1.STRATEGIC OVERVIEW

1.1 LAND USE PLANNING POLICY

Introduction and the National Planning Policy Context

1.1.1  The land use planning system has a vital role to play in ensuring that land and other resources are used in a more sustainable way.  It does this by integrating economic, environmental and social considerations in decisions over the location of development, in order to establish sustainable practices.  This involves providing for development needs whilst respecting environmental objectives; being prudent in the use of resources, including land, and ensuring a safe and sustainable transport system which maximises accessibility to all sectors of society.  It also means creating a pattern of development which reduces the need to travel and, where travel is necessary, ensuring that there is a choice of modes as alternatives to the private car.  Government policy gives emphasis to the containment of the dispersal of development, the re-use of previously developed land, and the achievement of an accessible and safe transport system which gives priority to modes other than the private car.  In recognition of this, it has introduced a series of sequential tests in relation to retailing, leisure, and, more recently, housing development, to ensure that priority is given to development in town centres and other accessible locations which already have or can easily be provided with public transport.

1.1.2  This is re-iterated in the revision to Planning Policy Guidance Note 13 on Transport which was issued for consultation in October 1999.  It aims to ensure better integration between planning and transport in order to promote more sustainable transport choices and reduce the need to travel, especially by car.  The draft stresses the role that planning and transport can play in achieving social inclusion by ensuring that development is located on sites which are (or will be) highly accessible by non-car modes, and avoiding the dispersal of development. The draft revision of Planning Policy Guidance Note 3, Housing, will also have an impact upon the design of new developments, in that proximity to public transport corridors will assume greater importance, and the allocation of parking spaces per dwelling may be significantly reduced in relation to current provision.

Regional Planning Policy Context

1.1.3  Draft Regional Planning Guidance for the North East was submitted to the Secretary of State for the Environment, Transport and the Regions in December 1999, and will be considered at a Public Examination in Summer 2000. The draft Guidance reflects this national framework; its aims are to strengthen and diversify the area's economy, improve living conditions, and safeguard its cultural and natural heritage, to create a truly sustainable future.  To achieve this, it sets out a strategy for securing sustainable development patterns.  This is based on achieving a balanced mix of land use in locations which reduce the need to travel, and makes best use of an improved public transport network.  This would provide a range of local facilities and services easily accessible on foot and by cycle, and reduce the need for medium to long distance commuting.  The guidance concludes that the most sustainable locations for new development will be the two main conurbations of Tyne and Wear and Teesside, with significant but smaller scale developments in the Region’s main towns serving regeneration areas and the main rural centres.

1.1.4  The draft guidance sets out a regional transport strategy which provides the context for LTP’s.  At the sub-regional and local level, the strategy in the draft guidance is one of integrating land use and transport planning in order to reduce the need to travel, and to encourage greater use of public transport, cycling and walking instead of the private car for many journeys.  In particular the strategy stresses the potential for introducing passenger services on the rail line between Ashington and Tyneside identifies the importance of public transport for rural areas and identifies the need to ensure the effectiveness of the main inter-regional road links, including the A1 Tyneside to Scotland and the A69 (including a full appraisal of the Haydon Bridge bypass).  It has not been possible to include public transport accessibility criteria for regionally and sub-regionally important development, and guidance on standards for off-street car parking provision at this stage.  More work is required on these aspects of the strategy, and they will be considered in an early review of Regional Planning Guidance, along with the results of a number of studies including the Tyneside Area Multi Modal Study and the capacity of the East Coast Main Line.

County Planning Policy

1.1.5 The development strategy for Northumberland is contained within the Joint Structure Plan.  The Structure Plan has the twin aims of strengthening and diversifying the County's economy, and of preserving and enhancing its environment.  Both of these factors will contribute to the provision of a high quality of life for the County's residents and visitors.  The achievement of these aims will inevitably lead to a certain amount of conflict.  The strategy is therefore based on achieving a balance between the two, by providing for development that is required in such a way as to preserve environmental quality.  This is achieved through the establishment of a settlement strategy, which guides future development.   

