Newington St. Andrew’s Area Action Plan October 2008

Visionary EvidenceArea Action Base Plan Report: Be part of it ThePublication Case for Draft Change October 2008

Contents

1 Introduction 1

2 Existing Policies and Proposals 3

3 Housing Market 21

4 Place and Residential Offer 31

5 People, Skills and Communities 57

6 Liveability and Services 80

7 Bringing It All Together 93

8 Local Economy and Business 107

9 Flood Risk 125

10 Green Space Audit 132

11 The Case for Change 135

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iii 1 Introduction

1.1 Background to the Report

1.1.1 This report was prepared initially in the early stages of Newington & St. Andrew’s Area Action Plan (in the Summer 2007) and progressively updated and refined throughout the development of proposals as new information in the form of studies/research undertaken or new higher tier policy and guidance emerged. This evidence base report constitutes one of the background documents of the Newington & St. Andrew’s Area Action Plan. Other background documents include notably a Report on Community Involvement and a Sustainability Appraisal. This report is a core document of a series of research and studies specifically undertaken to inform the Area Action Plan, covering issues including: Transport (produced by Alan Baxter & Associates), Environment (Wardell Armstrong), and Sustainability (Arup).

1.2 Overview of the Study Area

1.2.1 The Study Area covers a sizeable section of inner urban Hull, broadly between Hessle Road in the south and the loop railway line in the north and west, and as far east as Rawling Way and the Hull Royal Infirmary.

1.2.2 Two main roads - Hessle Road and Anlaby Road - run east- west across the area and provide most of its local services; the main passenger railway line also cuts across the area on a southwest/northeast alignment, requiring 3 level crossings on the north-south streets it intersects, and a flyover at Anlaby Road.

1.2.3 Newington & St. Andrew’s form one of the two major components of the Gateway (Hull & East Riding) Housing Market Renewal Pathfinder, the other being the Holderness Road corridor in east Hull. Its inclusion stems from a complex mix of factors including poor housing stock conditions, cramped and outmoded house types, weak local economic performance, and low popularity and prices in the marketplace. These factors are compounded by a general pattern of low overall demand, which is a well-established feature of the city and sub-regional setting.

1.2.4 But the area has considerable positive attributes and assets, too, and it is the task of the planning and regeneration operation to capitalise on them and bring them into play.

1.3 The Area Action Plan: masterplanning for Newington & St. Andrew’s

1.3.1 The Newington and St Andrew's Area Action Plan is being prepared as a part of the Hull Development Framework. After publication of the document for formal consultation, it will be submitted to the Secretary of State who will appoint an independent Inspector to scrutinise the AAP and other documents such as this evidence base to ensure that the policies and proposals in this plan are sound and deliverable. After examination, if the document is considered to be sound, it will become adopted as a planning document.

1.3.2 The AAP’s purpose is to provide a detailed policy framework and masterplan for this area where transformational change is anticipated, to ensure that the right development occur at the right place and time. The plan is produced in partnership

Evidence Base Report 1 between Hull City Council, Gateway and Keepmoat, Gateway's appointed lead-developer for this area, the local community, and a wide range of other stakeholders. This report is part of the documents being published on 27th October 2008 for a formal 6-week public consultation.'

1.4 The sub-areas and neighbourhoods

1.4.1 The AAP sets out proposals for eight neighbourhood areas within Newington and St. Andrew’s. These are the localities which have been the basis for the discussion with local people in the process of developing the AAP, and they reflect their perception of the area and the way in which the AAP team have found it useful to engage with local people. The analysis in the sections below varies that sub-division: it reflects, for example, the housing market analysts’ sub-division of the market areas, and also the urban designers’ assessment of “character areas” – neither of which match exactly with the neighbourhoods used for discussion with stakeholders or explanation of policy. Figure 1-1 Map and context of the study area

Evidence Base Report 2 2 Existing Policies and Proposals

2.1 Introduction

2.1.1 This section provides an overview of the national, regional, sub-regional and local planning policies, and the specific programmes, that influence the production of an Area Action Plan (AAP) for the Newington & St Andrew’s area of West Hull.

Planning Policy Context

2.1.2 This section works down the policy hierarchy from national planning policy; through regional (Yorkshire & Humber) planning housing and economic strategies; via sub-regional (Hull & East Riding) level, to City-wide policies, plans and strategies; and finally local plans, assessments and programmes which affect the Newington & St. Andrew’s area.

2.2 National Policy

Regeneration

2.2.1 Government policy at a national level has placed an emphasis on creating sustainable, inclusive and mixed communities in urban and rural areas. Policy in relation to housing has been developed and continues to emerge to address a wide range of issues. Since 2002, policy has placed a particular emphasis on the problems of low-demand housing and the resultant community and social stresses. The most high profile initiative to date has been the Housing Market Renewal Pathfinder initiative, introduced as part of the Deputy Prime Minister’s Sustainable Communities Plan. The initiative concentrates on nine areas in England where there are particular problems relating to low demand. Hull Gateway is one of these Pathfinder Areas designated with the key aim of transforming the housing market to make the area more attractive to a wide range of households.

2.2.2 The following context of emerging housing objectives and planning policies are considered to be key documents that the AAP for Newington & St. Andrew’s must take into account both for housing market renewal and the development of wider AAP Policies to address other issues which are relevant to this area:

Planning White Paper

2.2.3 The Planning White Paper was produced by Government in May 2007. It sets out proposals for reform of the planning system. It builds on Kate Barker's recommendations for improving the speed, responsiveness and efficiency in land use planning, and taking forward her and Rod Eddington's proposals for reform of major infrastructure planning.

2.2.4 For Local Development Frameworks, proposed changes include a more streamlined and flexible process on the number and type of plans and the level of engagement with local communities.

Planning Bill

2.2.5 Following consultation on the Planning White Paper, the Planning Bill was published in November 2007. Alongside this, consultation took place on draft amendment to the Local Development Framework Regulations and a draft replacement for Planning Policy Statement 12 ‘Local Development

Evidence Base Report 3 Frameworks’. In the meantime the Amendments to the 2004 Local Development Framework Regulations have come into force, whilst PPS12 has been published.

Housing & Regeneration Act

2.2.6 The Housing and Regeneration Bill gained royal assent and became an Act of Parliament in July 2008. Its key measures implement the proposals of the Housing Green Paper and are:

• Establishing the Homes and Communities Agency (HCA) to deliver new housing, community facilities and infrastructure; and • Establishing a new watchdog for social tenants (Oftenant) and to reduce the burden on Housing Associations in service delivery and of new housing; • Changing the rules on financing new council housing so that local authorities have more say in the provision and management of social housing . • Making the Code for Sustainable Homes mandatory for all new homes, with the requirement of a sustainability certificate alongside the sale of every new home.

Housing Growth Areas/Points

2.2.7 Growth Areas and New Growth Points form part of the Government's strategy for increasing levels of housing supply to 240,000 homes a year by 2016. The second wave has seen twenty local authorities, mostly in the north, submit growth bids; none are in the Hull and Humber city region.

National Housing Planning and Advice Unit

2.2.8 The National Planning Housing and Advice Unit (NHPAU) was set up in 2007 in response to one of the key recommendations in Kate Barker’s Review of Housing Supply. It provides advice to central Government and regional bodies on housing matters, and in particular the consequences of house building plans on affordability. In June 2008, the NHPAU published its recommended regional supply ranges for housing. For the Yorkshire & Humber Region the range of annual additional housing is between 23,800 and 26,400 dwellings annually up to 2026. This compares to the rate of 22,260 set out in the in the adopted Regional Spatial Strategy.

Implications for housing provision

2.2.9 The Housing and Regeneration Act 2008 and the Growth Agenda put an emphasis on the delivery of a larger number of homes which are affordable and at standards which will reduce carbon emissions. This has translated into a possible increase in housing provision in the Yorkshire and Humber region above the rate set in the adopted RSS. Any strategy for increased delivery will need to be informed by priorities for delivering housing where it is needed most, not only to respond to growing housing demand but also to restructure areas suffering from low demand and to stimulate regeneration. Clearly if growth is to be secured to the benefit of Newington & St. Andrew’s, priority needs to be given to the delivery of housing in this area. Otherwise there is a risk that promoting growth elsewhere could undermine emerging objectives.

Evidence Base Report 4

Sub-National Review

2.2.10 In July 2007, the Government launched a review of sub-national economic development and regeneration. Regional Development Agencies will be given a strategic role to develop Single Regional Strategies which will integrate Regional Economic Strategies and Regional Spatial Strategies. Consultation on proposals to take forward the Sub-National Review was carried out in mid 2008.

Planning Policy Statement 1 (PPS1)

2.2.11 PPS1 sets out the Government’s commitment to sustainable development, including the following principles:

• Ensuring high quality development through good and inclusive design, which should seek to address the connections between people and places, be integrated into the existing urban form and the natural and built environments, create an environment where everyone can access and benefit from the full range of opportunities available to members of society, and consider the direct and indirect impacts on the natural environment; and • Ensuring that development supports existing communities and contributes to the creation of safe, sustainable, liveable and mixed communities with good access to jobs and key services for all members of the community.

Planning Policy Statement 3 (PPS3)

2.2.12 Planning Policy Statement 3 (PPS3): Housing seeks to:

• Achieve a wide choice of high quality homes to address requirements of the community; • Widen opportunity for home ownership and ensure high quality housing for those who cannot afford market housing; • Improve affordability, including increasing the supply of housing (providing sufficient quantity taking into account need and demand and seeking to improve local choice); and • Create sustainable, inclusive, mixed communities in all areas.

2.2.13 PPS3 retains and strengthens the commitment to the creation of well-designed, mixed and sustainable communities. Paragraph 36 reinforces this position and states: ‘… the Government’s policy is to ensure that housing is developed in suitable locations which offer a range of community facilities and with good access to jobs, key services and infrastructure.’ To respond to PPS3, proposals for Newington & St. Andrew’s must look to stabilise and support the existing resident population, and beyond that to ensure that Newington & St. Andrew’s can attract residents as a location of choice for those who have previously not considered this area of the city as somewhere they would like to live.

Evidence Base Report 5 Planning Policy Statement 12 (PPS12)

2.2.14 PPS12 (Creating Strong, Safe and Prosperous Communities through Local Spatial Planning) was published in June 2008 and replaced PPS12: Local Development Frameworks (LDFs). PPS12 now concentrates on setting out the context for LDFs, what they need to achieve and how they should be prepared. It focuses primarily on the production of core strategies as the key element of the LDF, but also provides some advice on the production of other Development Plan Documents such as Area Action Plans.

2.2.15 Area Action Plans should be used where there is a need to provide the planning framework for areas where significant change or conservation is needed. They can assist in producing a consensus as to the right strategy for an area and how it might be implemented. They can assist in providing the basis for taking compulsory purchase action where necessary or act as a focus and catalyst for getting several key agencies and landowners to work together. In areas of change, AAPs are required to identify the distribution of uses and their interrelationships, including site-specific allocations, and set out as far as practicable the timetable for the implementation of the proposals.

2.2.16 The document also sets out criteria to be followed when deciding whether the production of DPDs other than a Core Strategy (such as an AAP) is necessary. It also refers to the principles that should be followed in producing a DPD, relating to: • Participation with stakeholders; • Not repeating national and regional policy; • Sustainability appraisal; • Justification and effectiveness; and • Timely progress

2.2.17 It also requests that DPDs must:

• Be prepared in accordance with the Local Development Scheme and in compliance with the Statement of Community Involvement and the Town and Country Planning (Local Development) (England) Regulations 2004, as amended in 2008; • Be subject to sustainability appraisal; • Have regard to national policy; • Conform generally to the Regional Spatial Strategy; and • Have regard to any Sustainable Community Strategy for its area (i.e. county and district)

2.3 Regional Policy

Regional Spatial Strategy for Yorkshire & the Humber to 2026

2.3.1 The RSS sets out the Regional Spatial Strategy for Yorkshire & the Humber. The current adopted RSS was adopted in May 2008 and replaces the former RSS for Yorkshire and the Humber to 2016.

Evidence Base Report 6 2.3.2 Policy YH1 sets out the ‘Overall Approach and Key Spatial Priorities’. It emphasises a need to transform economic, environmental and social conditions in the Regeneration Priority Areas. Under Policy YH4, Hull is classified as a Regional City where, with Sub-Regional Cities and Towns should be the prime focus for housing, employment, shopping, leisure, education, health and cultural activities and facilities in the region. It also states that Regional Cities, Sub-Regional Cities and Towns will be transformed into attractive, cohesive and safe places where people want to live and work, invest and spend time in. As a result plans, strategies, investment decisions and programmes are required to achieve:

• a wider and more modern range of housing; • develop a strong sense of place with high quality public realm and well designed buildings within a clear framework of routes and spaces; and • create a new and improve existing networks, corridors and areas of green space. 2.3.3 The plan also identifies distinct sub areas, based mainly on their character, rather than administrative or settlement based areas, placing Hull in the Humber Estuary sub-region. The strategy for the Humber Estuary is set out in Policy HE1. This includes objectives to

• Transform the role of Hull as a Regional City; • To increase development in Hull over the Plan period, coordinated with the Pathfinder programme for renewal, demolition and vacancy reduction with improved infrastructure provision and community facilities; • Manage flood risk in line with Policy ENV1; • Secure a health housing market for all tenures of housing in Hull; and • Manage the release of land for housing in a manner which supports the interventions to address fragile and failing housing markets such as that in Newington and St Andrews. 2.3.4 The RSS also includes pan-regional theme based policies on economy, housing, environment health and community, and transport. Housing policies for the region are set out in Section 12: Housing. Again, they reflect the need for restraint in rural areas in the Humber Sub-Region and to support development in Hull. Allocations set out under Policy H1 include a requirement for 40% of housing provision for the wider market area (Hull / East Riding) to be concentrated in Hull to support housing market renewal. Policy H3 also states that the management of the release of land for housing should support interventions in the housing market, including the Gateway Hull/East Riding Pathfinder. A specific target under this policy is to close the gap between vacancy rates and house prices in the Housing Market Renewal Areas and the rest of the region. Policy H5 requires that homes are provided for a mix of households that reflects the needs of the areas.

2.3.5 Policy ENV1 deals with flood risk and states that the region will manage flood risk proactively by reducing the causes of flooding to existing and future development. It requires the use of sequential approach so that development is located on the lowest risk sites. However, in areas such as Hull, much of

Evidence Base Report 7 which lies within an area of high flood risk, the policy states that flood management will be required to facilitate development.

Regional Housing Strategy 2005-2021

2.3.6 The Regional Housing Strategy (RHS) stresses that understanding housing markets is more important for Yorkshire and The Humber than for some other regions. Whilst overall market signals at the time of preparation revealed a generally buoyant housing market, there is an acute and growing imbalance between housing markets in parts of the region. The RHS supports the Regional Spatial Strategy by providing a framework for new and affordable housing focusing on brownfield development, an investment framework, and a strategy for the improvement / replacement of housing.

2.3.7 The RHS, in Annex H, notes that work for the Gateway Pathfinder has identified Hull and the adjacent 14 wards of East Riding as comprising one housing market area. It describes Hull city as being almost exclusively urban in nature, with the adjacent East Riding wards providing suburban settlements with attractive residential areas for people working in Hull and elsewhere. Under the objective of creating better places, the RHS aims to balance the region’s housing markets and to create sustainable communities with priority to transforming neighbourhoods and areas facing low, changing or fragile demand. It states that priority will be given to places within the Pathfinder area.

Regional Economic Strategy (RES)

2.3.8 Yorkshire and Humber’s economic vision states three broad aims:

• Enhancing and realising the potential of all Yorkshire & Humber’s people to achieve a healthy learning region and social inclusion; • Growing existing and new businesses to achieve sustainable economic growth and jobs; and • Utilising the full potential of Yorkshire & Humber’s physical and cultural assets, maximising resource efficiency, and conserving and enhancing its environment to achieve an integrated, sustainable economy.

2.3.9 The RES cites the Hull & Humber Ports City Region as a key global gateway for sea-based trade, whose importance is underlined by the fact more exports go to the world through the Hull & Humber Ports than through any other UK ports complex. It seeks to implement priority transport improvements that are vital to economic success, specifically to improve access to Hull and the Humber ports. The RES describes Hull as a city building distinctive assets like a new retail quarter and transport interchange, ‘The Deep’ visitor attraction, the KC stadium, and the BBC’s innovative new media centre.

Evidence Base Report 8 2.4 Sub Regional Policy

Joint Structure Plan for Kingston upon Hull and the East Riding of Yorkshire (June 2005)

2.4.1 The Joint Structure Plan (JSP) provides a 15-year policy framework for the development and use of land in the area of Hull and the East Riding of Yorkshire. The document was adopted in June 2005, replacing the former Humberside Structure Plan, and has become a ‘saved document’ under the new Act. Hence the policy approach of the JSP continues to form part of the overall development plan for the area until it is replaced by relevant policies in RSS and respective LDFs. Agreement has been reached with Government Office for Yorkshire and the Humber that the JSP would initially act as a “Joint Core Strategy” for the combined area of Hull and the wider East Riding area. This commitment has been reflected in Hull’s Local Development Scheme. It is anticipated that much of the strategic direction that is contained within the Joint Structure Plan will be included in the Core Strategy.

2.4.2 The JSP’s development strategy is to focus development on a limited number of settlements. The majority of development, especially major scale development is to be directed to Hull under Policy DS1, as Hull is recognised to be the major centre of activity. However, it is also recognised as facing major challenges including multiple deprivation, vacant housing stock, flood risk, negative image, and heavy reliance on traditional industries. Concentrating development in Hull is considered to be the key thrust to assist the major interventions in place in Hull, whilst at the same time limiting development in smaller settlements in East Riding.

Figure 2-1 Summary of Policy Framework (Table 2.7, P28 JSP for Hull and East Riding)

Evidence Base Report 9

Gateway Housing Market Pathfinder

2.4.3 The Gateway Housing Market Renewal Pathfinder is a long term project of at least 15 years to tackle issues related to failing housing markets in Hull. It was set up by Government and the Councils of Hull and East Riding to undertake housing market renewal and transformation.

2.4.4 Gateway’s vision is for ‘the Hull housing market to be a place where people choose to live, a place of prosperous, diverse and sustainable communities and vibrant neighbourhoods, providing an enviable quality of life for all.’

2.4.5 Fundamentally, Gateway’s role is to create conditions for investment, in order to tackle housing market failure, this requires funding from Government to encourage investment, in accordance with plans for development and regeneration in specifically identified areas. The strategy has been developed to fit with other regeneration strategies to ensure that housing market renewal is successful and contributes to the wider regeneration of Hull. There are strong links with these other strategies and one of them is the Community Strategy: “Living, learning and working: A Community Strategy for Hull 2006- 2011”. The Pathfinder strategy, with these other strategies, forms the prime underpinning of the Area Action Plan.

Hull and Humber Ports City Region Development Programme 2.4.6 As part of the Northern Way Growth Initiative, authorities within the Hull and Humber Ports City Region are required to produce a City Region Development Programme (CRDP) to show the unique contribution it can make to the economy of the North. The first programmes were published in June 2005, alongside Moving Forward: The Northern Way Business Plan 2005- 2008. 2.4.7 The programme outlines the current and future potential contribution to building a thriving Northern economy.

2.4.8 The Hull and Humber Ports CRDP vision for the City Region is of “a global gateway – with a thriving, outward-looking sustainable economy building on its unique assets of location, the estuary, ports connectivity, and physical environment.” The main elements of the CRDP are to:

• Create a more entrepreneurial culture including university level provision on the South Bank of the Humber; a worklessness pilot in Hull; and promoting an entrepreneurial culture in schools. • Improve connectivity by addressing key transport bottlenecks particularly those which impede access to and form the Humber Ports and improving public transport within the City Region and with other City Regions. • Prepare our places for growth by ensuring that: value is added to passenger services and good flowing through the ports; the City region’s extensive waterfront is optimised both as a business and residential location; and by investing in creating sustainable communities through a wide range of regeneration, environmental and housing market investments.

Evidence Base Report 10 2.5 City Policy

Hull Local Plan

2.5.1 The Hull Local Plan was adopted in May 2000, following a lengthy preparation process through the 1990s, and its plan period only ran to 2006. As noted above, the Planning & Compulsory Purchase Act 2004 has brought about major changes to the planning system. The City Council is now required to prepare a Local Development Framework (LDF) to replace the Hull Local Plan. The first three years following commencement of the Act in September 2004 are seen as the ‘transitional’ period and are covered by separate regulations: the Town & Country Planning (Transitional Arrangements) (England) Regulations 2004 (ODPM), to enable local authorities to transfer to the new system.

2.5.2 Under the transitional arrangements, existing plans are automatically ‘saved’ during this 3-year period. Technically, therefore, the Hull Local Plan will continue to provide the policy basis for determining planning applications, either until September 2007 or until its policies are replaced by new ones as part of the LDF. It is however based on work which is over a decade old, and its analysis and approach predates much of the national and regional policy described above.

2.5.3 Specific proposals in the Local Plan that relate to the Newington & St Andrew’s area are:

• Housing - there is an allocation in the north west of the area for housing development of 100 – 250 units. • Retail –the local plan identifies Hessle Road as a District Centre and Anlaby Road as a Large Local Centre. • Conservation Areas are designated for both the Boulevard and Coltman Street. • Transport – the existing Park & Ride site near the KC Stadium that is to be “protected”; Anlaby Road is identified as a Bus Priority Corridor.

2.5.4 The ‘Saved’ policies relating specifically to Newington and St. Andrew’s from the Hull Local Plan are:

• NE1: Protecting Urban Greenspace (0.25 + hectares); • NE3: Replacing Urban Greenspace; • NE6: Urban Greenspace in housing development; • NE13: Protecting and improving the Green network; • NE14: Sites of Nature Conservation Interest; • NE15: Nature conservation and development; • BE18: Conservation Areas; • BE19: Development in the vicinity of a Conservation Area; • BE20: Demolishing or removing a building, structure of other feature in a Conservation area; • BE21: Development in the vicinity of a Conservation Area; • BE22: Trees in a Conservation Area;

Evidence Base Report 11 • BE23: Additional control of development in a Conservation Area; • BE24: Statement of Proposals for enhancing and preserving Conservation Areas; • M8: Protecting proposed public transport services and facilities; • M13: Traffic in housing areas; • M18: Protecting proposed road schemes; • M22: Park and Ride; • M30: Parking and servicing for development outside the City Centre; • H3: Providing housing land; • H10: Gypsies and travellers; • E3: Employment land provision; • E4: Removing development constraints on employment land; and • S2: Existing shopping centres.

2.5.5 Whilst the policies emerging through the Newington & St. Andrews AAP will deal with many of the same issues that are referred to in the saved policies, they cannot replace these saved policies, which apply also to the wider Hull authority area. When adopted, the Policies of the AAP which refer to the same issues will become the prime consideration for any spatial decisions that affect the Newington & St. Andrews area, as they are based on more up to date evidence and therefore will attract greater weight than those of the Local Plan.

The Core Strategy through the JSP

2.5.6 Under the Planning and Compulsory Purchase Act 2004, all Local Development Documents – including the Newington & St Andrew’s Area Action Plan – must conform to the planning authority’s ‘Core Strategy.’ The Core Strategy is the primary Local Development Document, and sets out the overall spatial vision for a place, the spatial objectives and the overarching policies.

2.5.7 Until the City Council has prepared its Core Strategy for the City as a whole (the Issues and Options stage for which is currently out to consultation – see below), the Core Strategy for the Newington and St Andrew’s Area Action Plan is the Joint Structure Plan for Hull and the East Riding (adopted 2005).

Core Strategy – Issues and Options and Preferred Option

2.5.8 The Issues and Options document, at the time of writing out to public consultation, represents the first stage of the production of the Core Strategy, which will eventually be a central part of the LDF. The document contains a series of strategic, citywide issues and options, followed by a further set of objectives and options for achieving these objectives which relate to more specific issues such as quality of life (housing, health, retail, and open space), education and employment.

Evidence Base Report 12 2.5.9 Specific reference is made to the regeneration issues, with the objective being “to enhance the quality of life in the city, reduce poverty and inequality and improve the city's image”, with the regeneration of NaSA being the first priority, alongside that of the City Centre and the Holderness Road corridor in East Hull (Option 3 in the core Strategy). A spatial representation of this option is included on the spatial Options Map, which is shown below.

Evidence Base Report 13

Evidence Base Report 14

The Core Strategy Evidence Base

2.5.10 As part of the preparation of the Core Strategy and the LDF, a comprehensive evidence base is compiled from a number of supporting documents, which form the starting point for, and justification of, many of the policy choices suggested in the Core Strategy. Therefore these documents are also part of the wider policy context in which the AAP sits. The relevant parts of this evidence base to the AAP includes:

• A Housing Market Assessment • Housing Land Availability Assessment • Employment Land Review • Open Space/Sports/Recreation provision assessment • Retail assessment • Flood risk assessment • Green space audit • Strategic Housing Land Availability Assessments - which are currently under way and will inevitably interact with the potential in the NaSA area

2.6 Overarching local strategies

“Living learning and working: A Community Strategy for Hull 2006-2011”

2.6.1 The Community Strategy is produced by the Local Strategic Partnership - OneHull. The Strategy includes a Vision for Hull in 2020 as ‘a City which is living, learning, working, healthy and proud. One of the most important cities in Northern Europe [it is] a gateway for global trade and the heart of a prosperous sub region.’

2.6.2 The Community Strategy sets the overall direction and priorities for the City of Hull. It provides the framework within which key delivery partners will operate. The Strategy focuses on the challenges and opportunities facing the city that will only be addressed by working in partnership.

2.6.3 Three inter-related priorities for action include: jobs and prosperity; education, learning and skills; and quality of life. Within each of these priorities are:

• Theme based visions; • Objectives for 2006-2011; • What it all means to the people of Hull; • Priorities for action; and • Headline targets for 2011.

2.6.4 The key priority that is of particular relevance to the NaSA is Quality of Life. The LSP recognises that there are many parts of Hull that have no longer become attractive places to live due to crime and fear of crime, health and fundamentally, the quality of the environment and housing. In response, the Community Strategy contains objectives which are aimed at tackling these issues. The most relevant includes improving the supply of housing across all tenures and the

Evidence Base Report 15 environmental quality of Hull’s Neighbourhoods. Some of the key actions in the Community Strategy that area related to this objective include:

• Build new, high quality homes in neighbourhoods where people want to live and reduce the oversupply of poor quality housing; • Ensure all social rented housing in Hull meets the Decent Homes Standard by 2010 • Improve the environmental quality of Hull’s neighbourhoods by providing well-used and safe open spaces • Improve the quality of the built environment and condition of the highways; and • Improve public transport, pedestrian and cycle links between neighbourhoods, centres of employment and local amenities.

2.6.5 The priorities, objectives and actions contained within the community strategy underpins the AAPs shared Vision and the detailed proposals which are set out to achieve that vision..

Riverside Community Plan 2.6.6 Essentially, this is a local version of the Community Strategy for the Riverside Area – the local political ward structure within which Newington & St Andrew’s sits It sets out the role that the Riverside will play in contributing to the wider vision of the Community Strategy for Hull and addressing the needs of the local community. It provides the framework within which local key delivery partners will operate.

Local Development Framework City Centre Area Action Plan 2.6.7 As part of the wider LDF process, the City Council is producing an Area Action Plan for the city centre. The context for the plan was set by the earlier production of a City Centre Master Plan in 2004, as the regeneration strategy for the City Centre and the implementation plan for Hull Forward, the city’s Urban Regeneration Company (URC).

