MIDDLESBROUGH COUNCIL

Local Plan (LDF) Publication Core Strategy and Regeneration Development Plan Document

Executive Member for Regeneration and Economic Development: Councillor Charles Rooney

Executive Director Neighbourhoods and Communities: Kevin Parkes

8 October 2013

PURPOSE OF THE REPORT

1.To seek approval for the Local Plan/Local Development Framework (LDF) Publication Core Strategy and Regeneration DPD approval to carry out public consultation.

SUMMARY OF RECOMMENDATIONS

2.It is recommended that the Executive notes the contents of the Publication documents and recommends to the Council that the document be approved.

IF THIS IS A KEY DECISION WHICH KEY DECISION TEST APPLIES?

3. / It is over the financial threshold (£150,000)
It has a significant impact on 2 or more wards / x
Non Key

DECISION IMPLEMENTATION DEADLINE

4.For the purposes of the scrutiny call in procedure this report is

Non-urgent / x
Urgent report

If urgent please give full reasons

BACKGROUND AND EXTERNAL CONSULTATION

5.Middlesbrough’s first LDF documents, the Core Strategy (2008), and Regeneration DPD (2009) were amongst the first the be adopted in the country and represented a significant achievement. They provided an inspirational vision on how the town would develop and grow over the period to 2023. Both documents however were produced in better economic times during a period of growth. Since 2009 there have been a number of significant changes which mean that the strategy and sites identified in the adopted LDF are no longer suitable and need to be reviewed. These changes can be summarised as follows:-

i.Economic downturn. This had a significant impact upon the house building industry’s ability to deliver housing and a large number of sites which would have previously been considered viable became unviable. It also became increasingly difficult for people to secure mortgages in order to purchase homes.

ii.Change of Government. The change of Government in 2010 had two significant impacts firstly a change in planning policy which became more focused upon house building and saw the introduction of the National Planning Policy Framework. Secondly, the changes in local government finance meant an almost complete reduction in funding for regeneration schemes making them undeliverable.

iii.Regional Spatial Strategy (RSS). The revocation of the RSS removed the strategic context within which LDFs were prepared. The onus is now upon each local authority to identify its development needs.

6.Rather than undertake a full review of the LDF it was decided to only undertake a partial review of the housing elements of the Plan. This was seen as being critical to ensure that the Council had a housing land supply that was deliverable to meet its needs and aspirations.

7.The review process commenced with the publication of Issues and Options in summer 2012 and involved a six week public consultation. Following this a further six week consultation, Preferred Options, was undertaken between January to March 2013. The Preferred Options contained proposed major new housing allocations at Brookfield, south of Coulby Newham, Stainton and Nunthorpe.

8.In total 420 representations were received as part of the Preferred Options consultation with approximately 390 from residents and community groups the remainder from statutory and other organisations. Comments were received from agencies such as Highways Agency, Environment Agency, Natural England, Sport England and neighbouring local authorities (A list of consultee responses is attached in Appendix 3).

9.The main comments/objections from residents included:

i.concern about the loss of greenfield land;

ii.developing brownfield land should be the priority e.g. Middlehaven and Gresham;

iii.don’t feel that the houses are needed especially not higher value housing;

iv.there is a lack of jobs in Middlesbrough and that is why people are moving not for housing;

v.concern about the road network and its ability to cope with increased traffic;

vi.issues in terms of perceived lack of education provision;

vii.loss of open space, and,

viii.concerns about flooding.

10.These comments and those of the statutory and other consultees were reported to the LDF Member Working Group who identified a number of solutions to take forward the Publication document. The draft Publication document is attached at Appendix 1. The remainder of this report sets out the overall strategy of the Plan and addresses the main issues raised in the objections.

Local Plan Strategy

11.The underlying aim of the strategy of the adopted LDF remains relevant to the Review. It was based upon the needs of meeting a stable population. This will form the basis of the strategy going forward. The level of housing identified is intended to deal with Middlesbrough’s natural growth in population. The town has over the course of the last five years experienced high birth rates (average of 2000 births per year) and as this population ages they will form their own households with their own housing needs. Conversely lower death rates and an ageing population means that fewer houses are becoming available on the housing market. Middlesbrough continues to be the strongest economic centre in the Tees Valley despite the economic downturn. This economic base is in danger of being undermined by high levels of in commuting into the town, caused by high levels of out migration of people moving to live in neighbouring authorities but continuing to work within Middlesbrough. There is significant net in-migration into the town for employment. The strategy is therefore built upon the need to retain this economically active sector of the population, cater for Middlesbrough’s own housing needs, and provide the housing in sustainable locations where people want to live. In order to do this it is necessary to adjust the housing balance, at the present there is a significantly high level of properties in council tax bands A -C compared to regional and national averages. To meet future housing needs it is necessary to increase the supply of properties in council tax bands D and above. This is also critical to future economic prosperity of the town and business development and growth.

