Statement of reasons

The Town And Country Planning Act 1990 and The Acquisition Of Land Act 1981

The Blackpool Borough Council(Multiversity)

Compulsory Purchase Order 2024 

1. Introduction

1.1 This document is the Statement of Reasons of Blackpool Borough Council ('the Council') for the making of a compulsory purchase order entitled The Blackpool Borough Council (Multiversity) Compulsory Purchase Order 2024 ('the Order'). The Order is made pursuant to Section 226(1) (a) of the Town and Country Planning Act 1990 (as amended) ('the 1990 Act'). This Statement of Reasons has been prepared in compliance with section 12 of the Department for Levelling-Up Housing and Communities Guidance on Compulsory purchase process and The Crichel Down Rules (July 2019) ('the Crichel Down Rules').

1.2 In this Statement of Reasons the land included within the Order is referred to as 'the Order Land'. It is approximately 1.16ha adjacent to the south-eastern boundary of the Talbot Gateway Central Business District of Blackpool ('CBD'). The location of the Order Land is shown on Plan 1 at Appendix 1 in the context of the surrounding area.

1.3 The Order has been made by the Council to facilitate the assembly of all of the land and interests needed to deliver the regeneration of the Order Land by means of a new teaching and learning campus for Blackpool and the Fylde College ('the College'). For ease of reference the proposed regeneration is described in this Statement of Reasons as the "Multiversity Development". The Multiversity Development is described in further detail at section ‎3 below.

1.4 The Council has been seeking to acquire the land needed for the Multiversity Development by negotiation, and has acquired a significant number of land interests in the Order Land but compulsory purchase powers are now needed to ensure that all of the land and interests required to deliver the Multiversity Development can be secured.

1.5 The Multiversity Development will establish a University standard campus in the heart of Blackpool and complement and build on the ongoing successful regeneration of the Talbot Gateway area.

1.6 Talbot Gateway has long been identified by the Council as a regeneration priority and as a focus for new town centre mixed use development.

1.7 The Council has developed and is implementing a £2bn Growth and Prosperity Programme with three strategic aims, one of which is to regenerate the town centre to bring more employment, more diversity of uses to strengthen the economy, more spending power to support businesses and other facilities, and to increase the vitality of the town centre. The continued regeneration of Talbot Gateway, including the Multiversity Development, is critical to the success of this programme.

1.8 A number of phases of major developments have already taken place in Talbot Gateway (with such phases identified on Plan 2 at Appendix 2). Specifically:

1.8.1 Phase 1 - the construction of a new Sainsbury's supermarket and petrol filling station, a new office complex occupied by the Council with retail units on the ground floor and a refurbished multi-storey car park with restaurant and fitness centre also on the ground floor (in the area coloured green on Plan 2);

1.8.2 Phase 2 - a new tram terminal interchange with Blackpool North Railway Station is being constructed and is near to completion, together with a new 144 bedroom 4 star Holiday Inn hotel complemented by Marco Pierre White's New York Italian Restaurant and some smaller retail units and car parking (in the area coloured red on Plan 2);

1.8.3 Phase 3 - work is well under way on a 215,000 sq ft regional Civil Service Hub to house c.3,000 Civil Servants and is due for completion in early 2025, (in the area coloured light blue on Plan 2);

1.8.4 Phase 4 - being the Multiversity Development; and

1.8.5 Future developments - a further office for 1,000 employees is currently under negotiation alongside proposals for a new multi-storey car park to serve the area (in the areas coloured dark blue on Plan 2).

1.9 Further, the Council has also targeted a programme of transport improvements through a complementary £17m Town Centre Access scheme that was also provisionally approved by Central Government in 2023 which will enhance transport provision in and around the town centre

1.10 In addition to the major ongoing developments in Talbot Gateway, other recent and ongoing investments and initiatives are contributing to the success of the Growth and Prosperity Programme, including:

1.10.1 the opening of the refurbished and expanded 7,000 capacity Winter Gardens Conference and Exhibition Centre in 2022;

1.10.2 the purchase and refurbishment of Abingdon Street Market which opened in 2023;

1.10.3 the Council purchase of the Houndshill Shopping Centre in 2019 and its expansion with the Backlot Cinema and Diner with one of the largest Imax screens in the country which opened in March 2024, together with the opening of the Showtown Museum.

1.10.4 the completion in spring 2024 of the enabling phase of the £300m Blackpool Central Leisure development with a 1,300 space multi-storey car park, and the start later in the year of the demolition and relocation of Blackpool Courts to enable the whole development site to be assembled.

1.11 The Multiversity Development represents an important next step in delivering the comprehensive regeneration of the Talbot Gateway area. Hybrid Planning Permission has been applied for under planning reference 23/0830 for full planning permission for the demolition of existing buildings and structures and outline permission for a new higher education-led mixed use development comprising a new education campus, comprising floorspace of up to 21,625sqm (GEA) within [Phase 1] ('Phase 1') and further education and/or office floorspace comprising up to 12,690sqm (GEA) of floorspace within [Phase 2] ('Phase 2'), creation of new public realm with associated landscaping, car parking and associated works. On 9 April 2024, the Council's planning committee resolved to grant planning permission pursuant to this application.

1.12 Phase 1 will create a new institutional asset in an iconic development that will help to promote the regeneration of Blackpool and increase footfall to Blackpool town centre year round, with approximately 3,000 students being based at the new campus. It will be based on a highly sustainable site in the town centre, close to the train station and tram interchange, and will be carbon neutral in operation. As a consequence, the site currently used by the College is likely to be made available for residential development.

1.13 Phase 2 of the Multiversity Development will provide expansion space for the College's future plans, or could provide office space alongside the office growth in the Talbot Gateway area. The College's aspirations for Phase 2 of the Multiversity Development are discussed further within section ‎5 below.

1.14 Section 226(1)(a) of the 1990 Act empowers the Council to request the Secretary of State to authorise the compulsory acquisition of land in its area if the Council thinks that the acquisition will facilitate the carrying out of development, re-development or improvement on or in relation to the land. Section 226(1A) of the 1990 Act states that the power may only be used where the Council thinks such development, redevelopment or improvement is likely to contribute to the achievement of the promotion of the economic, social or environmental well-being of their area. Section 226(1B) of the 1990 Act (as introduced by section 180 of the Levelling up and Regeneration Act 2023) confirms that "improvement" includes regeneration.

1.15 As explained in this Statement of Reasons, the Council is of the view that the carrying out of the Multiversity Development will undoubtedly contribute towards the achievement of the promotion of the economic, social and environmental well-being of its area, and that there is a compelling case in the public interest in bringing forward the development, and so has made the Order to facilitate its delivery.

2. Description of the order land

The Order Land and the Surrounding Area

2.1 The Order Land covers some 1.16 hectares adjacent to the CBD and is bounded by George Street to the north, Cookson St to the west. Milbourne Street to the south and Grosvenor Street to the east.

2.2 The area to the north of the Order Land forms part of the CBD which has undergone phased redevelopment as discussed at paragraph ‎1.7 to ‎1.9 (inclusive) above.

2.3 The Order Land is extremely accessible. Blackpool North Railway station and the tram terminal interchange are less than 250 metres away, with main bus services which link throughout Blackpool a similar distance away.

2.4 Negotiations with the parties who have an interest in the Order Land have been undertaken where possible, and are continuing with a view to acquiring of all the interests in the Order Land by agreement. Whilst very good progress has been made, it is clear to the Council that it will not be possible to acquire all of the required interests required for the Multiversity Development without the use of the Council's compulsory purchase powers. The Council is satisfied that there is a compelling case in the public interest for the use of such powers, as otherwise the comprehensive regeneration of the Order Land is unlikely to be delivered, and will not be able to be completed within a reasonable timeframe, if at all.

2.5 Approximately 50% of the Order Land has already been acquired or agreed to be acquired by the Council. Good progress is also being made in negotiations with a number of other landowners in the area. The remaining buildings are predominantly residential terraced properties with mixed retail and residential use on Cookson Street

2.6 The Order Land contains 72 plots as identified on the Plan at Appendix 1.

2.7 The properties are mostly 2 storey Victorian houses which are used as residential properties (either as single dwellings or as flats). The properties on the eastern side of Cookson Street are also substantially 2 storey Victorian houses converted to retail units with storage or flats above. There are also a number of forecourts within the Order Land.

