CHAPTER 4 - GREATER HEMLINGTON
INTRODUCTION
4.1The Greater Hemlington area comprises of the Hemlington Grange site – that is allocated in the Local Plan as a prestige employment allocation – and the Hemlington estate. The proposed LDF designation for mixed use recognises that the prestige employment allocation will not be taken up due to the high infrastructure costs. The re-designation of the site will enable the infrastructure to service the employment land to be provided, whilst providing the housing that will attract and retain families in Middlesbrough. The site also offers excellent opportunities to link its development to the regeneration of the adjacent Hemlington estate.
4.2 A Hemlington area regeneration framework is being prepared for the Hemlington estate. This will address issues of low market demand and poor environmental quality. The consultation exercises that have been undertaken to date on bringing Hemlington Grange forward form part of the evidence base in support of the policy framework.
STRATEGIC CONTEXT
LDF Core Strategy
4.3 The development of Hemlington Grange allied with the regeneration of Hemlington is an important element in the achievement of the spatial vision identified in the Core Strategy. The policies in this section detail how the Core Strategy policies, in particular CS1 and CS3, will be taken forward.
Regional Spatial Strategy (RSS)
4.4 The RSS does not make specific reference to Greater Hemlington. The proposals for Greater Hemlington will, however, help to deliver the RSS by:
- creating a sustainable urban extension (policy 4);
- supporting housing market renewal activities (policy 29);
- delivering a significant part of Middlesbrough’s employment land portfolio (policy 18);
- ensuring that Middlesbrough delivers its strategic dwelling allocation (policy 30);
- delivering mixed use development that will contribute to economic prosperity (para. 3.12); and
- helping to stem population decline and urban-rural migration (paras.1.42 and 1.43).
4.5 The RSS Submission Draft June 2005 (Technical Background Paper No.2:
Delivering Economic Prosperity & Growth) identified 87 hectares of general
employment land available in Middlesbrough. This includes the Local Plan employment allocation at Hemlington Grange.
Middlesbrough Community Strategy
4.6 The delivery of the regeneration of Greater Hemlington will contribute to a number of the strategic priorities identified in the Community Strategy. These include:
- rejuvenation and renewal of the housing stock;
- ensuring that the type, mix and range of new housing developments provide choice, quality and affordability, whilst meeting residents' aspirations;
- improve and maintain existing housing in both the social and private sectors, increasing choice and creating sustainable neighbourhoods; and
- develop a high quality network of public realm, open space and parks to serve the needs of the community.
Other relevant strategies
4.7 The Tees Valley Joint Strategy Unit strategic employment land review recognised that Hemlington Grange is no longer required for the purpose it was originally allocated as a prestige employment site. Instead it described the site as a key development opportunity for the people of Middlesbrough, adjacent to high levels of deprivation. It could also represent an opportunity for sustainable mixed use development in the southern part of the borough.
4.8 The Tees Valley Structure Plan recognised that a need for a strategic greenfield housing site would be required towards the end of the plan period to help meet Middlesbrough's housing needs. Policy H2 and its supporting text recognised that the scale of development would be approximately 1,000 dwellings.
SUSTAINABILITY APPRAISAL
4.9 The sustainability appraisal recognised that, whilst Hemlington Grange is largely a greenfield site which would result in significant car journeys, overall the development would have a number of positive sustainable benefits. These included:
- linked regeneration benefits of Hemlington;
- creation of a sustainable transport system;
- opportunities to maximise the ecological value of the site and contributions to the community forest;
- opportunities to make environmental improvements through the use of sustainable design and construction techniques;
- contributing to employment and economic growth; and
- reducing the level of outmigration from the town and help reduce unsustainable commuting trips.
4.10 The most significant adverse impacts identified include those upon:
- the quality of soils;
- landscape and visual impact; and
- air quality through the possible increase in car journeys.
It is important that measures are included within the policy framework to minimise, if not eliminate, these potential adverse impacts.
HEMLINGTON GRANGE – DEVELOPMENT PRINCIPLES
4.11 The site is currently rough pasture and displays typical pressures associated with the urban fringe, such as fly tipping, dog walking and horse grazing. Disturbed ground indicating remnants of a former farm complex, an isolation hospital and associated sewage works contributes to the rundown and slightly neglected appearance of the area. The northern part of the site is lower lying and subject to urban influences including the Hemlington estate and traffic noise from Stainton Way. The southern part of the site is more pastoral, with panoramic views across Middlesbrough.
4.12 This site provides an opportunity to create a high quality development that embraces the latest in sustainable construction techniques. It will also lead to the creation of a strategic urban extension that embodies the principles of sustainability as expressed in PPS1. Development will be undertaken in accordance with policy CS3 of the Core Strategy, which identifies Hemlington Grange as a strategic site. In doing so it is important that development of the site maximises the environmental and landscape features of the site. There is also opportunity to enhance the environmental value of the site through the creation of green corridors, tree planting and linkages with surrounding areas. In order to ensure that the development contributes fully to stemming population decline it is important that the highest quality development is achieved. Whilst the proposals for Hemlington Grange provide an opportunity to create a new community to meet the aspirations and vision expressed in the Core Strategy, it will also allow for integration with the existing Hemlington community and assist with the regeneration of the wider area. Design and implementation matters will be addressed in greater detail in a separate supplementary planning document.