12.The review and the allocations contained in the Plan represent the biggest house building programme in Middlesbrough for forty years. It provides an opportunity to create new places which will leave a lasting legacy of successful neighbourhoods and communities for years to come. It will create sustainable areas with high quality housing interspersed with green recreational areas, cycleways, footpaths, and access to local facilities. It will help make Middlesbrough a place where people desire to live. The plan seeks to provide for communities where quality of life will be clearly a primary objective.

Greenfield v brownfield

13.The Local Plan’s approach is to bring forward housing on a balanced mix of greenfield and brownfield sites. The use of brownfield land remains a priority for the Council, all of the sites identified in the current LDF are retained as housinig sites in the review. What has changed is the number of dwellings proposed on each site has been reduced, and the period over which these new homes will be delivered has been extended. They simply will not deliver the quantum of housing required to meet Middlesbrough’s housing needs. It’s a reflection of the economic environment and realities. Focusing all of Middlesbrough’s housing on brownfield sites will not meet the policy objectives of the Local Plan i.e. catering for the town’s own population needs, stopping migration, and strengthening the economic base. Greenfield sites are needed to deliver the strategy.

Jobs

14.The view that people are leaving Middlesbrough to seek employment is not supported by evidence on migration flows which demonstrate the majority of moves are short distances to nearby authorities. As referred to above there continues to be high inward flows of commuters for work into Middlesbrough, in 2011 there was a net 20,000 commuters into Middlesbrough to work each day, this compares to net out commuting levels of 17,000 for Redcar and Cleveland, and 7,000 for Stockton. Between them there are nearly 30,000 people commuting from Redcar and Cleveland, and Stockton into Middlesbrough each day to work (source ONS 2013).

Infrastructure

15.A Transport Study was commissioned jointly with Redcar and Cleveland to assess the transport infrastructure needed to deliver the level of housing proposed in both areas. This was necessary given the interrelated traffic issues which exist cross boundary and could impact upon the deliverability of housing in either Borough. The study identified that two key road proposals would help mitigate for the traffic generated by the development proposals in Middlesbrough and provide positive benefits. These were:

i.Stainton Way West extension - linking Low Lane with Mandale Road, running parallel to the A19 and creating the spine road through the Brookfield housing allocation; and,

ii.Prissick Link - linking Ladgate Lane with Longlands Road parallel to the Esk valley railway line (along the route of the protected East Middlesbrough corridor).

16.One proposal which whilst showing some benefits has major barriers to its deliverability calling into question its viability, is the Eastern Stainton Way Extension (Swans Corner to Stainton Way link road). This route is not seen as being an essential requirement in association with housing allocations within Middlesbrough. It would have greater positive benefits for allocations in Redcar and Cleveland. As a consequence it is proposed that this link road is deleted from the adopted Middlesbrough LDF and that alternative solutions are sought to the traffic problems associated with the Swans Corner roundabout and wider area.

17.In terms of other infrastructure requirements new schools are proposed at both the Brookfield and Coulby Newham allocations. A Strategic Flood Risk Assessment has also been carried out and appropriate changes have been made to the document to reflect any concerns associated with flooding issues.

Open space

18.Numerous objections are concerned with the loss of open space/countryside. The issue regarding brownfield v greenfield has been addressed above at paragraph 13. As stated there in order to meet Middlesbrough’s housing needs it is necessary to utilise greenfield sites, which will result in the loss of open space. This open space is predominantly in agricultural use and has little wildlife or recreational use, much of it is private land with no public access. A number of the sites in particular the larger strategic allocations will include significant levels of publically accessible open space. These include:

i.a country Park at Brookfield;

ii.enhancements to the Saffwood and Blue Bell Beck corridors including Stotfold Walk;

iii.Lingfield Green, Coulby Newham and other areas of open space to be provided within the development area;

iv.enhancement of woodlands;

v.creation of wildlife corridor and recreational route along the Marton West beck corridor; and,

vi.creation of 6.5 hecatres of recreational, amenity and wildlife open space as part of the allocation south of Guisborough Road, Nunthorpe.

19.These areas will all help to improve public access to high quality open space and contribute significantly to creating communities and neighbourhoods which people will be proud of.