Historical development of the site and the need for regeneration

2.8 Whilst the built form of the Order Land has broadly remained the same since Victorian times its character has changed as it has faced challenges similar to much of Blackpool's housing stock. Talbot Ward, in which the Order Land is located, is the fourth most deprived ward in Blackpool and seventh in the country with one of the highest levels of private rented sector ('PRS') housing within Blackpool. Much of this stock is of poor quality, with recent inspections in the area showing approximately 50% of homes as "non-decent".

2.9 Reflecting Blackpool's tourism heritage, the Order Land contains many former holiday accommodation properties which have been converted into low-quality bedsits or small flats in the PRS.

2.10 The Order Land also contains a number of privately owned houses in which residents have invested. Over time some of the houses have also been changed into small retail units, with living accommodation above. In addition the Council, between 1936 and 1960, acquired the forecourts to a number of properties in Cookson Street for the widening of Cookson Street. Cookson Street has since been made one-way, which has enabled a number a parking bays to be installed.

2.11 There is, however, no realistic prospect of improvement to the overall quality of the housing stock within the Order Land. As this issue is of such significance to Blackpool, in March 2022, the town was identified by Central Government as one of the first three Levelling Up pilot areas, reflecting the urgent and pressing need for public sector intervention to address the impact and consequences of a dysfunctional PRS housing market in inner Blackpool. Since then, detailed discussions have been undertaken with regard to developing a business case for intervention in the housing stock in parts of Blackpool and, in March 2024, the Secretary of State for Levelling Up, Housing and Communities announced a £90m package of investment to tackle some of these deep-seated housing problems in the inner areas of Blackpool. The case for the Multiversity Development is discussed further below.

3. Planning application for the proposed scheme

3.1 The proposed scheme for which the Order is sought is as follows:

"facilitating the carrying out of development, redevelopment or improvement on or in relation to such land by an education-led mixed use development including a new higher education campus together with further education floorspace and/or commercial office/ research and development floor-space and associated ancillary uses together with new public realm and landscaping, car parking, highway works and other associated works."

3.2 The planning application for the Multiversity Development is for:

3.2.1 up to 21,625sqm (GEA) of education development (Use Class F1(a)) within [Phase 1];

3.2.2 up to 12,690sqm of further education floorspace (Use Class F1(a)) and/or office development (Use Class E(g) within [Phase 2]);

3.2.3 new public realm within and around the site including the pedestrianisation of George Street;

3.2.4 new hard and soft landscaping including tree planting;

3.2.5 up to 22 no. car parking spaces; and

3.2.6 other associated infrastructure and works.

3.3 In summary, the application for planning permission for the Multiversity Development seeks approval for:

"Outline - Erection of buildings for use as an education-led mixed use development comprising a new education campus building (Use Class F1(a)) and further education floorspace (Use Class F1(a)) and/or office floorspace (Class E(g)), creation of new public realm with associated landscaping, car parking and associated works.

Full - Demolition of existing building and structures"

The planning application for the Multiversity Development was received and validated by the Council, as local planning authority, on 15 November 2023 and allocated reference number 23/0830. On 9 April 2024, the Council's planning committee resolved to grant planning permission pursuant to this application.

4. Enabling Power

4.1 The Council has made the Order under section 226(1)(a) of the TCPA 1990, which provides the Council with the power (if confirmed by the Secretary of State for Levelling Up, Housing and Communities) to compulsorily acquire land where the Council thinks it will facilitate the development, redevelopment or improvement of that land.

4.2 Section 226(1A) of the 1990 Act states that a local authority may not exercise its powers under section 226(1)(a) unless the Council thinks that the proposed development, redevelopment or improvement is likely to contribute to achieving the promotion or improvement of the economic, social or environmental well-being of its area. Section 226(1B) of the 1990 Act (as introduced by section 180 of the Levelling up and Regeneration Act 2023) confirms that "improvement" includes regeneration.

4.3 Further, in order to confirm the Order, the Secretary of State must be satisfied that there is a compelling case in the public interest for bringing forward the development that it will facilitate.

4.4 As is explained later in this Statement of Reasons, the Multiversity Development will deliver multiple economic, social and environmental benefits by delivering a flagship, carbon- neutral in operation, education campus in Blackpool's Talbot Gateway area. The project will enable the College to replace their ageing and unsuitable out-of-town centre facilities with world-class state-of-the-art facilities in the heart of Blackpool town centre. This will be in a sustainable location adjacent to other major regeneration projects, including the offices, hotel and Civil Service Hub described above, and near the transport interchange at Blackpool North station which provides accessibility not only from across the Fylde Coast but to the wider North West region.

4.5 Blackpool's Multiversity Development will act as a beacon to promote higher-level skills, engage employers in curriculum co-design and change perceptions of the town. The Multiversity Development will increase the College's capacity to offer more than 70 individual courses expanding the College's higher education offer and potential student cohort.

4.6 The site will provide a cutting-edge response to local, regional, and national priorities, raising the College's profile. Locally, the proportion of people with qualifications at Level 4 (for example higher apprenticeship, higher national certificate or a level 4 NVQ) and above is 22.5% compared to 33.9% nationally. The College will be able to contribute towards improving this average by focussing on new courses and refining existing provision. In particular the College will, in collaboration with Lancaster University, target high-level skills growth, stimulating innovation and aspiration.

4.7 Further, in response to a national need to address a skills and productivity gap, the College will deliver more courses at the Multiversity Development at qualification Levels 4 and 5 (for example diploma of higher education, foundation degree or higher national diploma) alongside flexible modular provision, to enable individuals to access the skills they need, when they need them, driving individual prosperity and wider economic growth. This dedicated focus will enable the Multiversity Development to be sector leading, becoming an established part of Lancashire's higher education landscape, encouraging new learners to engage in upskilling and bringing new technical and professional learning opportunities to the town, leading to higher productivity and greater prosperity for residents.

4.8 The Council therefore considers that there is a compelling case in the public interest to bring forward the proposed Multiversity Development, and that it will deliver a range of economic, social and environmental benefits for the local area and for the wider town centre. The Multiversity Development also aligns with the key objectives and principles of the Blackpool Development Plan, the National Planning Policy Framework and the updated Blackpool Town Centre Strategy (May 2022). The Council, therefore, regards the delivery of the Multiversity Development as an imperative and has made the Order to facilitate the assembly of the land and interests required to achieve this objective.

5. The council's purpose in making the order

5.1 The purpose of the Order is to acquire the Order Land with clear title in order to facilitate the redevelopment and improvement of the same, and to benefit the social, economic and environmental well-being of Blackpool.

5.2 The ageing infrastructure of the College's existing campus (approximately 1 mile away on Park Road) is no longer fit to meet the demands of 21^st century educational provision. Elements of the existing campus date back to the 19^th century and whilst having been maintained, the physical spaces are no longer practicable for modern educational delivery through multiple mediums. In addition, the site itself is costly to maintain due to its age and is inefficient in its energy consumption. The existing site is also relatively isolated from a range of amenities which are much better provided for in a town centre location, close to facilities and a transport hub.

5.3 The College has entered into a memorandum of understanding with the Council setting out the key parts of the proposed move from their existing campus to the Multiversity Development.

5.4 Phase 1 of the Multiversity Development will provide c.10,750 sq. metres of education floorspace which will accommodate up to c.3000 students. The Council is currently negotiating an agreement for lease and a lease for this phase of the Multiversity Development with the College, which are anticipated to complete during Q2/3 of 2024.

5.5 The higher education Campus in Phase 1 will be delivered through a partnership involving the Council and the College in association with Lancaster University. Phase 1 of the Multiversity Development will facilitate lifelong learning and will support a wide range of upskilling and re-skilling opportunities from individual modules to full degree programmes, informed by cutting-edge research, that are co-created with employers. The provision of a higher education institute in this location will ensure the area is able to generate, attract and retain a new skills base, and to become a catalyst to economic development within the local area.