POLICY REG4 HEMLINGTON GRANGE – DEVELOPMENT PRINCIPLES
The following uses, or mix of uses, and quantum of development, will be considered appropriate within Hemlington Grange:
| 2004-11 | 2011-16 | 2016-21 | |
| Residential | 85 | 375 | 280 |
| Employment B1/B2/B8 | 1.5 ha | 7.5 ha | 6 ha |
| Health facilities To be provided if a need is identified | |||
| Primary school To be provided if a need is identified | |||
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Planning permission will only be granted for development that satisfies the following criteria: |
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a |
all development is of the highest quality in terms of layout, architectural design, and materials that will create a high-value, high quality development; |
h |
a detailed ecological assessment and hedgerow survey should be undertaken to determine which hedgerows should be retained and incorporated into the development; |
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b |
employment development is restricted to the low-lying ground in the northern part of the site; |
i |
water bodies should be incorporated into the development to help prevent flooding downstream, create a recreational and ecological resource, and form part of a sustainable urban drainage system; |
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c |
land adjacent to Stainton Way should be developed for non- noise-sensitive uses such as employment and/or structural landscaping; |
j |
the public utilities infrastructure requirements are considered holistically and provision should make a demonstrable contribution to sustainable development and move towards a zero carbon footprint; |
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d |
the southern part of the site will also be served by an access off the B1365, employment uses will not be accessed from this point; |
k |
creation of a new junction on Stainton Way, combining vehicular and non-vehicular accesses, to form an attractive entrance and focal point to the Hemlington Grange development and existing Hemlington Estate; |
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e |
residential development is provided in neighbourhoods of identifiable character which provide variety and diversity in layout and design. Neighbourhoods on the southern boundary of the site should be developed for higher value family and executive style housing. Apartments will not be permitted within the development; |
l |
pedestrian crossing points should be provided on the B1365 and Stainton Way. Links with the Lingfield countryside centre should also be included if possible; and, |
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f |
significant areas of woodland should be incorporated into the development, particularly in the highest and most visually prominent parts of the site, to provide screening, structural landscaping and augment existing plantations; |
m |
bridleways, cycleways and footpaths should be incorporated into the site layout with links to the Unicorn Centre, Hemlington and Coulby Newham. |
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g |
green corridors should be incorporated within the layout to facilitate the movement of wildlife and pedestrians, and which contribute to the creation and management of habitats identified in the Tees Valley Biodiversity Action Plan. These corridors should be coincidental with existing desire lines and should link the Gables public house and the existing public right of way network to the south, and should continue through to the Hemlington regeneration area creating linkages with the wider green space network and local facilities; |
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Further detail will be contained in the Greater Hemlington Supplementary Planning Document.
A masterplan will need to be approved by the Council for the development of Hemlington Grange before planning permission is granted for any constituent part of the development area.
This policy has been superseded by the Housing Local Plan
HEMLINGTON GRANGE – EMPLOYMENT USES
4.13 The intention is to create a high quality business park, providing a variety of types and scales of employment use. Provision for small local businesses and community enterprises, benefiting the neighbouring communities, should be included in any scheme. It is envisaged that the employment uses will be primarily B1 uses. This does not mean that other employment-generating uses such as those in Use Classes B2 and B8 will not be allowed. By their nature B2 uses are less acceptable in residential areas, so it is important that, where they are proposed, safeguards are incorporated to protect the amenity of occupiers of surrounding properties. Buildings for such uses tend to be of a lower design quality. This will not be acceptable. Any B2 buildings will have to be designed to the same high standard as other buildings within the development.
4.14 Warehousing, storage and distribution uses (use class B8) tend to be land intensive, but have a low floorspace-to-job ratio. As such they offer fewer job opportunities than other employment types. Such uses will therefore only be permitted where it can be demonstrated that the proposal will make a significant contribution to the employment-generating potential of the development and the regeneration of Greater Hemlington.
POLICY REG5 HEMLINGTON GRANGE – EMPLOYMENT USES
Within the Hemlington Grange development area, as identified on the proposals map, planning permission will be granted for B1, B2, and B8 employment uses in accordance with the provisions of policy CS3 of the Core Strategy, provided that:
a |
development is restricted to the northern part of the site adjacent to Stainton Way; |
b |
access is taken off Stainton Way, no vehicular access will be permitted off the B1365; |
c |
provision is made for starter units and a business enterprise centre; |
d |
B2 and B8 uses will only be permitted where they will not:
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e |
the proposal is of a standard appropriate to a high-value, high quality development. |
Further detail will be contained in a supplementary planning document.
This policy has been superseded by the Housing Local Plan
GREATER HEMLINGTON – TRANSPORT INFRASTRUCTURE
4.15 An initial appraisal of the transport impacts has been undertaken. This has shown that roads in the area do not have the capacity to accommodate the development without improvement. These improvements include the following:
- a new junction onto the B1365 (to serve the residential element of the development only);
- a new junction onto Stainton Way;
- widening of Hemlington Lane between Newham Way and Stainton Way from 7.3m to 10m;
- widening Stainton Way between Hemlington Lane and Aviemore Road from 7.3m to 12.3m; and
- widening Stainton Way between Hemlington lane and Dalby Way from 7.3m to 12.3m.
