Liverpool John Lennon Airport: The Case for Expansion September 2019

Contents

1. Introduction 1

Part 1: Context of Policy EC7 4

2. Liverpool John Lennon Airport 5

3. The economic role of Liverpool John Lennon Airport 9

4. The Proposed Expansion 11

5. Strategic Policy Support for LJLA 19

Part 2: Impacts of Expansion 22

6. The Economic Benefits of Expansion of LJLA 23

7. The role of LJLA in regeneration of South Liverpool 25

8. Impact on Green Belt 27

9. Environmental impacts 32

Part 3: Exceptional Circumstances 43

10. The Case for Expansion 44

Appendix 1: Summary of Strategic Policy Considerations 51

Contact

Dave Trimingham dave.trimingham@turley.co.uk

September 2019

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1. Introduction

1.1 This Paper (“the Paper”) sets out the background to the policy approach for Liverpool

John Lennon Airport (LJLA) as set out in the submission draft Liverpool Local Plan (“the draft Local Plan”). The Paper has been prepared by Turley on behalf of LJLA. It has

been prepared in consultation with Liverpool City Council in order to ensure that it is based on most up to date information and cross references to other elements of the

evidence base of the Liverpool Local Plan Examination.

Purpose

1.2 The purpose of the paper is to provide an overview of the key economic, technical and

environmental considerations associated with the proposed expansion of LJLA and to explain why additional land immediately adjoining the airport is essential to facilitate

that expansion. It briefly sets out the need for the expansion of LJLA to meet the need for passenger and non-passenger aviation and to accommodate businesses that rely on

international connectivity1. Given the nature of the site and its surroundings, this Paper specifically presents the case in support of the proposed expansion, and

addresses particular technical considerations that are addressed by Policy EC7. It concludes by setting out the exceptional circumstances which justify an amendment of

the Green Belt boundary to the south of the Airport to accommodate future growth.

Draft Policy EC7: Liverpool John Lennon Airport

1.3 Section 4 of this Paper demonstrates how Policy EC7 of the draft Local Plan is

consistent with relevant economic, transport, environmental and planning policies including the Government’s Framework for UK Aviation. Policy EC7 underpins strategic

Policy STP1 “Spatial Priorities for the Sustainable Growth of Liverpool” which at criterion (f) supports the sustainable growth of LJLA as a key spatial priority for the City.

Policy EC3, “Delivering Economic Growth” and supporting text at paragraphs 7.40 and 7.41, recognise the importance of knowledge-based industries including advanced

science, manufacturing and engineering and the airport, aerospace and aviation-related activity.

1.4 Policy EC7 recognises that the Airport is a key sub-regional economic asset and supports in principle its expansion. The explanatory supporting text provides details

about the Airport Master Plan which Policy EC7 seeks to give effect to. The Policy explicitly recognises that LJLA is sited in an environmentally sensitive location. In

particular, it is adjacent to the Mersey Estuary which is a Site of Special Scientific Interest (SSSI), Special Protection Area (SPA) and Ramsar Site; and is in close proximity

to Speke Hall Estate (Grade I listed building) and other heritage assets. These matters have been considered through the Master Plan and are addressed by Policy EC7. The

Habitat Regulations Assessment for the Local Plan (CD 30.0) provides a proportionate appropriate assessment of the likely environmental effects of Policy EC7.

1 These are set out more fully in the Liverpool John Lennon Airport Master Plan to 2050 (Core Document 17) section

5.

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1.5 Draft Policy EC7, as proposed to be amended by LCC in accordance with the changes

recommended by the Liverpool Local Plan Inspector states:

Structure

1.6 The remainder of this Paper is structured as follows:

Policy EC7 ‘Liverpool John Lennon Airport’

“1. As a key sub-regional economic asset, the operation and expansion of Liverpool John Lennon Airport (LJLA), in line with its Masterplan, together with sustainable

access solutions to the airport, will be supported in principle, subject to appropriate assessment of the potential environmental impacts referenced in criteria a) to c)

below and where such assessment has shown it to be necessary, the implementation of appropriate and proportionate mitigation measures to address

potential environmental impacts associated with this growth. These are:

(a) impact on the natural, historic and built environment, including sites

and buildings of international, national or local conservation, ecological or landscape importance. With respect to internationally

important sites (the Mersey Estuary SPA, Dee Estuary SAC, Dee Estuary SPA and Dee Estuary Ramsar Site, Liverpool Bay SPA and

Ramsar site and Mersey Narrows & North Wirral Foreshore SPA and Ramsar site), development will be required to include appropriate

mitigation measures agreed with the City Council and informed by an up to date environmental assessment;

(b) impact on adjacent residents and others (including those outside the City) in the vicinity of flightpaths, of any increases in traffic, noise and

air pollution, including those generated by construction activity; and

(c) impact on the local and regional transport network, through the

implementation of a sustainable surface access strategy.

2. Subject to compliance with criteria 1 a) to c) of this Policy permission will be

granted for:

(a) the expansion of the operational airport to accommodate growth in

passenger, cargo, business and general aviation; and maintenance repair and overhaul; and

(b) employment uses which support its role as a key driver of the City Region economy. These will include aviation related-uses, aerospace

businesses, logistics, advanced manufacturing and offices that seek proximity to an Airport and the international connectivity that this

supports.

3. Sustainable access to the Airport, in accordance with the Airport Surface Access

Strategy, will be supported.”

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Part 1: Context of Policy EC7

• Section 2 provides further context to LJLA;

• Section 3 sets out the current economic role of LJLA in the Liverpool City Region

(LCR);

• Section 4 provides an overview of the proposed expansion of LJLA.

Part 2: The Strategic Importance of LJLA

• Section 5 provides a summary of the strategic policy support for expansion of

LJLA;

• Section 6 summarises the role of LJLA in the regeneration of South Liverpool.

Part 3: Impacts of Expansion

• Section 7 summarises the economic benefits of expanding LJLA;

• Section 8 considers the impact on the proposals within Policy EC7 on the Green Belt;

• Section 9 considers other environmental impacts.

Part 4: Exceptional Circumstances

• Section 10 presents the exceptional circumstances which justify the proposed amendment of the Green Belt boundary.

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Part 1: Context of Policy EC7

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2. Liverpool John Lennon Airport

Location

2.1 LJLA is located approximately 11km to the south-east of Liverpool City Centre on the

northern coast of the Mersey Estuary.

2.2 The Airport is positioned predominantly within the administrative boundary of

Liverpool City Council. A small part of the eastern side of the Airport crosses into the administrative area of Halton Borough Council. The Master Plan Area which is shown

in Figure 2.1 includes the operational Airport and land needed for expansion

Figure 2.1: LJLA Master Plan Area

The Airport Today

2.3 LJLA is one of the UK’s largest regional airports and a significant economic driver and transport asset. In providing passenger and non-passenger aviation services to a wide

range of international destinations it is of strategic importance to the economy and connectivity of the Liverpool City Region, the North West and the North of England. It

is also unique within the City Region in terms of being able to attract the kind of high value aerospace/aviation engineering businesses that require (operationally) an airside

airport location, and other aviation and non-aviation businesses that seek locations at airports in order to take advantage of the greater access to global markets and other

benefits brought by international connectivity.

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2.4 It provides direct flights to and from 76 European cities and regions. It carries over 5

million passengers per annum (mppa) around one third of whom are inbound visitors. Many of these are attracted by the global renown of Liverpool’s cultural and visitor

offer which was boosted following its designation as European Capital of Culture in 2008 and is a key part of its economic and regeneration strategies. It therefore has

important roles as an international gateway and a major driver of the economy of the Liverpool City Region and beyond (see Reasoned Justification paragraphs 7.40; 7.41

and 7.66).

2.5 Despite LJLA’s recent growth and expansion of its route network, it remains the case

that c.5.5 million passengers per year from within LJLA’s catchment travel outside LCR, mainly by car, to take flights from Manchester Airport. Other passengers travel even

further afield by similar means to even more distant airports. This generates significant numbers of unnecessary vehicle trips and results in the economic benefits of these

aviation movements being lost from LCR.

2.6 The Airport is a major local employer in its own right and in its supply chain (see

section 3). It also enhances the competitiveness of other businesses by providing access to markets for businesses across the City Region. It delivers convenient direct

access to a range of destinations for both business and leisure travel. It offers the nearest and most sustainable local air services to key tourism destinations for residents

of the LCR, Cheshire, Lancashire and North Wales. Without these services, greater numbers of residents would have no alternative but to undertake longer surface access

journeys to more distant airports. As over 30% of passengers using the Airport are inbound, LJLA also supports a major contribution to the visitor economy of the City

Region which adds an estimated £4.5 billion per annum to the economy of the LCR2.

2.7 LJLA is an important economic and transport hub for the City Region and beyond. An

assessment of the current economic impacts of the Airport is summarised in section 3 and set out in full in an Economic Impact Assessment (Core Document 31.3). This

demonstrates that LJLA is currently of significant importance to the City Region economy and supports (directly through the catalytic impact it has on other

businesses) around 6,500 jobs and contributes £285 million (GVA) to the LCR economy. The Airport currently has 2,550 people employed on site and approximately 80% of

these on-site jobs are taken by residents of the City Region. Furthermore, the Airport is also a significant contributor to public finances, with c. £2.25 million per annum being

paid in business rates.

The Airport Master Plan

2.8 In accordance with Department for Transport Guidance LJLA has prepared a Master

Plan to confirm its future needs and ambitions. The current Master Plan replaced the original which was published in 2007 and considered the period to 2030. It takes

account of the latest national aviation forecasts and the performance and growth of the Airport over recent years. It is informed by assessments of the particular market in

which LJLA operates and the potential for growth and diversification of the Airport.

2 Source: North West Research. Tourism Data Survey. August 2018.

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2.9 The objectives for the Master Plan to 2050 are to:

• Meet projected growth in demand for passenger services;

• Capture opportunities to serve additional routes;

• Develop connections to global long haul markets;

• Proactively develop cargo and other commercial aviation services;

• Grow business and general aviation services;

• Extend the runway to improve LJLA’s competitive position relative to other

airports and to facilitate aircraft flying intercontinental long haul routes;

• Further develop and grow the Airport as a strategic economic growth location,

by providing the land opportunities for high value aerospace and aviation engineering uses which require airside locations and access, together with

opportunities for other aviation and non-aviation businesses that seek the international connectivity brought by locations at airports; and

• Deliver good quality design and attractive spaces.

2.10 The Master Plan is based on up to date projections of the passenger needs which

envisage growth to around 8 mppa by 2030 and around 11 mppa by 2050. It is also informed by assessments of the likely need to relocate and/or expand other non-

passenger aviation at the Airport, and the potential to accommodate operations and businesses that need an airport location and/or are attracted by the agglomeration

benefits of clustering with such businesses (see Core Document 17 section 5). It is informed by assessments of relevant environmental and technical considerations

which are set out within the Master Plan.

2.11 The Master Plan was published in draft for public consultation in February 2017.

Extensive public consultation took place including a media launch to summarise the proposals and invite engagement; drop-in exhibitions at the Airport and in the local

community; and consultation with relevant local authorities, technical consultees, business and community groups and other stakeholders. A summary of the

consultation and the comments received was published alongside the Master Plan3.

2.12 During the draft Master Plan consultation the City Council engaged with

representatives of the Airport to fully understand the proposals and potential implications. The City Council supported the proposals set out in the consultation

document, recognising that much of the proposed development will require planning permission and in many cases the removal of land from the Green Belt (subject to

justified exceptional circumstances); the City Council agreed to work with the Airport to bring forward all reasonable and sustainable proposals as set out in the Master Plan.

3 https://www.liverpoolairport.com/media/2953/liverpool -john-lennon-airport-master-plan-to-2050-consultation-

report-february-2018.pdf (CD 30.10)

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2.13 Responses were also received from Halton Borough Council which indicated continued

support for the Airport’s plans for expansion, subject to satisfactory outcomes in relation to the Eastern access road route, the Mersey Edge Urban Extension (a

proposed urban extension within Halton and not part of the Master Plan itself), the public safety zone, environmental impacts, and the potential impact on neighbours.

2.14 Highways England confirmed that it supports the Master Plan proposals in principle and notes that it will retain a key role in determining the acceptability of individual

proposals.

2.15 All comments received were taken into account in the preparation of the final Master

Plan. This was published in March 2018.

2.16 The Master Plan looks ahead to 2050. It demonstrates significant projected growth in

passenger numbers and other aviation throughout the Local Plan Period and beyond and evidences the opportunity to attract a range of aviation, aerospace and other

businesses that require and/or can benefit from access to and proximity to the Airport. This expansion and economic clustering is consistent with the Airports National Policy

Statement, the Local Plan’s vision for the City, the findings of the Independent International Connectivity Commission (IICC)4, and could deliver significant social and

economic growth and regeneration over the plan period. To achieve this comprehensive, combined and linked package of benefits there is a need to expand the

operational area of LJLA as proposed by Policy EC7.

4 Independent International Connectivity Commission Report. Transport for the North. February 2017.

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3. The economic role of Liverpool John Lennon Airport

3.1 LJLA commissioned an independent assessment of the economic impact of the Airport as at 2018 (Core Document 31.3 – Economic Impact Assessment: Expansion of

Liverpool John Lennon Airport). This assesses the overall contribution that LJLA makes to the economy at a City, City Region, North West and North of England scale. A

summary of its key findings regarding the current economic contribution of LJLA is provided in the box below.

Summary of the socio-economic significance of LJLA

3.2 LJLA is currently of significant importance to the economies of Liverpool, the City Region North West and the North of England.

3.3 LJLA currently contributes around £285m in GVA to the Liverpool City Region, supporting in the order of 6,500 jobs (4,950 FTEs).

3.4 The contribution increases to £450m in GVA and 11,700 jobs (8,850 FTEs) across the North, due to the added supply chain impacts, business productivity and support the

Airport offers to tourism related industries.

3.5 Its recent rapid growth means that it now has 2,550 people (2,050 FTEs) working on

site, either for the Airport or for third-party companies providing aviation related services.

3.6 Approximately 80% of these on-site jobs are taken by residents of the Liverpool City Region, with almost half living in the city of Liverpool.

3.7 A further 3,950 (2,900) jobs are estimated to be supported indirectly and as a result of the connectivity brought by the Airport.

