Local Plan Part 2: Site Allocations and Development Management Policies Green Belt ... local plan...

Green Belt Position Paper Blackburn with Darwen Borough Council

Local Plan Part 2: Site Allocations and Development Management Policies

Green Belt Position Paper

June 2014

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Introduction 1. The purpose of this Statement is to provide the background to the green belt proposals

within the Local Plan Part 2 - Site Allocations and Development Management Policies (SA&DMP). It summarises key evidence and considerations which have formed the basis of proposals to release land from the Green Belt in the Publication version of the SA&DMP.

Blackburn with Darwen Context

2. Blackburn with Darwen (BwD) is a Unitary Authority in East Lancashire with a population of

147,700. It adjoins, Ribble Valley to the north, Hyndburn Council and Rossendale Council to the East; Bury Council and Bolton Council to the south and Chorley Council and South Ribble Council to the west. The M65 motorway dissects the borough from east to west, between the towns of Blackburn and Darwen.

3. The Borough covers an area of approximately 137km2. Blackburn is the largest town north of the M65 which includes one of the five main town centres in Lancashire performing a sub-regional role in East Lancashire. Darwen is a market town to the south of the M65 performing a more local role. The Borough also contains a number of small villages. Approximately half of the Borough is open countryside of which about half is designated as Green Belt.

4. The general extent of the green belt in Lancashire was defined originally in the early 1980’s and has endured through a series of Structure Plans. The precise boundaries of the green belt in Lancashire were defined in individual district’s local plans – in the case of Blackburn with Darwen, the Blackburn District Plan and the Darwen District Plan. These plans did not cover the entire local authority area. The now saved Blackburn with Darwen Local Plan adopted in 2002 is the first Borough wide plan and defines green belt boundaries across the local authority – these include the green belt as was defined in the two District Plans and an area of green belt on the boundary with Bolton in Greater Manchester.

5. The main reason for the extent of the green belt in Blackburn with Darwen was to contain development pressures from the main urban areas of Blackburn and Darwen which became more relevant following the construction of the M65 in the late 1990s. In some instances the green belt serves the purpose of keeping the main urban area of either of the two towns separate from surrounding villages (including villages outside the Borough boundary). Along the southern boundary of the Borough the green belt complemented the Greater Manchester Green Belt.

The Need for Green Belt Release

6. The Core Strategy was adopted in January 2011 setting out the strategic planning policy

framework for the period up to 2026. The Core Strategy establishes a targeted growth strategy and requires the provision of 9,365 new dwellings between 2011 and 2026 and up to 105.5 hectares of employment land. Most of the development is directed toward the existing urban areas of Blackburn and Darwen whilst smaller villages will accommodate development to meet local needs. The Core Strategy recognises in policy CS1 that in order to meet development needs there will be a need for small scale extensions to the urban areas of Blackburn and Darwen including possible release of designated Green Belt.

7. In relation to meeting requirements for employment land the Council does not need to consider any Green Belt Land. The Employment Land Review and the Economy and Retail Position Paper set out the approach to setting the requirement for employment land and identifying sufficient land to meet that requirement.

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8. In relation to meeting the housing requirements in the Core Strategy Policy CS5 sets out the

locational strategy. The Housing Land Selection Methodology document sets out in detail the approach to site selection for housing. It complies with the requirement in Core Strategy policy CS5 to ensure that development outside the urban area is strictly limited to that which is necessary, and that the first preference for urban extensions is land not currently in the green belt. The updated Strategic Housing Land Availability Assessment provides evidence on land availability.

9. The table below summarises the position with regards the availability of land in the Borough, as contained within the Five Year Housing Land Supply and Housing Trajectory document.

