luton local plan (2011-2031) november 2017

www.luton.gov.uk

Luton Local Plan 2011–2031 November 2017

Planning and Economic GrowthPlace and Infrastructure

Foreword

iiiForeword

Introduction and Background

1Introduction and Background1

8Setting the Scene2

13Vision and Objectives3

Core Document

16Spatial Strategy4

49Growing Luton's Economy5

54Housing6

64Luton Town Centre & District & Neighbourhood Centres7

70Education and Other Community Facilities8

75High Quality Design9

79Natural & Historic Environment10

91Transport, Communications & Climate Change11

109Infrastructure Delivery, Monitoring and Review of the Local Plan12

Appendices

114Appendix 1 Glossary

122Appendix 2 Parking and Cycling Standards

126Appendix 3 Employment Sites: Categories A & B

135Appendix 4 Housing Allocations

137Appendix 5 Housing Trajectory

139Appendix 6 External Amenity Space Standards

140Appendix 7 Transport Assessments, Transport Statements and Travel Plans

142Appendix 8 Monitoring Framework

147Appendix 9 Replaced Minerals and Waste Policies

149Appendix 10 Technical Evidence Studies

152Appendix 11 Greenspace Standards

154Appendix 12 Luton Green Infrastructure Network

156Appendix 13 Map Showing Luton Enterprise Zone

Contents

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

List of Local Plan Policies17Policy LLP1 - Presumption in Favour of Sustainable Development21Policy LLP2 - Spatial Development Strategy25Policy LLP3 - Luton Town Centre Strategy28Policy LLP4 - Green Belt29Policy LLP5 - Land South of Stockwood Park Strategic Allocation31Policy LLP6 - London Luton Airport Strategic Allocation35Policy LLP7 - Butterfield Green Technology Park37Policy LLP8 - Napier Park39Policy LLP9 - Power Court42Policy LLP10 - High Town45Policy LLP11 - Creative Quarter47Policy LLP12 - Marsh Farm52Policy LLP13 - Economic Strategy52Policy LLP14 - Employment Areas60Policy LLP15 - Housing Provision60Policy LLP16 - Affordable Housing61Policy LLP17 - Houses in Multiple Occupation61Policy LLP17A - Student Accommodation62Policy LLP18 - Older People's Housing62Policy LLP19 - Extensions to Dwellings and Annexes63Policy LLP20 - Gypsies, Travellers & Travelling Showpeople67Policy LLP21 - Centre Hierarchy68Policy LLP22 - Primary and Secondary Shopping Areas and Frontages69Policy LLP23 - District & Neighbourhood Areas & Shopping Parades73Policy LLP24 - Education and Other Community Facilities77Policy LLP25 - High Quality Design78Policy LLP26 - Advertisements and Signage85Policy LLP27 - Open Space and Natural Greenspace86Policy LLP28 - Biodiversity and Nature Conservation87Policy LLP29 - Landscape & Geological Conservation88Policy LLP30 - Historic Environment93Policy LLP31 - Sustainable Transport Strategy96Policy LLP32 - Parking98Policy LLP33 - Freight99Policy LLP34 - Public Safety Zones101Policy LLP35 - Communications Infrastructure103Policy LLP36 - Flood Risk

106Policy LLP37 - Climate change, carbon and waste reduction andsustainable energy

107Policy LLP38 - Pollution and Contamination110Policy LLP39 - Infrastructure and Developer Contributions112Policy LLP40 - Review of the Local Plan

Contents

LutonLocalPlan

(2011-2031)Novem

ber2017

Foreword

Foreword by Councillor Hazel Simmons

The Luton Local Plan (2011-31) was adopted by Luton Borough Council on 7 November 2017.It sets out our vision and approach for the sustainable growth of the Luton for the periodup to 2031.

Luton has great potential for growth and possesses some of the best investment opportunitiesin the UK just a short distance from London. At the same time, Luton faces a number ofchallenges that will need to be addressed if our aspirations of our growing, vibrant anddiverse population are to be achieved.

Luton's administrative boundaries are drawn tightly against the edge of the built-up area.This means we are unable to accommodate all of the housing growth pressures within theBorough. To address this we have been working, and will continue to work very closelywithin our neighbours, to ensure Luton's needs are met. This will include major growth onthe periphery of Luton within both Central Bedfordshire and North Hertfordshire.

New jobs have a high priority and the local plan includes proposals for significant growthon key strategic sites - including growth around London Luton Airport - which will helpsafeguard Luton's traditional role as an important sub-regional employment centre.

The Local Plan is especially important because it provides the spatial framework withinwhich Luton's ambitious Investment Framework is set, and the foundation stone upon whichall decisions on planning applications will be assessed.

By planning positively, we will ensure that our growth aspirations are accommodated in away that is both sustainable and deliverable but above all helping improve the quality oflife and living standards for all of Luton's people.

Councillor Hazel Simmons

LeaderLuton Borough Council

Foreword

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

iii

Further Information and contacts

Background information on the Luton Local Plan preparation process, monitoring and reviewis available on the Council's website at the following url:

http://www.luton.gov.uk/environment/planning and follow the links through to the LutonLocal Plan (2011- 2031).

If you have any questions regarding the Luton Local Plan (2011-31), please contact a memberof the Strategic Planning Group at Luton Borough Council.

01582 547087Telephone

[email protected]

Strategic Planning GroupLUTON BOROUGH COUNCILTOWN HALLGEORGE STREETLUTONLU1 2BR

Address

For more detailed information and guidance on the planning system, visit the Department

for Communities and Local Government website at CLG's webpage(1).

1 https://www.gov.uk/government/organisations/department-for-communities-and-local-government

Foreword

LutonLocalPlan

(2011-2031)Novem

ber2017

iv

http://www.luton.gov.uk/Environment/Planning/Pages/default.aspx

https://www.gov.uk/government/organisations/department-for-communities-and-local-government

1 Introduction andBackground

Introduction

1.1 The Luton Local Plan (2011–2031)(further referred to as the "Luton Local Plan"or the "Plan") sets out a set of policies,development allocations and actions to meetthe environmental, social and economicchallenges facing the area over the 20-yearplan period.

1.2 The Luton Local Plan provides astrategy for the distribution and level ofdevelopment and supporting infrastructure,a set of proposals to meet that strategy,policies to deal with planning applicationsand proposals for monitoring the success ofthe plan.

1.3 The Plan was the subject of extensivepublic consultation prior to its submissionfor independent examination which tookplace between July 2016 and January 2017to consider the legality and soundness of theplan. To be considered 'sound' (seeparagraph 182 of the National Planning PolicyFramework) the plan must be:

Positively prepared – the plan shouldbe prepared based on a strategy whichseeks to meet objectively assesseddevelopment and infrastructurerequirements, including unmetrequirements from neighbouringauthorities, where it is reasonable todo so and consistent with achievingsustainable development;

Justified – the plan should set the mostappropriate strategy, when consideredagainst the reasonable alternatives,based on proportionate evidence;

Effective – the plan should bedeliverable over its period, based oneffective joint working oncross-boundary strategic priorities; and

Consistent with national policy – theplan should enable the delivery ofsustainable development in accordancewith the policies in the NationalPlanning Policy Framework.

1.4 The plan must also comply with Townand Country Planning (Local Planning)(England) (Amendment) Regulations 2012 aswell as the Planning and CompulsoryPurchase Act 2004 (as amended).

1.5 Following receipt of the Inspector’sReport, the Luton Local Plan (2011–31) wasadopted at a meeting of the Full Council on7 November 2017, incorporating all of theInspector’s Main Modifications.

Timetable/Plan-Making Process

1.6 There are a number of stages to theplan-making process as set out in the Townand Country Planning (Local Planning)(England) Regulations 2012. The plan-makingstages and timetable followed are as follows:

'Local Plan - What doyou think' Consultation(Regulation 18)

July 2012 toAugust 2012

Draft Local Plan forLuton Consultation(Regulation 18)

June 2014 toAugust 2014

Pre-Submission Periodfor Representation (6weeks, Regulation 19)

October 2015 toDecember 2015

Submission to Secretaryof State

April 2016

Examination in PublicJuly 2016 toJanuary 2017

AdoptionNovember 2017

Background to the Luton Local Plan

1.7 The Luton Local Plan (2011–31),together with the Joint Minerals & WasteLocal Plan, will be the statutorydevelopment plan for Luton Borough for theplan period between 2011 and 2031. If regardis to be had to the development plan for thepurpose of any determination to be madeunder the planning Acts, the determinationmust be made in accordance with the planunless material considerations indicateotherwise.

1 . Introduction and Background

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

1

1.8 This document identifies some of themain characteristics of the borough and thedifficult challenges that the area faces bothnow and in the future and then sets out avision for Luton for the plan period. Toaddress these challenges and deliver thevision, the plan identifies ‘strategicobjectives’ for achieving sustainabledevelopment, planning for economic growth,meeting the social needs of a growingpopulation and protecting the places andassets that make Luton a dynamic place tovisit, live and work in.

1.9 The Plan then sets out site allocationsas well as strategic and developmentmanagement planning policies that will helpdeliver new jobs, housing, retail andcommunity facilities; it identifies specificsites that will be promoted for or protectedfrom development; it identifies the newinfrastructure that will be needed to supportfuture growth; and it contains the planningpolicies that the Council will use whendetermining planning applications, includingpolicies on open space, sustainable energy,sustainable transport and policies regardingthe historic and natural environment.

1.10 Strategic policies and proposals forthe development of mineral resources andsustainable waste management across Lutonare included in the Minerals and Waste LocalPlan: Strategic Sites and Policies, which wasadopted in January 2014. The Luton LocalPlan (2011–2031) updates and replaces thegeneral and environmental policies from theBedfordshire and Luton Minerals and WasteLocal Plan (2005), where they affect thetown.

National Policy and Working in Partnership

1.11 For the Local Plan to be fit forpurpose, it needs to be consistent with awide range of other policies, guidance,strategies and plans that have been producednot only by the Council but also by centralgovernment, neighbouring authorities andother public bodies and agencies. Throughthe Localism Act there is also now a legal‘duty to cooperate’ with other organisationsand neighbouring authorities in the

preparation of Local Plans. The followingsection identifies other policies, guidance,strategies and plans that have informed thecontent of the Luton Local Plan along withthe key national and local partnerships thatwill be involved in delivering positivechanges in the area over the plan period.

National Planning Policy Framework (NPPF)

1.12 The NPPF was formally introducedby the government on 27 March 2012,replacing more than 1,000 pages of previousnational planning policy guidance notes witha succinct 59-page document. The Councilmust ensure that the Luton Local Plan isconsistent with the objectives, principlesand policies (along with the tests ofsoundness) set out in the NPPF. Theframework advocates a ‘presumption infavour of sustainable development’, whichrequires local authorities, in their Local Plansto positively seek opportunities to meet thedevelopment needs in their area; and meetobjectively assessed needs, having sufficientflexibility to adapt to rapid change. TheNPPF is also a ‘material consideration’ indetermining planning applications.

Planning Practice Guidance (PPG)

1.13 On 6 March 2014, the Department forCommunities and Local Government (DCLG)launched its planning practice guidanceweb-based resource that provides furtherguidance to the NPPF (2). The PPG wasaccompanied by a written ministerialstatement that includes a list of the previousplanning practice guidance documents thatwere cancelled when the PPG was launched.The PPG is entirely online and includes linksbetween the PPG and relevant planningpractice guidance, as well as between thedifferent categories of guidance. The PPG isalso a material consideration and will beupdated as needed by the DCLG.

South East Midlands Local EnterprisePartnership (SEMLEP)

1.14 Luton Borough is included within theSoutheast Midlands Local EnterprisePartnership (SEMLEP), which compriseseleven local authorities. Local Enterprise

2 http://planningguidance.planningportal.gov.uk/


LutonLocalPlan

(2011-2031)Novem

ber2017

2

Partnerships (LEPs) offer local areas theopportunity to promote future economicdevelopment as part of the government’sdrive to facilitate local decision-making.Local authorities and businesses can alsocoordinate via SEMLEP and the LocalTransport Body (Luton, Central Bedfordshireand Bedford Borough unitary authorities) toshape necessary infrastructure investmentand benefit from assistance in attractingfunding. The SEMLEP Strategic Economic Planfor the South East Midlands (April 2014)details how SEMLEP will grow the economyby £10.2billion by 2020 , create an additional94,700 jobs and build an extra 70,600 homes(in association with the Regional GrowthFund) across Bedfordshire,Northamptonshire, Milton Keynes, CherwellDistrict and Aylesbury Vale District. As partof its Strategic Economic Plan, SEMLEP hasprioritised infrastructure projects includingLondon Luton Airport Highway Access. ThisLuton Local Plan builds on the borough’s rolewithin this partnership.

Working in Partnership

1.15 While the Council’s Local Plan Teamhas overseen the preparation of the LutonLocal Plan, it is far more than just a planningdocument. It is of high importance to allservices within the Council and many of thepartners that we work with. In this context,the Local Plan will provide a land use andinfrastructure framework for the Council’sLuton Investment Framework, which aims toachieve ambitious town-wide transformationtogether with other stakeholders. The LutonLocal Plan attempts to integrate thestrategies of different organisations becauseworking in partnership will ultimatelyproduce the best results on the ground. Thisincludes, for example, working with theEnvironment Agency to ensure that our areasare kept safe from the risk of flooding andworking with Highways England tounderstand how development proposals mayimpact the strategic road network.

Cross-Boundary Working

1.16 The Council also needs to recognisethe strategies of neighbouring authoritiesand the 2011 Localism Act and NPPF place aduty on authorities to cooperate with each

other on planning issues of cross-boundarysignificance. Luton’s adjoining neighboursare Central Bedfordshire Council and NorthHertfordshire District Council. Luton’sFunctional Housing Market Area, however,covers a greater area than the borough itself;stretching into adjoining authorities as wellas Aylesbury Vale District Council. LutonBorough Council has been working with theselocal authorities as well as Dacorum BoroughCouncil, St Albans City and District Council,Stevenage Borough Council, Milton KeynesCouncil and Bedford Borough Councilpreparing a Luton & Central BedfordshireStrategic Housing Market Assessment (SHMA)and working constructively on cross-boundarymatters, including where Luton Borough’sunmet housing needs could be delivered inother local authority areas. Thiscross-boundary planning on housing needsencompasses other supporting infrastructurevia respective provision of transport,education and leisure, including greeninfrastructure, wildlife corridors and walkingand cycling routes into and out of theBorough.

1.17 The Duty to Cooperate is intendedto ensure that strategic cross-boundaryplanning issues are adequately taken intoaccount following the abolition of RegionalSpatial Strategies as well as ensuring thatthe prescribed bodies are effectivelyengaged in the process. Compliance with theDuty has enabled the strategic planningcontext of local policies and the involvementand responsibilities of other bodies to beappropriately and effectively taken intoaccount where there are wider than localissues and to ensure the timely delivery andproper coordination of strategicinfrastructure and investment priorities. Inaddition to working with its local authorityneighbours on cross-boundary matters, thereare additional prescribed bodies with whichlocal planning authorities are required tocooperate and are set out in Regulation 4 ofPart 2 of the Town and Country Planning(Local Planning) (England) Regulations 2012.The Council will continue to work with theseorganisations on an on-going basis. For Lutonthey comprise:


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

3

Environment Agency

Historic England

Natural England

Bedfordshire Local Nature Partnership

Mayor of London

Civil Aviation Authority

Homes and Communities Agency

Luton Clinical Commissioning Group

Office of the Rail Regulator

Highways England

Transport for London

Highway Authorities

Luton Borough Council Strategies

Sustainable Community Strategy (2008 -2026)

1.18 The Sustainable Community Strategywas prepared by the Luton Forum (Luton'sLocal Strategic Partnership), whose memberswere from the public, business, communityand voluntary sectors across Luton. TheSustainable Community Strategy describesthe shared vision of how Luton will be in2026, based on the Luton Forum's localknowledge and informed by the aspirationsof local people through consultation.

Luton Borough Council Prospectus (2013 -2016)

1.19 The prospectus is informed by avariety of other plans including the localhealth and wellbeing strategy that was itselfinformed by a joint strategic needsassessment. The prospectus’ last threepoints encompasses the following threepriorities identified by the health andwellbeing strategy: (1) every child and youngperson has a healthy start in life; (2) reducedhealth inequalities within Luton; and (3)healthier and more independent adults andolder people. At the heart of this prospectusis a three point plan to:

increase income from business growth;

better equip residents of all ages to getjobs through investment in educationand training; and

work efficiently with the Police(including the new Police and CrimeCommissioner), the NHS, schools andacademies, the University ofBedfordshire, the voluntary sector andJob Centre Plus to ensure that the mostvulnerable in Luton are safe andsupported.

Luton Borough Council Corporate Plan(2014 - 2017)

1.20 This Corporate Plan draws togetherall the key elements of Luton BoroughCouncil’s proposals as to how it will servethe town over the next few years. As well aslooking at the current status of the authorityin financial terms and in other ways, itexamines the priorities and plans for servicedelivery in Luton, explains how the Councilaims to transform itself over the comingyears and also sets out the medium-termfinancial plan. Drawing up service plans forits many different areas of business has, inparticular, allowed the authority to look hardat how it can maintain its performancefollowing the economic downturn, which willrequire the Council to find savings of some£51m.

1.21 The Council's Corporate Plan visionis that:

Luton Borough Council will be a highperforming, financially viable authority,delivering high quality services thatimprove health and opportunity forlocal people and protect the mostvulnerable.

Together with our partners, we will helpmake Luton a place where everyone canlearn and thrive and where business cangrow and prosper.


LutonLocalPlan

(2011-2031)Novem

ber2017

4

Celebrating and building on Luton’s richhistory and its vibrant cultural mix, wewill develop safe, strong andsustainable communities.

We will be responsive, accountable andinnovative – a leader in what we do anda voice for our town.

Health and Wellbeing

1.22 The Council has a statutoryresponsibility under the Health and SocialCare Act (2012) to improve the health andwellbeing of its community. It is also theresponsibility of the local Planning Authorityto ensure that health and wellbeing andhealth infrastructure is considered as partof the local plan making process. In additionto highlighting the importance of achievingsustainable development, promoting healthycommunities is a key component of theprocess. The Local Plan can play animportant role in supporting the reductionof inequalities in health, improving socialinteraction and creating inclusivecommunities.

1.23 This approach is supported by Luton’sHealth and Wellbeing Strategy (2012-2017)and the Joint Strategic Needs Assessment(2015) where the Council has committed toplacing a greater emphasis on the underlyingcauses of ill health such as the environmentand housing. The Local Plan will support andpromote development that is designed,constructed and managed in ways thatimprove health and promote healthylifestyles.

Minerals and Waste

1.24 Luton carries out its minerals andwaste policy planning jointly with BedfordBorough and Central Bedfordshire councilsthrough a shared service. This joint Mineralsand Waste Local Plan: Strategic Sites andPolicies (2014) plan was adopted by the threelocal authorities in January 2014. Mineralsand waste development will be guided bythe strategic policies of that plan, the moregeneral policies of the Luton Local Plan2011-2031 and the detailed, supplementarypolicies on Managing Waste in NewDevelopments (2006). It is recognised that

minerals and waste development can havesignificant impacts on landscape, the GreenBelt and other environmental concerns. Thepolicies of this plan apply as much tominerals and waste activities as they do toall other forms of development.

1.25 No sites in the Borough are identifiedfor mineral extraction. The minerals andwaste policies map does, however, identifysites within Luton that are important for thedistribution and processing of aggregates,concrete and asphalt. Such safeguarded sitesare identified on the Luton Local PlanPolicies Map.

Neighbourhood Plans

1.26 With the Localism Act coming intolaw, local communities can prepareNeighbourhood Plans through this legislationand, if adopted, they become part of theDevelopment Plan for the area. In this way,local communities can express their wish forappropriate change in a flexible and locallydistinctive manner.

1.27 Luton does not have Parishes or TownCouncils but Neighbourhood Forums may bedesignated by the Council provided that theproposed Neighbourhood Forum meets thecriteria and regulations under the LocalismAct 2011, for the purposes of producing aNeighbourhood Plan, including demonstratingthat the Neighbourhood Forum:

consists of a minimum of 21 memberswho live or work in the area concerned;

whose membership is open to allresidents who live or work in theneighbourhood area, and electedcouncillors;

is established for the express purposeof improving the social, economic andenvironmental wellbeing of the area;and

has a written constitution.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

5

Policies Map

1.28 The Policies Map that is publishedalongside this Plan is a comprehensive mapdisplaying the spatial boundaries of allrelevant development plan policies.

1.29 Where policies have a spatialboundary or location, for example adevelopment site or employment area, theseare shown on the Policies Map. Many of thepolicies in the Luton Local Plan areapplicable to the whole of the borough andare therefore not specifically identified onthe Policies Map.

1.30 The Policies Map is published online.

Technical Evidence

1.31 The National Planning PolicyFramework requires that Local Plans beprepared on the basis of robust evidence.Numerous studies have been prepared by theCouncil, key partners and specialistconsultants on matters includingemployment, housing, infrastructure, retailand viability. Included in this is theInfrastructure Delivery Plan (IDP), which hasbeen prepared to support the Luton LocalPlan and identifies (as far as possible) thecritical and other infrastructure necessaryto support the delivery of the objectives,spatial development strategy and otherpolicies set-out in the Local Plan. The IDPalso provides an overarching framework forservice providers’ plans and programmes,bringing them into one place and helpinginfrastructure providers to plan for thepredicted level and locations of futuregrowth as set out in the Local Plan. The IDPwill be regularly updated and published toprovide the latest position on infrastructuredelivery. A comprehensive list of thetechnical evidence is set out in Appendix 10.

Deliverability and Viability of the LocalPlan

1.32 Government Guidance requires thatLocal Plans are deliverable throughout theplan period. Viability assessments are a toolthat can assist with the development of LocalPlans and policies to ensure that the LocalPlan and its policies are realistic and provide

assurance that the proposals in the Plan areviable and have a reasonable prospect ofdelivery.

1.33 To ensure that the Local Plan meetsthese requirements and the proposals havea reasonable prospect of delivery throughoutthe life of the plan, viability assessmentshave been undertaken by independentconsultants and are published as evidenceto support the Plan. The conclusion of thisevidence is that the proposed developmentstrategy and the individual sites proposedare considered sound.

1.34 Understanding the viability of policiesand development sites is an iterativeprocess. Viability testing hastherefore continued throughout the processof preparing the Local Plan.

Other Necessary Assessments

1.35 The Council has a statutoryrequirement to carry out a number ofassessments in accordance with Europeanand national legislation to ensure that theimplications of policies and proposals in theLocal Plan have been fully understood. Suchassessments include:

Sustainability Appraisal (SA) / StrategicEnvironmental Assessment (SEA):Sustainability Appraisal helps to ensurethat Local Plans and other planningdocuments have a sound understandingof the environmental, social andeconomic characteristics and prioritiesof the area, and then ensuring that theyare integrated into planning policies. Akey requirement is for the SA to test allreasonable alternatives for thedevelopment strategy/options for theLocal Plan. A Strategic EnvironmentalAssessment (SEA) is required byEuropean Directive to assess theenvironmental effects of policies andproposals in Local Plans. A combinedSustainability Appraisal (SA) and SEAhas been prepared for the Luton LocalPlan and is published on the Council'swebsite. The Scoping Report, which wasconsulted on previously, is alsoavailable on the Council's website.


LutonLocalPlan

(2011-2031)Novem

ber2017

6

Integrated Impact Assessment: This isa local requirement to ensure that allCouncil policies, plans and strategiessupport the corporate missionstatement that: ‘the needs of Luton’speople will be first in everything wedo’. The assessment embedsconsiderations of social justiceprinciples and practice into theCouncil’s decision-making process,ensuring adherence to the Equality Act2010 and associated Public Sector Duty.While the integrated impact assessmentwill be reported separately, its keyconcerns are embedded within the SAto avoid duplication of work.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

7

2 Setting the Scene

Settlement Profile / Key Issues andChallenges

2.1 Luton is a densely populated town witha rich history of wealth creation and culturaldiversity. Surrounded by the Green Belt andsituated within the Chilterns 'Area ofOutstanding Natural Beauty', the town enjoyseasy access to high quality landscapes,wildlife areas, parks and other sub-regionalleisure attractions (e.g. Luton Hoo,

Dunstable Downs, Whipsnade Zoo, WoburnAbbey). At the same time, the town benefitsfrom good strategic north-south access tothe Midlands and Greater London (via the M1and Midland Mainline Railway) and is alsoserved by a busy and fast growing airportadjacent to high quality business parks.Significant investment in civic spaces andtransport infrastructure around the towncentre and key regeneration sites are alsoimproving the look, feel and safety of thetown and the way people enjoy its shops andservices.

Luton's regional context

For a more detailed view of the landscape protection areas surrounding Luton see the Luton Key Diagram.

2.2 Luton became an establishedsettlement during the medieval period,formed around the River Lea that played animportant role in the early development ofthe town. Its medieval layout can beunderstood through many of the road nameswithin the town centre such as Bridge Street,Castle Street and Mill Street. The towncentre saw a large expansion during the 19thcentury at which time Luton grew into asuccessful market town. A number of factorswere responsible for the town's growth,including the Great Northern Railway line in1860 and the Midland Railway in 1868. Thestraw hat industry also saw great success

within the town and, by the end of the 19thcentury, was established and largelyinfluenced the built form of the town centre.

2.3 Luton was made a borough in 1876and, with the development of engineeringand automotive industries, grew rapidly inthe 20th century. Vauxhall Motors locateditself in the town in 1905. Luton was bombedduring the Second World War and after thewar a number of estates were built at FarleyHill, Stopsley, Limbury and Leagrave. LondonLuton Airport was officially opened on 16July 1938 as 'Luton Municipal Airport' and theM1 was built in 1959, the central library in

2 . Setting the Scene

LutonLocalPlan

(2011-2031)Novem

ber2017

8

1962 and the Arndale Centre in 1972 (nowknown as The Mall). In 1997 Luton was madea unitary authority. Luton Airport Parkwayand a new passenger terminal at the airportwere built in 1999.

2.4 As part of an ongoing programme ofregeneration, St Georges Square wasredeveloped in 2007. The Luton - DunstableBusway, a high-quality service linkingHoughton Regis, Dunstable and Luton, wasopened in 2014. Today, the population ofLuton numbers approximately 216,800 (ONS,mid-year estimate, 2016) and London LutonAirport is one of the UK’s largest airportsserving 10.5 million passengers in 2014 andcontinues to grow.

2.5 The above factors make the townattractive to business and investment. Lutonis accessible to skilled workers within thewider sub-region and to businesses wishingto access national and regional markets asevidenced through demand to locate onLuton’s quality business parks. Of particularnote is a growing aviation-related and skilledengineering sector, an expanding servicesector base and developing sub-regionalbusiness and office market. The prestigeCapability Green business park is fullyoccupied while Butterfield Green researchpark continues to develop.

2.6 The town's industrial legacy includessome older manufacturing areas that greatlycontribute to the character and localdistinctiveness of the town but are in needof economic and environmental regenerationin order to restore investor confidence.These sites have the potential to adddistinctive identity and architectural valueto regeneration schemes. There is also aneed to build on rising education standardsto improve local skill levels, attractemployers and increase job opportunities.This will enable people to access housing andservices while making more sustainablechoices about travel, energy use, leisure,food and health. There is insufficientaccessible open space of recreational valuewithin the urban area to serve somecommunities and there is an increasingdemand to develop these spaces for other

uses. However, green space is typicallyendowed with important nature conservationor heritage status.

2.7 As a densely populated andmulticultural town (in many ways similar toa London borough), Luton has providedaccess to relatively lower housing costs andrented accommodation compared tosurrounding areas. However, in recent yearsthere has been significant demand toaccommodate a growing population, bothfrom existing households and from peoplemoving into the area, often with lower skillsand wages.

2.8 Without the greenfield land to buildsufficient new housing to meet demand,there is not only a significant level of unmethousing need but an increasing affordabilitygap, as wages lag behind market rent andhouse price rises. Development marketvalues within the town are also significantlylow compared to neighbouring towns.Consequently, the viability of mixed usedevelopment and recycling costly brownfieldsites tends to be uneconomic or so marginalthat the market has been unable to deliveraffordable housing in recent years, exceptthrough major intervention by the Council.

2.9 Luton is therefore unique in that it hasmuch potential for sustainable economicgrowth, which provides quality jobopportunities to its neighbours and its owncitizens, however, it is held back by a rangeof critical constraints and the most criticalof these is the severe inability to houseLuton's growing population and workers.Poverty and poor access to suitable housingand key services such as health andeducation, leisure and green space are keyissues identified by Luton’s Health andWellbeing Strategy (2012–2017) and the JointStrategic Needs Assessment (2015), wherethe Council has committed to placing agreater emphasis on the underlying causesof ill health such as the environment andhousing. The Local Plan will have a key roleto play in promoting health and wellbeing bysetting out clear opportunities and a spatialstrategy based on the town, district andneighbourhood centres hierarchy, for Luton'smany communities to access jobs, housing,schools, healthy nutrition, leisure and green


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

9

space locally within the town that is easilyaccessible via walking and cycling and publictransport.

Exceptional Issues

2.10 Luton is for the most part built up toits boundary and is surrounded by the GreenBelt. The 2016 Strategic Housing LandAvailability Assessment (SHLAA) indicatesthat the town does not realistically havesufficient capacity within its boundary tomeet all of its housing needs.

2.11 Viability studies indicate thatdevelopment is challenging on brownfieldsites in Luton due to abnormal costs inrecycling brownfield employment land andunusually low market values.

2.12 There are only four significantemployment land allocations left within thetown (Power Court, Century Park, ButterfieldGreen and Land South of Stockwood Park) tomaintain Luton’s economic contribution toitself and its neighbours, for businesseswishing to invest into the area or for firmswishing to expand. These sites (oneregeneration site and two greenfield sitesrespectively) require key enablinginfrastructure. There is, however, asignificant economic growth multiplier forLuton and the wider sub-region, provided bythe busy and growing London Luton Airport,which provides a range of aviation-relatedskilled engineering and technicalemployment and also lower skilled workrelated to aviation and business services.There will be a need to ensure that aviationand other related growth arising from theproximity to the airport or related businessclusters are not held back by land andinfrastructure constraints. To achieve this,a strategic allocation comprising LondonLuton Airport, Century Park and WigmoreValley Park, is proposed in the Local Plan.

2.13 The town is attractive to businessand investment as evidenced in the 2013Employment Land Review study. Localindustrial firms struggle to find modern,affordable accommodation and must rely onexisting industrial sites with lower rents(often of lower quality or ageing stock) untilthe new employment land stock is built out.

2.14 Luton town centre is performing wellfor shopping and access and has an improvingpublic realm. The town centre must,however, expand and improve its retail offerto remain competitive in the face of stiffcompetition from its sub-regional neighboursand national retailing trends.

2.15 The town lacks east - west orbitalconnectivity and so suffers from peakcongestion where local traffic and throughtraffic conflict at key junctions and aroundthe town centre.

2.16 School provision is struggling to meetdemand, with significant capacity concernsin southern and central Luton.

2.17 The distribution of greenspacesacross the Borough is unequal with thewestern and central areas of the Boroughhaving significantly less overall greenspace.This is compounded by their location, beingseparated from open countryside andsurrounded by built up areas. The overallcurrent provision of greenspaces is belowthe standards (for each typology) devised bythe Greenspace Strategy Review 2014. Futurepressure from expected population growthmakes the protection and continuousimprovement of the existing greenspaces animportant issue for the communities of Lutonfor recreation and in terms of health andwellbeing. The quality of the Borough'sparks, greenspaces and gardens is also animportant indicator of a town's attractivenessand is a key consideration for people andbusinesses when looking to locate to thearea.

Challenges

2.18 Given the above uniquecircumstances, as evidenced by technicalstudies and analysis, the developmentstrategy must ensure that Luton continuesto successfully grow its economy as asub-regional employer benefiting the townand its neighbours and use its spaceefficiently and effectively whilst looking toits neighbouring authorities to contributequality and affordable housing and mixedcommunities accessible to the town. Thiswill ensure that the benefits of economicdrivers, including Capability Green businesspark, London Luton Airport and Napier Park


LutonLocalPlan

(2011-2031)Novem

ber2017

10

Strategic Allocations are shared by itscitizens and workers in neighbouringauthorities without compromising the town’senvironment and economic success. Toensure this, Luton must secure strategictransport investment unlocking keyemployment allocations whilst alsoprotecting existing industrial sites to ensurethat its economy expands and diversifies tomeet the needs of local residents.

2.19 To ensure that Luton remains bothattractive to investors and as the economic‘heart’ of the Luton Housing Market Area,quality employment allocations must beprotected and other industrial land shouldbe released for housing and other uses onlywhen modern accommodation is completedor where sites are already obsolete.

2.20 Luton Town Centre must also deliverincreased convenience and comparison goodsshopping on key sites and by expanding thetown centre onto Power Court, takingadvantage of the Luton - Dunstable busway,town station improvements and inner ringroad improvements. A network of Districtand Neighbourhood Centres will also increaseaccess to local goods and services and focusinvestment opportunities for new housingand employment regeneration, helping toreduce congestion as there would be lessneed to travel by car.

2.21 A key challenge for this Local Planmust be to secure significant levels ofaffordable housing while ensuring thatdevelopment remains viable and people willcontinue to work and find employment inthe borough. A significant contributionrequired from our neighbouring authoritiesis to provide much needed housing close toLuton taking account of the Luton -Dunstable busway and enabling key orbitalroad improvements, which can linkcommunities whilst removing through trafficand freeing up capacity within the town.

2.22 This local plan is therefore structuredaround a spatial development strategy thatwill focus on a number of solutions.

2.23 Luton's contribution to thesub-regional economy needs to bemaintained and enhanced through thebringing forward of its strategic allocations

coordinated with key infrastructure (e.g.Century Park, Napier Park, Power Court,Land South of Stockwood Park).

2.24 Marginal employment land needs tobe protected to ensure that local firms canafford to do business in Luton until new stockis built out and the market improves. Onlyemployment land that is currently notsuitable or attractive to the employmentmarket will be released.

2.25 The town centre needs regenerationthrough a limited expansion to boostcompetitiveness and provide an improvedoffer to claw back leaked trade. A networkof Neighbourhood and District Centres needimprovement to enable housing,employment, health and small scale retailneeds to be met locally through reducedtravel while maximising public transportconnectivity to the Luton - Dunstablebusway, Luton town centre, employmentareas and Luton Airport Parkway RailwayStation.

2.26 8,500 dwellings will be providedwithin the borough and will contributetowards meeting the full objectively assessedneed for market and affordable housingrequirements through allocations,development at High Town, regeneration ofthe town centre (Power Court) and formeremployment area (Napier Park).Neighbouring local authorities need to helpmeet Luton's unmet market and affordablehousing needs in accordance with the 'Dutyto Cooperate'.

2.27 The town's regeneration needs to besecured through a program of transportinvestment e.g. Town Centre Improvements,Luton railway station improvements, LondonLuton Airport surface access, Century Parkaccess and Junction 10A South of StockwoodPark. Sufficient school places need to beprovided for local communities.

2.28 The town's green spaces and greeninfrastructure network, including the RiverLea and other open areas, need to beprotected and enhanced for wildlife andaccessibility for formal and informalrecreation that bring important benefits interms of health and wellbeing. In particular,


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

11

access to greenspace networks that link upwith cross boundary provision will beencouraged.


LutonLocalPlan

(2011-2031)Novem

ber2017

12

3 Vision and Objectives

Vision and Objectives

3.1 The Local Plan for Luton representsthe long term spatial vision from which theobjectives and spatial strategy have beenderived. The ‘vision’ is a statement of whatthe plan is trying to achieve.

3.2 The strategic objectives form the linkbetween the high level spatial vision and thedetailed strategy. They are the objectivesneeded to fulfil the vision. The policieswithin the Local Plan show how this can beachieved within the plan period.

3.3 The vision and objectives build on andreflect Luton Borough’s SustainableCommunity Strategy and the Council’sProspectus.

Vision

3.4 Luton’s economic, social andenvironmental resources and assets will beused efficiently and sustainably to deliver

economic prosperity and an improved qualityof life, health and wellbeing for all theresidents of the Borough. Luton willstrengthen and, where appropriate,transform the places that continue to makethe borough unique. It will continue to be aplace for diverse communities, building onits strategic importance as a sub-regionaldriver of economic growth.

3.5 London Luton Airport will be improvedto provide more jobs related to aviationindustries and other associated businessclusters and maintain London Luton Airport'skey role as a sub-regional economic driverbringing wealth and job creation (includinghigh skilled jobs) to the town andneighbouring local authorities. Thecompletion of Butterfield Technology Parkwill support more job opportunities in hightechnology industries. Across Luton, a mixof high quality and low cost businessaccommodation will support a range of jobssuitable for the skills of local andneighbouring residents with Power Court,

3 . Vision and Objectives

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

13

Butterfield Technology Park, Century Parkand Napier Park making a strategiccontribution leading to an increase inemployment. The creative and culturalindustries will grow, stimulated by thepresence of a modernised University ofBedfordshire, the historic and distinctiveCreative Quarter and High Town.

3.6 High quality housing andneighbourhoods will be delivered in theBorough and in neighbouring authority areasto ensure there is a sufficient supply of anappropriate mix of dwelling types, sizes andtenures to offer local residents a choice ofwhere to live. This includes mixed uses oncertain strategic allocations such as NapierPark.

3.7 The local workforce will be morehighly skilled and unemployment will bereduced considerably. There will beimproved high standards in educationalestablishments, with students achieving highlevels of education. The supply of schoolplaces will be sufficient and of good qualityto meet local demand and provide forparental choice.

3.8 Luton will respect its classic Chilternsgap town setting in the steep-sided uppervalley of the River Lea, characterised inparts by the Chilterns Area of OutstandingNatural Beauty, Luton Hoo and surroundedby the Green Belt. Luton will protect andenhance its networks of parks, heritage,waterways and natural features, which willcontinue to provide integral multi-functionalopen space, leisure opportunitiesand benefits to health and wellbeing in adensely populated Borough.

3.9 Luton will prosper through awell-connected network of vibrant andregenerated locally distinct places centredaround Luton Town Centre, District Centresand Neighbourhood Centres which haveevolved from the borough’s rich history.Luton Town Centre will be a sub-regionalfocus for inward investment for developmentincluding retail(3), the creative and culturaleconomy, new homes and town centre uses.

Power Court is a 'flagship' project shapingthe future image and function of the towncentre and what it has to offer to shoppersand people visiting the town forentertainment and leisure. The DistrictCentres at Bury Park, Marsh Farm, MarshRoad, Stopsley and Wigmore will also be afocus for development to enable their shopsand services to thrive for the benefit of theirlocal communities. Neighbourhood Centreswill be distributed across the town, betweenthe larger centres, to serve day-to-dayneeds.

3.10 Luton’s communities will be betterconnected and become less dependent oncar use to promote healthy communities withgood access to jobs, goods, services andleisure and cultural activities. An effectivenetwork of Town, District and NeighbourhoodCentres (including a supporting network ofDistrict and Neighbourhood Parks) will serveas the heart of local neighbourhoods withimproved access by train, bus, foot andcycle. Each place will build on its distinctiveidentity, role and function and will be welldesigned, vibrant and, above all, a greatplace to live.

Strategic Objectives

Strategic Objective 1: Retain andenhance Luton’s important sub-regionalrole as a place for economic growth andopportunity including the safeguardingof London Luton Airport’s existingoperations and to support itssustainable growth over the Plan periodbased on its strategic importance.Strategic Objective 2: To utiliseLuton’s economic, social andenvironmental resources efficiently andsustainably, including appropriatemitigation within the limited physicalland capacity of the borough whilstensuring the permanence of the GreenBelt.Strategic Objective 3: To ensure thatnew housing delivers an appropriatelevel of provision to meet local needsin terms of the number of homes,

3 Luton town centre’s description as a ‘Regional Centre’ is the terminology adopted by the WhiteYoung Green’s (WYG) Luton Retail Study Update 2015. This is sourced from Venuescore, anacknowledged industry ranking of retail locations across the UK


LutonLocalPlan

(2011-2031)Novem

ber2017

14

subject to capacity constraints and amix of dwelling types, sizes and tenuresthat offer local residents a choice ofwhere to live and addresses issues ofaffordability and overcrowding. LutonBorough Council will workcollaboratively with neighbouringauthorities to help ensure unmetneeds are provided for in appropriatelocations outside Luton and to activelymonitor progress in terms of unmetneeds.Strategic Objective 4: To establish aneffective network and hierarchy ofTown, District and NeighbourhoodCentres to serve as the heart of localcommunities; improving health andwellbeing through improved access bytrain, bus, foot and cycle to a mix ofuses including shopping, services andjobs.Strategic Objective 5: To improve thebuilt and natural environment to deliverquality places through high quality andsustainable design taking into accountthe landscape, setting and character ofthe town and neighbourhoods within itsnational (i.e. AONB) and local landscapesettings, including heritage assets andproviding safe environments that helpto reduce crime and the fear of crime.Strategic Objective 6: Reduce social,economic and environmentaldeprivation, particularly where it isspatially concentrated, by takingpriority measures to reduceunemployment, improve skills andeducation and renew housing,community and environmentalconditions.Strategic Objective 7: To safeguardand enable new community, educationaland cultural facilities to be deliveredand expanded to meet the needs of agrowing and diverse borough.Strategic Objective 8: Improveaccessibility, connectivity, sustainabilityand ease of movement to, from andwithin the borough.Strategic Objective 9: To deliver a newLuton football stadium in a locationcapable of good access to transportinfrastructure along with associated

uses, shared venue events, and ancillarysports related uses.Strategic Objective 10: Improve,protect and enhance the biodiversity ofnatural areas within the town, includingthe quality, accessibility, health andrecreational value of green spaces, theRiver Lea Corridor, the Chilterns Areaof Outstanding Natural Beauty (AONB),the Areas of Great Landscape Value(AGLV), Areas of Local Landscape Value(ALLV) and their connectivity.Strategic Objective 11: To safeguardand ensure the prudent use of naturalresources, increase energy and waterefficiency and encourage and promotethe use of renewable energy sources tohelp adapt to climate change, managepollution, natural and land useoperational hazards, avoidinappropriate development in areas atrisk of flooding, secure improvementsin air and water quality and ensureeffective waste management.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

15

4 Spatial Strategy

Spatial Development Strategy

4.1 The spatial development strategy isto focus the majority of new developmentin the borough over the plan period on eightStrategic Allocations, whilst protecting theremaining Green Belt from development andregenerating Luton Town Centre. There willbe a presumption in favour of sustainabledevelopment encouraging sustainable andhigh quality development throughout theborough. This preferred strategy has beendeveloped through on-going consultation andengagement and the preparation of evidenceon a wide range of topics including housing,employment, retail, infrastructure, viabilityand numerous other technical studies as setout in Appendix 10.

