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CHAPTER 5 - SPATIAL STRATEGY AND CORE DEVELOPMENT PRINCIPLES

 

INTRODUCTION

5.1       To ensure that the spatial vision and aspirations of the Community Strategy are achieved it is important to direct development to those locations that will assist in the delivery of the Council’s, and its partner organisations, priorities. This involves prioritising certain locations and development opportunities through identifying a mixture of previously developed land and greenfield sites. It identifies how the locational strategy of the draft RSS and sub-regional strategic priorities, such as the SMI, will be taken forward in Middlesbrough

 

SPATIAL STRATEGY

5.2       The Council will work closely with its partner organisations to ensure the successful delivery of regeneration projects and ensure that they contribute to the delivery of the spatial vision and corporate priorities. Development proposals that would prejudice the delivery of the priorities identified in this Core Strategy will not be supported. It will be necessary for policies and proposals in other development plan documents to ensure that these initiatives are delivered in a co-ordinated and complementary way.

Greater Middlehaven

5.3            Greater Middlehaven is seen as a central plank in the delivery of the spatial vision and is a priority for the Council and a number of its partner organisations. The importance of this regeneration initiative is recognised in the Community Strategy, draft RSS, Regional Economic Strategy and Northern Way. It is essential that the scheme is delivered in a co-ordinated and integrated manner to ensure that its potential in regenerating the area and its contribution to economic prosperity and the development of the Tees Valley city region are maximised.

Greater Hemlington

5.4       The proposed housing at Hemlington Grange will complement the development proposals at Middlehaven and help to balance housing supply and building rates. Greater Middlehaven is aimed at city-style living, whilst Greater Hemlington will provide a choice for prospective purchasers who are currently seeking higher value housing in South Tees and North Yorkshire. It will be aimed at the mobile, economically active population that Middlesbrough has been losing in recent years. The housing will be used to facilitate employment development on upto a third of the Hemlington Grange site. This will provide much needed employment in this part of Middlesbrough helping to create a sustainable urban extension.

5.5            Hemlington Grange is located in close proximity to an area of Hemlington that suffers from significant problems of deprivation. The Council is proposing to take an holistic approach to the development of Hemlington Grange and the regeneration of the Hemlington Estate. This is in recognition of the wider regeneration benefits associated with the proposed development, including the opportunity to create an integrated sustainable development.

Older Housing

5.6       The intention for the next 15 years is to transform the older housing areas into attractive neighbourhoods where people can successfully live, work and access surrounding facilities. Fundamental to this is addressing the issue of low demand properties. By reducing the quantity of such property, it should ensure more buoyant demand for the remaining terraced dwellings. Additionally, regenerating the older housing area provides the potential to complement and capitalise on other town centre development initiatives. Attracting new people to live in the centre of the town and stabilising existing communities will boost the local economy and provide benefits to Middlesbrough as a whole.

Middlesbrough Town Centre

5.7       The draft RSS recognises Middlesbrough’s role as the largest retail centre in the Tees Valley and a major cultural and service employment centre serving the city region. As such, it is identified as being appropriate to develop new city-scale leisure, cultural, office and retail development in the town centre and at Middlehaven. In addition, policy 7 of the RSS identifies the Stockton-Middlesbrough axis as being the principal location within the city region for developing city-scale cultural, educational and commercial assets.

Green Blue Heart

5.8       A principal element of the SMI is the creation of the Green Blue Heart. This will involve the exploitation of the River Tees and the hinterland between the two urban centres of Stockton and Middlesbrough to create a radical 21st century landscape. Landscaping and water assets will be merged to provide opportunities for major environmental, leisure and sports assets, as well as providing a new and attractive setting for development.

Employment developments

5.9            Middlesbrough is essentially a town created from the industrial revolution, with employment historically based in heavy engineering, shipbuilding and the iron and steel industries. After decades of industrial restructuring, the town is forging a new, more diversified, economic role based on the key sectors of retail, public administration, education and health, and reinforcing the town centre’s role as the sub-regional centre for the Tees Valley. Despite its small geographical size, Middlesbrough is a key focus of the wider Tees Valley economy and employment market that is characterised by complex travel to work patterns. This is illustrated by the fact that there are few large employers within Middlesbrough such as those in the chemical and steel industries in neighbouring areas, yet there is still significant in migration into the town for work purposes.

