Issues and Options Topic Papers

Tameside Metropolitan Borough Council

Local Development Framework

Joint Core Strategy and Development Management Policies

Development Plan Document

Issues and Options Topic Papers

February 2012

Strategic Planning Tameside MBC Room 5.16, Council Offices Wellington Road Ashton-under-Lyne OL6 6DL

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Local Development Framework – Core Strategy Issues and Options Discussion Paper

Topic Paper 1 – Housing

1.00 Background • Planning Policy Statement 3: Housing (PPS3) • Regional Spatial Strategy North West • Planning for Growth, March 2011 • Manchester Independent Economic Review (MIER) • Tameside Strategic Housing Land Availability Assessment (SHLAA) • Tameside Strategic Housing Market Assessment 2008 (SHMA) • Tameside Unitary Development Plan 2004 • Tameside Housing Strategy 2010-2016 • Tameside Sustainable Community Strategy 2009-2019 • Gypsy and Traveller Accommodation Assessment • Tameside Residential Design Supplementary Planning Document (SPD)

1.01 The Tameside Housing Strategy 2010-2016 is underpinned by a range of studies and evidence based reports that have been produced to respond to housing need at a local level as well as reflecting the broader national and regional housing agenda.

2.00 National Policy

2.01 At the national level Planning Policy Statement 3: Housing (PPS3) sets out the planning policy framework for delivering the Government's housing objectives setting out policies, procedures and standards which Local Planning Authorities must adhere to and use to guide local policy and decisions.

2.02 The principle aim of PPS3 is to increase housing delivery through a more responsive approach to local land supply, supporting the Government’s goal to ensure that everyone has the opportunity of living in decent home, which they can afford, in a community where they want to live. The policy also reflects the Government’s commitment to improving the affordability and supply of housing in all communities.

3.00 Proposed National Changes to the Planning System

3.01 The Government is currently consulting on a draft National Planning Policy Framework (NPPF). The draft NPPF aims to streamline national policy into a consolidated set of priorities with a key focus on the presumption in favour of sustainable development. As a result the NPPF will replace the existing suit of Planning Policy Statements (including PPS3) and Planning Policy Guidance.

3.02 In terms of housing the main objective of the NPPF is to increase significantly the delivery of new homes while removing previous top-down, target based approach and giving local council's and their communities the responsibility and flexibility for meeting future housing requirements. Other significant changes to housing policy proposed by the NPPF include:

• Local authorities will continue to have to indentify and maintain a five year supply of specific deliverable housing sites however the NPPF includes a further requirement to identify at least a 20% additional allowance to create competition and choice in the land market. • The removal of the 60% national target for housing development on previously developed land (brownfield land). This will potentially enable a greater proportion of new development to take place on Greenfield land • The removal of the national minimum site size threshold of 15 units for requiring affordable housing to be delivered. NPPF proposes that complete control will be given to local councils to allow greater flexibility and the best solutions for their areas.

4.00 Regional Policy

4.01 The planning context at the regional level comes from the North West of England Plan – Regional Spatial Strategy to 2021 (RSS). This document was adopted in September 2008. Since the formation of the coalition Government in May 2010 it has been the clear intention to abolish regional planning. The issues surrounding this are well documented and at this stage the proposed abolition of RSS is a material consideration.

5.00 Greater Manchester City-Region

5.01 The Greater Manchester Strategy was published in 2009 and brings together in one document the vision and principles that will elevate the city region to greater level of national and international prominence by 2020. The document is built on the extensive economic analysis and research carried out for the Manchester Independent Economic Review (MIER). In terms of the approach to housing the overarching aim of the Greater Manchester Strategy seeks to address the housing market by creating quality places.

5.02 The ten authorities that make up Greater Manchester have adopted the Greater Manchester Forecasting Model – The GMFM. This provides a model for the city region that forecasts household, population and economic projections up to 2032 under the current 2010 iteration. The GMFM is updated annually in autumn and provides and indicative scenario for the shape of the city-region with more detailed data down to the district level. The model is a valuable tool which highlights likely trends and is integral to the policy and plan making process.

6.00 Housing Need vs. Housing Demand

6.01 It is important to distinguish between the terms housing need and housing demand. The wider concept is the 'demand' for housing, which is a measure of how many households wish to obtain accommodation in an area. This demand would include households wishing to buy or rent housing at all price levels of the open market, using financial arrangements such as rent, mortgage and full-price cash payments. A working definition of housing

demand is the quantity of housing that households want and can afford to buy or rent without subsidy.

6.02 Housing 'need' has a narrower focus on those experiencing financial difficulty in gaining access to suitable accommodation. In terms of housing units, housing need may be defined as the quantity of housing needed to house those households currently lacking their own housing, or living in unsuitable housing, and who cannot afford to buy or rent housing without assistance.

6.03 The term 'housing requirements' is sometimes used in the context to refer to the combination of need and demand, particularly where market as well as affordable housing provision is being considered.

7.00 Housing Targets

7.01 Up until its revocation, the North West of England Regional Spatial Strategy (RSS) sets out the housing requirement for Tameside at 750 dwelling units per year net of clearance. This was a significant increase from the 370 units per year contained in the adopted Unitary Development Plan (2004). As a result the adopted RSS was expected to oversee the delivery of 13,500 dwellings in Tameside over the plan period 2003 to 2021. This housing target was set within the context of a wider approach to deliver housing across the North West and more specifically as part of a strategy to achieve housing growth in the Greater Manchester area. The housing requirements were supported by a combination of evidence from housing market research, population growth figures and the Greater Manchester Forecasting Model.

7.02 The graph below demonstrates the performance of net housing completions in Tameside from 1st April 2003 to 31st March 2011.

Net Dwelling Completions in Tameside

900 789 800

684 700 652

600 563 515 500

383 400 286 300 253

200

100

0 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 2010/11

Net dwelling completions in Tameside 2003 to 2011

7.03 The graph indicates that there have been 4,125 completions across Tameside since 2003. The average rate of completion for this period is 515 dwellings per annum (67% of the annual target). With the exception of 2007/08 Tameside has almost consistently underperformed since 2003 against a net annual target of 750 dwellings. The result is that at 31st March 2011 Tameside has accumulated a deficit of 1,875 dwellings over the period 2003 to 2011. Considering that up until the recession the Borough had been through a period of unprecedented house building it is possible that this deficit will never be overcome and looks likely to worsen in the immediate future given the very slow nature of the economic recovery.

8.00 15 Year Housing Land Supply

8.01 In light of the RSS housing target PPS3 requires that local authorities carryout a Strategic Housing Land Availability Assessment (SHLAA) identifying a 15 year supply of land for housing development from the adoptions date of the Core Strategy. For the Tameside SHLAA, completed in April 2011, this equates to 11,250 dwellings over the period 2011 to 2026. If the current housing completion underperformance figure is added into this calculation then the total housing provision required from 2011-2026 is 13,125 dwelling units (11,250 + 1,875).

8.02 The findings from the SHLAA indicate that the existing housing land supply is adequate to meet the demand of the next 5 years. To meet the targets of years 6 to 10 there will be an increasing need to look to greenfield sites as the availability of suitable brownfield land diminishes. Critically after 2021 for years 11-15 consideration will be required to release strategic sites within the Green Belt to meet potential housing targets.

8.03 It is important to note that the SHLAA does not currently take into account the additional 20% housing land flexibility proposed in the draft NPPF. If this was to be included Tameside would need to identify land for a further 750 dwellings in the first 5 years meaning the equivalent of an additional years worth of land (i.e. 750 x 5 = 3750 + 750 (20% flexibility) = 4,500). This potentially makes the production of a robust and healthy 5 year rolling supply of housing land more difficult to achieve and in turn more vulnerable to challenge by housing developers, for example, looking to build houses on unallocated greenfield land.

9.00 Future Annual Housing Targets - Issues to Consider

9.01 One of the most important aspects of the Core Strategy will be to determine what annual housing target the borough should take forward. As stated earlier in the report the current target stands at 750 dwellings per year. However, this figure has only been exceeded once since 2003 resulting in an accumulated shortfall of some 1,875 units that have to be made up over the remaining years.

9.02 Despite the underperformance and the current lull in house building the recent evidence updates for population and household projections from Central Government and the Greater Manchester Forecasting Model continue to support RSS housing targets. As a result the broad evidence base still suggests that around 750 units per year will be required in order to meet the demands and needs of a growing and varied population in Tameside.

9.03 Although the research evidence is in place, simply accepting these findings and retaining the 750 target does not come without the potential for considerable social and environmental impacts for the borough. Taking into account the findings from the SHLAA (which is a study required to identify a supply of housing land for the next 15 years) then building in excess of 750 dwellings per year on the increasingly limited resources of suitable and sustainable sites is likely to result in greater pressure to develop strategic brownfield employment sites and greenfield land. In the long term (11 to 15 years and beyond) the SHLAA suggests that the release of Green Belt land may be required in order to sustain these building rates and to supply the levels of housing the evidence base implies is needed.

9.04 With recent forecasts suggesting the economic recovery will continue to be slow it is unlikely that house building rates will return to pre-recession levels for many years and almost certainly not within the next 5 years. The implications of this will see the accumulated shortfall of underperformance against the 750 target getting increasingly bigger and more and more difficult to deal with. If the borough is then faced with a housing requirement that is difficult to achieve and the suitable resources of land to achieve it can not be identified in the rolling 5 year supply of sites then the Council will be increasingly open to accept 'ad hoc' and unsustainable residential development. This is likely to see more development on greenfield land and strategic employment sites rather than identified brownfield regeneration areas and environmentally constrained sites in need of remediation.

9.05 Therefore it is important that careful consideration is taken to ensure that the housing target strikes the right balance between providing the volume, choice and mix to meet the identified needs and demand, but at the same time avoid undue environmental damage with increased urban sprawl and the loss of attractive green spaces as well as valuable employment land resources.

10.00 Housing Market and the Economy

10.01 Housing has a critical relationship with Tameside's prosperity and is one of the drivers of the local economy as well as being driven itself by the need to provide suitable housing to support a developing economy. The Tameside Economic and Learning Partnership published an Economic Masterplan following a detailed economic assessment. The key housing issues in the Masterplan are:

• To improve life chances in the most deprived areas by incentivising integration across agencies regarding basic skills, worklessness and public service delivery • To make housing policy more flexible to respond to market demands and the need for quality affordable homes in sustainable neighbourhoods. • To achieve a rapid transition to a low carbon economy

10.02 In terms of the housing market the average house prices in Tameside over the period 1996 to 2005 increased by more than 261%. However this level of growth was mainly limited to areas of Stalybridge South, Hyde and parts of Ashton. The economic downturn has had a significant impact on house prices within Tameside, like all areas, with the average price paid for a property in June 2009 being just £96,580 compared to £118,357 in June 2008. Over the same period house prices across the North West fell by 11.9%. This reduction in

the price paid for properties is unlikely to fully resolve issues of affordability within the Borough.

10.03 A key evidence based study is the Tameside Strategic Housing Market Assessment 2008 (SHMA), carried out by consultancy firm Arc4 Ltd. This study provides a comprehensive understanding of the housing market in Tameside with neighbouring housing market areas. The study identifies many issues facing the borough including improving the economic performance, increasing the provision of affordable housing and diversifying the range of open market housing to both attract and retain residents.

10.04 Overall the SHMA showed that Tameside is part of a wider functional market area that includes parts of Manchester, Stockport, Oldham and High Peak and includes strong commuter linkages with Manchester City. Households in Audenshaw and Mossley were most satisfied with their area, whilst those in Ashton and Droylsden were least satisfied. Other high level messages from this research include:

• The number of households in Tameside is projected to increase by 24,000 (13%) by 2031 • There is pressure on all types of housing, with the exception of terraced houses • The imbalance between supply and demand for open market accommodation is most pronounced for properties with one and four or more bedrooms • There is currently a shortfall of 424 affordable dwellings each year • Between 2006 and 2008 there were 103 units of affordable housing completed • Improving the quality of stock across all tenures, especially in the private sector is a key challenge that will help to match the economic development offer and promote long term community sustainability and quality of life

11.00 Local Context

11.01 The overarching strategy for the Borough is the Tameside Sustainable Community Strategy, which in terms of Housing, suggests that the quality of neighbourhoods and suitable housing provision for people in need should be at the top of the agenda. This emphasis is reflected in the Tameside Housing Strategy 2010-2016. The strategy collects together and sets out Tameside's main housing policies and strategies in one document with the key objectives of:

• Achieving the right quantity and quality of new housing - including diversifying the housing offer to increase choice • Continuing to raise the quality of the existing housing stock, services and neighbourhoods • Supporting people to access a range of housing options and services

12.00 Social Housing

12.01 The social property stock in Tameside stands at around 22,500 units with over 20 different housing associations operating in the borough. New Charter is by far the largest social housing provider with a stock of approximately 14,500 dwellings. Other providers include Peak Valley (approx 1,400 homes in Hattersley), Regenda (approx 1,200 homes in Ashton, Denton and Dukinfield), Irwell Valley (approx 1,000 homes in Haughton Green) and Ashton Pioneer Homes (approx 1,000 homes in Ashton). Smaller providers of between 300 to 500

homes include Contour (Audenshaw and Droylsden), Harvest (Hyde) and Accent North West (Ashton and Dukinfield).

12.02 The most significant increases in social housing over the next 5 years are likely to be attributed to New Charter. They have outlined a strategy as part of the affordable homes programme to build a further 360 new dwellings between 2011 and 2015. This is likely to be achieved through a mixture of infill development on existing estates as well as the addition of new sites such as Wellington Works in Ashton and Wakefield Road in Stalybridge.

13.00 Affordable Housing

13.01 The Government defines affordable housing as housing provided at rents or sale at prices below market levels, and at a cost low enough for eligible priority households to afford. Affordable housing provision includes social rented housing and assisted home ownership (e.g. shared ownership or shared equity).

13.02 The Tameside Housing Strategy outlines a requirement of 180 new homes per year (subject to improved market conditions) to be affordable housing. This would equate to around 20% of all new housing provision. The Housing Strategy contends that this strikes an appropriate balance between affordable needs and wider market demand helping to achieve socially balanced communities.

13.03 In terms of housing choice in Tameside there is an identified need to improve the range of and access to homeownership products on offer in the borough. First Time Buyers tend to be the ‘excluded middle market’ with income levels that can sustain homeownership but without prospects of buying due to the difficulties associated with access to suitable finance and mortgage opportunities. This group requires options that provide them with support to enable them to get onto the housing ladder such as assistance with a deposit. In turn there are also difficulties for second time buyers and those looking to move further up the housing ladder to accommodate growing families and/or greater aspirations.

13.04 In comparison to the problems of affordability in the private housing market, the housing offer in the private rental sector in Tameside is also relatively poor. Traditionally this has been characterised by small scale landlords with low quality accommodation stock leading to key deficiencies in high quality rental properties. As a result the rental market is not geared towards providing suitable and flexible accommodation to attract the skills base from young professionals and post graduates into the borough. Tameside would therefore benefit from the introduction of professional top market rented landlords into the private rental market that are responsive to the needs and aspirations of this key skills group.

14.00 Empty Homes

14.01 The economic downturn has had an impact on the local housing market and the number of long term empty homes in Tameside is now a cause for concern. Tameside like most places has a normal transactional turnover which can result in many homes remaining empty for varying periods of time. At 1st April 2010 there were nearly 2000 empty homes in Tameside based on Local Authority Council Tax figures. These properties are empty for a multitude of reasons.

14.02 The council and its housing association partners are looking at developing management opportunities that will pro-actively work with owners of empty homes to bring their properties back into use. This will help to house more people, improve the physical environment and reduce vandalism and crime which if successful will make a major contribution to supporting the aims of the local sustainable community strategy. In addition it will also help to off set the shortfall in current development.

15.00 Homelessness

15.01 Since the publication of the Homelessness Strategy in 2008 there have been significant developments on an economic and political level that has created a challenging environment for the local authority and its partners in its approach to preventing homelessness in Tameside. The “credit crunch” which started in 2007 has already created a situation where there are now more people at risk of losing their jobs and their homes and it is anticipated that this risk will remain.

15.02 However the main concern for the Council is that cuts to public investment in housing over the next four years and the plans for welfare reform up to 2020 could see some of the most vulnerable people shouldering a disproportionate burden of the government’s deficit reduction measures. The cut to the new building programme will have a major impact on the ability to deliver enough affordable housing in our communities for the foreseeable future.

16.00 Accommodation for Older People

16.01 The Office for National Statistics (ONS) 2008 population projections suggest that there are currently around 34,700 residents in Tameside aged 65 or over, representing 16% of the population. This is set to increase to 53,900 by 2033, by which time older people are projected to represent 22.6% of the population.

Year % Age group change 2011 2021 2033 2011- 2033 Total Population 216400 226900 238700 10.3 Total Aged 65+ 34700 42300 53900 55.3 Total Aged 75+ 15600 20100 27100 73.7 Total Aged 85+ 4500 5900 10300 128.9 As % of population 2011 2018 2033 Total Aged 65+ 16.0 18.6 22.6 Total Aged 75+ 7.2 8.9 11.4 Total Aged 85+ 2.1 2.6 4.3

Source: 2008-based ONS population projections

16.02 Tameside's 'Quality of Life Strategy for Older People' focuses on ensuring a sufficient supply of appropriate housing and provision of support so older people can continue to live in their own homes. Despite this the Tameside Housing Strategy identifies that there is a limited supply of private sheltered flats and bungalows, which exacerbates pressure on sheltered social housing. It also considers that planning should be more pro-active in working with developers, using Section 106 agreements, design guides and policies in order to improve the supply of housing suitable for older people. Tameside should also increase the supply of adaptable general needs housing, such as building to the Lifetime Homes Standard so that the home can be adapted as people get older rather than having to move house.

17.00 Gypsies, Travellers and Travelling showpeople

17.01 Although some Gypsy and Travellers travel for some of the year, the vast majority do not now travel on a daily basis all year round. Increasingly, as traditional work has declined, Gypsy and Travellers have adapted to permanent residential sites where they can more easily access a doctor, schools and other services and employment while maintaining the cultural traditions of being a Gypsy or Traveller. Permanent authorised pitches can help to promote integration and inclusion with settled communities. Despite the increase in permanent sites it is also important to recognise the need to provide transit sites to facilitate the travel undertaken by these groups to maintain their traditional way of life.

17.02 Travelling showpeople are members of a community that consists of self employed business people who travel the country, often with their families, holding fairs. Usually Travelling showpeople will require secure, permanent bases for the storage of their equipment, maintenance of rides and for residential purposes.

17.03 In partnership with the other nine Greater Manchester Authorities, Tameside commissioned a comprehensive assessment of the accommodation and wider service needs of Gypsies and Travellers in the Greater Manchester sub-region. The final report in May 2008 highlighted that Tameside needed to provide 17 pitches for Gypsies and Travellers. It also found there were 18 pitches needed up to 2015 for Travelling Show People in addition to the 38 existing pitches. Therefore suitable sites will need to be considered.

18.00 Previously Developed Land

18.01 The Coalition Government's recent Growth Review outlines ambitious proposals for planning reform, to ensure that planning supports the sustainable development that we need as the country emerges from recession. Part of this approach includes important changes relating to previously developed land and buildings. The Government intends to localise choice about the use of previously developed land by removing the national target for the amount of housing development that should take place on previously developed land (the 'Brownfield target').

18.02 In accordance with the targets set out in the RSS Tameside currently gives priority to the construction of new dwellings on previously developed sites aiming to provide at least 80% of new dwellings on such land. In light of the abolition of the RSS and the proposed localisation of decision making in the Growth Review the opportunity has arisen for Tameside to set its own 'Brownfield target'. Whether this target is retained at 80%, reduced

to a lower target or even increased to a higher figure presents a number of different implications for the delivery of housing in Tameside.

19.00 Design

19.01 Creating high quality, sustainable homes for the residents of Tameside needs to be a key priority for future housing development across the Borough. To date new (private) housing schemes have been dominated by generic house design ‘stock-book’ developments which often fail to represent high quality design or place specific characteristics. This issue is not a Tameside specific one (but Tameside needs to address it), as highlighted by the North of England Housing Audit undertaken by CABE in 2005. This design audit of new dwellings assessed 93 completed schemes using the Building for Life criteria, with only 6 schemes rated ‘very good’ or ‘good’. Within the North West, Tameside had the joint second lowest scoring development.

19.02 The Tameside Residential Design SPD (2010) contains policies to help address issues surrounding poor design, but allied with this, consideration should be given to requiring developments to achieve a minimum Building for Life (BfL) score. Accompanied by the Residential Design SPD, this will provide developers with a clear set of criteria by which the design of their development will be assessed. In turn, it will also ensure that developments approved will be of a high quality.

19.03 The stepped tightening of Part L Building Regulations will improve the energy efficiency and reduce carbon emissions of new housing development. This in turn could help to improve elements of housing design and layouts, as issues such as solar gain becoming increasingly important.

20.00 Summary

20.01 The housing requirement in Tameside will have positive and negative implications for the Borough. The delivery of additional housing will help to provide sufficient new homes for a growing population and in addition will help to address issues of affordability through the delivery of both market and affordable housing. In addition, the replacement or reuse of historic building stock will help to reduce the number of properties which are in poor condition, under used and inefficient. However, the increase in housing is likely to place further pressure on the development of greenfield sites, existing infrastructure and facilities unless adequate mitigation measures are secured.

20.02 It is therefore important that careful consideration is taken to ensure that the housing target strikes the right balance between providing the volume, choice and mix to meet the identified needs and demand, but at the same time avoid undue environmental damage with increased urban sprawl and the loss of attractive green spaces as well as valuable employment land resources.

21.00 Key Issues

21.01 Based on the evidence the key issues have been categorised under the following headings:

Housing Choice/ Offer

• Demand exceeds supply for all property types in the Borough except terraced stock. • A good mix of dwelling sizes is required including in particular small one bedroom and larger four or more bedroom properties. There is also an identified requirement to meet the varied accommodation needs of single people, couples and families. • Access to home ownership products is an increasing issue due to a lack of suitable finance and mortgage opportunities. • There is an increasing need to address the requirements of an ageing population. • Delivering lifetime homes that are accessible to all and adaptable in order to serve everyone through their life. • Overall there should be a desire to create balanced communities forged in the local character rather than bland monotonous estates with no sense of place or individual identity. • There is an identified requirement to provide additional sites and pitches for gypsy and traveller communities.

21.02 Location

• It is crucial to ensure that new residential development is in locations where everyone in Tameside can access it, to provide suitable housing and housing to meet their needs and aspirations. • Should housing growth be focused in the urban areas and brownfield regeneration sites? These sites often suffer from contamination issues or other constraints affecting viability and making them difficult to market and costly to develop. Would a more dispersed pattern of development be more suitable with a greater emphasis on greenfield locations and urban expansion? • The SHLAA indicates that the majority of potential housing sites are located within the urban area or on the urban fringe. Crucially however the study indicates that there will be an increasing need to look to greenfield land and even strategic Green Belt release in the long term in order to meet the challenging housing targets. • The Growth Review presents Tameside with the opportunity to set its own previously developed land target (otherwise known as brownfield land). This target presently stands at 80%. Should it be retained to focus development in the urban and regeneration areas or lowered to allow a more flexible and varied supply of housing land with greater potential for development on greenfield land?

21.03 Land Availability

• Tameside currently has a 5 year supply of deliverable housing land. • Based on the current housing targets the SHLAA identifies that there could be a potential shortage of housing land in the medium to long term (6 to 15 years), with increasing pressure on greenfield land. • If the current housing delivery strategy continues potential strategic Green Belt realises may be required in the long term to accommodate housing requirements. This position is likely to be compounded by the current weakness in the housing market and low levels of dwelling completions in recent years adding to the accumulated shortfall of Tameside's housing delivery.

• Preferred brownfield regeneration sites can be difficult to market and costly to develop making them less attractive to prospective developers.

21.04 Affordability

• There is an identified need for additional affordable housing. • Increases in house prices during the first half of the decade coupled with lower than inflationary salary increases means the gap between household incomes and the price of housing has widened further. The SHMA recommends that it is therefore appropriate to now consider an affordable housing policy that will sit within the Housing SPD forming a key element of the Core Strategy. • Any affordable housing policy requirements would need to be tested for economic viability.

21.05 Design

• New homes must represent high quality sustainable design - form (visual appearance) and function (fit for purpose / usability) and an understanding of local character and identity. • Layouts must apply acknowledged urban design principles and incorporate high quality public realm. • New dwellings should achieve a (to be agreed) minimum 'Building for Life' standard. • Dwellings must comply with the Part L / Code for Sustainable Homes - reduce carbon emissions and achieve zero carbon new homes from 2016. • Allied with Code for Sustainable Homes and Part L, developers must consider the installation and siting of decentralised energy systems. • Secure by design and natural surveillance principles should be adopted in residential development schemes in order to reduce crime and anti-social behaviour and create safer environments and communities. • There is an increasing requirement for sustainable urban drainage systems (SUDS) which incorporate effective water management in development schemes. This can diminish the risk of flash flooding and reduce the pressure from accumulative development on the existing drainage networks.

21.06 Cross Cutting Themes

The key housing issues have primary linkages to the other topic areas including:

• The Economy and Employment - providing the housing choice to support a growing economy and to accommodate a varied employment base. • Health and Inequalities - tackling health issues and social inequalities through an improved housing offer responsive to the varied needs of a diverse population. • Climate Change and Decentralised Energy - addressing carbon reduction through improved design and incorporating energy efficiency technologies. • Transport and Infrastructure - building new housing in the right places, with good connectivity to job opportunities, schools, and hospitals. • Green Infrastructure, Open Space, Biodiversity - recognising the importance to link new development with opportunities for sport and recreation and the social and health benefits this will bring.

Local Development Framework – Core Strategy

Issues and Options Discussion Paper

Topic Paper 2 - Transport and Infrastructure

1.00 Background

• Planning Policy Statement 1: Delivering Sustainable Development (PPS1) • Planning Policy Statement 3: Housing (PPS3) • Planning Policy Statement 4: Planning for Sustainable Economic Growth (PPS4) • Planning Policy Statement 12: Local Spatial Planning • Planning Policy Statement Guidance 13: Transport • Greater Manchester’s Third Local Transport Plan 2011/12 – 2014/15

2.00 Introduction

2.01 Infrastructure is key to the delivery of sustainable development and in ensuring that adequate facilities and services are in place to accommodate new development without there being a negative impact on existing residents and communities.

2.02 Section 1 of this Topic Paper highlights the current issues and challenges facing Tameside’s transport infrastructure and accessibility and identifies the key transport related issues which will need to be addressed to facilitate the Core Strategy’s development aspirations. Section 2 of the paper focuses on the provision of utilities and social infrastructure and what measures will be required to support healthy sustainable communities in Tameside. Overall it forms a supplementary paper to the Tameside Issues and Options Report, and in particular, will provide background information for the development of the Core Strategy.

2.03 The Paper draws on a number of sources of information including the 2001 Census, Greater Manchester Transportation Unit’s Transport Statistics, Tameside's Annual Monitoring Report, Accession Modelling Software, Highway’s Agency Stress Mapping, the Greater Manchester LDF Transport Modelling outputs and GMLTP3.

2.04 Transport and travel are a key element of everyday life; however the journeys we make and the mode of travel we use is often determined by non-transport related factors such as where we live and the facilities available there. Coupled with this, new technologies and the dominance of the car over the last 50 years have made travelling substantially easier and more frequent than ever.

2.05 The planning process is crucial in helping to achieve more sustainable travel patterns that will assist in a modal shift away from the car. In recent years there has been a growing recognition that transport problems can form significant barriers to social inclusion.

Although there has been a huge rise in mobility for people with access to a car, for those who rely on alternative modes to the car such as walking and public transport, access to work, learning and healthcare has become more difficult. Difficulties in accessing work places and key services are as much due to the location of those facilities as the quality of the transport links.

3.00 Part 1 - Transport

National Planning Policy Guidance

Planning Policy Statement 1 (PPS1) – ‘Delivering Sustainable Development’, 2005

3.01 PPS1 recognises that transport has a key role in delivering sustainable development and states that “planning should facilitate and promote inclusive patterns of urban and rural development by…”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”. It advocates the provision of improved access on foot, bicycle or public transport for all to jobs, health, education, shops, leisure and community facilities, open space, sport and recreation.

3.02 PPS1 is supplemented by the Planning and Climate Change document. This states that “all planning authorities should prepare and deliver spatial strategies that: ‘deliver patterns of urban growth that help secure the fullest possible use of sustainable transport for moving freight, public transport, cycling and walking and, overall reduce the need to travel, especially by car.

Planning Policy Statement 12 (PPS12) – ‘Local Development Frameworks’, 2004

3.03 PPS12 identifies that the integration of transport and spatial planning is central to the development and delivery of effective local development frameworks. Local transport policies need to reflect and support the aims of the core strategy. Land use planning, in turn, needs to take account of the existing transport network and plans for its development. This will require Tameside’s Local Development Framework to be consistent with the Greater Manchester Local Transport Plan.

3.04 PPS12 further highlights the valuable role that Local Planning Authorities have to play in improving accessibility, as the location of jobs and services have a significant impact on accessibility.

Planning Policy Guidance Note 13 (PPG13) – ‘Transport’, March 2001

3.05 PPG13 aims for a choice of transport in a way that supports sustainable development and integrates different types of transport with land use planning and policies for health, education and economic development.

3.06 PPG13 recognises the need for an efficient, safe and integrated transport system to support a strong economy. It further recognises that increasing road travel is damaging to our urban and rural environment and contributes to climate change. In response the Government’s objectives are to:-

• Promote more sustainable transport choices for moving people and freight; • Promote accessibility to jobs, shopping, leisure facilities and services by public transport, cycling and walking; and • Reduce the need to travel especially by car.

3.07 The Local Development Framework (LDF) has a role in influencing travel decisions by determining the relative location of development and ensuring they are well located in relation to the existing and future transport network. PPG13 suggests that by influencing the location of new development, planning can help reduce the need to travel.

4.00 Regional Planning Policy

Regional Spatial Strategy for the North West

4.01 The Regional Spatial Strategy for the North West (RSS), published in September 2008, provides a framework for development and investment in the North West. It establishes a broad vision for the region and its sub-regions, prioritises areas for growth and regeneration and includes policies to achieve sustainable development. Since the formation of the coalition Government in May 2010 it has been the clear intention to abolish regional planning. The issues surrounding this are well documented and at this stage the proposed abolition of RSS is a material consideration.

4.02 The RSS incorporates regional transport policies, otherwise referred to as the Regional Transport Strategy (RTS). The RSS transport policies support the vision and objectives of RSS by concentrating on the development of better transport links within the region and between the North West and other parts of the UK, Ireland, mainland Europe and beyond. They aim to do this by significantly improving the quality and provision of public transport and by promoting a more structured approach to managing and selectively improving the region’s highway network. The policies also outline the priorities for transport management and advocate policies and proposals which contribute to reducing greenhouse gas emissions from the transport sector.

4.03 RSS policy RT2 states that planning policies and strategies should:-

• Ensure that major new developments are located where there is good access to public transport, backed by effective provision for pedestrians and cyclists to minimise the need to travel by private car; • Seek to reduce private car use through the introduction of ‘smarter choices’ and other incentives to change travel behaviour; • Consider the reallocation of road space in favour of public transport, pedestrians and cyclists, alongside parking charges, enforcement and provision, and other fiscal measures including road user charging; • Make greater use of on-street parking controls and enforcement; • Incorporate maximum parking standards that are in line with, or more restrictive than those set out in the RSS and define standards for additional land use categories and areas where more restrictive standards should be applied.

5.00 Sub-Regional Planning Policy

Greater Manchester Strategy, 2009

5.01 The Greater Manchester Strategy is a shared vision, with accompanying strategic priorities, aimed a delivering a more prosperous Manchester City Region. The transport objectives contained within the Strategy are to:-

• Prioritise cost effective major transport interventions that will create maximum economic benefit to the city region, subject to positive social and environmental outcomes overall; • Improve access from residential areas, particularly housing growth points, to key education and employment areas, particularly the Regional Centres, Trafford Park and other strategic employment sites; • Improve the efficiency and reliability of the transport networks; • Improve surface access to Manchester Airport; • Improve road safety; • Enhance personal safety and security; • Address the challenges of climate change through an integrated approach to transport network and demand management across all modes that optimises use of the network, provides users with a full range of affordable low carbon transport options, and reduces their need to travel.

Greater Manchester’s Third Local Transport Plan

5.02 The Local Transport Act 2008 introduced a number of changes to the legislative and policy framework for local transport planning. In particular, responsibility for the LTP now lies with Transport for Greater Manchester (TfGM), in consultation with the local highway and planning authorities.

5.03 LTP’s are expected to contribute to national transport goals, identified in ‘Delivering a Sustainable Transport System, 2008 (DaSTS). These goals are to:-

• Support national economic competitiveness and growth, by delivering reliable and efficient transport networks; • Reduce transport’s emissions of greenhouse gases, with the desired outcome of tackling climate change; • Contribute to better safety, security and health and longer-life expectancy by reducing risk of death, injury or illness arising from transport and by promoting travel modes that are beneficial to health; • Promote greater equality of opportunity for all citizens, with the desired outcome of achieving a fairer society; and • Improve the quality of life for transport users and non-users and to promote a healthy natural environment

5.04 The Climate Change Act 2008 commits central Government to reducing greenhouse gas emissions across the UK economy by at least 80% on 1990 levels by 2050 and it is expected that GMLTP3 will have a significant impact on this contribution.

5.05 TfGM published its 3rd Greater Manchester Local transport Plan (GMLTP3) in April 2011, setting out a long term transport vision for the next 15 years, together with a series of detailed Local Area Implementation Plans.

5.06 The core objectives of GMLTP3 are:-

• To ensure that the transport network supports the Greater Manchester economy to improve the life chances of residents and the success of businesses; • To ensure that carbon emissions from transport are reduced in line with UK Government targets in order to minimise the impacts of climate change; • To ensure that the transport system facilitates active, healthy lifestyles and a reduction in the number of casualties and other adverse health impacts are minimised; • To ensure that the design and maintenance of the transport network and provision of services supports sustainable neighbourhoods and public spaces and provides equality of transport opportunities; and • To maximise value for money in the provision and maintenance of transport infrastructure and services.

5.07 These objectives will be delivered through the implementation of a range of projects, service improvements and initiatives which, subject to funding, will be across the full range of Greater Manchester’s transport modes. Central to all of these interventions is the desire to bring forward improvements to help strengthen Greater Manchester’s economy, whilst encouraging people to use active and sustainable modes of travel for more of the journeys that they need to make.

5.08 The projects, service improvements and initiatives will be delivered through the following main areas:-

• Promoting travel choices; • Public transport:- o Better buses; o Door to door transport; o Delivering the Metrolink vision; o A rail system for our future economy; and o Fares, ticketing and information • Active Travel; • Highways and Freight:- o Managing our highways; o Car parking; o Freight; o Demand management; and o Asset management and highways maintenance. • Wider issues:- o Safe and secure travel; o Accessible transport; and o Greener transport.

6.00 Local Transport Policy

Tameside Sustainable Community Strategy 2009 – 2019

6.01 Tameside’s present Sustainable Community Strategy 2009-2019, follows earlier Community Strategies and was developed in response to changing local priorities and emerging issues across Greater Manchester.

6.02 Its vision states that: “Tameside is a great place to live. We will make it even better. It will continue to be a Borough where people who live here feel at home, are able to get involved in the life of the community, where they can contribute to a prosperous local economy, feel safe and healthy, and take active responsibility for their environment”. Its six key priorities are:-

• Supportive Tameside; • Prosperous Tameside; • Learning Tameside; • Attractive Tameside; • Healthy Tameside; and • Safe Tameside.

6.03 The Community Strategy will be reinforced with new powers contained in the Localism Act which is intended to shift power from Central Government to communities and promises:-

• Local people and organisations will have the right to buy significant public buildings. If a council decides to sell a property community organisations will get extra time to develop their bid. • Communities can question how services - such as children's centres, care homes and transport - are being run and potentially take them over. • More power for local people to overrule planning decisions, decide where new homes should go and protect green spaces.

6.04 The GMLTP3 transport objectives support the six key priorities of the Tameside Sustainable Community Strategy (2009-19) as noted in Table 1 below:

Table 1 – Synergies between the GMLTP3 and the Tameside Sustainable Community Strategy (2009-19)

GMLTP3 Objectives Tameside Sustainable Community Strategy (2009-19) To ensure that the transport network supports the Greater Supportive Tameside Manchester economy to improve the life chances of residents Prosperous Tameside and the success of business To ensure that carbon emissions from transport are reduced Attractive Tameside in line with UK Government targets, to minimise the impact of Healthy Tameside climate change To ensure that the transport system facilitates active, healthy Healthy Tameside lifestyles, the number of casualties is reduced, and other Safe Tameside adverse health impacts are minimised Prosperous Tameside

To ensure that the design and maintenance of the transport Safe Tameside

network and provision of services supports sustainable Supportive Tameside neighbourhoods and public spaces and provides equality of Prosperous Tameside transport opportunities To maximise value for money in the provision and Prosperous Tameside maintenance of transport infrastructure and services.

7.00 Local Transport Infrastructure

7.01 Tameside has a substantial highway network providing good links to the national motorway network. It also has good public transport networks which provide access to other towns and cities within Greater Manchester and to the rest of the UK.

7.02 Table 2 below indicates that the Authority’s highway network consists of:

Table 2 – Details of the Tameside Highway Network Type of Road (at 1st April 2011) Length (km) Principal Motorways (Highways Agency) 15.3 Principal A – Roads (Highways Agency Trunk Roads) 3.2 Principal A – Roads (TMBC) 63.1 B – Roads (TMBC) 31.8 C – Roads (TMBC) 37.4 Unclassified Roads (includes housing estate roads) (TMBC) 617.9 Backlanes (TMBC) 1.3 Source: DfT Form R199b - 2011

7.03 Tameside has good links to the national motorway network with access at the following motorway junctions:-

• M60 junction 23 – located on the A635 Manchester Road immediately to the west of Ashton town centre; • M60/M67 junction 24 – located on the A57 Manchester Road immediately to the west of Denton; • M67 junction 1 – located on the A6017 Ashton Road in Denton town centre (has limited access to/from the motorway); • M67 junction 2 – located on the A57 Hyde Road to the east of Denton ( has limited access to/from the motorway); • M67 junction 3 - located on the A627 Clark Way in Hyde town centre; and • M67 junction 4 – located at the A57 Hyde Rd/Mottram Rd/A560 Stockport Rd junction, Mottram.

7.04 At M67 junction 4, the A57/A628 Trunk road provides part of the major transport route between Manchester and Sheffield.

7.05 The principal A - road network provides major transport links to the towns and cities surrounding Tameside as well as links between the town centres within the Borough. Figure1 below shows the highway network within Tameside.

Figure 1 – The Highway Network in Tameside

Traffic Flows and Composition

7.06 The traffic flows within Tameside are highest on the motorway network with the greatest 24 hour Annual Average Weekday Traffic (AAWT) flow being 119,300 vehicles on the M60 between junctions 24 (Denton) and 25 (Bredbury). The busiest principal A – road is the A635 Park Parade in Ashton which has an estimated 24 hour AAWT of 43,600 vehicles. The average 12 – hour pedal cycle flow in Tameside was 73 on A roads and 46 on B roads. This is considerably lower than the Greater Manchester averages of 107 and 100 respectively.

7.07 Table 3 below shows the percentage composition of traffic in Tameside in 2010 (0700 to 1900) compared to Greater Manchester.

