MIDDLESBROUGH COUNCIL

LOCAL DEVELOPMENT FRAMEWORK ANNUAL MONITORING REPORT 2005/06

Contents

Page

Executive summary 3

1.  Introduction 6

2.  The monitoring framework 9

3.  Local Development Scheme implementation 11

4.  Economy and employment 14

5.  Housing 19

6.  Town centre, shopping and retail 24

7.  Transport 26

8.  Environment and recreation 28

9.  Changes in national and regional policy 32

Appendix – local indicators 36

Executive summary

This is the second Annual Monitoring Report (AMR) on the Middlesbrough Local Development Framework (LDF). It covers the period from 1st April 2005 to 31st March 2006. The purpose of the document is to assess progress on the preparation of the LDF and to assess the effectiveness of the policies in the Middlesbrough Local Plan.

The findings of the AMR inform the need to review the local development scheme (LDS). It also informs the review of the Local Plan as an LDF, by identifying policies, which are either:

i.  not being implemented;

ii.  not achieving the desired outcomes;

iii.  no longer consistent with national planning policy; or,

iv.  not in general conformity with the Regional Spatial Strategy and the Tees Valley Structure Plan.

Progress on the LDF

During 2005/06 the preparation of the LDF progressed well and achieved the key milestones set out in the LDS (which was brought into effect in September 2005), notably:

i.  the Statement of Community Involvement (SCI) was subject to a written representations examination and was adopted in December 2005; and,

ii.  consultation commenced on the preferred options reports for the Core Strategy and Regeneration Development Plan Documents (DPD) in December 2005 and February 2006 respectively.

As a result of representations received from Government Office North East (GO NE) in relation to the future direction of the Core Strategy and Regeneration DPD, the Council decided to amend the two documents and repeat the preferred options consultation. This has had a knock-on effect on the achievement of the LDS timetable for 2006/07 and a revised LDS was brought into effect in June 2006 with amended key milestones.

Analysis of policy implementation

The performance of the local plan policies has been measured using three types of indicators:

i.  contextual indicators, which provide an understanding of the wider demographic, social, environmental and economic circumstances;

ii.  core output indicators, which are set nationally and provide a measure of how key policy themes such as housing and business development are being delivered; and,

iii.  local output indicators, which measure the impact of specific local plan policies.

The economy and employment indicators reveal that during 2005/06 relatively little employment land was developed, though it was all on brownfield sites. As such, whilst policies EM2-4 (employment sites) are being implemented they are not fully achieving the scale of development envisaged. To increase the level of employment development the LDF proposes the re-allocation of the prestige employment site at Hemlington Grange for a mix of employment and housing. Whilst this will result in an overall reduction in employment land it will ensure a proportion of the site comes forward for employment uses. The housing element will fund the infrastructure provision, which is currently preventing the site coming forward. The local indicators highlight that with the exception of Middlehaven, major multiple mixed use sites continue to come forward for residential development rather than a mix of uses. The LDF will need to ensure that on the large mixed use sites of Greater Middlehaven and Hemlington Grange a mix of uses is achieved.

The housing indicators reveal that house-building rates in Middlesbrough have lagged significantly below the targets set out in the Tees Valley Structure Plan. Insufficient allocated housing sites (policy HO1) have come forward compared to levels envisaged when the plan was adopted. House-building rates are projected to increase significantly from 2006/07 to 2015/16, and are expected to exceed the Structure Plan targets. However, the Structure Plan targets are expected to be superseded by higher housing allocations in the Regional Spatial Strategy (RSS) in 2007. The indicators reveal that in 2005/06 only 30% of housing development was on allocated housing sites. It will, therefore, be important to ensure that new sites for residential development in the LDF are deliverable.

The housing indicators also reveal that only a third of completed housing sites of 20 or more units included an element of dwellings that were specifically designed to meet the needs of people who use wheelchairs. As such the objectives of policy HO17 are not been fully achieved.

The town centre, shopping and retail indicators identify that within the primary shopping frontage and west sector the level of non-retail use is within the guidance thresholds contained in the Local Plan. However, in the town centre secondary retail area the level of non-retail use has been significantly exceeded compared to the guidance threshold in the supporting text of policy SA11. The emerging LDF has considered the existing thresholds and does not propose a specific threshold outside of the primary shopping frontage, in reflection of changes to retail patterns since the local plan was adopted.