Hull LIFT (Citycare) Strategic Service Delivery Plan 2.6.8 Guidance for the delivery of improved healthcare facilities in the city - particularly new healthcare premises to be delivered within the first tranche of Hull LIFT schemes. Accompanied by the Choosing Health Report (Spring 2004), which is a consultation on action to improve people’s lives.

Hull Building Schools for the Future 2.6.9 Building Schools for the future is a government scheme that will see in excess of £350m invested in Hull’s schools..

2.6.10 The funding is an investment in Hull’s school buildings which will ensure that the Hull has new facilities aimed at transforming teaching and learning in Hull.

2.6.11 Key objectives are for the first new school to be completed under this programme by September 2010, with all other secondary schools improved and modernised by September

Evidence Base Report 16 2013 and all schools in the programme completed by September 2014. Achieving these objectives is anticipated to result in the following:

• Improving every child • Future schools will offer first class standards • Schools across the city will work together to improve • Seamless links between primary, secondary and post 16 education • High quality teaching • Improved life opportunities for every child

2.6.12 The programme will be delivered through a Local Education Partnership due to be established in 2010. The LEP will deliver a programmer of physical and social regeneration in order to deliver new exciting opportunities that will benefit future generations in Hull.

2.6.13 From this initiative proposals are currently being discussed for a potential new secondary school in the NaSA area. The plan has included a site that has the potential to accommodate the school should it be agreed to come forward during the lifetime of the AAP.

Decent Homes Initiative

2.6.14 The decent homes team is working closely with Gateway to improve housing and revive the housing market in the region. The overall initiative has a similar aim to AAP and Community Strategy to create a more attractive place to live, work and invest. The programme of investment, scheduled over a three year timescale will target five areas, two of which comprise both Newington and St Andrews areas within the NaSA AAP. The team also aims to make sure that any Gateway proposals such as those for NaSA are taken into account when planning decent homes work.

2.7 Area-level Plans, Proposals and Programmes

2.7.1 The most comprehensive pieces of work recently carried out that bear on the Newington & St Andrew’s area itself are:

• The West Hull Area Development Framework; • The Neighbourhood Renewal Assessment; and • The Hull St Andrew’s Townscape Heritage Initiative.

The West Hull Area Development Framework 2.7.2 On behalf of the Pathfinder, a team led by the GVA Grimley consultancy compiled this report in October 2004. As well as producing an Area Development Framework (ADF) for West Hull, a Neighbourhood Renewal Plan was developed for the Newington & St. Andrew’s areas of West Hull.

2.7.3 The key challenges are summarised; they are discussed later in this baseline report and not repeated here.

Evidence Base Report 17

2.7.4 The ADF split Newington & St Andrew’s into 7 neighbourhood sub-areas; they are listed below with some of the salient points made in the ADF:

1) Albert Avenue: Riley College site seen as central to renewal in this area. The report expected a scheme to provide a significant number of new homes to be sold on the open market to encourage new residents to inner West Hull, and therefore improve investment in the area; 2) Hawthorn Avenue: identified for major urban restructuring, to be the flagship project and top priority in the first 3 years of the programme. New development to be focussed around the Amy Johnson site; 3) Dairycoates: cited as having some of the “poorest housing stock in the country”, and therefore identified as an area of priority for HMR intervention. Work had already been undertaken to acquire properties for demolition and refurbishment; 4) West Park; 5) Boulevard: considered less of a priority than the other areas. Promoted as “a new urban village for West Hull” that should include a variety of housing choice and tenure; 6) Coltman Street: nearby Wellsted and Gee Street are cited as “one of the most rundown areas in the city” due to poor housing quality, poor environment and socio-economic problems. The report envisaged acquisition, demolition and new build, as well as refurbishment; 7) South of Hessle Road.

2.7.5 The ADF has provided much of the basis for local strategy pending the adoption of formal policy, and is largely consistent with the emerging thinking in this AAP project.

Newington & St. Andrew’s Neighbourhood Renewal Assessment (NRA)

2.7.6 This comprehensive and informative study, which forms a key part of the Baseline for the present planning effort, examined the housing, environmental, economic and social problems that Newington & St Andrew’s have had over the years and the options for delivering regeneration. It cites the need for community involvement in considering the future for the area, and stresses that the community have identified a need for radical change and are demanding action to improve their community and quality of life.

2.7.7 The NRA concludes that the area no longer provides an acceptable standard of living or neighbourhood, and includes clear recommendations to:

Evidence Base Report 18 • Start a programme of new house building, demolition and refurbishment in Hawthorne Dairycoates; • Monitor the impacts of this early work and bring forward further housing proposals for other parts of the wider area, as required; • Begin the delivery of a wide range of community and other support measures for the wider area.

2.7.8 The NRA's key evidence is summarised in Chapter 3 below and the whole of the report is include as part of the baseline reporting.

Gateway Housing initiatives & delivery

2.7.9 Gateway have begun a powerful and dynamic programme of interventions which has already started to influence the local housing market. Some 400 improvements already carried out, plus the clear intention to acquire and clear some of the weakest property, is signalling to the market that there is a coherent strategy here for the stock which needs both clearance and upgrading. By July 2008, 385 properties had been acquired or terms agreed, and 113 had been demolished. New building in the Woodcock Street locality, too, is starting to signal to local people that the long-awaited regeneration effort is now beginning to be delivered.

Hull St Andrew’s Townscape Heritage Initiative (THI)

2.7.10 The Hull St Andrew’s THI aims to contribute to the creation of a sustainable community in its focus area and in the wider West Hull locality. The THI report relates its proposals closely to the HMR Pathfinder in its regeneration work on the ground. The primary aim of the Hull St Andrew’s THI is to draw on the heritage resource to create and sustain neighbourhoods where people are proud to live. The THI seeks to encourage and support heritage-led regeneration within West Hull, and to stimulate the highest standards of conservation and design (appropriate to much of the THI area’s existing status as a Conservation Area).

2.7.11 The THI programme is for five years, and will end in March 2012. In the St. Andrew’s THI, grants are available for the following eligible categories of work:

• Building repairs • Reinstatement of architectural detail • Bringing vacant (non-residential) historic floorspace back into use • “Conservation Deficit”: in regeneration situations, the additional costs of work in historic areas (to pay for specialist materials, craftsmanship, etc.) can mean that much-needed repair and redevelopment projects become financially unviable. • THI grants are designed to compensate for this.

2.7.12 There is a concentration of projects around the southern sections of the Boulevard and Coltman Street Conservation Areas. As part of the bidding process to secure the THI funding, four critical projects were identified, focusing on key ‘pathways’ into the THI area: 156-158 Hessle Road; the City

Evidence Base Report 19 Temple; 114 Coltman Street; and Western Library, Boulevard.

2.7.13 Overall, about forty properties have been identified for assistance, the others being repair and re-instatement works for mainly residential properties on Boulevard and Coltman Street

Evidence Base Report 20 3 Housing Market

3.1 Introduction

3.1.1 Clearly the starting-point for a Housing Market Renewal initiative has to be the state of the housing market itself.

3.1.2 The housing market assessment work carried out to date, for the markets of the wider city and sub-region of Hull and Humber, helps to some extent to inform our understanding of the needs and demands from internal and external customers, as well as how this matches with the current supply of housing within the AAP boundary. However, more work will be needed for the potential shape of the future housing market and residential offer within inner West Hull to be thoroughly explored and robustly tested.

3.1.3 Four principal studies provide the current understanding of the housing market and its wider setting:

• Recently-completed work for Hull City Council by the GVA Grimley consultancy team to produce a Housing Market Assessment for Hull; • The Neighbourhood Renewal Assessment (NRA) (2006); • Sheffield Hallam / CRESR study of Private Rented Sector (2007) • EKOS “Refurbishment Review & Appraisal” report (2007) 3.1.4 In addition, earlier work by GVA Grimley (for the West Hull Area Development Framework 2004) provided considerable initial analysis (see previous chapter) and Gateway have also commissioned work by Kwest and MRUK to help understand housing preferences and choices.

3.2 Hull Housing Market Assessment (HMA) 2007

Status

3.2.1 GVA Grimley’s Housing Market Assessment (HMA) was commissioned by Hull City Council in March 2007. The version reviewed here is the Draft Final Report produced in September 2007.

Overall Market

3.2.2 The report makes it very clear that “Hull and East Riding are effectively one market area”. Urban Hull provides smaller stock and more social renting; East Riding’s houses are on average larger and in outer suburban and market town settings. The market works across the local authority boundaries. Hull is the hub for employment and services; East Riding “plays a critical role in terms of its alternative housing offer and environmental amenity”. The two authority areas are characterised by mutual dependency and strong travel-to-work links. So a pattern emerges of contrast and (perhaps) complementarity: 30% of Hull’s stock is social rented, 9.5% of East Riding’s; terraced housing is over 50% of Hull’s stock, 20% of East Riding’s, whereas the figures for detached property are 6%;33%; house prices in Hull are not much over half those of the outer

Evidence Base Report 21 district’s; and whereas vacancy levels in East Riding are below 3%, the city as a whole has nearly 6% voids (6725 units) with a high proportion of long-term vacancies in the private rented stock, suggesting an “entrenched imbalance in its supply/demand dynamic within this tenure type.” Newington & St Andrew’s is identified as an area where this is particularly evident.

The Dynamics

3.2.3 The Draft HMA examines population trends, pointing out the familiar pattern of long-run and significant decline in the city since 1981; estimated to have continued beyond Census 2001, but with the most recent figures suggesting an upturn, to pre- 2001 levels, largely associated with international migration. The historic pattern has been dominated by high out-migration, with clear flows to East Riding year on year. Again, this shows the “symbiotic relationship”: older more prosperous households moving out to the fringe of the conurbation, younger groups looking to be closer to work and activity, but with a net balance in favour of East Riding throughout. There are clear implications here for a policy thrust towards greater mix of housing types, especially to offer families more choices in the inner urban area.

Market activity

3.2.4 The price and transactional data follows the outer-inner pattern already described, as would be expected. Recent market activity has been buoyant, though at the lower (sub-£100,000) end this is heavily reflective of investor activity, so vulnerable to fluctuation in that segment. Investors are reported to be targeting, inter alia, Postcode area HU3 (Hessle Road, but also up towards Beverley Rd). GVA Grimley also remark that agents related this to the “precedent” set by Gipsyville, where major investment was seen to have resulted in a near tripling of prices over time. HU5 / HU3’s concentration of migrant workers was also seen as part of the driving force.

Area attributes

3.2.5 The report examines three areas in more detail – the “City Centre AAP” area; Newington & St. Andrew’s; and East Hull. In Newington & St. Andrew’s the tenure balance, with 50% owner- occupation, and 23% in both social and private rented tenures, is not particularly unusual for a major urban area. But the house type mix (62% terraced, 22% flats) is very skewed by any comparison, and this offers little locals choice. And the average house price, at £52,884, is amongst the lowest in the country. GVA Grimley summarise the other characteristics as:

• Very high vacancy, which coupled with very low prices indicates low demand for the stock, much of which is in poor condition. • Very low household incomes too (average below £20,000) – but though the affordability ratio is therefore not problematic (2.7) it does mean that many households are effectively trapped in this very localised market. • “Severity of the problems associated with…”(this combination of) “…the socio-economic profile of its residents and the physical fabric of the area.”

Evidence Base Report 22

3.3 Neighbourhood Renewal Assessment (NRA) 2006

Study Area focus

3.3.1 Moving down a level from this overall market setting, and the initial indications of how Newington & St. Andrew’s sits within it, we use the Neighbourhood Renewal Assessment 2006 to describe housing conditions in the area itself more comprehensively. The NRA is, as noted in Chapter 2, a comprehensive and informative study, which forms a key part of the Baseline for the present planning effort. It is included in its entirety in the Baseline suite of documents. This chapter pulls out some of the salient points, and uses them to help build the overall picture of Newington & St. Andrew’s and its sub-areas.

Summary statistics for the whole area

3.3.2 Key summary tables from the report are reproduced below. The first one is a crisp summary of headline figures for the Newington & St. Andrew’s area as a whole.

Evidence Base Report 23

Figure 3-1 Key summary points from NRA

Evidence Base Report 24 Looking at the sub-areas

3.3.3 The next two diagrams divide Newington & St. Andrew’s up into five sub-areas, and compare their housing performance with each other, the whole area, and the city of Hull. Note that these areas are not identical with, though they are similar to, the “character areas” defined and used in subsequent chapters dealing with urban form and socio-economic attributes. Appendix 2 gives the approximate geographies.

Table 3-1 Housing Market Indicators

Figure 3-2 Vacant and long-term vacant properties

Evidence Base Report 25 The Patterns in outline

3.3.4 Here we consider some of the major patterns in the housing market, which feed later into Chapter 7, where these elements are considered alongside the wider range of physical, social and economic indicators.

3.3.5 In broad terms, the most robust housing market lies to the north of Newington & St. Andrew’s in the Albert Avenue area, which contains the highest proportion of owner occupied stock, lowest turnover and the lowest proportion of Band A housing, along with the highest house prices.

3.3.6 The least stable area is arguably the Coltman Street area, as it contains the highest turnover of properties, among the highest proportion of vacant units, and the lowest value properties. Hawthorn Dairycoates is also deeply problematic characterised by high levels of vacant units, including the highest proportion over six months, reflecting the large programme of clearance underway in the area. The highest concentration of private rental stock is found in West Park and Coltman Street, with turnover rates correspondingly high. Boulevard has the lowest proportion of private stock (owner occupied + private rented) and contains among the lowest values and highest proportion of Band A housing.

3.4 The Private Rented sector

Overview

3.4.1 The private rented sector (PRS) is a significant feature of the housing market in Hull, with some 14,000 households in the sector today. Although not intrinsically problematic, this tenure is very often associated with higher levels of transience, low levels of investment, and concentration on weaker stock types and market areas. A July 2007 report for Gateway by the CRESR unit at Sheffield Hallam University provides some very useful coverage of insights into the issues for the sector. Table A2.3 in their Appendix states the 2001 Census figures for numbers and proportion of PRS in local wards (since when, figures have risen):

Table 3-2 Proportion of private rented sector housing in Newington & St. Andrew’s Ward Number PRS as % of all

Newington 1,098 23.09%

St. Andrew’s 727 23.09%

All Hull 12,192 11.69%

Highest ward % (Newland NB closest to 1,744 41.34% Univ. )

Evidence Base Report 26

Distribution and condition of the PRS stock

3.4.2 Figure 2.2 in the CRESR study shows the location of private rented households as a proportion of all households – citywide and as at 2001. The highest concentrations are in a band which swings round the north and west of the city centre, thus including Newington & St. Andrew’s. As with Hull’s stock as a whole, over half the rentals are of terraced properties; and 30% are flats. Unfitness is a problem: I in 10 of Hull’s PRS properties is unfit for human habitation – a figure which is, however, little different from the England average. The study comments that certain areas are worse than average, without identifying them (see subsequent section of chapter). It does note that a large proportion of the “vulnerable” households in the city are in the PRS: of the 10,394 vulnerable households in a “non-decent” home, 4,894 (49%) are in the sector. They deduce from this that in Newington & St. Andrew’s some 921 PRS households must be resident in non-decent housing.

Figure 3-3 Private rented households as a percentage of total households (2001)

Specific observations about inner West Hull

3.4.3 As well as the observation on condition and vulnerability, the report reports landlords’ impressions of values – and of price growth in recent years, such as a doubling in two years in parts of the Hessle Road area. Even so, the private rented market is seen as depressed in the Newington & St. Andrew’s area, in what is otherwise a fairly buoyant city PRS market. Hawthorn / Dairycoates was specifically mentioned in a number of

Evidence Base Report 27 responses: a typical remark being “you can let to people in these areas, but to tenants I wouldn’t want”.

Who is renting in the sector?

3.4.4 The PRS in Hull does comprise a number of distinct sub- markets. Students are 10-12% of all PRS households; and a “professionals” sub-market accounts for another 30%. The largest sub-market, at about 60%, is the “housing benefit / low income” one; which is of course where the problematic aspects of this tenure tend to be concentrated. The report remarks that the “professional” sub-market is a lower proportion in Hull than in other Yorkshire conurbations – the other two being relatively larger. In Newington & St. Andrew’s this is likely to very much more pronounced: the landlord survey and discussions give the impression that whilst the housing benefit market is static and the Eastern European (“A8”) market growing fast, the professional and student elements are almost non-existent in the area.

3.5 The Social Rented Sector

Overview

3.5.1 The socially rented stock is an important component of the wider offer within Newington & St. Andrew’s. Across the area, the proportions in this sector are lower than the average for Hull, although the provision is not equally distributed (see below). The stock is reported to be largely stable (following clearance) and demand is robust. The need for active social housing investment in areas of low demand has long since been acknowledged, with local authorities and RSLs having an important investment and maintenance function, where those at the lower end of the private sector may struggle with the required levels of investment.

All Social All Social Council (%) Council (#) RSL (%) RSL (#) Rented (%) Rented (#) Newington 15.9% 758 1.9% 89 17.8% 847 St. Andrew's 27.1% 862 7.2% 228 34.3% 1,090 All Hull 27.9% 29,070 5.36 5,585 33.2% 34,655 Source: Census 2001; KS18 Tenure

Distribution and condition of socially rented stock

3.5.2 The provision of socially-rented stock within Newington & Saint Andrew’s is concentrated to the south in the St. Andrew’s ward; principally but by no means exclusively in our “Dairycoates East” character area. Even here though, the provision is broadly in line with the average levels evident across the rest of Hull. To the east of St. Andrew’s, in Myton ward, concentrations of socially rented tenure are far higher. RSL provision is concentrated more to the east around Coltman Street and Boulevard.

3.5.3 As noted above, the quality of the stock is understood to be generally robust, dating as it does from major postwar clearance and investment, and with very little reliance on non- traditional building techniques. Demand for the remaining social rented stock is strong, and Right-to-Buy penetration has not been high.

Evidence Base Report 28 Role of the social housing stock

3.5.4 The social housing stock in Newington & St Andrew’s provides better-built more modern stock than the average in the area, in small estates of low-rise property which are however not very well laid-out or connected to their surroundings. It houses people who tend to be older, and less likely to be active in the labour market, than the already low proportions for the area; incomes are somewhat lower too, and the deprivation scores are as poor as for the wider Newington & St. Andrew’s area. The sector is not at present problematic, and it does provide decent homes for many, but it cannot be regarded as providing “housing of choice” other than to those in very constrained circumstances.

3.6 Stock condition

Age and condition

3.6.1 The housing stock in Newington & St. Andrew’s is predominantly pre-First World War. The EKOS “Refurbishment Review & Appraisal” report (October 2007) quotes NRA figures as 83% pre 1919, 6% 1919-44, and 11% post-war, and comments that given the age of the stock it is not surprising that much of it is in poor condition. The study uses data from a 2005 Stock Condition Survey (of the non-Council housing) to give estimates for the private sector stock as follows:

• 60% failing to meet the Decent Homes standard (double England average) • one third of the stock would benefit from external improvements, and just under a half (46%) from internal improvements • unfitness levels of 4% (external inspection) and 9% (internal inspection); and a further 28% and 36% described as defective / serious disrepair.

Cost implications

3.6.2 EKOS repeat the Stock Condition Survey’s conclusion that it would cost nearly £25 million to address unfitness, serious disrepair and general repair over a five-year period. Their study examines experience both in Hull and in other Northern conurbations to produce illustrations of the cost range for different approaches to refurbishment, ranging from facelifts, to enveloping, to full external and internal refurbishment. The costs for facelifts and enveloping are put in the range £3,500- £16,000. They do not cover the full costs of major refurbishment / compliance with Decent Homes standards, the focus being on what sort of external works can best help stabilise an area without spending a scale of funds out of proportion with area values.

A suggested approach

3.6.3 The EKOS study concludes that “the message for Gateway is to focus on facelift schemes to achieve the maximum visual impact”. Whilst it will do little to address problems of unfitness and disrepair, a series of external refurbishment measures can be implemented at relatively moderate cost. These include cosmetic facelifts, security measures / target hardening, and environmental streetscape, public realm and open space

Evidence Base Report 29 improvements. They can thus act on people’s reasons for dissatisfaction with their area’s appearance, their fear of crime, and investor interest. Effectively, this is accepting that an area- wide improvement scheme targeted on stock condition is not the way forward – and that thus more radical responses will be required to that set of problems.

3.7 Summary of housing issues

3.7.1 There are, in summary, two distinct aspects to the housing market situation in Newington & St. Andrew’s. They are on each side of the demand-supply balance.

3.7.2 Housing demand in the area shows in acute form many of the classic attributes of housing market failure. House prices remain extremely low – certainly by regional or national comparison, and even in relation to the rest of Hull and the surrounding East Riding. Net outward population movement over a long period, and disproportionately affecting those households with choice, is a key underlying trend. Study area house prices average 26% of the England & Wales average (Hull’s are 44% and East Riding’s 80%). This (and the nature of the stock) is reflected in the Council Tax banding, with nearly 90% in Band A (25% nationally, 73% in Hull). The vacancy rate (2005 = 12.5%) is over twice the city’s average, which is itself above the Government warning level of 5%. And private renting – which is not necessarily a problematic tenure, but is often an indicator of market weakness having led to opportunities for speculation – accounts for a quarter of the stock (nationally, 9%). There can be no dispute that this is one of the most problematic housing demand settings in the country.

3.7.3 On the supply side, there is a series of interwoven housing market issues. The housing stock is heavily skewed towards smaller, older property, with 63% in terraces (national average 25%), so that choice of home type is limited. Tenure, whilst varied, is more than usually concentrated in a Private Rented sector which is often problematic. Over 1500 of the houses are in the very tight “court terrace” form, some of which are amongst the worst housing in the City. Of the whole local stock, many properties are judged to be unfit, and a further 36% as in substantial disrepair. But it is important to recognise that the stock, though problematic in all these ways, is not always at the root of the problem, which is primarily the demand – the fact that not enough people want to live in inner Hull, and particularly this part of it; and then secondarily (and in some cases crucially) the nature of the stock.

Evidence Base Report 30 4 Place and Residential Offer

4.1 Introduction

4.1.1 The purpose of this chapter is to look at the Newington & St Andrew’s area in terms of its physical Place Quality and Residential Offer.

4.1.2 It begins by outlining some of the physical urban design characteristics of Newington & St. Andrew’s, and by situating in the urban structure of Hull.

4.1.3 It goes on to introduce what are termed “character areas” – in essence subdivisions on the locality, where the character or “feel” of the place alters.

4.1.4 We then introduce the (physical) Place Quality Assessment, presenting its results first for the whole locality, and later for each of the nine identified character areas.

4.1.5 Finally, we present the wider Residential Offer analysis, which considers how the Newington & St Andrew’s “offer” performs in terms of its range, quality and cost - thus helping us to understand what role and function the locality has now and its potential for the future.

4.2 Strategic Context and Structure

Location

4.2.1 The study area is the first stop in the series of focal points which span out from the city centre. Hessle Road and Anlaby Road are the first significant centres to the immediate west of the main (city centre) core, lying approximately 2.0-2.5km from the centre of Hull.

Role and Function

4.2.2 Newington & St Andrew’s is a distinctive part of inner West Hull. It draws on the city centre for a higher-order retail, administrative and employment provision; but Hessle Road in particular has something of a niche offer in a wider city context as well as its district centre role.

4.2.3 A number of community facilities (schools, health centres, community centres and churches) are distributed around the neighbourhood, reflecting more localised catchments. Shops and services are focused along the two main streets (Hessle Road and Anlaby Road), with some provision scattered throughout the area at the convergence of key movement routes (e.g. Hawthorn Avenue).

Characteristics

4.2.4 The area has a number of distinct characteristics, which need to be taken into account in terms of understanding the future role and function of the area. The main factors are:

• Topography: The topography of the area is favourable for walking trips, although in some cases the impermeable urban structure restricts walkability. • Amenity: A wide range of facilities are within easy access of the majority of residents, with distinct assets

Evidence Base Report 31 such as a significant urban park as well as a number of other open spaces. But the quality of the green spaces, their location and the links between them are all inadequate. • Structure: The railway lines at the periphery of the study area (NE and W), and the commercial area to the south, restrict the local catchments of Anlaby and Hessle Road centres. They also make it harder to enhance linkages with adjacent areas and to better integrate the urban form.

4.2.5 There are a number of other issues that we have considered as part of the appreciation and appraisal process: including land use, housing ownership, key community facilities, etc.

Opportunity

4.2.6 Newington & St. Andrew’s has most of the structural ingredients to become a sustainable place. Employment opportunities nearby, especially to the south; and in the city centre; walkable catchments around the two local centres; considerable range of shopping provision, services and green space: the area has many of the building blocks of a sustainable community.

4.2.7 It also has a substantial heritage, comprising not just buildings and localities of value and distinctiveness (of which there are many); but also a significance and meaning within Hull which goes back in part to its former role as the heart of the fish dock quarter for many years.

4.2.8 The area does need substantial investment and transformational change; but it is possible to envision its future as a sustainable inner-suburban city quarter with a character of its own – a place where people want to stay as opposed to one they want to leave.

4.3 Character Areas

4.3.1 The second part of the Place Quality Assessment focuses in on the regeneration area and identifies, as per the English Heritage Assessment methodology, the distinct character areas that make up the wider neighbourhood. In defining them, we have reflected, aside from other characteristics, the predominant historic character that survives within the modern day landscape: whether Victorian and Edwardian, or local authority housing from the post-war period. The boundaries of these areas were driven first and foremost by common physical urban structure criteria, such as housing types, barriers, sense of the place, distinctive uses or features and so on. For each character area, the approach seeks to understand:

a. The types and eras of development and how they contribute to the character of a place b. Structure of the urban landscape c. The open space provision and quality of individual spaces d. The particular features within each area such as landmarks, key buildings or building styles, streetscape etc e. Opportunities for the future / levels of intervention

Evidence Base Report 32 Figure 4-1 Character Area Boundaries

4.4 Place Quality Assessment

Results for the whole area - by “Theme”

4.4.1 We begin by considering the results of the Place Quality Assessment at the level of the whole of Newington & St. Andrew’s, focussing on each of the themes. Subsequent sections then analyse each character area.

4.4.2 The table below provides an overview of the key results for each of the nine character areas (plus the two main roads, and the Industrial Area), and each of the nine themes. Overall, the scores - for Newington & St. Andrew’s as a whole - are relatively low for most themes, although better scores are recorded for “getting around” (connectivity) and “shops and services” (the local retail offer). For the individual character areas, the performance differs, in some cases quite dramatically, between the various themes. Dairycoates West, Hawthorne Avenue West and Boulevard South, in particular, stand out as having generally low scores on all the aspects of the Place Quality Assessment.