Table 3 – Percentage Composition of Traffic within Tameside in 2010 (0700 to 1900) Cars LGV OGV1 OGV2 Bus & Motor Pedal Coach Cycles Cycles Tameside Motorways 77.7 13.4 4.7 3.5 0.2 0.4 0.0 A Roads 77.8 14.6 3.6 2.3 0.6 0.7 0.4 B Roads 82.4 12.4 1.5 0.7 2.0 0.6 0.5 Minor Rds 86.6 11.4 0.6 0.1 0.3 0.4 0.7 Greater Motorways 76.8 12.3 5.3 5.0 0.3 0.4 0.0 Manchester A Roads 81.7 11.4 2.9 1.3 1.4 0.6 0.6 B Roads 82.8 11.4 1.4 0.5 2.1 0.6 1.1 Minor Rds 83.7 11.2 1.5 0.4 1.7 0.4 1.1 Source: HFAS Report 1662 – November 2011 Notes:- • LGV = Commercial vehicles with 2 axles and upto 6 wheels without a side bar. • OGV1 = Medium Goods Vehicles with 2 axles and upto 6 wheels with a side bar and Rigid Goods Vehicles with 3 axles. • OGV2 = All Articulated Heavy Goods Vehicles and Rigid Heavy Goods Vehicles with 4 or more axles.

Traffic Growth

• The 24 hour weekday traffic flows on the motorway network in Tameside have decreased by 4% between 2009 and 2010. Over the same period there was a decrease of 2% on the motorway network in Greater Manchester as a whole. • The 12 hour weekday traffic flows on the A and B roads within Tameside and Greater Manchester showed a 3% decrease between 2009 and 2010, compared with a 2% decrease across Greater Manchester.

Car Parking

7.05 Tameside operates a significant number of pay and display car parks within the main towns, which are detailed in Table 4 below.

Table 4 – Details of Pay and Display Car Parks in Tameside Town No. of car parks No. of spaces Ashton 13 1,114 Hyde 6 450 Stalybridge 3 166 Denton 2 93 Droylsden 1 105 Total 25 1,928

7.10 In Ashton town centre the car parks are divided into short (8 car parks and 430 spaces) and long stay car parks (5 car parks and 684 spaces). Within the other towns the car parks are all classed as long stay.

7.11 There is an ongoing strategic review of car parking within Tameside which within Tameside is currently seeing more town centre car parks becoming pay and display.

7.12 In addition, there are a number of privately operated car parks provided as part of town centre and out of town shopping centres which significantly add to the overall number of parking spaces across the Borough.

Cycling and Walking

7.13 The growth in car ownership and use has resulted in a long term decline in cycling and walking. Many commuting journeys by car are relatively short, with 15% of the people commuting by car travelling less than 2km and 30% less than 5km. This represents a major opportunity for modal shift, which will be beneficial to health and will reduce both local congestion and emissions.

7.14 Measures undertaken in recent years to improve safety, provide infrastructure and promote sustainable travel have had some success:-

• The number of people cycling has increased by 17% since 2005; and • Surveys have recorded higher levels of people walking into key centres during the morning peak periods.

7.15 In order to achieve a significant modal shift a comprehensive package of improvements needs to be introduced, which when taken together will make it easy to choose more sustainable ways of travelling. GMLTP3 envisages that for short trips of up to 5km the primary modes of travel should be walk, cycle, and bus. This will be achieved through:-

• Improved walking and cycling routes to key local destinations; • Neighbourhood traffic management (ie speed reduction); • Key routes prioritised for maintenance; • Promotion of health benefits of active travel; • Pedestrian friendly new development; • Highway measures to improve safety and accessibility for pedestrians and cyclists; • Cycle training; • Cycle parking at key local destinations; • Cycle hire; and • Cycle centres.

7.16 The main emphasis to date on Smarter Choices has been on developing travel plans, with the focus being on school travel plans. GMLTP3 targets improvements so as to:-

• Increase the number of people walking or cycling to work and education, especially for short trips made in the peak hours, and to reduce the numbers of single occupancy vehicles travelling in Greater Manchester’s most congested areas and corridors; • Make the best use of existing networks and add value to investment in public transport networks by integrating walking and cycling with other modes of transport; • Improve safety and security for pedestrians and cyclists, with an initial focus on routes to key transport hubs and areas of employment; • Contribute to the improved neighbourhoods and environments within Greater Manchester by improving low – carbon modes of travel (ie walking and cycling); and • Contribute to public health in Greater Manchester by increasing physical activity, especially in areas with the most pronounced health inequalities.

7.17 The GLTP3 Standards/Targets forecast a 16% increase in cycling levels to be achieved through an overall increase of 50% in the number of cycle trips for work across Greater

Manchester. This will be achieved through the Local Sustainable Transport Fund Large Bid and other initiatives, which will provide a Cycle Centre at Ashton Pool and improved cycle routes to Ashton Moss and along the Peak Forest Canal between Ashton and Hyde. At present 39% of cycle mileage is for commuting purposes. For walking trips GMLTP3 assumes that there will be no change in the level of walking over the timescale of strategy.

7.18 The National Cycle Network (NCN) is a network of safe and attractive cycle routes across the UK and is co-ordinated by the charity Sustrans. Within Tameside there are three cycle routes on the National Cycle Network:-

• NCN 62 – This route which passes east - west through the southern part of the Borough forms part of the Trans-Pennine Trail; • NCN 66 – This route runs north from Ashton town centre to Oldham along the route of an old railway line which linked the two town centres; and • NCN 85 – This route forms part of the regional network and links Audenshaw to NCN 60 in the Debdale area of Manchester.

7.19 These national and regional cycle routes link to an extensive network of off road and on road cycle routes across the Borough.

Public Transport

7.20 Tameside has an extensive public transport network comprising, bus, rail and local link services, which are provided at local, regional and national levels.

Bus

7.21 Tameside has an extensive network of bus services which provide links to the regional centre and neighbouring town centres, as well as between the town centres of Tameside and to the outlying residential areas. The majority of services are operated commercially by the bus operators with other non profitable services subsidised by TfGM.

7.22 Despite recent increases in bus patronage within Greater Manchester, long term trends (given as millions of passenger journeys per annum), illustrated in Figure 2 below, show a significant decline.

Figure 2 - Bus Patronage in G.M. (million passenger journeys per annum)

7.23 Tameside’s bus network coverage varies by time of day and day of the week. It is at its maximum extent, in terms of frequency and network coverage during the peak and inter – peak periods, Monday to Saturday, and at its minimum extent during early mornings, evenings and on Sundays. The bus network is largely commercially operated during the peak and inter – peak periods, Monday to Saturday but with a much larger proportion being supported by TfGM during early mornings, evenings and on Sundays.

7.24 The bus services on the major corridors between the town centres of Tameside, to the major centres in neighbouring Boroughs and to the Regional Centre are largely commercially operated at all times. Services that link the major town centres within Tameside to adjacent residential areas are largely commercially operated during the peak and inter – peak periods, Monday to Saturday, but with many being supported by TfGM during early mornings, evenings and on Sundays. Those services that link town centres to some of the outlying residential areas and the more rural areas in the southern and eastern parts of the Borough are largely supported by TfGM at all times.

7.25 Over the period between 2000/01 and 2007/08, Tameside in conjunction with TfGM and the bus operators, provided four Quality Bus Corridors (QBC’s) which formed part of the wider Greater Manchester QBC network:-

• Rochdale – Oldham – Ashton – Hyde; • Manchester – Ashton – Stalybridge; • Manchester – Denton – Hyde; and • Hyde – Bredbury – Stockport.

7.26 They received significant investment to provide bus priority measures such as bus lanes and improved bus stop facilities with bus operators upgrading their services with new low floor buses.

7.27 Further bus improvement measures currently being implemented include:-

• The provision of SCOOT and MOVA at additional signal controlled junctions; • The provision of improved bus stops with raised kerbs and improved footways at bus stops on the rest of the bus network; • The provision of further bus stop clearways; and • The introduction of bus lane enforcement.

Rail

7.28 Tameside is well served by both local and interregional rail services. These include:-

• North TransPennine Express services linking Manchester Airport, Manchester Piccadilly and Liverpool with Leeds, Hull, York, Scarborough and the North East. There are 4 of these services each hour, one of which stops at Stalybridge; • Manchester Victoria to Huddersfield and Liverpool to Stalybridge. These two services operate hourly giving a combined half hourly service between Manchester Victoria and Stalybridge: • Manchester Piccadilly to Glossop, which operates half hourly and every 20 minutes during the peak periods; and • Manchester Piccadilly to Rose Hill Marple, via Hyde, which operates hourly.

7.29 The borough has 13 stations as noted in Table 5 below:

Table 5 – Annual Number of Passengers Using Tameside Stations Station usage (entries and exits per year) Patronage Station 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 increase (%) Ashton 324,797 337,993 337,580 344,041 450,868 461,086 42% Stalybridge 651,675 687,664 699,931 766,010 844,118 932,976 43% Mossley 191,612 188,272 180,824 191,486 266,576 275,794 44% Fairfield 6,488 7,945 7,690 6,998 9,002 10,832 67% Guide Bridge 130,173 154,264 147,375 157,258 208,440 209,494 61% Flowery Field 114,295 117,163 114,446 121,569 163,038 168,334 47% Newton for 106,733 116,761 109,214 119,786 165,178 159,832 50% Hyde Godley 46,098 50,769 51,840 50,105 62,660 62,072 35% Hattersley 35,871 38,331 32,453 34,133 44,360 42,572 19% Broadbottom 97,743 107,315 96,795 98,055 121,858 119,014 22% Hyde North 20,506 24,138 23,654 27,279 30,722 34,614 69% Hyde Central 36,111 37,600 42,391 41,599 49,846 53,458 49% Denton - - 65 53 56 496 Source: Office of Rail Regulation - 2011

7.30 The above table indicates that patronage has increased significantly at all the stations within the Borough. The percentage increase varies considerably across the area. Growth at the stations on the Manchester Victoria to Huddersfield line has been 43%. On the Manchester Piccadilly to Glossop line patronage growth varies between 19% (Hattersley) to

67% (Fairfield). Patronage growth at the stations on the Hyde Loop is 69% at Hyde Central and 49% at Hyde North. However, as the table shows, patronage has fallen in 2009/10 at Newton for Hyde, Godley, Hattersley and Broadbottom. The busiest stations within Tameside are Stalybridge, Ashton, Mossley and Guide Bridge. Denton station is served by one train per week.

7.31 The Northern Hub project, which is being managed by Network Rail, is a major project that will bring significant improvements to the rail services across northern England. The major elements of the proposed works are largely concentrated in and on the approaches to Manchester. This project will significantly affect the future rail services within Tameside:-

• Four fast North TransPennine Express services between Manchester and Leeds will be diverted at Stalybridge to operate via the Ashton line to Manchester Victoria. These services will then continue to Liverpool (2 services) and to Manchester Airport via the new Ordsell Curve, Oxford Road and Manchester Piccadilly(2 services); • Two semi fast Manchester to Leeds services will run from Stalybridge to Manchester Piccadilly. These services would serve a number of stations between Manchester and Leeds probably including Stalybridge. • The current hourly local services between Manchester Victoria and Huddersfield would be diverted to Manchester Piccadilly providing a new link between Stalybridge and Guide Bridge; • The hourly local service between Stalybridge and Manchester Victoria (- Liverpool)and will continue but may be diverted to another destination to the west of Manchester..

7.32 The Northern Hub project envisages works to improve Manchester Victoria and Manchester Piccadilly, where two additional platforms will be added.

7.33 The Northern Hub project requires significant infrastructure works to be undertaken including:-

• The construction of the Ordsall Curve which will link Manchester Victoria and Manchester Piccadilly stations; • Line speed improvements between Manchester Victoria and Stalybridge; • Improvements to Manchester Victoria; • Reconstruction of Stalybridge station including an additional bay platform and an additional through platform; and • Capacity improvements on the Trans – Pennine route between Stalybridge and Leeds/ York.

7.34 In March 2011 the Government announced funding for the first three infrastructure improvements detailed above which will significantly change and improve rail services between Manchester – Leeds and York.

7.35 Electrification of the lines between Manchester Piccadilly/Victoria and Liverpool, Manchester to Preston (and onto Blackpool) will be completed by 2016.

7.36 The Chancellor of the Exchequer announced in his Autumn Statement in November 2011 that the North Trans – Pennine route between Manchester and York, via Huddersfield and Leeds, would be electrified over the next five years.

7.37 TfGM, Northern Rail and Network Rail are undertaking programmes of station improvements, which will provide improved station access, RTPI, CCTV and other station

safety improvements. A number of stations within Tameside are included in these programmes, although the latter stages of the programmes are not yet funded.

7.38 The Northern Route Utilisation Strategy (RUS), which was published in May 2011, sets out the priorities for rail improvements for the north of England over the next 30 years. The timescale for the current RUS is to 2024.

7.39 The Northern RUS has made an initial assessment of the effect of the Ordsall Curve, the Northern Hub and the North West electrification schemes, but much of the detailed work, including service patterns is taking place as part of the Northern Hub. For example, the RUS does not include any details or proposals for the local Manchester – Ashton – Stalybridge and Manchester – Ashton – Stalybridge – Huddersfield service, stating that they will be substantially affected by the Ordsall Curve proposals and that meeting capacity on these services will need to be addressed through the Northern Hub.

7.40 The railway line which links Stockport (Heaton Norris Junction) to the Manchester Victoria to Stalybridge line at Ashton Moss North Junction, immediately to the west of Ashton town centre, forms an underused link on Greater Manchester rail network. The only passenger service which currently uses part of this line is the once a week Stockport to Stalybridge service. Both Tameside and Stockport Councils wish to see this line used by a passenger service linking Stockport to Manchester Victoria, stopping within Tameside at Denton station and a new station at Droylsden. The issue is contained as a medium to long term initiative within the Greater Manchester rail Strategy

Metrolink

7.41 The Manchester – Droylsden – Ashton Metrolink Line is currently under construction. Metrolink Phase 3a between Manchester Piccadilly and Droylsden is due to open Summer 2012 and Phase 3b between Droylsden and Ashton is due to open winter 2013/14.

7.42 There will be seven Metrolink stations within Tameside (Edge Lane, Cemetery Road, Droylsden, Audenshaw, Ashton Moss (which is being developed as a park and ride site), Ashton West and Ashton – under – Lyne).

7.43 The completion of Metrolink will significantly improve public transport availability on the Ashton – Droylsden – Manchester corridor and encourage modal shift from private cars to public transport.

Flexible Transport

7.44 There are 6 local link services provided within Tameside:-

• Dane Bank Local Link; • Gee Cross Local Link; • Hattersley Local Link; • Mossley and Uppermill Local Link; • Tame Valley Local Link; and • Tameside Shopping Link

7.45 These are a number of demand responsive bus services operating in the local area. Service levels can vary according to the time of day and day of week depending if their operating areas are covered by commercial/ subsidised bus services at those times. In

recent years these services have expanded as early morning, evening and Sunday/ public holiday commercially operated and subsidised general bus services have been withdrawn.

8.00 Existing Travel Patterns

Journey to Work

8.01 Journeys to work form the most significant reasons for travel and the associated peak periods experience the highest traffic flows and greatest levels of congestion. The 2008 Annual Population Survey by the Office of National Statistics shows that for Tameside residents 69.7% work in Tameside and 30.3% commute outside the Borough. Table 6 below shows general commuter patterns of Tameside residents.

Table 6 – Commuter Journey Destinations Destination of Tameside Workers (%) Bury High Peak Manchester 5.6 Oldham 6.5 Rochdale 1.9 Salford 2.6 Stockport 8.6 Tameside 69.7 Trafford 2.6 Source: 2008 ONS – Annual Population Survey

8.02 For commuters travelling out of Tameside for work Stockport is the dominant journey destination, followed by Oldham and Manchester.

8.03 For commuters travelling into Tameside for work the numbers are highest for Stockport, Oldham, High Peak and then Manchester.

8.04 Table 7 below indiactes the mode of travel used by commuters.

Table 7 - Mode of Travel Used by Commuters. Commuters travelling out Commuters travelling into Commuters of Tameside Tameside travelling within Tameside Number % Number % Number % Car driver 28,910 67.9 16,762 78.8 25,245 47.1 Bus 6,673 15.7 1,667 7.8 5,152 9.6 Car 2,885 6.8 1,397 6.6 4,246 7.9 passenger Train 1,923 4.5 360 1.7 233 0.4 On foot 846 2.0 458 2.2 9,234 17.2 Cycle 494 1.2 248 1.2 1,013 1.9 Motorcycle 481 1.2 213 1.0 453 0.8 Other 365 0.9 163 0.8 658 1.2 At home 7,444 13.9 Total 42,577 21,268 53,678 Source: 2001 Census

8.05 The above table illustrates the dominance of car travel (both as a driver and a passenger) for commuting. However, for internal commuting wholly within Tameside itself the car is much less dominant with only 55% of the total. Commuting by bus is highest for those journeys out of Tameside and lowest for those journeys into Tameside. The use of rail is dominated for trips to the Regional Centre and beyond.

8.06 For commuting within Tameside significantly more journeys are made on foot and by cycle compared to journeys to and from the borough.

8.07 Many commuting journeys made by car are relatively short, with 15% of the people commuting by car travelling less than 2km and 30% less than 5km.

Travel to School

8.08 Table 8 below provides details of the mode of transport to schools.

Table 8 – Mode of Transport to Schools within Tameside (LTP4 and NI 198 Indicators) Primary Secondary Total Tameside 06/07 07/08 08/09 09/10 10/11 06/07 07/08 08/09 09/10 10/11 06/07 07/08 08/09 09/10 10/11 Car 34 35 34 32 31 14 15 15 15 15 24 25 25 24 23 Car Share 3 3 4 4 4 2 2 2 2 2 3 3 3 3 3 Public Transport 2 2 3 2 2 39 39 38 39 38 21 21 20 20 19 Walk 60 59 60 61 63 38 39 41 41 42 49 49 51 51 53 Cycle 0 0 0 0 0 4 3 2 2 2 2 1 1 1 1 Other 0 0 0 0 0 3 2 2 1 2 2 1 1 1 1 Source: HFAS: Note 513 January 2012 (Figures are rounded to the nearest whole number)

8.09 This table shows that for primary schools the numbers of pupils travelling to school by car has decreased slightly between 2006/07 and 2010/11, whereas for secondary schools it has increased slightly over the same period. In both cases the percentage of pupils walking to school has increased but the percentage cycling and using public transport have declined. In both cases the percentage of travel to school by car within Tameside is less than the Greater Manchester average

Ashton Northern Bypass Stage 2

8.10 The A6140 Ashton Northern Bypass (Stage 2), which opened at the end of January 2012, provides a 0.5 km (0.3 mile) single carriageway diversion of the existing Wellington Road/Penny Meadow between Turner Lane and Penny Meadow in Ashton town centre. It completes the bypass around the northern side of the town centre and includes three signal-controlled junctions with pedestrian crossing facilities that have been added to the existing town centre SCOOT system in order to improve traffic flow and reduce congestion.

8.11 The new road will help to deal with traffic congestion along Wellington Road and up through Penny Meadow and is a key part of the Council’s strategy together with the Metrolink and other investments to the public realm, which is the fruition of long term plans to revitalise Ashton Town Centre and ensure its future sustainability.

Longdendale Integrated Transport Strategy

8.12 In June 2009, the Association of Greater Manchester Authorities (AGMA) established the Greater Manchester Major Scheme Transport Fund. This included a provisional budget of £100m for major transport proposals in Longdendale as an alternative to the Mottram to Tintwistle Bypass/Glossop Spur scheme.

8.13 In July 2009, Tameside approved the development of a transport strategy for Longdendale: the Longdendale Integrated Transport Strategy (LITS). Stakeholder consultation was carried out between August and October 2009, and in February 2010 a selection of six options was taken to a formal public consultation.

8.14 As a result of this consultation exercise a total 534 questionnaires were completed. The majority of respondents (96%) reported that a solution to the traffic congestion in Mottram and Hollingworth needs to be found. A majority of respondents supported the following proposals:-

• The improvement of bus services and bus infrastructure; • Improved rail services; • The need for a bypass of Mottram and the provision of a Mottram Moor/Broadfield link road; • Improvements for cycling and pedestrians; • Proposals for traffic calming and reduced vehicle speeds; • Proposals to improve road safety as part of the transport strategy; • The use of environmental weight restrictions as part of the transport strategy; and • The inclusion of a package of measures to improve the street scene as part of the transport strategy

9.00 Key Transport Issues and Problems

Congestion

9.01 Journey time data on the highway network within Tameside has been calculated from data collected from in-vehicle GPS tracking devices from which average vehicle speeds and journey times have been derived. The following Table 9 details the average speeds on the A and B roads in Tameside.

Table 9 - Tameside and Greater Manchester average speeds on A and B roads (mph) Year 08:00 – 09:00 10:00 – 16:00 17:00 – 18:00 07:00 – 19:00 Tameside 2004/05 15 18 17 18 2005/06 15 18 16 17 2006/07 15 18 16 17 2007/08 15 18 15 17 2008/09 16 18 16 17 2009/10 15 18 15 17 Greater Manchester 2009/10 16 19 16 18 HFAS Report 1662 – 2011

9.02 Figures indicate that the average speeds on Tameside’s roads are less than those for the county as a whole. The table also shows that the average speeds on Tameside’s roads have decreased slightly between 2004/05 and 2009/10, with the greatest decrease in average vehicle speeds being during the evening peak period (17:00 to 18:00).

9.03 Figure 3 below shows those roads within Tameside which have average link speeds of less than 10 kph during the morning and evening peak periods.

Figure 3 – Tameside Roads with Average Link Speeds of Less than 10 kph during the Morning and Evening Peak Periods

Car Ownership

9.04 Car ownership in Tameside is illustrated in Table 10 below

Table 10 - Car ownership in Tameside Number of households % National % Households without car/van 29,373 32.6 24 Households with 1 car or van 40,175 44.7 45 Households with 2 or more cars or vans 20,433 22.7 31 Source: 2001 Census

9.05 This shows that Tameside has more households without access to a car/van and fewer households with access to 2 or more cars or vans than the national average.

Traffic Growth

9.06 Figure 4 below shows the traffic growth over the period 1993 to 2010, in Tameside, Greater Manchester and Nationally. It shows data based on 12 – hour average weekday flows on a sample of A and B roads across Tameside and Greater Manchester. The graph shows that traffic flows have declined since 2007. However, it noticeable that traffic flows on A and B roads within Tameside have been declining slightly since 1999. This is almost certainly due to the opening of the Denton to Middleton section of the M60 in 2000, which will have taken significant numbers of long distance traffic from the A and B roads within Tameside.

Figure 4 – National, Greater Manchester and Tameside Traffic Growth 1993 - 2010 108

106

104

102

100 Tameside 98 Greater Manchester

National IndexBase 100 = 96

94 92

1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

Source: HFAS Report 1662 – 2011

Road Safety

9.07 Table 11 below shows that over the period 1994 to 2010 the number of casualties within Tameside in all the categories listed above fell significantly.

Table 11: Tameside Casualty Data 1994 - 2010 All Ave 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 94-98 Fatal 6 6 5 5 4 11 2 6 4 11 2 4 5 Serious 100 88 76 86 85 83 75 64 63 67 52 45 53 Slight 1076 968 1089 940 864 772 845 735 689 667 605 614 457 All 1181 1062 1170 1031 953 866 922 805 756 745 659 663 515 KSI 106 94 81 91 89 94 77 70 67 78 54 49 58 Pop (000s) 221 219 219 213 213 213 213 214 214 214 214 214 215 KSI/100,000 48 43 37 43 42 44 36 33 31 36 25 23 27 Child Casualties Child KSI 31 25 18 30 22 25 27 17 20 10 16 11 10 Child (All) 220 182 217 175 181 163 157 135 124 95 94 99 71 Child pop 48 47 46 45 45 44 44 44 43 43 42 42 42 (000s) KSI/100,000 65 54 39 66 49 57 61 39 46 24 38 26 24 Source: HFAS Report 1662 – 2011

9.08 Figure 5 below shows a comparison of index of all casualties in Tameside and Greater Manchester over the period 1999 to 2010. It illustrates the significant decline in casualties in Tameside over this period, which closely follows the Greater Manchester trend.

Figure 5 – Index of All Casualties in Tameside & Greater Manchester 1999 - 2010

120 100 80 60 Greater Manchester 40 Tameside

IndexBase 100 = Base = Average 20 1994 to 1998 0 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

Source: HFAS Report 1662 – 2011

9.09 The top 10 accident sites within Tameside that have been identified from the last 10 years accident records are detailed in Table 12 below.

Table 12 – Ten Year Accident Record Top 10 Accident Sites in Tameside Rank Location DA 1 M60/M67/A57 Roundabout, Denton Denton 2 A670 Mottram Rd/A670 Crickets Lane/B6170 Mottram Rd/Beaufort Ashton Rd Junction, Ashton 3 A635 Park Parade/B6170 Mossley Rd/B6170 Scotland St/A6043 Ashton Crickets Lane North Roundabout, Ashton (BT Roundabout) 4 A635 Park Parade/A627 Oldham Rd/A627 Cavendish St Ashton Roundabout, Ashton (ASDA Roundabout) 5 A635 Park Parade/A635 Manchester Rd/A6017 Stockport Ashton Rd/Margaret St Junction, Ashton (Chester Square Gyratory) 6 A670 Mottram Rd/B6194 Queens Rd/Darnton Rd/Montague Rd Ashton Junction, Ashton 7 M67/A57T Hyde Rd/A560 Stockport Rd Roundabout, Hattersley Hattersley & Longdendale 8 A57 Manchester Rd/A57 Hyde Road/A6017 Ashton Rd/A6017 Denton Stockport Rd Junction, Denton (Crown Point) 9 B6170 Ashton Rd/B6170 Bennett St/Talbot Rd Junction, Hyde Hyde 10 A662 Manchester Rd/A662 Ashton Rd/Market St Junction, Droylsden Droylsden Source: HFAS Accident Records 2011

Air Pollution/Climate Change

9.10 Traffic growth on Tameside’s highway network is leading to increased air pollution. Poor air quality has a real and significant effect on people’s lives, with premature deaths related to exposure to air pollution. The Government has strict targets to meet in relation to both climate change and air quality and has created two new National Indicators, 185 and 186, which require Councils and the local community to reduce emissions of carbon dioxide (CO2) year on year.

9.11 Coupled with high levels of CO2 emissions from road transport, the Government target for the nitrogen dioxide (NO2) is not likely to be met in some areas of the Borough. The main source of this pollutant is also road transport.

9.12 In areas where Government targets are not likely to be met, the Council is required to designate Air Quality Management Areas and develop Air Quality Management Plans which identify measures to improve air quality. Figure 6 below identifies Tameside’s Air Quality Management Area (AQMA) and clearly highlights the link between the AQMA and the major roads and motorways in the Borough. Figure 6 – Tameside Air Quality Management Area

Source: GMLTP – 2011

9.13 The 2006 Air Quality Strategy and Action Plan has been updated as part of LTP3 and, changes to national and EU guidance. The overall LTP3 strategy is centred upon increasing travel by sustainable modes, using a combination of:-

• Improvements to public transport and to infrastructure for walking and cycling; • Better integration of transport and new development; and • Encouraging smarter travel through improved fares, ticketing and information, management of demand for car travel and promotional campaigns.

9.13 The reduction in car use through these measures will contribute to improved air quality, reduced carbon emissions and the protection of biodiversity.

9.14 Currently many areas within the conurbation exceed the EU thresholds for nitrogen dioxide (NO2) concentrations and the requirement to meet these limits by 2010 has not been met. Current forecasts by DEFRA indicate that many parts of Greater Manchester will continue to exceed the limit values in 2015. Direct action will also be undertaken to tackle air quality based upon:

• Reducing acute pollution incidents from traffic; • Improving vehicle efficiency; • Reducing trips by motor vehicles; and • Improving network efficiency.

9.15 The GMLTP3 standard/target proposed for Air Quality – NOx emissions from road traffic is for a forecast -44% reduction in the overall NOx emissions between 2011 to 2016.

Accessibility

9.16 Accessibility relates to the ease with which Tameside residents can gain access to key services and opportunities, such as places of work and learning, health care, shops and leisure venues. Accessibility is not simply concerned with transport, but also about the location, design and delivery of services. Poor accessibility can have a significant impact on people’s quality of life and the development of sustainable communities.

Accessibility is also influenced by:- • The distance that people are willing to travel to employment opportunities, both within the Borough and to destinations beyond the Borough boundaries; • Whether the local communities have the appropriate skills and training to work in the areas they are connected to: and • The culture and diversity of the local community.

9.17 GMLTP3 aims to provide greater equality of travel opportunities through improvements in:-

• Access to the public transport, pedestrian and cycle networks, particularly for people in isolated areas; • Information about travel options; • Affordability, for people on low incomes; • Physical accessibility particularly, but not only, to assist people with disabilities: and • Safety and security, to give people confidence to travel.

9.18 The high number of households without access to a car (32.6% in Tameside in 2001) makes them reliant on public transport, and many of these households are the areas of poor accessibility by public transport.

9.19 The types of accessibility issues that GMLTP3 identifies as persisting include:-

• Access to key services, employment and social activities from rural areas, especially the Pennine fringe, ie Mottram and Broadbottom; • Cross – boundary access; • Access, particularly to wider employment opportunities, from isolated estates and/or areas of deprivation i.e. Hattersley;

• Employment areas where the patterns of demand are dispersed; • A lack of orbital links providing direst services to employment opportunities or healthcare; • Lack of feeder bus services linking to the rail and Metrolink networks, increasing difficulties in accessing job opportunities; • New developments on the edge of the built up area; and • Access to recreational areas, especially for deprived communities.

10.0 Future Transport Challenges

10.01 The above sections of this topic paper have outlined the current transport and accessibility context within the Borough and identified the main transport issues and problems currently impacting upon the Borough. The key points which the LDF will need to consider include:-

• Tameside has an extensive highway network with good links to the national Motorway network and a well connected public transport system; • 44 % of residents commute out of the Borough for work, 42% of these commuters travel to the regional centre and 32% commute to neighbouring Local Authorities; • Car ownership levels within Tameside are lower than the national average, with only 67% of households having access to at least one car (2001 Census). Despite this, cars play a significant role in the movement of people across the Borough, with cars accounting for 78% of traffic on Motorways and A Roads, 82% on B Roads and 87% on Minor Roads in 2010. • However, this high level of car usage disguises the fact that 33% of households have no access to a car (2001 Census), and are therefore dependent upon other modes including public transport. The LDF will need to ensure that there is equal access to housing, employment and Services for all groups in the community through an integrated public transport network and through locating and delivering services so that they can be accessed by people using non – car modes; • The car is the dominant mode to transport for commuting to/from work, with 68% of commuters travelling out of Tameside using the car, compared with 16% using buses and 2% walking. By comparison, for commuters travelling within Tameside these values are 47%, 10% and 17% respectively. The LDF will need to consider how it can contribute to making alternative modes to the car more attractive and reliable, particularly for shorter distance journeys; • The car is not the dominant mode of transport to school, for both primary and secondary schools walking is the dominant mode, and within Tameside the percentage travelling to school by car is lower than the Greater Manchester average. The LDF will need to protect and enhance safe and convenient pedestrian routes, including Safer Routes to Schools; • High levels of carbon dioxide and nitrogen oxide within the Borough are generated by road transport. The LDF will need to ensure that new development is accommodated in locations which reduce reliance on the car and encourage more sustainable transport choices that reduce traffic growth, reduce congestion and improve air quality. It is recognised that the areas of poor air quality correspond to the Boroughs main transport corridors. Where development is proposed in these areas, the LDF will need to ensure that Low Emission Strategies and/or mitigation measures are required; • There is a need to ensure joint working with the Highways Agency and TfGM to ensure LDF issues related to transport are adequately researched, assessed and mitigated.

11.00 Key Issues

11.01 The key issues to emerge from this topic paper are:-

Traffic Issues

11.02 Congestion: The earlier sections of this Transport and Infrastructure Topic Paper have identified those sections of the highway network within Tameside that have pre-existing congestion and other transport problems. These include:-

• The key radial routes linking Tameside to the Regional Centre; • The route linking the M67 at Mottram to Glossop; • Minor roads providing access to/from residential areas to the town centres within Tameside; • The routes linking the town centres within Tameside; • Routes providing access to the Motorway network; and • Routes linking Tameside to other surrounding Districts.

11.03 The average traffic speeds on Tameside’s existing highway network are already slower than the Greater Manchester average. Future residential, retail and employment development within Tameside is likely to increase the existing congestion problems unless mitigation measures, such as improvements to public transport are undertaken

11.04 Protocol for joint working on planning issues between AGMA Authorities and the Highways Agency: A Protocol has been agreed between the Highways Agency, TfGM and the 10 GM Local Highway Authorities setting out the joint working arrangements and shared approach to defining and addressing the transport impacts on the strategic road network of new developments across Greater Manchester.

11.05 Road safety The LTP3 targets/standards for casualty reduction relate to the 40% reduction in the total of Killed and Seriously Injured (KSI) suggested in the DfT’s Strategic Framework for Road Safety from the 2005 – 2009 base to 2020. This reduction in the total casualties, will take place against expected increases in traffic flows and congestion resulting from the future developments proposed through the core strategy.

11.06 Proposed residential and employment developments will increase the traffic flows and congestion on the roads, and will impact directly upon those roads and junctions that already have road safety problems. Funding will therefore be required in future years to resolve the existing and potential future accident and traffic management problems.

11.07 Public Transport Tameside has an extensive public transport network which provides good quality links both within the Borough and also to other surrounding Districts and the Regional Centre. However, the extent and frequency of this public transport network varies by time of day and day of the week. The GMLTP3 envisages that the role of public transport will be increased in future years in order to reduce the dependence on the use of private cars.

11.08 Buses are the most important mode of public transport within Tameside. However, although their overall patronage has risen slightly over the period 2000/01 to 2008/09, their patronage has declined slightly over the past two years due to the economic downturn. In

addition, the overall long term trend in bus patronage has shown a significant decrease in bus patronage which has only levelled off since 2000/01.

11.09 The majority of new developments in recent years, including retail, business and residential, have been orientated towards direct access by car rather than by bus. This and the dispersal of many functions, retail, leisure, medical etc to out of town sites has caused the competitiveness of buses to decline. The location of the proposed population increases in the central and eastern parts of the Borough and increases in employment predicted in the west and south of the Borough and in the Regional Centre favour car travel rather than bus travel. This due to the fact that many of the trips required to link the expanding residential developments and employment sites in opposite parts of the Borough may require a change in bus services in Ashton, Stalybridge or Hyde in order to complete the journey.

11.10 To maintain any competitiveness with the car will require further possible bus priority measures, better real time information systems and smart ticketing to allow for almost seamless transfer between services and public transport modes. Some of these improvements will be taken forward through GMLTP3 and other eligible funding streams.

11.11 Rail: Tameside is well served by both local and inter – regional rail services including:-

• North TransPennine Express services linking Manchester Airport, Manchester Piccadilly and Liverpool with Leeds, Hull, York, Scarborough and the North East; • Manchester Victoria to Huddersfield and Liverpool to Stalybridge; • Manchester Piccadilly to Glossop; and • Manchester Piccadilly to Rose Hill Marple.

11.12 In contrast to bus patronage, rail use at the stations within Tameside has increased substantially over the period 2004/05 to 2009/10. The three stations on the Manchester Victoria to Huddersfield line have each shown a relative growth of 43% over this period. The patronage growth on the Manchester Piccadilly to Glossop Line has varied considerably from 19% at Hattersley to 67% at Fairfield with the greatest growth being at the inner stations and the lowest growth at the outer stations. The growth at the two stations on the Hyde Loop is 49% and 69%.

11.13 The rail services within Tameside provide quick and efficient access to the Regional Centre for both commuting and leisure purposes, and this will be improved in future. Easy access to the national rail network can be made in Manchester as well as Leeds.

11.14 As detailed earlier there are significant rail improvements proposed which will affect and improve the future rail services within Tameside:-

• Northern Hub – This is a major improvement programme that will significantly improve the rail services across the north of England, largely through major improvements in the Manchester area. It will lead to significant service changes and improvements on the North Trans – Pennine route between Manchester, Huddersfield and Leeds. • Electrification of the lines between Manchester Piccadilly/Victoria and Liverpool, Manchester to Preston (and onto Blackpool) will take place over the next few years, being completed in 2016. In addition the North Trans – Pennines route between Manchester, Huddersfield and Leeds will also be electrified

• Both Tameside and Stockport Councils wish to see the line linking Stockport to Manchester Victoria, used by a passenger service which stopping within Tameside at Denton station and a possible new station at Droylsden.

11.15 These proposed improvements will help to resolve some of the transport problems resulting from the core strategy population and employment growth. In addition, further improvements will be needed to improve access to stations, station car parks (park and ride), passenger information systems etc.

11.16 Metrolink services will open from Manchester to Droylsden in Summer 2012 and to Ashton during Winter 2013/14. It will provide significant additional public transport capacity on the corridor from Ashton to Manchester via Droylsden and thereby encourage modal shift from private cars to Metrolink.

11.16 Park and Ride: As part of the Metrolink expansion to Ashton, a park and site will be provided at Ashton Moss and Ashton West Metrolink stations. In addition, TfGM have currently unfunded proposals to provide park and ride facilities at Guide Bridge station.

11.17 Development of park and ride sites at both Metrolink and rail stations will help to mitigate the effects of increasing traffic flow and congestion on Tameside’s roads. However, their development may lead to increased traffic flows and congestion upon those roads on access routes to and in the vicinity of these park and ride sites.

11.18 Walking and cycling: GMLTP3 aims to increase the levels of walking and cycling, with a 16% increase in cycling levels to be achieved through an overall increase of 50% in the number of cycle trips for work across Greater Manchester. Within GMLTP3 it is envisaged that for short trips of up to 5km the primary modes of travel should be walk, cycle and bus. GMLTP3 identifies that this aim should be met through a number of measures that have been detailed earlier in the document but which include:-

• Improved walking and cycling routes to key local destinations; • Neighbourhood traffic management (ie speed reduction); • Key routes prioritised for maintenance; • Promotion of health benefits of active travel; • Pedestrian friendly new development; and • Highway measures to improve safety and accessibility for pedestrians and cyclists;

11.19 The overall GMLTP3 strategy also places an emphasis on Active Travel in increasing the numbers of people walking and cycling.

11.20 It is important that new developments, both residential, employment and retail take account of the need to improve access to and from these sites by foot and cycle. In addition the pedestrian and cycle routes between those areas of the Borough which are predicted to experience population growth and those areas where growth in employment is expected to take place should be improved.

11.21 Air Quality and Environmental Issues The GMLTP3 strategy relating to Air Quality is based upon increasing travel made by sustainable modes through a combination of:-

• Improvements to public transport and to infrastructure for walking and cycling; • Better integration of transport and new development; and

• Encouraging smarter travel through improved fares, ticketing and information, management of demand for car travel and promotional campaigns.

11.22 These measures aim to reduce car use and contribute to improved air quality, reduced carbon emissions and protection of biodiversity.

11.23 Design and Layout: The location, type and design of development will all influence the level of use of public transport. The layout of sites, orientation of buildings, attractive, safe and convenient pedestrian environments and pedestrian priority over car users can all contribute to encourage a modal shift away from the private car. The design and layout of development should maximise the potential for public transport use and give non – car modes priority over the car.