4.2 As the Development Strategy iscross-cutting, all of the Strategic Objectivesare relevant to this section of the Plan.

Presumption in Favour of SustainableDevelopment

4.3 At the heart of the NPPF is apresumption in favour of sustainabledevelopment, which it explains should be agolden thread running through bothplan-making and decision-taking.Opportunities should be sought to addressdevelopment needs whilst seeking positiveimprovements in the built, natural andhistoric environment and enhancing people’squality of life. Luton provides a clearexample of an area with high pressure fordifferent land uses where the economic,social and environmental roles for theplanning system to perform (as set out onparagraph 7 of the NPPF) cannot be treatedin isolation. The Vision and StrategicObjectives of this plan reflect the range ofoutcomes sought from development. ThisLocal Plan takes this approach in determiningits preferred policy approach. The Plan doesthis by:

4 . Spatial Strategy

LutonLocalPlan

(2011-2031)Novem

ber2017

16

Determining the objectively assesseddevelopment needs of Luton Boroughand the functional Luton Housing MarketArea and seeking to meet those needs;Ensuring flexibility to adapt to rapidchange where appropriate and feasiblein the Plan; andProposing positive policies, whichassume that development proposals thataccord with the development plan willbe approved without delay and, wherethe development plan is silent, it isassumed that planning permission willbe granted unless the adverse impactsoutweigh the benefits.

Policy LLP1 - Presumption in Favourof Sustainable Development

A ‘presumption in favour of sustainabledevelopment’ will be applied todevelopment management decisions.Wherever possible, the Council will workproactively and positively with allapplicants to help shape developmentproposals to deliver growth andsustainable development that can beapproved without delay.

A. Planning permission will be grantedwhere applications accord withlocal plan policies (and, whererelevant, with policies inneighbourhood plans) when takenas a whole, unless other materialconsiderations indicate otherwise.

B. The Council will require all newdevelopment in the borough tocontribute to enhancing a sense ofplace, preserve or improve thecharacter of the area.Development proposals shouldrespond to and enhance localcharacter, the naturalenvironment, heritage assets, andthe identity of the Borough.

The Council will seek to encouragegrowth and sustainable developmentand manage change so as to create anetwork of connected, sustainable, highquality, locally distinctive and healthyplaces.

Growth in homes, jobs and services thatconstitutes sustainable developmentwill be welcomed; provided the growthis directed to places with goodconcentrations of existing infrastructureor areas where there is capacity to growwith further sustainable infrastructureinvestment within the plan period to2031. The Strategic Allocations andLuton Town Centre will be the primarylocation for growth, with District andNeighbourhood Centres also playing asubstantial role as the heart of thecommunities of Luton (see the KeyDiagram).

Sustainable Development Principles

To enable the delivery of sustainabledevelopment and sustainablecommunities, all development proposalswill, where applicable, have regard torelevant plan policies.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

17


LutonLocalPlan

(2011-2031)Novem

ber2017

18

Spatial Development Strategy

4.4 This policy sets out the quantum ofobjectively assessed development needs andrequirements over the plan period for theborough and the functional Luton HousingMarket Area and the preferred locations ofgrowth in the borough as required of LocalPlans in the NPPF.

4.5 It proposes that the objectivelyassessed housing need for the borough is17,800 net additional dwellings and 31,800net additional dwellings in the FunctionalLuton Housing Market Area over the planperiod (2011 – 2031, of which, based on apro-rata split based on population, 200dwellings fall within North Hertfordshire and400 dwellings within Aylesbury Vale and thebalance of 13,400 dwellings within CentralBedfordshire) as evidenced by the Luton &Central Bedfordshire SHMA update of summer2015, which provides more information/analysis.(4) The Functional Luton Housing

Market Area (shown on the accompanyingplan(5) taken from the report, Housing MarketAreas in Bedfordshire and surrounding areasReport of Findings, December 2015) includesall of Luton Borough, a significant proportionof Central Bedfordshire, and some of NorthHertfordshire District and Aylesbury ValeDistrict. The 2016 SHLAA identified apotential capacity of 9,322 over the planperiod. However, some of this identifiedcapacity is unlikely to be developed over theplan period due to market conditions andother uncertainties. Consequently, arealistic assessment is that there is sufficientcapacity to deliver 8,500 dwellings. This,therefore, is the housing requirement for theplan period. Based on the objectivelyassessed housing needs and the lack ofhousing land to fully meet this need, thereis a shortfall of 9,300 net additionaldwellings in the borough over the planperiod.

4 The ‘Best Fit’ Housing Market area OAN of 47,300 dwellings is based on whole districts and coversall of Luton and Central Bedfordshire Districts.

5 The HMA boundaries shown on the plan are illustrative and not to be taken as precise.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

19

Source: Figure 38, page 47 of the "Housing Market Areas in Bedfordshire and SurroundingAreas - Report of Findings - December 2015".

4.6 As a result of this mismatch and theneed for the borough to meet its objectivelyassessed needs whilst protecting otherimportant existing land uses and designationsin the borough such as open space andemployment land, the Council is currentlyworking with other local authorities in thearea to seek the delivery of Luton’s unmethousing needs in these areas outside theborough through their local plans under theDuty to Cooperate. Luton is thereforecapacity capped in terms of the amount ofhousing it can meet within its administrativeboundary and options to meet Luton's unmethousing needs will need to be thoroughlytested through preparation of joint evidenceand potentially met through neighbouringauthorities' local plans.

4.7 Luton Borough Council will seek toensure delivery of the housing needs, whichcannot be met within the Borough, withinthe wider Housing Market Area. As evidencedthrough the SHMA, Luton has the strongestfunctional links with Central Bedfordshire,therefore it is expected that a significantproportion of Luton's unmet housing needswill be met in Central Bedfordshire.However, North Hertfordshire District andAylesbury Vale District also fall within theLuton Housing Market Area, so Luton BC willlook to these local authorities to participatein joint working and, subject to the outcomeof this work and preparation of jointevidence base, make provision for Luton'sunmet housing needs in their local plans orlocal plan reviews. Only in the event of thejoint work failing to meet the scale ofobjectively set housing needs within theFunctional Luton HMA would those parts ofAylesbury Vale, Central Bedfordshire and


LutonLocalPlan

(2011-2031)Novem

ber2017

20

North Hertfordshire, which lie outside theLuton HMA, as well as land within otherneighbouring authority areas further afield,be considered.(6)

4.8 The Borough Council considers thatthe interests of the town and sustainabilitywould best be served by meeting Luton’sunmet housing needs as close as possible tothe communities from which the need arises.Indeed, under the duty to cooperate and inresponse to neighbouring plan preparation,particular account should be taken of thisCouncil’s policy supporting development tothe west(7) of Luton and requesting athorough examination of strategic crossboundary options around the town (i.e. thatan assessment of options north, east, southand west of Luton should be examined).

4.9 Development of a significant scale onor close to the edge of Luton would requiresignificant investment in transportationinfrastructure, including sustainabletransport measures and orbital road capacityto ensure that through traffic can beremoved from traffic needing to access thetown and its employment and shopping areasor when accessing the M1. It would becritical to ensure that such improvementsare well coordinated to ensure adequateinfrastructure to allow traffic movementsaround both the north and south/east ofLuton.

4.10 Due to very challenging developmentviability issues, it is proposed that only 20%affordable housing is required on all newresidential development schemes.

4.11 A total net additional 18,000 jobs(i.e. 8,000 B class jobs and 10,000 non Bclass jobs) are proposed as the objectivelyassessed employment need of the Borough,based on the evidence in the EmploymentLand Review, balanced with the Borough'sobjectively assessed housing need.

4.12 A range of infrastructurerequirements to deliver the preferredstrategy in the Borough are set out in theInfrastructure Delivery Plan (IDP). The IDPis a 'living document' that will be keptup-to-date over the plan period.

4.13 A key component of the spatialstrategy is the continued protection andenhancement of the borough’s heritage andnatural assets including open space ofrecreational value and the remaining GreenBelt. The current provision of green spacesis below standard by typology and is unevenlydistributed (particularly in the West andCentral areas) as set out in the Green SpaceStrategy Review 2014. Green spaces areprotected in Policy LLP27, which requiresnew or enhanced multi-functional greenspace to be provided in accordance withstandards set out in Appendix11.

Policy LLP2 - Spatial DevelopmentStrategy

There is a need for 17,800 net additionaldwellings to support the populationgrowth of Luton Borough over the period2011 – 2031. Over the same period thereis a need for 31,800 net additionaldwellings in the Functional LutonHousing Market Area (which includes theneed for 17,800 dwellings in LutonBorough).

The Local Plan will make provision for8,500 net additional dwellings over theplan period in the Borough and requires20% of all qualifying housingdevelopments under Policy LLP16(Affordable Housing) to be affordabledwellings. Luton therefore has an unmethousing need of 9,300 net additionaldwellings over the plan period. Thelevel of housing provision within Lutonwill not be treated as a ceiling. This isin order to enable developmentproposals to come forward on sites thatare not specifically allocated for housing

6 The Luton Growth Options Study covering the Luton HMA and jointly commissioned betweenLuton, Aylesbury Vale, North Hertfordshire and Central Bedfordshire District Councils was publishedin April 2017.

7 Luton Borough Council resolved at its meeting 18 January 2011 to support development west ofLuton.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

21

but which comply with plan policies,subject to the availability of appropriateinfrastructure. Luton Borough Councilwill continue to work with neighbouringand nearby local authorities to helpensure delivery of the Borough’s unmetneeds in other local authority areasunder the ‘duty to cooperate'. Luton BCwill continue to work with itsneighbouring authorities to help ensurethat the needs of the Luton HMA aremet within the HMA. This work is to beinformed by the Joint Growth OptionsStudy including ‘Areas of Search’ forgrowth of Luton to the North, South,East and West.

A. Housing in the Borough will bedelivered through (data derivedfrom SHLAA, July 2016):

i. historic completions2011/12–2015/16 (2,027dwellings);

ii. existing permissions on sitesdelivering less than 5 homes(114 dwellings);

iii. strategic allocations at PowerCourt, Napier Park, HighTown, Marsh Farm and theCreative Quarter (a minimumof 2,500 dwellings);

iv. housing allocations (2,266dwellings*); and

v. identified non-allocated sitesof at least 5 homes (1,573dwellings).

B. Employment in B Use Classes willbe delivered through:

i. around 69 hectares ofemployment development onStrategic Allocations at LandSouth of Stockwood Park,London Luton Airport,Butterfield Technology Park,Power Court, Napier Park,High Town and the CreativeQuarter; and

ii. delivering net additionalemployment land stock onallocated sites prior toreleasing older unsuitable

employment land andpremises to other uses.

C. Town Centre and retail uses willbe directed in accordance with theCentre Hierarchy (Policy LLP21)reinforcing and enhancing thevitality, viability and regenerationof Luton Town Centre as a regionalcentre** and the network of 6District Centres and 12***Neighbourhood Centres serving theBorough. The Town Centre, Districtand Neighbourhood network willbe a focus for future investmentprovision including transport accessand linkages, community facilities,opportunities for shared servicesas well as appropriate scalehousing, retail and employmentdevelopment.

D. The infrastructure required tosupport the Spatial DevelopmentStrategy will be phased and fundedin line with the InfrastructureDelivery Plan (IDP) and the policiesin the Local Plan including:

i. opportunities to enhance andbenefit from the LutonDunstable busway connectingthe town centre, employmentand commercial centres withlocal communities, keytransport interchanges andthe airport;

ii. the relief of traffic congestionwithin the town centre and atjunction 10A of the M1;

iii. complete plannedaccessibility and mobilityimprovements to Luton TownCentre railway station andtransport interchange;

iv. increased capacity at LondonLuton Airport alongsidetransport accessimprovements; and

v. phasing and delivery ofschools capacity including newprovision, necessary tosupport the needs of Luton'spopulation.


LutonLocalPlan

(2011-2031)Novem

ber2017

22

E. The natural environment, historicenvironment and heritage assetsof the borough will be protectedand enhanced as set out in PoliciesLLP27, LLP28, LLP29 and LLP30 inthe Local Plan including theprotection and enhancement of theGreen Belt.

Footnotes:* Capacity remaining at April 2016.** ‘Regional Centre’ is the terminologyadopted by the White Young Green’s(WYG) Luton Retail Study Update 2015.This is sourced from Venuescore, anacknowledged industry ranking of retaillocations across the UK.*** The location of one NeighbourhoodCentre to be determined (see LLP21A).

Luton Town Centre

4.14 The NPPF (see paragraph 23)highlights the importance of recognising towncentres as being at the heart of communitiesand identifying new ways of ensuring thattown centres offer competitive environmentsby being prosperous, vital and vibrant andthat planning policies set out how the growthof the centre will be managed over the planperiod.

4.15 Luton town centre encompasses theTown Centre Shopping Area and the Mall,the University Campus, leisure attractions,two Conservation areas (Town Centre andPlaiter’s Lea), several listed buildingsincluding St Mary’s Church and the Town Hall

and the main public squares of Luton. Theextent of the Town Centre is, for the mostpart, delimited by the town's inner ring road.

4.16 The town centre is the focal point ofLuton for shopping, leisure, culture,education and employment in the serviceand business sectors and also accommodatesthe major public transportation interchangesof the borough.

4.17 The Luton Town Centre DevelopmentFramework was published in December 2004and was adopted as a Council policy. Itpresents a vision and development strategyto guide the regeneration of the town centreand is a material consideration in thedetermination of planning applications.

4.18 The Luton Town Centre DevelopmentFramework (2004) has guided many of thepublic realm improvements delivered by theCouncil (St George Square, Town Hall Square,Bus Interchange, Market Hill), which haveattracted further investment from theprivate sector. The University Campus hasalso gone through an exciting process ofregeneration and produced some of the moreinteresting contemporary architecture in thetown alongside high quality public realm.

4.19 The town centre is thriving; howeversome parts remain in poor condition (e.g.lack of open space and recreation facilities)and are in need of redevelopment andimprovement. The Council will produce arefresh of the Luton Town CentreDevelopment Framework document to takeinto account the latest developments in thetown centre and the strategic objectives ofthis Local Plan.

4.20 The Council has recognised the needto engage closely with businesses in the towncentre. A Town Centre Team has beenformed on the back of the 'High StreetInnovation Fund' received from centralgovernment. The group proposes andimplements initiatives to revitalise thecentral area. The Council will keep onworking and engaging with thesestakeholders either through this group and/ornew bespoke board groups that will beformed in the future to work on the vitalityand viability of the town centre.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

23

4.21 The River Lea is an important assetof the town and, in particular, of the towncentre; proposals to open up the river may,if viable and feasible, improve theenvironment by providing amenity spaces forresidents and visitors. Improving access tothe River Lea would help in extending theexisting Upper Lea Valley Walk.

Luton Town Centre Evidence Studies

4.22 Luton Town Centre Surveys by BMGshows that while the majority of residentsin Luton use the town centre quite regularlyand visitors are generally satisfied with theenvironment, there is much more to be doneto increase its vitality, accessibility andperception of safety.

4.23 Visits to the town centre decline asthe time of the day progresses and very fewpeople consider the town centre to be livelyand exciting. Key regeneration sites remainvacant and need redevelopment.

4.24 Perception of barriers to access fromindividuals who consider themselves disabledis quite high while particular issues in termsof accessibility are to be found at almost allthe gateways into the town centre. The TownCentre Development Framework (2004) hashighlighted that the ring road has severedconnections, in particular with the south andwest of the town centre. This issuealso impacts on the vitality and vibrancy ofthe area.

4.25 The Peter Brett Associates 'Reviewof town centre office / business premises foralternative re-use' (May 2013) found thatthere is an underlying need for residentialaccommodation driven by a growingpopulation. Mixed-use residential andemployment development is not viablealthough purely residential development isviable and provides an opportunity to replacesome of the poorer vacant commercial stockwithin Luton.

4.26 The White Young Green 'Retail StudyRefresh' (December 2012 - Update 2015)provides guidance and indicative figures forfuture growth in retail floorspace over theplan period. The study shows that theproportion of comparison units in the towncentre is below the national average albeit

the proportion of floorspace is broadlyreflective and the delivery of large, modernretail units occupied by quality nationalretailers should improve Luton’s marketshare by providing an improved shoppingoffer to the Town (in association withcontinued investment and town centreenvironmental upgrade) through bringingforward potential retail development sites.

4.27 The study also found thatconvenience (food store) retail isproportionally under-represented.

4.28 The study suggests that the boroughneeds to continue with investment in orderto make a marked improvement in the towncentre’s competitiveness and strive toincrease what is considered a relatively lowmarket share for comparison goods in theface of intensified competition from rivalcentres such as Milton Keynes and in theperiod from 2022 (when anticipated tradingwill start) from the retail scheme atHoughton Regis North. It considers anincreased market share scenario to beachievable, based on the potential for theNorthern Gateway and Power Court strategicallocations to deliver a step-change in thequality and range of the comparison goodssector within Luton allowing for lead timesin delivering existing commitments. As statedin the report, the retail figures are indicativeand, with the increased population growthwithin and adjacent to the town and phasingof development, the retail figures will bekept under review going forward - to ensurethat the regeneration of Power Court andthe Northern Gateway in the town centredeliver aspirations for an improved shoppingoffer to combat existing deficiencies andretail trade leakage.

4.29 The Luton Hotel Study (July 2015)and Luton Leisure Study (July 2015) sitalongside the Retail Study Update and eachprovides evidence of the additional demandfor these facilities in the plan period. Thestudies respectively conclude that: a) thereis a need for an extra hotel roomrequirement of 1,030 rooms by 2020, growingto potentially 1,830 rooms by 2030predominantly related to aviation andbusiness travel in the vicinity of the airport(i.e. not net additional town centre demand


LutonLocalPlan

(2011-2031)Novem

ber2017

24

above that already committed/allocated);and b) a quantitative need for 10,300sqmnet of Class A3 floorspace by 2031; atheoretical cinema capacity of circa 15-18screens is identified to meet the total StudyArea need to 2031; a qualitative need forbetter co-provision and distribution ofswimming/health and fitness andmulti-purpose theatres/cinemas, andimproved town centre pubs and clubs andmuseum/galleries to offer local choice.

4.30 The preferred policy approach forLuton Town Centre is to focus on theregeneration of key sites and enhancementof heritage assets and the historicenvironment to deliver new housing, retail,creative and traditional businesses, cultureand leisure uses within the historic urbanfabric of the town centre. There are alsothree key strategic allocations that arecomplementary to this regenerationapproach including the Creative Quarter,Power Court and High Town, which will focuson appropriate niche roles for redevelopmentopportunities respecting the character ofeach area. Within the Town Centre, suchuses will be appropriate alongside proposalsfor creative businesses, art and education,building on the existing strengths anddistinctive character of the area. Land willbe used efficiently within the town centreso that development can contributesubstantially to the delivery of the growthidentified for the future and to the creationof a vibrant and competitive environment.

4.31 There will also be an opportunity tomaximise public transport accessibility toexisting and new strategic housingallocations in and around the town centrethrough linkages with the Luton - Dunstablebusway and town centre rail stationterminus. This connectivity will help improveaccess to employment areas stretching fromeast to west across Luton from the airport,Napier Park and Stirling Place via the towncentre and on to Dallow, Chaul End andDunstable. The Local Transport Plan andother sources of infrastructure funding (e.g.bids via the South East Local MidlandsEnterprise Partnership) will all play a partin fostering further public transport accesslinks to the proposed network of District andNeighbourhood Centres across the borough.

4.32 The Council will work with developersand applicants to ensure that a cohesive,inclusive and high quality pedestrianenvironment is delivered across the towncentre that also maintains the high qualitythat has been achieved in public spaces inrecent years.

4.33 There are two Strategic Allocationswithin the town centre that feature in theTown Centre Strategy and are also subjectto their own specific policies:

Power Court Policy LLP9; andCreative Quarter (including StationGateway-Northern Gateway-Land northof St. George Square) Policy LLP11.

4.34 Areas with potential for regenerationbut no specific proposals identified:

University Campus; andCastle Quarter.

Policy LLP3 - Luton Town CentreStrategy

Luton Town Centre will be a locationfor positive change and a focus foreconomic and residential growth and animproved natural and built environment.Building on the town’s rich heritage,this mixed use area will provide abalanced offer of high qualityresidential development, offices andstudios, creative industries,independent and national retail,education institutions and thrivingpublic spaces with a vibrant café cultureand night time economy. Developmentswill complement and benefit from the


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

25

town centre's key strengths: a growingconnectivity as a sustainable transporthub with strong links to London and thewider sub region, served by the LutonDunstable Busway and furtherimprovements to Luton railway stationand inner ring road. Local pedestrianand cycling accessibility will also linkthe Town Centre with key regenerationsites and surrounding NeighbourhoodCentres. Proposals for deculverting andimproving access to the River Lea, alongwith new greenspaces will beencouraged and supported by theCouncil where it is feasible to do so.

A. Power Court (see Policy LLP9), theCreative Quarter (see Policy LLP11)and the University Campus (seebelow) will be a key focus fordevelopment and change over theplan period. Developmentproposals for the town centreshould address the followingcriteria:

i. contribute towards residentialgrowth of around 2,100 newdwellings that will provide asignificant contributiontowards the new homes in theborough and create anexpanded residentialcommunity in the centre ofLuton;

ii. contribute towards jobcreation from retail, offices,creative industries, education,training and leisure;

iii. provide circa 3,400sq.m. netconvenience retail floorspacein the current period andprovide circa 4,420sq.m. ofnon-bulky comparison goodsfor the period to 2020 and30,096sq.m. by 2025, hotels,and leisure uses to maintainand enhance the retailregional* role of the towncentre;

iv. high quality residentialdevelopment will respect thelocal distinctiveness of thetown centre whilst makingthe best use of opportunities

for higher densitydevelopment;

v. opportunities for car freedevelopment will beencouraged where it conformswith Policy LLP32;

vi. contribute to the achievementof a mixed area that is vibrantand active includingenhancing a night timeeconomy;

vii. new development andredevelopment in the towncentre will contributepositively to the economicregeneration and reuse ofheritage assets whilerespecting the existing localdistinctiveness and quality ofthe heritage, including siteswith archaeological interest,in particular ensuring that thecharacter of the ConservationAreas (Town Centre andPlaiters Lea), listed buildingsand landmarks (including StMary’s Church and the TownHall) are maintained andenhanced;

viii. proposals that fall into thePlaiter’s Lea ConservationArea should have regard tothe Historical Area Assessmentproduced by Historic Englandfor this area;

ix. land within the area identifiedon the policies inset map asthe Castle Quarter will beencouraged to be broughtforward within acomprehensive scheme for amixed use development(residential, retail andleisure);

x. deliver a high quality, safeand publicly accessiblepedestrian environment onkey routes within andconnecting to the town centreincluding maximisingopportunities created by thecompletion of the inner ringroad and other improvementschemes throughout the town;


LutonLocalPlan

(2011-2031)Novem

ber2017

26

xi. make more effective use ofthe River Lea as a strategiccorridor forming an historic,cultural and ecologicallandscape feature of thetown, connecting into andthrough the town centre,increasing visibility andaccessibility whereverpossible for structural andflood maintenance, protectionbuffer zones (with nativeplanting), cycling andpedestrian routes, greenspaces, and habitats ofrecreational and biodiversityvalue along its course;

xii. consider opportunities forenhancing existing or theprovision of new quality greenspaces, public art, publicleisure space andenvironmental education;

xiii. development should protectand improve water quality andnot increase the capacity loadon the River Lea culvert; and

xiv. consider opportunities forinclusive use by the widercommunity including publiclyaccessible green space inaccordance with Policy LLP27.

B. University Campus: This area isallocated for cultural uses andhigher education facilities andsupporting uses. Developmentproposals should ensure:

i. quality design and materialsto complement the highquality setting of the existingCampus and of St Mary’sChurch; and

ii. a coordinated and accessiblequality pedestrian networkaround St Mary's Church andlinking to the surroundingstreets (particularly ChurchStreet, Park Street andVicarage Street).

The Council will update the Luton TownCentre Development Framework and /or produce individual developmentbriefs to provide further site specificguidance.

Footnote:*Luton town centre’s description as a‘Regional Centre’ is the terminologyadopted by the White Young Green’s(WYG) Luton Retail Study Update 2015.This is sourced from Venuescore, anacknowledged industry ranking of retaillocations across the UK.

Green Belt

4.35 The NPPF (paragraph 79) says thatthe fundamental aim of the Green Belt is toprevent urban sprawl, keeping landpermanently open, with the essentialcharacteristics of the Green Belt being itsopenness and permanence. It also says that,when undertaking a review of Green Beltboundaries, local planning authorities should:

ensure consistency with the Local Planstrategy for meeting identifiedrequirements for sustainabledevelopment;not include land which is unnecessaryto keep permanently open;where necessary, identify in their plansareas of ‘safeguarded land’ betweenthe urban area and the Green Belt, inorder to meet longer-term developmentneeds stretching well beyond the planperiod;make clear that the safeguarded landis not allocated for development at thepresent time. Planning permission forthe permanent development ofsafeguarded land should only be grantedfollowing a Local Plan review whichproposes the development;satisfy themselves that Green Beltboundaries will not need to be alteredat the end of the development planperiod; anddefine boundaries clearly, using physicalfeatures that are readily recognisableand likely to be permanent.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

27

4.36 A Stage 1 Green Belt Study(September 2014) has been undertaken bythe Council (in line with the requirementsof the NPPF), which reviewed the Green Beltdesignations and boundaries in the borough.The conclusion of this study is that no majorchanges to the Green Belt should be made.This is because the Green Belt areas servethe national purposes of the Green Belt.Given the level of unmet housing need inLuton and scale of potential developmentproposals on the edge of Luton, the Stage 1Study concludes that a Stage 2 study beundertaken on a cross-boundary basis if therewere to be agreement between therespective authorities to undertake such astudy.(8) The six Green Belt areas in Lutonidentified on the policies map include:

Warden HillStopsley CommonOaket woodPutteridgeDane StreetSomeries.

4.37 As well as serving the key functionsof a Green Belt as set out in national policy,Luton's Green Belt also provides a secondarypurpose for beneficial uses such as amenityfor the urban population and providingopportunities for joined up planning acrossthe boundary for informal high qualityoutdoor recreation and green space, whichis lacking in Luton. The Green Belt areas alsohave other national and local designationswithin Luton such as AONB, SSSI, CountyWildlife Site, Scheduled Monument andRegistered Parks and Gardens, which providehabitat for wildlife, preserve historic sitesand their setting and conserve the landscape.

4.38 As the NPPF states, inappropriatedevelopment is, by definition, harmful tothe Green Belt and should not be approvedexcept in very special circumstances. Thisapplies to all development, includingminerals and waste-related activities. TheGreen Belt Policy reflects this approach.

Policy LLP4 - Green Belt

A. Within the areas defined as GreenBelt on the policies map planningpermission will not be granted forinappropriate development:

Warden HillStopsley CommonOaket woodPutteridgeDane StreetSomeries

B. Inappropriate development is bydefinition, harmful to the GreenBelt. Only in very specialcircumstances will inappropriatedevelopment be permitted in theGreen Belt. Exceptions toinappropriate development are setout in the National Planning PolicyFramework (NPPF).

Strategic Allocations

4.39 The NPPF (paragraph 157) requiresLocal Plans to allocate sites to promotedevelopment and the flexible use of landand to bring forward new land wherenecessary, and provide detail on form, scale,access and quantum of development whereappropriate.

4.40 The Local Plan makes eight strategicallocations in the borough where the mostsignificant change will take place over theplan period in terms of the increase of newdwellings, jobs, retail, and improvements tothe built and natural environment.

4.41 Five of the strategic allocations arelocated in the southern area of the Boroughwith three strategic allocations located inor adjacent to Luton Town Centre (PowerCourt, Creative Quarter and High Town).

8 A joint Green Belt Study - which includes a Stage 2 study for Green Belt within Luton's boundary- commissioned and agreed between Luton Borough Council and Central Bedfordshire DistrictCouncils was published in April 2017.


LutonLocalPlan

(2011-2031)Novem

ber2017

28

4.42 The majority of the strategicallocation sites are rolled forward andupdated from the previous Local Plan as inthe case of Butterfield Technology Park,Land South of Stockwood Park and CenturyPark (now combined with the London LutonAirport Strategic Allocation) and theserepresent the last remaining suitablegreenfield sites for strategic development.Strategic Allocations at Napier Park, PowerCourt, Creative Quarter, High Town andMarsh Farm are all previously developed sitesthat are in need of redevelopment andimprovement. Given the economic viabilityissues in the borough, as explainedpreviously, coupled with the extent ofenvironmental remediation required at anumber of the sites, particularly Napier Parkand Power Court, the quantum, mix of usesand phasing of allocations on previouslydeveloped land will need to be carefullyconsidered to reflect the outcome of moredetailed evidence that is currently beingprepared on economic viability andremediation costs and consultation withlandowners and stakeholders.

4.43 There are 8 strategic allocationsproposed for designation in this Plan:

Land South of Stockwood ParkLondon Luton Airport (includes CenturyPark)Butterfield Green Technology ParkNapier ParkPower Court (Town Centre)High TownCreative Quarter (Town Centre)Marsh Farm

Land South of Stockwood Park

4.44 Land south of Stockwood Park,bounded by the M1 motorway to the east andM1 spur to Junction 10a in the west, isallocated as a prestige gateway businessdevelopment. Regard will need to be had tothe plan policies as a whole and, in particularbecause of the chalk aquifer, sustainabledrainage and pollution matters in policiesLLP36 and LLP38 and the adjacent landscapeand heritage assets, which will need to beconsidered with regard to the matters in

policies LLP29 and LLP30. The proposed siteis accessible to the strategic road network(e.g. Junction 10a and New Airport Way) andalso offers opportunities for improved publictransport links to the town centre and LutonAirport Parkway railway stations. This willbe achieved by safeguarding 2 ha of land forthe provision of a Park and Ride facility. Theprovision of the Park and Ride is not arequirement of the proposed B1 business use.Parking provision will accord with PolicyLLP32 (Parking) and the character and formof development will respect relevantrequirements set out in Policy LLP25 (HighQuality Design).The B1 office use on the sitewill accommodate a shortfall in provision tomeet an identified need for B1 officeaccommodation over the plan period(9).Following the public examination of the plan,the relocation of Luton Town Football Cluband uses and policies relating to the strategicallocation at Land South of Stockwood Park,including the provision of a Park and Ridefacility will be considered in the early reviewof the local plan.

Policy LLP5 - Land South of StockwoodPark Strategic Allocation

A. Land identified on the Policies Mapsouth of Stockwood Park adjacentto Junction 10a of the M1 isallocated for a 14 ha prestigegateway development according tothe following scales:

i. B1 business use on 9.5 ha ofland to meet an identifiedshortfall of office employmentspace over the plan period;and

ii. the safeguarding of 2 ha ofland for a park and ridefacility which will allow scopeto secure enhanced publictransport to the town centre.

B. Subject to the following:

9 Employment Land Review Nathaniel Lichfield and Partners, paragraph 17


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

29

i. development proposals shouldbe accompanied by acomprehensive masterplan forapproval, which includes anindicative layout and phasingplan, sustainable constructionmethod and materials,landscape and biodiversityschemes and includes ananalysis of impacts from andon the surrounding landscapeand heritage assets and setsout details of how the MasterPlan will be implemented andany identified impacts bemitigated;

ii. the development will not takeplace until Highways Englandis satisfied the proposals donot have an unacceptableimpact on Junction 10aimprovements and upon theM1 motorway, and shall notcompromise the safety of roadusers;

iii. public transport services aresecured to meet the expecteddemand arising from thedevelopment;

iv. the development will providea high quality southerngateway to the town and willuse public art, green space,built design, lighting andtopography to conserve andenhance the appearance ofthe adjoining Green Belt, Areaof Great Landscape Value,County Wildlife Site, QE IIplaying fields, the RegisteredPark and Garden of Luton Hooand the Chilterns AONB;

v. the development will be of aheight and with lighting thatdoes not compromise thesafety of the operations ofLondon Luton Airport;

vi. the development will protectfeatures of natureconservation interest andheritage assets; and

vii. improving connectivity tonearby cycle and footpathsand existing public rights of

way and the rights of publicutility providers will besafeguarded.

London Luton Airport

4.45 London Luton Airport is a busy,growing airport currently operating at around10 million passengers per annum with acapacity to manage up to 12.4mppa, andwith the planning consent 12/01400/FULallowing the airport to grow to an operatingcapacity of 18mppa. This is supported byPolicy LLP6, which includes criteria to allowadditional proposals to be considered inaccordance with the most up-to-date MasterPlan (i.e. that Master Plan which isapplicable at the time of determining anyplanning application). The airport providesinfrastructure and services for commercialand business-related aviation (in 2012 nearly17% of airport passenger was for businesstravel) as well as air cargo/freight andgenerates significant employment forresidents of the town and surrounding areas.This includes aviation-related engineeringand services and other aviation-related jobs.The airport also provides and underpinsemployment for a pool of workers andbusinesses that use and rely on the airportfrom neighbouring local authorities' areas,in particular Bedfordshire, Hertfordshire andBuckinghamshire.

4.46 Luton lies within an airportsafeguarding area. Certain planningapplications will be the subject ofconsultation with the airport operator andthere may be restrictions on the height ordetailed design of buildings and operation


LutonLocalPlan

(2011-2031)Novem

ber2017

30

of cranes that impact on the flight path orradar or on development that could createa bird hazard as described in ODPM Circular1/2003.

4.47 Further guidance on safeguardingissues, can be obtained from documentsincluding the following published by the CivilAviation Authority:

CAP738 Safeguarding of AerodromesCAP764 Policy and Guidelines on WindTurbinesCAP772 Wildlife Hazard Management atAerodromes

4.48 In addition, Department for TransportCircular 01/2010 relates to the Control ofDevelopment in Public Safety Zones (PSZ).PSZs are areas at either end of the runway,within which development is restricted inorder to control the number of people living,working or congregating on the ground inthat area in order to minimise the risk in theevent of an accident on take-off or landing.

4.49 Safeguarding maps and maps showingthe PSZs are held by the Local PlanningAuthority and the airport operator and areavailable for reference. More complexproposals may require modelling to becarried out by the airport operator toestablish the impact of a development onthe airport operations.

4.50 Whilst growth at London LutonAirport is acknowledged, Policy LLP6 seeksto encourage the use of sustainable transportmeasures in accordance with the airport'sown Surface Access Strategy, in preferenceto the use of private motor vehicles. Whilstit is recognised that there is a need forairport car parking, future growth does notnecessarily require significant off-site carparking provision. The on-site car parkingprovision may provide adequate supply inthe short term. The policy does not precludefurther off-site provision, but applicants willbe required to justify proposals in terms ofneed (taking into account existing capacityand occupancy). This approach has beensupported by the Court of Appeal (GPS vSecretary of State for Communities and LocalGovernment C1/20014/1264 11th February2015).

4.51 Policy LLP6 makes provision for theairport to respond positively to future growthhelping to safeguard Luton's key sub-regionaleconomic contribution to jobs and wealthcreation while setting a clear environmentand transport framework with which toregulate future growth. Century Park isincluded within the strategic allocation fora range of Use Class B employmentdevelopment with particular support for arange of aviation and automotivemanufacturing-related uses to be deliveredadjacent to the airport and including hotelprovision. The Hotels Study 2015 concludesthat there will be a need for extra hotelroom provision of 1,030 rooms by 2020,growing to potentially 1,830 rooms by 2030and generated mostly by aviation-relatedand business travel in the vicinity of theairport. Given the strategic relationshipbetween Century Park, the airport (and theirsubstantial inclusion within the Luton AirportEnterprise Zone designation - see Appendix13), the sub-regional economy and localtransport network with connections to M1Junction 10a via New Airport Way, it isproposed that the Century Park site andWigmore Valley Park, as allocated in theprevious Local Plan, are integrated togetherwith the London Luton Airport StrategicAllocation as a single strategic allocation.

Policy LLP6 - London Luton AirportStrategic Allocation

The London Luton Airport StrategicAllocation (approximately 325 hectares)includes land within the airportboundary, Century Park and WigmoreValley Park (as identified on thePolicies Map). The allocation serves thestrategic role of London Luton Airportand associated growth of business andindustry, including aviation engineering,distribution and service sectors that areimportant for Luton, the sub-regionaleconomy, and for regenerating thewider conurbation.

Airport Safeguarding

A. Development that would adverselyaffect the operational integrity orsafety of London Luton Airport will


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

31

not be permitted. With respect tooperational and national securityconsiderations, this includes (butis not limited to) concerns over theheight of buildings, lighting, birdactivity, and proximity to PublicSafety Zones. Refer to Policy LLP34for the Local Plan policy for thePublic Safety Zones.

Airport Expansion

B. Proposals for expansion of theairport and its operation, togetherwith any associated surface accessimprovements, will be assessedagainst the Local Plan policies asa whole taking account of thewider sub-regional impact of theairport. Proposals for developmentwill only be supported where thefollowing criteria are met, whereapplicable/ appropriate havingregard to the nature and scale ofsuch proposals:

i. they are directly related toairport use of development;

ii. they contribute to achievingnational aviation policies;

iii. are in accordance with anup-to-date Airport Master Planpublished by the operators ofLondon Luton Airport andadopted by the BoroughCouncil;

iv. they fully assess the impactsof any increase in AirTransport Movements onsurrounding occupiers and/orlocal environment (in termsof noise, disturbance, airquality and climate changeimpacts), and identifyappropriate forms ofmitigation in the eventsignificant adverse effects areidentified;

v. achieve further noisereduction or no materialincrease in day or night timenoise or otherwise causeexcessive noise includingground noise at any time of

the day or night and inaccordance with the airport'smost recent Airport NoiseAction Plan;

vi. include an effective noisecontrol, monitoring andmanagement scheme thatensures that current andfuture operations at theairport are fully in accordancewith the policies of this Planand any planning permissionwhich has been granted;

vii. include proposals that will,over time, result in asignificant diminution andbetterment of the effects ofaircraft operations on theamenity of local residents,occupiers and users ofsensitive premises in the area,through measures to be takento secure fleet modernisationor otherwise;

viii. incorporate sustainabletransportation and surfaceaccess measures that, inparticular, minimise use ofthe private car, maximise theuse of sustainable transportmodes and seek to meetmodal shift targets, all inaccordance with the LondonLuton Airport Surface AccessStrategy;

ix. incorporate suitable roadaccess for vehicles includingany necessary improvementsrequired as a result of thedevelopment.

Airport-related Car Parking

C. Proposals for airport-related carparking should be located withinthe Airport Strategic Allocation, asshown on the proposals plan(excluding Century Park andWigmore Valley Park) and will needto demonstrate that the proposals:meet an objectively assessed need;do not adversely affect theadjoining highway network; andwill not lead to the detriment of


LutonLocalPlan

(2011-2031)Novem

ber2017

32

the amenity of the area andneighbouring occupiers. Proposalsfor airport-related car parkingoutside this area will only bepermitted where: there isdemonstrated to be a long-termcar parking need that cannot bemet at the airport; they accordwith the sustainable developmentprinciples as defined by the planas a whole; they relate well to thestrategic road network and do notexacerbate traffic congestion; theydo not have an adverse impact onamenity; and are in accordancewith the most recently approvedLondon Luton Airport SurfaceAccess Strategy.

Century Park

D. Development of Century Park willbe supported where proposalsmake provision for office,manufacturing and distributionemployment. Particular supportwill be given and provision madefor engineering and manufacturingfor both aerospace and automotivepurposes that demonstrate a needto locate close to the airport. Inaddition, a range ofaccommodation types, includingsmall scale affordable B2 units tofacilitate the expansion andrelocation of existing Luton-basedbusinesses, new business start-upsas well as significant inwardinvestments, will be allowedprovided that it does not generatebad neighbour issues.Warehousing-only developmentsmust demonstrate a need toco-locate near the airport. Smallscale retail, related services andleisure (as defined in Use ClassesA1 to A3 and D2) will be permittedin order to serve the needs,primarily, of employees in thearea, as well as a hotel (Use ClassC1). The Council will requireproposals to be subject to acomprehensive development briefor Master Plan, which shall set out

the proportion and phases ofdevelopment and which shallinclude the following:

i. details of the proposedaccess, which shall be via theextension of New Airport Way(which connects the airportto M1 J10A) and shall linkPercival Way through toCentury Park (as shown by thearrow on the Policies Map),such access shall be designedso as to ensure that no use ismade of Eaton Green Road toprovide access to CenturyPark or the Airport, except forpublic transport, cyclists,pedestrians and in case ofemergency; and

ii. secure opportunities to linksite access via walking,cycling and bridleways to thewider network of routes viaWigmore Valley Park andaccess to the countryside tothe east and south.

Wigmore Valley Park

E. Wigmore Valley Park is integral tothe London Luton Airport StrategicAllocation. In deliveringdevelopment and access underclause D (i.e. Century Park) above,including any reconfiguration ofthe land uses that may benecessary, the following criteriawill need to be satisfied:

i. provision will be made toensure that the scale andquality of open space andlandscaping in the area ismaintained and, if feasible,ensure that there is a netincrease in open spaceprovision;

ii. bio-diversity will be enhancedand improved within theBorough;

iii. that the new open space toreplace Wigmore Valley Parkoffers facilities of at least


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

33

equal quality and is availableand accessible before anydevelopment takes place onthe existing Wigmore ValleyPark;

iv. the long term management ofopen space, landscaping andbio-diversity interest iscompatible with that for safeairport operations and will beof a high quality and securedthough a legal agreementestablishing long termfunding.

Design and Drainage

F. Development proposals for theLondon Luton Airport StrategicAllocation will ensure:

i. appropriate strategiclandscaping to be providedboth on and off-site, whichshall have regard to thepotential for significant visualprominence within the widerarea of built development atCentury Park and which doesnot increase risk to aviationoperations arising fromstructures, lighting, bird strikeor open water and havingregard to operational andnational securityconsiderations;

ii. the height and design ofbuildings will reflect the site’srural fringe setting, its highvisibility from surroundingcountryside and its proximityto London Luton Airport;

iii. provision is made forsustainable drainage and thedisposal of surface water inorder to ensure protection ofthe underlying aquifer andprevent any harm occurringto neighbouring and lowerland; and

iv. that development proposals,where applicable /appropriate will fully assessthe impacts upon heritage

assets and their setting, andshould be designed to avoidharm to the setting of anyheritage assets. Proposals willbe considered in line withPolicy LLP30 (historicenvironment).

Butterfield Green Technology Park

4.52 The site contains high value,knowledge-based businesses such as HitechInstruments and MTL Instruments, as well assome University of Bedfordshire uses, theEnterprise Hub and the Basepoint InnovationCentre. 40% of the overall developable sitehas been developed to date and provides theonly credible and available land within Lutonto attract knowledge-based activities,including advanced manufacturing (such thearrival of MTL Instruments in 2008).