Source of supply Number of houses

Completions already happened (2011-2013) 199

Existing planning permissions (allowing for 5% not to be implemented) 1321

Reoccupied long-term empty properties 500

Unspecified sites with less than 50 houses (includes sites in the urban area and the rural area)

1320

Contribution from Development Opportunities identified in the Local Plan and town centre residential development

300

Sites with 50 or more houses in the built-up area (2018-2026) 3458

Sites with 50 or more houses in the rural area (2018-2026) 300

New sites outside the built up area identified in the Local Plan – not previously Green Belt (2018-2026)

1190

New sites outside the built up area identified in the Local Plan – previously Green Belt (2018-2026)

810

TOTAL 9,398 10. It is clear from the table above that there is insufficient non green belt land to meet the

housing requirements in the Core Strategy. 810 dwellings will need to be developed on Green Belt, 120 of which within the first five years to ensure that the Council provides for a rolling five year supply of housing land and an additional 690 dwellings in the remaining 8 years of the plan period in order to meet the overall target of 9,365 dwellings. In order for Blackburn with Darwen to meet its development needs it is necessary to release land from the Green Belt. Unless land is released from the Green Belt development needs in the next fifteen years and beyond will not be met in a sustainable manner and without unacceptable impact on the environment. This situation presents exceptional circumstances requiring the review of Green Belt boundaries around Blackburn and Darwen. The Local Plan preparation is the appropriate mechanism to review the Green Belt.

11. The ‘New site outside the built up area identified in the Local Plan – not previously greenbelt’ on the table above refers to land previously safeguarded in the 2002 Local Plan1 and also land designated as open countryside to the north and south of Broken Stones Road2. In accordance with the Core Strategy’s approach to identifying development land for housing (Policy CS5), this land, in principle, has priority for development before any Green

1 The 2002 Blackburn with Darwen Local Plan identified four safeguarded sites under Policy RA2 – Cranberry Lane/Kirkhams Farm, Darwen; Roman Road / Marsh Lane / Ellison Fold, Darwen; Pole Lane, Darwen; and Parsonage Road, Blackburn. 2 Appendix 1 includes an extract from the 2002 Local Plan Proposals Map showing the land at Broken Stone Road designated as countryside area under Policy RA6.

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Belt land is released. Most3 of the land designated as ‘safeguarded land’ in the 2002 Blackburn with Darwen Borough Local Plan has been allocated for housing in the draft Local Plan. With regards to the countryside area in south west Blackburn, (designated as such in the 2002 Local Plan), the Publication draft Local Plan 2 allocates the land to the west of Gib Lane to the north of Broken Stone Road for housing (Policy 16 site 16/9) and some land to the east of Gib Lane as a development opportunity (Policy 28). However, for reasons explained later in this Position Paper and in the Housing Land Selection Methodology, the remainder of the non-green belt land to the south west of Blackburn is proposed to remain as a countryside area in the draft SA&DMP local plan.

Green Belt Release

12. In order to assist in considering what Green Belt land should be released for development

the Council commissioned consultants to undertake a local review of the Green Belt which would form one piece of evidence to inform decision making.

13. This has been the first review of green belt in Blackburn with Darwen and covers only the inner boundary of the green belt around the towns of Blackburn and Darwen. The Green Belt Study did not consider any possible new additions to the Green Belt other than the area between the urban area of western Blackburn and the M65 around Gib Lane as required by the Core Strategy Policy CS14. The green belt review has also provided the opportunity to rationalise the boundary and address identified anomalies when the first boundary was set, including small drafting errors.

14. The Green Belt Study (October 2013) sets out the details of the review. The review assesses the performance of the Green Belt around the towns of Blackburn and Darwen against the five purposes of the Green Belt. The land between the urban area of Western Blackburn and the M65 around Gib Lane was considered as if it were designated Green Belt, thus assessed against the five Green Belt purposes.

15. The Study did not take into account the scale of land needed to meet housing requirement nor did it look at whether any area of land was indeed developable. To ensure further that the Study was not influenced by development pressures there was no ‘call for sites’ to be considered for release. In commissioning the Study, the Council sought evidence to understand the impact on the integrity of the Green Belt from the release of parcels of land from the Green Belt. As part of the Study the intention was to establish a new strong boundary around the two towns without affecting the overall integrity of the Green Belt.

16. The Green Belt around Blackburn and Darwen was separated into sub-areas and then each sub area into parcels based on landscape character and land use using physical features as boundaries. Figure 7.1 in the Green Belt Study (reproduced below) shows the parcels and summarises the findings. As shown in Figure 7.1 the following parcels can be released from the Green Belt without affecting its integrity.