Evidence Base Report 33 Table 4-1 PQA assessment results

4.4.3 We now briefly consider each of the nine themes in turn.

• The Basics: the analysis shows that it is not just in housing terms (Chapter 3 above) that the area is failing. On many of the fundamental basics of quality places, a number of areas in Newington & St. Andrew’s fail as well. Although a small number of Character Areas benefit from good permeability (meaning an urban form where people can easily move about), clear legibility (meaning a structure where the layout is easily understood and readily navigable by the layman) and buildings which address the street (resulting in a positive sense of enclosure), many do not - with long narrow blocks creating an intense (overly dense) environment, which makes navigation and orientation (legibility) problematic. • Character & Identity: The two main roads score especially well on this front by virtue of the strong nature of the two streets, the variety of the retail provision and strong individual landmark buildings which make the built environment very coherent, engendering a strong sense of place. • Getting Around: Connectivity, both internal and external, is generally best on or close to the two main roads. Further towards the core of the study area, movement is in places problematic with narrow long streets creating movement difficulties. Public transport does not permeate the study area • Environmental Quality: The local environment is largely in poor condition, with littering and some fly-tipping evident. An exception to this is Coltman Street to the east, where the general levels of maintenance appear relatively good. • Safer Places: This is one topic where the results differ significantly between the different character areas. In a number of locations, such as Coltman Street and the two main roads, the built environment makes a positive contribution to the feeling of safety, usually by virtue of good overlooking, a lot of street activity, and few void spaces. Contrast this with, for example, Dairycoates

Evidence Base Report 34 West, where the fragmented nature of the character area, including some void units, makes a negative contribution to fostering safer places. • Green Places: In general the area does not score well against the provision of positive open, green spaces. Though there are some notable quality spaces, in particular West Park, provision is not evenly distributed nor is there an adequate range of quality open spaces throughout the area. In addition access to West Park itself is quite poor. Green space is of particular importance in Newington & St Andrew’s given the general lack of private amenity space, and the dense built form. • Shops and Services: Most of the character areas generally scored well against this theme as they all had relatively good access to Hessle and Anlaby Roads, both of which were busy and had an offer which seemed to provide a range of retail opportunities to the local communities (in contrast to, say, the typical range of shops available in newer suburban contexts). Though the two main roads would benefit from some enhancements, such as upgrading of the public realm, the general shopping environment offers much potential for consolidation in the future. Caution is required in introducing new developments on these two streets, so as to ensure that their basic qualities are not compromised. There are some particularly poor examples of newer schemes on Hessle Road. They serve as an example of an insensitive disruption to an existing historic (and generally functioning) retail frontage. • Ability to Change: The character areas with most capacity to change were those with larger properties, especially those along the main roads, where different uses could easily be imagined in a fairly flexible stock. The least adaptable areas were those with more complicated layouts and small properties in tightly packed terraces – especially the “courts” - where the opportunities in the future (based on the current form) are more restricted.

Evidence Base Report 35 Results by Area

4.4.4 We now turn to the relative performance of the individual Character Areas. It should be stressed at the outset that none of Newington & St Andrew’s’ character areas fall into the top (desirable) category in the Place Quality Assessment. The best quality character areas are the two main roads (Anlaby Road, and Hessle Road), along with the Coltman Street area to the east. These areas largely score well because they achieve many of the basic principles of good places - though even in these areas, substantial challenges remain.

4.4.5 Contrasting with those scores, the poorest performing areas (apart from the Industrial area to the south, which is a special case) are, unsurprisingly, found in Hawthorn Avenue West, Dairycoates West and Boulevard South. In these three cases, substantial clearance has occurred and/or there are a number of remaining void units awaiting clearance. The general quality of the built environment is poor and maintenance is an issue.

Figure 4-2 Overall PQA Scores in Newington & St. Andrew’s

We now look at each of these “character areas” in more detail.

Evidence Base Report 36 1A: Albert Avenue West

Area 1A: Albert Avenue West The Basics 100 90 4.4.6 Albert Avenue West achieved an overall Place Quality Ability to Change Character & Identity 80 70 Assessment Score of 60.0. The area is characterised by early 60 th 50 20 century housing organized in very long and narrow blocks. 40 Shops & Services Getting Around 30 The general urban structure is sound, although in places, the 20 area feels somewhat impermeable and difficult to navigate. north-south links are much stronger than east-west links, which Streets & Spaces Environm ental Quality in some cases are fronted by side gables and fences and in other cases are unadopted and extremely narrow. Green Places Safer Places

4.4.7 The housing form is largely robust, but the public realm and the threshold between public and private space is of poor quality

and letting the area down, and housing market performance is in some cases extremely weak. This is reflected in the moderate score for the urban design fundamentals (The Basics) and the relatively weak score for “streets and spaces”.

4.4.8 The main feature in this area is Riley College and recreation ground. The space acts as an amenity space for the area but its value is poor due to lack of overlooking and maintenance. Naturally, the redevelopment of this site could make a positive contribution to the area, in particular by addressing the need to Riley College site is fronted by gables enhance the quality of open space provision. The nature of the and unadopted roads Riley College site’s interface with the rest of the area, along with some legibility issues impact on the feeling of safety in this area, is reflected in the low overall score achieved. The area is bound to the north and west by the railway line and to the south by Anlaby Road, which is a strong local centre. The eastern boundary with Albert Avenue East (1B) is less defined, and is determined by the change in urban structure.

Evidence Base Report 37 1B: Albert Avenue East

Area 1B: Albert Ave East 4.4.9 Albert Avenue East scored an overall Place Quality The Basics 100 Assessment score of 61.1, very similar to Albert Avenue West, 90 Ability to Change Character & Identity 80 though marginally better. The area is defined largely by West 70 Park and the stadium to the east. The area is bound to the 60 50 north and east by the railway line and Spring Bank and to the 40 Shops & Services Getting Around 30 south by Anlaby Road and the A1106 flyover which serves as a 20 major barrier. To the east is a fragmented area acting as a barrier between the Park and the rest of the study area. The

Streets & Spaces Environmental Quali area contains a number of community facilities some of them in attractive Victorian buildings which though they add character, add to the fragmentation by occupying large blocks. Getting Green Places Safer Places around (connectivity) suffers somewhat as a result of this structure.

4.4.10 The dominant house type is late 20th century council stock, with a significant redeveloped zone of historic housing and some piecemeal developments. Residential developments date mainly from the 80s and 90s, typically small cul-de-sac developments. The public realm is, however, stronger in these developments. The insular nature of these developments does have a significant impact on its feeling of safety.

4.4.11 West Park is a substantial asset for the area (and of course for the wider Newington & St. Andrew’s area). However, its physical proximity is undermined by the nature of its interface with the surrounding streets. In particular, the scale of properties fronting Walton Street, the lack of traffic calming, and the large underused area of car parking to the north of the park, altogether serve to reduce the strength of the park as a positive asset. Anlaby Road is seen as a positive element.

Evidence Base Report 38 Area 1C: Anlaby Road The Basics 1C: Anlaby Road 100 90 Ability to Change Character & Identity 80 70 4.4.12 The local centres are easily identifiable as separate character 60 areas due to the uses and the particular role they fill. Anlaby 50 40 Road is a local centre and achieves an overall Place Quality Shops & Services Getting Around 30 20 Assessment score of 70.8. Though achieving a reasonably strong score, Anlaby Road as a street is not quite as successful as Hessle Road (PQA score of 76.4) due to the Streets & Spaces Environmental Quality range of shops and quality of the building stock. The retail offer is dominated by off-licenses, video clubs, pubs, pharmacies, Green Places Safer Places community facilities and some convenience retail. The urban grain around Anlaby Road is positive from the residential areas to the north and south with good access

4.4.13 The east of the road culminates in a flyover and accommodates lower grade shops and businesses (car repairs etc) whilst the west end has a more residential character. The public realm has had recent investment and though of reasonable quality, there is a lack of tree planting, and the pavements are cluttered with signage and traffic management features. As a result Anlaby Road does not score very well under the heading of “Streets and Spaces”, largely reflecting the need for it to function as a street in and of itself and not just as a conduit of traffic into the city centre.

4.4.14 There are a number of mid-Victorian imposing terraces from the 1840s-70s but these are poorly maintained. A good example of high quality Victorian building stock on Anlaby The street is dominated by the cars in places Road is Clyde Terrace to the south near the flyover adjoining the notable St. Matthew’s church which is a landmark for the road making the area around the flyover all the more suitable for a focus. These elements combined give Anlaby Road a strong sense of character and identity.

Evidence Base Report 39 Area 2A: Coltman Street 2A: Coltman Street The Basics 100 90 Ability to Change Character & Identity 4.4.15 Coltman Street achieved a Place Quality Assessment score of 80 70 73.1, the highest of any of the residential character areas in the 60 50 whole Newington & St. Andrew’s area. It is bound to the north 40 Shops & Services Getting Around 30 by Anlaby Road, to the east by Rawling Way, a major road, 20 and to the south by Hessle Road. The western boundary is less defined and is mostly determined by the perceived drop in the

Streets & Spaces Environmental Quality quality of the general built environment.

Green Places Safer Places 4.4.16 Coltman Street appears broadly successful with a variety of stock, the general quality high. In particular, the area features some fine examples of mid-Victorian lower middle class housing fortunately saved by a rehabilitation scheme in the 80s. Many of these houses remain whilst the area to the east has been largely redeveloped with flats and more contemporary forms of housing. The proportion of this mediocre type of housing has had an impact on the sense of identity of the area – there’s something of a sense that these schemes could be anywhere. Also, Coltman Street itself has the potential to be a strong axis with character on a par with St. George’s Street but is currently not achieving its potential. These factors combined result in the relatively low score achieved under the heading of “Character and Identity” in the PQA.

Example of mid-Victorian terraces in the Coltman Street Area 4.4.17 The area lacks significant provision of green spaces and though there are some very positive amenities, such as West Park, adjacent to the area, connections are weak and neighbourhood provision is limited. The general standard of community facilities and the available open spaces appears to be quite strong. The quality of the public and private realm (front gardens) is quite weak, with maintenance levels an issue. This detracts from the perceived image of the area. Connectivity is an issue in some of the newer developments as they are typically small enclaves accessed off cul-de-sacs, which fail to link through to each other. As a result this area presents a solid barrier between the study area and the city centre of Hull. However, general connectivity scores well as most parts of the character area connect quickly and easily to Coltman Street itself which links easily through to Hessle Road. Unsuccessful interface of 60s council housing with gables of historic terraces

Evidence Base Report 40 2B: Boulevard South Area 2B: Boulevard South The Basics 100 90 4.4.18 Boulevard South is among the lowest scoring of the character Ability to Change 80 Character & Identity 70 areas, with a score of 48.9. Boulevard itself is a wide tree-lined 60 avenue originally laid out in 1870. Boulevard is one of the most 50 40 striking features within the entire study area. There was an Shops & Services Getting Around 30 20 unfulfilled scheme to link it up with Princes Avenue and so provide a grand boulevard to the west of town. The street has plenty of large late 19th century terraced housing with good Streets & Spaces Environmental Quality detail.

Green Places Safer Places 4.4.19 Though the area benefits from Boulevard and Hessle Road, it is internally problematic with a fragmented urban structure and poor detailing. Part of this area contains remnants of the historic urban fabric with many sites already cleared, resulting in a sense of abandonment and general dereliction. It is these components which result in a very low score under “The Basics” and “Streets and Spaces”. Elsewhere in the area, the historical pattern has been replaced by Radburn type layouts. This typology is highly problematic in terms of connectivity, and impacted on the “Getting Around” results.

4.4.20 There are some positive community buildings within the area giving it something of a sense of character and identity. Safety and environmental quality are highly problematic, not helped by the partially cleared nature of parts of the character, the Radburn style layouts and generally weak maintenance levels. There is a positive edge between this neighbourhood and the recreation grounds as well as a pedestrian link through the open space.

Positive footpath connection to public open space

Evidence Base Report 41 The Basics 2C: Boulevard North Area 2C: Boulevard North 100 The90 Basics Ability to Change 100 Character & Identity 80 4.4.21 Boulevard North scores substantially better than Boulevard 90 70 Ability to Change Character & Identity 8060 South, with a score of 66.7. The area is bound to the north by 7050 the railway line, to the east by Boulevard, to the south by 6040 Shops & Services Getting Around 5030 Gordon Street and to the west by the rugby ground. The 4020 Shops & Services Getting Around 30 predominant urban typology here is early 20th century terraced 20 housing with a large number of very dense court terraces, Streets & Spaces Environmental Quality typically with very small blocks, resulting in a very intense

Streets & Spaces Environmental Quality urban environment. This is reflected in the low scores under

Green Places Safer Places “The Basics” and “Streets and Spaces”. The provision of green spaces is highly limited and the only space there is – the rugby Green Places Safer Places ground - is not used as an open space. Connections to West Park are difficult minimizing its potential positive influence. The main asset in this area is Boulevard, with the rugby ground and housing around it offering substantial potential for redevelopment.

Typical example of a tight and hard street The Boulevard is characterised mainly within the character area by its tree-lined streetscape

Evidence Base Report 42 2D: Hessle Road

4.4.22 Hessle Road scores 76.4 in the Place Quality Assessment, and The Basics Area 2D: Hessle Road 100 is a vibrant and successful district centre serving a catchment The Basics 90 100 well beyond Newington & St. Andrew’s. The scale of the centre Ability to Change 80 Character & Identity 90 Ability to Change 70 Character & Identity is positive; the trees provide a strong sense of enclosure and 6080 5070 contribute to the positive image of the retail centre. However, 4060 Shops & Services Getting Around many of the buildings are in poor condition and in need of 3050 2040 façade treatment. Shops & Services Getting Around 30 20 4.4.23 There are a number of buildings of note on Hessle Road, which Streets & Spaces Environmental Quality help to provide a sense of character and identity, including a Streets & Spaces Environmental Quality number of public houses, such as the Vauxhall Tavern and the Green Places Safer Places Alexandra Hotel. On the corner with Coltman Road there is the

Green Places Safer Places impressive Premier Store and opposite the notable Romanesque Primitive Methodist chapel signalling a gateway into the shopping street. This could be further improved by potential new development around Wellsted Street.

4.4.24 The public realm and signage let the centre down in many places but the quality of these is not inconsistent with the surrounding residential neighbourhoods. On the whole, the area scores average to good on all themes with potential improvements being to add a greater diversity of offer, and in particular more destinations along the length of the street to reinforce its primacy as the main district centre.

Positive enclosure and activity on This end of Hessle Road has a less Hessle Road successful character

Evidence Base Report 43 Area 3A: Hawthorne Avenue East

The Basics 100 90 3A: Hawthorn Avenue East Ability to Change 80 Character & Identity 70 60 4.4.25 Hawthorn Avenue East scores a very moderate 60.7 in the 50 40 Shops & Services Getting Around Place Quality Assessment. The area has a fairly homogenous 30 20 building stock dating from the late 19th- early 20th centuries. The urban form is internally consistent, but quite different to the

Streets & Spaces Environm ental Quality surrounding areas and clearly shaped by distinct boundaries, such as the railway line to the southeast and Anlaby Road to Green Places Safer Places the north. Behind Hawthorn Avenue the picture changes somewhat, with a relatively outdated stock with a product which does not meet contemporary market expectations, in terms of size, density and amenity space.

4.4.26 This is the area most dominated by court terraces. These terraces were some of the first ones to be built as working- class houses in the late 19th century. Many families lived in pedestrian-only terraces some twenty feet in width, running at right angles to the main street, with six to ten houses on either side, ending with a wall or fence dividing it from the properties running off the next parallel through street. This cul-de-sac housing is distinctive to Hull and the typology was used extensively even up to the early 20th century. The form, due to The houses are very small and streets the small size of houses and lack of private amenity space, is have a hard feel with no private space inflexible and unlikely to be desirable in the future (on the scale on which it is available); thus the poor score for the area’s “Ability to Change” and also “The Basics”.

4.4.27 Permeability and legibility are compromised due to unclear block structure (L-shaped streets). Not all the streets are characterised by back of pavement housing or the “court” terraces; some are wider and feature small front gardens, sometimes with rather larger properties (as, for example on Melrose Street, where Gateway’s refurbishment programme has been active).. Generally the area feels quite hard and does not have enough trees, scoring quite poorly against “Streets and Spaces” and “Green Places”. There are some small more recent infill schemes backing onto the railway. Typical court terrace Plane Street and George Street are tree-lined and give a much more positive impression. Hawthorn Avenue itself contains some shops/services in amongst the housing. There is one small play space, which appears successful and well maintained.

Evidence Base Report 44 3B: Hawthorn Avenue West

Area 3B: Hawthorne Avenue West The Basics 4.4.28 Hawthorn Avenue West scores least well of all the character 100 90 areas in the Place Quality Assessment (46.4). The area is Ability to Change 80 Character & Identity bounded to the west and south by the railway line and to the 70 60 north by Anlaby Road. This was an area of historic housing 50 40 similar to Hawthorn Avenue East, but has been redeveloped in Shops & Services Getting Around 30 20 a fragmented way and contains a number of large light industrial plots and a significant development site (Amy Johnson - a former school site). On balance the area has very Streets & Spaces Environmental Quality few elements (landmarks, significant buildings, distinctive urban form or public realm) which would provide the area with Green Places Safer Places a sense of place or identity. The urban structure here is particularly weak due to gaps in the fabric, inappropriately low densities and lack of permeability. It also includes the travellers site to the south.

4.4.29 Overlooking is generally poor and there are many dead ends which impact on the feeling of safety. There is a general lack of green spaces and the general environmental quality is very weak. Although this area is currently failing for all the above reasons it has a lot of opportunity to improve in the form of underused and vacant sites, as well as some strengths such as the new Rainbow Centre and Wheeler Primary School, which is an impressive Victorian building. It is also worth noting that significant redevelopment is already proposed.

Light industrial plot

Wheeler Primary School

Evidence Base Report 45 Area 4A: Dairycoats East 4A: Dairycoates East

The Basics 100 4.4.30 Dairycoates East scored 68.1 in the Place Quality Assessment. Ability to Change 80 Character & Identity The northern boundary of the area is the railway line, the east 60 is the recreation ground, the south is Hessle Road which offers 40 Shops & Services Getting Around good access to shops and services whilst the west is defined 20 by the change of development period and urban structure. St. George’s Road is another tree lined boulevard laid out in the Streets & Spaces Environmental Quality 1870s. This is one of the strongest north-south connections

Green Places Safer Places within Newington and Saint Andrew’s as it crosses the railway line at the same level and links onto Anlaby Road. The general standard of the public realm is weak and there is substantial room for improvement.

4.4.31 Most of this area was redeveloped during the 1980s to contemporary cul-de-sac clusters as a social housing block. Although they are distinctive in comparison to the rest of the study area, the quality is mediocre and their aesthetic value is limited. This type of housing fails in terms of “The Basics”, because permeability (links through the area) is poor, the buildings do not interact well with the street, and the use of land is quite Typical example of recent development inefficient. The open space shows signs of within the area antisocial behaviour 4.4.32 There are a number of distinct positives, such as the access to facilities on Hessle Road and to open spaces (the recreation ground). The current interface with the recreation ground is poor and the general quality of this space is low. The sense of safety can also be low, partially driven by some poor quality unobserved spaces - see the image to the right.

Evidence Base Report 46 4B: Dairycoates West Area 4B: Dairycoats West 4.4.33 Dairycoates West scores quite poorly in the Place Quality The Basics Assessment (48.9). The area is bounded to the north and east 100 by the railway line, to the south by Hessle Road the industrial Ability to Change Character & Identity 80 area and to the east by recent residential developments. The 60 area is characterised by a fragmented urban fabric with an 40 Shops & Services Getting Around inappropriate mix of uses including light industry and large- 20 scale recreation (Rock City). This incongruous mix and the nature of the building stock result in a very poor score for both Streets & Spaces Environmental Quality “The Basics” and in particular the area lacks any sense of

Green Places Safer Places place or identity.

4.4.34 The area also includes some small pockets of residential developments, the quality of which is poor. The environmental quality of this area is extremely poor. Streets and spaces are poorly overlooked and the public realm is very weak. On a positive note the area enjoys easy access to facilities on Hessle Road and has reasonable access to open spaces.

Signs of abandonment and dereliction in poorly Inappropriate mix of uses contributes to poor overlooked spaces quality of place

Evidence Base Report 47 5. Industrial Area Area 5: Industrial Area 4.4.35 The industrial area to the south of Hessle Road is naturally a

The Basics different environment to the largely residential character areas 100 explored above. The area is bounded to the north by Hessle Ability to Change 80 Character & Identity Road, Clive Sullivan Way to the south and east and the railway 60 line to the west. 40 Shops & Services Getting Around 20 4.4.36 The general local environmental quality is poor, but for an industrial area, the urban structure is positive, reflecting the Streets & Spaces Environmental Quality historical pattern of streets which has largely been retained. The area is compact and doesn’t feature any large derelict Gre en Places Safer Places plots. The general streetscape is weak, and there is no provision of amenity spaces, and overlooking is problematic, but again this is all perhaps unsurprising for an industrial area. That being said, there may well be scope for environmental enhancements to improve the appeal of the area as a business location.

4.4.37 A few earlier industrial buildings remain, including some of the distinctive chimney-stacks of the Fish Curing works; however, the area is generally devoid of character and distinctive landmarks. In the long term, the future role of the area in the context of a changing focus of employment and economic activity may need to be reviewed and there may be some scope for diversifying the nature of employment uses, especially closer to Hessle Road. Further strengthening of linkages from Newington & St. Andrew’s could be explored with a long term aspiration being to improve access to the river. A full review of the characteristics and functioning of this area is provided in Chapter 8: Local Economy and Business.

The internal streets feel deserted and Old industrial buildings are mixed with new public realm is poor sheds

Evidence Base Report 48

4.5 Residential Offer

Understanding & Using Residential Offer

4.5.1 The concept of residential offer emerged through work undertaken by Tribal’s Urban Studio team for the Northern Way. We defined Residential Offer as: “the composite of housing factors – including range, quality and cost – which together inform an individual’s or household’s local and regional locational choices”. Based on this understanding we identified a series of measures to capture the impact of the different components, which can help us understand the range, quality and cost offer of individual localities. We briefly consider each of these below in turn.

4.5.2 Range is primarily driven by the understanding that a successful community or locality is one which is characterised by a diverse housing offer. Monotony of provision, whether it is terms of the type of housing, or the tenure, is thus considered undesirable. In exploring range, we consider three indicators: Accommodation Type (Census 2001, KS16), Tenure (KS18) and Council Tax Bandings (2004, VOA). The latter is useful as it introduces something of a measure of the range of quality of the stock: though it is based on assessments dating back to the early 1990s.

4.5.3 Quality, where resources permit, as here, is assessed using the Place Quality Assessment. Alternatives or proxies (such as the Housing in Poor Condition Indicator in the Index of Multiple Deprivation, general demand indicators, SAP ratings and so on) do exist, but they are somewhat limited.

4.5.4 Cost is always going to be a highly compelling indicator of the value which households place on a given asset. Built into the price of a home is of course more than just the housing product itself. Rather, it is the whole package, as individuals tend to buy into an area and its wider offer and not just the unit itself.

4.5.5 We also try to distinguish Affordability, by assessing Cost in terms of what we term local affordability (local home prices: local household incomes); local authority wide affordability (local home price : local authority household incomes (in this case Kingston upon Hull)) and wider affordability (local home prices : wider household income: in this case taking the Reference Area – i.e. Kingston upon Hull and East Riding.

Newington & St Andrew’s Residential Offer

4.5.6 In this section, we consider the results for Range and Cost for Newington & St Andrew’s, before summarising the results of all three themes (Range, Quality & Cost) and thus the overall Residential Offer of the locality and its Character Areas.

Range

4.5.7 We start by looking at the wider reference area within which Newington & St. Andrew’s sits. A clear urban-rural split is evident, with rural areas tending to score better against the “Range” indicators. In the case of Hull, the score tends to reflect higher than average concentrations of social rented tenure.

Evidence Base Report 49 Figure 4-3 Range – the reference area

4.5.8 Looking more closely at Hull and its immediate environs, it becomes clear that while there are many areas where the range can be considered as poor, there are also localities within the urban envelope which provide a diverse range. Examples include Beverley to the north, and there is something of an arc (not uninterrupted) running from Cottingham in the northeast through Willerby, Kirk Ella, Anlaby and Hessle. The weakest range is concentrated in inner Hull.

Figure 4-4 Range – the study area context

4.5.9 Then closing in on the immediate locality surrounding Newington & St Andrew’s, we can see that the locality begins to form something of a bridge between the better “Range” offer to the west (towards Anlaby and Hessle) and the relatively poor offer towards the centre of Hull. At this level, it is also clear that there is something of a north south differentiation within our red line, with those areas to the north of Anlaby Road offering a somewhat better Range than those to the south.

Evidence Base Report 50 Figure 4-5 Range – the study area

Cost 4.5.10 Cost and affordability, as discussed above, are arguably among the best indicators we have of how the market interprets the whole range of factors that help to inform individuals’ and households’ local choices. The data we have used is weighted to understand the role of a small area (Output Area) to three different markets: the very local market (essentially the existing residents), second at the wider local authority level, and third at a wider reference area (this could be a functional housing market area or city region etc.).

4.5.11 Cost and affordability are less of an issue in Hull than elsewhere in the North and are generally quite low by national comparison. This can be interpreted as a strategic asset for the wider city region. Within the immediate reference area affordability levels average out at 4.22, although there is a substantial variation between the East Riding (5.13) and Hull (3.06). For reference, a typical level at which affordability can be said to be problematic is 3.25. Clearly by this measure, the East Riding can be said to suffer from affordability pressures. From work LDY have done for the Northern Way, this pattern is quite typical with many of the rural hinterlands of the North’s cities suffering affordability pressures, partially due to the quality of the offer, its restrained supply and also the presence of dual labour markets, typically, with a local rural labour market competing with a city based labour market.

Figure 4-6 Affordability – The Reference Area

Evidence Base Report 51 4.5.12 Zooming in to look at the area around Hull, we can very quickly see that the most unaffordable locations lie in the rural hinterland again. However, it also identifies a number of “hotter” locations within Hull itself. Pockets of less affordable stock are evident to the northeast of the city, some very small pockets in the city centre, and to the north and west of our study area. Generally though, these do not compare with the levels seen in the East Riding.

Figure 4-7 Affordability - Hull

4.5.13 Focussing in on the study area, it is immediately evident that the stock is both low-cost and comparatively affordable. Some differentiation is evident, largely connected with newer stock, such as in Dairycoates East, to the north of Coltman Street and also large parts of Albert Avenue West. Some slightly hotter markets are evident to the immediate west (Anlaby) and southwest (to the south of Pickering Park).

Figure 4-8 Affordability – The Study Area

Evidence Base Report 52 The nine character areas 4.5.14 So taking the above overview of quality, range and cost into account, what can we say about the overall Residential Offer of Newington & St Andrew’s? To assist us, we summarise the key points for each theme, but aggregated up to the level of our main character areas.

Range 4.5.15 The Range within each of the character areas is consistently poor, with only a moderate variation in the offer evident, namely those character areas to the north of Anlaby Road scoring better than those to the south. This differential performance is consistent with the analysis evident from the following chapter, on People, Skills & Communities.

Figure 4-9 Range - the nine character areas

Cost 4.5.16 There are some significant variations within Newington & St. Andrew’s, although as noted above the overall affordability levels, both locally and in a wider city regional context are relatively modest, with all the character areas falling well below the levels at which affordability is typically considered to be problematic (a ratio of 3.25 is typically cited).

4.5.17 The most affordable stock is concentrated in the core of Newington & St. Andrew’s, in particular Hawthorn Avenue East, Dairycoates, and Boulevard. If we consider the Cost data alongside the quality date from the Place Quality Assessment, we can see that in some cases, such as the Albert Avenue and Coltman Street, better quality is reflected in slightly poorer affordability ratios, as might be expected. In other cases, however, such as in Boulevard North and Dairycoates East, better quality scores (although lower than the ones mentioned above) are not reflected in the cost scores.

Evidence Base Report 53

Figure 4-10 Cost – the nine character areas

Quality 4.5.18 Quality, as discussed in the earlier part of this chapter, does vary within the study area. Through none of the character areas score in the top category, three stand out as having the best fundamental building blocks of high quality places; namely the two main roads, and the Coltman Street area. At the opposite end of the scale, we have identified areas which can be described as very weak – Hawthorn Avenue West, Dairycoates West, and Boulevard South.

