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CHAPTER 1 - BACKGROUND

 

INTRODUCTION

1.1       The Planning and Compulsory Purchase Act 2004 requires local planning authorities to produce a Local Development Framework (LDF) for their area, to replace the old system of Structure Plans, and Local Plans. LDFs must contain clear and up to date spatial planning frameworks to enable efficient delivery of new development, especially housing. Middlesbrough Council embraces this new system and is looking to have in place the principal elements of its LDF as soon as it can. The LDF, which will be a shorter and more focused document than the Middlesbrough Local Plan, will be made up of a portfolio of documents. The Core Strategy is the first of these documents to be prepared under this new system.

1.2       The Core Strategy should look forward over a fifteen year period post adoption. As the Core Strategy was adopted in 2008 it looks forward to 2023. This is two years beyond the timeframe of the Regional Spatial Strategy (RSS) which goes to 2021. Where necessary rates of development from the later periods of the RSS have been extended to continue to 2023. It is likely that both the RSS and Core Strategy will be reviewed before this date.

 

WHAT IS THE CORE STRATEGY?

1.3       The Core Strategy sets out the principal elements of the planning framework for Middlesbrough. When adopted it will comprise a spatial vision and strategic objectives for the area; a spatial strategy; core policies; and a monitoring and implementation framework with clear objectives for achieving delivery. It must be kept up-to-date and, once adopted, all other development plan documents must be in conformity with it. The Core Strategy should normally be the first development plan document to be produced. The relationship between the Core Strategy and the other elements of the Local Development Framework is shown in Fig1.1.

Fig 1.1 MIDDLESBROUGH LOCAL DEVELOPMENT FRAMEWORK

Figure 1.1 Regeneration DPD

1.4       The Core Strategy identifies the priorities that the Council will seek to address
through the planning system. These are identified in Section 2 of this report, and are used to derive the overall spatial vision and objectives for Middlesbrough.
Priorities include:

 

THIS STAGE

1.5       This is the final stage in the process of preparing the Core Strategy. It follows on from consultation on Issues and Options, Preferred Options and Submission Representations which were considered by an independent inspector appointed by the Secretary of State at a public examination, held in November 2007. The inspector’s report, which found the Core Strategy sound, was published in February 2008.

 

POLICY CONTEXT

1.6       The Core Strategy has not been produced in a policy vacuum. It has been necessary to have regard to a number of policy documents that set the framework within which the LDF needs to be prepared. This Core Strategy has been prepared to be in conformity with the submission draft Regional Spatial Strategy (RSS).

1.7       Other documents that have provided the policy framework for producing the Core Strategy include:

 

COMMUNITY ENGAGEMENT

1.8       The Core Strategy is a product of extensive community engagement and consultation. An Issues and Options report, seeking views on the issues that needed to be addressed by the Core Strategy, was consulted on during the summer of 2005. Two rounds of Preferred Options engagement were also undertaken, in December 2005 and September 2006. Comments from both were analysed and, where appropriate, the Core Strategy has been amended.

Fig 1.2 THE LDF PROCESS

Figure 1.2

1.9       Further details of the community engagement undertaken is contained in a statement of compliance that has been published alongside this report. The feedback received at all stages of engagement to date is summarised below.

Spatial strategy

1.10     There was general consensus that Middlehaven should be a priority for the Council. It was felt, however, that whilst the delivery of Middlehaven is important, it should be seen as one of a number of complementary development proposals. Both Middlehaven and the SMI should be recognised as priorities identified in the draft RSS, as should Middlesbrough town centre. The Boho area linking the town centre with Middlehaven was seen as a crucial connection important to the success of both areas. Development of previously developed land should be prioritised ahead of the release of greenfield land. The release of sites for housing should support, and not undermine, the Housing Market Renewal initiatives. Some concern has been expressed over the phasing and pace of development that is likely to occur at Middlehaven.

Greater Hemlington

1.11     Greater Hemlington was seen as an important component of the strategy to stem outward migration. It is important to ensure that the development of Greater Hemlington, and Hemlington Grange in particular, addresses the following issues:

  1. impact upon the local and strategic highway networks;
  2. relationships with other priority schemes within Middlesbrough, especially Greater Middlehaven; and,
  3. the successful regeneration of the Hemlington area.

A number of those making comments were unconvinced that Hemlington Grange was the correct location for a new strategic southern extension of Middlesbrough, and identified alternative locations.

Design

1.12     The general consensus was that design should be given a high priority within the LDF, and underpin the spatial vision and strategy.

Economy and Employment

1.13     The priorities for economic development were identified as the regeneration of Middlehaven, development along the A66 corridor and developing the town centre as a focus for office and retail development. These are the locations where good infrastructure and opportunities to create employment exists. Supporting this overall strategy is the need to create local employment opportunities in areas of high unemployment and deprivation. Where possible, these employment opportunities should be provided as part of mixed use developments.