1. Brownhill, North – East Blackburn - parcels 1/01 & 1/02; 2. North of Ramsgreave Drive / Yew Tree Drive (east of Whinney Lane), North Blackburn -

parcels 2/01, 2/02, 2/03 & 2/04; 3. North West Blackburn (south of Wyfordby Avenue) - parcels 3/01, 3/03, 3/07, 3/08 &

3/10 4. South West Blackburn - parcels 4/01, 4/02, & 4/07 5. South east Darwen, - parcels 6/04 & 6/07 6. East Darwen – parcels 7/04, 7/06, 7/09 & 7/10

3 A small part of RA2/2 - Roman Road/ Marsh House Lane/ Ellison Fold in Darwen is maintained as safeguarded land under Policy 4 – Land for Development beyond the Plan Period. Attempts to engage with the landowners have not been successful.

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17. Figure 7.1 also shows that in sub area 4, some of the land north of the M65 which is currently not in the Green Belt (parcels 4/04, 4/09 & 4/10) has the attributes of Green Belt land and could be considered for inclusion in the Green Belt. The Study concluded that two parcels of land to the north of Broken Stone do not merit inclusion into the Green Belt (4/05 and 4/08).

Consideration of Green Belt findings

18. The publication version of the Local Plan Part 2 - Site Allocations and Development

Management Policies does not propose the release of any Green Belt which will have an impact on the integrity of the Green Belt and as such is not supported by the Green Belt Study. It proposes the release from the Green Belt of most of the parcels indicated in the Green Belt Study that can be released without affecting the integrity of the Green Belt. These are: -

1. Brownhill, North – East Blackburn - parcels 1/01 & 1/02; 2. North of Ramsgreave Drive / Yew Tree Drive (east of Whinney Lane), North Blackburn -

parcels 2/01, 2/02, 2/03 & 2/04; 3. North West Blackburn (south of Wyfordby Avenue) - parcels 3/01 4. South West Blackburn - parcels 4/02 5. South West Blackburn at Heys Lane - parcel 4/07 6. South east Darwen, - parcel 6/07 7. East Darwen – parcels 7/09 & 7/10

19. Appendix 2 provides individual maps showing all proposed major alterations to the Green

Belt.

20. It is not considered appropriate to release the following parcels though supported by the Green Belt Study for the reasons stated below. In view of the fact that the reason for the review of the Green Belt has been the need to accommodate development needs, as a general principle, the findings of the Green Belt Study were considered against the potential for the land to provide land for development in the next fifteen years and beyond.

Parcel 3/03 - This is a narrow and steep area of land which makes it undevelopable. Parcel 3/07 - This parcel forms part of Witton Country Park Parcel 3/10 - This is an area of allotments Parcel 4/01 - This area of land forms a protected Biological Heritage Site (BHS) Parcel 6/04 - This area of land is at different levels from surrounding built areas and

difficult to access. Parcel 7/04 - This area of land rises towards the ridge along Roman Road and any

development would be intrusive into the landscape Parcel 7/06 - This area of land adjoins the urban are of Hoddlesden which is a

village. The Core Strategy in Policy CS1 envisages possible alterations to the Green belt only in relation to the urban areas of Blackburn and Darwen.

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Green Belt Findings Figure 7.1 in the Green Belt Study (and re-produced below), summarises the findings.

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Land to the North and South of Broken Stone Road.

21. Appendix 1 includes an extract from the 2002 Local Plan Proposals Map showing the land at

Broken Stone Road designated as a countryside area in the 2002 Local Plan. The Green belt Study considered this area of countryside as if it were within the Green Belt, and assessed whether it performs a Green Belt purpose. The Study concluded that parcels 4/04, 4/09 & 4/10 perform at least one Green Belt purpose.

22. Parcels 4/09 and 4/10 are found to perform Purpose 1 – To check the unrestricted sprawl of large built-up areas. This purpose was assessed in terms of the level of containment and clearly these two parcels are not at present contained by urban development. However if adjoining parcels were developed (e.g. parcels 4/08 & 4/05) the Study concludes that the two parcels may become partially or well contained. Parcel 4/05 is allocated for housing and parts of Parcel 4/08 are allocated as a ‘Development Opportunity’. The remainder of Parcel 4/08 was not considered developable due to the topography.

