Housing and Economic Land Availability Assessment (HELAA) REPORT December 2020

Redcar & Cleveland Housing and Economic Land Availability Assessment (HELAA) REPORT December 2020

this is Redcar & Cleveland Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

CONTENTS

Executive Summary Tables Index

1 Introduction 9 Background National Planning Policy Framework Redcar & Cleveland Local Plan Other Development Strategies

2 Planning Practice Guidance 15 Housing and Economic Land Availability Assessments HELAA Five Stage Standard Methodology Housing Supply and Delivery PPG

3 Assessment Methodology 22 Background Local Delivery Context Application of Standard Methodology Stage 1: Site Identification Stage 2: Site Assessments Stage 3: Windfall Assessment Stage 4: Assessment Review Stage 5: Final Evidence Base

4 Assessment Findings Overview 31 Stage 1: Site Identification Stage 2: Site Assessments Stage 3: Windfall Assessment Stage 4: Assessment Review

5 Deliverable and Developable Housing Supply 38 Deliverable Housing Supply Developable Housing Supply Risk Assessment

6 Other Assessed Potential Housing Sites 47 Background Sites Within Development Limits Sites Outside Development Limits

7 Brownfield Land Register 50 Background Preliminary Review

8 Economic Land Availability Assessment 53 Background Policy Context Economic Land Availability Audit Review Development of Employment Land for Housing Conclusion

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

9 Conclusion 61

Appendices

Appendix 1: Site Index

Appendix 2: Commitments on Small Sites (1-4 net dwellings)

Appendix 3: Indicative Delivery Schedule 2020/21 – 2031/32

Appendix 4: Assessment of C2 Care Home Permissions

Appendix 5: Economic Development Sites - Land Availability Review

Appendix 6: Site Location Plans

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Executive Summary

• This Report, together with the supporting Annexes, provides an updated assessment of housing and economic land availability for the Redcar & Cleveland plan area for the 12-year period from 2020/21 to 2031/32; the end of the current plan period.

• The assessment has a base date of 1 April 2020 and has been undertaken in accordance with the National Planning Policy Framework (NPPF), which was revised in July 2018 and further amended in February 2019. The requirements for local authorities to prepare assessments of land availability and to undertake annual reviews of five-year deliverable housing supply have been maintained in the revised NPPF.

• The assessment reviews and replaces the Housing and Economic Land Availability Assessment (HELAA) dated December 2019 which covered the period from 2019/20 to 2031/32.

• The Redcar & Cleveland Local Plan, which was adopted in May 2018, provides the basis for the assessment of housing supply and includes a minimum housing requirement of 3,978 net additional dwellings for the 17-year period from 2015 to 2032, which is equivalent to 234 dwellings per annum.

• The assessment encompasses suitability, availability and achievability surveys of potential housing sites (provided in the Annexes document) to inform the consideration of sites as ‘deliverable’ or ‘developable’ (or otherwise undevelopable) in accordance with NPPF definitions. The assessment incorporates the mandatory annual review of the five-year deliverable housing supply, from 1 April 2020 to 31 March 2025.

• It should be noted that the HELAA is not a policy document. Therefore, the inclusion of any site in the HELAA does not of itself infer Council support for its development, whether through allocation in a development plan or via a planning application.

• The assessment of deliverable and developable housing supply has taken into account the following:

- housing completions in the year to 31 March 2020 and ongoing developments; - planning permissions as recorded at 31 March 2020; - Local Plan housing allocation sites without planning permission; - any identified additional sites; - feedback from a written consultation undertaken in June 2020 with relevant housing developers and site promoters in regard to housing delivery; and - subsequent monitoring of housing delivery and permissioned supply in light of disruption caused by the Covid-19 outbreak.

• The assessment, at Chapter 5, confirms that a deliverable five-year housing supply can be evidenced. The estimated deliverable five-year supply is 1,548 dwellings, including 1,200 dwellings on existing development site, and demonstrates that a five-year deliverable housing supply can continue to be evidenced.

• The estimated developable supply is 2,500 dwellings, giving a total estimated deliverable and developable supply of 4,048 which is equivalent to 337 dwellings per annum and substantially exceeds the minimum residual requirement of 1,972 over the remainder of the plan period. Of the overall estimated supply, 78% would be on sites which are either under development, have planning permission or are Local Plan housing allocations. The balance is accounted for on major application sites without permission or allocation and an evidence-based allowance for unidentified

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

windfalls allowance on minor sites (developments of fewer than 10 new build dwellings and conversion or change of use schemes). No allowance has been made for completions on major unidentified windfall sites.

• 66 other sites have been assessed, including 31 within development limits, though most of those sites are currently considered undevelopable due to physical or economic constraints (see Chapter 6).

• Supplementary to the main findings, the assessment has identified 31 sites which are considered suitable for inclusion in the forthcoming annual review of the Redcar & Cleveland Brownfield Land Register (see Chapter 7).

• The assessment of economic land availability indicates that there is a sufficient supply of developable employment land (including opportunities on non-allocated sites) to comfortably meet the assessed employment land needs set out in the 2016 Employment Land Review Update and in the Local Plan. It is noted that a significant proportion of the housing land supply either is or recently has been on former employment sites and allocations and that the further scope for re-using employment land for housing appears to be limited (see Chapter 8).

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Tables Index

Table 1: Stage 5 Output Signposting

Table 2: Site Identification Summary

Table 3: Sites Added to Assessment

Table 4: Sites Removed from the Assessment

Table 5: Summary Breakdown of Assessed Housing Sites

Table 6: Estimated Housing Supply Summary 2020/21-2031/32

Table 7: Five-Year Supply Calculation

Table 8: Deliverable Supply Breakdown

Table 9: Deliverable Supply Estimate Annual Breakdown

Table 10: Developable Supply Summary

Table 11: Developable Supply Breakdown

Table 12: Comparison of Previous Annual Delivery Estimates with Actual Net Completions

Table 13: Indicative List of Brownfield Land Register Sites

Table 14: General Economic Development Land Availability

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

1 INTRODUCTION

Background

1.1 This Report provides an assessment of housing and economic development land supply and future potential supply in Redcar & Cleveland for the current local plan period, from 2020/21 to 2031/32. The Report is augmented by a separate Annexes document containing corresponding assessments of potential housing sites. The work has been undertaken in accordance with standard practice guidance. For ease of reference, site location plans are provided towards the back of each document.

1.2 The assessment reviews and replaces the previous Redcar & Cleveland Housing and Economic Land Availability Assessment (HELAA) dated December 2019. Prior to that, periodic updates of the HELAA and before that the Strategic Housing Land Availability Assessment (SHLAA) have been published by the Council since 2008. The HELAA replaced the SHLAA from 2018 to align more closely with revised government Planning Practice Guidance.

1.3 The assessment has been prepared in advance of any changes arising from the government’s proposed, and far-reaching planning reforms which were published in a consultation White Paper in July 20201. Nonetheless, it should be noted that if the proposed reforms are implemented, local authorities would no longer be required to produce annual five-year land supply assessments or be expected to prepare land availability assessments. Specific requirements will ultimately be confirmed by changes to the National Planning Policy Framework and any supporting guidance.

1.4 The assessment has a base date of 1 April 2020 and produces the following outputs:

• In Chapter 5, assessments of five-year deliverable housing supply from 2020/21 to 2024/25 and developable housing supply for the seven years from 2025/26 to 2031/32 and an associated indicative delivery trajectory encompassing the twelve-year period.

• An indicative housing delivery schedule at Appendix 3, supported by more detailed site appraisals in the Annexes document for potential housing sites, i.e. those which are not recorded as under development.

• Appraisals of other potential housing sites, i.e. those not included in the deliverable or developable supply, distinguishing between sites inside and outwith development limits as defined in the adopted Redcar & Cleveland Local Plan (see Chapter 6 and Annexes document).

• An indicative list of sites for prospective inclusion in the 2020 update of the Redcar & Cleveland Brownfield Land Register (see Chapter 7).

• A review of economic development land availability (see Chapter 8).

1 Planning for the future - GOV.UK (www.gov.uk)

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

1.5 In terms of the housing data, the assessment takes into account the following changes:

• reported housing completions in the year to 31 March 2020; • reported outstanding housing commitments as at 31 March 2020; • sites which have been identified since the previous review; • response to written consultation undertaken in June 2020 with relevant developers, landowners and agents on the five-year deliverable supply; and ongoing in-year monitoring of housing supply and delivery and any other changes.

1.6 The HELAA informs the selection of appropriate sites to meet housing supply and employment land requirements in the local plan. It should be noted that the HELAA is not a policy document. Therefore, the inclusion of any site in the HELAA does not of itself infer Council support for its development, whether through subsequent allocation in a local plan or the submission of a planning application.

1.7 However, as the HELAA also informs and in this case incorporates the assessment of deliverable five-year housing land supply, it can in accordance with national policy be a material consideration in determining planning applications for residential development.

National Planning Policy Framework (February 2019)

1.8 The National Planning Policy Framework (NPPF) was amended in February 2019, superseding the revised NPPF from July 2018 which had replaced the NPPF from March 2012. The main policies on housing are set out in Chapter 5 ‘Delivering a sufficient supply of homes’, at paragraphs 59 to 79 where it is advised that local authorities should:

• identify sufficient housing sites to evidence a supply of specific deliverable sites for the first five years of a plan period, and specific developable sites or broad locations for years 6 to 10, and where possible years 11-15;

• in doing so, continue to prepare strategic housing land availability assessments to inform planning policies which identify a sufficient supply and mix of sites, taking into account site availability, suitability and likely economic viability (paragraph 67); and

• undertake annual rolling reviews of their five-year housing land supply assessment (paragraph 73).

1.9 It is also confirmed that housing requirements should be informed by a local housing needs assessment which should normally be derived from the government’s standard calculation method, which is set out in separate planning practice guidance (para. 60), and that subject to providing compelling evidence, an allowance for completions on windfall sites can be included in the supply assumptions (para. 70).

1.10 At Annex 2 it is clarified that to be considered deliverable, sites should be ‘available now, offer a suitable location for development now, and be achievable with a reasonable prospect that housing will be delivered on the site within five years and in particular that the development of the site is viable’. In that respect, it is confirmed

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

that sites with detailed planning permission should be treated as deliverable until permission expires, ‘unless there is clear evidence that schemes will not be implemented within five years, for example they will not be viable, there is no longer a demand for the type of units or sites have long term phasing plans’ 2.

1.11 It is also confirmed in Annex 2 that ‘sites that are not major development3, and sites with detailed planning permission should be considered deliverable unless there is clear evidence that homes will not be delivered within five years (e.g. they are no longer viable, there is no longer a demand for the type of units or sites have long term phasing plans). Major sites with outline permission, permission in principle, allocated in the development plan or identified on a brownfield register should only be considered deliverable where there is clear evidence that housing completions will begin on the site within five years’, ..and.. ‘to be considered developable, sites should be in a suitable location for housing development with a reasonable prospect that they will be available and could be viably developed at the point envisaged’.

1.12 Therefore, in producing estimates of deliverable and developable housing supply, an evidence-based judgement needs to be made which assesses each site as deliverable or developable in accordance with the above definitions (or, where neither definition applies, potentially developable or undevelopable)4.

1.13 It is also confirmed that in assessing five-year deliverable supply, an appropriate buffer of 5%, 10% or 20%, brought forward from later in the plan period, should be added to the requirement with performance against the government’s housing delivery test taken into account in determining the percentage buffer.

1.14 In Chapter 11: ‘Making effective use of land (paragraphs 117-123), it is confirmed that planning policies should promote an effective use of land in meeting the need for homes and other uses including through:

• giving substantial weight to brownfield sites within settlements (para.118); • adopting a pro-active approach in identifying and helping to bring forward suitable land for development including suitable sites on brownfield registers or in public ownership (para.119); and • taking into consideration factors such as housing and other development needs and land availability, optimising the use of land including through localised minimum housing density standards (paras. 122-123).

1.15 The assessment of land availability forms part of the evidence base supporting the plan-making process and needs to have regard to NPPF Paragraph 11, which confirms that in applying the presumption in favour of sustainable development, where policies in the NPPF protect areas or assets of particular importance, this provides a strong reason for restricting or refusing development. These higher-level policies and designations are shown in NPPF footnote 6 and paragraph 176 and some of them, including Heritage Coast, designated heritage assets and areas at risk of flooding, are relevant to the Redcar & Cleveland plan area, which also shares a border with the sensitive environments of the North York Moors National Park. Where designations apply to particular sites or areas, they have implications for assessing site suitability.

2 As per Annex 2 of the 2018 NPPF. The text is unchanged from that in Footnote 11 to the 2012 NPPF. 3 ‘Major development ‘in the context of housing is defined in the NNPF as proposals for at least 10 dwellings or a site of at least 0.5ha. 4 For economic development land, there is no requirement to undertake an assessment of five-year land supply or to produce an associated delivery trajectory. The assessment of economic development land availability is therefore only against the requirement over the plan period.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

1.16 In the 2012 NPPF, it was advised that local planning authorities should assess the need for and the availability of an adequate supply of suitable economic development land. Critically, it is also advised that reviews of economic land availability should be undertaken at the same time as, or combined with the SHLAA; thus providing justification for preparing a HELAA. Although this recommendation is not explicitly stated in the revised NPPF, it is confirmed that land availability should be reviewed regularly, along with land use allocations and the scope to reallocate land for more developable uses, and that planning applications for alternative uses which would help meet development needs should be supported (para. 120). Furthermore, the revised Planning Practice Guidance (see below) also continues to advocate making joint assessments of potential development land. It is therefore considered that combining the assessment of housing and economic land availability remains appropriate.

Redcar & Cleveland Local Plan

1.17 The Redcar and Cleveland Local Plan (the “Local Plan”) was adopted by the Council on 24th May 2018. The adopted plan forms the statutory development plan for the borough5 for a 17-year period from 2015 to 20326.

1.18 The Local Plan provides the basis for the assessment of housing supply and for considering the acceptability of development proposals. A deliverable five-year supply of housing land and a developable supply over the course of the plan period to 2032 has been evidenced in the plan, as set out in the indicative delivery schedule in the plan at Appendix 4, which is itself derived from the 2017 SHLAA.

1.19 Policy H1 sets a minimum net requirement of 3,978 net additional dwellings over the plan period, which equates to 234 dwellings per annum average. The housing requirement is based on meeting the objectively assessed housing need as detailed in the 2016 Strategic Housing Market Assessment (132 per annum average) and, on top of this, the council’s aspirations to achieve a level of population growth in excess of official projections which would increase the resident population to 2001 Census levels and support a more balanced demographic profile between the proportions of working-age and retirement age households. The annual average requirement in the plan is also 65% higher than the assessed need for 2016 to 2026 using the government’s standardised methodology (142 per annum).

1.20 Taking into account existing housing commitments at Table 3, the 28 housing allocation sites under Policy H3 and the mixed-use allocation at Policy REG3, the plan provides for the estimated development of approximately 5,500 dwellings for the period from 2017 to 2032 (equivalent to 323 per annum), thereby far exceeding the balance of the minimum plan requirement. In accordance with national policy, it facilitates a substantial increase in net new housing supply relative to past performance and provides significant flexibility in terms of housing delivery.

1.21 The substantial supply buffer includes two greenfield extension sites at Flatts Lane, Normanby (now the ‘Woodcross Gate’ development) and Land South of Marske which were granted permission on appeal during the course and increased the prospective supply by approximately 1,200 dwellings.

5 Excluding areas inside the North York Moors National Park, for which the National Park Authority is the statutory local planning authority. 6 Alongside the Tees Valley Joint Minerals and Waste Development plan Documents 2011-2026.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

1.22 While it is anticipated that a deliverable and developable supply of housing is capable of being maintained throughout the plan period, in Policy H1 it is confirmed that were the supply to fall consistently below the annual requirement, or that a five- year supply could no longer be evidenced, the Council would work with the development industry in taking appropriate action in seeking to address the situation.

1.23 Policy ED6 set outs employment land allocations in the Local Plan, which comprise three specialist employment areas and eight established industrial estates and business parks of varying size, characteristics and occupancy rates. Due to deallocation and redevelopment for other uses, the quantum of land is less than that allocated in the previous Redcar & Cleveland Local Plan (1999), but it comfortably meets the requirement evidenced by the 2016 Employment Land Review Update.

1.24 Other key development policies in the plan include the following:

• Policy SD3, which clarifies exceptions where proposals for development outside the defined settlement boundaries may be supported.

• Policy SD4, which is the key development management policy setting out, against the range of planning application considerations, the requirements which proposals are expected to meet.

• Policy H2, which among other things seeks to encourage residential development which is appropriate to its location and contributes to meeting the varying needs and demand for different housing types.

• Policy H4, which details the Council’s policy on affordable housing contributions.

• Policy H5, which sets out the requirements for residential sub-division and conversion of existing buildings to housing.

• Policy ED1, which provides the main policy on town, district and local centres and encourages a mix of uses in them in order to support their viability and vitality, including residential development where appropriate.

• Policy ED4, which sets out the criteria for allowing retail development in industrial estates and business parks.

Other Development Strategies

Redcar and Cleveland Housing Strategy 2019-2024

1.25 The Redcar & Cleveland Housing Strategy has recently been updated, replacing the strategy for the period from 2012-2017. It is explained in the strategy how the Council and its partners intend to address key housing issues over the next five years and beyond through the achievement of three core objectives: (1) Build homes to meet the needs of our population; (2) Improving the standards of existing housing and revitalising neighbourhoods; and (3) Meeting the needs of our ageing population and supporting people to live independently. Each of these objectives is related to housing policies and achievement aspirations in the Local Plan and is supported by a series of priorities. Objective (1) is closely aligned to increasing

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

housing supply as per Local Plan Policy H1 and is, in turn, supported by priorities including ensuring an adequate supply of housing for current and future residents and meeting the housing aspirations of the local population.

1.26 Regard has also been had to the following site-specific development strategies:

• Redcar & Cleveland Economic Growth Strategy (2017) and supporting area growth plans.

• Redcar & Cleveland Industrial Estates Strategy (2018)

• The South Tees Area Supplementary Planning Document (2018)

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

2 PLANNING PRACTICE GUIDANCE

2.1 As with previous assessments, this review has been prepared in accordance with the NPPF and the supporting national Planning Practice Guidance (PPG), which provides detailed advice on undertaking assessments which local authorities are expected to comply with unless there are justifiable exceptions.

2.2 The PPG chapter on Housing and Economic Land Availability Assessment was amended in July 2019, replacing the previous update from September 2018. The revised PPG has been shortened significantly, primarily due to the concurrent introduction of a separate chapter on Housing Supply and Delivery, guidance on which was previously integral to the HELAA chapter.

2.3 The relevant points and any associated changes in each of the above PPG chapters are set out below.

PPG: Housing and Economic Land Availability Assessment

2.4 It is confirmed in the guidance, at para. 001, that an assessment of land availability should identify a future supply of land which is suitable, available and achievable for housing and economic development uses over the plan period7, and needs to be considered alongside the PPG chapter on town centres8. The assessment should:

• identify sites and broad locations with potential for development; • assess their development potential; and • assess their suitability for development and the likelihood of development coming forward (availability and achievability considerations).

2.5 It is further confirmed that the assessment informs the following:

• the selection of sites for development through the plan-making process; • the annual assessment of five-year housing land supply; and • annual brownfield register reviews

2.6 It is also clarified at para. 001 that the HELAA does not determine whether a site should be allocated for development.

7 An assessment of economic land availability in relation to B-Class sector uses was undertaken as part of the 2016 Redcar & Cleveland Employment Land Review Update supporting Local Plan preparation. 8 See Chapter 6.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Five Stage HELAA Methodology

2.7 The guidance goes on to incorporate the following five-stage standard methodology which local authorities are normally expected to adopt in preparing and reviewing HELAAs:

• Stage 1: Identification of sites and broad locations • Stage 2: Site/broad location assessment • Stage 3: Windfall Assessment (where justified) • Stage 4: Assessment Review • Stage 5: Final Evidence Base

2.8 The most relevant points of each stage are summarised in the boxes below.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Stage 1: Identification of sites and broad locations (paras. 006-015)

A basic survey should be undertaken to identify all sites or broad locations, regardless of the amount of development needed, to achieve an audit of available land to inform the plan-making process.

Surveys should normally include sites capable of delivering 5 or more dwellings or economic development on sites of at least 0.25 hectares or 500 square metres of commercial floorspace.

The survey should include any sites with previously identified policy constraints which would significantly restrict development, for the sake of comprehensiveness and in order to reassess those constraints.

To identify a comprehensive range of sites, a call for potential sites exercise including a wide audience of stakeholders should be undertaken alongside desk-based research to identify any additional sites.

The purpose of Stage 1 is to: - ratify inconsistent information and get an up to date view on development progress where sites have planning permission; - obtain a better understanding of what type and scale of development may be appropriate; - gain a more detailed understanding of deliverability, any barriers and how they could be overcome; and - identify any further sites with potential for development that were not identified through data sources or the call for sites.