5.6 In relation to Phase 2 of the Multiversity Development (for which outline planning permission is sought) it is the intention of the College, subject to the availability of capital funding and consideration of future student and apprenticeship demand to introduce up to 12,690sqm of further education floorspace. The certainty granted by securing outline permission removes, at an early stage, any future impediment to delivery of this later phase, ensuring benefits of the scheme can be maximised. In the short term, and until a funding decision is taken and Board approval obtained by the College, it is the intention of the Council to utilise this space for temporary car parking to support the education provision to be delivered within Phase 1. In the event that the College is unable to secure the funding required for Phase 2, the Council will bring forward the land comprised in Phase 2 for a new office development to build on the growing cluster of high quality offices at Talbot Gateway and this alternative development strategy will be reflected in the agreements reached between the Council and the College.

5.7 Key benefits of the Multiversity Development include:

5.7.1 Improving skills and opportunities - The investment in a new, high-quality, purpose-built educational facility will provide an aspirational, innovative and sector-leading learning environment, encouraging more learners to choose to continue with their education in Blackpool, or to choose Blackpool as a destination provider. The Multiversity Development will provide a number of courses and flexibility of learning approach so as to appeal to a wide variety of potential learners. The College will also deliver a tailored curriculum, catering for the needs of employers in order to fill skills gaps across the local area. The College currently partners with an extensive network of 1800 employer partners within the local area, with those partners being able to benefit directly from the upskilled and engaged future workforce. The potential positive impacts on individuals and communities arising from this opportunity is clear; on average, studying for a qualification in higher education is positively correlated with someone's future earnings (Labour market value of higher and further education qualifications: a summary report. Social Mobility Commission. Updated 9 February 2023).

5.7.2 Supporting town centre regeneration - As discussed at paragraphs ‎1.7 to ‎1.9 (inclusive) above, the Multiversity Development (adjacent to the town centre) will complement other major developments, including the developments at Talbot Gateway, the extension to the Houndshill Shopping Centre with the Backlot Cinema and Diner and the new Winter Gardens Conference and Exhibition Centre, in providing year-round activity. In addition, the proximity of public transport links and high quality accommodation will be a clear advantage to attract new learners across Lancashire and beyond.

5.7.3 Built environment uplift - The Multiversity Development will regenerate and transform an area that has not previously benefitted from significant investment, thereby supporting the creation of high-quality, pedestrianised, public open space; and

5.7.4 The overall project to deliver the Multiversity Development is underpinned by six key project objectives:

5.7.4.1 injection of a new life to the heart of Blackpool;

5.7.4.2 embed holistically into the town centre;

5.7.4.3 allow people to up-skill through life through enabling more people to gain higher level qualifications each year;

5.7.4.4 raise the College's profile in the town and beyond;

5.7.4.5 create an iconic building that "sings Blackpool"; and

5.7.4.6 create increased footfall in the town centre to encourage regeneration.

5.8 In the event that Phase 2 of the Multiversity Development is delivered as an extension of the College's new education campus (constructed under Phase 1), it is envisaged that this form of development will reinforce and enhance the benefits described at ‎5.7 above and enabling the Multiversity to maximise its potential.

5.9 In the event that Phase 2 of the Multiversity Development is delivered as offices, then the key benefits of this form of development will include:

5.9.1 supporting town centre regeneration which will complement other major development undertaken on adjacent land;

5.9.2 as above, there will be a built environment uplift, with the area being significantly transformed to include an improved built environment and the creation of high-quality, pedestrianised, public open space; and

5.9.3 creating up to 1000 jobs improving economic activity rates in the working age population, driving down unemployment and increasing spending power, activity and viability within the town centre and supporting local businesses.

6. Justification for the order

6.1 There is a compelling case in the public interest to justify the making of the Order in order to deliver the Multiversity Development. The Council has a clear plan as to how the land will be used which includes a proposal for a much needed Multiversity Campus to support the College and the local community, with space to enable the College to expand to provide its future planned educational provision.

6.2 As discussed at paragraph ‎10.3 to ‎10.7 (inclusive), Phase 1 of the Multiversity Development is funded and can be delivered as soon as reasonably practicable after the Order is confirmed. As explained above, the College is planning the future expansion of its education provision, and will need the land in Phase 2 to expand the proposed campus to accommodate this further provision with it being used for car parking in the interim.

6.3 Even if the College does not proceed with its proposals for Phase 2, the Council will bring forward the land comprised in Phase 2 for new office development to build on the growing cluster of high quality offices at Talbot Gateway for which the Fylde Coast Economic Needs Update and Employment Land Review 2024 evidences a demand.

6.4 The Order Land is made up of 72 separate plots. Details of the Council's attempts to acquire the land by negotiation are provided in section ‎9 below. The Council has been negotiating with the owners of the Order Land since September 2022. It has now reached the position where compulsory purchase powers are needed to secure all of the outstanding interests in the Order Land to enable the Council and the College to press on with the delivery of the Multiversity Development. The Council considers that the exercise of its compulsory purchase powers is both appropriate and proportionate as without the use of the powers the Council does not foresee being able to acquire the land and property interests needed for the Multiversity Development.

6.5 The Crichel Down Rules require that a compulsory purchase order should only be made where there is a compelling case in the public interest which justifies interfering with rights of those whose interests are affected.

6.6 In respect of human rights, the Council have had regard to the provisions of the First Protocol to the European Convention on Human Rights. In particular, the Council has considered the promotion of the Order in relation to Article 1, the right to peaceful enjoyment of one's possessions; Article 6, the right to a fair and public hearing to consider any proposal to acquire land compulsorily, and Article 8, the right to respect for private and family life. Consideration of these matters is set out in further detail at section ‎12 below.

6.7 Accordingly, the Council has balanced the public interest of the Multiversity Development going ahead against the impacts on the individual's rights. Having done so, the Council has concluded that interference with an individual's rights by the making of the Order is lawful, necessary and proportionate.

6.8 All those affected by the Order will be notified and given the opportunity to object and (if held) to be heard at a public inquiry before a decision is made by an inspector or the Secretary of State as to whether or not the Order should be confirmed. Additionally, a right of legal challenge exists to the confirmation of the Order under section 23 of the Acquisition of Land Act 1981. Any dispute as to compensation payable will be determined by the Upper Tribunal (Lands Chamber).

6.9 Bearing the above factors in mind, together with the high quality development which the Order is seeking to deliver and the key role that the Multiversity Development will play in improving the educational offer in Blackpool, the Council considers that there is a compelling case in the public interest in support of the exercise of its powers of compulsory acquisition in relation to the Order Land and that the use of such powers is proportionate to the ends being pursued.

7. Relevant planning policies

7.1 The principal relevant planning policies are set out below:

Adopted Development Plan

7.2 The Blackpool Development Plan comprises Part 1: Core Strategy, which was adopted by the Council in January 2016 and the Local Plan Part 2 - Site Allocations and Development Management Policies adopted February 2023.

7.3 It was announced in May 2023 that the Council will be preparing a new local plan which will set out a vision and policy framework to 2042. As part of this process, the Council is anticipating extending the allocation of the Talbot Gateway to encompass Phase 1 and Phase 2 of the Multiversity Development.

Core Strategy (January 2016)

7.4 The Blackpool Core Strategy is a key planning document, which sets out where new development should be located to meet Blackpool's future needs.

7.5 The vision in the Core Strategy includes the aspirations for Blackpool by 2027 to be '…….. the principal centre for business, culture and education on the Fylde coast…;………Blackpool Town Centre is the thriving heart of the resort core and provides an important sub-regional retail, cultural and business centre for Fylde Coast residents. ………. As the main economic centre of the Fylde Coast, Blackpool has a diverse and prosperous economy with a thriving culture of enterprise and entrepreneurship. It retains a strong educational offer supporting a skilled and educated workforce encouraging aspiration and ambition.………'

7.6 Four goals underpin the vision supported by a number of strategic objectives including the following three goals of particular relevance to this proposal:

Goal 1: Sustainable regeneration, diversification and growth:

Objective 1: ensuring a balanced approach to regeneration and growth with sustainable development which meets the needs of Blackpool's people now and in the future.

Objective 4:Enable easier and sustainable journeys within Blackpool and the Fylde coast by integrating transport systems and promoting sustainable modes of transport.

Goal 2: Strengthen community wellbeing to create sustainable communities and reduce inequalities in Blackpool's most deprived areas:

Objective 8:Develop sustainable and safer neighbourhoods that are socially cohesive and well connected to jobs, shops, local community services including health and education, culture and leisure facilities;

Objective 12:Increase access to quality education facilities to improve educational achievement, skills and aspirations.