23. Parcel 4/10 forms part of a larger area of land which is suitable for development and immediately available for development. In accordance with the Core Strategy, the potential allocation of Parcels 4/10 together with 4/05 must be considered before any other designated Green belt land. It would not be appropriate to include this area of land within the Green Belt as it is necessary for meeting the development requirements set in the Core Strategy. Furthermore, although at present parcel 4/10 performs Purpose 1 robustly and therefore has been recommended to for inclusion in the Green Belt, once parcel 4/05 were to be developed it would perform this purpose less robustly. If the Green Belt assessment were to be re-applied in five years’ time, there would not be a recommendation that it should be included in the Green belt.

24. A large part of Parcel 4/09 is covered by woodland - Bunkers Hill Wood. In view of the topography and the woodland coverage, it was not considered that parcel 4/09 is developable. Nonetheless it is not considered necessary that the land should be included in the Green Belt. It is considered that the nature of the land use together with countryside policies (Policy 5) is sufficient to protect this site from development during the plan period. In any event to include this parcel in the Green Belt when adjoining parcels are not would be an illogical oddity.

25. The Green Belt Study concluded that parcel 4/04 perform robustly Purpose 1 – To check the unrestricted sprawl of large built up areas and Purpose 4 - To preserve the setting and special character of historic town. Purpose 1 is assessed in terms of containment; the parcel abuts built development only at the north eastern end.

26. In relation to Purpose 4, the Green Belt Study concludes that the ridge along Broken Stones Road is an important local landscape feature, which rises above the surrounding area. Open land on top of the ridge provides local and wider views, both towards and out of both towns, and views of the ridge are seen from a number of neighbouring parcels. It therefore defines the elevated character of the local area and forms part of the wider rural setting of both Blackburn and Darwen at this location. Parcel 4/04 and land to the south of the M65 has been identified as contributing significantly to the unique setting and distinctive character of both Blackburn and Darwen at this location. The Green Belt Study further concluded that development of this area of land would have a significant impact on the character and setting of the southern part of Blackburn and the north-western part of Darwen, and also on the open rural character and distinctive identity of Tockholes.

27. A further Landscape Appraisal has been carried covering the land to the north and south of Broken Stone Road, currently designated as countryside. The purpose of this was to confirm findings of the Green Belt Study which did not include a detail Landscape Appraisal. The Landscape Appraisal assessed whether there was any difference in character between

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the land to the north and south of Broken Stone Road and their respective significance to the wider landscape character of the Borough.

28. The Landscape Appraisal concluded that the land to the north and south of Broken Stone Road is very similar in character; the land is undulating characterised by a patchwork of fields enclosed by low dry stone walls or low hedgerows and small areas of woodland. However the ridge just to the north of Broken Stone Road creates an important natural boundary to the urban area of Blackburn. The land north of the ridge falls away toward the urban area whilst the land to the south falls away in the opposite direction and visually links with the wider open countryside to the south of the M65. Development to the north of the ridge just north of Broken Stone Road could be accommodated if sensitively designed without impacting on the rural setting of Blackburn.

29. Development to the south of Broken Stone Road (parcel 4/04) could have an impact on the landscape character of the area and the setting of Blackburn. The streams and their associated valleys and woodlands in parcel 4/04 distinguish this parcel from the land north of Brocken Stone Road and add to the particular character of the area of land.

30. Parcel 4/04 also lies within the defined West Pennine Moors. The West Pennine Moors designation recognises the specific character of undulating farmland characterised by fields enclosed by low dry stone walls or low hedgerows and small areas of woodland primarily along a number of streams which dissect the area. Through a partnership4 arrangement since 1975 the West Pennine Moors provide the opportunity, among other things, to conserve and enhance the natural and cultural heritage of the West Pennine Moors. This has been achieved through a series of management framework documents since 1975. The combination of views, open character of farmland with low hedgerows / dry stone walls and scattering of small woodlands are typical of the West Pennine Moors landscape character.