Figure 4-11 Quality – the nine character areas

Evidence Base Report 54

Conclusions 4.5.19 The table below summarises the key strengths and weaknesses of each of the main character areas in Newington & St. Andrew’s. In general, the range is poor, quality is mediocre (albeit with significant positive building blocks) and cost/affordability is accessible.

Table 4-2 Summary of Residential Offer results for the nine character areas Range Quality Cost A. Albert Ave W 1 B. Albert Ave E C. Anlaby Road A. Coltman St B. Boulevard South 2 C. Boulevard N D. Hessle Road A. Hawthorn Ave E 3 B. Hawthorn Ave W A. Dairycoates E 4 B. Dairycoates W Area 5 Industrial Area

Most Diverse / Affordable / / Highest Quality

4.5.20 The results suggest different styles of interventions, which may suit different parts of the study area.

4.5.21 The first is the two Albert Avenue character areas, which have a slightly better range, good place quality fundamentals, and are not quite at the bottom of the cost scale, though nonetheless affordable in a wider context. These areas could potentially benefit from the influence of surrounding areas and have access to a potentially positive local centre. Some intervention is required and the sense is that is likely to concentrate on addressing the public realm and the local environment. Opportunities to break up the long blocks might be considered. This sort of area offers the possibility of a relatively small amount of investment yielding greater private sector investment. Refurbishment appears to be the key option here.

4.5.22 The second is the two main roads, which though not without their problems, provide a lot of structure to the wider area, and the future success of the whole area is intimately bound up with theirs. Some consolidation may be required, but environmental enhancements, along with retail support programmes, are possible interventions.

4.5.23 The third is those areas where the situation is less clear. The stock is weak and place quality is poor. Many positive elements exist, which could be capitalised upon, although significant investment will be required. Hawthorn Avenue East, Boulevard North and Dairycoates East would fall into this group.

Evidence Base Report 55 4.5.24 The fourth and final category is those areas which are undergoing substantial change and investment, where much of the urban fabric has been disrupted. These areas offer the potential to introduce a new type of offer and in some cases to undo previous unsympathetic interventions. Hawthorn Avenue West, Dairycoates West and Boulevard South all fit into this category.

4.5.25 The industrial area is somewhat different, but as mentioned above, it could do with an area based approach to the physical environment to ensure its future competitiveness as a business location, with some possibilities that the mix of economic activities could be diversified.

Evidence Base Report 56 5 People, Skills and Communities

5.0.1 This chapter sets out a profile of Newington & St. Andrew’s people, their skills and the community. We consider initially the profile of the area as a whole, before looking at each of the character areas in more detail.

5.1 Method

5.1.1 To gain a more detailed understanding of the socio-economic characteristics of the smaller areas within the Newington & St. Andrew’s we have looked at data at the lowest geographic level available (output area). Within the communities section the data for deprivation is only available at Lower Super Output Areas (LSOAs). We have examined data sets relating to:

• People –understanding the local population and age structure • Skills – appreciation of the local labour market • Communities – overview of local community characteristics.

5.2 Newington & St Andrew’s

5.2.1 This section provides an overview of what the socio-economic issues are for the Newington & St. Andrew’s study area looking Headlines: specifically at population, age structure, economic activity rate, unemployment, industrial sectors and qualifications and skills. ƒ High proportion of people The main points are summarised in the ‘Headline Box’ on the in the 0-16 and 25 – 44 left of the page. age groups – young economically active. People Population ƒ Low proportion of people in the 65+ age group. 5.2.2 The overall population of Newington & St. Andrew’s in 2001 ƒ Economic activity rate stood at 19,286. The Neighbourhood Renewal Assessment significantly below the highlights that migration has been the major driver of recent regional average. population change in both Hull and East Riding. Whilst the ƒ High proportion of people population of Hull has declined, East Riding's population has aged 16 – 74 who are long grown. Population changes, including outmigration from the term unemployed. city, have resulted in a large reduction in population between ƒ Manufacturing is the main 1991 to 2001 from the Newington ward (15.5%) and St industrial sector. Andrew's ward (37.8%). The overall population of the city has ƒ High proportion of people increased in recent years, mainly due to A8 immigration, with with no formal many immigrant workers finding accommodation in the qualifications Newington & St. Andrew’s area. The figure below shows how ƒ Low proportion of people population is distributed across our nine main character areas. with university level education. Figure 5-1 Shows the population for the different character areas

5000 4500

4000 3500 3000 -21 Showing the qualifications and skills of Diarycoates We 2500 2000 15 0 0 10 0 0 500 0 Aven Aven Colt Boul Boul Aven Hawt Dair Dair Albe Hawt Stre No So Av Al We Ea rt enue ycoates ycoates man bert evard evard ue ue East uth ue East rth horne horne et st st

Evidence Base Report 57

Age Structure

5.2.3 Newington & St. Andrew’s population is generally younger with higher levels of people in the 0-16 and 25-44 age groups. With regards to the two key age groups of 25–44 and 45–64 that form the economic backbone of an area, the study area exhibits levels that are generally in line with those figures seen at the regional level. However, the study area has a lower proportion of older persons in the 65+ category.

Skills

Activity Rates

5.2.4 Newington & St. Andrew’s suffers from a relatively low economic activity rate, suggesting a structural employment challenge. Within the categories for people that are economically active whether it is part time, full time, self- employed, full time student or unemployed, the economic activity rate for Newington & St. Andrew’s stands at 61.7%. Whilst this is marginally below the figure for the City of Kingston upon Hull, this figure lags well behind the Yorkshire and Humber region figure of 65.1%.

Unemployment

5.2.5 The overall unemployment rate for the Newington & St. Andrew’s area (8.5%) is significantly higher than both the reference area (4.6%) the Yorkshire and the Humber figure (3.7%). Of those who are unemployed, the percentage of people who are long term unemployed (35.1%) – this is much higher than the levels for the reference area (32.8%) and the Yorkshire and the Humber(31.5%).The figure for young people unemployed lies between the levels for the reference area (25.3%) and regional figures (27.4%).

Industrial Sectors

5.2.6 The main industrial sectors in which residents of Newington & St. Andrew’s work are manufacturing (22.8%) and wholesale and retail trade (20.5%). The area also has a higher proportion than the regional average for the Hotel and Catering sector (7.1%). However there is a lower than regional average in the real estate, public administration and education sectors.

Qualifications and Skills

5.2.7 Qualification levels directly impact upon future labour market opportunities and levels of formal qualifications can be an indicator of ability to access new occupations and to higher income employment. The percentage of people in the Newington & St. Andrew’s area with no qualifications (50%) is higher than the regional average of 33%. The Newington & St. Andrew’s area also has a lower proportion of people with university level education; at 8% this is dramatically below the figure for Yorkshire and the Humber (16%). The graph below highlights the qualification levels of people within the study areas:

Evidence Base Report 58 Figure 5-2 Qualification levels of Residents of the Newington & St. Andrew’s ward

80%

70% 60% 50% % 40% 30%

20%

10% 0%

Area 1 Area 2 Area 3 Area 4 Area 5 NaSA Reference Y&H Area

No qualifications (%) Level 4/5 (%)

Communities

5.2.8 The two key aspects examined to cover the theme of communities are:

1. Indices of Multiple Deprivation 2. Area Classification of Output Areas

Both of these factors have been mapped to show how the study area spatially relates to its surroundings.

Indices of Multiple Deprivation Table 5-1 Indices of multiple deprivations

* These groupings of LSOAs approximately relate to the Character Area boundaries.

Evidence Base Report 59

5.2.9 With very few exceptions, for almost every category of deprivation, Newington & St. Andrew’s falls within the 5% most deprived areas nationally. The sole significant exception to this is the “barriers to housing” indicator. However, this simply reflects the low cost of the stock along with good access to primary services and should not be interpreted to mean that the stock is of sufficient quality or necessarily represents good value for money. The rank of scores for crime is particularly poor with the whole of Newington & St. Andrew’s in the 3% most deprived. Albert Avenue West scores rather well in comparison to the other LSOAs, however on closer inspection a majority of this LSOA falls to the west of the railway line and therefore outside the Newington & St. Andrew’s area.

Area Classifications of Output Areas

5.2.10 This typology classifies all of the Output Areas in the 2001 Census into a set of 7 super-groups. These super-groups are intended to give a flavour of the broad characteristics of a small locality, so that it can be compared and grouped with other similar areas. The 7 super-groups are: blue collar communities, city living, countryside, prospering suburbs, constrained by circumstances, typical traits and multi cultural.

5.2.11 The map below shows a number of clear patterns within the wider reference area (City of Kingston upon Hull and East Riding of Yorkshire). The green output areas indicate the largely rural nature of large parts of the East Riding, while the red areas indicate those prospering suburbs/communities, which are widely interspersed across the East Riding, but in particular in a band surrounding Hull, and in particular to the north and west. By contrast, the urban areas of Hull contain a much wider variety of community types, but include super- groups typically associated with communities under pressure (blue). Figure 5-3 Reference area classifications

5.2.12 To further understand the structural components of Hull itself, the map below focuses more on the local context for the study area. This illustrates that the city centre contains a mix of “constrained by circumstances”, “city living” and “typical traits”. To the north of the city centre there are some bands of blue- collar and multicultural communities. There are some small pockets of “prospering communities”, especially to the west.

Evidence Base Report 60

Figure 5-4 Context area classifications

5.2.13 The map of the study area gives a better understanding of what the main classifications are for the different character areas. This clearly highlights a north-south divide within the study area. The main component of the area south of the railway is constrained by circumstances and the north is predominantly typical traits, however both have an even mix of blue-collar communities. The map also shows that throughout the area there are small tracts of multicultural communities.

Figure 5-5 Context area classifications

Evidence Base Report 61 5.3 The 9 Character Areas

5.3.1 This section outlines the profile of the 9 character areas identified under the themes of people, skills and communities to give a more detailed appreciation of the different characteristics of the smaller areas and the strategic role that they play within the wider Newington & St. Andrew’s area.

Area 1A: Albert Avenue West < 16 35.00 30.00 5.3.2 This section looks at how the Albert Avenue West character 25.00 area, to the north of Anlaby Road, performs against the criteria 20.00 for people, skills and communities. 15 . 0 0 65+ 16 - 2 4 10 . 0 0 People 5.00 0.00 Population and Age Structure 5.3.3 This is the largest of the nine character areas, constituting over a quarter of the population of the Newington & St. Andrew’s area (25.1%). Similar to the Newington & St. Andrew’s 45 - 64 25 - 44 averages, Albert Avenue West has a high proportion of people Ref erence A rea A lb ert A venue W est in the 0 –16 and 25-44 age groups, whilst having a low

NaSA Y o rkshire and Humber proportion of people in both the 45-64 and 65+ age groups, as the graph beside illustrates: Skills

Unemployment and Activity Rates 5.3.4 The unemployment rate for Albert Avenue West (5.9%) is the lowest within the Newington & St. Andrew’s study area. However, this figure remains much higher than the unemployment rate for both the reference area (4.6%) and the region (3.7%). Of those people unemployed, there are significant levels of youth (27.1%) and long term unemployment (27.1%). 5.3.5 Albert Avenue West has the highest economic activity rate (68.8%) within Newington & St. Andrew’s and is over 3 percent higher than the regional average. Albert Avenue West has the largest proportion of people currently employed on a part time and full time basis, with the levels again exceeding the regional average. With regard to economic inactivity, the main constituents of this are the percentage of people who are retired (9.3%) and looking after home/family.

Industrial Sectors and Qualifications and Skills 5.3.6 The main industrial sectors in Albert Avenue West are similar to those across Newington & St. Andrew’s, with the 3 main industrial sectors being: manufacturing (21.2%), wholesale retail (19.3%) and health and social work (11.9%). Albert Avenue West has the highest percentage of people across the study area employed in the education sector (6.7%). 5.3.7 Albert Avenue West has the highest proportion of people attaining no formal qualifications (45%), which lies significantly above the Newington & St. Andrew’s (33.6%) and regional average (9.9%). However, this character area has the highest proportion of people in the Newington & St. Andrew’s study area that have furthered into higher level education (18.07%). Whilst this figure is in excess of both the Newington & St. Andrew’s (14.1%) and regional (16.9%) average, it remains lower than the reference area average,

Evidence Base Report 62 Figure 5-6 Showing employment by sector for Albert Avenue West

5.3% 1.3% 0.2% Agriculture; hunting; forestry 11.9% 21.2% Fishing Mining & quarrying Manufacturing Electricity; gas and water supply 6.7% Construction 0.3% Wholesale & retail trade; repair of motor vehicles 4.4% Hotels and catering 8.1% Transport storage and communication Financial intermediation 7.7% Real estate; renting and business activities Public administration and defence 1.5% Education Health and social work 6.7% 19.3% 5.4% Other

Communities

Indices of Multiple Deprivation

5.3.8 Albert Avenue West is the least deprived of all the character areas identified within the study area. The three main LSOAs that fall within the Albert Avenue West character area also cover areas outside the study area, particularly to the north west of the study area.

5.3.9 Despite this area performing better than the rest of the study area, all the LSOAs within Albert Avenue West still fall within the bottom 5% for living environment, within the bottom 10% for crime and the bottom 20% for education skills and training.

Area Classifications of Output Areas

5.3.10 Albert Avenue West predominantly contains a mix of blue-collar communities and typical traits. There is a very small proportion of multi cultural community to the south east of the character area. The adjacent area outside the north-west boundary of the study area largely consists of typical traits.

Evidence Base Report 63 Area 1B: Albert Avenue East < 16 35.00 5.3.11 This section looks at how the Albert Avenue East character 30.00 area, to the north of Anlaby Road and adjacent to West Park, 25.00 performs against the criteria for people, skills and communities. 20.00 15 . 0 0 65+ 10 . 0 0 16 - 2 4 People 5.00 0.00 Population and Age Structure

5.3.12 Albert Avenue East contains 1103 people out of the overall Newington & St. Andrew’s population (6.4%). The age profile of this area is similar to the Newington & St. Andrew’s study area 45 - 64 25 - 44 for those in the <16, 16-24 and 45-64 age groups. This area Ref erence A rea A lb ert A venue East has a higher proportion of people aged 65+, than that seen in

NaSA Y o rkshire and Humber the wider Newington & St. Andrew’s area. However, this figure still falls below both the average for both the reference area and regional averages. The graph to the left shows the age structure for Albert Avenue East:

Skills

Unemployment and Activity Rates

5.3.13 Albert Avenue East, despite having a lower unemployment rate (7.1%) than the overall Newington & St. Andrew’s average (8.5%), has a higher unemployment rate than the average for both the reference area and the region. Of those people who are unemployed, the main problems are with long-term unemployment (40.7%), youth unemployment (22.2%) and those who have never worked (18.5%).

5.3.14 Whilst the economic activity rate (57.1%) is similar to the Newington & St. Andrew’s average (57.7%), it still lags behind the regional average (65.1%). The percentage of people that are economically inactive is much higher than the regional average due to the area having a reasonably high level of retired people (12.7%), those looking after home/family (9.5%) and those who are permanently sick/disabled (9.4%).

Industrial Sectors and Qualifications and Skills

5.3.15 The main industrial sectors in Albert Avenue East are similar to across Newington & St. Andrew’s, with the 3 main industrial sectors being: manufacturing (19.5%), wholesale retail (17.1%) and health and social work (13.1%). Albert Avenue East has the highest percentage of people across the study area employed in the real estate and renting sector (10.1%).

5.3.16 This area performs poorly with regards to the level of educational attainment and skills. In line with the overall Newington & St. Andrew’s figure, Albert Avenue East has a high proportion of people that have not obtained any formal qualifications. This area has a low proportion of people that go onto further education (11.1%), this figure lags behind the Newington & St. Andrew’s, reference area and regional averages.

Evidence Base Report 64 Figure 5-7 Showing employment by sector for Albert Avenue East

1.6% 5.3% Agriculture; hunting; forestry 13.1% 19.5% Fishing Mining & quarrying Manufacturing Electricity; gas and water supply 4.8% 1.6% Construction Wholesale & retail trade; repair of motor vehicles 2.7% 6.4% Hotels and catering Transport storage and communication Financial intermediation 10.1% Real estate; renting and business activities Public administration and defence 0.8% Education 17.1% 8.3% Health and social work Other 8.8%

Communities

Indices of Multiple Deprivation

5.3.17 The overall rank IMD score for Albert Avenue East is within the bottom 5% of deprived areas nationally. The area generally falls under the bottom 10% of areas nationally for income, employment, health deprivation and disability, and education skills and training. Crime is an aspect of particular concern for the area as it falls within the bottom 1% nationally. The area scores well in relation to barriers to housing and services. However, as previously mentioned, this is more likely to reflect that local housing is relatively cheap and affordable rather than the quality of local housing and services being very high.

Area Classification of Output Areas

5.3.18 The research into area classification of the output areas that make up Albert Avenue revealed the main structural component to be typical traits. To the western edge of the area there is a mix between blue collar communities and constrained by circumstances.

Evidence Base Report 65 Area 2A: Coltman Street 5.3.19 This section looks at how the Coltman Street area, to the east of the study area, performs against the criteria for people, skills and communities in comparison to the overall Newington & St. Andrew’s area, the reference area and the region. < 16 35.00 People 30.00 25.00 20.00 Population and Age Structure 15 . 0 0 65+ 10 . 0 0 16 - 2 4 5.3.20 The population of Coltman Street is 986, comprising 5.7% of 5.00 the Newington & St. Andrew’s area. This area has a higher 0.00 proportion of people in the 16 – 44 age group than the reference area, whilst having a low proportion of people in the <16, 45 –64 and 65+ age groups.

Skills 45 - 64 25 - 44 Ref erence A rea Co lt man St reet Unemployment and Activity Rates NaSA Y o rkshire and Humber 5.3.21 The overall unemployment rate for Coltman Street (10.5%) is the highest within the Newington & St. Andrew’s area. This is significantly above the already high level for Newington & St. Andrew’s (8.5%) and the region (3.7%). The key problems for the area are youth unemployment (38%) and those that are long term unemployed (34.2%).

5.3.22 This economic activity rate for this area is marginally above the Newington & St. Andrew’s average. The area has a low percentage of part time workers and those people who are self employed. This area has the highest percentage of those who are unemployed (10.5%) but are actively seeking work – a figure three times the regional average. The high economic inactivity rate for this area is largely due to the proportion of people who are in the retired and permanently sick categories.

Industrial Sectors and Qualifications and Skills

5.3.23 The two main industrial sectors in Coltman Street are wholesale and retail trade (21.3%) and manufacturing (20.7%). Added to this, Coltman Street has the highest proportion of workers in the health and social work (13.4%) and transport and storage (9.2%) sectors. Figure 5-8 Showing employment by sector for Coltman Street

4.8% 0.8% 0.8% Agriculture; hunting; forestry 13.4% 20.7% Fishing Mining & quarrying Manufacturing Electricity; gas and water supply 5.6% Construction Wholesale & retail trade; repair of motor vehicles 3.1% 5.3% Hotels and catering Transport storage and communication Financial intermediation 6.4% Real estate; renting and business activities 1.7% Public administration and defence Education 9.2% 21.3% Health and social work Other 6.7%

Evidence Base Report 66 5.3.24 Whilst research into qualifications and skills revealed that Coltman Street has a slightly lower percentage of people obtaining no qualifications, this figure remains considerably higher than the regional average. As for the percentage of people in further education the average for Coltman Street lags behind the Newington & St. Andrew’s wide, reference area and regional averages.

Communities

Indices of Multiple Deprivation

5.3.25 The overall IMD rank score for Coltman Street is the lowest within the study area therefore making it the most deprived area within Newington & St. Andrew’s. It is the 25th most deprived LSOA nationally and the 21st most deprived LSOA for rank of income score. The area is consistently in the bottom 1% nationally for employment, health deprivation and disability, crime and living environment.

Area Classification of Output Areas

5.3.26 When looking at the different classifications within the Coltman Street output areas, the main constituent is constrained by circumstances. The northern edge of the character area has a small portion of city living.

Evidence Base Report 67 Area 2B: Boulevard South

5.3.27 This section looks at how Boulevard South, located near to Hessle Road, performs against the criteria for people, skills and < 16 communities in comparison to the overall Newington & St. 35.00 30.00 Andrew’s area, the reference area and the Yorkshire and the 25.00 Humber region. 20.00 15 . 0 0 People 65+ 10 . 0 0 16 - 2 4 5.00 Population and Age Structure 0.00 5.3.28 The population for Boulevard South is 1075, which represents 6.2% of the overall population. The age profile for this area is largely consistent with the reference area. The area has a marginally lower proportion of people in the younger age 45 - 64 25 - 44 groups (<16, 16-24 and 25-44) than the Newington & St. Ref erence A rea B oulevard Sout h Andrew’s average. In contrast to the trends being experienced NaSA Y orkshire and Humb er across the wider study area, Boulevard South has a higher proportion of people in the 45-64 and 65+ age group, with figures that are in line or higher than the regional average.

Skills

Unemployment and Activity Rates

5.3.29 The unemployment rate for Boulevard South (8.5%) is on a par with the average for Newington & St. Andrew’s (8.5%), and higher than in the reference area (4.6%) and the region (3.7%). Of those that are unemployed there are significant levels of long term unemployed (32.8%) and those who have never worked (11.9%).

5.3.30 In terms of economic activity rates, the performance in the Boulevard South area is very weak. The percentage of people who are economically active (51.3%) falls significantly below the regional level (65.1%). This is largely due to the low proportion of people in full time employment and having the highest proportion of people looking after home/family (11%) within the study area.

Industrial Sectors and Qualifications and Skills

5.3.31 In line with the general Newington & St. Andrew’s wide trend, the main industrial sectors in Boulevard South are manufacturing (26.1%) and wholesale and retail trade (20.8%). As well as having the highest proportion of people working in the manufacturing sector, Boulevard South also exhibits higher levels of people in the construction (9.1%) and fishing (2.9%) sectors reflecting the historical industrial focus.

5.3.32 Boulevard South has the lowest proportion of people that have obtained no formal qualifications in the whole study area (20.3%). Whilst this figure is lower than the Newington & St. Andrew’s and reference area averages, it remains more than double the regional average. Despite this, Boulevard South has the lowest percentage of people that have gone onto further education (11.4%), which lies significantly below the reference area and regional averages.

Evidence Base Report 68 Figure 5-9 Showing employment by sector for Boulevard South

6.2% 2.9% Agriculture; hunting; forestry 6.8% Fishing 3.6% Mining & quarrying 26.1% Manufacturing 1.0% Electricity; gas and water supply 8.1% Construction Wholesale & retail trade; repair of motor vehicles 0.0% Hotels and catering Transport storage and communication 6.8% Financial intermediation Real estate; renting and business activities 9.1% Public administration and defence 8.5% Education Health and social work Other 20.8%

Communities

Indices of Multiple Deprivation

5.3.33 Boulevard South falls within the bottom 1% for its overall IMD score. The area is the 148th most deprived LSOA for education skills and training. The overall trends are in keeping with the Newington & St. Andrew’s trend, with Boulevard South being particularly deprived with regards to income, employment, health and disability and crime.

Area Classifications of Output Areas

5.3.34 In reference to the study area map for area classifications, the Boulevard South output areas have quite a mix of classifications for a relatively small area. The area has a large multicultural area that is surrounded by constrained by circumstances and typical traits.

Evidence Base Report 69 Area 2C: Boulevard North 5.3.35 This section looks at how the Boulevard North area, which lies < 16 35.00 close to Anlaby Road, performs against the criteria for people, 30.00 skills and communities in comparison to the overall Newington 25.00 & St. Andrew’s area, the reference area and the region. 20.00 15 . 0 0 People 65+ 10 . 0 0 16 - 2 4 5.00 0.00 Population and Age Structure

5.3.36 Boulevard North has a population of 1905 people, comprising 11.1% of Newington & St. Andrew’s inhabitants. Significantly the age profile for Boulevard North, when compared to the 45 - 64 25 - 44 regional figures, has a younger age profile with more people in the <16, 16-24 and 25-44 age groups. Ref erence A rea B o ulevard Nort h

NaSA Y o rkshire and Humber Skills

Unemployment and Activity Rates

5.3.37 The overall unemployment rate for Boulevard North (9%) is higher than the figures seen at the reference area (4.6%) and regional level (3.7%). Long term unemployment stands at 32.8%, youth unemployment 26.7% and those aged 50 and over at 14.7%.

5.3.38 Boulevard North has a below average activity rate (62.9%), which lags slightly below the regional figure (65.1%). Despite this being above the lowly Newington & St. Andrew’s average, the area has higher than regional levels of people that are unemployed seeking work and a high proportion of people who are inactive – looking after home/family (9.6%).

Industrial Sectors and Qualifications and Skills

5.3.39 In line with the trend experienced across Newington & St. Andrew’s the main industrial sectors in this area are manufacturing (24.3%), wholesale and retail trade (20.58%) and health and social work (11.6%). The area also has a notable proportion of people in real estate, renting and business (9.4%) and hotels and catering (7.1%).

5.3.40 After examining how well the area performed in terms of qualifications and skills, the Newington & St. Andrew’s wide trend of a significant proportion of people with no qualifications (28.8%) and low proportion of people going on to further education (13.6%) re-emerged. Both figures are out of line with the regional averages.

Figure 5-10 Showing employment by sector for Boulevard North

0.4% 3.9% 0.4%0.4% Agriculture; hunting; forestry 11.6% Fishing 24.3% Mining & quarrying Manufacturing 5.5% Electricity; gas and water supply Construction 2.5% Wholesale & retail trade; repair of motor vehicles 0.4% Hotels and catering Transport storage and communication 9.4% 5.9% Financial intermediation Real estate; renting and business activities 1.4% Public administration and defence Education 5.9% Health and social work 7.1% 20.6% Other

Evidence Base Report 70 Communities

Indices of Multiple Deprivation

5.3.41 Boulevard North falls within the bottom 2% nationally for the most deprived LSOAs. The area is very deprived for all factors apart from barriers to housing and services. The area is particularly deprived with regard to the factors for crime and living environment with the area falling within the bottom 1% nationally.

Area Classifications of Output Areas

5.3.42 The research into the area classifications of the Boulevard North output areas revealed that two classifications are dominant – typical traits and city living.

Evidence Base Report 71 Area3A: Hawthorn Avenue East < 16 35.00 5.3.43 This section looks at how the Hawthorn East area performs 30.00 25.00 against the criteria for people, skills and communities in 20.00 comparison to the overall Newington & St. Andrew’s area, the 15 . 0 0 reference area and the region. 65+ 10 . 0 0 16 - 2 4 5.00 People 0.00 Population and Age Structure

5.3.44 Hawthorn Avenue East has a population of 3376 people, which constitutes 19% of inhabitants in the Newington & St. Andrew’s 45 - 64 25 - 44 area. The overall profile of the area shows that there is a large Ref erence A rea Hawt horne A venue East proportion of the population in the <16, 16-24 and 25-44 age NaSA Y orkshire and Humb er groups. Therefore the area is has a significantly younger age profile than the reference area.

Skills

Unemployment and Activity Rates

5.3.45 Hawthorn Avenue East has a higher overall unemployment rate (8.4%) than that seen in the reference area (4.6%) and region (3.7%). The area has a high proportion of long-term unemployed (40.2%), young people aged 16 – 24 unemployed (29.5%) and a high proportion of people who have never worked (13.4%).

5.3.46 Hawthorn Avenue East has the lowest economic activity rate in the whole study area. It has the lowest proportion of people in part time and full time employment, whilst the figures for those who are self employed or full time student are half the regional averages.

Industrial Sectors and Qualifications and Skills

5.3.47 With regard to the main industrial sectors, Hawthorn Avenue East reflects the trend seen across the wider study area with the key sectors being manufacturing (21.8%), wholesale and retail trade (18.6%) and health and social work (9.7%). Other sectors of note in this area are transport and storage and real estate (both 7.6%) as well as hotels and catering (7.1%).