Goal 3: Regeneration of the Town Centre, resort core and inner areas to address economic, social and physical decline.

7.7 The Core Strategy Spatial Vision and the four overarching goals, which underpin the vision support a dual strategy focus on Regeneration and Supporting Growth to deliver the change required in the town and to meet the needs of Blackpool's people now and in the future. This dual focus is set out in Policy CS1: Strategic Location of Development with Blackpool's future growth development and investment focused on inner area regeneration, which includes Blackpool town centre and the inner area neighbourhoods. Paragraph 4.3 of the supporting text to the policy highlights that this regeneration is crucial to strengthening the town's economy and addressing decline and deprivation through targeting investment.

7.8 A key objective of the Core Strategy is to diversify the economy to strengthen economic prosperity through supporting new business growth and secure sustainable investment that will provide jobs. Equally, improving the skills profile is a priority to help to encourage new and expanding businesses to invest in the area.

7.9 Policy CS3: Economic Development and Employment supports sustainable economic development with the focus of part 2 of the policy specifically related to developing and delivering an effective skills agenda to ensure that local people have the necessary skills, improved aspiration and opportunities to move into work; as well as securing inward investment opportunities and nurturing and supporting responsible entrepreneurship by facilitating a culture of enterprise and a place to start up businesses.

7.10 The supporting text to policy CS3 at paragraph 5.46 specifically references Blackpool's Further Education and Higher Education presence highlighting that these providers have a key role in ensuring local people are well equipped to meet the skills requirements of future job opportunities to successfully improve Blackpool's unemployment and economic activity rates.

7.11 The aim of Policy CS4: Retail and Other Town Centre Uses is to strengthen the town centre's role as the sub-regional centre for the Fylde Coast and to be the focus for major retail development and other town centre uses protecting its vitality and viability. 

7.12 Sustainable design and construction and the use of renewable and low carbon energy are key to achieving a reduction in carbon emissions. Policy CS10 aims to mitigate the impact of climate change, minimise carbon emissions and ensure buildings are energy efficient. Part 4 of the policy requires all new non-residential development over 1000m2 to achieve BREEAM 'very good'.

7.13 The Core Strategy under Chapter 6: Strengthening Community Wellbeing recognises that sustainable communities contribute to a better quality of life for existing and future residents and this is achieved in part through the promotion of social cohesion and inclusion; the strengthening of economic prosperity and enhancement of the natural and built environment. The focus of Policy CS12: Sustainable Neighbourhoods is to ensure that future development and investment contributes to delivering sustainable communities, focusing regeneration and improvement in a number of identified priority neighbourhoods including in the inner area.

7.14 Supporting text to Policy CS12 at paragraph 6.13 states that 'it is vital that new development contributes to achieving more sustainable communities across Blackpool as a whole but particularly that development and investment takes place to improve the quality of the built and natural environment and to address the economic and social issues evident in these areas'.

7.15 The Core Strategy recognises that access to quality educational facilities is integral to raising the educational achievement; and improved provision and access to quality public services has a direct positive effect on the health and well-being of residents. Policy CS15: Health and Education at part 4 directly supports development that enables the provision of high quality new and improved educational facilities. This includes at point 4a. which states that 'The expansion, modernisation and enhancement of Blackpool's higher and further education facilities, working closely with the relevant establishments'. In particular, paragraph 6.42 of the supporting text to policy CS15 recognises the important sub regional role of the College and that additional education facilities are located in close proximity to the residential communities they serve. To ensure future provision is located in the most sustainable and accessible locations the paragraph also states that facilities should be appropriately located in accordance with their scale and catchment.

7.16 In addition supporting text paragraph 6.46 to Policy CS15 specifically states that 'Education is vital to the regeneration of Blackpool, to equip children, young people and adults with the necessary qualifications and skills to compete in the developing labour market. An uplift in Blackpool's level of educational attainment and skills at all levels is seen as essential to enhance the opportunities for the town's children and young people, and to support inward investment and Blackpool's longer term prosperity.'

7.17 Policy CS17 Blackpool Town Centre states that development investment and enhancement will be supported in Blackpool town centre by growing an office sector to create an attractive centre to do business and enhancing the quality of buildings streets and spaces and connecting the different areas of the town centre.

7.18 Blackpool town centre is the main retail and service centre in the Fylde Coast sub-region and is identified in the overarching spatial strategy as a key focus for economic growth, development and investment. Three town centre strategic sites are identified including the Central Business District (also known as Talbot Gateway Policy CS19), The Winter Gardens (Policy CS18) and The Leisure Quarter (rebranded as Blackpool Central - Policy CS20). The overarching policy framework in the Core Strategy for the town centre is to drive economic growth to strengthen its vitality and viability and its important sub-regional centre role on the Fylde Coast and within Lancashire.

Blackpool Local Plan Part 2: Site Allocations and Development Management Policies (2012 - 2027)

7.19 The Local Plan Part 2 was adopted by full Council on 22 February 2023 and sets out detailed development management policies, which will need to be taken into account in developing the detailed proposals for submission of the planning application for the Multiversity Development.

Talbot Gateway Planning Brief Supplementary Planning Document ('Spd')

7.20 The SPD was published in 2006 and aims to ensure that Talbot Gateway acts as a catalyst for regeneration and identifies development that supports the overall regeneration of Blackpool and the town centre and supporting related development as appropriate uses.

7.21 The SPD identifies a number of key objectives for the development of the Talbot Gateway site including delivering a distinctive high-quality development that respects and integrates with the existing grain and character of Blackpool.

National Planning Policy Framework December 2023 (Nppf23)

7.22 The National Planning Policy Framework provides a framework for the Government's economic, environmental and social planning policies for England and how they should be applied.

7.23 Chapter 6 relates to building a strong competitive economy and paragraph 85 states that planning policy and decisions should help create the conditions in which businesses can invest, expand and adapt and that significant weight should be placed on the need to support economic growth and productivity taking into account local business needs and wider opportunities for development.

7.24 Chapter 7 is concerned with ensuring the vitality of town centres and paragraph 90 highlights the need to support the role that town centres play at the heart of local communities by taking a positive approach to their growth management and adaption.

7.25 NPPF23 Chapter 8 is concerned with promoting healthy and safe communities and paragraph 99 states that local planning authorities should take a proactive, positive and collaborative approach to development that will widen educational choice. Paragraph 96 reiterates this proactive approach to ensure the faster delivery of public service infrastructure including further education colleges.

7.26 Chapter 9 sets out the Government's guidance on promoting sustainable transport including opportunities to promote walking, cycling and public transport (paragraph 108 and 116a) refer). Paragraph 109 states that significant development should be focused on locations which are or can be made sustainable through limiting the need to travel and offer a genuine choice of transport modes.

7.27 Chapter 12 provides guidance on achieving well designed places and the Government considers that the creation of high quality, beautiful and sustainable buildings and places is fundamental to what the planning and development process should achieve and that good design is a key aspect of sustainable development. Paragraph 139 makes it clear that development that is not well designed should be refused, especially where it fails to reflect local design policies and government guidance on design.

8. Other relevant council strategise

Blackpool Town Centre Strategy Update and Action Plan (Adopted May 2022)

8.1 An updated Blackpool Town Centre Strategy and Action Plan was approved in May 2022. This updated strategy reflects the substantial investment and the new and emerging challenges at a national and local level including Blackpool's Climate Change Emergency Declaration 2019 and the impacts of the Covid 19 pandemic. The work undertaken in creating the refreshed Town Centre Strategy and Action Plan resulted in an updated vision for the town centre:

Blackpool Town Centre: A Place Where you Belong

"By 2040, Blackpool Town Centre is an attractive and vibrant place within Britain's favourite resort. Offering a year-round, high quality experience for residents, visitors and workers from all walks of life.

Blackpool Town Centre embraces and builds on its culture and heritage, is forward looking and joyful, with the healthy mix of credibility, nostalgia and fun that is unique to Blackpool."

8.2 This vision is underpinned by 6 key objectives including 'Work and Learn' which sees the town centre fostering learning and providing opportunities for work from small start-ups to big businesses. Six 'Priority Intervention Areas' are also identified and of particular relevance are the priorities related to 'Public Realm', 'Zoning and Districts' and 'Community'.