5.10     The focus for accommodating new employment development will be within the north of the town – Riverside Industrial Estate, East Middlesbrough Business Action Zone (EMBAZ), Middlesbrough town centre and Greater Middlehaven. These areas have traditionally provided the economic powerhouse of Middlesbrough’s economy, and will continue to do so during the lifetime of the plan. These sites, plus that of Hemlington Grange, will provide accessible locations and the possibility of providing development opportunities that will help facilitate significant regeneration and inward investment, and meet the needs of a changing economy. Delivery of these proposals is also integral to the success of the SMI and meeting Middlesbrough’s draft RSS employment requirements.

Digital City

5.11     The Tees Valley, like many similar post-industrial areas, needs to develop new industries to replace those lost as a result of restructuring and global influences. There has been a clear recognition in the region that the University of Teesside’s expertise in digital technology; digital media and their applications can make a significant contribution to local and regional regeneration. A strong focus on computing and digital technology programmes and a growing research portfolio, coupled with a track record in new business generation and an excellent relationship with the relevant sectors, make the University ideally placed to supply both the skills and the business development opportunities needed to stimulate high-level growth.

5.12     Digital City is an ambitious economic development initiative for the Tees Valley, whose success is based upon keeping, attracting and developing high-value skills, creativity and R&D in digital technologies. This in turn forms the basis for the creation of new businesses, jobs and ultimately a new signature industry for the sub-region. Led by the University of Teesside, its key stakeholders include Middlesbrough Council, Middlesbrough Town Centre Company, the Tees Valley Partnership, One NorthEast, Tees Valley Regeneration and GO-NE, with support from the private sector and other public sector partners. Outline planning permission has been granted for the first and second phases of Middlehaven. No provision has been made within the first phase for affordable units. Phase two, however, includes provision for 10% of the units built to be affordable. This proportion of affordable provision will be carried through to all future phases of Middlehaven. It should be seen as a minimum contribution.

 

POLICY CS1  SPATIAL STRATEGY

The draft RSS identifies the levels of development for Middlesbrough between 2004 and 2021. The Core Strategy looks forward over the period to 2023 and makes provision for the following levels of development:

 

General employment land 85 ha
Regional brownfield mixed use land 100 ha
Dwelling provision
2004 – 11 3,080 dwellings net (440 dwellings p.a.)
2011 – 16 2,325 dwellings net (465 dwellings p.a.)
2016 – 23 1,960 dwellings net (280 dwellings p.a.)

 

This development will be delivered through the spatial strategy for Middlesbrough, as shown on the key diagram, and identified below:

 

a

the regeneration of:

 

The regeneration of the Greater Middlehaven area will create a flagship mixed use development appropriate to its status as a strategic priority at the heart of the Tees Valley city region. Proposals will be required to reinforce Middlesbrough town centre’s role at the centre of the Tees Valley city region.

 

The development of Hemlington Grange and the regeneration of Greater Hemlington to create a modern, vibrant, sustainable community, that will assist in reducing outward migration and provide much needed employment development in the south of the town. Development will also complement and support the regeneration of Greater Middlehaven and investment in the Housing Market Renewal areas.

 

  • Inner Middlesbrough, Housing Market Renewal and Erimus Investment Sites

In these areas of housing market failure the Council will work closely with partners, including the local community, to identify ways in which the neighbourhoods can be strengthened and returned to prosperity.

 

b

reinforcing and strengthening the role of an expanded Middlesbrough town centre:

  1. as the principal retail centre of the Tees Valley city region; and
  2. in combination with Stockton town centre as the principal centre within the Tees Valley city region for cultural, leisure, and civic administration activities.

c

the creation of a Green Blue Heart to exploit the River Tees and hinterland between Middlesbrough and Stockton town centres and provide a focus for the formation of a new service sector environment and waterfront of regional, national, and international standing. Regeneration activity should not damage the biodiversity that is dependent upon the River Tees.

 

d

focusing significant new employment development in North Middlesbrough – Riverside Park, Middlesbrough town centre, Middlehaven, and the East Middlesbrough Business Action Zone (EMBAZ), whilst ensuring that the employment needs of local communities are met.