11.24 Travel Plans: Travel plans outline a series of practical measures and initiatives to manage the travel needs of all users to and from a development. They identify clear aims and targets which promote and encourage a range of sustainable travel modes related to the needs and geography of the site and users. Successful travel plans can improve the health and safety, reduce the environmental impacts of transport and congestion and increase travel choices for non – car users. Travel plans have addressed peak hour commuter journeys but their use is now more widespread to help mitigate the impacts of industrial, office, hospital, residential and school developments upon the local communities.

11.25 National guidance on travel plans is included in “Guidance on Transport Assessment (GTA) (2007)” issued jointly by DCLG and DfT. It is intended to assist in determining whether a travel plan is required and what the level and scope of the plan should be.

Travel plans need to continue to be submitted for those developments that are likely to have significant transport issues.

11.26 Parking: Whilst encouraging people to car share, use public transport, cycle or walk is important in reversing the trend of traffic growth, other more direct means can be used to reduce car use. The availability of a parking space at the end of a journey is one of the major influences on peoples decisions to use a car. Reducing car parking at a destination can encourage people to make sustainable travel choices and reduce the environmental impact of traffic.

11.27 However, lower parking standards can lead to increased parking on – street and can affect the viability of town centres when insufficient parking is provided when compared with competing facilities. It is important that changes in parking provision do not undermine the economic viability of town centres, therefore, parking control needs to be considered as part of a wider package of measures incorporating attractive alternatives to the car.

11.30 The LDF has an important role in setting the policy framework for car parking, determining appropriate standards of provision and controlling the amount and location of car parking in new developments.

12.00 Part 2 - Utilities and Social Infrastructure

12.01 Planning of all types of infrastructure is critical for successful sustainable development. The existence of suitable public utility services-land drainage, water services, gas, electricity and telecommunications is vital to any future development, and particularly to its phasing.

12.02 The development of a more sustainable borough critically depends on a style of infrastructure provision that encourages more efficient patterns of resource consumption. Therefore it is necessary to look at the development of sustainable infrastructure, together with the planning of development, to establish where the ‘gaps’ in infrastructure are in relation to the available land in Tameside.

12.03 It is necessary to establish working relationship between utilities companies and Tameside Council to co-ordinate planning of utilities and development sites.

Policy Guidance

12.04 There is no direct guidance document in terms of utilities infrastructure from central government apart from PPG8 Telecommunications. However there is reference in a number of the key Planning Policy Statements/ Planning Policy Guidance Notes.

Planning and Compulsory Purchase Act 2004 12.05 The Act requires Local Authorities to have regard to the resources likely to be available for implementing the proposal in local development documents. ‘Local Development Documents will not give effective direction unless based on realistic assumptions about the resources likely to be available.’

Planning Policy Statement 1 - Delivering Sustainable Development (February 2005) 12.06 The Government is committed to promoting a strong, stable, and productive economy that aims to bring jobs and prosperity for all. Planning authorities should ensure that infrastructure and services are provided to support new and existing economic development and housing.

Planning Policy Statement 7- Sustainable Development in Rural Areas (August 2004) 12.07 In accordance with PPS7 high priority should be given to the need to safeguard areas of particular environmental importance. The impacts of new apparatus may be greater where it is proposed to be located in or adjacent to sensitive environments, such as Green Belts, areas of outstanding natural beauty, conservation areas, Sites of Special Scientific Interest (SSSIs), nature reserves, ancient monuments and listed buildings.

Planning Policy Statement 12- Local Development Frameworks (September 2004) 12.08 PPS12 requires local authorities to develop a strategic approach to infrastructure provision, stressing the need for communication between the LA and the utility bodies. The key points of PPS12 are:

• To be aware of the capacity of existing infrastructure and the possible need for additional facilities when preparing local development documents • The Core Strategy should look forward in terms of infrastructure. Thereby, associated utility bodies can then ‘plan on the basis of a clear picture of the future shape of the community’

• It is necessary to consider the wider environmental effect of increased demand, in terms of both the additional need for basic resources and of the associated emissions to air, soil or water. The effects may extend beyond the city boundary • It is essential that consultation occurs with water companies and the Environment Agency at an early stage in the preparation of a Core Strategy. • The adequacy of existing infrastructure may well influence the timing of development. Provision of completely new infrastructure in some cases might take several years from identification of need to commissioning.

Planning Policy Statement 23-Planning and Pollution Control (November 2004) 12.09 Annex 1 recommends that developers be encouraged to incorporate sustainable urban drainage (SUDs) to absorb run-off or store water for reuse or for slow release.

Planning Policy Guidance Note 8-Telecommunications (May 2001) 12.10 The telecommunications sector is developing rapidly, with the availability and use of modern telecommunications systems constantly increasing. This allows more people to work at home and provides greater choice in education, entertainment, shopping and financial services, all of which can reduce the need to travel.

12.11 The benefits of new and more extensive telecommunications systems must be balanced against the potential impact of apparatus on local environments. The erection of new masts, antennas and base stations, which by virtue of their location, size, appearance or number, can be visually intrusive.

Telecommunication operators submit annual rollout plans for each authority.

13.00 Utilities

Gas 13.01 Discussions with the National Grid during research for the Tameside Infrastructure study indicated that there are no present constraints in the gas distribution network in Tameside. In addition none of the proposed network improvements noted in the National Grid Gas Long Term Development Plan 2010 are in Tameside or will directly affect the Tameside area.

Electricity 13.02 The National Grid Long Term Development Statement identifies no planned strategic network improvements that would affect the Tameside area.

13.03 Throughout Tameside there is a network of some fourteen 33 Kilowatt (kV) substations with capacities ranging between 0.5 Million Volt-Amps (MVA) and 11 MVA supplying the different areas of the borough. There are then three Bulk Supply Points (BSP) which provide electrical supply to the 33 kV substations. The BSPs are located in Droylsden, Heyrod and Hyde. These are noted as having approximately 34 MVA, 40 MVA and 15 MVA available respectively.

13.04 The Heyrod BSP has had interim reinforcement works undertaken to overcome a problem caused by the amount of connected generation and electricity fed back into the grid. Connection of significantly sized generation to the 33 kV substations supplied by the

Heyrod BSP may require replacement of the existing switchgear. If significant generation is planned then a study would be undertaken to determine the need for any replacements. The cost for this upgrade would require a contribution by the developer based on the proportion of the new capacity used and created. The problem is due to fault levels as different forms of generation would have different impacts on this issue. Electricity generation causing lesser fault levels such as Photovoltaics (PV) and some wind generation would cause less impact than generation such as Combined Heat and Power (CHP) or Hydropower.

Water Supply and Waste Water 13.05 There is no shortfall in clean water supplies in the Tameside area and further across United Utilities’ (UU) distribution area. North Tameside is supplied by Buckton Castle water treatment works (WTW) while south Tameside is supplied by Godley WTW with support from the Manchester Ring Main. There is one area of known potential constraint in the clean water distribution network in the Pennine fringe of the borough where UU's network borders the Peak District National Park. This will depend on the amount of development, but given the remote location and planning policy restrictions covering the area any development potential is likely to be extremely limited.

13.06 At present there are no capacity issues at any wastewater treatment works in the area. There are however a number of known capacity issues in the sewer network within Tameside. Due to customer privacy UU are not able to provide specific location information for these capacity issues but they tend to be located in specific postcode areas and may either relate to the strategic sewer network or local sewers.

13.07 Surface water from new development should be managed in line with best practice and current legislation. This generally ensures that discharge into the public sewer network is a last option. On previously developed land, UU will require a surface water flow reduction to sewer of at least 30% of the total discharge. Increase in surface water discharge from existing sites should be minimised through the discouraging of conversion of permeable areas to impermeable areas, such as the paving of gardens. Further in depth information and discussion on surface water management is available in Topic Paper 7 - Development and Flood Risk.

Waste Treatment and Disposal 13.08 A Joint Waste Development Plan Document for Greater Manchester will be adopted by Tameside in April 2012. This document sets out the strategy for waste management and forecasts predicted waste arising and the potential land and facilities needed to manage it. A variety of waste facilities are required to reduce the amount of waste being sent to landfill in order to comply with the EU landfill directive. The strategy sets out that between 2012 and 2017 a total of 5.2 million tonnes of energy recovery capacity will be required in order to reduce the levels of waste being sent to landfill. As part of the strategy a site at Shepley Industrial Estate in Audenshaw has been allocated as being potentially suitable for one of the following waste treatment uses; Material Recovery Facility, Mechanical Heat Treatment, Mechanical Biological Treatment, Anaerobic Digestion or In-Vessel Composting.

Telecoms and Broadband 13.09 The Greater Manchester family of Local Authorities are currently working on a number of proposals for the installation of a fibre optic backbone connection to provide ultra fast

broadband connectivity across the conurbation. Tameside are fully engaged in this project and have already identified assets and funding that can be used to support this work.

13.10 Separate to the fibre connections, the provision of broadband to homes and businesses is generally provided via two separate infrastructure networks: BT and Virgin Media (some businesses may have dedicated fibre links installed where high capacity is essential which operate over separate infrastructure). Since BT and Virgin utilise separate networks, areas may have coverage from either one of them or both. There are seven BT exchanges in the Tameside area. BT is rolling out fibre to the cabinet (FTTC) and fibre to the premises (FTTP) over the next two years. FTTC involves running fibre optic cables from the telephone exchange or distribution point to the street cabinets which then connect to a standard phone line to provide broadband where as FTTH provides and end-to-end fibre optic connection the full distance from the exchange to the building and can deliver faster speeds than FTTC. Virgin Media is available in some locations in Tameside including Ashton, Droylsden, Denton and Hyde.

14.00 Social Infrastructure

Education 14.01 Tameside has been very successful in obtaining funding in recent years to improve education infrastructure. Over the last five years £300 million has been spent on improvements, new buildings and delivering new primary and secondary schools, with additional funding for 17 Sure Start centres. However, as a result of austerity measures there will be a significant reduction in government funding programmes in the future.

14.02 The draft Infrastructure Study identified no current significant constraints in education infrastructure. However, a recent increase in the birth rate may put pressure on school places, subject to the ongoing Government review of primary and secondary school class sizes. Until the results of the Government review are known, it is not possible to assess whether there are likely to be future capacity issues in primary or secondary schools in Tameside.

Primary Schools 14.03 Tameside has 79 primary schools serving local communities across the borough. Generally residents expect to be within walking distance of their local primary school, therefore pedestrian access is very important. As a result the schools tend to be to be found in accessible locations close to residential areas.

Secondary Schools 14.04 In 2006 Tameside reduced the number of secondary school places based on population projections and past birth rates. However, following the re-organisation of schools (including a number of mergers) the birth rate has since picked up and more secondary school places are likely to be needed from 2016 onwards. Therefore in areas where the second round BSF programmes were not successful there could potentially be a capacity issue of secondary school places after 2016, especially if this is compounded by significant increases in new housing development within the school catchment areas.

Further Education 14.05 Tameside offers a range of opportunities for post 16 education including institutions such as Tameside College (with campuses in both Ashton and Hyde) as well as Ashton Sixth Form College. Many of the secondary schools and recently established Academies offer sixth form education and as a result there is generally an oversupply of sixth form places across the borough. In addition to this Tameside is a net exporter of post 16 education with many students travelling to colleges in Stockport and Manchester.

Health 14.06 There is a good provision of primary care in Tameside with a wide range of GP's surgeries across the borough as well as Tameside General Hospital located in Ashton. Where issues and constraints in provision have occurred in the past new GP practices have been delivered, like for example in Droylsden and Stalybridge.

14.07 It is likely that the services offered at Tameside General Hospital will be reconfigured as part of a Greater Manchester wide Sustainable Hospital Review. This is due to the wider National Health Service (NHS) undergoing a significant period of change. It is anticipated that in the future hospital services in the region are likely to be managed at a Greater Manchester level. A potential outcome will be a restructuring of patient service provision at some hospitals so that each hospital specialises in certain care services rather than the current arrangement where by every individual hospital provides all services to patients. This may also result in some access and parking issues at Tameside Hospital if in the future people have to travel from further away due to the increased specialisation of services. In addition there will be a focus on care in the community and home care to reduce the pressure on hospital places.

14.08 For further information and in depth discussion on Health issues in Tameside please refer to Topic Paper 5 - Health and Inequalities.

Culture 14.09 A wide range of services such as libraries, parks and leisure centres are provided in Tameside. The Borough's cultural facilities include nine libraries, a museum, a tourist information centre, a variety of architecturally important listed building and play areas and parks. It also provides other cultural services including arts and leisure development and outreach work, tourism services and heritage and conservation work. There is likely to be a requirement to provide additional facilities over the Core Strategy plan period to cater for growth.

14.10 It has been demonstrated that culture contributes significantly to the lives of those in Tameside and it is recognised that the true benefits of culture in our communities need to be realised. Some of Tameside's key cultural facilities are explored in the sections below, but further information and discussion on the issues surrounding social infrastructure can be found in Topic Paper 9 - Green Infrastructure, Open Space, Sport, Recreation and Biodiversity.

Libraries 14.11 Libraries in Tameside are one of the key providers of informal lifelong learning opportunities, allowing people of all ages to achieve their full potential. Public libraries are an integral part of our civic heritage, contributing to the fabric of our towns and cities and

providing a gateway to free sources of information for those interested in cultural pursuits. Tameside’s Library Service is delivered through 13 static service points and 2 Home Library Service vehicles. Government austerity measures and funding cuts could potentially make delivery of some library services more challenging in the future.

Museums and Galleries 14.12 Tameside has three Museums; Portland Basin Museum, the Museum of the Manchester Regiment and the Setantii – Tales of Tameside. The borough also has three Art Galleries; Central Art Gallery, Astley Cheetham Art Gallery and the Rutherford Gallery. Their remit is to collect, preserve and exhibit objects for all sections of the community. The Museum Service has worked hard to make the public collections and exhibits accessible to as many visitors as possible, providing educational materials, talks, workshops and reminiscence sessions.

The museums have a focus on community involvement and attract nearly 200,000 visits each year, more than half of these being repeat visitors. The museums also offer free visits for over 10,000 school children each year.

Sports, Leisure and Outdoor Recreation 14.13 No part of the built up area of the Borough is more than 1.5 kilometres from accessible countryside. With over 126 miles of paths, providing everyday contact with landscape and nature. The surrounding countryside forms a valuable asset which is important for the health, wellbeing and quality of life of Tameside's communities. Visitor Centres at Park Bridge, Lymefield in Broadbottom, Werneth Low Country Park and Stalybridge Country Park attract 20,000 people each year and as well as being an important link with their local communities, provide a focal point for visitors requiring information about the countryside.

14.14 A number of sites in Tameside have been designated for their nature conservation interest. Three sites have been given national statutory protection as Sites of Special Scientific Interest (SSSIs). Over 50 sites have also been designated as Sites of Biological Importance (SBIs) by the Greater Manchester Ecology Unit, in partnership with the Council. There are also eight Local Nature Reserves (LNRs) in the Borough, which were designated between 2004 and 2011.

14.15 Tameside’s urban parks provide easy access to places to exercise, play or to get together with others. The borough has invested in both country and urban parks which has included a multi-million pound refurbishment of Hyde Park in conjunction with the Heritage Lottery. This was followed up with further Heritage Lottery funding to refurbish Stamford Park. Most parks have facilities for all ages, including play areas, multi-use games areas and bowling greens.

15.00 Cross cutting themes

15.01 The key transport and infrastructure issues have primary linkages to the other topic areas including:

• Housing - ensuring that transport infrastructure and social infrastructure provision is supportive of housing needs and demands providing the roads, public transport,

community and health facilities to support the borough's sustainable healthy communities.

• The Economy and Employment Land - providing an accessible and reliable transport networks to support business, industry and other key employers with the movement of commodities and workforce.

• Health and Inequalities - ensure that new development is sustainably located offering access to local services and facilities and ensuring that development is accessible by public transport, with appropriate walking and cycling routes to encourage active travel

• Development and Flood Risk - dealing effectively with surface water run-off and implementing surface water management plans compliant with the Flood and Water Management Act 2010 to reduce the risk and impact of potential incidences of flooding.

• Climate Change and Decentralised Energy - sustainable transport and the development of appropriate infrastructure to support the creation of decentralised energy will be vital to achieving carbon reduction measures.

• Green Infrastructure, Open Space, Sport, recreation and Biodiversity - providing access to facilities that enable formal and informal sport and recreation promoting and supporting alternative opportunities for healthy lifestyles.

Local Development Framework – Core Strategy Issues and Options Discussion Paper

Topic Paper 3 – The Economy and Employment Land

1.00 Background and Introduction

Policy and Guidance Documents:

• Planning Policy Statement 1 – Delivering Sustainable Development • Planning Policy Statement 3 – Housing • Planning Policy Statement 4 – Planning for Sustainable Economic Growth • Draft National Planning Policy Framework • UK Sustainable Development Strategy – Securing the Future, 2005 • Local Growth: Realising Every Place’s Potential • The Plan for Growth, HM Treasury, 2011 • Planning for Growth, March 2011 • North West of England Plan – Regional Spatial Strategy to 2021, Nov 2008 • Manchester Independent Economic Review • Prosperity for all: The Greater Manchester Strategy • Greater Manchester Employment Land Position Statement, NLP, 2009 • Greater Manchester Local Economic Assessment: Tameside, March 2011 • Tameside Annual Monitoring Report 2009/2010 • Tameside Unitary Development Plan 2004 • Tameside Employment Land Supplementary Planning Document, 2009 • Tameside Employment Land Study – Property Market Overview/Sectoral Assessment, CBRE, Jan 2010 • Tameside Sustainable Community Strategy 2009 – 2019 • Tameside Sustainability Appraisal Scoping Report, ENTEC, 2010 • Tameside Economic Strategy Baseline, 2011 • Enterprising Tameside, A New Economic Strategy for Tameside 2026 – October 2011 • Tameside Employment Land Review (Draft)

1.01 The purpose of this topic paper is to provide analysis and summary of the evidence relating to the economy and employment land for Tameside’s Core Strategy. It forms a supplementary paper to Tameside’s Issues and Options Report and identifies current issues and challenges that will influence the future direction of planning policy on the Borough.

1.02 The paper draws on a range of information sources including economic baseline documents, the draft Tameside Economic Strategy and the CB Richard Ellis Employment Land Study (2010) in order to establish the Council’s approach towards policy in the Local Development Framework.

1.03 Further work is programmed that will inform policy development including a Strategic Review of employment sites as part of an overall Employment Land Review.

1.04 The paper itself is split into five sections:

1. Policy Context – An outline of relevant policy at a national, regional and local level which sets out the current planning policy framework; 2. Spatial Economic Context – Tameside in the Manchester City Region; 3. Local Economic Profile – Baseline information on the economy and the employment land supply setting out the economic context for the Borough in addition to describing the local economic profile; 4. Employment Land – The supply and demand for employment land is a critical part of developing the economy of Tameside. This section looks at existing supply and potential issues surrounding the declining supply of employment sites in the Borough; and 5. Identification of the key issues, challenges and potential options for the future shaping of the Core Strategy.

2.00 Policy Context

National Policy

Securing the Future – the UK Sustainable Development Strategy

2.01 The UK Sustainable Development Strategy (2005) identifies five guiding principles for sustainable development, including the achievement of a sustainable economy. Planning is identified as central to delivering sustainable development with a strong emphasis on community engagement.

Planning Policy Statement 1 – Delivering Sustainable Development

2.02 Planning Policy Statement 1 sets out the Government’s overarching approach to planning policy relating to the delivery of sustainable development. The document sets out the key policies and principles that should underpin the planning system. These can be summarised under six headings:

• Sustainable development; • Climate change; • The spatial planning approach; • High quality design and buildings for life; • Accessibility; and • Community involvement.

2.03 Moving on from the central theme of delivering sustainable development the policy states its commitment to ‘promoting a strong, stable, and productive economy’ with an overall aim of bringing jobs and prosperity to all. Ten points cover the range of policy areas that planning authorities should cover in relation to promoting sustainable economic growth1, including:

• Recognising that economic development can deliver environmental and social benefits;

1 PPS1 – Delivering Sustainable Growth, Paragraph 23

• Making sure that there are suitable locations for economic/employment development; • Promoting and facilitating good quality and sustainable development; and • Making sure that infrastructure and services are in place to support existing or future economic development and housing.

2.04 In summary Planning Policy Statement 1 underpins the planning systems approach – that good planning contributes to place shaping and delivering sustainable development.

Planning Policy Statement 3 – Housing

2.05 Planning Policy Statement 3 continues to focus housing development on previously developed sites. As part of this objective it specifies that local planning authorities should consider options for accommodating new housing growth involving:

• The re-use of vacant and derelict sites or commercial and industrial sites as part of town centre mixed-use developments; and • That consideration should be given as to whether sites currently allocated for industrial or commercial use could be more appropriately re-allocated for housing.

Planning Policy Statement 4 – Planning for Sustainable Economic Growth

2.06 This policy statement sets out the national planning policies for economic development and identifies this category as including development ‘within the B Use Classes, public and community uses and main town centre uses2’. The definition goes on to include other development that fulfils one of the following objectives:

• Provides employment opportunities; • Generates wealth; or • Produces or generates an economic output.

2.07 It is important to recognise that Planning Policy Statement 4 (PPS4) specifically excludes housing development as this is covered by Planning Policy Statement 3 – Housing. Planning Policy Statement 4 does have much broader remit than the guidance it supersedes and it gives a revised definition to what is included in economic development, including development within the B Use Classes3, public and community uses and main town centre uses

2.08 The overarching objective of PPS4 is sustainable economic growth and to deliver this the Government identified five objectives:

• Buildings prosperous communities; • Cutting the economic performance gap between regions; • Delivering more sustainable patterns of development; • Promoting town centre viability and vitality; and • Raising the quality of life in rural areas.

2 Use Classes refers to the way different types of development are categorised under the Town and Country Planning (Use Classes) Order 1987 and its subsequent amendments. 3 The B Use Classes constitute the bulk of traditional employment uses: B1 – Business, B2 – General Industry and B8 – Storage or Distribution.

2.09 In addition to overall policy context the PPS4 provides guidance on the using evidence base to plan positively. To broadly summarise the approach is one of collaboration and at a local level producing an evidence base that should:

• Assess the detailed need for land or floorspace for economic development, including for all main town centre uses over the plan period; and • Assess the existing and future supply of land for economic development – this should, if possible, be conducted alongside or combined with the strategic housing land availability assessment.

2.10 In summary this means providing a robust and up to date evidence base.

Draft National Planning Policy Framework

2.11 The draft National Planning Policy Framework (NPPF) aims to reduce the existing national planning policy statements and guidance down to a streamlined document of approximately 60 pages. The key thrust of the draft NPPF is to promote sustainable economic growth.

2.12 The draft NPPF sets out how the planning system will deliver sustainable development by planning for prosperity, people and place. The key to the Framework is pursuing these three components in an integrated way in order to deliver multiple goals.

2.13 A core principle of the Framework is the production of local plans which set out a long-term vision for an area. For Tameside this means replacing the Unitary Development Plan with an up-to-date Core Strategy containing flexible policies that don’t act as a barrier to growth.

2.14 Ten core land-use planning principles underpin plan making and decision taking. In summary these are:

• A genuinely plan-led approach; • Proactive drive and support for development; • Taking into account local circumstances; • Considering existing or potential environmental quality of land; • Protecting and enhancing environmental and heritage assets and reducing pollution; • Making effective use of land; • Encouraging reuse of existing resources; • Actively manage patterns of growth to make fullest use of public transport, walking and cycling; • Take account and support local strategies to improve health and wellbeing; and • Ensure a good standard of amenity for current and future generations.

2.15 In terms of plan making the NPPF looks at this in some detail in paragraphs 20 to 52. Local plans should be in conformity with the objectives, principles and policies set out in the NPPF. The strategic priorities that should be delivered in the area are as follows:

• Housing and economic development requirements; • The provision of retail, leisure and other commercial development; • The provision of infrastructure for transport, minerals, waste, energy, telecoms, water supply and water quality; • The provision of health, security, community infrastructure and other local facilities; and

• Climate change mitigation and adaptation, protection and enhancement of the natural and historic environment, including landscape, and where relevant coastal management.

2.16 There are a number of additional considerations that emerge from the draft NPPF and the Localism Act 20114: the requirement for a relevant and proportionate evidence base; ensuring deliverability of development proposed through the local plan; supporting and incentivising new development through the Community Infrastructure Levy5; and introducing a duty to cooperate on planning issues that cross administrative boundaries.

2.17 Overall the key message emerging from the draft NPPF is that there should be a presumption in favour of sustainable development and that the default answer to any development proposal should be yes. In simplified terms the draft NPPF suggest that where development is proposed it should be granted permission unless the impact, for example, on an important habitat or historic area, is of such significance that it is deemed to be unacceptable.

Regional Context and Policy

North West Regional Economic Strategy

2.18 The most recent version of the strategy was published in 2006 as part of the North West Regional Development Agency’s 20 year rolling strategy to shape the future economic direction of the North West. Sustainable development is the central concept of the Regional Economic Strategy.

2.19 The strategy sets out an economic vision for the Region:

“A dynamic, sustainable international economy, which competes on the basis of knowledge, advanced technology and an excellent quality of life for all where:

• Productivity and enterprise levels are high, driven by innovation, leadership excellence and high skills; and carbon emissions are low; • Manchester and Liverpool are vibrant European Cities, and, with Preston, key drivers of city regional growth; • Growth opportunities around Crewe, Chester, Warrington, Lancaster and Carlisle are fully developed; • Key growth assets are fully utilised, (priority sectors, the high education and science base, port/airports, strategic regional sites, the natural environment especially the Lake District, and the rural economy); • The economies of East Lancashire, Blackpool, Barrow and West Cumbria are regenerated; and • Employment rates are high and concentrations of low employment are eliminated.”

Manchester Independent Economic Review

4 The Localism Act 2011 – Gained Royal Assent 15 November 2011 and includes key measure relating to planning. 5 Community Infrastructure Levy - Allows local authorities to choose to charge a levy on new development in their area in order to raise funds to meet the associated demands placed on the area and to enable growth.

2.20 The Manchester Independent Economic Review (MIER) was published as a series of documents in 2009. This provided a radical new look at the Greater Manchester economy to generate debate on the economic future of the Manchester City Region.

2.21 In essence the MIER attempted to determine why the Greater Manchester economy ‘punched below its weight’, especially when compared to the dominant economies of London and the South East.

2.22 The following summarises the key findings identified by the MIER and highlights the potential for much greater economic success across the city region:

• There is potential for improving productivity and increasing growth; • Manchester firms have significantly higher productivity than other areas of the North; • Manchester is punching below its weight; • Agglomeration economies exist arising from a large, diverse urban region (clustering shows no benefits but the large and diverse attributes of an urban environment generates the economic benefits of agglomeration); • Productivity differences that are largely explained by the extent of agglomeration economies, skills and access to transport; • The importance of skills – Manchester does well in comparison to the North but not compared to the Southeast; • Inadequate internal transport networks – improvements would bring the largest economic payoff; • Housing is a significant cost of increasing agglomeration – put simply there are not enough houses in the places people want to live; • No rationale for redistributing economic activity from the south to the north; • There are increasingly polarised neighbourhood outcomes; and • Deprivation arises at the individual level, not neighbourhoods. This is linked to the determination of life chances at the pre-school and primary schools stage

2.23 Building on the key findings the report also identified five main areas in need of attention in order to make the economy more successful:

• Skills – must be improved and is the single most important influence on increasing productivity and competitiveness; • Housing – two key issues – improving the housing offer to attract skilled labour and tackling housing issues in deprived areas; • Transport – crucial element – most focus required on improving transport within the travel-to-work areas of the city-region; • Planning – Identified as potential hindrance to the expansion of high value business; • Governance – good governance is needed with a strong sense of collaboration in order to take difficult decisions.

2.24 The focus of the recommendations emerging from the MIER was that the productivity needs boosting in order to ensure growth but that all of the city region and its people would enjoy improved opportunities as a result of Greater Manchester having a stronger economy.

Prosperity For All: The Greater Manchester Strategy

2.25 The Greater Manchester Strategy (GMS) was written in direct response to the MIER and published in August 2009. The document sets out a vision for the Manchester City Region to be achieved by 2020. The GMS recognises that the city-region has the appropriate scale and density to achieve growth by tackling the main reason for its underperformance – low productivity.

2.26 The GMS clearly recognises the scale of the challenge but also the opportunities. Structural changes to the global economy mean that the city-region has to develop the opportunities that are emerging in the likes of Brazil, India and China. The GMS proposes an approach that will ‘create a virtuous circle of long-term sustainable growth’, but that this growth must be based on the principles of sustainable development and social equality. Furthermore, it is crucial that reductions in carbon emissions are achieved, critical infrastructure is in place and that poor health and a lack of skills are addressed.

2.27 The GMS is based around a series of eleven priorities aimed at delivering sustainable development, improved quality of life and prosperity for all:

• Early Years • Better Life Chances • The Highly Skilled • Attracting Talent • Transport • Economic Base • International Connectivity • A Low Carbon Economy • The Housing Market • Effective Governance • Sense of Place

2.28 In summary this means a whole range of strategic objectives including: improving the provision of early years intervention, tackling health and skills inequalities, increasing the number of highly skilled in the city-region, improving transport connectivity, diversifying the economic base and ensuring there is a high quality housing offer.

Greater Manchester Employment Land Position Statement, NLP, August 2009

2.29 In August 2009, Nathanial Lichfield and Partners (NLP) completed a Position Statement on behalf of the Association of Greater Manchester Authorities that primarily examined the sub-regional employment land requirements set out in the Regional Spatial Strategy Policy W3. In doing so, NLP examined the derivation of the requirement, assessed current economic trends, such as increases in both development and job densities and analysed the economic aspirations of the GM districts.

2.30 The Position Statement recommends the provision of an amount of employment land at the district level up to 2026. For Tameside the suggested figure is within the range of 94-130 hectares and was derived from the existing potential supply and the lower end of the Regional Spatial Strategy identified need.

3.00 Tameside’s Spatial Economic Context

3.01 Tameside is one of the ten districts that make up the Association of Greater Manchester Authorities (AGMA). AGMA is the voice of the city region and has been a success in collaborative working between authorities since 1986. A further success in demonstrating the collaborative approach was the establishment of the Greater Manchester Combined Authority 1st April 2011.

3.02 Tameside is an important part of the Manchester City Region, the strongest economic centre outside of London and the South East.

3.03 The City Region suffers from significant disparities because of spatial variations in economic performance and social deprivation. A division exists between the economically more successful southern areas of the city region compared to their northern neighbours.

3.04 Situated to the east of the city region Tameside (see Figure 3.1) is challenged by the need to address areas of social and economic deprivation. Part of this problem is rooted in a dependence on declining traditional industries and their legacy coupled with an overreliance on the public sector. This places a great demand on the available resources in order to progress economic transformation, the regeneration of communities and to tackle environmental degradation.

Figure 3.1 – Tameside in the Manchester City Region

3.05 Since 2009 the AGMA Executive Board has established six commissions:

• Environment Commission • Health Commission • Improvement and Efficiency Commission

• Planning and Housing Commission • Public Protection Commission • The Commission for the New Economy

Tameside’s Economic Links

3.06 The borough’s future is linked to that of Greater Manchester, which is identified by the MIER as the largest economic hub outside London and the South East.

3.07 As previously highlighted, the MIER brings a fresh perspective to the debate around the future of the City Region’s economy. The MIER states that the City Region has significant potential for enhancing economic performance, not just in the North West, but across the north of England as a whole. In short, Manchester City Region represents the greatest opportunity for closing the productivity gap between the north and south of England.

3.08 The MIER sets out challenging recommendations that include improving early years development, improving skills, transport, housing, planning and governance.

3.09 Tameside can support the objectives of the MIER by playing a key role in the economic success of the Manchester City Region. This can be achieved through increasing the quality and choice of housing available; planning and investing in new infrastructure; tackling deprivation; promoting sustainable development and the transition to a low carbon economy; and improving early years support and educational attainment.

4.00 Baseline Economic Information

4.01 In addition to the Greater Manchester Local Economic Assessment Tameside Council has recently completed a detailed economic assessment of the current position of the Borough in 2011. This report was the first step towards producing an economic strategy for Tameside and establishes key economic issues and highlights those with a strong positive or negative impact on the local economy.

4.02 The baseline report bring together a large amount of information in one place. The report uses the structure suggested by the Department for Communities and Local Government (DCLG) for the preparation of Local Economic Assessments and this is accompanied by an economic examination at the District Assembly Area (DAA) level.

4.03 The following section overviews the economic baseline as set out in the emerging Economic Strategy.

Tameside’s Economy

4.04 According to the Greater Manchester Forecasting Model Tameside suffered worse than Greater Manchester during the recession and is experiencing a much slower recovery (Figure 2). Forecasts of the economic recovery in Tameside predict that we will continue to have poor recovery compared to GM unless we make a step-change in our approach to the local and wider GM economy.

RECESSION 115

110

105

100

95 BENCHMARKED EMPLOYMENT BENCHMARKED (2000 = 100)

90 2000 2002 2004 2006 2008 2010 2012 2014 2016 2018 2020

TAMESIDE GREATER MANCHESTER

Figure 2. Recession and recovery in Tameside and GM

4.05 Government data for 20106 estimated that there were around 216,900 people living in Tameside, and of these around 140,300 were of working age (aged 16-64). Of these, 104,300 were employed, or actively looking for work. This is nearly 73.6% of the working age population, and comparable with the figure for Greater Manchester (73.5%). 95,400 people in Tameside were estimated to be in employment, equivalent to 67.2% of the working age population. This was higher than the equivalent figure of 66.9% for Greater Manchester.

4.06 In February 2011 there were 23,200 people in Tameside claiming out of work benefits, made up of 5,990 claiming Job Seekers Allowance, 13,620 claiming Incapacity Benefit / Employment Support Allowance, 2,700 lone parents and 890 claiming other income related benefits. The total figure is equivalent to 16.5% of the local working age population, compared with 15.6% for Greater Manchester. In August 2011 there were 558 job vacancies advertised at Jobcentres in Tameside and 12.1 claimants for every vacancy, compared with 6.9 on average for Greater Manchester.

6 Office for National Statistics, mid-year population estimates 2010

Employment in Tameside and Greater Manchester

Employed or looking for 73.5 work 73.6

66.9 Employed 67.2

Claiming out of work 15.6 GM Tameside benefits 16.5

0.0 20.0 40.0 60.0 80.0

ONS Annual Population Survey, 2010 %

Figure 3: Employment in Tameside and Greater Manchester

Resident wages and skills

4.07 Employment rates in Tameside are similar to those for Greater Manchester but our residents and workers earn less than others in Greater Manchester and this has been a long-standing problem. In 2010, full-time workers in Tameside earned an average of £424.70 per week before tax, which was the lowest rate across Greater Manchester and well below the North West average of £471.20 per week. As a result, deprivation and poverty continue to challenge the wellbeing of our residents and economy: around one in four children in Tameside are thought to be living in poverty.

4.08 The reason for our lower earnings is our lack of high level skills. 17.6% of the working age population in Tameside were qualified to NVQ Level 4 in 2010, compared with 28.1% across Greater Manchester. 40.8% were qualified to NVQ Level 3 or above, compared with 48.7% in Greater Manchester.

Skills levels in Tameside and Greater Manchester

28.1 NVQ Level 4 or above 17.6 48.7 NVQ Level 3 or above 40.8 64.8 NVQ Level 2 or above 60.4 78.5 NVQ Level 1 or above 77.6 8.7 Other qualifications 7.7 GM Tameside 12.8 No qualifications 14.7

0.0 20.0 40.0 60.0 80.0

ONS Annual Population Survey, 2010 %

Figure 4: Skills levels in Tameside and Greater Manchester

4.09 The future economy, both nationally and in Greater Manchester, will rely increasingly on jobs that need a high level of professional knowledge, or technical skill, rather than manual labour. It is imperative that Tameside residents have the right levels of skill to compete for jobs in this economy. We also need to develop higher level skills in order to attract new employers to the borough and enable existing companies to innovate and grow.

Resident jobs

4.10 Tameside’s lower skills levels shape the job prospects of our residents: 41.9% of Greater Manchester residents work as managers, professionals or in technical roles, compared with 33.4% of residents in Tameside. By comparison, Tameside residents are more likely to work as plant and machine operatives (25.1% compared with 20.1%) or as administrators, secretaries and skilled trades people (23.9% compared with 20.1%).

Job Roles of Residents

Managerial, Professional, 41.9 Technical 33.4

Administrative, 20.1 Secretarial, Skilled Trades 23.9

Personal Service, Sales, 17.9 GM Tameside Customer service 17.7

Plant & Machine 20.1 Operatives, Elementary 25.1

0 10 20 30 40 50

ONS Annual Population Survey, 2010 %

Figure 5: Job roles of Tameside residents

Employee jobs

4.11 Tameside has historically been a manufacturing economy, and today employment in manufacturing still accounts for nearly one-fifth of jobs based here (19.3%). But manufacturing employment has been declining over the last decade, and with the use of new technology in the workplace, job losses look set to continue.

Jobs in Tameside

3.7% 5.3% Public administration, education, health 6.3% 27.6% Distribution, hotels, restaurants

Manufacturing 11.0% Finance, IT, Other business activities Construction

Other services 19.3% 26.1% Transport & communications

ONS Annual Business Inquiry 2008 Figure 6: Jobs in Tameside

Jobs in Greater Manchester

Public administration, education, 26.6% 23.0% health Distribution, hotels, restaurants

Manufacturing 4.8% Finance, IT, Other business activities 5.6% Construction

Other services 22.7% 23.0% Transport & communications 10.3% ONS Annual Business Inquiry 2008 Figure 7: Jobs in Greater Manchester

4.12 The decline of Tameside’s traditional major employment sectors is reflected in the number of VAT registered businesses active within the area (i.e. those with an annual turnover of at least £73k). Since the recession the number of VAT registered businesses in Tameside

has declined, reversing the growth of previous years. In 2009 the number of new businesses to be registered for VAT was outnumbered by the number of de-registrations. Number of businesses in Tameside

6,400 6,280 6,300 6,220 6,200 6165 6,075 6,100

6,000 5,915 5,900 5,860 5,800 5,700 5,600 2004 2005 2006 2007 2008 2009

ONS Business Demography

Figure 7: Number of businesses in Tameside

Net business starts / deaths in Tameside 250 200 200 180 140 150 100 75 50 0 -50 2004 2005 2006 2007 2008 2009 -100 -35 -150 -200 -200 -250 ONS Business Demography

Figure 8: Business demography

Tameside as a business location

4.13 As a business location, Tameside has an advantage in terms of its strong and developing transport links to the rest of Greater Manchester, the city centre, the airport, the national motorway and rail networks, and to Merseyside, Leeds and South Yorkshire. The Metrolink extension to Droylsden will open in 2012 and the route to Ashton in 2013/14.

4.14 In 2008 Tameside had 2,626,000 square metres of commercial space. Its use reflected current employment trends within the borough: 55% of our commercial premises were factory space, which is the highest proportion in Greater Manchester, although Wigan and Oldham both had more factory space than Tameside in terms of area in 2008. Warehousing in Tameside increased to 21% of commercial space in 2008, but this was still

the lowest proportion in Greater Manchester. Just 7% of our commercial premises were offices (180 square meters), which was the second lowest in Greater Manchester.

4.15 In 2009 the mean house price in Tameside was £124,629, which was less than the average house price in the North West region (£154,436). Since 2005 there has been an increase in Tameside’s average house price of 8% which is less than the increase in the North West (12%). The number of property sales in 2009 was 1,978 which was a decrease of 42% since 2005. The decline for Tameside was less than that seen across the North West (49%) but greater than that for England (40%).