3.8 The significance of the operation of the Airport can be reasonably considered to benefit the 107,000 jobs across the City Region in those sectors most likely to be reliant

upon international connectivity. These jobs are spread across the City Region and captured within some 7,400 business enterprises, of which 10% had a turnover of more

than £1million.

3.9 The Airport is also a significant contributor to public finances, paying in the order of

£2.25 million each year through business rates – 50% of which is retained by the City Council.

3.10 Alongside directly contributing to the creation and supporting of employment growth the Airport also generates wider social benefits. This includes benefits associated with

the growth in tourism, cultural activities and higher education within the City Region.

3.11 This demonstrates that LJLA delivers an extensive range of positive economic impacts

which support the economy of the City Region and beyond. It is a major employer in

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its own right; supports significant additional employment through supply chain and

indirect effects; is a significant driver of the visitor economy; and enhances the competitiveness of other local businesses by providing direct access to a range of

markets across Europe.

3.12 These benefits are of even greater significance given the socio-economic context

(Liverpool being the 7th most deprived Local Authority area in England5) and the very high level of “leakage” of air travellers resident in LCR to other airports outside the

region (an estimated 5.3 million people resident in LCR fly from Manchester Airport each year6) with the consequent loss of economic benefits to the LCR.

5 Indices of Multiple Deprivation. Ministry of Housing Communities and Local Government. 2017. 6 LJLA Definition of Catchment Areas as published in the Continuous Survey, Civil Aviation Authority (2017).

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4. The Proposed Expansion

4.1 LJLA has grown significantly over the past 20 years. The Airport has invested in new

and upgraded facilities to meet needs. Latest forecasts of the need for passenger services and assessments of needs for non-passenger facilities at LJLA7 indicate the

need for further significant expansion.

4.2 The Airport Master Plan sets out proposals for future development and growth at LJLA

to meet these needs. It looks ahead to 2030 (which broadly corresponds to the Local Plan period) in detail and provides a broad indication of potential development to

2050. Forecast passenger numbers reach c.8 mppa by 2030 and c.11 mppa by 2050. Alongside provision for these, the Master Plan provides for the continued growth of

non-passenger aviation and associated expansion of employment uses at the Airport.

4.3 The majority of such growth and expansion relies on an airside location with runway

access at an international airport and as such LJLA is the only location in the LCR where it could take place. This expansion will only be possible if the operational airport is

able to expand onto land south of the runway that is currently within Green Belt, allowing a concentration and cluster of non-passenger aviation and aerospace uses,

together with other uses which value the international connectivity brought only by an airport location.

4.4 As it moves to the delivery of its Master Plan LJLA has assessed likely development needs over the short term (next five years) and the longer term (to 2030). Details of

constraints that face the Airport in meeting these identified needs and the future land requirements to accommodate them are set out in Core Document 31.1 (Liverpool

John Lennon Airport: Current Constraints and Requirements for Expansion).

Need for expansion

4.5 Recent rapid growth in routes and passenger numbers (inbound and outbound) means

that various aspects of the Airport’s infrastructure and facilities are nearing their practical capacity. Further details are set out in Current Constraints and Requirements

for Expansion (Core Document 31.1 section 5). These require urgent action to enable the Airport to continue to serve the needs of the LCR and capture the benefits of doing

so for the local economy.

4.6 In order for it to continue to meet needs over the period of the Local Plan further

expansion and reconfiguration is required. Details of the measures required to meet these needs are set out in Current Constraints and Requirements for Expansion (Core

Document 31.1 section 7).

4.7 This expansion will optimise the role LJLA can play as a catalyst for the ongoing

economic regeneration of LCR and bring significant additional economic and social benefits. Achieving this will require reconfiguration of various operational aspects and

facilities of the Airport, including relocation of the majority of non-passenger aviation

7 Which are summarised in the Liverpool John Lennon Airport Master Plan to 2050 (Core Document 17) section 5 .

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operations and services onto land south of the runway that is currently within Green

Belt.

4.8 The need for certain developments is particularly pressing in the light of recent growth

in passenger numbers and other aviation at LJLA. These include:

• insufficient ‘contact stands’8 to meet airline and passenger demands meaning

inefficient operations and passenger inconvenience;

• the central search areas including x-ray facilities are nearing capacity at peak

times and allow little contingency for any failure of systems or heightened security requirements;

• the arrivals and immigration hall is inadequate to handle multiple arrivals in close succession. In fact the hall is only large enough to accommodate the

passengers from one flight, meaning passengers are frequently held queuing outside the building or on buses;

• departure gates are often at or near capacity to handle the number of passengers and meet airline expectations, many are also of relatively poor

quality;

• baggage handling facilities have little resilience to meet any additional demands;

• the capacity of airside refreshment facilities (cafes, restaurants, toilets) is nearing capacity despite recent investment and expansion;

• the amount and quality of Premium/Executive lounge facilities is inadequate to meet the needs of non-budget and business travellers and is inadequate to

attract medium and long haul airlines which are essential to securing intercontinental routes; and

• the lack of direct airside access for Wynne Aviation is constraining its ability to win additional freight and cargo business for the LCR.

4.9 These changes must be planned and delivered in an integrated way which enables needs to be met in a timely manner; ensures the Airport remains fully operational and

in compliance with all relevant safety and security requirements throughout; and achieves current needs without compromising the longer term potential for growth.

This includes the need to relocate and reconfigure some facilities that are currently located on the north side of the runway to locations where they can remain for the

long term. As is set out in the Current Constraints and Requirements for Expansion report (Core Document 31.1) this includes the need to relocate most non-passenger

facilities to the south of the runway.

8 Contact stands provide proximate access for passengers to walk between the terminal building and the aircraft

stairs.

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Needs over the Local Plan period

4.10 Over the course of the plan period a range of developments will be needed in order to

accommodate forecast passenger growth, reduce the leakage of passengers to other airports (which involves unsustainable longer surface access journeys to more distant

airports and loss of economic benefits from the LCR), and optimise the contribution LJLA makes to the economic and social regeneration of the LCR. The Airport has

considered needs firstly over the next five years and then over the remainder of the Plan Period. These are set out in Liverpool John Lennon Airport: Current Constraints

and Requirements for Expansion (Core Document 31.1) and summarised below.

Needs - 2019 – 2024

4.11 Over the next five years the following developments will be required:

a) LJLA expects an increase in based aircraft from 10 to 16. To accommodate this

growth and to facilitate the ability to deal with larger aircraft for medium and long haul routes, the Airport will need to increase the number of contact stands

and to provide some Code F stands (those large enough to accommodate larger aircraft such as Dreamliners and 747s). These new stands would be located

either side of a new pier brought out perpendicularly from the main elevation of the terminal building overlooking the runway. The optimum location is on the

site of existing hangars to the front of the terminal which are currently used for aircraft maintenance, hangarage and for storage of essential airfield vehicles and

equipment. These hangars would need to be dismantled and re-provided elsewhere. There is no suitable location on the north side of the runway;

b) An extension at the western end of the terminal building (circa 9,000m2 over two storeys) will be required to provide an appropriately sized immigration hall,

additional baggage reclaim carousels, gates and additional space for retail and food and drink facilities. This would require existing modular gates at the west

end of the terminal to be demolished and re-provided including temporary provision all of which would necessitate demolition of the Royal Mail building;

c) The changes described above would provide sufficient additional terminal area to achieve the necessary level of passenger comfort and meet IATA standards.

New passenger and dedicated airline/executive lounges would also be provided within the existing building footprint;

d) Provision of crew rooms would be accommodated within the existing building footprint. This would require construction of a new floor beneath the existing

central search area which would need to be developed with the new pier described above;

e) Business aviation (XLR building west of the terminal building) would need to be relocated to purpose built hangars on the south side of the runway to allow this

area to be used for airport support facilities;

f) MRO facilities would be accommodated in the relocated and further additional

hangars on the south side;

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g) The existing hangars which are used for aircraft maintenance, hangarage and for

storage of essential airfield vehicles and equipment would need to be dismantled and re-provided on the south side to create space for the pier

described above;

h) The fuel farm on the north side would require an additional three storage tanks

which would require provision of an extended footprint as the existing site is at capacity;

i) It is considered that cargo operations can continue in the existing facilities on the north side during this timeframe unless growth exceeds forecasts, in which case

there would need to be an earlier gradual transition to the south side; and

j) An additional 1,000 at grade car park spaces will be required in close proximity

to the terminal.

Needs - 2025 – 2032

4.12 Over the medium term there will be further need for expansion to accommodate additional passenger and non-passenger aviation needs.

Growth in passenger services 4.13 Over the remainder of the Local Plan Period the following additional developments are

likely to be required to accommodate growth in passenger services:

a) The number of based aircraft will grow to 24. Additional contact stands will be

provided by provision of two piers, one at each end of the terminal. The east end of the apron would need to be extended along with provision of new piers;

b) Cargo operations, if they have not already been relocated to the south side of the runway, will certainly need to be relocated accordingly during this part of the

plan period;

c) Additional crew facilities would be provided to meet demand within the

additional building footprints;

d) The central search in the terminal would need to be extended to create space for

up to four additional x-rays and additional baggage carousels would be added. Further refreshment and retail provision would be needed;

e) With the forecast level of passenger activity there would negligible opportunities for Business Aviation to continue to co-exist with scheduled passenger activities

and it is anticipated that all BA would have to be operational from the south side;

f) To ensure adequate parking provision while meeting the objectives of the Airport Surface Access Strategy9, an additional 2,200 car park spaces will be

required. These would take up the vast majority of the remaining unused land

9 https://www.liverpoolairport.com/transport/airport-surface-access-strategy

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on the north side as well as the existing TNT facility which would need to be

relocated south of the runway;

g) The fuel farm will need a further seven storage tanks, located adjacent to the

current facility;

h) The range of destinations served will be expanded including adding long haul

services to key business and leisure destinations.

4.14 As explained in Core Document 31.1 (Current Constraints and Requirements for

Expansion) these developments can only take place on the north side of the runway and will displace existing non-passenger facilities such as aircraft hangars, cargo

building and apron and Business Aviation buildings and apron. Those facilities self-evidently still require a location on the Airport with direct taxiway and in turn runway

access, but the only suitable location for such facilities would then be to the south of the runway on land currently designated as Green Belt. In order to ensure runway

capacity is not compromised a new parallel taxi way would be needed on the south side of the runway. Without this, aircraft needing to access the south side operations

would need to taxi along the runway, significantly reducing runway capacity and the ability of the Airport to accommodate the number of forecast aircraft movements.

Growth in non-passenger services 4.15 The strategic location of LJLA within the UK, its role in the North West and importance

to the City Region along with the expansion of services and increase in based aircraft would generate demand for other aviation and related services. These would

complement the expansion of passenger services and contribute significantly to the economic and regeneration objectives of the Local Plan. The Master Plan sets out

proposals for further growth and development of the Airport as a key transport and strategic economic asset and developing the Airport and its landholdings as a strategic

economic asset by maximising its potential to create jobs and to thereby support ongoing regeneration across the City Region10.

4.16 The uses that would find such a location attractive include:

Maintenance Repair and Overhaul (MRO)

4.17 Additional aircraft based at LJLA and greater volume and frequency of flights will significantly increase the need for localised MRO services. In addition the need for

MRO facilities is growing across the sector in the UK as the global aircraft fleet expands and as existing aircraft age. The relative mobility of this market, the City Region’s

strong skills base in automotive manufacturing, and the aerospace industry of the wider North West place LJLA at an advantage over other locations and will help to

facilitate jobs and skills. Unless additional land south of the runway is released from Green Belt and made available for such development, LCR will quite simply never be

able to attract such uses and the high value sectoral benefits they bring.

4.18 These types of use will instead continue to go to other regions, within the UK and

beyond, which provide suitable land to enable their existing airports to expand (see

10 See Core Document 17 section 5

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examples of competing UK airports where land has been and/or is proposed to be

released from the Green Belt at Appendix 1 of Current Constraints and Requirements for Expansion (Core Document 31.1)). Despite increasing demand LJLA presently has

only modest MRO facilities. Due to limited land availability on the north side of the runway, the Airport is also unable to compete for airline investment, or investment

from other aviation and aerospace businesses, which require an onsite MRO. This comprises an important part of the sector.

4.19 LJLA is confident that with the availability of suitable land on the south side, additional aviation operators including the potential for major inward investment of the scale of a

recent US jet manufacturer MRO requirement would be secured (for evidence of the scale and land take of such a facility relative to current land available at LJLA, see

Current Constraints and Requirements for Expansion (Core Document 31.1) paragraph 5.59 and Figure 5.3).

4.20 An MRO facility typically requires a large flat site and it is clearly essential to have direct access to the runway, with a large concrete apron and large buildings to

accommodate aircraft. A purpose built engine test facility is also likely to be required. The only land suitable for this at LJLA is the Green Belt land to the south of the runway.

Cargo services 4.21 Growth of the LCR economy and the demand for belly hold cargo11 on passenger

services will grow the current demand for cargo handling facilities at LJLA. In addition the attractive location of LJLA in the centre of the UK and its proximity to both the Port

of Liverpool and the motorway network offer potential to grow LJLA’s market share of cargo services. This includes offering an alternative logistics service for the delivery of

automotive parts to businesses based in South Liverpool which include Jaguar Land Rover. At present many such parts are flown into Birmingham Airport and delivered to

Merseyside by road – a round trip for delivery vehicles of over 320km. With expansion of passenger needs cargo operations would no longer be tenable on the north side due

to the scale of passenger activity and would need to be fully decanted to the south to provide space required for additional car parking and other ancillary passenger support

facilities and services.

Aerospace and airport cluster

4.22 The ‘Independent International Connectivity Commission Report’ , which was established by Transport for the North12 to examine the economic role of international

connectivity for the North of England, confirms: ‘Airports have the potential to position themselves as linchpins for wider economic hubs, supporting the attraction of FDI. This

may be through focusing on activities related to the core business, such as logistics or aircraft maintenance, or may be through more general business park activities,

allowing companies to benefit from locating immediately adjacent to an airport’. This is entirely consistent with Government policy within the Airports National Policy

Statement (see paragraph 5.3 below).

11 Cargo carried within the hold of scheduled or chartered passenger services. 12 A partnership between local authorities across the North and national transport operators whose vision includes

“Supporting commerce by improving national and international connections in, out of and across the region”

https://transportforthenorth.com/.