1.1.6  The settlements in the County have developed different roles. The Joint Structure Plan identifies twelve main towns which provide a range of shopping, community and employment facilities to a wide catchment.  These towns are Alnwick, Amble, Ashington, Bedlington, Berwick upon Tweed, Blyth, Cramlington, Haltwhistle, Hexham, Morpeth, Ponteland and Prudhoe.   There are eleven smaller centres within the catchment of these larger towns which have developed as local service centres - Allendale, Belford, Bellingham, Hadston, Haydon Bridge, Rothbury, Seahouses, Widdrington Station, Wooler, Corbridge and Seaton Delaval.  Beyond this is a range of villages which contain more limited local facilities. To ensure this settlement hierarchy is maintained, the Structure Plan aims to ensure that the majority of development, redevelopment and serviceprovision is focused on the twelve main towns, and to a lesser extent the eleven secondary centres.  Beyond this, only limited development in smaller villages and settlements is encouraged where it will help to sustain local communities.  The scale of development appropriate insettlements will have to respect their character. This strategy assists regeneration, facilitates the protection and enhancement of the environment, protects the open countryside, makes the best use of existing infrastructure and services, thereby contributing to their retention, helps reducethe need to travel and affords opportunities to make journeys by means other than the private car.

FIGURE 1 MAIN CENTRES OF POPULATION IN NORTHUMBERLAND

1.1.7  The County Structure Plan is currently being reviewed in the light of revised national planning policy guidance and the preparation of new Regional Planning Guidance.  The existing plan is however largely consistent with the sustainable development principles set out in the new and emerging guidance, therefore the review is likely to update and to roll forward policies and proposals, rather than to change the overall strategic approach. 

Integration of Land Use Planning and Transport

1.1.8  Transport and land use issues are interrelated and it is important that they are viewed in an integrated way.  For example, focusing development on existing settlements assists in reducing the need to travel, whilst helping to maintain and develop public transport services and facilitating other alternatives to the car such as cycling and walking.  The provision of a safe and efficient transport system will both contribute to the achievement of a sustainable development strategy and the protection of the environment.    

1.1.9  The transport implications of new developments need to be considered as an integral part of the planning process.  This will be achieved to a large extent through the policies guiding development in the Structure and Local Plans.  These plans give priority to development in locations which are or can be well served by a choice of transport modes for both passengers and freight, giving particular priority to those locations which are well served by the public transport network, or which will assist in its provision.  This is especially important for residents in those parts of the County where car ownership is low, as it will secure greater access to employment, shopping, leisure, and other facilities and services.  

1.1.10  The land use strategy allows for adequate provision to be made for the County's development needs.  This is an important factor in addressing the social and economic regeneration required in certain parts of the County, notably the former coalfield area. It is also an important factor in addressing the issue of commuting to Tyneside for work and leisure purposes, much of which is currently done by car. Providing for better employment opportunities within the County can help reduce the need to commute, and so reduce the number and length of journeys.  A certain amount of commuting is, however, inevitable.  To minimise the impacts of this, it is important to ensure that major new development in areas close to Tyneside is located in towns from which it is possible to maintain and enhance public transport services to the conurbation.

FIGURE 2 NORTHUMBERLAND’S TRANSPORT    INFRASTRUCTURE

1.2 NORTHUMBERLAND’S PROBLEMS AND   OPPORTUNITIES

1.2.1  Northumberland can appear to be a prosperous rural county.  However, this perception masks areas of significant deprivation in both the urban south east and rural areas. Levels of economic activity, unemployment, access to transport, and other indicators highlight levels of deprivation often found in larger urban areas. This section gives more details of the problems and opportunities which the LTP will address.

1.2.2  Northumberland’s problems include:

 (a) Long-standing levels of unemployment leading to social exclusion. (see Figure 4).