Initial site assessments should provide the following: - site size, boundaries, and location; - current land use and character; - land uses and character of surrounding area; - physical constraints (e.g. access, contamination, steep slopes, flood risk, natural features of significance, location of infrastructure/utilities); - potential environmental constraints; - consistency with the development plan’s policies; - proximity to services and other infrastructure, such as public transport; - where relevant, development progress (e.g. ground works completed, number of units started, number of units completed); and - whether the site is suitable for a particular type of use or as part of a mixed-use development.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Stage 2: Site/broad location assessment (paras. 016-022)

Stage 2 involves undertaking appropriately detailed surveys of each site or broad location, comprising assessments of suitability, availability, achievability and development potential.

The assessments of suitability, achievability and achievability, including consideration of economic viability, will provide the information on which a judgement can be made as to whether the site can be considered capable of development, and when.

In assessing suitability, the information collected under Stage 1 may be taken into account, together with other factors including national policy, property market considerations, regeneration potential and potential impacts on landscapes, the natural environment and heritage conservation.

Sites in existing development plans or with a residential planning permission should generally be considered suitable for development, subject to consideration of any changed circumstances, including market signals and, where appropriate, suitability for different housing or economic uses.

A site is considered available for development when, on the basis of the latest information, there is confidence that there are no legal, ownership or operational problems preventing development. Sites which are being promoted by the landowner or a developer or have an existing planning permission are indications that there are no availability constraints, though consideration should also be given to the delivery record of developers or landowners, and whether there is a history of unimplemented permissions.

In assessing achievability, it is advised that development is considered achievable where there is a reasonable prospect that a particular type of development can be delivered within a given time period, which involves making judgements about economic viability and the capacity of the developer to complete and let or sell developments.

In estimating development potential, existing or emerging policies, along with the NPPF objective to maximise the efficient use of development land taken into account and any potential impacts of development on economic viability or suitability.

Where identified constraints impact on suitability, availability or achievability, consideration should be given to what actions would be needed to remove them. It is noted that constraints could for example be in relation to the NPPF or local planning policy (which could affect suitability), or availability constraints such as multiple ownerships, ransom strips or ongoing operational requirements.

It is advised that in profiling delivery timescales, potentially including different lead-in times and annual build out rates for different scales of sites, the information on suitability, achievability, availability and any constraints should be taken into account, along with industry advice on lead-in times and build-out rates and bearing in mind the potential for larger sites being built-out by more than one developer.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Stage 3: Windfall Assessment (where justified) (para. 023)

It is confirmed that ‘a windfall allowance may be justified in the 5-year supply if a local planning authority has compelling evidence as set out in paragraph 70 of the National Planning Policy Framework’. It is also advised that where broad locations are identified from year 6 onwards, windfall allowance based on geographical areas (para. 023)9.

Stage 4: Assessment Review (paras. 024-025)

At Stage 4, it is stated: ‘once the sites and broad locations have been assessed, the development potential of all sites can be collected to produce an indicative delivery trajectory. This should set out how much housing and the amount of economic development that can be provided, and at what point in the future, whether within 5, 10 or 15 years or beyond. An overall risk assessment should be made as to whether sites will come forward as anticipated’.

Stage 5: Final Evidence Base (para. 026)

At Stage 5, which is in effect a checklist, it is confirmed that the finalised assessment should produce the following outputs:

• a list of all sites or broad locations considered, cross-referenced to their locations on maps; • an assessment of each site or broad location, including: • where these have been discounted, evidence justifying reasons given; • where these are considered suitable, available and achievable, the potential type and quantity of development, including a reasonable estimate of build out rates, setting out how any barriers to delivery could be overcome and when; and • an indicative trajectory of anticipated development based on the evidence available.

It is also confirmed that the assessment can be used to demonstrate whether there is a five-year housing land supply.

9 In the absence of any other information in the PPG it is assumed that windfalls can also be included where specific sites have been identified for years 6 onwards. The NPPF generally allows windfall allowance to be included without recourse to specific time periods.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

PPG: Housing Supply and Delivery

2.9 The assessment of five-year land supply has traditionally fallen within the scope of the standard HELAA methodology, and since 2016 the annual assessment of five-year supply for Redcar & Cleveland has been incorporated within a HELAA or SHLAA review.

2.10 In July 2019, the government published a dedicated PPG chapter on Housing Supply and Delivery which provides guidance on assessing five-year housing land supply and on the government’s Housing Delivery Test. The guidance confirms that local authorities can meet the obligation to provide an annual review of five-year housing supply through using the latest available evidence, including through a SHLAA or HELAA review (paras. 004 and 007). Where a local plan has been adopted in the last five years, as is the case in Redcar & Cleveland, then the housing requirement in the plan should provide the basis for establishing the supply requirement (para.005). Other parts of the guidance which are considered relevant to this assessment are summarised below.

2.11 The purpose of the five-year supply assessment is to provide an indication of whether there are sufficient sites available to meet the local housing requirement for the next five years, including any shortfall and an appropriate buffer (see below). Where a five-year supply cannot be evidenced, the presumption in favour of sustainable development is triggered in determining planning applications, in accordance with the NPPF at paragraph 11 and footnote 7 (para.008).

2.12 In calculating the five-year requirement, it is advised that the annual baseline requirement plus any shortfall should be supplemented by a buffer of 5% if the government’s housing delivery test shows that delivery has met at least 85% of the minimum requirement over the previous three years, and by a buffer of 20% where delivery has been below 85% of the baseline (para. 022). It is confirmed that any accumulated oversupply can be offset against any shortfalls from previous years. (para. 032).

2.13 It is confirmed in the guidance that the estimated housing supply should be a net figure and, subject to various conditions it can include proposed new build dwellings, including redevelopment, conversions and a change of use (para. 029). Specialist older persons housing including C2 residential institutions should be factored into the supply estimate (para. 035) with the estimate, as set out in a separate PPG on Housing for Older and Disabled People (June 2019), based on the amount of accommodation consequently released into the housing market. Contributions from empty homes brought back into use (para. 030) and specialist student housing (para. 034) can also be included where justified10.

2.14 Expanding on the definition of deliverability in the NPPF, it is advised at para. 007 that sites which have outline planning permission or permission in principle, or are allocated in a development plan, or are identified on a brownfield register could be assessed as deliverable subject to providing supporting evidence such as the following:

10In the 2019 HELAA, it was concluded that while C2 housing should be factored into the supply estimate, there was no justification for including allowances for empty homes or student accommodation, and that remains the case.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

- confirmation of progress towards the approval of reserved matters approval, such as discharge of conditions and progress made against a planning performance agreement, or; - progress towards the submission of a reserved matters application including developer delivery intentions and anticipated start date and build-out rate; and - clear relevant information about viability, ownership constraints or infrastructure provision including successful bids for funding.

2.15 Expanding on the definition of developability in the NPPF, it is advised (at para. 020) that in demonstrating that there is a ‘reasonable prospect’ that a site could be considered developable from year 6 or later, relevant evidence could include (but is not limited to), the following:

- written commitment or agreement that relevant funding to enable development is likely to come forward to support development within the indicative timeframe; - written evidence of agreement between the local authority and the developer(s) to confirm developer delivery intentions and anticipated start date and build-out rate; - likely build-out rates based on sites with similar characteristics; and - current planning status such as a large site with only outline permission but which is considered suitable and available, which may be indicative that development might be achievable within years 6 to 10.

2.16 It is further advised that a greater degree of certainty may need to be provided for sites included in delivery years 6-10 than those in subsequent years, and that the annual review of the housing delivery trajectory and the HELAA can be used to provide greater certainty about site delivery prospects over different periods.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

3 ASSESSMENT METHODOLOGY

Background

3.1 This assessment follows and complies with the advice in the PPG. Most of the analysis has focused on housing sites and supply as they are the most critical elements of the study in terms of both the number of sites identified and planning policy requirements, including the requirement for annual reviews of five-year housing land supply assessments. Distinctions have therefore been made in the assessment between housing sites (usage Class C3), C2 residential institutions and economic development uses.

3.2 Potential housing sites may conceivably also be suitable for the development of C2 residential institutions, thereby potentially reducing the prospective supply. However, while there is a rapidly growing need for more older person’s accommodation (which could include adaptations to existing dwellings), proposals for new C2 care homes in recent years have been relatively rare in Redcar & Cleveland and assisted living schemes, falling within use class C3 and supported by grant funding, have been more commonplace. At the same time, there are instances where existing care homes which are no longer fit for purpose have become vacant and available for re-use or redevelopment, typically for housing. Therefore, as in the 2019 review, consideration of C2 uses has been restricted to those instances where they have recently been proposed, having regard to application records. In Redcar & Cleveland, applying the PPG calculation for estimating the availability of existing dwellings due to C2 developments, results in an estimated 0.44 additional C3 dwellings per C2 bedspace.

3.3 As in the previous review, the assessment of economic development land distinguishes between general employment land and the specialist employment allocations at South Tees, Wilton International,and Skinningrove. Consideration is also given to the suitability of potential housing sites for commercial or mixed-use developments. The large majority of HELAA sites are however within or in close proximity and well-related to existing residential areas and are therefore likely to be more suitable primarily for housing rather than economic development uses.

3.4 It is also the case that the requirement for additional housing land is more pressing given that the Borough contains vast areas of vacant employment land nd some employment land was deallocated through the Local Plan review, some of which is being developed for housing. It is conceivable that on some larger sites it may be appropriate to accommodate commercial development and other uses ancillary to housing. However, unless associated with a planning permission these scenarios have not been explicitly taken into account in which case the housing estimate could reduce, depending on any other variable assumptions such as net developable area and average density.

3.5 In locations where commercial or industrial uses or allocations are prevalent or economic uses are proposed, sites have typically been assessed for economic uses (see Chapter 8). An exception to this is where sites have been assessed for housing purposes because residential development has recently been proposed, but the sites are also within or adjacent to commercial areas, including those falling within town, district or local centre boundaries where, in seeking to achieve an optimal balance between viable residential and non-residential uses to support the functionality of commercial areas, mixed use or non-housing development may be

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

appropriate and is supported through Policy ED1. Where this is the case, it has been acknowledged in the site appraisals.

3.6 As in previous reviews, to inform judgements about site deliverability and developability, distinctions have been made between those sites which are inside the planning process (sites which are under development, or have an unimplemented planning permission, or are housing allocations); and those which are outside the planning process (all other potential housing sites).

3.7 In terms of other potential housing sites, a further distinction is made between sites which are inside settlement boundaries, as defined on the Local Plan Policies Map, and those which are outside the limits. This is because proposals on sites within limits may be in conformity with the Local Plan, while development proposals on sites outside the limits would typically11, be contrary to Policy SD2 and would not, therefore, be expected to be developed within the assessment period.

3.8 An outline explanation of the assessment of existing and potential housing sites, as per the five-stage methodology in the HELAA PPG, is described below. The review follows the established approach undertaken in the 2019 HELAA, incorporating the following modifications to develop the work:

• The provision of unconstrained housing yield estimates for all sites, including those considered undevelopable; this supports the aim of estimating the development potential of all identified sites (HELAA PPG para. 016).

• The categorisation, in the final analysis, of some sites as ‘potentially developable’, distinct from those considered deliverable, developable or undevelopable, with corresponding changes in relation to site suitability, availability and achievability appraisals. This additional categorisation expands on previous assessments which concluded that of those sites which are outside the planning process, some were considered to have more realistic development potential than others.

3.9 It should be noted that any site which has been identified as ‘potentially developable’ in this assessment and is outside development limits or otherwise in conflict with the Local Plan, would not currently be expected to come forward for development in advance of any plan review.

3.10 This approach is justified by PPG para. 018, which states: ‘when assessing sites against the adopted development plan, plan-makers will need to take account of how up to date the plan policies are and consider the relevance of identified constraints on sites / broad locations and whether such constraints may be overcome’.

3.11 In practice, this means that any site which might be considered theoretically capable of development within the plan period, but is outside development limits, would not realistically be expected to come forward for development the assessment period because that would necessitate making an exception to policy in an up to date plan. It is currently anticipated that development limits would only be adjusted through a plan review which established a new plan period, beyond 2031/32. Undertaking such a review would, moreover, require a detailed options assessment

11 Exceptions could potentially include suitably and sustainably located brownfield land and affordable housing proposals having regard to Policy H4.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

which goes beyond the scope of the HELAA - hence the categorisation of some sites as ‘potentially developable’.

3.12 The requirement for explicit evidence to demonstrate developability, as outlined above, is a significant change to the guidance as it has not hitherto been set out in the PPG or the NPPF. Inevitably however, because predictive certainty reduces over time, providing robust evidence of ‘reasonable development prospects’ from 6 years onwards is not straightforward. For example, housing developers’ detailed business plans may not extend beyond five years, and even where a major site is identified as a strategic development option, the possibility remains in the intervening period that the prospective developer may decide to abandon proposals for various reasons including changes to the economic climate, housing market conditions, funding availability or changing strategic business priorities.

3.13 For sites in the planning process, in assessing developability in response to the expanded definition it has been assumed that sites with outline permission and without any significant identified delivery constraints would be capable of development within the assessment period, having regard to any recent planning history.

3.14 For unpermissioned allocation sites, in seeking to obtain evidence of developability site promoters or landowners have been contacted, with any forthcoming evidence taken into account alongside any recent planning history. Where it is apparent that there is ongoing housebuilder interest and / or that that sites present relatively unconstrained development opportunities, for HELAA purposes consideration has been given to including completions in the indicative delivery trajectory from year six onwards. Where evidence of developability is more limited, or indicates more significant developability constraints, including in relation to economic viability, it has been assumed that any completions would be in the longer term and towards the end of the plan period, from year nine at the earliest.

Local Delivery Context

3.15 As in previous reviews, local development trends and issues have been considered in seeking to achieve a realistic assessment of development potential and to inform the risk assessment under methodology Stage 4.

3.16 Completion rates have increased considerably in recent years. Over the first five years of the plan period to 31 March 2020, 2,006 net additional dwellings were completed, which is equivalent to 401 per annum and far in excess of the government’s latest 10-year household growth projections (132 per annum) and the aspirational target in the local plan (234). The annual rate of completions achieved to date is also substantially higher than historic averages which over the three preceding three five-year periods ranged from 300-340 (gross) and 140-170 (net).

3.17 Assisted by the government’s Help to Buy scheme, which currently runs until 2023, the upturn in completions has been driven by volume housebuilders building on large peripheral greenfield sites in the most popular market areas, particularly Guisborough, but also in the east of Redcar and at Saltburn. There has also been increased development in some parts of Greater Eston, but development activity in East Cleveland has diminished, most notably at Skelton which had experienced significant growth in the previous decade.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

3.18 As the major ongoing developments in Guisborough and elsewhere are built out, the focus of development at least in the short-term is expected to shift towards other locations and in particular the major greenfield developments at ‘Kirkleatham Green’ in Redcar (HELAA Site 450) and ‘Woodcross Gate’ near Normanby (HELAA Site 021), both of which commenced in 2019/20.

3.19 It is not currently anticipated however that recent annual completion rates will be sustained, for the following reasons:

• The unusually high level of completions compared to historic trends and the lack of evidence to suggest it might continue. In that respect, it is indicated in the Local Plan that housing delivery would be front-loaded and annual completions would be expected to decrease over time as the large volume of imminently deliverable housing permissions were implemented. Further to that, signs of a market slowdown were noted in the 2019 HELAA, evidenced by a higher proportion of supply being transferred by volume housebuilders to social housing providers, and the partial layout revision of one major development in seeking to improve sales activity through a broader housing offer.

• Due to the disproportionately large and increasing population in older age groups, the projected decline in household formation rates over the assessment period.

• The immediate impacts of the Covid-19 crisis in curtailing construction industry activity and its wider impacts on the UK economy and the public finances, and in turn the further implications for the construction industry, property markets, housing supply and demand, local economies and residential communities.

• Potentially, further economic difficulties to contend with after Brexit negotiations have concluded.

3.20 The scaling back of construction and associated activities due to the Covid-19 outbreak, and the post-lockdown productivity constraints due to physical distancing measures and scarce availability of construction materials, had a detrimental impact on housing completions with 118 net completions achieved in the first two quarters of 2020/21 12, and although there are a significant number of recorded housing starts, annual completions to 31 March 2021 may be less than might otherwise have been anticipated.

3.21 There are parts of the borough where residential property values remain low and private investment has traditionally been limited. In some areas, at South Bank and Grangetown in particular, there are significant areas of long-term vacant former housing land. Over the previous decade, the availability of government funding to support large-scale housing regeneration was reduced as part of the austerity programme cuts in response to the effects of the 2008-11 recession. There are signs however that the position may be improving, as indicated by the announcements in the March 2020 budget of the £400m Brownfield Land Fund being made available to mayoral combined authorities, and the extension of the National Affordable Housing Programme to 2025.

12 By the same stage in 2019/20, there had been 178 net completions.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Application of Standard Methodology

3.22 The practical application of each stage of the methodology is outlined below.

Stage 1: Site Identification

3.23 Information from the 2019 HELAA has been reviewed, through desk top analysis and observational surveys, to identify any additional sites and changes to existing HELAA sites. The information has been updated to November 2020.

3.24 As in 2019, it was not considered necessary to also undertake a call for sites consultation. Given the limited feedback from the last call for sites in 2018 and the large number of available sites already included in the HELAA, it is maintained that, subject to housing delivery performance, undertaking the next formal call for sites as part of a local plan review would be more prudent. Furthermore, the Council continues to provide a formal site submission pro-forma on its website to enable potential housing or economic development sites to be put forward at any time for consideration through the HELAA process.

3.25 As supply estimates on existing and potential housing sites net figures any associated of demolitions or stock losses are automatically accounted for, including the loss of any stock due to change to non-housing uses. As part of the survey process, any additional proposed housing demolitions or stock losses were also recorded. However one-off demolitions through stock clearance are unpredictable and rare, having tailed off several years ago as large scale clearance programmes were wound down due to reduced funding availability.

3.26 The assessment includes the following site ‘types’:

• Sites recorded as under development at 31 March 2020; • Those with an existing planning permission at 31 March 2020; • Sites which are the subject of a planning application or planning appeal awaiting determination; • Allocation sites in the Local Plan which do not fit into any of the above groups; • Brownfield and other available sites within development limits; • Brownfield sites outwith development limits; and • Greenfield sites which are outside development limits13.

3.27 In compliance with the PPG and brownfield land register regulations, the site inclusion thresholds of 5 net additional dwellings and 0.25ha / 500m²commercial floorspace for economic development sites were retained.

3.28 In accordance with the PPG, a basic analysis of accessibility of potential housing sites to local services has been undertaken as part of the appraisal process. An explanation of the service accessibility exercise is set out at Annex G.

Stage 2: Site Assessments

3.29 The assessments of housing deliverability and developability have been reviewed (or undertaken from scratch for any newly included sites) and comprise the

13 Apart from greenfield sites in open countryside and remote from a residential settlement which have always been excluded from consideration in the HELAA or SHLAA on sustainability grounds.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

main part of the analysis. The assessments take into a consideration the feedback from a consultation exercise with developers and site promoters about annual delivery expectations on existing housing development sites. The consultation was undertaken in June 2020.

3.30 For existing housing sites - those recorded as under development - justification for delivery expectations has been included in the indicative delivery schedule at Appendix 3.

3.31 Potential housing sites, including those included in the indicative deliverable or developable supply schedule, have been subject to detailed appraisals as set out in the Annexes document and are sequenced as follows according to planning status:

• Annex A: Housing Sites with Full Planning Permission • Annex B: Housing Sites with Outline Planning Permission • Annex C: Unallocated Housing Application Sites • Annex D: Unpermissioned Housing Allocations • Annex E: Other Sites (Within Development Limits) • Annex F: Other Sites(Outside Development Limits)

3.32 The housing site appraisals basically comprise the following:

• Site surveys undertaken in accordance with Stage 1 of the standard methodology as outlined above.

• Following Stage 2 of the methodology, assessments of site suitability, availability and achievability and, in turn, consideration of site deliverability and developability to inform the overall estimates of deliverable and developable supply at Stage 4.

3.33 Comprehensive information about the site assessment process, including a reformatted site appraisal sheet which more effectively aligns with stages 1 and 2 of the PPG methodology, is set out in the introductory section of the Annexes document.

3.34 In assessing site suitability, potential physical and policy constraints have been recorded and in accordance with the HELAA PPG and in that regard it has also been assumed that, subject to any changed circumstances, sites with planning permission and local plan allocations would be considered suitable for development as proposed.

3.35 In estimating development potential, as in all previous assessments where sites do not have planning permission or allocation or a sufficiently detailed draft development layout, unless other factors indicate otherwise (such as access constraints limiting development capacity), broad housing yield estimates have been derived using a simple density multiplier approach whereby an assumed average density is applied to an indicative net developable area as a percentage of the gross area.