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4.23 LJLA is well placed to further support growth of South Liverpool as an economic hub

and support the ongoing economic regeneration of the LCR. The combination of a good strategic location within the UK; location within a growing city region economy;

direct air access along with excellent connections to ports and the strategic surface transport network; and a strong, skilled local labour force make LJLA a potentially

attractive location for a cluster of UK and international businesses in a variety of sectors including those which LCR’s economic strategy seeks to target.

4.24 The land at the Oglet offers the only land in the LCR which could facilitate a clustering of aviation and aerospace related inward investment and economic development. It

can provide the direct airside access and international connectivity that is often critical to such operators (in for example aviation services, the logistics and advanced

manufacturing sectors) and capitalise upon the strategic location and competitive advantages of LJLA. These opportunities are unique to the airport location. There is no

other airport within the LCR. Without such expansion other airports such as Manchester will inevitably secure those opportunities, to their benefit but to LCR’s

detriment.

Coastal Reserve and Extension

4.25 The expansion of LJLA into the Oglet presents an opportunity to retain and secure the future of the existing 70 acre Speke and Garston Coastal Reserve for the long term, but

also to extend the Coastal Reserve eastwards over a 3.5km (2.2mile) stretch of the coast. This proposition would add apporoximately124 acres to extend Coastal Reserve

and is linked to the allocation of land within the Oglet, (which is to be removed from the Green Belt), for development in accordance with policy EC7 of the Draft Local Plan

and the subsequent planning approvals required thereafter.

4.26 This would double the extent of the existing Coastal Reserve to create a nature

conservation and recreational resource. The long distance Mersey Way path will be preserved and improved within the Coastal Reserve and will be a main feature along

the entire length of coast, public access on foot to the Oglet shoreline will be maintained and improved and a range of other facilities (as outlined in the LJLA

Masterplan 2018) will be provided to enhance both the visitor experience and the ecological value of the site.

Summary

4.27 There is a growing and increasingly urgent need for LJLA to accommodate additional passenger services, both in the immediate and the long term. It can only do this by

expansion of the facilities on the north side of the Airport. This will necessitate relocation of the vast majority of non-passenger facilities from the north side.

4.28 Alongside this there is also growing need and demand for expanded non-passenger facilities. Some of this is related to the expansion of passenger services and additional

based aircraft. Other needs will arise as the economy of LCR continues to grow and as wider needs for additional services such as MRO, cargo, aerospace and related uses

increase.

4.29 These developments would bring very significant economic and social benefits to the

LCR and wider region. They include the potential to attract Foreign Direct Investment

18

and to create large numbers of new jobs. These benefits are explained in full in Core

Document 31.3 (Economic Impact Assessment) and summarised in section 6 below.

4.30 The proposed expansion of LJLA would enable it to better serve the needs of the LCR

and reduce the need to travel to airports further afield with the consequent loss of economic activity and unnecessary journeys on congested road and rail networks. As is

explained in more detail in section 10 below. The only suitable location for the relocation and growth of these services is to the south of the runway on land proposed

to be removed from the Green Belt.

19

5. Strategic Policy Support for LJLA

5.1 This section of the Paper summarises the relevant national, regional and local level of

policies which are of relevance to the future growth of LJLA. A fuller summary of relevant planning, transport and economic policy considerations is set out in Appendix

1.

National

5.2 National policies including the UK Aviation Policy Framework13 and National Policy

Statement on Airports14 recognise the significant contribution that the aviation sector provides to economic growth across the country. The National Infrastructure Delivery

Plan also recognises that smaller airports are vital for local economies and they open up opportunities for global connections15.

5.3 The Airports National Policy Statement recognises that international connectivity attracts businesses to cluster around airports, and they help to improve the

productivity of the wider UK economy16. National planning policy requires planning policies to provide for the infrastructure and wider development required to support

the operation, expansion and contribution to the wider economy of large scale transport infrastructure such as airports17 and to recognise the importance of

maintaining a network of general aviation airfields18.

5.4 National policies and guidance establish that large and small UK businesses rely on air

travel, and it is important that airports provide the primary gateway for vital time-sensitive freight-service across the country.

5.5 The Government is consulting on a new aviation strategy to 2050. It identifies supporting regional airports and their contribution to economic growth and

rebalancing as one of the strategic themes for a future strategy19.

Sub National and City Region Policy

5.6 The former North West Regional Spatial Strategy (RSS) (Policy RT5) established that

plans and strategies should support the economic activity generated and sustained by the Region’s Airports. It provided that development plans may provide the opportunity

for detailed changes in Green Belt boundaries to accommodate the expansion of

13 Aviation Policy Framework. Department for Transport. 2013. 14 Airports National Policy Statement: new runway capacity and infrastructure at airports in the South East of

England’. Department for Transport.; June 2018. 15 National Infrastructure Delivery Plan 2026 – 2021. National Infrastructure Commission. 2016. Paragraph 5.11. 16 ‘Airports National Policy Statement: new runway capacity and infrast ructure at airports in the South East of

England’. Department for Transport.; June 2018, page 5. 17 National Planning Policy Framework. Ministry of Housing, Communities and Local Government. February 2019.

Paragraph 104e) Similar provisions were contained in paragraph 33 of the 2012 NPPF. 18 Ibid. Paragraph 104f). 19 See Appendix 1 paragraphs 6 and 7.

20

Manchester Airport to accommodate growth but also LJLA given it is the North West’s

second airport and had also seen rapid passenger growth.

5.7 The Green Belt boundary around Manchester Airport was duly reviewed through the

Manchester Core Strategy in 2012 and land was released to optimise the economic potential of the Airport20.

5.8 In contrast, the development plan in Liverpool had not progressed to adoption before the RSS was revoked. The draft Local Plan therefore provides the opportunity to

review whether there are exceptional circumstances to justify amendment of the current Green Belt boundaries to facilitate expansion of LJLA.

5.9 Economic strategies for the LCR and wider region, including The Northern Powerhouse, have consistently provided support for the aviation sector in general and the growth of

LJLA in particular, as forming a key part of addressing the relative economic weaknesses of the City Region. Examples from documents including the Northern

Powerhouse Independent Economic Review, the Independent International Connectivity Commission and the LCR Local Enterprise Partnership Growth Strategy

and supporting strategies are set out in Appendix 1 paragraphs 18 to 47.

5.10 In particular, the Independent International Connectivity Commission Report supports

the benefits associated with airports and seaports, given airports can use land around their core facilities to support the attraction of other activities, which value the

proximity to an airport or seek to benefit from the high quality surface access links, as can be accommodated at LJLA: “By acting as regional growth magnets, airports can use

land around their core facilities to support the attraction of other activities which value proximity to an airport or seek to benefit from the high quality surface access link”21.

5.11 The LCR’s Transport Plan for Growth22 also recognises that in 2015 the visitor economy contributed approximately £3.6bn per annum to the City Region and that the

connectivity of LJLA is key to further encouraging people to visit and stay in the City Region. More recent estimates indicate that Liverpool is the 5th most visited

destination in the UK and that this brings £4.5 billion per annum to the economy of the LCR23. The LEP is actively considering how LJLA can best support the growth of the City

Region and is developing an international strategy to ensure that the City Region makes the most of its international connections including through its ports and LJLA.

(See Appendix 1 paragraphs 32 – 36).

20 This has since been consented and is being delivered as part of the Airport City development:

http://www.airportcity.co.uk/about-us/ . Further release of land from the Green Belt is proposed through the

emerging Greater Manchester Spatial Framework. 21 Independent International Connectivity Commission Report. Transport for the North. 2017. Page 29 . 22 Transport Plan for Growth. Liverpool City Region Combined Authority. 2015. 23 The LCR LEP estimated that in 2017 the visitors contributed £4.5 billion to the City Region and supported over

53,500 jobs. (Source: North West Research. Tourism Data Survey. August 2018).

21

Local Policy

5.12 The Development Plan for Liverpool has consistently recognised the importance of LJLA

to the economy of the City. Policy E4 of the saved Unitary Development Plan (UDP)24 adopted in 2002 supports the expansion of the Airport as a major catalyst for

substantial economic development activity in the City as a whole, as well as the Speke/ Garston area, subject to a suitable balance being achieved between the economic

benefits and natural and built environment.

5.13 While work on the Liverpool Core Strategy Submission Draft25 was paused in favour of

preparing the Local Plan, it also remains a recent expression of the Council’s approach to development and as such it is positive that it recognises LJLA as a key gateway to

Liverpool and wider afield to the North West, North Wales and North of England. The draft policies of this Plan supported the expansion of LJLA, subject to satisfactory

measures to address the potential environmental issues raised by the growth26.

5.14 Furthermore, the City Council through its Mayoral Development Zones27 establishes

that South Liverpool is one of the City’s most sought after locations, sitting close to LJLA and the South Liverpool Parkway Transport Interchange, with its links to the

national rail network.

5.15 The recognition in the draft Local Plan of the important role of LJLA as an economic

driver as well as a transport hub and the provision for its expansion through Policy EC7 build on and implement these important objectives of national, sub-national and city

region policy. They ensure that these aspects of the Local Plan are consistent with national policy28.

24 Liverpool Unitary Development Plan. Liverpool City Council. 2002. Policy EC4 . 25 Liverpool Core Strategy. Submission Draft. Liverpool City Council. 2012. 26 Liverpool Core Strategy Submission Draft. 2012. Strategic Policy 7. 27 Regenerating Liverpool, ‘Liverpool’s Mayoral Development Zones: Review of achievements 2012 -2017’ (February

2018 revised edition). 28 In accordance with NPPF (2019) paragraph 36d) and NPPF (2012) paragraph 186.

22

Part 2: Impacts of Expansion

23

6. The Economic Benefits of Expansion of LJLA

6.1 The Sustainability Assessment of the draft Local Plan concludes that expansion of LJLA

in accordance with Policy EC7 would have “significant positive [economic] effects” (see CD8 paragraph 5.53). The Economic Impact Assessment (Core Document 31.3)

assesses in greater detail the likely scale and significance of these effects. This assumes the release from Green Belt and availability of land south of the runway for expansion

as provided for in the draft Local Plan. The assessment considers the impacts for the City, the LCR, North West and North of England. Its main findings are summarised

below.

Summary of the socio-economic benefits of the planned expansion

6.2 Implementation of the Master Plan proposals is likely to directly or indirectly lead to

the creation of around 14,360 additional FTE jobs across the North by 2030, including over 8,770 in the Liverpool City Region. This will be driven by passenger and non-

passenger related aviation, clustering of other uses at LJLA and through increased business productivity and tourism.

6.3 An associated uplift in annual economic productivity, equivalent to £605 million across the Liverpool City Region, and £861 across the North of England can also be

anticipated.

6.4 Importantly, this scale of employment and GVA impact – which is based on the airport

increasing passenger throughput to 7.9 mppa - can only be realised in the event that most non-passenger activities are relocated to the south side of the runway (into The

Oglet land), as explained in Section 4, to free up the remaining space on the north side to expand and maximise the passenger operations.

6.5 The Assessment considers the particular significance of these economic benefits generated by the Airport in the context of the wider socio-economic context of LCR.

Summary of the wider significance of jobs and economic growth

6.6 A wide range of roles are likely to be created, across a number of the sectors that have been prioritised within the Liverpool City Region. These jobs are expected to

particularly benefit those living in nearby communities, which include some of the most deprived neighbourhoods in England.

6.7 The creation of new employment opportunities in a range of business sectors is also recognised within City Region economic strategies as being important to future

resilience and in facilitating transformational growth.

6.8 There is a clear alignment between a number of the priority sectors identified under

Policy EC3 of the DLLP and those identified as either being created directly through the growth of the airport or being supported as a result of the enhanced international

connectivity the expansion will provide.

24

6.9 These identified growth sectors are also mirrored in other economic strategies

including the Growth Strategy for the Liverpool City Region and the sectors identified by the NPIER as driving transformational growth in the Northern Powerhouse.

6.10 The creation of new employment opportunities through the expansion of LJLA offers the potential to address levels of worklessness having pronounced positive implications

with regards current associated deprivation issues in the neighbourhoods that surround the Airport.

6.11 The Economic Impact Assessment considers the implications for LJLA if the land south of the runway is not available for expansion. It does so with reference to two scenarios

(details of which are set out in section 5 of the Economic Impact Assessment – Core Document 31.3 and summarised in a) and b) below):

a) the Green Belt remains unchanged, development is confined to the north side of the runway and LJLA retains competitive services (the Economic Impact

assessment refers to this as “Constrained Scenario 1”); and

b) the Green Belt remains unchanged, development is confined to the north side and

LJLA is less able to compete for airlines and short haul routes and not able to compete for medium and long haul airlines and routes services (the Economic

Impact assessment refers to this as “Constrained Scenario 2”).

Summary of the implications of constraining capacity

6.12 The impact of constraining capacity at LJLA is significant. Compared to the potential

expansion in accordance with Policy EC7, if the expansion of LJLA is constrained to the land only on the north side of the runway this could result in the creation of c. 7,780

fewer FTE jobs and £531 million less GVA by 2030 across the Liverpool City Region. This loss increases to between 12,410 fewer FTE jobs and £737 million less GVA

annually across the North of England.

6.13 This constrained growth combined with significant and ongoing investment in

improved facilities at competing airports could impact on airlines’ future decisions regarding based aircraft. A scenario has been modelled where LJLA has fewer based

aircraft and experiences a consequent reduction in passenger throughput. This demonstrates how c. 8,580 fewer jobs could be created and £576 million less GVA

added to the LCR economy compared to the planned expansion in accordance with Policy EC7. This negative impact increases to between 13,810 fewer FTE jobs and £817

million less GVA annually across the North of England.

6.14 The longer term impact of constraining capacity has not been calculated; however the

constraints to employment and GVA growth outlined within this section would have a compound cap on future growth and widen the gap to the level of passenger growth

envisaged by 2050 under the Master Plan.

25

7. The role of LJLA in regeneration of South Liverpool

7.1 The economic and social benefits of the proposed expansion of LJLA are of greater significance given its location within an area that experiences high levels of deprivation,

especially in the light of its pivotal role in the regeneration of Speke and Garston over the last two decades.

7.2 Throughout the 1960s and 1970s, economic restructuring had significant adverse effects on the south of Liverpool. It was particularly impacted by major job losses in

manufacturing and dock activities. Unemployment rose sharply and combined with issues of sub-standard housing stock, and high crime rates these contributed to

significant social problems29. Areas of South Liverpool including Speke, Garston and Halewood were recognised as experiencing acute levels of economic and social

deprivation (parts of the area were among the top 1% of most deprived areas according to Indices of Multiple Deprivation in the late 1990s).