5.3.48 In terms of qualifications and skills, this area has the second highest number of people that have no formal qualifications (41.4%); over four times the regional average (9.9%).

Figure 5-11 Showing employment by sector for Hawthorn Avenue East

2.0% 0.7% 6.4% 0.2% Agriculture; hunting; forestry 9.7% Fishing 21.8% Mining & quarrying Manufacturing 5.9% Electricity; gas and water supply Construction Wholesale & retail trade; repair of motor vehicles 4.2% 0.5% Hotels and catering Transport storage and communication 6.3% Financial intermediation 7.6% Real estate; renting and business activities 1.2% Public administration and defence Education 7.6% 18.6% Health and social work 7.2% Other

Evidence Base Report 72 Communities

Indices of Multiple Deprivation

5.3.49 Similar to Boulevard North, the overall rank of IMD score for Hawthorn Avenue East falls within the bottom 2% nationally. The area is particularly deprived with regards to crime and living environment. Hawthorn Avenue East is the 16th most deprived LSOA nationally in relation to crime.

Area Classification of Output Areas

5.3.50 Hawthorn Avenue East has the most diverse mix of output area classifications seen in the Newington & St. Andrew’s study area. The most prominent classification is typical traits. Around this there are small portions of constrained by circumstances, blue collar communities and multi cultural.

Evidence Base Report 73 Area 3B: Hawthorn Avenue West < 16 35.00 30.00 5.3.51 This section looks at how Hawthorn Avenue West performs 25.00 against the criteria for people, skills and communities in 20.00 comparison to the overall Newington & St. Andrew’s area, the 15 . 0 0 reference area and the region. 65+ 10 . 0 0 16 - 2 4 5.00 People 0.00 Population and Age Structure

5.3.52 Hawthorn Avenue West has a population of 1148 people. This accounts for 6.7% of the study area’s population. The age 45 - 64 25 - 44 profile of the area is broadly similar to that seen in the Ref erence A rea Hawt ho rne A venue W est Yorkshire and the Humber region. When compared to the NaSA Y o rkshire and Humber wider Newington & St. Andrew’s averages, the area has a higher proportion of people in the older age groups 45-64 and 65+.

Skills

Unemployment and Activity Rates

5.3.53 The overall unemployment rate for Hawthorn Avenue West is 7.8%. Whilst this is marginally lower than the unemployment level for the wider study area (8.5%), it remains higher than the overall level of unemployment for the reference area (4.6%) and the region (3.7%). This area suffers from having a very high proportion of people that are long term unemployed (43.7%), significantly higher than the regional average (31.5%). Hawthorn Avenue West also has a high proportion of people aged 16 – 24 that are unemployed (29.6%) when compared to the wider Newington & St. Andrew’s, reference area and Yorkshire and the Humber averages.

5.3.54 The economic activity rate for Hawthorn Avenue West (61.5%) is higher than the overall average for the Newington & St. Andrew’s area (57.7%). However, this figure still lags behind the levels seen in the reference area and the region. The percentage of people who are economically inactive is therefore high exceeding the already high Newington & St. Andrew’s wide average levels.

Industrial Sectors and Qualifications and Skills

5.3.55 In relation to the main industrial sectors and similar to Hawthorn Avenue West, this area reflects the trend seen across the wider study area with the key sectors being manufacturing (21.8%), wholesale and retail trade (19.8%), and health and social work (9.9%). Other sectors of note are high levels of employment in construction (8%) and transport, storage and communication (8.7%).

5.3.56 Hawthorn Avenue West has a higher than regional level of pupils that have gone onto further education in levels 4 and 5. Whilst the proportion of people obtaining no qualifications is lower than the Newington & St. Andrew’s wide averages, it remains more than 3 times the Yorkshire and the Humber average.

Evidence Base Report 74 Figure 5-12 Showing employment by sector for Hawthorn Avenue W

4.8% 0.7% 0.7% Agriculture; hunting; forestry 9.9% 21.8% Fishing Mining & quarrying Manufacturing 6.4% Electricity; gas and water supply Construction 4.6% 1.4% Wholesale & retail trade; repair of motor vehicles Hotels and catering Transport storage and communication 5.1% 8.0% Financial intermediation 2.1% Real estate; renting and business activities Public administration and defence 8.7% Education Health and social work 6.0% 19.8% Other

Communities

Indices of Multiple Deprivation

5.3.56 Hawthorn Avenue West falls within the bottom 10% against most factors relating to deprivation. Hawthorne Avenue East is composed from the 78th most deprived LSOA corresponding to living environment. In line with the trend experienced across Newington & St. Andrew’s- crime, education skills and training and employment are the chief areas of deprivation.

Area Classification of Output Areas

5.3.57 Hawthorn Avenue West exhibits a similar mix of classifications to that seen in the neighbouring Hawthorn Avenue East. This area has an even mix of blue-collar communities, typical traits and constrained by circumstances. There is a very small multicultural portion to the north of the area.

Evidence Base Report 75

< 16 Area 4A: Dairycoates East 35.00 30.00 25.00 5.3.58 This section looks at how Dairycoates East performs against 20.00 the criteria for people, skills and communities in comparison to 15 . 0 0 the overall Newington & St. Andrew’s area, the reference area 65+ 10 . 0 0 16 - 2 4 and the region. 5.00 0.00 People

Population and Age Structure

5.3.59 The population for this area is 1980, comprising 11.5% of the 45 - 64 25 - 44 Newington & St. Andrew’s study area. In contrast to the wider Ref erence A rea Dairycoates East Newington & St. Andrew’s area and regional figures NaSA Y o rkshire and Humber Dairycoates East has a lower proportion of people in the <16, 16-24 and 25-44 age groups and a higher proportion of people in the 46-64 and 65+ age groups.

Skills

Unemployment and Activity Rates

5.3.60 The overall unemployment rate for Dairycoates East is 9.1%, which is higher than the overall unemployment figure for Newington & St. Andrew’s, the reference area and Yorkshire and the Humber. Whilst the area has relatively low levels of youth unemployment and people who have never worked, it contains a high proportion of people who are unemployed aged 50 and over and long term unemployed (39.3%) - this exceeds the already high Newington & St. Andrew’s average (35.1%) as well as the reference area (32.8%) and the Yorkshire and Humber (31.5%) figures.

5.3.61 The overall economic activity rate for Dairycoates East (54%) not only falls below the regional (65%) and reference area (64.3%) levels, but it also drops below the already low overall economic activity rate for Newington & St. Andrew’s (57.7%). The area has the highest proportion of retired and permanently sick/disabled people, therefore leaving the area with a high proportion of the working population inactive.

Industrial Sectors and Qualifications and Skills

5.3.62 Within Dairycoates East a high proportion of people are employed within the manufacturing sector with 25.5% compared to the regional figure of 17.3%. Those employed within the wholesale and retail trade (23.7%) are also in excess of regional figure (17.9%). The other significant sector is health and social work; although this accounts for 10.7% it remains slightly lower than the regional average (11.6%).

5.3.63 The percentage of people with no formal qualification in Dairycoates East, although lower than the average for Newington & St. Andrew’s, remains significantly in excess of the regional level. The area has a low proportion of people going into further education, with levels that are lower than the Newington & St. Andrew’s and the regional average.

Evidence Base Report 76 Figure 5-13 Showing employment by sector for Dairycoates East

4.9% 0.5% 0.9% Agriculture; hunting; forestry 10.8% Fishing 25.5% Mining & quarrying 3.7% Manufacturing Electricity; gas and water supply 3.1% Construction Wholesale & retail trade; repair of motor vehicles 7.1% Hotels and catering 0.5% Transport storage and communication 0.5% 5.1% Financial intermediation Real estate; renting and business activities 6.3% Public administration and defence Education 7.7% Health and social work 23.7% Other

Communities

Indices of Multiple Deprivation

5.3.64 Dairycoates East falls within the bottom 1% nationally for the overall IMD score. The most deprived aspects for this area are crime, income, health deprivation and disability, and education, skills and training. Again the area scores relatively well in relation to barriers to housing and services, this is more likely to reveal that local housing is relatively cheap and affordable rather than the quality of local housing and services being very high.

Area Classification of Output Areas

5.3.65 The research into area classifications showed that the output areas in Dairycoates East had three main classifications – with typical traits and blue-collar communities mixed with constrained by circumstances.

Evidence Base Report 77 Area 4B: Dairycoates West < 16 35.00 5.3.66 This section looks at how Dairycoates West performs against 30.00 the criteria for people, skills and communities in comparison to 25.00 the overall Newington & St. Andrew’s area, the reference area 20.00 15 . 0 0 and the region. 65+ 10 . 0 0 16 - 2 4 5.00 People 0.00 Population and Age Structure

5.3.67 Dairycoates West has a much smaller population than Dairycoates East, with a population of 835, constituting 4.8% of 45 - 64 25 - 44 the study area. The age profile of Dairycoates West is broadly Ref erence A rea Dairycoates West in line with the average for the overall Newington & St.

NaSA Y o rkshire and Humber Andrew’s study area, with a higher proportion of the population in the younger age groups and a lower percentage of inhabitants in the 45-64 and 65+ age groups.

Skills

Unemployment and Activity Rates

5.3.68 Dairycoates West has an overall unemployment rate of 8.2%. Whilst this falls below the high Newington & St. Andrew’s figures, it still remains higher than both the reference area and the region. The area has both the highest figures for the proportion of unemployed people within the 16 – 24 age group and the number of people who are long term unemployed.

5.3.69 Despite this, the overall economic activity rate for the area (59.4%) is higher than the overall Newington & St. Andrew’s average (57.7%). Importantly the proportion of people in full time employment (35.9%) exceeds the overall Newington & St. Andrew’s average although it still lags behind the regional level. Within the economically inactive criteria, this area has a large percentage of people who look after home/family (10.6%), this is 5% higher than the regional average.

Industrial Sectors and Qualifications and Skills

5.3.70 In contrast to residents of the rest of the Newington & St. Andrew’s area, people in Dairycoates West tend not work in the manufacturing sector. 23% of its resident workforce work in the utilities (electricity, gas and water) sector, and a large proportion (22%) work in the hotel and catering sector. It also has the highest proportion of the study area working in the public administration and defence sector (7%).

5.3.71 With regards to those accessing further education Dairycoates West is broadly in line with the Newington & St. Andrew’s area average (14.1%), yet this still falls short of the regional figure (16.4%). The Dairycoates West area, in line with the area pattern, has a high proportion of people who have no formal qualifications (53%), which is considerably higher than the Newington & St. Andrew’s (46.3%) and Reference Area (36.4%) averages.

Evidence Base Report 78 Figure 5-14 Showing employment by sector for Dairycoates West

4.9% 1.0% 10.8% 2.0% Agriculture; hunting; forestry 3.9% Fishing Mining & quarrying 2.3% Manufacturing 23.3% Electricity; gas and water supply 6.6% Construction Wholesale & retail trade; repair of motor vehicles 1.0% Hotels and catering Transport storage and communication 8.2% Financial intermediation Real estate; renting and business activities 6.2% Public administration and defence 7.5% Education Health and social work Other 22.3%

Communities

Indices of Multiple Deprivation

5.3.72 The overall IMD score for Dairycoates West falls within the bottom 1% nationally. The LSOA that compromises this area is the 141st most deprived LSOA nationally for education skills and training and the 147th most deprived LSOA nationally for crime. The area’s scores for income and employment are in the bottom 2% and bottom 1% respectively.

Area Classification of Output Areas

5.3.73 The typology of area classifications for Dairycoates West suggests two main groupings: “constrained by circumstances” mixed with a small portion of “blue-collar communities”.

5.4 Conclusions

5.4.1 On balance, though internal differentiation exists, Newington & St. Andrew’s clearly performs poorly against the vast majority of socio-economic indicators. Taken collectively, the indicators reinforce the need for comprehensive, social, economic and physical regeneration – a case long since established. Particular elements highlighted above include the low levels of educational attainment, very high unemployment (and in particular youth and long-term unemployment) with extreme deprivation across almost every heading. The exploration of community types suggests some differentiation - with the communities to the north somewhat more stable and robust, whilst many of the communities to the south of the study area are identified as facing greater challenges.

Evidence Base Report 79 6 Liveability and Services

6.1 Introduction

Liveability 6.1.1 Liveability has risen in importance in recent years. It has helped to place an increasing emphasis on the crucial role of local authorities in contributing to local quality of life factors, such as street cleanliness, crime, schools and the quality of local centres.

Five key components 6.1.2 The Government’s mantra for this area of concern is: “Cleaner; Safer; Greener”. We have reviewed and described these below; and we have added Education/Schools, and Quality of Local Centres, as two other key components in building the liveability of any residential area.

The Data 6.1.3 Liveability data are acknowledged to be generally weak and inconsistent. They are also difficult to obtain at small-area level. We have drawn on the Place Quality Assessment (see Chapter 4) to fill in some of the blanks and supplement the available data.

6.2 “CLEANER”: Local Environmental Quality

6.2.1 Local Environmental Quality represents the first strand of the Government’s “Cleaner, Safer, Greener” agenda, and it is considered under two headings: Street Cleanliness and Air Quality. Comprehensive data are available for the latter, while for Street Cleanliness, although data are improving, reporting does not yet adequately cover neighbourhood level. To supplement the data relating to local environmental quality, Hull City Council were able to provide us with information relating to the incidents of air/noise pollution and “envirocrime” that have occurred within the Newington & St. Andrew’s area.

LEQ 1 – Air Quality 6.2.2 Air quality data is available at the Lower Super Output Area (LSOA) level. This data provides an overview of the combined air quality for an area by looking at the pollutant levels for Nitrogen Oxide, Particulate, Sulphur Dioxide and Benzene.

6.2.3 In an attempt to help the Liveability Analysis understand the smaller localities within the study area better, LSOAs have been grouped to approximate to the nine character areas.

6.2.4 In terms of overall air quality, the scores for Newington & St. Andrew’s are much higher than the average level of pollutants demonstrated across the Yorkshire and the Humber region. Newington & St. Andrew’s has particularly high levels of nitrogen oxide, sulphur dioxide and benzene in comparison to regional figures.

6.2.5 Not one figure for any of the character areas falls in line with regional averages for the different pollutants. The area with the best combined air quality within Newington & St. Andrew’s is Hawthorne Avenue West. However, despite having lower levels of pollutants than the overall Newington and Saint Andrew’s average, the area exhibits higher than regional levels of pollutants for all the assessed air quality criteria.

Evidence Base Report 80 6.2.6 The area with the poorest air quality is Coltman Street. This area has significantly higher levels of nitrogen oxide and particulates than both the region and the already high Newington & St. Andrew’s levels. The Table overleaf displays the combined air quality scores.

Table 6-1 Newington & St. Andrew’s Combined Air Quality Score Combined Air Quality NO2 Levels Particulates (PM10) SO2 Levels Benzene Levels Indicator (ratio) (ratio) (ratio) (ratio) (ratio) Area 1A: Albert Avenue West 1.30 0.58 0.51 0.13 0.07 Area 1B: Albert Avenue East 1.31 0.59 0.51 0.14 0.07

Area 2A: Coltman Street 1.44 0.67 0.55 0.15 0.07

Area 2B: Boulevard South 1.32 0.59 0.52 0.15 0.06

Area 2C: Boulevard North 1.37 0.63 0.53 0.14 0.07 Area 3A: Hawthorne Avenue East 1.37 0.63 0.53 0.14 0.07 Area 3B: Hawthorne Avenue West 1.29 0.57 0.51 0.14 0.07 Area 4A: Dairycoates East 1.37 0.63 0.53 0.14 0.07 Area 4B: Dairycoates West 1.36 0.61 0.53 0.15 0.07 NaSA 1.35 0.61 0.52 0.14 0.07 Yorkshire and the Humber 1.16 0.5 0.5 0.11 0.05

Source: NeSS/DCLG, 2006

LEQ 2: Noise and Air Pollution 6.2.7 Hull City Council was able to provide information relating to the incidents of air and noise pollution that have occurred within the Newington & St. Andrew’s wards. The data is presented in the line graphs below.

Figure 6-1 Incidents of noise pollution for Newington & St. Andrew’s

90 80 70 60 50 Loud Music 40 Barking Dog Behavioural Noise 30 Noise in Street / Highway 20 Other (Environmental) Industrial Noise 10 0

07 07 -07 y- y-07 ar ar May u ru April-07 June-07 March- Jan Feb

6.2.8 The figure above illustrates the dominant forms of noise pollution in the area, namely loud music, barking and household noise, all largely behavioural issues. The level of certain local environment issues, such as noise in the street (6.7%), other environmental noise (6.3%) and industrial noise (5.9%) are relatively unusual given the urban location of the study area.

Evidence Base Report 81 Figure 6-2 Incidents of air pollution for Newington & St. Andrew’s

30

25

20 Smoke From Bonfires Contaminated Land Odours /Smells Between Premises 15 Odours / Smells Open Spaces Smoke From Industrial Premises 10

5

0

y il r ch ay ne ary pr u u ar A M J br M Janua e F

6.2.9 The main source of air pollution within the Newington & St. Andrew’s area is smoke from bonfires. Other environmental aspects that influence the area are contaminated land and industrial premises. The remaining main groups that bear an influence on local air quality are odours between premises and odours from open spaces – both of these factors could be improved by better maintenance of these areas and street cleansing.

LEQ 3: Incidents of Envirocrime 6.2.10 The data for envirocrime was made available for the Riverside area, which constitutes the following wards – Newington, St Andrew’s, Myton and Drypool. From the data available we have been able to extract the incidence of the 2 main types of envirocrime committed in the Newington & St. Andrew’s wards – fly tipping and abandoned cars.

6.2.11 The diagram below shows the occurrence of fly tipping within the Riverside area. Of the overall number of fly tipping cases, the Newington & St. Andrew’s wards combine to account for 56% of them. There are more overall incidents of fly tipping in the St Andrew’s ward than the Newington ward. Despite the number of fly tipping incidents dropping during the survey period, the overall levels are still regarded as very high.

Figure 6-3 Incidents of fly tipping for Newington & St. Andrew’s

70

Newington

60 St Andrews

50

40

30

20

10 5 5 5 5 6 0 0 05 -0 -05 05 -05 0 06 l- 0 - r - - i t er y- y ne- uly- be b ar Apr May-05 Ju J m uar em March-06 Augus October vember Janu ebr pte F Se No Dec

Evidence Base Report 82 6.2.12 The following diagram shows that the Riverside area is subject to a high number of abandoned cars. From the total number of abandoned car incidents in the Riverside area, both the Newington and the St Andrew’s ward constitute 62.9% of all cars abandoned. The overall trend in both wards is quite irregular, fluctuating from month to month.

Figure 6-4 Incidents of Abandoned Cars for Newington & St. Andrew’s

Newington 70

St Andrews 60 Total for the Riverside Area 50

40

30

20

10

0 5 5 5 6 5 0 06 -05 -0 - -0 r-05 -06 -0 - e h ay-05 ly st ry c pril u u ber b a A M June-05 J ruary Aug cember-0 anu Mar October-05ovem e J eb eptem F S N D

6.3 “SAFER”: Crime & safety

6.3.1 Crime and Safety are significant components of the wider liveability agenda – in particular, they represent one of three strands of the Government’s “Cleaner, Safer, Greener” Agenda. There is an acknowledged difficulty in accessing neighbourhood level crime data.

6.3.2 The crime data available for the study area was accessible at ward level for both the Newington ward and the St Andrew’s ward. The information supplied by the Council is based on 10 themes covered by the British Crime Survey (outlined in the table below). The information available allows us to view what crimes are most common and problematic in the area, how they have increased/decreased over time and how they compare to the target performance for 30% reduction against the 2003/2004 Baseline.

6.3.3 Note that they do not give statistics for either drug-related crime or prostitution, both of which - anecdotally - are issues which concern local residents.

Evidence Base Report 83 Table 6-5 Showing trends in Crime for the Newington Ward British Crime Survey (BCS) Crimes Ward Newington Ward

March 2007 April 2007 May 2007 Previous 12 months 2007/200 8 Target 2003/200 4 Baseline Reductio n Theft of Vehicle 38 29 24 407 751 1073 62% Theft from a 62 73 84 994 1138 1897 48% Vehicle Vehicle 14 11 14 216 326 466 54% Interference Domestic 69 59 78 853 998 1535 44% Burglary Theft of a cycle 38 33 40 470 589 607 23% Theft from 36 40 36 521 521 695 25% Person Criminal 199 232 168 2298 1859 2655 13% Damage Common 51 52 50 684 418 557 -23% Assault Wounding 122 140 116 1849 1401 2001 8% Robbery of the 21 14 10 293 390 520 44% Person 1200 All Crime 650 683 620 8585 8404 28% 6

Table 6-6 Showing trends in Crime for the St Andrew’s Ward

British Crime Survey (BCS) Crimes Ward St Andrew’s Ward

March 2007 March 2007 April 2007 May 2007 12 Previous months 2007/2008 Target 2003/2004 Baseline Reduction Theft of 15 5 4 92 149 213 57% Vehicle Theft from a 8 10 9 181 208 346 48% Vehicle Vehicle 5 2 1 59 84 120 51% Interference Domestic 20 13 17 219 277 426 49% Burglary Theft of a cycle 6 4 9 74 93 96 23% Theft from 5 9 5 67 56 75 11% Person Criminal 38 37 27 441 328 468 6% Damage Common 10 5 5 98 62 83 -18% Assault Wounding 22 18 18 276 211 301 8% Robbery of the 1 4 2 42 35 47 11% Person All Crime 130 107 97 1549 1523 2175 29%

6.3.4 Whilst there is a high incidence of crime throughout the study area, during the survey period both the Newington & St. Andrew’s wards have experienced a similar reduction in crime.

Evidence Base Report 84 However, this falls slightly below the target performance for a 30% reduction against the 2003-04 baseline figures. The Newington ward experiences much more incidents of crime when compared to the number of incidents that occur in the St Andrew’s Ward.

6.3.5 Whilst there is a difference in the number of crimes carried out between the 2 wards, the trends behind the most common crimes in each ward are broadly in line. The most common crimes in each are Criminal Damage, Wounding, Domestic Burglary and Theft from Vehicle. Whilst the reductions for both criminal damage and wounding fall well below the 30% target, the figures for theft from vehicle and domestic burglary exceed the 30% target and are closer to 50% reduction over 2 years.

6.3.6 Another notable trend in both wards is the reduction in theft of vehicle and vehicle interference. The decrease in both these activities is well in excess of the target performance of 30%. However, a worrying statistic is the figure for common assault. Both wards have experienced a considerable increase in this during the survey period.

Evidence Base Report 85 6.4 “GREENER”: Parks and open Spaces

6.4.1 The third plank of the Government’s “Cleaner, Safer, Greener” agenda, parks and green spaces, is seen as being of disproportionate importance in attracting and retaining the family builder segment. In more general terms, the case for the contribution of high quality parks and green spaces has been made with a demonstrable (ca. 5-7%1) difference in home prices adjacent to high quality green spaces. Again, it is acknowledged that there is a difficulty in accessing local-level data on parks and green spaces but within the study area we have identified some key places:

• West Park, a large Victorian park including the KC Stadium as an amenity space; • Massey Street playing fields and Springfield Road playing fields as amenity and leisure spaces; • Local pocket parks on Woodcock Street , Wellsted Street, St. George’s road and Harthill Drive; and • The recreational use of the Boulevard Rugby Football Ground as training pitches. 6.4.2 In the absence of local-level data we have reviewed information on the council’s own performance in this area as well as drawing upon the Place Quality Assessment to fill in the blanks. The local authority does not have any Green Flag awards for any of its parks or green spaces but has however scored 76% in DCLG Best Value Performance Indicator 119e, culture and leisure activities, which is above the 74% local authority average. They also achieved 2 stars in the 2006 Audit Commission’s culture service CPA, but this is a downgrade from the 3 star achieved in 2005. It is worth noting however that the CPA measures more than just parks and open spaces. But within the group of performance indicators C19 (Percentage of population that are within 20 minutes travel time (urban areas by walk; rural areas by car) of a range of three different sports facility types, of which one has achieved a specified quality assured standard) and C9 (resident satisfaction parks/open spaces) are ranked between the upper and lower thresholds. However C5, Resident satisfaction sport/leisure facilities performed better and is ranked in the upper threshold. This depicts a mixed picture of the status and provision of the open spaces.

6.4.3 Though there are some notable quality spaces, in particular West Park, provision is not evenly balanced nor is there an adequate range of quality open spaces throughout the area. Green space is particularly important in Newington & St. Andrew’s given the general lack of private amenity space, and the relatively intense nature of the built form. In general provision is better to the north east with the influence of West Park, however relatively poor accessibility limits its impact. To the south west the urban landscape is extremely “hard” with very little provision of amenity spaces and smaller neighbourhood “pocket parks”, which are needed to make up for the very compact nature of the built environment.

6.4.4 The “Green Places” section of the Place Quality Assessment (see Chapter 4) highlights these areas of concern, the question ‘is there a balanced/varied provision of open spaces?’ scores with a mixed set of results. Six of the twelve areas assessed (the nine “character areas” plus the two main roads and the

Evidence Base Report 86 Industrial Area) fail to achieve 50 points but five manage to score 80. However looking at the data from the question ‘are these spaces well used?’ the scoring fares better, with ten areas achieving 60 points and above. This emphasises the issue that there is an apparent lack of quality spaces that people are willing and able to use.

6.4.5 Alleviating the “hardness” of large parts of Newington & St. Andrew's, and making more of West Park by improving access, must be seen as the “parks and open space” priorities for the area. Figure 6-5 Condition of green spaces in Newington & St. Andrew’s

Do they appear to be well used?

Industrial Area Do they feel safe? B. Dairycoates W

A. Dairycoates E

Are they well B. Hawthorn Ave W maintained? A. Hawthorn Ave E

D. Hessle Road

Are the spaces C. Boulevard N accessible? B. Boulevard South

A. Coltman St Is the provision of high quality? C. Anlaby Road

B. Albert Ave E

Is there a A. Albert Ave W balanced/varied provision of open spaces (size, hard/soft)?

020406080100 PQA Score

6.5 Education & Schools 6.5.1 Alongside “Clean”, “Green” and “Safe”, schools are a key factor in influencing neighbourhood-level locational choices. This section therefore examines local educational performance. It does so at the level of 3 Medium Layer Super Output Areas (MSOAs), which are the spatial level for which most local level data are available for the Schools category. We have denoted these as Newington & St. Andrew’s North (Kingston upon Hull MSOA 027), Newington & St. Andrew’s East (Kingston upon Hull MSOA 030) and Newington & St. Andrew’s West (Kinston upon Hull MSOA 031); however, these do also include some areas outside of our designated study area. 6.5.2 Though there are some exceptions, the general levels seen in both Newington & St. Andrew’s institutions and in the performance of its resident pupils fall behind regional and national averages. Local educational attainment is generally weak and the local schools face challenges in reaching the levels more typically seen in the Yorkshire and the Humber region. Details of Key Stages 1-4 are outlined below.

6.5.3 At Key Stage 1 resident pupils broadly outperform the local institutions. The strongest performance is in Newington & St. Andrew’s North, which performs in line with regional figures for Reading and Writing and has a higher than national level of attainment in Mathematics. However, the rest of the study area experiences lower academic attainment levels, that lags behind the regional and national averages in the3-assessed criteria.