4.53 The site has been assessed againstuses other than employment due to itslong-term vacancy (Employment LandReview). The study concluded thatButterfield Green Technology Park is, andshould remain, a good quality employmentsite.

4.54 The analysis indicates that Luton willhave a shortage of land for B1 officepremises, which often also accommodatesR&D activities. This may include appliedresearch and development involving productinnovation and advanced manufacturingprocesses requiring B1c light industryfacilities to be provided. In addition, theretention of land at Napier Park by Vauxhallhas increased pressure to secure alternativeopportunities for other B Class uses,especially B2.

Issues to address during the plan:

4.55 The majority of the site hasbeen undeveloped for a long period oftime arising from the subdued nationaleconomy.


LutonLocalPlan

(2011-2031)Novem

ber2017

34

4.56 The Butterfield area representsthe only opportunity to provide a parkand ride facility on the A505 gatewayinto Luton. The policy thereforesafeguards land required, considered tobe circa 1 hectare, having regard topreliminary studies on theimplementation of park and ride inLuton.

4.57 The proximity of County WildlifeSites and the Area of OutstandingNatural Beauty, including the setting ofthe Registered Park and Garden atPutteridge Bury, requires a thoroughcontrol of densities and landscaping.

Policy approach:

4.58 Commercial market views werethat this site would attract developmentwhen the property market recovers.Recent enquiries by large employerssupport this view. However, to stimulatethe market, some flexibility is permittedfor high quality B2, where compatiblewith the Technology Park, and also alimited number of plots for high qualityB8 provision contained physically andvisually within the site.

4.59 Built development should be lowrise and low density in order to retainthe essentially open nature of the area,with generally no more than 35% of theplot area occupied by buildings.

4.60 Existing natural features andrights of way should be retained and,where possible, enhanced.

4.61 The existing development of theInnovation Centre and Enterprise Hubare examples of sustainable design andshould be replicated by newdevelopment to reduce their impact onthe natural environment as much aspossible.

4.62 Appropriate public transportfacilities must be incorporated into thedetailed development proposals.

Policy LLP7 - Butterfield GreenTechnology Park

The undeveloped land (23 hectares) atButterfield Green is allocated for:

the development of high quality B1and B2 uses that are compatiblewith the technology park concept.This will provide opportunities forboth inward investment and theexpansion and relocation ofexisting businesses within Luton’sadministrative boundary;high quality B8 use, where thescale and nature of the use arecompatible with the technologypark concept, will be onlyacceptable on the undeveloped2.45 hectare plot in the north-eastcorner of the site and on 6.59hectares of land to the west of theBusiness Base within the existinghedgerow/tree feature;support will also be given to theprovision of a park and ride facilityto mitigate traffic in the borough(on circa 1 hectare of land; andother uses such as small scale retail(A1 and A3) and leisure uses suchas a gym (Class D2) to serve thedevelopment and support theoverall success of Butterfield as amodern Technology Park will alsobe permitted. All developmentproposed will be of a quality ofdesign compatible with thetechnology park.

A. Development should accord withthe Spatial Development Strategy,other policies in the plan andfollow the site-specificrequirements:

i. development proposals shouldbe accompanied by anindicative masterplan todemonstrate how each plotcan be delivered withoutprejudicing the delivery of thewider site requirementsreferred to in (a), (b), (c), and(d) above;


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

35

ii. new development shall haveregard to and, where possible,replicate or exceed the highbenchmark of sustainabilityachieved by existingdevelopments at Butterfieldand be an exemplar of highquality and energy efficientmodern development in thetown;

iii. materials should referencethose used in the existingstructures and createcontinuity with the existingdevelopment;

iv. proposals must achieve asense of spaciousness thatreflects the technology parkconcept and for this reasonbuildings should generally notoccupy more than 35% of theplot area but the precisepercentage achieved will bedetermined by the quality ofthe design of the developmenttaking account of proposedlayout, landscaping andpositioning of buildings;

v. access to the site should beprovided by the existingaccess from the A505 (HitchinRoad);

vi. integrated sustainabledrainage systems areparticularly appropriate forthis site;

vii. existing landscape featuressuch as hedgerows and pondsshall be retained andopportunities taken toenhance such features wherepracticable and may includeminor alteration orreplacement elsewhere inorder to achieve this andaccommodate infrastructurerequirements;

viii. the views from the adjacentStopsley Common and OaketWood County Wildlife Site andthe setting of the RegisteredPark and Garden at PutteridgeBury should be protectedthrough sensitive planting and

landscaping. Typically,buildings will be restricted totwo storeys, increased tothree storeys where it can bedemonstrated that thedevelopment will notadversely impact upon viewsinto the site;

ix. existing rights of way shall besafeguarded or redirected asnecessary. Opportunities topromote pedestrian and cycleaccess to the wider area willbe addressed where this ispracticable;

x. a plot of land sufficient for anew 450 space Park and Ridefacility to be provided nearthe entrance of the existingInnovation Centre* in order tomitigate traffic in the boroughand promote sustainable tripsto/from the development.This land will be safeguardedfor 5 years following transferof the title to the Council toenable delivery of the Park &Ride scheme. The transfer ofthe land will occur when 30%(from the position at January2017) of the remainingundeveloped technology parkis developed. If the facility isnot built within 5 years fromthe transfer date, the landwill transfer back to thelandowner at nil cost. Subjectto its provision, additionalS106 contributions towardsoff-site transportinfrastructure or funding ofthe facility from withinButterfield will not be sought;and

xi. B2 and B8 elements will onlybe permitted where thedeveloper can demonstratethat these proposals will notlead to demonstrable harm byway of noise, vibration, visualimpact (including lighting),and any noxious emissions orpotential contamination.


LutonLocalPlan

(2011-2031)Novem

ber2017

36

Footnote:* Or at an alternative location to beproposed and agreed with the Councilin the indicative masterplan.

Napier Park

4.63 Napier Park is the largest brownfieldsite in Luton, which would contributeconsiderably to the growth of the town whenredeveloped.

4.64 Around 23 hectares of the formerVauxhall Plant lends itself to be redevelopedfor housing, offices, light industry, retail,leisure, tourist accommodation and carparking. The reacquisition of a 7.58 ha plotby GM Vauxhall for operational reasons, andits implications for delivering B classaccommodation, will be kept under reviewand be the subject of the early plan review.

4.65 The Council has already deliverednew access to the north of the railway tracksonto the Luton Airport Parkway RailwayStation, to ensure full accessibility to therail services linking to central Luton, London,the Midlands, the wider region and beyond.The proximity of the Luton - Dunstableguided busway will provide excellentaccessibility to the areas of Luton, Dunstableand Houghton Regis, the main town centretransport hub and London Luton Airport.

Key issues

4.66 The land drops significantly: thedifference being approximately 140 feetof slope between the top western sideand the bottom eastern side of the site.

4.67 The land is a series of platformsraised above Kimpton Road and there islikely to be difficulty in providingaccessible, convenient access.

4.68 Vehicular access will only bepermissible off Kimpton Road, whichwill involve careful management oftraffic implications at peak hoursbetween the residential elements,

service and employment traffic, whilestill allowing access for emergencyvehicles.

4.69 A covenant limits the locationof housing to the eastern side of thesite.

Policy approach

4.70 The key aim for this site is todeliver high quality housing, offices andlight industry, including a newneighbourhood centre composed mostlyof convenience retail units clusteredaround a vibrant public space to servethe needs of the new community.

4.71 The proximity of Luton AirportParkway railway station allows leisureand hotel uses to be delivered on thesite.

4.72 Flood risk mitigation such asSustainable Drainage Systems (SuDS) isrequired due to the flood risk issues ofthe site.

4.73 The public space should bevibrant, safe and well linked to the restof the town.

4.74 Development should complementand not have an adverse effect upon thevitality or viability of Luton TownCentre.

Policy LLP8 - Napier Park

Napier Park is a brownfield site ofaround 25 hectares, located on theformer Vauxhall car plant. The site isallocated for a mixed use neighbourhooddevelopment including B1 business useswith particular support for B1a officesand B1c light industry as well as smallscale, affordable B2 accommodation.Provision will be made for between 600and 1,300 residential units with aconvenience retail-led NeighbourhoodCentre and a hotel.

A. Development proposals should beaccompanied by a comprehensive


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

37

masterplan for approval, whichincludes an indicative layout andphasing plan and Landscape Planand sets out details of how thesewill be achieved.

B. Development should accord withthe Spatial Development Strategy,other policies in the plan andfollow these site-specificrequirements:

i. a new neighbourhood centrefocused around a vibrantpublic space, including greenspaces, with safe and directwalking and cycling routes toLuton Airport Parkway RailwayStation and the town centre;

ii. integrated SustainableDrainage System (SuDS) and/or other appropriate measureswill be required to mitigateflood risk;

iii. development should respectand minimise its impact onthe local landscape includingHart Hill and the nearbycemetery;

iv. parking and service accessshould be well integrated intothe design of the schemeaway from the main publicsquare or on undergroundparking;

v. offices and industrial usesshall be of a high qualitycontemporary design andenergy efficiency inaccordance with PoliciesLLP25 and LLP37;

vi. a range of housing densitiesappropriate to the site shouldbe provided to meet thehousing need of Luton’scommunity;

vii. proposals should make bestuse of the Guided Busway andLuton Airport Parkway RailwayStation and also providepublic transport and walkingand cycling routes within thesite to serve the newresidential and employmentareas to encourage

sustainable travel patternswith particular regard to theneed for disabled access; and

viii. a new access road shall beprovided off Kimpton Roadinto the site and be designedfor cars, buses, walking andcycling.

Power Court

4.75 The Power Court site is located on adisused power station and prior to this wasa residential neighbourhood. The coolingtowers of the electric works were a landmarkin the town until the 1970s when the sitewas redeveloped for a mix of manufacturingand general industrial uses. The site is nowvacant with the exception of a smallwarehouse currently in use.

4.76 The site is strategically important asit consists of 7 hectares adjacent to the mainshopping area of Luton Town Centre and isa key gateway to the town from the east.The site benefits from excellent accessibilityin terms of its proximity to the main modaltransport hub of the town (formed by theguided bus, the bus interchange and themain train station), the university campusand the eastern road route between thetown centre and London Luton Airport.

4.77 Therefore Power Court is a majorredevelopment opportunity within LutonTown Centre, which needs to be broughtback into effective use over the plan periodto help deliver the strategic objectives ofthe Plan. Any new development on this siteshould deliver a high quality scheme that


LutonLocalPlan

(2011-2031)Novem

ber2017

38

manages to improve the image of Luton,whilst respecting the role of St Mary’s Churchand its grounds immediately to the south.

Key issues

4.78 The area is exposed to fluvialflooding from the River Lea and pluvialflooding. The Chapel Viaduct/ StuartStreet Critical Drainage Area and surfacewater flooding maps show the extent tobe much larger than the fluvial impactalone (Surface Water Management Plan2013).

4.79 The British Geological Surveygroundwater flooding susceptibilitymaps also show a high to very high riskof fluvial (River Lea) and pluvialflooding (e.g. Chapel Viaduct StuartStreet Critical Drainage Area, 'CHAST').

4.80 Currently the ring road isperceived as a barrier to pedestrianmovement and the site is considered tobe disconnected from the town centre.

4.81 Contaminated land fromprevious uses might impact ondevelopment viability.

4.82 The River Lea runs under aculvert and currently does not meet thequality standard of the WaterFramework Directive.

4.83 The Retail Study Refresh (2012- Update 2015) identifies that the siteis able to accommodate a current needfor circa 3,393sq.m. net convenienceretail floorspace. The Employment LandReview (2013) identifies the site asappropriate for a large mixed usescheme, providing also a modest amountof offices.

Policy approach

4.84 The main objectives for PowerCourt are to maximise theredevelopment opportunity of the siteand its important location through thedelivery of a mix of uses and in a form

that complements the historical towncentre and makes the site an integralpart of it.

4.85 To establish strong pedestrianlinks with other parts of the area,creating a more pedestrian orientedenvironment.

4.86 Make the most of the River Lea,including opportunities for deculvertingthe river, which could become anattractive feature of the town centreas a restored landscape feature and partof the identity and history of Luton;while providing an efficient flooddefence and bio retention system, andimproving water quality.

4.87 Opportunities to accommodatethe convenience retail needs of thetown and expand the housing andbusiness supply in the town centre,through sustainable construction.

4.88 The Town Centre DevelopmentFramework (and its proposed review –see Policy LLP3) provides backgroundinformation for proposals at PowerCourt.

Policy LLP9 - Power Court

Power Court is a brownfield site ofaround 7 hectares located in Luton TownCentre’s northeast gateway bounded tothe north by the route of theLuton-Dunstable Guided Busway and therailway line and to the south by StMary's Road.

Power Court is a key site for achievingregeneration objectives of the plan,which includes providing a sustainablemixed use development, the Master Planand future consent, which will extendthe primary shopping area to improvethe town centre retail offer and as anaccessible, convenient and attractivelocation in which to live, shop and beentertained. Power Court will deliver amix of town centre uses. The followinguses are all acceptable in principle as


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

39

components of a mixed usedevelopment: housing, convenience andcomparison retail, leisure, cultural andentertainment uses and B1 offices. Thisdevelopment will enhance the offer ofthe town to residents and students ofBedfordshire University and also thewider community, as well as visitors,and tourists.

Land at Power Court, as shown on thePolicies Map, is allocated for towncentre uses in a mixed useredevelopment. Any scheme shouldinclude around 600 dwellings and a needfor circa 3,393sq.m. net retailconvenience floorspace. The site couldprovide for a proportion of theborough’s overall identified need forcomparison floorspace within the towncentre.

A. Development should accord withthe Spatial Development Strategy,other policies in the plan andaddress the followingrequirements:

i. proposals should beaccompanied by acomprehensive masterplanthat includes indicativelayout, materials, access,massing, uses and phasing,and the proposed deliverymechanism;

ii. proposals should includemeasures to ensure thatdevelopment on the site isaccessible from the TownCentre Shopping Area and isperceived as being a part ofthe town centre;

iii. development should respectand enhance the setting andcontext of the site and itshigh visual profile. Highquality design should beintegral to the scheme tocomplement adjacentlandmark buildings, adjacentvistas and the public realm,the University of BedfordshireCampus and the UK Centre forCarnival Arts and development

should preserve, and seekopportunities to enhance, thecharacter and appearance ofthe Plaiters Lea ConservationArea and the setting of theGrade I listed St Mary’sChurch;

iv. Make more effective use ofthe River Lea as an accessiblestrategic green infrastructurefor the town providing habitatand an accessible historiclandscape feature, andconsider options fordeculverting and redirectingthe River Lea channel, wherefeasible, to link with nearbywalking and cycling networks;

v. proposals will need tomitigate flood risk issues ofthe site by integratingSustainable Drainage Systems(SuDS) and/ or otherreasonably suitable mitigationmeasures;

vi. ensure that developmentelevations maintain the highvisual profile of the site andmaintain views to otheradjacent vistas in the town(e.g. Hart Hill and the railwayline); and

vii. land decontamination andworks affecting the River Leashould be carried out in linewith the best practiceavailable and be inaccordance with Policy LLP38to avoid any harmful impacton the water resources.

High Town

4.89 High Town is one of the more historicareas of Luton and is situated immediatelyto the north of the town centre withexcellent access to Luton Railway Stationand bus interchange and the rest of thetown. Originally connected to the TownCentre, High Town developed as a smallsettlement in 1815 and is one of the olderareas of Luton. The area grew rapidly and,


LutonLocalPlan

(2011-2031)Novem

ber2017

40

according to the 1851 census, was the fastestgrowing area of the town in terms ofpopulation, hosting one sixth of the totalpopulation of Luton. Most of the originalinhabitants of High Town worked in the hatindustry in the town centre or in a few ofthe larger houses in High Town itself, whichaccommodated the domestic element ofLuton's hat industry with modest workshopsattached to residential houses and smallmakers producing goods to sell to centralwarehouses. High Town was split from theTown Centre by the construction of tworailway lines in 1858 and 1862. Theseconstructions marked the boom of the hatindustry in Luton and led to a cluster ofpurpose built hat factories located near therailway station on Midland Road and DudleyStreet. Walking along High Town Road is liketaking a step back through time. The paradeof shops retains the original urban fabric ofthe area and provides old remnants of anactive and crowded high street. A strongrhythm of elevations and chimneys, alongwith the richness of the roof lines and thepolychrome decorative elements of theMethodist Church, Church Hall and other keyunlisted buildings, give the street a verystrong identity providing a good example ofthe town’s Edwardian and Victorian legacy.

4.90 The central part of High Town iscomposed of a Victorian and Edwardianparade of shops designated as the High TownRoad Conservation Area, with a distinctivecharacter and some buildings witharchitectural merit. The parade of shopsaccommodates specialist retailers,restaurants and pubs. The area is sufferingfrom relatively poor trade and some emptypremises, however the Council has recentlyinvested in environmental improvements tothe area and funded the temporary use ofempty shops. This investment is beginningto bring life back into the area, however itis in need of further significant private sectorinvestment to fully realise the opportunitiesof the area as a vibrant historic mixed useneighbourhood with opportunities forstart-up businesses and creative activities -similar to and complementing the CreativeQuarter of the Town Centre, which is in closeproximity.

4.91 A High Town Team has been formedin this area and is working alongside thecommunity to devise projects andprogrammes to improve the image of thearea and attract funding.

Key Issues:

4.92 A health check on the vitality oflocal retail centres (Luton Retail StudyRefresh 2012 - Update 2015)recommended that High Town bedesignated as a Neighbourhood Centrebecause a lack of facilities like a bankor post office and an anchor store donot allow this centre to be a viableDistrict Centre.

4.93 Its proximity to the facilities andmore valuable assets of the town centrehinders investment in the area. Inparticular, there is also an underprovision of open space (Green SpaceStrategy Review 2015) and addressingthis would also make the area moreattractive to investment.

4.94 The ward experiences manyproblems with anti-social behaviour, inparticular, but not limited to, 'ThePaths'; a post war housing area.

4.95 There are a number of derelictand underused industrial buildings,interspersed with land currently usedfor car parking, that are detrimental tothe vibrancy of High Town that need tobe brought back into effective use.

4.96 Given the current and previousindustrial uses of the area, there ispotential for contaminated land.

4.97 Sections of High Town arelocated on the Upper Lea Chalk Aquifer.

Policy approach:

4.98 The vision for the area is tocreate a more sustainableresidential-led mixed use neighbourhoodincluding small scale offices /workshops, live-work units (withopportunities for start-up business andcreative activities) and increased retail


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

41

provision, which will enhance the areawith better pedestrian access andpermeability, more public open spaceand an enhanced natural environment.

4.99 A Supplementary PlanningDocument (SPD) was prepared in 2007for the whole of the High Town ActionArea (Local Plan 2001-2011). This SPDhas been replaced by the High TownMasterplan (adopted September 2016),which explains how the approach inPolicy LLP10 can be achieved.

4.100 The land between theConservation Area and Hitchin Road hasbeen subject to further detailedguidance through the High Town EastVillage Design Codes 2009, which isretained as SPD.

4.101 High Town is proposed as aNeighbourhood Centre in the 'centrehierarchy' (see Policy LLP21) and, assuch can, accommodate town centreuses appropriate to the scale and sizeof the area. However, its proximity tothe Town Centre could allow forsubstantial town centre uses to belocated in the area easily accessible tothe station, provided they have beensubject to a sequential test.

4.102 The aim of the HighTownMasterplan is to contribute to makingHigh Town a more vibrantneighbourhood, improving the overallimage and perception of the area. HighTown has a strong identity of place,which the Masterplan aims to build uponwhile also strengthening the mix andviability of employment, residential,live/work and creative industries.

4.103 The Masterplan suggests theuse of ground floor units as live/workspaces, studios and offices, while vacantand underused sheds and workshopbuildings to the east of the ConservationArea might be redeveloped to includehousing and facilities such asshowrooms, galleries and workshops.The market baseline has confirmed thisas feasible, identifying the High Townarea an appropriate location for a newhigh quality residential living

environment, which could include acomplementary mix of employment,retail and commercial uses.

Policy LLP10 - High Town

The High Town Strategic Allocation isan area located to the north of theLuton Railway Station as identified onthe Policies Map.

The vision for the area is to create asustainable, vibrant and historicneighbourhood destination deliveredthrough residential-led mixed usedevelopment whilst preserving andseeking opportunities to enhance thehistorical environment and heritageassets including small scale offices /workshops, live-work units andincreased retail provision, which willenhance the area including increasedfootfall, better pedestrian access andpermeability, more public open spaceand an enhanced natural environment.

It is expected that, over the planperiod, the area can accommodate atleast 750* new residential units andaround 350 jobs, taking account of thefollowing:

A. To ensure the vision is realised,development proposals mustachieve appropriate densities,height, permeability, mix of uses;including housing, employment andshops as well as niche roles such asfor the creative industry and scopefor art and open spaces in thepublic realm; in the three keyareas of change in High Town (OldBedford Road Block, East Villageand 'The Paths') and delivering keyinfrastructure and environmentalimprovements. The area benefitsfrom the proximity to the towncentre, which offers many facilitiesand services: however the need forrecreational facilities, in particularfor young people, has beenidentified and should be improved.The High Town Masterplan SPD and


LutonLocalPlan

(2011-2031)Novem

ber2017

42

East Village Design Codes SPDexplain how an appropriate qualityof development can be achieved.

B. High Town is situated on a SourceProtection Zone 1, as it sits on anaquifer, very susceptible to thepotential effects of pollution.Planning applications will need tobe accompanied by aContamination Risk Assessment,addressing the previous uses of thesite and the resulting potential forcontamination as required by theEnvironment Agency.

C. The area could be susceptible tosurface water flooding and as suchany development will need to bein compliance with therecommendations set in theSurface Water Management Planand Luton Local Flood RiskManagement Strategy.

D. Development proposals thatimprove design, safety and visualinterpretation of the builtenvironment, a clear distinction ofpublic and private realm and whichachieves better integration withwalking and cycling routes linkingto open space, the town centre andthe wider surroundings, will beencouraged.

Footnote:*The July 2016 SHLAA indicates capacityfor c840 dwelling units in High Town.

Creative Quarter

4.104 The Creative Quarter is situatedbetween Luton Railway Station and the MainShopping Area of Luton Town Centre. Itincludes the Plaiter’s Lea Conservation Areawith many buildings of architectural meritand remnants of the traditional hat industryand is the main gateway to the town centrefrom the north.

4.105 The current uses in the area arepredominately eating and drinkingestablishments, leisure and very limitedretail. Within the Hat Factory Arts Centrethere are a number of digital media agencieswith international reach, several smallerorganisations and freelancers, a recordingstudio and the region's specialist film andtelevision studio facility. In the Mill YardCollective co-working spaces, independentartists and filmmakers are housed alongsidestart up charities and larger companies. Twonew music venues have opened and will helpreinvigorate the night-time economy. TheBute Mills is back in use accommodating theYouthscape charity, alongside the School ofArt and Design (University of Bedfordshire)accommodated in the former Walter Gurney& Sons Hat Factory and in the AlexonBuilding. All of these facilities are in astrategically important location. The core ofthis area is in the main pedestrian corridorbetween the railway station, multi-modaltransport hub and the main shopping area inLuton.

Key Issues:

4.106 The area has a number ofderelict and blighted sites and buildingswhich need to be brought back into use,e.g. through the use of creative meanssuch as pop-up shops.

4.107 The area is mostly covered bythe Plaiter’s Lea Conservation Area.Historic England's historic areaassessment identified the importanceof the surviving architectural fabric ofthe area including many of theremaining buildings and roads and theirrole in the historical and commercialdevelopment of Luton arising from thehat manufacturing era. Many of theseheritage assets are in a state ofdisrepair. The assessment alsorecognised the key issues in the arearelating to demolition, insensitivealterations, deterioration anddevelopment pressures. This maderecommendations for an effectiveappraisal and management plan to bedrawn up for the area to betterunderstand the impact of piecemeal


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

43

development and applications forchange. The Council will work withHistoric England on how to ensure thatthe heritage of the area is adequatelydocumented and refreshed in thefuture.

4.108 The scale, extent and conditionof the buildings immediately mark them(and this area) out as being notablydifferent from other elements of thetown. The concentration of such large,multi-storey, hatting premises within asmall geographical area gives this areacharacter and uniqueness that need tobe replicated and also protected fromcomprehensive development.

4.109 Most of the area is crossed bythe River Lea, which currently runsunderground, and issues with thestructural soundness of the culvert andcurrent poor quality of the river needto be taken in account.

Policy approach:

4.110 This key gateway is to betransformed into the Creative Quarterof the town with a thriving café cultureand night-time economy,appropriate mix of restaurants,galleries, retail, education facilities andcreative businesses and an excellentquality public realm. Retail will be smallscale shops (including permitted flexibleuse A1, A2, A3, B1 and D2) to servevisitors, local residents and businesses,with the exception of the NorthernGateway where the scale of retailprovision for convenience andcomparison goods will help to ensurethat the retail role of the Town Centreis supported.

4.111 The Council will favourdevelopment that celebrates andenhances a very special context bydrawing from its strong character whileaddressing the poor quality of the publicrealm and the lack of enclosure of manysites in the area.

4.112 This area is already wellestablished for the creativeindustries that have always gravitated

around the Hat Factory and now alsoaround Mill Yard. The Employment LandReview (2013), using EEFM projectionsand historical trends in the region andlocal market, foresees that jobs relatedto art, entertainment and media willgrow by more than 40% (more than1,000 new jobs).

4.113 The presence of the Universityof Bedfordshire and its department ofMedia and Design, alongside the UKCentre for Carnival Arts, creates furtheropportunities for creative industries andeducation related development.

4.114 The presence of restaurantsand pubs (including venues such as theHat Factory Arts Centre providing atheatre, gallery and basement livevenue) also make this area suitable toencourage a vibrant night-timeeconomy. Creative businesses globallyare also seen as the conduit to a thrivingcafé culture and to active and vibrantpublic spaces.

4.115 New public open spaces will beencouraged at the station forecourt andon Bute Street.

4.116 A pedestrian friendlyenvironment and opportunities topedestrianise most of Bute Street incompliance with the Town CentreDevelopment Framework should beencouraged to create a vibrantenvironment. Delivery of additionalresidential accommodation is supportedwhere it would contribute tocomprehensive mixed-use developmentwithin the allocation.

4.117 Within the creative quarter,three sub areas have been identified fortheir potential to be regenerated. Giventhe substantial amount of developmentthat could be delivered within theseareas, specific policies have beendrafted to guide their futuredevelopment:

1. The Northern Gateway: a retail leddevelopment to the north of theMall;


LutonLocalPlan

(2011-2031)Novem

ber2017

44

2. The Station Gateway: a residentialand office led development to thenorth of the site;

3. North of St George Square: aleisure and retail led developmentto the north of St. George Square.

4.118 The opportunity toaccommodate most of the convenienceretail need of the borough in this areawill also be encouraged in accordancewith the specific policies for thesub-areas.

Policy LLP11 - Creative Quarter

The Council will work with developers,landowners and stakeholders totransform the Creative Quarter into athriving mixed use area with 600residential units, a café culture andnight-time economy, appropriate mixof restaurants, galleries, retail, leisure,education facilities and creativebusinesses and an excellent qualitypublic realm.

A. Proposals for the Creative Quarteras identified on the town centreinset map and comprising the 1.Northern Gateway, 2. StationGateway and 3. North of StGeorges Square developmentareas, will be supported wherethey deliver the followingrequirements as far as they arematerial to the application:

i. improve the mix of uses,including education facilitiesrelated to art, media anddesign (mix of A1, A3, A4, D1,D2, C3, B1);

ii. deliver flexible use of thespace to maintain futureviability and activity;

iii. deliver the conversion ofempty premises into studiosand spaces for artists,work-live units and creativebusinesses;

iv. enhance the night-timeeconomy;

v. maintain and enhance theaccess;

vi. increase the level ofconnectivity in the area andensure public accessibilityacross the areas at all times;

vii. Improve the quality of thepublic realm and, inparticular, the link betweenthe Railway Station and theMall;

viii. make effective use ofopportunities to extend useoutside ground floor level e.g.cafés and the night-timeeconomy;

ix. ensure that developmentdesign respects andcomplements the character ofbuildings and spaces in thearea and, where possible, theoriginal urban grain of thishistorical area; and

x. development proposals mustbe shaped by heritageconsiderations at the outset,and the Council will carry outan appraisal of the PlaitersLea Conservation Areaincluding heritage assets atrisk in accordance with PolicyLLP30 (Historic Environment)in order to assist with thisrequirement.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

45

1. Northern Gateway

The area is composed of approximately0.5 hectares of land immediately to thenorth of The Mall allocated for aretail-led comprehensive scheme.

B. Proposals for the Northern Gatewaywill be acceptable if they complywith the criteria set above andwhere they deliver the following:

i. retail floorspace (includingflexible use classes A1-A3, B1and D2), market, residentialaccommodation andcomplementary mixed-usedevelopment (C3, A4);

ii. improve the north-south linksand maintain east-westconnections to Library Roadand St George’s Square;

iii. improve the quality of theentrance to The Mall throughhigh quality architecture thatenhances the quality of thevisual experience and physicalconnectivity to The Mall whilealso conserving and seekingopportunities to enhance thePlaiters Lea ConservationArea. Applications must beaccompanied by anassessment of the significanceof the heritage assets and howthey may be affected andconserve and, where possible,take opportunities to enhancethe Plaiters Lea ConservationArea;

iv. facilitate the creation of anew public space on ButeStreet;

v. deliver uses at the groundfloor that extendappropriately into the publicrealm, in particular aroundthe new public space (ButeSquare).

2. Station Gateway

This area includes approximately 1.5hectares of land located between therailway station and the Plaiter’s LeaConservation Area and is allocated fora residential led scheme.

C. Proposals for the area will need tocomply with the general policiesof the area and with the followingcriteria:

i. redevelop the train station toprovide a well-designedfacility with an attractive,safe, sheltered environmentfor travellers, visitors andstaff;

ii. maintain and improveaccessibility to the transportfacilities and to High Town;

iii. improve the quality, safetyand comfort of the pubicrealm including opportunitiesfor public space and apedestrian friendlyenvironment;

iv. respect and enhance landmarkbuildings and key views in thearea;

v. contribute to the delivery ofa substantial amount ofresidential units, in the formof contemporary flats, andoffices and ancillary hotel,leisure and limited retail (C3,B1 and C1, D1, D2, A1, A2, A3,A5); and

vi. provide car parking in suitablediscreet locations.

3. North of St George's Square

The area to the north of St George’sSquare and bounded to the north byGuildford Street is allocated for mixeduse development including leisure,cultural and retail uses to reinforce andcomplement the existing offer of thetown centre.

D. Proposals for the area will need tocomply with the general policies


LutonLocalPlan

(2011-2031)Novem

ber2017

46

of the Creative Quarter and withthe following criteria:

i. incorporate leisure, culturaland retail uses (D1,D2, A1-A5)and make effective use of theRiver Lea environment toenhance the character ofdevelopment whereappropriate and feasible;

ii. propose retail uses at groundfloor that contribute to thecafé culture alreadyestablished;

iii. is of a scale and design whichcomplements and enhancesthe historical townscape, builtcharacter of the area andopportunities to improve theskyline;

iv. improves the safety, comfortand ease of pedestrianmovements linking the areawith the wider town centre;and

v. delivers opportunities foreducation establishments tolocate in the area.

Marsh Farm

4.119 Marsh Farm, (within the Northwellward) is the biggest housing estate in Luton.Developed in the late 1960s and early 1970s,it is designed upon cul-de-sacs arrangementof properties, the segregation of vehicularand pedestrian routes and has oversized wideroads flanked by underused lawn areas.

4.120 Marsh Farm is characterised bysevere problems of multiple deprivation,including unemployment, poverty, lack ofskills, poor educational achievement, andpoor health.

4.121 Extensive regeneration has improvedthe central part of the neighbourhood, whichhas been provided with a brand new libraryand theatre in a state of the art new school,Lea Manor, and new community centre andfacilities at Futures House. The area benefitsfrom existing and potential walking and

cycling routes connecting local places andnew amenity spaces with opportunities tolink up with a network of GreenInfrastructure extending north to the wideropen countryside.

4.122 The considerable population of thisneighbourhood, the existing services and thepotential for further regeneration havebrought recognition, confirmed by the RetailStudy (WYG 2012), that Marsh Farm shouldbe designated as a District Centre in the newhierarchy of local centres established in thisPlan. As such, it could attract investment toexpand the retail offer that would cater forlocal needs and also attract shoppingjourneys from a wider catchment area.

Policy LLP12 - Marsh Farm

Development proposals for the centralarea of Marsh Farm as identified on thePolicies Map and for the rearrangementof the housing estate’s layout shall beaccompanied by a comprehensivemasterplan with an indicative layoutand phasing plan setting out detail ofhow it will be delivered.

A. Development should accord withthe Spatial Development Strategy,other policies in the plan andfollow the site-specificrequirements:

i. a foodstore of around1,000sq.m. shall beaccommodated to act as ananchor, alongside existing andimproved facilities, increasingthe vitality of the DistrictCentre;

ii. a rearrangement of theresidential and retail unitsshould be of an appropriatedesign and ensure a safer,more vibrant area and allowa higher level of activity inthe centre;

iii. proposals must improve theopportunities for creatingplaces of local identity andamenity easily connected toservices by walking and


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

47

cycling via identifiable routesthat may connect with GreenInfrastructure to the widercountryside to the north ofthe urban area;

iv. a significant net increase indwellings is not anticipatedgiven the existing high rise,high density nature of thearea;

v. Make efficient use of theexisting space includinginvestigation of theopportunity to reduce theland take of the nearbyroundabouts to allow for otheruses;

vi. Improvement to the landscapewith mature trees andappropriate planting to buildon the natural assets and toenhance the character of thearea;

vii. Proposals for the housingestate should address thecurrent lack of naturalsurveillance, poor layout andperception of poor safety thatcharacterise the area;

viii. Access and links in the areashould be convenient directand at level.


LutonLocalPlan

(2011-2031)Novem

ber2017

48

5 Growing Luton's Economy

Economic Strategy


Strategic Objective 1: Retain and enhanceLuton’s important sub-regional role as aplace for economic growth and opportunityincluding the safeguarding of London LutonAirport’s existing operations and to supportthe airport’s sustainable growth over thePlan period based on its strategicimportance.

Strategic Objective 2: To utilise Luton’seconomic, social and environmentalresources efficiently and sustainablyincluding appropriate mitigation within thelimited physical land capacity of the boroughwhilst ensuring the permanence of the GreenBelt.

Strategic Objective 6: Reduce social,economic and environmental deprivation,particularly where it is spatiallyconcentrated, by taking priority measures

to reduce unemployment, improve skills andeducation and renew housing, communityand environmental conditions.

5.1 The objectives above reflect theintegrated aspirations of the borough todeliver sustainable, balanced economic,environmental and social wellbeing for localpeople as well as visitors and workers fromneighbouring areas. These objectives reflectthe need for enhanced skills andopportunities for younger and older peopleentering and returning to the workforce. Theobjectives are founded on corporate andcommunity aspirations including evidence ofthe key structural and capacity issuesunderlying Luton’s economic performanceand future business potential.(10)

Key Issues:

5.2 The key issues that the boroughfaces in terms of planning for growthand prosperity over the plan periodinclude the need to plan for growth ofaround 18,000 jobs (8,000 B class jobs

10 i.e. Employment Land Review Study March 2013; Nathaniel Lichfield & Partners

5 . Growing Luton's Economy

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

49

and 10,000 non B class jobs). The Lutoneconomy is capable of generating thosejobs as evidenced by the EmploymentLand Review.

5.3 The delivery of employment landat strategic allocations, coordinatedwith key infrastructure, wouldaccommodate the B class jobs requiredand some mixed use non B class jobs.The Strategic Allocations in the Planneed to make provision for thegeneration of jobs (including thebusiness, office and aviation sectors) toprovide choice and flexibility to themarket. This will also maintain andstrengthen Luton's importantcontribution to the sub regionaleconomy for skilled workers fromneighbouring areas as well as offeringjob opportunities for Luton residents.

5.4 Strategic allocations provideemployment space arising from:

future population growth andmigration (see housing chapter forpopulation considerations);future employment land losses;delayed or non delivery of sites dueto lack of infrastructure funding(such as access to Century Park);displacement and relocationswithin Luton; anda 10% floorspace market allowance.

5.5 There is a need to deliver modestB2 provision on appropriate StrategicAllocations for local firms wishing torelocate or expand or to move intomodern yet relatively affordable workspace. There is a simultaneous need toprotect existing key employment areas(termed Category A) that have beenassessed as performing well and alsoland that is important for thedistribution and processing ofaggregates, concrete and asphalt.

5.6 The release now of a limitednumber of the poorest B useemployment sites must be managedagainst the need to protect marginalemployment land (Category B identifiedon the policies map) in the short and

intermediate period to ensure localfirms can still afford to do business inLuton until new modern affordableaccommodation becomes available.Safeguarded Category A sites offer thebest quality employment opportunitysites, which includes greenfieldemployment land allocations, mostrecently assessed as fit for purpose.These sites are therefore safeguardedfor employment use although it isrecognised that, over the lifetime of theplan, exceptional circumstances mayarise that justify a different approach.

5.7 The development of, andimproved access to, the London LutonAirport Strategic Allocation, whichincludes Century Park, is needed toserve aviation engineering, business andlogistics related growth and some smallscale B2 accommodation for localbusinesses.

5.8 Land south of Stockwood Park willprovide a B1 business park to meetfuture office demand benefitting fromthe M1 Junction 10a improvements.

5.9 Butterfield Green Technology Parkwill provide important opportunities indelivering a long term diversificationand restructuring of Luton’s economy,addressing under representation inhigher technology sectors as well asproviding opportunities for high qualityB2 and B8-only developments.

5.10 The Napier Park StrategicAllocation is a key regeneration site formixed B Class employment andresidential use including a convenienceretail-led neighbourhood centre linkedto guided busway and Luton AirportParkway Railway Station. Thereacquisition of a 7.58 ha plot by GMVauxhall for operational reasons, andits implications for delivering B classaccommodation, will be kept underreview and be the subject of the earlyplan review.

5.11 The Power Court StrategicAllocation is a key regeneration site formixed retail, B1 business, andresidential use integrated with the town


LutonLocalPlan

(2011-2031)Novem

ber2017

50

centre and enabled by town centre(final phase ring road) schemeimprovements.

Policy approach

5.12 The National Planning PolicyFramework (NPPF) published in March2012 requires a Presumption In Favourof Sustainable Development (a goldenthread running though both plan makingand decision making). It also requires:

a clear economic vision andstrategy; a positive proactive andsustainable approach to economicgrowth and land allocation;up-to-date evidence on demandand supply and deliverability; andjustification for long termprotection of allocatedemployment land; a sequentialapproach to town centre uses thatincludes employment.

5.13 Policy LLP13 sets out a positiveand flexible economic strategy fordelivering jobs and strategic allocationsand LLP14 will regulate the process bywhich land will be protected anddelivered in accordance with theEmployment Land Study. Luton’seconomy has been performing fairly wellin terms of job growth, and its futureeconomic growth prospects appearreasonably good, supported by plannedinfrastructure improvements and Airportgrowth.

5.14 Luton also functions as animportant sub-regional employmentcentre. However, it also has aboveaverage unemployment, modest levelsof new firm formation and a lowerskilled workforce.

5.15 Luton’s economy is more relianton manufacturing and distribution thanthe wider region but there has beenlittle job growth in these sectors.Representation in knowledge basedsectors is generally low, although itslevel of business services jobs has beenabove average.

5.16 The Borough’s existing 1.4million square metres stock ofemployment land (78% industrial and22% Office) is significantly ageing andneeds renewal and replacement. Thereplacement or renewal of industrialland is happening but lags behind theregion especially for completed new/modern offices space. Uptake of landhas been modest due to the subduedeconomic situation, although localdemand remains healthy.

5.17 In the last decade there havebeen some notable successes,particularly on established andemergent business parks for office, yetoverall the borough has been losing Bspace stock (-18%) over the pastdecade. Almost all of this loss is fromindustrial stock, sustaining greater lossthan adjacent areas while the region asa whole has grown.

5.18 Vacancy levels are aboutaverage for offices but low for industrialspace, reflecting higher demand evenfor poorer quality accommodation (e.g.for local, small scale businesses,start-ups, and professional businessservices) because of its affordability andlack of alternative space. The older andlower quality vacant office stock in andaround the town centre will be difficultto modernise or replace because of thelow rents achievable. Refurbishment ismore likely.

5.19 The scope for redevelopingexisting employment land for mixedemployment and housing is not currentlya viable option in the present economicclimate without comprehensive planning(e.g. parking and amenity issues) andfinancial interventions. It would beprudent to maintain most of this stock(e.g. amber employment sites identifiedCategory B sites on the policies map)until economic conditions improve andthere is progress on delivering newaccommodation on the outstanding landallocations and particularly, CenturyPark, Butterfield Green Technology Parkand Stockwood Park (Junction 10a).


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

51

Policy LLP13 - Economic Strategy

A. Planning applications will begranted where they deliversustainable economic growth andprosperity to serve the needs ofLuton and the wider sub region.Jobs will be generated throughbusiness and industry developmenton strategic employmentallocations, and within the existingkey employment areas safeguardedfor B class uses, (including securingautomotive and advancedmanufacturing clusters andsupporting industries/services suchas the GM / Vauxhall plant torespond to the market and corebusiness demands) as identified onthe Policies Map. Further growthin employment in commercial andservice related industries includingretail, leisure, culture and tourismwill be generated within the TownCentre, District and NeighbourhoodCentres including where ancillaryor proposed within the strategicemployment allocations. Thestrategic allocations for deliveryare:

i. Land South of StockwoodPark: B1 office and lightindustry (see Policy LLP5);

ii. London Luton Airport (CenturyPark): mixed aviation relatedB1b-c, B2 and B8, small scaleancillary service uses andhotel use (see Policy LLP6);

iii. Butterfield Green TechnologyPark; high quality uses in linewith Policy LLP7; and

iv. Napier Park: predominantlyB1 office light industry andsmall scale affordable B2 useand ancillary hotel use; smallscale A1 to assist regenerationand housing provision (seePolicy LLP8).

B. Proposals for warehousing (B8) over500 sqm floorspace will be directed

to employment locations wellconnected to the strategic highwaynetwork, motorway access, at railserved depots and exceptionally atCrescent Road . The preferredlocations are London Luton Airport(including Century Park), SundonPark employment area, Junction11 Craddock Road and Chaul EndLane, and Limbury Sidings.Warehousing of this size will bedirected away from the inner urbanarea to ease traffic issuesassociated with large warehousingdevelopments of this nature.