 

e

implementation of the Digital City proposals  to build on the emerging digital media cluster and growing success of the University of Teesside.

 

Proposals outside of these locations, including windfall developments, will need to be sited within the urban area where they are accessible to the community they serve and satisfy the requirements for sustainable development as contained in policy CS4. Such proposals should also demonstrate how they would contribute to achieving the spatial vision and objectives identified in this plan.

 

All development will be required to ensure that it contributes to, and fully integrates with, a sustainable transport network.

 

This policy has been superseded by the Housing Local Plan

 

GREATER MIDDLEHAVEN

5.13Greater Middlehaven will be developed as a major mixed use regeneration scheme including housing, office, retail, leisure and educational uses. It has the potential to accommodate up to 3,000 dwellings. In order to ensure that the spatial vision is achieved, and draft RSS requirements met, it will be necessary to ensure that the development at Middlehaven is phased. To assist in identifying an appropriate phasing mechanism a Middlehaven Housing Demand and Impact study has been prepared. Development will be phased to ensure that there is not an oversupply of housing, and that infrastructure is provided in a timely and co-ordinated manner. For the purposes of phasing, Greater Middlehaven will be divided into areas to be identified within the Regeneration DPD. Some flexibility will be allowed in the precise mix and phasing of uses to enable development to respond to changes in market requirements and to secure the most appropriate level and quality of development.

POLICY CS2 GREATER MIDDLEHAVEN

Greater Middlehaven will be developed as a sustainable mixed use scheme. Up to 2,780 dwellings will be accommodated in the period 2004 to 2023. This development will be phased in accordance with the following requirements subject to the total housing allocation for Middlehaven not being exceeded.

 

  2004 – 2011 2011 – 2016 2016 – 2023
General market housing 0 – 150 385 – 520 385 – 520
Mid-upper price range apartments 150 – 300 250 – 495 250 – 495
Mid-lower price range apartments 150 – 300 250 – 495 250 – 495
Total allocation per phasing period 500 1,015 1,265

 

Where planning permission has not already been secured future phases of development at Middlehaven will be required to include provision for a minimum of 10% of the number of units provided as affordable housing.

 

This policy has been superseded by the Housing Local Plan

5.14In total, up to 2,780 dwellings will be provided within the redevelopment of Greater Middlehaven between 2004 and 2023. The broad phasing of this development will be in accordance with the provisions of policy CS2 given below, and the requirements of the RSS. To enable the market to operate flexibly, and to respond to changing demands, a range of figures for each house type and period is given. In total these exceed the allocation for the development. Development, however, will not be allowed to exceed the total allocation. Where it appears that the quantity of housing to be delivered in each period will differ significantly from that proposed, this would act as a trigger to review the housing allocations. Further details will be contained within the Regeneration DPD.

5.15            Greater Middlehaven will be brought forward in smaller development areas, which will themselves be developed out in phases to enable infrastructure to be provided in a logical and timely manner. Details of these development areas will be set out in the Regeneration DPD.

 

GREATER HEMLINGTON

5.16     This policy sets out the development requirements for the regeneration of Greater Hemlington along with their broad phasing requirements. Some flexibility will be allowed in the precise mix and phasing of uses to enable development to respond to changes in market requirements and to secure the most appropriate level and quality of development. If a need is proven for a health facility/hospital and/or primary school, provision will need to be made for these within the development of Hemlington Grange. Phasing of the provision of these facilities and those required for the provision of utilities/services infrastructure such as water, sewerage and electricity will be informed by the requirements of the service providers. Further detail on the implementation and distribution of the uses identified will be identified in the Regeneration DPD and a Greater Hemlington SPD. When considering development proposals, and the potential for impact upon the highway network, it will be necessary to comply with the provisions of policy CS18 (Demand Management), of this Core Strategy.

