1.0 INTRODUCTION
1.1.1 The plan area comprises that part of the former Borough of Boothferry which now falls within the administrative area of the East Riding of Yorkshire Council following Local Government reorganisation in 1966 (see map). Those provisions within the Boothferry Borough Local Plan Deposit Draft (September 1994) that relate solely to the administrative area of North Lincolnshire Council are now matters for that Council and are not dealt with in this Plan.
1.1.2 The area is centred on the confluence of the Rivers Ouse, Trent, Aire and Derwent with these rivers often providing the boundaries to the plan area.
1.1.3 The largest settlement in the plan area is Goole which is located on the River Ouse. This river runs through the plan area from east to west. The plan area contains areas on both the north and south banks of the Humber estuary. North of the Ouse the area is comprised mainly of Howdenshire and the extremity of the Vale of York with the historic town of Howden lying at its southern edge.
1.1.4 The eastern edge of the northern part of the plan area incorporates the very edge of the Yorkshire Wolds which are in sharp contrast to the relatively flat landscape of much of the plan area. South of the River Ouse lies part of the old West Riding of Yorkshire extending out to Snaith and part of the area of `Marshlands’ comprising the riverside communities on the south bank of the Ouse. The marshlands area lying in the crook of the Ouse and Trent is low lying and very sparsely populated.
1.2.1 The Boothferry Borough Local Plan (East Riding of Yorkshire area) is a statement of the Council's intentions for the future use of land in the plan area up to the year 2006.
1.2.2 The Plan has been prepared in accordance with the provisions of the 1990 Town and Country Planning Act, as amended, and has the following main functions:
(i) To relate the general policies of the Humberside
Structure Plan to the needs and specific circumstances
of Boothferry Borough and where appropriate, to particular areas of land.
(ii) To express specific planning policies and land use proposals that will be applied by the Council in considering individual applications for planning permission, thereby providing a detailed basis for development control.
(iii) To identify problems and opportunities inherent in the area and to ensure the best use of land in accordance with the public interest, as well as safeguarding and improving the environment and the economic well-being of the plan area.
(iv) To provide a basis for co-ordinating public and private sector development including infrastructure (for example Local Authorities, the Water Authorities and property developers).
(v) To provide a mechanism for detailed local planning issues to be brought before the public.
1.2.3 The 1991 Planning and Compensation Act makes clear the increasing importance of environmental considerations in local plans by stating:
'The policies shall include policies in respect of
a) the conservation of the natural beauty and amenity of the land;
b) the improvement of the physical environment; and
c) the management of traffic.'
1.3.1 The planning framework for the plan area has two tiers which consist of:
a) The Humberside Structure Plan which relates to the whole County. This has been prepared by the former County Council and contains broad policies and guidance in the form of a written statement and key diagram. An important function of the Structure Plan is to set out levels of development for each district. The Structure Plan was approved by the Secretary of State in 1987, and in Spring 1991 the County Council published 'Alteration No. 1'. This proposed amendments to certain policies including housing and retail development. The Secretary of State approved this with modifications in March 1993. The provisions of the Structure Plan will be superseded in due course by the Joint Structure Plan for Hull and the East Riding currently being prepared.
b) Local Plans which express proposals in greater detail and are generally prepared by local planning authorities. Such plans usually identify settlement limits, allocate specific sites for residential, industrial and other developments, as well as proposals for environmental improvements. The 1991 Planning and Compensation Act requires the Council to prepare a single local plan for the whole of their area. The Council decided following Local Government reorganisation to complete the emerging plans started by the former Councils prior to preparing a single local plan for the whole of the East Riding of Yorkshire.
1.3.2 Hitherto local plans have usually only been prepared for specific parts of a district where such action has been justified by amongst other things, the pressure for development. The plan area had the following statutory local plans, but these have been superseded by this plan and have now been formally rescinded
Plan Adopted
Swinefleet 1982
Gilberdyke/Newport 1985
Goole/Hook 1985
1.3.3 A draft local plan for the Howden area was also approved by the former Council but not carried forward to adoption, and a number of informal plans existed to guide development control decisions. In addition, a number of subject local plans have been produced within the County which relate to topics rather than specific areas. Examples of these are the 'Intensive Livestock Units Subject Plan' produced by Humberside County Council, and 'the River Derwent : A Policy Statement on Recreation' produced jointly by Humberside and North Yorkshire Councils. All of these existing statutory and non-statutory plans and policy guidelines have also been superseded by this plan and formally rescinded. In accordance with the 1991 Act the Council will retain separate responsibility for the preparation of local plans to deal with minerals and waste disposal issues.