4.16 Levels of productivity in Tameside are relatively low: GVA (Gross Value Added) figures illustrate that Tameside’s employees do not create as much wealth as others in Greater Manchester. Tameside’s GVA is the third lowest in Greater Manchester.

4.17 Potential employment sites in Tameside are generally smaller than other offers available across Greater Manchester, and because of its manufacturing tradition, some sites need remediation before they are ready for redevelopment. Nevertheless, Tameside currently has around 71 hectares of land available to be developed for employment sites, 28 hectares of which is classed as immediately available. For housing there are approximately 120 hectares of land, which includes sites under construction, awaiting planning permission and other allocations.

Strengths and Weaknesses

4.18 The economic baseline report carried out a traditional SWOT analysis, the following is a brief summary of some of the findings:

Strengths • Proximity to Manchester and linkages to the economy • Transport linkages • Resilient economy • Relatively strong manufacturing sector • An ‘affordable’ Borough especially in relation to housing Weaknesses • Poor skill levels of resident population • Low grade labour market occupation • Residents wages lowest in GM • Small economy relative to resident population • Reliance on public sector employment Opportunities • Less quickly ageing population relative to England • Good skills in remaining manufacturing sector • Economic growth of Manchester provides an opportunity • Cost competitiveness • Energy related engineering sector growth requirements match some sector strengths • Ashton is the centre for the area Threats • Continued decline in manufacturing • Further reduction in job opportunities due to contraction of the public sector and manufacturing employment

• Risk of low skills base in an economy driven by KBIs • Negative impact of quality of built environment • Increased impact of deprived communities in a time of contracting Council budgets

4.19 In addition the Local Economic Assessment carried out by the Commission for the New Economy emphasised a number of key challenges and opportunities faced by the Tameside economy:

• Tameside’s key challenge is its relatively low skills base with low attainment levels at GCSE reinforcing low skills within the adult population; • A reliance on public sector job growth and declining employment in the private sector leaves the Tameside economy particularly vulnerable to cuts in public funding and not in a good position for the private sector to make up for this decline; • Forecasts indicate that Tameside will experience further decreases in private sector employment and will see a much slower recovery than the Greater Manchester average; • Low skill levels of the resident population are mirrored in the low average salaries of Tameside residents; • Housing choice is limited with the market itself dominated by a mixture of terraced and semi-detached properties. This is seen as a barrier to attracting and retaining significant numbers of skilled residents; • There are opportunities for growth around Ashton Moss and in addition Ashton town centre and the office market are opportunities that could drive growth with the appropriate investment and development; • Good transport connectivity is a significant asset and set to improve further with the expansion of Metrolink; and • The location on the edge of the Peak District is a significant asset in terms of quality of environment and offering an attractive residential location.

4.20 The key strengths, weaknesses, opportunities and threats, identified in the above table and in the points from the Local Economic Assessment need consideration as Tameside progresses with developing its Core Strategy. These key attributes of the Borough have been used extensively to help shape the new economic vision for Tameside.

5.00 Employment Land

5.01 The adopted Regional Spatial Strategy did not set out a district level for how much employment land would be required over the plan period (up to 2021). Policy W3 set out the overall requirement for additional land in Greater Manchester over the period 2005 to 2021. The extra allocation of employment land required for Greater Manchester by the Regional Spatial Strategy was set at 536 hectares increasing up to a higher level of 917 hectares if a 20% flexibility factor was incorporated to cater for ‘exceptional circumstances’ such as the expansion requirements of a particular business.

5.02 A study into the distribution of employment land around Greater Manchester was carried out in 2009 by Nathaniel Lichfield and Partners (NLP) and is covered in paragraphs 2.29 – 2.30. This helped to form an overall picture of employment land availability and requirements over the RSS plan period for Greater Manchester.

5.03 The conclusion for Tameside was that 94 to 134 hectares of employment land would be required 2005-2021. The NLP study also recognised a number of key issues:

• The continuing challenges for the economy and employment in the Borough from the Greater Manchester Forecasting Model; • The limited supply of employment land available due to various constraints; • The need for good quality modern employment accommodation; • The pressure on existing and former employment sites for non-employment redevelopment (Christy Towels, Findel Education, Toray Textiles, Roberstons Jam, Burmah Castrol); and • A weak office sector.

5.04 A basic analysis using the figures contained in the NLP study and the latest employment land supply (31st March 2010) would indicate a shortfall of between 23.5 and 63.6 hectares. However, as the 2009/10 Annual Monitoring Report points out - the inclusion of land in the available supply figure does not indicate any intentions of the owner(s) to offer the site for development and therefore some of the sites will not be available on the open market and others will be intended for development by owners and occupiers for their own use”.

5.05 A market and sector assessment was carried out by CB Richard Ellis in 2009. This highlighted a number of further issues including the problem with availability of sites for development:

• The need to re-weight the traditional employment base away from manufacturing industries; • Adoption of new employment strategies to develop better quality accommodation to attract inward investment and employment into Tameside; • The need to grow business size in the Borough as the current focus is on employers of 10 or less; • The need to provide the right size and type of employment premises for smaller employers as they expand to avoid their moving to neighbouring locations; and • The amount of land that is immediately available will always be below the level defined in the employment land supply and this significantly reduces the ability of the Borough to accommodate economic growth.

5.06 More detail will be available following the completion of the Tameside Employment Land Review. This document will set out a picture of the future requirements for employment land over the Core Strategy plan period through analysis of the following:

• Historic Trends Analysis of past take up rates; • DCLG/VOA Commercial and Industrial Floorspace and Rateable Value Statistics; and • Interpretation of the Greater Manchester Forecasting Model (GMFM).

5.07 Although it is generally acknowledged that there should not be an over-reliance on the outcomes of this type of forecasting they will give a useful indication of the future requirement for employment land in the Tameside.

5.08 Following on from this a detailed review of existing employment sites in the borough will be conducted. The aim of this part of the review will be a spatial analysis to compare the available stock with the particular requirements of the area. In addition, the appraisal will also include an assessment of a number of Development Opportunity Area sites allocated

by the Council in the Unitary Development Plan and sites identified through a ‘Site Suggestion’ consultation exercise. Figure 5.1 summarises the process for determining the employment land requirement for the Tameside during the plan period 2013 -2028.

Figure 5.1 The Tameside Employment Land Review Process Overview

5.09 By carrying out a full appraisal it is possible to determine the ‘gaps’ in local employment land provision and set requirements for the identification of new sites. However, as other literature suggests sites such as Ashton Moss do already offer the type of large employment site that is attractive to logistics occupiers looking for highly accessible locations. Building on the success of Ashton Moss should be considered through the Issues and Options phase of developing the Core Strategy. In addition to this other potential strategic locations for employment development should be put forward at an early stage to allow appropriate consideration and debate.

5.10 Together with the finding of the economic review of the Borough, the Employment Land Review will help to inform in more detail the Core Strategy and the Site Allocations Development Plan Document which will follow.

6.00 Key Issues, Challenges and Options

6.01 There are a number of considerations to address relating to the economy and employment land within an ongoing complex and fluid social and economic situation. A particular issue is the changing policy context at a national level these include the introduction of the Localism Act (November 2011) and the draft National Planning Policy Framework (NPPF) which includes a presumption in favour of ‘sustainable development’ where local planning policies are out of date. Recent debate surrounding the draft NPPF would suggests that some form of transitional arrangements will be included to give local planning authorities time to adopt an up to date Core Strategy.

6.02 Therefore, at a Borough level it is imperative that a Core Strategy is introduced to enable planning decisions to be made in a local context.

6.03 At a local level the issues relating to deprivation are detailed and complex. However, in line with the findings of the MIER and the economic assessments the key to improving the economic development potential of the Borough and tackling social deprivation is addressing the existing skills gap of residents.

6.04 Housing is a further key issue and one that is clearly defined in the MIER and the Local Economic Assessment. Tameside has a relatively good level of affordability but it lacks in terms of choice and quality. Some areas are dominated by terraced and semi-detached housing which is not suitable if the Borough wants to keep and attract people with higher wages and skills levels. Evidence to support this comes from the ONS Annual Population Survey (2010) and clearly shows that Tameside has the lowest proportion of managers, senior officials and professional staff of any of the Greater Manchester authority areas.

6.05 In terms of employment land and premises the key issues are:

• A shortage of suitable good quality sites for future development; • Threats to existing employment land from housing and retail development; • A lack of grow-on space for indigenous companies; and • A small and relatively poor quality office market.

6.06 There are many positives, however, that will enable the Borough to address these issues and build economic resilience:

• The excellent transport connectivity by road, rail and in the near future, Metrolink; • The location of the borough on the edge of the Peak District; • The potential for continued employment growth at Ashton Moss; • The opportunity to develop an improved office quarter at St Petersfield; and • The opportunity for employment development and economic growth presented by Ashton town centre.

6.07 The potential strategic options for employment land can be summarised as follows:

1. Identify the best quality existing employment land and safeguard it for future employment development; 2. Identify the poor quality employment sites/areas in the borough that are suitable for non-employment or mixed-use redevelopment; and 3. Identify additional sites/areas that should be allocated to fulfil the employment land requirements over the Core Strategy plan period to 2028 – This could

include existing UDP Development Opportunity Areas that remain unrealised, the remaining land at Ashton Moss and potential new locations at Ashton Moss, land beyond Denton Hall Farm Road and land north of Hyde Road (Mottram-in- Longdendale).

6.08 The critical issue to address in the Borough is the constrained nature of the supply. This is a combination of the tightly drawn Green Belt boundary, the small nature of many of the existing sites available, the pressure for non-employment development on existing industrial sites and viability issues relating to the redevelopment of brownfield sites for employment in the short to medium term.

6.09 It is important to remember that at this early stage in the Core Strategy process that no final policy options or site allocations have been determined and that the Issues and Options stage represents a key stage in discussing the future direction of economic and employment land policy in Tameside.

Local Development Framework – Core Strategy Issues and Options Discussion Paper

Topic Paper 4 – Town Centres and Retail

1.00 Background

• Planning Policy Statement 1: Delivering Sustainable Development • Planning Policy Statement 4: Planning for Sustainable Economic Growth • Planning Policy Statement 4: Practice guidance on need, impact and the sequential approach • Regional Spatial Strategy North West • Greater Manchester Town Centres Study • Greater Manchester Employment Land Study • Tameside Employment Land Review • Ashton Town Centre Supplementary Planning Document • Draft Hyde Town Centre Supplementary Planning Document • Conservation Area Appraisals - Stalybridge and Ashton • Urban Design Compendium • Manual for Streets • Tameside Retail Study, May 2010 • Tameside Unitary Development Plan 2004 • Tameside Sustainable Community Strategy 2009-2019 • Ashton Development Group – consultancy work under way • Tameside Economic Strategy – consultancy work under way

1.01 Historically town centres have played a key role in developing and supporting communities, providing a range of functions, infrastructure and facilities that draw users and in turn investors to create vibrant centres. While many towns have suffered from decline over the last few decades, centres continue to play a vital role providing a focus for economic activity, transport hubs and civic functions. It is such functions that need to be enhanced, evolved and developed in the future to create sustainable centres, with their own distinct role within a local hierarchy.

1.02 The Borough of Tameside is comprised of nine town-ships; Ashton-under-Lyne, Audenshaw, Denton, Droylsden, Dukinfield, Hyde, Longdendale, Mossley and Stalybridge. These town-ships play a significant role in characterising the Borough and will continue to have a vital role in its future prosperity.

1.03 Historically industrial uses and retail have shaped and influenced these town-ships, yet as the industry has declined and retailing become more dominated by high street brands and supermarkets; and competition for neighbouring centres and on-line retailing has increased; many town centres have declined. Within Tameside this change in fortune is clear across the majority of its towns, although there are also positives resulting from new developments

and the resilience of independent businesses. But as a whole the Borough needs to be aware of these issues in identifying their future roles

1.04 Recognising the position of Manchester as a Regional Centre, there is a need for Tameside to establish itself as a strong and attractive sub-regional destination, with Ashton at its heart.

1.05 Of the nine town-ships across the Borough seven town centres serve the Borough’s communities, as defined by the Tameside Retail study and the current Unitary Development Plan (UDP). These are;

• Ashton-under-Lyne • Hyde • Denton • Stalybridge • Droylsden • Hattersley • Mossley

2.00 Planning Policy

Planning Policy Statements 1 & 4

2.01 At a national level, Planning Policy Statement 4: Planning for Sustainable Economic Growth (PPS4) sets out the current planning policy framework for delivering economic growth, a key element of which is focused on promoting vibrant and viable town centres.

2.02 PPS4 advocates that Authorities should set out a strategy for the management and growth of centres over the plan period and that; policies should be flexible to respond to changes in economic circumstances; there should be a defined hierarchy of centres considering any identified need for growth; any deficiencies in the network should be addressed, and where reversing decline in centres is not possible consider the scope for consolidating and diversification.

2.03 Allied with PPS4, PPS1: Delivering Sustainable Development, promotes the need to imbed sustainable developments as an overarching principle across the planning system. Town centres play an obvious role in delivering sustainable developments and communities, with PPS1 requiring local planning authorities to focus developments that attract a large number of people into existing centres, promoting their vitality and viability, social inclusion and more sustainable patterns of development.

North West Regional Spatial Strategy (RSS)

2.04 In response to national planning policy surrounding retail and town centres (PPS1 & 4), the North West Development Agency through its Regional Spatial Strategy (RSS) established policies and principles related to the region’s centres. Policy RDF 1 identifies Spatial Priorities for the region, outlining a hierarchy for the region’s centres with Ashton-under- Lyne a third tier spatial priority below the 2 regional centres (Manchester & Liverpool) and their inner areas. In line with this tier of priorities, policy W5 promotes retail investment that is consistent with the scale and function of retail centres. Ashton-under-Lyne is identified as a sub-regional centre and as such should be top of Tameside’s retail hierarchy.

2.05 These RSS policies established a regional interpretation of the national policies, which many local authorities used as the basis for localised policies in their core strategies. However, the Government’s intention is to revoke regional spatial strategies through the Localism Bill rendering policies contained within them void.

National Planning Policy Framework (draft)

2.06 The Government’s intention is to replace the current suite of planning policy statements and guidance (including PPS 1 & 4) with a single national planning document, the National Planning Policy Framework (NPPF). The consultation draft of this document was published in July 2011 which at its ‘heart’ has a ‘presumption in favour of sustainable development’.

2.07 While the current planning policy statements remain in place (as at February 2012), it is the content of the NPPF (once adopted) that will guide policies in the Tameside Core Strategy.

2.08 In relation to town centres and retail the NPPF states that planning policies should positively promote town centre environments and set policies for management and growth. When creating such policies the NPPF requires local planning authorities to consider and include a number of elements such as the allocation of sites to meet a range of town centre uses, defining a town centre hierarchy, the extent of the town centre and its primary shopping area; and pursuing policies to support viability and vitality.

2.09 For retail and leisure uses, the town centre first approach advocated in PPS 4 remains with the NPPF requiring a sequential test to be applied to applications that are not within the town centre or in accordance with an up to date local plan.

2.10 A key element in achieving vibrant and viable town centres is creating high quality environments through good design. This ethos is acknowledged within the NPPF, with the document stating that “good design is indivisible from good planning and should contribute positively to making places better for people. The Government’s objective for the planning system is to promote good design that ensures attractive, usable and durable places”.

3.00 Greater Manchester Town Centres Study

3.01 The Greater Manchester Town Centres (GMTC) Study, published in 2010, sought to review the role and function of the eight principal town centre’s within Greater Manchester. The study was commissioned following serious concern across the City-region that the town centres have been failing to contribute to the conurbation’s growth of GVA or wealth over the last two decades. Without a reversal of this, the City-region will struggle to achieve its growth aspirations presented in the Greater Manchester Strategy.

3.02 The study looked at each of the 8 sub-regional centres, assessing their existing facilities, economic performance and offer. This resulted in a SWOC analysis for each of the town centres, Ashton’s can be viewed in paragraph 6.0 later in this paper, highlighting where future growth and distinctiveness could be drawn.

3.03 The study highlighted the need to refocus development and investment toward the sub- regional centres (combating the trend toward out of town locations), applying a town centre first policy that utilises the town’s existing infrastructure and assets to help attract investment and draw users.

3.04 The study identified the fundamental elements required to support and sustain a successful town centre: its ‘core functions’, which are the bedrock of town centre employment (such as the independent retail offer and civic functions in Ashton), and its individual ‘distinctiveness’ (such as Ashton’s markets) which have the ability to transcend the town centre standardised offer.

3.05 To safeguard and improve the prospects of GM’s town centres, the study suggests that:

• Core functions should be consolidated, through improvement of the existing offer; • The distinctive elements of GM town centres should be unlocked, building on local strengths to differentiate the offer from competing centres and diversify town centres to balance national retailers with distinctive local colour;

3.06 In the short-term, the report recommends a focus on:

• Early developments and their supporting infrastructure; • Management of under utilised; • Action to capitalise on committed investments; • Management of the interim stage of major developments; • Strong town centre management – marketing, security, cleansing etc.

3.07 In the longer-term a strategy is required to deliver structural changes to improve the town centre offer, including:

• Consideration of the shape of the centre; • New or expanded uses to create a rounded centre; • The potential for housing to widen the walk-in population and social mix; • Redevelopment sites; • Changes in access arrangements; • The phasing of development; • Appropriate planning policies to support the town centre and restrain out of centre development.

3.08 The report suggests the next steps for each of the 8 town centres is to create a bespoke strategy for each that acknowledges the outcomes and recommendations of the GMTC Study. The emerging Core Strategies across the City-region will obviously play a key role in refocusing development into these key town centres and aid the deliverability of such strategies where they exist.

4.00 Greater Manchester Retail Trends

4.01 The role of Ashton-under-Lyne as Tameside’s sub regional centre and its contribution to economic prosperity is given consideration through the Greater Manchester Town Centres study. Ashton is highlighted as having a distinctive and differentiated offer characterised primarily by the indoor and outdoor market, the Arcades and Ladysmith shopping centres and an emerging independent retail offer.

4.02 The study highlights the preference from retailers to retain units in key high street locations. But more generally, the popularity of out of town and edge of town centre sites with free parking, more flexible floor plates and more realistic rents are the immediate draw for national multiples and a threat to town centres.

4.03 This shift is evident within Tameside, with Snipe Retail Park impacting on Ashton; and across Greater Manchester, with a number of out of town retail destinations completing with the GM centres. This threat has increased further as these locations have diversified their offer from predominantly bulky goods to more ‘town centre ranges’ such as fashion, footwear and books for example.

4.04 Large format, high quality; traditionally high street retailers, are also tending to seek out of centre space. The issue being that these would normally be anchor tenants in town centres and without them, town centres are susceptible to becoming dominated by discount and lower end retailers.

4.05 The Town Centre Study highlights that a key issue for Ashton-under-Lyne and other Tameside centres going forward is in avoiding the creation of a two tier retail environment, where out of centre retailing is of high end serving residents with private transport and in centre retailing being of a lower order for those that only have access to public transport. It also highlights that where distinctiveness exists, such as the independents along Stamford Street in Ashton and the cultural influences of the Asian community in Hyde, these should be utilised as niche reasons for visiting these centres.

4.06 The Tameside Retail Study builds upon the evidence of these market trends, outlining the market share of the borough and its centres, spending patterns, current and future expenditure capacity and potential for future retail floorspace over the plan period. Through doing this the policy requirements of PPS 4 and concerns of the Greater Manchester Town centre study can be addressed.

5.00 Tameside Retail Trends

5.01 In 2009 the Council appointed consultants, White Young Green to undertake a revised Retail Study. Completed in 2010 the study is one of the principle pieces of evidence base work that guides how the Council will plan for the Borough’s town centres, set within the context of national planning policy and supplemented by various other sources of market data and research such as the Greater Manchester Town Centres Study.

5.02 The retailing position of the Borough as a whole is considered good with 96% of food retailing, and 69% of non food retailing expenditure being retained within the Borough. This indicates sustainable shopping patterns and that people are not principally inconvenienced by the existing retail offer available. These positions are considered good, given the proximity of strong competing offers, particularly for non food retailing, at Manchester City Centre and the Trafford Centre.

5.03 Of the seven towns identified above the Tameside Retail Study examined the retail floorspace, turnover and market share of the five largest centres as listed below.

Centre Floorspace Convenience Comparison Total Market Market (sq m) Turnover (£m) Turnover Turnover Share Share (£m) (£m) in Amongst Study Centres Area (%) (%) 1. Ashton- under- 53,980 135.23 186.26 321.49 11.2 40.8 Lyne** 3. Hyde 40,340 98.45 79.27 177.72 6.2 22.5 3. Denton* 46,378 59.56 113.23 172.79 6.0 21.9 4. 13,650 49.16 18.62 67.78 2.4 8.6 Stalybridge 5. 16,141 28.85 19.90 48.75 1.7 6.2 Droylsden TOTAL 170,489 371.25 417.28 788.53 27.5 100.0

Notes: WYG (2009) ** – Excludes Snipe Retail Park, Ashton Moss and IKEA Floorspace based on occupied convenience and comparison goods floorspace only and derived from Experian Goad (updated) or WYG assessment * Includes Crown Point North Shopping Park and Sainsbury’s store At 2007 prices

5.04 Through comparing turnover rates, a retail hierarchy was created (detailed below), which the North West RSS stipulates should have Ashton-under-Lyne at its top tier, as the sub- regional centre and principle place for investment.

5.05 The study indicates that Denton has increased its market share significantly when considering comparison turnover. This has resulted in Denton raising its position in the retail hierarchy from on a par with Stalybridge and Droylsden to on a par with, or exceeding Hyde. Much of this success however has resulted in a reduction of comparison goods market share in Ashton-under-Lyne which as the sub-regional centre needs addressing.

5.06 However, it should be noted that as detailed within the above table notes, Ashton’s figures do not include Ikea or Sainsbury’s, both of which are in the town centre. Equally, Denton’s figures include Sainsbury’s which is not within its town centre. Considering these points, Ashton’s market share within the Hierarchy is greater.

The Retail Hierarchy

Sub-Regional Centre Ashton-under-Lyne Town Centre Hyde Denton District Centres Stalybridge Droylsden Hattersley Local Centres Mossley

Tameside’s Town Centres

6.00 Ashton-under-Lyne

6.01 Ashton is Tameside’s administrative hub and sub-regional centre, containing a mix of independent and national retailers, financial services and leisure uses across the town centre. The town’s markets, Arcades and Ladysmith shopping centres together with the ‘old town’ contain the majority of the town’s core retail and services provision. Further to this there are a number of other retailing destinations within the wider centre including Ikea, Asda and Sainsbury’s amongst others. Allied with its retail offer the town also contains the St Petersfield business quarter; a high quality office-led mixed use development located in the south west of the town centre.

6.02 The town contains a number of transport assets; including a short and regular heavy rail service to Manchester Victoria Station and a large bus interchange providing services Borough-wide and cross boundary. Ashton's proximity to the M60 is its key road asset, linking the town with the wider conurbation and strategic road network. 2013/14 will see Ashton receive Metrolink services connecting the town to Manchester Piccadilly. This public transport asset will enhance connections between Tameside and the wider city- region, improving accessibility to employment opportunities for residents and investment opportunities for Ashton. It is important that the momentum surrounding the arrival of this infrastructure asset is positively utilised to help attract investment into the town.

6.03 While the town has strengths in its retail offer and transport assets, there is a need to further improve and promote the town centre in order to attract greater investment to enable the town to compete with neighbouring sub-regional centres such as Oldham, Stockport, Bury and Rochdale. This issue is detailed within the Greater Manchester Town Centres Study, which highlights that the town is considerably under performing (as are a number of GM centres) and requires focused investment, intervention and promotion to help improve its economic performance. It is vital that as the Borough’s principal town, Ashton is the focus for investment, development and promotion. With a strong ‘Capital’ the borough and its other town’s will have a greater chance of a continued sustainable future.

Sourced from the Greater Manchester Town Centres Study

Ashton-Under-Lyne Ashton town centre has a distinctive and differentiated offer, characterised by Ashton Market and an emerging independent retail offer clustered around Stamford Street and Ashton Old Town. Multiple retailers, including Marks and Spencer, are located in the Ladysmith and Arcades shopping centres. Ashton has been boosted by the office and health functions created by St Petersfield and has the potential to capitalise on a significant edge of centre conurbation accelerator at Ashton Moss.

Strengths - Good range of shops in the centre. - Ashton market is a key differentiator, attracting visitors from across the city region. - The retail core benefits from the popularity of the market - IKEA (on the periphery) has raised the profile of Ashton. - Stamford Street represents an emerging and distinctive independent retail offer in the centre. - Ashton Old Town represents a diversity of traders. - Development at St Petersfield has boosted the office and health function in Ashton.

Weaknesses - The town centre lacks a prominent anchor store. - Ashton suffers from a lack of private sector employers and the town centre is in urgent need of investment to bolster the market. - The town centre has a poor representation of comparison retailers – with only 50% of the top 20 present. - With the exception of St Petersfield, the office market is limited in Ashton.. - There is no established restaurant or food offer. - There is a limited high quality leisure offer. - Bias among shoppers towards lower income groups - Stamford Street Central and adjacent streets still without a strong role since covered centres developed.

Opportunities - On the edge of the town centre, Ashton Moss provides the opportunity to create a significant conurbation accelerator. - A additional prominent anchor, such as Primark, would boost the town centre and attract further retailers. - Bus station – opportunity to extend the shopping centre (subject to demand) in this location; currently a barrier between the town centre and the IKEA and adjacent shops etc - Potential to link IKEA, Ashton Moss, St Petersfield, the Market and the Arcades through quality public realm. - There is a possibility to relocate the Town Hall to the St Peter’s Gate scheme end of Stamford Street, creating opportunity to link market to bus station and Metrolink with additional retail. - The arrival of Metrolink. - There is an opportunity to attract new occupiers to vacant retail units. - A health cluster is developing within the town centre.

Challenges - IKEA (with adjacent retail park, cinema and restaurants) has the potential to draw trade from the town centre. - Retail vacancies are above average – this also detracts from the streetscene. - Public realm improvement is necessary to attract higher value retailers. - Commitment to low carbon energy expansion and the attainment of governmental energy requirements. - Attracting more affluent shoppers to the centre. - Reviving the night-time economy. - Bringing forward the numerous development opportunities within the centre. - Out of town retailing at Snipe and Crown Point North - Risk that Metrolink may increase loss of spending to regional centre

Retail & Town Centre Uses

6.04 Property vacancies across Ashton are above the national average but the town has proved reltively resilient throughout the recession in being able to recycle its retail floorspace although this has been discount retail focused. There is a need therefore to bolster the town’s contribution to the Greater Manchester economy, attracting higher order retailers, developing an office market and generally diversifying the offer.

6.05 The retail study indicates that there is an immediate capacity for both food and non food retailing. This is due to the overtrading of some food supermarkets around the centre and quantitative evidence of a need to improve the comparison offer in the sub-regional centre. This gives capacity to address the fall in market share spend directed to Ashton (29% in 2005 to 24% in 2010) as a result primarily of developments in Denton.

6.06 As the sub regional centre, Ashton needs to create a policy environment that helps to retain its anchor national multiples and celebrates a growing number of independents; an important element of Ashton’s ‘unique’ retail offer. This will likely manifest itself through bringing forward such schemes as the approved extension to the Arcades shopping centre and development opportunities that arise as a result of the Ashton Northern Bypass. The floorspace potential may also mean that over the plan period there is a requirement to identify sites to accommodate both food and non food need.

6.07 As previously highlighted, in order to help achieve the town’s retail aspirations Ashton needs to attract more users / spend. A key element of this will be increasing its non-retail town centre uses, particularly office based employment. This in turn will not only help retail viability, but also the town’s leisure and evening economies, and elements of residential. The continued development of the office-led mixed use scheme at St Petersfield will play a key role in this diversification; as will the emerging proposals for the town’s Northern Core adjacent to the, under construction, northern bypass. This area could offer development opportunities for a range of town centre uses such as office, retail, education, civic and leisure. As detailed below, St Petersfield is establishing a high quality environment but it is important that this quality is emulated across the town centre to not only enhance the wider town centre, but support St Petersfield.

6.08 As with a number of centres, Ashton has suffered from a stalling of potential development due to the recession. Across Ashton there are numerous planning approvals for residential- led mixed use schemes, which could help the vibrancy and viability of the town centre if brought forward. Equally there are a number of retail led proposals that are yet to come forward, the most significant of which is the extension of the Arcades Shopping Centre.

Design & Public realm

6.09 As Tameside’s key town centre, its public realm must help to positively present Ashton to potential visitors and investors. Unfortunately, at present the existing public realm; coupled with areas of road domination, is failing to achieve this. The St Petersfield development is the only area of the town centre that contains a modern, high quality area of public realm. It is this quality that needs to be replicated across the whole town centre.

6.10 Areas that require specific intervention include the following:

• Market Square would benefit from a complete redesign to create a gateway space and focal point. • Improved pedestrian linkages are required between the rail station and market square area. • Old Street – links to St Petersfield. • Improved links between Ikea and Sainsburys to core town centre. • De-cluttering of street furniture across the town.

6.11 Allied with the public realm, the town’s urban fabric contains a mix of building types, styles and ages. The southern area of the town centre around Stamford Street (Old Town) lies within the town’s conservation area and has a distinct character that would benefit from further enhancement through renovation of existing buildings and sympathetic new developments. Unfortunately a number of the post war developments fail to acknowledge the character of this historic area. Equally across the wider town centre there is a similar mix of pre and post war developments that add and detract from the urban environment. There is a need to ensure future development across the town centre contributes to a town wide aspiration to improve the town centre and only accept high quality design.

6.12 Particular attention needs to be paid to potential development sites such as the Northern Core area and town centre gateways. The multi-modal gateway along the Penny Meadow and Market quarters (shown in the Ashton Town Centre Supplementary Planning Document) require improvement as the bus, rail, road and future Metrolink gateway into the town centre. At present this area is dominated by the road environment, bus station and the Arcades and Council Offices which turn their backs on the area, masking any awareness of the town centre beyond.

6.13 To help guide future development across the town centre, the Council adopted the Ashton Town Centre Supplementary Planning Document in January 2010. This document provides guidance to developers, highlights potential development sites and outlines potential future projects such as public realm improvements and site specific development projects.

7.00 Hyde

7.01 As with much of the borough, Hyde expanded considerably during the industrial revolution. At its peak the town had 40 working mills and a colliery. While these industries have long since declined, the wider town is home to a number of other industries that play an important role in Tameside’s economy.

7.02 Historically Hyde was considered Tameside’s second town, with 2 vibrant markets, the Clarendon Square Shopping Centre and 2 large supermarkets. Whilst the town retains all these assets, together with a strong independent business sector, the success of Crown Point has elevated Denton above Hyde in terms of retail expenditure. The close proximity of Denton to Hyde has also impacted on the town centre, limiting its ability to attract certain high street names, an issue that is likely to become exacerbated by the ‘Crown Point East’ development on the former Oldham Batteries site.

7.03 The Council, through the Hyde Business Forum (a local group comprising business representatives and local authority Councillors and Officers) commissioned three pieces of work to help guide a future role / direction for the town, building on its strengths and

identifying areas for change including improvements to the public realm and marketing of Hyde town centre. The outcomes of the studies commissioned are as follows:

Hyde Marketing Strategy

7.04 The methodology involved undertaking surveys of local businesses and members of the public in Hyde and Ashton, which highlighted a number of issues, perceptions and opportunities that steered the Marketing Strategy. The primary recommendations of the Strategy are:

• Promote a new image for Hyde • True Working Partnerships - between the Clarendon Centre, the markets and all retail interests. • Pride in Our Streets - improvements to the public realm • Welcome to Hyde - new signage

Development Framework

7.05 The study aimed to evaluate the design, performance and commercial viability of Hyde Town Centre and assess its capacity for change and investment.

7.06 Through baseline assessments and consultations the framework produced a Strengths, Weaknesses, Opportunities and Challenges (SWOC) assessment of the town centre that lead to the following proposed intervention options / key projects, with accompanying action plan:

• Public realm & connectivity – improve across the town centre • Market place – redesign market and square, open-up entrance to Clarendon Square • Culture & Leisure – enhance / promote cultural and leisure offer. • Independent, specialist businesses – Improve the quality and diversity of the independent retail offer and create a Challenge Fund to aid this. • Commercially-led mixed use development on the sites currently occupied by the multi- storey and surface car parks at Union Street.

Traffic Management & Pedestrian Study

7.07 Having undertaken an assessment of Hyde’s transport network the study recommends the following improvements are made to the study area:

• Improve the quality of Hyde Central Station and town centre bus stops, and improve rail service frequencies. • Improve the operation of the key highway corridors and key junctions to reduce the congestion that currently causes significant delay. • Investigate ways of reducing the rat running that still takes place in traffic calming areas. • Improve the provision of signal controlled pedestrian crossings on key desire lines. • Address the severance of the main shopping area caused by Market Street. • Introducing on-street or off-street cycle facilities.

7.08 Following the completion of these studies, the Council has committed over £1million to Hyde to undertake public realm and highway improvements, as a first step to improving and promoting the town centre. The largest element of these improvements will be a new

market square and outdoor market that will create a high quality focal point and gateway in the town’s core retail area.

Retail & Town Centre Uses

7.09 The Tameside Retail Study indicated the potential for some increases in both the food and non food retail offer in Hyde. However a new major food store at Hattersley post completion of the study will reduce this projected potential.

7.10 Hyde should therefore focus on improving its retail offer through regenerating its existing retail premises / floorspace and the general retail environment. The study recognises the role and distinctiveness of Hyde, together with the impact of neighbouring centres. As such, it suggests that Hyde should build on its cultural assets and independent businesses, and consolidate the town centre to reflect and aid this.

7.11 As with all of Tameside’s town centres, Hyde contains a diverse range of non-retail uses (including financial services, cultural and religious facilities, medical services, pubs and restaurants and light industrial uses) complementing its retail offer and providing diversity in the town’s economy. It is such uses, allied with its existing retail offer that could play an important role in providing Hyde with a sustainable future.

Design & Public Realm

7.12 As with many of the Borough’s town centres, Hyde contains a range of building types and ages from Listed Victorian properties to modern supermarkets and 1960’s office buildings. It is essential that future development (buildings and public realm) represents high quality design that contributes to regenerating the town centre and improving its visual appearance.

7.13 A draft Hyde Town Centre Supplementary Planning Document (SPD) has been produced by the Council to provide guidance to developers wishing to invest in the town, together with details of potential future projects that could help to improve / regenerate Hyde. These include the following:

Development Projects • Refurbishment of Clarendon Square • Eastern Gateway (Clark Way) • Western Gateway (Manchester Road) • Consolidation of Market Street • Marketing Strategy & Accompanying Initiatives

Public Realm • Pedestrian link to Donnybrook Medical Centre • Public Transport Links • Rail Gateway • Western Gateway – improved pedestrian environment • Eastern Gateway – pedestrian route across Clark Way • Redesigned Market Square & Outdoor Market • Improvements to Market Street • Public Realm Guidance Document

8.00 Denton

8.01 Denton is located in the south of the borough, straddling the M67 and in close proximity to the M60. Once famed for its felt hat making industry, Denton has now become an important retail destination following the development of a town centre Morrison’s store and the Crown Point North shopping area. Sited next to the town’s M67 junction, Crown Point draws shoppers from across the sub-region.

8.02 Whilst these assets have increased the town’s ‘high street’ retail offer, they have had a negative impact on the town’s ‘traditional’ independent businesses and increased traffic congestion.

Retail & Town Centre Uses

8.03 Building on the success of Crown Point North Retail Park, the former Oldham Batteries site (Crown Point East) south of the M67 has planning permission for a second retail development that will further enhance Denton’s retail position within the Borough and help draw retail uses and people back toward the core town centre. This site is being actively progressed with help from the Council via its compulsory purchase powers to help deliver comprehensive development of the site.

8.04 Crown Point East is expected to have a benchmark turnover of around £40m. Due to the success of Crown Point North Retail Park it would appear there is capacity for further retail floorspace over and above this existing commitment. However the Tameside Retail Study advises that this represents an inflated position due to increases in market share and that there is a need to address the balance of the retail hierarchy (with Ashton at the top), as previously highlighted. Therefore after Crown Point East there is no identified need for further floorspace.

8.05 Therefore retail improvements in Denton should be associated with the existing retail core to minimise the number of vacancies and improve pedestrian linkages between Crown Point North Retail Park, the existing core and Crown Point East. As detailed above, greater competition from the Crown Point East site may result in increased vacancies / loss of independents in areas of the town centre. If this does occur, alternative uses and potential consolidation of the town centre may need to be considered.

8.06 Whilst the town’s modern retail developments will continue to dominate its use mix, there are a number of other uses such as pubs and restaurants, banks, estate agents and medical services, together with the town hall and park which serve a more localised need. It is important that these uses and facilities are retained and where appropriate encouraged to expand.

Design & Public Realm

8.07 Physically, the town centre has been able to improve the quality of its public realm from developer contributions secured from Crown Point. This has enabled improvements to be made to primary streets and the former Market Square, which has been redesigned to create a high quality civic space.

8.08 As with many of Tameside centres, a town colour (dark blue) has traditionally been applied to the street furniture. Yet with the modern palettes used at Crown Point and the former market square, together with a likely modern palette at the former Oldham Batteries site, the town colour elements of the town centre are appearing at odds and out dated. In order

to create consistency across the town centre and visually connect Crown Point and former Oldham Batteries site into the core town centre, replacing the town colours furniture should be considered.

8.09 Whilst the hard landscaping of the town’s public realm has been improved, there’s a need to try and use the public realm to reduce the dominance of the town’s road network. Ashton Road and the Manchester Road, Stockport Road junction are particularly problematic areas where the road considerably hinders the pedestrian / town centre environment. Applying measures to help reduce this dominance will not only improve the town centre environment, but will also help cohesion between areas such as the park and market square to Ashton Road / Crown Point / Oldham Batteries.

8.10 As with the majority of town centres, Denton’s urban fabric comprises a range of architectural styles and periods, with the historic (predominantly Victorian) core providing the town centre with a number of distinct buildings that contribute to the town’s identity. Conversely, the majority of the post war development offer limited enhancement of the town’s environment. Future development within the town centre must remedy this with developments that enhance the town’s environment and where possible utilise and complement key historic buildings.

9.00 Stalybridge

9.01 Of all Tameside’s town’s Stalybridge has witnessed one of the greatest use diversifications with a number of residential developments and an emergence of the night-time and evening economy dominating areas of the centre. Together with the above, there are other declining uses including a range of high street retail and financial services. There is a bus station providing services across the surrounding area and a heavy rail train station on the Trans Pennine route, linking the town to Manchester, Leeds, Manchester Airport and beyond.

Retail & Town Centre Uses

9.02 The town’s current retail offer comprises a Tesco and Aldi supermarkets together with a dwindling number of independent business located within the historic streets (a large proportion of the town centre is within a conservation area) and 1960’s precinct development. The presence of the supermarkets have played a part in the decline of independent traders, as has the offer in neighbouring centres together with the recession and changing shopping habits.

9.03 This sentiment is supported by the findings of the Retail Study, which views the centre as generally serving a convenience goods shopping role, with the majority of expenditure directed towards the Tesco store, which dominates shopping patterns in the local area. Comparison goods offer is limited with the town retaining low levels of expenditure.

9.04 Despite elements of comparison retail decline, the Tameside Retail Study identifies some further scope for food retail development within the town but notes that this should be to improve the quality of the retail offer as a competitor to the existing Tesco store.