POLICY CS3 GREATER HEMLINGTON

Greater Hemlington will be developed to create a sustainable community of a high quality design. Up to 810 dwellings and 50,000 sq.m of employment floorspace will be accommodated in the period 2004 to 2023. The Council will work closely with partner organisations to ensure that this development creates a modern, vibrant and sustainable community. Development will broadly be phased as follows:

 

  2004 – 2011 2011 – 2016 2016 – 2023
Residential (dwellings) 190 375 215
Employment (ha) 1.5 7.5 6

 

A minimum of 10% of all residential units provided will be affordable. The mechanism for providing this affordable element will be detailed in an appropriate SPD.

 

This policy has been superseded by the Housing Local Plan

 

POLICY CS4 SUSTAINABLE DEVELOPMENT

All development will be required to contribute to achieving sustainable development principles by, where appropriate:

 

  1. contributing to achieving sustainable economic development to support efficient, competitive and innovative business, commercial and industrial sectors;
  2. the creation of inclusive communities reducing deprivation and the disparities between the poorer and wealthier sections of the town;
  3. respecting the diverse needs of communities;
  4. ensuring everyone has access to the health, education, jobs, shops, leisure and other community and cultural facilities that they need in their daily lives;
  5. contributing to raising the hope, aspirations and achievement of young people and adults;
  6. promotion of a healthier and safer community for all;
  7. being located so that services and facilities are accessible on foot, bicycle, or by public transport. Reliance on the private car must be reduced or minimised and the use of sustainable forms of transport encouraged;
  8. making the most efficient use of land, with priority being given to development on previously developed land, in particular vacant and derelict sites and buildings, ensuring that there is a sufficient supply of land of a suitable quality in the right locations to meet the development needs of the people of Middlesbrough;
  9. locating developments that attract large numbers of people in those locations which are accessible by sustainable forms of transport and will contribute most to achieving social inclusion;
  10. ensuring that biodiversity assets, geodiversity assets, wildlife species, natural habitats, water resources, landscape character, green infrastucture, air quality and water quality; within and outside Middlesbrough are protected. Where possible such assets should be enhanced;
  11. protecting and enhancing Middlesbrough’s historic heritage and townscape character;
  12. delivering development of a high quality design that contributes to improvements in the quality of the townscape;
  13. ensuring that inappropriate development is not carried out in the floodplain and that sustainable methods of surface drainage are used. This should include the incorporation of Sustainable Drainage Systems in new developments to mitigate against localised flooding, promote water conservation and help protect water quality;
  14. minimising the generation of waste and maximising the use of recycled materials;
  15. contributing to reducing the causes and impacts of climate change; and
  16. incorporating within developments of 10 dwellings, or a floorspace of 1,000 sq.m, or more onsite renewable energy facilities or energy saving technologies (for example combined heat and power systems, photovoltaic cells and wind turbines) that provide as a minimum 10% of energy requirements. There should be no demonstrable harm to biodiversity interests or on visual or residential amenities or by way of pollution generation. Where such harm is likely it will be necessary to demonstrate that this is outweighed by the benefits contributing to diverse and sustainable energy supplies and reducing carbon emissions; provision should be made to mitigate or compensate for any such harm.

Where necessary development will be phased to ensure the delivery of sustainable communities and adherence to the principles of sustainable development.

 

SUSTAINABLE DEVELOPMENT

5.17            Sustainable development is the core principle underpinning the town planning system. Planning authorities are required to ensure that sustainable development is treated in an integrated way within the development plan. In particular, it is necessary to consider the inter-relationship between social inclusion, protecting and enhancing the environment, the prudent use of natural resources, and economic development. Through the implementation of this policy it should be possible to deliver many of the aspirations of the Community Strategy.

DESIGN

5.18     Good urban design is about understanding what aspects of a built environment work well, and at the same time are enjoyed by users. This knowledge is then used to inform new development so it can make a successful and popular contribution to its environment. In Middlesbrough this will mean more consideration of the effect a new building has on its locality and community, by ensuring it relates to its location and enhances the character, activity and vitality of its neighbourhood.

5.19     More focus on the quality of the built environment would also include improving certain places either to complement their best characteristics, or regenerate their worst or most unsuccessful features. This could mean anything from encouraging uptake of shop front and building improvement grants, to street renewal and tree planting like that seen in the town centre, and in the new civic square under construction near the Town Hall. Physical improvements to an area have been shown to attract investment and kick start regeneration.