C. Employment Areas (Categories A &B) allocated on the Policies Mapand listed in Appendix 3 andsmaller existing B use employmentsites not identified will beprotected to retain and deliverjobs in the borough.

D. Provided that category B sites andunidentified employment sitessatisfy criteria as set out in PolicyLLP14 section B, they may beredeveloped for employment,mixed use or other needsaccordingly.

E. Planning permission for proposalsthat would increase and improvetourism and visitor attractions willbe granted, provided that it doesnot cause an adverse impact on theroad network, any town centre useaccords with the sequentialapproach and is in conformity withthe policies in the Local Plan.

Employment Areas

Policy LLP14 - Employment Areas

Category A

The existing employment areas(Category A) set out in Appendix 3 asshown on the Policies Map shall beprotected for B1, B2 or B8 uses. Oncedeveloped, strategic allocationscontaining B1, B2 or B8 uses aresafeguarded as Category A employment


LutonLocalPlan

(2011-2031)Novem

ber2017

52

areas. Changes of use or redevelopmentwithin the employment areas and sitesthat would result in a loss of floorspacefor economic development uses will beresisted.

A. Redevelopment, extensions andintensification in these areas thatwould result in additionalfloorspace for B1, B2 or B8 useswill be supported provided that:

i. it would not haveunacceptable amenity ortraffic implications;

ii. an appropriate size and rangeof units is provided; and

iii. appropriate levels of parkingare provided.

Category B & Existing UnidentifiedEmployment Sites

B. Redevelopment, extensions andintensification in Category B andexisting unidentified employmentsites that would result in additionalfloorspace for B1, B2 or B8 will besupported in accordance withclauses i to iii of part A (above).Where a building or site within aCategory B or unidentifiedemployment site has been vacantfor at least twelve months, a mixeduse development that retainssignificant employment oralternative redevelopment to nonB uses to meet identified needs willbe permitted where:

i. it can be demonstrated thatsuitable alternativeaccommodation atcomparable rents is available;and

ii. it can be demonstrated thatit is no longer suitable orviable for B1, B2 or B8 usesand where the site is vacant,there is evidence of activemarketing for a reasonableperiod.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

53

6 Housing

Housing Provision



Strategic Objective 3: To ensure that newhousing delivers an appropriate level ofprovision to meet local needs in terms of thenumber of homes, subject to capacityconstraints and a mix of dwelling types, sizesand tenures that offer local residents achoice of where to live and addresses issuesof affordability and overcrowding. LutonBorough Council will work collaborativelywith neighbouring authorities to help ensureunmet need is provided in appropriatelocations outside Luton, and to activelymonitor progress in terms of unmet need.

Key Issues

6.1 A key issue facing the Borough interms of planning for new homes up to2031 is population growth, meaning that17,800 new dwellings are needed inLuton Borough by 2031. There is,however, limited developable landavailable for new homes within the builtup area. The plan makes provision forthe delivery of 8,500 dwellings. Thisquantum of housing provision will enablethe Council to annually identify andupdate a supply of specific, deliverablesites sufficient to provide five years'worth of housing with an additionalbuffer of 5% (as required by NPPFparagraph 47).

6.2 There is a need to achieve a levelof affordable housing that addresses thelevel of objective housing need, whilststill ensuring that developments areviable and that much needed markethomes continue to be built in Luton.

6.3 The need to make provision forhousing is set against the need to allowfor land to be provided for employment,education, health, retail and othercommunity facilities in order to ensurea good quality of life for the residentsof new housing in the long term.

Policy approach

6.4 National planning policy requiresthat Local Plans seek to meet theirobjectively assessed development needsand, in the case of housing, that thisshould be forecast through a StrategicHousing Market Assessment (SHMA). TheCouncil prepared a joint SHMA in 2010with the other Bedfordshire authorities,which indicated that 4,700 new homeswould be required in Luton Boroughbetween 2007–2021 based on minimumrequirements of the former RegionalSpatial Strategy (East of England Plan),which was revoked in January 2013. TheSHMA was consequently updated in 2012to inform the Local Plan preparationfollowing publication of the NPPF, whichrequires local authorities to objectivelyassess housing need. The SHMA 2012identified a need for 11,000 homes forLuton Borough based on trendmigration. In order to take account ofthe most up-to-date CentralGovernment population and householddata released in 2013, the Councilprepared a draft Luton & CentralBedfordshire SHMA Refresh in 2014subsequently updated in 2015determining the objectively assessedhousing need for Luton as 17,800dwellings. This was led by a SHMAsteering group that includes eight otherlocal authorities (Central BedfordshireCouncil, North Hertfordshire DistrictCouncil, Stevenage Borough Council,Bedford Borough Council, Milton KeynesCouncil, St Albans City and DistrictCouncil, Dacorum Borough Council andAylesbury Vale District Council). TheSHMA indicates that parts of CentralBedfordshire Council, NorthHertfordshire District Council andAylesbury Vale District Council arewithin the functional Luton HousingMarket Area.

6 . Housing

LutonLocalPlan

(2011-2031)Novem

ber2017

54

6.5 The Strategic Housing LandAvailability Assessment (SHLAA) (2014)and Sustainability Appraisal (2015) andviability evidence demonstrate thatthere is only a limited supply of land inLuton for new homes without stiflingdevelopment, eroding open landincluding the Green Belt, other locallyprotected open spaces and importantnature designations. This limitedcapacity also reflects the need toprovide land for other uses such asemployment, education, health andother infrastructure to support growthin Luton. The SHLAA is updated regularlyto take account of the latestcircumstances. The Strategic HousingLand Availability Assessment (July 2016)represents the most up-to-date evidenceused to inform the estimates of capacityfor housing land in this plan.

6.6 Planning for the provision of 8,500new homes in Luton reflects theavailability of land for development inthe Borough, the need to provide a mixof homes to support sustainablecommunities and the objective toprovide a choice of homes for people atall stages of life. To ensure that Lutonmaximises its contribution towardsmeeting its own housing need, all othersources of suitable housing supply havebeen considered through strategies forempty homes and encouragingconversion of vacant town centre officebuildings where they are obsolete formeeting business needs.

6.7 The SHLAA methodology followsthe directions of the NPPF and PPG inexamining what land is available,suitable and viable for housing. TheSHLAA also monitors completions andidentifies whether there is enough landsupply to meet housing requirementsfor the next five years.

6.8 The SHLAA has been informed bythe ‘Call for Sites’ consultation, wherelandowners put forward sites as part ofthe local plan Regulation 18 notificationconsultation stage, and by furthercapacity work undertaken by the Council(e.g. examining brownfield employment,

commercial and other previouslydeveloped land and also potential greenspace). Whilst the SHLAA assesses thesuitability and deliverability of land forhousing, it is the Local Plan thatdetermines what land should beallocated for development. In preparingthis plan, allocations have beeninformed by the sustainability appraisaland independent viability assessment.

6.9 Based on the findings of the SHMA2014 and 2015 update and the SHLAAcapacity work, there is an unmet needfrom Luton Borough of around 9,300 netadditional dwellings over the planperiod.

6.10 There is a housing need of31,800 dwellings in the Luton HousingMarket Area. The full extent of theunmet need arising from this will onlybe determined when the other localauthorities in the Luton Housing MarketArea reveal the quantum and locationof development they intend to deliverin the housing market area.

6.11 Given the identified shortfall ofhousing capacity in the borough, theCouncil will continue to work withneighbouring local authorities under theDuty to Cooperate in order to ensure itshousing needs are met. The Council willwork with neighbouring local authoritiesto prepare a Growth Options Study toprovide the evidence necessary todetermine the most sustainable growthstrategy for meeting the needs of theHousing Market Area including Luton’sunmet housing requirements.

6.12 The Government has indicatedits intention to require a specificprovision for starter homes (at a 20%discount) and that these will be madeexempt from Community InfrastructureLevy and section 106 obligations.Housing sites in Luton will be expectedto make provision for Starter Homes andCustom Build where there is ademonstrated need.

6 . Housing

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

55

Affordable Homes

6.13 Recent economic viability evidence,undertaken by independent consultants onbehalf of the Council, has indicated thatsites are difficult to develop economicallywithin Luton because costs are high and salesvalues relatively low, particularly in the earlyphases of the Local Plan due to the slowrecovery from the economic downturnfollowing the financial crash of 2008. Thismakes the delivery of affordable housingchallenging in the first 5 years. The localplan viability evidence, which analysesdevelopment in the borough, has found thata requirement for 20% on-site affordablehomes provision will be viable for themajority of sites over the plan periodregardless of site size.

6.14 The Council considers that affordablerent homes (homes available at 80% ofmarket rent levels) meet a range of needswithin the sector, including the need forsocial rented affordable homes due to theavailability of Universal Credit/HousingBenefit to tenants unable to afford the fullrent for an affordable rent property.Development proposals should beaccompanied by a sustainable letting schemeto support the use of affordable rent homesin meeting the need for social rented housingand also to develop and maintain balancedcommunities. The SHMA (2015) recommendsthat at least 72% of affordable housing beprovided as affordable rented housing witha target of 85%, and that the balance ofaffordable housing be provided throughintermediate housing products consistentwith the definitions set out in Annex 2 of theNPPF. Given the need to maximise affordablehousing delivery in the Borough, the splitbetween affordable rented housing andintermediate housing may be adjusted wherethere are specific viability constraintsrelating to individual sites. It is unlikely thatSHMA updates would significantly alter therecommended split between affordablerented and intermediate housing. TheCouncil will monitor the delivery ofaffordable housing.

6.15 The presumption will be thataffordable housing will be provided on-sitefor schemes of 10 dwellings or more.

However, the Council acknowledges thatthere may be circumstances where it isagreed by the Council and a RegisteredProvider that on-site provision is notachievable.

6.16 Table 6.1 shows the modelled outputsfor housing mix need in Luton over the planperiod based on the objectively assessedhousing need of 17,800 net additionaldwellings, which includes a need for 7,200affordable dwellings.

6.17 Due to the scale of Luton's unmethousing needs coupled with the shortage ofdevelopment land, the Council will seek toensure that appropriate housing provision tomeet affordable housing needs can beprovided across administrative boundariesunder the Duty to Cooperate.

Table 6.1 Dwelling Mix 2011 - 2031

%Dwellings

59.5%10,600Market Housing

40.5%7,200Affordablehousing/affordable rent

100.0%17,800All dwellings

890AnnualAverage

Mix and Size of Homes

6.18 The mix and size requirements forall tenures of homes planned in the boroughhas been estimated in the SHMA 2015. Thefindings of the SHMA are set out in Tables6.2-6.3 below.

Table 6.2 Market Housing Mix

1.5%1 bedroom flat

1.0%2 bedroom flat

13.1%2 bedroom house



2.1%5 bedroom house

6 . Housing

LutonLocalPlan

(2011-2031)Novem

ber2017

56

Table 6.3 Affordable Housing Mix

3.6%1 bedroom flat

17.2%2 bedroom flat



14.9%4+bedroom house

Housing with Specific Needs

6.19 The Government’s reform of Healthand Adult Social Care is underpinned by aprinciple of sustaining people at home for aslong as possible. This was reflected in therecent changes to building regulationsrelating to adaptations and wheelchairaccessible homes that were published in the2015 edition of Approved Document M:Volume 1 (Access to and use of dwellings),which sets out three categories of dwellings:

Category 1: Visitable dwellings –Mandatory

Category 2: Accessible and adaptabledwellings – Optional

Category 3: Wheelchair user dwellings– Optional, equivalent to wheelchairaccessible standard.

6.20 This Local Plan does not set outspecific policy requirements for the OptionalCategory 2 or Category 3 standards. Thosebringing forward proposals are encouragedto take into account the findings of the latestassessment of housing needs. The changingdemographics of the area indicate thatdevelopments that respond to residents’current and future needs for accessible oradaptable accommodation will providechoice and flexibility to meet a growingdemand.

6.21 The SHMA demonstrates that theneeds for these types of accommodationaffect the whole Housing Market Area. TheCouncil commits to keeping this evidenceup-to-date and recording the extent to which

opportunities to meet changing needs arebeing provided, including as part of dialoguewith neighbouring authorities.

6.22 The demographic projections showedthat the population of Luton and CentralBedfordshire was projected to increase byaround 81,900 persons over the 20-yearperiod 2011–31, based on long-termmigration trends. The number of people aged65 or over is projected to increase by around41,400 persons, which equates to around halfof the overall growth. This includes an extra9,200 persons aged 85 or over. Most of theseolder people will already live in the area andmany will not move from their currenthomes; but those that do are likely to needaccessible housing.

6.23 The CLG guide to available disabilitydata(11) shows that currently around 1 in 30households in England (3.3%) have at leastone wheelchair user, although the rate isnotably higher for households living inaffordable housing (7.1%). It is also importantto recognise that these proportions are likelyto increase over the period to 2031 in thecontext of the larger numbers of olderpeople projected to be living in the area.

6.24 In addressing the need for temporaryaccommodation (e.g. hostels for homelesspeople), proposals will have a specific focuson addressing local needs. This will help toresolve the problems faced by those peopleliving in Luton but who struggle to accesssuitable accommodation.

Quality and Standards

6.25 New homes in Luton need to providea choice of housing for people at all stagesof life. In order to do so, they will need tomeet minimum standards of design. PolicyLLP25 (High Quality Design) establishes whatdesign and amenity standards are expectedfrom new and converted developments. Thispolicy will be applied in conjunction withsite specific policies in the Local Plan, withthe external amenity space standards set outin Appendix 6 and with development briefs,masterplans and future SupplementaryPlanning Documents (SPDs).

11 https://www.gov.uk/government/publications/building-regulations-guide-to-available-disability-data

6 . Housing

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

57

https://www.gov.uk/government/publications/building-regulations-guide-to-available-disability-data

6.26 Developments will be encouraged toexceed Building Regulation standardsaccording to Policy LLP37 (SustainableEnergy) and the energy hierarchy. Together,these policies ensure that developmentsincorporating new homes will contribute topromoting sustainable use of resources andthe principles of good design.

People Wishing to Build their Own Homes

6.27 Paragraph 50 of the NPPF identifiesthat local planning authorities should planfor people wishing to build their ownhomes. NPPG (paragraph 21) states that theGovernment wants to enable more peopleto build their own homes and make this formof housing a mainstream housing option andthat local planning authorities should,therefore, plan to meet the strong latentdemand for such housing. However, basedon the self-build portal run by the NationalCustom and Self Build Association (NCaSBA)there are currently no registrations fromgroups and individuals looking for land inLuton (Source: ‘Need-a-Plot’ Portal NCaSBA,July 2015). The Council will continue tomonitor the register and keep a register ofeligible prospective custom and self-buildindividuals, community groups anddevelopers.

Houses in Multiple Occupation (HMOs)

6.28 There is recognition at both nationaland local levels that, whilst HMOs make avaluable contribution to the provision oflow-cost housing, high concentrations ofHMOs can have an adverse effect on thecharacter and amenity of existingneighbourhoods.

6.29 The Town and Country Planning (UseClasses) Order 1987 (as amended in 2010),defines HMOs as houses that are inhabitedby three or more unrelated people, as theironly or main residence, who share one ormore basic amenity (such as a kitchen). Twotypes of HMOs are identified:

Small HMOs - those housing betweenthree and six unrelated people(categorised under Class C4 of theOrder); and

Large HMOs - those housing more thansix unrelated people (categorised underClass 'Sui Generis' of the Order).

6.30 The amendment to the Use ClassOrder allows the change of use from adwelling house (categorised under class C3of the Order) to a HMO (categorised underClass C4 of the Order) without therequirement of planning permission, as classC4 has been included in permitteddevelopment rights.

6.31 An Article 4 Direction can be put inplace to remove this permitted developmentright. This means that, once a Directioncomes into force, planning permission wouldneed to be obtained to change a dwellinghouse to a HMO of either type. Planningpermission is already required to change adwelling house or a small HMO to a largeHMO. There is evidence to suggest that HMOsare on the increase in Luton, particularly inolder high density pre-war stock located inand around the town centre and adjacent todeprived wards. It is likely they will continueto increase as population increases,affordability worsens and housing landbecomes scarcer in the borough over theplan period. The Council will keep underreview whether Article 4 Directions arerequired to ensure that HMO proposalsrequire planning permission and do not havean adverse effect on the character andamenity of existing neighbours, whileenabling closer monitoring of HMOs in theBorough.

Older Person's Housing

6.32 National Guidance requires that thefuture need for older persons is assessed andthat the assessment should set out the levelof need for residential institutions (Use ClassC2). Using the Housing Learning andImprovement Network (LIN) toolkit, thisidentifies future need for circa 1,300specialist older person housing units ofvarious types in Luton over the 20-yearperiod 2011–31 (see Figure of the SHMA

6 . Housing

LutonLocalPlan

(2011-2031)Novem

ber2017

58

2015). This indicates almost two thirds ofthis need (63%, 630 units) is for LeaseholdSchemes for the Elderly, 240 Extra Careunits, 100 Sheltered units and 30 Dementiaunits. The total need for older person'shousing represents only 5.6% of Luton'soverall housing need. Older person's housingneeds are included in the overall objectivelyassessed housing needs and Policy LLP18(Older Person's Accommodation) sets out acriteria based policy for determining schemesfor Older Person's Housing.

Gypsies, Travellers and TravellingShowpeople

6.33 National Policy for Gypsies andTravellers is contained within ‘PlanningPolicy for Traveller Sites’. This identifiesthree key criteria for identifying appropriatesites for delivery through the planningsystem. To be deliverable within five yearsor developable within years 6-15, sites shouldbe:

suitable – the site should be in asuitable location for development;

available - the site should be availablenow or there should be a reasonableprospect that the site is available at thepoint envisaged; and

achievable – there is a realistic orreasonable prospect that housing couldbe viably developed at the pointenvisaged.

6.34 It requires that local planningauthorities identify sufficient deliverablesites to provide five years’ worth of sitesagainst their locally set targets. For years6–10 and, where possible, for years 11–15,they should identify a supply of specificdevelopable sites or broad locations forgrowth. Therefore, Government indicatesthat councils should assess and meet Gypsy,Traveller and travelling showpeople’s (GTTS)housing needs in the same way as otherhousing needs, including providing land forsites. Without adequate sites this group hasto resort to unauthorised sites, which mightresult in problems with local communities.It also makes it more difficult for them toaccess local services and facilities.

6.35 A Gypsy and TravellersAccommodation Assessment (GTAA) wascompleted in 2015 to establish the need forGypsy, Traveller and travelling showpeopleaccommodation in the Borough. The studyidentifies a potential need for 19 Gypsy andTraveller permanent pitches over the planperiod but, allowing for existing supply,needs are already met over the first 5 years,whereas there is a need for an additional 14pitches over the remaining 15 years of theplan. Need for a transit site of 10 pitcheswas also identified. The study has notidentified a need for additional travellingshowperson provision. The Gypsy andTraveller Sites - Site Identification Study2015 (G&TSSIS 2015) assessed the suitability,availability and achievability of potentialsites, however it was unable to identify asite(s) following assessment. However,Government's Planning Policy for TravellerSites (PPTS) amended the definition ofGypsies, Travellers and travelling showpeopleon 31st August 2015 after completion of theGTAA study. The recent changes to PPTS nowrequire a GTAA to determine whetherhouseholds living on sites, encampments andin bricks and mortar fall within the newdefinition and whether their housingneeds should be assessed separately fromthe wider population as required by theHousing Act (2004). This late change inGovernment policy could potentially alterthe need and provision for Gypsies andTravellers, therefore a separate Local PlanPart 2 (Gypsies and Travellers SiteAllocations) will be required following afurther update of the evidence base, whichmay consequently change any further siteassessment work to accommodate theseneeds.

6.36 Policy LLP15 ensures that existingGTTS sites are safeguarded for that use andthat the provision of accommodation forGypsies and Travellers is located in asustainable manner. In applying the policy,the extent to which a traditional lifestyleand a settled base can contribute tosustainable development will be considered.The location of new pitches must enable theresidents to access services including schoolsand health facilities in the same way thatresidents of new houses need to be able toaccess community facilities. In addition,

6 . Housing

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

59

Gypsy and Traveller sites need good accessto the road network as they often need tomove larger vehicles as part of theirlivelihood and way of life.

Policy LLP15 - Housing Provision

Provision will be made for 8,500dwellings in the borough to help meetthe housing needs of Luton and theLuton Housing Market Area ensuring thesize, type and tenure (includingprovision for starter homes, custombuild and households with specificneeds) provided reflects the identifiedhousing need requirements of the areain the Strategic Housing MarketAssessment (SHMA).

A. Planning permission will be grantedfor residential development andmixed-use schemes on allocatedsites in line with Appendix 4.

B. Planning permission for residentialdevelopment will also be grantedon sites not allocated for housingprovided that it would not lead toa loss of other uses for which thereis a recognised local need.

C. Demolition and redevelopment ofexisting housing to other uses willbe permitted provided thatreplacement dwellings areprovided on-site or off-site or thereis an overriding need for otheruses, which provide benefits to thecommunity that outweigh the lossof housing.

Higher densities will be encouragedwithin Luton Town Centre and thedistrict and neighbourhood centres. Newhousing should not result inover-intensification of the site.Development will achieve a mix ofdifferent housing sizes, types andtenures informed by the latest housingmarket assessments and localcircumstances.

Affordable Housing

Policy LLP16 - Affordable Housing

Luton has an affordable housing needof 7,200 dwellings. The application ofPolicy LLP16 could help deliver around1,700 affordable dwellings potentiallyleaving an unmet need of around 5,500dwellings.

A. The Council will require theprovision of 20% affordable housingunits on developments that delivera net gain of at least 11 dwellingsand on sites of 10 dwellings or lessthat have a combined floorspaceof more than 1,000sq.m.

B. Affordable housing should beprovided on-site phased alongsidemarket housing, indiscernible fromand well integrated with markethousing. An equivalent financialoff-site provision will only beacceptable where there is robustjustification for off-site provision.

C. Development proposals will needto ensure that the size, type andtenure of affordable dwellingsprovided reflects the identifiedhousing need requirements of thearea (and in accordance with theHomes & Communities Agencyspace standards) in the StrategicHousing Market Assessment (SHMA)for future household types.

D. If the required level of affordablehousing would render the proposaleconomically unviable, developerswill be expected to produce afinancial assessment that clearlydemonstrates the maximumnumber of affordable dwellingsthat can be achieved on-site,off-site or as a commuted sum. In

6 . Housing

LutonLocalPlan

(2011-2031)Novem

ber2017

60

that case, the Council will reducethe requirement for affordablehousing proportionately.

E. The Council will require thataffordable housing be occupied byhouseholds who would nototherwise be able to afford to rentor buy a dwelling of sufficient sizefor their needs on the open marketand who either:

i. already live in the boroughand are in housing need (asidentified on the housingwaiting list); or

ii. can demonstrate a need tolive in the borough.

Intermediate tenure is to be managedby a registered provider unless theaffordable housing is an intermediateaffordable housing product where adiscount is protected by a covenant onthe deed that will apply on resale butwhere there is no equity that is ownedby a Registered Provider.

The Council will keep its affordablehousing evidence base up-to-dateincluding the calculation of commutedsums. This evidence base should beutilised when submitting anddetermining planning applications.

Under the Duty to Cooperate, theCouncil will seek to ensure thatappropriate housing provision to meetaffordable housing needs can beprovided across administrativeboundaries.

Houses in Multiple Occupation

Policy LLP17 - Houses in MultipleOccupation

The sub-division of an existing buildingto create a HMO or the development ofa new HMO accommodation will bepermitted provided that:

i. the proposal, or cumulative impactof the proposal (includingoperational and managementrequirements) with other similarproposals, would not adverselyaffect the character of the area,particularly in conservation areas;and

ii. the accommodation units conformwith adopted licensing and amenitystandards and to designrequirements as set out in LocalPlan Policy LLP25 (High QualityDesign); and

iii. appropriate outdoor amenityspace, bin storage, and parkingprovision are provided.

Student Accommodation

Policy LLP17A - StudentAccommodation

Proposals for student halls of residencewill be permitted where theydemonstrably meet an unmet need,provided that the criteria for HMOs aremet and the proposals:

i. are either within 1 km of theuniversity or college building thatthey are primarily intended toserve, or are close to established

6 . Housing

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

61

public transport routes leading tothe relevant university or collegebuilding; and

ii. would not have a significantadverse impact on the amenity ofadjacent residents or businesses.

Older People's Housing

Policy LLP18 - Older People's Housing

A. The development of newaccommodation designedspecifically for older people shouldmeet all of the following criteria:

i. offer easy access tocommunity facilities, servicesand frequent public transport;or, where a site is not withineasy access to communityfacilities, services andfrequent public transport,services should be providedon-site;

ii. be well-integrated with thewider neighbourhood;

iii. provide sufficient car parkingfor visitors and residents (incompliance with Appendix 2);and

iv. where appropriate, providechoice of tenures.

B. Permission will be granted forimprovements to existing olderpeople's housing where:

i. the measures proposed assistpeople in staying in theirexisting homes, for example

through physical adaptationsand energy efficiencyenhancements; and

ii. alterations to the externalappearance do not harm thecharacter of the surroundingarea.

Extensions to Dwellings and Annexes

Policy LLP19 - Extensions to Dwellingsand Annexes

A. Planning permission will be grantedto extend a dwelling provided that:

i. The scale, mass, layout,design and external materials,are consistent with andproportionate to the principaldwelling, surroundingproperties, streetscape andcharacter of the area;

ii. Proposals should ensure thatthe extension is of ancillaryscale to the original /principal building;

iii. Ensure that an extension hasa roof style and pitch that isin keeping with the originalroof;

iv. The proposed extension doesnot adversely affect theamenity of nearby occupiers,in respect of visual intrusion,loss of light, loss of privacyand/or overlooking,particularly where there iseffect on a habitable room(bedroom, kitchen, livingroom for example) and/orpatio/seating area;

v. The extension should respectprevailing gaps and spacesbetween buildings, provisionfor services (e.g. waste

6 . Housing

LutonLocalPlan

(2011-2031)Novem

ber2017

62

collection), and existingpatterns of development,especially in areas that arespacious in character; and

vi. If incorporating an original orinnovative design element,ensure that this will not lookout of keeping with theexisting design and characterof the building andsurrounding buildings.

Annexes

B. In addition to the criteria in part Aabove, the provision of annexes toaccommodate dependent relativeswill be permitted, provided that:

i. a functional link between theprincipal dwelling and theannex or extension can bedemonstrated defined as animmediate family relationshipbetween the occupants of theprincipal dwelling and theannex;

ii. there is no boundarydemarcation or sub-divisionof garden areas between theprincipal dwelling and theannexe or extension; and

iii. where an annex is detachedfrom the original dwelling, itmust in every respect beancillary to the principaldwelling in terms of its sizeand facilities.

C. If the annex would beself-contained so that it couldfunction as an entirely separatedwelling, then the proposal wouldnot be considered under thispolicy.

Gypsies, Travellers & TravellingShowpeople

Policy LLP20 - Gypsies, Travellers &Travelling Showpeople

The existing Gypsy and Traveller site atSt Thomas's Road and traveller showperson site at numbers 14 and 72Wigmore Lane are safeguarded for thesepurposes (as identified on the policiesmap).

Gypsy and Traveller and travellingshowpeople pitches and plots will bepermitted or allocated in accordancewith current government policy to meetthe needs identified in the Gypsies andTravellers Accommodation Assessmentsupdated as necessary.

Planning permission will be granted forpermanent Gypsy and Travellerprovision where the following criteriacan be met:

i. the site has reasonable access toshops, schools and other facilities;

ii. the site has adequate road accessand is well related to the primaryroad network;

iii. hardstanding and basic facilitiesincluding electricity, watersupplies, sewage disposal, andwaste collection are provided onsite; and

iv. in the case of travellingshowpeople, the site provides forfuture needs and includessufficient space for storage andmaintenance of equipment and theparking and manoeuvring of allvehicles associated with theoccupiers.

6 . Housing

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

63

7 Luton Town Centre &District & NeighbourhoodCentres


7.1 Strategic Objective 4: To establish aneffective network and hierarchy of Town,District and Neighbourhood centres to serveas the heart of local communities andimprove health through improved access bytrain, bus, walking and cycling to a mix ofuses including shopping, services and jobs.

7.2 Strategic Objective 6: Reduce social,economic and environmental deprivation,particularly where it is spatiallyconcentrated, by taking priority measuresto reduce unemployment, improve skills andeducation and renew housing, communityand environmental conditions.

7.3 Strategic Objective 8: Improveaccessibility, connectivity, sustainability andease of movement to, from and within theborough.

National Policy

7.4 The NPPF has replaced all previouspolicy statements and guides. The principleof the Town Centre as the preferred placefor shopping, business and leisure remains akey principle of planning guidance. Thisserves the dual purpose of strengtheningtown centres while ensuring good access tojobs and facilities by public transport,walking and cycling.

7.5 The NPPF also requires planningauthorities to define:

a network and hierarchy of centresresilient to anticipated future economicchanges;

7 . Luton Town Centre & District & Neighbourhood Centres

LutonLocalPlan

(2011-2031)Novem

ber2017

64

the extent of town centres and primaryshopping areas, based on a cleardefinition of primary and secondaryfrontages in designated centres; andpolicies that define which uses will bepermitted within these locations.

7.6 The planning authority must alsoallocate suitable sites that meet the scaleand type of required town centre uses and,if necessary, expand town centres to ensurea sufficient supply of sites. Policies must beset for town centre uses that cannot beaccommodated in or next to town centres.

7.7 Applicants for main town centre usesare required to pass the sequential approachto site selection and provide a fullassessment of the impact of the proposal onthe vitality and viability of protected centresfor applications greater than 2,500sq.m. ora locally set threshold.

Local Situation

7.8 To help evaluate Luton's needs againstthe criteria set out above a retail study wascommissioned.(12) Within this report, Lutonis defined as a regional shopping centre.

7.9 This research revealed that most foodand drink shopping trips are kept withinLuton, with Dunstable stores offering somecompetition. It identified that Luton shouldincrease its market share due to expectedincreases in expenditure, over trading ofsome existing stores and in order to helpprovide choice and competition. A largerfood store within the Town Centre would actas an anchor for linked shopping trips andattract greater numbers of visitors to theTown Centre.

7.10 For non-food shopping (comparisongoods), the research recommended that theAuthority seeks to markedly improve Luton’smarket share and increase itscompetitiveness in the face of competitionfrom regional competitors such as MiltonKeynes and Watford. However, increasingmarket share is in-part predicated on the

timely delivery of Luton’s opportunity sites,which should help provide a step change inthe quality of the Luton’s comparison offerand are aimed to be delivered by 2025. Thedelivery of the North Houghton Regis retailscheme will further increase competition.The research recommends the planneddelivery of comparison floorspace to helpensure Luton’s status is maintained.

7.11 The study found that the number ofevening trips to Luton Town Centre forleisure/retail purposes is relatively low.

7.12 The 2015 study found that a locallyset impact threshold policy would ensurethat development proposals providing greaterthan 1,000sq.m. gross floorspace for maintown centre uses in an edge or out of centrelocation should be the subject of an impactassessment. The setting of a lower thresholdallows scrutiny to be given to applicationproposals that might threaten to have anadverse impact on defined centres.

7.13 The majority of the existing Districtand Local Centres are serving their localcommunities well and complement the TownCentre. Some have the potential toaccommodate more community uses. Thereis scope for the establishment of anadditional new Neighbourhood Centre atChaul End Lane or Dallow Road based onareas of search with proximity to localfacilities and communities in those areas.

Retail Strategy

7.14 Accounting for committed retailfloorspace, the Retail Study identifies a needfor additional net convenience andcomparison retail floorspace as outlinedbelow. The Study recommends that anyadditional floorspace is directed to theCreative Quarter within the Town Centre,Power Court and to the centre hierarchy inline with the sequential approach as set outin paragraph 24 of the NPPF. This will serveto further reinforce the network of the TownCentre and District, Neighbourhood and LocalCentres across the borough and the

12 The Luton Retail Study Refresh December 2012 - Update 2015. Luton town centre’s descriptionas a ‘Regional Centre’ is the terminology adopted by the White Young Green’s (WYG) Luton RetailStudy Update 2015. This is sourced from Venuescore, an acknowledged industry ranking of retaillocations across the UK.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

65

appropriate scale of retail provisionaccording to each centre's function statedin the centre hierarchy identified within theRetail Study.

Net Additional Convenience Floorspace*

20312030202520202015

9,0648,4675,7576,2793,393

7.15 For qualitative reasons, theadditional food floorspace required currentlyin 2015 will be provided at Power Court. Upto 2020, an additional 2,900sq.m. ofconvenience floorspace may be distributedto the centre hierarchy including at MarshFarm District Centre (subject to the MarshFarm Masterplan), Napier Park, a modestallocation for a foodstore at Birdsfoot LaneSouth (supporting the strategic upgrading ofthis centre to Neighbourhood Centre status)and a further foodstore commitment (for anAldi store) at Sundon Park (upgrading thatNeighbourhood Centre to a District Centrefunction).

Net Additional Comparison Floorspace*

20312030202520202015

53,715(1)49,48330,0964,420N/A

1. *Figures represent the estimatedrequirement for net additional floorspaceat a given year based on modelling ofincreased population and expenditure froma benchmark position (at 2015) and takinginto account delivery of existingcommitments

7.16 The above floor space requirementsare based on an assessment of growth inLuton's convenience and comparison shoppingmarket share, which will be moderated bya) delivery of existing commitments meetingdemand and b) lead times in deliveringexisting commitments and new floorspaceup to 2025. However, by this period, despiteincreased competition (e.g. from thesubstantial scale retail scheme at NorthHoughton Regis anticipated to be tradingpotentially around 2022), the delivery oflarge, modern retail units occupied byquality national retailers should improve

Luton’s market share by providing animproved shopping offer to the Town. Theprimary location for the identifiedcomparison floor space up to and beyond2020 will be the town centre and PowerCourt.

Sequential Test and Impact Assessments

7.17 When considering edge of centre andout of centre sites, preference will be givento sites that are or will be connected to thenearest centre. To facilitate this, it isexpected that both applicants and theCouncil will be flexible on issues such asformat or scale. The sequential test willconsider the extent of the catchment arealikely to be served by the proposal,identifying alternative sites located in andnear to existing centres within thatcatchment. Where no centres exist withinthe catchment (e.g. a small newsagentproposed within a residential area), theclosest centres must be considered. Whenconsidering the need for development to belocated in a specific area, this must be basedon an understanding of any deficiencies inthe range of existing facilities. Purelycommercial objectives are not anappropriate basis. Where mixed uses areproposed, the sequential test must considerwhether sites in designated centres are ableto accommodate any of those usesindividually or collectively. Impactassessments must consider effects on centresas a whole. For example, the vitality andviability of centres that are heavilydependent on convenience retailing arelikely to be vulnerable to the effects oflarge, out of centre food stores. Extensionsto existing uses will be subject to thesequential test and impact assessment. Insuch instances, the sequential test will focuson the level of additional developmentproposed. The impact assessment will,however, be based on the total offeringprovided at a specific site (existingdevelopment plus any proposed extensionsand other alterations) to ensure that thegradual growth of existing, main town centreuses in out-of-centre locations does not havea significant, negative impact on designatedcentres.


LutonLocalPlan

(2011-2031)Novem

ber2017

66

Centre Hierarchy

7.18 The borough's centres as defined onthe Policies Map will be the focus for towncentre uses and will promote a network ofmixed use centres accessible to localcommunities, which promote linked trips tolocal shops and services via public transport,walking and cycling. Acceptable uses in thecentres include retail, leisure, entertainment(including the night-time economy)community facilities, public space, offices,arts and tourism. Residential developmentwill be encouraged in Town, District andNeighbourhood centres provided that itwould promote the vitality and viability ofthe respective centre (see policy LLP15Housing Provision). Each centre will bedeveloped to promote its unique identity andthe overall retail hierarchy adhered to.

Planning Conditions

7.19 Main town centre uses such as retailcan have a significant impact on social,economic and environmental concerns. Tomaximise beneficial impacts and reducenegative effects, restrictions are applied toretail frontages and conditions may beapplied to operations on a case-by-casebasis. For example, the range of goods soldat out-of-centre retail parks might berestricted to support the vitality and viabilityof designated centres, while the operationof food retail might be managed to supportthe improvement of public andenvironmental health.

Policy LLP21 - Centre Hierarchy

A. The centre hierarchy is as follows:

Town Centre: Luton Town Centre;District Centres: Bury Park, MarshRoad, Marsh Farm, Wigmore,Stopsley, Sundon Park;Neighbourhood Centres: Farley,High Town, Round Green, Lewsey,Bushmead, Bramingham, HockwellRing, Biscot Road, Calverton Road,

Birdsfoot Lane South, Napier Park;andPotential for a new NeighbourhoodCentre at Chaul End Lane or DallowRoad.

Proposals for main town centre uses willaddress the identified scale of retailneed over the plan period, distributedat a scale appropriate to the centrehierarchy functions, and the allocatedPower Court and Northern Gatewayretail developments (identified on thepolicies and inset maps), and be subjectto the sequential test. This requiressuch uses to be located within towncentres, then edge of centre locationsand then, only if suitable sequentiallypreferable sites are not available, inout-of-centre locations. For all retail('A' use classes), the extent of Lutontown centre comprises the town centreshopping area, while the extent of thedistrict and neighbourhood centrescomprises the relevant shoppingfrontage. For all other main towncentre uses, the extent of a centre isthe wider boundary as marked on thepolicies map.

B. Applications for retail, leisure, andoffice development over1,000sq.m. located outside of towncentres, not in accordance withthis Local Plan, are required tosubmit an impact assessment, asdefined in the NPPF, to theCouncil.

C. The Council will grant planningpermission for retail development,provided it is demonstrated that:

i. retail proposals meet thesequential test; and

ii. the vitality and viability of thetown centre, and individually,each District andNeighbourhood centre in theborough would not besignificantly adverselyaffected by the developmenteither on its own or in


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

67

combination with otherproposals or commitments.

D. A new Neighbourhood Centre atChaul End Lane or Dallow Road willbe designated where town centreuse proposals come forward whichare of a Neighbourhood Centrescale.

Primary and Secondary ShoppingAreas and Frontages

Policy LLP22 - Primary and SecondaryShopping Areas and Frontages

The Luton Town Centre Shopping Area,premier, primary, and secondaryshopping frontages are defined for LutonTown Centre on the Policies Map. Thepremier frontage identified within theMall is equivalent to the primaryshopping frontage for the purposes ofapplying the sequential and impacttests.

A. Primary and secondary shoppingfrontages as defined by thefrontages on the Policies Map arethe prime focus for:

i. convenience retail;ii. comparison (non-bulky) retail

floor space; andiii. other town centre uses as

defined in the NPPF, which

promote jobs, leisure and thenight-time economy.

B. Within the premier, primary andsecondary shopping frontages ofthe town centre shopping area,identified on the Policies Map,planning permission will be grantedfor the development of non-A1town centre uses provided that thepremises:

i. are above ground floor levelin the primary shopping area;or

ii. are at ground floor level inthe primary shopping area,and the proposed use will notresult in:

a. more than 10% of therelevant premiershopping frontage beingin non-A1 use; or

b. more than 25% of therelevant primaryshopping frontage beingin non-A1 use; and

c. more than two adjacentunits (of not greater thanthe normal frontagewidth) being in non-A1retail use; and

d. the change of units in A1use in part or wholewhere there are vacantnon-A1 units within thesame frontage.

iii. are in the secondary shoppingarea, and the proposed usewill not result in more than50% of the identified frontagebeing in non-A1 use.


LutonLocalPlan

(2011-2031)Novem

ber2017

68

District and Neighbourhood ShoppingAreas and Shopping Parades

Policy LLP23 - District &Neighbourhood Areas & ShoppingParades

The Council will approve planningapplications that help to deliver andreinforce a network of mixed useDistrict and Neighbourhood centres(which promote linked trips to localshops and services via public transport,walking and cycling) according to thecentre hierarchy.

A. Planning permission will normallybe granted for the development oftown centre uses that:

i. strengthen the functionalrole, vitality and viability ofthe centre;

ii. increase the mix of uses in thearea;

iii. maintain A1 retail on 75% ofthe shopping frontage;

iv. provide no more than twoadjacent non A1 units;

v. provide a service principallyto visiting members of thepublic;

vi. retain existing windowdisplays above ground level;and

vii. propose a flexible use ofspaces to optimise the use ofland and buildings for sharedservices and facilities.

Shopping Parades

B. In existing small shopping parades,planning permission will be grantedfor developments that:

i. retain existing shops sellingconvenience goods;

ii. propose convenience retail(A1);

iii. propose non A1 uses providedthat a minimum of 75%

shopping frontage remains inA1 use;

iv. propose a service to visitingmembers of the communityprovided that the trafficgenerated is appropriate forthe site; and

v. maintain a shop front or anequally active frontage.

C. Loss of A1 facilities will bepermitted where:

i. there are equivalentalternative shopping facilitieswithin a convenient walkingdistance of the catchmentarea of the existing shop; or

ii. the existing use isdemonstrably no longerviable.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

69

8 Education and OtherCommunity Facilities

Education and Other CommunityFacilities


8.1 Strategic Objective 2: To utiliseLuton’s economic, social and environmentalresources efficiently and sustainablyincluding appropriate mitigation within thelimited physical land capacity of the boroughwhilst ensuring the permanence of the GreenBelt.

8.2 Strategic Objective 4: To establish aneffective network and hierarchy of Town,District and Neighbourhood centres to serveas the heart of local communities andimprove health through improved access bytrain, bus, walking and cycling to a mix ofuses including shopping, services and jobs.

8.3 Strategic Objective 7: To safeguardand enable new community, educational andcultural facilities to be delivered andexpanded to meet the needs of a growingand diverse borough.

Key Issues

8.4 The borough faces various issuesinvolving planning for education andcommunity services up to 2031.

8.5 There is a need to serve thesocial, community safety, learning andleisure needs of a growing Lutonpopulation in an urban area with as higha density in some places as Londonboroughs. This will increase demandsupon existing schools and othercommunity facilities (including withinthe private, public and voluntarysector), many of which are already ator exceed their designed capacity.

8.6 There are limited opportunitiesto accommodate new facilities because:

there isn't enough suitable land ofthe right size and location(particularly greenfield land);development tends not to be viablewithin Luton on brownfield landand so there is likely to be

8 . Education and Other Community Facilities

LutonLocalPlan

(2011-2031)Novem

ber2017

70

insufficient investment fromdeveloper contributions towardsmuch needed new or improvedfacilities; andpublic investment in futureprovision, maintenance and runningof existing schools and othercommunity facilities is beingrestricted because of spending cutsand changes in national policy.There is, therefore, a need toprioritise spending with efficiencygains met through rationalising andmaking more effective use ofschools and services (e.g. shareduse of libraries and communitycentres). In some cases, facilitiesmight be lost to local communitiesunless and until economic recoveryand Government finances improveover the plan period.