9.05 With elements of the town centre in decline, the town’s night time economy began to dominate the western area of the town, with numerous bars, restaurants, take-a-ways and clubs. Whilst this has been beneficial to the local economy, it has also resulted in problems with anti-social behaviour and has left areas of the town centre lifeless during the day.

After transforming the western area of the town centre into a night-time destination, a number of the bars and clubs have now closed, leaving this area of the town centre without any use, day or night.

9.06 Allied with the declining night time economy, the western area of the town centre also contains a large potential development site known as Stalybridge West. The site; bounded by Market Street, the Rail Station / line and the River Tame, has a Council prepared development brief seeking mixed use development comprising residential, office based employment, leisure and elements of retail (including food). With its close proximity to the rail station, linking the town with notably Manchester Piccadilly, Victoria, Huddersfield and Leeds, this large site could play a part in diversifying the borough’s employment opportunities and prosperity of the town centre.

Design & Public Realm

9.07 Large elements of the town centre are covered by a conservation area which has helped to preserve elements of the town’s historic character. However, despite this designation the town has suffered from poorly designed buildings and deterioration of the historic fabric, as highlighted by the draft Stalybridge Conservation Area Appraisal and Management Plan (sections 6.1 to 6.3 and 6.23 to 6.25). Through future development this issue should be addressed with developments that successfully utilise and complement the historic environment with high quality buildings that enhance the town’s environment.

9.08 Set against the low quality buildings across the town centre, there are also developments that have applied a high quality, bespoke design such as Longlands Mill and the non- generic Tesco’s; which have helped to enhance areas. It is such developments that should be viewed as setting a precedent for the future, particularly for the large Stalybridge West development area. This area presents the largest potential development site within the town and could play an important role in further diversifying the town’s use mix and improving connections to the rail station.

9.09 The quality of the public realm across the town centre is mixed, with areas of well defined urban grain creating clear routes and spaces through the town. Equally there are areas where due to inappropriate development or site clearance the urban grain is fragmented leading to poorly defined routes and environments. Amongst this public realm ‘framework’ the quality of landscape finishes is variable. Spaces such as Armentieres Square and the canal sides have recently been landscaped with new materials, yet equally there are numerous areas that would benefit from new materials, de-cluttering of street furniture and improved maintenance.

10.00 Droylsden

10.01 Droylsden lies on the western fringe of the Borough, neighbouring Manchester City. The town centre is centrally located, with residential communities surrounding it. South of the town centre lies the historical Fairfield Moravian Settlement, this is covered by Conservation Area status, with a number of the buildings also being listed.

10.02 Droylsden will be the first town in Tameside to receive the Metrolink and it’s hoped this transport connection to Manchester City Centre will enhance the towns economy of the town and contribute to the success of the Droylsden Marina development. This development is a large residential-led mixed use scheme that’s created a new marina and will provide a range of high quality homes and office developments in the heart of the town

centre. The first phase of the housing element has been completed and a revised proposal for the remaining residential element has recently received planning permission.

Retail & Town Centre Uses

10.03 The town’s ‘high street’ offer comprises a Tesco supermarket, the Droylsden Shopping Centre and properties along Market Street and elements of Fairfield Road. Collectively these comprise a range of retail and non-retail uses including high street banks, estate agents, pubs, medical services and retailers such as Wilkinsons, Somerfield and Boots. In addition to these high street uses, the town centre also contains Droylsden Football Club, a small number of industrial units and the town’s library.

10.04 Similarly to Stalybridge there is scope for some expansion of the food retail floorspace offer. It would be advantageous if this expanded offer was able to bring a new food operator into the town, increasing user choice over the currently dominant Tesco store. However, the recent completion of a new Morrisons store in Openshaw is likely to impact on this projected growth capacity.

10.05 Beyond the town’s supermarket offer, the Droylsden Shopping Centre and its immediately neighbouring retail units are well served by the local community, with few vacancies (at present). However, in contrast the severing effect of Manchester Road has resulted in lower pedestrian movement to the south of this route, leading to a number of retail vacancies. It is hoped that as Droylsden Marina progresses pedestrian movement will improve, aiding the viability of retail and other town centre uses in this area.

Design & Public Realm

10.06 The character of Droylsden is undoubtedly affected by the primary road routes of Manchester Road and Market Street which dissect the centre, hindering its ability to effectively function as a cohesively. Whilst traffic flow along these routes cannot be reduced, public realm interventions should be used to help soften the environment and improve pedestrian movement. Such interventions will be particularly appropriate to aid connections with the Marina development.

10.07 This need to create a cohesive town centre is also evident in the town’s street furniture. As with all the towns across the Borough, Droylsden has a town colour (red) that’s applied to the street furniture within the town area. Whilst this has helped provide an element of identity, the furniture and concept does not present a modern feel and will be at odds with modern furniture and materials applied to new development such as the Marina and Metrolink.

10.08 The town centre’s built form comprises a mix of architectural styles, including Victorian properties at Market Street and Fairfield Road, the 1960’s/70’s shopping centre development and the modern developments at the Marina. Whilst the varying styles create diversity within the street scape, few of the buildings represent high quality design, with the only exceptions being the former co-operative building at the junction of Manchester Road / Fairfield Road, and the new developments surrounding the new Marina.

10.09 Any future developments within the town centre should be of a high quality, sustainable design following the precedent set by the Marina and relevant historic buildings.

11.00 Hattersley

11.01 Hattersley lies in the south east of the Borough neighbouring Mottram and Broadbottom and within close proximity to Hyde. The community has good access to the region’s motorway network via the M67 which begins at Hattersley and lies on the Glossop to Piccadilly train line.

11.02 Developed as a Manchester overspill estate in the early 1960’s the area has suffered from high levels of deprivation for a number of years. In the early 2000’s the Hattersley regeneration initiative was launched involving physical, social and economic programmes to improve the quality of life in Hattersley. In physical terms this has involved the removal of low quality housing and its replacement with new, primarily private housing. Phase 1 of this programme is currently under way.

Retail & Town Centre Uses

11.03 In addition to new housing development, a new district centre is being created at Stockport Road, adjacent to the M67 junction. This area already contains a McDonalds, Premier Inn, Brewers Fare and a small cluster of light industrial units. This is being further enhanced with the development of a large Tesco store and a new community centre containing library and community space, together with offices for police, Peak Valley Housing, Credit Union and the Hattersley Community Partnership. The existing district centre is to be demolished and eventually redeveloped.

11.04 As development occurs of the new Tesco store and ancillary community hub the status of the existing retail centre and new district centre will be reviewed to more appropriately reflect the retailing positions of each location.

11.05 In addition to the new district centre, an existing parade of shops at Honiton Avenue has been demolished and replaced with new retail units and an apartment development. Adjacent to this development is a local pub; one of two in Hattersley.

Design & Public Realm

11.06 As is common of large housing estates of this era, Hattersley is a very ‘green’ area with large areas of public realm and open space. Whilst in areas this helps to ‘soften’ the environment, they can also become areas of blight. As part of the new housing development underway, areas of this public realm are to be improved and formalised to improve the visual appearance and functionality of the spaces.

11.07 The existing housing stock across Hattersley has been constructed using a small group of house types of a traditional form. This principle has been taken forward into the new housing developments, but strict design standards have been applied to ensure all new development represent high quality design that enhance the character of Hattersley.

12.00 Mossley

12.01 Mossley lies at the north eastern edge of Tameside, bordering the Saddleworth area of Oldham. An historic small Pennine town, Mossley is characterised by its steep Pennine topography and the stone buildings located amongst this landscape. The town developed with the wool and cotton industries, with a number of spinning mills developed across the valley.

12.02 The town is commonly divided into 2 main areas, Top Mossley and Bottom Mossley; mirroring the topography of the landscape. Top Mossley houses the town’s primary shopping area and the majority of its public services, with the exception of the rail station. While this role is likely to remain, Bottom Mossley has received the majority of the town’s ‘modern’ housing developments which in turn is likely to increase demand for retail, leisure and services in. This demand and potential viability may also be aided by the town’s detachment from the borough’s other urban areas.

Retail & Town Centre Uses

12.03 Mossley’s current town centre is located within Top Mossley where the town’s Co-op supermarket and a cluster of independent traders (including a butchers, estate agents, chemist, dentists, hairdressers, café, organic food stores and physiotherapist) are located, together with pubs, restaurants, George Lawton Community Hall and the town’s library.

12.04 Bottom Mossley also contains a local parade of shops at Manchester Road, together with the town’s rail station, central post office, pubs, restaurants, doctor’s surgeries and an RBS bank.

12.05 Whilst Top Mossley is a relatively small town centre (ranked a ‘local centre’ in the retail hierarchy), the town has received high levels of residential development’s over the past 15 years, considerably increasing its population. Whilst this has not yet lead to an increase in retail or employment developments, in the future demand may exist to expand, particularly the retail and leisure offer.

Design & Public Realm

12.06 The town centre and shopping parade at Manchester Road, Bottom Mossley are characterised by the historic built environment, dominated by Victorian properties constructed of stone. While this historic character has not lead to conservation area designation, it is important that this character is retained and enhanced by future development.

12.07 Whilst the existing town centre (Top Mossley) has largely retained its historic character, with limited post war development within the town centre itself, the developments that have occurred, such as the Library, Methodist Church, Co-op and George Lawton Hall have failed to acknowledge the local vernacular in terms of materials or scale.

12.08 The town’s public realm fails to appropriately ‘dress’ the town, with standard pavers and tarmac patching applied across the town centre. Whilst street trees successfully add a welcome green element to the public realm, a much improved palette of materials and furniture is needed to improve the visual appearance and historic character of the area.

13.00 Summary

13.01 The promotion and creation of a vibrant and viable town centres is realised both by current and pending national planning policy as an important element in delivering sustainable developments. The draft NPPF retains the sequential test of PPS4, yet it also requires planning authorities to identify appropriate edge of centre sites where suitable and viable town centre sites. Where these are not available, other accessible locations should be identified.

13.02 Despite the focus on town centres, evidence shows there are increasing trends from retailers to re-evaluate investments and current trading locations. Inadvertently this would appear to be leading to the development of a two tier retailing environment with lower order in centre and higher order out of centre. Within Tameside out of centre developments such as Snipe Retail Park have the potential to create this tiering. It is therefore vital that Tameside’s centres react appropriately to this threat and attempt to limit its evolution.

13.03 The primary focus must be on strengthening Ashton as the sub-regional centre. The town’s retail sector has been relatively resilient during the recession and there’s scope for additional floor space, but there’s a need to attract higher order retailers and create greater use diversity across the town centre.

13.04 In other centres, not all of which benefit from the potential to expand their retail floorspace, improvements need to be focused on enhancing the retail environment, consolidating town centres where appropriate, enhancing and promoting niche elements of the centre and regenerating floor space. However, this needs to be undertaken with a realisation that not all of Tameside’s centres can survive in their current form. Centres need to be realistic about their future function and role within the Borough.

13.05 The role high quality design can play in aiding the prosperity of centres should not be under estimated, as acknowledged by national policy (existing & proposed). Attractive, usable and welcoming environments create places and spaces where people want to be. In turn, this attracts investors which helps create the viability needed to feed the vibrancy. This design quality needs to be applied across all centres, through new developments and particularly public realm.

14.00 Key Issues

14.01 Tameside’s Retail Trends

• The retailing position of the Borough as a whole is considered good with 96% of food retailing, and 69% of non food retailing expenditure being retained within the Borough. This indicates sustainable shopping patterns and that people are not principally inconvenienced by the existing retail offer available. However, there is some comparison goods leakage outside the Borough that could be captured in part by appropriate expansion. Such expansion should be focused towards Ashton. • Denton has increased its market share of comparison retail significantly with the development of Crown Point North Retail Park, which will continue to grow with the proposed Crown Point East development. • There is a need to avoid the creation of a two tier retail environment across the Borough, with out of centre retailing focused on high end and in centre retailing focused on lower order offer.

• The Retail Study suggests in some instances town centre boundaries appear to be encouraging development on or beyond the fringes of what reasonably could be termed the town centre, conflicting with ambitions to strengthen and consolidate the centres.

14.02 Ashton as the sub-regional centre

• Ashton needs to be strengthened in its role as the sub-regional centre improving its comparison retail offer and diversifying its town centre use mix. Where possible, investment should be focused towards the town to help achieve this ‘strengthened’ role. Once Tameside has a strong Capital, a more successful role for its other town’s can be sought. • The Retail Study highlights an additional potential for increased convenience goods offer within the town centre.

14.03 ‘Other’ Town’s

• Capacities for future retail floor space vary across the Borough’s other centres, but is generally more limited than that available in Ashton: • Hyde – some expenditure for some increase in convenience & comparison, Tesco development at Hattersley will limit this. • Denton – further retail floorspace above existing commitments should be resisted. • Stalybridge – some scope for further convenience development which should improve the quality of the offer as a competitor to Tesco. • Droylsden - some scope for further convenience expansion which should improve the quality of the offer as a competitor to Tesco. However, the Morrison’s development in Openshaw is likely to impact on the growth capacity. • Mossley – maybe future demand resulting from recent residential developments. • Centres around the Borough have distinctiveness in terms of character and use offer that should be retained and enhanced to create a future role of each of the centres. Not all centres can fulfil or seek the same function and survive going forward.

14.04 Design & Public Realm

• The design quality of buildings and public realm across the Borough’s centres are largely poor and require improvement. A modern palette of materials and furniture needs to be applied to town centre environments and design standards should be applied to ensure future development represents high quality sustainable design that enhances the character of its surroundings.

15.00 Cross Cutting Themes

15.01 Links / themes with other topic areas:

Economy & Employment – the Borough’s town centres will play a key role in supporting and diversifying Tameside’s economy. Aspirations to strengthen Ashton’s sub-regional standing will be particularly reliant on improving its economic performance. Housing – appropriately sited and designed housing remains an important town centre use that compliments and aids viability of other town centre uses. Decentralised Energy & Climate Change – the concentration of development within town centres will help enable the viable development of decentralised forms of energy production such as district heating networks and Combined Heat and Power (CHP) plants. The

Tameside Decentralised Energy Study highlights Ashton and Stalybridge as centres with particular potential for delivering these technologies. Heritage & Conservation – the historic architecture and landscapes of the Borough’s centres provide them with a distinct identity and character. Such assets should be utilised and enhanced through town centre developments / improvements to create the bespoke environment needed to attract users and investors. Transport and Infrastructure – centres will continue to act as key transport and infrastructure hubs. Through continued focus on developing and strengthening our town centres, appropriate transport and infrastructure will play a key role in ensuring sustainable prosperity.

Local Development Framework – Core Strategy Issues and Options Discussion Paper

Topic Paper 5 – Health and Inequalities

1.00 Background • Planning Policy Statement 1: Delivering Sustainable Communities (PPS1) • Planning Policy Statement 3: Housing (PPS3) • Planning Policy Statement 4: Planning for Sustainable Economic Growth (PPS4) • Planning Policy Guidance 17: Planning for Open Space, Sport and Recreation (PPG17) • Planning Policy Statement 23: Planning and Pollution Control (PPS23) • Tameside & Glossop Public Health Annual Report 2010 • 'Fair Society Healthy Lives' (the Marmot review, 2010) • Tameside & Glossop Public Health Annual Report 2010 • Our Life in Tameside 2009-2019: Tackling Health Inequalities in improving Health • Tameside Child Poverty Needs Assessment • Shouldering the Burden: A Strategy for Developing Personal Financial Resilience in Tameside 2011-2015

2.00 Introduction

2.01 Delivering safe, healthy and attractive places to live are key objectives of spatial planning. It is therefore important that planning decisions contribute to opportunities to improve health for communities by promoting the public health agenda whilst also reducing socio-economic inequalities, reducing levels of poverty and increasing social mobility.

2.02 Integrating public health and spatial planning processes enables the promotion of health through the delivery of neighbourhoods that provide opportunities to develop and maintain healthy lifestyles and good mental health. This in turn can assist in the management of health service demands and budgets promoting healthier communities. By engaging with health service providers the planning system can deliver appropriate facilities in the communities in which they are needed. In order to deliver sustainable development that effectively meets the needs of all sections of the community, the health of a community must be considered at all stages of the planning process.

2.03 Whilst access to health care is often prioritised, it is arguably more important to plan to enable people to live healthier lifestyles in order to reduce the need for such care. The built environment can have a significant impact on the determinants of health, as well as ensuring the provision of health infrastructure and services. The ways in which buildings and places are configured influence people's living, working and travel patterns, the shape of the local economy, people's opportunities to access local food, and their tendency to be physically active. At the same time patterns of pollution will affect the local environment and in turn human health.

3.00 National Planning Policy Guidance

3.01 The Government’s principle objective to facilitate sustainable development, ensuring the creation of successful, thriving, healthier and safer communities in urban and rural areas is set out in the Sustainable Communities Plan: Building for the Future (ODPM 2003). Planning Policy Statements guide local authorities in the delivery of this objective through the planning system.

Planning Policy Statement 1 (PPS1) – ‘Delivering Sustainable Development’, 2005 3.02 PPS1 sets out the Government’s vision for planning and the key policies and principles for the planning system, placing sustainability at its centre.

3.03 It specifies that development plans should promote development that creates socially inclusive communities with improved access for all to jobs, health, education, shops, leisure and community facilities, open space, sport and recreation, by ensuring that new development is located where everyone can access services or facilities on foot, bicycle or public transport (Para 27, v)

3.04 In preparing their policies, planning authorities are required to seek to focus developments that attract a large number of people, especially retail, leisure and office development, in existing centres to promote their vitality and viability, social inclusion and more sustainable patterns of development (Para 27, vi)

3.05 Government guidance in PPS1 advocates a ‘spatial planning’ approach whereby policies for the development and use of land are integrated with other policies and strategies which influence the nature of places and how they can function. This may include policies which can impact on land use, for example by influencing the demands on or needs for development (Para 30).

3.06 In implementing this approach, planning authorities should ensure their plans take full account of other relevant strategies and, where possible, be drawn up in collaboration with those responsible for them. In particular, local development documents should take forward those elements of the local community strategies that relate to the physical development and use of land in an authority’s area (Para 32, iii)

Planning Policy Statement 4 (PPS4) – ‘Planning for Sustainable Economic Growth’, 2009 3.07 PPS4 incorporates public and community uses within its definition of economic development and seeks to promote the vitality and viability of town and other centres as important places for communities. PPS4 advocates that LPAs should ensure:

• The provision of innovative and efficient local services in town centres, which allow genuine choice to meet the needs of the whole community (particularly socially excluded groups);

• The historic, archaeological and architectural heritage of centres is conserved and, where appropriate, enhanced to provide a sense of place and a focus for the community and for civic society.

Planning Policy Statement 12 (PPS12): ‘Local Spatial Planning’, 2008 3.08 PPS12 identifies how to create strong, safe and prosperous communities through local spatial planning. PPS12 says that spatial planning objectives for local areas identified in the LDF, should be aligned with not only national and regional plans but also with the shared local priorities set out in Sustainable Community Strategies (SCS).

3.09 The SCS should provide the starting point for the Core Strategy in terms of setting out the vision and broad objectives for an area. Alignment of the two strategies is essential to the success of the Core Strategy and the LDF as a whole. It provides the foundation on which to build up a suite of local development documents that will deliver the vision and provide a spatial planning strategy and sense of local distinctiveness for the future of the area.

3.10 PPS12 also requires planning authorities to produce a comprehensive Implementation Plan to support the Core Strategy and demonstrate that facilities and services are proposed or in place to support the vision and objectives.

Proposed National Changes to the Planning System 3.11 In July 2011 the Government held a consultation on a draft National Planning Policy Framework (NPPF). The draft NPPF aims to streamline national policy into a consolidated set of priorities with a key focus on the presumption in favour of sustainable development. As a result the NPPF will replace the existing suit of Planning Policy Statements and Planning Policy Guidance. The NPPF is expected to be formally adopted by April 2012.

3.12 In terms of health and inequalities the draft NPPF suggests that local planning authorities should work with public health leads and health organisations to understand and take account of the health status and needs of the local population, including expected future changes, and any information about relevant barriers to improving health and well-being.

4.00 Regional Planning Policy

Regional Spatial Strategy for the North West 4.01 Up until its abolition under the Localism Act 2011, the Regional Spatial Strategy (RSS) for North West England (published in September 2008) provided a framework for the physical development of the region over the next 15-20 years.

4.02 Despite the revocation of the RSS much of the evidence base used to inform the policies and strategies contained within it remain as relevant considerations providing a strong indication for the future development of policy at the Greater Manchester level. Overall RSS sought to improve people’s accessibility to education, health, culture and leisure facilities as part of its core approach and to reverse the dispersal of large proportions of the population away from the Region’s cities and towns, whilst placing emphasis on the re-use of existing sites for new development. It is likely that this overarching approach will be retained as new policy is developed.

4.03 Building sustainable communities and achieving regeneration in the North West was a key available to all. Policy L1 placed particular emphasis on improving access to a full range of health and educational services within communities, especially where spatial disparities in service and facilities provision occur, where needs are greatest in highly deprived areas, or

where communities are poorly served. Policy L1 also lent support to proposals for major developments which ensured appropriate health, cultural, education and training provision from the outset including Children’s Centres and SureStart Initiatives.

4.04 In terms of physical health the RSS promoted improved access to sport and recreational facilities for general well being while focusing on retaining and developing major health care facilities where possible within existing main town centres. In relation to education, as well as ensuring social inclusion, the approach aimed to support educational institutions within the North West to attract and retain students and staff for the benefit of the regional economy. Good access to education and training is essential not only for the development of individuals but also in order to provide a more skilled workforce to meet demand.

4.05 As stated previously the RSS has now been abolished but the principles and overarching policy aims remain as relevant considerations for improving the health of people in Tameside and tackling inequalities.

5.00 Local Policy

‘Our Life in Tameside’ Health Improvement and Health Inequalities Strategy 2009 – 19

5.01 This strategy summarises the Borough’s approach to improving health and addressing local health inequalities, focussing on key areas for intervention. It embraces action across a wide range of organisations across the Tameside Strategic Partnership which contribute to tackling health inequalities, both through targeted mainstream activity, and specific activity in communities and groups of highest health need.

5.02 Key objectives, linked to the Sustainable Community Strategy are below:

• Ensure children, young people and their families achieve the best possible health to reach their maximum potential • Reduce income inequalities and poverty • Increase the potential for people to access work and community activities • Empower and support individuals to take action to improve their health and wellbeing • Improve the health of vulnerable people in particular those at risk of or with long term conditions and disabilities • To promote Tameside neighborhoods and towns as healthy and safe places to live, work and visit

5.03 The aims is that Tameside will be seen as a healthy safe place for all – from homes, to neighbourhoods to the Borough as a whole.

Tameside & Glossop Public Health Annual Report, 2010 5.04 The report sets out the challenges to the health of Tameside and Glossop's population and how they can be tackled effectively by:

• Improving the environment people live in and their ability to participate fully in society • Supporting them to make healthy lifestyle choices • Providing high quality services to prevent ill health, cure disease and care for those who need it.

5.05 The report highlights that an ageing population and finite resources are challenges that borough will continue to face. These challenges are likely to be compounded by radical organisational changes to the health service and the effect on our population from shifts in both the global and national economy.

5.06 The report recommends that partner organisations across Tameside should develop leadership for health and wellbeing, whilst recognising the key role played by high level advocacy in each partner organisation. This will help to promote good health and wellbeing and bring about change. Another key recommendation is to ensure that all aspects of the environment (physical, social and economic) supports healthy behaviour change including promoting physical activity and active transport through addressing road and community safety and healthy places initiatives.

6.00 Background and Overview

6.01 The World Health Organisation (WHO) defines health as:

“A state of complete physical, mental and social well-being and not merely the absence of disease or infirmity.”

6.02 Health is determined by numerous factors, many of which are beyond the scope and influence of spatial planning. Nevertheless a well-planned and successful borough will demonstrate certain characteristics that can lead to a healthier population.

6.03 Planning can support a healthy population by providing a supply of good quality homes, preventing and reducing pollution, good quality local services and facilities such as schools and hospitals, a high quality pedestrian and cycle friendly environment and the support of active recreation. However the relationship between successful planning, regeneration and relative health should also focus on the issue of socially and economically balanced and sustainable communities.

6.04 Concentrations of deprivation magnify problems associated with poverty and increase the likelihood of household members falling victim to crime, having lower educational attainment, suffering higher levels of mental and physical ill-health, suffering shortened life and so on. Planning and regeneration strategies, which seek to address such decline and provide sustainable communities can therefore positively affect relative health levels.

6.05 The Core Strategy can contribute to the delivery of a safe and healthy borough through inclusion of policies to help achieve positive health outcomes in new developments, regeneration schemes and traffic changes.

6.06 Some of the matters that have both health and planning dimensions concern:

• Concentrations of deprivation • The ability for residents to move safely around the borough • Safe and secure environments • Linking local communities with centres of employment, other communities and central facilities by public transport, on foot and by cycle • Addressing inequalities that disenfranchise many residents

• An age friendly approach to planning in the borough – where planning design as an underlying principle considers the issues of the ageing population so that all sections of our society will be able to access facilities • Accessible and inclusive health and social care services • High quality and accessible leisure, sport and recreation facilities • High quality and accessible parks, green and open space and recreation opportunities • Attractive and well-managed environments to encourage a sense of place and personal well-being • Reduction in harmful levels of air pollution and prevention of new pollution beyond acceptable limits • Jobs, services and facilities within a reasonable walking/cycling distance and a pedestrian and cycle friendly environment

6.07 Underpinning all of the above is the need to have a sustainable agenda, where communities have a sense of responsibility for their environment.

Health Inequalities 6.08 The relationship between socio-economic status and health is complex. Some inequalities are generated at, or even before birth, whilst others relate to risks and behaviours experienced throughout life. Recent research has demonstrated that it is possible for individuals to alleviate some of the risks that they may have accumulated in the past, for example, by giving up smoking or by taking exercise. However other factors are not lifestyle related and are determined through cyclical social, environmental and economic factors often beyond the control of an individual.

6.09 Much good work has already been undertaken by the Council and its partners to tackle the problems associated with deprivation and poor health. The Core Strategy will need to build upon this work and carry forward the momentum. As a result a holistic approach is required in order to continue to tackle the many facets of health inequalities experienced in Tameside.

6.10 The document 'Fair Society, Healthy Lives: Strategic Review of Inequalities in England Post 2010' by M. Marmot recommends six overarching policy objectives to address health inequalities:

1. Action is needed to reduce health inequalities before birth, thereby giving every child the best start in life. There needs to be increased expenditure focused proportionately across social gradient including early education and childcare.

2. Enable children, young people and adults to maximise their capabilities and have control over their lives;

• Education affects mental health as well as employment opportunities. However, families rather than schools have most influence on educational outcomes. There needs to be closer links between schools, the community and parents, with a school based workforce to build skills in working across school-home boundaries, increase quality of lifelong learning and the number of opportunities to access such learning.

3. Create fair employment and good work for all. Get people into work is good for mental health and physical health.

4. Ensure a healthy standard of living for all. There are gaps between the minimum income for healthy living and the level of state benefits payments many groups receive. To improve the situation the government needs to reduce financial disincentives for people to enter the workforce.

5. Create and develop healthy and sustainable places and communities. By building social capital in communities, one can give people greater control other their lives and policies which affect them- examples include greater green spaces, public transport etc. Social Capital describes the link between individuals and the links that bind and connect people within and between communities. Together these links provide social support critical to physical and mental well being.

6. Strengthen role and impact of ill-health prevention as chronic diseases follow the social gradient. Funding should be increased for prevention, with a focus on partnerships between primary care, local authorities and the third sector to deliver universal and targeted prevention interventions.

7.00 Improving Levels of Health

Keeping Healthy and Maintaining Levels of Health 7.01 Physical inactivity can have major health consequences. It can increase the incidence of a range of health issues such as obesity, cardiac problems, lack of mobility and their associated problems. It can also affect a person’s mental health in terms of lack of motivation or low esteem.

7.02 From a planning perspective, ensuring people have access to areas for recreation and sports and leisure facilities can help to reduce physical inactivity, and as a result improve wellbeing, and also provide opportunities for social interaction. In addition the planning system can enable people to build activity into their everyday lives by promoting safe walking and cycling routes and ensuring facilities and services are accessible by non-car modes. In looking at current open space provision Tameside fares quite well in having many accessible areas for recreational use, and a range of formal recreational provision (e.g. swimming pools, sports centres, bowling greens, open countryside). The provision of facilities and the areas with shortfall/surplus of provision are detailed in Topic Paper 9 - Green Infrastructure, Open Space and Biodiversity.

7.03 In addition it has been identified that green space is good for mental health and wellbeing, by allowing people to relax and unwind. The Core Strategy will include policies to try and address these anomalies and ensure equity of provision over the longer term.

Green Space 7.04 The provision of open space and play facilities is intrinsic to improving health and reducing levels of obesity through increasing levels of physical activity. Recent policy developments from the National Institute of Clinical Excellence (NICE) and the Department of Health in England recognise the impact of the built environment on people’s ability to make positive changes in their life to improve their health.

7.05 Access to quality green space, natural areas and outdoor playing facilities has a positive influence on physical and mental health through:

• Promotion of restoration, relaxation and reduction in stress • Provide respite from pollution and noise • Promotion of social interaction and community cohesion • Opportunities for volunteer and community engagement • Reducing the risk of social isolation • Increased levels of physical activity and fitness and contribute to reducing obesity • Activation of higher cognitive processes and healthy brain development. • Promotion of and improved healthy well-being through childhood and young adulthood • Contributing to improvements in respiratory health

7.06 Good design of these spaces encourages greater community ownership of the environment and reduces negative effects such as vandalism and the under-use of facilities.

Mental Health 7.07 Mental health problems are among the most common forms of ill-health and they can place a heavy burden on individuals, their families and the community at large. According to the Department of Health people in deprived areas on low incomes are much more likely to struggle with mental illness and require sustained and intensive support to break out of the downward spiral of poverty and poor health.

7.08 It is difficult to accurately assess the number of people affected by mental health problems due to a lack of robust data, however, there are proxy indicators that may be used, for example claims for mental and behavioural disorders.

7.09 The incidence of mental health problems amongst Incapacity Benefit claimants serves to illustrate that mental health difficulties are widespread and often lead to poor physical health outcomes, thereby contributing to widening the health inequalities gap. The average claimant of incapacity benefits for mental illness (number of claimants per thousand working age population) in England during 2007 was 27.4.

*Include Tameside/National figures or table for incapacity benefits for mental illness*

Ageing Population 7.10 In Tameside, the number of people over the age of 65 is forecast to increase by 13% in 2015, by 22% in 2020 and by 33% in 2025. The demand for services to older people will increase as the shape of the local and national population changes as a result of advances in medical science meaning more people are living longer.1

7.11 Health and social care policy is shifting investment patterns to earlier interventions that promote health, independence and wellbeing in order to prevent or delay the need for more costly intensive services. Demand for care and support services will rise but will not be matched by a similar commitment in public spending. There will be opportunities to offer an even wider and more varied menu of options for people to meet their social care and support needs; a supportive environment as well as wider, more universal access to information and advice will be key to this.

7.12 The partnership between Adult Social Care, Health and Housing will need to be strengthened; with provisions such as Telecare and equipment enabling more people to continue living at home

1 Projecting Older People Population Information System www.poppi.org.uk

Poor Diet 7.13 Poor diet can have major health consequences and increase the incidence of a range of health issues such as obesity and cardiac problems as well as being strongly related to social disadvantages such as poor education and a lack of skills. Over eating of foods with a high fat content and a lack of a balanced nutritional diet can give rise to serious illnesses such as high blood pressure, stroke, heart disease, obesity and diabetes.

7.14 Planning can intervene to ensure that there are opportunities for people to buy fresh healthy produce locally and restrict the opening of new facilities which offer fast/unhealthy food within a reasonable walking distance of schools. It can also ensure that there are opportunities for people to grow their own vegetables by providing greater access to allotments and community garden schemes.

Obesity 7.15 Overweight and obesity represent probably the most widespread threat to health and wellbeing in this country. A total of 23% of adults are obese (with a body mass index – BMI – of over 30); 61.3% are either overweight or obese (with a BMI of over 25). For children, 23.1% of 4–5-year-olds are overweight or obese, and 33.3% of 10–11-year-olds. The trend has been upward over the past decades, although nationally it appears to have now levelled off in children and there are signs of levelling off among younger adults. However, the absolute level of obesity is very high. England, along with the rest of the UK, ranks as one of the most obese nations in Europe and there are few signs yet of a sustained decline. We also continue to see clear health inequalities with regard to obesity.

7.16 It is the consequences of overweight and obesity that make these statistics so serious. Excess weight is a major risk factor for diseases such as type 2 diabetes, cancer and heart disease. Alongside the serious ill-health it provokes, it can reduce people’s prospects in life, affecting individuals’ ability to get and hold down work, their self-esteem and their underlying mental health. Excess weight costs the NHS more than £5bn each year. More broadly, it has a serious impact on economic development.

7.17 Large shifts towards less physical activity (increasing use of automated transport and technology in the home), and more passive leisure pursuits are significant contributing factors to the rising levels of obesity. The increasing incidence of child obesity in particular is a major concern. Various factors contribute to children being overweight, including:

• Not walking to and from school • Decreased participation in school sports activities • Decreased activity levels in teenagers and children • Poor diet • Inherited factors

7.18 In 2008/09 there were 11.6% of Reception aged children in Tameside who were obese. However this figure has fallen in 2009/10 to 10.5%, and again in 2010/11 to 9.4% bringing Tameside to the same as the national level.

% of Children in Reception who are Obese ENGLAND NORTH WEST Greater Manchester (Met County) Tameside TARGET 14.0%

12.0%

10.6%

10.0% 9.7%

8.0%

6.0%

4.0%

2.0%

0.0% 2008/09 2009/10 2010/11

7.19 The number of Children in Year 6 who are obese in Tameside has risen from 19.0% in 2008/09 to 19.7% in 2010/11.

% of Children in Year 6 who are Obese

ENGLAND NORTH WEST Greater Manchester (Met County) Tameside TARGET 21.0%

20.5%

20.0%

19.6% 19.5%

19.0%

18.6% 18.5%

18.0%

17.5%

17.0% 2008/09 2009/10 2010/11

Physical Activity 7.20 Physical activity is essential for improving health and wellbeing and an increase in activity levels will help prevent or manage conditions such as obesity and can encourage the older population to maintain independent lives. Physical activity helps people feel better through improvement in mood, reduced anxiety and enhanced self perceptions, whilst also helping to alleviate stress, and improve sleep.

7.21 Providing a range of sport, leisure and cultural facilities will aid in increasing the physical activity levels of the population of Tameside. The Core Strategy will have an intrinsic role in

achieving this in Tameside through identifying the quantity and quality of green space and play facilities throughout the borough. Housing, transport, and economic development also effect levels of physical activity and can be influenced through the Core Strategy, in- particular through the siting of such land uses. This will affect the mode of travel taken and the degree of car dependence within Tameside which in turn will influence the level of physical activity of residents.

7.22 The design and location of buildings can encourage physical activities. Not only does a good environment assist in promoting active lifestyles, but there is also evidence that aesthetics and other elements of design can promote health and encourage general wellbeing. The way in which an area is planned through its aesthetic appearance and location in relation to other services also has implications on levels of walking i.e. the general attractiveness of a place for movement on foot.

Alcohol 7.23 Tameside MBC have had a joint Alcohol Strategy since 2003. In 2008, Tameside & Glossop PCT and Tameside MBC commissioned an Alcohol Needs Assessment. The purpose of the Needs Assessment was to gain a more detailed shared understanding of the extent and nature of the needs of alcohol harms across the Tameside and to then use this understanding to inform future treatment planning and commissioning, alcohol strategy priorities and activities.

7.24 The three key areas of focus for the Needs Assessment are:

1. Effects on society at large 2. Effects on health and hospital admissions with a particular focus on alcohol-specific conditions 3. The likely impact of a range of interventions that could be delivered by partnerships and by primary care services.

7.25 The key findings from the Needs Assessment indicate that alcohol harm in Tameside is extensive. It is also an important factor adversely affecting overall quality of life which perpetuates inequalities. In addition Tameside is currently identified as being in the ‘top ten’ nationally for alcohol-related harm in relation to health.

7.26 There are many reasons for this level of overall alcohol related harm. One such reason identified by the Needs Assessment is that Tameside has increased levels of alcohol misuse among young people. The young people in the borough appear to drink more and earlier compared to the national averages. This links to the information about binge drinking in Tameside where synthetic estimates of alcohol consumption patterns produced by the Centre of Public Health show that approximately 22% of the Boroughs’ residents aged 16 years and over are binge drinkers. Ages 20-25 are the peak band for acute intoxication admissions with male admissions peaking at 20-24 and women peaking at 15- 19 and again at 40-44. In the 10-14 age band, females outnumber males.

7.27 When looking at acute intoxication admission rates to Tameside Hospital Accident and Emergency (A&E), broken down by Tameside ward boundary, a clear and definite correlation is evident with areas in the wards with highest levels of deprivation. In addition to this, the Assessment found that a massive burden on services is as a result of a relatively small number of individuals. Over a three year period thirty patients were admitted to Tameside A&E some seven hundred times.

7.28 In relation to crime and disorder, the Needs Assessment identified alcohol as a more frequent issue in crime reports than drugs. The links between alcohol and issues like violent crime and anti-social behaviour have been known for many years, but the Assessment also highlighted the links between alcohol and acquisitive crime, mental health problems and poor school performance.

7.29 Local perceptions about alcohol show that 85% of residents say they are concerned about the drunken behaviour of others, 72% are concerned about alcohol related crime, 77% of people are concerned about alcohol related litter and 86% of people are concerned about young people drinking in parks and on the street. However, if asked about their own alcohol consumption, only 13% said they were concerned about their own drinking behaviour.

7.30 These findings clearly demonstrate the need for tackling alcohol related harm. In order to achieve the greatest impact, the Assessment concluded that efforts should be targeted at the following groups:

• Those involved in binge drinking including young people and younger adults especially males • Under 15s including girls • Chronic drinkers at risk of developing alcohol related ill health • Those geographical areas with the highest deprivation scores • Children and families with multiple needs • Adults with multiple needs including those involved in the criminal justice system.

7.31 The Core Strategy will need to take these issues into consideration when forming new policies as well as building upon the successful work already being undertaken by the Council and its partners in tackling and reducing problems associated with alcohol.

Sexual Health 7.32 The Sexual Health strategy for the Borough is currently being updated. It is clear that certain groups of people living in Tameside experience poor sexual health such as high levels of certain Sexually Transmitted Infections (STIs) including Chlamydia; high teenage pregnancy rates and late diagnoses of HIV. These groups include, for example, men who have sex with men (MSM); teenagers and young adults, particularly those in care; certain minority ethnic groups, especially those of Black African origin; injecting drug users, sex workers and those in the criminal justice system. The refreshed strategy will set out how partners, including NHS Tameside and Glossop and Tameside MBC, will tackle these issues.

Teenage Pregnancy 7.33 Tackling the issue of Teenage Pregnancy in the Borough is driven by the Teenage Pregnancy Executive board, which in turn reports to the Children’s Trust. Both boards ensure the engagement of all of the key mainstream delivery partners who have a role in reducing teenage pregnancies, which include, health, education, social services, youth support services, and the voluntary sector.

7.34 Evidence and research suggests that a range of factors need to be in place to successfully reduce teenage pregnancy rates. All areas are expected to implement these factors, which are:

• Engagement of delivery partners, including health, education, social services, youth support services and the voluntary sector • Effective sexual health advice service - clinics offering free confidential advice, information and contraceptive services in places accessible to people e.g. youth centres, schools. • Prioritisation of sex and relationship education - this is a key priority in the borough. • Involving partner organisations in sex education - this will ensure that all staff in contact with young people are able to signpost young people to appropriate services.