31. It was not considered appropriate to allocate Parcel 4/04 for housing though the land was not in the Green Belt. Despite pylons running through parcel 4/04 it is considered that the land visually links with the open countryside to the south of the M65 and provides an attractive rural setting to Blackburn. Paragraph 84 of the NPPF states that when drawing up or reviewing Green Belt boundaries local planning authorities should take account of the need to promote sustainable patterns of development. They should consider the consequences for sustainable development of channelling development towards urban areas inside the Green Belt boundary, towards towns and villages inset within the Green Belt or towards locations beyond the outer Green Belt boundary. Broader sustainable development considerations such as the impact on the local character are important.

32. The impact on the local landscape of parcel 4/04 would be significant. Beyond Broken Stone Road there is a sense of deep rural character extending beyond the M65. The urban area is reduced in prominence beyond the ridge line to the north of Broken Stone Road. On balance since there are parcels of land which relate better to the urban areas of Blackburn and Darwen and their release from the Green Belt would not impact on the integrity of the Green belt, it is preferable that they are allocated in preference to the land south of Broken Stone Road.

33. Although it was not considered appropriate to allocate parcel 4/04 for housing and despite the fact that the Green Belt Study has recommended that Parcel 4/04 should be included in the Green Belt, this is not considered necessary.

4 The West Pennine Moors Partnership comprises seven Local Authorities (Blackburn with Darwen BC, Bolton Council, Bury MBC, Chorley BC, Hyndburn BC, Lancashire County Council, Rossendale BC), United Utilities and regional agencies.

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34. The NPPF sets out in paragraph 82 that new green belts should only be established in

exceptional circumstances, for example where planning for larger scale developments such as new settlements or major urban extensions. If proposing a new green belt, local planning authorities should: Demonstrate why normal planning and development management policies would not be

adequate, Set out whether any major changes in circumstances have made the adoption of this

exceptional measure necessary show what the consequences of the proposal would be for sustainable development demonstrate the necessity for the Green Belt and its consistency with Local Plans for

adjoining areas; and show how the Green Belt would meet the other objectives of the Framework.

35. Although a number of urban extensions are proposed in Blackburn none are considered as

major (where developments of over 1000+ dwellings are being proposed). In this respect it is considered that the type of exceptional circumstances envisaged in the NPPF do not arise.

36. Furthermore a countryside designation is sufficient to protect this area of land from unplanned urban sprawl during the plan period. It provides adequate protection to resist development and preserve the general openness of the area. This has been the case over the lifetime of the current Local Plan and before that.

37. During the undertaking of the Green Belt Study, comments were made in support of designating parcel 4/04 as Green Belt in view of a proposed holiday village5 known as ‘Pleasington Lakes’ to the south of Broken Stone Road at Lower Whitehalgh Farm. Appendix 3 includes a plan showing the area with planning permission for a holiday village. In principle the Council considered that holiday villages are an acceptable form of development in rural areas and their appropriateness depends largely on the impact on their landscape surroundings. The proposal also provided the opportunity to restore the landscape which has been spoilt by the deposit of illegal waste. In view of the landscape restoration and enhancement proposed as part of the scheme it was considered that the development would not be incongruous within the landscape. In granting planning permission the Council concluded that on balance the proposal would be acceptable and compliant with policy subject to conditions.

38. The fact that some forms of development are acceptable within countryside areas is not sufficient justification to include the land within the green belt. Countryside policies are sufficient to protect the rural character of the area and prevent urban sprawl within the Plan period.

Safeguarded Land

39. The NPPF advises in paragraph 85 that local planning authorities should, where

necessary, identify in their plans areas of ‘safeguarded land’ between the urban area and the Green Belt, in order to meet longer-term development needs stretching well beyond the plan period and make clear that the safeguarded land is not allocated for development at the present time. Planning permission for the permanent development of safeguarded land should only be granted following a Local Plan review which proposes the development.

5 Pleasington Lakes involves the creation of new lakes surrounded by 94 static lodges, a members’ facility and associated landscaping, car parking and servicing.

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40. 191.3 hectares of land are designated as ‘Land for Future Development’ (e.g. safeguarded

land).

41. The land designated for future development comprises parcels which were identified in the Green Belt Study as suitable for release without affecting the integrity of the Green Belt and which were not, in the main, available6 within the plan period for development.