7.3 Throughout the latter half of the 1990s significant focus was placed on securing the economic and social regeneration of Merseyside. South Liverpool received major

injections of funding from the European Union (including the European Regional Development Fund Objective 1 programme). This facilitated improvements through

agencies such as the Speke-Garston Development Corporation, South Liverpool Housing, and the Liverpool Land Development Company, bringing positive effects to

the housing stock and infrastructure, and the regeneration of Speke, Garston and the surrounding districts.

7.4 Specifically, the Speke Garston Development Company was a joint venture established by English Partnerships and Liverpool City Council in 1996 to assemble land, develop

sites to attract investment and to create employment. It was a specialist urban regeneration delivery vehicle working in partnership with other specialist organisations

to bring about the comprehensive economic, social and physical regeneration of South Liverpool30.

7.5 Public and private sector-led regeneration programmes took place to revitalise the area, including when South Liverpool Housing took over the City Council owned

housing stock to undertake a major investment programme of renewal and refurbishment.

7.6 The wider Speke, Garston and Halewood area became one of the key economic growth areas of Liverpool. It has experienced significant job creation, which is evident from

the land reclamations and commercial developments that have been delivered by both the public and private sectors; including Speke District Centre, Estuary Commerce Park,

29 The ‘Lost Villages’ of Garston and Speke, Liverpool History Society https://liverpoolhistorysociety.org.uk/garston-

speke/4/ 30 Memorandum by Speke Garston Development Company, Bob Lane, June 2000

https://publications.parliament.uk/pa/cm199900/cmselect/cmenvtra/714/714ap14.htm

26

Liverpool International Business Park, Dakota Business Park, the Venture Point

Industrial Estate, and Speke Boulevard Industry Park. The proximity of an international airport offering direct connections to markets across Europe along with the synergies

with gateways such as the Port of Liverpool and Garston Docks have been significant catalysts to a number of businesses deciding to locate in South Liverpool.

7.7 Despite the significant investment in regenerating south Liverpool, further improvements are required to alleviate existing areas of deprivation within this area of

the City. South Liverpool continues to experience significant deprivation including pockets of high deprivation within the area around the Airport31.

7.8 The expansion of LJLA as an increasingly important international gateway has been a major factor in the economic regeneration of the area while also helping to transform

perceptions of it as well. The range of jobs created and efforts to ensure that they are available to local residents (including working closely with public sector agencies to

deliver training initiatives and local employment programmes) have directly supported the regeneration of the area. This has included working closely with JET South

Liverpool (now Liverpool In Work) to recruit locally and support skills and training initiatives.

7.9 The planned further expansion which would create a wide range of jobs from low and semi-skilled to senior managerial and high skilled work is fully consistent with the

objectives for the ongoing regeneration of South Liverpool32.

31 Liverpool is the 7th most deprived Local Authority area in England and areas i n South Liverpool in close proximity

to LJLA are among the 10% of most deprived areas in England according to the MHCLG’s Indices of Multiple Deprivation 2015. 32 Including those of the South Liverpool Mayoral Development Zone:

http://regeneratingliverpool.com/zone/south-liverpool/

27

8. Impact on Green Belt

8.1 The proposed Airport expansion provided for by Policy EC7 involves development

within areas proposed to be removed from the existing Green Belt. National planning policy states that Green Belt boundaries should only be reviewed in “exceptional

circumstances”33.

Purposes of Green Belt

8.2 To inform an assessment of whether exceptional circumstances exist to justify the

expansion of LJLA an assessment has been undertaken of the land which is proposed to be removed from the Green Belt against each of the five purposes of the Green Belt as

set out in national planning policy. The findings are summarised below.

8.3 The area of current Green Belt to the south of LJLA lies between the operational area

of the airport and the Mersey Estuary (see Figure 8.1). It comprises a narrow “limb” of land which extends into the administrative area of Liverpool from a wider area of

Green Belt within Halton. As set out below it serves a very limited Green Belt function.

Figure 8.1: Land to be removed from the Green Belt

33 NPPF1 Paragraph 83 and NPPF2 paragraph 136. Plan will be examined under NPPF1.

Current Green Belt Borough boundary LJLA ownership

28

A) To check the unrestricted sprawl of large built-up areas

8.4 As is shown in Figure 8.1 the area of Green Belt affected by Policy EC7 lies between the operational area of LJLA and the Mersey Estuary. The coastline of the estuary forms a

clear physical boundary to further built development.

8.5 The proposed development would result in expansion of built development into land

immediately south of the Airport which is largely undeveloped. It would not however constitute unrestricted sprawl, given the barrier of the estuary. The planned expansion

would be accompanied by an extension to an existing Speke Garston coastal reserve to the west, which would provide mitigation for the loss of some open land and would

include managed public access and habitat management. Whilst the land would no longer be within the Green Belt, this is consistent with the objectives of paragraph 138

of the NPPF 2018 which seek that where land is to be removed from the Green Belt consideration should be given to opportunities for improvements in environmental

quality and accessibility.

8.6 The presence of the River Mersey prevents further expansion to the south of the

Airport. There would nevertheless be some impact on this purpose of Green Belt which must be considered in establishing whether exceptional circumstances to justify

Green Belt release have been demonstrated.

B) To prevent neighbouring towns merging into one another

8.7 The land south of the Airport serves no purpose in preventing towns from merging into one another.

8.8 The proposed development south of the Airport would extend an already developed area and would not reduce any gap between adjacent towns. The proposals would

therefore have no impact on this Green Belt purpose.

C) To assist in safeguarding the countryside from encroachment

8.9 The land performs a modest role in safeguarding an area of farmland from the encroachment of further built development.

8.10 The proposed release of the land from the Green Belt will result in some encroachment into the countryside. It would involve development of an area of approximately 69 ha

in total.

8.11 There is no other land that could meet the significant, location-specific needs arising

from the planned expansion of the Airport. This encroachment, and the harm to this Green Belt purpose that would result, must be weighed in consideration as to whether

exceptional circumstances have been demonstrated to justify Green Belt release.

D) To preserve the setting and special character of historic towns

8.12 The land proposed to be removed from Green Belt does not form part of the setting of a historic town. As such there would be no impact on this aspect of Green Belt policy.

8.13 Any impact on individual heritage assets is not relevant to Green Belt, and is considered separately. A Built Heritage Review is provided in Core Document 31.4 and

an Archaeological Appraisal is provided in Core Document 31.5.

29

E) To assist in urban regeneration, by encouraging the recycling of derelict and other

urban land 8.14 The need for the proposed development arises from expansion of the Airport and the

needs of businesses that rely on access to and proximity to runway and aviation services. It could not be located on another area of land elsewhere in the City Region

and there is no other suitable area of land around the Airport that could meet this need. As set out in section 4 above and illustrated in the Airport Master Plan, all

available land to the north of the runway is needed to accommodate the needs for passenger services and there is no suitable land to either the east or west of the airport

which could provide the necessary access to the runway and other airport infrastructure. As such, the land to the south of the runway is the only deliverable

option for the planned expansion of LJLA.

8.15 The proposed expansion to the south of the Airport would of itself have a neutral

physical impact on urban regeneration. Therefore, the proposed release would have a neutral impact on this purpose of the Green Belt. As explained elsewhere the

expansion of the Airport and associated economic and social benefits would make a substantial positive contribution to the economic and social regeneration of the City

Region.

Green Belt boundary

8.16 Having established the exceptional circumstances which justify amendment of the

Green Belt it is necessary to establish a defensible boundary for the Green Belt which will endure beyond the Plan Period34. Policy EC7 proposes that the revised Green Belt

boundary would follow the City boundary with Halton Borough. This would mean that the revised Green Belt boundary would follow the route of Dungeon Lane. The land to

be removed from the Green Belt comprises c. 119ha. The land removed from the Green Belt which is not allocated in accordance with Policy EC7 would be appropriately

managed through the application of normal development management policies.

8.17 This change would remove a narrow “limb” of Green Belt which currently protrudes

from the broader area of Green Belt between the Liverpool conurbation and the settlements of Halton and Knowsley to the east of the Airport. The removal of this

land from Green Belt will have no wider implications for the Merseyside Green Belt.

8.18 Figures 8.2 and 8.3 are extracts from the adopted and emerging Proposals Maps

respectively and illustrate the current and proposed Green Belt boundaries.

8.19 Halton Council is in the process of reviewing Green Belt through its development plan.

This includes consideration of a review to accommodate the growth of the Airport including in particular an eastwards extension of the runway. The extent of change

needed to accommodate the planned expansion of the Airport is relatively minor and would be able to define a new defensible boundary. The resulting changes would

create a logical and defensible Green Belt boundary which will endure beyond the Plan Period (in accordance with paragraph 136 of the NPPF (2019).

34 National Planning Policy Framework, MHCLG. February 2019. Paragraphs 136 and 139e. NPPF (2012)

paragraphs 83 and 85.

30

Figure 8.2: Current Green Belt Boundary (Liverpool Unitary Development Plan

Proposals Map, 2002)

Figure 8.3: Proposed Green Belt Boundary (Liverpool Local Plan Policies Map

Submission Draft, May 2018)

AIRPORT (E4) GREENBELT (OE1, OE2) UNDEVELOPED COASTAL ZONE (OE4)

AIRPORT (POLICY EC7) LOCAL WILDLIFE SITES

(POLICIES GI 1 & GI 5) OPEN SPACE

(POLICIES GI 1 & GI 3)

GREEN BELT (POLICY GI 1)

31

8.20 It is unlikely that the whole of the area allocated for development by Policy EC7 would

be needed within the Plan Period. The extent of development will be to a large degree led by market requirements and how successful the Airport is in attracting other users

and operators. It is clear that under the EC7 proposals, growth of the Airport will continue in the longer term and that the full extent of land will be required in the

future. The proposed Green Belt boundary therefore builds in a degree of flexibility to accommodate market fluctuations and will ensure that this part of the Green Belt

boundary will not need to be altered at the end of the Plan Period.

Summary

8.21 The proposed removal of land south of the Airport from the Green Belt would have a

limited impact on the first and third purposes of the Green Belt. The land to be released does not contribute to preventing neighbouring towns merging into one

another, it does not contribute towards the setting and special character of historic towns, and as there are no other potential land opportunities to accommodate the

proposed growth anticipated at the Airport it will have no adverse impact on the objective of assisting urban regeneration. There is therefore no conflict with the

second, fourth or fifth purposes of the Green Belt.

8.22 The proposed change to the Green Belt boundary south of the Airport would not have

implications for the wider Green Belt in this part of Merseyside and it would create a logical and defensible boundary. The boundary would not need to be reviewed at the

end of the Plan Period.

8.23 The limited impact on the purposes of Green Belt as a result of Policy EC7 must be

taken into account in determining whether exceptional circumstances exist to justify the proposed amendment of the Green Belt boundary. In doing so it is necessary to

consider potential impacts on other qualities of the land. This is considered further in section 9 of this Paper and exceptional circumstances are considered in section 10.

32

9. Environmental impacts

9.1 This section of the Paper addresses relevant technical and environmental

considerations which have informed Policy EC7. It draws on available evidence to assess likely impacts of the proposed airport expansion and the extent to which they

are addressed by the Submission Draft Local Plan Policy EC7.

Ecology

9.2 This section of the paper uses available evidence to consider potential effects of the

development on the special interest of the Mersey Estuary and then goes on to consider other ecological effects of development in accordance with Policy EC7. It is

accepted that further work will be required in support of any planning applications and LJLA will work with relevant parties to agree the scope of such additional work.

Site designations 9.3 The land subject to Policy EC7 is subject to no European or national ecological

designations. Parts of the site are included within a Local Wildlife Site (Policy GI1 of the Local Plan). (The extent of these is shown on Figure 8.3).

Adjacent designations 9.4 The Mersey Estuary is designated as a European Special Protection Area, Ramsar site

and Site of Special Scientific Interest. These designations include the coast and mudflats to the south of LJLA. None of the land subject to Policy EC7 is within these

designations but may be functionally linked to those European Sites.

9.5 SPAs are internationally protected sites which are classified for rare and vulnerable

birds, and for regularly occurring migratory species. The Mersey Estuary is designated on account of its population of wintering and migratory water birds, with seven species

identified as features of the SPA (Redshank, Teal, Pintail, Golden Plover, Shelduck, Dunlin and Black-tailed Godwit) and also the overall waterbird assemblage. It has

several conservation objectives to ensure that its integrity is maintained or restored as appropriate, and to ensure that it contributes to achieving the aims of the Wild Birds

Directive.

9.6 The SSSI is designated in recognition of this ornithological importance of the Estuary

and of the habitat value of features such as inter-tidal sand and mudflats, salt and brackish marsh and boulder clay cliffs.

Local Plan Habitats Regulation Assessment (HRA) 9.7 A Habitats Regulation Assessment (‘HRA’) (CD 9) was previously prepared for the

‘Informal Draft Liverpool Local Plan’ and was updated in December 2017 in response to the modification of the Plan and to reflect the plans and policies included within the

Pre-Submission Draft Local Plan. The HRA specifically considers potential impacts of Policy EC7 on the Estuary.

9.8 In the light of changes of policy and case law since the draft HRA was produced and in response to questions raised by the Inspector, an updated HRA has now been prepared

in April 2019 (CD 30.0).

33

Shadow HRA

9.9 In response to feedback on the Airport Master Plan and to further understand any potential impacts associated with its proposed expansion, LJLA itself commissioned a

programme of ecological surveys (including non-breeding bird surveys) on the stretch of the Mersey Estuary adjacent to LJLA). It has used these to prepare a preliminary

shadow project-specific HRA (SHRA)35 relating to the proposed development to the south of the runway in accordance with Policy EC7 and particularly with the associated

land take associated with that expansion. LJLA acknowledges that in advance of any resulting project specific planning application(s), there will be a need for further, more

detailed work to inform a project specific Shadow HRA and that this would need to be discussed and agreed with relevant parties including LCC, MEAS (as LCC’s

environmental advisors) and Natural England. The preliminary SHRA is nevertheless shared at this stage in order to present evidence to provide information inform the

Local Plan HRA.