The transport indicators show that Middlesbrough has the highest level of net inflow for commuting in the Tees Valley. They also show that the car is the most popular form of travel to work for Middlesbrough residents, accounting for 66% of journeys. The indicators also reveal that the majority of car parking provided complies with Local Plan standards, though in sustainable locations reduced levels of parking has been considered acceptable.

The environment and recreation indicators reveal that Local Plan policies have, in the main, been successful in protecting areas of green wedge, primary open space and land beyond the limits to development. Only a very small proportion of the designated green wedge and primary open space was developed in 2005/06. Consideration is required through the LDF of whether the green wedge designation remains appropriate on institutional uses, such as school sites. Whilst there is an overall surplus of open space, much is of low quality. The LDF in conjunction with the emerging Green Spaces Strategy should consider how best to improve the quality along with potential alternative uses for surplus land.

Changes to national planning policy that will inform the preparation of the LDF includes Minerals Planning Statement 1, circulars on planning obligations and gypsies and travellers and guidance on appropriate assessment of plans. At the regional level, the draft RSS was examined in public in 2005/06 and is due for publication in 2007. This will set out the scale of housing and employment that should be provided in Middlesbrough and the LDF will need to take account of any changes from the draft RSS.

All existing Local Plan policies are all being implemented, though a small number are not fully achieving their objectives. These are policies HO1 (housing land supply), HO17 (housing provision for people with disabilities), EM2- 4 (employment sites) and SA11 (non A1 uses), which are highlighted above. All Local Plan policies are being reviewed as part of the preparation of the LDF, in accordance with the timetable set out in the LDS. The potential amendments to Local Plan policies identified through the indicators and the changes in national planning policy and the RSS will be taken into consideration in this review. As the Local Development Documents (LDDs) will not be adopted before 2007, the Council intends to save existing Local Plan policies beyond this date.

Introduction

Purpose of the Annual Monitoring Report

1.1  This is the second AMR for the Middlesbrough LDF and covers the period 1st April 2005 to 31st March 2006. It has two main purposes:

  1. to assess progress in the preparation of the LDF against the timetable set out in the LDS; and,
  1. to assess the effectiveness of the policies in the LDF.

1.2  The assessment under (i) above will be used to inform the need to amend the LDS, for example if targets are not being achieved. The assessment under (ii) above will inform the need to adjust or replace policies that are not working as intended and/or to ensure they reflect changes in national or regional policy.

1.3  The Council is currently preparing the LDF and expects to adopt the core strategy in September 2008 and the regeneration and environment development plan documents in April 2009 and November 2010 respectively. In the meantime, the policies in the Middlesbrough Local Plan - adopted in August 1999 - have been ‘saved’ until September 2007. The Council will be seeking the Secretary of State’s approval to extend this saved period until their replacement by the LDF documents. In this annual monitoring report it is, therefore, the effectiveness of Local Plan policies that are being assessed.

1.4  As the Local Plan was adopted over five years in advance of the Government’s Good Practice Guide ‘Local Development Framework Monitoring’ (2005), a number of its policies do not lend themselves to easy monitoring. Consequently, by necessity, this report cannot comprehensively assess all of the policies contained within the Local Plan. Over time, however, as Local Plan policies are replaced by LDF policies - written with monitoring requirements in mind – a more comprehensive assessment will be achieved.

Key contextual characteristics

1.5  Middlesbrough is a unitary authority, covering approximately 5,400 hectares that has a population of 137,300.[1] The town centre is a sub-regional centre for the Tees Valley and is the third largest retail centre in the North East after the Metro Centre and Newcastle.

1.6  The borough is predominantly urban in character with high inner area housing densities and only 30% of the land in agricultural use. A number of wooded beck valleys link the urban areas with the open countryside in the south and provide a valuable resource for leisure use and wildlife habitat.

1.7  Despite its small geographical size, Middlesbrough is a major focus of the wider Tees Valley economy, based on the key sectors of retail, public administration, education and health. 89% of employment is in the service sector.[2] Middlesbrough has the highest level of net commuting inflows for employment in the Tees Valley.