3.36 To reduce the potential for discrepancies between density multipliers and detailed development proposals (the latter tend to achieve higher densities), the approach to estimating yields has assumed developable areas typically ranging from 75-100% of the gross site area according to site size and settings, with all sites of

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

less than 2ha assessed on a gross i.e .100% basis unless physical, environmental or policy considerations indicate otherwise.

3.37 Other than for lower density executive and executive–style housing, the Local Plan does not contain any specific policies in relation to housing density, or housing mix which can significantly affect average density. In assessing potential, different density assumptions have been applied with, typically, 35 dwellings per hectare (dph) average applied on sites integral to urban areas, 30dph on peripheral sites and higher densities for sites in town centre and similarly higher density and sustainable locations, having regard to the residential character of the immediate area. This contextual approach ties in with the objective in the revised NPPF to maximise the efficient use of land for housing in the most sustainable locations.

3.38 In addition to information about of land and property ownership and any existing operational uses, the assessment of site availability, takes into account any knowledge of-third party land outside the site boundary which would be required to gain satisfactory vehicular access and egress, where appropriate enquiries have been made to the Land Registry regarding ownership. Where sites are being promoted by major housebuilders it has been assumed, in accordance with the PPG, that there are no insurmountable land ownership or availability constraints.

3.39 The assessment of achievability has been informed by any feedback received from the consultation with relevant developers or other parties, identified site suitability or availability constraints and planning history. Alongside site-specific issues, consideration has been given to local development and housing market trends.

3.40 Taking into account the assessments of suitability, availability and achievability, and the definitions of deliverable and developable as discussed above, sites have been classified under one of the following four assessment categories:

• Deliverable • Developable • Potentially Developable • Undevelopable

3.41 In completing site appraisals, necessary ownership checks, scrutiny of relevant published documents and in-house consultation with colleagues in development management and specialisms (such as highways, flood risk and heritage conservation) have been undertaken as necessary.

3.42 The assessments of residential institution and economic development sites are set out respectively at Appendices 4 and 5 of this report. Analysis of economic development land availability is included at Chapter 8. In identifying and assessing potential development sites at stages 1 and 2 of the methodology, the potential for alternative housing or economic development uses has been considered, supported by individual site audits.

Stage 3: Windfall Assessment

3.43 In accordance with the requirements in the NPPF at paragraph 70 and the HELAA PPG (para. 023), the detailed analysis in the Council’s Windfall Allowance

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Technical Paper14, dated April 2019, provided comprehensive evidence to justify the inclusion of a windfall allowance in future supply estimates.

3.44 It is recommended in that paper that a conservative allowance equivalent to achieving 45 net units per annum for completions on minor sites15 should be included in supply estimates, with the windfall allowance making up any balance of supply on permissioned sites. It is also advised that the contribution should be reviewed annually and adjusted if appropriate where contributions deviate markedly from the benchmark of 45 per annum. In the 2019 HELAA, a windfall contribution of 405 dwellings was included in the supply estimate, with 45 dwellings included in the first five years and 360 over the subsequent eight years. Those assumptions have been reviewed, taking into account completions in 2019/20, remaining commitments as recorded at 31 March 2020 and the ongoing effects of the Covid-19 crisis.

Stage 4: Assessment Review

3.45 The purpose of Stage 4 is to bring together the assessments of supply, with an updated analysis of the residual housing requirement in order to produce, as set out in Chapter 5, updated estimates of the deliverable and developable supply and an associated housing delivery trajectory and risk assessment.

3.46 Estimated contributions from assessed sites and sources have been aggregated to produce revised estimates of five-year deliverable supply to 2024/25 and the estimated developable supply thereafter over the remainder of the plan period to 2031/32.

3.47 The site appraisals and estimates of deliverable and developable supply have been informed by the following concurrent considerations:

• Definitions of deliverable and developable sites asset out in the NPPF and expanded upon in the Housing Supply and Delivery PPG at paras 007 and 020 respectively and all other relevant PPG advice.

• Feedback received from the written consultation exercise undertaken in June 2020 with relevant developers and site promoters about delivery assumptions and the development prospects of individual sites.

• The damaging economic impacts and uncertainty generated by Covid-19 crisis and the emerging policy responses.

• Where applicable, on existing development sites: recent completion rates, outstanding commitments, remaining commitments, recorded housing starts and any other site evidence arising from the appraisals of potential housing sites.

• Consideration of the wider local housing development context as interpreted above.

• Review of small windfall assumptions, bearing in mind completions in 2019/20, unimplemented permissions and dwelling starts on small permissioned sites.

14 This paper can be downloaded from the Council website via the following link: Windfall Allowance Technical Paper.pdf (redcar-cleveland.gov.uk). 15 New build developments of fewer than 10 dwellings net and all conversion schemes of any size.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

• The updated assessment of potential contributions to the five-year supply arising from the prospective development of C2 residential institutions.

• Consideration of any potential stock losses through planned housing clearances.

3.48 Explanations for the assumptions made about the development and delivery potential of each site are set out in the site assessments at Appendix 3 for existing development sites, and in Annexes A to F for potential housing sites. Where there is an existing planning permission in place, any conditions or obligations attached to the permission which could affect the timing of housing delivery have been drawn on. Where sites do not have planning permission, the assessment relies on making judgements about suitability and developability based on available information and circumstances at a fixed point in time and, as such, could be prone to change through the HELAA review process or other analysis.

3.49 For sites included in the delivery schedule, as in previous assessments, an indicative lead-in time of up to two years has been assumed on sites with planning permission where development has yet to start, taking into account any known enabling infrastructure requirements, with a longer lead-in period assumed for sites without permission. Unless otherwise indicated, it has been assumed for major developments that a typical outturn of up to 15-20 dwellings would be achieved in the first completion year and thereafter, a general delivery ceiling of 30-35 units per annum (50-60 on sites with two housebuilders). These assumptions are in line with previous assessments and they reflect development trends. Where appropriate, delivery rates on nearby developments have been taken into account. On smaller schemes not being delivered by volume housebuilders or attracting grant funding, a lower annual delivery rate has been assumed, which reflects established trends.

3.50 In Table 1 it is shown how each output at Stage 5 has been addressed in the study.

Table 1: Stage 5 Output Signposting

Output Where Evidenced • List of all sites or broad locations • Site index at Appendix 1 and corresponding considered, cross-referenced to their site location maps at Appendix 6. locations on maps. • Appendix 3 for existing housing development sites. • Assessment of each site or broad • Annexes A to F for potential housing sites. location. • Appendix 4 for C2 permissions. • Appendix 5 for economic development sites. • An indicative trajectory of anticipated • Trajectory graph at Fig. 1 (in Chapter 4) and development based on the evidence corresponding indicative delivery schedule at available. Appendix 3.

3.51 Summary findings from Stage 1 to Stage 4 of the assessment are set out in the next chapter.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

4 ASSESSED SUPPLY OVERVIEW

Stage 1: Site Identification

4.1 A total of 171 sites meeting the size or housing yield thresholds were identified and assessed, covering a total land area of approximately 860ha. As shown in Table 2 which provides a summary breakdown distinguishing between use class C3 housing types, C2 residential institutions and economic development uses. A list of sites is set out in the index at Appendix 1, with corresponding location plans at Appendix 6.

Table 2: Site Identification Summary

No. Gross Type Sites Area (ha.) C3 Housing Sites 132 722.96 C2 Residential Institutions 4 0.93 Economic Development Uses16 35 134.53 Total 171 858.42

4.2 Eleven sites were added to the assessment and are listed in Table 3.

Table 3: Sites Added to Assessment

Gross HELA Site Location Area Type Site Detail A ID (Ha.) 544 Westfield Barn Redcar 0.30 Detailed Permission Annex A 541 The Grange Brotton 0.17 Detailed Permission Annex A 547 Former Brotton Library Brotton 0.23 Application Site Annex C 381b Redcar Rd / South Tce South Bank 0.80 Application Site Annex C 464 Bridge House Normanby 0.17 Application Site Annex C 546 Arlington Chapel Loftus 0.17 Other Site Within Limits Annex E Loftus Bus Depot & Tees 545 Loftus 0.76 Other Site Within Limits Annex E St EPA Other Site Within Limits / Annex E / 538 Langbaurgh House Guisborough 0.27 Economic Development Site Appendix 5 Economic Development 304 Former Loftus Station Loftus 1.20 Appendix 5 Site Economic Development 548 Land SE of Tod Point Rd Warrenby 0.14 Appendix 5 Site Land adjacent South Tees Economic Development 549 South Bank 0.78 Appendix 5 Business Ctr Site

16 The figures relate only to general employment land and commercial sites and areas and do not include vacant areas of specialist allocated employment land, including within the STDC industrial redevelopment area, and at the Wilton International complex.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

4.3 Seven sites included in the 2019 HELAA were removed from the assessment and are listed in Table 4.

Table 4: Sites Removed from the Assessment

Gross HELAA Site Location Area Explanation ID (Ha.) Detailed permission has been granted for supported accommodation comprising 3 self-contained flats (i.e., C3 use class ) and 10 shared accommodation units 473 Wilson St. Brotton 0.08 (which would fall under the C2 classification). Therefore, the C3 proposals fall below the HELAA threshold of 5 units and the site forms part of the supply from permissions on small sites. 530 Cleveland Bay Eston 0.02 Development completed 2019/20. Removed from economic development land supply as Former Loftus Bus 318 Loftus 0.27 repackaged as part of potential housing site # 545 Depot (see above). Site has reportedly changed ownership with the 460 Parklands PH Normanby 0.46 intention of reopening as a pub. 381a Cromwell Road South Bank 0.34 Development completed 2019/20. A66 South Bank 508 South Bank 0.51 Development completed 2019/20. Roundabout Permission expired and as such the site no longer 480 Greenhills Farm Lingdale 0.41 meets HELAA inclusion criteria.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Stage 2: Site Assessments

Existing and Potential Housing Sites

4.4 In Table 5, the 132 existing and potential housing sites are broken down according to planning status. Exactly half (66), are within the planning process, 44 of which are considered to be deliverable with a further 16 considered developable within the plan period.

Table 5: Summary Breakdown of Assessed Housing Sites

Assessed Sites Categorisation Site Detail

Undevelopable Developable Developable Gross Area Deliverable Potentially Estimated Estimated Capacity Housing Housing Sites (ha.) Status

Under Development 94 1,450 27 27 0 0 0 Appendix 3 Detailed Permission 18 252 12 11 1 0 0 Annex A Outline Permission 56 1,840 5 2 3 0 0 Annex B Unallocated Application Site 61 1,018 9 4 2 3 0 Annex C Unpermissioned Allocation 65 1,142 13 0 10 0 3 Annex D Other Sites Within Limits 46 1,091 31 0 0 7 24 Annex E Other Sites Outside Limits 383 6,087 35 0 0 15 20 Annex F

Totals 723 12,880 132 44 16 25 47

4.5 In addition to the above, Council records show that as at 31 March 2020 there were 74 smaller sites (schemes for fewer than 5 dwellings net) recorded as either under development or having an unimplemented detailed or outline ‘live’ planning permission. Collectively, these sites had permission for 76 net additional dwellings, including 28 recorded starts.

C2 Residential Institutions

4.6 The assessment of the C2 sites is set out in Appendix 4 and identifies four identified sites with the combined potential to indirectly generate 79 additional dwellings using the PPG methodology (179 no. C2 bedspaces x 0.44 C3 dwellings released per bedspace), including 54 dwellings in relation to two sites with ‘live’ permissions.

4.7 However, due to lack of tangible progress on any of the sites and given the current climate, it is provisionally assumed that none of these schemes will be implemented in the next five years and, as such, the contribution has been reduced to nil (from 67 in the 2019 update).

Demolitions and Stock Losses

4.8 The assessment of housing sites and consideration of the prospective contribution from permissions on smaller sites is based on net figures and is inclusive of prospective stock losses. As of 31 March 2020, there were no proposed residential

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

clearance schemes in the pipeline. As such, there is no justification for an additional allowance for demolitions and stock losses.

Economic Development

4.9 The assessment of economic land availability17 is addressed in Chapter 8 and includes a summary overview of land availability of the major specialist sites at Wilton International and the emerging ‘Teesworks’ strategic development site in the South Tees Mayoral Development Corporation area. The assessment of general employment land availability is supported by individual site assessments at Appendix 5.

Stage 3: Windfall Assessment

4.10 In 2019/20, the number of recorded net completions on minor sites (fewer than 10 dwellings net and all conversion schemes) was 34 dwellings (55 gross). Completions were significantly less than in 2019/20 (77), which reflects a pattern of variable year-on-year output. Over the first five years of the plan period, net completions on minor sites averaged 53 per annum.

4.11 As at 31 March 2020, there were 213 net additional dwellings awaiting completion on 101 minor permissioned schemes, including 76 recorded starts. Discounting 24 unimplemented permissions on 8 sites which have stalled or have a history of lapsed permissions leaves an estimated deliverable supply of 189 dwellings on minor permissioned windfall sites.

4.12 At 31 March 2020 there were also 62 dwellings awaiting completion, including 35 starts, on 4 major windfall sites (10 dwellings minimum, excluding conversion schemes). All of these sites are considered deliverable.

4.13 Based on recent outputs and historic trends it is considered that the estimate of 45 dwellings per annum net average would be achievable over the plan period, But as with larger sites, there may be a drop in 2020/21 due to the lockdown associated with the Covid-19 outbreak and, exacerbated by the ongoing economic uncertainty and emerging economic recession and these affects could continue into subsequent years. To reflect those possibilities, the annual minor windfall estimate has been provisionally reduced from 45 to 30 per annum average over the next 5 years and restored to 45 per annum thereafter. This position should continue to be monitored through the annual review process. As it stands, the number of commitments on minor sites would more than meet five years’ supply against the assumed reduced average.

4.14 After existing deliverable commitments on minor sites have been accounted for the revised windfall allowance to be applied over the assessment period is 312 dwellings, all of which would be in years 6 to 12.

4.15 No allowance is made for contributions from the development of larger windfall sites. However major windfall completions have begun to increase and is anticipated that this will continue in the short term at least. In terms of sites under development, four are major windfall developments and have a combined yield for 57 dwellings. A further seven sites either have permission or are the subject of existing

17 Excluding land availability within the specialised employment land allocation sites in the South Tees economic development area, Wilton International and British Steel Skinningrove.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

planning application; collectively these sites have potential for 174 additional dwellings.

Stage 4: Assessment Review

4.16 The assessment of sites, and contributions from windfalls produces an aggregated estimate of 4,048 net additional dwellings over the assessment period, as shown in Table 6 below. The estimated deliverable supply is 1,548 housing units. The estimated developable supply is 2,500 units, with assessed potential for a further 2,000 units beyond the plan period.

4.17 The estimated supply is equivalent to 337 dwellings per annum and 25 years’ supply against the minimum residual requirement of 1,972. The projected supply generates an estimated surplus of 2,076, which equates to a 51% buffer against the residual minimum.

Table 6: Estimated Housing Supply Summary 2020/21-2031/32

Deliverable Developable Assessment Post Supply Supply Period 2031-32 Supply Component 2020/21- 2025/26- 2020/21- 2024/25 2031/32 2031/32 Sites Under Development 1,200 250 1,450 0 Detailed Permissions 110 142 252 0 Outline Permissions 12 477 489 1,350 Unallocated Application Sites 90 483 573 333 Unpermissioned Allocations 60 836 896 317 Commitments on Small Sites 76 0 76 0 (1-4 units net) Minor Windfall Allowance 0 312 312 0 Contribution via C2 Permissions 0 0 0 0 Other Planned Demolitions 0 0 0 0 Total 1,548 2,500 4,048 2,000 Annualised Average 310 357 337 Residual Net Minimum Requirement 2020/21-2031/32 1,972 (3,978 less 2,006 net completions by 31.03.2020) Annualised Average 164 Years Supply 24.68 Supply Balance 2,076 Buffer 51%

4.18 The corresponding indicative housing delivery trajectory emerging from the analysis, taking into account completions to date, is illustrated in Fig. 1 below and shows that cumulative supply is expected to remain above the requirement trajectory.

4.19 The projected supply would enable the delivery of a continuous supply of housing over the plan period which can comfortably meet the minimum residual requirement of 3,978 dwellings which, as indicated, might be met by 2027, i.e. within seven years.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Fig. 1: Indicative Housing Delivery Trajectory 2015-2032

7,000

6,000

5,000

4,000

3,000

2,000

1,000

Requirement Completions / Estimated Supply

Supply Components

4.20 Major sites under development account for the largest share of total supply (35%). Most of this potential (1,200 units) is expected to be built-out within five years and accounts for 77% of the deliverable supply.

4.21 The estimated contribution from sites with detailed planning permission is relatively modest. More significant is the potential contribution from sites with outline planning permission, which includes allocated sites with long term permissions at Low Grange Farm, South Bank (1,250 dwellings) and Long Acre Sidings, Skelton (400 dwellings). It has been provisionally assumed that the majority (over 70%) of the supply from these two sites would be delivered beyond the plan period, but it is also conceivable, particularly at Low Grange, that delivery within the plan period could increase substantially.

4.22 The estimated contribution from unallocated planning application sites is also significant and includes the major (50ha) site at Land South of Marske (HELAA Site 054), which is the subject of a reserved matters application from the landowner and has an outline permission which is running down. it is currently assumed that any completions would be from year 6 onwards with 470 completions within the plan period, and the supply balance (333) delivered beyond it. However, should the application be approved, the contribution within the plan period could increase substantially. Conversely, if the application is refused, the contribution will be reduced to nil, pending the outcome of any subsequent appeal.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

4.23 The estimated contribution from unpermissioned allocations (896) is on 11 allocated sites, and accounts for 22% of the supply, the vast majority of which is anticipated beyond the next 5 years, though it is possible that some of these sites may be developed sooner.

4.24 The estimate includes 76 net additional dwellings on 74 permissioned small sites (consent for fewer than 5 dwellings net), as recorded at 31 March 2020. These sites are listed at Appendix 2.

4.25 The minor windfall allowance (312) has been applied from year 6 onwards and takes into account the above contributions from small sites and assessed minor developments of at least 5 dwellings in order to achieve the benchmark allowance of 45 dwellings per annum minimum average.

4.26 The indicative supply schedule at Appendix 3 sets out the summary justification for the deliverable and developable supply estimates at site level. Further detail on those sites which are not recorded as under development is provided in the individual site appraisals in the Annexes document.

4.27 The next chapter provides further analysis of the deliverable and developable supply position based on an updated analysis of the residual housing requirement, followed by a risk assessment associated with the supply estimates.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

5 DELIVERABLE AND DEVELOPABLE HOUSING SUPPLY

Deliverable Housing Supply

5.1 The calculation of five-year deliverable housing land supply is expressed in terms of the number of years supply, which is achieved by dividing the estimated number of deliverable housing units by the annualised average housing requirement.

5.2 Determining the five-year minimum requirement involves consideration of three things:

• the baseline minimum requirement as set out in an up to date local plan (or in absence of that, the government’s published housing needs figures) which provide the starting point for determining the requirement;

• the treatment of the supply balance against the requirement; and,

• the performance based supplementary buffer (5% or 20% or optionally 10% where an annual position statement has been agreed with the Secretary of State).

5.3 As the Redcar & Cleveland Local Plan is considered up to date, the average requirement of 234 dwellings per annum over the plan period (equivalent to 1,170 dwellings over 5 years) assumes the baseline requirement.

5.4 Because recent performance has exceeded the government’s published housing delivery test results (by 379% in the three years to 2018/19), in accordance with NPPF para. 73, a 5% buffer is applicable.

5.5 In terms of how to treat an accumulated surplus, the position remains less clear-cut and open to interpretation. In the 2019 HELAA, and in earlier iterations of the HELAA/ SHLAA and annual five-year supply assessments, any surplus or shortfall supply balance was as appropriate deducted from or added to the five-year supply requirement. This approach is commonplace among local planning authorities and reflects previous (2015) guidance from the Planning Advisory Service (PAS). The PAS guidance however remains under review in light of the revised NPPF, though the government more recently committed to a further review of the NPPF as part of its proposed planning reforms.

5.6 Previous appeal decisions have advocated that any surplus balance should not be applied at all in determining the requirement. Briefly, the main reasons informing these decisions were that it could run counter to the NPPF objective to significantly boost housing supply; that the housing requirement was a minimum figure; and any surplus would serve to increase housing choice18. In one of these cases (Tewkesbury) the local authority lodged an appeal in the High Court against the decision. However, the court concluded it should not exercise its judgment because as the decision was an academic planning matter, it should be resolved by the Planning Inspectorate.

18 See Doncaster (appeal ref.3158500), Aylesbury Vale (3158833) and Tewkesbury (3184272). [2019]EWHC 1775 (Admin).

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5.7 A noted above in Chapter 2, it is advised in the PPG on Housing Supply and Delivery that any undersupply from previous years should be added to the requirement, and that over-delivery can be offset against any shortfall from earlier years. The PPG does not state that a surplus balance can also be offset against the requirement where there is no existing shortfall; in fact the PPG does not provide any clarification on how such a surplus should be treated. The NPPF is also silent on this matter.