Alignment of the Proposal with the Policy Framework

8.3 The following section sets out how the Multiversity Development proposals aligns with key policy in the Blackpool Development Plan; NPPF23; the updated Town Centre Strategy; and the SPD.

8.4 In relation to policy in the Core Strategy, the proposal in the first instance aligns with the spatial focus and the strategic location of development as set out in Policy CS1 Strategic Location of Development. The proposal is a major regeneration project located within the inner area of Blackpool immediately adjacent to Blackpool town centre as defined on the Local Plan Policies Map. Regeneration through new investment in the inner area neighbourhoods and town centre is considered crucial to strengthening the economy and addressing decline and deprivation.

8.5 The proximity of the Multiversity Development site to the town centre, which is a major transport hub for the Borough, the wider Fylde Coast and Lancashire beyond, means that the location of the Multiversity Development maximises the opportunity to use public transport to access the facility. Not only do numerous bus routes from across the borough and beyond converge on the town centre but, the site is also less than 250m from the major railway station at Blackpool North which is linked to the new tramway interchange on Talbot Road. This interchange provides improved tram access to the heart of the town centre from Fleetwood in Wyre Borough in the north to Starr Gate on Blackpool's southern boundary with Fylde Borough. This aligns with Goal 1 and Objective 4 in enabling easier and more sustainable journeys to be made within Blackpool and the Fylde Coast and promoting sustainable modes of transport.

8.6 The Multiversity Development will bring an expanded student body into the town centre with the new campus supporting around 3,000 students, in addition to providing a variety of employment opportunities. These students and employees will provide additional activity and spend which will contribute to enhancing the vitality and viability of the town centre boosting local businesses and supporting regeneration. This directly aligns with Goal 3 of the Core Strategy and the key aims of Policy CS4: Retail and Other Town Centre Uses and CS17: Blackpool Town Centre and Resort Core, which promote town centre regeneration.

8.7 The College is responding to local, regional and national employment and business priorities through a high quality, dedicated and distinctive technical and professional curriculum, co-created with employers and in partnership with Lancaster University. In doing so, the College will support high level skills growth increasing the number of students with higher level technical and professional skills and reaching out to those who need to re-skill or up-skill as well as providing prestigious post-18 progression routes.

8.8 This approach directly aligns with Core Strategy Policy CS3, point 2, by improving employment opportunities through an effective re-skilling and up-skilling agenda raising aspiration and assisting in diversifying the economy and aligning with Policy CS15 point 4 in delivering a modernised and enhanced higher and further education facility helping to deliver the Core Strategy Vision and Goal 1 as well as Goal 2, Objectives 8 and 12 in terms of inner area neighbourhoods being well connected to jobs and educational services and by increasing access to quality educational facilities and improving educational achievement, skills and aspirations. The proposal will also complement and support the delivery of the CBD (Talbot Gateway) Policy CS19, the key aim of which is to drive business development in the town centre. The proposal will provide educational support as well as a reskilled/upskilled workforce to support local businesses.

8.9 In relation to the Talbot Gateway SPD, which provides further guidance on the implementation of Policy CS19, notwithstanding the fact that the Multiversity Development currently lies outwith the CBD (Talbot Gateway) strategic site, albeit immediately adjacent to it, the Multiversity proposal will deliver a distinctive high quality development supporting the regeneration of the wider area whilst aligning with the vision and key aims and functions of the SPD[1]. 

8.10 The Multiversity Development site is also located within the priority neighbourhood area of Talbot and Brunswick which is listed in Core Strategy Policy CS12: Sustainable Neighbourhoods under point 2.a. where the focus for such neighbourhoods is on regeneration and investment. Whilst Policy CS12 has a focus on housing, the overall thrust of the policy is around regeneration and improvement to address the economic and social issues with the aim of delivering sustainable communities in priority neighbourhoods. This includes the strengthening of economic prosperity and the enhancement of the built and natural environment. The Multiversity Development will not only provide a prestigious quality development enhancing the built and natural environment within this inner area neighbourhood but will provide job opportunities for local residents aligning with the overall aspirations of inner area regeneration and Policy CS12 and in doing so assist in delivering Core Strategy Goals 2 and 3.

8.11 In addition to the above, the buildings to be delivered as part of the Multiversity Development are to be built in accordance with national design guidance and codes and to at least BREEAM standard 'Very Good'. The latter complies with the requirements of Core Strategy Policy CS10, which requires all non-residential development over 1000m2 to meet a standard of 'Very Good'.

8.12 In terms of the NPPF23, it is considered that the Multiversity Development aligns with these revised policies in terms of sustainable development, in particular the economic and social objectives of the framework, by supporting local and regional economic priorities to grow a competitive economy; supporting local communities' health and well-being through providing educational and job opportunities. The proposal is also in a highly accessible location, promoting the use of sustainable transport, which supports the aims of Chapter 9 NPPF23; through increased footfall and expenditure the proposal will contribute to improving the vitality of Blackpool town centre supporting the aims of Chapter 7 NPPF23; and delivering a proposal designed in accordance with national design guidance and codes aligns with Chapter 12 NPPF23.

8.13 Whilst the Multiversity Development site does not lie within the town centre boundary (as defined on the Local Plan Policies Map (2023)) it does lie immediately adjacent to the eastern boundary along Cookson St. and George St. and the proposed development will clearly support the aims and objectives of the updated Blackpool Town Centre Strategy (May 2022), in particular the 'Work and Learn' key objective. This objective is concerned with fostering learning and providing opportunities for work from small start-ups to big businesses. By providing a dedicated; educational facility that will cater specifically for local business needs in its curriculum and strengthen business/education collaboration to improve productivity and retention of higher skilled individuals, the Multiversity Development will directly assist in delivering this key 'Work and Learn' objective. It will also support key priority intervention areas in the Town Centre Strategy in terms of key deliverables related to public realm, visual appearance, investment, skills and employability, diversity, equity, inclusion and civic pride.

8.14 In the event that Phase 2 of the Multiversity Development is delivered as an extension of the College's new education campus, this form of development will reinforce and enhance the delivery of the policy objectives identified above.

8.15 In the event that Phase 2 is delivered as offices this will bring a new offer of employment supporting the provision of up to 1000 jobs. These employees will provide additional activity and spend which will contribute to enhancing the vitality and viability of the town centre, boosting local businesses and supporting regeneration. This also aligns with the policy framework as discussed above in relation to:

• Policy CS1 as referred in paragraph 8.4;
• Goal 1 and Objective 4 as referred in paragraph 8.5;
• Policies CS4 and CS17 as referred in paragraph 8.6;
• Policy CS19 and the Talbot Gateway SPD - as referred to in paragraph 8.8 and 8.9;
• Policy CS12 and Goals 2 and 3 and Objective 8 as at paragraph 8.10;
• Policy CS10 as referred in paragraph 8.11;
• NPPF23 as referred in paragraph 8.12;
• Blackpool Town Centre Strategy and Action Plan (May 2022) and objective 'Work and Learn' as referred in paragraph 8.13.

8.16 In addition, it is worth highlighting that with respect to Policy CS3 and if Phase 2 office development comes forward - whilst not located in the town centre as defined on the Policies Map but located immediately adjacent to the boundary on the east side of Cookson St. the office development will, by supporting the delivery of high class office space and associated employment opportunities within a currently deprived area, complement the requirements of Policy CS3 part 1b for Blackpool Town Centre and the CBD for office development.

Conclusion:

8.17 Taking into account the above assessment, it is considered that the Multiversity Development aligns with policy set out in the Blackpool Development Plan specifically key Policy CS1, CS3, CS10, CS12 and CS15. The proposal also indirectly assists in the implementation of the aims of Policy CS4, CS17 and CS19. In doing so, the proposal will directly assist in delivering the Core Strategy Vision and Goals 1, 2 and 3 and Objectives 1, 4, 8 and 12.

8.18 The proposal is promoting sustainable development and design, which aligns with the national planning policy framework as set out in NPPF23.

8.19 The proposal will support the delivery of the updated Blackpool Town Centre Strategy (May 2022) Vision and key Objectives, Priority Interventions and Deliverables.   