5.20     The Council will implement this policy through its wider activities including development control, implementation, regeneration and procurement functions, and will work with its partners and developers to ensure that the principles of good design are engendered within all developments.

POLICY CS5 DESIGN

All development proposals will be required to demonstrate a high quality of design in terms of layout, form and contribution to the character and appearance of the area.  Proposals will be required to contribute to achieving the following:

 

  1. enhancement of the best characteristics of Middlesbrough’s built environment to create a positive identity for the town and improve the quality of life of its population;
  2. promotion of development and investment in those areas of the town that will benefit most from such action;
  3. securing a high standard of design for all development, ensuring that it is well integrated with the immediate and wider context, including where appropriate the incorporation of public art;
  4. removal of barriers to access and movement within the town, and enjoyment of the built environment by Middlesbrough’s population and visitors to the town;
  5. creation of a safe and attractive environment, at all times of the day and night, where crime and disorder, or fear of crime, does not undermine quality of life or community cohesion by incorporating the aims and objectives of both ‘Secured by Design’ and ‘Designing Out Crime’ concepts into development layouts;
  6. ensuring a quality of new development that enhances both the built and natural environments;
  7. the creation of high quality open spaces that contribute to successful, popular and viable sustainable communities;
  8. the preservation or enhancement of the character or appearance of conservation areas and other areas of special interest and character;
  9. safeguarding buildings identified as being of special historic or architectural interest, and ensuring that any adaptation or reuse is undertaken sympathetically and protects, or, where possible, enhances, the special characteristics of the building; and
  10. incorporation of features in terms of layout, design and specification to achieve high levels of energy and environmental efficiency. All new residential developments should be completed to a Buildings Research Establishment (BRE) EcoHomes rating of very good or excellent, and all new non-residential developments should be completed to a Buildings Research Establishment Environmental Assessment Method (BREEAM) rating of very good or excellent. Development should also meet the Energy Efficiency Best Practice Standard and conform to the Code for Sustainable Homes.

Where Design and Access Statements are required they must contain a level of detail appropriate to the scale and nature of the development and the sensitivity of its location.  The Council will appoint Design Champions to assist in achieving high quality design. An Urban Design Framework SPD will be prepared to provide further guidance on design issues and the implementation of this policy.

 

POLICY CS6 DEVELOPER CONTRIBUTIONS

Where necessary, to make a scheme acceptable in planning terms, and where directly related to the proposed development, the Council will negotiate contributions towards the cost of providing infrastructure and of meeting social and environmental requirements. The nature and scale of the contribution sought will be determined having regard to the:

 

  1. scale and form of development;
  2. capacity of existing infrastructure provision; and
  3. potential impact of the development upon the surrounding area and facilities.

The appropriate range and level of contributions will be assessed in a comprehensive manner, taking into account the above criteria, strategic infrastructure requirements and, where appropriate, the use of standard charges and formula.

 

DEVELOPER CONTRIBUTIONS

5.21            Development can place additional demands upon physical infrastructure and social facilities. In some instances it will be necessary to seek developer contributions so that new facilities can be provided, or existing ones improved.

5.22     In order to allow developers to predict as accurately as possible the likely contributions they will be asked to make through planning obligations, and therefore anticipate the financial implications for development projects, local authorities should include general policies about the use and principles within their LDF. Matters to be covered by policies include the factors to be taken into account when considering the scale and form of contributions or level of affordable housing provision. These generic policies should cross-refer to the relevant topic-specific DPD policies that will be used in determining the planning obligations to be sought by local planning authorities. It is difficult to identify specific priorities for developer contributions at this stage for a district as diverse as Middlesbrough, which will have different priorities in different locations over time. The identification of priorities within the policy will reduce the flexibility of the Core Strategy to respond to these changing demands and priorities. The sort of matters for which contributions will be sought include:

This list is not exhaustive and may be added to. Government proposals for Planning Gain Supplement may also affect the matters for which contributions will, or can, be sought.

5.23     This policy approach highlights the general principle that contributions will be required where necessary in planning terms, and indicates the broad range of matters that may need to be addressed. The impact of any contributions on the viability of a scheme will be a material consideration in the planning process. The detailed framework for calculating and negotiating obligations will be set out in separate SPDs.

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