Evidence Base Report 87 Table 6-2 Newington & St. Andrew’s Percentage Pupils Achieving Level 2+ at Key Stage 1

Pupils Achieving Level 2+ in: Area Reading Writing Mathematics

Resident Resident Pupils Institution Resident Pupils Institution Resident Pupils Institution Newington & St. Andrew’s North 84 75 80 57 94 84 (Kingston upon Hull 027) Newington & St. Andrew’s East 73 74 68 73 82 79 (Kingston upon Hull 030) Newington & St. Andrew’s West 81 71 73 72 87 87 (Kingston upon Hull 031) Kingston upon Hull 81 81 77 77 88 88 Yorkshire and Humber 84 84 82 82 90 90 England 85 85 82 82 91 91 Source: NeSS/DfES, 2006

6.5.4 At Key Stage 2, Newington & St. Andrew’s exhibits a mixed performance, whereby in some categories the pupils are outperforming the institutions, and in others the institutions outperform the pupils. The strongest aspect of resident pupils and local institution performance is in science with Newington & St. Andrew’s East attaining higher than the national average. Despite this, the study area’s level of performance generally falls well below regional and national averages.

Table 6-2A Newington & St. Andrew’s Percentage Pupils Achieving Level 4+ at Key Stage 2

Pupils Achieving Level 4+ in: Area English Mathematics Science

Resident Resident Pupils Institution Resident Pupils Institution Resident Pupils Institution Newington & St. Andrew’s North 69 73 69 72 80 76 (Kingston upon Hull 027) Newington & St. Andrew’s East 68 70 63 62 86 93 (Kingston upon Hull 030) Newington & St. Andrew’s West 70 59 63 53 82 77 (Kingston upon Hull 031) Kingston upon Hull 71 71 72 72 85 85 Yorkshire and Humber 71 71 72 72 85 85 England 79 79 75 75 86 86 Source: NeSS/DfES, 2006

Evidence Base Report 88 6.5.5 At Key Stage 3, Newington & St. Andrew’s North is in line with regional figures for English and Mathematics, however, demonstrates a weaker performance in Science. Both Newington & St. Andrew’s East and West perform particularly weak, with levels of attainment that are well below regional and national levels in all 3 assessed criteria.

Table 6-3 Newington & St. Andrew’s Percentage Pupils Achieving Level 5+at Key Stage 3

Pupils Achieving Level 5+ in: Area English Mathematics Science

Resident Resident Pupils Institution Resident Pupils Institution Resident Pupils Institution Newington & St. Andrew’s North 72 X 72 X 60 X (Kingston upon Hull 027) Newington & St. Andrew’s East 43 X 46 X 32 X (Kingston upon Hull 030) Newington & St. Andrew’s West 52 X 49 X 45 X (Kingston upon Hull 031) Kingston upon Hull 58 57 60 60 55 56 Yorkshire and Humber 71 70 72 72 67 67 England 74 74 74 74 70 70 Source: NeSS/DfES, 2006

6.5.6 At GCSE Level, from the information available, the overall performance of the Newington & St. Andrew’s area is very weak. The percentage of pupils attaining grades A* - C is well below the regional and national averages. The proportion of students attaining no passes at GCSE level, from the information available, is around triple the national average.

Table 6-4: Newington & St. Andrew’s GCSE Results

Pupils Achieving: Area 5+ A* - C 5+ A* - G No Passes

Resident Resident Pupils Institution Resident Pupils Institution Resident Pupils Institution Newington & St. Andrew’s North 46 .. 86 .. X .. (Kingston upon Hull 027) Newington & St. Andrew’s East 30 .. 69 .. 11 .. (Kingston upon Hull 030) Newington & St. Andrew’s West 34 .. 69 .. 13 .. (Kingston upon Hull 031) Kingston upon Hull 45 45 80 80 7 7 Yorkshire and Humber 52 51 88 78 4 4 England 56 56 89 89 4 4 Source: NeSS/DfES, 2006

Evidence Base Report 89 6.6 Local Centres

6.6.1 Local centres play an important role in a Liveability context. The absence of good quality local centres with a basic range of amenities and facilities has an impact on sustainability and on the wider attractiveness of an area as a place to live. More so than the provision of facilities, the presence of poor quality local centres creates a poor image of the quality of a locality. This theme picks up on reporting from the Hull City Council Planning team.

6.6.2 As discussed, within Newington & St. Andrew’s there are two local centres - Hessle Road and Anlaby Road. With regard to the hierarchy of local centres within the area, the Local Plan refers to Hessle Road as a ‘District Centre’ and denotes Anlaby Road as a ‘Large Local Centre’. The location of these centres is intuitive; they are located on the 2 main spines that run into Hull city centre and therefore are very accessible for a majority of the study area.

6.6.3 Information on both centres was available from the local centre reports, which were conducted by the Hull City Council Planning team in August 2004 and June 2005. The reports focus on the different uses that make up these local centres.

Hessle Road

6.6.4 From the June 2005 survey the main components of the Hessle Road district centre are – retail (54.96%), vacant properties (23.55%) and services (21.07%). In comparison to the 2004 figures, there are some very marginal changes with the number of retail related uses dropping slightly, the number of vacant properties and service related uses experiencing a minor increase. The components of the different sectors are outlined below:

• The retail sector is predominantly composed of comparison retail (60.90%), whilst convenience retailers comprise a much smaller proportion (21.05%). • The main constituents of the services provision within Hessle Road are leisure services (62.75%) and financial and business services (21.57%). • Of all the vacant units along Hessle Road a majority are vacant retail/service (87.72%) with minor a proportion that are vacant non-retail (12.28%).

Anlaby Road

6.6.5 An overview of the June 2005 retail survey by Hull City Council Planning team reveals the following breakdown of uses for Anlaby Road – an equal proportion of retail (34.88%) and services (34.88%) with a reasonably high proportion of vacant properties (20.35%). In comparison to the 2004 figures, there has been a marginal decrease in the proportion of retail and service uses within the area, and a 3% rise in the number of vacant properties. The components of the different sectors are outlined below:

• The mix of retail comprises a large proportion of comparison retail (46.67%) and convenience retail (34.88%) accompanied by a considerable amount of retail services (28.33%).

Evidence Base Report 90 • The main component of the services within the Anlaby Road local centre is leisure industry (56.67%) with a reasonable number of financial and business services (25%). • A majority of the vacant properties along Anlaby Road are vacant retail buildings (85.71%), with the remaining vacancies concerning vacant properties relating to non-retail activities. • In contrast to Hessle Road, Anlaby Road has a proportion (8.14%) of residential units within its local centre. Overview of the Local Centres 6.6.6 The Hessle Road local centre has more outlets (242) than Anlaby Road (172), reflecting its status as a district centre. The make up of the local centres reveal that Hessle Road has a more retail led focus, whereas Anlaby Road is more balanced between retail and service provision. The data reveals that an area of concern for both local centres is that around a fifth of the outlets are vacant. 6.6.7 Overall, the Hessle Road and Anlaby Road local centres, though not without problems, are judged to contribute positively to the locality’s Liveability. However, they do need attention if they are to continue to act as an asset within the wider offer of Newington & St. Andrew’s.

Stadium-related uses on Anlaby Road

6.6.8 The Area Action Plan includes an allocation for stadium-related uses between Anlaby Road and the KC Stadium. PPS6 (paragraph 2.28) requires the Council to justify this allocation, which it is able to do for the following reasons:

• Need for development: there is a strong regeneration case for development, ensuring that the area is able to benefit from the catalyst effect of the stadium as was always intended, rather than just having a facility that lies empty for most of the week. • Appropriate scale of development: development could potentially be more extensive than the site allocated. However, the scale is constrained by the park location – the allocation does not impinge on existing green space – and also by the fact that it is not a city centre location. • Sequential approach: this is the only site of this type in the city; alternative sites for stadium-related uses simply do not exist. • Impact on existing centres: it is important that the site does not compete with city centre regeneration sites. Office-based employment and housing are not appropriate here, largely to protect other sites that are more strategically suitable for these uses. The type of development will not compete with Anlaby Road itself, and, indeed, can be expected to support it. • Accessible with sustainable transport: the site is very highly accessible by foot, cycle and public transport, and will be even more so if the new railway halt included in the Area Action Plan becomes a reality.

Evidence Base Report 91 6.7 Conclusions on liveability

6.7.1 On balance, Liveability and service provision can be seen as a major challenge for Newington & St. Andrew’s, raising both a barrier to the regeneration and importantly through a better focus on key services and liveability factors, a major opportunity to reinvent the lived experience of residents, current and future. Delivering on the liveability challenge does not guarantee success, however a failure to deliver on the liveability challenge does guarantee failure. Tackling liveability concerns (along with image and identity) can help to transform Newington & St. Andrew's into a place where people want to stay, as opposed to one where they want to leave.

6.7.2 The key weaknesses identified are schools, crime, local environmental quality and the high incidence of envirocrime. Parks and green spaces are inconsistent in their provision and the quality is not evenly spread. However, some green assets such as West Park represent underutilised potential which can be further capitalised upon. This offers a chance to enhance the quality of life of residents and improve the image and status of Newington & St. Andrew's.

6.7.3 In general, the Hessle Road and Anlaby Road local centres contribute to the locality, but they need attention if they are to continue to act as area assets. Again, if their potential is maximised these two centres can have a disproportionate impact on how Newington & St. Andrew's is perceived.

Evidence Base Report 92 7 Bringing It All Together

7.1 Overview

7.1.1 In this section we seek to collate the wealth of information presented in the preceding chapters. Below, we consider each of the areas individually, but before we do so, it is worth reminding ourselves of Newington and Saint Andrew’s overall position.

7.1.2 Across nearly the complete range of physical, housing, socio- economic and liveability data presented above, Newington and Saint Andrew’s scores poorly. In some senses this is a simple, though disturbing observation.

7.1.3 Thus, while the following paragraphs unpick the internal differentiations and the relative severity of some of the different issues evident within the area, all of the individual character areas score poorly by regional and national comparison, with the data more than amply justifying the case for large scale intervention across much of Newington and Saint Andrew’s.

7.1.4 It is clear that housing in particular is among the main issues facing Newington and Saint Andrew’s. What we try to illustrate below is the nature of these problematics between the various local geographies. Housing issues do not exist in isolation, and there is a full spectrum of social and economic indicators supporting the case for change. 7.1.5 The table below summarises these results, a full breakdown of the scoring parameters and the geographies used for each criterion can be provided on request. 7.1.6 The summary table shows the range either side of a neutral “0”, between the poorest (indigo) and best-performing (green) results for each area and indicator.

Evidence Base Report 93

Table 7-1 Summary table of character area performance across each performance indicator Indicators Place & Residential People, Skills & Communities Liveability & Services Housing Offer Market Local PQA Range Cost People Skills Com. Schools Crime Env.

Character Area Vacancy - 6months+ (%) - 6months+ Vacancy (%) Unfit housing Overall PQA (%) Score Range Score Cost (%) Total unemployment (%) Inactive Economically Household Mean Annual (£k) Income (% of Qualifications No Formal 16-74) Score of IMD Rank - G (%) A* 5+ GCSEs Rate Anti-Social Behaviour Rate Burglary Air Quality Indicator Combined (Ratio) Albert 3.8 17 60 44 2.7 6.0 31.2 27.2 35.2 40.8 86 37.8 33 1.30 Avenue West Albert 6.7 15 60.7 42 2.5 7.2 42.9 21.2 47.8 53.1 69 89.7 65 1.31 Avenue East

Coltman Street 10.8 2.8 73.2 31 2.3 10.5 42 19.5 41.8 79.6 69 83.6 47 1.44

Boulevard 6.6 9.8 49.4 28 1.8 8.9 48.7 20.4 61.7 70.2 69 48.6 53 1.32 South Boulevard 6.6 9.8 66.2 37 2.2 9.01 37.1 22.1 51.4 65.7 69 48.6 53 1.37 North

Hawthorn 11.9 6 60.7 34 2.0 10 28.8 23.9 42.8 62 69 51 65 1.37 Avenue East Hawthorn 11.9 6 47.2 34 2.3 7.8 38.5 21.8 49.9 54.9 69 51 65 1.29 Avenue West

Dairycoates 11.9 6 68.5 41 2.1 9.1 46 21.1 58.6 66.1 69 51 65 1.37 East Dairycoates 11.9 6 49.5 35 1.5 8.18 40.5 20.7 53 70.1 69 51 65 1.36 West

Scoring System

- - - 0 + + +

7.1.7 The remaining sections of this chapter look at each of the character areas in these terms. While the scores are generally poor across most headings, there are differences and it is important that we unravel them, so that we might better understand the dynamics underlying each of the twelve individual character areas.

Evidence Base Report 94 7.1.8 In order to help summarise the key characteristics of each area, a graph is provided as a supplement to each character area’s synopsis. Each of the scores for the performance indicators have been scaled from -10 to 10, using the Reference Area average as the zero point. The Reference Area is taken as Hull and the East Ridings where possible, however where this is not available, a figure for Hull is used (see Appendix 2). On this graph is the score for the specific character area, the Newington & St Andrew’s average, and where available the regional and national averages. PQA score is omitted from the graphs as there is no Reference Area average to take as the zero point.

7.2 The character areas

Albert Ave East 7.2.1 On the whole Albert Avenue East performs significantly better than the other eight character areas, ranking first for several of the indicators. With the exception of three categories, the area scores higher than the Newington & St. Andrew’s average for every indicator. In addition to this, Albert Avenue East outperforms the Reference Area in several categories, which is uncommon amongst the character areas.

7.2.2 Many of the indicators are considerably more positive than the other character areas; for example, mean annual household income for the area is more than £4,000 higher than the Newington & St. Andrew’s average of £23,000.

7.2.3 However, despite this relatively strong performance, there is still concern where the character area scores beneath the Newington & Saint Andrew’s average score. These indicators are PQA score, unfit housing, and cost score. As the graph illustrates, the level of unfit housing is of particular concern when compared to averages for Newington & St Andrew’s, the Reference Area, and England. It is probable that cost is merely a reflection of slightly higher property values; however the stock (though of poor quality) remains affordable.

7.2.4 This compilation of data tells us that, despite being Newington & St. Andrew’s’ least problematic character area, Albert Avenue East is still an area suffering multiple socio-economic problems, and one that requires targeted action.

Figure 7.1 Albert Avenue West character area: synopsis of scores (see para 7.1 above for explanation of range used)

10 8 6 4 2 0 -2 -4 -6 -8 -10 - G Income Score ASB Rate Vacancy - Vacancy Air Quality Air 6months+ Inactive Household Cost Score Cost Rank of IMD No Formal No Unfit Housing Range Score Economically Burgalry Rate Burgalry Unmployment 5+ GCSEsA* Qualifications

Albert Avenue West Newington and St Andrews Yorkshire and Humber National

Evidence Base Report 95 Albert Avenue East

7.2.5 Albert Avenue West, similar to Albert Avenue East, performs poorly in terms of unfit housing by comparison to the Newington & St Andrew’s average. The same can be said about its cost score. The area is also characterised by a relatively high rate of economic inactivity, with the figure nearly 6% greater than that of the Newington & St Andrew’s average. Mean annual household income, percentage of population with no formal qualifications, and GCSE attainment all score lower than the Newington & St. Andrew’s average. As the graph shows, anti-social behaviour rates and burglary rates are a particularly concern in Albert Avenue East. At the opposite end of the spectrum, Albert Avenue East ranks second best for the unemployment and IMD indicators. This degree of extremes highlights the diverse and complex nature of the character area’s internal conditions, a trait common to much of the Newington and Saint Andrew’s area.

Figure 7.2 Albert Avenue East character area: synopsis of scores (see para 7.1 above for explanation of range used)

10 8 6 4 2 0 -2 -4 -6 -8 -10

- G - G Income Score ASB Rate 6months+ Vacancy - Vacancy Air Quality Inactive Household

Cost Score No Formal ofRank IMD Economically Unfit Housing Score Range 5+ GCSEs A* Unmployment Burgalry Rate Burgalry Qualifications Albert Avenue East Newington and St Andrews Yorkshire and Humber National

Evidence Base Report 96 Coltman Street

7.2.6 The Coltman Street character area’s scores for burglary rates, PQA and those with no formal qualifications are above the Newington & St Andrew’s average. In addition to this, the percentage of unfit housing is lowest of all the character areas, and is lower than the same figure for Hull and the national average. However, analysis of the remaining performance indicators creates a very different picture. For example, Coltman Street suffers the highest rate of unemployment (10.49%), and has a rank IMD score of nearly 80. Household income, GCSE performance and Air Quality are all at the bottom of the 20-point scale. Vacancy rates, range score and antisocial behaviour rates are all alarmingly low. The graph clearly indicates that severity of the problems in Coltman Street relative to not just national, regional and citywide benchmarks, but also compared to the Newington & St. Andrew’s area. The area of Coltman Street therefore presents an immense challenge. Figure 7.3 Coltman Street character area: synopsis of scores (see para 7.1 above for explanation of range used) 10 8 6

4 2 0 -2 -4

-6 -8 -10 Income - G Score Score 6months+ ASB Rate Vacancy - Inactive Household Air Quality Air Cost Score No Formal Rank of IMD Range ScoreRange Unfit Housing Unfit Economically Burgalry Rate Unmployment 5+ GCSEs A* Qualifications Qualifications

Coltman Street Newington and St Andrews Yorkshire and Humber National

Evidence Base Report 97 Boulevard South

7.2.7 The graph for the Boulevard South character area illustrates the multiplicity and intensity of the problems facing the area. Every category falls beneath the Newington & St. Andrew’s average, with the exception of vacancy rate, cost score, antisocial behaviour rate and air quality.

7.2.8 The area’s economic inactivity rate is over 48%, this is the highest of all the character areas, and is 11% and 13% above the Newington and Saint Andrew’s and Reference Area averages respectively. Boulevard South also has the highest percentage of population without formal qualifications, the third lowest mean annual income, and a rank IMD score of 70. It also has the lowest range of housing with a score of just 28%.

7.2.9 An overview of the collected data illustrates that Boulevard South is one of, if not the, most problematic character areas. The problems facing Boulevard South are diverse and acute, requiring radical and far-reaching measures for achieving progress.

Figure 7.4 Boulevard South character area: synopsis of scores (see para

10 8 6 4 2 0 -2 -4 -6 -8 -10 - G Income Score ASB Rate 6months+ Vacancy - Inactive Air Quality Household Cost Score Cost No Formal Rank of IMD Economically Unfit Housing Unfit Range Score 5+ GCSEs A* Unmployment Burgalry Rate Burgalry Qualifications

Boulevard South Newington and St Andrews Yorkshire and Humber National 7.1 above for explanation of range used)

Evidence Base Report 98

Boulevard North

7.2.10 As the graph shows, Boulevard North’s performance is consistently at a similar level to that of the Newington & St. Andrew’s average. The only notable deviation of Boulevard North from the study area average is in terms of vacancy rate; which is 6.6% compared to Newington & Saint Andrew’s’ 9.1% average. It is also worth noting that Boulevard North, performing similarly to the Newington & St. Andrew’s area, only scores higher than the Reference Area in one performance indicator: cost score.

Figure 7.5 Boulevard North character area: synopsis of scores (see para 7.1 above for explanation of range used)

10 8 6 4 2 0 -2 -4 -6 -8 -10 Income - G Score ASB Rate 6months+ Vacancy - Inactive Household Quality Air Cost Score No Formal No RankIMD of Range Score Unfit Housing Unfit Economically Burgalry Rate Burgalry Unmployment 5+ GCSEs A* GCSEs 5+ Qualifications

Boulevard North Newington and St Andrews Yorkshire and Humber National

Evidence Base Report 99 Hawthorn Avenue East

7.2.11 Compilation of the data for Hawthorn Avenue East suggests that, although experiencing numerous and severe problems, the area performs relatively better than most of the other character areas.

7.2.12 The area has the lowest economic inactivity rate of all the character areas, which at 28.8% it is considerably lower than the average for Newington & St. Andrew’s, the Reference Area, Yorkshire and Humberside (34.8%), and even the national figure (33.2%). There is also lower proportion of adults without any formal qualifications. However, despite this unemployment is extremely high at 10%.

7.2.13 Although not the area of most concern, Hawthorn Avenue East’s scores often dip below the Newington & St. Andrew’s average – most notably for burglary rate and vacancy rate.

Figure 7.6 Hawthorn Avenue East character area: synopsis of scores (see para 7.1 above for explanation of range used)

10 8 6 4 2 0 -2 -4 -6 -8 -10 Income - G Score 6months+ ASB Rate Vacancy - Vacancy Inactive Household Air Quality Cost Score No Formal IMD of Rank Range ScoreRange Unfit Housing Economically Burgalry Rate Unmployment 5+ GCSEs A* GCSEs 5+ Qualifications

Hawthorn Avenue East Newington and St Andrews Yorkshire and Humber National

Evidence Base Report 100

Hawthorn Avenue West

7.2.14 The immediate concern raised through the analysis of the table for Hawthorn West is the low Place Quality Assessment score of 47.2, which is actually the lowest of all the character areas. The graph shows that the character area’s major concerns are vacancy and burglary rates. Hawthorn Avenue West outperforms Newington & St. Andrew’s averages for unfit housing, IMD score, antisocial behaviour rate and air quality. . And on unfit housing, the explanation may lie in the history of earlier grant regimes, which tended to target homes with few amenities and less costly work needed – thus being skewed towards the smallest (and generally now least in-demand) property.

Figure 7.7 Hawthorn Avenue West character area: synopsis of scores (see para 7.1 above for explanation of range used)

10 8 6 4 2 0 -2 -4 -6 -8 -10 - G - G Income Score 6months+ ASB Rate Vacancy - Vacancy Inactive Household Quality Air Cost Score No Formal Rank ofIMD Range ScoreRange Unfit Housing Unfit Economically Burgalry Rate Unmployment 5+ GCSEs A* GCSEs 5+ Qualifications Qualifications

Hawthorn Avenue West Newington and St Andrews Yorkshire and Humber National

Evidence Base Report 101

Dairycoates East

7.2.15 The graph for Dairycoates East highlights the fact that the character area is one of the most problematic within Newington & St. Andrew’s. The indicators for vacancy rates, unemployment, economic inactivity, household income, absence of qualifications, IMD rank, GCSE attainment, burglary rate and air quality are all beneath the Newington & St. Andrew’s averages. This consistent underperformance, as illustrated by the graph, exemplifies the acuteness of the issues facing Dairycoates East.

7.2.16 Of all the indicators, economic inactivity and formal qualification are of most concern, ranking second worst of all the character areas, falling behind only Boulevard South.

Figure 7.8 Dairycoates East character area: synopsis of scores (see para 7.1 above for explanation of range used)

10 8 6 4 2 0 -2 -4 -6 -8 -10 Income - G - G Score ASB Rate 6months+ Vacancy - Vacancy Inactive Household Air Quality Cost Score No Formal IMD of Rank Range ScoreRange Unfit Housing Economically Burgalry Rate Burgalry Unmployment 5+ GCSEs A* GCSEs 5+ Qualifications Qualifications

Dairycoates East Newington and St Andrews Yorkshire and Humber National

Evidence Base Report 102

Dairycoates West

7.2.17 Table 1.1 shows that Dairycoates West performs extremely low in terms of PQA - a score of 49.5 for the area is well beneath the Newington & St. Andrew’s average of 61, and is in behind only boulevard South and Hawthorn Avenue West overall. As the graph shows, there are numerous indicators below the Newington & St Andrew’s average. Of notable concern are low economic activity rates, household income levels and the lack of formal qualifications. Only the level of unfit housing, cost score, unemployment and antisocial behaviour rates outperform the Newington & St. Andrew’s average. As in Hawthorn Avenue West (see 7.2.7 above), the unfitness score may reflect previous grant regimes, and perhaps downplay some of the problems.

Figure 7.9 Dairycoates West character area: synopsis of scores (see para 7.1 above for explanation of range used)

10 8 6 4 2 0 -2 -4 -6 -8 -10 Income - G - G Score Score 6months+ ASB Rate Vacancy - Vacancy Inactive Household Air Quality Air Cost Score No Formal Rank of IMD Range ScoreRange Unfit Housing Economically Burgalry Rate Unmployment 5+ GCSEs A* Qualifications Qualifications

Dairycoates West Newington and St Andrews Yorkshire and Humber National

Evidence Base Report 103 7.3 Building the picture: unpicking the problems

7.3.1 It is clear that the area suffers from multiple deprivation that covers economic, social and physical characteristics. Taking this generality as given, we have identified a number of areas where the broad categories share some commonalities, and where similar responses may prove appropriate.

7.3.2 The first area of commonality is the area to the North of Anlaby Road. Though problematic in the wider Hull/East Riding context, the area (especially Anlaby Road West) tends to outperform the rest of Newington & St. Andrew’s. In particular the housing market appears somewhat more robust, although the levels of unfit housing suggest that the area had not received as much attention as other parts of Newington & St. Andrew’s. This may well reflect relatively high levels the lower end of the private sector housing market. Deprivation levels are less severe though nonetheless highly problematic and unemployment is lower. In relation to crime, qualifications and economic inactivity, the two constituent character areas differ too substantially for a common conclusion.

7.3.3 The interventions for this area will require consideration to the full spectrum of social, physical and economic issues, but the requirements for this northern part of Newington & St. Andrew’s are quite different from the rest of the area. Major restructuring of the urban form is not required, though opportunities do exist for sympathetic new build which enhances the residential offer and which better frames and enhances existing open space assets. In general, the physical structure is stronger, though the public realm, local environment and the proportion of unfit housing stock are all in need of focussed attention. Deprivation, though less severe, is of serious concern, and there is a need to support the community through a range of social and economic support measures.

7.3.4 The second area with common features is the western fringe, comprising the character areas of Hawthorn Avenue West and Dairycoates West. Here much physical change, including demolition and clearance has already occurred. The areas thus logically scores very poorly in terms of the Place Quality Assessment and vacancy rates. Set aside these very poor physical environment issues, the people, skills and communities data point to a somewhat more mixed picture. Unemployment and levels of economic inactivity are poor, but not as acute as elsewhere in Newington & St. Andrew’s. Income levels are also relatively low. However levels of deprivation are noticeably higher in Dairycoates West than in Hawthorne Avenue West - most likely reflecting the levels of clearance which have occurred in the latter. These two areas are already undergoing substantial change and can be viewed as areas in transition. The current physical environment is very weak and new development will need to create positive places to live for displaced and new residents. A key lesson from other locations undergoing similar change will be to ensure that new developments are physically inclusive and not walled-off, gated communities - thus benefiting the wider community, enhancing the perception of Newington & St. Andrew’s, and allowing the pockets of “goodness” to spread.

7.3.5 The third major area of commonality is the two main high streets (Anlaby and Hessle Roads). Though different in many ways (strengths, weaknesses and markets), they do have a wider impact on the health of the whole of Newington & St. Andrew’s and investment to enhance the public realm

Evidence Base Report 104 (substantially) and in the quality of facades and the retail/community services offer will have a disproportionate impact on the whole of the area and in particular its sense of place and the image of the locality.

The Core of Newington & St. Andrew’s

7.3.6 In the remainder of the study area (covering Hawthorn Avenue East, Dairycoates West, Boulevard North, Boulevard South and Coltman Street), the picture is very varied and grouping between areas risks missing the important differences between the character areas. We attempt below to link the performance of the remaining areas by theme, rather than by geography. The purpose of this is to help inform the thematic interventions which may follow.

7.3.7 In terms of quality, there is a quite a spectrum in the physical place quality scores, ranging from Coltman Street (high) to Boulevard South (low), while Boulevard North and South contain high proportions of unfit housing. Hawthorn Avenue East and Dairycoates East however both contain higher proportions of vacant stock.