5.8 As noted in Chapter 3, over the first 5 years of the plan period, to 2019/20, there were 2,006 net additional dwellings completed, which equates to 50% of the plan requirement and produces a surplus cumulative balance of 836 against the annual average minimum requirement. It also leaves a residual requirement of 1,972 dwellings to be met over the remaining 12 years, equivalent to 164 per annum.

5.9 The treatment of the cumulative surplus has a significant impact on the five- year supply requirement calculation for Redcar & Cleveland. If the balance of 836 is applied entirely to the first five years supply, the baseline requirement reduces from 1,170 to 334. If it is applied proportionately across the remaining 12 years of the plan period (equivalent to 348 dwellings over the first five years), the baseline requirement reduces from 1,170 to 822.

5.10 Notwithstanding any imminent national policy or policy guidance changes, for the reasons set out below it is maintained that it would be inappropriate to disregard the surplus from the five-year supply requirement calculation:

• In the NPPF, at para. 73, it is confirmed that local authorities should undertake annual five-year supply assessments set against the housing requirement in adopted strategic policies, which should also include a trajectory illustrating the expected rate of delivery over the plan period. The five-year supply is therefore to be assessed against the requirement in the Local Plan, which is 3,978 dwellings: the figure of 234 per annum is merely the annualised average of that requirement at the start of the plan period and is, therefore, prone to change. As both the overall requirement and the remaining number years reduce, so the annualised minimum should correspondingly change to reflect the residual minimum requirement (in this case, it is 164 per annum).

• If the surplus cumulative balance was excluded from the requirement calculation, this would completely undermine the Council’s strategy set out in the Local Plan as it would, in effect, reset the minimum requirement over the plan period, which would moreover continue increasing if the surplus continued to grow. As things currently stand, the overall minimum requirement would increase by 21% from 3,978 to 4,814 (an average increase from 234 to 283 per annum).

• Completions ‘on the ground’ do not sit in isolation from potential supply as they are part of the same delivery pipeline within a given timeframe: delivery in one- year impacts on local demand and on completions in subsequent years. Therefore, all completions within the plan period are relevant to the assessment.

• There is no evidence to suggest that continuing to set the surplus balance against the five-year requirement has constrained supply in Redcar & Cleveland. It has not undermined delivery on existing sites nor has it evidently prevented new sites coming forward for development, including suitable windfall sites, and this demonstrably remains the case.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

• As the rate of housing completions has increased to unprecedented levels and the borough has an adopted and up to date Local Plan with housing targets and allocations which far exceed the government’s own needs assessment, the NPPF objective of significantly boosting supply has clearly been achieved.

• Although the Local Plan housing requirement is a minimum target, it is substantially higher than the government’s housing needs assessment figure for 2016 to 2026 (142 per annum). Moreover, the plan allows for a level of development which is significantly above the aspirational target, thus reducing the need to allocate further sites or allow development which would be contrary to the plan. This overallocation and the strong delivery performance to date need to be appreciated within the context that Redcar & Cleveland, in relative terms, locally and nationally, is an area of limited housing demand characterised by low levels of household and population growth (due to its older population base) and limited affordable housing needs.

• Housing completions are on track to meet the policy requirement without undermining the wider strategy in the Local Plan to provide an appropriate distribution of housing supply which promotes the sustainable development of the borough. Nonetheless, as outlined above Policy H1 includes a fall-back position which sets out remedial actions which could be taken in the event of delivery and prospective supply falling behind the requirement, including a full or partial plan review (assuming a procedural plan review has not already commenced).

• The ultimate implication of disregarding the surplus is that there is an increased likelihood of returning to a ‘planning by appeal’ situation on account of not being able to evidence a five-year supply in future years, and despite the strong performance to date. Such a scenario could conceivably arise even when cumulative delivery remains ahead of the cumulative plan requirement.

5.11 In light of all the above, it is considered appropriate that the surplus should continue to be factored into the five-year supply calculation either in its entirety, or on a pro-rata basis over the remaining years of the plan period.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

5.12 As shown in Table 7 below, taking into account the estimated deliverable supply of 1,548 dwellings, if the accumulated surplus of 836 is fully included in the requirement calculation (scenario a.), there is approximately 22 years’ supply. If alternatively the surplus was to be applied proportionately across the 12 remaining years of the plan period (scenario b.), the estimated supply is 8.95 years (against an adjusted five-year requirement of 863, or 173 per annum). Therefore, in either case, a deliverable five-year supply can be comfortably evidenced.

Table 7: Five-Year Supply Calculation

Scenario a. b. Estimated Deliverable Supply 1,548 1,548 Annualised Average 310 310 Five Year Requirement Local Plan Baseline Minimum Requirement 2015-32 (234dpa) 1,170 1,170 Less Accumulated Surplus 15/16-19/20 836 348 Adjusted Baseline Requirement 20/21-24/25 334 822 5% Buffer 17 41 Five Year Supply Requirement 20/21-24/25 351 863 Balance of Supply 1,197 685 Annualised Average 70 173 Estimated Supply in Years 22.11 8.95 (estimated deliverable supply ÷ annualised average requirement)

5.13 If the surplus balance was entirely disregarded, a deliverable supply would still be evidenced (at 6.29 years; against a baseline + 5% buffer requirement of 1,229 dwellings).

Breakdown of Deliverable Supply

5.14 In Table 8, the estimated deliverable supply of 1,548 dwellings is broken down according to site planning and development status. The 27 sites under development account for the vast majority of the deliverable supply and would alone meet the baseline requirement of 1,170. The figure for detailed permission sites is conservative as it does not, provisionally, include the site at Windermere Drive, Skelton (HELAA Site 352). There is an extant permission for 139 dwellings on the site, however a new planning application is anticipated from a major housebuilder, potentially within the current financial year.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Table 8: Deliverable Supply Breakdown

Deliverable Supply Component Sites Supply 2020/21-2024/25

Sites Under Development 27 1,200 Detailed Permissions 11 110 Outline Permissions 2 12 Unallocated Application Sites 3 90 Unpermissioned Allocations 1 60 Commitments on Small Sites (1-4 units net) 74 76 Total 1,548 Annualised Average 310

5.15 The breakdown in Table 9 shows that estimated annual net completions over the five-year period would range from 416 in year 2 to 186 in year 5.

5.16 As at 31 March 2020/21, there were an estimated 368 dwellings recorded as under construction. Subsequent delays due to the Covid-19 lockdown resulted in just 12 net completions in quarter 1, recovering to 106 in quarter two. The estimate for 2020/21 of 396 is by the year end is nonetheless relatively ambitious, but there has been significant in-year progress made at the scheme at the Kirkleatham Green multiple developer scheme (HELAA Site 450a), with 116 recorded starts by November 2020. It is therefore possible that the estimate for 2020/21 may be achieved, assuming there are no further significant delays (for example due to another lockdown, shortage of building materials or labour, or poor weather).

Table 9: Deliverable Supply Estimate Annual Breakdown

Year 2020/21 2021/22 2022/23 2023/24 2024/25 Net Units 396 416 337 213 186

5.17 Although completions are shown to tail off in year 4 and particularly in year 5, this partly reflects the fact that the majority of the supply is on sites under development. At the same time, the likelihood of other sites coming forward for development within five years inevitably increases over time as part of the natural development cycle, but this is not reflected in the figures.

5.18 A site level annual breakdown of five-year deliverable supply is included at Appendix 3. In profiling individual site delivery, it has generally been assumed that first completions on major developments not yet underway would be achieved towards the end of the five year period with larger schemes realistically expected to be building out beyond year 5, thereby allowing for a reasonable lead-in period to negotiate the planning application process and complete any necessary preliminaries.

Developable Housing Supply

5.19 As shown in Table 10, for the 7-year period from 2025/26 to 2031/32 the estimated developable yield is 2,500 housing units (excluding any allowance for

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

contributions on major windfall sites or additional stock losses), which is equivalent to 357 dwellings per annum, which would therefore comfortably exceed the Local Plan baseline, of 234 per annum minus the 5% buffer brought forward into years1 to 5.

5.20 If the accrued surplus balance of completions to 2019/20 (836 dwellings) is applied entirely to the deliverable supply (scenario a.) the estimated developable would be equivalent to over 11 years’ supply against the residual baseline requirement. If the surplus was applied proportionately across the plan period (scenario b.), the supply would be equivalent to over 16 years’ supply.

Table 10: Developable Supply Summary

Supply Component a. b. Estimated Net Developable Supply 2,500 2,500 Annualised Average 357 357 Baseline Requirement (less 5% buffer (82) added to years 1-5) 1,556 1,556 Less Accumulated Surplus 15/16-19/20 0 488 Adjusted Requirement 25/26 – 31/32 1,556 1.068 Supply Balance 944 1,432 Annualised Average 222 153 Estimated Supply in Years 11.26 16.33 (estimated developable supply ÷ annualised average requirement)

5.21 In Table 11, the estimated developable supply of 2,500 dwellings is broken down according to planning and development status, and between years 6 to 10, years 11 and 12 and the post plan period after 2031/32.

5.22 The figures show that the majority of the supply (69%) would be in years 6- 10, though the annual delivery rate would be higher in years 11 and 12. More than half the assessed potential (2,000 dwellings) would not be delivered within the plan period. However, that position could change markedly if in particular the major site at Low Grange Farm (outline permission for 1,250 dwellings) is brought forward more quickly than has been provisionally assumed.

5.23 Outline permission sites account for the largest share of overall potential (over 1,800 dwellings), but unpermissioned allocations (836 dwellings) account and the largest share of potential within the plan period for half the sites, the largest of which at Longbank Farm. Ormesby. Sites which are either under development or have a ‘live’ planning permission account for 35% of the developable supply within the plan period (869 dwellings).

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Table 11: Developable Supply Breakdown

Developable Years Years Post Supply Component Sites Supply 2031-32 2025/26-2031/32 6-10 11-12

Sites Under Development 1 250 200 50 0 Detailed Permissions 3 142 118 24 0 Outline Permissions 4 477 337 140 1,350 Unallocated Application Sites 4 483 333 150 333 Unpermissioned Allocations 12 836 517 319 317 Minor Windfall Allowance n/a 312 222 90 0 Total 24 2,500 1,727 773 2,000 Annualised Average 357 345 386

5.24 The delivery schedule includes eight sites which, for HELAA purposes, are profiled from year 6 onwards including the following large sites:

• Low Grange Farm, South Bank (estimated 1,250 dwellings; HELAA Site 135). • Land South of Marske (estimated 803 dwellings; HELAA Site 054). • Longbank Farm, Ormesby (estimated 272 dwellings; HELAA Site 294). • Land North of ‘Kirkleatham Green’ development, Redcar (estimated 175 dwellings; HELAA Site 450b). • Normanby High Farm (estimated150 dwellings; HELAA Site 419). • Windermere Drive, Skelton (Redcar (estimated 139 dwellings; HELAA Site 352).

5.25 Subject to relevant permissions, it is conceivable that completions could be achieved within five years on the above and other sites, which would boost the five- year supply position going forward and housing delivery over the remainder of the plan period.

5.26 Of the above sites, the schedule shows that Land South of Marske, which is currently the subject of an undetermined reserved matters application, would potentially provide the largest contribution within the plan period (470 dwellings). However, that assumption is in turn dependent on permission being granted, whether by the Council, or again on appeal at some point in the future. If the current application is subsequently refused, the site would in the first instance be removed from the trajectory until such time as any approval is granted. On that basis, if the site was excluded from the schedule, the estimated developable supply within the plan period would be 2,030 dwellings, equivalent to 290 dwellings per annum over the seven-year period.

Risk Assessment

5.27 The 51% supply buffer against the residual minimum requirement enables significant flexibility in terms of housing completion rates. Based on the delivery assumptions, the minimum remaining requirement of 1,972 dwellings could be accomplished within seven years, excluding any further contributions from windfall sites or profiled sites delivering completions in excess of estimates, including those sites where profiled delivery extends beyond the plan period.

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5.28 Therefore, meeting the residual housing requirement is considered to be comfortably achievable. Anticipated completions on existing development sites (1,450) would account for 73% of the remaining requirement and, in the indicative delivery trajectory, over 2,200 dwellings would be on sites which are either under development, or currently have detailed or outline residential planning permission.

5.29 In terms of the five-year supply, the estimated completions figure is less than the equivalent annual average achieved over the first five years of the plan period (310 compared to 401), and over 75% of the supply would be on sites under development and is more than the baseline requirement, Therefore, despite difficult economic conditions, the likelihood of not achieving the five-year delivery estimate appears to be remote based on current evidence. Annual delivery assumptions for each site reflect site promoters’ responses to the consultation and, as demonstrated in Table 12, the HELAA/SHLAA assessments have proved to be reliable indicators of prospective annual delivery over the plan period to date.

Table 12: Comparison of Previous Annual Delivery Estimates with Actual Net Completions

Completions 2015/16 2016/17 2017/18 2018/19 2019/20 Total Forecast 301 420 444 452 409 2,026

Actual 213 516 422 492 363 2,006

Accuracy 71% 81% 95% 92% 89% 99%

5.30 There is less certainty about delivery assumptions over the longer term, for the following reasons:

• The ability to accurately predict housing completions inevitably falls over time.

• Official household projections predict diminishing rates of growth (although comparison of the 2014 and 2016 datasets show that recent household growth has been higher than previously anticipated - perhaps reflecting the unusually high rate of completions over recent years).

• There is more reliance than has hitherto been the case on development in some less buoyant market areas; specifically East Cleveland and the Greater Eston North housing market sub-area.

• The economic repercussions of the Covid-19 crisis and any subsequent economic shocks.

5.31 However, it should also be noted that:

• As noted previously there is currently a realistic possibility that the overall minimum requirement could be surpassed by 2026/27, subject to housing market and wider economic conditions.

• No allowance has been made for further contributions from the development of major windfall sites.

• Notwithstanding any requirement to prepare a new style replacement plan arising from the government’s proposed planning reforms, by 2022/23 the remaining plan

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

period will have reduced to 10 years, which may trigger a rolling plan review to include a revised housing requirement and allocations where appropriate.

• Any further annual reviews of five-year deliverable supply will enable the early identification of any risks to site delivery and to maintaining a five-year housing supply, thereby providing a flag to consider whether and what appropriate remedial action should be taken in accordance with Policy H1.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

6 OTHER ASSSESSED SITES

Background

6.1 Sixty-six other sites, which sit outside the planning process, have also been assessed. Some of these sites could provide potential sources of further housing supply, though most of them were included in previous assessments and were rejected as housing allocations in the Local Plan.

6.2 This group of sites can be broadly divided between those which are inside development limits as defined on the Local Plan Policies Map, and other sites which are outside the limits. It is appropriate to make this distinction because Local Plan Policies SD2 and SD3 do not allow development on sites outside development limits unless it would meet any of the exceptional criteria set out in Policy SD3.

Sites Within Development Limits

6.3 Thirty-one sites within development limits have been identified. These sites covering a combined area of 45.61ha. and have an estimated housing capacity for 1,091 residential units. Most of these sites are considered undevelopable due to significant constraints. Individual site assessments are provided at Annex E.

6.4 Seven sites, with a combined area of 8.5 ha. and an estimated housing capacity for 351 dwellings, have been assessed as potentially developable. These sites are currently considered to be realistically capable of development within the plan period, but further evidence would be required to justify inclusion within the developable supply as per the indicative requirements set out in the Housing Supply and Delivery PPG at Para 020. The most substantial site is ‘South Bank Older Housing Area’, which extends to 4.78ha and has an estimated capacity of 215 dwellings (HELAA Site 381).

6.5 Twenty-four sites, with a combined area of 37.11ha. and estimated housing capacity for 740 dwellings, have been assessed as undevelopable because suitability, availability or achievability constraints and, currently, no indication as to when or if constraints are likely to be overcome within the assessment period. Several sites are the subject of at least one lapsed planning permission.

6.6 The consideration of developability has taking into account any recent planning history, evident economic viability issues including local market conditions and development trends, physical or availability constraints and any known developer interest. All of these sites are within development limits and mostly without planning policy constraints. As such, they could potentially come forward for housing over the plan period as windfall developments if any delivery constraints can be overcome, for example through the availability of grant funding, land assembly or improved market conditions where economic viability issues are currently prohibitive. Some sites may be less constrained than others and therefore more likely to become developable.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Sites Outside Development Limits

6.7 Thirty-five sites located outside development limits have been identified. These sites, covering a combined area of 383ha. and having an estimated housing capacity for 6,087 residential units. Individual site assessments are provided at Annex F.

6.8 Fifteen sites have been assessed as potentially developable and have a combined area of 167ha. and estimated capacity for 2,630 housing units. It should be noted however that a substantial proportion of this land (over 74ha. and with an estimated capacity for 1.280 dwellings) would be on sites adjacent to Marske. Notwithstanding policy constraints, if the major application for Land South of Marske (HELAA Site 054) was to be approved and implemented it is considered, given the relative size of the settlement, that further major greenfield developments at Marske would be unrealistic and unjustifiable, both within and potentially beyond the plan period.

6.9 Twenty sites, with a combined area of 216ha. and estimated housing capacity for over 3,450 dwellings, have been assessed as undevelopable, including the substantial (108ha) site at Morton Carr Farm (HELAA Site 402), which was promoted by a volume housebuilder for 1,500 dwellings and ancillary uses through the local plan review process.

6.10 Nunthorpe is an area of significant housing growth with major sites under development and in the pipeline on either side of the administrative boundary with Middlesbrough, which in the first instance calls into question whether additional land allocations would be justified or realistic from a strategic policy perspective and in terms of infrastructure capacity, particularly in relation to the highway network and school places. Permissions attached to major planning approvals on nearby sites have required significant developer contributions to support infrastructure improvements, however Morton Carr Farm is considerably larger and if developed as indicated it would approximately double the amount of additional housing in the Nunthorpe / Ormesby Bank and Marton areas.

6.11 The indicative proposals for Morton Carr Farm sought to incorporate some local facilities including the potential provision of a primary school and local shops, and such proposals might be physically and financially viable given the scale of the site. However, significant unanswered questions remain regarding the acceptability of such proposals due to the cumulative impact on service infrastructure requirements, notably in relation to the capacity of the local highway network, including the strategic road network (A174 and A19) and on local services including secondary education and healthcare, the feasibility of increasing infrastructure and service capacity to meet additional demand and, in turn, the off-site costs which would potentially be borne by developers.

6.12 Other sites which have been assessed as undevelopable include those located inside the Heritage Coast at Brotton HELAA Sites 232 and 194) and several sites which are considered to have prohibitive physical or economic constraints with no indication that constraints are likely to be resolved in the short-term.

6.13 Notwithstanding the HELAA classification of sites as potentially developable or undevelopable, as all of the sites are outside development limits and any development proposals would be in conflict with the Local Plan unless exceptions criteria were met. It is therefore not currently anticipated that any development would

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be achievable within the assessment period. As such, any realistic delivery prospects would be expected to be tied in with a future plan review.

6.14 As previously noted, due to the high level of supply from ongoing developments and planning permissions, the need to allocate additional housing land to meet the residual housing requirement in the submitted local plan (May 2017) was strictly limited and subsequently augmented by the granting of two major appeals on sites at Normanby and Marske during the plan examination period, thereby consolidating the position and contributing significantly to the substantial buffer against the plan requirement.

6.15 If additional greenfield allocations were to be required at the next review, it is apparent from the appraisals that some sites are likely to be more sustainable or more acceptable in planning policy terms than other options, or more readily developable. In further assessing potential sites through the plan-making process, site-specific, sustainability and policy issues including broader national policy would be significant considerations.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

7 BROWNFIELD LAND REGISTER

Background

7.1 In April 2017, the government published regulations requiring local planning authorities to prepare a brownfield land register and to review it annually. The register provides publicly available information on previously developed (brownfield) sites in Redcar & Cleveland which are considered to offer realistic potential for housing development.

7.2 Brownfield land registers consist of a part 1 and a part 2. Part 1 provides details of all sites included in the register. Part 2 list those sites which have also been granted ‘permission in principle’, which has a similar status to an outline planning permission. Permission in principle can be granted at the discretion of a local planning authority without the requirement to submit a planning application, however a technical details consent would still need to be applied for and granted for development to proceed. Subject to undertaking prior consultation, local authorities have the power to grant permission in principle status on any site included on Part 1 of the register.

7.3 To be included in part 1 of the register, sites must meet the following criteria as set out in part 3 of the regulations:

• At least 0.25 hectares in size or capable of accommodating at least 5 dwellings.

• Suitable for residential development: this means the land has planning permission for housing or housing-led development; or has been allocated for such development in a Local Plan; or is considered appropriate for such development by the council.

• Available for residential development: this means that there is no impediment to development in terms of either ownership issues or legal constraints on the land.

• Residential development of the land is achievable: the land is likely to be developed within 15 years of being entered on the register.