42. These parcels are:-

1. Brownhill, North – East Blackburn - parcels 1/01 & 1/02; 2. North West Blackburn (south of Wyfordby Avenue) - parcels 3/01 3. South east Darwen, - parcel 6/07 4. West Darwen – parcels 7/09 & 7/10

43. Individual plans for each of these parcels are reproduced in Appendix 4.

Anomalies 44. Anomalies include incidents where the current boundary does not follow an identifiable

boundary on the ground due to drafting errors when the green belt was originally drafted or due to a change that have occurred since first designated.

45. The Green Belt Study identifies a number of anomalies along the current green belt boundary around Blackburn and Darwen which require small adjustments to correct. In addition the Council has identified other anomalies elsewhere around the various villages which are also being corrected on the draft Policies Map.

46. Appendix 5 provides a complete list of all small alterations to the Green Belt which correct the identified anomalies.

Conclusions

47. There is a need to review the Green Belt in order to accommodate development needs

within the plan period of the draft Local Plan (e.g. up to 2026). In line with Core Strategy Policy CS5 the release of green belt land has been limited to that which is considered to be strictly necessary (e.g. 810 dwellings), The approach followed by the Council in releasing land from the Green Belt means that there will not be an impact on the overall integrity of the Green Belt.

48. In order to meet future development needs beyond the plan period the Council is proposing to release land and designate it as ‘Land for future Development Needs’ more commonly known as safeguarded land. All of this land has been identified within the Green Belt Review as land which could potentially be removed from the Green Belt, and therefore there will be no impact on the overall integrity of the Green Belt.

49. The Council is not proposing to include any new land in the vicinity of Broken Stone Road within the Green Belt. It considers that countryside policies are sufficient to protect such land from development and ensure its openness. With regards to the case of ‘Pleasington Lakes’, the fact that a use appropriate within a countryside area has been given permission, is not an indication that designated countryside areas are under threat from urban developments and therefore should be considered for inclusion within the Green Belt. There is no justification for including this area of land within the Green Belt in line with the advice

6 Small parts of 7/09 and 1/01 have been confirmed as available, but the majority of the land within these parcels has not been identified as available.

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in paragraph 82 of the NPPF. There are no exceptional circumstances for including this land in the Green Belt.

Appendices Appendix 1: Extract from the 2002 Local Plan Proposals Map showing the land at Broken Stone Road designated as countryside area under Policy RA6. Appendix 2: Major Alterations to the Green Belt Appendix 3: Plan of Pleasington Lakes Holiday Village Appendix 4: Land for future Development Appendix 5: Small alterations correcting identified anomalies.

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Appendix 1 Extract from the 2002 Local Plan Proposals Map showing the land at Broken Stone Road designated as countryside area under Policy RA6.

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Appendix 2 Major alterations to the Green Belt

1. Brownhill, North – East Blackburn - parcels 1/01 & 1/02; 2. North of Ramsgreave Drive / Yew Tree Drive (east of Whinney Lane), North

Blackburn - parcels 2/01, 2/02, 2/03 & 2/04; 3. North West Blackburn (south of Wyfordby Avenue) - parcels 3/01 4. South West Blackburn - parcels 4/02 5. South West Blackburn at Heys Lane - parcel 4/07 6. South east Darwen, - parcel 6/07 7. East Darwen – parcels 7/09 & 7/10

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Appendix 3 Pleasington Lakes Holiday Village

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Appendix 4 Land for future development

1. Brownhill, North – East Blackburn - parcels 1/01 & 1/02; 2. North West Blackburn (south of Wyfordby Avenue) - parcels 3/01 3. South east Darwen, - parcel 6/07 4. West Darwen – parcels 7/09 & 7/10

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Appendix 5 Small alterations correcting identified anomalies.

1. Preston Old Road/Pleasington Lane, Blackburn 2. Fensicliffe Bank, Tower Road, Blackburn 3. Pole Lane/Marsh House Lane, Darwen 4. Jack’s Key, Darwen 5. Rear of vicarage, off High Street, Belmont 6. Hob Lane, Edgworth 7. Wayoh Croft, Meadow Way, Edgworth 8. Brandwood Court, Bolton Road, Edgworth 9. Turton & Edgworth School, Mount Pleasant, off Bolton Road, Edgworth 10. The Gardens, Birches Road, Edgworth 11. Chapeltown Road, Chapeltown

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