Agenda item

(Cabinet Member with Special Responsibility Councillor Parr)

Report of Chief Officer – Planning and Climate Change

Cabinet Member with Special Responsibility Councillor Parr)

Cabinet received a report from the Chief Officer – Planning and Climate Change that set out the current Local Plan position within the district, taking into account the recent announcement regarding the Housing Infrastructure Fund. The report also identified a series of options for plan-making and asked that Cabinet indicated their preferred option.

The options, options analysis, including risk assessment and officer preferred option, were set out in the report as follows:

There were 3 options that are available in terms of plan-making.

These are:      Option 1 – Continue to prepare the Lancaster South Area Action Plan;

or, Option 2 – Cease work on the Lancaster South Area Action Plan and commence a full district-wide Local Plan Review; or, Option 3 – Pause all plan-making activity pending further certainty regarding the national plan-making system.

Option 1 - Continue to prepare the Lancaster South Area Action Plan

Advantages: During the last 18 months the City Council has published a concept masterplan for Bailrigg Garden Village, which has been formally endorsed by Cabinet. The local planning authority has also continued to compile evidence to support the content and direction of the Lancaster South Area Action Plan, including specialist evidence and advice regarding ecology, landscape, water management, archaeology and sustainable travel. This library of evidence is publicly available on the Council’s dedicated Lancaster South Area Action Plan webpages.

Informal engagement has also been taking place, particularly regarding a series of thematic topic papers. The local planning authority has also established a Parish Council Liaison Group with Scotforth, Aldcliffe-with-Stodday, Ellel and Thurnham Parish Councils, and it has participated in an engagement process with young people, hosted by Lancaster University.

Much work has already been undertaken, and a continuation of this work could still result in a new vision for the Lancaster South area that could be potentially less time-intensive than a full Local Plan Review.

Disadvantages: Continuing with the Lancaster South Area Action Plan would maintain the focus on defining a vision for South Lancaster and its’ environs only. It would not consider any changing circumstances in Morecambe, Carnforth or other areas that are geographically remote from South Lancaster.

Risks: Even if the Lancaster South Area Action Plan is advanced, it may still be unable to precisely define how strategic infrastructure, including transport infrastructure, will be provided and to what timeline. This uncertainty may affect the adoption of the Lancaster South Area Action Plan. In addition, the proposed changes to national plan-making described earlier in this report might also prevent timely adoption of the Lancaster South Area Action Plan, and as a consequence it might have to be started again under the proposed new plan-making system.

Option 2 – Cease work of the Lancaster South Area Action Plan and commence a full Local Plan Review

Advantages: There are changing circumstances within the district since the Local Plan was adopted. These include the grant of planning permission for Eden Morecambe and the securing of £50m Levelling-Up funding. There is also the recent announcement that a new hospital will be provided on a new site within the district, and that this will replace the Royal Lancaster Infirmary. The new site is yet to be confirmed. The relocation of hospital facilities will also require a comprehensive approach to masterplanning the re-use of the existing Royal Lancaster Infirmary site. A reviewed Local Plan can explore the opportunities for these developments and review the likely strategic infrastructure needs that are likely to arise. A new Local Plan will also provide a more up-to-date assessment of the likely deliverability and phasing of emerging City Council-driven projects such as the Canal Quarter and the Mainway/Skerton School development.

The work undertaken to date on the Lancaster South Area Action Plan will still be useful. It would help inform a wider evidence base for a new Local Plan.

The current, adopted Local Plan identified infrastructure and physical constraints that contributed to a lack of supply of deliverable housing sites. Notwithstanding some isolated years of good housing delivery (e.g. 2016/17, 628 net dwelling completions; 2019/20, 701 net dwelling completions), there has been a continued fall in net housing completions during the last three years, with the 2022/23 figure amounting to just 202 completed units. A full Local Plan Review provides the opportunity to evolve the strategic vision of residential development within the wider district.

Early indicative work suggests that the submission of a Local Plan for examination by the proposed 30 June 2025 deadline is possible, albeit very challenging. Resources are currently being examined and an update will be provided should any additional resource be required to deliver a Local Plan within that timeframe.