8.7 Additional capacity is needed forthe equivalent of a 900-place secondaryschool and 500-place primary schoolover the next 5 years and further highschool places over the plan period incentral and southern Luton. Two sitesare allocated for this purpose on landat the Brache (former tennis courts andformer GM Vauxhall cricket ground) tomeet this need.

8.8 Additional education needs arisingin other parts of the borough will bemet through careful management (e.g.expansion) of existing educationfacilities.

8.9 There is a need to reduce costsand adapt and make more efficient useof existing community services to meetmodern provider expectations (e.g.ambulance, fire and rescue, police,primary and secondary healthcare, GPs,dentist surgeries) and corporate serviceobjectives via integrated and sharedfacilities (e.g. libraries, leisure andcommunity centres, swimming pools andchildren's play facilities).

8.10 There is a need to collocateshared social and health supportservices, schools and other communityfacilities with new infrastructure based

on an accessible network of District andNeighbourhood Centres, distributedacross the borough.

8.11 In the face of pressure forhousing development, it will beimportant that Luton has the evidenceto retain its attractions and greenspaces as well as facilities for sport,play, formal and informal leisure andworship. These are critical to thehealth and wellbeing of the town'scommunities and visitors and they helpto promote the cultural diversity andcohesiveness of Luton and its reputationas a place to stay, do business or beentertained. The recycling of land andbuildings to establish facilities thatmeet community needs includingculture, worship, education and leisure,will have to be sensitive to the safetyand amenity of users, adjacent residentsand occupiers and the character of eachlocation.

Policy approach

8.12 The NPPF urges that planningpolicies reduce the need to travel bybalancing land uses for employment,shopping, leisure, education and otheractivities within their area (NPPFparagraph 37).

8.13 Large scale residentialdevelopment should provideopportunities for living and workingon-site and for daily linked trips to keyfacilities such as primary schools andlocal shops that should be located withinwalking distance of most properties(NPPF paragraph 38). A sufficientchoice of school places to meet needsmight be delivered through joined upworking with services and applicants(e.g. give great weight to the need tocreate, expand or alter schools (NPPFparagraph 72)).

8.14 Smarter working betweenauthorities, services and providers toassess the quality and capacity ofinfrastructure (e.g. transport, watersupply, energy utilities, waste, health,social care, education, flood risk) tomeet forecast demands including


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

71

strategic infrastructure and nationallysignificant infrastructure (NPPFparagraph 162).

8.15 High quality communicationsinfrastructure (e.g. broadband) isessential for sustainable economicgrowth and in enhancing the provisionof local community facilities andservices (NPPF paragraph 43).

8.16 Sustainable communities shouldbe planned positively for shared space,retention and integration of social andcommunity facilities with housing toallow communities to meet their needs(NPPF paragraph 70).

Evidence base

8.17 Luton's growing population ischaracterised by a younger population profilethan the regional average, leading to asignificant natural increase with more births,fewer deaths and a rising school agepopulation. There is demand for childcarefacilities and school places, in particularprimary school places.

8.18 Most of the identified sites for newhousing developments are located in thesouth or centre of the town. The ability ofthe Council to find and afford land for newschools is limited and the implications of notsecuring additional schools close to newhousing is that children will have to travelexcessive distances to access a school place.This will be difficult for families to manageand would have an adverse impact on theCouncil’s revenue budget.

8.19 Good quality education underpinsemployment prospects for the town’sresidents and the prosperity of the localeconomy. An expanding university with amodernised new and enhanced campus andleisure offer is based in the town centre.Barnfield College and other colleges presentin the town are rationalising their portfoliosand there are opportunities for consolidationin and around the Town Centre and 'CreativeQuarter'.

8.20 Luton's population is also ageing andfacing an increase in single personhouseholds in line with national trends,however migration, ethnic mix and culturalexpectations also lead to larger family sizesand extended families with an increaseddemand for shared properties, e.g. 'grannyannexes', loft conversions, houses in multipleoccupation etc.

8.21 Language barriers, lower skills andwages attained by many in the residentworkforce (including women, carers andparents wishing to return to work) haveincreased the incidence of social deprivationin some Luton wards. This increases relianceon public support services such as childcareand healthcare, social services andemergency and community safety.

8.22 The Luton and Dunstable hospitalprovides the major general and specialisthealth care facilities although it isdeveloping its strategy for decentralisingcertain outpatient clinics into the widercommunity.

8.23 The Playing Pitch Strategy (PPS 2014)sets out key aims and supporting objectivesfor sport provision in the Borough. The PPSrecognises Luton’s constrained supply of landfor facilities, growing demand in somesporting sectors as the population is set togrow with a consequent increasing pressureto develop sites for alternative uses.Essentially, the key aims seek to protect andenhance levels of outdoor sports facilitiesand better manage the resources includingmaximising shared access (e.g. toeducational sports facilities) and investment.

8.24 A prioritisation list is included withinthe Strategy, which identifies the futuresport by sport demands (e.g. football, rugby,tennis, cricket etc.) and trends. In this way,the PPS provides guidance for planningdecisions across Luton up to 2021; a furtherIndoor Sports Facilities Strategy 2015 (ISFS2015) has also been published. This sets outa vision to increase access to, and bettermanage, indoor sports facilities to improvesocial inclusion and healthy lifestyles withobjectives seeking to protect, provide andenhance provision (both the PPS14 and ISFS2015 include supplementary guidance on


LutonLocalPlan

(2011-2031)Novem

ber2017

72

developer contributions). The Luton GreenSpaces Strategy 2014 (GSS 2014) has beenpublished in partnership with the GreensandTrust in 2014. It sets out the scale and typeof green space provision across the boroughand its role including spatial analysis of theaccessibility, standard and shortfall/deficitin green space provision by type and locationin order to guide planning decisions. Thisevidence is also supported by the LutonGreen Infrastructure Plan published inpartnership with the Greensand Trust in 2015and this identifies a strategic network ofgreen infrastructure across the borough.

Policy LLP24 - Education and OtherCommunity Facilities

Protection of education and othercommunity facilities

A. Planning permission will be grantedfor development that contributestowards an identified need forcommunity facilities and servicesarising from the impact of thedevelopment either on-site oroff-site within service hubs basedin District or NeighbourhoodCentres. Development that wouldlead to a loss of communityfacilities will be permitted where:

i. existing facilities elsewherein a suitable location canmeet the displaced needs; or

ii. it is unsuitable for alternativecommunity uses for whichthere is a demonstrable need;or

iii. equivalent or betterreplacement facilities interms of quantity and qualityare provided in a suitablelocation.

New and extended education,childcare, nursery, and othercommunity facilities

Provision for the equivalent capacity forsufficient primary and secondary schoolplaces over the plan period will besupported. Subject to a review by the

Education Service, this will include anyscope for an expansion of existingschools through innovative design anddensity, opportunities for sharedfacilities (including multi-storeyfacilities) and primary and secondaryschool allocations on former tenniscourts south of the Brache and formercricket ground east of the River Lea onthe Brache (as identified on the policiesmap).

B. New and extended education,childcare, nursery, and othercommunity facilities will begranted planning permissionprovided that:

i. a demonstrable local orregional need is established,and the facility is well relatedto the area it serves;

ii. it would not adversely affectthe viability and vitality of aDistrict or Neighbourhoodcentre;

iii. there would be nounacceptable effect on theamenity of any surroundingresidential dwellings andother uses;

iv. it does not take land either inor allocated for other uses,unless it is demonstrated thatthe need for the facilityoutweighs that for the existingor allocated use;

v. there is suitable vehicularaccess and safe dropping offand picking up areas; and

vi. where the proposed facilitywould be in premises that areused for another purpose, itremains subordinate to themain use of the premises.

Integrating Facilities

C. Increased local and integratedservice delivery will be supportedin conjunction with localcommunities (unless such usewould have an adverse impact onthe delivery of the educational


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

73

service or adverse impact on thecharacter of the area or amenityof nearby residents/ properties),particularly:

i. flexible multi-use buildings inpublic and communityownership;

ii. co-location of sports centresand playing pitches withschools;

iii. agreements to use schoolsfacilities and other publicbuildings for community use;

iv. co-location of doctor, dentist,and pharmacy facilities; and

v. to share and integrate police,fire, and ambulance facilities.


LutonLocalPlan

(2011-2031)Novem

ber2017

74

9 High Quality Design

High Quality Design



Strategic Objective 3: To ensure that newhousing delivers an appropriate level ofprovision to meet local needs in terms of thenumber of homes, subject to capacityconstraints and a mix of dwelling types, sizesand tenures that offer local residents achoice of where to live and addresses issuesof affordability and overcrowding. LutonBorough Council will work collaborativelywith neighbouring authorities to help ensureunmet need is provided in appropriatelocations outside Luton, and to activelymonitor progress in terms of unmet need.

Strategic Objective 4: To establish aneffective network and hierarchy of Town,District and Neighbourhood Centres to serveas the heart of local communities andimprove health through improved access bytrain, bus, walking and cycling to a mix ofuses including shopping, services and jobs.

Strategic Objective 5: To improve the builtand natural environment to deliver qualityplaces, through high quality and sustainabledesign taking into account the landscape,setting and character of the town andneighbourhoods within its national (i.e.AONB) and local landscape settings, includingheritage assets and providing safeenvironments which help to reduce crimeand the fear of crime.

Strategic Objective 8: Improve accessibility,connectivity, sustainability and ease ofmovement to, from and within the borough.

Strategic Objective 10: Improve, protectand enhance biodiversity of natural areaswithin the town, including the quality,accessibility, health and recreational valueof green space, the River Lea Corridor, theChilterns Area of Outstanding Natural Beauty

9 . High Quality Design

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

75

(AONB), the Areas of Great Landscape Value(AGLV) and Areas of Local Landscape Value(ALLV) and their connectivity.

Strategic Objective 11: To safeguard andensure the prudent use of natural resources,increase energy and water efficiency andencourage and promote the use of renewableenergy sources to help adapt to climatechange, and manage pollution and naturalhazards, avoid inappropriate developmentin areas at risk of flooding, secureimprovements in air and water quality andensure effective waste management.

9.1 National Planning Policy says thatplanning should always seek to secure highquality design and a good standard ofamenity for all existing and future occupantsof land and buildings. Good design is a keyaspect of sustainable development (e.g.mitigation and adaption to climate changeand sustainable use of resources includingenergy, water supply and quality withparticular regard to polices LLP37 and LLP38)and is indivisible from good planning, andshould contribute positively to making placesbetter for people. Local plans should containrobust and comprehensive policies that setout the quality of development that will beexpected for the area.

9.2 National policy also explains that localplanning authorities should consider usingdesign codes where they could help deliverhigh quality outcomes. Design policiesshould, however, avoid unnecessaryprescription or detail and should concentrateon guiding the overall scale, density,massing, height, landscape, layout, materialsand access of new development in relationto neighbouring buildings and the local areamore generally. Local planning authoritiesshould have local design reviewarrangements in place to provide assessmentand support to ensure high standards ofdesign. In assessing applications, localplanning authorities should have regard tothe recommendations from the design reviewpanel.

9.3 Planning policies and decisions shouldaddress the connections between people andplaces and the integration of new

development into the natural, built andhistoric environment. An early engagementon design produces the greatest benefits.

9.4 In determining applications, greatweight should be given to outstanding orinnovative designs that help raise thestandard of design more generally in thearea. Permission should be refused fordevelopment of poor design that fails to takethe opportunities available for improving thecharacter and quality of an area and the wayit functions.

9.5 Local planning authorities should notrefuse planning permission for buildings orinfrastructure that promote high levels ofsustainability because of concerns aboutincompatibility with an existing townscape,if those concerns have been mitigated bygood design (unless the concern relates to adesignated heritage asset and the impactwould cause material harm to the asset orits setting, which is not outweighed by theproposal’s economic, social andenvironmental benefits).

9.6 Poorly placed advertisements can havea negative impact on the appearance of thebuilt and natural environment. Control overoutdoor advertisements should be efficient,effective and simple in concept andoperation. Only those advertisements whichwill clearly have an appreciable impact ona building or on their surroundings should besubject to the local planning authority’sdetailed assessment. Within conservationareas, internally illuminated adverts areunlikely to be acceptable but will beconsidered on their merits having regard tothe characteristics of the conservation area.

9.7 The NPPF also highlights the importantrole planning and design play in creatinghealthy, inclusive communities and thatplanning policies and decisions should aimto achieve places which promote:

opportunities for meetings betweenmembers of the community who mightnot otherwise come into contact witheach other, including through mixed-usedevelopments, strong neighbourhoodcentres and active street frontages,which bring together those who work,live and play in the vicinity;


LutonLocalPlan

(2011-2031)Novem

ber2017

76

safe and accessible environments wherecrime, disorder, and the fear of crimedo not undermine quality of life orcommunity cohesion; andsafe and accessible developments,containing clear and legible pedestrianroutes, and high quality public space,which encourage the active andcontinual use of public areas.

9.8 The proposed design policies reflectthe Government's approach and the Councilrecognises the very important role designplays in developing sustainable communities,including attracting investment to theborough. The look and feel of the builtenvironment is a key determinant of healthand fundamental to the creation ofsustainable environments. The quality ofinternal and external spaces can impactgreatly on physical and mental health andwellbeing. Good quality environments canalso support many local strategies andinitiatives such as the Luton Dementia ActionAlliance.

9.9 Land within the borough is a finiteresource and the Council will seek to ensurethat it is developed and used efficiently andeffectively to meet demand and a range oflocal community needs includingopportunities to promote sport, leisure andother physical activity in order to pursuehealthy communities and lifestyles. Forexample, there is an under-provision ofallotments to fully meet demand in Lutonand development should therefore includelayouts and design features to provideopportunities for allotments and communalGreen Space/ Green Infrastructure as wellas private space, for residents to grow theirown healthy produce. Using density as ameasurement does not adequately addressissues of character and context; thereforedevelopment must also have regard to plotratio, development mix, scale and form tohelp identify spaciousness as a reflection ofcharacter. The future application ofdevelopment densities also needs to beinformed by securing adequate internal andexternal space, privacy, sunlight anddaylight, which becomes increasinglyimportant as densities increase. The Councilwill require new developments todemonstrate that all housing has acceptable

private space, privacy, daylight and sunlighthaving regard to the requirements of futureoccupiers, site specific circumstances andthe character of the locality.

9.10 Development potentially affectingthe Chilterns AONB its setting should referto the Chilterns Building Design Guidance toensure consistency of design and materialsacross the Chilterns and the ChilternsConservation Board's Position Statement onDevelopment Affecting the Setting of theChilterns AONB where appropriate.

9.11 Development provides opportunitiesto secure a more accessible environment foreveryone including those with mobilityconcerns such as wheelchair users, peoplewith impaired vision, elderly people andthose with young children. Furtherconsideration will be given to the need andappropriateness of producing aSupplementary Planning Document anddevelopment briefs for the design of newdevelopment.

Policy LLP25 - High Quality Design

Buildings and spaces will be of highquality design with distinctive characterand be safe and easily accessed by allmembers of the community. Proposalswill need to demonstrate adherence tothe best practice principles of urbandesign to help create quality places inthe Borough.

In particular, where the following designcriteria are material to an applicationsite, its context and developmentproposals, provision should be made to:

i. enhance the distinctiveness andcharacter of the area by respondingpositively to the townscape, streetscene, site and building context,form, scale, height, pattern andmaterials, distinctiveness, andnatural features including biodiversity;

ii. create or enhance attractive safe,accessible, and active open publicspaces, creatively using hard andsoft landscaping and public art forall members of the community;


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

77

iii. provide continuity of built form,connectivity, active frontages, andenclosure;

iv. optimise and improve accessibilityto walking and cycling andconnections to public transport,local services, open spaces, andcommunity services and facilities;

v. optimise higher densities and avoidbackland development where itwould give rise to averse amenitywhilst meeting the otherrequirements of this policy;

vi. provide green infrastructure andmeasures to protect, conserve, orenhance natural assets andbiodiversity;

vii. be adaptable to change of uses andflexible to accommodate changingliving and working requirements ofall the members of the community;

viii. reduce carbon emissions, risk offlooding, and increase energy andwater efficiency and quality;

ix. promote sport and physical activityand healthy communities (13);

x. promote opportunities for reducingcrime and anti-social behaviour;

xi. deliver new housing in accordancewith external amenity spacestandards set out in appendix 6,and minimises noise, overlookingand overshadowing/loss of light,address tall buildings and theprotection of important views, andensure access to storage andprivacy; and

xii. deliver and integrate public art,particularly in strategic allocations.

The Council will use a Design ReviewPanel to review major developmentproposals where appropriate and willtake into consideration itsrecommendations when consideringapplications.

Supplementary guidance through SPDsand Development Briefs on high qualitydesign may be produced to expand and

complement the principles establishedin this Plan and to provide clearguidance to applicants.

Advertisements and Signage

Policy LLP26 - Advertisements andSignage

A. Consent will be given foradvertisements, signage, anddisplays that do not:

i. adversely affect the characteror appearance of the buildingor area;

ii. hinder the view of a valuedlandscape, or feature;

iii. cover important decorativefeatures of a historic building;

iv. result in proposals that areout of keeping in their settingin terms of size, design,illumination, materials, orcolour; or

v. have an adverse effect ontraffic safety, includingpedestrian safety.

B. Advertisement consent forhoardings around developmentsites will only be granted for alimited period.

13 http://www.sportengland.org/facilities-planning/planning-for-sport/planning-tools-and-guidance/active-design


LutonLocalPlan

(2011-2031)Novem

ber2017

78

http://www.sportengland.org/facilities-planning/planning-for-sport/planning-tools-and-guidance/active-design

10 Natural & HistoricEnvironment

Natural & Historic Environment


Strategic Objective 5: To improve the builtand natural environment to deliver qualityplaces, through high quality and sustainabledesign taking into account the landscape,setting and character of the town andneighbourhoods within its national (i.e.AONB) and local landscape settings, includingheritage assets and providing safeenvironments which help to reduce crimeand the fear of crime.

Strategic Objective 10: Improve, protectand enhance biodiversity of natural areaswithin the town, including the quality,accessibility, health and recreational valueof green space, the River Lea Corridor, theChilterns Area of Outstanding Natural Beauty(AONB), the Areas of Great Landscape Value(AGLV) and Areas of Local Landscape Value(ALLV) and their connectivity.

10.1 The objectives above reflect theintegrated aspirations of the borough todeliver quality places through high qualitydesign and sustainable development that willenhance and protect the natural and builtenvironment and the amenities of itsresidents. This includes protection of thetown’s important natural and built assets aswell as bringing such assets back intoproductive use in sympathetic andappropriate ways through conservation andenhancement measures for built heritage,valued landscapes, green spaces, importantwildlife habitats and geological sites.

10.2 In particular, objective 5 is foundedon national legislation that requires localplanning authorities to recognise heritageand habitat assets as irreplaceable resourcesand to set out positive strategies for theirconservation and enjoyment. To help achievethis, Luton will seek to work withstakeholders and other bodies to maintain

10 . Natural & Historic Environment

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

79

an up-to-date evidence base using objectiveand local expertise. Relevant partieswill include the Bedfordshire & LutonWildlife Working Group (and its varioussub-groups), Bedfordshire Local NaturePartnership, Upper River Lea CatchmentPartnership, Greensand Trust, Luton Friendsof Parks and Green Spaces and the BiologicalRecords & Monitoring Centre (BRMC).

Key Issues:

10.3 The population of the town isexpected to grow significantly over theplan period. This will increase thedemand placed on Luton’s limited and,in some communities, deficient supplyof green space and wildlife habitats andalso upon local heritage and valuedlandscapes of national and localimportance.

10.4 Future development willconsequently need to protect, enhanceand, where feasible, increase thelimited supply of recreational greenspace and green infrastructure networkswithin the borough in order to remedydeficiencies (e.g. in areas deficient inopen space of recreational value) andachieve local standards, as identified inthe Greenspace Strategy Review (2014)and the Green Infrastructure Plan forLuton (2015). This evidence identifiesthe strategic role and importance of GIacross the borough and itsinterrelationship with green networkscrossing the boundary linking with GI inneighbouring local authorities (seeAppendices 11 and 12): to make publiclyaccessible open space assets availableto all Luton residents as the populationgrows significantly over the next 20years.

10.5 A need to ensure that greeninfrastructure networks of quality greenand blue space (e.g. ponds, rivers,streams and lakes etc.) continue tocontribute towards improving thequality of life, health and recreationopportunities for Luton’s existing andfuture residents and visitors. Green

infrastructure networks should alsomake important contributions toconserving wildlife, habitats andlandscapes in order to promotebiodiversity and opportunities forclimate adaptation at a strategic andlocal level. It should be recognised thatordinary householders can alsocontribute through positive gardeningfor wildlife. School and communityecological projects (potentially withinother public or institutional land) playan important role in the ecology of theBorough.

10.6 A need to protect the mostimportant green space (including Districtand Neighbourhood Parks) and futuredesignations from the community ofLocal Green Space (as defined in theNPPF) and only in exceptionalcircumstances allow losses arising fromdevelopment. Natural open space andgreen infrastructure may include parksand gardens (including Neighbourhoodand District parks) for informal leisureand recreation. In Luton, such openspace is often multi-functional,recognising the need to maximise theutility of scarce open space and greeninfrastructure that combine more formalprovision for outdoor and indoor playingpitches and sporting activities. PolicyLLP24 will, however, specifically applyin relation to formal indoor and outdoorsporting facilities. It is not realistic toexpect significant net additionalprovision of open space and greeninfrastructure, given the constrainedland available within a built up areasuch as Luton. Protection andenhancement of existing open space andgreen infrastructure, including formulti-functional purposes, is thereforea significant requirement and reflectedin the policy LLP27.

10.7 A need to ensure thatdevelopment delivers an appropriatequantity and quality of green spaceincluding on and off-site provision,replacement facilities, commuted sumsand management costs.


LutonLocalPlan

(2011-2031)Novem

ber2017

80

10.8 Ensure the statutory protectionof designated wildlife and geology whileseeking net additional contributions tothe stock of biodiversity and plant andanimal habitats with regard to Section40 of the Natural Environment and RuralCommunities Act 2006.

10.9 Trees, including mature andveteran trees and those protected bytree preservation orders, providevaluable eco-system services andenvironmental benefits. Theseinclude carbon reduction, filtering fromnoise and intrusion, cooling effects and,together with hedgerows, also act asstrategic wildlife corridors and havens,which harbour many diverse plant andanimal species that need protection.

10.10 Require that the environmentalimpacts and significant effects ofdevelopment are clearly identified andsupplied under the statutory regime((Town and County Planning(Environmental Impact Assessment)(England and Wales) Regulations 1999)).This should be via an EnvironmentalStatement. Impact assessments mightalso be required in cases where formsof development are not proscribed inregulations but can, depending on theirnature, also have significantenvironmental effects.

10.11 The need to conserve andenhance important nationallydesignated landscapes such as theChilterns AONB (within and adjacent tothe borough), scheduled monuments,registered parks and gardens, registeredcommon land and access land, QueenElizabeth II Playing Fields and localdesignations including the AGLV andALLV (see Policies Map and glossary) toensure that development is sensitivelylocated and designed to protectimportant landscapes and their setting.

10.12 Ensure statutory protection ofallotments while seeking net additionalcontributions in line with the standardsidentified in the Greenspace Strategy(see greenspace standards in Appendix11).

10.13 To improve the builtenvironment by delivering high qualityplaces that take into account heritageassets, bringing them back into anappropriate use that conserves the assetfor future generations. This will beachieved by encouraging developmentthat makes a positive contribution tolocal character and distinctiveness,which is sensitive to its context and,where appropriate, ensures that anyimpact on the archaeological resourcefor the borough is properly mitigated.

10.14 Ensuring appraisals areproduced for each of the borough’s fiveConservation Areas and to review otherareas for potential designation.

10.15 To maintain and review Luton’slocal list of heritage assets to ensureimportant designated heritage assets(including listed buildings, conservationareas and scheduled monuments) andnon-designated heritage assets(including locally listed buildings andarchaeology) are valued, conserved andgiven policy protection. Non-designatedheritage assets are those elements ofthe historic environment that contributeto the unique character and identity ofthe town.

10.16 To ensure that all developmentaffecting heritage assets witharchaeological interest give dueconsideration to the archaeologicalresource and include appropriatemitigation measures. Information onheritage assets gathered as part of theplan making or developmentmanagement processes will be madepublicly available by depositing it withthe Historic Environment Record andarchives with Luton Culture.

10.17 To ensure that those heritageassets currently considered to be at riskof neglect or decay and included on theHistoric England at Risk Register areeffectively managed and protected.These currently include:

Plaiters Lea Conservation Area


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

81

Drays Ditches Scheduled MonumentPutteridge Bury Registered Park

Policy approach

National Policy

10.18 Local planning authoritiesshould set out a strategic approach intheir Local Plans, planning positively forthe creation, protection, enhancementand management of networks ofbiodiversity and green infrastructure(NPPF paragraph 114).

10.19 Local planning authoritiesshould set criteria based policies againstwhich proposals for any developmenton or affecting protected wildlife orgeodiversity sites or landscape areaswill be judged. Distinctions should bemade between the hierarchy ofinternational, national and locallydesignated sites, so that protection iscommensurate with their status andgives appropriate weight to theirimportance and the contribution thatthey make to wider ecological networks(NPPF paragraph 113).

10.20 The duty to have regard to theChilterns AONB and give great weightto conserving its landscape and scenicbeauty and its protection from majordevelopment, whilst also protecting andenhancing valued landscapes, geologicalconservation interests and soils (NPPFparagraphs 109, 115 and 116 andNPPG Ref ID: 8-003-20140306);recognising the wider benefits ofecosystem services (NPPF paragraph109); and minimising impacts onbiodiversity and providing net gains inbiodiversity where possible, contributingto the Government’s commitment tohalt the overall decline in biodiversity,including by establishing coherentecological networks that are moreresilient to current and future pressures(NPPF paragraph 109).

10.21 Local authorities should set outa positive strategy for the conservationand enjoyment of heritage assets mostat risk through neglect decay or otherthreats (NPPF paragraph 126).

10.22 Local authorities should lookfor opportunities for new developmentwithin Conservation Areas and in thesetting of heritage assets to enhanceand better reveal their significance(NPPF paragraph 137).

10.23 Local authorities should havean up-to-date evidence base about thehistoric environment in their area toassess the significance of heritage assetsand the contribution made to theenvironment (NPPF paragraph 169).

10.24 Planning (Listed Buildings andConservation Areas) Act 1990 requiresthat local planning authorities formulateand publish proposals for thepreservation and enhancement of anyparts of their area that are conservationareas. A key issue for Luton’sConservation Areas, and particularlyPlaiters Lea, arises from the demolitionof buildings.

Evidence base

10.25 The Bedfordshire & Luton, LocalBiodiversity Action Plan (BAP) 2001 andlegacy plans are as updated via the 'UKPost-2010 Biodiversity Framework', publishedin July 2012 and the Habitat and Speciesaction plans set out under RebuildingBiodiversity in Bedfordshire & Luton Volume1 (2006) and Volume 2 (2007) are availableon the BRMC website. The 1992 NatureConservation Strategy for Luton is currentlyunder review.

10.26 There are currently no examples ofSpecial Protection Areas (SPA), Special Areasof Conservation (SAC), Ramsar Sites or otherinternationally protected sites within theborough. Similarly, there are currently noSites of Special Scientific Interest (SSSIs)within Luton.

10.27 However, Natural England haverecently indicated a desire to review SSSIsassociated with the Bedfordshire chalk, andsurveys of Bradger's Hill (2003 & 2012),Dallow Downs (2003 & 2012) and CowslipMeadow (2012) have all indicated these sitesto be of SSSI quality, and designation may


LutonLocalPlan

(2011-2031)Novem

ber2017

82

follow in due course. SSSIs can be regardedas the 1st tier of UK biodiversity sitedesignations.

10.28 County Wildlife Sites (CWS - seeGlossary) represent the principal componentsof the ecological network in the borough,(formerly known as ‘Prime Sites of NatureConservation Interest’) and they werereviewed in 2012 by the independent panelapplying DEFRA criteria and guidelines. Anadditional CWS was recognised at the landtenanted by the Sunshine Riding Stables.Recognition as a CWS does not conferstatutory protection of the site, nor any rightof access. The 25 CWSs in Luton can beregarded as the 2nd tier of UK biodiversitysite designations:

1. Biscot Churchyard (Holy Trinity, TrinityRoad)

2. Castle Croft and Bluebell Wood(includes meadows off Roebuck Close)

3. Bradgers Hill (includes parts of StopsleyCommon, the old Hexton Highway andparts of the former Nail's Hill Commonin Bushmead Park)

4. Bramingham Wood (includesBramingham Long Field)

5. The Chase (also known as Mixes HillWood)

6. Church Cemetery (Crawley Green Road)7. Cowslip Meadow8. Croda Colloids (New Bedford Road)9. Dallow Downs (includes Runley Downs

& Wood and Winsdon Hill)10. Honeygate and Crick Hills11. Leagrave Common (includes Whitefield

Spinney and Castle Way (Spinney Wood)and Wauluds Bank)

12. Fallowfield13. Oaket Wood (part lies in Hertfordshire)14. Oosey Hill (part lies in Central

Bedfordshire)15. People's Park16. River Lea (includes headstreams and

tributaries and sections of adjoiningopen spaces)

17. Riverside Walk (Riverside Park)18. Slaughters Wood and Green Lane (also

known as Haverings)19. Stockwood Park (part)20. Stony Hill (also known as Icknield

School)

21. Wigmore Park22. Wandon End Park23. Winch Hill Wood (part lies in

Hertfordshire)24. Sunshine Riding Stables

10.29 District Wildlife Sites (DWS) are athird tier designation which replace ‘othersites of nature conservation Interest’ andare designated via the ‘Local SitesPartnership’ using criteria on the BRMCwebsite (see Glossary). There are 14 DWS inthe Borough:

1. Dairyborn Scarp (former CWS also knownas Spittlesea Hill)

2. Dallow Lane3. Foxdell4. Great Bramingham Park5. Great Hayes Wood6. Hatters Way7. Hay Wood & Stopsley Common8. Hitchin Road Spinney9. Lewsey Park10. Luton Parkway Verges11. Mixes Hill12. River Lea13. Stockingstone Hill (sometimes known as

Cowridge End)14. Stockwood Park (part)

10.30 The Green Spaces Strategy Reviewincludes a hierarchy of parks and open spaceand identifies in more detail the needs anddeficiencies in the town in relation to openspace of recreational value, natural andsemi-natural habitats and for allotments(please refer to Appendix 11 for spacestandards). The Green Infrastructure Plan2015 also sets out the network of greenspace across the borough and its boundarylinking up with networks in other localauthorities (see Appendix 12).

10.31 The following comprise DistrictParks (as identified in the Policies Map):

1. Leagrave Park2. Lewsey Park3. Stopsley Common4. Stockwood District Park5. Wardown Park6. Wigmore Valley


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

83

10.32 The following comprise theNeighbourhood Parks (as identified in thePolicies Map):

1. Addington Way Sports Field2. Aschroft Road3. Birdsfoot Lane4. Blundell Road Rec5. Brantwood Neighbourhood Park6. Buckingham Tip7. Chaul End Lane Neighbourhood Park8. Crawley Green Rec9. Crawley Green Road/Colwell

Rise/Linbridge Way10. Dallow Downs11. Foxdell Neighbourhood Park12. Great Bramingham Park13. Mayne Avenue (1)14. Mayne Avenue (2)15. Icknield Recreation Ground16. Kingsway Rec Neighbourhood Park17. Lancaster Avenue18. Lea Manor Recreation Ground Northwell

Drive/Whitehorse Vale19. Lewsey Green/Regis Rec20. Little Bramingham Park21. Manor Road Neighbourhood Park22. Memorial Neighbourhood Park23. Peoples Park and Popes Meadow24. Powdrill's Field Neighbourhood Park25. Freeman's Green Marsh Farm26. The Moor27. Wandon Close28. Whitefield

10.33 The Greenspace Strategy Reviewwill provide evidence on Luton's strategicgreen space resources and needs.

10.34 The Luton Rights of WayImprovement Plan (2008) sets out a numberof actions, building upon improvements tothe network of paths and cycleways in andaround the town, together with variousinitiatives to encourage greater use of them.

10.35 When development includes theprovision of playing pitches, the Playing PitchStrategy (2014) provides useful informationfor playing space standards and otherrequirements.

10.36 The green space requirement withinspecialist accommodation (e.g. communalhousing for the elderly) will be confined toprovision of amenity space as part of thescheme.

10.37 The following are evidence studiesrelating to landscape:

Chilterns AONB Management Plan(2014–2019).

Chilterns Conservation Board's PositionStatement on Development Affectingthe Setting of the Chilterns AONB, 2011.

Luton Landscape Character Assessments(LCA), drafted in 2014 as evidence fora ‘Proposed Landscape Designations forLuton’ study (Greensand Trust and LocalLandscape Working Group) provideevidence for a 2 tier designation ofareas of local landscape importance.Tier 1 Areas of Great Landscape Value(AGLV) and Tier 2 Areas of LocalLandscape Value (ALLV) as identifiedon the Policies Map. These are asfollows:

AGLV

Stopsley CommonDallow Corridor (includes BluebellWood)Stockwood ParkBradger's Hill Corridor (includesPopes Meadow and Bell’s Close)Bramingham Wood CorridorGreat Bramingham Park

ALLV

Hart HillSomeries Farm & Dane Street FarmTurnpike DriveLower Lea ValleyLewsey ParkWigmore RuralUpper Lea ValleyPutteridge Edge

This LCA evidence also identifiesLandscape Opportunity Areas thatprovide guidance on where the Council,in partnership with another agencies


LutonLocalPlan

(2011-2031)Novem

ber2017

84

and bodies, might consider targetingfurther enhancements to improvelandscapes not currently at a standardfor designation.

10.38 The following are evidence studiesrelated to heritage assets:

Luton Local List of Heritage Assetsupdated in 2010 and subjected todetailed assessment through publicengagement against a set of criteria.Buildings of special local, historical orarchitectural interest feature in the list.Plaiters’ Lea Conservation Area, LutonHistoric Area Assessment (EnglishHeritage June 2011).Central Bedfordshire and Luton HistoricEnvironment Record including a surveyof Borough owned heritage sites.The National Heritage List for England.Archaeological Assessment of StrategicHousing Land Availability Assessment(SHLAA) and Potential Employment Sites(Central Bedfordshire ArchaeologicalService 2013).The Hat Industry of Luton and itsBuildings (English Heritage October2013).Urban Panel Review Paper (CABE /English Heritage October 2009).

Policy LLP27 - Open Space and NaturalGreenspace

The Council will work with developers,landowners, and stakeholders andsupport proposals that safeguard andenhance existing networks of open space(including the District andNeighbourhood Parks identified in thePolicies Map) and establish new greeninfrastructure within the borough inaccordance with standards establishedin the Green Infrastructure, NatureConservation and Greenspace Strategies(including for recreation andbiodiversity).

A. Where there is a shortfall of openspace to meet the needs ofoccupants of new housingdevelopment, proposals which

generate demand for new orenhanced open space and GreenInfrastructure will be supported inaccordance with the followingsequence:

i. The type, quantity, andquality of open space neededto support the developmentis provided on-site inaccordance with open spacestandards (Appendix11) andexisting deficiencies to beaddressed within the locality,as identified by the local planevidence; or

ii. An equivalent provision ismade in the vicinity whereon-site provision is notpracticable; or

iii. An equivalent commuted sumis provided to enhanceexisting off-site facilitiesincluding provision for longtermmaintenance where openspace is transferred to theCouncil or to a third party.

Loss of Open Space

B. Development proposals that resultin the loss of open space, parks,allotments, important green space,and green infrastructure will onlybe permitted where the mostup-to-date evidence demonstratesthat the open space is not in anarea of identified deficit in thelocality and is surplus torequirements. Exceptionally, losseswill also be permitted where:

i. replacement open spaceprovision can be made that isof an equivalent type, quality,and quantity or better and isaccessible and within thevicinity; or

ii. the proposal is for alternativeor ancillary sports andrecreational provision, theneed for which clearlyoutweighs the loss.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

85

Development on Open Space

C. Development will only bepermitted on parks, playing fields,other outdoor sports facilities,allotments, or other importantgreen spaces shown on the PoliciesMap, where development isancillary, complementary, andlimited in scale securing theefficient and effective use of theexisting green space.

Biodiversity and NatureConservation

Policy LLP28 - Biodiversity and NatureConservation

The Council will work with partnerorganisations to positively assess,manage, and designate sites andecological networks including givingsupport to development proposals thatadd to the net stock of wildlife habitatsor where they help to deliver a net gainin the conservation and enhancementof such sites. The protection given willbe commensurate with their status,giving appropriate weight to theirimportance and the contribution theymake to ecological networks.

A. Development proposals that impactadversely on statutory or otherdesignated sites, and ecologicalnetworks will need to demonstrate

compliance with the followingsequential criteria:

i. avoidance, wherever possible;otherwise

ii. the benefits of the proposalmust clearly outweigh theintrinsic nature conservationinterest;

iii. mitigation must be used,including retention,protection, enhancement, andappropriate management tominimise any harm during andafter development; and

iv. compensation, throughacquisition and managementof an alternative habitat ofequivalent wildlife value inthe vicinity.

B. All existing habitats and ecologicalnetworks will be afforded a levelof protection from harm accordingto statutory and non-statutorynature conservation hierarchydesignations and the contributionthey make to wider ecologicalnetworks. Tier 1 designations areof national statutory importanceand tier 2 and tier 3 are of regionalor local importance but with policyprotection in this statutory localplan:

tier 1 National NatureReserves and Sites of SpecialScientific Interest;tier 1 National BiodiversityAction Plan;tier 1 Habitats and Specieslisted in section 41 of theNatural Environment & RuralCommunities Act (2006);tier 1 Species protected bylaw;tier 1 or 2 Ancient Woodland;tier 2 Local Nature Reservesincluding those previouslyproposed;tier 2 County Wildlife Sites;tier 2 Sites of HeritageInterest to Natural England;


LutonLocalPlan

(2011-2031)Novem

ber2017

86

tier 2 Local Biodiversity ActionPlan;tier 3 District Wildlife Sites;ortier 3 other features ofbiodiversity value within thegreen network including agedor veteran trees.

C. Sites within Luton deemed of tier1 importance by Natural Englandfor potential SSSI designation inassociation with the BedfordshireChalk include Bradgers Hill, DallowDowns, and Cowslip Meadow.

D. Where there is a reasonablelikelihood that a developmentproposal could have an adverseeffect on habitats or species ofbiodiversity interest, theprospective developer will berequired to submit an ecologicalassessment with the planningapplication. This should normallyinclude a phase 1 habitat surveyand protected species information.If invasive weed species listed onSchedule 9 of the Wildlife andCountryside Act in England andWales are present, such asJapanese Knotweed and HimalayanBalsam, an invasive speciesmanagement plan should besubmitted.

E. Development site layouts shouldretain any existing areas ofNational Priority Habitats whereverpossible, and to enhance theirvisual and biodiversity value withappropriate planting of locallynative trees, shrubs, andhedgerows but only in suchlocations that the long term impacton existing habitats (grasslands,hedgerows, ponds, etc.) is notdeleterious through effects ofshading, leaf fall, or other impacts.

Landscape and GeologicalConservation

Policy LLP29 - Landscape & GeologicalConservation

A. Development proposals will besupported where they protect,conserve, or enhance thecharacter, setting, and naturalbeauty of national and locallandscape areas, according to thefollowing hierarchy of designations:

i. Tier 1 National landscapeareas

the special character,natural beauty,landscape and setting ofthe Chilterns Area ofOutstanding NaturalBeauty;the historic characterand environmentalquality of RegisteredParks and Gardens andtheir settings;the historic integrity,biodiversity andrecreational value ofRegistered Commons,and their settings; andthe environmental andrecreational value ofAccess Land andSection15 Land asidentified under theCountryside and Rightsof Way Act (2000)

ii. Tier 2 Local landscape areas

A robust two –tier system ofdesignated local landscapeareas has been introduced toreplace the ad hoc locallandscape designations inearlier local plans. It isderived from the LandscapeCharacter Assessments of 2014and sites assessed against astandard range of landscapecriteria. The most significant


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

87

local landscapes aredesignated and shown on thePolicies Map as:

a. Areas of GreatLandscape Value (AGLV)that include the mostimportant greencorridors and sitesadjoining the ChilternsAONB:

Stopsley Common

Dallow Corridor (includesBluebell Wood)Stockwood ParkBradger’s Hill Corridor(includes Popes Meadowand Bell’s Close)Bramingham WoodCorridorGreat Bramingham Park

b. Areas of LocalLandscape Value (ALLV)that include areas ofmore limited valuewithin the local context:

Hart Hill

Someries Farm & DaneStreet FarmTurnpike DriveLower Lea ValleyLewsey ParkWigmore RuralUpper Lea ValleyPutteridge Edge

Geological Landscapes

Regionally ImportantGeological Sites that are astatutory designation will alsobe afforded a level ofprotection from harmconsistent with their tier 1statutory designation.

B. Planning applications will besupported where they protect orenhance and add to the designated

ROW network (including informalpedestrian routes) giving access forall users, where feasible, to thecountryside and green space,provided that:

i. traditional and historic routesare maintained, such asIcknield and Theed ways,Hexton Way, Dallow Lane, andthe Old Bedford Road; and

ii. access is designed andregulated to encouragebiodiversity and preventinappropriate use ofmaterials, planting, signage,and potential anti-social usese.g. from motorcycles andvehicles.

Historic Environment

Policy LLP30 - Historic Environment

A. To protect, conserve and enhanceLuton’s unique and rich heritage,identity, and sense ofplace, development proposals musttake account of the character,setting, and local distinctiveness(including materials and detailing)of local affected heritage assets,and features of particularimportance including:

i. the manufacturing industryand the hat industry;


LutonLocalPlan

(2011-2031)Novem

ber2017

88

ii. registered parks and gardensincluding Luton Hoo andWardown Park;

iii. historic landscape featuressuch as the Chilterns andRiver Lea; and

iv. prominent listed buildingsincluding within the towncentre, the medieval streetpatterns, the Town Hall, andthe Parish Church of St. Mary.

Any degree of harm and benefit arisingfrom development proposals will beassessed against the significance of anyaffected heritage assets including:

Designated heritage assets:

listed buildingsconservation areasscheduled monumentsregistered parks and gardens.

Non-designated heritage assets:

locally listed buildingsarchaeology

B. There will be a presumption infavour of the retention of heritageassets. Development proposals willbe supported where they conserveheritage assets, bringing them backinto appropriate use for the benefitof future generations.