4.16 These improvements may be phased over the life of the development, and may be triggered when a particular level of development is reached. These triggers will be identified through a more detailed transport assessment and in the Greater Hemlington SPD.
4.17 The opportunity should be taken through development to deliver a sustainable transport system linking Hemlington with the wider Middlesbrough area. Further work will need to be undertaken to examine the feasibility of introducing new bus only lanes/roads adjacent to the B1365 between Stainton Way and Ladgate Lane. This work should also incorporate the feasibility work on the introduction of any light rapid transit (LRT) system and the possible inclusion of Hemlington Grange within the route. Other improvements should include improved passenger facilities at bus stops and re-routing of bus services through the development.
POLICY REG6 HEMLINGTON GRANGE – TRANSPORT INFRASTRUCTURE
As part of the development of Hemlington Grange and the regeneration of Hemlington the following improvements will be required to the transport infrastructure:
a |
a new junction onto Stainton Way to serve the development site; |
f |
the provision of a bus-only lane adjacent to the B1365 from the development site to the A174 junction. In the longer term this route should be capable of being used for LRT purposes if required; |
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b |
a new junction onto the B1365, which will provide access to the residential development to the south of the site, access to the employment area will not be permitted from this access; |
g |
provision of improved bus passenger facilities at bus stops including real time information systems; and |
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c |
widening of Stainton Way from Aviemore Road to Dalby Way; |
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further exploration of the provision of a park and ride facility to serve Middlesbrough town centre, either within or near to the Hemlington area. |
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d |
widening of the B1365 from the new junction serving the development to Newham Way; |
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e |
improvements to the roundabout at the junction of Stainton Way and the B1365; |
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The above requirements will be subject to confirmation by a detailed transport assessment, the details of which will be reflected in the Greater Hemlington Supplementary Planning Document.
This policy has been superseded by the Housing Local Plan
HEMLINGTON REGENERATION AREA
4.18 Hemlington was developed largely during the 1960s. Whilst there are pockets of stable and attractive housing, there are large numbers of voids and a failing housing market. The emerging Hemlington regeneration framework will provide a context for development opportunities by providing a better understanding of recent housing market changes. The framework will prioritise the required physical interventions and link to the wider-ranging Hemlington neighbourhood area plan that will be prepared to take the regeneration proposals forward. The framework and area plan will not be solely confined to housing issues such as housing market failure and subsequent renewal, but they will also consider the social, economic and physical initiatives necessary to support potential investment and ensure the long-term sustainability of the community.
4.19 There is a great opportunity to link the development activities on Hemlington Grange with the renewal of the Hemlington Estate. These linkages not only include reinvesting monies from the development of Hemlington Grange into the wider regeneration activities of Hemlington, but also ensuring that the two initiatives are truly integrated.
POLICY REG7 HEMLINGTON REGENERATION AREA
Within the Hemlington regeneration area, as identified on the proposals map, development should seek to support the aims of regenerating Hemlington, tackling issues of housing market renewal, and the creation of a sustainable community. The following developments are proposed within the area to support these regeneration activities.
| 2004-11 | 2011-16 | 2016-21 | |
| Hemlington Estate | 56 dwellings | ||
| Land adjacent to Hemlington Hall School | 30 dwellings |
All developments will be expected to support and assist:
a |
the creation of a more balanced housing stock through the development of high quality new dwellings that offer a better choice of housing types and tenures; |
b |
the retention and improvement of social and private sector housing through external and internal improvement programmes to meet decent homes standards and resident aspirations; |
c |
the improvement of the external environment through the provision:
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d |
with addressing specific community and social needs. |
Further detail will be provided in the Greater Hemlington Supplementary Planning Document.
IMPLEMENTATION AND DELIVERY
4.20 The Hemlington Grange site is within Council ownership. Options for delivery of the development are being explored by the Council. This is likely to involve a partnership approach with one or more development partners. Full details of how the scheme will be delivered and implemented will be set out in an SPD. Proposals for the regeneration of Hemlington Estate will be led by Erimus.
4.21 Implementation of Hemlington Grange will be phased with the early stages of the development required to pay for infrastructure improvements necessary to deliver both employment and housing elements of the scheme. Future elements of the scheme will be released to ensure that the aims and objectives as expressed in the Core Strategy are achieved.
| PROPOSAL REFERENCE | 2006 | 2007 | 2008 | 2009 | 2010 | 2011 | 2012 | 2013 | 2014 | 2015 | 2016 | 2017 | 2018 | 2019 |
| Hemlington Grange |  |
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| Regeneration of Hemlington (Erimus sites) |
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| Land adjacent to Hemlington Hall School | |
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Table 4.1 IMPLEMENTATION TIMEFRAME FOR GREATER HEMLINGTON
Feasibility studies, site assembly, demolition, planning approvals and other consents, as appropriate
Construction and completion