1.14     It was also recognised that Riverside Park remains the most significant employment location within Middlesbrough, outside of the town centre. The estate itself faces significant problems in terms of accessibility and poor environmental quality. These are all issues that will need to be addressed if the estate is to meet its full potential.

1.15     An important employment issue in Middlesbrough is the loss of the traditional industrial estate, now surrounded by residential uses. These estates often perform an important role in the local economy providing relatively cheap premises and start up locations for local companies. Where possible, their loss should be prevented.

Housing

1.16     By far the most important issue was the lack of good quality family housing. Where possible sites should be selected using a sequential approach prioritising previously used land. It will be necessary to strike a balance between the two matters. To address the lack of good quality housing and, to provide a balanced housing supply, it may be necessary to identify some greenfield sites.

1.17     Phasing of housing development, particularly in the context of the draft RSS requirements, is an issue that needs to be addressed. Whilst Middlehaven is seen as a priority, it cannot by itself deliver all of Middlesbrough’s housing requirement, nor would it be desirable for it to do so. Any other sites brought forward will need to complement the development of Middlehaven in terms of types, numbers and phasing.

1.18     Housing Market Renewal is seen as a priority in addressing a number of the housing issues facing Middlesbrough. Generally, replacement housing should be at lower densities than the housing it is replacing.

Retail and Leisure

1.19     There was a general consensus that Middlesbrough town centre’s role as a sub-regional centre should be reinforced and strengthened. There was less agreement as to which direction any town centre expansion should take. The Council should have regard to the provisions of PPS6 when assessing the direction of town centre expansion.

Education, Health and Culture

1.20     Many of the comments received centred on improvements to education facilities and the diversification of the types of school available, in particular the creation of faith schools. There was a recognition of the need for a greater integration between planning and education in the decision making process.

Transport

1.21     Several of those commenting felt that the core transport network was adequate to meet most of Middlesbrough’s needs, but specific pinch points and bottlenecks needed to be tackled. The Highways Agency, in particular, expressed concern about the impact of major development on the capacity of the strategic highway network.

1.22     There was a general recognition that the public transport system is in need of improvement if a reliable sustainable alternative to the private car was to be available. This includes the provision of new rail halts, improvements to existing stations and the introduction of park and ride.

Environment

1.23     There was general support for the protection of all open space and recognition of the role that a good quality environment plays in attracting investment into an area and providing a high quality place where people want to live.

1.24     There was consensus on the important role that historic buildings play in helping to create a high quality environment. The historic environment can play an important part in the regeneration of an area.

 

SUSTAINABILITY APPRAISAL

1.25     The SA accompanying this report is an update of that undertaken at Preferred Options stage and appraises the significant changes that have been made to the Core Strategy. The Council has also undertaken an Appropriate Assessment of the Core Strategy in accordance with the provisions of the Habitat Regulations. An environmental statement accompanies this adopted Core Strategy.

 

HABITIAT REGULATIONS ASSESSMENT

1.26     To the east, the Teesmouth and Cleveland Coast Special Protection Area (SPA) is a significant environmental resource. The SPA is a wetland of international importance due to its breeding, wintering and migrant bird populations. The SPA comprises intertidal sand and mudflats, rocky shores, sand dunes, saltmarsh and freshwater marsh, which provide nesting, feeding and roosting habitats. Areas outside the designated site are used by SPA species for feeding and roosting birds.

1.27     The Core Strategy has been subject to an Appropriate Assessment (AA) as required under European and Domestic regulations. The assessment concluded that there were unlikely to be any significant effects upon the Teesmouth and Cleveland Coast Special Protection Area (SPA)/Ramsar or North York Moors SPA/Special Area of Conservation (SAC) sites. Sufficient safeguards are in place, in the form of over-arching policies (CS1, CS4 and CS21) to ensure that the Core Strategy would not have a significant effect on the integrity of these sites.

1.28     The Habitats Regulations provide a framework within which subsequent land use plans will be examined. An AA will be undertaken on all emerging Development Planning Documents and Supplementary Planning Documents which will include, where appropriate, criteria based policies to ensure that any significant impact on the integrity of International and European designated sites is avoided, mitigated or compensated; and to inform scheme level decisions.

 

STRATEGIC FLOOD RISK ASSESSMENT

1.29     In accordance with Planning Policy Statement 25: Development and Flood Risk, the Tees Valley Strategic Flood Risk Assessment (2007) has been prepared. This will enable a sequential test to be undertaken to ensure that land use allocations in the Regeneration DPD are located in areas of least probability of flood risk. The SFRA will also inform the application of the exceptions test in those circumstances where the wider sustainability benefits of a development are considered to outweigh the flood risk. The above tests will be assessed through the sustainability appraisal for the Regeneration DPD.

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