7.4 Sites must also meet the definition of previously developed land as set out in the glossary at Annex 2 of the NPPF, which is:

“Land which is or was occupied by a permanent structure, including the curtilage of the development land (although it should not be assumed that the whole of the curtilage should be developed) and any associated fixed surface infrastructure. This excludes land that is or has been occupied by agricultural or forestry buildings; land that has been developed for minerals extraction or waste disposal by landfill purposes where provision for restoration has been made through development control procedures; land in built-up areas such as private residential gardens, parks, recreation grounds and allotments; and land that was previously developed, but where the remains of the permanent structure have blended into the landscape in the process of time.”

7.5 In July 2017, the government published dedicated Planning Practice Guidance (PPG) which establishes the parameters for preparing brownfield land

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

registers, and how they relate to the wider planning system and applications process. It is also recognised in the PPG that the preparation and review of brownfield land registers and HELAAs should be linked processes. Alongside the PPG, the government published technical advice which sets out a standard data format for publishing the information in order to achieve a high level of consistency and data accessibility across all local authorities. The PPG was amended in October 201919 and was taken into account in reviewing the 2019 assessment.

7.6 Part 1 of the Redcar & Cleveland Brownfield Land Register was first published in December 2017 and was updated in 2018 and 2019 drawing on sites and information in the HELAA assessments. The register comprises a spreadsheet arranged and populated in accordance with the government's published data standard. Part 2 was not completed as no sites were granted permission in principle. .

Preliminary Review

7.7 This assessment of housing land availability provides the starting point for revising the Redcar & Cleveland Brownfield Register. Sites have been considered appropriate for inclusion in the register where the following criteria are met:

• they can be defined as a brownfield site; • they are considered capable of yielding at least five additional dwellings; • they have been assessed as deliverable, developable or potentially developable in this assessment; and • they are inside development limits or otherwise compliant with the Local Plan.

7.8 On that basis, the thirty-one sites included in this HELAA review which would merit inclusion in part 1 are listed in Table 13. Ten sites, as highlighted in bold text, would be added to the register. It is also indicated in the table whether consideration for the granting of permission in principle might apply.

19 The revised document can be downloaded from: https://www.gov.uk/guidance/brownfield-land- registers.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Table 13: Indicative List of Brownfield Land Register Sites

Estimated Estimated r for Part Part r for Dwellings Conside

Area Further ID Site Location Planning Status (Ha.) Detail

539 Church Lane North Estate Grangetown 8.79 18 Detailed Permission No Annex A 519 1 Pearl Street Saltburn 0.02 10 Detailed Permission No Annex A 540 Woodhouse Road Guisborough 0.21 7 Detailed Permission No Annex A 532 Former Bull's Head PH North Skelton 0.14 5 Detailed Permission No Annex A 135 Low Grange Farm South Bank 32.23 1,250 Outline Permission No Annex B 476 Layland House New Skelton 0.21 6 Outline Permission No Annex B 018 Spencerbeck Farm (part) Ormesby 0.96 20 Allocation No Annex D 320c Newton Woods (Phase 2; part) Guisborough 0.55 24 Application Site No Annex C 488 Saltburn Riding Stables Saltburn 1.36 28 Detailed Permission No Annex C 381b Redcar Rd / South Tce South Bank 0.8 28 Application Site No Annex C 452 Former Eston Park School (part) Eston 1.15 40 Allocation No Annex D 376 Park Lane Guisborough 0.26 20 Allocation Yes Annex D 405 Stanghow Road Skelton 0.33 10 Allocation Yes Annex D 456 Former Handale School Loftus 0.28 10 Detailed Permission No Annex D 464 Bridge House Normanby 0.17 9 Application Site No Annex C 547 Former Brotton Library Brotton 0.23 5 Application Site No Annex C South Bank Older Housing 381 South Bank 4.78 215 None Yes Annex E Area 394 Land at Broadway Grangetown 0.57 23 None Yes Annex E 395 St. George’s Bungalows Grangetown 1.32 48 None Yes Annex E 538 Langbaurgh House Guisborough 0.27 14 None Yes Annex E Loftus Bus Depot & Tees St EPA 545 (former only) Loftus 0.28 12 None No Annex E 546 Arlington Chapel Loftus 0.17 10 None Yes Annex E 392 Hummersea Hills Phase 2 Loftus 3.05 128 Under Development No Appendix 3 360a Rosecroft Heights Loftus 1.68 68 Under Development No Appendix 3 387 Ryehills Redcar 1.40 49 Under Development No Appendix 3 413 Wykeham Close Redcar 0.55 27 Under Development No Appendix 3 136 Wilton Lane Guisborough 0.33 14 Under Development No Appendix 3 535 Former Victoria Hotel South Bank 0.33 12 Under Development No Appendix 3 345 Olympia Gym Redcar 0.13 10 Under Development No Appendix 3 528 Land south of The Dunes Redcar 0.19 9 Under Development No Appendix 3 481 Royal Hotel Loftus 0.09 7 Under Development No Appendix 3 531 RAFA Club Redcar 0.02 6 Under Development No Appendix 3

7.9 Fourteen other brownfield sites have been excluded from the table as they have been assessed as undevelopable (see previous chapter).and would not therefore meet part 3 of the regulations.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

8 ECONOMIC LAND AVAILABILITY ASSESSMENT

Background

8.1 From a planning policy perspective, economic development sites and opportunities encompass the following:

• Allocated employment sites (such as business parks, industrial estates and manufacturing sites) which are in areas controlled by policies relating to the B- sector land use classifications.

• Sites in locations covered by policies relating to town, district and local centres. The definition of “main town centre uses” at NPPF Annex 2 comprises retail developments, more intensive leisure uses, offices; and arts, culture and tourism developments. This broad definition therefore incorporates different uses from sectors A, B and D of the Use Classes Order and some unclassified ‘sui generis’ uses.

• Any other available sites which are not allocated for any specific purpose and are not affected by land-based designations and have had or may be suitable for the employment uses as broadly defined above.

8.2 It is confirmed in the NPPF that planning policies should avoid the long-term protection of sites allocated for employment use where there is no reasonable prospect of a site being used for that purpose; that allocations should be regularly reviewed; and that applications for alternative uses should be treated on their merits having regard to market signals and the relative need for different land uses. At paragraph 121, it is stated that (local planning authorities) ‘should support proposals to use retail and employment land for homes in areas of high demand provided this would not undermine key economic sectors or sites or the vitality and viability of town centres, and would be compatible with other policies in the Framework’.

8.3 Redcar & Cleveland is highly unusual in having very substantial areas of dedicated employment land, both in absolute terms and relative to its resident population, including the vast South Tees Development Corporation (STDC) economic development area and the Wilton International manufacturing complex.

8.4 The STDC area covers 1,820 hectares along the River Tees corridor, taking in extensive tracts of vacant land formerly associated with the steelmaking activities alongside existing major business and employment operations including PD Ports, British Steel, Redcar Bulk Terminal and BOC, and the MGT 300mw biomass power plant which is under construction. The area also encompasses the general employment sites at Bolckow Industrial Estate and South Tees Freight Park near Grangetown but also incorporates natural assets including part of the internationally recognised Teesmouth and Cleveland Coast Special Protection Area (SPA).

8.5 Nonetheless, most of the STDC area is vacant industrial land which is allocated for employment development and therefore considered available for redevelopment subject to other considerations. The STDC has been established to pursue the comprehensive and coordinated long-term economic regeneration of that area – collectively referred to as the ’Teesworks’ site - over an indicative period of 25 years. The Council has retained its statutory responsibility as the local planning

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

authority and in May 2018 adopted the South Tees Area Supplementary Planning Document, which supports the implementation of STDC’s vision.

8.6 Adjacent to the South Tees Area, to the south, is the Wilton International integrated manufacturing processing complex, which extends to over 800ha.and is subject to an Instrument of Consent Order granted in 1946 which allows appropriate developments on greenfield land without the need to secure planning permission.

8.7 Significant developments are currently taking place and are in the pipeline at Wilton, including the Sirius minerals potash processing plant which is under construction on a 37ha. site. The Wilton Centre complex within the site provides approximately 500,000ft² (over 46,000m²) of integrated office, laboratory and plant space. It is by far the largest office building in the borough and a major employment site with about 800 workers and 60 organisations based there. In October 2017, it was reported that the building was approximately 80 per cent let20.

Policy Context

8.8 In the Local Plan, Policy ED6 Promoting Economic Growth distinguishes between the three specialist employment areas at South Tees, Wilton and the Skinningrove steel plant, and several dedicated general employment sites.

8.9 The policy maintains the long-established approach of safeguarding the three specialist areas for heavy industry and logistics activities. In these areas, proposals falling within Use Classes B1, B2, B8 and suitable employment related sui-generis uses will be supported. The policy shows that an estimated 405 hectares were considered available over the plan period, comprising 221ha. at Wilton and 184ha. in the South Tees Area, which is well in excess of an assessed requirement for 163ha as set out in the 2016 Employment Land Review (ELR) update. However, the ELR concluded that the additional land should continue to be reserved for specialist employment purposes due to the fundamental importance of these sites to the local economy.

8.10 The Local Plan safeguards an estimated 32ha. of available land for general industrial and business uses (B1, B2 and B8 classifications) specifically at the following industrial estates and business parks:

• South Tees Industrial Estates and Business Parks, South Tees; • Skippers Lane Industrial Estate, South Bank; • Kirkleatham Business Park, Redcar; • Warrenby Industrial Estate, Redcar; • Trunk Road Industrial Estate, Redcar; • Longbeck Industrial Estate, Marske; • North Liverton Industrial Estate, Liverton Mines; and • Barmet Industrial Estate, Lingdale.

8.11 The allocated supply of general employment land is in excess of the ELR assessed requirement for up to 11.2ha. based on recent take-up rates, or 26ha. based on limited pre-2008 recession data. However, due to the significant loss of general employment land through deletion or re-designation, particularly at Skelton Industrial Estate and Kirkleatham Business Park, the Council successfully argued at

20 https://www.insidermedia.com/insider/northeast/sabic-to-extend-wilton-centre-stay.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

the Local Plan examination that the proposed level of over-allocation against the higher assessed requirement would be justified. Policy ED6 permits the development of acceptable alternative uses on general employment land (which could include housing), subject to meeting a range of criteria, which is distinct from the specialist areas where the range of potential alternative uses is more restrictive and there is no realistic scope for residential development.

8.12 It is recognised in the Local Plan that the quality and success of general employment areas varies and that environmental, access and security improvements are needed in order to retain and attract new businesses. It is noted in the plan that while enhancements in some areas have been achieved in recent years, the process needs to continue; the Council’s 2018 Industrial Estates Strategy is intended to specifically assist in that regard.

8.13 In addition to the industrial estates and business parks, land is allocated in the Local Plan for mixed use developments on regeneration sites at Coatham, Kirkleatham and Skelton.

8.14 Policy ED1 seeks to protect and encourage the development of main town centre uses in the defined Redcar Town Centre and the six district centres, to maintain and strengthen local centres and to protect neighbourhood shopping provision. The 2016 Town Centre Study, which included assessments of the district centres, evidenced the need for additional leisure and retail provision over the plan period and found that the limited growth forecast for convenience goods spending is likely to be met by existing commitments. However, some qualitative need for new development was identified for Redcar Town Centre and it is considered that Eston District Centre would also benefit from some additional development. In relation to comparison goods, the Town Centre Study forecasts some capacity for new floorspace within the medium to long term and identifies Redcar Town Centre as a priority for new development.

Employment Land Availability Update

8.15 The 2019 audit has been updated in this assessment having regard to planning application and annual Authority Monitoring Report information, commercial property marketing websites and observational surveys.

8.16 To align with policy, distinctions continue to be made between the major specialist employment areas, and general employment land, including sites located outside allocated areas. Due to the vast land areas at Wilton and the Teesworks site and the potential range of sites available, it is also more appropriate for HELAA purposes to provide an overview of land availability and development proposals rather than to monitor at an individual site level.

Specialist Employment Areas

STDC area

8.17 Following completion of the SSI land acquisition process, the development corporation has begun progressing the clearance and wholesale redevelopment of the Teesworks site. As at October 2020, several planning applications from STDC had been approved or were awaiting determination, included the following applications which are particularly significant in terms of scale:

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

R/2019/0427/FFM LAND AT FORMER SOUTH BANK WORKS; GRANGETOWN PRAIRIE; BRITISH STEEL AND WARRENBY AREA:

DEMOLITION OF STRUCTURES AND ENGINEERING OPERATIONS ASSOCIATED WITH GROUND PREPARATION AND TEMPORARY STORAGE OF SOILS AND ITS FINAL USE IN THE REMEDIATION AND PREPARATION OF LAND FOR REGENERATION AND DEVELOPMENT

The above application covers a land area of 286 hectares and was approved in September 2019.

R/2020/0357/OOM EAST OF SMITHS DOCK ROAD AND WEST OF TEES DOCK ROAD:

OUTLINE PLANNING APPLICATION FOR DEMOLITION OF EXISTING STRUCTURES ON SITE AND THE DEVELOPMENT OF UP TO 418,000 SQM (GROSS) OF GENERAL INDUSTRY (USE CLASS B2) AND STORAGE OR DISTRIBUTION FACILITIES (USE CLASS B8) WITH OFFICE ACCOMMODATION (USE CLASS B1), HGV AND CAR PARKING AND ASSOCIATED INFRASTRUCTURE WORKS ALL MATTERS RESERVED OTHER THAN ACCESS The above application covers 174 hectares and as at October 2020 was awaiting determination.

R/2020/0465/FFM LAND AT METALS RECOVERY AREA NORTH WEST OF PD PORTS; NORTH EAST OF SEMBCORP PIPELINE CORRIDOR AND TEES DOCK ROAD SOUTH EAST OF FORMER SLEM WASTE MANAGEMENT FACILITY AND SOUTH WEST OF HIGHFIELD ENVIRONMENTAL FACILITY SOUTH BANK:

DEMOLITION OF EXISTING BUILDINGS/STRUCTURES AND ENGINEERING OPERATIONS ASSOCIATED WITH GROUND REMEDIATION AND PREPARATION OF LAND FOR DEVELOPMENT

The above application covers over 22 hectares and as at October 2020 was awaiting determination.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Wilton International

8.18 Land availability at Wilton is mapped on the Wilton International website21, which as at October 2020 confirmed that 562 acres (225 hectares) was available for development, equivalent to 28% of the total estate. Sites were identified in different locations, ranging in size from 1 to 26 hectares and including a large area of land to the west of the A1053 situated outside the main complex but directly accessible from it via an underpass.

8.19 Alongside the ongoing Sirius Minerals developments, recently granted planning permissions on the site include the following:

• Construction and operation of a plastic conversion facility including office and welfare buildings, workshops, weighbridges and associated infrastructure at the former Croda site (application ref. R/2019/0031/FFM).

• Construction and operation of a commercial scale processing facility for the production of around 20,000 tonnes per annum of animal / fish food pellets, including ancillary development at Land off Middleway (application ref. R/2018/0496/FF).

• Construction and operation of 49.9MW Combined Heat and Power Peaking Power Plant (application ref. R/2018/0398/CL).

8.20 As at October 2020 the following proposals were awaiting determination:

• Outline permission for the development of a roadside services scheme including a petrol filling station, a mix of retail units comprising A1 convenience store, A3 food and A5 hot food takeaways, a C1 hotel, and associated access and car parking, on 4.18h ha site at Plot 11 (application ref. R/2020/0442/OOM). • Detailed permission for office building (3.931m² floorspace) with associated external works at Plot 1 (application ref. R/2020/0572/FF).

Skinningrove Works

8.21 The British Steel and Caterpillar plants at Skinningrove remain operational and no surplus land availability has been identified through the review.

21 https://www.wiltoninternational.com/land/?ref=homegrid

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

General Employment Land

8.22 The review of general employment land availability is summarised in Table 14, with further site details set out at Appendix 5. Approximately 55ha estimated available land has been identified on allocated sites, most of which (39ha) is on established business parks and industrial estates. Land availability therefore exceeds the local plan availability baseline of 32ha, notwithstanding allocated land that has been brought into use since the start of the plan period.

Policy ED6 - Business Parks and Industrial Estates

8.23 Estimated land availability on the estates has reduced to 39ha from 42ha in the 2019 assessment. Most of the available land (26ha.) is at Kirkleatham Business Park, where the position has barely changed since the 2019 review. The availability of land and premises on industrial estates in the west of the borough has continued to steadily reduce as plots have been taken up but this position may be addressed in the short-term through an extension to Skippers Lane industrial estate as proposed in the Council’s Economic Growth Strategy (specifically, the pursuit of sites 502,505 and 525 for employment development).

Other Employment Use Allocations

8.24 There was an estimated availability of approximately 14ha on sites allocated for employment uses in the Local Plan under other policies. The supply includes a major 2020 permission for a commercial (B8 / sui generis) development on a 5ha site at Skelton, providing 4,600m² of commercial floorspace, and a new site at South Bank.

Other Sites

8.25 Fifteen other sites, without allocation, have been identified, including three . sites with policy constraints. Conversely, some other sites may be developable in the short-term, including sites included in the economic growth strategy.

8.26 By far the largest site, Land West of Kirkleatham Business Park (HELAA Site 513), has policy constraints as it within the defined green wedge and outside of development limits and any justification for its development in the future is likely to be dependent in an assessment of employment land needs, taking into account the continuing availability of land on existing allocations, including at the adjacent business park.

8.27 Overall, it is considered that there is a sufficient supply of available and developable economic land for specialist and general purposes to meet the assessed requirements for Class B sector uses over the course of the plan period. Land availability at Kirkleatham Business Park (over 26ha.) would, on its own, be sufficient to meet the higher assessed quantitative requirement for general employment land in the ELR. The site is a primary destination for employment development within the borough; it is a greenfield site in a highly accessible location off the A174 and includes a detailed permission granted in July 2019 for 17 industrial units on a 1.48 ha. site (application ref. R/2019/0150/FFM).

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Table 14: General Economic Development Land Availability

Land Permissioned Policy ID Site Location Plots Availability (Ha.) Conflict? ED6 Business Parks and Industrial Estates 490 Kirkleatham Business Park Redcar 26.62 5 1.52 No 498 South Tees Freight Park Grangetown 6.26 2 0.08 No 495 North Liverton Industrial Estate Liverton Mines 2.28 4 0.00 No 500 Nelson Street Industrial Estate South Bank 0.63 2 0.42 No 492 Dormanstown Industrial Estate Redcar 1.59 1 0.00 No 497 Bolckow Industrial Estate Grangetown 0.00 0 0.00 No 494 Barmet Industrial Estate Lingdale 0.98 4 0.00 No 501 Skippers Lane Industrial Estate South Bank 0.79 1 0.00 No 499 South Tees Imperial Park South Bank 0.00 0 0.00 No 491 Warrenby Industrial Estate Redcar 0.25 1 0.00 No Other Employment Use Allocations 496 Skelton Industrial Estate Skelton 4.23 3 0.00 No Land between Skelton Retail Park and Skelton 489 Skelton 5.02 1 5.02 No Industrial Estate 482 Coatham Enclosure Redcar 1.56 1 0.00 No 493 Morgan Drive Guisborough 0.52 2 0.00 No 511 Land at Eston Road Grangetown 0.44 1 0.00 No 507 Kirkleatham Stable Block Redcar 0.19 1 0.00 No 549 Land adjacent South Tees Business Centre South Bank 0.78 3 0.00 No 164 Station Yard Brotton 0.27 1 0.00 No 538 Langbaurgh House Guisborough 0.60 1 0.00 No Other Sites 513 Land West of Kirkleatham Business Park Redcar 56.50 1 0 Yes 509 Motorsports Park North Site South Bank 10.96 1 0 No 502 Skippers Lane Allotments South Bank 3.19 1 0 No 054 Land South of Marske Marske 2.55 1 2.55 Yes 512 Land South of Tod Point Road Warrenby 1.48 1 0 No 505 Old Middlesbrough Road South Bank 1.55 1 0 No 525 Former Prosser Scrapyard South Bank 0.85 1 0 No 514 Plantation Road Redcar 0.83 1 0 Yes 516 Former Concast Site South Bank 0.71 1 0 No 506 Normanby Road Business Centre South Bank 0.29 1 0 No 487 Former Redcar Central Railway Station Redcar 0.14 1 0 No 537 Middlesbrough Rd (South Bank) South Bank 0.55 1 0 No 548 Land SE of Tod Point Road Warrenby 0.72 1 0 No 304 Former Loftus Station Loftus 1.20 1 0 No ED6 Business Parks and Industrial Estates (ha.) 39.40 20 2.02 Other Allocation Sites 13.61 14 5.02 Other Permissioned Sites 2.55 1 2.55

Totals 55.56 35 9.59

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Development of Employment Land for Housing

8.28 The economic development sites listed above appear to have limited residential potential as many of them are in locations which are remote from established residential areas and supporting infrastructure and are considered more suitable for economic development uses.