C. Any harm or loss to a heritage assetrequires clear and convincingjustification. Substantial harm toor loss of a designated heritageasset should be exceptional orwholly exceptional depending onthe significance of the affectedheritage assets. It will only bepermitted where there aresubstantial public benefits thatoutweigh the harm or loss, or thenature of the heritage asset is suchthat no reasonable alternative useincluding conversion can be found,and that appropriate marketing oroptions for grant-funding orcharitable/public ownership havebeen exhausted. Less than

substantial harm to the significanceof a heritage asset should beweighed against the public benefitsof the proposal.

The loss of a building or otherelement that makes a positivecontribution to the significance ofa conservation area should beavoided and treated as substantialharm or less than substantial harmdepending on the circumstances.

D. Proposals affecting designated andnon-designated heritage assetsrequire a Heritage Statement forvalidation (which may be includedwithin a Design and AccessStatement), setting out thesignificance of the asset, theresulting impact, and mitigation,addressing the setting of the asset.

E. Where a site includes, or has thepotential to include, heritageassets with archaeological interest,developers should submit anappropriate desk based assessmentand, where necessary, a strategyfor field evaluation usingnon-invasive and invasivetechniques prior to thedetermination of the planningapplication. On the basis of thisassessment, an appropriateconservation strategy will bedeveloped, which may includepreservation in situ whereappropriate and/or full or partialrecording, with the record ofevidence being made publicallyaccessible. If non-designatedheritage assets of archaeologicalinterest are of equivalent value toa designated asset, they wouldneed to be subject to the samepolicies for designated heritageassets.

F. Applicants will be required torecord and advance anunderstanding of heritage assetsthat are to be lost (wholly or inpart). The recording will be in amanner proportionate to their


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

89

importance and the impact. Thisevidence (and any archivegenerated) should be madeaccessible to the public. Recordingand advancing the understandingof heritage assets will be regulatedby legal agreements on the phasingof demolition and development.

The Council will seek to:

maintain a regularly updatedschedule of Luton’s DesignatedHeritage Assets and locally listedheritage;ensure that heritage assetsconsidered to be at risk of neglector decay, included on the HistoricEngland's at Risk Register, areeffectively managed andprotected; andwork with stakeholders and thecommunity to establishConservation Area Appraisals andManagement Plans for itsConservation Areas.


LutonLocalPlan

(2011-2031)Novem

ber2017

90

11 Transport,Communications & ClimateChange

Sustainable Transport Strategy


Strategic Objective 1: Retain and enhanceLuton’s important sub-regional role as aplace for economic growth and opportunityincluding the safeguarding of London LutonAirport’s existing operations and to supportthe airport’s sustainable growth over thePlan period based on its strategicimportance.

Strategic Objective 4: To establish aneffective network and hierarchy of Town,District and Neighbourhood Centres to serveas the heart of local communities; improvinghealth and wellbeing through improvedaccess by train, bus, walking and cycling toa mix of uses including shopping, servicesand jobs.


Key Issues

11.1 Luton faces significant trafficcongestion dominated by car travel. Thetown’s radial road pattern and lack oforbital routes and chalk scarptopography funnels road traffic into thecentral area or along a small number ofkey routes. However, sustainabletransport choices are possible to tacklecongestion. Luton's high populationdensity and its compact form makespublic transport, walking and cyclingpotentially the preferred mode oftransport to car use because mostjourneys are short.

11 . Transport, Communications & Climate Change

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

91

11.2 The Local Plan is required tosafeguard land committed for majorroad schemes. The Council recognisesthe economic benefits that will resultfrom increasing road capacity, includingimproved access to the Airport, but willimprove infrastructure for pedestriansand cyclists as part of these schemes.The Local Transport Plan sets out astrategy for transport improvementsdesigned to overcome existingenvironmental problems caused bytraffic and to facilitate the efficientoperation of public transport, walkingand cycling networks.

11.3 The East Luton Circular Road(north) route is safeguarded as a longterm option that might be required tosupport future development. Runningbetween Stopsley and the A6, includinga link to Barton Road along the line ofWeybourne Drive, it could allow theintroduction of traffic calming measuresto certain routes. Some traffic could bediverted away from the town centrewhile access to the airport and keyemployment areas to the east of thetown could be improved. Any roadproposal will be considered againstnational policy and guidance, local planpolicy and legislative requirementsrelating to heritage, biodiversity andlandscape.

11.4 There is a need to improveaccessibility to key services by allmembers of society, including themobility impaired and non-motorisedusers. Major new developmentincluding new transport interchangefacilities will need to accommodate busaccessibility improvements and, whereappropriate, safeguard and enhancepedestrian and cycle routes.

11.5 Mitigation will be requiredagainst:

freight traffic on the network as aresult of an increase in distributionand warehouse development; andany additional load on the localtransport network arising fromairport growth.

Policy approach

11.6 Government policy requiressignificant traffic generating uses to besupported by a Transport Statement orTransport Assessment (NPPF paragraph32). Development plans should promotesustainable transport solutions and apattern of development that supportsreductions in greenhouse gas emissionsand reduces congestion (NPPF paragraph30).

11.7 Local planning authorities shouldidentify and protect routes andinfrastructure to widen transport choice(NPPF paragraph 41). They should workwith other authorities and providers toassess the quality and capacity ofinfrastructure (e.g. for transport,energy, telecommunications etc) tomeet forecast demand and the need forlocal strategic and nationalinfrastructure (NPPF paragraph 162).

Evidence base

PAS – A steps approach to infrastructureplanning and delivery June 2009Creating Growth - Cutting Carbon,Department for Transport, 2012Network Management and CongestionStrategy 2008-2012 section 4.2Local Transport Plan 2011-2026sections, 5.3, 6.2 and 9.2Sustainable Travel Plan 2011-2015Action for Roads, Department forTransport, 2013Understanding Walking and cycling,2011Local measures to promote walking andcycling, NICE, 2012Europe health economic tool for walkingand cycling, WHO/HEATSouth East Midlands LEP TransportStrategy March 2014 WYG


LutonLocalPlan

(2011-2031)Novem

ber2017

92

Policy LLP31 - Sustainable TransportStrategy

The strategy for sustainable transportin Luton is based on the vision for theLocal Transport Plan 2011-2026, whichis to ensure that an integrated, safe,accessible, and more sustainabletransport system supports the economicregeneration and prosperity of thetown.

A. The Council will work with itspartners, agencies and developersto deliver:

i. reduced congestion aroundthe town centre and keystrategic routes includingseeking to deliver targetedroad and junctionimprovements needed toaccommodate Luton's growthincluding strategic and localimprovements to address crossboundary growth whilepromoting sustainable modesof transport;

ii. sustainable connections viathe Luton Dunstable buswayserving the conurbation withpotential links to neighbouringauthorities and keydevelopments in Luton;

iii. improved accessibility andconnectivity for a morepedestrian friendly towncentre environment for allusers;

iv. controlled parking within thetown centre, district, andneighbourhood centres tosupport sustainable localservice delivery, housing, andjobs, linked trips andaccessible destinations; and

v. controlled freight traffic andfacilities by using trafficmanagement on key corridorsand routes into Luton andpotential development siteson its borders.

B. Planning Permission will be grantedfor proposed developments thatmeet the criteria below, wherethese are relevant to the proposal:

i. minimises the need to travel;ii. provides a sustainable

transport choice with priorityfor buses, pedestrians, andcyclists;

iii. reduces road congestionparticularly at peak times;

iv. reduces the safety risk tomotor vehicles,non-motorised, and vulnerableusers;

v. provides cycle parking /storage; and

vi. ensures the quality of thelocal environment is notcompromised.

C. Transport Assessments, TransportStatements, and Travel Plansshould be provided fordevelopments (as set out inAppendix 7) and should conform tothe stated requirements.

London Luton Airport

D. Support for the continuedeconomic success of London LutonAirport as a transport hub (policyLLP6) will be delivered through:

measures to ensure there iscapacity at strategicallyimportant junctions; and

continued enhancement ofsustainable modes oftransport via the AirportSurface Access Strategy.

Improvements Needed andSafeguarded Land

E. The following strategicinfrastructure schemes are neededto support proposed developmentand land is safeguarded for thispurpose where needed as shownon the Policies Map:


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

93

Luton Airport Parkway RailwayStation North Entrance -dedicated tunnel toaccommodate a feasible andviable public transport basedsolution linking to the airport

Century Park Link - Accessroad to Century Park

East Luton Circular Road(North including theWeybourne Link)*

Luton Railway Stationimprovements

F. In addition to the above newsections of road, the followingjunctions on the priority trafficnetwork in Luton will requireimproving to cater for increasedtravel generated, in particular bystrategic allocations both withinLuton and neighbouring areas,some of which may requireadditional land to be safeguardedas shown on the Policies Map:

New Bedford Road / AustinRoad / Kingsdown Avenuesignals - widening of NewBedford Road approaches

Chapel Viaduct / Castle Streetroundabout - conversion tosignal control or gradeseparation

Hatters Way / Chaul End Laneroundabout - additionalapproach lanes on HattersWay (sign cyclists viaunderpass/ busway route)

Vauxhall Way / Crawley GreenRoad - additional/longerapproach lanes on VauxhallWay

Vauxhall Way / Stopsley Way/ Hitchin Road - additionalapproach lanes on Stopsley

Way & Vauxhall Way (includesdedicated slip for this leftturn movement)

Vauxhall Way / Eaton GreenRoad - additional approachlanes

Kimpton Road / Vauxhall Wayroundabout - replaceroundabout with signals

Hitchin Road / Stopsley Way/ Ashcroft Road –improvements to existingroundabout

Old Bedford Road / BarnfieldAvenue signals - additionalapproach lanes on BarnfieldAvenue

Eaton Green Road / LallefordRoad roundabout - additionalapproach lanes on EatonGreen Road

Old Bedford Road /Stockingstone Road signals -additional approach lanes onOld Bedford Road (south)

Footnote:* The East Luton Circular Road is asafeguarded route option and is notcurrently a formal transport proposal.Any road proposal will be consideredagainst national policy and guidance,local plan policy, and legislativerequirements relating to heritage,biodiversity, and landscape.


LutonLocalPlan

(2011-2031)Novem

ber2017

94

Parking


Strategic Objective 3: To ensure that newhousing delivers an appropriate level ofprovision to meet local needs in terms of thenumber of homes, subject to capacityconstraints and a mix of dwelling types, sizesand tenures that offer local residents achoice of where to live and addresses issuesof affordability and overcrowding. LutonBorough Council will work collaborativelywith neighbouring authorities to help ensureunmet need is provided in appropriatelocations outside Luton, and to activelymonitor progress in terms of unmet need;

Strategic Objective 4: To establish aneffective network and hierarchy of Town,District and Neighbourhood Centres to serveas the heart of local communities andimprove health through improved access toa mix of uses including shopping, servicesand jobs by train, bus, walking and cycling;


Key Issues

11.8 The availability of car parking isa major influence on travel behaviour.Car parking also takes up a large amountof space in development, is costly tobusinesses and reduces developmentdensities.

11.9 The Council Parking Strategy isaimed at improving the quality ofparking in town centres so that it isconvenient, safe and secure, includingappropriate provision of signage for

motorists. The Local Plan will set andapply maximum levels of car parkingand minimum levels of cycle parking forbroad classes of development in orderto encourage modal shift. Thisis subject to highway, user andresidential safety and amenity andexcept in respect of parking for disabledpeople or unless applicantsdemonstrate, through a TransportStatement or Assessment, a higher carparking need. In such cases, applicantsmust show via design, location andimplementation how parking isminimised.

11.10 Parking charges will need toensure that they do not undermine thevitality of town centres while parkingenforcement should be proportionate.

11.11 In areas highly accessible bypublic transport and in certain othercircumstances, the amount of parkingin new developments will be restrictedto levels below the maximum parkingstandards (e.g. car free housing if ademand is demonstrated). Parkingprovision in the central area, inparticular, will be limited to operationalpurposes and will mean that, for manydevelopments, private non-residentialparking will not be permitted. Wherecar free housing developments areproposed (or with limited parking), theuse of car clubs should be promoted.They can help to reduce the need forcar ownership, increase the proportionof low emission vehicles, help toimprove air quality and reduce CO2emissions. The Borough Council LAQMreports (Local Air Quality MonitoringReports) written by EnvironmentalHealth for DEFRA, report on the localair quality situation (see Appendix 10).Lower car ownership can also help toreduce the demand for on-streetparking, particularly in or close to thetown centre.

11.12 The Local Plan will considerPark and Ride facilities at land south ofStockwood Park adjacent to Junction10a and at Butterfield to intercept carjourneys to employment locations in the


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

95

East Luton Corridor area as well as tothe town centre. Further sites aroundthe periphery of theLuton/Dunstable/Houghton Regisconurbation, but outside the boroughboundary, are being considered byadjoining local authorities. To maximisepassenger transfer, significantinvestment will be made in bus prioritymeasures for those corridors served byPark and Ride sites.

Policy approach

11.13 Government policy requires thesetting of local parking standards forresidential and non-residentialdevelopment, taking into account theaccessibility, type, mix and use ofdevelopment, opportunities for publictransport, car ownership, and an overallneed to reduce the use of high-emissionvehicles (NPPF paragraph 40).

Evidence base

Local Transport Plan 2011-2026, section6, policy 4Parking and Enforcement Plan 2013Luton Borough CouncilCarplus Annual Survey 2013/14

Policy LLP32 - Parking

Parking provision in Luton will bemanaged to ensure that a proportionatenumber of spaces are available tosupport the growth of the town centre.

A. Proposals for reducing on-streetparking in and around the towncentre and for car freedevelopment may be supported inareas of high public transportaccessibility including when linkedto park and ride facilities, providedthat:

i. there is no adverse impact onoccupier amenity in otherareas through displaced onstreet parking;

ii. they are supported with atravel plan that promotes carclubs where feasible; and

iii. the impact on short-termparking is minimised.

Parking provision will be stringentlycontrolled at London Luton Airport (inline with Policy LLP6C). Parkingprovision at the Luton & DunstableHospital will be stringently controlledto ensure that on site provision isprioritised.

B. Development will be permittedproviding that:

i. car parking provision shouldnot exceed the maximumstandards set out in Appendix2 in order to promote modalshift, however within thosestandards, sufficient parkingshould be provided to helpensure that adverse effects onhighway safety and theconvenience of nearbyresidents and users areavoided;

ii. minimum cycle parkingstandards set out in Appendix2 is provided fornon-residential developments;

iii. cycle storage of anappropriate standard isprovided for residentialdevelopments; and

iv. parking standards shown inAppendix 2 are minimised inidentified areas demonstratedto be of high accessibility.

Freight


Strategic Objective 1: Retain and enhanceLuton’s important sub-regional role as aplace for economic growth and opportunity.


LutonLocalPlan

(2011-2031)Novem

ber2017

96



Key Issues

11.14 The Council will seek tomaximise opportunities for rail freight,particularly those for inter-modalfreight facilities that link safeguardedrail and aggregates/concrete batchingdepots with strategic roads within theborough. The Council will encourageproposals for rail freight interchangethat serves the conurbation, such as thefreight consolidation centre proposedat the former Sundon Quarry. However,road freight is likely to remain at thecore of the local distribution system forthe foreseeable future and the Councilwill seek to develop and implement aFreight Quality Partnership. This willinvolve local partner organisations suchas the freight industry, businesses, localeconomic partnerships, residents,community and environmental groups.

11.15 The Council will work withneighbouring authorities and transportproviders to develop strategies for theprovision of viable infrastructurenecessary to support sustainabledevelopment. The relatively highproportion of Luton’s economic activityinvolving manufacturing and distributionmeans that there is strong demand forovernight goods vehicle parking in andaround the borough. Additions to thesupply of such parking accommodationwill be permitted, provided that a needfor the facility can be demonstrated;and provided that the site is acceptablein terms of amenity, environmentalimpact and highway capacity.

11.16 The Council, throughpartnership working, will establishStrategic Lorry Routes and produce amap of these for freight operators andbusinesses. It will improve existing, andprovide more, signage to guide lorriesto destinations such as key employmentsites and town/district centres. Where,in the absence of controls, there islikely to be harm to residential amenity,operations or deliveries will berationalised to particular times and/orcategories of vehicle.

Policy approach

11.17 Freight performs a vital role inLuton’s strategic sub regional economy.This includes large scale facilities suchas rail freight interchanges, roadsidefacilities for motorists or transportinvestment necessary to supportstrategies for the growth of ports,airports or other major generators oftravel demand in their areas. Theprimary function of roadside facilitiesfor motorists should be to support thesafety and welfare of the road user(NPPF Paragraph 31). Through the LocalPlan, the council will be deliveringwarehouse and distribution facilities atCentury Park and airport relateddevelopment. It has a responsibility forensuring that the routing of freighttraffic to these new and existing sitesas well as the siting of new lorry parksis controlled in a sustainable andnon-obtrusive way.

11.18 The Bedfordshire authoritiesare keen to limit the reliance on roadtransport as a method of transportingmineral and waste materials within thearea. It is, however, recognised that theconstruction of additional transport linkssuch as rail may only be viable where along-term use for the site has beenidentified. Additionally, sustainabletransport methods are generally onlyeconomically viable for long distancesand it is understood that road transportwill continue to be relied on for localwaste collection and transport.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

97

Evidence base

Network Management and CongestionStrategy 2008–2012, section 4.6Local Transport Plan 2011–2026, section6 policy 5National Planning Policy GuidanceConsultation document Sept/Oct 2013,paragraph 31

Policy LLP33 - Freight

The Council will support freight schemesthat do not cause harm to theenvironment or residential amenity, areserved by the strategic network andinvolve alternative methods of freightdistribution including inter-modalfacilities.

A. In considering any impacts offreight proposals on theenvironment or residentialamenity, the Council will take intoaccount the following factors:

strategic routingstrategic signagedelivery and service plansweight restrictionsdelivery restrictionsalternative methods of freightdistribution

B. Proposals will be permitted for newlorry parks where:

i. it is demonstrated that thereis a need for the facility;

ii. they are located within keyemployment areas with goodaccess to the strategic roadnetwork;

iii. they do not cause harm to theenvironment or residentialamenity; and

iv. there is capacity on the localhighway network toaccommodate heavy goodsvehicles.

Where practicable, the use of rail,conveyors, or pipelines should bepreferred over the use of roads for thebulk transportation of materials.Relevant proposals must demonstratethat alternative transport methods havebeen considered.

Public Safety Zones


11.19 Strategic Objective 11: Tosafeguard and ensure the prudent use ofnatural resources, increase energy and waterefficiency and encourage and promote theuse of renewable energy sources to helpadapt to climate change, and managepollution, natural and operational hazards,avoid inappropriate development in areas atrisk of flooding, secure improvements in airand water quality and ensure effective wastemanagement.

Key Issues

11.20 London Luton Airport issituated close to Luton's urban area andthe runway runs north east to southwest and potentially introduces a riskof aircraft landing and take off incidentsarising along this axis, typicallybordering the ends of the runway.

11.21 This zone of risk is termed the'Public Safety Zone' (PSZ), an establishedgovernment policy under theDepartment for Transport butadministered and reviewed by the CivilAviation Authority (CAA). It operateswith the objective of limitingdevelopment close to civil airports bycontrolling the number of people on theground living working or congregatingin the PSZ who would be at risk, throughregulating developments and changesof use over time, reducing the numberpresent as the opportunity arises.


LutonLocalPlan

(2011-2031)Novem

ber2017

98

11.22 The PSZ is modelled anddefined using mathematical formulaelooking at statistics of and probabilityof incidents and mortality over 30 yearsat airports related to annual andforecast air transport movements. Theseare measured as contours of risk andapproximated as triangles. The size andshape of the triangle may increase withair transport movements.

Policy approach

11.23 Government guidance isunclear whether the NPPF replacesexisting national guidance set out in thecircular DfT Circular 01/2010 on the“Control of Development in AirportPublic Safety Zones” or whethersubsequent guidance will emerge. Forthe avoidance of doubt, policy LLP 34is a reintroduction of a previous'unsaved' policy of the former LutonLocal Plan 2006.

Evidence base

A planning application has beenapproved for proposals to expand thecurrent capacity of the airport up to 18million passengers per annum (mppa)

Policy LLP34 - Public Safety Zones

Within the Public Safety Zones (asidentified on the Policies Map), planningpermission will not be granted for:

A. any development, includingextensions and changes of use,which is likely to result in morepeople:

i. living in the property, unlessit is for the purpose ofenlarging or improving theliving accommodation for thebenefit of existing residents;or

ii. working or congregating at theproperty or site.

B. short-stay car parking (where themaximum stay is expected to beless than six hours);

C. sorting depots or retailwarehouses;

D. children’s playgrounds, playingfields or sports grounds;

E. sports clubhouses; orF. any other development likely to

result in significant numbers ofpeople being present at a site ona regular basis.

Communications



Strategic Objective 11: To improve the builtand natural environment to deliver qualityplaces, through high quality design andsustainability taking into account thecharacter and setting of the neighbourhoods,including historic assets and seeking safeenvironments which help to reduce crimeand the fear of crime.

Key Issues

11.24 There is an increased use ofmobile phones and subsequent demandfor telecom masts. Telecomdevelopment is subject to developmentcontrol but many minor schemes, suchas the installation of some residentialsatellite dishes, is ‘permitteddevelopment’ under the GeneralPermitted Development Order 1995 (asamended) [M1] and hence does notrequire planning permission. Telecomcode system operators also enjoy ageneral planning permission, subject tocertain exclusions. In these cases, theoperator has to make a ‘prior approval’application, which allows the authorityto consider, within 56 days, the sitingand appearance of the proposeddevelopment.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

99

11.25 There is a need to considervisual and amenity impact indetermining applications, particularlyin sensitive locations (e.g. schools andresidential areas). Developers shoulddiscuss the proposals affecting schoolswith the relevant educational bodybefore submitting an application.

11.26 Operators should explore thepotential for mast sharing or erectingnew masts on existing buildings or otherstructures. However, sharing cansometimes look ungainly and actuallyincrease visual intrusion. Good design,camouflage, screening and plantingshould be used to help blend theapparatus into the landscape.

11.27 Health considerations can bea material consideration in determiningapplications. However, if a proposedmobile phone base station meets theInternational Commission forNon-ionizing Radiation Protectionguidelines for public exposure, thiswould demonstrate that public healthconcerns have been addressed.

Policy approach

11.28 Government guidance statesthat advanced, high qualitycommunications infrastructure isessential for sustainable economicgrowth. High speed broadbandtechnology and other communicationsnetworks also play a vital role inenhancing community facilities andservices (NPPF paragraph 42).

11.29 Local Plans should support theexpansion of electronic communicationsnetworks but keep the numbers oftelecommunications masts and the sitesto a minimum, consistent with theefficient operation of the network.Existing infrastructure should bepreferred unless the need for a new sitehas been justified. Equipment shouldbe sympathetically designed andcamouflaged where appropriate (NPPFparagraph 43).

11.30 Local Planning Authoritiesshould not impose a ban on types orlocations of new telecommunicationsdevelopment (e.g. using Article 4directions) or insist on minimumdistances between newtelecommunications development andexisting development. However,evidence will be required todemonstrate that such infrastructurewill not cause significant andirremediable interference with otherelectrical equipment, air traffic servicesor instrumentation operated in thenational interest or the possibility ofbuildings or other structures interferingwith broadcast and telecommunicationsservices (NPPF paragraph 44).

11.31 Applications fortelecommunications (including for priorapproval under Part 16 of the GeneralPermitted Development Order, 2015)should be supported by evidence tojustify the proposed development (NPPFparagraph 45). This should include:

the outcome of consultations withorganisations with an interest, therelevant body e.g. Local EducationAuthority or within a statutorysafeguarding zone surrounding anaerodrome or technical site; and

for masts or base station, astatement that self-certifies thatthe cumulative exposure, whenoperational, will not exceed theInternational Commission onnon-ionising radiation protectionguidelines; or

evidence that the applicant hasexplored the possibility of sharingor using existing structures and astatement that self-certifies that,when operational, InternationalCommission guidelines will be met.

11.32 Local planning authorities mustdetermine applications on planninggrounds. They should not seek toprevent competition between differentoperators, question the need for thetelecommunications system, or


LutonLocalPlan

(2011-2031)Novem

ber2017

100

determine health safeguards if theproposal meets InternationalCommission guidelines for publicexposure (paragraph 46).

Policy LLP35 - CommunicationsInfrastructure

The Council will support the expansionof advanced high qualitycommunications infrastructure includingtelecommunications and high speedbroadband/ video conferencingnetworks to promote sustainableeconomic growth of the borough andminimising the need for car journeys.Planning permission will be granted andprior approval proposals supported fortelecommunications developmentproviding:

A. installations have been designed,sited, and appropriatelylandscaped to minimise theirimpact on amenity:

B. the development would not harmthe setting of a listed building, orthe character of a conservationarea, or any other area designatedfor its landscape, historic, ornature conservation importance;

C. the equipment does not detractfrom the appearance of thebuilding on which it is proposed tobe erected;

D. the developer has demonstratedthat opportunities for sharing sitesaccommodating existingtelecommunication equipmenthave been fully explored beforeproposals for new sites aresubmitted;

E. the proposed installation complieswith the national guidelines inrespect of exposure of members ofthe public to electromagneticfields;

F. the proposal should include thenecessary ducting infrastructure tofacilitate the implementation ofbroadband services.

Flood Risk



11.34 Strategic Objective 11: Tosafeguard and ensure the prudent use ofnatural resources, increase energy and waterefficiency and encourage and promote theuse of renewable energy sources to helpadapt to climate change, and managepollution, natural and land use operationalhazards, avoid inappropriate developmentin areas at risk of flooding, secureimprovements in air and water quality andensure effective waste management.

Key Issues

11.35 The River Lea is a key asset anda key piece of infrastructure runningthough the town. It is providing anatural wildlife corridor with habitatsand natural features (associated withits flood plain) as well as opportunitiesfor recreation and quiet enjoyment.

11.36 The flood plain risk mapsdeveloped by the Environment Agencyset out the degrees of flooding risk toland uses and activities. The likelihoodof flooding events, potentially increasedby climate change, presents constraintson development in the town and, inparticular, the town centre. Thepredominant risk of flooding in Luton,however, stems from surface watersources as a consequence of rapidincrease of impermeable surfaces intown in the 1960s without concurrentupgrading of the sewer system. Waterquality may also be an issue because ofthe sensitivity of the chalk aquiferaffecting parts of Luton, therefore there


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

101

is a need for sustainable drainagesystems to address this issue and haveregard also to policy LLP38.

11.37 Much of the River Lea isculverted, particularly within the towncentre, but this infrastructure is ageingand is in need of remediation orreplacement to avoid risk of collapseand flooding. When undertakingremediation or replacement works,opportunities should be sought tode-culvert or naturalise the channel.

Policy approach

11.38 Local planning authoritiesshould adopt proactive strategies tomitigate and adapt to climate change,taking full account of flood risk andwater supply and demand considerations(NPPF paragraph 94). They should takeaccount of climate change over thelonger term, including factors such asflood risk (NPPF paragraph 99).Inappropriate development in areas atrisk of flooding should be avoided bydirecting development away from areasat highest risk, but where developmentis necessary, it should be made safewithout increasing flood risk elsewhere(NPPF paragraph 100) and give priorityto the use of sustainable drainagesystems (NPPF paragraph 103).

11.39 Local Plans should be supportedby strategic flood risk assessment andinclude policies to manage flood riskfrom all sources and ensure that flooddefence contributes towards "goodecological status" as required by theWater Framework Directive. Local Plansshould apply a sequential, risk-basedapproach to the location ofdevelopment to avoid, where possible,flood risk to people and property andmanage any residual risk, taking accountof the impacts of climate change, byapplying the sequential test (NPPFparagraph 100). If necessary, theexception test (NPPF paragraph 100)should be applied and, should this bethe case, a Level 2 SFRA will be requiredthat should improve the quantity/quality of data available in those areas

requiring the exception test. Thisshould ensure that decisions regardingthe safety and impact of the proposeddevelopments can be made on robustdata.

11.40 Local Plans should safeguardland from development that is requiredfor current and future floodmanagement (NPPF paragraph 100) anduse opportunities offered by newdevelopment to reduce the causes andimpacts of flooding.

11.41 Where climate change isexpected to increase flood risk so thatsome existing development may not besustainable in the long-term,opportunities should be sought torelocate vulnerable developmentelsewhere.

Evidence base

11.42 The Luton Strategic Flood RiskAssessment Study 2013 (in partnership withthe Environment Agency) reviews flood riskfrom all sources and provides guidance forsite specific flood risk assessments. The SFRAand its recommendations should be referredto by all developers and applicants ininterpreting policy LLP36 requirements,before submitting development proposalswithin or adjacent to Luton. In particular,there are area specific recommendations fordischarge and surface run off rates forHoughton and Lewsey Brook. It recommendsthat planning applications for developmentsin Lewsey Farm, Parkside (up to Marsh Farm)and Limbury should submit a Flood RiskAssessment that considers flooding from thesewer system and the consequences of afailure of the drainage system throughblockage due to rapid overloading of sewersystems in these areas during storms. TheSFRA further requires:

flood risk assessments (FRAs) for allscenarios identified in Table 11.1 in theSFRA that would not automaticallytrigger Environment Agencyconsultation;


LutonLocalPlan

(2011-2031)Novem

ber2017

102

that FRAs are prepared for any planningapplication for developments of 5dwellings or more or for areas greaterthan 0.5ha;

developers to consult with theEnvironment Agency for all planningapplications within 20m ofwatercourses;

that FRAs prepared for developmentsconform to national policy and theadditional elements identified;

that where new development isproposed that incorporates riparianareas, the developer should include,where necessary, plans for theimprovement of river channels and flooddefences within their ownership anddemonstrate how the channels and/orflood defence will be maintained overthe lifetime of the proposeddevelopment; and

emergency plans should be formulatedto accompany FRAs for all ‘more andhighly vulnerable’ developments as wellas ‘less vulnerable’ developments withgreater than 10 people working/livingat the site. The emergency plansshould be allied to those developed byLBC.

11.43 Critical Drainage Areas (CDAs) aredefined in Luton’s Surface WaterManagement Plan (SWMP) (2012) andcomprise areas of Luton that are potentiallysubject to flooding from any or all of surfacewater, river, brook, sewer overflow orground water. The SWMP can be found onthe Council’s website.

11.44 The Luton Local Flood RiskManagement Strategy (LLFRMS) states theCouncil’s approach to management of floodrisk from all sources, in its capacity as theLead Local Flood Authority. The LLFRMS alsorefers to CDAs and contains requirementsrelated to SuDS. The LLFRMS can be foundon the Council’s website.

11.45 The Luton Water Cycle StrategyStudy Update 2015 (prepared in partnershipwith the Environment Agency and waterutilities) updates information on watersupply and water treatment capacity.

11.46 The recommendations of the SuDSManual (CIRIA C697) should also be referredto.

11.47 The Thames River BasinManagement Plan provides additional detailon objectives for the River Lea and itscatchment, including the aims of the WaterFramework Directive and the approach tode-culverting the river.

Policy LLP36 - Flood Risk

A. The risk and impact of flooding willbe minimised through:

i. directing new development toareas with the lowestprobability of flooding;

ii. ensuring that all newdevelopment addresses floodresilience, the effectivemanagement of flood riskincluding opportunities forappropriate dry access foremergency vehicles;

iii. ensuring that developmentdoes not increase the risk offlooding elsewhere, includingcumulative impact onadjoining and surroundingland and in the widercatchment; and

iv. ensuring wider environmentalbenefits of development inrelation to flood risk andcontribute towards delivering"good ecological status".

The suitability of development proposedin flood zones will be assessed using thesequential test and, where necessary,the exception test which will require aLevel 2 SFRA. A sequential approachshould be used at site level.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

103

B. A site specific flood risk assessment(FRA) is required for the followingdevelopments:

i. proposals of one hectare orgreater in Flood Zone 1;

ii. all new development(including minordevelopments and change ofuse) in Flood Zones 2 and 3;

iii. Critical Drainage Areas (asdefined in Luton's SurfaceWater Management Plan);

iv. where a proposeddevelopment or change of useto a more vulnerable classmay be subject to othersources of flooding.

Appropriate mitigation and managementmeasures must be implemented.

C. All development proposals must beassessed against the Luton WaterCycle Strategy (WCS) and considerrecommendations of the StrategicFlood Risk Assessment and LutonLocal Flood Risk ManagementStrategy to address locallysignificant flooding including:

i. that FRAs are prepared forany planning application fordevelopments of 5 dwellingsor more or for areas greaterthan 0.5ha;

ii. developers consult with theEnvironment Agency for allplanning applications within20m of watercourses andensure that a 8 m wideundeveloped buffer ismaintained alongside the riverchannel of main rivers and 5meter buffer along ordinarywater courses.

D. All new development shall berequired to provide a drainagestrategy and those over 100dwellings must also provide a sitespecific WCS. Developments willbe expected to incorporatemulti-functional sustainable

drainage systems which, wherefeasible, should address waterefficiency and rainwaterharvesting. SuDS must ensure thatrun-off rates are attenuated togreenfield run-off rates inaccordance with Luton'sSustainable Drainage Advice.Higher run off rates would need tobe justified and the risksquantified. Where SuDS areimplemented, a plan for theirlong-term maintenance will berequired.

The Council will encourage developmentto reduce the overall flood risk, wherepossible, through the design and layoutof schemes that replace flood plain andenhance natural forms of drainage (thiscould include, but is not limited to,floodplain creation, green roofs, surfacewater storage, removing culverts, andbarriers to flow).

The Council will work with theEnvironment Agency in the managementof flood risk to ensure that any risk offlooding is appropriately mitigated andthe natural environment is protected inall new development. All developmentwithin 8 metres of a main river willrequire a flood defence consent fromthe Environment Agency.

Sustainable Energy

Strategic Objectives:

The Local Plan policy on Climate change,carbon reduction and sustainable energyneeds to help deliver the following linkedobjectives:



LutonLocalPlan

(2011-2031)Novem

ber2017

104

Strategic Objective 6: Reduce social,economic and environmental deprivation,particularly where it is spatiallyconcentrated, by taking priority measuresto reduce unemployment, improve skills andeducation and renew housing, communityand environmental conditions.


Strategic Objective 11: To safeguard andensure the prudent use of natural resources,increase energy and water efficiency andencourage and promote the use of renewableenergy sources to help adapt to climatechange, and manage pollution and naturaland land use operational hazards, avoidinappropriate development in areas at riskof flooding, secure improvements in air andwater quality and ensure effective wastemanagement.

Key Issues

11.48 Government policy aims tostimulate the development of renewableenergy sources wherever they haveprospects of being economicallyattractive and environmentallyacceptable. The Climate Change Act2008 set the country's emissionreduction targets. The "legally binding"targets are a reduction of least 80% by2050 (against the 1990 baseline).

11.49 It also mandates interim 5-yearbudgets. The first three are as follows:

Budget 1 (2008–12): Total cap 22%below 1990 baselineBudget 2 (2013–17): Total cap 28%below baselineBudget 3 (2018–22): Total cap 34%below baseline

11.50 The European Union has its ownemissions reduction target to which theUK contributes. This currently stands at20% by 2020 though this may be raisedto 30%. This target helps to direct theEuropean Union Emission TradingScheme.

11.51 All new non-residentialdevelopments over 1,000 square metreswill be required to achieve the 2013BREEAM “Good” standard or equivalent.New non-residential developmentsbelow this threshold will also beencouraged to meet this standard.Conditions will be attached to planningpermissions, requiring submission offinal code certificates and postconstruction BREEAM certificates (asappropriate), and such conditions willnot be discharged until compliance hasbeen satisfactorily demonstrated.

11.52 The rationale behind energyrequirements are set out in BuildingRegulations (following the Government'sHousing Standards Review - and subjectto the government's review of energystandards) and BREEAM is to securecommitments to CO2 reduction in linewith the proposed trajectory of phasedamendments to the Building Regulationswhile ensuring that broader themes,including water conservation, flood risk,air quality, waste management andbiodiversity, are addressed. The mostcommonly expected effects of achanging climate on Luton’s builtenvironment include:

increased risk of subsidence (e.g.in Farley Hill and Stopsley);reduced thermal comfort ofoccupants (especially fromoverheating in summer); andincreased damage to property andinfrastructure.

Policy approach

11.53 Government policy aims toincrease the use and supply ofrenewable and low carbon energy andthe responsibility on all communities tocontribute to renewable energygeneration or low carbon sources. Thereshould be a positive strategy to (1)design policies and identify locationsthat maximise renewable and lowcarbon energy development whileensuring that adverse impacts includingcumulative landscape and visual impactsare mitigated; (2) provide supporting


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

105

infrastructure to encourage suchsources; (3) support community-ledinitiatives including proposals vianeighbourhood planning; and (4) identifyopportunities to connect developmentto decentralised, renewable or lowcarbon energy supply systems and forco-locating potential heat customersand suppliers (NPPF paragraph 97).

11.54 In determining planningapplications, new development will beencouraged to exceed buildingregulations by following guidance inPolicy LLP37C ‘Energy Hierarchy’. Itshould also take account of landform,layout, building orientation, massingand landscaping to minimise energyconsumption (NPPF paragraph 96).

11.55 Reducing the need for primarymaterials, reusing and recycling cansave money and lead to better resourceefficiency. The earlier this is consideredin any planned development, thegreater and more achievable the optionsare. In turn, this should lead to moresustainable development being designedand built. The detailed benefits of thisapproach are described in more detailin the supplementary planningdocument, ‘Managing Waste in NewDevelopments’.

11.56 Trees, shrubs and woodlandprovide a range of ecosystem services,such as carbon capture and storage,filtration of airborne pollutants, noiseand vibration. They also play animportant part in temperatureregulation thereby reducing heat islandeffects. Their role in mitigating climatechange and pollution is therefore notinsignificant (cumulatively) and shouldbe an early consideration in formulatingdevelopment proposals.

Policy LLP37 - Climate change, carbonand waste reduction and sustainableenergy

The Council will support developmentproposals that contribute towardsmitigation, and adaptation to climatechange through energy use reduction,efficiency, and renewable, anddecentralised energy.

A. New residential development willbe encouraged to exceed thenational standards set out inBuilding Regulations on carbon andenergy performance. The energyhierarchy set out under LLP37 Cprovides principles on how BuildingRegulations could be achieved andexceeded.

B. All new non-residentialdevelopments over 1,000 squaremetres will be required to achievethe 2013 Building ResearchEstablishment EnvironmentalAssessment Method (BREEAM)'Good' status".

C. Energy Hierarchy:

i. consider reducing energy andwater demand;

ii. consider energy generationfrom low and zeros carbonsources on site;

iii. consider decentralised energynetworks and generation; and

iv. consider off-site solutions,retro fitting, and carbonreduction schemes.

D. All residential developments willachieve a water efficiency standardof 110 litres per person per daybecause Luton is in an area ofwater stress.

Waste


LutonLocalPlan

(2011-2031)Novem

ber2017

106

The Council encourages an overallreduction in the amount of wastegenerated, treated and disposed of toreduce the need for land for wastemanagement. Proposals that are likelyto generate significant volumes of wastethrough development or operationalphases will be required to include awaste audit as part of the application.

Pollution and Contamination



11.58 Strategic Objective 11: Tosafeguard and ensure the prudent use ofnatural resources, increase energy and waterefficiency and encourage and promote theuse of renewable energy sources to helpadapt to climate change, and managepollution and natural and land useoperational hazards, avoid inappropriatedevelopment in areas at risk of flooding,secure improvements in air and water qualityand ensure effective waste management.

Key Issues

11.59 The borough is a heavilydeveloped town with, unavoidably,some bad neighbour uses giving rise todust, vibration, noise smells and litterfrom a range of sources (including foodoutlets and industrial and constructionactivities), and has an industrial legacyand many brownfield sites could harbourcontaminants. In addition, the townhas chalk aquifer ground sourceprotection zones and the River Lea - allof which are sensitive to potentialdevelopment and building operationsand commercial and industrial activitiesand processes that might give rise topollution.

11.60 There are potential concernswith the stability of land across Luton.Of particular concern are chalk hills andscarp slopes and areas where clayoverlies chalk. In these areas, sink-holesmay appear where the chalk base haseroded but is concealed by a clay cap.

11.61 The town also has an AirQuality Management zone adjacent tothe M1 corridor. A further AQMA wasdeclared in the Town Centre in 2016,but there are no other AQMAs in thearea. Poor air quality in Luton is largelyas a result of large volumes of trafficand associated congestion. Industry is asecondary source. Nitrogen dioxide ispresent in elevated concentrations,which has led to the declaration of theAQMA(s).

Policy approach

11.62 Government policy requiresdevelopment plans to include policiesto minimise waste and pollution (NPPFparagraph 7, bullet 3 and paragraph 17,bullet 7).

11.63 The planning authority shouldprevent both new and existingdevelopment from contributing to orbeing put at unacceptable risk from, orbeing adversely affected byunacceptable levels of soil, air, wateror noise pollution or land instability;and remediating and mitigatingdespoiled, degraded, derelict,contaminated and unstable land, whereappropriate (NPPF paragraph 109).

Policy LLP38 - Pollution andContamination

Pollution

Evidence on the impacts of developmentwill need to demonstrate whether thescheme (individually or cumulativelywith other proposals) will result in anysignificantly adverse effects with regardto air, land or water on neighbouringdevelopment, adjoining land, or the


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

107

wider environment. Where adverseimpacts are identified, appropriatemitigation will be required. This policycovers chemical, biological, andradiological contamination and theeffects of noise, vibration, light, heat,fluid leakage, dust, fumes, smoke,gaseous emissions, odour, explosion,litter, and pests.

A. Development should provide forthe satisfactory disposal of surfacewater to deliver water qualityimprovements to receiving watercourses and aquifers where feasibleand, together with waste waterdisposal, should not be detrimentalto the management and protectionof water resources. In all cases,development must be carefullybuilt, operated, and closed in sucha manner so as to ensure there areno long-term pollution problems.

B. During construction and operation,appropriate measures will berequired to prevent the deposit ofmud or other debris on or withinpublic highways and water bodiesfrom vehicles using the site.

Contaminated land

C. For proposals on or affectingcontaminated land, a siteassessment must be carried out toestablish the full nature and extentof the contamination.

Contaminated land is used to describeland polluted by:

heavy metals like arsenic,cadmium, and lead;oils and tars;chemical substances andpreparations, e.g. solvents;gases;asbestos; andradioactive substances.

...but may include other hazardousmatter of chemical or biological origin.

It is defined as land where substancescould cause:

significant harm to people orprotected species; and/ orsignificant pollution of surfacewaters or groundwater (includingSource Protection Zones).