7.35 Research tells us that teenage parents are much more likely to be living in poverty by the time they are 30 if they are not supported to return to work or learning. It is important that all teenage parents have access to support services which include family support, parenting skills and access to education, training and employment. Therefore it is important that teenage parents are supported to return to work, education or training.

Climate Change Considerations 7.36 How we prepare for climate change and reduce further greenhouse gas emissions is a major challenge. It requires changes to almost everything we do and must, therefore, be considered from many different perspectives. The issues that are particularly important for health are set out below:

• Higher levels of mortality related to summer heat are expected. • Possibility of injuries from weather-related events. • Higher winter temperatures would be likely to lead to a reduction in winter related mortality and illnesses such as colds and flu. • Higher incidences of food poisoning due to warmer summer temperatures. • Hygiene impacts of water shortages. • Health problems related to poorer air quality, particularly along major roads. • Increased incidence of skin cancers and cataracts due to hotter summers. • Increased incidence and geographical range of insect borne diseases. • Financial impact of greater demand for health services.

7.37 The issues surrounding climate change are complex and multifaceted but the Core Strategy will seek to address the critical issues through various policy initiatives relating to energy consumption, housing, and pollution measures. Topic Paper 8 - Climate Change and Decentralised Energy goes into more detail in relation to new technologies and strategies that can be adopted as Tameside moves towards a low carbon economy.

Air Quality and Pollution 7.38 Exposure to poor air quality or pollution can have a serious detrimental effect on a person’s health and the environment, with certain groups at greater risk. Tameside has an Air Quality Management Area along the strategic highway network including M60 and M67 Motorways and key routes such as the A57 and A628. Within the management area the quality of the air is monitored to check the number of exceedences for air quality on a given number of days in a year.

7.39 Exposure to noise can also affect a person’s health and well being. The European Council Directive relating to the assessment and management of environmental noise 2002/49/ERC (commonly known as the European Noise Directive) requires member states to produce strategic noise maps for roads, rail and agglomerations and then, using these maps, produce action plans to manage noise issues.

7.40 Planning can intervene to ensure that new development is planned taking into account noise levels and avoid allocating land for noisy uses in proximity to sensitive uses (and vice versa). It can also seek to preserve quiet areas identified by the European Noise Directive.

7.41 Pollution is a major implication on the health of Tameside’s population. As urban areas tend to have a greater exposure to higher levels of noise and air pollution, the effect on the population’s health can be negative and it is important to note some of the health implications.

• Poorly designed transport solutions can have immediate negative effects on health, through air and noise pollution, as well as making a longer-term contribution to climate change. • Many chemicals are injurious to health. Air pollution has short and long-term damaging effects on health and can worsen existing lung and heart diseases. • Resource extraction and construction generates traffic, noise, vibration, fumes and dust, all of which if not properly managed can damage the health of the surrounding population. • People spend about 90 percent of their time indoors, and exposure to pollutants can be greater indoors than outdoors. • Good ventilation and non-polluting construction methods can help to minimise these risks. • The effects of flooding can also be detrimental to health through water borne infections and contributing to psychological problems.

8.00 Tackling Inequalities

Deprivation 8.01 Deprivation levels in Tameside are measured using the Indices of Multiple Deprivation (IMD). This is formed from the analysis of 38 different indicators covering specific aspects or dimensions of deprivation. The indicators can be broadly grouped together to make seven domains of deprivation, which include:

• Income • Employment • Health and disability • Education, skills and training • Barriers to housing and services • Living environment • Crime

8.02 In the Indices of Multiple Deprivation 2010 (IMD 2010), Tameside is ranked as the 42nd most deprived area out of 326 local authorities in England. In 2007 Tameside was ranked as the 56th most deprived area in England illustrating that the level of deprivation in the borough has increased. Referring back further it is also important to note that deprivation levels in 2010 are also worse than in 2004, indicating a continuing upward trend in deprivation levels.

Life Expectancy 8.03 There is a strong association with deprivation with more affluent local authorities experiencing better health than the England average, and areas with high levels of deprivation, such as Tameside, experiencing worse health than the average for England (Health Profile 2010: North West. Association of Public Health Observatories).

8.04 In addition, local inequalities exist within Tameside. As a result, men in the least deprived areas of Tameside can expect to live almost seven years longer than men in the most deprived areas; for women the difference is almost six years.

8.05 Understanding adult health issues is essential when considering child health, as evidence shows that the health behaviour of children follows the health patterns of the adults round about them. In addition, a mother’s physical and mental health is one of the key drivers of childhood life chances (Field, F, 2010. The Foundation years: preventing poor children becoming poor adults).

Child Poverty 8.06 The latest estimate (as of September 2010) using local Housing Benefit and Council Tax Benefit (BCTB) data shows that 27% of all children in Tameside are living in poverty equating to around 12,722 or more than 1 in 4 children. These households may have very low or no income. The last national figures, from 2008, indicated that there were 23.5% of children living in poverty in Tameside compared to 20.9% in England.

More than 1 in 4 children live in poverty in Tameside

8.07 The latest finalised data for Tax Credits indicates that in 2008 there were a further 14,000 children (again another 27%) living in households claiming working and child tax credits and a further 10,800 children living in households claiming the family element of child tax credits (around 20% - with incomes over £20,000 cf Minimum Income Standard). We know that nationally, the majority of children living in poverty live in households where someone is working. In Tameside, the proportion of children living in in-work poverty is even higher due to the prevalence of low wage and insecure employment. This is demonstrated in the

chart below, showing the percentage of Super Output Areas (SOA's) in Tameside with higher in-work than out of work poverty.

8.08 The Child Poverty Needs Assessment for Tameside identified the links between poverty and education, poverty and health, poverty and the local economy and poverty and financial inclusion.

Education and Poverty 8.09 Poverty predicts educational outcomes in the UK more strongly than in any other nation in the Organisation for Economic Co-operation and Development (OECD). According to the End Child Poverty Campaign, by the time they start school, many poor children are already lagging behind their peers, often setting the stage for a downward spiral of unequal chances and diminishing returns that will play out for the rest of their lives. This restricts social mobility and feeds intergenerational poverty. Educational attainment at school has a significant effect on earnings in later life. A lack of qualifications and skills makes it much harder to obtain secure, well-paid employment. A good education is, therefore, critical to breaking this cycle of poverty.

8.10 Poverty affects a child’s ability to succeed at school in many ways. School trips, art and music supplies, private tuition, home access to IT and the internet are advantages that are often denied to children growing up in poverty. At Secondary school children living in income deprived households are 3 times as likely to be persistently absent from school as their more affluent peers. The Joseph Rowntree Foundation has compiled a report looking at the effect aspirations, attitudes and behaviour of parents and children have on a child’s attainment. They found that this plays an important part in explaining the gap between richer and poorer children's educational attainment, for example a young person is more likely to do well in their GCSEs if their parents think it likely that the young person will go on to higher education.

8.11 Schools have a major role to play in tackling many of the issues raised here. Relevant policies are likely to include how funds are allocated towards pupils from the poorest backgrounds, and the direct teaching support provided to children when they start to fall behind.

Skills 8.12 The fundamental issue for Tameside appears to be the skill levels of the workforce. As the UK becomes more reliant on knowledge driven industries for wealth creation, so the employment outcomes for Tameside residents become more limited. Tameside records the lowest level of NVQ4 equivalent or higher attainment for residents in Greater Manchester and the highest level of residents achieving no recognised qualification. In turn this has led to the lowest levels of employment in professional or management grade employment and the lowest average wages in Greater Manchester (ONS Annual Population Survey).

8.13 Workforce skills can take more than a generation to change and is structurally difficult to address with the ability to shift performance linked to attitudes and aspiration as well as the economic pressures to gain work before potential qualifications are achieved.

8.14 Whilst employment outcomes may be limited by skills, at present the relatively low skills attainment has not resulted in high levels of unemployment. In fact unemployment rates in Tameside have been below the averages for England. This does mask some structural issues relating to the total benefit claimant rate and the period of time individuals may be reliant on benefits in some difficult to reach communities (ONS Claimant Count data).

8.15 The result of the overall situation is that Tameside is an area where communities are more skewed towards deprivation than affluence. When the indices of multiple deprivation are considered there are very few lower level super output areas (LSOAs) in Tameside positioned within the rankings for least deprived in England as a whole. Conversely high levels of deprivation are found in individual LSOAs across Tameside but particularly in Ashton, Hyde and Longdendale & Hattersley. On average health is the measurement where deprivation is relatively most severe across Tameside (DCLG Indices of Multiple Deprivation).

Unemployment and Work 8.16 Tameside is an area which has not yet adjusted to many of the structural shifts in the UK economy. The borough has a resident population which has achieved lower skills, lower grade employment and consequently lower levels of wages than the average for the UK or Greater Manchester (ONS Annual Population Survey).

8.17 Despite the relatively poor labour market outcomes for Tameside residents however, the unemployment rate is not as high as many areas of Greater Manchester (Claimant Count data - National Online Manpower Information System (NOMIS)) but this may demonstrate more about the resilience of residents than the economy as a whole. Employment in Tameside declined during the UK economic expansionary years of 2004 to 2008 (Annual Business Inquiry) and out-commuting from Tameside is relatively high (ONS Annual Population Survey).

8.18 Whilst Tameside faces some economic difficulties, from the perspective of location, the borough does have a number of advantages. The proximity and linkages to the growing economy of Manchester and the national and international motorway, rail and air links provide Tameside with a position many other local authorities would envy. The Core Strategy will need to take full advantage of Tameside's geographical benefits.

8.19 Within Tameside, unlike other authorities across Greater Manchester, there is no single economic focus for the area. This lack of focus may have been detrimental to the economic performance of the area. A central focus can lead to more efficient concentrated

provision of public and business services, creating in turn, a greater town centre vitality and on towards a clearer spiral of service sector employment generation. For further information on these issues there is a more detailed discussion available in Topic Paper 4 - Town Centres and Retail.

8.20 Ashton is the District Assembly Area (DAA) with the highest number of residents and the highest concentration of employment but Stalybridge; Hyde; and Longdendale and Hattersley retain a structure where their contribution of employment and residents to the Borough is balanced. Dukinfield is an area which may be considered more focused on employment whilst the areas of Droylsden; Mossley and Stalybridge North; and Denton and Audenshaw are skewed towards residential (Annual Business Inquiry and ONS Mid Year Population Estimates).

8.21 In the recent past, employment has declined across Tameside. This decline has not been uniform and it was most severe in Hyde and Longdendale & Hattersley (Annual Business Inquiry).

8.22 The decline has been caused by a structural shift with more than a third of manufacturing jobs lost in the decade 1998-2008. The fastest growth in employment during the same period was in ‘public administration, education and health’ and this activity represents the most important activity for employment in Tameside. In the decade 1998-2008 almost 4,000 jobs are estimated to have moved from the public to the private sector. Of course, ‘public administration, education and health’ is also an area where jobs are now considered to be at risk as a result of the public sector expenditure cuts.

8.23 The sectors recording the highest proportions of employment when compared to the average for England remain skewed towards manufacturing. There are examples of highly regarded value adding manufacturing operations within Tameside such as Scapa Group, The Hyde Group, Stamford Group and Total Petrochemicals but in general, even within manufacturing alone, those sectors considered to be knowledge intensive are under- represented (NW Business Insider top 500 companies and Annual Business Inquiry).

Debt and High-Cost Credit 8.24 Pressures of expenditure are as important as income: research by the Resolution Foundation in 2009, showed that low-income households, with an average of £15,800 at their disposal, are walking an increasingly precarious financial tightrope. It has found that 24% of low-wage households spend more than a quarter of their monthly income on debt, which is twice the number from four years ago. The study shows nearly a third of low- income households have high loan-to-value mortgages and are in negative equity, making them vulnerable to homelessness if they lose their job.

8.25 Research has also shown how families living in poverty can pay much more for access to finance and other essential goods and services. “The Poverty Premium” by Save the Children and the Family Welfare Association, shows that low income families can pay around:

• 150% more for basic goods such as an oven bought on credit • 10% more on gas bills paid through pre-payment meters rather than by direct debit. • Other areas where poor families end up paying more is for electricity bills (8% more) and for home and car insurance in deprived areas.

8.26 In Tameside, the prevalence of high-cost credit provision is of particular concern. The Council’s Welfare Right Service have set out the issues, and impact this can have on people’s financial and wider wellbeing, in the Strategy for Developing Personal Resilience: Shouldering the Burden. The document sets out the borough's vision to enable residents to have the skills and knowledge to manage their money well and become more prosperous. This includes giving residents access to a range of appropriate and affordable financial products and advice services that reduce the level of over-indebtness, develop personal resilience, maximise incomes, and reduce the risk of homelessness and the incidence of fuel poverty.

8.27 In 2010 Tameside was ranked worst in Greater Manchester for mortgage possession summonses issued leading to orders being made by the county court. 385 orders were made in Tameside which represents 4.18 per thousand households. To put this into a regional context, only Blackpool (4.37), Blackburn (4.26) and Pendle (4.19) ranked lower in the North West.

8.28 Recent research suggests that there is evidence of strong association between both financial capability and psychological well being, and between changes in financial capability and changes in psychological wellbeing. Higher financial incapability is associated with higher mental stress, lower reported life satisfaction, and health problems associated with anxiety or depression. Government research also suggests that low income and debt are associated with higher rates of mental illness. Studies suggest that the effect of low income on mental health may largely be explained by the effect of debt.

Access to Services 8.29 The 2003 British Medical Association publication Housing and Health: building for the future states:

8.30 “Poor provision of services is an aspect of neighbourhoods that is likely to influence health and that has been taken into account in many health initiatives. Important issues are the availability of neighbourhood health services, shops selling a range of cheap healthy food, and affordable, easily accessible facilities for physical exercise. These considerations are particularly important for deprived communities whose residents may not be able to afford to travel elsewhere. Easy access to user-friendly services may improve the health of a neighbourhood by reducing stress and increasing the sense of empowerment and involvement.”

8.31 Many of these factors may be influenced by planning policy via the Core Strategy. National planning guidance aims to ensure that new development is sustainably located offering access to local services and facilities and ensuring that development is accessible by public transport, with appropriate walking and cycling routes to encourage active travel. All of these things help to ensure that communities remain vibrant and allow their population to be more active by being able to walk or cycle to local facilities. Sustainable development will be key factor in the Core Strategy ensuring access to facilities and transport locally and this should benefit health and wellbeing.

Better Housing 8.32 Housing condition can have a major impact on a person’s health and wellbeing. For example those living in a poorly insulated or damp house, or without central heating or with poor facilities may be more prone (especially in the winter months) to a range of respiratory illness, coughs, colds and viral infections. These issues are more likely to affect people who spend long periods of time at home such as the elderly or those with disabilities.

8.33 Inappropriate housing in terms of the type or location can also affect a person’s health. Housing provision needs to be suitable and adaptable to cater for the varied needs of households in Tameside. Whether it is concerning homes for families with young children or accommodation for the elderly and disabled the housing provision should provide a safe and comfortable environment, appropriate to an individual or individual's needs. Focus also needs to be placed on the surrounding area ensuring that family homes are close to schools and that vulnerable groups are not isolated from services or cut off from the wider community.

8.34 Planning can intervene by ensuring the provision of a range of housing types and sizes to meet the needs of all sectors and ages of the community (including affordable housing) which is built to high quality sustainability standards. It can also require that new development takes into account secure by design principles.

Continuing to tackle Crime 8.35 Like all areas Tameside suffers from the negative effects of crime. Seeking to tackle these problems through policies promoted and supported by the Core Strategy will improve the quality of life for the people of Tameside, particularly those in the most disadvantaged neighbourhoods. Policies which aim to reduce crime, reduce the fear of crime and anti- social behaviour and reduce the harm caused by illegal drugs will need to be considered.

9.00 Summary

9.01 Income and employment have a huge influence on the health of individuals, and they in turn can influence every other factor which impacts on a person’s health. Therefore, to make any major improvement in the health of local people, there needs to be a focus on improving the wider determinants of health such as living and working environments, rather than purely focussing on improving individual lifestyle factors.

9.02 To reduce health inequalities, the barriers to health encountered within the local community, and by these vulnerable groups in particular, need to be tackled, reduced and removed.

10.00 Cross Cutting Themes

10.01 Issues surrounding Health and Inequalities inter-connect with a number of other topic areas including:

• Housing - ensuring the provision of a range of housing types and sizes to meet the needs of all sectors and ages of the community.

• Transport and Infrastructure - ensure that new development is sustainably located offering access to local services and facilities and ensuring that development is accessible by public transport, with appropriate walking and cycling routes to encourage active travel

• The Economy and Employment - retaining and attracting a range of employers, whilst moving towards a more flexible and responsive economy and improving the skill levels of the workforce.

• Town Centres and Retail - a central focus can lead to more efficient concentrated provision of public and business services, creating in turn, a greater town centre vitality and on towards a clearer spiral of service sector employment generation. This will lead to greater opportunities for employment and education and help to reduce deprivation.

• Climate Change and Decentralised Energy - re-thinking how we produce and consume our energy needs. Reduction in Carbon emissions and preventing the effects of climate change will improve air quality and lesson the risk of water shortages.

• Green Infrastructure, Open Space and Biodiversity - ensuring that there are accessible areas for recreational use and a range of formal recreational provision will be intrinsic to improving health and wellbeing of Tameside's residents as well as reducing levels of obesity through increased physical activity.

Local Development Framework – Core Strategy Issues and Options Discussion Paper

Topic Paper 6 – Historic Environment 1.0 Background The historic environment is a finite and fragile resource. Sound management of Tameside’s built heritage, historic landscape and archaeological assets should be fundamental to the objectives set out in the Core Strategy, in recognition that heritage assets are irreplaceable. The historic environment will need to be considered as a cross- cutting theme touching every policy area. The key national, regional and local policies and guidance relevant to the historic environment are:

• Planning Policy Statement 5: Planning for the Historic Environment (PPS5) 2010 • PPS5 Planning for the Historic Environment: Historic Environment Planning Practice Guide 2010 • Government Vision Statement on the Historic Environment 2010 • Planning Policy Statement 1: Delivering Sustainable Development (PPS1) 2005 • World Class Places (Department for Communities and Local Government 2009) • Conservation Principles, Policies and Guidance for the Sustainable Management of the Historic Environment (English Heritage 2008) • Constructive Conservation in Practice (English Heritage 2008) • Heritage Works: The Use of Historic Buildings in Regeneration: A toolkit of good practice (English Heritage 2006) • The Regional Spatial Strategy for North West England (2008) • Greater Manchester Urban Historic Landscape Characterisation 2011 • Heritage Counts (published annually by English Heritage) • Heritage at Risk (published annually by English Heritage) • Tameside Sustainable Community Strategy 2009-2019 • Tameside Unitary Development Plan (UDP) 2004 • Tameside Residential Design Supplementary Planning Document (2010) • Tameside Conservation Area Appraisals and Management Proposals • Tameside Buildings at Risk Strategy (Draft) • History and Archaeology of Tameside series, published by the Council with Greater Manchester Archaeological Unit (GMAU) • Historic Environment Record, held by GMAU

1.01 At the time of writing, the draft National Planning Policy Framework has been released for consultation. The final document is expected to replace and condense all existing Planning Policy Statements.

2.00 Policy Context

National Policy 2.01 PPS5: Planning for the Historic Environment PPS5 replaced PPG 15 (Planning and the Historic Environment) and PPG 16 (Archaeology and Planning) in March 2010. The overarching aim of PPS5 is ‘that the historic environment and its heritage assets should be conserved and enjoyed for the quality of life they bring to this and future generations’. PPS5 establishes a holistic approach in which all parts of the historic environment with historic, archaeological, architectural or artistic interest, whether formally designated or not, are termed ‘heritage assets’. The PPS promotes the application of common policy principles to all planning decisions relating to heritage assets whether they are buildings, monuments, sites or landscapes, with the emphasis on understanding the significance of the asset and assessing the impact of development on that significance.

2.02 PPS5 Planning for the Historic Environment: Historic Environment Planning Practice Guide (2010) Supporting PPS5, the guidance provides advice, ideas and examples to help interpret and implement the policies. It highlights further sources of information to assist local planning authorities, developers and communities in managing the historic environment.

2.03 PPS1 Delivering Sustainable Development (2005) The importance of the historic environment is acknowledged in PPS1 Sustainable Communities. The role of planning as an important instrument for protecting and enhancing the environment and preserving the built and natural environment is recognised along with the need to reconcile these objectives with economic growth. The PPS sets out the Government’s expectation that climate change considerations are to be integrated into all aspects of spatial planning and not considered separately.

One of the key principles in PPS1 is the promotion of high quality inclusive design in the layout of new developments and individual buildings in terms of function and impact, not just for the short term but over the lifetime of the development. Design which fails to take the opportunities available to improve the character and quality of an area should not be accepted. The PPS states that good design should contribute positively to making places better for people, supporting and enabling the development of attractive, high quality, sustainable places in which people want to live, work and relax.

2.04 The National Planning Policy Framework (NPPF) The consultation draft of the NPPF, released in July 2011, incorporates most of the policies in PPS5 into a dedicated section on the historic environment. A few of the policies, i.e. HE1 (Heritage Assets and Climate Change), HE2 (Evidence Base for Plan-making) and HE4 (Permitted Development and Article 4 Directions), appear in other sections of the document, and one, HE5 (Monitoring Indicators), has been omitted entirely. The emphasis in the draft document continues to be on understanding the significance of heritage assets and the impact of proposed development on that significance.

The policies are streamlined and condensed versions of those in PPS5. Some of the detail included in PPS5 is likely to be transferred to a guidance document to support the NPPF. The Historic Environment section of the draft NPPF sets out the Government’s objectives; “to conserve heritage assets in a manner appropriate to their significance”; and “to

contribute to our knowledge and understanding of our past by capturing evidence from the historic environment and making this publicly available, particularly where a heritage asset is to be lost”. The objectives are intended to ensure that “the historic environment and its heritage assets should be conserved and enjoyed for the quality of life they bring to this and future generations”.

A number of criticisms have been levelled at the draft. There is some concern that the NPPF falls short of existing levels of protection for the historic environment with its strong presumption in favour of sustainable development. The document appears to alter the balance of justification needed where a proposal involves harm to heritage assets, particularly where the impact on significance is minor or moderately harmful (the draft is inconsistent in this respect, stating in the Historic Environment section that public benefits have to outweigh the harm of the development, whereas in paragraph 14 the harm has to outweigh the benefits). The inference is that no or little justification is required for such changes which, cumulatively, could have serious negative effects on heritage assets and their settings. The lack of a clear definition of sustainable development is also seen as a weakness, as is the lack of clarity on the status of locally important non-designated buildings.

Consultation on the draft NPPF closed on 17 October 2011. Comments were submitted to the Government on the draft document by the AGMA on behalf of the Greater Manchester Authorities.

3.00 Regional Policy

3.01 The North West of England Plan Regional Spatial Strategy to 2021 (2008) The North West of England Plan is due to be abolished under powers in the Localism Act (November 2011). However, at the time of writing the RSS for the North West is still a legal part of Tameside’s Development Plan and is therefore a material consideration.

The Regional Spatial Strategy (RSS) provides a framework for development and investment in the North West region over the next 15-20 years. It establishes a broad vision for the region and its sub-regions, identifies priorities for growth and regeneration, and presents policies to achieve sustainable development. Of particular relevance are:

• Policy DP 7 Promote Environmental Quality: Environmental quality should be protected and enhanced, understanding and respecting the character and distinctiveness of places and landscapes. The protection of the historic environment and good quality design should be promoted in new development, ensuring that it respects its setting.

• Policy EM 1 Integrating Enhancement and Protection of the Regions Environmental Assets: The Region’s environmental assets should be identified, protected, enhanced and managed. Plans, strategies, proposals and schemes should deliver an integrated approach to conserving and enhancing the landscape, natural environment, historic environment and woodlands of the region. Plans and strategies should define spatial objectives and priorities for conservation, restoration and enhancement as appropriate, and provide area-based guidelines to direct decisions and target resources. Priority should be given to conserving and enhancing areas, sites, features and species of international, national, regional and local landscape, natural environment and historic environment importance.

• Policy EM 1 (C) Historic Environment: Plans, strategies, proposals and schemes should protect, conserve and enhance the historic environment, supporting conservation-led regeneration in areas rich in historic interest. In particular, the regeneration potential of Pennine textile mill-town heritage that exists in east Lancashire and Greater Manchester, the textile mill-town heritage of East Cheshire and the traditional architecture of rural villages of Cumbria, Cheshire and Lancashire should be recognised.

3.02 Greater Manchester Urban Historic Landscape Characterisation The Greater Manchester Urban Historic Landscape Characterisation Project (GMUHLC) is being undertaken by Greater Manchester Archaeological Unit. It is funded primarily by English Heritage with contributions from the Association of Greater Manchester Authorities (AGMA).

Characterisation has developed as a way of understanding the processes that have created current landscapes, so that sustainable levels for change can be set which will allow character to be maintained. HLC projects give broad-brush overviews of complex aspects of the historic environment. They provide a neutral and descriptive general understanding of the cultural and historical aspects of landscapes, and thus provide both a context in which other information can be considered and a framework for decision-making. Projects can be used to inform a variety of planning, conservation and management-led initiatives and strategies. Their objective is to promote better understanding and management of the historic landscape resource, to facilitate the management of continued change within it, and to establish an integrated approach to its sustainable management in partnership with relevant organisations. Information derived from HLC studies can be used to identify areas of archaeological potential or surviving historic character which would merit more detailed investigation and, possibly, formal designation.

The HLC for Tameside is now complete and includes a full report detailing the results and providing management guidance tables. The HLC will form a vital part of the evidence base for the Core Strategy, identifying areas of historic or archaeological potential, highlighting vulnerable asset types and suggesting areas for further research and possible designation. It is intended that the results will be used to assist in the appraisal of potential conservation areas, to support the preparation of a Local List for the borough, and to inform the production of supplementary planning documents and other studies.

4.0 Context and Characteristics

4.01 Spatial characteristics and historical development1 Tameside spans an area of flat lowlands in the west to highlands in the east where the Pennines rise. The underlying geology is that of Carboniferous sandstones, yielding the Millstone Grit so important to the local building tradition. The coal measures run north- south through the centre of the borough. Waterways include the rivers Medlock and

1 Sources include: Nevell, M D, 1992, Tameside Before 1066. Tameside MBC with Greater Manchester Archaeological Unit. Nevell, M D, 1991, Tameside 1066-1700. Tameside MBC with Greater Manchester Archaeological Unit. Nevell, M D, 1993, Tameside 1700-1930. Tameside MBC with Greater Manchester Archaeological Unit. Burke, T and Nevell, M 1996, Buildings of Tameside. Tameside MBC with Greater Manchester Archaeological Unit. Nevell, M and Walker, J, 1998, Lands and Lordships in Tameside. Tameside MBC with Greater Manchester Archaeological Unit.

Etherow to the western and eastern boundaries of the borough, and the River Tame which follows a north-south route through the centre. The moorlands and peat bogs once covered significant areas of Tameside, providing valuable sources of common grazing and fuel to inhabitants from the Mesolithic period onwards.

4.02 Little built evidence remains of the early human occupation of the borough, although the Bronze Age Cairn on Hollingworth Hall Moor is a notable survival and is one of Tameside’s four scheduled ancient monuments.

4.03 The strategic value of the hilly terrain in the north and east of the borough is reflected in the existence of Buckton Castle. Possibly built for the second Earl of Chester, recent excavations have revealed substantial 12th century defences indicating a building at the top end of the social hierarchy. Cruck framed buildings, also an indicator of a high-status settlement, represent the earliest vernacular building tradition to survive in the North West. Tameside has good examples of cruck-framed buildings in Apethorn Farm, Newton Hall and Taunton Hall. Later elite residences include Stayley Hall and Hyde Hall. Despite their survival, a number of these highly graded buildings are at risk due to neglect and decay.

4.04 The population of post-conquest Tameside was small in number and largely confined to isolated settlements in the river valleys of the Tame and Etherow. Many of Tameside’s towns expanded from medieval settlements. Ashton-under-Lyne owes much of its character to the Georgian planned gridiron street-pattern overlying the medieval town. The village of Mottram displays a more organic evolution, with development spreading out from the church along established thoroughfares. The appearance of this village owes much to the use of locally available building materials such as the millstone grit, which is a unifying feature in many settlements on the Pennine fringe.

4.05 Urbanisation is especially marked towards the west of the borough, and impressive 19th century urban landscapes remain well preserved in many of Tameside’s towns. The eastern side of the borough escaped the same pressure for expansion and remains predominantly rural as a result of its topography and infrastructure.

4.06 Agriculture dominated the medieval landscape of the borough. A pattern of agricultural expansion in the 12th and 13th centuries has left traces in the modern landscape, with field boundaries created through assarting (clearance of woodland) still visible in highland areas. The low-lying land in the west of the borough supported a mixed farming economy which is evident in the survival of a range of farmhouses and agricultural buildings across the borough, from the 17th century Audenshaw Lodge Barn to the fine complex of 19th century estate farm outbuildings at Hyde Hall, Denton. East of the valley-side manors of Hyde, Newton and Dukinfield, pastoral farming dominated.

4.07 Industrialisation has shaped the historic environment of the borough and defines much of the built heritage that remains. Traces of early industry survive in the 17th century glassworks at Haughton Green. Coal extraction fuelled the Industrial Revolution in Tameside, supporting industries such as ironworking at Park Bridge and engineering in Ashton, Dukinfield and Hyde.

4.08 Most important to the local economy was the production and processing of textiles. Woollen production can be traced back to the early fifteenth century in Ashton, while evidence of an early domestic-based industry can be seen in the weavers’ cottages in the upland areas of Stalybridge and Mossley, with their characteristic multi-light mullioned windows.

4.09 The textile industry in the lowland areas was based on linen production during the 18th century, with its focus in Ashton-under-Lyne where a well-established domestic industry already existed. Factory-based production became increasingly dominant, with cotton manufacture taking over from linen by the end of the 18th century. Linking the centres of production were the network of canals and railways that crossed the borough.

4.10 The decline of the industry throughout the 20th century saw many of the mills fall out of use. A number of good examples survive, particularly in the river valleys and along the canals. The heroic scale of buildings such as Cavendish Mill in Ashton or Woodend Mills in Mossley reminds us of the importance of textile production to the economy and development of Tameside. In contrast there are few physical remains of the hatting industry, once significant in Denton and parts of Hyde. Surviving elements of this industry are therefore particularly important to the borough’s heritage.

4.11 Tameside’s industrial expansion and the wealth it generated resulted in the expression of civic pride through its buildings. Many community and public facilities such as libraries, swimming baths, institutes and public parks were built with the support of philanthropic industrialists. Mill-owners constructed large, comfortable residences for themselves as well as more modest housing for their workers. The 20th century saw a distinct move away from dense terraced streets with the construction of larger properties set back from the highway along curving streets and large areas of planned post-war housing. The terraced housing and suburban domestic architecture of the 19th and 20th centuries survives well, creating the distinctive urban grain that exists across the borough today.

5.00 Baseline Information

5.01 Key Heritage Assets The diversity of the built environment that survives today serves as a unique and irreplaceable record of Tameside’s development over time. Heritage Assets are protected through the relevant legislative framework for their statutory designation, with international, national and local policy recommending measures for their preservation, management and enhancement. The following table summarises Heritage Asset figures for Tameside correct at May 2011:

Heritage Asset Number Listed Buildings2 314 Grade I 2 Grade II* 20 Grade II 292 Conservation Areas 9 Registered Historic Parks and Gardens3 1 (Grade II) Scheduled Monuments4 4 Heritage Assets at Risk5 9 Buildings at Risk 5 Conservation Areas at Risk 4

2 The National Heritage List for England http://list.english-heritage.org.uk/default.aspx May 2011 3 The National Heritage List for England http://list.english-heritage.org.uk/default.aspx May 2011 4 The National Heritage List for England http://list.english-heritage.org.uk/default.aspx May 2011 5 Heritage At Risk Register 2010 http://risk.english-heritage.org.uk/2010.aspx May 2011. Figures do not include Grade II listed buildings.

Listed Buildings 5.02 Listed buildings are buildings and structures which have been recognised as having special architectural or historic interest. Listing brings these structures under the consideration of the planning system so that thought can be given to their future. English Heritage determines which structures are worthy of listing on behalf of the Secretary of State. Three grades can be assigned: Grade I, II* or II. Grade I structures, the top 2.5% of all listed buildings, are of exceptional interest, sometimes considered to be internationally important. Grade II* buildings represent the 5.5% of listings which are of more than special interest. 92% of the national stock of listed buildings is Grade II. The figures for Tameside broadly reflect these percentages. When a building is listed is it listed in its entirety, including all external and internal features. Many structures in the curtilage of the listed building are also protected, for instance barns associated with a farmhouse. The importance of a listed building also extends to its wider setting.

Conservation Areas 5.03 Conservation areas are places of architectural or historic interest, the character and appearance of which it is desirable to preserve or enhance. Designation is the responsibility of the local planning authority, which has a duty to identify areas which merit such protection. Conservation Area designation brings with it further controls over demolition within the area; specific works to trees, and an expectation that new development will respond to the historic context by preserving or enhancing its significance. Areas have been designated for different reasons: some have associations with our industrial past e.g. Portland Basin and Carrbrook; others are attractive market towns e.g. Mottram, and one – Fairfield -represents two distinct phases of planned development and still displays remarkable historic integrity. Tameside has nine conservation areas – fewer than any of the other Greater Manchester authorities. No conservation areas have been designated since 1992 despite a number of areas being suggested for consideration over the last 20 years. Without support for a borough-wide programme of designation, there is a danger that large parts of the borough’s historic environment will remain unprotected and areas currently meriting conservation area status will be degraded through unchecked alteration.

Scheduled Monuments 5.04 Archaeological sites, monuments, structures or buried remains of national importance are registered as Scheduled Ancient Monuments and have statutory protection under the Ancient Monuments and Archaeological Areas Act 1979. Works to scheduled monuments require the prior written permission of the Secretary of State. There are 4 Scheduled Monuments in Tameside: the Bronze Age Cairn on Hollingworth Hall Moor, the section of Nico Ditch on Denton Golf Course, Buckton Castle, and the Post-medieval glassworks at Haughton Green.

Registered Parks and Gardens 5.05 The Register of Parks and Gardens includes historic designed landscapes (parks, gardens, cemeteries and institutional landscapes) having a level of significance worthy of protection. The grading system for registered historic parks and gardens is equivalent to that of listed buildings with Grade I, II* and II categories depending on the level of significance. Factors such as age, its rarity as an example of historic landscape design and the quality of the surviving landscape are taken into account.

Inclusion of an historic park or garden on the Register in itself brings no statutory protection. However, registration is a material consideration in planning terms and local authorities are required to make provision for the protection of this aspect of the historic environment through policies and the allocation of resources. Tameside has one Registered Park: Stamford Park (Grade II) in Stalybridge. Locally Listed Buildings 5.06 Local Lists are used by local authorities to identify buildings, structures or features, having architectural, historic, archaeological or artistic interest. Whilst not statutorily listed, they are recognised as being an important part of a local area’s heritage.

Local Lists are developed by the local planning authority in consultation with communities. Identification through a local list allows a local planning authority to better understand the heritage assets within its area, their individual heritage significance, and their contribution to the character and distinctiveness of a place. By maintaining a Local List and developing policies for the protection of the heritage assets that are on it, the local planning authority can ensure that significant but otherwise unprotected assets become a material consideration in the planning process. At the time of writing, Tameside is developing a draft Local List with representatives from local heritage groups.

6.00 Key Challenges and Management Issues

6.01 Heritage assets are a non-renewable resource and their stewardship is a responsibility shared by owners, managers and developers as well as regulatory bodies including local authorities. A degree of change to heritage assets is inevitable due to the effects of time, but sometimes more substantial intervention may be required or desired. PPS5 recognises that intelligently managed change may sometimes be necessary if heritage assets are to be maintained for the long term. It is important that their fragile and finite nature is given due consideration when changes are proposed.

6.02 Decisions about change to heritage assets may involve balancing a number of inter-related public and private interests, e.g. access or climate change. The sensitive adaptation and re-use of historic buildings can, in many cases, be achieved whilst accommodating these interests.

6.03 Change within the historic environment is largely controlled through the planning system. At the time of writing, PPS5 sets out the relevant policies, supported by the accompanying Practice Guide. Decisions affecting heritage assets must be taken in line with the policies and guidance contained in these documents and the saved policies in the adopted (2004) Unitary Development Plan.

6.04 Reform of the planning system is currently being proposed by the Coalition Government. Under a streamlined regime national policy may not provide sufficient clarity on the appropriate management of the historic environment. This, and the emerging emphasis on localism, makes it important that existing levels of control are maintained at a local level to ensure that heritage assets can be managed in accordance with current best practice. It is important, therefore, that the Core Strategy sets out robust policies to ensure that Tameside’s historic environment is given sufficient regard. There may be a

need to articulate development control policies more clearly in the form of a wider Historic Environment Strategy.

Heritage at Risk Listed Buildings at Risk 6.05 English Heritage’s annual Heritage at Risk Register identifies Listed Buildings (only Grade I and II* buildings outside London), Scheduled Monuments, Registered Parks and Gardens, Registered Battlefields, Protected Wreck Sites and Conservation Areas at risk through neglect and decay (rather than alteration or demolition). Several factors may contribute to buildings becoming “at risk”. In most cases lack of maintenance is the root of insidious decay, with vacancy compounding the problem. In the case of archaeological remains, natural processes such as scrub and tree growth, erosion, burrowing animals and damage caused by cultivation can contribute to risk.

6.06 Buildings At Risk (BAR) Registers can help in monitoring the condition of the listed building stock; identifying where resources should be concentrated to tackle problems of neglect and decay and securing viable new uses for redundant buildings. Many local authorities maintain their own “at Risk” Registers in accordance with English Heritage’s methodology. Tameside’s first Buildings at Risk (BAR) Register was compiled in 2000. A partial re-survey was conducted in 2004 but a new survey is now required to bring information up to date.

6.07 In its 2010 survey English Heritage established that the proportion of grade I and II* listed buildings at risk nationally is 3.1% (1 in 32). The statistics for Tameside are less encouraging, with 23% of the borough’s grade I and II* listed buildings at risk (5 out of 22). These five buildings - Apethorn Farm, Hyde Hall, Stayley Hall, Dukinfield Old Hall Chapel and Ashton Baths (Hugh Mason House) - represent a significant proportion of the Borough’s most prestigious heritage assets. At the time of writing, the only building with a scheme of repair in progress is Stayley Hall. The other four remain increasingly vulnerable, in worsening condition and with no immediate prospect of rescue. The percentage of grade II buildings at risk is estimated at around 15%. The figures indicate that this is a major challenge for the authority to tackle. It is recognised that some of the borough’s most important – and irreplaceable – assets could be lost if the problem of listed buildings at risk is not addressed.

6.08 There are some buildings at risk, most commonly large houses or farmhouses with associated land, that have fallen into such a state of disrepair that the cost of works required to repair the building is far greater then the value of the estate. In exceptional cases, local planning authorities will consider allowing development which is contrary to policy in order to raise funds for the repair and future conservation of the heritage asset. The repair of intractable BAR cases or complex heritage assets such as Hyde Hall might justifiably be tackled through enabling development, provided any proposal met the criteria for assessment set out in PPS5 Policy HE11, guidance published by English Heritage and Policy C7 in the UDP.

