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CHAPTER 7 - REVITALISING THE HOUSING MARKET

 

INTRODUCTION

7.1       This section deals with the site-specific policies for delivery of a revitalised housing market. This section should also be read in conjunction with more detailed site specific policies contained within other sections of this DPD including the town centre, Greater Middlehaven and Greater Hemlington.

 

STRATEGIC CONTEXT

LDF Core Strategy

7.2       The policies in this section detail how those of the Core Strategy dealing with site-specific housing issues will be taken forward. Relevant Core Strategy policies include:

• CS1 – Spatial Strategy;
• CS2 – Greater Middlehaven;
• CS3 – Greater Hemlington;
• CS9 – Housing Strategy;
• CS10 – replacement dwellings; and
• CS11 – affordable housing.

Regional Spatial Strategy (RSS)

7.3       Policy 30 of the RSS identifies a net housing requirement for Middlesbrough of 6,970 dwellings between 2004 and 2021. This is broken down into three periods: 2004-11, 2011-16, and 2016-21. The requirement for each period is 440, 485 and 300 dwellings per annum. Seventy percent of this requirement should be provided on previously developed land for the period to 2008, increasing to seventy five percent by 2016.

7.4       Policy 28 recognises that strategies, plans and programmes should develop an integrated package of measure to address low demand and abandonment.

7.5       Policy 30 advises that LDFs should set local authority affordable housing provision targets informed by an up-to-date local housing assessment.

Middlesbrough Community Strategy

7.6       The overall housing aim of the Community Strategy is to achieve housing market renewal to provide a supply of housing that will be lived in. This is translated into four priorities as follows:

• rejuvenation and renewal of the housing stock;
• ensuring that the type, mix and range of new housing developments provides 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
• address specific community and social needs.

These priorities will need to be reflected in appropriate site-specific policies.

7.7       A number of specific actions have also been identified to take forward these priorities. Actions relevant to this DPD include:

• develop area based housing masterplans in Grove Hill, Hemlington and the central older housing area;
• take forward masterplanning exercises for new housing at Central Whinney Banks, Greater Middlehaven, North Ormesby and Hemlington; and
• provide for a range of housing sites through the LDF by 2008 prioritising high quality, low-density housing on brownfield sites.

Other relevant strategies

Regional Housing Strategy

7.8       The strategy highlights the regeneration priority areas, which are defined within the draft Regional Spatial Strategy, emphasising the fact that development and redevelopment should be concentrated within the conurbations. Middlesbrough is highlighted as a major area for housing renewal where a combination of improvements to existing stock and a rise in the levels of demolition will be key.

7.9       The strategy identifies the trend of out-migration from Middlesbrough to other sub-regional authorities and to Yorkshire and Humber as an issue. One of the key reasons for this trend is the quality and amenity of the existing stock. In terms of providing housing choice, the strategy recognises that there is currently a shortage of housing which meets the aspirations of households who want to move to better quality homes and neighbourhoods, or of those considering whether to move into the region. The strategy however does cite Coulby Newham as an example of where the provision of the right type of housing has reduced the urban to rural migration drift. To realise economic growth aspirations the strategy recognises that across the north east there is a demand for executive or prestige housing. Other sites will need to be identified in Middlesbrough for this type of housing as Coulby Newham is nearing completion. Unless this type of housing environment is provided, Middlesbrough will continue to lose population to neighbouring local authorities.

Regional Housing Aspirations Study

7.10     The study identified that high build rates have influenced migration patterns. Both of these factors are evident within the Tees Valley. Higher new build in Stockton has resulted in out-migration from Middlesbrough to Stockton. Middlesbrough also has a higher proportion of people in lower socio-economic groups compared to neighbouring authorities, and a high proportion of terraced stock. In simple terms, high levels of build in Stockton have contributed to population growth and a more balanced socio-economic profile. The reverse is true in Middlesbrough.

7.11             Compared to aspirations, Tees Valley has an undersupply of detached properties, flats and apartments, with an oversupply of other property types. Middlesbrough has the lowest proportion of detached housing of all the authorities.

Tees Valley Sub-Regional Housing Strategy (draft)

7.12     The strategy sets out an overview of the housing market within Tees Valley, clearly referencing the higher incidence of housing market weakness in Middlesbrough compared to the other local authorities. It also makes reference to the predicted reduction in population up to 2023 and continued out-migration from Middlesbrough. The strategy acknowledges that there are a number of initiatives underway (Middlehaven) which will start to address these, including the priority areas identified for funding by Tees Valley Living of North Middlesbrough (West Lane, Whinney Banks, St Hildas, Gresham/Middlehaven, Trinity Centre and North Ormesby) and secondary areas of Grove Hill. Hemlington is also highlighted as an area that will require intervention to address housing market weaknesses.

Tees Valley Living Housing Market Assessment

7.13     The document acknowledges that there is a high level of committed new house building across the Tees Valley for the immediate future, but highlights several issues that need to be considered, including the need to achieve a high quality of housing to help address the negative image and perceptions of the main urban areas. The DPD suggests that the strongest demand within the sub-region will be for housing of a suburban nature, in safe areas with a nice environment, although the development of attractive housing within urban areas should be successful, given the right environment, as many people in Tees Valley are averse to moving long distances.