D. If contamination is found,remediation measures are to beagreed by the Council withreference to the ContaminatedLand Statutory Guidance (April2012), that such measures arecarried out on site where this isviable and that such measures arecompleted prior to development.

E. Planning permission will be grantedfor the development or reuse ofland that is unlikely to be affectedby contamination but not forschemes that could:

i. expose the occupiers of thedevelopment, or users ofdomestic gardens, orneighbouring land to anunacceptable risk;

ii. threaten the structuralintegrity of any existing orproposed building on, oradjoining, the site;

iii. lead to the contamination ofany watercourse, water body,or aquifer; or

iv. cause the contamination ofadjoining land or allow thecontamination of thedevelopment site to continue.

Land stability

Development must be sensitive to localground conditions and land stability. Itmust be appropriate for existingconditions and ensure that the futurestability of land is protected.


LutonLocalPlan

(2011-2031)Novem

ber2017

108

12 Infrastructure Delivery,Monitoring and Review of theLocal Plan

Infrastructure and DeveloperContributions

Strategic Objectives:

The Local Plan policy on infrastructuredelivery and developer contributions helpsto deliver the following linked objectives:


Strategic Objective 5: To improve the builtand natural environment to deliver qualityplaces, through high quality and sustainabledesign taking into account the landscape,setting and character of the town andneighbourhoods within it's national (i.e.AONB) and local landscape settings, includingheritage assets and providing safeenvironments which help to reduce crimeand the fear of crime.

Strategic Objective 7: To safeguard andenable new community, educational andcultural facilities to be delivered andexpanded to meet the needs of a growingand diverse borough.


Strategic Objective 10: Improve, protectand enhance biodiversity of natural areaswithin the town, including the quality,accessibility, health and recreational valueof green space, the River Lea Corridor, theChilterns Area of Outstanding Natural Beauty(AONB), the Areas of Great Landscape Value(AGLV) and Areas of Local Landscape Value(ALLV ) and their connectivity.

Key Issues

12.1 From April 2015, nationalregulations will prevent the pooling ofmore than 5 separate contributionsthrough section 106 of the 1990 Townand Country Planning Act. TheCommunity Infrastructure Levy (CIL) isthe new mechanism through whichcontributions will be pooled from April2015.

12.2 Recent viability testing suggeststhat CIL is not currently viable in theborough. CIL will need to be revisitedwhen viability evidence suggeststhat market conditions have improvedenough for implementation.

12.3 The borough may have toimplement compulsory purchase powersfor infrastructure provision that can beresource demanding and lengthy. Thispower will be used as a last resort,because the Council's preferredapproach to any land assembly will bethrough negotiation.

12.4 Public sector assets will have tobe rationalised, which is again a lengthyprocess due to political and internalpressure from competing services withinthe local authority.

12.5 Planning conditions will need tobe more focused and there could bemore reliance on these as the traditionals106 tariff-based system is wound down.Planning conditions are, however,generally preferred to planningobligations as they are a simplermechanism.

12.6 SEMLEP can provide sub-regionalfunding through a bidding process thatrequires multi-council support. CentralGovernment funding, however, throughDfT and CLG, may be reduced and somore schemes might need to go throughapproval systems such as the NationalInfrastructure Scheme process, which isresource intensive. The loss of the NewHomes Fund to LEPs is another revenuestream reduction.

12 . Infrastructure Delivery, Monitoring and Review of the Local Plan

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

109

12.7 Pressure will arise frompermitted development rights -including office to dwelling conversions- not contributing to infrastructureprovision.

Policy approach:

12.8 The following documents havebeen used as sources of evidence indeveloping the policy to ensurerobustness:

Paragraph 173 of the NPPFidentifies the need for Local Plansto be deliverable paying particularregard to viability. It states“Pursuing sustainable developmentrequires careful attention toviability and costs in plan-makingand decision-taking. Plans shouldbe deliverable. Therefore, the sitesand the scale of developmentidentified in the plan should not besubject to such a scale ofobligations and policy burdens thattheir ability to be developed viablyis threatened. To ensure viability,the costs of any requirements likelyto be applied to development, suchas requirements for affordablehousing, standards, infrastructurecontributions or otherrequirements should, when takingaccount of the normal cost ofdevelopment and mitigation,provide competitive returns to awilling land owner and willingdeveloper to enable thedevelopment to be deliverable”.The NPPF does not define'infrastructure' however for thepurposes of CIL. Infrastructure isdefined by the Planning Act 2008(as amended) as roads and othertransport facilities, flood defences,schools and other educationalfacilities, medical facilities,sporting and recreational facilitiesand open spaces. This is broadlythe definition of types ofinfrastructure the Local Plan makesprovision for and is set out in moredetail through the InfrastructureDelivery Plan (IDP).

2010 Community InfrastructureLevy Regulations as amended.Community Infrastructure LevyGuidance.PAS – A steps approach toinfrastructure planning anddelivery June 2009.

Policy LLP39 - Infrastructure andDeveloper Contributions

A. The Local Planning Authority willsupport development proposalsthat provide or adequatelycontribute towards theinfrastructure and services neededto support them, which will bedelivered using the followingapproach:

i. testing the capacity ofexisting infrastructure and,where there is insufficientcapacity, securing the timelyprovision of improvements oradditional provision;

ii. infrastructure provision orimprovements should beprovided on-site as an integralpart of a developmentwherever possible andappropriate;

iii. where off-site measures areneeded, or on-site provisionis not possible, planningobligations will be needed tosecure the necessary provisionor a financial contributiontowards provision; and

iv. where a contribution towardsother infrastructureimprovements or provision isneeded and viable, this willbe achieved through planningobligations, planningconditions and/ or CommunityInfrastructure Levy.

B. Any on-site provision or financialcontribution should:


LutonLocalPlan

(2011-2031)Novem

ber2017

110

meet the reasonable costs ofprovision to support the

i.

development or offset itsimpact;

ii. be related to the size andtype of each development andthe nature of theimprovements required; and

iii. take account of thecumulative impact ofrequirements on the viabilityof development, especiallywhere the development meetsa particular local need orprovides particular benefits.

The Local Planning Authority willsupport the improvement ordevelopment of locally and regionallyimportant infrastructure where neededto serve existing or new developmentrequired through this Plan, or to securelong term supply, provided that theneed for such facilities is consistent withother policies within this Plan.

The Monitoring Strategy

12.9 The key aim of the monitoringstrategy will be to provide a regular test ofwhether the local strategic objectives of thePlan are being met or some harm is beinginadvertently caused. This will be achievedthrough the use of clusters of indicators thattogether provide a full understanding of theoutcomes of the Plan, relative to each of thestrategic objectives.

12.10 The Sustainability Appraisalsupporting the Local Plan has suggestedindicators based upon the significant effectsthat may be related to future developmentoutcomes. As far as possible, these will formthe core of the monitoring indicators to beconsidered. These will be added to by theuse of existing nationally or locally availabledatasets to report development outputs andoutcomes in line with the principle of "countonce, use many times".

12.11 The indicator clusters will in turnbe reported within the Authority's MonitoringReport (AMR). It is the aim of this document

to tell the local story of what is beingprovided and where. It will also report onthe local context over a range of topics,including housing and employment. Inwriting the AMR, particular attention will bepaid to the PAS guidance document,"Monitoring that matters: towards a betterAMR" and any other such guidance that maybecome available.

12.12 The proposed monitoring regimecan be found in Appendix 8.

Managing a Supply of Housing Land

12.13 Appendix 5 of this Plan sets outfurther details for monitoring delivery of thehousing requirement of 8,500 dwellings (425dwellings per annum). Based on an annualrequirement of 425 dwellings per annum,there has been a shortfall in completions of98 dwellings between 2011 and 2016. Theaim is to recover this shortfall over theperiod 2016–21– i.e. at 445/year x 5 = 2,223dwellings.

12.14 Table 1 of Appendix 5 indicates thatLuton Borough Council does not have arecord of persistent under-delivery at thepoint the Local Plan was adopted. The bufferwill be reviewed annually.

12.15 The Housing Land Supply positionof around 5.30 years’ supply at April 2017(based on the details contained in Appendix5) is calculated as shown in the table below.Recalculation of the housing requirement(including the need to address any remainingshortfall) and updating of the housingtrajectory will only be undertaken once themost recent data for housing completions infuture monitoring years have been formallyreported in the SHLAA or AMR.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

111

Housing Land Supply Calculation

Review of the Local Plan

12.16 During the public examinationhearings into the Local Plan held from 2016to 2017, a number of issues were highlightedfor specific attention in the next review ofthe Local Plan. Several of these matters werepressing issues tending towards an earlyupdate. Policy LLP40 requires that the nextfull review of the Local Plan should besubmitted for public examination bymid-2021. This balances the need for urgencyon some matters, for example a review ofschool provision, but also giving time to allowthe potential for local plans withinneighbouring areas to be progressedfollowing the completion of the Joint GrowthOptions Study. The Growth Options Study isparticularly important in helping addressLuton’s unmet housing needs across thewider Housing Market Area. There are severalareas where technical studies to inform thereview can progress much earlier; examplesbeing the reviews of school provision and thereview of the Town Centre DevelopmentFramework.

Policy LLP40 - Review of the LocalPlan

The Local Planning Authority will bringforward a full review of the plan. Thiswill commence before the end of 2019with submission of the review forexamination by mid-2021. Specificmatters to be addressed by the reviewinclude the following issues:

i. To address the outcomes of theGrowth Options Study and decisionsin neighbouring local plans abouthow and where Luton’s unmethousing needs will be provided forincluding implications for transportinfrastructure, as appropriate.

ii. The objective assessment ofhousing needs including areassessment of migration trendsand projections.

iii. The capacity to accommodatehousing within Luton.

iv. The outcomes of separate Lutonand Central BedfordshireFunctional Economic Market Area(FEMA) studies.

v. A full assessment of the need forschool places over the plan periodtaking into account plannedhousing growth, the availability ofschool places to meet that needand steps to ensure sufficientschool places are made available,including as appropriate throughthe allocation of land to allow theexpansion of existing schoolsand/or the provision of newschools.

vi. Provision for the relocation ofLuton Town Football Club.

vii. Retail needs of the Borough andhow they will be provided for.

viii. Strategy and policies for the towncentre.


LutonLocalPlan

(2011-2031)Novem

ber2017

112

ix. Uses and policies relating to thestrategic allocation at Power Court(Policy LLP9).

x. Uses and policies relating to thestrategic allocation at South ofStockwood Park (Policy LLP5).

xi. The allocation and delivery of apark and ride facility at thestrategic allocation at South ofStockwood Park (Policy LLP5).

The full review of the plan will take intoaccount the outcome of any relevantplanning applications, including inrelation to Power Court (Policy LLP9)and South of Stockwood Park (PolicyLLP5).


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

113

Appendix 1 Glossary

Housing that is accessible to households who cannot afford to rentor buy homes generally available on the open market. It includes

Affordable Housing

social rented and intermediate tenures. Intermediate housing ishousing at prices or rents above those of social rent but belowmarket prices or rents.

A positive element or elements that contribute to the overallcharacter or enjoyment of an area. For example, open land, trees,

Amenity

historic buildings and the relationship between them, or lesstangible factors such as tranquillity.

A report prepared by councils that can include data reported online as it emerges over a year as well as a report assessing progresswith and the effectiveness of the Local Plan and its documents.

Authority MonitoringReport (AMR)

The special underground rock layers that hold groundwater, whichare often an important source of water for public water supply,agriculture and industry.

Aquifer

An area with a statutory national landscape designation, theprimary purpose of which is to conserve and enhance natural

Area of OutstandingNatural Beauty (AONB)

beauty. Together with National Parks, AONBs represent thenation’s finest landscapes (Countryside & Rights of Way Act 2000).AONBs are designated by Natural England. Luton lies within thenorthern end of the Chilterns AONB, which was designated in 1965.Whilst little of the designated area lies within the boroughboundary, it needs to be recognised that development within thetown can have an impact on the AONB beyond.

This was a previous local policy designation to conserve the naturalbeauty of locally recognised landscapes of importance considered

Area of GreatLandscape Value(AGLV) to be of similar landscape quality (but of less weight to AONBs) or

having a specific local character. However, AGLV policy wasabolished with Structure Plans by the government, and localauthorities must undertake Landscape Character Assessments inorder to designate and protect areas of local landscape importance(see LLI). Former AGLV designations existed on attractive and rarechalk downland at Dallow Downs and the escarpment near BradgersHill. Two areas between the borough boundary and the southernedge of London Luton Airport were similarly designated as part ofa larger locally important landscape area extending south intoHertfordshire along the Lea Valley.

A ‘use class’ is the grouping together of similar land uses. B1 isBusiness, which includes offices, research and development, light

B1 – B8 use classes

industry appropriate in a residential area; B2 is General Industrial(excluding incineration, chemical treatment, landfill or hazardouswaste); B8 is Storage or Distribution, which includes open airstorage.

Appendix 1 Glossary

LutonLocalPlan

(2011-2031)Novem

ber2017

114

The variety and range of plant and animal life, encompassinggenetics, species and ecosystems.

Biodiversity

An arrangement, usually provided by a commercial organisation,whereby residents who are Car Club members can hire a vehicleparked in their area at discounted rates for short or long periods.

Car Club

Where people who are travelling to the same or nearby destinationsshare a vehicle. This can be either through informal arrangements

Car Sharing

between colleagues or through a formal database such as‘Liftshare’. Some employers offer this.

A term for land that has been previously developed with apermanent structure.

Brownfield land

Commonly abbreviated to BREEAM. A tool to measure theenvironmental performance of new and existing non-residential

Building ResearchEstablishment

buildings. It is regarded by the UK’s construction and propertyEnvironmentalAssessment Method sectors as the measure of best practice in environmental design

and management and is a voluntary standard.

See AONB.Chilterns AONB

The merging or coming together of separate towns or villages toform a single entity.

Coalescence

A strategy prepared by a local authority to improve local qualityof life and aspirations, required under the Local Government Act2000.

Community Strategy

Public, private and third sector provision facilities (including thosewithin educational establishments with shared use and public

Community Facility

access) that provide for the health and well-being, social,educational, spiritual, recreational, leisure and cultural needs ofthe community. Most D1 (non-residential institutions) and D2(assembly and leisure) uses fall within this definition. Some usesmay qualify where they function as a community hub, such as apub that supports teams in sports leagues. B (employment) and C(residential) use classes are not considered to be communityfacilities.

An area of special architectural or historic interest, including groupsof buildings, and which needs its character or appearance to beprotected, preserved or enhanced.

Conservation Area

A large urban sprawl, often densely populated, formed by thegrowth and coalescence of individual towns or cities.

Conurbation

Areas of land that are important for their wildlife. They are locallydesignated, following assessment of the quality and value of

County Wildlife Site(CWS)

potential sites by a panel of specialists according to criteria fromNatural England and DEFRA.

The application of strategies and policies to reduce car traveldemand or to redistribute it.

Demand Management

Department of Forestry and Rural Affairs.DEFRA

Appendix 1 Glossary

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

115

A measure of the intensity of the use of land. For houses, it iscalculated on the basis of the number of dwellings per hectare.

Density

Development includes any new building operation in, on or overthe land including any subsequent redevelopment and any changeof use.

Development

The information and data gathered by local authorities to justifythe “soundness” of the policy approach set out in the Local Plan.

Evidence Base

It includes studies of the physical, economic and socialcharacteristics of an area.

An assessment of the likelihood of flooding in a particular area sothat development needs and mitigation measures can be carefullyconsidered.

Flood Risk Assessment(FRA)

A designation of land around certain cities and built up areas whichaims to keep this land permanently or largely undeveloped. The

Green Belt

purposes of the green belt is to check unrestricted sprawl, preventneighbouring towns from merging, safeguard countryside fromencroachment and preserve the setting and special character ofhistoric towns. Green belts are defined in a local planningauthority’s development plan.

Land or a site, usually farmland, that has not previously beendeveloped and include allotments.

Greenfield Land

This is the surface water runoff rate from a site beforedevelopment, or the existing site conditionsfor brownfield redevelopment sites.

Greenfield Runoff Rate

Accessible Green Space is accessible to the local community (seeOpen Spaces Strategy) and Green Infrastructure (See GreenInfrastructure Strategy) can include accessible green space andprivate green space. Typologies that come under Green Space caninclude:

Green Space

• Parks and gardens, providing accessible high quality opportunitiesfor informal recreation and community events.

• Natural and semi-natural green spaces, including urban woodlandand trees, providing opportunities for wildlife conservation andbiodiversity.

• Green corridors, which can be used for walking, cycling or horseriding, and giving opportunities for wildlife migration.

• Outdoor sports facilities, which encourage participation in sportssuch as football, rugby, tennis, bowls, golf and athletics.

• Amenity green space, giving opportunities for informal activitiesclose to home or work and enhancing the appearance of residentialareas.

• Provision for children and young people, designed for play andsocial interaction.

Appendix 1 Glossary

LutonLocalPlan

(2011-2031)Novem

ber2017

116

• Allotments and community gardens that include opportunitiesfor residents and users who wish to do so to grow their ownproduce.

• Cemeteries, giving opportunities for quiet contemplation andpromoting wildlife conservation.

Buses that are steered for part or all of their routes by externalmeans, usually on a dedicated track.

Guided Busway

The Gypsy and Traveller accommodation needs are assessed aspart of housing need and enables sites to be identified in order to

Gypsies and Travellers

meet the current and future housing needs for this specific group,which includes travelling showpeople.

A unit of land equivalent to 10,000 square metres. One hectare isapproximately equal to 2.47 acres.

Hectare

A building, monument, site, place area or landscape identified ashaving a degree of significance meriting consideration in planning

Heritage asset

decisions. Heritage assets are valued components of the historicenvironment. They include designated heritage assets such asListed Buildings and World Heritage Sites as well as assets identifiedby the local planning authority (including local listing).

A Government company charged with operating England’smotorways and major A roads. This includes modernising and

Highways England

maintaining the highways, manage and help prevent incidents onEngland’s motorways through the Traffic Officer service.

A park or garden of special historic interest. Grade I, II* or II asdesignated by English Heritage.

Historic Parks andGardens

This calculates the level of deprivation of a ward using a set ofindicators focussing on income, employment, health & disability,

Index of MultipleDeprivation (IMD)

education, skills & training, barriers to housing & services, livingenvironment and crime. It is used to help identify areas forregeneration.

A general term used for the basic facilities, services andinstallations needed for the functioning of a community such as

Infrastructure

health and recreation facilities, water, sewerage, electricity,schools, post offices, airports, roads and other utilities.

A diagram illustrating the spatial strategy of a local planningauthority’s Local Plan.

Key Diagram

The local planning authority’s programme or timing for thepreparation of Local Development Documents.

Local DevelopmentScheme (LDS)

Former Area of Great Landscape Value (see AGLV) policy wasabolished with Structure Plans by the government, and local

Local LandscapeImportance (LLI)

authorities must undertake Landscape Character Assessments inorder to designate and protect areas of 'local landscapeimportance'. Former AGLV designations existed on attractive and

Appendix 1 Glossary

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

117

rare chalk downland at Dallow Downs and the escarpment nearBradgers Hill. Two areas between the borough boundary and thesouthern edge of London Luton Airport were similarly designatedas part of a larger locally important landscape area extending southinto Hertfordshire along the Lea Valley. Within Luton, these areasare retained as of 'local landscape importance' (LLI). AdditionalLLI are the Hart Hill area part of a steep hillside rising above theRiver Lea characterised by mature trees (a significant landscapefeature visible from much of the southern part of the town) andStockwood Park, a large area of eighteenth century ‘romantic’landscaping (prominent from the M1 motorway and providing aquality southern approach to the town).

The plan produced by the local planning authority under the currentLocalism Act (and Plan making regulations) which can comprise of

Local Plan

a document with a key diagram, policies map and a list of policieswith supporting text setting out how much, when and wheredevelopment will take place e.g. housing, employment,infrastructure such as transport and delivery of strategic allocationsof land for such purposes.

Locally significant flooding’ is defined in the Luton Local FloodRisk Management Strategy (LLFRMS) as a set of thresholds that, if

Locally significantFlooding

reached or exceeded, would trigger the carrying out of a formalinvestigation by the Council into a flooding incident. The thresholdsare quantified in the LLFRMS in terms of human health, economicactivity and environmental impact.

Non-statutory and multi-agency partnerships brining together ata local level different parts of the public, private and voluntary

Local StrategicPartnership (LSP)

sectors, allowing different initiatives and services to support oneanother so that they can work together more effectively with onekey objective to improve the quality of life in that area.

This strategy is prepared under the guidance of the Transport Act2000, setting out the transport strategy for the district forimproving local transport.

Local Transport Plans(LTPs)

A guided busway operating along a former disused railway linelinking Luton town centre with Dunstable and Houghton Regis towncentres.

Luton DunstableBusway

Sets out the proposals for space and land-use and matches theseto a framework for investment and implementation.

Master Plans

Provision of a mix of complementary uses, such as residential,community and leisure uses, on a site or within a particular area.

Mixed Use

The process of encouraging people to move from one transportmethod (e.g. the car) to another (e.g. buses).

Modal Shift

The government has set out its key planning principles and policiesin a national framework to guide preparation of Local Plans anddevelopment management decisions.

National PlanningPolicy Framework

Accommodation serving the needs of people of retirement age.Older people’s housing

Appendix 1 Glossary

LutonLocalPlan

(2011-2031)Novem

ber2017

118

This is the principal/main dwelling within a curtilage before anysubsequent alteration or extension which has increased itssize/volume.

Original dwelling

Illustrates the spatial extent of policies of a Local Plan.Policies Map

A schedule setting out the consultation responses received duringa statutory consultation period on the Local Plan.

Pre-SubmissionConsultationStatement

Land that is or has been occupied by a permanent structure andassociated fixed-surface infrastructure.

Previously DevelopedLand (PDL)

This is the principal/main dwelling within a curtilage before anysubsequent alteration or extension which has increased itssize/volume.

Principal dwelling

Electronic display giving up-to-the-minute information about publictransport arrivals and departures.

Real Time Information

The economic, social and environmental renewal and improvementof urban and rural areas.

Regeneration

Regional Plans were abolished by the Coalition Government in2012/13.

Regional SpatialStrategy / East ofEngland Plan

Three areas of Registered Common Land exist within the borough.These are The Moor, which is a relic of the ancient Great Moor,

Registered CommonLand and Access Land

which served as the sole recreational space for Lutonians until the1860s, and Bell's Close and Pope's Meadow, which were granted tothe town as compensation for the loss of part of the Great Moorfollowing construction of the Midland Railway. These became partof People's Park, which was the first public park to be created inLuton. Each of these sites has historic heritage, landscape andbiodiversity value, and is registered as a commons under theCommons Act (1965) and as access land under the CROW Act (2000).

Luton contains two parks that English Heritage has included on its‘Register of Parks and Gardens of Special Historic Interest in

Registered Parks andGardens

England’. They are Wardown Park to the north of the central area,and Putteridge Bury on the north east edge of the town, which liesmostly within Hertfordshire. Such parks are considered by EnglishHeritage to make a significant contribution to the richness of thelocal scene in terms of green space and nature conservation.Inclusion on the list requires Local Authorities to make provisionfor the protection of the historic environment in their policies andtheir allocation of resources.

Renewable energy is from sources that occur naturally andrepeatedly in the environment, for example from the wind, waterflow, tides or the sun.

Renewable energy

Legal agreements between a planning authority and a developer,or undertakings offered unilaterally by a developer, that ensurethat certain extra works related to a development are undertaken.

Section 106Agreements

Appendix 1 Glossary

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

119

These are statutorily protected sites that comprise the country'sbest wildlife and geological sites.

Sites of SpecialScientific Interest(SSSI)

Spatial planning goes beyond traditional land use planning tointegrate policies and programmes that influence the nature of

Spatial Planning

places and how they can function, such as delivering sustainabledevelopment.

The Statement of Community Involvement sets out the processesto be used by the local authority in involving the community in the

Statement ofCommunityInvolvement (SCI) preparation, alteration and continuing review of all local

development documents and development control decisions.

An assessment of land for housing to demonstrate that the localauthority has a continuous 5 year supply of deliverable sites forhousing and a 15-year supply of potential sites for housing.

Strategic Housing LandAvailability Assessment(SHLAA)

Sets out the local authority’s objective housing needs split bytenure (e.g. social rented housing, intermediate housing and market

Strategic HousingMarket Assessment(SHMA) housing) and is output according to local authority and housing

market areas. It promotes an approach to assessing housing needand demand.

A site over a certain size threshold identified in the Local Plan andallocated on the policies map for development of a certain use ormix of uses.

Strategic Allocations

Elaborates on policies or proposals in the Local Plan and givesadditional guidance.

SupplementaryPlanning Documents(SPDs)

The SA/SEA is central to the planning system. Its aim is to takean objective view of sustainable development through theintegration of social, environmental and economic considerations.

Sustainability Appraisal/ StrategicEnvironmentalAssessment (SA/SEA)

A document produced by the local authority and key local partners,which sets out the long-term vision for the town. The Local Planis a key implementation tool for some of the objectives of the SCS.

Sustainable CommunityStrategy(SCS)

A sustainable community is an organic vibrant environment wherepeople will want to live and work now and in the future.

SustainableCommunities

The purpose of the planning system is to contribute to theachievement of sustainable development. There are threedimensions to sustainable development: economic, social and

SustainableDevelopment

environmental. Sustainable Development, according to Resolution42/187 of the UN General Assembly, is meeting the needs of thepresent without compromising the ability of future generations tomeet their own needs.

A system for surface water managing run-off with the aim ofreducing flooding, improving water quality and protecting theenvironment.

Sustainable DrainageSystems (SuDS)

Appendix 1 Glossary

LutonLocalPlan

(2011-2031)Novem

ber2017

120

The formal Government regulations that define how the LDF isproduced.

Town and CountryPlanning (LocalDevelopment)(England) Regulations2012

A location where passengers can change to different modes oftransport.

Transport Hub or Mode

This is a package of information and a statement in support of aplanning application that sets out the detail of traffic impacts onthe road network and any mitigation required.

Transport Assessmentand TransportStatement

Is a package of actions designed by a workplace, school or otherorganisation to encourage safe, healthy and sustainable traveloptions.

Travel Plan

Involves the planned expansion of a city or town and can contributeto creating more sustainable patterns of development when located

Urban Extension

in the right place, with well-planned infrastructure including accessto a range of facilities, and when developed at appropriatedensities.

Appendix 1 Glossary

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

121

Appendix 2 Parking and Cycling Standards

Maximum Car Parking Standards

Standard (Maxima)DescriptionUseClass

Standard to be considered on individual merits,subject to Council approval

Retail - Food (over 1,000sq.m.)A1

Retail - Non-Food (over1,000sq.m.)

A1

General Retail (under1,000sq.m.)

A1

1 space per 30sq.m.Offices (Business &Professional)

A2

1 space per 30sq.m.Cafes, Restaurants, PublicHouses, Wine Bars etc

A3 to A5

1 space per 30sq.m.Business UseB1

1 space per 30sq.m.IndustryB2

1 space per 50sq.m. or 1 space for full timeequivalent staff, whichever is lower

Warehousing, Storage &General Distribution

B8

1 space per bedroom + appropriate standardsfor ancillary uses + 1 per 2 full time equivalentstaff parking

Guest Houses/HotelsC1

Will need to reflect current hospital provision- consultation needed

HospitalsC2

Space as follows:Nursing HomesC2

7 - 10 residents - 4





+ 1 space per bedroom for live-in staff

DwellingsC3

3 spaces per dwelling (or lower depending onaccessibility)

4+ bedrooms

2 spaces per dwelling (or lower depending onaccessibility)

2/3 bedrooms


LutonLocalPlan

(2011-2031)Novem

ber2017

122

Standard (Maxima)DescriptionUseClass

1 space per dwelling (or lower depending onaccessibility)

1 bedroom

1 space for the house managerSheltered HousingC3

0.19 for 1 bedroom

0.44 for two bedrooms

0.08 spaces per apartment for visitors

1 space per 2 staffSecondary Higher/FurtherEducation Establishments andAdult Training Centres

D1

+ 1 space per 15 students (total, not full timeequivalent) on all developments

4 spaces per consulting room + 1 space per 2staff

Medical & other healthpractices

D1

1 space per 2 staffPre-school Play and NurseryProvision, Primary Schools

D1

Standard to be considered on individual merits,subject to Council approval

D2 Uses not individually listedbelow

D2

CinemasD2

Conference FacilitiesD2

Sports Stadia (with over 1,500seats)

D2

1 space per 4 rooms and, in any case, not morethan existing provision if converted from adwelling

Hostels and HMOsSG

1 space per 30sq.m.LaunderettesSG

1 space per 30sq.m. + 1 space per 2 cars basedat premises

PHV OfficesSG

1 space per 5 fixed seats; and 3 disabled baysor 6% of total capacity; adequate turning andloading facilities; space for 1 coach or a 16.5mlorry; otherwise standards to be considered onindividual merits subject to Council approval.

TheatresSG

General notes

1. For those developments where there is no adopted parking standard, the amount ofparking required will be determined by the Council having regard to the transportationpolicies and objectives set out in this Local Plan.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

123

2. The standards set out above will be the maximum permitted in new developments inLuton. However, in accordance with Policy LLP32 of this Local Plan, the Council willlimit parking for new development in the central area to that which is essential foroperational purposes, and may seek to reduce the maximum standard in other areashighly accessible by public transport.

3. The minimum size of a standard parking bay is 2.4m x 4.9m.

4. The floor space in all cases refers to the gross (external) floor area.

5. For mixed-use schemes, the parking requirement will be calculated separately for eachuse.

6. Where developments require servicing by goods vehicles, sufficient space for theirstanding and manoeuvring should be provided. Schemes should be designed to allowvehicles to enter and leave the site in forward gear.

7. In all uses likely to generate coach traffic, e.g. hostels, education establishments, sportsfacilities and theatres, schemes should provide adequate off-street facilities for coaches,including picking-up and setting-down points, manoeuvring space and parking spaces.Schemes should be designed to allow vehicles to enter and leave the site in forwardgear.

8. Disabled parking spaces: In all developments providing 5 or more car parking spaces,a minimum of 1 bay or 5% of the total capacity (whichever is greater) should be designatedand reserved for disabled users. Spaces should be a minimum of 3.6m x 4.9m andconveniently located close to the entrance of buildings.

Minimum Cycle Parking Standards

Standard (Minima)DescriptionUseClass

1 space per 5 staffRetail - Food (up to 250sq.m.)A1

1 space per 10 staffRetail - Food (250 - 500sq.m.)A1

1 space per 10 staff + 1 space per 250sq.m.Retail - Food (500 - 1,000sq.m.)A1

1 space per 10 staff + 1 space per 150sq.m.Retail - Food (over 1,000sq.m.)A1

1 space per 10 staff (on site at one time)Retail - Non-Food (under1,000sq.m.)

A1

1 space per 10 staff (on site at one time)Retail - Non-Food (over1,000sq.m.)

A1

+ 1 space per 350sq.m.

1 space per unit for the first 10 units; 1 spaceper 5 units for the remainder

Residential - blocks of flatsC3

1 space per 4 staff (on site at one time) + 1stand (mix of cycle and scooter parking per4 pupils/students (on site at one time)

Infant/Primary schoolsD1


LutonLocalPlan

(2011-2031)Novem

ber2017

124

Standard (Minima)DescriptionUseClass

1 space per 10 staffSecondary Schools/Higher &Further EducationEstablishments/Adult TrainingCentres

D1

1 stand per 8 staff (on site at one time)

+ 1 space for 4 pupils (on site at one time)

Cycle parking for the public to be agreed withthe Council, in addition to staff parking inaccordance with the above standard

Other non-residentialdevelopments attractingsignificant numbers of the public

General notes

1. The cycling 'spaces' to be provided above requires some form of stand to which the cyclecan be securely chained.

2. Cycle parking should be conveniently located for users, offer security and be subject tosurveillance during use. Wherever possible, it should be under cover.

3. In accordance with Policy LLP32 of this Local Plan, consideration should be given to theprovision of storage, which should include showering facilities for employees choosingto cycle.

4. Developers should take account of the need for cycle storage in the design of newresidential schemes.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

125

Appendix 3 Employment Sites: Categories A & B

List of Key Employment Areas Category A

DescriptionName

37.3 ha Strategic scale site part completed (circa 30%) withremaining greenfield plots ready to develop for high quality uses

Butterfield GreenTechnology Park

in line with Policy LLP7 in a prominent location with frontage onto(STRATEGICALLOCATION)

the A505, good quality environment and very modern, good qualitybuildings with low vacancy but relatively remote location and muchland available.

14 ha Strategic scale, undeveloped site (includes north and southof Newlands Road) near the airport and accessed of J10A to the M1.Proposed B1(a) office park and Park and Ride.

Junction 10a South ofStockwood Park

(STRATEGICALLOCATION)

25 ha Strategic scale development site cleared for mixed useemployment (B1and B2) housing and commercial accessed via London

Napier Park


Luton Parkway station and Kimpton Road and the A1081 dualcarriageway New Airport Way - M1 Junction 10A.

42.6 ha Strategic scale undeveloped site for mixed B1(a), B1(b),B1(c), B2, B8 adjacent to London Luton Airport - a strategic route

Wigmore EmploymentArea/ Century Park

access has been designated to serve this site from the airport estate(STRATEGICALLOCATION)

via Wigmore Valley Park, which will tie this strategic developmentinto the A1081 dual carriageway New Airport Way and with accessto services and labour, and London Luton Airport.

7.21 ha Large strategic town centre industrial estate part cleared,allocated for mixed use retail, residential and B1 business to extend

Power Court


the town centre shopping area, access off the A505 ring road 4kmfrom junction 10a (M1) and Luton rail station and guided businterchange.

3.7 ha Medium sized site with high profile location next to LondonLuton Airport; access off A505 with units in good condition, goodenvironment and low vacancy. B1(a), B1(c), B2, B8.

Airport ExecutivePark

3.5 ha Well connected site near the airport and on A505 with fairlymodern units, and no obvious vacancy. B1(a), B1(c), B2, B8.

Barratt Industrial Park

9.6 ha Large well established industrial estate, good qualitybuildings predominantly B1/B2 and B8 mix of uses - some quasi

Bilton Way

retail trade and Vauxhall servicing located 2 km from junction 11(M1) via A505.

2 ha Pleasant industrial park, access directly on the A6, 6km fromjunction 11 (M1), modern 1980s/1990s mix of good buildings andB1/B8 uses with no vacancies.

Bramingham BusinessPark


LutonLocalPlan

(2011-2031)Novem

ber2017

126

DescriptionName

10.3 ha Very large busy industrial estate on the norther edge ofLuton, 4.6 km from junction 11 (M1) via A5228, buildings generally

Camford Way

in good condition and some units needing upgrade investment B1/B2and B8 mix with some sui generis Cash & Carry.

Large successful premium business park accessed via M1 Junction10a, high quality B1 (a) accommodation in proximity to LondonLuton Airport.

Capability Green

0.19 ha Town centre 1980s B1 office and mixed retail building ingood condition, 3.5km from junction 10a (M1), designated within

Chapel Street

[CASTLE QUARTER] Luton Town Centre Strategy policy LLP3 (Castle Quarter - mixeduse residential retail and leisure) and conservation area, fullyoccupied.

3.6 ha Relatively close to the M1 Junction 11 with increasing profileand accessibility due to its location beside guided bus route; fairlymodern units with low vacancy B1(a), B1(c), B2, B8.

Commerce Park

10.1 ha Large site with high profile beside the M1 near Junction 11but limited access via rural roads; large, reasonably modern unitsand low vacancy. B1(a), B1(c), B2, B8.

Cosgrove Way

5.0 ha High profile site near A505 and close to M1 Junction 11 withlarger modern units and low vacancy. B1(a), B1(c), B2, B8.

Craddock Road

2.1 ha Good accessibility by road and rail, located next to the routeof the inner ring-road and hosting a rail-served aggregates depot

Crescent Road (West)

(safeguarded by the joint Minerals & Waste Local Plan). Low densitybut low vacancy. B2, B8.

5.7 ha Near M1 J11 via A505 with some large, modern units on aspacious site with low vacancy B1(a), B1(c), B2, B8.

Dalroad EmploymentArea

1.8 ha Poorer road links to M1 but in well-established employmentarea with well-maintained, if older, units in good environment andlow vacancy. B1(a), B1(c), B2, B8.

Dencora WayEmployment Area

2.2 ha High quality B1 office and B2 manufacturing premises withB8, 1.2 km from junction 11 (M1), fully occupied.

Electrolux Oakly Road

6.8 ha Large site near M1 J11 via A505 with reasonably modern unitsin good condition in well-established industrial location and lowvacancy. B1(a), B1(c), B2, B8.

Finway IndustrialEstate

3.24 ha Existing industrial estate, well established in largeremployment area 2.5 km from junction 11 (M1) via A505, mixed

Firbank

B1/B2/B8, quality of buildings mixed with some poor, fullyoperational and occupied.

0.15 ha Town Centre mixed use pre-war and post-war refurbishedpremises, B1/and non B class D1/residential/retail, 4.5 km from

Guildford Street(Alexon Building &

junction 10a (M1), fully occupied, subject to Creative Quarter policyHatLLP11 regeneration for mixed residential use, adjacent toconservation area.

Factory)[CREATIVEQUARTER]


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

127

DescriptionName

0.55 ha Town Centre office and industrial block, 4.5km junction 10a of M1 via the A505, mix of B1/B8 and commercial A1-A5 uses in

Inkerman Street

modern 1980s good buildings but with older 1950s buildings needingrefurbishment, some vacancies.

0.6 ha Located on the A505, this is a reasonably modern office blockin good condition, with good access to local services. B1(a).

Jansel House

3.04 ha Existing industrial site 3.3 km from junction 10a (M1) viaeast Luton corridor A505 dual carriageway, B1/B2/B8 uses inbuildings in good condition no obvious vacancies.

Kimpton Road A

1.5 ha Prominent visible location adjacent to the airport, Vauxhall(IBC) and Napier Park, mixed site offices, print works, distribution,

Kimpton Road B

car dealership, 3.5 km from junction 10a (M1) via east Luton corridorA505 dual carriageway, good quality buildings, site part clearedincluded within Napier Park development.

15.71 ha Large bespoke Vauxhall (IBC) manufacturing plantprominent and visible close to the airport and Napier Park, 3.5 km

Kimpton Road C

from junction 10a (M1) via east Luton corridor A505 dualcarriageway, B1/B2/B8 uses in good quality buildings and plant -fully occupied.

1.11 ha Existing industrial area, linear form, 2.5 km from junction11 (M1) via A505, mix B1/B2/B8 uses in reasonable buildings,cramped operation but reasonable parking, some vacant units.

Kingsway

7.0 ha Large site on A505 with modern buildings and goodenvironment occupied by single company with ample parkingprovision and adequate public transport access. B1(a).

Osbourne RoadEmployment Area

13.6 ha Prominent large industrial estate, B1/B2/B8 uses adjacentto employment cluster, 2.5 km from junction 11 (M1) via A505,majority of units fairly modern, some vacancies.

Laport Way(Note:includesCommerce Park)

0.96 ha Town Centre office blocks (2-3 storey), 4.5 km from junction10a (M1) via A505, mixed 1980s B1 office premises in good condition

Liverpool Road

with older (2 storey) in fair condition some recently refurbished, novacancies.

2.9 ha Developed industrial park, 4.3 km from junction 11 (M1),north edge of Luton mix of B1/B2 and B8 uses, buildings in goodcondition, low vacancy.

Luton Enterprise Park

5 ha Well established industrial estate 4km from junction 11 (M1)north Luton, B1/B2 and B8 mix with new/modern and older mix ofunits good/reasonable condition, some vacancies.

Park Avenue TradingEstate

6.3 High profile location on A505 beside London Luton Airport withgood public transport, moderate units and environment but lowvacancy. B1(a), B1(c), B2, B8.

Percival WayIndustrial Area

0.35 ha 1970s refurbished office block beside A505 and Stopsleydistrict centre. Good road access and adequate parking. No sensitive

Plaza 668


LutonLocalPlan

(2011-2031)Novem

ber2017

128

DescriptionName

adjoining uses and building in good condition with low vacancy. B1offices.

4.36 ha Mixed B2/B8 employment depot, includes Council recyclingand industrial uses within a strategic scale employment area, 2.5

Portland Road (Depot)

km from junction 11 (M1) via A505, large and small industrial units,run down appearance but no obvious vacancies.

1.6 ha Very modern units in well landscaped site with ample parkingprovision, in prominent industrial location. B1(a), B1(c),B8.

Premier Business Park

1.8 ha Existing site with cleared area for development and mix ofairport related uses adjacent to London Luton Airport, 4km from

Proctor Way

junction 10a (M1) via A1081 dual carriageway, buildings present areolder but high quality aviation related office and industrial mostlywithin airport boundary and cleared site outside boundary.

0.70 ha Well established industrial estate, north west edge of Luton4 km from junction 11 (M1) via A5228, mix of B1/B2/B8 uses inmodern and refurbished units, low vacancy.

Progress Park

6.2 ha Employment Area High profile location beside London LutonAirport and on A505 with relatively modern office units and noobvious vacancy. B1(a), B1(c).

Prospect Way

2.6 ha Prominent well established industrial estate, B1/B2 and B8mix, north edge of Luton 4km from junction 11 (M1), managed goodquality 1980s units, only 2 vacancies.

Scott Road

13.6 ha Very large site with mix of modern/refurbished units inprominent industrial location. Limited access to M1 via rural roadsbut low vacancy. B1(a),B1(b), B1(c), B2, B8.

Sedgwick Road/Progress Way

8.14 ha Large bespoke SKF plant (UK) on north edge of Luton 4.3km from junction 11 of M1 via A5228, older 1950s industrial unit

SKF

buildings generally in good condition for mix B1/B8 uses novacancies.

4.17 ha Existing linear B1/B8 employment site immediately adjacentrailway line, within strategic employment area, 2 km from junction

Selbourne RoadIndustrial Area

11 (M1) but via busy residential roads; some non B use, mixed stockof units, lower quality environment but few obvious vacancies.

2.6 ha Limited access to M1 J11 via rural roads but well maintained,managed site in established industrial location with modern unitsand no vacancy. B1(a), B1(c), B8.

Sundon Business Park

2.5 ha Limited access to M1 J11 via rural roads and with olderindustrial units in good condition but in established industriallocation with low vacancy B1(a), B1(c), B2, B8.

Sundon IndustrialEstate

0.81 ha Existing industrial estate, northern edge of Luton 4.3kmfrom junction 11 (M1) via the A5228, mix B1/B2/B8 in modern goodquality units, no vacancies.

