement; and Small Rural Settlement categories of the settlement hierarchy.

Open Countryside: those areas of the District outside of ‘Settlement’ as defined above.

IMPLEMENTATION

22. The determination of planning applications is the main method of the implementation of a Local Plan conferred by Section 38(6) of the Planning and Compulsory Purchase Act 2004. Other ways would include the promotion of economic development, tourism and leisure, countryside management, environmental improvement, initiating and co-ordinating schemes and providing grant aid and advice such as design guidance leaflets. All proposals within the Local Plan are capable of being implemented or initiated within the Plan Period. A large number of agencies will be required to co-operate in order to implement proposals, although most development will be implemented by the Private Sector and controlled by the District Council through its Development Control powers.

23. Where the District Council has the sole responsibility for implementing proposals, the rate at which they are achieved will be dependent upon a rolling programme of resource allocation. The District Council has relatively little control over the timing of the implementation of other proposals. The speed at which these are implemented will be dependent upon the priorities of the players concerned, their resources in terms of grants, land and the work of voluntary groups, as well as regard to the wider economic conditions. The District Council will do everything within its power to remove the hurdles to development proposals and to actively promote development activity in the Plan Area.

MONITORING

24. The policies and proposals in the Local Plan First Review have been prepared on the basis of the best information available at the present time. However, over the Plan period, circumstances will change. A shift in Government thinking or an economic situation may alter the thrust of some policies.

25. The District Council will monitor continually the changes occurring throughout the District. This will require collecting and collating information on a wide variety of matters, including population, employment, new development (including housing, industry and retail), traffic and parking. This data will be published each year through the Annual Monitoring Report.

26. It is essential to be able to monitor the effectiveness of the Local Plan. One way of monitoring aspects of the Plan is by reviewing the Plan’s success in meeting targets and aims and objectives. This will reveal if the Plan is realising what it set out to achieve.

REVIEW

27. The Planning and Compulsory Purchase Act 2004 replaces Local Plans with new Local Development Frameworks (LDFs). Work on the new LDF will begin in 2007 and it is anticipated that the document will be adopted by 2010. The new LDF will look at the period from 2006 to 2026.

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