Conservation Areas at Risk 6.09 The pressures that face conservation areas come from many different sources. Sometimes they reflect the general economic weakness of the neighbourhood. More often, it is the cumulative effect of a number of minor problems that contribute to erosion of an area’s character. Across the country, the most significant threat to the character of conservation areas comes from the loss of historic building details such as traditional windows and doors, boundary walls and roof coverings. Commercial properties may have inappropriate shopfronts and signs or the area may suffer from vacancy and dereliction. The degraded

condition of the streets and the quality of the public realm can also have a negative impact on conservation areas – the clutter of street furniture and signs, poorly maintained pavements or intrusive traffic calming6.

6.10 Nationally, 7.4% of the conservation areas for which information has been submitted to English Heritage are at risk. 44% of Tameside’s conservation areas, i.e. four out of nine, were included in their 2010 Heritage at Risk Register. Economic decline is a major contributory factor in the case of Ashton and Stalybridge Town Centres, along with the loss of traditional features such as original shop fronts, windows and doors. Millbrook has suffered from the dereliction of a number of key sites including Stayley Hall, Oakwood Mill and St James School. Although major projects to revitalise two of these sites are currently under way, erosion of character through the loss of traditional features and materials still remains a threat. An area that remains largely industrial, Portland Basin has seen major redevelopment throughout the 1990s that has altered its historic character significantly. Even in those areas not formally identified as “At Risk”, all remain vulnerable to the cumulative effect of small changes that can gradually erode their significance, especially where Article 4 directions are absent or unenforced. The public realm in most of the borough’s conservation areas would benefit from further investment.

6.11 In line with best practice, specific management guidance should be drafted to address issues arising in each conservation area. Tailored guidance has not been available to date for Tameside’s conservation areas. However, a recent programme of appraisal for existing conservation areas seeks to rectify this situation, incorporating design guidance, advice on repair and maintenance, the treatment of the public realm and the conservation of traditional buildings, historic features, urban grain and significant views. It is intended that the appraisals and management principles will be adopted by the Council in early 2012. The documents will be made available as a resource to owners, developers and officers as a basis for informed decision-making within designated areas.

6.12 There are certain areas that warrant greater protection then can be provided under a conservation area designation alone. In such cases Article 47 directions can be put in place to restrict the type of development that can otherwise be carried out by householders without planning permission. This has the effect of bringing normally permitted development under the control of the local planning authority, providing more extensive powers to prevent the loss of traditional features and to promote sensitive replacements. Article 4 directions can be very effective in halting the loss of traditional features, which can gradually erode historic character. Tameside has an Article 4 in place in Mottram in Longdendale Conservation Area, and one on a single property in Copley Conservation Area, leaving residential properties in all of the other areas vulnerable to erosion of historic detail. However, an Article 4 can only be effective if Development Control decisions are taken in line with conservation advice. The existence of an Article 4Direction in Mottram has done little to halt the loss of historic detail over time, particularly with regard to the replacement of traditional softwood sash windows with unsympathetic uPVC and hardwood frames of inappropriate design, because applications have been determined contrary to conservation advice.

Managing Change to Designated Heritage Assets

6 English Heritage 2009 Heritage at Risk: Conservation Areas. 7 Article 4 - Direction removing some or all permitted development rights, for example within a conservation area or curtilage of a listed building. Article 4 directions are issued by local planning authorities.

6.13 Listing and conservation area designation do not prohibit change, but provide a framework within which the impact of change can be properly assessed and intelligently managed. There are examples across the borough where this has not happened in the past, and unsympathetic or harmful alterations have been carried out to listed buildings. The introduction of inappropriate materials, e.g. cement-based mortars and renders, uPVC windows and doors, and uncharacteristic changes e.g. poorly designed extensions, significant loss of fabric or unsuitable development within the historic setting, has had a detrimental impact on the significance of many designated assets. Often, this is not attributable to a lack of specialist advice, but to a lack of willingness on the part of owners, developers or decision-makers to follow that advice in line with adopted development management policies.

6.14 In the context of changing national planning policy, there is a possibility that increased pressure for development may precipitate more damaging proposals. It is important that local policy responds to any weakening in protection for historic assets to ensure that the interests of the borough’s historic environment are adequately safeguarded. A robust set of development management policies will be critical in maintaining an adequate level of protection for heritage assets and for improving the standards of management within the historic environment, which have, in the past, often been sacrificed in favour of economic concerns.

Heritage-led Regeneration 6.15 Much research has been undertaken in recent years to evaluate public perceptions of the historic environment. Findings consistently indicate that the built environment has an impact on how people feel about their quality of life and that people value their heritage. The creation of an attractive environment can deliver many benefits and heritage assets have a crucial role to play in this.

6.16 Investing in historic buildings can bring about improvements in the condition and appearance of buildings and neighbourhoods, as well as increased economic prosperity and higher property values in the locality. Communities perceive wider beneficial impacts from investment in heritage on crime figures and anti-social behaviour; physical and mental health; education; community cohesion and social inclusion8. Heritage should not be seen as a constraint on redevelopment schemes, but rather as a “unique selling point”, requiring flexibility and creativity to identify the optimum viable use. Through innovative, high-quality, sustainable design solutions, heritage assets can significantly contribute to the provision of an attractive, sustainable and healthy environments.

6.17 English Heritage’s 2010 Heritage Counts report identified that

• £1 of investment in the historic environment generates £1.6 of additional economic activity over a ten year period. • Investment in the historic environment attracts businesses. One in four businesses agree that the historic environment is an important factor in deciding where to locate, the same as for road access. • Investing in the historic environment brings more visitors to local areas and encourages them to spend more. Approximately one in five visitors to areas which have had historic environment investment spend more in the local area than before, and one in four businesses has seen the number of customers increase. • Historic environment attractions generates local wealth. Half of all jobs created by historic environment attractions are in local businesses.

8 Ela Palmer Heritage 2008 The Social Impacts of Heritage-led Regeneration, Executive Summary

6.18 Examination of a number of case studies concluded that by investing in the historic environment places can increase their economic resilience, drawing visitors, shoppers and businesses all attracted there by the historic environment. 6.19 Tameside does not have a strong track record in heritage-led regeneration. Heritage assets have not generally been recognised as a focus for the improvement of areas; consequently, much historic fabric has been left to deteriorate. For example, despite recent investment in the St Petersfield area, the Grade II* Ashton Baths at its heart remain vacant and in poor condition. A few notable exceptions such as the rebuilding of Ashton’s Market Hall and the development of Longlands Mill, Stalybridge, show how historic assets can be successfully regenerated, bringing wider economic and social benefits to the surrounding area. 6.20 Much work still remains to be done. The problem of listed buildings at risk is likely to increase in the short to medium term as the effects of the economic recession continue to be felt. More buildings may come to be at risk as the cost of maintenance and repair increases, and developers may be deterred from taking on complex regeneration projects for a number of reasons, including higher levels of VAT on repair, the difficulty of securing finance and the perceived constraints of dealing with designated heritage assets. The Council has a key role to play in identifying sites with regeneration potential, assisting in the development of enhancement schemes and promoting investment in vulnerable heritage assets. The potential contribution of heritage assets to vibrant, thriving and unique places needs to be recognised and harnessed in order to create high quality environments. Design and Place-making 6.21 Good design is essential in creating an attractive, safe and prosperous environment. Historic assets play an important role in making places more sustainable and distinctive, acting as a prompt for high-quality design that responds to its context. There have been many examples of modern design within the borough that appear out of character and fail to make a positive contribution to the context, resulting in standard, “anywhere” developments, often car-centred.

6.22 The recently adopted Residential Design SPD encourages design that enhances the character and image of the borough. The Core Strategy should promote high-quality, responsive design that creates a sense of place and draws on the existing strengths of the borough’s unique heritage. This extends to the public realm.

Climate Change 6.23 Sustainable design is becoming increasingly important. It is recognised that the conservation of heritage assets is in itself highly sustainable. Whilst it is recognised that measures to tackle climate change may be incorporated in a historic context, the impacts of such changes require careful assessment to ensure that heritage assets and their settings are not harmed.

The quality of shop fronts 6.24 Shop fronts have a key role to play in creating attractive, vibrant areas in which to shop. Traditional shop fronts have helped to establish the character and appearance of many of our towns and villages, both within and outside conservation areas. Their replacement with poor-quality modern shop fronts incorporating oversized fascias, internally illuminated signage and roller shutters diminishes the quality of the urban landscape. The loss of original shop fronts in towns such as Stalybridge and Ashton has had a detrimental impact on the character and appearance of the streetscene with insufficient attention being paid to the proportion, scale, form and style of some replacement shop fronts as well as the

materials used. Although some improvements have been made in Stalybridge through the provision of shop front improvement grants, the quality of many retail premises across the borough falls short of the standards we should be seeking to secure the enhancement of our historic town centres – particularly those within conservation areas.

Public realm 6.25 Measures for traffic management, unsympathetic hard and soft landscaping, proliferation of signage and street clutter can all have a negative impact on the public realm. For example, although the regeneration of Ashton’s Market Hall successfully revived the listed building, improvements did not extent to the surrounding area resulting in a hotch-potch of materials around the building in varying condition. Greater attention needs to be given to how the public realm is maintained to provide visual consistency and to avoid deficiencies in repair, replacement or reinstatement. The use of different colours within the public realm to distinguish each of the borough’s towns has often had a negative visual impact, particularly in conservation areas and within the setting of designated heritage assets where historically inappropriate town colours have been imposed.

6.26 There has, in recent years, been a focus on the provision of public art across the borough. However, unless it is integrated sensitively with its context public art can be inappropriate, overbearing or irrelevant. The desire to introduce an artistic statement must be carefully weighed with a consideration of whether it is necessary in the first place, or whether environmental improvements can be achieved more successfully by, for example, addressing the quality of materials used for hard and soft landscaping, tree-planting or the introduction of sensitive lighting. Any measures to improve the public realm should take account of their compatibility with the historic environment.

7.00 Key Issues and Options

7.01 A crucial part of Tameside’s Core Strategy will be to ensure the effective understanding, protection, management, enhancement and enjoyment of the historic environment. In consideration of the information above, a number of key issues emerge which highlight the challenges and opportunities facing the historic environment in the borough.

Ensuring a robust evidence-base

7.02 Conservation Areas • A number of significant historic areas within the borough are currently unrecognised and lack formal designation as conservation areas, including Mossley, Hollingworth and Broadbottom; 19th century industrial landscapes such as the Tame Valley, Park Bridge, Daisy Nook and Tameside’s river and canal network; areas of workers’ housing in Hyde, Denton and Guide Bridge, and fine 19th and 20th century urban landscapes such as those along Mottram Road, Stalybridge and Taunton Road, Ashton, and the historic landscape at the Pennine Fringe. The completed Historic Landscape Characterisation study also highlights additional areas worthy of considering for designation.

• There is a recognised need to proceed with a programme of conservation area appraisals across those parts of the historic environment that currently lack formal protection to help safeguard their character and historic significance.

7.03 Local List

• A number of individual buildings, features and historic landscapes make a significant contribution to local distinctiveness and identity. Although their special interest is not sufficient to merit statutory designation, their level of local interest justifies retention and sensitive management. The creation of a Local List and associated policies is needed to help protect such assets.

7.04 Buildings at Risk • The borough currently has a number of heritage assets at risk, including five of its Grade II* listed buildings and four conservation areas. Although the number of Grade II buildings at risk cannot be confirmed, it is estimated 15% are in poor condition. Collectively, these exceed the national average, highlighting the problems facing the Borough’s heritage assets. A comprehensive BAR survey is needed to determine the true scale of the problem; identify specific building types that are more vulnerable. This information can then be used to prioritise action and direct resources.

7.05 Conservation of heritage assets

• Poor standards of maintenance and repair are a widespread problem in both listed buildings and conservation areas. Neglect of regular maintenance tasks and minor repair is usually at the root of serious cases of decay.

• BAR statistics indicate that there is a clear need for the Council to act to reverse the decline in the condition of its listed building stock and improve the appearance of townscape, particularly within the industrial and town centre conservation areas.

• Tameside’s industrial legacy is strongly represented in its historic building stock; however, areas such as the Tame Valley are becoming more vulnerable to changes in the manufacturing economy, leaving industrial buildings at particular risk of vacancy and dereliction. This is a greater problem for unlisted mills, which make up the distinctive character of the borough.

• The contraction of public sector budgets may leave some civic/municipal buildings vulnerable to vacancy, disposal or demolition, particularly those outside Ashton.

• Certain types of heritage at risk may be appropriate targets for regeneration schemes, for example vacant industrial buildings, particularly those associated with the borough’s network of waterways. The Council should seek to identify opportunities for heritage- led regeneration in waterside buildings and former industrial premises in order to boost the local economy and enhance the environment and quality of life of communities.

• In order to halt the cumulative erosion of character the introduction of Article 4 Directions should be considered in conservation areas where sufficient historic detail remains and where its loss would threaten historic character. However, there applied consistent and appropriate planning decisions must be made to retain such character. An approach that has unfortunately not been applied in Mottram.

• Tackling vacancy within the upper floors of commercial buildings should be encouraged as a way of injecting vitality into the borough’s townscape, improving the condition of buildings and increasing activity in historic cores such as Ashton, Stalybridge and Hyde.

7.06 Managing change in the historic environment

• Reform of the planning system is likely to result in condensed national policy. It is important, therefore, that the Core Strategy clearly articulates the importance of conserving heritage assets, their role in place-making and their positive contribution to quality of life within the borough.

• Crucial to the conservation of heritage assets and their settings is a robust set of development management policies.

• There is a recognised need to improve the standard of work to heritage assets, by insisting on high quality design and materials, appropriate to the historic context. Much of Tameside’s built heritage has suffered as a result of such standards being applied.

• Retail premises within our conservation areas are particularly vulnerable to unsympathetic changes. Poor shop fronts and advertisements detract from the character and appearance of historic areas, harming local identity and distinctiveness. Specific guidance may be needed to ensure that proposals preserve traditional architecture and enhance townscapes.

7.07 New development

• In areas where development is proposed, designated and non-designated heritage assets and their settings must be protected and enhanced.

• Any development must be of high quality and sensitive to the character of existing settlements and dwellings, employing building materials, styles and layouts appropriate to the context.

7.08 Public realm

• There is a need to improve the quality of Tameside’s public spaces, particularly within town centres and conservation areas.

• There should be a greater emphasis on the enhancement of the public realm, reducing the dominance of the car through more sensitive planning of road layouts, street furniture and surface treatment.

• The borough would benefit from a co-ordinated approach to public realm enhancements, improving streets and public spaces by reducing clutter and reinforcing local character through sensitive design.

• Many examples of public art within the borough have not been sufficiently responsive to their context. The desire to create a visual statement needs to be more carefully balanced with the need for it to respect and enhance its surroundings.

8.00 Cross-cutting Issues

8.01 Many of the issues identified in this topic paper will be related to matters highlighted in other topic papers. The key inter-related issues include:

Climate Change and Decentralised Energy 8.02 The historic environment is as vulnerable to the effects of global climate change as any other type of land or buildings. Heritage assets were the creations of lower carbon societies and represent more sustainable forms of construction than many of their modern neighbours. It is recognised that they have their part to play in mitigating the effects of climate change, but opportunities to enhance energy efficiency, improve resilience to changing weather patterns and accommodate renewable forms of energy must be balanced with the effects of such measures on the significance of the asset and its setting. The retention and re-use of irreplaceable heritage assets must also be recognised as an inherently sustainable outcome.

Combined Town Centres and Retail 8.03 The creation of unique, vibrant, high-quality centres must recognise the part the historic environment can play in strengthening individual character and contributing to sense of place. Historic assets, traditional retail frontages, well-designed public spaces and street patterns contribute to the richness and diversity of the townscape and, where combined with high quality modern design can create attractive, vibrant environments with their own distinct identities.

Development and Flood Risk 8.04 The location of new development and handling of surface water should be designed to minimise the impact on existing historic assets. The increased frequency of extreme weather events may pose greater risks for some heritage assets and will require sensitive management given the potential impacts on significance.

Housing 8.05 The need to provide new housing in the borough must take into account existing empty or under-used properties, encouraging reuse of existing dwellings (which often contribute positively to townscape) wherever possible. The potential to upgrade or convert traditional housing should not be ignored in favour of demolition and new development, which may be less sustainable in terms of whole life costs and embodied energy.

8.06 A number of the borough’s listed buildings, some of which are vacant and in poor repair, may be ideal candidates for residential conversion; opportunities for appropriate schemes of regeneration should be encouraged.

8.07 The development of brownfield sites and greenfield land, and the release of Green Belt may have significant impacts on fragile historic landscapes, heritage assets and their settings.

8.08 The design of new housing must be sympathetic to historic context, avoiding generic designs which do not enhance the character and individuality of the existing historic environment. The legacy of poor design in residential development across the borough must be tackled with a greater emphasis on high quality design, materials, construction and layout.

Economy and Employment Land 8.09 Heritage has the potential to make a significant contribution to the economy of the borough through the creation of attractive, thriving places that generate further investment and activity. A poor quality environment will have a negative impact on economic growth. Many of the employment sites in the borough are located within historic buildings. A move away from the traditional employment base of manufacturing may place a number of heritage assets at risk.

Transport and Infrastructure 8.10 Existing infrastructure often includes heritage assets or affects the setting of heritage assets in the vicinity. Opportunities should be taken to conserve and enhance elements of infrastructure that are of architectural and historic significance, and planning decisions need to take full account of impacts. Where existing or proposed infrastructure projects have the potential to harm heritage assets and their settings, opportunities should be taken to eliminate or reduce this harm as far as possible to protect the long-term viability of the heritage asset.

Green Infrastructure 8.11 Tameside’s Green Infrastructure network encompasses historic landscapes and heritage assets, including formally recognised assets such as listed canal structures or Registered Parks and Gardens, and those with no formal designation e.g. cemeteries, churchyards, village greens and moorlands. Green Infrastructure may also form the setting of heritage assets such as scheduled monuments or listed buildings. Investment in Green Infrastructure can provide opportunities for recreation, education, better interpretation and safeguarding of heritage assets, e.g. through the greater use of the borough’s canals, the development of cycle routes along disused rail lines and the enhancement of urban green space and country parks etc, which often form the backdrop to historic places. The creation of new Green Infrastructure should be responsive to existing historic landscape character.

Health and Inequalities 8.12 Caring for the historic environment is an important part of delivering attractive, safe and healthy places which contribute to a better quality of life and improved health among the population.

Local Development Framework – Core Strategy Issues and Options Discussion Paper

Topic Paper 7 – Development and Flood Risk

1.00 Background

• Planning Policy Statement 1: Delivering Sustainable Development • Planning Policy Statement 1 Supplement: Planning and Climate Change • Planning Policy Statement 25: Development and Flood Risk • Planning Policy Statement 25: Development and Flood Risk – Practice Guide • North West Regional Spatial Strategy • Strategic Flood Risk Assessment for Greater Manchester • Tameside MBC Level 1 Update and Level 2 Strategic Flood Risk Assessment.

1.01 Flooding from rivers is a natural process; shaping the natural environment. However it can also threaten life and damage property, of which there is several recently well documented examples across the country. Assessing flood risk stems from a European Directive to ensure that through the planning process a Sustainability Appraisal of all Development Plan Documents is undertaken.

1.02 The effects of design, location and land use through development decisions have profound impacts upon flood events. There is wide recognition that flooding and flood risk coupled with general changes in climate to milder and wetter winter conditions represents a risk that needs to be managed appropriately through development. This is to ensure that existing development in flood areas is not put at greater risk through further development and where development is approved in areas of risk, that it is appropriately flood proofed.

2.00 National Perspective

2.01 Planning Policy Statement 1 (PPS 1): Delivering sustainable development, states that all forms of flooding and their impact on both the natural and built environment are material planning considerations. Planning should facilitate and promote sustainable patterns of development, avoiding flood risk and accommodate the impacts of climate change. Through both PPS 1 and Planning Policy Statement 25 (PPS 25): Development and Flood Risk, it is recommended that risk is appraised, managed and reduced through the plan making and development process.

2.02 PPS 25 recommends that a hierarchical approach to flood risk assessments is undertaken starting at the regional level and working down to site specific Flood Risk Assessments. In line with this the guidance applicable to Tameside is the Regional Flood Risk Assessment, the Greater Manchester Strategic Flood Risk Assessment and the Tameside Strategic Flood Risk Assessment.

2.03 The PPS 25 approach is able to give a steer across local authority boundaries which is particularly important for issues in relation to flood risk. This is due to systems being hydrologically linked and not limited by political boundaries.

2.04 PPS 1 states that Development plan policies should take account of environmental issues:

‘the potential impact of the environment on proposed developments by avoiding new development in areas at risk of flooding and sea-level rise, and as far as possible, by accommodating natural hazards and the impacts of climate change’

2.05 PPS 25 states that authorities should prepare and implement planning strategies that help to deliver sustainable development by:

Appraising risk • Identifying land at risk and the degree of flooding risk from river, sea and other sources in their areas. • Preparing Regional Flood Risk Appraisals (RFRAs) or Strategic Flood Risk Assessments (SFRAs), as freestanding assessments that contribute to the Sustainability Appraisal of their plans. Managing Risk • Framing policies which steer development towards locations which avoid flood risk to people and property, and manage any residual risk, taking account of the impacts of climate change. • Only permitting development in areas of flood risk when there are no reasonably available sites in areas of lower flood risk and benefits of the development outweigh the risks from flooding. Reducing Risk • Safeguarding land from development that is required for current and future flood management, e.g. conveyance and storage of flood water, and flood defences. • Reducing flood risk to and from new development through location, layout, design and incorporating sustainable drainage systems (SUDS). • Using opportunities offered by new development to reduce the causes and impacts of flooding through methods such as, surface water management plans, making the most of the benefits of green infrastructure for flood storage, conveyance and SUDS, re- creating functional floodplain and setting back defences.

2.06 These key planning objectives are adopted through a process of interpretation, with local polices reflecting these principles and utilising national, regional and local evidence to steer content.

3.00 Draft National Planning Policy Framework

3.01 It is important to note that the Government intends to replace the current suite of national planning policy statements and guidance described above and the North West Regional Spatial Strategy, with a single national planning document; the National Planning Policy Framework (NPPF). This document had a period of consultation in 2011 and is currently being reviewed (January 2012).

3.02 Whilst the current planning policy statements will remain in place until adoption of the NPPF, it is useful to be aware of its content as it will guide the policies in the Core Strategy.

3.03 In relation to development and flood risk, the NPPF emphasises the Government’s objectives that planning should take full account of flood risk. It says it should do this by avoiding inappropriate development in areas at risk of flooding and locating development in areas at lowest risk. Where this cannot be avoided the proposal must be made flood safe.

3.04 It states that the Environment Agency should be involved in all stages of the planning and decision making processes in relation to flood risk. The NPPF highlights issues of mitigating, adapting, safeguarding, minimising and reducing in relation to flood risk, retaining both the “exception test” and the “sequential test” as currently detailed in PPS25.

3.05 Greater emphasis is given to the relationship between flooding and climate change; and how land can be better managed to assist in adapting to climate change.

3.06 However the NPPF provides less guidance and detail to Local Authorities in how to undertake local Flood Risk Assessments.

4.00 Regional Perspective

4.01 In response to existing national planning policy related to flood risk, sustainability and climate change (PPS1 and PPS25), the North West Development Agency through its Regional Spatial Strategy (RSS) established policies for flood risk, EM5 and EM6. These policies build upon the national direction in that they establish, through the Regional Flood Risk Assessment, broad areas of flood risk that should be investigated further through relevant sub-regional and local flood risk assessments.

4.02 Although the revocation of the RSS is impending, the NPPF retains the approach to managing flood risk through the planning system. Although it puts a greater emphasis upon flood risk and climate change, it does leave sub-regional and local strategic flood risk assessments unsupported with no RSS. As a result the Greater Manchester Strategic Flood Risk Assessment and the Tameside level two Strategic Flood Risk Assessment, (conducted in combination with Stockport MBC), carry greater local importance.

5.00 Local Perspective

Greater Manchester Strategic Flood Risk Assessment

5.01 The Greater Manchester Strategic Flood Risk Assessment (GM SFRA), conducted as level one of a two tier assessment process highlights Tameside as the gateway to the Peak District, which by its very nature means the Borough is in the upper portions of river catchments and where flooding from rivers is the primary issue. It notes that although this is due to its geography being more elevated than boroughs to the west of Manchester, flooding issues are short lived, with short times between peak rainfall and peak river flow, with risks occurring predominantly at river confluences and sections of culverted water courses.

5.02 As Tameside is located in the upper reaches of catchments, the Greater Manchester Strategic Flood Risk Assessment stresses the importance of sustainable urban drainage systems (SUDS) in controlling surface water and not exacerbating down stream issues through the development process. It also highlights the need to discuss development

pressures within existing flood zones and where future development may occur through the Core Strategy. Lastly the potential that land adjacent to rivers can play in flood water retention is also expressed as an important factor in being able to reduce down stream flood risk and provide a buffer in the system which would be particularly beneficial to neighbouring down river boroughs such as Stockport MBC.

5.03 The implications of the study were followed through into the second level study which as advised by the GM SFRA was undertaken in conjunction with Stockport MBC due to fluvial catchment reasons.

Tameside Strategic Flood Risk Assessment

5.04 Overall the Tameside SFRA states that flood risk for the Borough from all sources is generally low. Although the level one study highlighted that rivers are the principle source of flooding in Tameside, the lower level study for the borough indicates that in many cases the extent of flooding is contained within the river banks.

5.05 Where areas of flooding do extend beyond river banks the land is predominantly allocated as greenbelt through the Unitary Development Plan and therefore relatively property and people free, and protected from future development.

5.06 Other flood concerns relate to surface water and flooding from sewers. In both cases however data confidentiality, sensitivity and available detail led to a reduced overall confidence in any outcomes. Despite this it was advised that generally flooding from surface water is a localised issue typified by lower lying ground conditions. The Strategic Flood Risk Assessment will continually be reviewed and it is expected that data confidence in relation to surface water will improve as work is currently ongoing concerning the Greater Manchester Surface Water Management Plan with input from the Council.

5.07 Lastly the risk of flooding from canals and reservoir sources is considered low. Flood risk here is from overtopping which is considered to be low risk due to the regulated nature of the features involved although it is appreciated that flooding from a breach, depending on the source, could have profound implications.

5.08 Therefore from the above, the risk of flooding within the borough is considered low. The principle risk that does exist is in relation to main river water courses within the borough. Due to the topography of Tameside at the top of the river catchment, flooding of water courses and their tributaries tends occur rapidly after rainfall events with high but quick peak flows and water courses having the potential to carry debris.

5.09 This presents particular problems in that the time available to respond to incidents is relatively short. Therefore, the effective management and maintenance of culverts is important in reducing the risk of flooding. Although the geography of the borough presents risks, it also benefits from rivers being incised in nature, with generally enough bank height to retain flood events in most cases.

5.10 Due to the relatively low risk and river banks being able to contain most flood events, expected development zones within flood prone areas are considered able to afford development in most cases provided they are taken forward in accordance with PPS 25 and a flood appreciative design is followed.

5.11 All developments are expected to maximise the use of SUDS to aid in reducing the volume and speed at which water can enter the main river system. In addition to this, the study

advises that it may be appropriate in locations where development is expected or exists and suffers from river flooding that defences such as raised banks may be appropriate. To further reduce the risk of flooding the study suggests that it would be appropriate to enhance the existing green belt south of Hyde specifically for flood water retention. This would have added benefits in down river locations, reducing risk by storing peak flows and releasing the water back at a steady rate.

6.00 Summary

6.01 PPS 1 and PPS 25 outline how planning can help reduce flood risk through appropriate development. It is understood that climatic conditions are changing to warmer drier summers, warmer wetter winters and that extreme weather scenarios will occur with increased regularity.

6.02 Reducing flood risk has been part of the planning system for some time through PPS 25, however the importance of reducing flood risk has recently been recognised more widely by the Government through the Flood and Water Management Act 2010 and Tameside MBC being designated as a Lead Local Flood Authority which places greater responsibilities upon it to manage flood risk.

6.03 This increasing importance of flood risk management and additional responsibility will be recognised through appropriate planning policies based upon the evidence presented above to manage and reduce flood risk to support the Council with the responsibilities it has in relation to the above 2010 Act.

7.00 Key Issues

7.01 The flood risk potential for Tameside is generally considered low, although there are known areas that do experience flooding.

7.02 The main sources are fluvial in nature. Although the River Medlock skirts the North-West and River Etherow the South-East of Tameside the River Tame is the main river running through the Borough.

7.03 There are localised flood risks presented by surface water and drainage system capacity, although the current low confidence data levels means this information will be further refined through the Greater Manchester Surface Water Management Plan.

7.04 Despite the risk of fluvial flooding, the Tameside Strategic Flood Risk Assessment suggests that within existing flood prone areas that future development is acceptable provided it follow guidelines within PPS 25.

7.05 Flood Risk management options which are suggested for Tameside are the use of SUDS on all developments to minimise the effects of future construction, the implementation of on site flood defences such as raised embankments and more strategically areas of greenbelt south of Hyde for flood water retention.

8.00 Cross Cutting Themes

8.01 Issues surrounding development and Flood Risk inter-connect with a number of other topic areas including:

8.02 Housing & Economy and Employment – appropriately designed and located housing and employment premises remain important issues. Current and future land for housing and employment development, when within an area of flood risk, will have to consider the evidence within the Tameside Strategic Flood Risk Assessment in accordance with the guidance presented in PPS 25. Planning applications for development within areas of flooding must also prepare a site specific Flood Risk Assessment.

8.03 Transport and infrastructure – the evidence presented would suggest that the ability to retain flood waters on land already allocated as greenbelt would reduce the flood risk of the River Tame in down stream river locations, making it a more regulated system. This represents a potential piece of infrastructure to be delivered that would provide many benefits.

Local Development Framework – Core Strategy Issues and Options Discussion Paper

Topic Paper 8 – Climate Change & Decentralised Energy

1.00 Background

Policy / Guidance Document • Planning Policy Statement 1: Delivering Sustainable Development • Planning Policy Statement 1 Supplement: Planning and Climate Change • Planning Policy Statement 22: Renewable Energy • Planning for Renewable Energy: A Companion Guide to PPS22 • Draft National Planning Policy Framework (NPPF) • North West Regional Spatial Strategy • Mini Stern Report • AGMA Decentralised and Zero Carbon Energy Study • Greater Manchester Low Carbon Economic Area • Tameside Decentralised Energy Study • Greater Manchester Climate Change Strategy

1.01 Globally there is a broad recognition that the earth’s climate is changing, with increases in global temperatures and more erratic weather patterns resulting in irreversible changes to eco systems and environments across the planet.

1.02 The principle cause of climate change is human activity and particularly man-made emissions; carbon dioxide being one of the primary problems. Whilst we cannot undo the damage done to date, there is a need to substantially reduce our emissions and in turn the severity of climate change.

1.03 In response to this and commitments agreed at the Kyoto Summit, The Government has committed to reduce carbon dioxide emission to 80% below 1990 levels by 2050. These commitments, highlighted within the Climate Change Act 2008 have filtered down through national policies and strategies, with existing and future planning policy and building regulations playing a key role in achieving these targets.

2.00 National Perspective

Planning Policy Statements 1 & 22

2.01 Nationally the previous Government outlined its commitment to sustainable development, climate change and the promotion of renewable energy through Planning Policy Statements (PPS) 1 and 22.

2.02 PPS 1: Delivering Sustainable Development, together with its supplement; Planning and Climate Change, details the current national guidance and policies on how the planning system / local planning authorities should steer the creation of sustainable developments

and plan for the effects and mitigation of climate change. Linked with the PPS 1 supplement, PPS 22: Renewable Energy, requires local development documents to promote and encourage the development of renewable energy resources. Through local development documents local authorities should make provision for:

• Renewable energy developments should be capable of being accommodated throughout England in locations where the technology is viable and environmental, economic, and social impacts can be addressed satisfactorily. • Local development documents should contain policies designed to promote and encourage, rather than restrict, the development of renewable energy resources. • Planning authorities should set out the criteria that will be applied in assessing applications for planning permission for renewable energy projects. • Planning policies that rule out or place constraints on the development of all, or specific types of, renewable energy technologies should not be included in local development documents without sufficient reasoned justification. • The wider environmental and economic benefits of all proposals for renewable energy projects, whatever their scale, are material considerations that should be given significant weight in determining whether proposals should be granted planning permission. • Local planning authorities should not make assumptions about the technical and commercial feasibility of renewable energy projects. Technological change can mean that sites currently excluded as locations for particular types of renewable energy development may in future be suitable.

2.03 Adopting local policies that reflect the above principles will play a key role in enabling the development of renewable energy sources, as either stand alone developments or as ancillary energy sources to developments.

2.04 Allied with these national planning policies is the stepped tightening of Part L of the Building Regulations that requires the improved efficiency of new buildings, reducing their carbon emissions. This stepped tightening will lead to the creation of zero-carbon dwellings by 2016, and zero-carbon non-dwellings by 2019.

Draft National Planning Policy Framework

2.05 The Government’s intention is to replace the current suite of planning policy statements and guidance (including PPS 1 & 22) with a single national planning document, the National Planning Policy Framework (NPPF). The consultation draft of this document was published in July 2011 which at its ‘heart’ has a ‘presumption in favour of sustainable development’.

2.06 While the current planning policy statements remain in place (as at September 2011), it is the content of the NPPF (once adopted) that will guide policies in the Tameside Core Strategy.

2.07 In relation to climate change and decentralised energy, the NPPF highlights the Government’s objective that ‘planning should fully support the transition to a low carbon economy in a changing climate’.

2.08 Key elements of this support include:

• planning for new development in locations and ways which reduce greenhouse gas emissions

• adopt nationally described zero carbon building standards • promote energy from renewable and low-carbon sources • design policies to maximise renewable and low-carbon energy development • consider identifying suitable areas for renewable and low-carbon energy sources • identify opportunities where development can draw its energy supply from decentralised, renewable or low carbon energy supply systems • use opportunities offered by new development to reduce the causes and impacts of flooding

3.00 Local Perspective

North West RSS

3.01 In response to national planning policy surrounding climate change and decentralised energy (PPS1 & 22), the North West Development Agency through its Regional Spatial Strategy established policies and targets for reducing energy consumption and sourcing electricity from renewable energy sources. In aiding the promotion of decentralised energy, the RSS contained a policy requiring non residential developments over 1000m2 and residential developments of 10 units or more to secure at least 10% of their predicted energy requirements from decentralised and renewable or low carbon sources.

3.02 These RSS policies established a regional interpretation of the national policies, which many local authorities used as the basis for localised climate change and decentralised energy policies in their core strategies. However, the Government’s intention is to revoke regional spatial strategies through the Localism Act rendering policies contained within them void.

3.03 With this pending gap in local policy and changes at national level, it’s important that Tameside understands its potential for decentralised energy and establishes a direction for future policies to aid climate change adaptation and reduce carbon emissions within its Core Strategy.

Mini Stern Report (2008)

3.04 Manchester Enterprises and North West Development Agency commissioned Deloitte to undertake a study (building on the 2006 national Stern Review, a comprehensive review on the economics of climate change) to assess the economic impact of EU and UK climate change legislation, regulation and policies on the Manchester City Region. The resulting ‘Mini-Stern’ report focused on what the region could do in the short to medium term to develop strategies to respond to the impact of new climate change legislation.

3.05 The report clearly highlights that the climate change agenda is defining new legislative and policy agenda across the globe. Its impact on the Manchester City region could be profound, with potential loss of £20bn to the economy over the next 12 years if it fails to adapt. Yet there is also significant economic opportunity for the City Region if it takes early action.

3.06 In order to help realise this opportunity the report identifies the following broad strategic priorities for the Manchester City Region:

• Exploiting first mover advantage – a clear policy position is needed. Go with the flow or be at the forefront – ‘first mover advantage’.

• Leadership aimed at building on international reputation – strong leadership backed by co-ordinated programmes of action.

• Transforming the energy mix to reduce economic cost – develop a robust and cost efficient energy infrastructure based on low and zero carbon technologies. Spatial planning will be a critical tool in shaping this.

• Promoting sector growth through targeted procurement strategies – public sector will have a critical role supporting the growth of products and services through procurement.

• Reducing uncertainty and risk to encourage business investment – influencing national policy should be a major focus here. Businesses need to believe they’re investing in change for the right reasons and not burdened with unnecessary costs.

• Delivering coherent advice and support to business in general – targeted business support to aid business community mitigate and deliver the economic benefits.

• Developing sector strategies – to support vulnerable sectors as well as developing opportunity sectors.

• Promoting inward investment – once leadership is established and key programmes are in place, Manchester Investment Development Agency Service (MIDAS) would be in a good position to promote Manchester internationally for Climate Change related innovation activity.

• Policy Alignment – of spatial and economic policies across the City Region can aid consistency and avoid internal competition.

• Investing in skills and building capacity – ensuring future employment demands are met in the region to help enhance the creation and development of new technology clusters.

AGMA Decentralised and Zero Carbon Energy Study

3.07 In response to the recommendations / strategic priorities of the Mini-Stern Report, the Association of Greater Manchester Authorities (AGMA) commissioned consultants to undertake the Greater Manchester Decentralised and Zero Carbon Energy Study.

3.08 The study focuses on how the City Region can reduce carbon emissions through the delivery of decentralised energy infrastructure and development of zero carbon buildings.

3.09 The plan focuses on strategic City Region approach, together with specific case studies of development in order to explore the potential for spatial energy planning at a number of scales.

3.10 Through site specific case studies the study highlighted the following energy opportunity areas:

• Micro-generation areas – planning requirements, market development initiatives and guidance for lower density homes. • Ship Canal corridor – development of a heat pipe line between Carrington power station and the regional centre to serve the corridor. • Town centre networks – district heating and cooling networks in and around at least 8 town centres. • Biofuel supply chains – strategic development, including sites for processing and storage served by road & rail. • Regeneration retrofit areas – district heating and large scale micro-generation as an integral part of major retrofit programmes. • Regional centre network – a district heating and cooling network supplied by gas and biomass CHP and geothermal wells. • Local centre network – district heating networks where there’s sufficient critical mass in and around local centres, anchored by public buildings. • Standalone generation – wind cluster and single turbine sites where a viable wind resource exists.

3.11 Allied with these energy opportunities areas, the study recommends the production of a spatial energy plan for the City Region identifying strategic projects to be taken forward. Objectives and proposals for the energy plan should then be incorporated into GM Core Strategies, with perhaps an accompanying Supplementary Planning Document.

3.12 Whilst planning policies will play a role in delivering strategic projects, the scale of investment required to implement them will present the most significant challenge. The report recommends using developer contributions, the establishment of City Region funds and public sector commitment to underwrite investment to aid delivery and viable of project implementation.

Greater Manchester Low Carbon Economic Area

3.13 Following on, and linking in with the findings of the Mini-Stern Report and AMGA Decentralised Energy Study; Greater Manchester was designated the UK's first Low Carbon Economic Area (LCEA) for the Built Environment in December 2009. Building on the City-Region's strong track record in regeneration and its world leading university and research capabilities the five year programme will enable Greater Manchester to become a world leader on the low carbon agenda and enjoy a range of benefits linked to jobs and investment, sharing its expertise throughout the UK and beyond.

3.14 The LCEA will involve a five-year "retrofit" programme, which will be one of the largest initiatives of this type in the world; improving the insulation of thousands of homes and offices in Greater Manchester. Small-scale renewable energy technologies will also be installed and "smart meters" will be introduced so people can see how much energy they are using.