Allocated sites

20.There have been changes to a number of allocated sites in response to the consultation process. The views of the communities affected by the proposals have been listened to and the principal resulting changes are outlined below.

21.Stotfold Walk, Brookfield

This allocation has been deleted. It is to be retained as open space which will be enhanced as part of the development to the west of Brookfield.

22.Stainton, south of Strait Lane

This allocation to include a childrens play area.

23.Coulby Newham

Removal of the allocated areas around the Newham Hall listed building to protect the setting of the listed building. These areas to be retained as open space. Inclusion of tree belts around the edge of the proposed residential development to act as a screening buffer. Identification of an area for lower density larger high value housing around Newham Hall. Identification of Lingfield Green as a recreational and community hub to serve the Coulby Newham area.

24.Land south of Guisborough Road, Nunthorpe

Reduce the number of units by 50 to 250, and specify this as a maximum level of development. Identification of at least 6.5 hectares of open space for recreational, amenity and wildlife purposes. Vehicular access will only be allowed of the A1043, no vehicular access of Guisborough Road. Development will not be allowed to proceed until there is a commitment to deliver either the Prissick Link or a Park and Ride at Nunthorpe.

25.Low Gill

Removal of the protection of the corridor for the Stainton Way to Swans Corner link road.

Next stages

26.The Publication Stage is a statutory stage in the preparation of a Local Plan and as the plan is part of the Council’s policy framework needs to be approved by Full Council. It is proposed to seek approval for the Publication document at the Council meeting on the 16th October. Any comments made by the Executive will be reported verbally to this meeting.

27.It is proposed to consult with stakeholders and the public on this Publication document in November/December 2013. Once approved consultation will be for six weeks. This consultation is statutory stage and will be undertaken in accordance with the Statement of Community Involvement and will include following measures:

i.advertise the consultation in one local newspaper;

ii.publication of the document on the Council’s website;

iii.making the document available at specified places around the town including Civic Centre and libraries;

iv.sending the document to stakeholders, consultees and others requesting copies;

v.display material at key venues throughout the town;

vi.hold drop in events at locations in the south of the town;

vii.provide a Member briefing; and,

viii.offer Parish and Community Council’s the opportunity to present the Publication document to them.

28.Following this Publication stage the Core Strategy and Regeneration DPD will be submitted to the Secretary of which will be followed by a public examination in summer 2014 and adoption in Autumn 2014.

IMPACT ASSESSMENT (IA)

29.An initial equality impact assessment (EIA) has been carried out. A copy is attached at Appendix 2. The Publication document does not impact negatively on any of the groups listed, will not impact negatively on the Sustainable Community Strategy or have any implications for the transformation programme. A Level 2 Full Impact Assessment is not required.

OPTION APPRAISAL/RISK ASSESSMENT

30. Option 1 – Do not carry out the review of the housing elements of the LDF Core Strategy and Regeneration DPD - There are a number of risks associated not carry out this review. If these documents are not reviewed it will mean that the Council will continue the risk that the population will continue to decline and the ability to deliver sustainable services will decline. It will also mean that there is a significant risk that the Mayor’s Vision will not be deliverable. The Council will not have a deliverable 5-year supply of housing sites, and consequently the development industry will dictate where housing occurs. This will make it difficult to secure the resources from development to assist with delivery of infrastructure improvements and regeneration priorities.

31.Option 2 Carry out the review of housing elements of the LDF Core Strategy and Regeneration DPD. If the review is carried out it will assist in stabilising the population by providing the housing that residents want and help to retain the population and therefore the ability to deliver sustainable services. The review will enable the delivery the Mayor’s Vision in relation to housing. It will also mean that there will be a 5-year supply of housing sites.

FINANCIAL, LEGAL AND WARD IMPLICATIONS

32.Financial - there is a budget identified for preparing the Local Plan. This will cover the costs of the public consultation on the Publication document.

33.There may also be capacity issues for the Planning Policy Team in progressing the review, and support will be needed from other Service Areas.

34.Ward Implications – The Publication Core Strategy and Regeneration DPD will have an impact on all wards in the town, in particular those in the south. The LDF Member Working Group has been consulted on the preparation of the Publication document.

35.It is intended to hold a briefing for all Members prior to the start of consultation on the Publication document.

36.Legal Implications - There are no legal implications associated with preparing the Local Plan at this time.

RECOMMENDATIONS

37.It is recommended that the Executive notes the contents of the Publication documents and recommends to the Council that the document be approved.