8.29 However, as previous reviews of the HELAA and SHLAA have confirmed, the redevelopment of former employment sites and or allocated employment land for housing is well established in the borough. The process is ongoing, including on major allocated housing sites at Kirkleatham Lane, Redcar (550 dwellings and under construction) and prospectively at Saltburn Lane, Skelton (outline permission for 400 dwellings).

8.30 Also, outside of the Redcar and Guisborough primary shopping areas, Policy ED1 permits diversification to other uses, including residential dwellings where appropriate. The use of the upper floors of retail businesses for flatted accommodation and wholesale conversion of vacant commercial premises, such as pubs, are an established part of the housing stock and an ongoing source of additional housing supply. Outside of the main shopping streets in all centres, residential uses may also be prominent at ground floor level, as confirmed by annual monitoring of retail vacancies.

8.31 Existing employment uses may also be found on other, unallocated sites. In such cases, as the sites are not safeguarded for particular uses there are, subject to other considerations, no immediate policy grounds preventing redevelopment for housing.

Conclusion

8.32 It remains apparent that sufficient employment land has been identified to comfortably meet the assessed supply requirements for specialist and general employment uses. Furthermore, due to the scale of land reclamation and site preparation activities taking place or proposed in South Tees, the availability of developable and permissioned economic development land are both expected to increase considerably.

8.33 The re-use of surplus economic land for residential development is an established source of housing land supply, with the sites at Redcar and Skelton yielding permissions for up to 950 dwellings which will support housing growth within and potentially beyond the plan period. Policies for town and district centres promote the flexible re-use or redevelopment of commercial premises for residential development where appropriate and such sites continue to provide a consistent source of additional dwellings.

8.34 As there is a reasonably up to date evidence base in relation to employment land supply and demand supporting the Local Plan, which over-allocates land against the recommendations of the ELR, there is currently no requirement to review employment land allocations and policies. The take-up of employment land will continue to be recorded through the annual Authority Monitoring Report.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

9 CONCLUSION

9.1 This HELAA update, incorporating the assessment of five-year housing land supply has been undertaken in accordance with the NPPF and the relevant PPG advice and provides a realistic, robust, consistent and evidence-based estimate of housing delivery potential.

9.2 This assessment has confirmed that the borough has a deliverable five-year housing land supply of up to 22 years for the period from 2020/21 to 2024/25 and a substantial supply of developable housing land on existing development sites, permission sites and Local Plan allocations to comfortably meet the minimum housing requirement for the remainder of the plan period to 2031/32. Most of this supply is, moreover, on sites which are already under development

9.3 In the accompanying trajectory and indicative housing delivery schedule, realistic annual site delivery rates have been applied, having regard to recent completion levels, consultation feedback, developments or prospective developments nearby and site characteristics, including realistic assumptions about lead-in times.

9.4 There are also many other available sites which have been included in the assessment and some of them may have the potential to contribute to the housing supply over the plan period, if they were to be required. This includes some sites inside development limits, which could potentially come forward as windfalls without allocation.

9.5 The vast majority of the additional potential housing supply would be on greenfield extension sites outside development limits and almost all of these sites were rejected as allocations in the Local Plan. If it was to transpire that further greenfield extensions were needed, in identifying the most sustainable and acceptable options further consideration would need to be given through the plan- making process, taking into account comparative variations in terms of policy, sustainability and viability issues and any other matters.

9.6 The assessment has provided the basis for undertaking the separate annual review of the Redcar & Cleveland Brownfield Land Register.

9.7 The update of available employment land has indicated that there is a healthy supply of sites to meet the assessed requirements for specialist and general employment uses over the remainder of the plan period as set out in Policy ED6, and this is moreover without taking into account the potential to achieve a substantial increases in employment land availability and development in the South Tees Development Corporation area and at Wilton International.

9.8 Subject to changes to national planning policy, this assessment is due to be reviewed from April 2020 to reflect housing completions for the year to 31 March 2021, planning permissions for housing and economic development uses, and any other relevant issues.

9.9 In the interim, comments or enquiries regarding this document are welcome, including the submission of further sites for future consideration, which can be made using the site submission proforma on the council website at: https://www.redcar-

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

cleveland.gov.uk/resident/planning-and-building/local-plan/Pages/HELAA-and- Brownfield-Register.aspx, and via the contact details given below.

 Planning Strategy Team Directorate of Growth, Enterprise and Environment Redcar & Cleveland Borough Council Redcar & Cleveland House, Kirkleatham Street Redcar, Yorkshire TS10 1RT

 01287 – 612356/7

 strategic.planning @redcar-cleveland.gov.uk

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

APPENDICES

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Appendix 1:

Site Index

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Map ID Site Name Location Status Detail

021 Woodcross Gate Normanby Existing Development Appendix 3 450a Kirkleatham Green Redcar Existing Development Appendix 3 392 Hummersea Hills Phase 2 Loftus Existing Development Appendix 3 029 Galley Hill (Phase 1) Guisborough Existing Development Appendix 3 024 Roseberry Manor Nunthorpe Existing Development Appendix 3 360a Rosecroft Heights Loftus Existing Development Appendix 3 256 High Farm Teesville Existing Development Appendix 3 387 Ryehills Redcar Existing Development Appendix 3 413 Wykeham Close Redcar Existing Development Appendix 3 320a Newton Wood (Phase 1) Guisborough Existing Development Appendix 3 462 Rear 119 Churchill Road Eston Existing Development Appendix 3 136 Wilton Lane Guisborough Existing Development Appendix 3 320b Springwood Green Guisborough Existing Development Appendix 3 535 Former Victoria Hotel South Bank Existing Development Appendix 3 345 Olympia Gym Redcar Existing Development Appendix 3 527 Land north of The Dunes Redcar Existing Development Appendix 3 528 Land south of The Dunes Redcar Existing Development Appendix 3 536 Byland Close Redcar Existing Development Appendix 3 481 Royal Hotel Loftus Existing Development Appendix 3 030/066 Pine Walk Guisborough Existing Development Appendix 3 465 Upsall Hall Nunthorpe Existing Development Appendix 3 474 Upsall Grange Nunthorpe Existing Development Appendix 3 531 RAFA Club Redcar Existing Development Appendix 3 111 Marske Mill Gardens Saltburn Existing Development Appendix 3 478 Lodge Farm Moorsholm Existing Development Appendix 3 467 Former Royal Hotel Redcar Existing Development Appendix 3 469 Former Marske WMC Marske Existing Development Appendix 3 352 Windermere Drive Skelton Detailed Permission Annex A 285 Gurney Street New Marske Detailed Permission Annex A 544 Westfield Barn Redcar Detailed Permission Annex A 539 Church Lane North Estate Grangetown Detailed Permission Annex A 519 1 Pearl Street Saltburn Detailed Permission Annex A 393 Gypsy Lane Nunthorpe Detailed Permission Annex A 466 South of Church Drive Boosbeck Detailed Permission Annex A 540 Woodhouse Road Guisborough Detailed Permission Annex A 541 The Grange Brotton Detailed Permission Annex A 532 Former Bull's Head PH North Skelton Detailed Permission Annex A 518 Land at 21a Church Lane Ormesby Outline Permission Annex B 522 Cherry Tree Croft Brotton Outline Permission Annex B 135 Low Grange Farm South Bank Outline Permission Annex B 051 Saltburn Lane Skelton Outline Permission Annex B

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Land North of Kirkleatham Green 450b Redcar Outline Permission Annex B development 521 101 Ormesby Bank Ormesby Outline Permission Site Annex B 476 Layland House New Skelton Outline Permission Site Annex B Unallocated Application Site / Annex B / 054 Land South of Marske Marske Economic Appendix 6 Development Site Unallocated 400 Land at Galley Hill Guisborough Annex C Application Site Unallocated 018 Spencerbeck Farm Ormesby Annex C Application Site Unallocated 320c Newton Woods (Phase 2) Guisborough Annex C Application Site Unallocated 488 Saltburn Riding Stables 22 Saltburn Annex C Application Site Unallocated 381b Redcar Rd / South Tce South Bank Annex C Application Site Unallocated 464 Bridge House Normanby Annex C Application Site Unallocated 475 Church Lane Farm Guisborough Annex C Application Site Unallocated 547 Former Brotton Library Brotton Annex C Application Site Unpermissioned 294 Longbank Farm Ormesby Annex D Allocation Unpermissioned 043/092 Kilton Lane Brotton Annex D Allocation Unpermissioned 419 Normanby High Farm Normanby Annex D Allocation Unpermissioned 452 Former Eston Park School Eston Annex D Allocation Unpermissioned 124 Morton Carr Lane Nunthorpe Annex D Allocation Unpermissioned 316 Normanby Hall Normanby Annex D Allocation Unpermissioned 376 Park Lane Guisborough Annex D Allocation Unpermissioned 409 Home Farm Skelton Annex D Allocation Unpermissioned 360b Former Rosecroft School Loftus Annex D Allocation Unpermissioned 405 Stanghow Road Skelton Annex D Allocation Unpermissioned 044 Low Cragg Hall Farm Carlin How Annex D Allocation Unpermissioned 451 Land at Mickle Dales Redcar Annex D Allocation Unpermissioned 456 Former Handale School Loftus Annex D Allocation Other Site Within 523 Rear 50-54 Orchard Way Ormesby Annex E Limits

22 Detailed application subsequently approved in December 2020.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Other Site Within 127 Hewley Street Reservoir Normanby Annex E Limits Other Site Within 337 Former South Bank Police Station South Bank Annex E Limits Other Site Within 381 South Bank Older Housing Area South Bank Annex E Limits Other Site Within 503 Costa-Aire Street South Bank Annex E Limits Other Site Within 240 Grange Close Grangetown Annex E Limits Other Site Within 131 North Grangetown Cleared Area Grangetown Annex E Limits Other Site Within 134 Rydal Avenue Grangetown Annex E Limits Other Site Within 394 Land at Broadway Grangetown Annex E Limits Other Site Within 395 St. George’s Bungalows Grangetown Annex E Limits Other Site Within 526 St. David’s Road Grangetown Annex E Limits Other Site Within 534 Kingsley Road Grangetown Annex E Limits Other Site Within 048 Lazenby Allotments Lazenby Annex E Limits Other Site Within 366 Rear All Saints Church Redcar Annex E Limits Other Site Within 442 Pierson Street Redcar Annex E Limits Other Site Within 504 11-12 Esplanade & 7-10 Dundas St. Redcar Annex E Limits Other Site Within 484 Ings Mews Redcar Annex E Limits Other Site Within 470 Rear of 49-93 High Street West Redcar Annex E Limits Other Site Within 347 Ryehills Farm Marske Annex E Limits Other Site Within 161a Newstead Farm (west) Guisborough Annex E Limits Other Site Within 161b Newstead Farm (east) Guisborough Annex E Limits Other Site Within 047a Middlesbrough Rd (North) Guisborough Annex E Limits Other Site Within 485 Enfield Chase Paddock Site Guisborough Annex E Limits Other Site Within 538 Langbaurgh House Guisborough Limits / Economic Annex E Development Site Other Site Within 358/359 Rear Coach Road Brotton Annex E Limits Other Site Within 142 Highfields Brotton Annex E Limits Other Site Within 178 Deepdale Road Loftus Annex E Limits Other Site Within 545 Loftus Bus Depot & Tees St EPA Loftus Annex E Limits

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Other Site Within 546 Arlington Chapel Loftus Annex E Limits Other Site Within 477 Land Adjacent 4 Whitwell Place Lingdale Annex E Limits Other Site Within 040 Cleveland View Skelton Green Annex E Limits Other Site Outside 023/291 Hambleton Hill 'A' & 'B' Nunthorpe Annex F Limits Other Site Outside 402 Morton Carr Farm Nunthorpe Annex F Limits Other Site Outside 459 Bank Fields Eston Annex F Limits Other Site Outside 418 North of High Farm Teesville Annex F Limits Other Site Outside 169 Mannion Park Grangetown Annex F Limits Other Site Outside 158 Mackinlay Park Redcar Annex F Limits Other Site Outside 455 Kirkleatham Paddocks Redcar Annex F Limits Other Site Outside 533 Redcar Outwood Academy SPF Redcar Annex F Limits Other Site Outside 403 Grundales Marske Annex F Limits Other Site Outside 008 Bridge Farm Marske Annex F Limits Other Site Outside 010 W of Longbeck Rd Marske Annex F Limits Other Site Outside 055 Tofts Farm Marske Annex F Limits Other Site Outside 056 Windy Hill Farm Marske Annex F Limits Other Site Outside 014 Church Howle Crescent Marske Annex F Limits Other Site Outside 057 North of Marske Road Saltburn Annex F Limits Other Site Outside 453 Land off Wilton Bank Saltburn Annex F Limits Other Site Outside 404 N & W of Galley Hill Development Guisborough Annex F Limits Other Site Outside 454 South of Stokesley Road Guisborough Annex F Limits Other Site Outside 284 Belmangate Field Guisborough Annex F Limits Other Site Outside 193 Millholme Farm Brotton Annex F Limits Other Site Outside 232 North of Brotton Brotton Annex F Limits Other Site Outside 194 Hunley Hall Farm Brotton Annex F Limits Other Site Outside 091 East of The Forge Brotton Annex F Limits Other Site Outside 090 East of Crispin Court Brotton Annex F Limits

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Other Site Outside 093 South of Broadbent Street Brotton Annex F Limits Other Site Outside 069 South of Gladstone Street Brotton Annex F Limits Other Site Outside 045 Land North of Loftus Loftus Annex F Limits Other Site Outside 515 Former Rosecroft SPF Loftus Annex F Limits Other Site Outside 013 Sparrow Park Farm New Marske Annex F Limits Other Site Outside 310 South of Wilkinson Street Lingdale Annex F Limits Other Site Outside 308 South of Beechcroft Close Annex F Lingdale Limits Other Site Outside 082 East of Balmoral Road Lingdale Annex F Limits Other Site Outside 529 Stanghow Road (Lingdale) Lingdale Annex F Limits Other Site Outside 524 Castle Court Boosbeck Annex F Limits Other Site Outside 415 West of Skelton Green Skelton Green Annex F Limits 461 Former Hollybush Pub Skelton C2 Use Permission Appendix 4 344 Cliffe Garage Redcar C2 Use Permission Appendix 4 542 Land Adj. Moorlands Care Home Guisborough C2 Use Permission Appendix 4 543 Gracelands Care Home Skelton C2 Use Permission Appendix 4 Economic 490 Kirkleatham Business Park Redcar Appendix 5 Development Site Economic 498 South Tees Freight Park Grangetown Appendix 5 Development Site Economic 495 North Liverton Industrial Estate Liverton Mines Appendix 5 Development Site Economic 500 Nelson Street Industrial Estate South Bank Appendix 5 Development Site Economic 492 Dormanstown Industrial Estate Redcar Appendix 5 Development Site Economic 497 Bolckow Industrial Estate Grangetown Appendix 5 Development Site Economic 494 Barmet Industrial Estate Lingdale Appendix 5 Development Site Economic 501 Skippers Lane Industrial Estate South Bank Appendix 5 Development Site Economic 499 South Tees Imperial Park South Bank Appendix 5 Development Site Economic 491 Warrenby Industrial Estate Redcar Appendix 5 Development Site Economic 496 Skelton Industrial Estate Skelton Appendix 5 Development Site Land between Skelton Retail Park Economic 489 Skelton Appendix 5 and Skelton Industrial Estate Development Site Economic 482 Coatham Enclosure Redcar Appendix 5 Development Site Economic 493 Morgan Drive Guisborough Appendix 5 Development Site

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Economic 511 Land at Eston Road Grangetown Appendix 5 Development Site Economic 507 Kirkleatham Stable Block Redcar Appendix 5 Development Site Economic 549 Land adj. S. Tees Business Centre South Bank Appendix 5 Development Site Economic 164 Station Yard Brotton Appendix 5 Development Site Economic Development 538 Langbaurgh House Guisborough Site / Other Site Within Appendix 5 Limits Land West of Kirkleatham Business Economic 513 Redcar Appendix 5 Park Development Site Economic 509 Motorsports Park North Site South Bank Appendix 5 Development Site Economic 502 Skippers Lane Allotments South Bank Appendix 5 Development Site Economic 054 Land South of Marske Marske Appendix 5 Development Site Economic 512 Land South of Tod Point Road Warrenby Appendix 5 Development Site Economic 505 Old Middlesbrough Road South Bank Appendix 5 Development Site Economic 525 Former Prosser Scrapyard South Bank Appendix 5 Development Site Economic 514 Plantation Road Redcar Appendix 5 Development Site Economic 516 Former Concast Site South Bank Appendix 5 Development Site Economic 506 Normanby Road Business Centre South Bank Appendix 5 Development Site Former Redcar Central Railway Economic 487 Redcar Appendix 5 Station Development Site Economic 537 Middlesbrough Rd (South Bank) South Bank Appendix 5 Development Site Economic 548 Land SE of Tod Point Road Warrenby Appendix 5 Development Site Economic 304 Former Loftus Station Loftus Appendix 5 Development Site

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Appendix 2:

Permissions on Small Sites (1-4 net dwellings)

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Site Address or Name Total (Gross) Total (Net) Starts

Newton Hall (two schemes) 6 5 0 Kopaness The Green, Newton Under Roseberry 1 0 0 Agricultural Building, Morton Grange Farm, Nunthorpe 2 2 0 Conifers, High Street, Moorsholm 1 1 1 Moorsholm Methodist Church 1 1 0 1 Moorsholm Court, Davison Street, Lingdale 1 1 1 Land South of 1 - 6 Bartol Court, Jubilee Road, Eston 4 4 4 1 Gladstone Street, Eston 2 1 0 Fell Briggs Farm, New Marske 1 1 1 Clifton Holding, Ormesby Bank 1 1 1 Land at Albion Terrace, Guisborough 3 3 0 Coach House, Flatts Lane, Upsall 1 1 1 Hollymead Drive, Guisborough 1 1 0 Badgers Cafe, 55-57 Church Street, Guisborough 0 -1 -1 Chilvers Cottage, Flatts Lane, Normanby 1 0 0 Land at Court Green Farm (Dunsdale Farm), off Wilton Lane, 1 1 0 Guisborough 6-8 Wilson Street, Guisborough 2 2 2 Land At 100 Ormesby Bank, Ormesby 4 3 0 83a Westgate, Guisborough 0 -1 0 Tofts Farm, Marske Road, Saltburn 1 1 0 79 Marine Parade, Saltburn 3 2 2 Land South of Woodlea/Overdene, Victoria Terrace, Saltburn 1 1 0 Pembroke Residential Home, Marine Parade, Saltburn 2 2 2 15 Marske Mill Lane, Saltburn 1 1 0 The Lodge, Guisborough Road, Saltburn 1 1 0 43 Upleatham Street, Saltburn 2 1 0 The Chalet, Saltburn Bank, Saltburn 1 1 0 2b Cleveland Street, Saltburn 2 1 2 12 Normanby Hall Park 1 1 0 Caretakers Bungalow, Normanby Primary School, Flatts Lane, 0 -1 0 Normanby 49 King Street/ 2 Pym Street, South Bank 0 -1 0 65 Bolckow Road, Grangetown 4 3 0 6 Derwentwater Road, Grangetown 0 -1 0 Workshop Opposite Sea View, New Brotton 1 1 0 Land south of Highfield and west of Glen View, Saltburn 1 1 1 Road, Brotton The Former Maynard Arms, Maynard Street, Carlin How 1 0 1 Corner of Muriel Street and Queen Street, Carlin How 1 1 0 Primrose Cottage and adjacent plots, Mill Lane, Skinningrove 4 3 0 5 & 6 Tofts Close, Marske 1 -1 0 10 Dovecote Close, Marske 1 1 0 Land Rear of Penryn, Spain Hill, Marske 1 1 0 5a Ormesby Bank 3 3 0 20 Highbank Road, Ormesby 1 1 0 33 Gypsy Lane, Nunthorpe 1 1 0 Land North of 7 Holly Hill Close, Ormesby 2 2 2 5 & 6 Railway Cottages, Guisborough Road, Nunthorpe 1 -1 0 Land to rear of 2 To 8 Winston Drive, Eston 2 2 0

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Ashbrook & Hillview, Fishponds Road, Yearby 0 -2 0 92 Corporation Road, Redcar 0 -1 0 Briarfield House, 8 Easson Road, Redcar 0 -1 0 Red Barns Hotel, 31 Kirkleatham Street, Redcar 1 1 1 66 Esplanade, Redcar 1 1 0 128 High Street, Redcar 3 3 0 145 High Street West, Redcar 1 1 1 Land off Elliot Street, Redcar 1 1 0 22-24 Cleveland Street, Redcar 3 3 1 2 Westbourne Grove, Redcar 1 1 0 72 Coatham Road, Redcar 0 -1 0 Former Royal Standard P H, 5 West Dyke Road, Redcar 5 3 0 32 Arthur Street, Redcar 1 1 0 38 Station Road, Redcar 2 2 0 2 Arthur Street, Redcar 1 -1 0 79 Station Road, Redcar 1 1 0 1a Cedar Grove, Redcar 0 -1 0 The Boosbeck Hotel, High Street, Boosbeck 2 1 0 Cherry Tree House, Lingdale Road, Boosbeck 1 1 1 Land North of Station Hotel, High Street, Boosbeck 3 3 0 29-31 High Street, Skelton-In-Cleveland 1 1 1 Priestcrofts Farm, Lingdale Road, Boosbeck 2 1 2 79 High Street, Skelton-In-Cleveland (First Floor) 0 -1 0 Land Rear of 1 And 2 Serenity Hollow, Boosbeck 1 1 0 Plot 5, Serenity Hollow, Boosbeck 1 1 1 Wilson Street, Brotton 3 3 0 Bridge House, The Square, Skinningrove 1 1 0 Totals 109 76 28