9.10 The preliminary SHRA is informed by non-breeding bird surveys undertaken between

August 2017 and April 2018, the scope and frequency of which was discussed with Natural England and the Mersey Environmental Advisory Service (MEAS36). The survey

findings along with the findings of earlier surveys and available WeBS data37 have been shared with LCC as Competent Authority as part of the evidence base to inform the

HRA. The preliminary SHRA comprises Core Document 31.7.

9.11 The preliminary SHRA, with respect to the expansion of LJLA onto the area south of the

airport termed the Oglet, indicates that with the available preliminary evidence, only one conservation objective - the extent and distribution of the habitats of the

qualifying features - would not be maintained as a result of the proposed expansion . This is because surveys of the area show that the area is used routinely by two species

which form part of the waterbird assemblage, Lapwing and Curlew. Numbers of birds using it were small during the survey period but under the Regulations, nevertheless

qualify as significant as a part of the overall waterbird assemblage. (This is because the numbers recorded exceed 1% of the overall population recorded on the SPA). .

9.12 Whilst an ‘Assessment of Alternatives’ is normally undertaken to understand other opportunities for the project to proceed without adversely affecting the integrity of the

SPA this has not been possible in this case. This is because the development proposed by Policy EC7 (as proposed to be changed) is in relation to the growth at LJLA which is a

fixed infrastructure asset, and there are no geographical alternatives for the proposed development. There is no other airport in the LCR that could accommodate the

35 The preliminary Shadow HRA has no formal status in relation to the Local Plan. It has been prepared to present

evidence to inform and support the preparation of the Local Plan’s HRA, as well as to secure a suitable dialogue

with MEAS and Natural England. In accordance with Policy EC7, any planning applications for specific projects at

LJLA that could affect the special interest of the Estuary would need to be supported by full environmental assessment including comprehensive survey data and impact assessment 36 MEAS advises LCC on matters including ecology and commissioned the Habitat Regulations Assessment of the

Local Plan on behalf of LCC. 37 Wetland Birds Survey – British Trust for Ornithology

34

development arising from the aviation and associated economic needs of the

catchment of LJLA38.

9.13 A location on, or in proximity to the Airport is a requirement for all aspects of the

proposed development (see paragraph 8.14 above).

9.14 Given the conclusion of the preliminary SHRA that there is potential for an impact on

the SPA, suitable mitigation and/or compensation will need to be incorporated at the detailed design stage. The SHRA gives initial consideration to the amount of such

mitigation (in terms of land take) and demonstrates that it can be delivered in accordance with the terms of Policy EC7 (see preliminary Shadow HRA sections 3.4 and

6 - Core Document 31.7). Exact details of land required for mitigation and/or compensation including habitat creation and enhancement works and ongoing

management prescriptions would be determined as part of a planning application and specifically a future project-level HRA.

9.15 In light of these findings the updated Liverpool Local Plan HRA (CD 30.0), as per its previous iterations (CD 9 and CD 30.0), concludes that Policy EC7 (as proposed to be

changed) would not cause adverse effects on the integrity of the Mersey Estuary SPA or Ramsar site, or other European sites. This is because a) the Policy wording requires

full ecological assessment and mitigation at planning application stage, b) the modifications to this policy move the Masterplan out of the policy itself and into the

explanatory text, c) Policy GI5 will apply to the airport expansion as much as any other developments and specifically states that development would not be permitted if it has

an adverse effect on integrity without demonstrating IROPI and No Alternatives, and d) based on the information currently available there is no basis to conclude that key

elements of airport expansion will be unable to either mitigate adverse effects or follow the IROPI/No Alternatives route to delivering necessary compensation. (See

CD30.0 page 36).

Land Ecology

9.16 LJLA has commissioned a phase 1 habitat survey of the land allocated by Policy EC7 (Core Document 31.6). Given that the habitats in the proposed development area

comprise predominantly active arable fields they generally have limited ecological value. There are exceptions however with some areas of habitat found within the

proposed development area that are Habitats of Principal Importance in England (NERC Act, 2006), Merseyside BAP Habitats, and Cheshire BAP Habitats, including the field

boundaries (e.g. hedgerows and ditches), ponds and areas of broadleaved woodland. The site is considered to have the potential to support a number of protected species,

including great crested newt, badger, roosting bats, reptile species and nesting and feeding birds.

9.17 Further survey work will be required at project stage (prior to the submission of project specific planning applications by the Airport) to identify the presence/likely absence of

protected species. This, together with the phase 1 habitat information will be used to help inform future design of the site to reduce environmental impacts, develop

38 See also Current Constraints and Requirements for Expansion (CD31.1 and 31.2) and Economic Impact

Assessment (CD 31.3)

35

appropriate mitigation and/or compensation and highlight areas for enhancement to

maintain biodiversity in the area.

9.18 This further work will also consider impacts on the adjacent Site of Special Scientific

Interests, particularly in relation to non-avian features.

Conclusion – ecology

9.19 The expansion of LJLA in accordance with the provisions of Policy EC7 (as proposed to be changed) has been assessed within the Local Plan HRA (CD 30.0). The HRA

concludes that the Policy includes the necessary safeguards to meet the requirements of the Habitats Regulations. Policy EC7 (as proposed to be changed) includes

appropriate provisions to ensure that any necessary mitigation and/or compensation, including any mitigation and/or compensation for other ecological impacts is agreed

and incorporated into the development proposals as part of the project-specific HRA (and/or EIA) process to support a future planning application. The Airport will consult

LCC, MEAS and NE on the scope of future assessment including any project-level HRA. Policy EC7 (as proposed to be changed) provides that permission be granted where

relevant criteria of the policy have been complied with and therefore provides sufficient safeguards at a project level to ensure compliance with the Habitat

Regulations.

Heritage Assets

9.20 In order to inform the Local Plan LJLA commissioned a Built Heritage Review of built

heritage assets (Core Document 31.4) and an Archaeological Appraisal of the potential for below ground archaeological interest (Core Document 31.5) within the area

affected by the proposed airport expansion. These documents have been reviewed by the Council’s heritage team.

Built Heritage 9.21 The land to which Policy EC7 relates overall includes the Grade II Listed Building, Yew

Tree Farmhouse39. Several other Listed Buildings are located within close proximity to this area, including Speke Hall (Grade I Listed) with several supporting structures/

outbuildings (individually Grade II Listed), All Saints Church (Grade II Listed), and Liverpool Speke Airport Complex (individual buildings Grade II* Listed). There are also

several Listed Buildings (Grade II and Grade II*) and two Conservation Areas within Hale Village, to the east of the airport.

9.22 The land specifically for expansion of the Airport to its south is located a considerable distance from other designated heritage assets that surround the site, as well as both

Conservation Areas. The land to be released from the Green Belt has no historic, functional or visual relationships with the majority of the surrounding heritage assets,

and redevelopment of this land would not affect any elements of their setting which contribute to their significance (see Core Document 31.4 section 6).

9.23 Speke Hall and its associated listed structures and outbuildings once had a visual relationship with the expansion land but through more recent development have been

39 List Entry Number: 1208621. Date First Listed: 14 March 1975.

36

separated from it by a substantial bund and planting, positioned along the western

boundary of the Airport (see Core Document 31.4 section 6). Additional areas of hard surfacing and minor built development at the western edge of the current airport

boundary would be experienced from the views from the grounds of Speke Hall; however this will not alter the experience or appreciation of the significance of the

Listed Buildings (see Core Document 31.4 section 6).

9.24 Furthermore, from within the grounds of Speke Hall, the expansion of LJLA would not

be visible and whilst the land originally held a historic and functional association with the estate, this has been disconnected by later development and is now no longer

legible. The physical expansion of the Airport would therefore not affect those elements of setting which contribute to the significance of the Listed Building (see Core

Document 31.4 section 6).

9.25 There is potential for Yew Tree Farmhouse to be affected by the proposed

redevelopment of the surrounding agricultural land. Accordingly the Built Heritage Review makes initial recommendations for mitigation measures (see Core Document

31.4 section 6). The wording of Policy EC7 makes clear that planning applications will need to be accompanied by assessments of the impacts on heritage assets and that

development will only be permitted where satisfactory mitigation is implemented. The proposals would also need to comply with the heritage policies of the Local Plan.

9.26 It can therefore be concluded that the policy includes appropriate provisions to ensure full consideration of impacts on any heritage assets either within or surrounding the

site.

Archaeology

9.27 The Archaeological Appraisal (Core Document 31.5) has considered the quantity, proximity and significance of known and predicted archaeological/ historical sites

within the proposed development site, as well as the surrounding area.

9.28 The report has identified a high potential for pre-historic activity on land south of Oglet

Farm (see Core Document 31.5 paragraph 5.3). It has identified medium potential for the western margins close to Speke Hall, which are likely to comprise regionally

significant remains (see Core Document 31.5 paragraph 5.3). The report confirms that there is low potential for pre-historic activity for the rest of the Master Plan area (see

Core Document 31.5 paragraph 5.4).

9.29 The report considers that the potential for Roman remains is medium on the western

margins near Speke Hall, but the potential in other areas is thought to be low (see Core Document 31.5 paragraph 5.5).

9.30 The potential for early medieval remains is considered to be low, with any remains likely to be solely of local interest (see Core Document 31.5 paragraph 5.7).

9.31 The potential for medieval remains is considered to be moderate near Dungeon Lane (to the east of the runway) and low within the remainder of the area (see Core

Document 31.5 paragraph 5.8).

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9.32 The findings confirm that the potential for post-medieval remains within the majority

of the Master Plan area is considered to be moderate for significant archaeological remains (see Core Document 31.5 paragraph 5.12). The areas around the former Salt

Works (on the foreshore of the Mersey), Hale Mill and Dungeon Mill (two former mill sites located within the Master Plan area, identified on the first edition Ordnance

Survey (OS) Map 1845 but demolished by the 1894 OS Map) are thought to have a high potential, with the potential for local or regionally significant archaeological remains to

survive (see Core Document 31.5 paragraph 5.13).

9.33 The report has identified a low potential for modern remains (see Core Document 31.5

paragraph 5.16).

Conclusion - heritage

9.34 The expansion of LJLA in accordance with Policy EC7 is considered unlikely to have significant adverse impacts on heritage assets. The provisions of Policy EC7 (and other

heritage policies of the Local Plan) provide that full assessments are undertaken and that mitigation measures are incorporated thereby safeguarding the built heritage

value and archaeological potential of the area.

Noise

9.35 The Environmental Management Strategy that has been adopted by the Airport

includes a range of policies and operating procedures that address several issues, including impacts upon noise.

9.36 Assessments carried out as part of the Airport Master Plan indicate that the proposed expansion of the airport would result in aircraft noise levels comparable with those

occurring today (see Core Document 17 section 9, pages 53-57). They indicate no significant impact predicted on either local schools or hospitals with the exception of

the primary school in Hale for which mitigation measures will be developed and implemented, if necessary, following further assessment (see Core Document 17

section 9, page 59). The HRA (CD30.0) specifically addresses potential noise impacts on the Mersey Estuary (section 9.6.4).

9.37 For road traffic noise, an overall increase is expected by 2050; however this is anticipated to be small scale and assisted by the take-up of electric vehicles (see Core

Document 17 sections 9, page 59). The most sensitive receptor will be the existing residential properties along the southern boundary of Speke (northern boundary of the

Airport) and as such, suitable mitigation measures will be introduced, if necessary, following further assessment.

Conclusion – noise 9.38 The evidence which supports the Airport Master Plan referred to above indicates that

noise impacts from aviation are likely to remain around current levels. There could be some localised impacts of traffic noise which would be mitigated as part of

development proposals. Policy EC7 ensures that these matters would be fully assessed and any necessary mitigation included within any development that is brought

forward.

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Air Quality

9.39 In terms of air quality, the Council has carried out monitoring of nitrogen oxide and

particulates (PM10) concentrations, and it can be confirmed that the UK objectives are expected to be achieved near to LJLA, under existing conditions (see LJLA Master Plan

to 2050 (Core Document 17 section 9, page 58). The HRA (CD30.0) specifically addresses potential air quality impacts on the Mersey Estuary (section 9.6.4).

9.40 Whilst the anticipated increase in air and ground traffic may result in increased concentrations of nitrogen oxide and PM10, this is anticipated to be offset by

improvements in vehicle and aircraft technologies that will reduce the emissions per movement. It is therefore unlikely that the proposed expansion of LJLA will lead to

exceedances of the objectives in future years and suitable Local Plan policies will provide further management to this matter as the proposals progress (see Core

Document 17 section 9, page 58).

Conclusion – air quality

9.41 Evidence which supports the Airport Master Plan indicates that air quality will remain within UK objectives. Policy EC7 ensures that these matters would be fully assessed

and any necessary mitigation included within any development that is brought forward.

Transport

9.42 The site is strategically located, within the Liverpool ‘Southern Corridor’ for which Speke Boulevard is the main distributor road (see figure 9.1). Speke Boulevard is a main

route into central Liverpool and is an important corridor for existing, proposed and potential development.

Figure 9.1: Liverpool ‘Southern Corridor’

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9.43 The A561 Speke Boulevard contains land with significant development potential. A

steering group comprising representatives of Liverpool City Council. Halton Borough Council, Knowsley Borough Council, MerseyTravel (the local passenger transport

executive for the LCR) and LJLA are investigating the potential to provide improved connections along this route including improved access to the Airport. Public transport

accessibility and traffic impacts of the expansion of LJLA will be assessed further as part of planning applications in accordance with the provisions of Policy EC7. In particular,

and in accordance with its Airport Surface Access Strategy40 (Core Document 31.9), the Airport will continue to work with partners to encourage increased use of accessible

modes of travel, minimise traffic impact, specifically at highway network peak t imes and mitigation measures will be implemented alongside development. This is required

in accordance with Policy EC7.

9.44 The capacity and operation of the surrounding highway network has been researched

as part of the preparation of the Airport’s Master Plan (see Core Document 17 section 7, page 43). Specific proposals have been assessed as part of planning applications.

The potential for junction improvements has already been agreed in principle with the Local Authorities. These would provide increased capacity and are intended to serve

the medium-term demand. The need for particular mitigation measures would be assessed in the context of specific proposals and in accordance with Policy EC7 would

be addressed in any planning permissions for expansion of the airport.

9.45 LJLA has also worked in partnership with other members of the steering group to

explore opportunities to maximise the capacity of the existing transport network (see Core Document 17 section 6, page 36). This has included investigating potential

sources of funding to support the delivery of an Eastern Access Transport Corridor (EATC) which would significantly improve transport connections in this part of South

Liverpool and further support its regeneration. LCC supports this collaborative approach to further explore funding and route options.