9. Land assembly and negotiations

9.1 The Council has engaged extensively with the owners of the Order Land. As a result of this process, the Council now owns the freehold interest in 18 properties within the Order Land. Heads of Terms have also been agreed to acquire a further 14 freehold interests within the Order Land.

9.2 The Council is also currently in positive negotiations with owners of a further 13 properties within the Order Land. At this stage, it is anticipated that the remaining 27 legal interests are unlikely to agree terms.

9.3 In resolving to exercise its powers of compulsory acquisition, the Council has paid regard to the Crichel Down Rules which in paragraph 2 of the General Overview states (amongst other things) as follows:

"The confirming authority will expect the acquiring authority to demonstrate that they have taken reasonable steps to acquire all of the land and rights included in the Order by agreement. Compulsory purchase is intended as a last resort to secure the assembly of all the land needed for the implementation of projects. However, if an acquiring authority waits for negotiations to break down before starting the compulsory purchase process, valuable time will be lost. Therefore, depending on when the land is required, it may often be sensible, given the amount of time required to complete the compulsory purchase process, for the acquiring authority to:

• plan a compulsory purchase timetable as a contingency measure; and
• initiate formal procedures

This will also help to make the seriousness of the authority's intentions clear from the outset, which in turn might encourage those whose land is affected to enter more readily into meaningful negotiations."    

9.4 The Council has sought, and will continue to seek, to acquire all of the third party interests in the Order Land through negotiation. The Council's surveyors have been active in pursuing and progressing these negotiations and to date good progress has been made with a number of successful acquisitions/relocations already agreed, many of which have been completed and some of which are in the process of being documented. However, whilst discussions are continuing with the outstanding owners and occupiers that remain within the Order Land it is now unlikely that agreement will be reached with all interested parties within a reasonable timescale.

9.5 It is hoped that the commencement and progression of the compulsory purchase process will assist in negotiations and provide further certainty as to the Council's intentions for both the Council and outstanding owners and occupiers. The Council remains committed to agreeing the voluntary acquisition of all outstanding interests in the Order Land and, in the interests of speed and goodwill, will consider the use of Alternative Dispute Resolution, where appropriate, to settle disputes which might arise.

9.6 Should any party affected by the Order have any queries with regard to the acquisition of their interest or any other aspect arising out of the making of the Order, they are asked to contact:

• Legal enquiries - Head of Legal Services, Blackpool Council, PO Box 11, Town Hall, Blackpool FY1 1NB; telephone 01253 477450 or email legal.services@blackpool.gov.uk
• Acquisition - Telephone 08081644922 and ask for Talha Yakub or Nick Hill or email regeneration@blackpool.gov.uk
• Resident support - Telephone 01253 477477 or 07387 233946 - please ask for Infusion or email infusion@blackpool.gov.uk

9.7 Infusion is an engagement and consultation team within the Council that has broad experience of working with and alongside tenants in Blackpool. Infusion team members act as a first point of contact for tenants and are available to listen in the first instance, and then to work with tenants to reach a satisfactory outcome to their issue(s). This could mean signposting to other services (including social care, housing, 3rd sector organisations) and supporting the tenant to provide the right information or to understand the processes involved in obtaining help and support. Whilst Infusion team members are available to listen, they can also explain what is happening in individual cases and can explain what tenants should expect when their properties are sold or if their landlord's property is acquired compulsorily under the Order. Infusion also provides 'on the ground' information to the project teams enabling them to understand any issues or problems from the tenant's perspective.

9.8 The Council's representatives have endeavoured to visit parties affected by the Order to assess their requirements. In appropriate cases the Council will provide assistance with relocation.

9.9 Efforts were first made in August 2022 to contact freehold and leasehold owner-occupiers to inform them of the Council's desire to acquire their property for the Multiversity Development and to start negotiations. In September 2022 all relevant parties received correspondence from the Council providing general information regarding the Multiversity Development and providing points of contact at the Council. At the end of 2022 all freehold and leasehold owners of property within the Order Land received an initial offer letter from the Council, which encouraged recipients to make contact and start a dialogue with the Council's Growth and Prosperity team.

9.10 Update letters were sent to all residents affected by the Multiversity project in early March 2023 by the Council's Infusion Team. This invited residents to attend a drop-in engagement session. Whilst owners that had not formally engaged in negotiations received an additional letter to ensure they knew what was proposed and the support the Council would offer and an invitation to attend a face-to-face appointment in April 2023.

9.11 To engage with impacted residents within the Order Land, the Infusion Team hosted a drop-in engagement session on 14^th March 2023, which allowed residents to ask questions and engage face to face with Council staff.

9.12 The above mentioned drop-in session was followed up by a letter in April 2023, providing further information regarding the Council's approach to home-loss payments and to thank residents for attending the session. Subsequently, the Infusion Team has been reaching out to tenants that have engaged with the Council, asking that the team's contact details are passed to tenants that have not yet contacted them. To date, the Infusion Team have communicated with, sign-posted, and provided information to more than 60 households, and have also been in touch with support organisations as and when required.

9.13 In August 2023, where relevant the Council's legal services team began notifying tenants of properties that the owner had agreed the sale of the property, informing them of the criteria for home-loss payments and the timescales for receiving compensation.

9.14 During the acquisition process of the agreed sales, the Council's legal team wrote to each of the affected tenants and provided an appropriate claim form for the tenant to complete to access a home-loss payment and/or disturbance payment(s). The claim form there gave the tenants the opportunity to request an advanced payment of the home-loss payment to assist the tenant with the costs of relocation.

9.15 The Council's internal teams have worked together to ensure that affected tenants have had the appropriate assistance to complete the claim form. This has included the Infusion Team, housing team, legal services and social services. The assistance from the Council during this process has been wide-ranging including explaining the compensation available and the associated process, and the information they needed to provide as well as assistance completing the claim form and locating alternative properties.

10. Delivery of the proposals

Delivery:

10.1 The Council will be responsible for delivering Phase 1 of the Multiversity Development. The College has signed a Memorandum of Understanding with the Council to take a lease of the premises and an agreement for lease and a lease are being finalised.

10.2 The Council will retain the freehold of the land in Phase 1 and grant a lease to the College, and will grant an option in favour of the College for Phase 2. When the College has obtained the funding for the Phase 2 expansion, then the Council will grant a further lease to the College.

Funding:

10.3 The total estimated cost of acquiring the Order Land, and for constructing Phase 1 of the Multiversity Development is c.£65m.

10.4 Under the Town Investment Plan, Blackpool Council secured funding of £9m for the acquisition and clearance of the Order Land, with the Council resolving to underwrite any overspend on the acquisitions should this become necessary.

10.5 In addition, the Council has secured £40 million from the Department for Housing, Levelling Up and Communities through the Levelling Up Fund Round 2 for construction of Phase 1 of the Multiversity Development. The further £16m will be prudentially borrowed by the Council and paid back by the College through the terms of its lease with the Council.

10.6 The Council will adopt the same method of delivery as it has within the Talbot Gateway development in that the Council will retain the freehold ownership of the Order Land and will grant a lease of the premises to the College for them to deliver education at the Multiversity Campus in Blackpool.

10.7 The grants provided under the Town Deal and Levelling Up Fund will contribute to offsetting the total cost of the Multiversity Development for which prudential borrowing will be undertaken on the balance and the agreed rent and capital contribution from the College will be sufficient to meet the annual cost of the prudential borrowing.

10.8 For Phase 2, and as noted above, the College will look to secure capital funding to deliver the proposed extension to Phase 1. To the extent the College do not secure capital funding for Phase 2, the Council will bring forward the land comprised in Phase 2 for new office development to build on the growing cluster of high-quality offices at Talbot Gateway.

Consultation and Engagement

10.9 The Council's engagement with owners and occupiers has been successful, with the owners of 63 of the 72 properties having engaged with the Council. All occupiers and owners received letters in August 2022 with a further letter in September 2022 updating all parties in relation to the Multiversity Development and providing points of contact for any queries or questions.

10.10 Letters were sent to all residents affected by the Multiversity Development in early March 2023 by the Infusion team, which invited residents to attend a drop-in engagement session. Owners who had not engaged received an additional letter that provided clarity on the Multiversity Development proposals, details regarding the help available and an invitation by the Council's Growth and Prosperity team to attend face-to-face appointments in April 2023 which would allow property owners to discuss specific requirements (including property values) in person.