Source: Redcar and Cleveland Borough Council PARS database.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Redcar & Cleveland Housing and Economic Land Availability Assessment Redcar & Cleveland Housing and Economic Land Availability Assessment – 2020 Update

Appendix 3:

Indicative Delivery Schedule 2020/21 – 2031/32

Redcar & Cleveland Housing and Economic Land Availability Assessment Redcar & Cleveland Housing and Economic Land Availability Assessment – 2020 Update

Starts Supply Balance Estimated Completions to Post 31/32 Potential 31 /03/20 2020/21 2021/22 2022/23 2023/24 2024/25 2025/26 2026/27 2027/28 2028/29 2029/30 2030/31 2031/32 19/20 Total HELAA Area 31/03/20 Site Location Status Justification

ID (Ha) Site

As per conversation with Miller Homes land manager on 14/07/20, no completions are anticipated in 20/21, 30 are anticipated in 21/22 and 40 p.a. thereafter is currently considered Under 021 Woodcross Gate Normanby 22.75 400 0 0 400 0 0 30 40 40 40 40 40 40 40 40 40 10 400 0 reasonable. Possible sale of units to RPs for Development private rented tenure is being considered and could boost output. As of October 2020, Council records showed 19 dwelling starts and 0 completions. Delivery assumptions as per detailed and updated (post-lockdown) delivery schedules provided by Vistry Partnerships in June 2020. As Under of October 2020, Council records showed 0 450a Kirkleatham Green Redcar 12.50 375 0 0 375 19 66 125 43 58 83 0 0 0 0 0 0 0 375 0 Development completions but 116 dwelling starts; it therefore remains conceivable that the scheduled 66 completions could be achieved within the financial year. Delivery assumptions reflect response to consultation from Beyond Housing, which anticipates scheme completion within 3 years, subject to any unforeseen delay (e.g. due to Hummersea Hills Under 392 Loftus 3.05 128 0 0 128 0 22 56 50 0 0 0 0 0 0 0 0 0 128 0 further Covid-19 lockdown). As of October 2020, Phase 2 Development Council records showed 22 dwelling starts and 0 completions; completion assumptions for 20/21 have been adjusted downwards (from 28) to reflect the number of starts. In the absence of further information, it has been provisionally assumed that, due to the Covid-19 disruption, completions would be significantly less than the high number of starts, or those Under 029 Galley Hill (Phase 1) Guisborough 15.30 326 221 67 105 72 40 35 30 0 0 0 0 0 0 0 0 0 105 0 achieved in 2019/20. As of October 2020, Development Council records showed 18 in-year completions to date and a further 56 dwelling starts; the assumption of 40 completions in 2020/21 is therefore considered realistic. In the absence of further information, it has been provisionally assumed that, due to the Covid-19 disruption, completions would be significantly Under less than the number of starts. As of October 024 Roseberry Manor Nunthorpe 7.70 138 49 22 89 35 30 30 29 0 0 0 0 0 0 0 0 0 89 0 Development 2020, Council records showed 18 in-year completions to date and a further 23 dwelling starts; the assumption of 30 completions in 2020/21 is therefore considered realistic. Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Estimated completions derived from developer’s response and have been apportioned to reflect different accounting year (Jun-Jul). Gleeson have indicated that development will be built-out by Under 360a Rosecroft Heights Loftus 1.68 69 1 1 68 46 33 31 4 0 0 0 0 0 0 0 0 0 68 0 June 2022. As of October 2020, council records Development showed 28 in-year completions to date and a further 29 dwelling starts; the delivery assumptions are therefore considered achievable. Figures based on the response from the developer, excluding discrepancy of 2 units against RCBCs recorded figures (Keepmoat records show 51 completions to date, including 45 in 2019/20). Keepmoat's delivery assumptions are notwithstanding any further Under disruption due to Covid-19 and the impacts of 256 High Farm Teesville 9.49 105 53 46 52 19 27 25 0 0 0 0 0 0 0 0 0 0 52 0 Development de-furloughing from October 2020 in terms of unemployment rates and further economic contraction. As of October 2020, council records showed 10 in-year completions to date and a further 22 dwelling starts; the delivery assumptions are therefore considered achievable. Estimated completions derived from developer’s response and have been apportioned to reflect different accounting year (Jun-Jul). Gleeson have indicated that development will be built-out by Under 387 Ryehills Redcar 1.40 49 0 0 49 34 33 16 0 0 0 0 0 0 0 0 0 0 49 0 June 2022. As of October 2020, Council records Development showed 12 in-year completions to date and a further 32 dwelling starts; the delivery assumptions for 20/21 are therefore considered achievable. Beyond Housing's response to the developers' consultation indicated that the site would be entirely built-out in 20/21, notwithstanding any delays, e.g. due to further lockdown. Council Under records show that as of December 2020, 19 units 413 Wykeham Close Redcar 0.55 27 0 0 27 27 27 0 0 0 0 0 0 0 0 0 0 0 27 0 Development had been completed and the remaining 8 were under construction. Given that build-out commenced in July 2019 and all units had started by December 2019, it is considered that delivery is on track to meet expectations. In the absence of further information, it has been provisionally assumed that completions in 20/21 would be restricted to the modest number of recorded starts at the beginning of the year, to Newton Wood Under 320a Guisborough 5.14 119 96 32 23 14 14 9 0 0 0 0 0 0 0 0 0 0 23 0 reflect the impact of the Covid-19 disruption. As (Phase 1) Development of October 2020, Council records showed 4 in- year completions to date and a further 15 dwelling starts; the delivery assumptions for 20/21 are therefore considered achievable. Rear 119 Churchill Under Site has been fully built-out and in accordance 462 Eston 0.26 15 0 0 15 0 15 0 0 0 0 0 0 0 0 0 0 0 15 0 Road Development with plans as per Development Management

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Compliance Officer; confirmation from external building inspectors is outstanding. 10 units all started in September 2019, so subject to any further delay it would seem reasonable to Under 136 Wilton Lane Guisborough 0.33 14 0 0 14 10 10 4 0 0 0 0 0 0 0 0 0 0 14 0 assume that they will be completed by March Development 2021. As of October 2020, Council records showed all 14 dwellings had started. The site has been building out slowly since April 2018. Council records show dwellings typically taking around 18 months to complete. Of the 9 starts, 2 commenced in 2018 and 7 started in Under 320b Springwood Green Guisborough 0.86 20 8 8 12 9 2 7 3 0 0 0 0 0 0 0 0 0 12 0 early 2020. In the circumstances, and taking into Development account the effects of lockdown, it is assumed that only 2 dwellings, i.e. the long-standing commitments, might be expected to be completed within 2020/21. Site visit June 2020 confirmed significant Under 535 Former Victoria Hotel South Bank 0.33 12 0 0 12 0 12 0 0 0 0 0 0 0 0 0 0 0 12 0 progress made in development of the apartment Development block. Under Conversion progressing and assumed deliverable 345 Olympia Gym Redcar 0.13 10 0 0 10 10 10 0 0 0 0 0 0 0 0 0 0 0 10 0 Development as per NPPF. Delivery assumptions as per Beyond Housing response to consultation. Council records show Land north of The Under that as of December 2020, 8 units had been 527 Redcar 0.50 10 0 0 10 8 10 0 0 0 0 0 0 0 0 0 0 0 10 0 Dunes Development completed and the remaining 2 were under construction. As such, delivery is on track to meet expectations. Land south of The Under 528 Redcar 0.19 9 0 0 9 9 9 0 0 0 0 0 0 0 0 0 0 0 9 0 Development was completed in quarter 2, 20/21. Dunes Development Delivery assumptions as per Beyond Housing response to consultation. Council records show Under that as of December 2020, 6 units had been 536 Byland Close Redcar 0.18 8 0 0 8 6 8 0 0 0 0 0 0 0 0 0 0 0 8 0 Development completed and the remaining 2 were under construction. As such, delivery is on track to meet expectations. It is understood that the partially completed Under conversion has stalled, but efforts are being 481 Royal Hotel Loftus 0.09 7 0 0 7 7 0 0 7 0 0 0 0 0 0 0 0 0 7 0 Development made to appoint a different contractor to complete the development. Under 030/066 Pine Walk Guisborough 6.65 188 182 34 6 6 6 0 0 0 0 0 0 0 0 0 0 0 6 0 All remaining units had started by 31.03.20. Development To reflect the disruptive impact of Covid-19, it Under has been assumed that completions in 20/21 465 Upsall Hall Nunthorpe 1.38 8 2 2 6 1 1 2 2 1 0 0 0 0 0 0 0 0 6 0 Development would be limited to the single dwelling recorded as under construction in March 2020. In July 2020 development was largely completed Under with 1 dwelling at an advanced stage of 474 Upsall Grange Nunthorpe 1.44 8 2 0 6 0 2 4 0 0 0 0 0 0 0 0 0 0 6 0 Development construction and there were 3 dwellings for sale on the open market. Under Small conversion scheme which has commenced 531 RAFA Club Redcar 0.02 6 0 0 6 0 0 6 0 0 0 0 0 0 0 0 0 0 6 0 Development in 2020/21. Under Site visit July 2020 confirmed all remaining 111 Marske Mill Gardens Saltburn 1.08 14 9 3 5 5 5 0 0 0 0 0 0 0 0 0 0 0 5 0 Development dwellings are close to completion.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Under Update July 2020 shows 1 dwelling completed 478 Lodge Farm Moorsholm 0.67 6 1 0 5 2 1 3 1 0 0 0 0 0 0 0 0 0 5 0 Development and 3 under construction. Under Works on this flatted conversion have evidently 467 Former Royal Hotel Redcar 0.03 14 12 3 2 0 2 0 0 0 0 0 0 0 0 0 0 0 2 0 Development been completed with most of the flats sold. Outstanding completion relates to retrospective Under 469 Former Marske WMC Marske 0.12 8 7 7 1 1 1 0 0 0 0 0 0 0 0 0 0 0 1 0 application for flat conversion and should Development therefore be picked up in 20/21 return. Although development has previously stalled, it is understood from the landowner that a different major housebuilder has agreed to acquire approximately half of the site and will be submitting a planning application in the near future. It is considered therefore that the whole Detailed 352 Windermere Drive Skelton 5.37 139 0 0 139 0 0 0 0 0 0 15 25 25 25 25 20 4 139 0 site is capable of being built-out within the plan Permission period. In the absence of further confirmation from the prospective developer it has been provisionally assumed, for HELAA purposes, that delivery would be from year 6 at the earliest, but it is clearly conceivable that some completions may be achieved within the next 5 years. Detailed permission for 23 affordable dwellings was granted with conditions in November 2020 to Beyond Housing , which has previously Detailed 285 Gurney Street New Marske 0.72 23 0 0 23 0 0 0 0 10 13 0 0 0 0 0 0 0 23 0 indicated through this review its intention to Permission complete the scheme within five years. That assumption would also accord with the NPPF definition of deliverability. Permission was granted in September 2020 to a local housing provider and the proposals are Detailed 544 Westfield Barn Redcar 0.30 20 0 0 20 0 0 0 10 10 0 0 0 0 0 0 0 0 20 0 assumed deliverable until permission expires, as Permission per the NPPF and in the absence of contrary evidence. Delivery assumptions reflect response to consultation from Beyond Housing, which Church Lane North Detailed 539 Grangetown 8.79 18 0 0 18 0 0 -15 33 0 0 0 0 0 0 0 0 0 18 0 anticipates scheme completion within 3 years, Estate Permission subject to any unforeseen delay (e.g. due to further Covid-19 lockdown). Assumed deliverable until permission expires, as per the NPPF and in the absence of contrary Detailed 519 1 Pearl Street Saltburn 0.02 10 0 0 10 0 0 10 0 0 0 0 0 0 0 0 0 0 10 0 evidence. This is a conversion scheme and Permission therefore has limited lead-in time in terms of site preparation. Assumed deliverable until permission expires, as per the NPPF and in the absence of contrary evidence. The land is owned by a prominent local housebuilder specialising in small self-build Detailed 393 Gypsy Lane Nunthorpe 0.79 10 0 0 10 0 0 0 2 3 3 2 0 0 0 0 0 0 10 0 developments of larger detached dwellings and Permission several pre-commencement conditions have been discharged. The delivery assumptions reflect recent build-out rates of similar schemes undertaken by the same developer.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Assumed deliverable until permission expires, as per the NPPF and in the absence of contrary evidence. The permission, which is for the development 8 semi-detached bungalows for Detailed occupation by elderly or disabled residents, is 466 South of Church Drive Boosbeck 0.33 8 0 0 8 0 0 0 0 4 4 0 0 0 0 0 0 0 8 0 Permission subject to satisfying a pre-commencement condition requiring the approval of a detailed drainage and sewerage system. The site is outside development limits, outline permission having been granted on appeal in 2017. The landowner (Beyond Housing) has confirmed that following a redesign of the scheme to Detailed 540 Woodhouse Road Guisborough 0.21 7 0 0 7 0 0 7 0 0 0 0 0 0 0 0 0 0 7 0 improve viability it is proposed to submit a Permission further application and to undertake the redevelopment of the site in 2021/22. As per the NPPF and in the absence of contrary Detailed 541 The Grange Brotton 0.26 6 0 0 6 0 0 0 0 3 3 0 0 0 0 0 0 0 6 0 evidence, the proposals are assumed deliverable Permission until permission expires. Assumed deliverable until permission expires, as North Detailed 532 Former Bull's Head PH 0.14 5 0 0 5 0 0 0 1 2 2 0 0 0 0 0 0 0 5 0 per the NPPF and in the absence of contrary Skelton Permission evidence. After a long duration regarding compliance with building regulations, three bungalows were recorded as completed in 2019/20 following changes to the regulations, specifically the withdrawal of the code for sustainable homes which has resulted in the removal of the associated condition attached to the planning Land at 21a Church Detailed 518 Ormesby 0.29 4 0 0 4 0 0 0 1 1 1 1 0 0 0 0 0 0 4 0 permission. The agent has in turn indicated that Lane Permission the removal of the condition and granting of building completion certificates will enable the remainder of the development to be pursued (application ref. R/2020/0226/RC). Therefore, the proposals are assumed deliverable until permission expires, as per the NPPF and in the absence of contrary evidence. On Plot 5 site clearance has been undertaken and the pre-commencement conditions in Detailed relation to tree protection has been met. No 522 Cherry Tree Croft Brotton 0.49 2 0 0 2 0 0 0 1 1 0 0 0 0 0 0 0 0 2 0 Permission progress has been made on Plot 4, however the permission does not expire until July 2021 and as per the NPPF is considered deliverable. Delivery assumptions are as per the 2019 HELAA as interest has recently been revived in this site. A major housebuilder is in the process of entering into a legal agreement with the landowner and has indicated that a detailed Outline 135 Low Grange Farm South Bank 32.23 1,250 0 0 1,250 0 0 0 0 0 0 20 30 30 30 30 30 30 200 1,050 planning application for delivery phase 1 Permission (approx. 200 dwellings) will be submitted within the calendar year with a proposed on site start in 2021/22. There is also confirmed initial interest from a social housing provider in developing on part of the site. It is conceivable that

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

completions may be achievable within five years, and that annual delivery rates may be higher than indicated. Delivery assumptions are as per the 2019 HELAA Outline 051 Land off Saltburn Lane Skelton 17.03 400 0 0 400 0 0 0 0 0 0 0 0 0 10 30 30 30 100 300 and reflect the landowner's response to the Permission consultation. It is understood that this site has recently been marketed for disposal by Homes England. It is therefore assumed that development will as a minimum smoothly follow on from the adjoining Kirkleatham Green development (site 450a), North of ‘Kirkleatham Outline which has a five-year completion programme 450b Redcar 9.34 175 0 0 175 0 0 0 0 0 0 15 35 35 35 35 20 0 175 0 Green’ development Permission and makes provision for vehicular access into this site. It would be reasonable to assume that the scale of development would be achievable within the plan period and in the absence of further information, this is reflected in the conservative annual delivery estimates. Assumed deliverable until extended permission Outline 521 101 Ormesby Bank Ormesby 0.40 8 0 0 8 0 0 0 1 4 1 2 0 0 0 0 0 0 8 0 expires (May 2021), as per the NPPF and in the Permission absence of contrary evidence. Assumed deliverable until extended permission Outline 476 Layland House New Skelton 0.18 6 0 0 6 0 0 0 2 2 2 0 0 0 0 0 0 0 6 0 expires (May 2021), as per the NPPF and in the Permission absence of contrary evidence. Delivery assumptions are predicated on the current reserved matters application being approved; there is an outline permission in place granted in 2017 on appeal. If the application is refused, the site will be removed from the schedule notwithstanding any subsequent appeal decision. Annual delivery estimates 054 Land South of Marske Marske Application Site 50.05 803 0 0 803 0 0 0 0 0 0 60 60 60 70 70 70 80 470 333 reflect the phasing plan submitted as part of the current outline application and assumes two developers on site simultaneously. It is also advised in the phasing plan that several major developers are interested in undertaking development. If the application is approved, consideration will be given to including some completions in the deliverable supply. It is understood from the case officer that Taylor Wimpey are continuing to pursue the development of the site, which is a relatively small scheme and therefore, subject to 400 Land at Galley Hill Guisborough Application Site 4.04 60 0 0 60 0 0 0 25 35 0 0 0 0 0 0 0 0 60 0 resolution of land availability issues, is considered potentially deliverable within a brief timeframe, particularly given that Galley Hill phase 1 is mostly built-out. Delivery assumptions are as per the 2019 assessment, i.e. from year 6 onwards. The delay in determining the current outline application, 018 Spencerbeck Farm Ormesby Application Site 2.40 52 0 0 52 0 0 0 0 0 0 15 30 7 0 0 0 0 52 0 which was submitted in February 2019, is due to ongoing discussions regarding S106 affordable housing and education contributions

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

requirements and achieving development viability. It is understood from the case officer that the matter will be resolved shortly. As the application is in outline and the site is being promoted by the landowner rather than a housebuilder, it is again assumed for HELAA purposes that the site would be developable rather than deliverable. The granting of detailed permission is subject to signing an S106 agreement in relation to Newton Woods educational contributions. It is assumed that 320c Guisborough Application Site 1.10 47 0 0 47 0 0 15 32 0 0 0 0 0 0 0 0 0 47 0 (phase 2) completions can be achieved in the short-term given that phase 1 of Newton Woods is nearing completion. There is an outline permission for up to 30 dwellings and the site is the subject of a detailed application for 28 dwelllings23. The site is Saltburn Riding therefore assumed deliverable. The annual yield 488 Saltburn Application Site 1.36 28 0 0 28 0 0 0 0 5 10 10 3 0 0 0 0 0 28 0 Stables estimates reflect the developer's output on other sites and the nature of the proposals (a mix of detached and semi-detached dwellings including 5% affordable). The site is the subject of a detailed planning application from a major social housing provider 381b Redcar Rd / South Tce South Bank Application Site 0.80 28 0 0 28 0 0 0 0 14 14 0 0 0 0 0 0 0 28 0 (Thirteen) and there are no identified suitability constraints. The prospective developer (Avant) retains an option on the land (until 2023), and has confirmed that a technical and commercial reappraisal of the site is being undertaken, but remains committed to pursuing its development in due course. Therefore, for HELAA purposes it is appropriate to continue to assume the site is Unpermissioned developable. The site is allocated for up to 320 294 Longbank Farm Ormesby 22.03 272 0 0 272 0 0 0 0 0 0 15 30 35 35 35 35 35 220 52 Allocation dwellings, but previous correspondence from Avant indicated that due to topographical constraints the proposals would likely be scaled back by at least 15%; the yield estimate has been revised downwards to reflect this. The annual delivery assumptions have been carried forward from the previous assessment and are considered realistic for the market location. It is understood that Taylor Wimpey retains a development option on the eastern part of the site, which was the subject of an application 10 years ago for a mixed-use development including Unpermissioned 043/092 Kilton Lane Brotton 12.07 270 0 0 270 0 0 0 0 0 0 0 0 0 10 30 30 30 100 170 158 dwellings. It is therefore considered that the Allocation site is capable of development within the plan period. In the previous review it was assumed that most completions (220) would be achieved within the plan period, but as there is currently