 

SUSTAINABILITY APPRAISAL

7.14     The sustainability appraisal recognised that the policies of this section are likely to have a major beneficial effect in terms of meeting housing needs and the provision of better quality homes. In addition, the policies are likely to contribute towards stemming out-migration as more attractive homes of varying types, sizes and tenures will be provided.

7.15      In developing site-specific policies it is important that the proposals of this DPD carry through these beneficial impacts.

7.16     The published RSS sets out a requirement of 7,825 net additional dwellings for Middlesbrough in the period 2004 to 2023. Table 7.1 sets out the sources of supply that will deliver this housing requirement.

 

 

HOUSING ALLOCATIONS

7.17     The housing allocations in policy REG18 consist of two main types: strategic housing locations and non-strategic locations. The strategic locations are phased in accordance with the Core Strategy policy CS9 (housing strategy). The non-strategic sites have been phased to give priority to the redevelopment of previously developed land and to ensure that Middlesbrough achieves the RSS target for the re-use of brownfield land of 70% for the Tees Valley city region. These sites have been identified as those that contribute to the delivery of the LDF’s spatial and housing strategies.

7.18     Taking account of completions, commitments and housing allocations, projected previously developed land recycling levels are forecast to be 83% between 2004-11, 88% between 2011-16 and 84% between 2016-21.

	2004-11	2011-16	2016-21	2021-23	2024-23
Net additional dwelling requirement in Regional Spatial strategy	3,080	2,425	1,500	820	7,825
Gross completions	1,600				1,600
Commitments	1,450	860	40		2,350
Housing allocations	1,705	2,865	1,780	450	6,800
Less replacement dwellings	-1,330	-805	-400		2,535
Projected net additional dwelling completions	3,425	2,920	1,420	450	8,215

Table 7.1  Net Additional Dwelling Requirement 2004-23  (Figures rounded)

 

AFFORDABLE HOUSING

7.19     The approach to affordable housing adopted in this DPD is based upon the findings of the Local Housing Assessment (LHA) completed in 2006 (amended in 2007) and the Housing Regeneration Strategy (HRS) completed in the same year. The LHA findings identified a requirement for 515 affordable housing units per annum. This is clearly above the RSS housing target of 410 dpa for the district (across the plan period) and as such undeliverable. The recommendations of the study recognised that it would be unviable to seek a 100% contribution to affordable housing on development sites and identified a suitable level of affordable housing as being between 17% and 25%. In reaching the targets included in this DPD the Council also had regard to the HRS which examined viability and sustainability issues. This identified a range of affordable housing targets for different areas of the town. Using the evidence available the Council has set a target of 10% of new housing should be affordable in those areas where there is already a significant level of social housing provision i.e. East Middlesbrough, Hemlington. This will have the effect of new developments maximising their contribution to the diversification of the housing stock, one of the key elements of the housing strategy contained in policy CS9 of the Core Strategy. In other locations the figure has been set at 15% in order to ensure a higher level of affordable provision without compromising the viability of schemes. The figures for Greater Hemlington and Greater Middlehaven reflect those contained in the CSDPD.

7.20     Where a different figure is included in policy REG18 this is either because negotiations are well advanced on disposal of the site/bringing it forward for development and the figure reflects that negotiated for affordable housing, or it is considered that asking for an element of affordable housing would make the scheme unviable (e.g. Church House which is the refurbishment of a 1970s redundant office block in the town centre).

7.21     In arriving at any figure for affordable housing provision it has also been necessary to consider how it fits with the overall spatial strategy contained in the Core Strategy which is to arrest the decline of population and to provide housing that meets the needs of the economically active.

7.22     A joint Tees Valley Strategic Housing Market Assessment has been commissioned, as advocated in PPS3. Early indications from this work are that the gross affordable housing requirement will be lower than that identified in the LHA but still higher than the RSS annual housing target. Net affordable housing requirements whilst lower still represent a significant proportion of the RSS annual housing target, and on the basis of information available still likely to make housing schemes unviable. Further work is required on the SHMA to refine its findings and to identify recommendations. Owing to conflicting timescales it has not been possible to include reference to this document in this DPD.

7.23     No details have been provided on potential tenure mix for the schemes identified within this DPD. The mix of any particular scheme will be negotiated with developers having regard to an up to date SHMA and particular site/scheme circumstances.

7.24     The site threshold adopted by the Council in seeking affordable housing on unallocated schemes is proposals for 15 units or more. This reflects national policy as set out in PPS3. As this is set out in national policy it has not been felt necessary to reflect this in the DPD.

Gypsy and travelling show people

7.25     There is one gypsy/travellers site in Middlesbrough, at Metz Bridge, and one travelling showpeople site at North Ormesby. The site at Metz Bridge has 15 pitches and is managed by the local authority. It is the Council’s intention to continue to maintain facilities at this site and to monitor its continued suitability for this purpose. The travelling showpeople site is privately owned and makes provision for 10 pitches.

7.26     These two sites have been safeguarded within this DPD, and will only be allowed to be developed for alternative uses if a suitable alternative site can be provided or there is no longer a requirement for a particular site. A Tees Valley Gypsy and Traveller Accommodation Needs Assessment is currently in preparation and will inform future requirements.

Middlesbrough Council Regeneration Development Plan Document (DPD) - Adopted February 2009