10.11 The appointments with owners were attended by seven owners across two days. Owners who required alternative appointments were offered separate opportunities to meet with the Growth and Prosperity team.

10.12 The Council has ensured that the residents of the properties within the Order Land have been contacted regularly to reassure and update them regarding the Multiversity Development. This included a letter issued urgently following a news article that was published about the Multiversity Development which set out the next steps that the Council was proposing to take in order to provide comfort to residents about the impact that the proposed development may have on them. In March 2023, the Infusion Team hand delivered letters to the properties within the Order Land which offering assistance to residents that may be affected by the Multiversity Development. This letter also contained response to some 'Frequently Asked Questions' to provide the residents with immediate responses to any questions they may have. If these letters did not contain the information that the residents required, the details of the Infusion and Growth and Prosperity teams were provided.

10.13 As part of ongoing efforts to engage affected residents within the Order Land, the Infusion Team hosted a drop-in engagement session, held at the College (being adjacent to the Multiversity Development Site) which allowed residents to ask questions and engage directly with Council staff. This was held on 14^th March 2023 and was attended by over 20 households. Topics covered included concern around timelines, relationships with landlords and the availability of suitable alternative accommodation.

10.14 The above mentioned drop-in session was followed up with a letter in April 2023, providing further information regarding home loss payments and to thank residents for attending the session. Since then, the Infusion Team have been reaching out to tenants that have engaged with the Council, asking that the team's contact details are passed to tenants that have not yet contacted them. To date, the Infusion Team have communicated with, sign-posted, and provided information to more than 60 households, and have also been in touch with support organisations as and when required.

10.15 Formal offer letters have been sent out to all owners, which includes a breakdown of the offer to purchase the relevant property and is split into market value, disturbance and home loss payments. The letters also stipulate that owners are entitled to appoint a surveyor to act on their behalf with reasonable fee costs being covered.

10.16 As referenced above, the Infusion Team and Legal Services have sent numerous letters to tenants in relation home loss payments and disturbance payments for moving costs. The letter from Legal Services in August 2023 outlined that the compensation payable to tenants is subject to a qualifying criteria as set out in the Land Compensation Act 1973.

10.17 In addition, as part of ongoing work to engage people across Blackpool in the development of schemes being delivered as part of Town Deal funding (of which the Multiversity Development is one of 7 schemes), the Council hosted an engagement exercise using the 'Commonplace' online platform from 22 February 2021 to 22 March 2021. Led by the Council's in-house consultation and engagement team, Infusion Research, this built on a previous exercise using the same platform led by the community involvement organisation 'Locality', from 9 June to 29 June 2020. The exercise was intended to gather the views of those who had already registered their interest in being engaged and also to bring new participants into the process (in line with the Stakeholder Engagement Plan submitted alongside the Town Deal Fund bid in July 2020). Whilst the former exercise gathered comments on a thematic basis, the latest work presented a specific overview of the discrete projects developed under the leadership of the Town Deal Board, seeking detailed observations and comments from Blackpool residents, visitors and workers A further such engagement exercise on the 7 Town Deal schemes took place in Blackpool Town Centre in Abingdon Street Market on 6 and 7 December 2023.

Relocations:

10.18 The Council is acutely aware that the regeneration of the Order Land will inevitably involve disruption to those living and working in the area. However, the Council is of the view that the use of compulsory purchase powers to deliver the Multiversity Development is proportionate.

10.19 There is a mixture of residential and commercial interests in the Order Land. The Council has made considerable efforts to contact and, wherever possible, meet each interested party face-to-face to identify their relocation requirements and to discuss their options. The level of engagement with each individual has been determined by the needs and wishes of the parties but has included helping to identify suitable alternatives, and tailoring completion dates to enable relocations.

10.20 A significant number of acquisitions have already taken place and some are on-going. Council officers have provided their contact details and remain open to requests for information and engagement.

10.21 Negotiations are taking place with the relevant owners and, where possible, they are making their own arrangements for relocation without needing Council assistance.

10.22 Owners have frequently been able to find alternate properties for relocation without assistance; however there have been occasions where the Council has assisted the owners with advanced payments and extended periods of time between the exchange of contracts and completion. The advance payments have been accelerated and provided to some owners at the time contracts were exchanged, allowing the owners to pay for renovations to relocation properties. The completion dates were delayed to allow for the renovation and removal process to take place to ensure the owner was moving into appropriate accommodation and did not feel rushed during the process.

11. Public Sector Equity Duty

11.1 An Equality Impact Assessment was undertaken by the Council in relation to the Multiversity Development to assess the impact on protected groups of the making of the Order and the implementation of the Multiversity Development, in line with the Equality Act 2010.

11.2 The Equality Impact Assessment acknowledged that although the making of the Order and implementation of the Multiversity Development may have a differential impact on protected groups, the Council has implemented a number of measures to support such groups and to address identified impacts. In particular, the Council recognised the challenges and disruption that can come from acquiring the homes of individuals within protected groups and therefore representatives from the Council's Infusion Team (who operate separately from those negotiating on property acquisitions), have taken extensive measures to engage with all the residents and owners of property in the Order Land to determine whether they have any particular needs or requirements that they need assistance with and this will continue throughout the compulsory purchase process following confirmation of the Order.

11.3 The Council will monitor and review these measures throughout the compulsory purchase process to ensure that any future impact can be measured and mitigated against as necessary.

12. Human rights considerations

12.1 Section 6 of the Human Rights Act 1998 prohibits public authorities from acting in a way which is incompatible with rights protected by the European Convention on Human Rights ('the Convention'). The Crichel Down Rules state that a compulsory purchase order should only be made where there is a compelling case in the public interest. The Crichel Down Rules also make it clear that an acquiring authority should be sure that the purposes for which the compulsory purchase order is made justify interfering with the human rights of those with an interest in the land affected.

12.2 In making this assessment, an acquiring authority should have regard, in particular, to the provisions of Article 1 of the First Protocol to the Convention and, in the case of a dwelling, Article 8 of the Convention.

12.3 Article 1 of the First Protocol, Article 6 and Article 8 of the Convention are summarised and considered below:

12.4 Article 1 of the First Protocol states:

"…Every natural or legal person is entitled to peaceful enjoyment of his possessions" and "no one shall be deprived of his possessions except in the public interest and subject to the conditions provided for by the law and by the general principles of international law…"

12.5 Whilst occupiers and owners in the Order Land will be deprived of their property if the Order is confirmed, this will be carried out in accordance with the law (i.e. the 1990 Act). As indicated at paragraphs 10.18 to 10.22 above, extensive efforts will continue to be made by the Council to relocate all residential and commercial tenants through the Housing Options Department and Blackpool Housing Company (My Blackpool Home). In addition, occupiers and owners will receive appropriate compensation, calculated in accordance with the compulsory purchase compensation code and on the basis of the market value of their interest. Further, the right under Article 1 is qualified (rather than absolute) as it permits the deprivation of an individual's possessions where it is in the public interest, as is the case here. The public benefits associated with the Multiversity Development are set out earlier in this Statement of Reasons.

12.6 In order to assist affected parties, and to help mitigate the impacts of the Order, as mentioned above, the Council is willing to make advanced payments of compensation to owner and tenants of in appropriate cases to assist with their relocation. This is also available to affected business owners. The Council is aware that the affected business owners may need assistance to relocate their business, and will deal with each claim on a case by case basis.

12.7 In light of the above, the Council considers that the Order will strike a fair balance between the public interest in the implementation of the Multiversity Development and those private rights which will be affected by the Order.

12.8 Article 6 of the Convention provides:

"..In determining his civil rights and obligations…everyone is entitled to a fair and public hearing within a reasonable time by an independent and impartial tribunal established by law..."

12.9 Extensive engagement has been undertaken with all parties affected by the Order (either through correspondence or conversations and negotiations). Consultation has also been undertaken by the Council with the communities and parties that will be affected by the Order. All those affected by the Order will be notified, will have the right to make representations and/or objections to the Secretary of State for Levelling Up, Housing and Communities, and (if held) to be heard at a public inquiry. It has been held by the Courts that the statutory processes and associated right for those affected to pursue remedies in the High Court, where relevant, are compliant with Article 6.