Although the number of people out of work has fallen since the very high levels of the 1980s, the County figure remains above the national average, and there are pockets of particularly high unemployment in the south east of the County.  In April 2000, the County unemployment rate was 5.7%, compared to the national average of 3.8%. The area with the highest level of unemployment was Wansbeck district, with a rate of 11.6%.  Of those registered as unemployed in the County, 27% had been without work for 12 months or more, and 18% for 24 months or more.  Youth unemployment and long-term unemployment are of particular concern, and a comprehensive regeneration programme is under way in partnership with District Councils, One NorthEast and others, to enable and encourage a business environment which supports new small and medium size enterprises, and encourages inward investment to the County, recognising the need to bring renewed vigour to established communities, and to reduce social exclusion.  The LTP strategy supports such initiatives, which will help to reduce the distances travelled for employment journeys by bringing work to people, rather than by encouraging further long-distance commuting.

(b) Below average levels of health in the community. 

In some cases, such problems are a legacy of past and present industrial processes, whilst poverty and a lack of awareness about health issues also play a part.  The Northumberland Health Authority has an active programme of initiatives to tackle poor health.  Their Health Action Zone initiative has already provided funding to the three Rural Transport Partnerships which are now in place across the County and are developing accessible transport for young people, and for people with disabilities.  Further details of the County’s involvement with these initiatives can be found in the section describing the strategy for social inclusion (4.1.5).  The Health Authority also views cycling and school travel plans as being important tools in meeting the targets in the health strategy “Our Healthier Nation”, and supports the re-introduction of a passenger rail service between Ashington and Tyneside, as a means of regenerating an area where residents suffer from the poorest quality of health in the County.  As a result of the centralised resources, rural dwellers are increasingly disadvantaged in terms of gaining access to local health services; the LTP aims to ensure that adequate transport services are available to meet the needs of all sections of the community, regardless of   

access to private transport.
FIGURE 3 TRANSPORT INFRASTRUCTURE IN SOUTH EAST NORTHUMBERLAND

 (c) The decline of deep mining for coal.

     The County has lost 30,000 jobs in deep coal mining over the last 40 years, and only one pit, Ellington Colliery, remains in operation. Apart from the jobs directly and indirectly affected by the industry’s decline, the structural changes necessary to ensure that long-established communities allied to mining activities retain their identity and vitality continue to put pressure on a range of local and regional agencies to deliver effective outcomes. The policies in the LTP are geared towards economic and social regeneration measures which will assist in this process. Sustainable outcomes which also assist economic growth will receive a high priority.        

 (d) Crime and the fear of crime

Although levels of recorded crime are not significantly different from the national average, it is an issue which can reduce the quality of life for many people.  The LTP includes policies which aim to address problems linked to crime by improving street lighting, introducing traffic calming, and giving a higher priority to personal safety issues on pedestrian and cycle routes.  Such measures can make a difference at the local level, especially when carried out in partnership; the County Council will work closely with the six Crime and Disorder Reduction Partnerships in Northumberland to identify problem locations, and to introduce solutions.

 (e) Educational disadvantage

In areas with low levels of car ownership, inadequate public transport can have an impact upon pupils’ attendance at school. An example of this is at Hirst High School in Ashington, which is part of an Education Action Zone; analysis of the causes of permitted absenteeism has shown that access difficulties from locations such as Newbiggin-by-the-Sea are a factor.  Absence from school can result in lower educational attainment and subsequent difficulty in gaining employment. Similarly, attendance after school for extra-curricular and leisure activities can be restricted by inadequate public transport during the evening, as can the take-up of lifelong learning opportunities by older people.  For those with young children, the ability to reach early years facilities can also be affected, to the disadvantage of both children and parents, who can be socially excluded as a result.  Such problems are not specific to either urban or rural areas, they can occur anywhere in the County where travel is restricted for those without access to a car. The LTP tackles disadvantage caused by poor access to educational facilities by working in partnership with education establishments and transport providers, to best meet the needs of the community.

