CHAPTER 2 - SPATIAL PORTRAIT AND ISSUES
SPATIAL PORTRAIT
Population
2.1 Middlesbrough Council is a Unitary Authority serving an area covering approximately 5,400 hectares with a population of 137,900 (2004 ONS). It is one of five unitary authorities in the Tees Valley sub-region, which has a population of 650,000, just over a quarter of the population of the north east. The town centre is the principal retail centre for the Tees Valley conurbation and the third largest retail centre in the north east. Middlesbrough is situated approximately half way between Newcastle (40 miles north) and Leeds (65 miles south).
2.2 Middlesbrough has a flourishing Asian community and has the highest proportion of minority ethnic communities in the Tees Valley at 6% of the town’s population.
2.3 Middlesbrough’s population is in decline. Since peaking at about 160,000 in the 1960s the population has been steadily falling. If this decline is not halted it is estimated that the population will fall to 130,000 by 2021. The decline has come about as a result of out migration as opposed to declining birth rates or increasing death rates. People are choosing to move to the surrounding villages in North Yorkshire, or new housing estates such as Ingleby Barwick. If this rate of decline is allowed to continue it could impact upon Middlesbrough’s role within the Tees Valley city region, and the ability to deliver quality services to the population.
2.4 Reversing out migration will be one of the key drivers of change that will need to be tackled through the LDF.
Environment
2.5 Middlesbrough is predominantly urban in character with high inner area housing densities and only 30% of the land in agricultural use. In the north, a corridor of industrial decline and underused land assets along the River Tees runs through the heart of the conurbation between Middlesbrough and Stockton. A number of initiatives have been established to address this including the SMI. Implementation of the SMI will assist in creating a rejuvenated urban core at the heart of the Tees Valley encompassing the two centres of Middlesbrough and Stockton. This in turn will act as a driver for sub-regional and regional regeneration, and go a long way towards addressing the physical legacy of industrial decline and promotion of economic vitality.
2.6 To the south, in North Yorkshire, there is easy access to beautiful countryside, coast and commuter settlements. A number of wooded beck valleys, that permeate the heart of the urban area from the open countryside in the south, have great value as green wedges, for leisure and as habitat.
2.7 There is a legacy of late Victorian and Edwardian architecture, some of which has been demolished but much remains. Some of this architecture is worthy of protection, but there is a lot that is of a poor quality not only in terms of its design but also the fact that it is no longer fit for the purpose for which it was originally built. More recently, poor design of new buildings has become an issue. It is all the more important therefore, to conserve more of what little remains of Middlesbrough’s good quality heritage and to achieve excellence in new building and public realm. Significant steps are being made in improving the public realm as can be seen by developments such as the Middlesbrough Institute of Modern Art (mima) and the creation of the new civic square.
Economy
2.8 From its mid 19th century origins, the economy of Middlesbrough was built upon iron, steel and heavy manufacturing along the river and around its port. The traditional economic base of heavy industry and petrochemicals went into decline, shed labour and became more capital intensive in the face of external competition. Since, the economy of Middlesbrough has restructured by diversification into light and general industry and by enhancing the town centre as the focal point for retail, leisure, commercial and civic administration for the whole Tees Valley conurbation. Middlesbrough town centre is the single largest employment destination within the Tees Valley employing over 20,000 people and is as such the principal economic driver within the borough. Much of this employment, nearly 90%, is within the service sector. Despite the importance of the town centre to the sub-regional economy, there is constant external competition. In the face of such challenges Middlesbrough must continue to strive to enhance its town centre and improve the quality of its employment, land and premises portfolio. Only by doing so can the town continue to grow and become part of the economic centre at the heart of a competitive and prosperous Tees Valley city region.
2.9 The flow of people who travel to work in Middlesbrough from outside of the town is greater than that of people who live in the town but travel to work outside in other districts. Whilst this illustrates the importance of Middlesbrough as an employment centre there are still many local people who cannot gain access to the job market because of a lack of skills or education. This reflects the relatively low education attainment levels within Middlesbrough’s schools. It is important that a skilled and well trained workforce is in place to support a growing and prosperous economy.