3.15 A 'low carbon laboratory' will also be established focusing on the research strengths of the universities where new innovative technologies will be developed and tested. One of the most innovative areas of work will be the development of new finance initiatives such as mortgage products linked to carbon savings.

The overarching vision and aims for the Manchester LCEA are as follows:

“By 2015 Greater Manchester has established itself as a world leader transforming to a low carbon economy.”

We aim to: • Have created the necessary investment and delivery vehicles required to undertake the physical retrofit of both the public and commercial sectors. • Have established the Manchester Corridor Low Carbon Laboratory as a test ground for innovative technologies using existing organisational, academic and professional capacities and expertise. • Ensure that the business opportunities which the LCEA creates are maximised by the Greater Manchester, Northwest and UK supply chains. • Gain an increased market share and value for the Low Carbon Industrial sector in Greater Manchester and the North West. • Have increased employment opportunities for residents so that more than 34,800 people are employed in the sector. • Have reduced carbon emissions within the residential sector by retrofitting 75% of homes. • Have created a delivery structure that sets Greater Manchester on a trajectory to meet Government targets for the supply of renewable energy. • Have strengthened the spatial planning framework so that by 2016 all new developments will be zero carbon.

3.16 The LCEA programme does not have funding attached to it; instead the North West Evergreen loan fund was established to run along side it, providing £60 million of support funding. The fund requires projects to make a commercial return repaying loans over an agreed period, enabling funds to be recycled for other projects.

Greater Manchester Climate Change Strategy

3.17 Building on the City-Region’s LCEA programme, the Greater Manchester Climate Change Strategy has been created to provide a strategic direction for GM through to 2020. It will co-ordinate the carbon reduction plans and adaptation strategies that have already been created by the ten Authorities and provide an effective, integrated approach for all organisations across Greater Manchester.

3.18 The Strategy will guide the actions of AGMA, our Local Enterprise Partnership, and the 10 local authorities; creating a Greater Manchester context for the actions of businesses and partner organisations from all sectors.

3.19 The Strategy encompasses a broad range of areas from innovation, renewables and energy efficiency to new business opportunities, the development of ‘smart’ infrastructures, the protection and enhancement of our green space and the actions of individuals and organisations across all GM communities and neighbourhoods.

3.20 The Strategy contains a number of headline indicators that will be taken forward across and beyond the life span of the document:

• Buildings – retrofitting programme to reduction carbon emissions from existing building stock and provide business opportunities and jobs through the initiative.

• Energy – development of local generation technologies, use reduction and district heating networks. Utilise opportunities arising from energy research undertaken by the GM universities.

• Transport – continued expansion of Metrolink, radical improvements to public transport, a shift towards electric vehicles with city-wide charging networks, integrated smart- ticketing and investment in low cost highest impact activity (cycling & walking).

• Green infrastructure – importance of green infrastructure is going to grow as climate change occurs. A green infrastructure protection programme will be put in place as will steps to improve health and wellbeing and ensure more carbon stays locked into our landscapes.

• Sustainable consumption – changing what we consume will drive the transition to a low carbon culture more quickly and create new local markets – low carbon alternatives to the high carbon products of today.

Tameside Decentralised Energy Study

3.21 Following on from the strategic recommendations and observations of the AGMA study, Tameside MBC commissioned consultants to undertake a Tameside specific Decentralised Energy Study to highlight the specific decentralised energy technologies viable across the Borough. Linked with these technologies, the study also assessed development viability against implementation of Part L Building Regulations and suggested content for Core Strategy policies.

3.22 Following a similar process undertaken for the Greater Manchester study, the consultants identified a number of decentralised methods of energy production that could utilise Tameside’s topography, geology and natural and built assets to create viable energy production. The primary technologies and methods identified as potentially viable are as follows:

Wind energy 3.23 The study identified areas of Tameside as having areas of high wind speeds resulting in wind energy potential: • Two sites in the east of the Borough have the potential to accommodate wind clusters. • Six sites were identified as having the potential to accommodate single large turbines at the Peak Forest Canal, Godley Junction and Windmill Lane. • Broad opportunity areas were identified for small to medium sized turbines of up to 15m.

Hydropower 3.24 The rivers Tame and Etherow offer Tameside the potential to utilise their weirs for Hydropower. Utilising Environment Agency data the study identified the 2 classes of potential, each with either low or moderate constraints:

• The River Tame contains 17 weirs in the 20-50kWe range and 3 in the 50-100kWe range. • The River Etherow contains 4 weirs in the 20-50kWe range and 1 in the 50-100kWe range.

Light industrial roof solar power 3.25 Tameside’s industrial based employers (past and present) have created a large number of industrial buildings with roof space that could accommodate large areas of solar photovoltaic cells. The study highlights that the Borough contains 1,219,441 m2 of industrial roofspace that could have the combined potential of producing 107-162 MWe (without constraints considered).

Large heating networks 3.26 Ashton (2-5 MWe gas or biomass CHP) and Stalybridge (1 MWe gas CHP) town centres were identified as having the potential to accommodate large heating networks due to the number of public buildings, presence of social housing, the clustering of buildings and their proximity to potential future development sites.

Small heating networks and clusters 3.27 The study mapped all public buildings, schools & colleges, high density social housing and sheltered housing. These were overlaid with potential future development sites which identified the potential of linking at least 27 sites with existing public buildings. In turn this identifies future potential for creating small heating networks or clusters.

3.28 The study also identified canal water cooling, geothermal mine-water heating (requires much more detailed analysis of mine workings), biomass wood chip and coal bed methane as additional sources of potential energy production.

Viability v Part L 3.29 Having identified the technologies offering the greatest viable potential for the Borough, the study details the need to ensure policies within the Tameside Core Strategy enable / encourage the appropriate delivering of these technologies, linked with GM wide aims and objectives. The study provides guidance on future policy content associated with the specific technologies, issues surrounding infrastructure and the funding / collection of off- site contributions, together with over arching energy policies.

3.30 One of the primary challenges to achieving the CO2 reductions required by new develop is viability. With the stepped tightening of Part L of the Building Regulations providing the national process to achieving zero carbon buildings, there’s a need for the Council to provide guidance and assistance to aid development viability in order to retain and expand investment in the Borough.

3.31 In order to help establish what guidance and assistance may be needed the study tests technology options for different building types against the cost and viability of Part L compliance.

3.32 The study tested viability of the following uses:

• Housing – apartments, townhouse and semi-detached • Employment – B1 office (2000m2), B2 light industrial (2000m2) and B8 storage (5000m2) • Retail – small supermarket (800m2), large supermarket (8000m2) and town centre comparison (2000m2)

3.33 For each use a series of simplified development appraisals were carried out applying different technology scenarios in order to try and identify viable options for each building type.

3.34 For each building type assessed 2013 Part L compliance could be achieved (if the technology or solution is available) with decentralised energy technologies and either Advanced Practice Energy Efficiency (APEE) or Best Practice Energy Efficiency (BPEE) measures. As Part L tightens further from 2016, the technologies and measures applied to comply with 2013 requirements will need to be added to with additional solutions to meet 2016 regs. The study highlights that in order to retain development viability, compliance will need to be achieved through ‘allowable solutions’ (off-site) which could include payments to help fund off-site PV or wind installations or contributions to a community renewables fund.

Delivery 3.35 Part L of the Building Regulations will be the primary mechanism used by the Government to achieve its carbon reduction targets for new buildings. Whilst the onus will be on the developer to achieve the regulations, the Tameside Study has highlighted that in order to help retain and grow investment in the Borough the Council will need to provide assistance and mechanisms to help developers comply. Planning policy will play a part in this process, but ‘allowable solutions’ will also have to be established to enable appropriate buy-out options. There will also be a need for the Council to establish partnerships with energy technology providers to help deliver both on and off site solutions.

4.00 Summary

4.01 It’s globally recognised that as a planet we need to reduce the carbon emissions we’re omitting. Internationally a number of Governments have signed up to carbon reduction targets, with the UK Government committed to reducing carbon dioxide emission to 80% below 1990 levels by 2050.

4.02 In order to help achieve these commitments national targets have been filtered down through national policies and strategies, key elements of which have, and will continue to be fed into planning policy and building regulations.

4.03 The stepped tightening of Part L of the Building Regulations is the primary national driver for improving the energy efficiency / carbon emissions of new developments. Yet in order to retain development viability whilst meeting these regs, mechanisms will need to be in place to assist developers achieve their given requirement. Appropriate planning policies will need to be one of these mechanisms, providing guidance on the development of appropriate decentralised energy technologies on or off site.

4.04 In addition to decentralised energy specific policies, the core strategy will also need to acknowledge the objectives and aspirations of the LCEA and accompanying Greater Manchester Climate Change Strategy, whilst retaining compliance with the National Planning Policy Framework.

5.00 Key Issues

Linking Development with Localised Energy

5.01 The primary issue associated with decentralised energy is managing the transition from sole reliance on large scale, nationally derived energy sources to smaller scale, more localised sources supplementing or replacing national facilities.

5.02 In order to aid this transition a number of elements need to be established and managed by the Council:

Localised Energy Production

5.03 The Tameside Decentralised Energy Study has identified the primary energy technologies likely to be viable for Tameside. These are wind energy, hydropower, light industrial roof solar power, large heating networks and small heating networks.

5.04 In order to help realise these technologies and further assess viability, the following should be undertaken:

• Create appropriate policies within the Core Strategy to aid the development of these technologies. • Identify appropriate sites with the Site Allocations Development Plan Document. • Undertake further detailed studies to assess viability • Seek potential development / funding partners • Create partnerships with local businesses to utilise their land / buildings e.g. for industrial solar roof technologies • Establish potential funding mechanisms (CIL?) to support development of technologies and aid Part L compliance

Part L viability

5.05 The primary goal of tightening Part L of the Building Regulations will be to improve the energy efficiency and carbon emissions of new developments. But this will also drive the development and requirement for decentralised energy. As highlighted by the Tameside Decentralised Energy Study, whilst some uses will be able to meet Regs through on site technologies, others will need to have the ability to meet the Regs through ‘Allowable Solutions’ (off site). It is therefore vital that the Council has appropriate partnerships and mechanisms in place to help developers achieve viability on or off site. Without this development may not be viable.

Wider Climate Change Issues

5.06 Allied with the development of energy efficient buildings and decentralised energy sources, there is a need to help address other climate change related issues:

Green infrastructure • Need to protect the existing green infrastructure within the Borough. • Enhance links with and accessibility to green infrastructure. • Encourage urban greening to aid shading and carbon capture / retention. • New development should successfully link with, enhance and/or develop green infrastructure. • Combine green infrastructure with Sustainable Urban Drainage Systems (SUDS).

Transport • Improve facilities and networks for cycling and walking to create safe interlinking networks and facilities for cycle storage. • Greater integration between modes of public transport.

• Support the development of electric vehicles and the infrastructure requirements of these. • Support increased use of public transport, walking and cycling

Flooding • Ensure new development applies appropriate Sustainable Urban Drainage Systems (SUDS) to accommodate surface water drainage. • Ensure mitigation measures are applied to known flooding ‘hot spots’ via production of a detailed Surface Water Management Plan (SWMP) • If development occurs within the flood plain, it should be appropriately designed to withstand flooding incidents.

6.00 Cross Cutting Themes

6.01 Issues surrounding Climate Change & Decentralised Energy inter-connect with a number of other topic areas including:

Housing – the application of Part L Building Regulations and installation of decentralised methods of energy will impact on housing design, orientation and location. Economy & Employment – the growth of the ‘carbon economy’ could aid job creation and help develop new employment sectors within the Borough. Development viability as a result of climate change measures could enhance or hinder the local economy. Town Centres – town centres, particularly Ashton will play a vital role in enabling the viability of heating networks. They will also be vital in creating sustainable communities with access to high quality public transport. Transport & Infrastructure – sustainable transport and the development of appropriate infrastructure to support the creation of decentralised energy will be vital to achieving carbon reduction measures.

Local Development Framework – Core Strategy Issues and Options Discussion Paper

Topic Paper 9 – Green Infrastructure, Open Space, Sport, Recreation and Biodiversity

1.00 Background

Policy / Guidance Document • Planning Policy Statement 1: Delivering Sustainable Development • Planning Policy Guidance 2: Green Belts • Planning Policy Statement 9: Biodiversity and Geological Conservation • Planning Policy Guidance 17: Planning for Open Space, Sport and Recreation • Biodiversity: The UK Action Plan 2004 • Natural Environment and Rural Communities Act 2006 • Natural Area Profiles for the Mersey Basin and Dark Peak Joint Landscape Character Area • Report on the Species and Habitat Review 2007 • Towards a Greater Manchester Green Infrastructure Framework • Sport England: Spatial Planning for Sport: Creating Local Policy • Tameside PPG17 Open Space, Sport and Recreation Study Standards Paper • Tameside PPG17 Open Space Study • Tameside PPG17 Sports Facility Assessment • Greater Manchester Biodiversity Action Plan • Biodiversity 2020 a Strategy for England’s Wildlife and Ecosystem Services • An Ecological Framework for Manchester • Natural Environment White Paper

1.01 This paper brings together existing data and information to describe the environmental, open space and biodiversity characteristics of the Borough. It should be seen as a mechanism for developing early stakeholder involvement and has been developed following on from the conclusion of various ongoing planning studies, which form part of the Local Development Framework evidence base.

1.02 From the Core Strategy perspective the environment and the numerous biodiversity, recreational and wider open space functions it supports are the framework within which new development and growth takes place. The challenge is to deliver this growth in a sustainable fashion which respects the environments capacity to absorb additional development.

1.03 In addition to this it is important to recognise that a rich and varied natural environment can enhance the enjoyment and value of a location. Tameside by geographic location being to the east of Manchester benefits from having a diverse environment. There are clear contrasts between the east of the borough and its rural characteristics and close proximity to the Peak District National Park compared to the more urban western areas. In addition

to this the river valleys and canal waterways that have historically been lined with industrial development provide green corridors through the built environment.

1.04 There are however numerous national and regional indicators, the Environment Agency, Natural England and the Sustainability Appraisal of the Regional Spatial Strategy that highlight areas of concern in relation to the pressures which development exerts upon the natural environment. This paper also identifies the key messages emerging from other relevant policies, plans, programmes and strategies.

2.00 International Perspective

2.01 There are obligations upon the Government through various conventions and directives to protect international biodiversity designations. There is one such site within Tameside, Boar Flat. Located on the eastern moorland fringe it forms part of an extensive European Designated Peak District Moors Special Protection Area (SPA) and South Pennine Special Area of Conservation (SAC). The designations cover an entire SPA area of 45,301 ha and SAC area of 65,025 ha shown in figure 1.0 below. Where this designation exists the Council is obliged to maintain the Government’s objectives to protect and enhance such sites as detailed through various planning policy guidance.

3.0 National Perspective

3.01 At a national level Planning Policy Statement 1 (PPS 1) is central to the Government’s intentions that the use and development of land must consider its long-term sustainability. The other planning policy statements are supplementary to PPS 1 in elaborating upon particular aspects of land use, and how sustainable development should be taken forward.

3.02 Planning Policy Statement 9 (PPS 9): Biodiversity and Geological Conservation sets out the current (February 2012) planning policy framework for delivering the Government’s objectives. It contains policies, procedures and standards which Local Planning Authorities must adhere to and use to guide policy and decisions.

3.03 Allied with PPS 9 concerning biodiversity and geodiversity, Planning Policy Guidance 2 (PPG2): Green Belt and Planning Policy Guidance 17 (PPG17): Planning for open space, sport and recreation, all expand upon other areas of this topic paper.

Planning Policy Statement 9: Biodiversity and Geological Conservation

3.04 PPS 9 was published in 2005 to ensure that policies and decisions regarding biodiversity are better integrated in to the plan making and decision taking process.

3.05 In the context of PPS 9, biodiversity is considered the variety of life in all its forms discussed in the UK Biodiversity Action Plan (BAP). The national BAP and its update in 2007 contains 1,149 species and 67 habitats.

3.06 Within Tameside UK BAP Priority Habitat types cover 13.68% of the Borough (shown in figure 1.0) and for completeness include:

Blanket Bog 210.3 ha Lowland Beech and Yew Woodland 13.2 ha Lowland Dry Acid Grassland 24.5 ha

Lowland Heathland 60.6 ha Lowland Meadows 2.3 ha Lowland Mixed Deciduous Woodland 9.1 ha Purple Moor Grass and Rush Pasture 81.6 ha Upland Heathland 902 ha Wet Woodland 107.5 ha

(Data from Greater Manchester Ecology Unit)

Figure 1.0

Tameside UK Priority Habitat Areas & International Nature Conservation Designations

PPS 9 sets out the following key principles to ensure that the potential impacts of planning decisions on biodiversity are fully considered.

• Development plan policies and planning decisions should be based upon up-to-date information about the environmental characteristics of their areas. These characteristics should include the relevant biodiversity of the area. In reviewing environmental characteristics local authorities should assess the potential to sustain and enhance those resources. • Plan policies and planning decisions should aim to maintain, and enhance, restore or add to biodiversity. In taking decisions, local planning authorities should ensure appropriate weight is attached to designated sites of international, national and local importance; protected species; and to biodiversity within the wider environment. • Plan policies on the form and location of development should take a strategic approach to the conservation, enhancement and restoration of biodiversity, and recognise the contributions that sites, areas and features, both individually and in combination, make to conserving these resources. • Plan policies should promote opportunities for the incorporation of beneficial biodiversity within the design of development. • Development proposals where the principal objective is to conserve or enhance biodiversity interests should be permitted. • The aim of planning decisions should be to prevent harm to biodiversity. Where granting planning permission would result in significant harm to those interests, local planning authorities will need to be satisfied that the development cannot reasonably be located on any alternative sites that would result in less or no harm. In the absence of any such alternatives, local planning authorities should ensure that, before planning permission is granted, adequate mitigation measures are put in place. Where a planning decision would result in significant harm to biodiversity which cannot be prevented or adequately mitigated against, appropriate compensation measures should be sought. If that significant harm cannot be prevented, adequately mitigated against, or compensated for, then planning permission should be refused.

Specifically in relation to Local Development Frameworks, local authorities should:

• Take an integrated approach to planning for biodiversity when preparing local development documents. They should ensure that policies in local development documents reflect, and are consistent with, national, regional and local biodiversity priorities and objectives (including those agreed by local biodiversity partnerships). • Indicate the location of designated sites of importance for biodiversity making clear distinctions between the hierarchy of international, national, regional and locally designated sites. • Identify any areas or sites for the restoration or creation of new priority habitats which contribute to regional targets, and support this restoration or creation through appropriate policies.

3.07 In addition it is important to note that PPS 9 also provides guidance in relation to geological conservation. Within Greater Manchester the geology is dominated by rock formations, with those in the north and east being of Upper Carboniferous sandstaons and shales of Millstone Grit. These are overlain by shales, mudstones, and coals, providing many outcrops in the upland Boroughs and features typically evident in Tameside.

3.08 PPS 9 also promotes nationally designated Sites of Special Scientific Interest (SSSI). These sites are informed by research undertaken by Natural England and are defined as

being some of the country’s best wildlife and geological assets. Three SSSI exist within Tameside (shown in figure 1.1 below) covering an area of 122.14ha. The SSSI are the Huddersfield Narrow Canal, Hollinwood Branch Canal and the Dark Peak. It is important to note that the Dark Peak SSSI has only some units within the borough, the majority being located within areas of the Peak District National Park and High Peak Borough Council.

3.09 SSSI are divided into units for among other reasons ease of surveying. Of the units which make up the three SSSI in Tameside, 29.24% of the Dark Peak units in Tameside are considered to be within a ‘favourable or recovering position’. The Huddersfield Narrow and Hollinwood Branch canals when last surveyed in 2007 were deemed to require better management to improve the condition of the SSSI.

Planning Policy Guidance 17: Planning for Open Space, Sport and Recreation

3.10 PPG 17, published in 2002, details the current policies in relation to planning for open space sport and recreation. These spaces underpin people’s quality of life and there are numerous benefits to having the right quantity, good quality spaces that are accessible. Wider Government objectives relate closely to many cross cutting themes, including:

• Supporting an urban renaissance. • Supporting a rural renewal. • Promotion of social inclusion and community cohesion. • Health and well being. • Promoting more sustainable development.

3.11 General development principles in determining applications are also contained in PPG 17 in relation to both maintaining an adequate supply of land and planning for new open space, sports and recreational facilities.

3.12 These principles have guided how the council has undertaken its own PPG 17 study to determine a relevant set of standards, and advise of the likely impacts upon the environment of expected levels of population growth and where new open spaces are required to support this.

3.13 It is important to note that PPG 17 when it considers the green environment includes both what is currently designated within the Unitary Development Plan as Protected Green Space and Green Belt. Green Belt is afforded protection through national PPG 2 and is not designated for its natural beauty or contribution to biodiversity but to control urban sprawl.

3.14 Green Belt however may also in many cases make a valid contribution to the wider environment as a nature resource, habitat, playing field, agricultural land or open moorland. In these cases it forms part of a PPG 17 audit of an authorities accessible open space.

Figure 1.1

Tameside Nationally Designated Sites of Special Scientific Interest Locally Designated Sites of Biological Importance

Planning Policy Guidance 2: Green Belt

3.15 PPG 2 details the remit of Green Belt.

The designation of Green Belt is to:

• Check the unrestricted sprawl of large built-up areas. • Prevent neighbouring towns from merging into on another. • Assist in safeguarding the countryside from encroachment. • Preserve the setting and special character of historic towns. • Assist in urban regeneration by encouraging the recycling of derelict and other urban land.

National guidance also recognises that Green Belt can have additional benefits depending on land management by:

• Providing opportunities for access to the open countryside for the urban population. • Providing opportunities for outdoor sport and outdoor recreation near urban areas. • Retaining attractive landscapes, and enhance landscapes, near to where people live. • Improving damaged and derelict land around towns. • Securing nature conservation interest. • Retaining land in agricultural, forestry and related uses.

3.16 It is clear from the above three principle guiding planning policy documents in relation to the environment, PPS 9, PPG 17 and PPG 2, that there are many benefits to viewing the wider environment as one item. The approach taken forward through the hierarchy of planning policy to regional and local levels therefore utilises a Green Infrastructure terminology to view the environment as an infrastructure in itself.

Draft National Planning Policy Framework

3.17 It is important to note that the Government intends to replace the current suite of national planning policy statements and guidance, described above, and the North West Regional Spatial Strategy, with a single national planning document; the National Planning Policy Framework (NPPF). This document had a period of public consultation in 2011 and is currently being reviewed (February 2012)

3.18 Whilst the current planning policy statements will remain in place until adoption of the NPPF, it is useful to be aware of its content as it will guide the policies in the Core Strategy.

3.19 The consultation draft of the NPPF contains a ‘presumption in favour of sustainable development’. It also retains many of the principles of existing planning policy statements:

• Greenbelt should provide further opportunities for sport, recreation, enhance visual amenity and biodiversity. • Conserve and enhance the natural local environment. • Minimise impacts on biodiversity and provide net gains. • Protect valued landscapes.

3.20 The NPPF however advocates the above within a pro development framework, stating that plans should be prepared to meet development requirements and that the natural

environment should assist in this. The needs of development are placed first unless adverse impacts outweigh the benefits.

3.21 Therefore there is a need to proactively plan for the natural environment, with the NPPF referencing a green infrastructure approach to enhance the management of networks of open spaces and nature resources. This continues the overall trend in nature conservation policy toward further enhancing and creating habitats, in addition to protecting existing assets. This approach is also re-iterated within the Natural Environment White Paper by recommending the establishment of landscape scale Nature Improvement Areas.

4.00 Local Perspective

North West Regional Spatial Strategy

4.01 Although as stated above it is the clear intention to abolish regional spatial strategy it is important to recognise that in response to national planning policy surrounding green infrastructure, open space and biodiversity, the North West Development Agency through its Regional Spatial Strategy (RSS) established policies and targets.

4.02 Policy EM1 recommends an integrated approach to biodiversity, landscape and green infrastructure. In aiding the promotion of open spaces, biodiversity and green infrastructure, the RSS contains an additional policy, EM3, requiring a green infrastructure approach to be adopted in all land use, development, community and economic and regeneration strategies.

4.03 Policy EM3 notes the importance of a green infrastructure in delivering benefits to many areas through cross cutting themes and multifunctionality. That said in many ways the term green infrastructure is a new term to draw together greenspace practice and policy that has existed for many years.

Emphasis is placed upon: • Conserving and managing existing green infrastructure. • Creating new green infrastructure. • Enhancing its functionality, quality, connectivity and accessibility.

Greater Manchester

4.04 The Association of Greater Manchester Authorities (AGMA) set out its approach to the natural environment through sub-regional designations such as Sites of Biological Importance (SBI), and by developing a Greater Manchester Green Infrastructure (GI) Framework. The GI Framework is an interpretation of policy EM3 of the North West RSS.

4.05 In addition to the GI Framework other city region activities are undertaken by the Greater Manchester Ecology Unit (GMEU), providing important local specialist advice to, and on behalf of, the ten Authorities that make up Greater Manchester on biodiversity, nature conservation and wildlife issues.

4.06 Following on from the nationwide BAP, currently there are 13 action plans in Greater Manchester covering a range of habitats and species and a further 5 in the process of being formulated.

4.07 The Greater Manchester BAP is supported by PPS 9 as it advocates efforts to conserve, enhance and restore natural habitats, ecosystems and species that contribute towards a rural renewal and an urban renaissance. The Greater Manchester BAP Habitats cover 29.77% of the Borough and include:

Acid Grassland 518.9 ha Canals 21.9 ha Lowland Broadleaved Woodland 250.7 ha Lowland Broadleaved Woodland/Lowland Heathland Mosaic 0.852 ha Lowland Heathland 79.7 ha Lowland Heathland/Acid Grassland Mosaic 103.6 ha Managed Greenspace 760.8 ha Marshy Grassland 28.6 ha Mosslands 631.4 ha Ponds and Lodges 153.7 ha Purple Moor Grass and Rush Pasture 14.2 ha Unimproved Neutral Grassland 19.4 ha Upland Heath 41.9 ha Upland Heathland/Acid Grassland Mosaic 321.1 ha Wet Woodland 124.6 ha

4.08 In addition to the BAP, GMEU continually review sub-regionally designated SBI’s shown in figure 1.1. The process of identifying SBI’s clearly supports the PPS 9 approach of identifying the hierarchy of international, national, regional and locally designated sites.

4.09 The majority of SBI’s within Tameside are located within the river and canal corridor network and toward the more rural eastern open land areas of the Pennines. In broad terms the SBI’s within Tameside are designated for the presence of unimproved grassland, woodland, healthland and bog habitats.

4.10 The borough has a total of 54 SBI’s covering an area of 1406.9ha, which have increased in net size since 2004/05 by 410.5ha. Although SBI’s are a non statutory designation, support from PPS 9, the RSS and adoption through the existing Unitary Development Plan they serve an important role in monitoring, protecting and enhancing the boroughs nature conservation assets.

Green Infrastructure

4.11 The RSS is clear in the approach to be taken when considering the matrix of green, brown and blue environments, including those in the list below that are from the work undertaken through the Greater Manchester GI Framework.

Green Infrastructure assets include:

• Formal and country parks, managed open spaces, woodlands, rivers, canals, conservation areas, ecological sites, moorland fringes, river valleys, support networks of informal and ecological greenspace, multi-user routes, pocket spaces for play, amenity spaces and recreation spaces.

4.12 There has been much work been undertaken by consultants The Environment Partnership (TEP) on behalf of the Association of Greater Manchester Authorities (AGMA) in drawing together a vast array of evidence in establishing what is the existing core GI framework and on-going projects in highlighting good practice and potential investment opportunities. As

policy EM3 states it is important to conserve, create and enhance the existing network of spaces. To this end the TEP work establishes what the existing GI core consists of shown in figure 1.2.

4.13 This work is ongoing and has recently been taken on by AGMA to establish a GI Action Plan to deliver the framework specifically for actions at a strategic city regional scale.

Figure 1.2 Core Green Infrastructure Network. TEP (2008) Towards a Green Infrastructure for Greater Manchester, Figure 9.5.

5.00 Tameside

5.01 Tameside has a number of sites and areas of biodiversity and conservation value that are representative of the rich mosaic of semi-natural habitats and landscape types. Many of these features such as ponds and canals are the result of past industrial development which have since been reclaimed by nature. The river valleys and green routes, which although in many cases are still fringed by employment development, provide relief from the urban area and are biodiversity transit corridors. This is best evidenced through the Phase one Habitat Survey for the Borough, the most up to date comprehensive survey of habitats in Tameside available.

5.02 Geologically, Rocher Vale which is on the Borough boundary with Oldham toward Park Bridge Heritage Centre is designated as a Local Nature Reserve (LNR) and Site of Biological Importance. It has a mix of habitats including woodland, heath and riverbanks and displays many rocky outcrops and geological features. There are therefore ambitions to designate the site as a Regionally Important Geological and/or Geomorphological Site (RIGGS) to ensure conservation and promotion of it for future educational and public benefit. This is consistent with the PPS 9 approach and may be one of numerous appropriate sites within the Tameside.

Local Nature Reserve

5.03 There are eight Local Nature Reserve (LNR) in the borough, which is the most local designation within the hierarchy set out in PPS 9. LNR status can only be given to assets which are owned and managed by the Authority and are recognised within the currently adopted Unitary Development Plan. Currently designated LNR include:

• Knott Hill • Hollinwood Branch Canal • Great Wood • Hulmes and Hardy Wood • Haughton Dale, • Castle Clough and Cowbery Dale • Hurst Clough • Rocher Vale

5.04 There are plans to designate a further LNR in 2013/14 and 3 more in 2014/15. In addition to designated LNR the Countryside Service has also received accreditation for the sustainable management of 19 of its woodlands.

Open Space, Sport and Recreation

5.05 The Council undertook a PPG 17 study in accordance with the planning guidance available to determine a relevant set of space standards, advise of the likely impacts expected levels of population growth and where new open spaces are required to support this.

5.06 Completed in August 2010 jointly between the Council and Knight Kavanagh and Page, the study comprehensively assesses all publicly accessible space across the borough and:

• Sets provision standards for accessibility, quality, value and quantity. • Applies the provision standards to indentify deficiencies and surplus in provision.

5.07 The setting of standards applies to the following types (typology) of greenspace, which were utilised for the purposes of surveying provision and setting standards:

• Parks and formal gardens. • Natural space and accessible countryside. • Amenity greenspace. • Play areas. • Allotments and community gardens. • Green corridors. • Cemeteries and graveyards. • Hard surface civic space. • Outdoor and indoor sports facilities.

Standards are based upon:

• Accessibility – distance thresholds. • Quantity – hectares per 1,000 people. • Quality – percentage thresholds. • Value – percentage thresholds.

5.8 Not all ‘typologies’ mentioned above are able to be judged against all standards. As stated within the PPG 17 study, ‘Green Corridors’ for example are generally linear in nature meaning that practically only a quality and value standard is realistically appropriate to be set or judged against.

5.9 The table below details the accessibility benchmark standards that were applied to the types of greenspace. These have been derived from Accessible Natural Greenspace Standards (ANGST) set by Natural England and modified in some cases for Tameside based on primary evidence undertaken as part of the study.

5.10 The resident population should therefore live within the distance applied around the existing provision of greenspace.

Typology Accessibility Equivalent distance standard Parks and formal gardens 15 minutes walk 600 metres Natural space (including country 10 minutes walk 440 metres parks) Amenity space 10 minutes walk 440 metres

Play areas 7.5 minutes walk 440 metres 330 metres Allotments 15 minutes drive time 5,000 metres (at approx 30 mph) Cemeteries/graveyards 30 minute drive 10,000 metres (at approx 30 mph) Civic space 15 minutes drive time 5,000 metres (at approx Or 30 mph) 15 minutes walk Or The principle outcomes of the study are as follows. 600 metres

Outdoor sports facilities (grass All residents to live 5,000 metres (at approx pitches) within 15 minute drive 30 mph) of provision available for community use Outdoor sports facilities (bowling All residents to live 5,000 metres (at approx greens and tennis courts) within 15 minute drive 30 mph) of provision available for community use Indoor sports facilities All residents to live 3,333 metres (at approx within a 10 minute 30 mph) drive of accessible sports hall, swimming pool, fitness provision.

5.11 Based upon accessibility, having the correct sites within the right locations;

• Parks and formal gardens New provision in Hyde is considered appropriate to meet the standard of a new local park of 2 ha in size. • Natural space and accessible countryside It is not considered that there are any gaps in provision • Amenity greenspace It is not considered that there are any gaps in provision • Play areas The majority of areas in Tameside are considered to have adequate access to play provision. However South Hyde, East Dukinfield and South Mossley are identified as areas being appropriate for new play area provision of a Local Area Equipped for Play (LEAP 0.04ha) standard. It is also noted that better access to provision contained within schools would assist deficiencies in accessibility. • Allotments and community gardens Based upon accessibility of a 15minute drive time the borough is adequately served. However assessed against a 15minute walk time standard highlights areas of Ashton are appropriate for new provision, as does assessment of demand by waiting lists.

• Green corridors It is not considered that there are any gaps in provision, although better linkages particularly between sections of the bridleway network are highlighted as needed within the study. • Cemeteries and graveyards It is not considered that there are any gaps in provision • Hard surface civic space It is not considered that there are any gaps in provision • Outdoor and indoor sports facilities Sports Halls New provision in Mossley is considered appropriate to meet the standard Swimming pools New provision in Mossley is considered appropriate to meet the standard Health and fitness provision New provision in Mossley is considered appropriate to meet the standard Playing pitch provision It is not considered that there are any gaps in provision, although it is noted that there is an undersupply of junior pitches and an over supply of senior pitches resulting in many cases where junior teams play across senior provision. Outdoor sports It is not considered that there are any gaps in provision

5.12 Based upon quantity, having enough sites to serve expected population growth;

5.13 An assessment of quantity is made by taking the current provision, adding in any existing deficiencies identified and then provision is projected forward to 2026 on a town basis allowing for population growth. Due to an expected population growth of between 7.6% (Office for National Statistics) and 14.5% (Greater Manchester Spatial Strategy) there is a need in all but a few cases to increase the overall number of hectares or number of sites for most typologies in most town areas. The increase in requirement is most noticeable however where an existing deficiency already exists as identified above through the accessibility modelling.

5.14 Based upon quality and value

5.15 The assessment of sites being of an acceptable quality and acceptable value uses a benchmark percentage of a scoring system that was applied to sites. A benchmark acceptable percentage threshold for quality of 47% was applied and 50% for value. For most typologies, over half of sites are considered of adequate quality and value. However amenity space and natural and semi natural greenspace typologies have over half of sites which are considered to be below acceptable quality.

5.16 It is important to note that individual site characteristics largely effect site scoring. Therefore something broadly as simple as improved site management has to be judged on a site by site basis as to the effectiveness and impact it would have on the quality and value scores.

6.00 Summary

6.01 Planning Policy Statements 1, 2, 9 and 17 outline how planning can help contribute to enhancing quality, connectivity and accessibility of our natural environments. It is clear that development can threaten and exert further pressures upon land that may support key wildlife or recreational functions. Through planning, a balance needs to be struck to protect and enhance these existing functions but to also allow further economic growth.

6.02 In order to help achieve these ambitions the filtering down through national and regional policy highlights the key elements of the Borough’s environment that currently have and will continue to have protection.

6.03 The drive to deliver economic growth and expected population growth within Tameside serves to raise the importance of good management and protection of the natural environment. The ‘enhance; quality, connectivity and accessibility’ approach of policy EM3 of the North West RSS in adopting a GI approach to planning highlights the many multifunctional benefits to having an integrated planning approach to the items discussed within this paper

6.04 Tameside, as shown through the above discussion and evidence is blessed with many natural and semi natural landscapes and has a feeling or rurality, particularly so to the east of the borough. Evidence would suggest however that there is room for continued improvement of both the quality and value of many of Tameside’s amenity spaces and more natural countryside environments.

6.05 Although there have been increases in both the number of designated SBI and LNR, there is a potential for further improvement of the Boroughs SSSI where the quality of nature conservation resources has much to do with appropriate land management in raising habitat quality. There is also evidence of appropriate RIGGS which could be encouraged as a designation where they exist across Tameside.

6.06 The PPG17 study has highlighted existing provision deficiencies in the Green Infrastructure for some typologies that are required to meet the existing demands of current population levels.

7.00 Key Issues

7.01 The Council will continue to have an obligation to improve the condition of nature conservation assets wherever possible. Government Policy advises that development should not be granted when it is likely to have an adverse effect on a SSSI. In addition, Tameside has many locally designated SBI and LNR and it is important therefore to ensure that any new development within the Borough has a minimal impact on the natural environment and that mitigation measures are employed if any proposed development may impact on designated sites.

7.02 There is therefore the need to continue the protection of existing areas of nature conservation importance regardless of whether a site is nationally, sub-regionally or locally designated.

7.03 As highlighted above it is extremely important to conserve and wherever possible improve the biodiversity resources of the borough. To some extent this is achieved through good

land management of the Councils own assets and encouraging others to follow suit. The network of existing biodiversity habitats will continue to be protected and enhanced and the Council will support the designation new local sites.

7.04 Pockets of Tameside are densely populated, however the urban areas are peppered with many small amenity and open spaces. With increased pressure for development however there may be pressure upon these assets. It is important therefore to recognise that they provide important places for exercise, play and relaxation. The Tameside PPG 17 audit of open space, sport and recreational facilities highlights the need for improvement of quality and value of these spaces.

7.05 The study also highlights existing deficiencies which although few in number, recommend a noticeable requirement for sport and play provision within the Mossley area.

7.06 Additional population pressure upon sometimes already deficient typologies, may mean that it is appropriate through the development process, that schemes of an appropriate size and scale provide a level of open space contribution. This would assist in maintaining an adequate level of quantity and accessibility, particularly if location based planning policy were utilised to prioritise the most deficient areas.

7.07 It is also evident that the Borough is located within an area that is likely to have potential RIGS, designation of such assets should be encouraged in accordance with the corresponding guidance.

8.00 Cross Cutting Themes

8.01 Issues surrounding green infrastructure, open space and biodiversity inter-connect with a number of other topic areas including:

Housing – Open spaces provide valuable recreational spaces within areas of new development, in addition there is evidence which highlights clear linkages with the value placed upon green urban environments in creating healthy, both physically and physiologically, and sociable places to live. In addition housing growth and population growth will inevitably mean that people will require additional supporting spaces. Climate Change and decentralised energy - There are clear linkages between greening the urban environment and reducing the effects of climate change. There are also adaptive functions that open spaces are able to play in reducing the urban heat island effect, reducing surface water run-off and reducing vulnerability of the natural environment to warming of the climate. In addition habitats such blanket peat bog and woodland areas are carbon stores which help to more generally regulate fluctuations in the climate. Economy & Employment – A green infrastructure that is embraced, as with housing has multiple spin off benefits, including making an area more attractive for investment. Town Centres – Town centre environments can be stark in nature without adapting a green infrastructure approach. As mentioned above there are additional benefits of reducing the urban heat island effect, providing summer shading, improving air quality and creating a better overall retail and town centre environment. Flood Risk – The river valleys of Tameside contribute to the overall habitat mix. In addition, limiting development only to that which is appropriate helps retain areas for flood water storage and reduces surface water run off which both help in reducing the flashiness of river systems and reducing overall risk.

Health and Inequalities – A green infrastructure assists with the promotion of a healthier lifestyle particularly by ensuring good accessibility to appropriate provision of various forms of recreational activities from both the natural environment to more formalised sporting activities.