FIGURE 4 UNEMPLOYMENT RATES BY WARDS - APRIL 1999

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f) The peripheral location of Northumberland

This is not only in relation to Europe and the South East of England, but also to the main centres of employment and retailing in the North East.  This can result in Northumberland’s residents experiencing difficulties in gaining access to education, training and skills development, jobs and services, and becoming economically disadvantaged as a result.  The County’s geographical position can act as a disincentive to inward investment.  The LTP recognises the need to improve transport links at both a local and an inter-regional level. There is particular concern throughout the Region at the current standard of the A1 Trunk Road north of Morpeth; apart from the serious road safety implications resulting from the road being predominantly of single-carriageway standard, the condition of this major national link is such that it places much of north Northumberland at an economic disadvantage in terms of journey times from major population centres, and places the area at risk of the adverse perceptions of potential inward investors. The Department of Environment, Transport and the Regions, the Government Office for the North East and the Highways Agency are urged to take note of the high levels of concern expressed by many individuals and organisations throughout the area served by the A1 in Northumberland and in the Scottish Borders, over the current state of the road corridor. The campaign for the dualling of the A1 is a key priority for the North East Regional Assembly. In their recent submission to Government, “The Care for the North East - Comprehensive Spending Review 2000”, the assembly proposes that resources are made available to dual the A1 within the first three years of the Governments 10 Year Transport Plan.          

 (g) Achieving sustainable transport solutions in a large county with a dispersed population.

Although this should not be used as a reason for ignoring the issue of sustainability, it is more difficult to achieve meaningful levels of transfer from private to public transport in areas such as Northumberland which have a widely dispersed, low population density.  The LTP addresses the very diverse nature of the County, and argues that a single sustainable transport policy may not be appropriate for Northumberland.  The overall policy is therefore to provide transport solutions tailored to the characteristics of specific areas, with a presumption towards more sustainable transport practices.

(h) Rural decline and disadvantage (see Figure 6)

Rural areas of Northumberland are currently experiencing difficulties on several fronts. These include a declining and ageing agricultural workforce, a continuing loss of population in remoter areas, and changing lifestyles leading to the reduction and the loss of rural services and amenities such as schools, shops, public houses, banks, post offices. There is a corresponding increase in the levels of traffic required to service rural areas from distant locations and for residents to access facilities which are becoming increasingly more distant.

(i) The provision of accessible public transport at an acceptable cost.

Despite the additional funding from the Rural Bus Grant, there remain areas of the County where the standard of public transport is below desirable levels in terms of frequency and quality of service.  This can particularly apply to rural areas, which often receive vehicles ‘cascaded’ from urban areas; these are often older and less accessible to all.  This usually follows on from the introduction of high quality accessible vehicles in urban areas. There is also the wider issue of the provision of public transport in areas of the County where the population is sparse and scattered, so that conventional provision is likely to be inadequate; here the role of the Rural Transport Partnerships is viewed as being of particular relevance in achieving innovative and flexible solutions which conventional public transport operators may have difficulty in providing. On established transport corridors Rural Transport Partnerships enable transport services in rural areas of the County to be brokered and publicised to maximum extent. Although administered by County Council employees, the Partnerships are funded by central organisations and work across the private and public sectors.

(j)The maintenance of an extensive network of over 5000 km of highway.  (see Figure 5)

Northumberland has the highest proportion of road length to population of any English shire county.  This results in a disproportionately high level of expenditure on road maintenance in comparison with smaller, more densely populated counties. The road network is in need of continual maintenance to keep it to an acceptable standard, and this LTP includes a realistic bid for funding to improve the current condition of the principal road network, building upon the progress being made following the 2000/01 settlement.

FIGURE 5KM OF ROAD PER 1,000 HEAD OF POPULATION

(k) 2300 bridges and structures located throughout the county, a high proportion of which are in need of repair or renewal.