2.10 The success and contribution that the University of Teesside and Middlesbrough’s colleges make to the overall economic prosperity of the town should not be underplayed. They are important drivers in developing the town’s and city region’s economies. This is particularly so for the digital economy sector, for which the University has an international reputation. It is important that the skills of the University and its graduates are harnessed and used to foster further investment and growth. There are a number of initiatives being pursued to do just this. These include the Institute of Digital Innovation, Boho, and the relocation of Middlesbrough College to Greater Middlehaven.
Town Centre and District Centres
2.11 Over recent decades the Council has played a major role in developing the town centre and attracting major private investment including the Cleveland, Hill Street and Captain Cook Square shopping centres and the pedestrianisation of Linthorpe Road. Following a strategic study in 1997, a town centre partnership company (The Middlesbrough Town Centre Company) was established. It has co-ordinated a step change in investment, high quality public realm (Corporation Road) the arts and entertainment (including the multi-screen cinema and Middlesbrough Leisure Park) and a cultural quarter comprising the Middlesbrough Institute of Modern Art (mima), the Town Hall performance space and new civic square. New quality specialist shops, restaurants and bars have emerged along Linthorpe Road, building upon a thriving university, student population and urban economy. There has been a decline in office employment following competition from modern out of town development (particularly at Teesdale in Stockton) and from regional centres. However, recent new development and major refurbishments (e.g. Centre North East) are helping to redress this trend.
2.12 Further expansion of the town centre is constrained by the A66 and railway in the north and the older terraced housing in the south. Major regeneration activities in Greater Middlehaven provide an opportunity to examine the potential of this development to contribute to the town centre as an economic driver. The recently completed Middlesbrough Retail Study (2005) shows that there is capacity for further retail growth in the town, and that to accommodate this growth it will be necessary to identify opportunities for the town centre to expand.
2.13 The two district centres at Berwick Hills and Coulby Newham are thriving and each provides a comprehensive range of shopping (anchored on a superstore), leisure, library, health and other community and employment facilities for the large catchments they serve. However, several small local centres are in decline particularly those serving more deprived communities in areas needing regeneration.
Deprivation
2.14 Despite recent improvements in the local economy and employment, the majority of Middlesbrough’s inner area terraced housing and social rented housing estates in east and west Middlesbrough, experience high levels of multiple deprivation (16 wards are in the worst 10% of IMD national ranking (2000). There is a complex relationship of social and economic factors including high long-term and male unemployment, low income, benefit dependency, poor educational achievement, ill health, low car ownership often linked to other factors such as poor housing and high local crime rates. There is a process of residualisation, whereby those who can afford it move out, leaving the less affluent, the elderly and a more transitory population. This pattern is polarised by housing type and tenure. By contrast the more affluent private housing suburbs such as Linthorpe, Acklam, Coulby Newham, Marton and Nunthorpe are at, or exceed, national averages of such indicators.
Housing
2.15 The housing stock in Middlesbrough does not match the aspirations of the population and is no longer fit for purpose. There is too much terraced housing and not enough detached dwellings or apartments. Whilst the picture is changing in terms of apartments there is still a need to provide more family dwellings. Recent market research shows a strong demand for more middle and upper market sector housing (semi-detached and detached housing) to attract and retain economically active households in Middlesbrough. Only by providing the type of housing that people want, in the right locations and environment, can the population begin to grow. The diversification of the housing stock to ensure that it is more balanced is one of the key challenges facing the LDF.
2.16 A strategic approach to tackle these issues across the Tees Valley is being co-ordinated by Tees Valley Living. A number of initiatives are already under way in the town in response to this challenge, including those in North Ormesby, Central Whinney Banks and inner Middlesbrough. Approximately 11,500 pre-1919 terraced houses south of the town centre are at risk of housing market failure. This is evidenced by high vacancy, low prices, lack of demand and insufficient long-term investment. Essentially, this type of housing does not meet modern requirements and there is a surplus compared to market demand. The Council, with consultants, is currently assessing the local conditions, carrying out community consultation and exploring appropriate intervention options. The Council’s housing stock (12,000 dwellings) has been transferred to Erimus (a registered social landlord) and its first priority will be a substantial stock improvement programme.
2.17 In recent years although the proportion of brown field development has been high (72 %), house building rates overall have been low. This is largely because of a deficit of available greenfield sites and extensive land releases in surrounding authorities. This has had a major impact on net out migration, much to Stockton and North Yorkshire.