Disadvantages: Local Plan preparation is complex and challenging. Experience has shown that Local Plan preparation can take longer than 3 years. A timescale for completion cannot be provided with any great certainty because some stages of the process, including the independent examination by a Planning Inspector, lie beyond the direct control of the local planning authority.

Risks: The Government’s proposed changes to the Local Plan system presents increased timescale pressures. There is a genuine risk that even with expedited stages, any new Local Plan may still fail to be submitted for Examination by 30 June 2025, and there is a further risk that the Plan might not be adopted by 31 December 2026. Under those circumstances, the preparation of a Local Plan would have to start again under the new system, and this would create further delay.

Option 3 – Pause all plan-making activity pending further certainty regarding the national plan-making system

Advantages: There are an increasing number of local authorities who are reported to have taken a decision to either withdraw or pause their plan-making activity. Some of the national planning press estimate this at being between 26 and 58 local authorities at the time of compiling this report. The reasons for withdrawal or delay vary, although some have cited the current consultations regarding plan-making and the NPPF as being contributory factors.

A delay in plan-making would potentially allow the emergence of greater certainty regarding the likely deliverability of the Government’s proposed changes, including the timetabling of the Royal Assent of the Levelling Up and Regeneration Bill.

Disadvantages: Whilst the uncertainty regarding the proposed changes to the national plan-making process is not helpful, it is rarely a good idea to delay plan-making for any length of time. Firstly, older, adopted Plans are less likely to be able to respond appropriately to the changing needs of the district’s numerous local communities. Secondly, a delay to plan-making would hinder the local authority in collaborating with other strategic partners regarding the identification of infrastructure needs.

Risks: A delay to plan-making could invite Government intervention. Whilst this is unlikely to apply to Lancaster because it currently has an up-to-date Local Plan, a delay is not likely to be an appropriate response to the ever-changing needs of the district, and it is not recommended.

The preferred option is Option 2, to cease work on the Lancaster South Area Action Plan and to commence a full Local Plan Review. This option provides the opportunity to develop a revised spatial vision for the Lancaster District that takes into account recent announcements and re-evaluates the strategic development needs of the district.

If Option 2 is agreed, then the Local Development Scheme will require amendment. Full Council are responsible for that decision. A report would be presented to the next available Full Council meeting. Once the Local Development Scheme is updated it will provide the community and stakeholders with certainty regarding the Council’s intentions and its new indicative Local Plan timetable. The report to Council can also provide further information regarding likely resourcing implications.

An indicative timetable for full Local Plan Review will be presented to the Local Plan Review Group (LPRG). Progress against the indicative timetable will be monitored by LPRG.

The timetabling risks associated with the preferred option are very challenging, but it is considered to be the most appropriate response to recent developments and the likely emerging patterns of development within the district.

Councillor Parr proposed, seconded by Councillor Dowding:-

“That the recommendations, as set out in the report, be approved.”

Councillors then voted:-

Resolved unanimously:

(1)        That the Council ceases work on the Lancaster South Area Action Plan and commences a full Local Plan Review.

(2)        That as a consequence of (i) above, a report be prepared for Full Council amending the Local Development Scheme.

(3)        That further indicative timetabling for the delivery of the Local Plan Review is presented to the Local Plan Review Group, who will also regularly monitor progress.

Officer responsible for effecting the decision:

Chief Officer – Planning and Climate Change

Reasons for making the decision:

Section 19 (1B-1E) of the Planning and Compulsory Purchase Act 2004 sets out that each local planning authority must identify their strategic priorities and have policies to address these in their development plan documents. The National Planning Policy Framework (NPPF) explains that these strategic policies can be contained in Local Plans and provides clarity regarding the necessary content of such policies. The National Planning Practice Guidance (NPPG) provides direction for how the NPPF should be implemented in practice.

A new Local Plan is considered necessary, taking into account the early plan review mechanism prescribed in Local Plan Policy LPRM1. It is considered to be an appropriate response to recent announcements. The current, adopted Local Plan will remain in place until it is replaced by the formal adoption of any new Local Plan. Work on the Climate Emergency Review of the Local Plan, which is in its’ latter stages, is unaffected.