The condition of certain structures leads to a risk of roads having to be closed temporarily or permanently, in the interests of public safety.  A small number of structures still await a first-stage technical assessment.  Of the majority that have been assessed, about 35% have not achieved a 40-tonne rating.  Some will be re-assessed, but a substantial number will need to be strengthened.  In rural areas of the County, the often lengthy diversionary routes for heavy vehicles caused by weak structures can cause problems for local agriculture and industry.  A continuing prioritised programme of bridge repair and renewal is included in this LTP. Further details can be found at 4.3.1.14 and Appendix 7.

(l) High levels of expenditure required for winter services.

This includes salting and snow clearance, and frost damage caused to roads and bridges.  This is attributable to the County’s northerly location and its exposure to harsh weather conditions.  Such conditions by their unpredictability can be a drain on limited resources, and the Council will continue to refine its systems to ensure effective and economical prioritisation.

(m) Road Safety issues

Real improvements have been achieved at a local, regional and national level with regard to the number and severity of road accidents.  However, even one death is too many if the cause can be eliminated.  LTP policies encourage reduced travel by car and greater use of public transport, assist in casualty reduction by promoting modes of transport which have a lower incidence of accidents in relation to the numbers of journeys made.  Walking and cycling can be more dangerous than car travel, so measures to increase the safety of walkers and cyclists have a high priority. The County Council will seek where possible to make the use of roads safeand convenient for cyclists, however there will be locations where segregation from road traffic is preferable on safety grounds at certain locations andcan be achieved by purpose built cycleways, and by the provision of crossing facilities at strategic locations for pedestrians and cyclists.  It is Government policy for cyclists to use roads whenever possible but in certain locations purpose built cycleways are appropriate, and these have been introduced at several locations in the County.

(n) School Transport

Journeys to and from school in Northumberland are over a larger distance than the national average, the result of a dispersed settlement pattern and a low population density. The cost of providing home-to-school transport is high, and it requires considerable expenditure on gritting and snow clearing to ensure that, wherever possible, school bus routes are kept clear and safe to use during periods of bad weather.

(o) High flows of Heavy Goods Vehicles on rural roads and in built-up areas caused by the movement of coal, aggregates and timber.

As a general policy the County Council encourages the movement of heavy freight by rail, but there are many areas in Northumberland remote from the rail network, where this cannot happen.  The result can be damage to roads that can be difficult and expensive to rectify.  Traffic management measures are often able to alleviate problems in built up areas, although a complete solution can sometimes be difficult to achieve, and in these circumstances a bypass may be the only solution. The LTP strategy recognises that a balance needs to be achieved between industrial activity and the environment, and that there are large areas of the County where road transport is the only feasible option for all or part of the product journey. Wherever appropriate, sponsors of new development will be asked to contribute towards measures which minimise the effects of heavy traffic upon roads and the environment.

FIGURE 6 SERVICES AVAILABLE IN TOWNS AND PARISHES

(p) High levels of commuting.

Census returns indicate a high percentage of daily travel to work between Northumberland and Tyne and Wear, with 26% of the County’s resident workforce commuting to work outside Northumberland.  In the Districts adjacent to Tyne and Wear, up to 40% of the workforce commutes to and from Tyneside. This daily movement creates traffic congestion at points within Northumberland, and contributes towards further congestion and delay within Tyneside. The aim is to increase the proportion of trips made by public transport, and to reduce the number of car journeys made by lone drivers.  The Council will continue to work with neighbouring authorities to develop complementary measures in terms of public transport provision, and traffic management. Information technology linked trends and rural diversification may offer flexibility in combining where people live and work in a more sustainable way.