Communications
2.18 Middlesbrough is well-connected to the strategic road network via the A19/A1M connecting north and south, and the A66 and A172 connecting east and west. Within Middlesbrough two major north- south distributor roads, Acklam Road and Marton Road, are heavily congested with commuter traffic at peak periods. This has had implications for future development locations. Major improvements at two of the A66 interchanges are underway to improve access to the North Middlesbrough Regeneration Zone. Strategic rail connections need improvement, particularly the service from Middlesbrough to the East Coast mainline at Darlington.
2.19 There have been recent improvements to public transport along key corridors such as Acklam Road and Marton Road. Local bus services are generally adequate. There are issues of accessibility to employment locations and the main hospital and certain cross-town movement. Middlesbrough has an excellent network of cycleways and footpaths in the planned settlements in the south of the town (Coulby Newham and Hemlington), and along key routes into the town and along green corridors. In some areas there is scope to improve accessibility and local networks.
2.20 An efficient and effective communication network is important if an integrated and competitive Tees Valley city region is to be created. At the centre of this city region is the strategic public transport hub of Middlesbrough. To facilitate not only the successful delivery of the major developments and initiatives in Middlesbrough, but also the wider city region, it is necessary to ensure that a high level of connectivity exists within Middlesbrough and beyond with surrounding towns and regions. Ensuring this high level of accessibility, whilst maintaining and enhancing the capacity of the transport network, is one of the challenges and key drivers facing the LDF.
ISSUES TO BE ADDRESSED
2.21 From this spatial portrait and principal drivers of change it is possible to derive the issues that need to be addressed by the LDF. These issues have also been derived having regard to the themes of the Community Strategy, and responses to consultation on the Issues and Options.
Addressing population decline
2.22 There has been long-term population decline in Middlesbrough since the 1960s, when the population peaked at 160,000. To ensure that the urban core of the Tees Valley city region grows and develops as a place in which people want to invest, live, work and visit, it will be necessary to first stop population decline, and to then reverse it.
Tees Valley city region
2.23 The Tees Valley city region is seen by the Government as one of the eight economic powerhouses that will drive forward the economy of the north. Middlesbrough and Stockton town centres and the river corridor between them lie at the heart of the city region. The influence of the city region extends well beyond the Tees Valley with more than 875,000 people dependent upon the conurbation for employment, shopping, and leisure. Middlesbrough, with Stockton, has the potential to deliver enhanced, city-scale facilities, services and infrastructure to develop a core capable of driving forward the economy of the city region. This economic core, through the SMI, extends along the river corridor to include Teesport and parts of the Borough of Redcar & Cleveland.
Creating sustainable communities
2.24 There are a number of regeneration activities happening now, and proposed within Middlesbrough, that provide the opportunity to create sustainable communities. How these are taken forward and integrate existing and new development and communities is crucial to the success of Middlesbrough in a number of ways. This will necessitate creating communities that are places where people want to live and have a good mix of housing type, size, and tenure, with access to employment, education and other facilities, all set within a high quality environment.
Meeting local transport needs more effectively
2.25 Everybody wants transport which is safe, clean, efficient and accessible. Good transport and infrastructure is essential for a vibrant economy and an inclusive society. It provides access to jobs, services and schools, gets goods to the shops and allows people to make the most of their free time. Yet traffic growth, and in particular car use, has escalated in recent years bringing with it public concerns for safety, congestion and pollution. This is a problem for everyone but especially for people who are vulnerable because of age, disability or disadvantage. It can also threaten economic vitality and the way people perceive the town. Failure to invest in the transport infrastructure can also have a detrimental impact upon regeneration activities, hinder development opportunities, and frustrate delivery of the SMI.
Promoting the economic vitality of Middlesbrough
2.26 Middlesbrough is emerging from a long period of economic difficulties following the decline of the traditional industries on which the town was based. This has been a long-term process and a number of indicators show that Middlesbrough’s economy is still weak compared with other areas, with low skill levels, high unemployment, low rates of business formation, and a low cost/income economy. Indicators also show that Middlesbrough has been making strides towards economic recovery. There are also a number of key assets and opportunities in place that give Middlesbrough the potential to make further dramatic improvements. Incorporating the skills, talents, enthusiasm and commitment of businesses, employers, agencies and local people themselves will be key to Middlesbrough fulfilling its potential and playing its part with Stockton in creating a successful urban core at the heart of a prosperous Tees Valley city region. The strong interactions between the Tees Valley districts mean that it is often difficult to separate out economic issues. The economic fortunes of the authorities are inevitably intertwined and a strong Tees Valley economy will only be achieved by all authorities working together.