Conclusion – transport 9.46 The Airport continues to work with other stakeholders to consider the opportunities

for optimising public transport accessibility and providing highway improvements in line with airport growth. This is in accordance with the measures set out within the

Airport Surface Access Strategy (see Core Document 31.9 section 2). Over the short term it is expected that highways impacts will be mitigated through improved

accessibility to sustainable modes of transport and highway improvements at localised junctions. LJLA continues to work with LCC and others to support the delivery of the

Eastern Access Transport Corridor, which would increase highway capacity for the wider Speke Southern Corridor and in turn form part of LJLA’s longer term strategy as

set out in the Airport Master Plan (Core Document 17 page 36).

40 The Airport Surface Access Strategy is available via the following link:

https://www.liverpoolairport.com/media/1945/ljla-asas-issue-5-july-2016.pdf

40

Agricultural Land

9.47 In 2005 LJLA commissioned a study to understand the potential impacts on agricultural

resources that would occur should the Airport be expanded as anticipated within the Master Plan41 (Core Document 31.8).

9.48 The Assessment establishes that the land is currently mostly arable, dominated by cereals and oilseed rape with some permanent pasture. The land to the south of the

Airport, around the Oglet, mainly supports a mixture of main crop carrots and potatoes, cereals and set-aside or rough grass.

9.49 The Study identifies that the land to be released from the Green Belt comprises both Grade 2 (Very Good) and Grade 3a (Good to Moderate) within the Agricultural Land

Classification (See Core Document 31.8 section 2).

Conclusion – agricultural land

9.50 In accordance with paragraph 112 of the NPPF (2012) the Council has considered the economic and other benefits the agricultural use of this land supports. It has also

considered whether poorer quality agricultural land could be used. It is concluded that since the expansion of LJLA can only occur in this location there is no option to locate it

on lower grade land. The very significant economic and social benefits for the City Region of the planned expansion of LJLA far outweigh the value of agricultural use of

the land. The Sustainability Appraisal of the draft Local Plan concludes that Policy EC7 would have a “negligible” impact on soil resources (see SD8 Table 5.5 page 54).

Landscape Quality and Character

9.51 The Airport’s Master Plan42 confirms that existing views of the buildings and structures associated with LJLA are available from many locations in the vicinity. Visual sensitivity

from the north of LJLA is low due to the low visual quality in this area. Where appropriate existing boundary mounding and fencing would be upgraded with

increased planting alongside Hale Road. The proposed layout, massing, scale and roofscape of buildings within LJLA are unlikely to significantly affect their visual effect

from the north. This would be a matter dealt with at planning application stage.

9.52 To the south, the agricultural character of the land would be changed by the

introduction of new buildings to the south of the runway. There will be a landscape impact from a development of this scale but by retaining features where possible and

through screening and planting, it is considered that this can be mitigated. LJLA have not done nor would expect to do detailed landscape work at this stage. Policy EC7 and

other Local Plan policies are considered to give suitable protection and development management guidance. Accordingly careful consideration during detailed design

41 Reading Agricultural Consultants (RAC) prepared the Agricultural Land Classification (ALC) Report for LJLA. RAC

has confirmed that the results of the survey that was carried out in 2005 and reported in October 2005 remain valid

as the ALC system is concerned with the long-term inherent physical properties of soil profiles and their interactions with site factors and local climate, rather than with short-term nutrient status or type of management. ALC grades

do not therefore change in the short to medium term. 42 LJLA (2018) Master Plan to 2050, page 63 (Core Document 17)

41

would ensure that where possible, existing landscape features are retained. No

significant impacts are envisaged on the shore and the adjacent cliffs. Key residual impacts would be minimised through extensive mitigation planting and earth works to

screen and enclose development to the southern boundary as part of the planned coastal reserve. This would safeguard the visual amenity of the Mersey Way coastal

path.

9.53 The planned coastal reserve would be designed and managed for a range of objectives

including to protect and enhance the landscape, provide habitats and enhance its biodiversity, while facilitating public access in ways compatible with these objectives.

Conclusion – landscape 9.54 It is concluded that the proposed expansion at LJLA in accordance with Policy EC7 will

not lead to significant adverse impacts upon the landscape quality or character of the surrounding area, and suitable planting will inform proposals as they progress.

Conclusion

9.55 The potential environmental impacts of the provisions of Policy EC7 for the expansion of the Airport have been assessed based on available evidence. This includes

assessment of impact on the Mersey Estuary SPA through the HRA that accompanies the Local Plan. This shows that there are unlikely to be significant environmental

impacts that are not capable of mitigation as part of the development. Policy EC7 establishes detailed criteria regarding assessment of potential impacts and

requirements for mitigation with which proposals must comply if they are to achieve planning permission.

9.56 Detailed assessments would be undertaken as part of any planning applications. Where necessary further baseline survey work will be undertaken to inform such

assessments. Where applicable applications would be subject to Environmental Impact Assessment and Appropriate Assessment in accordance with the Habitat Regulations.

Such assessments would identify precise impacts and inform appropriate mitigation in consultation with relevant consultees and stakeholders.

9.57 Policy EC7 includes provisions such that development would be subject to appropriate assessment of its impacts and the implementation of appropriate and proportionate mitigation measures to address potential environmental impacts. The provisions of Policy EC7 require specific consideration of potential impacts on:

• the natural, built and historic environment with specific reference to international, national and local assets;

• adjacent residents and others (including those outside the City) in the vicinity of flightpaths, of any increases in traffic, noise and air pollution, including those

generated by construction activity; and

• the local and regional transport network.

42

9.58 This is considered to give clarity to applicants as to the types of development which will

be accepted and provides sufficient control for the Council to resist development which would have significant adverse environmental impacts.

9.59 In response to particular concerns raised in representations to the pre-Submission Draft Local Plan and the recommendation of the Inspector in his Initial Questions and

Comments, the City Council has proposed changes to the wording of Policy EC7 and its reasoned justification. The text of the proposed change is set out at paragraph 1.5

above.

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Part 3: Exceptional Circumstances

44

10. The Case for Expansion

Exceptional circumstances to justify Green Belt boundary change

10.1 The aim of Policy EC7 is to facilitate expansion of LJLA to:

• meet future business and leisure passenger travel needs of the LCR in a manner which also enables it to maintain and grow its non-passenger aviation services;

and

• provide opportunities for inward investment by aviation companies such as MRO

and cargo operators which require airside land and buildings, together with other companies, both within and outside aviation and aerospace sectors, which

seek airport locations which are unique in the international connectivity they bring.

10.2 In so doing, the policy aim is to maximise the unique economic opportunity which LJLA brings to the City Region and optimise its contribution to the economy of the LCR and

wider region. Accommodating the forecast growth in demand for passenger services while retaining and growing other aviation and employment uses at the Airport

requires expansion onto land to the south of the runway that is currently within the Green Belt. Policy EC7 of the Local Plan proposes an amendment to the Green Belt

boundary to facilitate this, as was found to be justified by the former North West RSS.

10.3 In accordance with national planning policy the review of Green Belt boundaries is only

justified in exceptional circumstances. In order to consider whether exceptional circumstances exist in this case it is necessary to weigh the impacts on the Green Belt

and on other material considerations against the need for and benefits of the expansion. In this case the other material considerations include the potential for

impacts on the natural environment, including the international designations of the Mersey Estuary; the historic environment, including Speke Hall and a number of other

heritage assets and potential archaeological interest; the amenity and safety of local residents; and local transport considerations.

Impacts on Green Belt 10.4 As demonstrated in section 8 above the land south of the runway is a narrow “limb” of

Green Belt which extends westwards from a broader area of Green Belt in Halton. It serves a limited function in respect of two of the purposes of Green Belt. Its release

from the Green Belt would have limited impact on these purposes in that the proposed development would result in some loss of openness through the expansion of the built-

up area of LJLA and a limited encroachment into the countryside. This level of harm to the purposes of Green Belt must be weighed with other impacts against the benefits of

the proposals.

10.5 The removal of this land from Green Belt will have no wider implications for the

Merseyside Green Belt. The new boundary would run along Dungeon Lane and would be logical and defensible. The land which is not required for development would be

appropriately managed through normal development management policies - for example Policies GI5 relating to green infrastructure and R4 on Coastal Protection.

45

10.6 Halton Council is in the process of reviewing Green Belt through its development plan.

This includes consideration of a review to accommodate the growth of the Airport including in particular an eastwards extension of the runway. The extent of change

needed to accommodate the planned expansion of the airport is relatively minor and would be able to define a new defensible boundary. The resulting changes would

create a logical and defensible Green Belt boundary for both Liverpool and Halton.

Other impacts

10.7 As set out in section 9 above, the potential impacts of the planned expansion of the airport in accordance with Policy EC7 have been assessed. The Airport commissioned

studies to inform this Paper. These have been reviewed by the City Council and its ecology advisor. Where relevant their findings, along with other available evidence,

have been taken into account in the revised Habitat Regulations Assessment (CD30.0) and the Sustainability Appraisal (SD8) of the Local Plan. It is acknowledged that it will

be necessary to consider and agree the need for further baseline studies to inform project specific assessment of likely effects at planning application stage. The work

undertaken to date is nevertheless helpful in informing the provisions of the Local Plan.

10.8 The assessments indicate that, subject to any necessary further detailed survey work,

detailed design, assessment of specific development proposals, and the incorporation of appropriate mitigation measures, the planned expansion of the airport is unlikely to

have significant adverse environmental impacts. Policy EC7 provides that development would be subject to appropriate assessment of its impacts and the implementation of

appropriate and proportionate mitigation measures to address potential environmental impacts.

10.9 In considering the soundness of Policy EC7 the likely impacts must be weighed against the need for and benefits of the proposed development.

Need for and benefits of expansion of LJLA 10.10 LJLA is a unique and crucial economic and transport asset which serves the needs of

the LCR and wider region. It provides a range of passenger services alongside business and general aviation and related specialist services. It is the only airport within the LCR

and the closest and most sustainable location from which residents and businesses can access air transport services. It is a vital part of the economic and transport

infrastructure of the city region which is of significant benefit to residents and businesses.

10.11 It meets the needs of residents of LCR and businesses in the city region for air travel. As set out below its growth would enable it to better meet these needs and in doing so

‘claw back’ some of the leakage of passengers to other airports and reduce the need for longer and unsustainable surface access journeys, thereby also retaining the

economic benefit of those journeys within the City Region.

Economic role and benefits of LJLA today

10.12 LJLA plays a significant economic and social role in the Liverpool City Region. It is part of the network of international airports that meets the needs of the North of England

(see for example Appendix 1 paragraphs 17 and 18). It plays a particularly important role in meeting the travel needs of its core catchment, enhancing the competitiveness

46

of local business and supporting a very strong and growing visitor economy in Liverpool

(see the Economic Impact Assessment (Core Document 31.3) section 2).

10.13 LJLA is both a vital international gateway for business and leisure travel and a major

driver of the City Region’s economy. Almost one third of its passengers are inbound visitors who make a major contribution to the cultural and tourism economy of

Liverpool and the wider region (see Current Constraints and Requirements for Expansion (Core Document 31.1) paragraph 2.26). The connections it provides support

improved access to international markets and enhance the competitiveness of numerous businesses across the City Region.

10.14 LJLA currently supports 2,550 jobs on and around the Airport itself and a further 6,500 jobs in the wider economy (see the Economic Impact Assessment (Core Document

31.3) Table 2.1 (page 9) and Table 2.3 (page 11) respectively). Through supply chain impacts it supports around a further 11,700 jobs across the North of England. It also

contributes £285m GVA to the economy of the City Region and £450m GVA to the economy of the North (see the Economic Impact Assessment (Core Document 31.3)

Table 2.3 (page 11)).

10.15 These benefits are very significant. Their significance increases when viewed in the

context of the particular economic and social challenges which Liverpool faces and which contribute to it being ranked the 7th most deprived Local Authority area in

England according to the Indices of Multiple Deprivation produced by the MHCLG (see the Economic Impact Assessment (Core Document 31.3) paragraphs 6.20 – 6.24).

These benefits have played a significant part in supporting and enabling the urban regeneration of the Speke Garston area (which includes some of the most deprived

areas in England) and of South Liverpool more generally (see section 7 above).

Planned expansion

10.16 LJLA has prepared passenger forecasts and assessed potential need for other non-passenger services over the long term. The Airport Master Plan (Core Document 17)

shows how these needs can be accommodated. This requires expansion of passenger services on the north side of the runway and relocation and expansion of other services

to the south of the runway. In order to expand the airport in the most sustainable and cost-effective way needs have been considered over the short term and medium term.

Short term expansion needs (see paragraph 4.10 above) 10.17 The Airport is experiencing rapid growth in demand for its passenger services. Aspects

of its operations are at or near their practical capacity. Development is needed in the short term to address these pinch points and to build capacity to accommodate future

passenger and commercial aviation needs. Further details are set out in Current Constraints and Requirements for Expansion (Core Document 31.1 section 7). This will

necessitate the relocation of some existing non-passenger airport facilities from the north side of the runway. The only suitable alternative location for such facilities is to

the south of the runway on land currently designated as Green Belt. This relocation would enable expansion of current cargo and business and general aviation uses which

occupy constrained locations on the north side of the runway.

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Medium term expansion needs (see paragraph 4.11 above)

10.18 Over the medium term there is a need to accommodate likely passenger growth (see paragraph 4.2 above). This includes serving additional routes, including long haul,

services for which LCR residents currently have no alternative but to travel to Manchester Airport or to airports even further afield.

10.19 There is also a growing need to provide for expanded non-passenger aviation facilities such as MRO services, cargo facilities and aerospace, aviation and related uses (see

paragraphs 4.15 – 4.24 above). Over the medium-term the vast majority of the north side of the airport will be required to meet passenger needs and the only available

alternative location for displaced and/or expanded non-passenger facilities is the land to the south of the runway.

10.20 The Airport is a fixed asset. There is no other airport in the LCR and no comparable international airport elsewhere within LJLA’s principal catchment. The services and

facilities that will be needed rely on direct airside access and/or international connectivity that an airport location offers. They could not be accommodated

anywhere other than at LJLA. The only land at LJLA that is suitable to accommodate this growth is the land to the south of the runway which is proposed to be removed

from the Green Belt by Policy EC7.