1.3.4 Yorkshire Forward, the Regional Development Agency for Yorkshire and the Humber was established on 1st April 1999 and has taken over the regeneration functions of the former Rural Development Commission. The Rural Development Areas were due to be reviewed at the end of the 1998/99 financial year, but due to the emergence of the new Regional Development Agency this review has been put on hold.
1.3.5 The Rural Development Areas were designated by the former Rural Development Commission based upon indicators of rural deprivation such as unemployment rates, depopulation and accessibility problems. The Rural Development Areas formed the focus for the Rural Development Commission's regeneration resources and assistance. The funding available for these areas was targeted at a range of social and economic projects. The former Humberside County Council, in conjunction with the former district councils and other partners including the Humberside TEC and the Community Council, prepared a Rural Development Programme Strategy for the period 1995-2005. This addresses the range of needs arising in the area and contains a set of aims and objectives through which the problems will be tackled. An Operating Plan is prepared each year and sets specific projects or proposals for tackling the various issues. The projects can be submitted at any time throughout the year.
1.3.6 In addition to Rural Development Area status, parts of the plan area are also within 'Assisted Areas'. Manufacturing and certain service industries are eligible for a range of central government assistance, and public bodies can obtain government and E.U. grants. The Parishes within the Hull TTWA and Doncaster TTWA have Intermediate Area status. The Isle of Axholme is eligible for Objective 2 grant aid from the E.U. The UK Government's Regional Selective Assistance areas, and areas eligible for E.U. funding are currently being reviewed. New areas should be known by the end of 1999.
1.4.1 The importance of development plans has been emphasised by the Government in recent years. Planning Policy Guidance Note 12, Development Plans and Regional Planning Guidance, states:
'In 1991 Parliament underlined the role of development plans in providing guidance, incentive and control by amending the Town and Country Planning Act 1990 to require development control decisions to accord with the development plan unless material considerations indicate otherwise. The development plan therefore provides the main component in the Plan led planning system which the Secretary of State is promoting.'
1.4.2 As mentioned earlier, the 1991 Act also requires local planning authorities to prepare a local plan for their whole area.
1.4.3 The Local Plan provides an opportunity to consider a wide range of land use problems and opportunities that exist within the plan area. The competing shopping centres outside of the plan area and the construction of motorway and other principal routes has influenced retail activity. The same improvements to transportation offer the opportunity for inward migration to the towns and main villages. The Council therefore needs to consider and protect the quality and character of the individual settlements.
1.4.4 It is becoming increasingly apparent within some rural communities that a number of the local population are unable to secure affordable accommodation within their areas, either for sale or for rent, due largely to the increased demand and price of housing created by inward migration. These people are forced to either move away, or remain in accommodation, which simply is no longer suited to their needs. In line with current Central Government policies it is appropriate for the Local Plan to raise this issue and consider the policy options which might help to secure an increase in the supply of affordable housing for local people.
1.4.5 The changes in the size and nature of the work force indicate that measures to ensure the creation of jobs, particularly those for local people should be forthcoming through the Plan. It is important to ensure that an adequate supply of serviced land is made available for industrial purposes in suitable locations.
1.4.6 The growing importance attached to green issues has prompted the Council to include a comprehensive 'Environment Chapter'. Issues relevant to environmental concerns are also dealt with under the subject chapters, for example transportation.
1.5.1 As with other Local Plans, the Boothferry Borough Local Plan has to be prepared within the framework of the Structure Plan which contains strategic policies for the former County as a whole. Thus, as well as indicating the Council's detailed policies and proposals for the plan area, the Local Plan must also conform to and apply the broad policies of the Structure Plan. When a Local Plan is prepared it is a requirement that it conforms generally with the approved Structure Plan.
1.5.2 The approved Structure Plan (1987) and 'Alteration No. 1' (March 1993) includes housing development requirements for each of Humberside's constituent districts. The housing requirement for the former Boothferry is 5,500 dwellings for the period 1989-2006.