Reinforcing the role of Middlesbrough town centre within the Tees Valley city region
2.27 Middlesbrough town centre is a key driver in the town’s local economy. The success of the town centre is central to ensuring the delivery of key initiatives. A strong urban core centred upon complementary functioning Middlesbrough and Stockton town centres is essential in delivery of the SMI and promotion of a prosperous city region. Whilst Middlesbrough is the largest retail and commercial centre in the Tees Valley, it is not without its problems. A major issue for the town centre is therefore maintaining and enhancing its role as a sub-regional centre. This is a multi-functional role centred on a balance between retail, employment and offices, leisure, culture and the evening economy. The town centre is also a major location of civic administration. There is 151,200 m2 occupied floorspace within the town centre, 14,300m2 of convenience floorspace, and 136,900 m2 of comparison floorspace. The relationship of the town centre with Middlehaven will be important in developing and strengthening this role.
Improving health
2.28 In recent years, Middlesbrough has made some excellent progress in health and social care. Access to health and social care services have improved with quicker assessments and shorter waiting times to see a GP. Waiting times for receiving treatment have been cut significantly, allowing people to get better more quickly. Middlesbrough residents have ready access to NHS dental care. Local service providers are much better at co-ordinating services to help maintain people in their own homes. There are, however, some significant challenges that still need to be tackled, including shorter life expectancy and higher rates of cancer and heart disease when compared to national averages.
Maximising educational achievement
2.29 Middlesbrough’s high levels of disadvantage impacts upon the health and well-being of its children. There is also a culture of low self-esteem and low personal expectation. Education is undervalued in many households and a lack of parental encouragement and support has led to poor attendance and achievement. In some wards, particularly priority wards, many parents also have low levels of basic skills and unemployment has often blighted several generations. Despite relatively low educational attainment levels of its residents, Middlesbrough is home to a successful and expanding University. It is particularly renowned for its reputation in the digital technologies sector. Harnessing this expertise and knowledge will be important in achieving economic prosperity and supporting the development of the city region. One initiative that will need to be integrated into the LDF is the digital city concept.
Transforming the local environment
2.30 Through investment the town has benefited from a much cleaner, greener and safer environment. This kind of environment provides direct benefits to other areas such as improved public health, reduced crime and increased economic vitality. Middlesbrough is also fortunate to benefit from a strong voluntary sector, which adds value and complements the work of the Council and other public agencies. The key challenge, however, is to improve delivery alongside the increasing aspirations of residents who wish to live in a higher quality environment. Central to this is raising the level of urban design.
Creating a balanced housing market
2.31 Middlesbrough and its neighbours face some tough challenges in creating a balanced housing stock to meet the needs and aspirations of the population both now and in the future. These include:
- ensuring the provision of the right type and mix of housing in the right locations;
- addressing low demand and obsolete housing; and
- ensuring the long-term sustainability of neighbourhoods as areas of market choice.
This issue is closely linked to those of addressing population decline and creating sustainable communities.
Successful regeneration of Greater Middlehaven
2.32 Middlehaven has been identified as a priority for the Council and its partner organisations. It is seen as central to the delivery of the regeneration activities of key agencies and programmes such as the Regional Spatial Strategy, Northern Way and Regional Economic Strategy. The successful regeneration of the area will both directly and indirectly help to address many of the issues facing Middlesbrough and, linked with complementary regeneration activities in Stockton, help deliver a competitive urban core of city scale. Regeneration of Middlehaven can also assist with wider regeneration activity in the Tees Valley.
Successful regeneration of Greater Hemlington
2.33 Hemlington is one of the areas within Middlesbrough which is suffering from low housing demand, poor quality environment, high unemployment and levels of deprivation. The lack of investment in Hemlington Grange has created an opportunity to re-examine the future use of the site and the possibility of creating a sustainable community. This could be achieved through a combination of new development and the regeneration of Hemlington. Such a development can also be seen as complementing that of Greater Middlehaven, to address population decline and provide a balanced housing stock.