Benefits of the planned expansion of LJLA

10.21 The planned growth of LJLA, including its physical expansion, has policy support at national, regional and local level (see Appendix 1 including paragraphs 1 - 8; 17 – 26;

28; and 42 – 48). The Independent International Connectivity Commission supports the growth of the airports of the North of England as economic hubs (see Appendix 1

paragraphs 24 and 25). This is consistent with Government Policy within the Airports National Policy Statement (see Appendix 1 paragraphs 6 – 8).

10.22 The scale and reach of the social and economic benefits which LJLA delivers make the optimising of its growth and positive socio-economic impacts of strategic significance

to the City Region, the North West and the North of England (see the Economic Impact Assessment (Core Document 31.3) Table 4.2 (page 31)). Planned expansion requiring

removal of land south of the runway from Green Belt has featured in previous regional development plans and draft Local Development Plans (see Appendix 1 paragraphs 41

– 44). The Local Plan presents the opportunity to make specific provision for such planned expansion and associated Green Belt removal over the plan period and

beyond.

10.23 LJLA is the nearest international airport for a catchment population of c.3.2 million

people (see Current Constraints and Requirements for Expansion (Core Document 31.1 Figure 2.3)) and offers choice to residents of a much wider catchment, including North

Wales which lacks any alternative closer service. Successfully meeting the needs of this population for aviation services avoids the need for less sustainable longer surface

access journeys to airports further afield and the consequential loss to the LCR of the associated economic benefits.

10.24 Despite this a significant number of residents of the LCR do fly from airports further afield (principally Manchester) (see Current Constraints and Requirements for

Expansion (Core Document 31.1 Figure 2.3)). To put the number that do so into

48

context, LJLA currently has a total annual passenger throughput of 5.3 million whilst

the same number of passengers travel from LJLA’s catchment to fly from Manchester alone. LJLA’s planned expansion will enable it to better serve the needs of LCR and

reduce this “leakage” outside the city region.

10.25 The planned expansion also provides the City Region’s only opportunity to attract

additional MRO, cargo and aerospace businesses to the LCR. These would bring high quality employment opportunities and potentially significant Foreign Direct Investment

into the LCR that would not otherwise be attracted. Such businesses cannot currently be accommodated at LJLA as there is no suitable or available land. There is no other

airport location in the LCR that could accommodate such businesses.

10.26 The proposed release from the Green Belt of a land south of the runway with direct

access to the runway and other airport services and facilities therefore offers the potential to attract large scale and high value employment and economic activity of the

type which LCR’s economic and regeneration strategies seek to encourage and which Government policy seeks to secure at airport locations. Such development can only

take place at the airport. There is no alternative location that would meet this need.

10.27 If LJLA is unable to meet this need it could be lost to the city region and potentially to

the UK.

10.28 It is evident that the potential socio-economic benefits of expansion of the Airport are

huge. The proposals set out in the LJLA Master Plan and provided for by Policy EC7 could directly deliver around 8,770 FTE jobs and add £605 million GVA per annum to

the City Region economy over the plan period. This represents a major boost to the economic strategy of Liverpool. When multiplier effects are considered across the

North of England this rises to 14,360 FTE jobs and £861m (see the Economic Impact Assessment (Core Document 31.3) Tables 4.2 (page 31) and Table 4.3 (page 32) and

paragraphs 4.48 – 4.50).

10.29 When wider impacts are taken into account additional economic benefits include the

following:

enhanced competitiveness that direct international connectivity and accessibility

brings to existing and future businesses in LCR, including the additional attraction to locate there to benefit from such enhanced accessibility (see the Economic

Impact Assessment (Core Document 31.3) paragraphs 2.16 – 2.19); and

support the Airport brings for inbound tourism which is a major and growing part

of the economy of the LCR (see the Economic Impact Assessment (Core Document 31.3) paragraph 2.26).

10.30 These positive socio-economic impacts are of even greater significance when the following are taken into account:

• The aviation sector in general and the Airport in particular support and create the types of high skilled and high value jobs which directly support the Council’s

strategic objectives of addressing deprivation and stimulating economic growth

49

(see the Economic Impact Assessment (Core Document 31.3) paragraphs 6.5 –

6.19); and

• Liverpool being the 7th most deprived local authority area in England, and parts of

the adjacent community of Speke being in amongst the most deprived areas in the country (see the Economic Impact Assessment (Core Document 31.3)

paragraphs 6.20 – 6.24).

10.31 These benefits can only be delivered through the release of land at the Oglet for

expansion of non-passenger facilities and clustering of other uses, enabling the optimisation of passenger growth on the north side. Without the availability of the

additional land to the south of the Airport the expansion of LJLA would be physically constrained to available land on the north side of the runway. Under these conditions

the Airport would contribute c. 7,780 fewer FTE jobs and £531m less GVA by 2030 to the economy of the LCR (see the Economic Impact Assessment (Core Document 31.3)

paragraph 5.10).

10.32 This increases to c. 12,410 fewer FTE jobs and £737 million less GVA annually across

the North of England (see the Economic Impact Assessment (Core Document 31.3) paragraph 5.11).

10.33 This assumes that passenger and non-passenger services expand to the maximum capacity of the currently available non-Green Belt land. An arguably more likely

scenario is that as the Airport once again nears its practical capacity, and assuming other airports continue to expand and improve their facilities, LJLA will become a less

attractive location for operators. It is therefore possible that LJLA would lose certain operators and effectively peak at a level of activity below maximum capacity. Under

this potential scenario the Airport would contribute c.8,580 fewer FTE jobs and £576 million less GVA by 2030 across the Liverpool City Region, than if it is able to expand in

accordance with its Master Plan and the provisions of Policy EC 7 (see the Economic Impact Assessment (Core Document 31.3 paragraph 5.22). This foregone opportunity

would increase to c. 13,810 fewer jobs and £817 million less GVA across the North of England (see the Economic Impact Assessment (Core Document 31.3) paragraph 5.23).

10.34 These constrained scenarios represent missed opportunities for LCR and would see continued leakage of major economic benefits outside the City Region as well as longer

and unsustainable surface access journeys to other airports further afield.

Planning balance

10.35 In conclusion it is considered that, taken together the following factors comprise

compelling exceptional circumstances:

the unique and strategic significance of LJLA, as an employer, an international

gateway and an economic asset (which provides a unique cluster opportunity) to the growth and regeneration of the City Region;

the drivers of growth in activity at the airport which would enable it to better serve the leisure and business passenger needs of the city region and reduce

leakage of LCR residents to other airports outside the LCR;

50

the significant social and economic benefits that expansion of LJLA would deliver

over the Plan Period including very significant job creation (8,770 FTE jobs in the LCR; 14,360 FTE jobs across the North of England); economic growth (£605 million

GVA in the LCR; £861 million GVA across the North of England) and a reduction in the need to travel to airports further afield;

the particular contribution these can make to the broader economic and regeneration ambitions of Liverpool and the LCR which is the 7th most deprived

local authority area in England;

the absence of alternative sites capable of meeting this need; and

the limited contribution of the land south of the runway to the purposes of Green Belt and the limited impact the proposals would have on the purposes of the

Green Belt.

10.36 These are very weighty considerations which outweigh the limited impact on the

purposes of Green Belt and other environmental impacts of the proposed release of the land at the Oglet for development necessary to achieve the optimal expansion of

LJLA (c. 119ha). The provisions of Policy EC7 including the amendment of the Green Belt boundary are therefore considered to be justified and able to ensure that an

appropriate balance is struck between supporting the growth and regeneration of the City while safeguarding its natural and built environment. The policy provides

appropriate provisions to ensure that potential adverse impacts of such development are thoroughly assessed and that where needed appropriate mitigation measures are

incorporated into proposals. These are matters which would be properly addressed at planning application stage for particular projects.

51

Appendix 1: Summary of Strategic Policy Considerations

National policy

National Planning Policy Framework 1. The 2018 NPPF promotes sustainable transport (section 8). Specifically with regards to

planning policies paragraph 104 (e) confirms that they should provide for large scale transport facilities that need to be located in the area with footnote 42 directly

referencing airports. It also confirms that this includes planning for “the infrastructure and wider development required to support their operation, expansion and

contribution to the wider economy.”43

National Aviation Policy

2. The Aviation Policy Framework (APF)44 set out the government’s policy to allow the aviation sector to continue to make a significant contribution to economic growth

across the country.

3. In the short to medium term, a key priority is to work with the aviation industry and

other stakeholders to make better use of existing runway capacity at all UK airports.

4. The Government is currently consulting45 on a new Aviation Strategy which will set out

the long term direction for aviation policy to 2050 and beyond. In her foreword to the consultation the Aviation Minister reaffirmed the importance of aviation to the UK

economy:

“Aviation has long been at the heart of the United Kingdom’s economic success.

From its earliest days, flight has helped forge international trade links and created vital domestic connections enabling our country to flourish.

Today we have the largest aviation network in Europe and the third largest in the world, an industry that contributes at least £22 billion to the UK economy, along

with over 230,000 jobs46”.47

5. A call for evidence was launched in 2017 with a report on next steps published in April

201848 to reflect on the issues raised. This also referenced the latest passenger

43 NPPG (2018), paragraph 104(e) 44 Aviation Policy Framework. Department for Transport. 2013 45 Aviation 2050 – the future of UK aviation (MH Government. 2018):

(https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/769695/aviat

ion-2050-web.pdf) was launched in late 2018 and the consultation period was extended to June 2019. 46 The North West is noted as having a particularly strong aviation sector with 12% of jobs in the sector being

located within the region. Aviation 2050 – the future of UK aviation. HM Government December 2018. Page 21 47 Ibid. Page 6 48 Beyond the horizon – the future of UK aviation. Next steps towards an Aviation Strategy. Department for

Transport. 2018

52

forecasts which identified that passenger numbers are anticipated to increase to 410

million by 2050.

6. With regards to the relationship with the Northern Powerhouse it references the

Northern Powerhouse Connectivity Week (February 2018) which it notes: “highlighted the region’s strong global connections that facilitate critical trade and exports across

the UK. Airports and ports are the North’s global gateways, driving much of the trade and travel that attracts inward investment and creates jobs.”49

7. In setting out the strategic themes of a future aviation strategy the 2018 consultation makes the Government’s objectives for regional airports such as LJLA clear:

“Support regional growth and connectivity

Airports are vital hubs for local economies, providing connectivity, employment,

and a hub for local transport schemes. The government wants to see, through the aviation Strategy, that these benefits are maximised, by ensuring that:

markets are functioning effectively for consumers and local communities

airports are delivering the connectivity that regions need to maximise their potential

the industry continues to provide high quality training and employment opportunities

barriers to the air freight industry are reduced

The government recognises the importance of rebalancing the UK economy

through economic growth of the regions and ensuring that the UK remains competitive after we leave the European Union. Airports have a crucial role to play

as hubs for growth within and beyond the region in which they are situated. The government is committed to working with the industry to develop appropriate and

practical policies that support the industry’s ambitions. The Aviation Strategy consultation focuses on:

regional connectivity

regional transport hubs

supporting freight

regional employment, training and skills”50.

8. In setting out the approach to regional airports paragraphs 4.1 and 4.2 of the

consultation document state that:

49 ‘Beyond the horizon: The future of UK aviation – Next steps towards an Aviation Strategy’, Department for

Transport. April 2018, page 13 50 Aviation 2050 – the future of UK aviation. MH Government December 2018. Page 14

53

“Airports can directly support thousands of jobs and generate economic benefits

beyond the airport fence. Core and specialist aviation services, freight companies, logistics hubs and aerospace investment are often located close to airports,

creating jobs in the local area. Regional airports also act as wider magnets attracting non-aviation businesses due to the air connections the airport offers but

also the strong road and rail access links that support the airport. They act as a gateway to international opportunities for the regions of the UK.

The government recognises the importance of rebalancing the UK economy through the economic growth of the regions and ensuring that the UK remains

competitive after we leave the EU. Through the Industrial Strategy, the government has set out its ambition to create a geographically-balanced economy

that works for everyone. This will be supported by local enterprise partnerships, mayoral combined authorities, the Northern Powerhouse, the Midlands Engine

and the devolved administrations”51

.

Airports National Policy Statement

9. The government published its Airports National Policy Statement in June 2018. This confirmed that the UK aviation sector contributed around £20 billion per year and

directly supported approximately 230,000 jobs. It also confirmed that the ‘positive impacts of the aviation sector extend beyond its direct contribution to the economy by

also enabling activity in other important sectors like business services, financial services and the creative industries.’52

10. The statement reaffirms that: ‘International connectivity attracts businesses to cluster round airports, and helps to improve the productivity of the wider UK economy. Large

and small UK businesses rely on air travel, while our airports are the primary gateway for vital time-sensitive freight service.’ 53

11. The statement recognises the need for new airport capacity and sets out the approach to increasing airport capacity in the South East of England. It identifies the

Government’s preferred scheme, Heathrow Northwest runway, to deliver this additional capacity. It is of note that through its recommendation the Government

sees the expansion of Heathrow Airport as an opportunity to secure new domestic routes to the benefit of passengers and businesses across the UK. A new domestic

route between Heathrow and LJLA is identified as potentially forming part of the expansion of Heathrow Airport54.

The National Industrial Strategy 12. “The Future of Mobility” is one of four Grand Challenges established in the Industria l

Strategy to put the UK at the forefront of the industries of the future and improve people’s lives and the country’s productivity.

51 Ibid. Page 86 52 ‘Airports National Policy Statement: new runway capacity and infrastructure at airports in the South East of

England’. Department for Transport. June 2018, page 5 53 Ibid, paragraph 2.2 54 Ibid, Table on page 25

54

13. The government announced in the Industrial Strategy that it was backing the

aerospace sector and its strengths in productivity and innovation to secure a share of the growing global market. The Aerospace Growth Partnership (AGP), a strategic

partnership between the government and industry, is focused on helping shape and influence a business environment that tackles barriers to growth, boosts exports and

grows high value jobs for the UK aerospace sector.

National Infrastructure Delivery Plan and Pipeline

14. The National Infrastructure Delivery Plan sets out how the Government will support the delivery of infrastructure projects and programmes to the end of this Parliament.

The latest version was published in March 2015, covering five years from 2016 to 2021, reinforcing the Government’s commitment to investing in infrastructure,

acknowledging that airports and ports providing the gateways to international connections from the UK, encouraging the country to grow and prosper.