7.3.8 In terms of the local labour market, the story changes rapidly and substantially between the different character areas. Unemployment levels are consistently high ranging from 8.9% in Boulevard South to a high of 10.49% in Coltman Street. Conversely, the highest proportion of economic inactivity is found in Boulevard South (48.7%), with the lowest Hawthorn Avenue East (28.8%). This variation in such close proximity (the intervening character area – Boulevard North lies mid-way between the two (37.1%)) indicates rapid changes in the socio- economic picture over very small distances. To muddy the waters even further, the proportion of individuals with no qualifications is actually lowest in Coltman Street (41.8%), while it is highest in Boulevard South (61.7%) and Dairycoates East (58.6%). Deprivation levels meanwhile are most severe in Coltman Street, and least severe in Hawthorn Avenue East, though they are extremely high across the whole of Newington & St. Andrew’s.

7.3.9 On balance the central core of the study area paints an extremely complex picture with conflicting physical, social and economic indicators. This helps us to understand the degree of the problems and where each individual problem is most acute within the area. However, it is clear that while the physical environment is often left wanting, there are elements on which to build. In social and economic terms, the area varies hugely depending on the individual indicator, but on balance performance is somewhat less problematic to the North and West (Hawthorn Avenue East and Boulevard North), with the most consistent problems evident to the South and East (Dairycoates East, Boulevard South and Coltman Street).

7.3.10 In contrast with the northern and western components of the wider Newington & St. Andrew’s area, where the problems might be more thematically consistent (to the north, arguably more social than physical, with the physical focussing on local environmental enhancements and investment in the stock; to the west the focus is on getting the new elements right and on ensuring that the existing communities get the maximum benefit), this central component requires a complex multi- pronged approach in each instance, with a need to address the physical and social dimensions within each character area. The local specificities of the problematics should not, however,

Evidence Base Report 105 mask the overall goal for the regeneration of the wider area based on a strong vision of what Newington & St. Andrew’s can become. The justification for intervention is evident across multiple indicators based on the areas many acute structural weaknesses. What is also clear, however, is that the area has many of the fundamental components of great places and the right interventions can help to release this potential, returning Newington & St. Andrew’s to a vibrant, successful area of choice, which can provide a quality of life which would appeal to residents, old and new.

Area analyses and area proposals

7.3.11 This Evidence Base report has brought together a number of different ways of looking at Newington & St. Andrew’s, drawn from a number of sources. As noted in section 1.1.4 in the Introduction, the analyses also vary in their sub-division of the study area: reflecting, for example, the housing market analysts’ sub-division of the market areas, and also the urban designers’ assessment of “character areas”. Neither match exactly the 8 neighbourhoods used for discussion with stakeholders and in the Area Action Plan (AAP)’s proposals for each sub-area within Newington and St. Andrew’s.

7.3.12 The proposals in the AAP for each neighbourhood thus emerge from a range of sources – the locality housing market judgements summarised in para 3.3.4 above; the place quality assessments of each character area summarised at para 4.5.6; the intensive review of each neighbourhood’s options and their feasibility carried out by the clients and consultant team prior to the “Issues & Options“ consultation; and the neighbourhood by neighbourhood responses from residents and other stakeholders to that consultation.

7.3.13 In addition, some of the analyses and the resultant proposals are more widely applicable, and do not draw particularly strongly on the area-specific evidence at neighbourhood level.

Evidence Base Report 106 8 Local Economy and Business

8.1 The Employment role

8.1.1 This report has so far concentrated on the residential role of Newington & St. Andrew’s. But inner West Hull is also an important part of the city’s economy.

8.1.2 South of Hessle Road, and not forming part of the housing market renewal area (though clearly intimately connected with the area covered by the Area Action Plan), is a substantial industrial area. Historically, it formed part of the mainly residential district either side of Hessle Road, but it was cleared and redeveloped in commercial use during the 1970s.

8.1.3 Now, its roles can be summarised as:

• A source of substantial local employment;

• An integral part of the city economy, with a mixture of industry, warehousing, back-up services for the city centre, and local service activities;

• A barrier – with the A63 Clive Sullivan Way – between the residential hinterland and the river front of the Humber.

8.1.4 Employment land across the whole Newington & St. Andrew’s area is estimated to be 13,256m2 - with the main industrial area to the south of Hessle Road providing the majority of this, at some 6-7,000 jobs. Other industrial and manufacturing employment is evident to the west of Hawthorn Avenue (about 1,000 jobs). Retail and related provision connected with the two main roads is also significant, with approximately 2,500-3,000 people employed in the Hessle Road district centre and a further 1,000 in the Anlaby Road local centre.

8.1.5 Thus employment in the area can be divided into four broad categories in relation to location and business type:

• the majority of industrial and commercial business is located to the south of Hessle Road;

• a small amount is also located to the West of Hawthorne Avenue;

• Hessle Road, and Anlaby Road, form two distinct shopping streets, offering both small and large units.

8.2 The Business Survey

8.2.1 A business survey was undertaken in the Hessle Road employment area of Newington & St. Andrew’s by Hull City Council’s Area Planning Team. The area encompassed the whole of Hessle Road, including both sides of the shopping area, with all streets to the south up to and including West Dock and Goulton Street. Daltry Street forms the eastern boundary and Brighton Street the western extent. The study was undertaken to gain information about scale, nature, constraints, opportunities and attitudes of local businesses. It was divided into three distinct parts:

2 Source: Annual Business Inquiry, 2005

Evidence Base Report 107 • First, a questionnaire survey took place throughout August contacting over 300 businesses in the area; • Second, a photographic and condition survey was undertaken in parallel to the questionnaires; and • Third, a desk top study was undertaken to find any other information for the area. 8.2.2 For the Desktop research, several information sources were contacted: Hull Economic Development, the Rates Section of Hull City Council and the Economic section of the Forward Planning department, all were asked to provide any information they had gathered on the Newington & St. Andrew’s area. In practice this was largely limited to tracking down an earlier (2005) survey by the Planning Department. This is included as Appendix 5. Although some of the retail units have subsequently changed due to the age of the survey it does provide an insight into the make-up of Hessle Road.

8.2.3 For the Photographic and Condition survey, a photo was taken when each business was contacted, and the general state of the business premises was recorded. This was ranked as very good, good, fair, average, poor or very poor. The ranking was only a subjective indication of the business premises, and was often a reflection of the relative condition of the surrounding area.

8.2.4 The Questionnaire surveys were distributed door to door with an arranged time for collection. In most cases this was the following week. In some instances surveys were carried out with the business. However, these were extremely time consuming and presented technical difficulties due to the operation of the business. Each business was revisited and if the survey was still not complete a subsequent time was arranged or a request for postage was made. Many businesses did post a response however this was not always the case. If a response was still not forthcoming then it was considered as a not willing to take part. For the survey 328 businesses (170 Hessle Road) were contacted, with 98 (48 Hessle Road) willing to participate to varying degrees. This represents a response rate of around 30% (28% for Hessle Road). The questionnaire schedule can be seen in Appendix 5.

8.2.5 The response rate would have been higher but many cited a lack of time and resources due to staff holidays during August. Only a small percentage of businesses appeared to resent the Council contacting them, with even fewer complaining about the constant regeneration of the area. Yet, there were individual cases whereby business owners felt they had been through the process before. This means any future work should be undertaken with great care as this could lead to potential conflicts.

8.2.6 33 businesses submitted comments regarding the regeneration of the area with many citing security and the street scene (parking, loading and lighting) as the most pressing issues, individual comments can be seen in the Appendix 5.

8.2.7 Due to the large size of the questionnaire many results and relationships can be drawn; this chapter summarises some of the most important findings to be gained from the information gathered.

Evidence Base Report 108 8.3 External Condition, Appearance & Maintenance

8.3.1 Most businesses keep their properties well maintained. The graph below draws together the area-wide figures from the photographic and condition survey. There were no businesses that were considered as ‘very poor’. However, as noted, the judgement on businesses condition was a relative one based on the surrounding area.

Evidence Base Report 109 Figure 8-1 Condition of Business Properties

All businesses 40 Hessle Road shops 30

No. of Properties 20

10

0 Very Good Fair Average Poor good

8.3.2 The graph also shows a breakdown of the condition of the Hessle Road shops. These businesses are on the whole less likely to be well-maintained, with higher numbers in the fair and average categories. There are also a higher proportion of properties considered as poor. This reflects the wide variety of businesses in the area, from small single traders to large scale businesses.

8.3.3 The following photographs give an insight into some of the types of properties in the area and their condition. They illustrate first the area south of Hessle road, and then look along Hessle Road section by section.

South of Hessle Road

Evidence Base Report 110 Hessle Road Section 1 - Daltry Street – The Boulevard

Evidence Base Report 111 Section 2 –The Boulevard – St. George’s Road

Evidence Base Report 112

Evidence Base Report 113 Section 3 St. George’s – Railway Lines

Evidence Base Report 114 8.4 The Businesses Today

Business Types 8.4.1 The responses to the Questionnaire survey provided information on a wide range of issues, ranging from the state of the businesses today to their concerns and expectations.

8.4.2 The graph at the end of Appendix 5 illustrates the major businesses types in the area. As can be seen there are certain businesses that are well supplied in the area including Motor vehicle repair/maintenance (13), Wholesale of food, beverages, tobacco (13), Retail of food, beverages, tobacco in non specialist stores e.g. General Stores/Supermarkets (16), Retail sale of clothing (10), Retail sale of furniture, lighting & household goods (22) and Takeaway food shops (16). There are also several specialist businesses such as shipbuilding and repair operating in the area.

Size of Businesses 8.4.3 Most businesses in the Hessle Road area are small enterprises employing only a few staff. However, there are also a number of larger employers in the area with several of over 100 employees. There are several large firms such as Smith and Nephew and Smales in the area that employ large numbers. Interestingly, this shows the range of activities taking place within a fairly tightly defined area, from sole trader to multi- national business. This is also reflected in the number of part time employees, with most part time employment being of only a small amount. There is an average of 2 part-time employees and 13 full-time per business. However, this is dependent on whether the business is a Hessle Road shop or not.

8.4.4 In terms of the scale of employment, there is a clear differentiation between the smaller retail/leisure activities along Hessle Road – these smaller businesses support in the region of 2,500-3,000 jobs. The industrial estate with larger businesses accommodates somewhere in the region of 6-7,000 jobs. The graph below shows the number of employees of the surveyed businesses.

Figure 8-2 Numbers of full-time employees of Newington St Andrew’s businesses

200

150 Full Time Employees

100

50

0

Evidence Base Report 115

8.4.5 Figure 8.3 below shows the structure of the local businesses operations. As can be seen, the majority of businesses surveyed operate from a single site followed by a branch. Those that have more than one outlet in the majority operated 2 sites, with 2 other businesses having 3 and 4 sites.

Figure 8-3 Number of sites

A single Site/Outlet

More than one site/outlet in the Hull area

A branch/outlet of a larger organisation

Length of Business Establishment

8.4.6 The businesses operating vary in their length of establishment in the area- with 55% under 10 years old and 45% over 10 years old. As the graph shows, many have been established for over 10 years with extreme examples of 50 and 87 years. The number of businesses under 10 years old reflects the opportunities that are available in the area for companies to start up.

Figure 8-4 Length of operation in Newington and St Andrew’s

100

75

Months 50

25

0

Surveyed companies

Evidence Base Report 116

Profitability over the past 24 months

8.4.7 In general the turnover and profitability has remained fairly constant over the past 24 months. The profitability is slightly lower than turnover showing a general trend of the market becoming tighter. Only small numbers of businesses are becoming less profitable which is a promising sign for the area as a whole.

Figure 8-5 Turnover and Profitability for businesses in the Newington and St Andrew’s area

50

Turnover 40

30

20

10

Increased by Increased Stayed about Decreased Decreased by more than 10% by up to the same by up to more than 10% 10% 10%

60

50

40

30 Profitability

20

10

0 Increased by Increased by Stayed Decreased by Decreased more than 10% up to 10% about the up to 10% by more same than 10%

8.5 The Workforce

Where the workforce live

8.5.1 This graph illustrates that most workers in Newington & St. Andrew’s do not live in the area. For those with 100% of workers from the area these are often sole traders with a shop on Hessle Road. Within the 0-25 band 55 businesses have 0 employees in Newington & St. Andrew’s, this represents 57% of all businesses that responded.

Evidence Base Report 117

8.5.2 In terms of Travel to Work data, the Alan Baxter’s transport and movement chapter provides some useful context information. Some 30% of residents do work within the area – especially to the south. The single largest destination is Hull city centre (36.3%), while 15.9% and 10.9% of commuters travel to the west and north of the study area respectively. Newington & St. Andrew’s enjoys very high levels of walking, cycling and public transport in terms of mode of journey to work making the current patterns very sustainable and in need of support.

Figure 8-6 Percentage of Employees who are also residents of the Newington and St Andrew’s area.

0-25 26-50 51-75 75-100

Stability of Employee numbers

8.5.3 The employee numbers over the past 2 years have remained fairly stable as this represents the largest proportion of the chart at around 70% of the total. For those businesses not remaining static, on the whole, there is an increase in staff numbers of around 20% of the businesses and a decline in numbers of about 10% for those others.

Figure 8-7 Employee turnover over the last 2 years.

Increased by more than 20% Increased by more than 10%

Increased by up to 10% Stayed the same Decreased by up to 10% Decreased by more than 10% Decreased by more than 20%

Evidence Base Report 118 8.6 Locational Factors

8.6.1 The section looks at how location is perceived by the businesses of Newington & St. Andrew’s. From analysing the graph, it is evident that the major strengths of the area are perceived to be its good road links and accessibility for customers use. The cost and availability of premises is also an asset. One of the major weaknesses is the security of the area and its environmental appearance. These factors continually appear in comments and discussions illustrating their importance to the future of businesses in the area.

Figure 8-8 Benefits of the location for businesses

400

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300 Performance Ranking 250

200

150

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50 Cost of Labou Premises availabilit 0 A Premises cost Proximity to customers Customer access Proximity to suppliers Road links Rail links Environmental appearance Security of area Property values Proximity to Hull City Centre A A

Skills vailability of labour ccess to support services ccess to capital/ finance r y

8.6.2 Figure 8.9 below shows the factors behind business location in Newington & St. Andrew’s. Availability of premises ranks first, followed by the cost of the building and the proximity to residence. Many businesses are located due to historical reasons such as taking over an older firm or a family business. Few businesses are located in their current positions due to the factors associated with labour.

Figure 8-9 Reasons for location in Newington & St. Andrew’s Proximity to residence Historical reasons (e.g. acquired existing business) Availability of labour

Cost of labour Property costs Property availability

8.6.3 In addition to the aspects included in Figure 8.9, several other factors were mentioned, including;

• West of River Hull with good access to motorway • Customers • Close to main road link out of and into the city • Good parking and access, near ASDA

Evidence Base Report 119 • Access to A63 • Good links to road access • Location • Fish Area • Walk in trade • Easy car parking for us and clients and candidates

Possible relocations

8.6.4 The majority of businesses (74%) appear to be happy with their current size and location. This means that 26% of businesses are considering moving, with 15% of these wanting to leave the Newington & St. Andrew’s area. The reasons for moving can be seen in the table below.

Figure 8-10 Reasons given for considering relocation out of Newington & St. Andrew’s Bigger in Newington & St. Andrew’s Bigger out of Newington & St. Andrew’s Bigger out of Hull

Smaller in Newington & St. Andrew’s Smaller out of Hull Smaller out of Newington & St. Andrew’s Not Moving

Evidence Base Report 120 8.7 Business Perceptions

Perceptions of change in the physical & built environment

8.7.1 Most businesses believe the physical and built environment has on the whole remained the same over the past 3 years. However, around 28% do feel the area is getting worse compared to around 17% who believe it is improving. One significant effect on this statistics is how ASDA has affected the Hessle Road shopping area. Many of the businesses surrounding the store believe that it has helped the surrounding environment, whereas those businesses towards the Daltry Street end of Hessle Road believe the area is neglected and becoming run down.

Figure 8-11 Perceived change in the physical and built environment

improved same worse

Perceptions of change in The Social Environment & Community Factors

8.7.2 Again most businesses believe that on the whole the social environment has remained the same. However, very few businesses (just 6%) feel that the area is actually improving with 39% of the respondents stating that the area has become worse over the past 36 months.

Figure 8-12 Perceived change in the social environment

improved same worse

Evidence Base Report 121 Perceptions of change in Physical Security

8.7.3 For security there is a fairly even split between businesses that feel the area is becoming less secure (44%) and those that feel it has remained the same (47%). Only a small number feel that the area has become safer over the last three years showing that this is a critical problem for Newington & St. Andrew’s.

Figure 8-13 Perceived change in physical security

improved same worse

Perceptions of the business future

8.7.4 These three graphs indicate the general optimism of businesses in the area. In all three only a very small amount of businesses believe that market size, share and the numbers employed will fall. In general most businesses feel that things will remain the same over the next two years. However, a significant percentage also believes that their current situation will get stronger.

Figure 8-14 Perceptions of the business future

Market size Number Employed Employee Numbers

improve

same worsen

Evidence Base Report 122 8.8 Some of the key factors & issues

Key Factors for Future Operation 8.8.1 The security of the area, premises cost, customer access and proximity, road links and environmental appearance are the most important factors to the future operation of businesses in the Newington & St. Andrew’s area. Factors such as finance and proximity of suppliers are of a low importance with rail links as the least important. Security was consistently mentioned in discussions, as well as comments such as the appearance of the area and the availability of parking and access. The comments gathered during the survey (33 sets in total) are set out in the Appendix 5 and outlined below.

Figure 8-15 Key factors in the future of Newington & St. Andrew’s business performance

400

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Key Factors 200

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0

r

y

r

skills rail links rail of area of labou y road links y to customers y premises cost cost of Labou

customer access customer Securit premises availabilit premises availabilit roximit proximity to suppliers p access to capital/ finance access to capital/ environmental appearance access to support services

Security 8.8.2 Security is the most common issue amongst both types of business. This includes serious crime and other crimes such as graffiti, fly tipping and litter. Alongside security the role that shutters play was frequently highlighted as helping protect against crime. CCTV was also considered important with access to the footage, i.e. not just for show. Anti-social behaviour was mentioned with the fear created by people drinking on the street and the need for more police walking along the road. Parking 8.8.3 For the Hessle Road businesses parking is a significant issue. Many cite the lack of customer parking especially since the development of St Andrew’s Retail Park. Also the access for those to park as many of the side streets can be confusing due to the number of dead ends, yellow lines and one way streets. Related to this issue is the ease of getting deliveries and their ability to park and unload. Others thought that there was too much traffic along the street.

Evidence Base Report 123 Physical Environment 8.8.4 The street scene is another important area. Comments were made on the condition of flag paving, the cleanliness of the street and the physical appearance of the buildings on it. Suggestions were also made for a tidier street in regards to the furniture and that some parts are too narrow. The need for better street lighting was also mentioned. To the South of Hessle Road comments were put forward for more planting to generally enhance the area. Other Issues 8.8.5 Comments were made about the types of shops making up the mix on Hessle Road. Some traders believed that there were too many amusement arcades. Another comment was received criticising the number of ‘junk shops’. This representation refers to the amount of Second Hand and Charity shops in the area. Attitudes to Regeneration 8.8.6 The need for Regeneration in the area was expressed frequently especially in respect of Coltman, Wellsted and Gee Streets, as being vital for the area. The vacant site of Kwik Save was also an issue.

Willingness to take part in:

More detailed questionnaire 38

Structured Interview 24

Consultation Groups 26

8.9 Summary

• A good range of businesses in the area; however the variety of shop types along Hessle Road appears to be falling. • Length of operation of businesses ranges from many >10yr business to a significant number of <2yr, with over 70% content with their current location. • The road links appear to be an influential factor in the operation of the Newington & St. Andrew’s businesses; roads, traffic and parking issues are as ever a recurrent theme. • Few businesses are located in their current positions due to labour market factors. • The local employment role of the industrial area should perhaps not be overstressed – over half of even the smaller businesses had no employees from Newington & St. Andrew’s, and the proportion could well be even higher in the bigger firms south of Hessle Road. • Improvement of the general street scene is sought, with more planting needed in the business area to the south. • Security of the area is a critical factor to most businesses.

Evidence Base Report 124 9 Flood Risk

9.1 Introduction

9.1.1 This section explains the level(s) of flood risk within the Newington and St Andrew’s area and how this is taken into consideration in the AAP proposals. It describes the Government guidelines and requirements, the results of Hull Strategic Flood Risk Assessment and applies the ‘Sequential’ and ‘Exception’ Tests.

9.1.2 A Strategic Flood Risk Assessment (SFRA) has been completed for the Hull City area. A Scoping Study (Level 2) Flood Risk Assessment (FRA) has also been undertaken by Arup to inform the AAP (using the SFRA as a basis) with a specific focus on the Newington & St. Andrew’s area. Using these documents and other sources of information it is possible to ascertain the flood risk posed by tidal, fluvial and surface water flooding.

9.1.3 This chapter has been written with reference to the guidelines set out in ‘Planning Policy Statement 25, Development and Flood Risk’ (PPS 25) and follows the methodology prescribed in CIRIA report C624 ‘Development and Flood Risk’.

9.1.4 The PPS 25 Sequential Test aims to steer new development to the areas of lowest flood risk. The SFRA demonstrates that if the city is assessed without flood defences, the majority of the city, including the entire Newington & St Andrew's area, is located within Flood Zone 3a High Probability. Further work between Hull City Council and the Environment Agency has identified 3 sub-zones within Flood Zone 3a to determine the flood risk in better detail. The combination of Flood Risk Vulnerability and Compatibility of the proposed development will require an Exception Test to be passed.

9.1.5 The initial scoping study (level 2) Flood Risk Assessment undertaken to inform the AAP has indicated that the potential sources of flood risk to the development site and adjacent areas are as follows:

• Fluvial • Tidal (including estuarial) • Overland flow • Capacity exceedance of artificial drainage systems • Infrastructure failure 9.1.6 It will be important to pay careful consideration to the key flood risk infrastructure design requirements outlined and ensure that these requirements are integral to the evolution of the development proposals.

9.1.7 If the documented mitigation measures are developed to a sufficiently detailed stage and adhered to, it is considered the sites within the AAP area may be suitable for a range of development proposals, engineered in conjunction with the future detailed design and quantitative (level 3) Flood Risk Assessment, but the location of all “more vulnerable” development types must be driven by residual flood risk protection.

Evidence Base Report 125

9.2 Flood Risk Planning Context

9.2.1 Planning policy guidance exists to ensure that flood risk issues are considered when planning and designing new development. A detailed flood risk assessment is required for the majority of developments at the submission of a planning application.

9.2.2 PPS25 formulates a sequential risk-based approach towards flooding to be adopted at all levels of planning. PPS25 not only puts a commitment on developers to consider flood risk it also confers responsibility to planning bodies to consider flood risk in the preparation of development guidance. A framework has recently been implemented whereby Regional Planning Bodies (RPBs) and Local Planning Authorities (LPA) have a responsibility to prepare planning strategies that help to deliver sustainable development, which includes flood risk. The RPB have a responsibility to consider flood risk while preparing the regional development objectives in the Regional Spatial Strategy (RSS), the LPA is then required to prepare the Strategic Flood Risk Assessment (SFRA) in consultation with the Environment Agency (EA). This document classifies all the land within an area in terms of its flood zones, extending and refining the flood zones defined by the EA, as found on their website.

9.2.3 Ultimately, those proposing developments are responsible for the following:

• Demonstrating that the proposals are consistent with the policies within PPS25.

• Providing a FRA to show: 1. The proposed development is unlikely to be affected by flooding and whether the development will increase flood risk elsewhere. 2. The development is safe and where possible reduces flood risk.

3. Management and funding arrangements to ensure the site can be developed and occupied safely throughout its proposed lifetime.

• Implementing designs which both reduce flood risk for the development and its surrounding area.

• Identifying opportunities to reduce flood risk, enhance biodiversity, protect the historic environment and seek collective solutions to managing flood risk.

9.2.4 PPS25 requires that the “Sequential Test” approach to mitigating flood risk be applied during the planning process. Where it is not possible to develop in areas of the lowest probability of flooding, the “Exception Test” may be applied to see whether it is possible to manage flood risk while allowing development to occur.

9.2.5 PPS25 retains the definition of river and sea Flood Zones 1 and 2, but it does change the definition of the sub-zones within Flood Zone 3. PPS25 retains the “functional floodplain” as a sub-zone within Zone 3, with an amended definition. These

Evidence Base Report 126 Flood Zones are shown in Table D.1 from PPS25. Table D.2 of PPS25 determines Flood Risk Vulnerability Classification as; Water Compatible Development Essential Infrastructure, Highly Vulnerable, More Vulnerable, and Less Vulnerable.

9.2.6 These two key tables are then referenced together to show Flood Risk Vulnerability and Flood Zone Compatibility in Table D.3, shown below.

Table 9-1: Flood Zones as per Table D1 Annex D in PPS25

Table 9-2: Flood Risk Vulnerability & Compatibility (Table D3 as defined by Annex D in PPS25)

9.3 The Sequential and Exception Tests

9.3.1 A sequential risk based approach to determining the suitability of land for development in flood risk areas is essential at all levels of the planning process. The Sequential Test aims to ensure preference is given to land within flood zone 1 prior to land in zones 2 and 3 being considered for the same development. It also ensures that the flood vulnerability of the proposals is taken into account when locating developments within flood zones 2 and 3.

9.3.2 Should the sequential approach show it is not possible for the development to be located in zones of lower flood risk due to other wider sustainability objectives; it may be possible to show using the Exception Test that the development is still feasible by the management of flood risk.

Evidence Base Report 127 Sequential Test

9.3.3 The sequential test aims to steer development to the areas of lowest flood risk; refer to Table D.3 above.

9.3.4 A SFRA has been prepared on behalf of Hull City Council (HCC) and the final draft has been used as the basis for the Scoping FRA that this chapter is based on. The SFRA demonstrates that if the city is assessed without flood defences, the majority of the city, including all of Newington & St Andrew's, is located within Flood Zone 3a, as shown on Figure 9-1.

Figure 9-1 Flood Zone Map of the Newington & St. Andrew’s area

9.3.5 Conventionally this would mean that development within the city boundary would be very limited having a detrimental effect on the economic potential of the city. Consequently, before the SFRA had been commissioned the EA and Hull City Council developed a system whereby the risk to different areas was reassessed based on the level of protection offered by existing defences and the implications of failure of defences. The SFRA has adapted and formularised this approach with the establishment of three sub zones within Flood Zone 3a:

• Flood zone 3a (i) – Low flood hazard zone. Area is protected to the appropriate standard of protection where the consequence of the defences failing is unlikely to be life threatening. • Flood zone 3a (ii) – Medium flood hazard zone. Areas protected to the appropriate standard of protection where the consequence of defences failing is unlikely to be life threatening but damages to property may be significant. • Flood zone 3a (iii) – High hazard zone. If a breach were to occur these are areas where there would be a threat of loss of life. • Flood zone 3b – Functional floodplain. Areas where water has to flow or to be stored in times of flood. 9.3.6 These flood zones are also shown on Figure 9-1 above

9.3.7 Additional work has also been undertaken to determine the flood risk posed by surface water flooding. Hull’s drainage

Evidence Base Report 128 network has been modelled and flooding depths have been recorded for a number of different simulations. These results have then been used to determine the flood ‘hazard’ posed by surface water flooding.

9.3.8 With the establishment of these amended flood zones, a set of minimum requirements for planning applications have been established within matrix 7 found in Appendix D of the final SFRA. However discussions are still ongoing between the EA and Hull City Council to agree the exact wording within the matrix. In lieu of the matrix being agreed the requirements found within Appendix D of the SFRA is the basis of development guidance in Hull. The details of relevance are shown below in Table 9.3.