1.5.3 The Structure Plan includes a list of Urban Centres and Selected Settlements where services and housing land are to be concentrated. Goole is the only Urban Centre designated in the plan area, and there are ten selected settlements as follows: Bubwith Newport North Cave Eastrington Pollington Gilberdyke Rawcliffe Snaith Holme upon Spalding Moor Howden
1.5.4 The Structure Plan also designates locations which have strategic importance for industry. The one location identified in the plan area is Goole (approx 40 hectares). The Structure Plan does allow for smaller scale industrial development to take place elsewhere, particularly within settlements and, in certain circumstances, on disused airfields.
1.5.5 Guidance is also provided on other topics by the Structure Plan such as the environment, transport, and shopping. The Local Plan will make reference to any particularly relevant Structure Plan policies when dealing with particular topics. The Council has now commenced work on a replacement Structure Plan for the Hull and East Riding, which is to be prepared jointly with the Hull City Council.
1.6 Stages of Plan Preparation and Public Consultation
1.6.1 The following list illustrates the proposed various stages completed in the adoption of this Local Plan.
1. Publicise intention to prepare Plan. Invite comments from the public and interested organisations.
2. Undertake survey, analysis, identification of issues, and prepare draft policies and proposals.
3. Publish Consultation Draft in September 1993. Invite comments from the public and interested organisations.
4. Amend Plan as necessary and obtain a Statement of Conformity from the County Council that the Plan conforms generally with the Structure Plan.
5. Place on the plan public deposit in September 1994 for six weeks the Plan, publicity statement and notice of intention to adopt. Invite comments from the public and interested organisations.
6. Holds a Public Inquiry between July and October 1995 to hear representations on all unresolved objections.
7. The Inspector recommends to the Council in May 1996 if, and how, the plan should be modified in response to the unresolved objections.
8. Place proposed modifications on deposit in October 1996. Invite comments from the public and interested organisations.
9. Council consider representations to proposed modifications in March 1997.
10. Inform the Secretary of State of the Council's reasons for not meeting the Ministry of Agriculture's objection to the allocation of employment of land south of Rawcliffe Road in March 1997.
11. Public Local Inquiry held in April 1998 to hear MAFF's objection.
12. Secretary of State issues his approval of the employment allocation in February 1999.
13. East Riding of Yorkshire Council adopts the Plan in April 1999.
14. Council issues its Notice of Adoption of the Plan in May 1999.
1.7.1 In accordance with the 1990 Act, local planning authorities are required to keep under review the matters which may be expected to affect the development of their area or the planning of that area.
The Act specifies:
the principal physical and economic characteristics of the area;
the size, composition and distribution of the population of the area;
the communications, transport system and traffic of the area.
1.7.2 It is clearly important that these and other matters are monitored effectively, and that the information is used to review the policies on a regular basis and keep the plan up to date. The Council recognises that it is impossible to forecast accurately general development requirements over a lengthy Plan period, and that some flexibility may be required. In addition, the Council consider that once adopted, the Plans policies should be subjected to an annual assessment and the results should trigger a revision of the policies when considered necessary. In any event it is considered that a full review of the Plan will take place at least every five years, if possible tying in with review of the Structure Plan.
1.7.3 Where appropriate the Plan sets out aims, objectives and performance targets for different subjects and issues. These should provide a basis for measuring the progress and implementation of the Plan and assist in reviewing the proposals when this becomes necessary.
1.8.1 Each chapter of the Plan covers a particular topic and includes a certain amount of survey information together with policies for the Plan Area. The survey information is included because a separate report of survey was not published for the Local Plan. A separate chapter has been devoted to Goole Town Centre because of the complexity and close interrelationship of proposals in that area.
1.8.2 The policies are of two types; firstly those which define areas intended for particular development or use of land, and secondly those which define specific areas within which particular development controls will be applied. Policies are printed in bold text.
1.8.3 The Proposals Map sets out the proposals on a geographical base. By its very nature this cannot provide a comprehensive view of all land uses at a future date; rather it defines those sites where the Council is committed to change of a specific nature and identifies areas within which specific development control policies will operate. Thirty five Inset Maps have been prepared covering settlements and other areas of proposed change which show proposals at a larger scale than can be shown on the overall Proposals Map.
1.8.4 Where additional policies have been inserted as a result of the Modifications to the plan, these have been given a suffix (e.g. policy EN12A).
1.8.5 Conversely, some sections and/or policies have been deleted as a result of the Modifications or because they deal exclusively with provisions relating to land now within North Lincolnshire Council's area. The Plan has not always been renumbered to take account of these deletions and so it should be noted that the plan paragraph/policy numbers in this document might not always follow sequentially.