15. Specifically, the NIP highlights that the Government will ensure the UK’s air links will continue to make it one of the best connected countries in the world.

16. The National Infrastructure Delivery Plan (NIDP) published in 2016 also acknowledged that: ‘Smaller airports are vital for local economies, opening up opportunities and

connecting the UK’55.

17. The National Infrastructure Assessment (2018) established that the UK must take

decisive action to have world leading infrastructure, acknowledging that infrastructure can inspire confidence and growth, however long term projects require a long term

version, lasting plans and stable funding.

Sub-national and city region policy

18. Economic strategy within the City Region and Liverpool has consistently articulated

support for the growth of the Airport as forming a key part of addressing the relative economic weaknesses of the City region.

The Northern Powerhouse: One Agenda, One Economy, One North 19. The Northern Powerhouse: One Agenda, One Economy, One North is a Transport

Strategy that was published in 2015 to set a vision for boosting growth in the North as part of a re-balancing of the UK economy. It seeks to build a Northern Powerhouse

which is built upon a vibrant and growing economy, acting as a magnet for inward investment and capitalising on the strengths of Northern cities.

20. Airports are recognised in the Strategy as being important assets and key economic drivers in the North. The Strategy acknowledges that the existing transport network

needs to be further developed to support the expanding Northern economy. It is anticipated that high quality surface access links to the airports of the North will

55 Infrastructure and Projects Authority, National Infrastructure Delivery Plan 2016-2021 (2016), paragraph 5.11

55

support growth and help the Northern Powerhouse maximise the benefit it draws

from its airport capacity56.

21. LJLA is identified as forming part of the existing quality network of airports in the North

and the Strategy aims that more destinations will be served by the existing quality network carrying over 30 million passengers a year, providing direct links for

businesses and the public to a range of destinations57.

Northern Powerhouse Independent Economic Review (NPIER) 58

22. In 2016 Transport for the North published a comprehensive independent review of the Northern Powerhouse area with a view to identifying how transport interventions

could help to address the current productivity gaps experienced across the North of England in order to support the economic transformation sought under the

Government’s Northern Powerhouse strategy.

23. The NPIER identifies LJLA as an important international gateway for the North59. It

identifies sectors such as life sciences, digital, health innovation and energy, for which international connectivity is important, as prime capabilities. It identifies logistics as

one of a number of enabling capabilities which will be vital to the achievement of growth of the prime capabilities60. It also notes the particular significance of the

visitor economy to the LCR and the role that LJLA plays in this61

Independent International Connectivity Commission Report

24. In February 2017 Transport for the North published the ‘Independent International Connectivity Commission Report’. The Commission was established in the context of

the findings of the NPIER to examine the economic role of international connectivity for the North of England. The report includes the Commission’s assessment of the

current role of the North’s airports and ports in providing the required global connectivity for passengers and freight.

25. The report references that the North’s airports handle 15% of the UK’s airport passengers (39.6 million air passengers per year up to October 2016). It also confirms

that international passenger connectivity contributes £5.5 billion toward the North’s GVA, representing 1.7% of the £317 billion GVA contributed by the North (when

compared to sub-National figures published by ONS in December 2015)62.

26. It is confirmed that achieving economic transformation will require the economic

contribution of international connectivity to grow and air connectivity to become more

56 The Northern Powerhouse: One Agenda, One Economy, One North . 2015, Section ‘Our Plan for Airports in the

North’, page 35 57 Ibid 58 Northern Powerhouse Independent Economic Review. SQW and Cambridge Econometrics. 2016. 59 Northern Powerhouse Independent Economic Review. Pan-Northern Capabilities. SQW and Cambridge

Econometrics. 2016. Paragraph 3.55. 60 Northern Powerhouse Independent Economic Review. Executive Summary. SQW and Cambridge Econometrics .

2016. Pages 14 and 15. 61 Northern Powerhouse Independent Economic Review. Local Area Profiles. SQW and Cambridge Econometrics.

2016. Page 50. 62 Transport for the North ‘Independent International Connectivity Commission Report’. 2017. Foreword

56

important in the future63. It states that: “’business as usual’ activity will simply not be

good enough for the North to meet the ambitions of economic rebalancing. However, with the right support, a transformational Northern economy with increased

international connectivity would provide nationally significant impacts which would benefit the country as a whole.”64

27. It confirms that the size of the international travel market to and from the North of England today is about a third of the size of the air travel market in London and the

South East. The observation is made that: “For the North to punch above its weight economically, the size of the aviation market should be closer to 50% (rather than the

current 30%) of the size of the market in the South East”65.

28. The latent capacity represented by existing Master Plans for airports in the North is

directly referenced as enabling the potential capacity to be expanded to accommodating an additional 60 million air passengers per annum. It articulates that

the Commission ‘believes that the potential benefits delivered through enhanced international connectivity can be a lever to drive growth, rather than simply a response

to it.66’

29. The benefits associated with Airports and Sea Ports as Economic Clusters are

articulated: “By acting as regional growth magnets, airports can use land around their core facilities to support the attraction of other activities which value proximity to an

airport or seek to benefit from the high quality surface access link”.67

30. It also confirms: ‘Airports have the potential to position themselves as linchpins for a

wider economic hubs, supporting the attraction of FDI. This may be through focusing on activities related to the core business, such as logistics or aircraft maintenance, or

may be through more general business park activities, allowing companies to benefit from locating immediately adjacent to an airport.68’

31. Whilst specific focus is placed on Manchester and Newcastle the important role of other regional airports is explicitly recognised. It confirms that: ‘there is a particular

role for the airports in serving their local city regions. In relation to providing enhanced international connectivity focusing on the needs of their local areas, particularly in

allowing day/return business trips to key European cities, as well as a broader function to act as growth nodes as part of LEP level strategic growth priorities.69’ Liverpool is

specifically identified as one of three of the regional airports which have the potential to develop some long haul connections.

63 Ibid 64 Ibid, page 6 65 Ibid, page 12 66 Ibid, page 8 67 Ibid, page 20 68 Ibid 69 Ibid, page 29

57

Liverpool City Region Growth Strategy

32. The Liverpool City Region Growth Strategy, prepared by the Local Enterprise Partnership, was published in 2016. It provides a 25 year vision for realising economic

growth and capitalising on the opportunities presented by Devolution. The Strategy sets a strategic vision for the Liverpool City Region to be ‘the Global Logistics Hub for

the North UK and Ireland’70.

33. Under this vision the development of facilities at LJLA to enable growth in non-

passenger related activities such as cargo, aircraft maintenance and logistics infrastructure are directly referenced71.

34. The Growth Strategy identifies core economic strengths of the City Region as well as core business sectors to target for future growth. These include freight and logistics

which evidently directly tie into the expansion of LJLA.

35. In March 2018, the LEP considered a report on “How Liverpool John Lennon Airport

can best support the growth of the City Region”. The LEP endorsed joint working with the airport and other partners to explore the potential for growth of LJLA’s route

network, improve accessibility to the airport and to further develop non-passenger services as part of an expanded airport.

36. The LEP is in the process of preparing a Liverpool City Region International Strategy. This will draw on work commissioned from EY72. This work has identified Physical

Connectivity, including the strengthening of supply chains and supporting agglomeration and important enablers of sustainable economic growth. The planned

expansion of LJLA to offer a wider network of international connections and to grow its logistics capabilities as part of airport cluster would support this objective.

Liverpool City Region – Skills for Growth 37. The Skills for Growth report published in 2013 provides a strategic overview endorsed

by the Liverpool City Region Employment and Skills Board of the changing employer demand for skills.

38. The report recognises the SuperPort sector which brings together and integrates the strengths of the marine, logistics and aviation sector as key driver of the city region

economy. The report notes that Liverpool City Region has a nationally important concentration of freight traffic, with the Port of Liverpool handling 30 million tonnes of

cargo per year and passenger traffic of over six million per year though John Lennon Airport and cruise and ferry services. It also notes that the City Region has

shipbuilding, manufacturing and specialist professional services supporting maritime and logistics sectors73.

70 Liverpool City Region Local Enterprise Partnership and Liverpool City Region Combined Authority ‘Building our

Future: Liverpool City Region Growth Strategy’ (2016). Page 40. 71 Ibid. Page 40. 72 Formerly Ernst & Young 73 Liverpool City Region Skills for Growth Annual Report (2013), page 69

58

39. A ‘priorities 2015/16 ’ report was subsequently published aiming to support and

further challenge existing curriculum planning within the context of the LCR economy and the identified opportunities for growth. Reference is made to a growing visitor

economy and the impact of growth of SuperPort. The identified skill priorities reflect these sectors with skills priorities including customer service for staff working in front

line customer service roles, practical logistics recognising an increasing need for entry level warehouse skills as well as other applicable areas including digital skills and

science, technology and mathematics at all levels74.

Liverpool City Region Growth Deal

40. The Liverpool City Region Growth Deal was published in 2014 to re-establish Liverpool’s reputation as a first tier global city.

41. A component of the Growth Deal focuses on creating freight and logistics hub(s) to put the city region in the best place to respond to changes in the UK and international

logistics market. The Growth Deal suggests a programme of projects building on the delivery of Liverpool2, the £600m investment in the Mersey Gateway as well as other

projects that are progressing as part of the ongoing Atlantic Gateway initiative.

42. Priorities set out in the Growth Deal include a scheme of improvements to the A5300

Knowsley Expressway to maximise the benefits that the New Mersey crossing will provide in terms of access to LJLA.

SuperPort: Freight and Logistics Hub 43. Published in 2014, the report explains that SuperPort constitutes a multimodal scheme

which combines the strengths of the marine, logistics and aviation sectors in Liverpool City Region to reduce cost and carbon from the movement of goods and at the same

time improve client service.

44. The report notes recent investment of £1bn in port and road infrastructure including

the Mersey Gateway crossing (a new six lane free flowing toll bridge over the River Mersey); the 3MG multimodal; strategic rail freight interchange; and Liverpool 2 a new

deep water container facility capable of handling some of the largest container ships used in global shipping.

45. Given the importance of SuperPort to the economy of the Liverpool City Region, a growth in cargo traffic at LJLA could arise as a spin-off from the increase in freight

traffic.

Transport Plan for Growth (2016)

46. The Transport Plan for Growth75 was published in 2016 to provide a single strategic framework and delivery plan to improve and enhance transport connectivity across

the Liverpool City Region. It is to be developed and delivered in close collaboration with the Merseyside Local Authorities.

74 Liverpool City Region Skills for Growth: Priorities 2015/16, page 6 75 Transport Plan for Growth. Liverpool City Region Combined Authority. 2015.

59

47. The Plan aims to create the right conditions for sustainable economic growth. It

identified that in 2015 the visitor economy of the City Region was worth approximately £3.6bn per annum to the LCR. The proximity and connectivity of LJLA is recognised as

being key to encouraging people to visit and stay in the City Region.

Local policy

48. The Development plan for Liverpool has consistently recognised the importance of

LJLA to the economy of the City. It has sought to encourage optimising its contribution to the regeneration of the city and wider sub-region. Development plan policies within

both the adopted UDP (date) and the draft Core Strategy (which reached submission stage in 2012 and was paused when the preparation of the Liverpool Local Plan was

commenced) support its growth and development subject to appropriate environmental safeguards.

Unitary Development Plan (2002) 49. Adopted Liverpool UDP76 Policy E4 ‘Airport Development’ states that: “The City Council

will support the expansion of Liverpool Airport as a major catalyst for substantial economic development activity in the City as a whole, and in the Speke/Garston area in

particular, provided that an acceptable balance is achieved in any development proposal, between the projected economic benefits of expansion and its potential

impact on the natural and built environment”.

Liverpool Core Strategy Submission Draft (2012)

50. The Liverpool Core Strategy reached Submission stage in 2012. Work on it was paused in favour of the preparation of the Local Plan. It demonstrates that the city Council

has recognised the importance of the development at LJLA continually in its development plan policy -making.

51. Paragraph 3.4 of the Submission draft acknowledged LJLA as a key gateway for trade and people into the North West, North Wales and North of England. LJLA was

recognised as one of the drivers of Liverpool’s regeneration recovery and draft Strategic Policy 7 ‘Liverpool Airport’ supported the expansion of the Airport, subject to

satisfactory measures to address the potential environmental issues raised by the growth; including matters such as impact on the natural and built environment, impact

on local residents, and potential impact on the highway network. The Policy also acknowledged that consideration would be given for Green Belt release to the south of

the Airport.

Mayoral Development Zone – South Liverpool

52. As part of a Devolution Agreement, Liverpool City Council negotiated a new 'City Deal'. This includes the creation of a Mayoral Development Corporation, which will support

the delivery of key housing and economic sites through Mayoral Development Zones (MDZ) in the Liverpool City Region. The MDZs represent key priorities for growth and

investment which can support the ongoing growth of the city.

76 Liverpool Unitary Development Plan. Liverpool City Council. 2002.

60

53. LJLA is a key transport and economic hub within the South Liverpool MDZ. The MDZ

describes South Liverpool as follows: “Attracting high value jobs, significant levels of investment and modern, well-connected business premises, South Liverpool is one of

the city’s most sought-after locations sitting close to Liverpool John Lennon Airport and the South Liverpool Parkway Transport Interchange with its links to the national rail

network. Since the early 2000s, the zone has been transformed with high quality, handsomely designed business parks and an infrastructure fit for 21st century

businesses, whilst over 2,000 new jobs have been created here since the start of 201277”.

South Liverpool International Gateway 54. The South Liverpool International Gateway (formerly known as the Speke Halewood

Strategic Investment Area) is acknowledged to play ‘…a pivotal role in the sustainable economic development of the Liverpool City Region as one of the UK’s primary

international gateways and a thriving international city’; ‘…south Liverpool will be the focal point for major economic and residential development in South Liverpool,

offering the quality of environment and infrastructure that enables the businesses and communities of Speke, Garston and Hunts Cross to achieve their full potential.’ 78

55. The Regeneration Framework for South Liverpool highlights that LJLA has an important role within the region, and the area’s relationship to the airport and its natural and

cultural assets provides opportunities to grow the visitor economy.79

77 Regenerating Liverpool, ‘Liverpool’s Mayoral Development Zones: Review of achievements 2012 -2017’ (February

2018 revised edition). 78 http://www.liverpoolvision.co.uk/wp-content/uploads/2014/01/South-Liverpool-International-Gateway-SRF-

Executive-Summary.pdf. 79 Ibid. Footnote 28.

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