1.8  Despite recent improvements in the local economy, inner area terraced housing and social rented housing in east and west Middlesbrough experience high levels of multiple deprivation, with 12 wards in the worst 10% of the index of multiple deprivation national ranking.[3]

1.9  The town has 58,200 households.[4] Whilst the majority of these households live in attractive, quality accommodation, a proportion of the stock is outdated and does not meet modern day aspirations. Approximately 11,500 pre-1919 terraced houses south of the town centre are at risk of housing market failure. Estates of social housing also require housing market renewal intervention. In recent years, whilst the proportion of housing on previously developed land has been high, gross house-building rates have been low, averaging only 186 dwellings/year in the period 2001/02 to 2005/06. However, there are encouraging signs that house-building levels are increasing and in 2005/06 328 gross dwellings were completed.

1.10  Middlesbrough is well connected to the strategic road network via the A19/A1M connecting north and south and the A66 connecting east and west. Within Middlesbrough the two major north-south distributor roads, Acklam Road and Marton Road, are heavily congested with commuter traffic at peak periods.

Challenges

1.11  The spatial vision for Middlesbrough in the emerging LDF, is of a dynamic centre with an increasing and diverse population, enjoying full employment and high-ranking educational facilities and living in truly sustainable communities. It also seeks to establish Middlesbrough as the North East’s fastest growing retail centre and a major cultural destination.

1.12  The achievement of this aspirational vision will depend on successfully tackling a number of challenges including:

  1. stabilising then reversing population decline through the creation of sustainable communities in an attractive environment;
  1. developing balanced housing markets through the provision of the right type and mix of housing in the right locations and promoting housing market renewal in areas of market failure and low demand;
  1. increasing the vitality and viability of the town centre and accommodating its future expansion;
  1. tackling the economic and environmental decline of small local shopping centres;
  1. delivering high and sustainable levels of economic growth by supporting existing businesses and encouraging new ones to set up;
  1. improving connectivity within Middlesbrough, the Tees Valley city region and to other regions;
  1. improving the educational attainment and health of residents; and,
  1. improving the built environment through protection of the town’s heritage and through innovative, high-quality design in new buildings.

Opportunities

1.13  Whilst these are very significant challenges, requiring long-term solutions, Middlesbrough has a number of delivery opportunities including:

  1. the Stockton-Middlesbrough Initiative, which provides the opportunity for a radical economic regeneration strategy to deliver a dynamic city-scale urban centre for the city region and its economy;
  1. the largest town centre in the Tees Valley, with potential to grow through rationalisation of existing land uses and expansion of its boundary to accommodate future planned growth;
  1. the major regeneration scheme at Greater Middlehaven, which provides the opportunity to develop a sustainable mixed-use community based on innovative architectural design, taking advantage of its waterfront location to provide high-quality, high-density urban living;
  1. the relocation of Middlesbrough College to a purpose-built, centralised site at Greater Middlehaven and redevelopment of the existing sites for high-quality residential development;
  1. a suitable location for a large casino and its associated regeneration benefits;
  1. a major regeneration scheme at Greater Hemlington to create a high- quality, lower-density sustainable urban extension - linked to regeneration of adjacent low-quality housing – that, along with Middlehaven, will widen housing choice to attract and retain economically active households;
  1. the links with the University of Teesside and the opportunities to expand the digital media and digital technology sector of Middlesbrough’s economy through the retention of graduates and facilitation of entrepreneurship;
  1. improvements to transport infrastructure on the A19 and A66, the Hartington and Cargo Fleet interchanges and improvements to rail and bus services; and,
  1. a comprehensive network of beck valleys, green wedges and the countryside beyond, which provide opportunities for leisure use, environmental enhancement and protection of biodiversity habitats.

The monitoring framework

Monitoring principles

2.1  Monitoring is an essential element in the preparation of the LDF. It provides the evidence base on which to assess the performance of the saved policies in the Local Plan, which will in turn inform the production of LDF spatial policies. It highlights where policies are achieving their objectives and highlights ineffective policies and policies whose effect differs from those intended. As such, monitoring will assist the Council in delivering sustainable development and sustainable communities.