Urban HIVE, LutonEnterprise Park


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

129

DescriptionName

11.26 ha Existing B1/B8 vehicle manufacturing plant near NapierPark and employment cluster close to the airport, 3.8km from

Vauxhall North ofNapier Park

junction 10a (M1), direct access off A1081 dual carriageway NewAirport Way, dated bespoke plant premises in reasonable condition,fully occupied.

14.57 ha Large high profile B1/B8 employment land sitepredominantly used for surface parking and opens storage, mixed

Vauxhall Way TrailerPark

B1/B2 and storage, between key employment area and the airport,3.5km from junction 10a via A1081 dual carriageway New AirportWay, no obvious vacancies.

2.61 ha B1/B8 Employment site, 2 km from junction 11 (M1) viaresidential roads, mix non B uses, BT telephone engineering centre,

Waller Avenue

motor transport, storage, waste transfer operations, reasonablequality buildings, good quality office frontage buildings, reasonable,no vacancies.

1.8 ha Prominent good quality 1980s B1 office in block (close to theairport) sub divided into smaller units , on the eastern side of Luton,

Wigmore Place

6km from junction 10a (M1) via east Luton corridor dual carriageway,some floorspace being marketed.

1.16 ha Existing cluster of 3 separate industrial B1/B2/B8 uses, ina strategic employment area 2 km from junction 11 (M1) via local

Wingate Road

residential roads, cramped operationally or for expansion, mixreasonable and poor properties, evidence fully occupied.

2.3 ha Medium sized site with M1 access via rural roads and mix ofmodern and older units in established industrial location and withno vacancy. B1(c), B2, B8.

Willowgate TradingEstate

List of Employment Areas Category B

DescriptionName

0.2 ha Small B1 industrial site on edge of Luton town centre with goodlocal road access, 4.5 km from junction 10 (M1), borders an

Abbeygate BusinessCentre

employment cluster with some residential uses nearby, 1970s buildingsin run down state and need refurbishment, many vacancies.

0.2 ha Small edge of centre site with good local road and publictransport and town centre services, 4.1 km from junction 10 (M1),

Albion Road

adjoined by commercial uses with residential estate across road, olderunits in reasonable condition and fully occupied. B1/C3.

0.95 ha Existing employment site within large strategic employmentarea, 2 km from junction 11 (M1) via residential roads, mix of B1/B2

Arundel Road

uses and vehicle repairs in 1950's and 1970s buildings, in reasonablecondition for B1 retention, fully occupied but non B uses present mayindicate lack of demand.


LutonLocalPlan

(2011-2031)Novem

ber2017

130

DescriptionName

0.32 ha Medium sized site occupied by 1890s office building andattached warehouse/storage shed, all in good condition and occupied.

Brunswick Street

(HIGH TOWNMASTERPLAN)

Good local road access although distant from strategic routes andaccess to town centre public transport and services. Within establishedindustrial area and appears to function adequately. B1/B8.

0.8 ha Medium sized industrial site in an established industrial locationnear Luton rail station and town centre transport and services. Good

Burr Street


local road access to site with adequate on-site parking and serviceyard areas. Good quality units on site and all occupied.

3.18 ha Employment site 1.4 km from junction 11 of M1 via A505, mixpredominantly Arriva Bus Depot and car dealership, buildings inreasonable condition, car dealership showroom vacant.

Bus DepotDunstable Road

2.8 ha Good accessibility by road, located next to the route of theinner ring-road. Significant areas of land have been demolished and

Crescent Road(East)

cleared while other parts now support community and leisure uses.B1(a), B1(b), B1(c), B2, B8.

0.3 ha Small edge of centre site with older buildings and car park.Poor road access but close to public transport. Adjoins some residential

Dudley Street


uses in mixed use area. Low quality buildings only partly occupied.B1/C3.

2.3 ha Undeveloped car park site in high profile location beside LondonLuton Airport with good access to A505/M1, with good public transport

Eaton Green Road

and close to local services. Separated from residential areas but closeto airport noise. B1-B8.

0.1 ha Existing small employment site, non B classes (car repairs)remaining adjacent to redeveloped industrial land within forming new

Empress Road

flatted developments, 2 km from junction 11 (M1), constrained site,poor buildings in disrepair, some vacancies.

1.38 Mixed use B1 office and non B uses site within the town centre4 km from junction 10a (M1) access of the A505 ring road, designated

Castle Quarter(CASTLE QUARTER)

in the Local Plan Luton Town Centre Strategy Policy LLP3 (CastleQuarter - mixed use residential, retail and leisure), vacancies oneastern section of site part cleared.

0.6 ha Large warehouse unit near M1 and adjoining A505 junction.Limited local road access and distant from services but adjoins guided

Chaul End Lane(South)

bus way and retail park opposite. Potential constraints from someadjoining residential uses but unit occupied and in goodcondition.B1-B8.

0.58 ha Mixed area B1 office/B8 and student accommodation withintown centre. 4.5 km from junction 10a (M1) via the A505 town centre

Collingdon &Liverpool Road

ring road, public transport nearby but only the Liverpool Road sitehas adequate on-site parking, mix of 1980s office premises in goodcondition and older industrial units in need of refurbishment and somevacancies.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

131

DescriptionName

0.1 ha Edge of centre small office site with good local road access,limited parking on site but good access to public transport. Close to

Concorde Street


local services and within employment cluster with small amount ofresidential development adjoining. Low profile office location butreasonable quality building and no vacancy. B1.

0.8 ha Employment site split into two, close to town centre, adjacentto railway and Crescent Road safeguarded aggregates depot/railhead,

Crescent Road(East)

4km from junction 10a (M1) via A505 ring road/dual carriageway,B1/B8 post war industrial and pre-fab office buildings, non B uses D1,sui generis, not fully occupied.

0.29 ha Employment site B1/B2/B8 mix, designated in the Local PlanLuton Town Centre Strategy policy LLP3 (Castle Quarter - mixed use

Cumberland Street

(CASTLE QUARTER) residential, retail and leisure), off the A505 ring road 4 km fromjunction 10a (M1), mix of poor/rundown and reasonable qualitybuildings, but fully occupied.

0.28 ha Industrial estate, close to the edge of the town centre, 3 kmfrom junction 10a (M1) via A505 ring road, B1/B8 mix of use in 1980sbuildings of reasonable condition but cramped site operationally.

Flowers Estate

0.24 ha Older industrial block B1/B8 in residential area within walkingto town centre/station, accessed off residential roads 5.5. Km from

Frederick Street

junction 11 of M1, Victorian industrial buildings, some post-war infillin adequate condition and occupied.

0.1 ha Small cleared site in existing employment area near town centreand railway station. Reasonable local road access and services/public

Gillam Street


transport nearby but unlikely to attract new employment developmentin this location. C3.

0.42 ha Small B1(a), B1(c), B8 industrial estate in low profileresidential area, 5.5 km from junction 10 (M1) via A5228 and good

Greenwood CourtIndustrial Area

public transport access, tight parking/cramped operation butreasonably modern small units in good condition, some vacancy.

0.5 ha Small office site on edge of town centre with good local roadaccess, 4.8 km from junction 10a (M1), public transport accessibility

High Town Road

and ample parking on site. Adjoining uses not incompatible withoffices. Offices reasonably modern, in good condition, some unitsappear vacant and suitable to meet future needs. B1.

0.04 ha A small site in industrial area used for vehicle repair.Reasonable local road access but no off street parking. Near new three

Hitchin Road

storey block of flats but separated by road. Older building in poorcondition but occupied and meets local needs. B1/C3.

0.67 ha Industrial estate, edge of town centre, 3 km from junction10a (M1) via A505 ring road, mix B1/B8, modern within pre-war brick

Holly Street

industrial buildings some in good and some in poor condition needingrefurbishment, many vacant units.


LutonLocalPlan

(2011-2031)Novem

ber2017

132

DescriptionName

0.66 ha Mix of pre and post war buildings in A1-A5 use with B1, activefrontages within the town centre abutting the A505 ring road 3.5 km

King Street

from junction 10a (M1), conservation area (Policy LLP30) mix ofadequate and older buildings potentially attractive needingrefurbishment, part allocated for housing.

3.34 ha Older 1940s to 1970s mixed cement works/industrialbuildings/site some in poor repair on A579, 2.5 km from junction 11

Leagrave Road

(M1), with limited parking on-site and fair public transport. Adjoinsrailway line, forms a safeguarded concrete/sand batching facility(joint Minerals & Waste Local Plan) in residential area near some localservices. Mainly older units containing vehicle repair uses, some inpoor condition but no apparent vacancies and functioning well. B1c/B2.

0.72 ha Industrial estate south of town centre A505 ring road, 3 kmfrom junction 10a (M1), mix B1/B8 split into 3 sites, some pre-war

Langley Terrace

but mostly post-war industrial units, poor quality in need ofrefurbishment, operationally cramped site, low vacancy.

1.6 ha Existing industrial estate, reasonable location good access 4km from junction 10 a (M1) via A505/ring road and the town centre.

Manor Road

Mix of B1/B8 uses, suffers from a high number of vacancies and someunits in poor condition. Suitable for employment but needs investment,flood zone 2 restrictions.

0.08 ha Small B1 office block located within the town centre, 4.5 kmfrom junction 11 (M1) via A505 ring road, post-war office building,slightly run down state, non B uses present, partially vacant.

Mill Street

0.9 ha Medium sized B1/B2 industrial estate, part vacant, with lowprofile in mainly residential area with residential uses on all sides,

Moreton Park

5.5 km from junction 10a (M1) via A5228 but site access is offconstrained residential road with parking on both sides. Site slopessteeply and contains small 1970s industrial units in reasonablecondition with quite high vacancy, no obvious marketing.

0.42 ha Industrial estate, B1/B8 uses in residential setting, accessonto A6 via town centre roads and 4.8 km from junction 11 (M1) small

141 New BedfordRoad

site constrained operations, poor quality buildings need refurbishment,no apparent vacancies.

0.43 ha Existing B/B8 industrial estate 400 m south of the town centre,3 km from junction 10 a (M1) cramped parking, some 1980s industrial

New Town TradingEstate

units in adequate condition some poorer older buildings in need ofrefurbishment some vacant units and land.

0.15 ha Royal Mail sorting office, B1/B8, 2 km from junction 11 (M1)via residential roads, older buildings in moderate condition, site vacantand part cleared.

Sarum Road

0.3 ha Small site with older buildings and limited local road access5.5 km from junction 11 (M1) via A5228 - A505, adequate parking to

Sunrise Estate

rear but with difficult access, adjoining residential uses but separatedby car park, most units 1940s-1950s are in fair condition and largely


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

133

DescriptionName

occupied and site meets local needs but some units in poor conditionB1/C3.

0.2 ha Small vehicle repair site in cluster of employment uses on edgeof town centre. Adequate local road access and proximity to public

Taylor Street (1)


transport. 1970s premises in good condition and fully occupied.Adequate to meet local needs. B1.

0.1 ha Small vehicle repair site in employment area near town centre.Reasonable road access but no on-site parking, but near NCP car park.

Taylor Street (2)


No sensitive uses adjoining but buildings in poor condition and oneout of two vacant. B1/B2.

0.43 ha Small industrial B1/B2 site 400 m south of the town centreand 3 km from junction 10a (M1) close to the A505 but accessed via

Telmere Estate

constrained roads; adjoined by housing on 3 sides; contains reasonablymodern small industrial units some in poor condition and several unitsvacant.

0.3 ha Small vehicle repair site in cluster of employment uses on edgeof town centre, 4.8 km from junction 10 (M1) via busy residential

York Street (1)


roads and A505 and proximity to public transport,1970s premises inreasonable condition and fully occupied suitable for B1 local needs,within High Town Strategic Allocation (Policy LLP10) involvingsustainable residential -led mixed use including small scaleoffices/workshops.

0.1 ha Plant hire site on edge of town centre with limited local roadaccess as access to Hitchin Road is restricted resulting in circuitous

York Street (2)


route via Taylor Street and Brunswick Street. Contains 1970s buildingsin reasonable condition and open storage within employment clusterand largely occupied. B1-B8.


LutonLocalPlan

(2011-2031)Novem

ber2017

134

Appendix 4 Housing Allocations

Potential capacity in dwellings as of April 2016

Potential Capacity(#dwellings)Site Name

77Guardian Industrial Estate

48Oxen Industrial Estate, Oxen Road

181Land at Caleb Close

41Car Parks on Dunstable Place

39Car Park off Telford Way

32Dalroad Industrial Estate

5969 Felstead Way

41The Windsor Castle, 12 Albert Road

0 (site developedprior to adoption)14 Cardiff Road

3027-37 Chapel Street

3921-25 Chapel Street

12413-31 Dunstable Road

168Land opposite Whitbread House,Flowers Way

59Luton Town Football Club,Kenilworth Road1

0 (site developedprior to adoption)Midland House, 41 King Street

80Crescent House, 1-5 Latimer Road

0 (site developedprior to adoption)

Land & buildings at Castle Street/Oxford Road and Park Viaduct

392Land to the west of Newlands Road

56Land at Stockingstone Road2

14The Laurels, Ely Way

0 (site developedprior to adoption)

Westlea Old Peoples Home, 121High Street

2627A Upper George Street


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

135

8840-58 Collingdon Street

49Car park adjacent to 95 Maple RoadEast

51Bramingham Centre, Weltmore Road

152 to 32 Beechwood Road

2410 to 12 Caleb Close

0 (site developedprior to adoption)146 to 158 Park Street

96Whitbread House, Flowers Way

27Land at the Orchard Centre,Strangers Way3

101Unity House, 111 Stuart Street

1538a Wingate Road

0 (site developedprior to adoption)26-30 Cardiff Road

0 (site developedprior to adoption)Wesley House, 19 Chapel Street

294Britannia Estate4

Footnotes:

1. Luton Town Football Club, Kenilworth Road - in addition to the new housing, around7,500 sq. m. of public open space to help address the shortfall in provision in the locality,including play facilities, will be provided. Development will not commence until LutonTown Football Club has relocated to a new site.

2. Land at Stockingstone Road- The indoor bowls facility, outdoor bowls facility and ancillaryparking provision should be retained or replaced within the allocation site with equivalentor better provision in terms of quantity and quality as part of the redevelopment of thesite. Alternatively, these facilities would need to be replaced off-site with equivalent orbetter provision in terms of quantity and quality in a suitable location capable of servingexisting users. Provision will need to be made for the bowls clubs to be given acceptablesecurity of use and for any replacement facility to be completed and operational prior tothe development of new housing commencing on the site.

3. Land at the Orchard Centre, Strangers Way - prior to the new housing being developed,the playing fields must be re-provided (or equivalent enhancements made to existingfacilities) elsewhere in the borough.

4. Britannia Estate – the allocation allows for housing on a part of Britannia Estate and thebalance of the site will remain in employment use.


LutonLocalPlan

(2011-2031)Novem

ber2017

136

Appendix 5 HousingTrajectory

Figure 1: Luton Local Plan 2011–2031 Housing Trajectory

Notes:1: PLAN (red line) – this is the plan requirement of 8,500 divided by the 20 years of the planperiod 2011-31 = 425/year2: MANAGE (black line) – this shows the annual requirement from 2016-2021 to recover theshortfall of 98 specifically from the period 2011-2016. This was calculated as follows: the 5year requirement 2011-16 is 425 x 5 = 2125. In this period there were 2,027 completionsleaving a shortfall of 98. The intention is to recover this in the next 5 years: 2125 plus 98 =2223 divided by 5 = 445/year3: For the purposes of calculating housing land supply, the Five-Year Requirement will besubject to the addition of a buffer for choice and flexibility. Addition of the buffer shown onthe trajectory above is calculated as follows:- for 2016-21: 2223 plus 5% = 2334 divided by 5 = 467/year- from then on 425/year plus an assumed buffer of 5% = 446/year

Appendix 5 Housing Trajectory

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

137

The application of a 5% buffer within these calculations is based on the position at the timeof the 2016 SHLAA. Table 1 of Appendix 5 (see below) indicates that Luton Borough Councildid not have a record of persistent under-delivery at the point the Local Plan was adopted.The size of the buffer will be reviewed each year. The buffer is dependent on circumstancesso is not fixed over the plan period.4: The detailed schedule of sites informing this housing trajectory is provided by the LutonStrategic Housing Land Availability Assessment – July 2016. The trajectory will be updatedbased on the latest monitoring information and reported in subsequent versions of the StrategicHousing Land Availability Assessment and the Authorities Monitoring Report (AMR).

Table 1: Record of Historic Dwelling Delivery against Relevant Housing Targets for thePeriod 2001 to 2016

Appendix 5 Housing Trajectory

LutonLocalPlan

(2011-2031)Novem

ber2017

138

Appendix 6 External Amenity Space Standards

External Amenity Space Standards

For flatted developments a minimum of 5sq.m. of private outdoor space should be providedfor 1-2 person flats and maisonettes and an extra 1sq.m. should be provided for eachadditional occupant.

Private outdoor spaces should have level access from the home.

The minimum depth and width of all balconies should be 1500mm.

Where private outdoor space is not achievable due to plot size or character this should beprovided in the form of communal amenity space, grassed or hard surfaced with somelandscaping.

For new dwellinghouses provision of an enclosed rear garden of 90sq.m. should be madeother than units of 1-2 bedrooms where a lesser area will be considered. Smaller enclosurescould also be acceptable, having regard to the character of the area and design of thehouse, in any event the area shall not be smaller than 45 sqm.

Dividing walls or fences between individual house plots shall be of a solid form ofconstruction and of a height not less than 1.8m for a distance of not less than 4.6m fromthe main rear wall of the dwelling.

NOTE: Flat occupiers generally do not seek or expect the same level of garden amenityspace as house dwellers. Nevertheless, an enclosed area of communal amenity/play spaceshould normally be provided where feasible.

Appendix 6 External Amenity Space Standards

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

139

Appendix 7 TransportAssessments, TransportStatements and Travel Plans

1 This appendix sets out the thresholdsand information requirements fordevelopments requiring TransportAssessments or Transport Statementstogether with statements and Travel Plans.

2 Developers and applicants will need toagree in advance with the relevant HighwaysAuthorities (including Highways England ifrequired), the scope, content and standardof any Transport Statement or TransportAssessment that is to be submitted in supportof any planning application.

Transport Assessments

3 Developers will be required to submitTransport Assessments and identifymitigation measures relating to newproposals and re-development schemes ifthe proposed development meets any of thefollowing criteria:-

i. non-residential developments of 500square meters and above;

ii. residential developments of 50 unitsand above;

iii. any development likely to generate 100or more vehicle movements per day;

iv. non-residential development likely toemploy 100 or more people;

v. any activity likely to generate 10 ormore deliveries per day;

vi. any development, irrespective of scale,likely to generate trips at peak times incongested areas;

vii. any development likely to generatetrips at night in residential and/or othersensitive areas;

viii. any development likely to rely onunsafe access;

ix. any development likely to adverselyaffect the urban fabric, for example byrequiring access in a conservation area;and

x. any development having an impact ontraffic flows on trunk roads.

4 Transport Assessments should includethe following information:

a description and analysis of theexisting transport conditions;

details of the expected (economic,environmental and social) impact of theproposed development on the localtransportation system;

a Travel Plan detailing the proposedapproach to mitigate the expectedimpact of the proposed developmenton the local transportation system;

details of existing and proposedjourneys to and from the proposeddevelopment site by all modes oftransport (both vehicular andpedestrian);

a construction management plan; and

details of proposed loading areas,arrangements for manoeuvring,servicing and parking should crossreference any scale drawings and plans.

Transport Statements

5 Transport Statements are required fordevelopments that fall below the criteriathresholds for Transport Assessments butwhich do have transport implications for thelocal or strategic road network. The needfor Transport Statement may be determinedthrough pre application discussions orsubsequent Development Managementconsultations.

6 Transport Statements will contain similarinformation to that required for TransportAssessments but relevant and proportionateto the nature and scale of the development,sufficient to assess its transport impacts, anyrequired mitigation measures andarrangements to implement that mitigation.

Travel Plans

7 Travel Plans contain a package ofmeasures to encourage the use ofalternatives to single-occupancy car-use. ATravel Plan can offer real benefits, not only

Appendix 7 Transport Assessments, Transport Statements and TravelPlans

LutonLocalPlan

(2011-2031)Novem

ber2017

140

to the organisation and its employees, butalso the community and environment thatsurrounds it. Typically, the plan will includeinitiatives such as car sharing, car clubs,discounted public transport tickets, cycleparking or a personalised plan for thejourney. Travel Plans will be specific to thelocation and should take into account thenature of the business, existing travelbehaviour and the types of journey thatoccupiers make.

8 Developers will be required to submitTravel Plans with planning applications fordevelopment where the proposeddevelopment meets any of the followingcriteria:

i. retail, community and leisure facilitiesin excess of 1,000sq.m. grossfloorspace;

ii. offices and other B1 uses in excess of2,500sq.m. gross floorspace;

iii. sports stadia or other facilities with1,500 or more seats or people capacity;

iv. smaller developments comprisingemployment, shopping, leisure,community and service activities thatwould generate significant amounts oftravel in, or near to, locations wherethe borough council has adoptedspecific local initiatives and targets forthe reduction of road traffic, of thepromotion of public transport, wakingand cycling;

v. new and expanded school facilities thatwould be accompanied by a SchoolTravel Plan which promotes safe cycleand walking routes, restricts parkingand car access at and around theschool, and includes on-site changingand cycle storage facilities; and

vi. where a Travel Plan would help toaddress a particular local trafficproblem associated with a planningapplication, which might otherwise haveto be refused on local traffic grounds.

9 Travel Plans should include the followinginformation:

Benchmark travel data including tripgeneration databases.

Information concerning the nature ofthe proposed development and theforecast level of trips by all modes oftransport likely to be associated withthe development.Relevant information about existingtravel habits in the surrounding area.Proposals to reduce the need for travelto and from the site via all modes oftransport including enhancing the useof existing, new and improved publictransport services and facilities forcycling and walking by users of thedevelopment and by the widercommunity (including possible financialincentives).

10 Travel Plans may also require, whereappropriate, parking strategy options havingregard to parking standards.

11 Travel Plans will also specificallyrequire developers to demonstrate:

i. that adequate arrangements have beenmade for the implementation andmonitoring of the Travel Plan havingregard to the benchmarking data; and

ii. how the occupiers of the developmentwill comply with these arrangements.

Appendix 7 Transport Assessments, Transport Statements and TravelPlans

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

141

Appendix 8 MonitoringFramework

ActionReportedwithin

Indicator/sTargetPolicyObjectives

Open Space and Natural Environment

Review policy withinterim position of 0%loss.

AMREvery 2years

Net area of land identified asor potentially of tier 1importance by Natural Englandlost = <5% from 2011.

Prevent changeto nationallydesignated sitesof biodiversity or

LLP28,29

SAObjectives1 and 10Also PlanPolicies geological

interestLLP1, 3 - 5and 9


AMREvery 2years

Net area of land of national orlocal landscape value lost = <5% from 2011.

Prevent changeto the area ofnational and locallandscape areas

LLP29SAObjectives2 and 10


AMREvery 2years

Area of sites with uniquehabitat by type within theBorough lost = 0%.No more than 5% of CWS orDWS land by area to be lostfrom 2011.

Manage change tothe total area oflocallydesignated sites

LLP28,29

SAObjectives1 and 10Also PlanPoliciesLLP1, 3 - 5and 9

Revise and strengthenpolicy if loss is anythingother than exceptional.

AMREvery 2years

Net area of land of open spaceor non-designated naturalgreenspace lost from existingsites without replacement =0%.A positive net gain on sitewithin the followingallocations: Napier Park, HighTown (all areas), CreativeQuarter.

Manage loss ofopen space andnon-designatednaturalgreenspace

LLP8,10, 11,27

SAObjectives2 and 10

N/AAMREvery 5years

Net reduction in the length ofthe River Lea running throughculverts within the TownCentre.

Enhance theRiver Lea

LLP3SAObjective 2and 10

Housing Provision

Develop monitoring ofdelivery against thedemand for Council

AMRAnnually

Net additional dwellingscompleted between 2011 –2031 = 8,500

Ensuring newhousing meetsthe needs of the

LLP15StrategicObjectives2 and 3

Housing in Luton, takenBorough in termsfrom the waiting list asat 1st April 2014, is asfollows:

of net gain, mixof type, size andtenure

1 Bedroom 2387

Appendix 8 Monitoring Framework

LutonLocalPlan

(2011-2031)Novem

ber2017

142



2 Bedroom 2791

3 Bedroom 1204

3 + Bedroom 234

In addition, there were966 families intemporaryaccommodation.

If the mix reportedwithin the AMR

AMRAnnually

Sites to deliver a mix of housetypes and sizes in line with thatrecommended by the mostrecent housing marketassessment.The mix to be assessed againstcompletions and the 5-yearsupply (% by type) and planperiod (total number).

LLP15StrategicObjectives2 and 3 completions/

projections pointtowards an oversupplyof one or more typesthen refuse permissionfor similar elementswithin new or refreshedschemes. Where thereis under supply in anySee Appendix 5 for

methodology for calculation ofthe 5-year supply.

type or size we willwork to encouragedevelopers towards therequired mix.

Refuse permission forschemes yielding lessthan 20% when the

AMRAnnually

Either 20% on-site provision orequivalent financialcontribution for off-siteprovision for all qualifyingsites.

Ensuring newhousing meetsthe needs of theBorough in termsof net gain, mix


number of permittedschemes within the 5year supply failing thetarget exceeds 10%.

of type, size andtenure

Evidence of improvedviability will trigger arefresh of housingpolicy. An interimprovision of 25% will besought pending anyreview.

If mix reported withinthe AMR completions/projections point

Affordable element to delivera mix of house types and sizesin line with that recommended

StrategicObjectives2 and 3

towards an oversupplyby the current housing marketof one or more typesassessment. The mix to bethen refuse permissionassessed against the 5-year

supply (% by type) and planperiod (total number).

for that element of ascheme. Where there isunder supply in any typeor size we will work toencourage developerstowards the requiredmix.


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

143



Through the Duty toCooperate

AMRannually

(1) Provision made withinneighbouring local plans tomeet Luton’s housing shortfall.

9,300 dwellings2011-31

LLP2StrategicObjective 3

(2) Record of activity under theDuty to Co-operate.


AMRannually

Analysis of allocated sites tomeasure:



(1) distance to Luton’sadministrative boundary.

(2) whether the site has publictransport accessibility to Lutonby a direct service that has afrequency of two services perhour.


AMRRecord No of affordable homesto meet Luton’s unmet needs



Luton's Economy

N/AAMRAnnually

Net land lost from keyemployment areas safeguardedfor B class uses or smaller

Retain Luton’srole as a placefor economic

LLP1,2, 13,14

StrategicObjectives1, 2 and 6

unidentified B use employmentprior to equivalent gain onallocated sites = 0%.

growth andopportunity;utilise Luton’sresourcesefficiently andsustainably; takepriority measuresto reduceunemployment,improve skills andeducation.

Net loss of employmentland should trigger arefresh of the ELR and apolicy review.

AMRAnnually

Net land lost from keyemployment areas safeguardedfor B class uses or smallerunidentified B use employmentwill not be greater than netland gained throughdevelopment.Measure through annualisedtarget the gain of 8,000 B-classjobs and 10,000 non-B classjobs.

N/AAmount of land identified forB class uses lost from strategicallocations = 0%.Warehousing floorspace over500sq.m. delivered away fromthe preferred locations andexception site = 0%.


LutonLocalPlan

(2011-2031)Novem

ber2017

144



Historic Environment

N/AAMREvery 2years

Heritage assets lost throughdevelopment = 0%.Heritage assets at risk = 0.Up to date schedules of Luton’sDesignated Heritage Assets andlocally listed heritage assets.

To improve thebuilt and naturalenvironment todeliver qualityplaces


Sustainable Transport

N/AAMRAnnually

Land safeguarded for strategicinfrastructure lost toalternative development = 0%.

Ensure anintegrated, safe,accessible and

LLP31StrategicObjectives1, 4 and 8

more sustainabletransport system.

Failure to consistentlyachieve this shouldtrigger a review basedon each centre.

Density of housing within thetown centre, neighbourhoodand district centre boundariesto be 75dph or 50% greater

LLP3,15, 31

than that surrounding thecentre (to 300m or 5 minutewalking distance of the centreboundary).

If no net gain in cycleroutes results after 5years then review policyto guarantee provisionon safeguarded routes.

Length of new cycle routesadopted.

If the threshold isexceeded in any yearthen review policy withstarting point of totalcompliance.

AMRAnnually

Developments complying withthe maximum car parkingstandards = 95% of schemes.

Ensure aproportionatenumber of carparking spaces tosupport the


growth of thetown

Climate Change

Review policy if targetexceeded

AMRAnnually

N o . o f p r o p o s a l sunaccompanied by greenfieldrun-off rate SuDS = <1% perannum.

Minimise the riskand impact offlooding


Review policy if no. ofdwellings permitted isabove 0.

No. Of dwellings permitted inFlood Zones 2 or 3 = 0%.

Review policy if notconsistently deliveredthrough planningconditions.

AMREvery 2years

Kilowatt-hours of energydesigned for use withindevelopments.

Adaptation toand mitigation ofclimate change


Town Centres


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

145



Strengthen policy. Forlocal shopping paradesundertake regularviability and vacancysurveys.

AMREvery 2years

Amount of non-A1 retailfrontage at ground floor levelin primary Town Centre andDistrict, Neighbourhood andsmall shopping paradefrontages to be no greater than10, 25 and 50% respectively.

Establish aneffective networkof town centresto serve as theheart of localcommunities


N/ARetail floorspace developedoutside existing town centres= 0%.

Health

Action – refer to airquality monitoringreports. Review policy

AQMAs recording pollution inexcess of air quality objectives= 0.No. of applications permittedagainst advice of EnvironmentalProtection Team = 0.

Safeguarding andimproving AirQuality


if any application ispermitted against EPTadvice.

Education

If not achieved reviewpolicy; check forsignificant effects

AMRAnnually

Pending the review of alleducation facilities a Primaryand Secondary to be built onand south of the Brache by2020.

Provide for thecapacity requiredfor primary andsecondaryeducation


against other planpolicies andborough-widestrategies.


LutonLocalPlan

(2011-2031)Novem

ber2017

146

Appendix 9 Replaced Minerals and Waste Policies

The following policies from the Bedfordshire and Luton Minerals and Waste Local Plan (2005)have been replaced by the Luton Local Plan (2011-2031).

Replacement PolicyTopicMinerals andWaste Policy

LLP37Waste minimisationW4

LLP37Management of wastes at source: waste auditsW5

LLP1Safeguarding existing sitesW22

LLP1, LLP31, LLP33,LLP37, LLP38

Matters to be addressed in planning applicationsGE1

LLP4Protection of green belt landGE5

LLP29Protection of the Chilterns Area of OutstandingNatural Beauty

GE7

LLP29Protection of areas of great landscape valueGE8

LLP29Landscape protection and landscapingGE9

LLP28Protection / enhancement of trees and woodlandGE10

LLP28Protection of sites of national natureconservation importance

GE11

LLP28, LLP29Protection of sites of nature, geological/geomorphological and conservation interest

GE12

LLP28Species and habitat protection and enhancementGE13

LLP30ArchaeologyGE14

LLP30Statutorily designated historic buildings and sitesGE15

LLP30Local historic buildings, conservation areas andhistoric environment sites

GE16

LLP38Pollution controlGE17

LLP38DisturbanceGE18

LLP36FloodingGE19

LLP38Water resourcesGE20

LLP29Public rights of wayGE21

LLP33Transport: alternative meansGE22

LLP31Transport: suitability of local road networkGE23


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

147

Replacement PolicyTopicMinerals andWaste Policy

LLP1, LLP38Buffer zonesGE25

The following policies from the Bedfordshire and Luton Minerals and Waste Local Plan (2005)are not being replaced by the Luton Local Pan (2011-2031) as they are not relevant to theborough.

ReasonTopicMineralsand WastePolicy

No new landfill schemes are identified forLuton during the plan period

Landfill gasW16

Applies to the disposal of waste (landfill) ofwhich no new schemes are identified forLuton during the plan period

Land raising*W17

Outside the boroughRestoration / improvement ofMarston Vale

GE2

Outside the boroughEnvironmental Improvementof the Greensand Trust area

GE3

Outside the boroughEnvironmental improvementof Ivel and Ouse Valleys (The

GE4

Ivel and Ouse CountrysideProject)

There are no plans to protect agriculturalland within the borough (other than where

Protection of best and mostversatile agricultural land.

GE6

covered by environmental designations orother policy concerns)

Relates more to environmental impact frommajor minerals and waste activities, of which

Ancillary minerals and wastedevelopments**

GE24

no new or expanded facilities are identifiedfor Luton during the plan period

No mineral extraction or waste landfill sitesproposed within the borough

RestorationGE26

No mineral extraction or waste landfill sitesproposed within the borough

AftercareGE27

Footnotes:*Proposals that include land-raising (with or without the use of waste material) will bedetermined in-line with the policies of this plan and with consideration to site-specific andexceptional circumstances.** This ensures that development required in connection with a mineral or waste managementsite is limited to the duration of the main working and that restoration is carried out. If awaste site ceases operations in Luton, the site is likely to be redeveloped for other uses andthis policy is considered unnecessary.


LutonLocalPlan

(2011-2031)Novem

ber2017

148

Appendix 10 TechnicalEvidence Studies

List of key technical evidence studiesinforming this plan

Airport Surface Access Strategy,2012-2017, London Luton AirportAir Quality: LBC maintains a number ofAir Quality Monitoring documents,monitoring results across the boroughas required by the Environment Act1995. This evidence base includes thedeclaration paperwork of AQMAs.

Archaeological Assessment of StrategicHousing Land Availability Assessment(SHLAA) and Potential EmploymentSites, October 2013, Archaeology Team,Central Bedfordshire Council

Bedfordshire and Luton StrategicHousing Market Assessment, March2010, SavillsBiodiversity Recording and MonitoringCentre (BRMC): please visit the BRMCwebsite for information on biodiversityin Luton and BedfordshireCABE Workshop, 10th May 2012Central Bedfordshire and Luton HistoricEnvironment Record and Archaeology.Database maintained on behalf of bothauthorities and accessible from CentralBedfordshire Council's websiteChilterns AONB Management Plan2014-2019, A Framework for Action, TheChilterns Conservation BoardChilterns Building Design Guide, 2010,The Chilterns Conservation BoardEast of England Forecasting Model 'LutonRun' (June 2012) Oxford EconomicsEast of England Plan, The Revision tothe Regional Spatial Strategy for theEast of England, May 2008, GovernmentOffice for the East of England. NB: TheRegional Spatial Strategy was revokedin January 2013Employment Land Review and TownCentre office business re-use study (May2013) Peter Brett AssociatesEmployment Land Review Study, FinalReport, March 2013, Nathaniel Lichfield& Partners

Green Belt Review, Critical FriendAssessment, POSe, November 2013A Green Infrastructure Plan for Luton,March 2015, The Greensand TrustGreenspace Strategy Review, June2014, The Greensand TrustGypsy and Traveller and TravellingShowman Accommodation NeedsAssessments, 2013, ORSGypsy and Traveller and TravellingShowman Accommodation NeedsAssessments, 2015, ORSGypsy and traveller and TravellingShowman Accommodation NeedsAssessment – Addendum to 2015 FinalReport – January 2016 - ORSGypsy and Travellers Sites, SiteIdentification Study, September 2015,Peter Brett AssociatesThe Hat industry of Luton and itsBuildings, October 2013, EnglishHeritageA Healthier Future, Improving Healthand Wellbeing in Luton 2012 - 2017,Luton Borough Council and LutonClinical Commissioning GroupHigh Town East Village Design Codes,2009, Luton Borough CouncilIndoor Sports facilities Strategy andAction Plan 2105-2012, Final Strategy,January 2015, Knight, Kavanagh andPageInfrastructure Delivery Plan, October2015, Luton Borough CouncilLandscape Character Assessments, 2014,Greensand TrustLBC Affordable Housing on Small Sites:Viability of Commuted Sums - May 2016,3 DragonsLeisure Study, July 2015, White YoungGreenLevel 1 Strategic Flood Risk Assessment,February 2013, Capita SymondsLondon Luton Airport, RevisedMasterplan, September 2012, LondonLuton Airport Operations LimitedLuton and Central BedfordshireStrategic Housing Market AssessmentRefresh, 2014, ORSLuton and Central BedfordshireStrategic Housing Market Assessment,2015, ORS

Appendix 10 Technical Evidence Studies

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

149

Luton and Central Bedfordshire SubRegion Strategic Housing MarketAssessment, 2012 Update, SavillsLuton Borough Council AffordableHousing Viability Study, April 2013,Three DragonsLuton Borough Council, Prospectus 2013-2016Luton Borough Council, Corporate Plan2014-2017Luton Development Plan, JunctionMitigation Assessment, June 2015,AECOMLuton ELR - 2015 Employment SiteAssessments (August 2015) NathanielLichfield & PartnersLuton Green Belt Study, September2014, David Hares LandscapeArchitectureLuton Habitat Survey and NatureConservation Strategy update, March2014, BMRC /Wildlife TrustLuton High Town Master Plan,Supplementary Planning Document(2016)Luton Hotel Study (July 2015) WhiteYoung GreenLuton Housing Market Area Study, 2015,ORSLuton Local Landscape DesignationAppendices 1-3, 2014Luton Local Plan Junction Assessment,Technical Note, July 2014, AECOMLuton Local Plan: Initial TransportEvidence Base (SATURN Model)November 2013Luton Local Plan: Viability AssessmentUpdate, Executive Summary, October2013, Nationwide CIL ServiceLuton Local Plan - 2015 Pre-submissiontransport evidence - April 2016Luton Local Transport Plan, 2011-2026,March 2011, Luton Borough CouncilLuton Playing Pitch Strategy, 2014-2021,Knight, Kavanagh and Page (includingDeveloper Contributions SupplementaryReport)Luton Rights of Way Improvement Plan:Luton's Great Outdoors, July 2008,Catherine Bickmore AssociatesLuton Strategic Flood Risk AssessmentMaps Part 1

Luton Strategic Flood Risk AssessmentMaps Part 2Luton Town Centre DevelopmentFramework, December 2004, LutonBorough CouncilLuton Town Centre Surveys, 2012, BMG,Luton Borough CouncilLuton Water Cycle Strategy, September2015, Capita/AECOMLuton’s Joint Strategic NeedsAssessment, 2015, Luton BoroughCouncil and Luton ClinicalCommissioning GroupLuton's Investment Framework.2015-2035, Live Draft, Luton BoroughCouncilLuton Local Flood Risk ManagementStrategy, 2015, Luton Borough CouncilLuton Local Plan: Viability Assessment, Executive Summary, November 2013,Nationwide CIL ServiceManaging Waste in New Developments,Supplementary Planning Document,Bedfordshire and Luton Waste LocalPlan 2005, April 2006, Luton BoroughCouncil and Bedfordshire County CouncilThe Milton Keynes and South MidlandsSub-Regional Strategy, March 2005,Government Offices for East of England,East Midlands and South East of EnglandMonitoring Report, December 2012,Luton Borough CouncilNature Conservation Strategy for Luton,1992Noise Action Plan, 2013-2018, August2014, London Luton AirportOur Vision for Luton in 2026, Luton’sSustainable Communities Strategy, 2008Parking and Enforcement Plan, 2013,Luton Borough CouncilPlaiters’ Lea Conservation Area, LutonHistoric Area Assessment, June 2011,English HeritageProposed Local Landscape Designationsfor Luton, June 2014, The GreensandTrustRebuilding Biodiversity in Bedfordshire& Luton, Volume II: BiodiversityCharacterisation, January 2007,Bedfordshire and Luton BiodiversityPartnershipRebuilding Biodiversity in Bedfordshire& Luton, Volume I, October 2006,


LutonLocalPlan

(2011-2031)Novem

ber2017

150

Bedfordshire and Luton BiodiversityPartnershipSouth East Midlands LEP TransportStrategy, March 2014, WYGStrategic Economic Plan 2015-2020,April 2014, SEMLEPStrategic Housing Land AvailabilityAssessment (SHLAA), April 2014, LutonBorough CouncilStrategic Housing Land AvailabilityAssessment (SHLAA), April 2015, LutonBorough CouncilStrategic Housing Land AvailabilityAssessment (SHLAA), April 2016, LutonBorough CouncilSurface Water Management Plan, 2012,Luton Borough CouncilSustainability Appraisal, 2014, UrbanEdgeSustainability Appraisal of the LutonLocal Plan, Sustainability Report on theProposed Submission Local Plan,September 2015, Urban EdgeSustainable Travel Plan, 2011-2015,Luton Borough CouncilThames River Basin Management Plan,2009, Department for Environment,Food & Rural Affairs and EnvironmentAgencyUrban Panel Review Paper, CABE,October 2009


LutonLocalP

lan(201

1-20

31)Novem

ber20

17

151

Appendix 11 GreenspaceStandards

QuantitativeStandard

CurrentSurplus/deficit

(+-) (Ha)

CurrentProvision

(Ha)

CurrentRequirement

2011

(Ha)

Population205,300

Typology ofGreenspace

4m2 /person-28.0454.182.1AmenityGreenspace

8.5m2 /person-21.6152.9174.5District UrbanPark & Gardens

7.5m2 /person-51.08102.2154.0NeighbourhoodUrban Parks &Gardens

5.5m2 /person-112.90112.9Strategic Natural& Semi-NaturalGreenspace

4.5m2 /person-41.251.292.4District Natural &Semi-NaturalGreenspace

11.5m2 /person-88.6147.5236.1Local Natural &Semi-NaturalGreenspace

2m2 /person-8.432.641.1Allotments

--8.4-Green Corridors*

--27.4-Churchyards &Cemeteries*

--6.2-Small AmenityGreenspace ofLocal Importance*

Footnote:* for these typologies the Greenspace Strategy has not set minimum standards, hencecalculations about current and future requirements are not shown. The calculated deficitor surplus will vary over time depending on growth in housing capacity within the boroughand resulting population, losses and gains in green space with enhancement and developmentsand so should not be regarded as fixed but will be calculated according to the circumstancesthat prevail at the time.

Appendix 11 Greenspace Standards

LutonLocalPlan

(2011-2031)Novem

ber2017

152

Where the standards cannot be provided on-site, an equivalent off-site or financial contributionwill be sought. The supplementary 'Developer Contributions' report for outdoor playing spacerequirements, should provide guidance on the standards applying to outdoor sport.

Appendix 11 Greenspace Standards

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

153

Appendix 12 Luton Green Infrastructure Network

Appendix 12 Luton Green Infrastructure Network

LutonLocalPlan

(2011-2031)Novem

ber2017

154

LutonLocalP

lan(201

1-20

31)Novem

ber20

17

155

Appendix 13 Map ShowingLuton Enterprise Zone

Appendix 13 Map Showing Luton Enterprise Zone

LutonLocalPlan

(2011-2031)Novem

ber2017

156