1.2.3      There are also many opportunities for Northumberland as it enters the 21st century.  These include:

(a) An outstanding natural environment

The County contains a National Park, two Areas of Outstanding Natural Beauty, and extensive areas of coastline and forest.  Part of the challenge of the LTP is to develop transport policies which maintain and enhance these features, reducing the impact of road traffic upon the environment, by promoting the use of public transport and by regulating the volume of traffic using roads within sensitive areas, where this is applicable.  A study is currently taking place along the Hadrian’s Wall corridor which is indicative of this approach.  The anticipated outcome of the study will be the phased introduction of a series of measures designed to increase the use of sustainable transport modes, including public transport promotion, traffic management and the discouragement of through traffic. More details of the bid for funding can be found at Section 4.2.4.8.  The County is fortunate to have an extensive public rights of way network, and there are opportunities in the future for further recreational developments such as access agreements linked to agri-environmental schemes, new trails such as the Pennine Bridleway and Hadrian’s Wall Trail, and the promotion of walking and cycling routes with leisure and tourism potential.

(b) Space for development

Whilst significant areas of land adjacent to the conurbation are currently protected by the green belt from development pressures arising from Tyneside, the County’s main towns and secondary centres have, to differing extents, the capacity to accommodate the majority of future development pressures within the context of policies included in structure and local plans.  Policies in the LTP recognise the transport implications of accommodating such development, and aim to introduce more sustainable practices such as demand management techniques, as distinct from new road construction.

(c) Substantial reserves of raw materials

Northumberland contains part of the largest forest in the UK - Kielder Forest - and has large reserves of aggregates and deposits of coal.  Policies in the LTP ensure that, as far as possible, these materials are transported from source to market by methods which cause the least environmental damage, whilst recognising the economic importance of such activities in areas of the County which offer few alternative sources of employment.

(d) Below average levels of car ownership and use

This results in low levels of congestion in comparison with many other counties. In a sense, this can be a threat as well as an opportunity, as there is the potential for proportionately greater increases in congestion and pollution in the future, if economic growth cannot be achieved without higher traffic flows as a consequence.  This is a matter which is addressed in Structure and Local Plans and needs to be recognised by the LTP.  The current opportunity is that low levels of congestion can give greater scope for the introduction of traffic management measures without unduly severe impacts resulting from the displacement of traffic.  Low levels of car ownership make the provision of an efficient, accessible public transport system all the more important, in that transport is available on the basis of need, rather than the ability to afford a car.

(e) High standards of air quality

Even in urban areas, air quality reviews have shown that there are currently no serious air pollution problems caused by traffic within Northumberland.  LTP policies enable this situation to be maintained in conjunction with further anticipated advances in vehicle emissions technology.

(f) Good levels of existing public transport

Northumberland has been able to retain a basic network in most rural areas, and a

comprehensive urban and inter-urban service. In the more urban areas of the county there is a high level of patronage, linked to low car ownership, and this offers a good foundation for the LTP to develop future initiatives, as there is an established pattern of public transport use.

(g) A rail network capable of further development

The existing Ashington, Blyth and Tyne freight railway offers the possibility of introducing an integrated passenger rail service to and from Tyneside.  Opportunities for better levels of passenger service and more freight to be carried by rail exist on the Newcastle to Edinburgh and Newcastle to Carlisle lines, although competition for a fixed line capacity is likely to become more of an issue as the number of trains increase.  Improvements to Metro station facilities at Newcastle International Airport presently at the preparation stage will raise the profile of the service, and should result in increased patronage to and from the Ponteland area. The County Council fully supports the policies

of Nexus in this respect.

FIGURE 7 PERCENTAGE OF HOUSEHOLDS WITHOUT A CAR

Source: 1991 Census of Population

(h) Airport/Port Facilities

Newcastle Airport is continuing to expand, with almost 3 million passengers handled in 1998/99, and forecasts of up to 5.6 million by 2006 and 7.2 million by 2010.  The Airport Land Use Masterplan, County Structure Plan and Regional Planning Guidance provide for the necessary expansion to meet these forecasts.  Development of the Port of Blyth will enable an increase in port traffic, and offers prime development land adjacent to deep-water frontage. These developments are both opportunities for the future economic of the County, and present potential problems resulting from an increase in vehicular traffic to such facilities.