12.10 Article 8 of the Convention provides that:

"(1) Everyone has the right to respect for his private and family life, his home and his correspondence. (2) There shall be no interference by a public authority with the exercise of this right except such as is in accordance with the law and necessary in a democratic society in the interest of…the economic well being of the country…"

12.11 The Order has been made pursuant to section 226(1)(a) of the of the 1990 Act, as amended, which authorises the Council to acquire land compulsorily subject to following the procedures in the Acquisition of Land Act 1981. The Council considers, for the reasons set out in this Statement of Reasons that the proposals will facilitate the carrying out of development, redevelopment or improvement in relation to the Order Land which (as required by section 226(1A)) is likely to contribute to the achievement of the promotion of the economic, social, or environmental well-being of the area. As a result of the public benefits that will flow from the carrying out of the proposals, the Council considers that there is a compelling case in the public interest for compulsory acquisition of the Order Land in order to achieve the public benefits outlined in this Statement of Reasons. If the Secretary of State (or the inspector, if the decision is delegated) agrees with the Council that there is a compelling case in the public interest, they may confirm the Order. If the Order is confirmed, compensation may be claimed by persons whose interests in land have been acquired or whose possession of land has been disturbed. In the circumstances, if the Order is confirmed, the compulsory acquisition of the Order Land will not conflict with Article 8 of the Convention.

12.12 The Council considers that such interferences as may occur with the pursuance of the Order are in accordance with the law, pursue a legitimate aim, namely the economic, social and environmental wellbeing of the town and the community, and are proportionate having regard to the public benefits that the proposals will bring.

12.13 Those directly affected by the Order will be entitled to compensation proportionate to any losses that they may incur as a result of the acquisition of their interests in the Order Land. Compensation will be payable in accordance with the compulsory purchase compensation code, assessed on the basis of the market value of the property interest acquired, disturbance and statutory loss payment. The Council will also pay the reasonable surveying and legal fees incurred by those affected. The compulsory purchase compensation code has been held to be compliant with Articles 8 of the Convention and Article 1 of the First Protocol.

12.14 The European Court of Human Rights has recognised in the context of Article 1 of the First Protocol that

"..regard must be had to the fair balance that has to be struck between the competing interests of the individual and the community as a whole.." public and private interests are to be taken into account in the exercise of the Council's powers and duties.

12.15 In pursuing the Order, the Council has carefully considered the balance to be struck between the effect of compulsory acquisition on individual rights and the wider public interest in the redevelopment of the Talbot Gateway area. Interference with Convention rights is considered by the Council to be justified here in order to secure the economic regeneration, environmental and public benefits which the Multiversity Development will bring.

12.16 As mentioned above at sections ‎9 and ‎10 of this Statement of Reasons, the Council has been committed to ensuring that the residents within the Order Land are supported and are aware of the support available. The officers of the Council have helped tenants on a number of occasions with finding alternate accommodation to suit their individual needs and have attended viewings with the tenants to support them with this. The resilience officers have also assisted tenants with the completion of the forms and providing the correct information where the tenants may not have been able to undertake this task without some assistance.

12.17 Some residents have been assisted through the social services care team to understand the compulsory purchase process and why this is the Order is required to deliver the Multiversity Development, which has assisted residents to understand the prospect of the Order coming forward. Many tenants have been offered financial assistance, for example the Council has ensured that the funds required for the deposit and first month's rent on a new property has been paid directly to the new landlord to ensure the tenant can relocate as soon as possible. The Council has also taken steps to ensure that there is an open line of communication between the residents and the Council.

12.18 The Council is also committed to assisting businesses that will be affected by the Order, and will provide assistance as and when required.

12 Special features and categories of land

13.1 There are no special features on the Order Land and the Order Land does not include any special category land.

14. Easements, rights etc

14.1 It is intended that a General Vesting Declaration or General Vesting Declarations will be made by the Council in respect of the Order Land in the event that their compulsory purchase powers are confirmed by the Secretary of State. It is the intention of the Council that all easements, covenants, rights and other interests in the land acquired by the Council shall be overridden under section 203 of the Housing and Planning Act 2016. Any mortgages and rent charges are to be dealt with in accordance with the relevant provisions of the Compulsory Purchase Act 1965.

15 Extent of the scheme

15.1 Paragraph 196(v), Section 12, of the Crichel Down Rules suggests that a statement should be included in every statement of reasons which explains the extent of the scheme to be disregarded for the purposes of assessing compensation in the 'no-scheme world'.

15.2 Section 6(A) of the Land Compensation Act 1961 ('LCA 1961') provides that "the no scheme principle is to be applied when assessing the value of land in order to work out how much compensation should be paid by the acquiring authority for the compulsory acquisition of the land". For the purposes of section 6(A), the "scheme" means the scheme of development underlying the acquisition.

15.3 Section 5 LCA 1961 explains that the underlying scheme is to be the scheme provided for by the Order unless it is shown that the underlying scheme is a scheme larger than, but incorporating, the scheme provided for by that instrument.

15.4 In this case, the "Scheme" for the purposes of section 6(A) comprises the Scheme as described within Section ‎3 of this Statement of Reasons.

16. Views of government department/agencies

16.1 As referenced earlier, the Government through the Department of Levelling Up, Homes and Communities have identified the Multiversity Development as a strategic priority as part of the Government's Levelling-Up agenda through the provision of £9m Town Deal Funding and £40 million Levelling-Up Funding towards the proposed development.

17 Compulsory Purchase by Non-Ministerial Acquiring Authority Rules 1990

17.1 This Statement of Reasons is not intended to be the statement of case under Rule 7 of the Compulsory Purchase (Inquiries Procedure) Rules 2007 and the Council reserves the right to alter or expand it as necessary.

18 List of documents

18.1 The following list includes the documents on which this Statement of Reasons is based and which may be referred to in any Inquiry. The list is not exhaustive, and the Council may also refer to additional documents in order to address any objections made to the Order. All documents are available to view either on the Council's website www.blackpool.gov.uk/multiversityorder or can be inspected on request to Blackpool Council offices at No 1 Bickerstaffe Square, Blackpool (telephone number 01253 477477) or alternatively at Blackpool Town Hall, Talbot Square, FY1 1AD.

General Documents:

The Order

The Council's report and resolution of meeting dated 16 October 2023 relating to the resolution to use compulsory purchase powers

The Order, Order Schedule and Order Map

The Planning Application

Officer's Report to committee relating to planning application bearing reference 23/0830 [PDF 842KB]

Resolution of meeting dated 9 April 2024 relating to the resolution to grant the planning application bearing reference 23/0830 [PDF 320KB]

Blackpool Council Executive reports

EX48/2020 Blackpool Town Deal Heads of Terms, 16 November 2020

EX16/2021 Blackpool Town Deal Update , 22 March 2021

EX63/2021 Blackpool Town Deal Update, 6 December 2021

EX52/2022 Blackpool Town Deal Update, 5 December 2022

EX23/2021 Levelling Up and Community Renewal Fund : 12 April 2021

EX37/2021 Levelling Up Fund Bid : 12 July 2021

EX19/2022 Levelling Up Fund Round 2 : 25 April 2022

EX33/2022 Levelling Up Fund : 5 September 2022

EX35/2022 The Acquisition of Land for the Multiversity : 5 September 2022

EX17-2023 Multiversity and Levelling Up Fund Round 2 : 27 February 2023

National Planning Policy

National Planning Policy Framework December 2023 [PDF 671KB]

The Department for Levelling-Up Housing and Communities Guidance on Compulsory purchase process and The Crichel Down Rules (July 2019) [PDF 1.98MB]

Local Planning Documents

Blackpool Local Plan; Part 1 Core Strategy (2012 to 2027) January 2016 [PDF 135.35MB]

Blackpool Local Plan Part 2: Site allocations and Development Management Policies (February 2023)[PDF 18.3MB]

Talbot Gateway Planning Brief SPD November 2006 [PDF 4.36MB]

Other Local Strategies

Blackpool Town Centre Strategy Update (May 2022)[PDF 735MB]

Appendix 1

Plan 1: The Order Land

Appendix 2

Plan 2: Adjacent Development

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_{[1] Talbot Gateway Planning brief (SPD) 2006 - Paragraphs 2.14, 2.4 and 2.5(iv) refer.}