23 Approved in December 2020

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

no indication that a planning application is likely to be submitted in the near future, there is currently no justification for maintaining those assumptions for HELAA purposes. Completion estimates have therefore been pushed back to the extent that balance of development of the site would be after 2031/32. It understood there is interest from major Unpermissioned housebuilders in undertaking development and, 419 Normanby High Farm Normanby 9.44 150 0 0 150 0 0 0 0 0 0 15 30 30 30 30 15 0 150 0 Allocation as such, it is considered that the site is capable of being built out within the plan period. Since the previous review, progress has been made with MHCLG in transferring the former playing field land back into Council ownership which will enable the whole site to be marketed for development. Given previous developer interest in the site and recent brownfield development on the adjacent Fabian Place site, it is considered that the site remains capable of Former Eston Park Unpermissioned development within the plan period, and 452 Eston 4.15 131 0 0 131 0 0 0 0 0 0 0 0 0 15 30 30 30 105 26 School Allocation realistically could come forward for development sooner than as shown and be fully built-out within the plan period. However for HELAA purposes there is currently no evidential justification to include completions from year 6, or earlier. To reflect completion rates on the adjacent Fabian Place redevelopment, typical annual delivery estimates have been increased from 20 per annum. Planning permission expired in February 2020. It is understood that there is ongoing developer interest in the abattoir site (potentially without Abattoir Site & Unpermissioned recourse to the adjacent open space land, which 457 Boosbeck 4.04 69 0 0 69 0 0 0 0 0 0 0 0 0 10 20 20 19 69 0 Adjacent Land Allocation would result in a lower number of dwellings). It is conceivable therefore that development could be achieved much sooner than provisionally indicated. Delivery assumptions reflect landowner’s response to consultation, the fact that detailed Unpermissioned permission expired in 2020 and that the PPG 409 Home Farm Skelton 1.54 47 0 0 47 0 0 0 0 0 0 0 0 0 0 0 10 20 30 17 Allocation Housing Supply and Delivery chapter (para. 20) requires a greater degree of certainty for including sites as developable within 10 years. This delivery estimate is the balance of the dwelling estimate on the allocated site under Policy H3.25, hence the low yield estimate. As there is no indication that Gleeson are likely to Former Rosecroft Unpermissioned develop at phase two at Rosecroft Heights and 360b Loftus 1.43 31 0 0 31 0 0 0 0 0 0 0 0 0 0 0 10 15 25 6 School Allocation the development layout does not allow for an extension of the road network onto this land (which was formerly part of the school playing field and therefore requiring MHCLG agreement to allow it to be released for development), it is

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

assumed that any development would be in the longer term. Given the lack of certainty, in accordance with the PPG Housing Supply and Delivery chapter (para. 20) no completions are assumed within 10 years. RCBC site which has been made available for disposal and is under offer from a prominent Unpermissioned housing developer. Progress has been delayed 124 Morton Carr Lane Nunthorpe 4.27 30 0 0 30 0 0 0 0 0 0 5 10 10 5 0 0 0 30 0 Allocation by a community asset transfer bid, but it remains feasible that the site might be developed within 5 years. The site has been sold on to a local property developer and work to secure the derelict listed building is ongoing. The adjoining swimming pool building has been removed in order to enhance Unpermissioned 316 Normanby Hall Normanby 2.80 25 0 0 25 0 0 0 0 0 0 0 0 0 5 10 10 0 25 0 development potential. However, given the Allocation abnormal costs and sensitive nature of the site, delivery has been provisionally included towards the end of the plan period until such time as detailed planning permission is granted. The acquisition and development of this RCBC- owned site is being pursued by a major housing Unpermissioned developer and subject to further progress it is 376 Park Lane Guisborough 0.26 20 0 0 20 0 0 0 0 0 0 10 10 0 0 0 0 0 20 0 Allocation highly conceivable that it might be redeveloped within 5 years, but for HELAA purposes it has been provisionally assessed as developable. Delivery assumptions reflect landowner's response to the consultation exercise - that the site would be capable of development within the plan period. The site has been cleared but there is currently no indication that a planning application is likely to be forthcoming in the Unpermissioned 405 Stanghow Road Skelton 0.33 10 0 0 10 0 0 0 0 0 0 0 0 0 0 0 5 5 10 0 short-term and, given the high level of Allocation permissions in Skelton on larger sites, it is assumed that any development is likely to be towards the end of the period. As such, in accordance with the PPG Housing Supply and Delivery chapter (para. 20) no completions are assumed within 10 years. The site is currently considered realistically undevelopable within the plan period due to evident viability issues. It is the subject of successive lapsed permissions and has remained on the open market for several years without Unpermissioned 044 Low Cragg Hall Farm Carlin How 1.88 46 0 0 46 0 0 0 0 0 0 0 0 0 0 0 0 0 0 46 detailed proposals materialising. The site is in a Allocation lower value and highly localised market location and there are potential abnormal development costs associated with the sloping topography, road access and sustainable drainage requirements. The potential has been reduced to nil because Unpermissioned 451 Land at Mickle Dales Redcar 4.30 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 the site is no longer accessible from Silverdale Allocation Road.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

The potential has been reduced to nil because Former Handale Unpermissioned 456 Loftus 0.28 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 there is a live permission for the conversion of School Allocation the building to non-residential uses. Delivery assumptions are less than recent

completion rates and considered realistic, Commitments on Small Sites (1-4 units) 0 0 0 76 32 10 16 20 20 10 0 0 0 0 0 0 0 76 0 allowing for limited completions in 2020/21 due

to the effects of Covid-19. The annual estimate is less than average

completions over the plan period on minor sites Minor Sites Windfall Allowance 0 0 0 0 0 0 0 0 0 0 42 45 45 45 45 45 45 312 0 and does not account for major windfalls and is,

therefore, considered reasonable.

Total Dwellings 5,736 372 396 416 337 213 186 267 348 317 365 430 420 353 4,048 2,000

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Appendix 4:

Assessment of C2 Residential Institutions

88 Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

HELAA Housing Size (ha.) Notes Application Ref(s). Site Location Beds Deliverable ID Potential24 New Schemes Detailed permission was granted in October 2018 and is 461 R/2018/0383/FFM Former Hollybush Pub Skelton 65 29 0 0.34 valid for 3 years. As of October 2019, the site had been cleared but there are no further signs of on-site progress. Detailed permission was granted in March 2018 and is valid for 3 years. The site is the subject of a lapsed permission and was cleared some time ago, in the 2000s. Site visit in October 2019 indicates that no further 344 R/2018/0021/FFM Cliffe Garage Redcar 56 25 0 0.17 progress has been made on the ground. Although permission does not expire until March 2021 and the site is suitable for C2 uses, it cannot currently be considered deliverable given the application history. Detailed permission expired in April 2018 (and followed on from a previously expired permission granted in 2011). Land Adj. Moorlands Care 542 R/2014/0673/CA Guisborough 30 13 0 0.07 While the site is suitable for C2 uses, it cannot currently Home be considered deliverable based on the application history. Existing Care Homes 2014 permission was for 27-bed extension which expired in May 2017 and therefore cannot be considered R/2014/0166/FF deliverable. The existing 2017 permission is for smaller 543 Gracelands Guisborough 28 12 0 0.35 R/2017/0874/FF proposal generating 1 additional bedspace, but if completed it would not stymie the larger extension, which should therefore continue to be monitored.

24 Based on 0.44 dwellings generated per bed space, in accordance with the guidance at para 035 of the Housing Supply and Delivery PPG.

Appendix 5:

General Economic Development Land Availability: Site Details

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Land Floors Policy Growth Permissioned ID Site Location Availabili pace Plots STDC Area? Constraints Strategy Comments (Ha.) ty (Ha.) (m2) ? Project? if known ED6 Business Parks and Industrial Estates Availability comprises plots of different sizes within the established business park but mostly on two plots of land to the north, the largest of which (approx.15ha.) to the north of Troisdorf Way is adjacent to the permissioned housing allocation at Kirkleatham Lane (Site 450). Part of the site (12.6ha.) has Tees Valley Enterprise Zone status. Overall 490 Kirkleatham Business Park Redcar 26.62 5 1.52 No No No development potential may be restricted to a limited extent by flood alleviation measures. The site falls within HSE consultation zones. Two smaller sites are permissioned, including a detailed permission on a 1.49ha. site, granted in July 2019 for 17 industrial units (application ref. R/2019/0150/FFM). Availability comprises two areas of land, mostly (5.4ha) at the northern end between John Boyle Road and the boundary towards the Middlesbrough-Saltburn railway, and 498 South Tees Freight Park Grangetown 6.26 2 0.08 Yes No No a square (0.86 ha) plot north of Middlesbrough Road East. The site falls inside the STDC area and an HSE outer consultation zone. Land availability is on four different parcels of land, one of 495 North Liverton Industrial Estate Liverton Mines 2.28 4 0.00 No No No which is previously developed. Availability comprises unkempt strip of land between the ASDA car park and A66, part of which was granted 500 Nelson Street Industrial Estate South Bank 0.63 2 0.42 No No No permission in July 2019 for warehousing associated with the adjacent SK food factory (application ref. R/2019/0045/FFM). The site falls within an HSE outer consultation zone. Availability comprises a single site near the entrance to the estate. The site was previously on the open market for several years. Most of the site falls within an area identified at risk of surface water flooding (1/100 yr. event). There is a 492 Dormanstown Industrial Estate Redcar 1.59 1 0.00 No No No pumping station abutting the site to the SW. Sewer passes along site entrance at West Coatham Lane / Limerick Road. The site falls within an HSE outer consultation zone and the electrical connection corridor linked to the DCO for the Teesside Cluster Carbon Capture and Storage Project. This industrial estate falls inside the STDC area and within 497 Bolckow Industrial Estate Grangetown 0.00 0 0.00 Yes No No an HSE outer consultation zone and appears to be fully occupied. Availability comprises four areas, mostly on two adjoining sites towards the site entrance and including the former 494 Barmet Industrial Estate Lingdale 0.98 4 0.00 No No No Lingdale Garage site (0.15ha.) which is the subject of an application for redevelopment as a convenience store (application ref. R/2020/0434/FF). Land availability is restricted to a single square-shaped plot 501 Skippers Lane Industrial Estate South Bank 0.79 1 0.00 No No No at Sotherby Road / Rennie Road. The site falls within an HSE outer consultation zone and is 499 South Tees Imperial Park South Bank 0.00 0 0.00 No No No fully occupied.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Single triangular-shaped plot of vacant land at the eastern 491 Warrenby Industrial Estate Redcar 0.25 1 0.00 No No No edge of the estate. Bounded to the north by the route of a disused railway. Other Employment Use Allocations Land Floors Policy Growth Permissioned ID Site Location Availabili pace Plots STDC Area? Constraints Strategy Comments (Ha.) ty (Ha.) (m2) ? Project? Land availability is on three plots ranging from the smaller 0.32ha.former permission site at Wandhills Ave. (permission 496 Skelton Industrial Estate Skelton 4.23 3 0.32 No No No for 6 industrial units expired in May 2020- application ref. R/2017/0594/FFM), to approx. 2ha. This site forms part of Skelton Regeneration allocation site (REG3) for mixed commercial and residential uses over 52ha, including the Skelton Industrial Estate. Permission was granted in May 2020 for the erection in four blocks of Land between Skelton Retail Park and 489 Skelton 5.02 4.603 1 5.02 No No No trade counter units (Use Class B8) and a builder's merchant Skelton Industrial Estate (storage, distribution, trade counter, offices and ancillary retail sales) (Sui Generis) with associated parking and service area, relevelling and engineering works, access and landscaping (application ref. R/2020/0070/FFM). Former Coatham Bowl site which forms the commercial element of mixed-use allocation under Policy REG1 (8.70ha.) including designated village green. The proposed commercial uses, as set out in the Growth Strategy (project ref. R22) is under review following decision to pursue cinema development on the Regent Cinema site. The site 482 Coatham Enclosure Redcar 1.56 1 0.00 No No Yes falls within Flood Zones 2 and 3, and as such any planning application would need to be accompanied by a flood risk assessment which would need to take into account relevant factors such as consideration of risk to the development, risk to other areas, flow routes, depths and finished floor levels. Two plots available of approximate equal size adjacent to existing industrial units. The sites form part of the Cleveland 493 Morgan Drive Guisborough 0.52 2 0.00 No No No Gate and Morgan Drive Mixed Commercial site allocated in the Local Plan under Policy ED7. Deep landscaped buffer strip including some young broadleaved trees situated at the entrance to the South Tees Business Parks, between the highway and the 511 Land at Eston Road Grangetown 0.44 1 0.00 Yes No No Materials Processing Institute site. The land falls within the employment allocation under Policy ED6 (a) and is inside an HSE outer consultation zone. The Kirkleatham historic estate is allocated for conservation-led regeneration under Policy REG2.The stable block is a grade-II listed building inside the 507 Kirkleatham Stable Block Redcar 0.19 1,000 1 0.00 No Yes Yes Conservation Area and is identified in the Growth Strategy for restoration and re-use for creative business space (project ref. R31). This site comprises most of the peripheral landscaping Land adjacent South Tees Business around the South Tees Business Centre and a small 549 South Bank 0.78 3 0.00 No No No Centre adjoining plot. The sites are being marketed by RCBC for disposal. Vacant backland site within Brotton local centre which has been reassessed from housing to economic uses which are 164 Station Yard Brotton 0.27 1 0.00 No No No considered more acceptable. There is an historic permission for 26 dwellings, granted on appeal in 2008, but

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

not activated. More recent proposals involve the demolition of a warehouse within the site (demolition notice R/2019/0300/PND). NHS office building, in central Guisborough and within the defined district centre, which has been put forward in 2020 538 Langbaurgh House Guisborough 0.60 1 0.00 No No No for residential conversion or commercial (A5) redevelopment. Other Sites Land between the allocated employment site at Kirkleatham Business Park and Wilton International and within green wedge and outside development limits. There is an operational 80m wind turbine in the south of the site. The 513 Land West of Kirkleatham Business Park Redcar 56.50 1 0.00 No Yes No site falls within HSE consultation zones and the Development Consent Order application area relating to infrastructure provision corridors to support proposed carbon capture and storage operations in the STDC area (application ref. R/2019/0124/DCO). Large area of vacant, previously developed land which has become available following extension to Motorsports Park 509 Motorsports Park North Site South Bank 10.96 1 0.00 No No No southern site. The site is the subject of a recent planning refusal (October 2020) for a waste management facility (application ref. R/2020/0172/FFM). The allotments have mostly been vacated and the site is 502 Skippers Lane Allotments South Bank 3.19 1 0.00 No No No identified in the Growth Strategy (along with Site 504) for business /workspace units (project ref. GE7). Housing-led outline proposals on 48ha. site (821 dwellings) were granted permission in appeal July 2017 for a period of 3 years. include proposed commercial uses (mostly hotel plus /petrol station/drive-thru' & A3/A4 uses) over 2ha (6335 054 Land South of Marske Marske 2.55 7,335 1 2.55 No Yes No sq. m) in SE corner and a neighbourhood centre in the site core (0.55ha. / c.1000 sq. m) to serve the proposed housing developments. Application ref. R/2013/0669/OOM. The site is the subject of a detailed application from the landowner incorporating the same commercial proposals. Vacant area of council-owned former allotment land between Warrenby Industrial Estate and Warrenby Allotments. The site forms part of the Coatham Marsh Local Wildlife Site designation and is inside the defined green 512 Land South of Tod Point Road Warrenby 1.48 1 0.00 No Yes No wedge and outside development limits. The site is being marketed for letting by the council alongside the adjacent site 548 (see below) for commercial/leisure or other appropriate uses . Triangular area of land below the road bridge at Middlesbrough Road near South Tees Motorsports Park. 505 Old Middlesbrough Road25 South Bank 1.55 1 0.00 No No Yes The site is identified in the Growth Strategy for highway infrastructure and business uses (Ref. GE7). Vacant flat triangular site adjacent to existing industrial 525 Former Prosser Scrapyard South Bank 0.85 1 0.00 No No No estate which is in a suitable location for redevelopment for business uses. Grassland adjacent to the B1269/A174 junction which is outside development limits and partly allocated as a 514 Plantation Road Redcar 0.83 1 0.00 No Yes No strategic landscape area under Policy N2(f). The site appears to have been planted up with saplings.

25 Previously referred to as “Middlesbrough Road”.

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Vacant and cleared former employment site which was the 516 Former Concast Site South Bank 0.71 1 0.00 No No No subject of an expired permission for 19 industrial uses (application ref. R/2013/0457/FFM). Vacant business centre adjacent to A66 junction with 506 Normanby Road Business Centre South Bank 0.29 1 0.00 No No No parking/access area. The site falls within an HSE outer consultation zone. Vacant former station buildings previously converted into a business centre. The site is included in the Growth Strategy 487 Former Redcar Central Railway Station Redcar 0.14 1,812 1 0.00 No No Yes (project ref. R19) as Redcar Central Station Rejuvenation to include A1 and A3 uses, business units and ticket office. Vacant land immediately east of the A66 South Bank 537 Middlesbrough Rd (South Bank) South Bank 0.55 1 0.00 No No No roundabout which was advertised on the open market in 2019. Strip of former railway land between Warrenby allotments and caravan park. The site is outside development limits, 548 Land SE of Tod Point Road Warrenby 0.72 1 0.00 No Yes No within a defined green wedge and adjacent to Coatham Marsh local wildlife site and is being marketed by the council for letting, alongside site 512 (see above).. This site is identified for economic development uses in the Council’s regeneration proposals for Loftus through the 304 Former Loftus Station Loftus 1.20 1 0.00 No No No Future High Streets Fund. Although outside development limits, the site comprises previously developed land and as such may meet exceptions criteria under Policy SD3 (j). Land Plots Permissioned ED6 - Business Parks and Industrial Estates (ha.) 39.40 20 2.02

Other Allocation Sites (ha.) 13.61 14 5.02 Other Permissioned Sites 2.55 1 2.55 Total 55.56 35 9.59

Redcar & Cleveland Housing and Economic Land Availability Assessment - 2020 Update

Appendix 6:

Site Location Plans

498

535 498 549 549 500 506 509 537 337 511 381b 503 526 505 381 381 169 516 131 395 525 394 381 135 240 502 501 534

539 134 048 134 134

418 452

256

419 462

127

464

018 316

459

021 523

518 294

521

474 465 393 023/291 024

402

Legend

SD 3 Development Limits 124 HELAA 2020 Available Housing Land C2 Care Home Permissions Available Economic Land

Contains Ordnance Survey data © Crown Copyright and database rights 2020 (100019983) Date: 17/12/2020 Housing and Economic Land Availability Drawn by: DM F Scale = 1:19,845 Assessment (HELAA) 2020 DWG No: PLNG788(1) 345 531 345 531 504 482 504 482 470 442 467 491 470 442 467 344 512 548 487 344

487 484

484

492 544 366 387 533

158

450b 527 536 528 403 450a 490 413

490 347 469 514 008 513 014 490 451 455 507 010 056 483 054 055 519 057 013 285 488 Legend 111 453 SD 3 Development Limits HELAA 2020 Available Housing Land C2 Care Home Permissions

Available Economic Land

Contains Ordnance Survey data © Crown Copyright and database rights 2020 (100019983) Date: 17/12/2020 Housing and Economic Land Availability Drawn by: DM F Scale = 1:23,670 Assessment (HELAA) 2020 DWG No: PLNG788(2) 051

051 489 496 352 496

461 496 409

405

476 532

415 040

457 466

524

494 494 477

310 082 308 529

Legend

SD 3 Development Limits HELAA 2020 Available Housing Land C2 Care Home Permissions

Available Economic Land 478

Contains Ordnance Survey data © Crown Copyright and database rights 2020 (100019983) Date: 17/12/2020 Housing and Economic Land Availability Drawn by: DM F Scale = 1:18,042 Assessment (HELAA) 2020 DWG No: PLNG788(3) 232

194

358/359

091

541 142

522 164 193 547 090

043/092 044 093 069

045

178 389/392

456 546 481 545 304 Legend

SD 3 Development Limits 360a HELAA 2020 360b 495 Available Housing Land 495 515 C2 Care Home Permissions

Available Economic Land

Contains Ordnance Survey data © Crown Copyright and database rights 2020 (100019983) Date: 17/12/2020 Housing and Economic Land Availability Drawn by: DM F Scale = 1:15,000 Assessment (HELAA) 2020 DWG No: PLNG788(2) 475

517 136

542 376

047a 540 538

400 284

029 404 161b 320b 320c

320a 493 161a 030/066 454 493

543 485

Legend

SD 3 Development Limits HELAA 2020 Available Housing Land C2 Care Home Permissions

Available Economic Land

Contains Ordnance Survey data © Crown Copyright and database rights 2020 (100019983) Date: 17/12/2020 Housing and Economic Land Availability Drawn by: DM F Scale = 1:10,000 Assessment (HELAA) 2020 DWG No: PLNG788(5)