Table 9-3: Hull Local Flood Risk Standing Advice

9.3.9 The majority of Newington & St. Andrew’s is located within Flood Zone 3a (i). The redevelopment proposals are such that for the areas located with Flood Zone 3a (i) although there may be a change of land use, there is not going to be any difference in the vulnerability classification as described in PPS 25 Table D2. The implications of this are that there will not be any need for the sequential or exception tests. However, the floor levels of the buildings will have to be set at 300mm above the average ground level and then 300 mm of flood proofing will have to be provided. A detailed FRA will have to be supplied with planning applications that demonstrates this. The AAP’s Design Guidance takes account of this advice.

9.3.10 However, a section of the Newington and St. Andrew’s area is shown to be within Flood Zone 3a (ii). This includes all of Anlaby Road from the rail bridge to the east to the railway embankment located to the west of the site boundary. This

Evidence Base Report 129 area includes West Park, the former Riley College site and an area of existing housing to the south and west of the former college. The EA have requested that the principles of the sequential test be applied to the AAP as such highly vulnerable and more vulnerable land uses should be steered away from Flood Zone 3a (ii), particularly if there is a change in land use.

9.3.11 Consequently, the Exception Test will be required if the land currently occupied by West Park, Riley College and the accompanying playing fields are identified for residential dwelling land use.

9.3.12 Land within flood zone 3a (ii) currently used for more vulnerable land uses will have to satisfy the minimum requirements whereby floor levels of the buildings will have to be set at 600 mm above the average ground level and then 300mm of flood proofing will have to be provided. A detailed FRA will have to demonstrate this when planning applications are submitted. This is reflected in the AAP’s Design Guidance.

Exception Test

9.3.13 If the combination of Flood Risk Vulnerability and Compatibility of the proposed development ultimately requires an Exception Test to be passed, which should be anticipated, the following three key areas would have to be satisfied:

a) The proposed development will provide wider sustainability benefits to the community that outweigh flood risk. b) The development should be on developable previously developed land and if not, there should be no reasonable alternative sites. c) The detailed FRA submitted for a future planning application must demonstrate that the development will be safe, without increasing flood risk elsewhere and where possible has reduced overall flood risk. 9.3.14 Each point of the test is addressed below in relation to the proposed development on the former Riley College site:

a) The regeneration and sustainability case for development on the key available sites in Newington & St Andrew's, which is made throughout this document and summarised in the following chapter, is very strong. The former Riley College site is one of the two available sites identified for housing development as part of the regeneration proposals. Inevitably, to undertake a large scale transformation in an area which needs housing renewal – the AAP proposes more than 2000 house demolitions, sites are needed to build new housing in parallel to the acquisition/demolition process to keep the residents within the area, support services, shops and facilities, and importantly, build confidence within the community and attract new residents and increase the mix of people in the area. In that respect, the development anticipated for Riley site would have an important role to play, providing a higher market, lower density housing which would appeal to families. Along with the flood mitigation measures required (see initial scoping study (level 2) Flood Risk Assessment), this is judged to outweigh the flood risk posed.

Evidence Base Report 130 b) The proposed development is mostly on greenfield land – although most of the site is allocated for housing already in Hull Local Plan. A proportion of the site – the former Riley College itself – constitutes previously- developed land. Within the plan area, there is no alternative brownfield site available that will support the wider regeneration aims of the AAP although, through demolition, brownfield land will gradually become available. The phasing plan shows that development in the cleared areas will occur straight after the demolitions. The phasing of development for the Riley site college is spread out between 2008 and 2024. The rationale behind this is that both types of sites come forward simultaneously. The development of Riley site will not be an alternative to the brownfield sites created through clearance such as in the Hawthorn Avenue area between 2008 and 2017). The detailed phasing of Riley site development will need to relate to what is happening on the clearance sites. Should the rate of new build housing overall not be delivered at the anticipated pace in the plan area and causing delays to the development of brownfield sites created through demolitions, development in the plan area would be prioritised to these sites.

c) See below.

The Requirement for Site Specific Flood Risk Assessments

9.3.15 An appropriate site specific FRA will be required to accompany full planning applications within the Newington & St. Andrew’s area, to demonstrate that the minimum requirements outlined in Table 9.3 have been adopted and where necessary the Exception Test has been passed.

9.3.16 The Flood Risk Assessment should form part of an Environmental Statement, where one is required as part of a planning submission.

9.3.17 A detailed FRA should conclude the Sequential Test and if required, the Exception Test.

Evidence Base Report 131 10 Green Space Audit

10.1 Introduction

10.1.1 A green space assessment, the Hull Open Space, Sport and Recreation Study, is being developed in accordance with the requirements of Planning Policy Guidance Note 17 (PPG17) and its Companion Guide. It provides an overview of the current provision of open space, sport and recreation facilities across Hull and assesses future needs.

10.1.2 This section summarises the results of the study in relation to the Newington & St Andrew's area and looks at the way the AAP contributes to delivering some of the early recommendations made in the study. This is an important issue given that the Area Action Plan seeks to make Newington and St Andrew’s a ‘greener’ area.

10.1.3 Whilst there is a net loss of green space, the AAP is consistent with the assessment, and national guidance from CABE Space, in its understanding that the quality of green space is more important than quantity. The AAP makes provision for the upgrading of some 46 hectares of existing green space.

10.2 Addressing the issues raised in the assessment

10.1.1 The study classifies green spaces into several categories, as set out below. The paragraphs below summarise the results of the study and show how proposals take on the recommendations.

10.2.2 Parks: the current provision of parks is adequate for the majority of residents within 20mins walking distance. In terms of quality, parks in the Riverside area score the lowest, in particular Massey Street Playing Field (60% compared with a 79% average for Hull overall). West Park scores 72% and Edinburgh St Community Centre 72%. The quality issue is addressed in the AAP which proposed improvement to all the parks.

10.2.3 Natural and semi-natural open spaces: current provision in quantity is adequate. The issue again is the quality in particular for the Amy Johnson site (40%), followed by the former Riley College site, (40% for the northern part and 58% for the eastern part). Only the ‘triangle’ to the east of West Park scores average at 70% for the city. The AAP proposes the latter to be improved. The poorer quality sites, Amy Johnson and Riley sites are proposed for redevelopment into housing. They will contain smaller high quality, accessible, better located and well-managed greenspaces. The Amy Johnson proposals also include new allotments. Although the proposals will generate a net loss of greenspace in the plan area, the quality of retained greenspaces (all categories) will very significantly improve and new greenspace created will be of high quality standard. The AAP proposes new natural areas within West Park, Massey Park, as well as the railway corridors and buffer areas around the Amy Johnson and Riley College sites. In addition, looking at the network of all retained and proposed greenspaces in the area, the new greenspace will be more evenly distributed and well located, at the heart of the community (within new housing development, well overlooked and conceived with the community). The connectivity will be enhanced through better ‘wayfinding’, enhanced street design and new access points to existing green spaces.

Evidence Base Report 132

10.2.4 Amenity green spaces: These are smaller sites such as Rainbow Centre, Arthur Street and Woodcock Street. Quantitative cover is adequate. Quality in poor and the study recommend a considerable improvement. The AAP proposes that all the amenity greenspaces in the plan area are improved except the Woodcock Street space (which scores the poorest quality (at 30%) which will be replaced by a new space better located in the new Woodcock Street housing development.

10.2.5 Provision for children and young people: Numerous residents in the plan area are outside the appropriate catchment areas, in particular in the west end of the Albert Avenue area (10 minutes walk and 15 minutes for young people facilities) for children's play and young people provision. The AAP is proposing to distribute new NAPs, LEAPs and NEAPs in a range of existing open spaces throughout the Newington & St Andrew's, area as well as new provision within new build / demolition areas providing appropriate catchments/provision. Again, quality of current provision is an issue and the existing facilities are proposed for improvement in the AAP.

10.2.6 Outdoor sport facilities: although there seems to be a quantitative deficit of outdoor sport facilities (this may be due to the absence of facilities in the City Centre which is part of the Riverside area, used for the assessment, which also contains Newington and Andrew’s), there is no accessibility issue in the plan area; in other words, there are numerous smaller facilities. The study recommends a considerable improvement to the quality of outdoor sport facilities. Again, the AAP proposals include the improvement of all of them.

10.2.7 Allotments: the study recommends the increase of allotment provision, to be accessible within 20 minutes walk. There is none in the plan area. The AAP makes provision for allotments as part of new and existing community gardens, new open spaces within the Riley College and Amy Johnson sites as well as potential new provision within peripheral parts of West and Massey Parks. Buffer areas adjacent to the railways are ideal for this for example the west of the Amy Johnson site.

10.2.8 To summarise, the study shows a deficit in quality for all types of green spaces in the plan area, in particular for natural and semi-natural spaces. For all categories except allotments and facilities for young people, the quantitative level of provision is adequate. The AAP addresses the results of the assessment with the following:

• Emphasis on quality rather than quantity of open space. There is a net loss of green space (16 hectares) because two of the principal development sites – the former Riley College and the Amy Johnson sites – do include sizeable, disused and rundown open spaces. In return, the Amy Johnson site includes generous open space provision, the difference being that the new provision will be highly overlooked and user-friendly. Improvement in the distribution and locations of smaller greenspaces are considered to respond to the needs of present and future residents of Newington and St Andrew’s even if quantitatively, the proposals will generate a net loss of greenspace in the plan area, as explained in the paragraph about Natural and Semi-natural Open Spaces above. Furthermore, picking up on the quality point, the AAP makes envisages a total of 46 hectares of green

Evidence Base Report 133 space being upgraded and returned to full and inclusive community use.

• Connectivity between open spaces has been a key feature of the Green Lung and the concept of improving the streetscape network which goes hand in hand with linking all the open spaces to provide integrated green infrastructure across the area. • The design guidance makes strong statements regarding the value of open space in assisting the health, education, social, environmental, economic, child development, inclusivity and community agendas. • The AAP encourages the multi-functionality of open space and the need for it to fulfil a range of differing roles for different people at different times of the day.

Evidence Base Report 134 11 The Case for Change

11.1 Introduction

11.1.1 The “Case for Change” in Newington & St. Andrew’s is a powerful one, and is summarised below.

11.1.2 It is dominated, inevitably, by the seriousness of the situation in the housing market and by the related social and economic factors which require urgent and comprehensive action.

11.1.3 But there is also an “opportunity” case for change – it is not all a question of problems and needs, because the area has considerable assets and potential, which it can draw on in the future.

11.1.4 The requirements - both needs and opportunities - vary greatly across the area. They will include social and environmental interventions; changes to the transport system; and housing change ranging from refurbishment and repair through to total restructuring and redevelopment. Some issues are locally specific; others are “whole-of-study-area” things to be addressed, such as movement, green space, and the distribution of facilities and services.

11.2 Housing

11.2.1 Housing issues inevitably dominate the case for change. They lie at the core of the rationale for the area’s inclusion within the Housing Market Renewal Pathfinder. There are two distinct aspects to this. First and foremost is the lack of demand for the housing available. This part of West Hull shows in acute form many of the classic attributes of housing market failure. House prices remain extremely low – certainly by regional or national comparison, and even in relation to the rest of Hull and the surrounding East Riding. House prices average 26% of the England & Wales average (Hull’s are 44% and East Riding’s 80%). This (and the nature of the stock) is reflected in the Council Tax banding, with nearly 90% in Band A (25% nationally, 73% in Hull). The vacancy rate (2005 = 12.5%) is over twice the city’s average, which is itself above the Government warning level of 5%. And private renting – which is not necessarily a problematic tenure, but is often an indicator of low demand and market weakness having led to opportunities for speculation – accounts for a quarter of the stock (nationally, 9%). There can be no dispute that this is one of the most problematic housing demand-side settings in the country.

11.2.2 Secondly, and of course intimately interwoven, issues on the supply side of the housing market equation. The housing stock is heavily skewed towards smaller, older property, with 63% in terraces (over twice the national average for major urban areas, of 27.4%), so that choice of home type is limited. Over 1500 are in the very tight “court terrace” form, which tends to be the most problematic. Of the whole stock, over twice the national average are judged to be unfit, and a further 36% as in substantial disrepair. But it is important to recognise that the stock, though problematic in all these ways, is only partly at the root of the problem: leaving aside the tightly- constrained “court terrace” stock, many of the low-demand properties in Newington & St. Andrew’s would sell (and be in good repair) if they were in York or Beverley. The problem is primarily the demand – the fact that not enough people want to live in inner Hull and particularly this part of it; and that not

Evidence Base Report 135 enough people regard the predominantly terraced stock as the kind of housing they want to live in, in the 21st century.

11.2.3 One other important part of the analysis, which affects the way the strategy will evolve, is the fact that we are not dealing here with widespread area collapse, as in some parts of other Pathfinders. Some streets, and many of the courts, have serious problems, and one or two streets, notably Woodcock and Springburn, did see people walking away from properties they owned. And there are streets with a high level of vacancy and associated problems (linked to the court terraced form, density, and the weaker end of the private stock). The impact of actual abandonment on surrounding streets is surprisingly limited; streets nearby are still seen as reasonable places to live by many, and that trend did not trigger abandonment on a wider or accelerating basis. But the area is left with streets (off Hawthorn Avenue, in Airlie Street, around Wellsted Street, etc) which have been problematic for over a decade and which need radical treatment.

11.3 Socio-Economic Setting

11.3.1 Closely bound up with housing market failure is the background of economic weakness and deprivation. Newington & St. Andrew’s clearly performs poorly against the vast majority of socio-economic indicators. Taken collectively, the indicators reinforce the need for comprehensive, social, economic and physical regeneration – a case, indeed, long since established. Eight of the Census sub-areas (SOAs) in Newington & St Andrew’s are amongst England’s most deprived (bottom 5%). Within the overall study area, the geography of deprivation is even more focussed. Of our nine “Character Area” sub- divisions, five (Coltman Street, Boulevard South, Hawthorn Avenue East and Dairycoates East & West) are in the worst 1% of SOAs nationally, and indeed the Coltman Street SOA is the 25th most deprived in the whole country. Even the areas further north, which do not score quite so badly, still show serious deprivation by national comparison: Boulevard North (worst 2%), Albert Avenue East (bottom 5%), Hawthorn Avenue West (bottom 10%); and even Albert Avenue West being in the bottom 5% on the living-environment domain, 10% on the crime domain and bottom 20% for education skills & training.

11.3.2 Household incomes are low. Unemployment is double the city average in Newington and even worse in St. Andrew’s. Activity rates are lower than the city average, which is already lower than the regional and national rates. Many local people are clearly poorly-placed to compete in the labour market – 47% have no qualifications at all (national average 29%); worryingly, this is true amongst young as well as old. And school attainment is low, with a high proportion of pupils not achieving any GCSE passes at all.

11.3.3 The low level of economic engagement, and the deprivation, is clearly not primarily a product of an absence of work; they are not in essence what economists call a problem of “labour demand”. Of course, it must be recognised that the Hull economy as a whole is not very buoyant or dynamic. But the study area adjoins two sizeable industrial and commercial areas, south of Hessle Road and west of Hawthorn Avenue / the railway; and it is conveniently located for the large number of jobs in the city centre a kilometre to the east. So accessible jobs do exist.

Evidence Base Report 136 11.3.4 The problems are largely on the “supply” side – low skills, poor connections to the labour market, etc. These are factors which even a lot more local jobs would do less to alleviate than would social and economic measure aimed at the people themselves. So the thrust of activity in this sphere will not primarily be towards physical measures to create the space for new economic development and more jobs in the immediate locality; it will be on continuing with people-focussed measures.

11.4 Urban Quality

11.4.1 Inner urban areas with weak housing markets very often look and feel rundown and problematic and a vicious circle of poor performance and poor perception sets in. And indeed the consultant team’s place quality analysis for Newington & St. Andrew’s shows relatively low scores for most aspects of this, though better performance is recorded for “getting around” (connectivity) and “shops and services” (the local retail offer) – discussed further below.

11.4.2 It is on many of the fundamentals of place quality that a number of the sub-areas fail. A small number of them do benefit from good permeability, clear legibility, and buildings which address the street - giving a good sense of enclosure; but many do not, with long narrow blocks creating an intense environment, and with confusing street patterns which make navigation and orientation (legibility) problematic.

11.4.3 Coupled with this is the issue of environmental quality. The local environment is largely in poor condition, with littering and some fly-tipping evident, although in the eastern part of the area the general levels of maintenance appear higher.

11.4.4 The character & identity of Newington & St. Andrew’s is however one of its strengths, on which the future can build. The two main roads score especially well on this front by virtue of the coherence of the two streets, the array of different shops and the strong individual landmark buildings, which give a strong sense of place.

11.4.5 Community safety is a vital topic for market recovery, and one where the Newington & St. Andrew’s area performs badly. The burglary rate is twice the city average; violent crime is two- thirds as high again as the city figure. The drug culture is a recurrent problem of acute concern to many residents. Urban form can make an important contribution to making “safer places” (though it cannot of course be determinant). The place analysis shows significant differences between the sub-areas. In a number of locations, such as Coltman Street and the two main roads, the built environment makes a positive contribution to the feeling of safety - usually by virtue of good overlooking, a lot of street activity and few void spaces. In contrast, in a locality like Dairycoates West, the fragmented nature of the area and the presence of vacant units make a negative contribution to fostering safer places.

11.4.6 Poor urban environmental performance, and poor perception of it, are vital aspects to consider, in making the case for the changes which will help Newington & St Andrew’s compete more successfully with other housing locations which households may be comparing it with.

Evidence Base Report 137

11.5 Green Space

11.5.1 An “inner suburb” like this can have as one of its key attractions good convenient urban parks and playspace. And of course public green space is of particular importance in this area given the general lack of private amenity space / gardens and the relatively intense nature of the built form.

11.5.2 The analysis confirms, however, that is there not an adequate range of quality open spaces throughout the area. In general the area does not score terribly well for the provision of positive, visible, open, green spaces. Although there is one notable high quality park, in West Park, which is of citywide importance, the provision is not evenly balanced, either geographically across Newington & St. Andrew’s or in terms of types and range of open space provision. In addition access to West Park itself has room for improvement.

11.5.3 The case for change on this front is therefore about increasing the quantity; about improving quality, access and range; and about creating a place where the parks and open space make a real contribution to the area people choose to live in.

11.6 Movement & Transport

11.6.1 The area is well served by the local highway network, with good strategic access to the main road system and city centre, albeit with congestion at peak times. More locally, connectivity, both internal and external, is largely best on or close to the Hessle Road and Anlaby Road; further into the core of the study area, movement is sometimes more problematic with narrow, long streets creating movement difficulties.

11.6.2 Public transport is wholly reliant on buses, with good services on the main east-west routes and as many as 30 buses per hour on Anlaby Road. Almost all of the area is within 400 metres of a bus route, though few bus routes actually penetrate the more residential areas in between. Weaknesses in the bus service include congestion affecting performance due to limited bus-lane provision, the fall-off in service in the evenings, and an absence of cross-city routes.

11.6.3 Walking and cycling as means of transport are important in this inner western part of Hull, and indeed the city’s cycle usage is notably higher than the national average. The two main issues are the intrusion of the railway as it cuts across the area at- grade from northeast to southwest, and the severance of the whole area from the Humber waterfront by the A63 Clive Sullivan Way.

11.6.4 Local people’s movement patterns are illustrated by the journey to work figures, which show 36% travelling to the city centre or eastwards, and 30% working in the locality. Car use for these trips is markedly lower than the city average. Congestion is a peak period issue, in common with all UK towns, but largely a function of car commuting from outside the area.

11.6.5 Change in Newington & St. Andrew’s can thus draw on a considerable range of assets in transport and movement terms, which can help the area take advantage of its inner location. The problems and opportunities identified tend to be more structural in nature: thus, resolving the railway’s intrusion, and

Evidence Base Report 138 genuine improvement to access to the Humber, are both long- term aspirations rather then immediate issues.

11.7 Services

11.7.1 The two axes of Hessle Road and Anlaby Road are amongst the assets that the whole area can use to build a stronger future. Hessle Road in particular compares very favourably with many of the main shopping streets in other Pathfinder areas (and indeed with the typical range of shops available in newer suburban contexts). Given the scale of the decline in catchment population and the socio-economic problems in their hinterland, both centres are surprisingly busy, with an offer, which seems to provide a good range of retail opportunities to the local communities. Both would benefit from some enhancement and a more sympathetic public realm, but the general shopping environment offers much potential for consolidation in the future. Caution must be considered in adding new facilities to the high streets, with one or two particularly poor examples of newer schemes evident on Hessle Road, and with Anlaby Road functioning rather more as a string of smaller centres than a coherent whole.

11.7.2 Non-retail services are rather less concentrated, and in some case even quite new and good standard community facilities are tucked away in places that makes it difficult for them to integrate with the wider area or ad the critical mass and footfall of the two main centres / streets.

11.7.3 But in general the potential for convenient services to act as a “plus” for living in Newington & St. Andrew’s area is reflected in the fact that the place quality assessment showed most of the character areas scoring well in terms of easy access to a good range of facilities.

11.7.4 One major opportunity for improving and concentrating services may come about through the reorganisation of education, notably at secondary level, but this is not yet definite.

11.8 Sub-Areas

11.8.1 This Case for Change so far has been argued largely in terms of the whole area. But each of the sub-areas or “character areas” in Newington & St Andrew’s, as identified in the Baseline reporting, differs in its nature and issues.

11.8.2 The proposals for intervention to be brought forward in the Master Plan and the Area Action Plan (AAP) will therefore vary greatly from sub-area to sub-area.

11.8.3 Some interventions will need to be radical – to solve more widespread problems or help create opportunities for transformational change. Others will be more like “keyhole surgery” – highly localised change to solve, say, a particular difficulty. Others again will be less dominated by major physical change: they may be general upgrade measures, or socio- economic interventions. And in a limited number of cases, there is the potential for long-term and major restructuring: of which the most notable is where Anlaby Road leaves the Newington area at its eastern end, near the HRI, flyover and KC Stadium.

Evidence Base Report 139 11.9 Summary

11.9.1 The Case for Change in Newington & St Andrew’s is inevitably rooted in a strong set of negative factors, given the deep- seated and area-wide nature of the problems. At the same time, some of the area’s assets can be regarded as positives, with potential to help turn it around.

11.9.2 The Housing case: with a narrow range of house types, dominated by terraces and courts, a tenure mix skewed to low value rental, stock condition very poor by any comparison, and a record of vacancy and population loss that tells a story of area rejection, it is clear that major change will be required to transform the area’s prospects – on all these indicators

11.9.3 The Social & Economic case: this is inevitably strongly linked to the poor and deprived nature of the area, with low levels of education, skills and economic activity, even though there is a reasonable range of jobs nearby and in the city centre. Change cannot therefore just be about physical interventions, but must link in the “people” factors.

11.9.4 The Urban Quality case: overall urban quality and liveability are low, though there are potential strengths in the good urban form around which to build, and the open space resource, though mixed and often mediocre, can also be turned into a green asset for the area’s future.

11.9.5 Movement & Services: similarly, the area’s transport, community services and shopping facilities, though not perfect, can form part of a strategy which seeks to capitalise on the area’s convenience and character as part of its distinct identity.

11.9.6 The area’s problems mean, and show, that it is not a “Location of Choice” – too few people live in the area who have actively chosen to do so, rather than as the best of a bad job.

11.9.7 But secondly, and positively, its assets and potential mean that it could still be a location of choice: one whose in-city location, range of facilities, and widening range and quality could allow it to compete in attracting and keeping households who have hitherto felt it is not for them.

Evidence Base Report 140 List of Tables Table 3-1 Housing Market Indicators 25 Table 3-2 Proportion of private rented sector housing in Newington & St. Andrew’s 26 Table 4-1 PQA assessment results 34 Table 4-2 Summary of Residential Offer results for the nine character areas 55 Table 5-1 Indices of multiple deprivations 59 Table 6-1 Newington & St. Andrew’s Combined Air Quality Score 81 Table 6-2 Newington & St. Andrew’s Percentage Pupils Achieving Level 2+ at Key Stage 1 88 Table 7-1 Summary table of character area performance across each performance indicator 94 Table 9-1: Flood Zones as per Table D1 Annex D in PPS25 127 Table 9-2: Flood Risk Vulnerability & Compatibility (Table D3 as defined by Annex D in PPS25) 127 Table 9-3: Hull Local Flood Risk Standing Advice 129

List of Figures Figure 1-1 Map and context of the study area 2 Figure 2-1 Summary of Policy Framework (Table 2.7, P28 JSP for Hull and East Riding) 9 Figure 3-1 Key summary points from NRA 24 Figure 3-2 Vacant and long-term vacant properties 25 Figure 3-3 Private rented households as a percentage of total households (2001) 27 Figure 4-1 Character Area Boundaries 33 Figure 4-2 Overall PQA Scores in Newington & St. Andrew’s 36 Figure 4-3 Range – the reference area 50 Figure 4-4 Range – the study area context 50 Figure 4-5 Range – the study area 51 Figure 4-6 Affordability – The Reference Area 51 Figure 4-7 Affordability - Hull 52 Figure 4-8 Affordability – The Study Area 52 Figure 4-9 Range - the nine character areas 53 Figure 4-10 Cost – the nine character areas 54 Figure 4-11 Quality – the nine character areas 54 Figure 5-1 Shows the population for the different character areas 57 Figure 5-2 Qualification levels of Residents of the Newington & St. Andrew’s ward 59 Figure 5-3 Reference area classifications 60 Figure 5-4 Context area classifications 61 Figure 5-5 Context area classifications 61 Figure 5-6 Showing employment by sector for Albert Avenue West 63 Figure 5-7 Showing employment by sector for Albert Avenue East 65 Figure 5-8 Showing employment by sector for Coltman Street 66 Figure 5-9 Showing employment by sector for Boulevard South 69 Figure 5-10 Showing employment by sector for Boulevard North 70 Figure 5-11 Showing employment by sector for Hawthorn Avenue East 72 Figure 5-12 Showing employment by sector for Hawthorn Avenue W 75 Figure 5-13 Showing employment by sector for Dairycoates East 77 Figure 5-14 Showing employment by sector for Dairycoates West 79 Figure 6-1 Incidents of noise pollution for Newington & St. Andrew’s 81 Figure 6-2 Incidents of air pollution for Newington & St. Andrew’s 82 Figure 6-3 Incidents of fly tipping for Newington & St. Andrew’s 82 Figure 6-4 Incidents of Abandoned Cars for Newington & St. Andrew’s 83 Figure 6-5 Condition of green spaces in Newington & St. Andrew’s 87 Figure 8-1 Condition of Business Properties 110 Figure 8-2 Numbers of full-time employees of Newington St Andrew’s businesses 115 Figure 8-3 Number of sites 116 Figure 8-4 Length of operation in Newington and St Andrew’s 116

Evidence Base Report 141 Figure 8-5 Turnover and Profitability for businesses in the Newington and St Andrew’s area 117 Figure 8-6 Percentage of Employees who are also residents of the Newington and St Andrew’s area. 118 Figure 8-7 Employee turnover over the last 2 years. 118 Figure 8-8 Benefits of the location for businesses 119 Figure 8-9 Reasons for location in Newington & St. Andrew’s 119 Figure 8-10 Reasons given for considering relocation out of Newington & St. Andrew’s 120 Figure 8-11 Perceived change in the physical and built environment 121 Figure 8-12 Perceived change in the social environment 121 Figure 8-13 Perceived change in physical security 122 Figure 8-14 Perceptions of the business future 122 Figure 8-15 Key factors in the future of Newington & St. Andrew’s business performance 123

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